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O Ministério dos Negócios Estrangeiros : a reforma dministrativa e o corpo social (1834-1910)
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O Ministério dos Negócios Estrangeiros - objeto do nosso estudo - sofreu profundas transformações durantef o período da Monarquia Constitucional (1834-1910). O esforço de modernização e de implementação de um sistema administrativo de cariz moderno/racional levou a um programa legislativo de reforma administrativa. Este processo é caracterizado pela reorganização da estrutura orgânico-funcional da Secretaria de Estado, pela especialização funcional, pela burocratização do sistema do expediente, organização dos quadros do pessoal e da carreira dentro da instituição, profissionalização (meritocracia) e pela organização da rede externa de legações e consulados.
O processo de transição da orgânica interna da Secretaria de Estado de um modelo horizontal de desdobramento de repartições organizadas por uma lógica de países geográficos deu lugar a uma estrutura hierarquizada em modelo vertical, onde os assuntos de expediente foram divididos em duas grandes áreas temáticas: a Direção-Geral dos Negócios Políticos e Diplomáticos e a Direção-Geral dos Negócios Comerciais e Consulares. Estas por sua vez eram subdivididas em repartições e secções. Desta forma, evidencia-se a especialização funcional e a divisão do trabalho. Os quadros do pessoal foram organizados segundo um modelo hierárquico de classificação por categorias e classes, multiplicando-se os patamares de ascensão, o que possibilitou a formação de uma carreira profissional. Uma das mais importantes medidas introduzidas foi o recrutamento segundo o modelo meritocrático de concurso público por provas práticas.
Passando do modelo de gestão administrativa para a função primordial da instituição – a execução da Política Externa - a rede diplomática e consular foi adaptada às necessidades do século do progresso económico, tecnológico, ideológico e comercial. Portugal, como parte integrante do modelo europeu em expansão, numa época de apogeu do imperialismo, moldou a sua representação externa aos condicionalismos e interesses nacionais. Por um lado, a grave crise económica e financeira, por outro, a necessidade de defesa do património histórico e geopolítico e, ao mesmo tempo, a vontade de marcar o seu lugar na comunidade internacional, no concerto europeu.
A diplomacia e o corpo social que a formava (corpo diplomático) viveu as transformações políticas, sociais e económicas da época. Não perdendo o seu pendor aristocrático, este corpo social ultrapassou os desafios da época que levaram à redefinição da sua própria identidade. Entram em jogo fatores não só de estatuto social mais também de interesses políticos. É sem dúvida uma elite social ao serviço do regime constitucional em que os ideais da antiga aristocracia (já modificados desde o século anterior) dão lugar à nova nobreza titulada, com a possibilidade de abertura e ascensão social pelo serviço diplomático.
O campo da diplomacia tem nesta época uma forte ligação à elite politico-administrava. Os diplomatas marcaram presença nas bancadas do Parlamento, lutaram na guerra pelos interesses do país e mantiveram uma ligação ao direito e às letras. Vários vultos da política assumiram a prática diplomática e vice-versa, vários diplomatas desempenharam cargos ministeriais no governo. No entanto, a profissionalização levou ao surgimento do diplomata de carreira, com um percurso completo de ingresso e ascensão, com direito a “licença”, ordenado fixo e aposentadoria.
Apresentamos, desta forma, um estudo da organização institucional, funcionamento e pessoal do Ministério dos Negócios Estrangeiros, neste quase um século, com enfoque no processo que sofreu na assunção da modernidade.
The Ministry of Foreign Affairs of Portugal - the object of our study - suffered a great transformation with the advent of the Constitutional Monarchy (1834-1910). The effort to modernize, and to assume the implementation of the modern/rational administrative system led to a legislative effort of administrative reform. This process was characterized by the reorganization of the organic and functional structure of the Secretariat of State, by the functional specialization, the bureaucratization of the dispatch system, the organization of the personnel boards and professional career within the institution, the professionalization (meritocracy) and the organization of the foreign network of diplomatic legations and consulates. The transition process of the internal organic structure of the Secretariat of State from a horizontal model of subsequent departments, organized by a geographical logic, gave place to a hierarchical structure in a vertical model, divided in two great thematic areas of work: the General Department of Politics and Diplomacy and the General Department of Commerce and Consular Affairs. These two General Departments were later also subdivided in sub-departments and sections. This way it was evidenced the functional specialization and labor division. The board of personnel was organized by a hierarchic model classified by class and categories, multiplying the levels of career ascension, and resulting in the emergence of a professional career. One of the most important measures introduced was the meritocratic model of recruitment based on a public service exam. From the model of public administration management, we took on the fundamental question, and ultimate function of the institution, which is the administration of the Foreign Policy. The network of diplomatic legations and consulates was adapted to the necessities of the century of economic, technologic, ideologic and commercial progress. Portugal, as an integral part of the European model in expansion, in a period of high imperialism shaped its external representation to its own constraints and national interests. On one hand, Portugal lived a severe economic and final crisis, on the other hand there was a need to defend the patrimonial, historic and geopolitical heritage and, at the same, the will to be integrated in the international community, in the concert of Europe. Diplomacy and its executive corps (diplomatic corps) was in tune with the political, social and economic transformations of the XIXth century. Without loosing its aristocratic composition, this social corps redefined its own identity. Come into play factors, not only, of social status, but also, of political interests. It is without a doubt a social elite at the service of the constitutional regime in which the ideals of the old aristocracy (already shattered during the XVIII century) give way to a new titular nobility, with the possibility of social ascension by the diplomatic service. The diplomatic field, during this time, had a very strong connection to the political and administrative elite. The diplomats were present at the benches of Parliament, fought in the war for the interests of their country and maintained closely linked to the law, judiciary and humanities fields. Several high political personalities went into the diplomatic practice and, vice-versa, the diplomats were appointed to ministerial and governmental positions. Notwithstanding, the process of professionalization lead to the emergence of the career diplomat with a path from the recruitment to promotion to a higher rank, with rights to temporary leave, fixed income and retirement. In this manner, we present a study of the institutional organization and personnel of the Ministry of Foreign Affairs of Portugal, in the scope of almost a century, focusing in the aspects of transition into the modernity.
The Ministry of Foreign Affairs of Portugal - the object of our study - suffered a great transformation with the advent of the Constitutional Monarchy (1834-1910). The effort to modernize, and to assume the implementation of the modern/rational administrative system led to a legislative effort of administrative reform. This process was characterized by the reorganization of the organic and functional structure of the Secretariat of State, by the functional specialization, the bureaucratization of the dispatch system, the organization of the personnel boards and professional career within the institution, the professionalization (meritocracy) and the organization of the foreign network of diplomatic legations and consulates. The transition process of the internal organic structure of the Secretariat of State from a horizontal model of subsequent departments, organized by a geographical logic, gave place to a hierarchical structure in a vertical model, divided in two great thematic areas of work: the General Department of Politics and Diplomacy and the General Department of Commerce and Consular Affairs. These two General Departments were later also subdivided in sub-departments and sections. This way it was evidenced the functional specialization and labor division. The board of personnel was organized by a hierarchic model classified by class and categories, multiplying the levels of career ascension, and resulting in the emergence of a professional career. One of the most important measures introduced was the meritocratic model of recruitment based on a public service exam. From the model of public administration management, we took on the fundamental question, and ultimate function of the institution, which is the administration of the Foreign Policy. The network of diplomatic legations and consulates was adapted to the necessities of the century of economic, technologic, ideologic and commercial progress. Portugal, as an integral part of the European model in expansion, in a period of high imperialism shaped its external representation to its own constraints and national interests. On one hand, Portugal lived a severe economic and final crisis, on the other hand there was a need to defend the patrimonial, historic and geopolitical heritage and, at the same, the will to be integrated in the international community, in the concert of Europe. Diplomacy and its executive corps (diplomatic corps) was in tune with the political, social and economic transformations of the XIXth century. Without loosing its aristocratic composition, this social corps redefined its own identity. Come into play factors, not only, of social status, but also, of political interests. It is without a doubt a social elite at the service of the constitutional regime in which the ideals of the old aristocracy (already shattered during the XVIII century) give way to a new titular nobility, with the possibility of social ascension by the diplomatic service. The diplomatic field, during this time, had a very strong connection to the political and administrative elite. The diplomats were present at the benches of Parliament, fought in the war for the interests of their country and maintained closely linked to the law, judiciary and humanities fields. Several high political personalities went into the diplomatic practice and, vice-versa, the diplomats were appointed to ministerial and governmental positions. Notwithstanding, the process of professionalization lead to the emergence of the career diplomat with a path from the recruitment to promotion to a higher rank, with rights to temporary leave, fixed income and retirement. In this manner, we present a study of the institutional organization and personnel of the Ministry of Foreign Affairs of Portugal, in the scope of almost a century, focusing in the aspects of transition into the modernity.
Descrição
Palavras-chave
Portugal. Ministério dos Negócios Estrangeiros - 1834-1910 Administração pública - Reforma Portugal - Administração - Reforma - 1834-1910 Serviço diplomático e consular português - 1834-1910 Portugal - Política e governo - 1834-1910 Teses de doutoramento - 2018