Public Administration: History and Evolution

• Public Administration (PA) involves managing state affairs effectively through people, money, and resources.
• Public Administration combines academic study with practical application, using sciences for theoretical and practical knowledge.
• As a field of practice, PA focuses on action and the execution of public policies and programs.
• PA affects everyone, from birth certificates to death certificates, making it unavoidable.

History and Evolution

• PA has existed since early civilizations, where rulers needed administrators for government functions, often leading to nepotism and patronage known as the "spoils system."
• Modern PA began in the mid-19th century with efforts to professionalize government administration.
• Lorenz von Stein in 1855 described PA as integrating sociology, political science, law, and finance, using the scientific method.
• Woodrow Wilson's 1887 article advocated for separating politics and administration, comparative analysis, business-like efficiency, and merit-based public service.

Politics-Administration Dichotomy

• Wilson proposed politics (legislature) should focus on policymaking, while administration (executive) should manage and implement policies efficiently.
• Frank Goodnow (1900) and Leonard D. White (1926) supported this view, emphasizing private sector methods in government management.
• Critics argued that politics and administration cannot be fully separated, with Waldo suggesting administration is a form of politics focused on order, efficiency, and stability.

Classical Public Administration/Bureaucracy

• Frederick Taylor (Science Management, 1912), Max Weber (Bureaucracy, 1922), Henri Fayol (1923) and Luther Gulick & Lyndall Urwick (Administrative Management, 1937) are credited with the classical PA and Bureaucratic model.
• Taylor's Scientific Management focused on worker productivity and effectiveness through scientific methods with time and motion studies.
• Gulick & Urwick created POSDCORB (Planning, Organizing, Staffing, Directing, Coordinating, Reporting & Budgeting) framework.
• POSDCORB is an Administrative Management framework.
• Fayol's 14 principles and 5 functions are Division of labor, Authority, Discipline, unity of Command, unity of Direction, Subordination, Remuneration, Centralization, Hierarchy, Order, Equity, Stability, Initiative & Team spirit).
• Weber's Bureaucracy, designed to maximize efficiency on a large scale, using IFHARM (Impersonal, Formal, Hierarchical, Apolitical, based on written Records and Merit & fitness as basis for personnel selection and promotion).
• Scientific Management focuses on lower-level workers and increasing productivity.
• Administrative Management framework, POSDCORB, principles was considered as functions of the executive.
• Bureaucracy can be vulnerable to nepotism, perpetuates spoils system, and lacks independence.
• Weber's model is seen as insensitive, unresponsive, and prone to corruption.

Neo-Classical/Human Relations

• Neo-Classical/Human Relations focuses on small group theory and individuals within the organization.
• Abraham Maslow's Hierarchy of Needs(1943) argued that human motivation improves employee productivity and organizational performance.
• Elton Mayo and Fritz Roethlisberger's Hawthorne Experiment showed that informal social relationships increase employee productivity.
• Critics suggested it is too management-oriented, could manipulate groups, and neglects organizational and public interests.

Integrative Period

• Integrative Period combined Classical and Neo-Classical theories by using streams of thoughts that are: Decision-Making Theory, Industrial Humanism , and Open-System Theory

Modern PA

• New PA (NPA) and Development Administration (DA) emerged post-war.
• DA, coined by Goswami (1955), was popularized by Riggs & Weidner; it uses administrative development for progress in developing nations.
• DA, influenced by the US model and Marshall Plan, aims to modernize, improve personnel, and change administrator attitudes.
• The Minnowbrook Conference (1968), led by Waldo, called for NPA, adding Social Equity to traditional PA's Efficiency, Economy and Effectiveness.
• The Social Equity are The 3Rs (Responsiveness, Responsibility & Representation) & P-SJ (Participation & Social Justice).
• Rostow's Model of Development, has 5 basic stages: Traditional Society, Preconditions for Take-off, Take-off, Drive to Maturity, Age of Mass Consumption.
• DA and NPA share concerns for public interest (Vincent Ostrom's Public Choice Theory), linking politics and admin to measurement of results and policy impacts.
• Criticisms of DA are rich & poor countries' relations leading to dependency, its cure-all approach, and bureaucratic resemblance.
• Criticisms of NPA are its attempts to “steal” public interest (Thompson), its symbolic nature, and a lack of impact on the field's direction (Harmond).

Governance Approach

• Governance Approach began in the 1980s.
• Gerry Stoker defines governance as institutions and actors both inside and outside government.
• Governance involves power dependencies and autonomous networks, using new tools to steer and guide.
• The ADB defines governance as managing a country's social and economic resources.
• Characteristics of Governance by UNDP that are (Participatory, Acceptable to the people, Sustainable, Transparent, Accountable, Gender balance, promotes Equality, values effective use of Resources, strengthens Indigenous mechanisms, accepts Diverse perspectives, Facilitative).
• World Bank are Four Components of Governance (Public Sector Management; Accountability; Legal Framework for Development; and Information & Transparency)

Shift from Traditional PA to Governance

• There's a shift from government control to shared governance.
• There's a shift from top-down to decentralized service delivery.
• Interlinking can be achieved via Three Methods of Privatization, Sub-contracting, and Competition.
• A shift from public administration to public management has occurred.
• There has been a shift from a centralized, hierarchical system to a decentralized network.

Governance as New Public Management/Reinventing & Reengineering

• New Public Management (NPM) aims to make governments more cost-efficient, while modernizing the public sector using new methods to achieve goals.
• Endorsed by multilaterals, such as Britton Woods, WB, IMF, etc NPM encompasses techniques to overcome PA inefficiencies by maximizing productivity and effectiveness (Falconer).
• Osborne and Gaebler (1992) listed 10 Principles of Reinventing Government like Catalytic, Community-oriented, Customer-driven, Competitive, Mission-driven, Results-oriented, Market-oriented, Anticipatory, Decentralized, and Enterprising.
• NPM could cause increased institutional fragmentation may impair problem solving (Ocampo 2008).
• NPM is not universally applicable and the Market may not address inefficiency or other issues.
• Good Governance = Government interacting with business, civil society to put public interest at all development efforts.
• Measurement of the quality of governance can be measured through international comparable measurement or external assessment like WB Governance Indicators/ Surveys.

Emerging Paradigms

• E-governance aims to reinforce rather than transform existing power structures (Ocampo 2008).
• Most governments now use e-governance applying technology (ICT) for state affairs and OSCRA (Organizing, Storing, Collecting, Retrieving and Analyzing).
• E-Gov improves public services, managerial effectiveness, democratic values, stakeholder interaction, transparency, and speeds up service delivery.
• Governmentality is the merging of “government” & “mentality” that substantiates a capacity of "governing from a distance (Ocampo).

Summary of PA Schools of Thought

• Classical PA focuses on organization.
• Frederick Taylor's Scientific Management emphasizes efficiency and productivity.
• Urwick/Gulick's Administrative Science focuses on efficiency, team work, division of labour, and coordination.
• Max Weber's Bureaucracy centralizes authority and stresses neutrality.
• Neo-Classical PA emphasizes human relations and motivation for individuals, like Mary Parker Follet, Maslow, etc.
• The Modern PA Client-oriented, and participatory-collaborative.
• George Frederickson's New Public Administration integrates social justice and equity.

PA Identity Crisis

• The definition of PA has evolved with changing theories.
• Several scholars suggest that it has an "identity crisis because of "changing and competing theories because of , such as Wise, Rutgers, and Raadschelders.
• Dwight Waldo (1946) said there is no universal consensus and Ostrom (1974) called it "intellectual crisis."
• Developmental psychologist Erik H. Erikson coined “identity crisis”, it refers to adolescents searching identity that might seems like PA study suffers role studying government.
• The Erikson (1968) “identity crisis" seemed to decrease from late 1970s (Reyes 1995).
• Nicholas Henry (1975) outlines the continuous intellectual turmoil in Paradigms of PA".
• Henry's Paradigms are 1: Politics-Administrative Dichotomy (1900-1926), 2: Principles of Administration (1927-1937), 3: PA as Political Science (1950-1970), 4: PA as Administrative Science (1956-1970), Paradigms 5: PA as PA (1970-present).
• Paradigm 1: Politics-Administrative Dichotomy emphasizes execution policies & PA should do to with policies in the Bureaucracy.
• Essential expertise in the form of administrative principles (Willoughby) as Paradigm 2: Principles of Administration.
• Criticism of Paradigm 2 are Politics & Administration could never be dichotomized .
• Pure science of administration is based on social psychology Paradigm 3: PA as Political Science (1950-1970).
• PA is rearing away from Political Science in Paradigm 5: PA as PA (1970-present).
• Government is changing, working with various groups.
• Some scholars criticized N. Henry's Paradigms with PA is still seeking theories & (Guy Adams 1992) said "acceptable model of governance.” (Charles Fox & Hugh Miller 1995).

Subfields of PA

• Subfields of PA are Organization and Management, Public Personnel Administration, Public Fiscal Administration, Local Government Administration, Policy Analysis and Program Administration.
• Subfields of PA are also Public Enterprise Management Voluntary Sector Management Spatial Information Management.

PH PA SYSTEM

• Raul de Guzman & O.D. Corpuz (1986) has answered that there is a Philippine (PH) PA in the affirmative.
• The PH has basic PA structures & processes of executive branch, legislature & judiciary, electoral processes ,and local governments structures.
• There is a PH PA characterized by context which is (A. Brillantes, Jr. & M. Fernandez).
• There were formal structures during pre-colonial PH Sultanate and Rajah systems.
• Spain applied its system to the PH headed by the Governor General during Spanish Colonial Period (1521 – late 1890s).
• There was filipinization (civil service in basic administrative policy in American/Commonwealth Period (1900-1941).
• Establishment of PH Institute of PA was proposed (IPA) according to Rehabilitation Period ((Application of Development Theory in PH during Philippine Republic (1946-present).
• One has to make an evaluation regarding the discipline of PH PA.

Bureaucratic Theories

• Max Weber's Bureaucratic Theory = Formal administrative mechanism through which all policies & projects of government are carried out.
• The "rational-legal" organization are a kind of bureaucratic theory with characteristics like Hierarchical arrangement of positions, Division of labor,Security of tenure.