ADS646 Chapter 2 PAT Seremban PDF

Chapter 2: The Traditional Model of Public Administration By: Dr Ahmad Faiz Yaakob FSPPP, Seremban 1  Outlines Introduction to Traditional Model of Public Administration Weber's Theory of Bureaucrac...

Chapter 2: The Traditional Model of Public Administration By: Dr Ahmad Faiz Yaakob FSPPP, Seremban 1  Outlines Introduction to Traditional Model of Public Administration Weber's Theory of Bureaucracy Wilson's Principle of Separation in Public Administration Traditional Model of Administration and Taylor's Scientific Management Human Relations Theory Problem with traditional model Conclusion 2  Introduction to Traditional Model of Public Administration Historical Context: The traditional model of public administration emerged as a reform movement in response to the need for a more professional approach to governance. For example, in the 19th century, there was a shift from amateur administration to a merit-based public service. Under the traditional model, public administration was politically controlled, hierarchically structured, and based on meritocratic appointments. Civil servants operated in a strictly hierarchical bureaucracy, serving any governing party equally and prioritizing the public interest over personal or political interests, adhering strictly to established laws and precedents. 3  Introduction to Traditional Model of Public Administration Evolution of Public Administration Early Administration: Administrative systems have existed throughout history, evolving alongside the concept of government. For instance, ancient civilizations like Egypt and China developed administrative systems to manage irrigation and governance. European empires relied heavily on administrative structures controlled by rules and procedures. An example is the Roman Empire, which had a sophisticated bureaucracy to govern its vast territories. 4 Introduction to Traditional Model of Public Administration Reforms of the Nineteenth Century: The Northcote–Trevelyan Report in the UK marked a significant shift towards merit-based appointments and the decline of patronage. For instance, the implementation of competitive examinations for civil service positions ensured selection based on merit rather than personal connections. Influenced by UK reforms, the US passed the Civil Service Act (Pendleton Act) in 1883, introducing competitive examinations and bipartisan oversight to civil service appointments. This aimed to reduce corruption and ensure a more professional public service. 5  Introduction to Traditional Model of Public Administration Key Figures and Influences Woodrow Wilson: Advocated for clear distinction between policy-making and administration. For example, he argued that politicians should focus on setting policy goals, while administrators should execute those policies efficiently. Max Weber: Emphasized need for professional, politically neutral public service. An example would be the establishment of civil service commissions to oversee appointments based on merit rather than political affiliation. Frederick Taylor: Applied principles of scientific management to increase efficiency. For instance, Taylor's ideas on streamlining processes and optimizing workflow were adopted in government agencies to improve service delivery. 6  Introduction to Traditional Model of Public Administration Legacy and Critiques Legacy of Traditional Model: The traditional model of public administration has been a long-standing and successful theory of governance, providing a framework for effective public service delivery. However, it is now being replaced by more modern approaches to administration. Critiques and Challenges: Despite its success, the traditional model faces criticism for its perceived lack of flexibility and responsiveness to rapidly changing societal needs. Critics argue that it may not be well-suited to address contemporary challenges such as technological advancements and globalization. 7  Weber's Theory of Bureaucracy Introduction to Weber's Theory of Bureaucracy Weber's theory of bureaucracy is a cornerstone of the traditional model of administration, emphasizing rational/legal authority and organizational efficiency. Key Points: Weber identified three types of authority: charismatic, traditional, and rational/legal, with rational/legal authority being the most efficient and rational. He outlined six principles for modern bureaucratic systems, including fixed jurisdictional areas, office hierarchy, and management based on written documents. Weber's theory influenced the development of public administration, shaping practices such as merit-based appointments and impartial service. 8  Weber's Theory of Bureaucracy Principles of Weberian Bureaucracy Weber's six principles of bureaucracy are fundamental to understanding its operation and efficiency. Principles: i. Fixed and official jurisdictional areas ii. Office hierarchy and graded authority iii. Management based on written documents iv. Thorough and expert training for officials Full-time engagement in official duties v. Management according to stable and learnable rules These principles ensure consistency, efficiency, and impartiality in decision-making within bureaucratic organizations. 9  Weber's Theory of Bureaucracy Position of the Official in Weberian Bureaucracy The role of the official in Weber's theory is crucial for maintaining the integrity and effectiveness of bureaucratic systems. Key Aspects: Officials strive for social esteem and are appointed by superior authority. Positions are typically held for life, with legal guarantees against arbitrary dismissal. Officials receive fixed salaries based on status and length of service. There is a career path within the hierarchical structure, allowing for advancement based on merit and experience. These aspects ensure professionalism, stability, and impartiality in the execution of bureaucratic duties. 10 Wilson's Principle of Separation in Public Administration Woodrow Wilson advocated for a clear separation of politics from administration, emphasizing the need to distinguish between policy-making and administrative tasks. Key Points: Wilson argued that administration lies outside the sphere of politics and should focus on the detailed execution of public law. He believed that linking administrative questions with political ones leads to corruption and arbitrary decisions, known as the spoils system. The politics/administration dichotomy became a guiding principle in traditional public administration, aiming to create a distinct sphere for administrative development free from political interference. 11 Wilson's Principle of Separation in Public Administration Facets of Political Control in Traditional Administration In traditional administration, there are three main facets of political control, particularly in Westminster systems. Key Aspects: Clear relationship of accountability and responsibility, with public servants accountable to the Cabinet and eventually to the people. Strict separation between matters of policy, handled by politicians, and matters of administration, left to the public service. Presumption of anonymity and neutrality in the administration, with public servants serving any political leader impartially. 12 Wilson's Principle of Separation in Public Administration Challenges to the Politics/Administration Dichotomy While the politics/administration dichotomy was a foundational principle, it faced challenges and criticisms over the years. Key Challenges: Critics argue that the separation of politics and administration is often more theoretical than practical, with politicians and administrators frequently overlapping in their roles. The dichotomy has been viewed as a myth, as politicians often perform administrative duties and administrators assume political responsibilities. Despite its theoretical foundation, bureaucratic structures have been built as though the separation between politics and administration is a reality, highlighting the complexities of governance. 13 Traditional Model of Administration and Taylor's Scientific Management The traditional model of administration, established by the 1920s, emphasized bureaucracy as a permanent and neutral instrument of power, separate from policy and politics. Key Aspects: Bureaucracy was based on Weber's principles, with political control advocated by Wilson and merit appointments promoted by Northcote–Trevelyan. Despite its firm theoretical foundation, the model lacked a systematic approach to organizing and working efficiently. Frederick Winslow Taylor introduced scientific management principles, providing a way to enhance efficiency and organization within the bureaucratic structure. 14 Traditional Model of Administration and Taylor's Scientific Management The traditional model of administration, established by the 1920s, emphasized bureaucracy as a permanent and neutral instrument of power, separate from policy and politics. Key Aspects: Bureaucracy was based on Weber's principles, with political control advocated by Wilson and merit appointments promoted by Northcote–Trevelyan. Despite its firm theoretical foundation, the model lacked a systematic approach to organizing and working efficiently. Frederick Winslow Taylor introduced scientific management principles, providing a way to enhance efficiency and organization within the bureaucratic structure. 15 Traditional Model of Administration and Taylor's Scientific Management Impact of Taylor's Scientific Management Taylor's scientific management principles complemented the traditional model of administration, offering a systematic approach to organizing work. Key Points: The integration of scientific management ideas with the politics/administration dichotomy gave a sense of purpose and self-confidence to the practice and study of administration in the 1920s and 1930s. Scientific management emphasized efficiency, productivity, and optimization of workflow, contributing to the evolution of administrative practices in both the public and private sectors. Taylor's principles enhanced the effectiveness of bureaucratic structures, aligning them with modern management practices and laying the groundwork for further developments in administrative theory. 16 Human Relations Theory Human relations theory, in contrast to scientific management, emphasizes the social context at work and views workers as more than mere automatons driven solely by financial incentives. Key Points: Rooted in social psychology, human relations theory emerged as a significant tradition in public administration alongside scientific management. Elton Mayo, considered the founder of human relations theory, conducted experiments during the 1930s, notably the Hawthorne experiments, which highlighted the importance of the social work group in productivity. Mayo's findings emphasized the significance of interpersonal relationships and social interactions at work, suggesting that factors beyond financial incentives contribute to productivity. 17  Human Relations Theory Impact of Human Relations Theory on Public Administration Human relations theory has influenced managerial practices in the public sector, advocating for kinder treatment of workers and emphasizing social interactions. Key Highlights: Mayo's work underscored the importance of informal relations within organizations, leading to the development of participative management styles and job enrichment techniques. The application of human relations theory in public administration contributed to debates over managerialism and organizational performance. While criticisms of public bureaucracy often suggest workers are treated too well, the incorporation of human relations principles has aimed to enhance organizational effectiveness through improved working conditions and interpersonal dynamics. 18  A continuing debate Scientific Management vs. Human Relations The debate between scientific management and human relations is ongoing, but it's misleading to view Taylor's and Mayo's theories as mutually exclusive. Both aimed to increase productivity, albeit through different means. Key Points: Taylor's scientific management focused on standardizing work and controlling processes for efficiency, while Mayo's human relations emphasized the importance of social context and worker relationships. Despite differences, both Taylor and Mayo sought increased productivity and influenced management practices in the public sector. Recent arguments suggest a false dichotomy between scientific management and human relations, as both theories continue to shape public administration. 19  A continuing debate The Golden Age of Public Administration Public administration experienced a Golden Age from around 1920 to the early 1970s, marked by confidence in established theories and a belief in improving society through government. Key Highlights: During this period, public administration achieved significant milestones, including administering the New Deal, infrastructure development, and managing welfare systems. The traditional model of administration, characterized by principles like merit-based appointments and bureaucratic hierarchy, provided stability and efficiency but faced criticisms for its rigidity. Nostrums like POSDCORB, emphasizing planning, organizing, staffing, directing, coordinating, reporting, and budgeting, guided administrative practices but were challenged by the human relations movement. While the traditional model served well in stable environments, criticisms arose as society evolved, suggesting the need for alternative approaches to public organization. 20  Problem with traditional model Overview of the traditional model of government management prevalent in the 1970s and 1980s. Hierarchical structures were predominant but not necessarily efficient in terms of outputs compared to inputs. Bureaucracy was ideal for control but hindered innovation and was slow-moving. Political control lacked genuine accountability, leading to criticism and inefficiencies. 21  Problem with traditional model Problems with Political Control The separation between policy and administration was unrealistic and not fully achievable. Relationship between government and administration is complex, not strictly linear. Public service work is inherently political, affecting policy outcomes. Traditional model imposes negative control and fails to recognize the managerial and policymaking roles of public servants. 22  Problem with traditional model Challenges with One Best Way and Bureaucracy Traditional model assumed "one best way" of administering, hindering flexibility and innovation. Weberian model of bureaucracy faced criticism for breeding inefficiency, risk aversion, and lack of accountability. Conflict between bureaucracy and democracy due to secrecy, rigidity, and hierarchy. Bureaucracy viewed as inefficient, particularly in changing environments. 23  Problem with traditional model Moving Towards Public Management Shift towards public management emphasizing flexibility, speed, and results. Recognition of the limitations of traditional bureaucratic models in achieving efficiency and innovation. Need for organizational culture change in the public sector to adapt to new management paradigms. While bureaucratic principles may still serve certain purposes, alternative forms of administration are being explored for greater effectiveness. 24  Problem with traditional model The Public Choice Critique Influence of Market Economists: Hayek, Friedman, and Friedman's theoretical arguments influenced policies aimed at reducing government size. Goal: Reduce government bureaucracy as it restricts individual freedom and is considered less efficient than market processes. Two Main Claims: Government bureaucracy restricts individual freedom, advocating for more choice. Traditional bureaucratic model lacks equivalent incentives and rewards compared to the market, thus being less efficient. Public Choice Theory: Application of microeconomic principles to political and social areas. Based on rational actor model: individuals maximize benefits while minimizing costs. 25  Problem with traditional model The Public Choice Critique Assumptions of Rational Choice: Well-formed preferences Transitive preference orderings Maximization of benefits net of costs Egoistic and self-regarding behavior Application in Bureaucracies: Bureaucrats aim to maximize personal utility, leading to budget maximization. Office politics and self-interest may influence bureaucratic decisions. 26  Problem with traditional model The Public Choice Critique Assumptions of Rational Choice: Well-formed preferences Transitive preference orderings Maximization of benefits net of costs Egoistic and self-regarding behavior Application in Bureaucracies: Bureaucrats aim to maximize personal utility, leading to budget maximization. Office politics and self-interest may influence bureaucratic decisions. 27  Problem with traditional model Critiques and Impact of The Public Choice Critique Challenges to Traditional Model: Public choice theorists challenge assumptions of traditional public administration. Bureaucracies are seen as inefficient compared to markets in resource allocation. Critiques and Challenges: Lack of empirical evidence for bureaucrats' budget-maximizing behavior. Bureaucratic power exaggerated; disregards public purpose. Overemphasis on market solutions disregards nuanced organizational issues. 28  Problem with traditional model The Public Choice Critique Impact: Influence on policies and governments, especially during the Thatcher and Reagan eras. Recognition of the inadequacies of traditional public administration theories. Influence extends beyond ideological boundaries, prompting reevaluation of governance approaches. 29  Conclusion - The Evolving Paradigm of Public Administration Traditional Model: Once widely emulated and considered successful. More efficient and professional compared to earlier forms. Based on hierarchy and bureaucratic organization. Obsolescence of Traditional Model: Developed for an earlier industrial age, now considered obsolescent. Formal hierarchies less effective in modern private and public sectors. Theoretical pillars no longer adequate for analyzing contemporary governance. Shift Towards New Paradigms: Focus on results over process. Emphasis on responsibility and accountability. Management-oriented approach replacing traditional administration. 30 Conclusion - The Evolving Paradigm of Public Administration Traditional Model: Once widely emulated and considered successful. More efficient and professional compared to earlier forms. Based on hierarchy and bureaucratic organization. Obsolescence of Traditional Model: Developed for an earlier industrial age, now considered obsolescent. Formal hierarchies less effective in modern private and public sectors. Theoretical pillars no longer adequate for analyzing contemporary governance. Shift Towards New Paradigms: Focus on results over process. Emphasis on responsibility and accountability. Management-oriented approach replacing traditional administration. 31 Conclusion - The Evolving Paradigm of Public Administration Emerging Challenges and Opportunities: Need for a new model of public administration. Greater emphasis on adaptability and responsiveness. Balancing efficiency with accountability and freedom. Conclusion: Traditional bureaucratic model increasingly superseded. Transition towards new paradigms emphasizing effectiveness, accountability, and management. 32