Evolution of Public Administration PDF

Evolution of Public Administration Lesson II Changing nature of Public Administration Comparative Public Administration Development Administration New Public Administration Public and Private Administration Changing Nature of public administration...

Evolution of Public Administration Lesson II Changing nature of Public Administration Comparative Public Administration Development Administration New Public Administration Public and Private Administration Changing Nature of public administration Changing nature of Public Administration is divided into five phases. - Phase 1/Period of Dichotomy (1887-1926) a) Separation of Public Administration from political science b) Public Administration is the visible side of government c) Prof. Woodrow Wilson has given definition, nature, role and importance of Public Administration. d) The Wilsonian line of thought was further continued by Frank J. Goodnow in his book ‘Politics and Administration’ e) L. D. White has written the first textbook on the subject i.e. ‘Introduction to the study of Public Administration.’  Phase II - 1927-1937 : In the changing nature of public Administration this period can be called as Principles of Administration and established the discipline of Public Administration as an independent science. In 1927, W.F. Willoughby has written a book “Principles of Public Administration.” The title of the book indicates the new thrust in thinking and established the subject as an independent science.  This period witnessed publication of a number of important works on this subject. The more important among them are – 1. Mary Parker Folleft’s “Creative Experience” 2. Henry Fayol’s “Industrial and General Management.” 3. Mooney’s “Principles of Organization”. 4. Luther Gulick “Science of Administration.”.  Gulick explained the principles of administration. These are seven principles known as POSDCORB. Conclusion - Thus in this period subject acquired 1) The Status of separate subject of social science 2) Secondly. It was considered, as the science of administration. 3) Developed the principles of administration and theories. These theories and principles were in great demand both in government and business. The 7 Elements of POSDCORB Planning – Establish what your objective is and work out what you and your team need to do to achieve it. Organizing – Organize your team so that it can work at its best. Look at its structure, and at how its subdivisions are arranged and coordinated. Staffing – Capable members of staff are key to a productive organization. It's important to appoint the right people to the right roles, so that they can work effectively.. Directing – This is the ongoing job of making decisions and incorporating them into the instructions that you give to your team members. Coordinating – This is the coordination of your people and of their work. Gulick describes how managers have limited amounts of time and energy, and how this must be considered when deciding how many people they can successfully supervise ("span of control").. Reporting – Keep people in the organization up to date with what's going on. Provide them with news, results and general information in formal reports and regular company updates, to boost their morale, productivity and commitment. Budgeting – Balance your expenses with your income by planning, estimating and being disciplined with your finances..  This period brought new changes in the nature of Public Administration 1. Some thinkers refuted politics administration dichotomy. 2. They challenged the claim of Public Administration as a science. 3. Emphasized the environmental effects on administrative behavior. The Proverbs of Administration’ – Herbert Simon ( Theory of bounded rationality) The claim that public administration is a science was challenged by Robert Dahl  Phase IV - 1948 to 1970 Owing to the challenge posed by the behavioralist, the discipline of Public Administration passed through the crisis of identity in the fourth phase. Because pre 1947 viewpoint upheld the politics - administration dichotomy and the post 1947 view point advocated their fusion. Pfiffner stated that politics and administration are so intermingled and confused that a clear distinction is difficult. Kingsley saw Administration as a branch of Politics. Paul Appleby upheld the fusion view, He said at higher levels administration is more generalized, takes on a greater political character and has a total governmental significance. At lower levels, it is less political and more particularistic.  Waldo in his Administrative State (1948) Widened the orientation of Public Administration to include policy issues and decision - making processes. On the other hand, many political scientists began to argue that the true objective of Public Administration was “intellectualized understanding” of the executive.  There was also a talk of continued ‘dominion of political science over Public Administration.’ In Short, this period witnessed the spectacle of Political - Science not only letting Public Administration separate itself from it, but also not fostering and encouraging its growth and development within its own field. Therefore, in the post world war II period, the credentials of Public Administration to being a science and a distinct discipline and apart from political Science were questioned. This led to the twin development of Public Administration being viewed as  Fifth Phase 1971 onwards In this period Public Administration registered great progress and enriched vision. 1. Focus on the dynamics of administration. 2. It is considered as inter- disciplinary. 3. Talk of New Public Administration 4. New trends emerged – in the subject of Public Administration i.e. i) Comparative Administration ii) Development Administration iii) Market orientation - State and Market  Fred Riggs is the father of Comparative Public Administration. In 1962 Fred Riggs in his article Comparativ “Trends in comparative study of Public Administration,” emphasized e Public on following points (A) Emphasized the need to study administrat politico-administrative institutions ion in their Social settings. After the second world war, the study of third world countries became a common subject of almost all social sciences. Scholars of comparative Public Administration analyzed the question of administrative development to direct socio- economic change in cross - cultural contexts. b) Hence Comparative Public Comparativ c) To understand impact of e Public comparative Public Administration is necessary. administrati d) Fred Riggs pointed out three on trends in the Comparative study of public administration. 1) From normative to empirical orientation. 2) From ideographic to nomothetic orientation 3) From non-ecological to ecological orientation  Comparative administrative studies have been conducted on three levels to wit, Macro Studies, Middle Range Studies, Macro Studies. 1. Macro studies. It means focus on the comparisons of whole administrative system. e.g. India and the United States in their ecological contexts. Generally, the relationship between an administrative system and its external environment are highlighted in the macro  2. Middle Range studies means studies are of specific aspects of administrative system. e.g. a comparison of local government in different countries. 3. Micro studies It relates to an analysis of a part of an administrative system. e.g. the recruitment or training in two or more administrative organizations. Development administration The concept of Development Administration is a development of the post 1945 era. Following reasons are responsible for the emergence of this concept - Reasons : 1. Emergence of newly independent developing countries. 2. Development schemes in the developing countries. 3. Establishment of  1. Emergence of newly independent developing countries :- The traditional concept of public Administration as ‘law and order machinery or revenue administration underwent transformation with the emergence of the ‘Welfare state’ during the 20th century. Also It a was response to the emergence of the ‘Newly Independent states’ in Asia and Africa, These countries have problems of poverty, unemployment, illiteracy, malnutrition etc. In these countries, the government and its administrative machinery  2. Development schemes in the developing countries :- These developments have had a profound impact on the public administration. The concern with administration for development has compelled attempts to formulate a system of thought capable of integrating complex socio-economic and political systems hitherto considered to be outside the area of public administration. Further, most developing countries have realized that national development is essentially an integrated process of change. It is a dynamic process directed towards transforming the entire  Establishment of comparative Administration group in 1960- D. Waldo, Fred Riggs, Weidner were talk of New Public Administration. These scholars in 1968, in Minnibook Conference, attempted to define public Administration anew. They focused on the concept of development administration, in different ecological settings, operates in order to achieve a set of social goals.  Hallmarks of Development Administration : 1. Change - oriented 2. Goal - Oriented and result oriented 3. Citizen participation in the administration 4. Commitment to development 5. integrated and holistic process 6. It has two sides – one is development programs and other is Its implication 7. Its scope of Operation is wide. 8. Stress on planning  1. Change - oriented Development administration is change-oriented. Traditional administration which was oriented towards the maintenance of stability and status quo. Hence, Pai Panandikar said development Administration means ‘administration of planned change’. The planned development is intended to achieve specific results within the specified time. 2. Goal-oriented and result- oriented It is result-oriented. It expects specific results and expresses in most areas clearcut norms of  3. Citizen participation - Development being a process of social and economic change, citizen participation in the task of administration is vital. The public servants must be able to carry the citizens with them and draw them actively into the developmental processes. To basic change in the outlook of the civil servants. 4. Commitment to Development administration requires a firm commitment, a sense of involvement and concern on the part of civil servants, if the goals of development are to be realized. 5. Integrated and holistic process - Development administration is inter- related and holistic process of change. It refers to the structure, organization and  6. It has two sides - Firstly, it refers to the administration of developmental programes, the methods used by large-scale organizations, especially governments, to implement policies and plans designed to meet developmental goals. Secondly, Development Administration involves the strengthening of administrative capabilities. These two aspects are intertwined in development administration. 7. Its scope of operation is wide - Traditional public administration was limited to its function of maintaining law and order. But the scope of development administration is wider. 8. Stress on planning - It is planned change. The administrative capabilities are strengthened to achieve developmental goals. This objective is linked with planning. The planned development is intended to achieve specific results within the specified time. 9. Believes in decentralization - Traditional administration believes in centralization. But Development administration believes in decentralization. NEW PUBLIC ADMINISTRATION During 1960s it was found that the science of Public Administration displayed unawareness of numerous socio-economic and political problems as well as its inadequacy to offer any solution to the problems.  Emergence In 1967, American Academy of political and social science organized a conference in Philadelphia. The topic was “The Theory and practice of Public NEW PUBLIC Administration : Scope, objectives and methods.” In this conference ADMINISTRATI participants expressed their views ON and after discussion following points emerged – 1. Bureaucracy should be studied structurally as well as functionally. 2. Definition of the subject is as difficult as de-lineation of its scope. 3. A hierarchical view of organizational authority needs to be changed; administrators must view workers as “coordinates” rather than ‘subordinates’,  4. Policy and political considerations are replacing NEW PUBLIC management concerns as the major focus of public ADMINISTRATI Administration. 5. Future administrators should ON be trained in professional schools. Public Administration courses should emphasis not only Administrative organization and procedures but also in interdisciplinary approach. 6. Public Administration has not been able to deal with societal problems.  Restructure of government The features of New institutions – The new public Public administrative system divides the government into small units. It then Administration apply distributes the roles and the following responsibilities of each sector to elements to the private sectors. The divided para- audience and diagrams and structures are less hierarchical and more flexible than administrative the old public administration. workers. Additionally, it tends to manage the formulated public policies. Target clients – The target client of the new public administration system is the country’s citizens. For instance, if an administrator has decided on behalf of the government sectors, it has to bring in positive results in the well-being of citizens. The administrative system cannot escape from the public response to that decision  Recognition and information – The The features of New new public administration system Public tends to spread awareness about Administration apply the work of public administrators the following and organisations. Any decision elements to the taken by government institutions audience and affects the lives of its natives. administrative Thus, they should be well aware of workers. the importance and action plans of the administrators Multi-disciplines – The multidisciplinary nature of the new public administrative system focuses on enhancing the economic, political, social relations in adherence to improving the growth structure of institutional systems  Decentralisation – The features of New Decentralisation is one of the Public most important features of the Administration apply new public administration system. the following The process converts the elements to the bureaucratic ways to more audience and dynamic and adaptable support administrative systems, thus bringing in more workers. devolution in the work ethics and culture of the organisation Knowledgeable – A public administrator acquires an efficient knowledge of politics, law, community diagrams and so on. It helps officials to formulate and implement public policies effectively  Transparency – The new public administrative system brings more transparency to their workspace by checking on public servants. It Principles of ensures that all information that concerns the citizens is accessible New Public in free-flow ways Social Equity – Social equity is one Administratio of the major principles that every government sector aims to improve n on. It promises equality, justice and fairness while forming a public policy, dividing public services, implementing the public policies and managing the institutions involved Economy – The concept of the economy under NPA derives from the regulation effectiveness and efficiency in its new policies. It works by delivering public services with low costs and maximum benefits  Relevance – Earlier, the old public administration system ignored the problems associated with public services. Social realities were far away from the Principles of reach of public administrators. It has changed with the emergence of new public systems. Now, NPA tends to include New Public rationality of people even in policy formulations and verifications Administratio Values – Greeks declared neutral values n an impossibility in the traditional public administration system. Thus, to act against the same, NPA advised being transparent with the values being served Change – Public administrators are responsible for social change in the community. Therefore, the 1968 Minnowbrook Conference explained several ways of countering bureaucratic tendencies, formulating a change in society. One of the ways is to bring the political science concept closer to the administrative system  PUBLIC AND PRIVATE ADMINISTRATION Public Administration refers to the administration which functions in the governmental surroundings. The private administration on the other hand, refers to the administration which functions in the non- governmental surroundings such as the business enterprises. Public Administration is “Governmental Administration‟ and Private Administration is known as “business administration‟.  The expansion of public sector into industrial enterprises has been into practice for quite some time, a little over half a century now. The public sector organizations in order to function efficiently are borrowing heavily from the business knowledge, administration and process orientation of the private organizations. It would be interesting to learn about both similarities and differences between these two to arrive at a better understanding.  Public Administration is different from private administration in terms of the working environment i.e. the institutional settings in which it functions. Paul H. Appleby was the prominent supporter of this view. In his Difference book titled “Big Democracy” he observed „In broad terms the s governmental function and attitude have at least three complementary aspects, they are (A) The first is the political character (B) The second is the breadth of scope, impact and consideration (C) The public accountability‟. John Gaus of Harvard Graduate School of Public Administration regarded government activities as “different from that of private organizations almost in kind as well as in scope”. Josia Stamp went a step further and identified four aspects of differences of which the only one similar to that of Appleby’s is that of public accountability or public responsibility as Stamp identifies it. The other three are: (i) Principle of uniformity (ii) Principle of external financial control (iii) Principle of service motive However, the major differences between the two are as follows. (i)High prestige and Social status: In comparison to private administration, public administration enjoys high degree of status and prestige. It is because of the supreme power lies on the governmental machinery. Public Administration rendering more service to the public than private organization. (ii) Subjected to Political direction: Public Administration is subjected to political orientation and direction as under the policies the bureaucrats implement the policy whereas the private administration does not have any political direction. The ends the private administration follows are of its own decision and choice. Their objectives do not depend upon the political decision makers. But the administrator under public administration follows the orders of the executive authorities with little option of his own Service oriented and Profit motive: The principal feature of public Administration is service oriented and profit motive. Its objective is to rendered service to the public and stimulate community welfare. The Private administration on the other hand is characterized by profit motive or profit making organization, but not social service organization. Its main objective is to maximize profit. In the words of Ludwig Von Mises “Business management or profit management is management directed by the profit motive.  The objective of business management is to make a profit. The objectives of Public administration cannot be measured in money terms and cannot checked by accountancy method. ” (iv) Principle of Uniformity: The principles of Public administration is based on the principle of uniformity. According to this principle there is no concept like favor and disfavor. All are equal under the banner of public administration. It is generally consistent in procedure and maintains uniformity while dealing with the public, as is the case of private  The public administration believes in the principle of „First come, first serve motto‟. Richard Warner while discussing the features of business administration or private administration said ‟Business need not worry over much about uniformity in treatment.‟  The nature of Monopoly The Public Administration is generally monopolistic by its nature. It does not give enough scope to the private parties to compete with it. The governmental organizations are not allowed to run by the individual or a group of individuals but run by the government itself. This is not in case of private administration. They are free to compete without any restrictions with other private organizations. According to Glenn Stahl “The services performed by the state are generally of a monopolistic or semi-monopolistic character, a fact which springs from the very urgency of the functions undertaken. Because of this fact it is much more difficult to gauge the efficiency of the conduct of public business than of ordinary private business, which is subject to competition and forced to balance its books from year to year.”  The matter of Public Responsibility Public responsibility is one of the important pillar of Public Administration. Because the public is the main source of administration. So public scrutiny, accountability and transparency are the important characteristics of Public Administration. It has also faces the criticism from the public, the press and from the political parties. When the question of private administration comes, it does not have any great responsibility towards the public. In the words of P.H. Appleby “Government administration differs from all other administrative works to a degree not even faintly realized outside, by virtue of its public nature, the way in which it is subject to public scrutiny and public outcry. An administrator coming into government is struck at once and continually thereafter, by the press and public interest in every detail of his life, personality and conduct…..every government executive lives and moves and has his being in the Similarities There are many similarities between the ways in which a public and a private administration functions. The similarities are so much that some subject matter experts and authors like Henry Fayol, M P Follet, Lyndall Urwick do not treat them as different. Fayol said that all kinds of administration function on some general principle irrespective of them being public or private. The planning, organizing, commanding and controlling are similar for all administrations.  2. Profound influence upon each other In official management and running of commercial 1. Common skill and technique organizations, it is necessary to Both the public and private create a relationship between the administration possesses various organizations as they are the parts common skills and techniques. The of the society as a whole. The accounting management, traditional governmental statistics, office management, administrations have an influence stocking, purchase and disposal over the modern administration. are the same procedures followed Likewise in case of the private by both the administrations. enterprises the big privates enterprises influences on the small enterprises. 3. Similarity in the principle of administrative set up The principles such as hierarchy, span of control, unity of command are quite same in both the system of administration. Both of them have some kind of structure, working specification, specialized duties and responsibilities etc. but in both the cases the people are the sole authority to take decision to improve 4.Co-ordination and Public relation. Both public and private administration put much emphasis on establishing coordination, cooperation and public relations among the masses which is very vital for the smooth running of the administration of the country. If they fail to achieve this, administration is bound to be a failure one. Thus, in this regard there is a similarity between the two enterprises. REFERENCES Dash, J.K. and Barik, R. Introduction to Public Administration. Uktal University. Parlak, B. and Dogan, K.C. (2022). The Handbook of Public Administration Vol. 1. Livre de Lyon. An Introduction to Public Administration. Mumbai University