Issues in Public Administration

1. Issues in Public Administration Theories of Public Administration MPA 509

2. Introduction • Public administration has been called many things; a subset of political science or at least its Offspring. • Public administration is a process and as suchhas been around as long as governments haveexisted. • As a discipline, it is primarily an American ideathat grew out of the late nineteenth-century movement for government reform Ann Prentice 1984

3. Introduction PA has a relationship to political science inthat its field of endeavor is the body politic, but where political scientists look at the political aspect of an activity, public administrators dealwith the implementation of policy for the smooth operation of departments, programs and activities that are the outcomes of policydecisions made by the bodies politic. Publicadministration may be more profession than discipline, in that it combines theory and practice and is both science and art. Ann Prentice 1984

4. What is Public Administration?  Public Administration is a species belonging to GENUS ADMINISTRATION, which in turn belongs to a FAMILY whichwe may call COOPERATIVEHUMAN ACTION (WALDO, 1955) 4

5. Public Administration Theory PA theory is the amalgamation of history, organizational theory,social theory, political theory and related studies focused on the meanings, structures and functions of public service in all its forms  PA often recounts major historical foundations for the study ofbureaucracy as well as issues associated with public service as a profession and as an academic field. Important figures of study include: Max Weber, Frederick WinslowTaylor, Luther Gulick, Mary Parker Follet, Chester Barnard, Herbert A. Simon, and Dwight Waldo.  In more recent times, the field has had three main branches: newpublic management, classic public administration, and postmodernpublic administration theory.

6. Context Key Values Proponents Dominant/Theories/Themes /Principles/Issues /Sub-Concepts 1. Classical PA (Late 1800-1950’S)  Politicized  Politics & administration  Frederick Taylor Classical PA is based on the classical bureaucracy Dichotomy (1856 -1915) theories of administration (scientific  Corruption  Preservation of  Robert Owen (1771- management, bureaucratic model and  Spoils system Democracy 1858) administration management)  Inept  Promotion of Efficiency Scientific Management government (doing things right), o Focused on lower level of  Popularization of scientism in effectiveness (doing theright things) and  Max Weber (1864- 1920) management o One-Best-Way vs. Rule of Thumb economy (least cost) inthe government management  Herbert Simon o Time & Motion Studies  Classical approach o Unity of command,  Theory of Bureaucracy o Max Weber’s ideal Type hierarchy, divisionof labor, one bestway rule Bureaucracy or Rational -LegalBureaucracy (hierarchy, divisionof labor, formally written rulesand procedures, impersonality,neutrality) o Mechanistic view of the organizationo Closed system view of theorganization

7. Context Key Proponents Dominant/Theories/Themes Values/Principles/Iss /Sub-Concepts ues 1. Classical PA (Late 1800-1950’S) Henri Fayol’s1916a French industrialist, is now o Henri Fayol’s principles ofadministration (division of labor, authority, discipline, unity ofcommand, unity of direction,subordination of individualinterest to general interest,remuneration of employee,centralization, scalar chain, recognized as the Father ofModern Management. In year1916 Fayol wrote a book entitled "Industrial andGeneral Administration". Inthis book, he gave the 14Principles of Management.These 14 principles ofmanagement are universallyaccepted and used even today.According to Henri Fayol, allmanagers must follow these 14principle order, equity, stability of tenureof personnel, initiative, esprit decorps)

8. What is Administration?  ADMINISTRATION is a type of cooperative human effort that has HIGH DEGREE OF RATIONALITY  The significance of HIGH DEGREE OF RATIONALITY lies in HUMAN COOPERATION which varies in effectivenessof goal attainment whether we think of formalgoals, the goals of leaders, or of all whocooperate (WALDO, 1955)

9. What is Administration?  Administration is a PLANNED APPROACH to solving of all kinds ofproblems in almost every individual or group activity, both public and private (DIMOCK, DIMOCK, AND KOENIG, 1960) 9

10. What is Administration?  In its broadest sense ADMINISTRATION can be defined asthe activities of groups cooperating to accomplish common goals (SIMON, 1991) 10

11. What is Administration? The study of administration is concerned with questions such as: 1. How the method was chosen? 2. How the men, working towards attainment of goals, were selected and induced to cooperate in carrying out such task? 3. How the task was divided between them? 4. How each one learned what his particular job was in the total pattern? 5. How he learned to perform it? 6. How his efforts are coordinated with the efforts of the other? (SIMON, 1991) 11

12. What is Administration?  Most persons, while they are engaged in everyday ADMINISTRATION, SELDOM think formally about the process.  They SELDOM deliberately set out to consider the ways in which the cooperative activities of groups are actually arranged; how the cooperation could be made more effective or satisfying; and what are the requirements for the continuance of the cooperative activity (SIMON, 1991)

13. The Universality of Administration  Since ADMINISTRATION is concerned with all patterns of cooperative behavior, any person engaged in an activity in cooperation with other persons is engaged IN ADMINISTRATION  Since everyone has COOPERATED with others in his life, he has some basic familiarity with ADMINISTRATION and some of its problems (SIMON, 1991)

14. Characteristics of Administration The characteristics of administration are best conveyed under two terms ORGANIZATION and MANAGEMENT ORGANIZATION AND MANAGEMENT are the two faces of thesame coin (WALDO, 1955) 14

15. Characteristics of Administration  ORGANIZATION is the ANATOMY, MANAGEMENT is the PHYSIOLOGY, ofadministration  ORGANIZATION IS THE STRUCTURE; MANAGEMENT IS THE FUNCTIONING of administration (WALDO, 1955)

16. Context Key Values Proponents Dominant/Theories/Themes /Principles/Issues /Sub-Concepts 1. Classical PA (Late 1800-1950’S) In 1937, Luther Gulick and LyndallUrwick published their classic collection of Papers on the Science of Gulick - POSDECORB(Planning, organizing, staffing, directing, coordinating,reporting, budgeting Administration. In the opening essay in thiscollection, Gulick asked the question:“What is the work of the chief executive?What does he do?” Gulick summarizedhis answer in the acronym POSDCORB, which stands for: Planning,Organizing, Staffing, Directing, Coordinating, Reporting, and Budgeting.

17. Context Key Values Proponents Dominant/Theories/Themes /Principles/Issues /Sub-Concepts 1. Classical PA (Late 1800-1950’S) Herbert Simon -Administrative Man oAdministrative Behavior: a Study of Decision-Making Processes in Administrative Organization is a book written by Herbert A. Simon (1916-2001). It asserts that “decision- making” is the heart of administration, andthat the vocabulary of administrative theory must be derived from the logic and psychology of human choice," and it attempts to describe administrative organization "in a way that willprovide the basis for scientific analysis. http://en.wikipedia.org/wiki/Administrative_Behavior

18. PA Toward Systems Analysis This change in viewpoint, which was a response to social and technological change, poses problems in outlining the intellectual boundaries of public administration. Administration of activity in the public sector is still at the core, but the full implications of this work are not fully recognized. This is only one indication of the shift in public administration away from structures andprocesses and toward systems analysis. Ann Prentice 1984

19. Context Key Values Proponents Dominant/Theories/Themes/Sub- /Principles/Issues Concepts Neo-Classic Approach Neo -Classical NEOCLASSICAL THEORY OFORGANIZATION (1920’s to 1930s) -Neoclassical PA derived its conceptsfrom this school Mary Parker Follet (1868- 1933) o Importance of human behavior Barnard (1886-1961) Elton Mayo oSocio-psychological dimension of the  Commonly referred to as the human relations or human behavior school Attempted to improve on the Abraham Maslow Frederick Herzberg Douglas McGregor Chris Argyris organization oInterdependency to its internal parts and classical concepts Follet - importance of the informal system and exercising leadership relation to theexternal part RensisLikert rather then wielding power tomotivate workers environs were nottaken into account  Elton Mayo (late 1920s to 30’s) experiments - worker’s anchor of security and productivity has greaterinfluence on employee productivityrather than management demands;workers are obliged to adhere to their group norms

20. Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/Sub- Concepts Abraham H. Maslow felt asthough conditioning theoriesdid not adequately capture the  Abraham Maslow - Hierarchy of Needs (1943) - psychological, safety, social,ego, self-actualization complexity of human behavior.In a 1943 paper called A Theoryof Human Motivation, Maslowpresented the idea that humanactions are directed toward goalattainment. Any given behaviorcould satisfy several functionsat the same time; for instance,going to a pub could satisfy  Abraham H. Maslow felt as though conditioning theories did not adequately capturethe complexity of humanbehavior. In a 1943 papercalled A Theory of HumanMotivation, Maslow presented the idea that human actions are directed one’s needs for self-esteem and toward goal attainment. for social interaction.

21. Context Key Proponents Dominant/Theories/Themes/Su Values/Principles/Issues b-Concepts Frederick Herzberg - (1959)Motivation hygiene theory The Father of "Job Enrichment"and the originator of the "Motivation-Hygiene Theory In 1959, Frederick Herzberg developed a list of factors which were developed closely based on Maslow’s hierarchy of needs, except it more closely related to work. Herzberg theorized that hygiene factors must be present in the job before motivators can beused to stimulate the workers: Hygiene or Dissatisfiers:Working conditions •Policies and administrative practices •Salary and Benefits •Supervision •Status •Job security •Fellow workers •Personal life Motivators or Satisfiers: •Recognition •Achievement •Advancement •Growth •Responsibility •Job challenge

22. Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/Sub- Concepts Douglas McGregor – Theory X &Theory Y (1960) Douglas McGregor, an American socialpsychologist, proposed his famous X-Ytheory in his 1960 book 'The Human SideOf Enterprise'. Theory x and theory y arestill referred to commonly in the field ofmanagement and motivation, and whilstmore recent studies have questioned therigidity of the model, Mcgregor's X-Y Theory remains a valid basic principlefrom which to develop positive management style and techniques.

23. Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/ Sub-Concepts 2. Development Administration 1950’s - 1960’sUnderdevel Nation building Goswami (1955)  Concept of DA was coined by Goswami and Riggs Weidner opment  Economic Development popularized by Riggs and  Poverty  Institutional Strengthening Weidner Roman DubskyJ.Net  Refers to almost exclusively to developing  Involvement of people in development O.P. Dwivedi George Gant countries in Asia, Africa, Conceptual foundations were western (US)particularly, influenced largely by scientific management andadministrative reform(traditional PA)

24. Quote of the Day To deny people their human rights is to challenge their very humanity. Nelson Mandela