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Classical Theories of Public Administration

Article  in  SSRN Electronic Journal · April 2013

DOI: 10.2139/ssrn.2248449

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Running head: CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 1

Classical Theories of Public Administration

Hassan Elkatawneh

April 07, 2013

Classical Theories of Public Administration

Many believe that the classical school represents the first source of the managerial

process, in the late nineteenth century, while it was considered a product of the interaction

between the employers and the capital control during that period. The focus was in that period to

confirmation the interest of employers, and the production process, whereby the classical school

/ traditional management Includes two main theories:

1) Theory of bureaucracy

2) The theory of scientific management (Cook & Brian, 2006).

Bureaucracy originated in Germany through the efforts made by the German sociologist

(Max Weber), who lived in the period between (1864 to 1920 AD) and the word bureaucracy is

derived from two Latin, and Greek words, the first (Bereau) means the office, and the second

(cracy) and mean power or authority or judgment. Bureaucracy is the rule of the office or

authority of the office has been known to (Garston) as a hierarchical organizational structure

precisely characterized by the lines of authority, rules, and procedures that govern work (Cook &

Brian, 2006).

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CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 2

The term of bureaucracy has used by Max Weber in his book, which issued the first

editions, two years after his death (1922), to describe the large organizations, and describe their

policies.

The most important studies contributed by (Weber) in regard to the organizational and

managerial studies, is the theory of power structures, it has been divided into three types:

Type I: Charismatic authority.

Type II: Traditional authority.

Type III: Rational legal authority (Cook & Brian, 2006).

He explained in his studies the difference between these types, with his recognition that

these three types cannot be contained in a single organization. He also explained that the first

form of authority is exercised through personal characteristics. With regard to the second type, it

exercises its authority through his position in the organization, and through customs and

traditions inherited. The third type it exercises its authority through the Bureaucratic organization

form (Fox & Miller, 2006).

When viewing the research and studies of Max Weber we can notes that he aims to

achieve the organization at the highest possible efficiency (Highly efficient system), which is

that made him describe the bureaucracy as the ideal model (Ideal type) of large administrative

organizations. According to Max Weber that the ideal bureaucratic organization is based on the

following grounds:

 Functional specialization

 Distribution and business activities

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CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 3

 The distribution of Authority

 Specific methods and approaches to work

 The upper level of the bureaucratic organization supervises on the work and activities of

the lower levels.

 Based on documents.

 The bureaucratic organization separates the organization from the private activity for

employees.

 The management need to experience flexibility and training.

 The application of rules and instructions for action and the greater the employee

understands of those rules and procedures, the higher experience and efficiency (Cook &

Brian, 2006).

Theory Criticisms

There is some criticism on the theory end up like other theories, which are not free of negative

points, especially if applied, and those criticisms:

 Neglected the humanitarian aspect in dealing with the employee or worker.

 Authority is concentrated on a small group of senior levels.

 Prevent interference of social life for workers with work.

 Giving the room for initiative, invites for interpretations which are often false

interpretations (Hill, 1991).

Bureaucracy and Public Administration

CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 4

It should be noted here that there is a close relationship between the bureaucratic theory

and policy-making of public administration, which is based on the division of work, organizing

the procedures, hierarchy, authority, responsibility and control, as well as those conducting on

policy-making. Furthermore, the foundations of this theory should be recognized, and apply what

is commensurate of those theories in drawing their organization's policies (Borcherding, Dillon

& Willett, 1998).

Scholars of management, sociology, and political in general agree that public authority

should have a structure of public administration, which are consistent with the standards of

bureaucracy. Where the nature of the of public authority activities requires the presence of large

administrative organizations, having the bureaucratic character, with the existence of a specific

internal structural arrangements, and the presence of a clear functional specialization-designed.

Furthermore, the presence of specific patterns and levels of qualification for joining of the

bureaucratic organization (Borcherding, Dillon & Willett, 1998).

While the operational characteristics (a group of methods and systems operation) it is

likely that it will extensively depending on the political circumstances and social and economic

development, in which Bureaucratic organizations operate or trends of frame in which it operates

and interact with them (Fox & Miller, 2006).

Scientific management theory

If the first theory of traditional theories is the theory of bureaucracy, have originated in

Germany at the hands of Max Weber, the theory of scientific management has evolved in the

United States in the period between 1900 AD - 1925 AD, at hand a group of intellectuals comes

in the forefront of Frederick Taylor, who is the first meadows to the ideas of this theory. The
CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 5

manufacturing movement has evolved since the beginning of that period, due to the availability

of natural resources, the adequacy of the number of workers, the large domestic market and

expansion, and the substantial increase in the export markets. All these characteristics make

producers focus on production problems, where marketing was not a problem for them, and the

tariff at that time, helped to encourage the industry and accelerate their growth (Fox & Miller,

2006).

Many of the key factors that have helped to industrial renaissance at the time, and the

large number of scientific inventions and technical development, and the emergence of a class of

organizer who specialize in operations management and Organizing. Despite all such

circumstances and factors, the wasteful and drop the industrial productivity, were the basic

features in the institutions and industrial plants at that time. The intent of the business owners to

a substantial increase in profits by reducing the wages of the workers as much as possible and

without any interest in or catalyst psychological aspects without any training for workers.

Furthermore, there were no standards to evaluate the production of the worker as a basis for

determining wages (Cook & Brian, 2006).

All these previous circumstances attracted the attention of a number of scholars such as

Frederick Taylor and Harnjetun and Emerson and Henry Gantt and others. They began to think

of reasons the reduction in the industrial productivity, and efficiency of administrative work, and

how to find solutions for these problems. Therefore, to help deliver solutions to the problem of

productivity they started to thinking about creating a framework for the managerial theory. In

these historical and social frames, the scientific management theory appeared to be a true

reflection about the nature within the community, which Frederick Taylor (1856 AD -1915 AD)

considered the founder of this theory (Cook & Brian, 2006).

CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 6

In fact, Taylor's interest to reach the adequacy productivity and economic development

through the study of time and dynamics at work and focus at the project as a whole, and to attract

attention to the increase of production, to the extent that the management study was limited until

the study rationalize factory management, while neglected considerations relating to the social

aspects and humanitarian for workers. To summarize of this presentation of the scientific

management theory, it is in this form incorporated under the idealism classical theories, which is

what should be; also it was focused on one element from the organization elements, and

neglected rights and human relations within the organization. It also focused only work

productive at the plant level only, and did not give enough attention to the fact that the

interaction and exchange between the organization and the surrounding community.

Furthermore, the theory has ignored the impact of constant changes in the community on the

performance of the organization (Waterman, & Meier, 1998).

Despite to the cons of the scientific management theory, it has the positive aspects as it

represents an effort the first generation in scientific thinking. Furthermore, it has faced the

problems of administrative scientific methods, and outperformed in studying the time’s

management and work dynamics, which is a modern analysis tool, has throughout the study of

the time and dynamics of work, and draw the organization rules and managerial methods (Cook

& Brian, 2006).

To find the relationship between the bureaucratic and scientific theory, I think that the

theoretical models are mostly in an attempt to determine the structure and management of large

and small business, as well as the government institutions. Both theories, the models of scientific

management and bureaucracy belong to early where the classical school. Both theories also aims

to improve administrative efficiency by proposing organizational structures and provide the

CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 7

tools. Bureaucratic management is common in large enterprises and governmental organizations

while the. Scientific management has become an aspect from management of the manufacturing

processes (Fox & Miller, 2006).

Scientific Management Theory and Public Administration

The final section will describe the relationship between the bureaucratic and scientific

theories with the public policy and administration. I believe these theories are still relevant in

shaping the policies of modern policy-making, for this reason it still to be studying and

discussing in contemporary science in all parts of the world. These theories were a product of

an enormous intellectual effort in the past contributed to the framing administrative processes

and was the starting point in the formation of modern theories, in fact, some of the concepts

taken from these classical theories, and then used in the literature and develop theories according

to the situation of study or research. All of them have contributed mainly in the form of ways to

deal with the staff in the institution in different times and situations. These theories were the

solution for the difficult issues that used to appear in organizations from time to time. Max

Weber, as well as Frederick Taylor's scientific management and classical theorists, helped in the

development of the basic shape of the organization and facilitate administrative tasks (Hill,

1991).

References

Borcherding, T. E.; Dillon, P. & Willett, T. D. (1998). "Henry George: Precursor to public

choice

analysis". The American Journal of Economics and Sociology 57 (2): 173–182.

 CLASSICAL THEORIES OF PUBLIC ADMINISTRATION 8

Cook, Brian J. (2006). “Making Democracy Safe for the World: Public Administration in the

Political Thought of Woodrow Wilson.” In Handbook of Organizational Theory and

Management: The Philosophical Approach Second Edition, eds. Thomas D. Lynch and

Peter L. Cruise. Boca Raton: CRC Press.

Fox, Charles J. and Hugh T. Miller. (2006). “Postmodern Philosophy, Postmodernity, and Public

Organization Theory.” In Handbook of Organizational Theory and Management: The

Philosophical Approach Second Edition, eds. Thomas D. Lynch and Peter L. Cruise.

Boca Raton: CRC Press.

Hill, L. (1991). "Who governs the administrative state: A bureaucratic-centered image of

government." Journal of Public Administration Research and Theory 1(3): 261-294.

Waterman, R. & Meier, K. (1998). "Principal-agent models: An expansion." Journal of Public

Administration Research and Theory 8(2):173-202.

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