c.

Local Government
Nature & Scope of Public d. Also Public Corporations.

Administration
Walker has divided scope of PA into two parts::
Administrative theory & Applied Administration

1. Administrative theory includes the study of

Scope structure, organization, functions & methods of
Difference of opinion. Whether only managerial or complex all types of public authority engaged in carrying
activities. Whether mere executioner or application of policy out administration at all levels.
or a factor of the formulation of policy also. There are two 2. Applied administration: Classified the main
views forms of applied administration on the basis of
1. The managerial view principal functions as follows
2. The subject matter view a. Political mean the study of
executive-legislative relationships,
Managerial View
politico-administrative activities of
● Made up of managerial tasks. cabinet.
● Henri Fayol:: "the public administration is b. Legislative
comprised of planning organization, command, c. Financial
coordination & control" d. Defensive
● L. Urwick supports it. e. Educational
● P. Maqueen:: PA consists of "Three Ms". "Men, f. Social: Housing, fooding, social
Material & Methods" security & employment
● Prof. Willoughby:: In his book "Principles of g. Economic
Public administration": Five sections h. Foreign
○ General or overall administration i. Imperial
○ Organization j. Local
○ Personnel administration
○ Material & supply
PA not only attainment of the objects of a state, but it is
○ Finance
attainment of good life, peace & order, progressive
● Luther Gulick Coined the word:: POSDCORB
achievement of justice, protection against disease &
insecurity etc.
Subject Matter View
They said that POSDCORB activities cover neither the whole
administration, nor even the most important part of it. Many
other activities such as law & order, defence, social security, Public & Private Administration
education, public health & justice performed by PA. Thus Not Public Administration: Activities of the state
only POSDCORB but also subject matter. Gulick's approach Private Administration: Refers to the club, corporation or
is technique oriented rather than subject oriented. company.
PA has two blades: One is knowledge of the fields covered by
Two different views
POSDCORB, the other is subject matter, in which these
techniques are applied. One: Urwick & Henri Fayol: All administration is one, whether
private or Public. Based on notion that there are similarities
between Public & private as under
Prof. Pfiffner's divided scope into two heads:: Principles &
1. Many managerial techniques are common to
Sphere
both i.e. accounting, filing, statistics, office
1. The Principles
management & procedures, purchases,
a. Organization
disposals & stocking & personnel processes.
b. Management Personnel
Business personnel are recruited in
c. Method & procedure
government departments.
d. Material & supply
○ Establishment of administration Staff
e. Public finance
College at Lahore; where both from
f. Administrative accountability
public or private sides personnel are
2. The Sphere includes
trained, reflect the trend in this
a. Central Government
direction.
b. State government

2. There is great influence of business techniques
on government departments & vice versa.
3. Responsibility of both public & private
administration are alike. Both aim at attaining
their goal in their respective fields through the
efforts of other people & available material.
4. Both are adaptable. Both are receptive to
change.
Two: Differences
1. Public administration is bureaucratic, while
private is business-like.
2. The methods of enforcement of rules are
different (authoritative or not)
3. Public Administration deals with the matters of
great importance
4. Public administration is comprehensive, Private
is not so.
5. Public administration is uniform while private is
not so. (No discrimination vs discrimination)
6. In Public administration, the government holds
a monopoly, but this is not the case in private
administration.
7. Public administration is conducted with the
motive of service, while private administration
is profit making.
8. Public administration works in the name of the
state, while private works in its own name.
9. Public administration is accountable to the
public; while private administration is not
10. The Public & private administration also differ
on the principle of public relation. (Open to
public v. don't divulge information)
11. Public administration does not work more
efficiently than private administration (PA:
red-tapism, extravagance, corruption: Pr.A:
higher wage, incentives, good conditions)
12. Public administration is subject to external
financial control; while private is not.
13. Public administration is more governed by
governmental laws, and rules than private ad.
in matters of tenders, contracts & purchases.
Science or Art
As a science
What is science?:: "Investigation & observation, followed by
tabulation, classification & correlation"
First to define the scope of science of public administration.
1. Relation between policy & administration: The
science of Politics: deals with methods of
policy formulation & execution
a. Statesman formulates policy
b. Administrator gets things done.
2. The science of politics is an inquiry into best
means for formulation of policy.
3. PA is inquiry as to how policies may best be
carried out.
According to Cleun Necley, administration demands correct
analysis & accurate orientation with relation to other
sciences.
F.W. Taylor, the pioneer of scientific theory, emphasizes that
PA is a science followed by scientific methods of
experimentation, observation, collection of data,
classification, analysis & formulation of laws & principles.
Following arguments prove PA as science:
1. Public Administration is derived from
experience & observation.
a. Abul Fazal's Ain-e-Akbari in India,
Machiavelli's Prince are examples.
2. Scientific method are applicable to PA.
a. Subject matter of PA is measurable &
have relative uniformity.
b. To discover new techniques, many
institutions are established over the
world to make comparative studies.
3. PA is becoming more & more exact & certain.
a. Charles A. Beard said that PA had
developed a body of rules & axioms.
4. If it is not science today, it would become in
future.
a. At present, it provides a framework of
idea about PA, would become basis
for future.
b.
As an Art
Actual running of administration. Act of doing things which
makes it an art.
What is Art?: The act of doing things.
As a science & Art
Both science & art. In fact more an art than a science,
because more practical than theoretical.
Its role in democratic State
1. PA covers all aspect of our life
2. Police state in the past
3. Now, the concept of welfare state
a. State not confined to maintaining law
& order or providing social security to
people, but it has been assumed as
guardian of the people & their interest.
 b. If PA fails, the objective of good life is
in danger.
c. According to Prof. W.B. Donham: "If
civilization fails it will be mainly
because of a breakdown of
administration"
4. Radical change in the nature & volume of state
functions since WW1. (More & more activities.)
a. Not only protector of citizens from
external & internal dangers, but also
educator, manufacturer, distributor,
helper & servant.
The role of PA is as under:
1. Administration & Policy
a. Not only execution, but assists
formulation of policies.
2. Administration & Society
a. Great stabilizing force
b. Concerned with goals, values, belief,
systems.
c. Purpose is to build and institution to
meet these social responsibilities.
d. Administration exists in a social
setting, yet he can deftly change
society itself. Thus not only an
executive; he is also a social engineer.
3. Administration & Individual
a. Individuals need the help of PA from
cradle to grave.
b. Since birth he has been registered by
the local registrar.
c. Vaccination, schooling, job, suitable
place for burial etc.
d. Food we eat, water, house, roads &
streets etc.
4. Administration & Democracy
a. Ideals of democracy: progress,
prosperity & protection of common
man can be obtained by impartial,
honest & efficient administration.
b. Modern democratic state increased
the scope of state activity, increasing
demand for PA.
c. To serve democracy, PA needs to be
left autonomous & free.
5. Administration & Social Change
a. Not only perserver of civilized life, but
also great instrument of social
change & improvement.
b. Brings social reforms through the will
of people.
c. If PA fail to bring social change,
alternative is the bloody-revolution.
6. Administration & war & peace
a. War wreaks havoc. Strong
administration can cope with
circumstances. Even private entities
fall into the scope of PA.
b. Fight against hoarders, mafia etc.
c. It is a safeguard against internal
enemies like saboteurs & traitors.
Its role in Pakistan
● Central & provincial ministers are ensured to
have full access to the best possible advice in
the deciding policy questions in Pakistan.
● Pakistan is passing through substantial
changes, and needs correct formulation of
policies.
● Should greater use of advisory councils to
departments.
● There should be a public administrator, who
should work as secretary to ministers, aided by
an advisory council.
● Gap during breakdown of civil government.
● Helped military elites during martial law.
● Helped during democratic government.
● In modernization, bureaucracy helped a lot.
● 8 five-years plan is the outcome of hardworking
bureaucrats.
According to Ralph Braibanti, political
modernity embraces four qualities.
1. Conversion of valid expression of popular will
into actions freely predictable & consistent with
fundamental policy of state.
2. Popular participation in political process
through popular comprehension of issues,
acceptance of personal responsibility, &
commitment to orderly pursuit of change.
3. Capability of maintaining national integration
by accommodating cultural, religious forces.
4. Capability to blend elements of popular will in
stages of development & to make it effective &
subject to imposition of equity & justice.
Pakistan's bureaucracy provided:
1. Institutional apparatus
2. Popular comprehension of issues faced by
Pakistan
3. Capability of maintaining national integration
4. Capability of mixing popular will with
development.
5. Pakistan's administration recruits members on
the basis of merit following the Max Weber's
model rather than on Ascriptive Criteria