Public Administration Theories

Public Administration
Theories
By
Suvicha Pouaree, Ph.D.
Original Paradigm
(1887 – 1950)
Original Paradigm (1887 – 1950)
• Separation of administration from politics
• Woodrow Wilson: “The Study of Administration”
(1887)
• The science of administration is the latest fruit of that
study of the science of politics
• Developed countries should have good government,
strong executive branch, efficient and rational
bureaucratic system, good administration => “it is
getting harder to run a constitution than to frame
one”.
• PA studies are for recruiting high competence

and high quality state officers
• State officers must serve the public opinion
• State officers are not passive instruments but
they desire to seek for new administrative
methods
• Public must understand PA in order to balance
the power with the state
• One rule of good administration for all government
alike
• General theory of administration
• Politics is about laws-making and policy-making
• Administration is about the implementation of laws
and policies
• Science of PA derives from the separation of
administration from politics, particularly in the macro
politics
• Principles of good administration
– Centralization of power
– The higher the centralization of power, the more
responsible of power
– Constitution is about the center of power, the
political structure, laws-making, the control of
executive branch
– Politics imposes administrative obligations, but the
studies of administration are beyond political
scope
– All governments must have similar administrative
structures
– Hierarchy, and specialization of state official
– Hierarchy in the state organization brings about
efficiency
– Good administration will lead to the development
of civilization and the human social welfare
• Frank J. Goodnow: “Politics and

Administration” (1900)
• Government has two main duties: political
duty such as policy-making (legislative and
judicial branches); and administration such as
implementation of state policy (executive
branch). These two obligations are separated
from each other (separation of power).
• Administration should not be under politics.

• PA study is about bureaucratic system and it is
a science that could be used anywhere.
• Leonard D. White: “Introduction to the Study
of Public Administration” (1926)
• PA is about the management of human and
materials in order to achieve the state’s goals.
• Politics should not intervene with
administration.
• Administration could be studied by using
scientific methodologies.
• PA is able to be a value-free subject. Administration
is about facts, while politics is about value (fact-value
dichotomy and politics-administration dichotomy)
• Objectives of administration are economy, and
efficiency
• State can adopt parts of business administration
principles with the public administration.
• Max Weber: “Bureaucracy” (1922)

• A need to establish a rational basis for
organization and management of large-scale
undertaking such as state organizations.
• Bureaucracy means management by the office
or position rather than by a person or
“patrimonial”.
• Kinds of authority => three pure types of

legitimate authority
– Ration-legal authority => Rested on legality, or
“right” of those elevated to authority to issue
commands => Bureaucracy is structured based on
such a legal domination. => Subordinates owe
obedience to the legally established hierarchy. It is
obedience to the authority of an established
position or rank.
– Traditional authority => Rested on belief in the
sanctity of immemorial traditions and the
legitimacy of the status of those exercising
authority under them. Obedience is owed to the
person who occupies the traditionally sanctioned
position of authority. This type of authority is
seen by Weber as less efficient because leader is
not chosen on the basis of competence.
– Charismatic authority => Based on devotion to the
specific and exceptional sanctity, heroism, or
exemplary character of an individual person. =>
The leader is obeyed by virtue of the followers’
personal trust and belief in the leader’s powers or
revelations. Weber views this authority as too
emotional and irrational.
• Seven elements of bureaucracy
– The division of labor and authority and
responsibility are clearly defined for each member
and are legitimized as official duties;
– Offices or positions are organized in a hierarchy of
authority resulting in a chain of command or the
scalar principle;
– All organizational members are selected on the
basis of technical qualifications through formal
examinations or by virtue of training or education;
– Officials are appointed, not elected (with exceptional in
some cases of the chief of the whole unit, for example, an
elected public official);
– Administrative officials work for fixed salaries and are
career officials.
– Administrative officials are not owners of the units they
administer;
– Administrators are subject to strict rules, discipline, and
control regarding the conduct of their official duties. These
rules and controls are impersonal and uniformly applied in
all cases.
• Frederick Taylor: “Scientific Management” (1911)
• The old system of management is called the
management of initiative and incentive.
– The rule of thumb
– The systematic soldiering (delay of work for producing
less, and maintaining jobs)
– Labor mobilized by the labor union
– A freedom of working methods
– Management side not so much control and give
any assistances to workers
– Incentive is only way that management side used
for getting people working harder
– Problem of inefficient management system, not
human
• Science refers to observing, testing and finding one
best way
• According to the scientific management system, the
management sides are obligated as following:
– Replacing the rule of thumb with the scientific
management => gathering knowledge and information on
the rule of thumb of workers; finding the one best method
and cheapest way; making them as rules or regulation or
steps of work; planning for tomorrow working method;
– The scientific selection of workers and then
progressive development of workmen => to study
character, nature and performance of each worker
to find out his limitations, and possibility for
development; train, teach or help this worker,
giving him whatever it is possible, those
opportunities for advancement which will finally
enable him to do the highest and most interesting
and most profitable class of work for which his
natural abilities fit him (a continual study of the
workmen in which it might take months or years)
– Developing employees to work in accordance with
the scientific management
– Creating cooperative environment between
workers and management sides => appropriate
quantity of tasks; bonus for the hard working
employee who also work according to the
scientific approach; supervising all working steps;
open chance for workers to suggest ways to
improve working methods;
• The most outstanding characteristic of the scientific
management is that it is able to be efficiently used
anywhere.
• Summary of Taylor’s scientific management
approach
– Science, not rule of thumb
– Harmony, not discord
– Cooperation, not individualism
– Maximum output, in place of restrict output
– The development of each man to his greatest efficiency and
prosperity
• Mary Parker Follett, the political philosopher
• Democracy is the development of a social consciousness, not
individualism.
• Theory of government based on individual rights no longer
has a place in modern political theory.
• The new and true democracy is to build from small
neighborhood groups to community groups, to state groups, to
a nation group, and eventually to an international group will.
• People could create a new social consciousness and live
together peaceably in the “world state”.
• Conflict resolution:
– Voluntary submission of one side => using of force or
power domination.
– Struggle and the victory of one side over the other => using
of force or power domination.
– Compromise => futile because it postpones the issues and
the true does not lie between the two sides.
– Integration => finding a solution that satisfies both sides
without compromise and domination.
• The notions of boss and subordinate create barriers to
recognizing the commonality of interests. To
overcome this problem, Follett proposed to
depersonalize orders and shift obedience to the “law
of situation”.
• The essence of good human relations is creating the
feeling of working with someone rather than working
under someone. It becomes “power with” versus
“power over”.
• Employees elect representatives to shop or

work councils; these representatives then
participate in decision making and give the
worker a voice in dealing with management
• Employee representation should not be a
struggle over who decide what and how the
profits are to be divided, but a step up toward
attaining integration.
• Good administration is about coordination.

– Coordination as the reciprocal relating of all the
factors in a situation
– Coordination by direct contact of all the
responsible people concerned (not top-down
coordination and control)
– Coordination in the early stage
– Coordination as a continuing process
• Henri Fayol
• Management is a special study, apart from technical
matters, that could be taught in schools and
universities as theory is developed and codified.
• Managers need to have these qualifications: physical
qualities; mental qualities; moral qualities; general
education; special knowledge; experiences
• Elements of management: planning, organizing,
command, coordination and control
• The manager who exercises command should:

– Have a thorough knowledge of personnel
– Eliminate the incompetent
– Be well versed in agreements binding the business
and its employees
– Set a good example
– Conduct periodic audits of the organization and
use summarized charts to further the audits
– Bring together the chief assistants by means of
conferences that provide for unity of direction and
focusing of effort
– Not become engrossed in detail
– Aim at making unity, energy, initiative, and
loyalty prevail among the personnel
• Principles of management
– Division of labor
– Authority (formal authority and personal
authority): “wherever authority is exercised,
responsibilities arise”
– Discipline deriving from good leaders, clear
agreements between management and labor
regarding rules, and the judicious use of sanctions
(penalties)
– Unity of command: “For any action whatsoever an
employee should receive orders from one superior
only
– Unity of direction: “one head and one plan for a
group of activities having the same objectives
– Subordination of individual interests to general
interest
– Remuneration (fair rewarding)
– Centralization depends on situation
– Scalar chain: “the chain of superiors ranging from
the ultimate authority to the lowest ranks”
– Order to ensure a place for everything and
everything in its place
– Equity results from kindliness and justice and
provides a principle for employee relations
– Stability of tenure of personnel: “To provide for
orderly personnel planning and provision to
replace human resources”
– Initiative as a principle exhorted individuals to
display zeal and energy in all efforts
– Esprit de corps—stressing on building harmony
and unity within firm
• James D. Mooney and Alan C. Reiley

• Principles of management:
– Coordination or unity of command by delegation
– Hierarchy of command
– Division of labor by specialization
– Line operation and staff (of consultant unit)
• Luther H. Gulick and Lyndall Urwick
• Wherever many men are working together the best
results are secured when there is a division of work
among these men.
• The theory of organization has to do with the
structure of coordination imposed upon the work-
division units of an enterprise.
• Two principles of coordination: coordination through
organization or structure of authority and
coordination through leadership.
• Coordination through organization

– Structure of authority within an organization
– Organizing executives
– Coordination of work units system
• Structure of authority
– Span of control: an appropriateness of numbers of
subordinates
– Unity of command: controlling and coordinating
by one chief only, not by committee
– Principle of homogeneity: bring all expertise to
work together for technical efficiency
• Organizing executives: “The work of chief
executive is POSDCORB”
– Planning
– Organizing
– Staffing
– Directing
– Coordinating
– Reporting
– Budgeting
• Coordinating of work units system

– Organizing on the basis of organizational purpose
or vertical organizing (bringing together different
expertise people)
– Organizing on the basis of working process or
horizontal organizing (bringing together the same
expertise people)
– Organizing on the basis of clientele and materials
– Organizing on the basis of place
Public Administration:
Challenged Theories
First Identity Crisis (1950 –
1960)
By
Suvicha Pouaree
First Identity Crisis (1950 – 1960)
• Herbert Simon (1946): No management principles in
the real world
• Robert A. Dahl (1947): Each organization has its
own characteristics of members, social structure,
culture, etc. Hence, there is no general management
principle that could be applied with all organizations.
• Dwight Waldo (1948): Major problem of
management principles is that it too much focuses on
economy and efficiency
• Political scientists: Administration cannot be
separated from politics; Administration is actually
about politics.
• Sociologists: Bureaucratic theory could not be
practiced within any organization.
• Management theorists: Scientific management
ignores human behavior.
• Administrative scientists: decision-making in an
uncertain environment should be the focus of PA
study.
• Administration is politics
• Informal bureaucratic system
• Human relation theories
• Administrative science
Administration is Politics
• Avery Leiserson and Frizt Morstein-Marx

(1946):
– Any changes in public budget and personnel are
political involvement.
– Public administrators are obligated to set plan for
implementing policy.
– Executive branch has to listen to interest groups,
media and the public in general before making any
policies
– Some public organizations are established by the
desires of interest groups.
– The survival of public organizations depends on
the supports from interest groups.
– What make public administration different from
private management is that there are more factors
to be considered such as political factors,
technological factors, personnel factors, etc.
• James W. Fesler:
– Some public organizations are likely to be
independent from the executive branch domination
because they gain supports from interest groups.
• Don K. Price:
– Bureaucrats are obligated not only to implement
policies but also to make policies. They are able to
express their ideas to support or against any
policies.
• Paul Henson Appleby
• Public administration is actually about politics because
it is a part of political process.
• PA is about governing. PA studies should not focus on
how to create the most efficient administration, but the
policy-making and the power of political groups.
• The belief on the separation of administration from
politics was made because those academics too much
followed the US constitution particularly on the
“Separation of Power”. That made a misunderstanding
that the civil service system must be neutral.
• Power to make policy actually belongs to
every branches.
• In reality, there is no separation of power.
• What make public administration different
from private management is the political
involvement. The decision-making of
executive branch and public administrators is
the government’s action on behalf of the
people.
• Public administration is the last step in the

political process so that the administrative
process will be related with interest groups.
• Public administrators must act not only as
public service experts but also politicians. The
higher the positions of administrators, the
more they become politicians.
• The art of PA is about organizing bureaucratic

hierarchy under the political environment.
Administrators in this hierarchical structure
receive demands from people and then make
decision on policy issues. Hence,
administration is about politics and PA study
is to seek for the administrative system that
could perform the best political roles.
• Administrative system must be responsible to the
society through “administrative pluralism”. That
means a making of cooperation between democracy
(interest groups) and bureaucracy (public
administrators)
• Administrative platonism or qualifications of
administrators: => having responsibility; capable of
personnel management and communication;
resources finding and utilizing; teamwork and
problems solver; confidence and initiative.
• Norton E. Long:
• Power is similar to blood of the organization that is
spread throughout the organization.
• Bureaucratic system is not able to be separated from
politics because of the weak political party structure
and uncertainty in policy direction.
• Public administrators must consider political factors
before making a decision in administration.
Informal Bureaucratic
System
Informal Bureaucratic System
• Basic assumption:
• Bureaucratic organization is not always efficient.
• Bureaucratic organizational structure is not necessary
a factor affecting the successful organization. But
behavior and informal relationship of organization’s
members are to make the efficient organization.
• Bureaucratic organizational structure will lead to goal
displacement, dysfunctional and unanticipated
consequences.
• Robert Michel: “Political Parties” (1962)

• Goal displacement phenomenon:
– Attempts to maintain status quo of the leader
– Leader tries to increase power for his/her own sake
by controlling subordinates and exploiting
organizational mechanism
– Utilizing “Iron Law of the Oligarchy”
– Example of the Socialist Party and the Labor Union
in UK before the World War II
• Robert Merton
• Goal displacement phenomenon
– Deriving from low rank official
– Bureaucratic system creates behavior of the organization’s
members => Too much rely on rules and regulations and
viewing them as objectives, not means to achieve
organizational objectives.
– Bureaucrats lack flexibility and stress on state policies
rather than on public service delivery
– Bureaucratic organizational structure help controlling
official but leads to poor service delivery
• Alvin N. Gouldner: “Patterns of Industrial
Bureaucracy” (1954)
• Formal management system like bureaucratic theory
leads to conflict between bosses and subordinates,
and the wider gap between these two groups.
• Philip Selznick: “T.V.A. and the Grass Roots”
(1949)
• Goal displacement derives from conservative
characteristics of the bureaucratic organization
• Michel Crozier: “The Bureaucratic Phenomenon”
(1964)
• Bureaucratic pathology (declining) derives from rules
and regulations of the organization
• The more rules and regulations the less enthusiastic
the workers have
• Problem of centralization of power
• Problem of inefficient communication
• Problem of conflicts between workers
• Culture is an impact affecting workers’ behavior
Human Relation Theories
• Basic assumption:
• Attacking on scientific management approach that
lacking of consideration on human factors
• Human does not always want only economic return.
• Informal relationship is significant to the efficient and
effective performance of the workers
• Two levels of analysis: Group analysis and individual
analysis
• Hawthorne Studies by Elton Mayo

– An assessment of the impact of working conditions
(temperature, light, noise) on the motivation and
hence the productivity of individuals.
– Social norm, not physical factor, affect the
workers’ performances
– Workers’ behaviors are determined by reward and
penalty system, not economic returning.
– Group is an important factor affecting individuals’
performance.
– The individuals’ perceptions of the significant of
works directly affect the production.
– Organizational culture is related to the production
standards.
– Implication for project management => Manager
should learn what are individuals’ motivations
• Criticism on Hawthorne Study

– Conflicts might have a positive result
– Hawthorne study did not profoundly consider the
workers’ feeling such as class, power, etc.
– Hawthorne study is not different from scientific
management approach that focuses on top-down
management
– Hawthorn study might have problems of research
methodologies
• Abraham Maslow: “Hierarchy of Needs

Theory” (1954)
• Individuals will have basic requirements to be
content at one level. Once these are met on an
ongoing basis, their needs move to the next
level, and so on.
• Hence, in order to motivate workers to have a
better performance, manager must try to fulfill
their needs step by step
• There are five levels of individuals’ needs =>

physiological needs; safety needs; belonging
needs (social needs); needs for self-esteem and
respect; self-actualization. Each individuals
will have their own need hierarchies.
• Physiological needs => food, shelter, relief

from pain, etc.
• Safety needs => the needs for freedom from
threats—including physical and economic
threats.
• Social needs => to belong to a social group, or
a recognizable team--something that will give
them an identity—the need for friendship,
affiliation, interaction and love.
• Need for self-esteem and respect => the

thoughts of others about an individual
counting in their own self-image; the freedom
and self-respecting
• Self-actualization => the need to fulfill oneself
by making maximum use of abilities, skills
and potentials; the individuals’ achievement
• Frederick Herzberg: “Two-Factor Theory of

Motivation” or “Motivation-Hygiene Theory” (1959)
– The two factors are called dissatisfactions-satisfactions or
hygiene-motivators or extrinsic-intrinsic factors.
– The job context is a set of extrinsic conditions which result
in dissatisfaction among employees when condition are not
present.
– If the set of extrinsic conditions are present, this does not
necessarily motivate employees.
– These conditions are the dissatisfactions or

hygiene factors, since they are needed to maintain
at least a level of “no dissatisfaction”.
– Hygiene factors are: salary, job security, working
conditions, status, company procedures, quality of
technical supervision, quality of interpersonal
relations among peers, with the superiors and with
subordinates
– The job content is a set of intrinsic conditions--

when present in the job, build strong levels of
motivation that can result in good job performance.
– If these intrinsic conditions are not present, they do
not prove highly dissatisfying.
– Satisfactions or motivators are: achievement,
recognition, responsibility, advancement, the work
itself, the possibility of growth.
– Motivators are positive, while hygiene factors are
negative.
• Douglass McGregor: “The Human Side of

Enterprise” or “Theory X and theory Y”
(1960)
• Theory X and Theory Y are ways to motivate
workers.
• Theory X is to fulfill workers’ physical and
safety demands, but has not much to do with
workers’ demand on social status.
• Theory X
– Management side is obligated to prepare organizational
components; to control and motivate workers; to change
workers’ behavior to cope with the demand of the
organization
– Natural characteristics of human are lazy, having no
enthusiastic, lack of leadership, selfish, headstrong to any
changes, unwise and easy to be deceived
– Motivation must comprise of both reward and penalty.
– Workers tend to adapt themselves to cope with Theory X in
order to satisfy management side.
• Theory Y
– Management side is obligated to prepare
organizational components
– Natural characteristics of human is not lazy but
his/her experience within an organization makes
him/her become lazy person
– Human is responsible person and like to be
developed, so that the management side needs not
to motivate them on these matters.
– Management side should focus on how to make
workers maximum use of their potential, setting
working condition to cope with workers’ personal
demands, and making workers’ personal demands
to become organizational objective
• Chris Argryis: “Personality and Organization”
(1957)
• Human with a good mental health must be
maturation: from lazy to enthusiastic person; from
dependent to independent person; from simply to
complex behavior; from unstable to stable person;
from today’s expectation to long terms expectation;
from subordinate to boss behavior; and from
uncontrollable to self-controllable person
• The bureaucratic organization structure is an obstacle
to the human development because it makes the
workers to only follow the bosses’ demands
• In the long terms—under the bureaucratic
organization structure—bosses will have less
enthusiastic because of inefficient organization
• The ways to solve the problem are to push for
maturation of workers, to reduce controlling system,
and to encourage democracy in the organization.
Administrative Science
• Chester I. Barnard: “The Function of

Executive”
• Against notion on people joining organization
only because they need an economic return. In
fact, they want other types of returns also such
as political, religion, educational returns, etc.
• Authority is not only about state and religion
but it is also about organization.
• Theory of formal organization: Organization is a
system of consciously coordinated activities or forces
of two or more persons. The system is to be treated
as a whole because each part is related to every other
part included in it in a significant way.
• System (organization) contains three universal
elements:
– Willingness to cooperate;
– Common purpose;
– Communication
• Willingness to cooperate is indispensable, the
first universal element of all organizations, and
it means “self-abnegation (renouncing), the
surrender of control of personal conduct, the
depersonalized of personal actions. People
have to be willing to contribute to a system’s
objectives; but the intensity and timing of this
willingness fluctuated, since it is based on the
satisfaction or dissatisfaction experienced or
anticipated by organizational members.
• In order to secure the willingness to cooperate,

the economy of incentives must be provided.
This consists of two parts:
– Offering objective incentives (money, non-
materials, associations, participation.
– Changing subjective attitudes through persuasion.
• If cooperation is successful, the goal is
attained and the system is effective.
• Cooperative efficiency is the result of
individuals’ efficiencies since cooperation is
only to satisfy individual motives. Efficiency
is the degree to which individual motives are
satisfied, and only the individual could
determine whether or not this condition is
being met.
• The executive has to inculcate (train or teach)
members with the common purpose or objective of
the organization. It is not necessarily what the
purpose means personally to the members, but what
they perceived as its meaning to the organization as a
whole. People contribute not because their personal
motives are the same as the organization’s, but
because they felt that personal satisfaction would
come from accomplishing the purpose of the
organization.
• All activity is based on communication with these
three principles:
– Channels of communication should be definitely known;
– Objective authority requires a definite formal channel of
communication to every member of an organization, that is
everyone must report to or be subordinated to someone;
– The line of communication must be as direct or short as
possible in order to speed communications and reduce
distortions caused by transmission through many channels.
• The survival of an organization depends on

executive’s capabilities. There are three
executive functions:
– To provide system of communication. Executive
has to define organization’s duties, clarify lines of
authority and responsibility, and consider both
formal and informal means of communication.
– To promote the securing of essential personal
efforts. This is to bring people into cooperative
relationship and elicit their contributions to the
organization. This is largely about recruiting and
selecting of personnel. In addition, it is about
maintenance of these variables: morale; scheme of
inducements (persuasion); schemes of deterrents
(preventing) such as supervision, control,
inspection, education, and training which could
ensure the viability of the cooperative system.
– To formulate and define purpose of the
organization including the functions of decision-
making and delegation on responsibilities and
authority within cooperative system so that
individuals would know how they contribute to the
end sought. The executive needs to adapt
organization’s purpose to cope with the changing
environmental factors. This needs to have strategic
factors that would create the set or system of
conditions necessary to accomplish the
organization’s purposes.
• Authority is the character of communication
(order) in a formal organization by virtue of
which it is accepted by a contributor to or
member of the organization as governing the
action he contributes.
• Authority has two aspects:
– Personal subjective acceptance of a
communication as being authoritative
– The objective, formal character of communication
• Individuals need to assent to authority and will
do so if four conditions are met:
– They understand the communicated order;
– They believe that the order is consistent with the
purpose of the organization at the time of their
decision;
– They believe that the order is compatible with the
personal interests as a whole;
– They are mentally and physically able to comply
with the order.
• The organizational decision-making comprises of two
elements:
– Theory of opportunism (forecasting): Organization cannot
control all factors in the organization, the decision-making
then is based on strategic factors. These strategic factors
are to become organizational objectives and these factors
help forecasting the future of the organization by using past
experiences.
– Moral process means the decision-making based on
attitudes, values, ideology, expectation, emotion of human
which are made through physical, biological and social
factors.
• Herbert A. Simon: “Administrative Behavior”
• Simon applied Barnard’s idea to develop PA theories:
– Organizational members are not robots so that the incentive
to make people work, stay with and loyalty to the
organization is important.
– People need not only economic return, but also other types
of return.
– People have limitations in their decision-makings
– Zone of acceptance on authority
• There must be mechanism for viewing
organization such as special words to explain about
the organization
• Problems of administrative principles
– The conflicts of administrative principles between the span
of control and hierarchy (communication problems); and
specialization and unity of command (problems of too
many similar expertise working together)
– The problem of organization based on purpose, process,
clients and places
– Administrative principles do not identify which type of
organization is suitable to which situation.
• Administrative theories could be developed as
followings:
– Making varieties of conceptual framework to
explain administrative phenomena
– Studying more on rational administration
– Studying more on organization
• Decision-making is the heart of PA:

Administrative theory is about rational and
irrational of human. However, rational
decision-making is an ideology and it is rarely
found in the real world.
• In order to make decision, decision-maker
must have: priority of objective; alternative
strategies; knowledge.
• Mechanism of decision-making:
– Mechanism of behavior-persistence: whatever human used
to do it, he/she will continue to do it in order to save cost
– Mechanism of behavior-initiative. This case is about
external factor, not individual factor. Organization is able
to influence the members’ decision-making by imposing:
scope of work; working rules and regulations; hierarchy;
information for communication; and training course for
workers to work in accordance with the organizational
objectives.
• The decision on organizational objectives

• The decision can be divided into: final goal
(value or ethical judgments) and factual
judgment (fact)
• The decision-making within an organization is
about hierarchy in which the executive will
make a final judgment and the workers will
make a factual judgment.
• Incentives for making people loyalty to the

organization
• There are three types of incentives for making
people loyalty to the organization:
– Organizational objectives
– Working incentives such as money, non-materials,
association, progressiveness
– Organizational growth
• Relationship between boss and subordinates
• Administration is an arts.
• The right decision depends on supervisory staff,
while the achievement of work depends on operation
staff
• There should be the vertical specialization because it
helps coordination within an organization:
(procedural coordination—organizational level--and
substantive coordination—individual level)
• Boss should try to have an influence over
his/her subordinates:
– making organizational loyalty and efficiency
– training workers for creating decision premises
– Morally Utilization of power—to utilize power
within the zone of acceptance.
– Power is utilized for coordination between
members, making workers responsible to their
jobs, and creating division of labor based on
specialization.
• In order to solve the problem of disunity of

command, the scope of power should be
functional or hierarchical. Power could be
made both in vertical and horizon lines.
• Communication could help convincing
members to perform efficiently. It could be
both formal and informal approaches.
• PA is a multidisciplinary.
THE END

Public Administration Theories

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Public Administration

• PA studies are for recruiting high competence

• Frank J. Goodnow: “Politics and

• Administration should not be under politics.

• Max Weber: “Bureaucracy” (1922)

• Kinds of authority => three pure types of

• Employees elect representatives to shop or

• Good administration is about coordination.

• The manager who exercises command should:

• James D. Mooney and Alan C. Reiley

• Coordination through organization

• Coordinating of work units system

• Avery Leiserson and Frizt Morstein-Marx

• Public administration is the last step in the

• The art of PA is about organizing bureaucratic

• Robert Michel: “Political Parties” (1962)

• Hawthorne Studies by Elton Mayo

• Criticism on Hawthorne Study

• Abraham Maslow: “Hierarchy of Needs

• There are five levels of individuals’ needs =>

• Physiological needs => food, shelter, relief

• Need for self-esteem and respect => the

• Frederick Herzberg: “Two-Factor Theory of

– These conditions are the dissatisfactions or

– The job content is a set of intrinsic conditions--

• Douglass McGregor: “The Human Side of

• Chester I. Barnard: “The Function of

• In order to secure the willingness to cooperate,

• The survival of an organization depends on

• Decision-making is the heart of PA:

• The decision on organizational objectives

• Incentives for making people loyalty to the

• In order to solve the problem of disunity of

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