PUBLIC

ADMINISTRATION
CONCEPTS, APPROACHES AND CONTEXT
BACKGROUND
◦ Harrapa And Mohnjodarro Civilizations
◦ Organized bodies of civil servants
◦ Brihaspati’s work on laws and governance
◦ Egyptian Civilizations and Roman Empire
◦ Presence of Ministries and civil servants
◦ Muslima Khilafat
◦ Organized of system of governance and governors
◦ Principles of governance
◦ Imam Ali’s Letters to his governors
◦ Establishment of different departments
◦ Mughal Empire
BACKGROUND
◦ The field of management may well be said to have originated in ancient China, including possibly the
first highly centralized bureaucratic state, and the earliest (by the second century BC) example of an
administration based on merit through testing.
◦ Thomas Taylor Meadows, Britain's consul in Guangzhou, argued in his Desultory Notes on the
Government and People of China (1847) that "the long duration of the Chinese empire is solely and
altogether owing to the good government which consists in the advancement of men of talent and merit
only," and that the British must reform their civil service by making the institution meritocratic.
◦ Influenced by the ancient Chinese imperial examination, the Northcote–Trevelyan Report of 1854
recommended that recruitment should be on the basis of merit determined through competitive
examination, candidates should have a solid general education to enable inter-departmental transfers, and
promotion should be through achievement rather than "preferment, patronage, or purchase".
◦ Her Majesty's Civil Service - A systematic, meritocratic civil service bureaucracy.
◦ The eighteenth-century noble, King Frederick William I of Prussia, created professorates in Cameralism
in an effort to train a new class of public administrators.
◦ Lorenz von Stein, an 1855 German professor from Vienna, is considered the founder of the science of
public administration in many parts of the world. In the time of Von Stein, public administration was
considered a form of administrative law, but Von Stein believed this concept too restrictive. Von Stein
taught that public administration relies on many preestablished disciplines such as sociology, political
science, administrative law and public finance. He called public administration an integrating science,
and stated that public administrators should be concerned with both theory and practice. He argued that
public administration is a science because knowledge is generated and evaluated according to the
scientific method.
◦ Modern American public administration is an extension of democratic governance, justified by classic
and liberal philosophers of the Western world ranging from Aristotle to John Locke to Thomas Jefferson.
◦ Prior to the 19th century, staffing of most public administrations was rife with nepotism, favouritism, and
political patronage, which was often referred to as a "spoils system". Public administrators have long
been the "eyes and ears" of rulers. In medieval times, the abilities to read and write, add and subtract
were as dominated by the educated elite as public employment. Consequently, the need for expert civil
servants whose ability to read and write formed the basis for developing expertise in such necessary
activities as legal record-keeping, paying and feeding armies and levying taxes.
◦ In the United States of America, Woodrow Wilson is considered the father of public administration. He
first formally recognized public administration in an 1887 article entitled "The Study of
Administration". The future president wrote that "it is the object of administrative study to discover,
first, what government can properly and successfully do, and, secondly, how it can do these proper
things with the utmost possible efficiency and at the least possible cost either of money or of energy“.
◦ Wilson was more influential to the science of public administration than Von Stein, primarily due to an
article Wilson wrote in 1887 in which he advocated four concepts:
◦ Separation of politics and administration
◦ Comparative analysis of political and private organizations
◦ Improving efficiency with business-like practices and attitudes toward daily operations
◦ Improving the effectiveness of public service through management and by training civil servants,
merit-based assessment
◦ By the 1920s, scholars of public administration had responded to Wilson's solicitation and thus textbooks
in this field were introduced. A few distinguished scholars of that period were, Luther Gulick, Lyndall
Urwick, Henri Fayol, and Frederick Taylor.
◦ Frederick Taylor (1856–1915) published a book entitled The Principles of Scientific Management (1911).
◦ He believed that scientific analysis would lead to the discovery of the "one best way" to do things or
carrying out an operation. This, according to him could help save cost and time.
◦ Taylor's technique was later introduced to private industrialists, and later into the various government
organizations
◦ Settlement Movement 1880-1940
◦ New Deal Reforms
◦ The Settlement Model of Public Administration
◦ The Settlement movement and its leaders such as Jane Addams, Julia Lathrop, and Florence Kelley
were instrumental in crafting the alternative, feminine inspired, model of public administration. This
settlement model of public administration, had two interrelated components – municipal housekeeping
and industrial citizenship.
Meaning of Public Administration
◦ ‘administration’ - derived from Latin words;
◦ ‘ad’ = to and ‘ministiare’ = serve
◦ ‘Public’ =people or citizens
◦ administration means to execute the policy of government
◦ administration and management are used interchangeably
◦ simply means governmental administration
◦ operates in a political setting
◦ its focus is specifically on public bureaucracy
◦ the study and practice of public bureaucracy
◦ coordinating and controlling of governmental operation
Why Public Administration Received Impetus
as A Subject?
◦ Expanding welfare role of the government
◦ The emergence of private sector
◦ Regulatory role of government
◦ The need for increased efficiency
◦ Development of Science and Technology
◦ Better management of public matters
Definition of Public Administration
◦ The action part of government
◦ the means - the purposes and goals of government
◦ as a field - mainly concerned – with political values
◦ consists of the actions
◦ a cooperative group effort in a public setting
◦ covers all the three branches
◦ Executive
◦ Legislative
◦ Judicial
seen as the activities of groups Such common
goals include;
◦ Defense, safeguarding the frontiers, maintenance of law and order, fire protection, communications,
public health, education, etc.
◦ Public administration focuses principally on the;
◦ Planning
◦ Organizing
◦ Directing
◦ The study of public administration overlaps a number of other disciplines, including;
◦ Political Science, Sociology, Economics, Psychology, Business Administration
Public administration is policy execution and
policy formulation
◦ M.E. Dimock. and G.O.Dimock
◦ Public administration is the area of study and practice where law and policy recommended and carried out.
◦ J.W. Felse
◦ Public administration is policy execution and also policy formulation.
◦ F.A. Nigro and L.G. Nigro Public Administration
◦ is a cooperative group effort in a public setting
◦ covers all three branches and their interrelationships
◦ has an important role in the formulation of policy
◦ has an important role in a part of the political process
◦ is different in significant ways from private administration
◦ is closely associated with numerous private groups and individuals in providing services to the community
Public Administration is a detailed and
systematic application of law
◦ L. D. White
◦ Public Administration consists of all those operations having for their purpose the fulfillment of public
policy as declared by authority.
◦ Simon
◦ Public Administration is meant the activities of the executive branches of the national, state, & local
governments.
◦ Willoughby
◦ Public Administration in broadest sense denotes the work involved in the actual conduct of governmental
affairs, and in narrowest senses denotes the operations of the administrative branch only.
◦ Gullick

◦ Public Administration is that part of the science of administration which has to do with government and thus, concerns
itself primarily with the executive branch where the work of the government is done.
◦ Waldo
◦ Public Administration is the art and science of management as applied to the affairs of the state.
◦ Marshall E. Dimock
◦ Administration is concerned with ‘what’ and ‘How’ of the government.
◦ The ‘what’ is the subject matter, the technical knowledge of afield which enables the administrator to perform his
tasks.
◦ The ‘How’ is the technique of management according to which co-operative programmes are carried to success.
Nature of Public Administration
The Integral View
◦ is viewed as doing the work of government
◦ regarded as the sum total of all the activities;
◦ Manual
◦ clerical, metal
◦ technical and managerial
◦ all the activities of government employees
◦ all those operations - enforcement of public policy
◦ the scope of public administration vast and unwieldy
◦ includes a heterogeneous mass of activities
◦ may not develop into a distinct academic discipline
Nature of Public Administration
The Managerial View
◦ Luther Gulick - important champion of the managerial view
◦ viewed as getting the work of government done
◦ consisting of the managerial functions of top administrators
◦ emphasizes the basic functions of managers
◦ denotes the work of the chief executive as a general manager
◦ excludes the activities of the non-managerial personnel
◦ controls the activities of all others
◦ getting things done, not doing things
◦ getting things done with the accomplishment of objectives
◦ emphasis on managerial techniques.
Public Administration
◦ As a process:
◦ is concerned with all the steps from the first to last taken in the implementation of public policy.
◦ As a vocation:
◦ it is concerned with the management of the activities of others in a public agency.
Characteristics of Public Administration
◦ part of executive branch of government
◦ related with the activities of the state
◦ carries out the public policies
◦ realize the aspirations of the people
◦ non-political public bureaucracy
◦ the monopoly of the state
◦ concentrated in the executive branch
◦ naturally a big and complex organization
◦ concerned with policy execution
◦ to an end, and not an end in itself
◦ merely a tool of government to implement its policies
Issues in Public Administration

◦ Bureaucracy v. Democracy
◦ Efficiency v. Responsibility
◦ Politics v. Administration
 Bureaucracy
In bureaucracy, the bureaucrats are elected through
established procedures
In bureaucracy, the bureaucrats are not considered as In democracy, leaders are public representatives.
public representatives.
In bureaucracy, the bureaucrats have a fixed tenure,
i.e their tenure is fixed till the age of retirement,
although their roles and responsibilities could vary
depending on the posting etc.
Bureaucracy does not give too much importance to,
or focus much on public opinions.
Democracy
In democracy, the leaders are elected by the people
of the country or state through free and fair elections.
In democracy, the elected leaders or representatives
have a fixed tenure of up to 5 years in India, after
this period, they have to contest elections again to
get the necessary votes to regain and continue in
power.
In democracy, the elected representatives give a lot
of importance to public opinions as they are elected
by the public through elections.
Bureaucracy does not grant freedom of expression.
The mandate of Bureaucracy is to implement the
laws.
Bureaucracy is responsible for implementing the
policies.
Bureaucracy gives more accountability.
Since inputs from electorates are not paid heed to by In democracy, consultative approach is used before
the Bureaucracy, Directive approach is prevalent.
In bureaucracy, hierarchy is extremely important, a
top-down approach is followed for smooth
functioning of any department. Bureaucracy also
focuses on Centralisation.
Democracy grants freedom of expression
Democracy gives the powers to make the laws.
Democracy gives the right to elected representatives
to make or formulate the policies.
Democracy does not necessarily give great
accountability. If there was perfect accountability,
then corruption would not exist.
framing new laws, policies etc. Elected
representatives takes inputs from their electorates
Democracy is based on the values of Equality,
Republicanism, F
Equity vs Efficiency
◦ Social Equity
◦ is the active commitment to fairness, justice, and equality in the formulation of public policy, distribution of public services,
implementation of public policy, and management of all institutions serving the public directly or by contract.
◦ Efficiency
◦ as it applies to public administration is defined as a ratio between input and output, efforts and results, expenditure and
incomes, and costs and resulting pleasure.
◦ Trade offs
Politics vs Administration
◦ The politics-administration dichotomy is a theory that constructs the boundaries of public administration
and asserts the normative relationship between elected officials and administrators in a democratic
society.
◦ Laws
◦ Rule of law
◦ Processes
◦ Systems
◦ Traditions
◦ Norms
Core Values of Public Administration
◦ Rule of Law,
◦ Efficiency,
◦ Equity and Fairness,
◦ Responsiveness
Traditional Public Administration
◦ In traditional public administration the personnel of government are hired through a merit system
designed by the government personnel agency and often enacted in law. A merit system is designed to
prevent partisan political interference in the implementation of policy.
◦ The traditional model of public administration rests in important ways on the articulation by Max Weber
of the nature of bureaucracy. Weber emphasized control from top to bottom in the form of a monocratic
hierarchy, that is, a system of control in which policy is set at the top and carried out through a series of
offices, with each manager and worker reporting to one superior and held to account by that person. The
bureaucratic system is based on a set of rules and regulations flowing from public law; the system of
control is rational and legal. The role of the bureaucrat is strictly subordinate to the political superior.
New Public Management
◦ New Public Management was created in the public sector to create change based on disaggregation,
competition, and incentives. Using incentives to produce the maximum services from an organization is
largely stalled in many countries and being reversed because of increased complexity.
◦ New Public Management (NPM) is an approach to running public service organizations that is used in
government and public service institutions and agencies, at both sub-national and national levels. The
term was first introduced by academics in the UK and Australia[1][full citation needed] to describe
approaches that were developed during the 1980s as part of an effort to make the public service more
"businesslike" and to improve its efficiency by using private sector management models.
◦ Customer Service
◦ Principles of Private sector
New Public Service
◦ The New Public Service (NPS) approach is perhaps the most systematic approach in the study of public
administration. The New Public Service approach supplies a structure for the many voices calling for the
reaffirmation of democratic values, citizenship, and service in the public interest. It is organized around a
set of seven core principles :
◦ Serve citizens, not customers;
◦ Seek the public interest ;
◦ Value citizenship and public service above entrepreneurship;
◦ Think strategically, act democratically;
◦ Recognize that accountability isn’t simple;
◦ Serve, rather than steer; and
◦ Value people, not just productivity.
Governance approach to Public Administration
◦ Good governance requires fair legal frameworks that are enforced impartially. It also requires full
protection of human rights, particularly those of minorities. Impartial enforcement of laws requires an
independent judiciary and an impartial and incorruptible police force.
◦ The success of the public service of the future will depend on the ability to balance change and
continuity. A need to devote significant intellectual energy to the change and responsiveness will arise.
Organisational performance must be based on a broader vision of improved performance management.
Good governance is an essential part of the administrative process, which includes effective resource
mobilisation as the citizen’s demand via the democratic processes, value for money as measured in terms
of economy, efficiency and effectiveness. Therefore the public administration and good governance
relationship is vital for service delivery performance.
Islamic concept of public administration
◦ In Islam Public administration is a kind of responsibility owed. by humankind to Allah, Who made him
his vicegerent on land. And this responsibility is the management. of all aspects of human life that fulfills
the functions of Allah's servants.
◦ Shariah laws
◦ Quranic guidance
◦ Islamic principles of governance
Historical roots of Public administration in
Pakistan
◦ Ancient Public Administration
◦ Ashoka and Guptas
◦ Alaudin Khilji
◦ Sultan Muhammad Tughlaq
◦ Sher Shah Suri
◦ Mughals
◦ Mansabdari System
◦ Revenue System
◦ British Administration
◦ Initial Years (1947-1958)
◦ In the early years of independence, Pakistan inherited the administrative structure from British India. The
Civil Services of Pakistan (CSP) was established, and the bureaucratic system was modeled on the
British colonial administrative framework.
◦ The government faced challenges related to the integration of diverse regions and the mass migration of
populations during the partition.
◦ Administrative Reforms under Ayub Khan (1958-1969)
◦ The military coup in 1958 brought Ayub Khan to power. During his regime, there was a focus on
economic development and administrative efficiency.
◦ Ayub Khan introduced the Basic Democracies system to decentralize governance and involve local
communities in decision-making. However, this system was criticized for consolidating power rather
than empowering local bodies.
◦ Bhutto Era and Nationalization (1971-1977)
◦ The period under Zulfikar Ali Bhutto saw significant changes in public administration, with an emphasis
on socialism and nationalization of key industries.
◦ Bhutto's policies led to an expansion of the public sector, increased government control over economic
activities, and the establishment of various public corporations.
◦ Military Rule and Bureaucratic Control (1977-1988)
◦ The military coup in 1977 brought General Muhammad Zia-ul-Haq to power. This era witnessed a
further concentration of power in the hands of the military and bureaucratic elites.
◦ Zia-ul-Haq pursued Islamization policies, which also had implications for public administration,
including changes in legal and judicial structures.
◦ Return to Democratic Rule (1988 onwards)
◦ The 1988 elections marked the return to civilian rule. Subsequent democratic governments focused on
administrative reforms, decentralization, and strengthening local governance.
◦ The 18th Amendment to the Constitution in 2010 brought significant changes, devolving more powers to
the provinces and enhancing autonomy.
◦ Contemporary Period (2000s onwards)
◦ The early 2000s saw a focus on economic reforms, privatization, and attempts to improve governance
and transparency.
◦ Efforts were made to strengthen institutions, enhance the role of local governments, and address issues of
corruption and inefficiency in public administration.