Fifth Phase 1971 on-wards

In this period Public Administration registered great progress and enriched vision.

1.       Focus on the dynamics of administration.

2.       It is considered as inter-disciplinary.

3.       Talk of New Public Administration

4.       New trends emerged – in the subject of Public Administration i.e.

a)      Comparative Administration

b)      Development Administration

c)      Market orientation - State and Market

1.       Focus on the dynamics of administration -

It is focusing its attention on the dynamics of administration. It is also drawing heavily on the management sciences.

2.       It is considered as inter-disciplinary- Public Administration has attracted within its fold scholars from various disciplines and thus is becoming inter-disciplinary in its nature.

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Phase IV - 1948 to 1970

Owing to the challenge posed by the behaviorist, the discipline of Public Administration passed through the crisis of identity in the fourth phase.

Because pre 1947 viewpoint upheld the politics – administration dichotomy and the post 1947 view point advocated their fusion.

Pfeiffer stated that politics and administration are so intermingled and confused that a clear distinction is difficult.

Kingsley saw Administration as a branch of Politics.

Paul Apple-by upheld the fusion view, He said at higher levels administration is more generalized, takes on a greater political character and has a total governmental significance. At lower levels, it is less political and more particularization.

Waldo in his Administrative State (1948) Widened the orientation of Public Administration to include policy issues and decision - making processes.

On the other hand, many political scientists began to argue that the true objective of Public Administration was “intellectualized understanding” of the executive. There was also a talk of continued ‘dominion of political science over Public Administration.’

In Short, this period witnessed the spectacle of Political – Science not only letting Public Administration separate itself from it, but also not fostering and encouraging its growth and development within its own field.

Therefore, in the post world war II period, the credentials of Public Administration to being a science and a distinct discipline and apart from political, - Science were questioned. This led to the twin development of Public Administration being viewed as political science an also as an Administration science.

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Phase III - 1938-1947 :-

This period brought new changes in the nature of Public Administration

1.       Some thinkers refuted politics administration dichotomy.

2.       They challenged the claim of Public Administration as a science.

3.       Emphasized the environmental effects on administrative behavior.

While Public Administration Was taking shape as an independent discipline, C. I. Barnard, Simon, Robat Dahl challenged the claim of Public Administration as a science of administration. These thinkers disagree with the stand taken by Gullick. Simon, in 1947 published his book “Administrative Behavior”. In that he said there is no such thing as principles of administration; what are paraded as ‘Principles’ are in truth no better than proverbs. There is lack of scientific validity and universal relevancy in Public Administration.

Robert Dahl emphasizes the need to take into account normative considerations, human behavior and sociological factors while defining the parameters of public administration. He brought behaviorism in Public Administration. He emphasized the environmental effects on administrative behavior.

Conclusion - 

Hence this period is called as era of challenge to Public Administration.

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Phase II - 1927-1937 :

In the changing nature of public Administration this period can be called as principles of Administration and established the discipline of Public Administration as an independent science.

In 1927, W.F. Willough has written a book “Principles of Public Administration.” The title of the book indicates the new thrust in thinking and established the subject as an independent science.

This period witnessed publication of a number of important works on this subject. The more important among them are -

1.       Mary Parker Folleft’s “Creative Experience”

2.       Henri Fayol’s “Industrial and General Management.”

3.       Mooney’s “Principles of Organization”.

4.       Luther Gulick “Science of Administration.”

Gulick explained the principles of administration. These are seven principles known as POSDCORB.

Conclusion –

Thus in this period subject acquired -

1.       The Status of separate subject of social science

2.       Secondly. It was considered, as the science of administration.

3.       Developed the principles of administration and theories. These theories and principles were in great demand both in government and business.

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CHANGING NATURE OF PUBLIC ADMINISTRATION Phase I - 1887-1926

INTRODUCTION

Public Administration as an activity as old as human civilization. But as a social science theorization on public administration is very recent. In 1887, Woodrow Wilson has written the book on “The Study of Public Administration”, and laid the foundation of the science of Public Administration. After that it had underwent rapid transformation in its scope, nature and role. Avasthi and Maheshwari have divided the evolution of Public Administration into the following five phases.

Changing nature:-

It is divided into five phases.

Phase I - 1887-1926:-

About the changing nature of Public Administration, in this phase following changes came out -

1)      Separation of Public Administration from political science

2)      Public Administration is the visible side of Government.

3)      Prof. Woodrow Wilson has given definition, nature, role and importance of Public Administration.

4)      L. D. White has written the first textbook on the subject i.e. ‘Introduction to the study of Public Administration.’

Prof. Woodrow Wilson is called the ‘Father of Public Administration’ because the genesis of the subject can be traced back to Wilson’s book “The study of Public Administration” published in 1887. In this book he made a distraction between political - Science and Public Administration. Before this, it was treated as a branch of political science. Secondly, while commenting on the role of Public Administration, he said Administration is the most obvious part of government. It is government in action and the most visible side of the government. Hence, he defined “Public Administration as detailed and systematic application of law. It consists of all those operations having for their purpose the enforcement of public policy as declared by authority.” He argued for a science of administration “Which shall seek to straighten the paths of government.” Thus,

Wilson had projected the dichotomy view, which was picked up by other writers.

In 1900, Frank J. Goodnow published his book “Politics and Administration”. In his book he developed the wilsonian theme. He argued that “Politics and administration were two distinct functions of a government.” According to him politics formulate the policies and administration executes these policies. Thus, Goodnow made a technical distinction between politics and administration.

In 1926, L. D. While published the first text-book on the subject. This book reflects the theme of dichotomy between politics and administration. He emphasized that politics and administration are to be kept separate. He also visualized involvement of administration in policy matters and through policy with politics.

Conclusion -

It may be seen that the dominant feature of the first period was a passionate belief in politics - administration dichotomy.

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Role and Importance of Public Adminstration -

In today's modern state and in developing countries functions and role of Public Administration is very important. The role and importance of Public Administration are as follows.

1.  It is the basis of government.
2.  It is the instrument of change in the society.
3.  It plays vital role in the life of the people.
4.  It is an instrument for executing laws, policies, programmes of the state.
5.  It is a stabilizing force in the society as it provides continuity.
6.  It is instrument of national integration in the developing countries which are facing class-wars.

1.       It is the basis of Government –

It is possible for a state to exist without a legislature or judiciary; but not even the most backward state can do without administrative machinery. The modern state cannot confine its field of activities to merely maintenance of law and order, dispensation of Justice, collection of revenue and taxes and participation in welfare activities. The modern welfare state is expected to provide more and more services and amenities to the people. Public Administration is the machinery used by the state to place itself in a position to make plans and programmes that can be carried out.

2.       It is the instrument of change in the society –

Public Administration is regarded as an instrument of change and is expected to accelerate the process of development. In our country, the government has undertaken the task of leveling down the economic inequalities, spreading education among all abolishing untouchability securing equality of status, rights of women and effective and all round economic and industrial development. The burden of carrying out these social changes in a planned and orderly way rests upon the Public Administration of the country. The success of Indian democracy will depend not only on the wisdom of the legislature but more on the capability and sense of purpose on the part of the Administration.

3.       It plays vital role in the life of the people –

Today every aspect of human life comes within the range of Public Administration. Various departments of government such as education, social welfare, food, agriculture, health, sanitation, transport, communication etc. are run by the department of Public Administration. Thus Public Administration is rendering various types of services to the people from birth to death of an individual.

4.       It is a stabilizing force in the society as it provides continuity

Public Administration is carried on by the civil servants who are the permanent executives. Political executives i.e. ministers may come and go systems of government or constitutions may undergo change but administration goes on forever. Hence, Public Administration is a great stabilizing force in society. It is a preserver of the society and its culture.

5.       It is instrument of national integration in the developing countries which are facing class-wars –

Conclusion -

The success of government is dependent on the ability of public administration. The future of civilized government rests upon the ability, to develop a service and philosophy and a practice of administration competent to discharge the Public functions of civilized society. 

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SCOPE OF PUBLIC ADMINISTRATION

SCOPE OF PUBLIC ADMINISTRATION

Introduction:-

The views of L.D. White and traditionalist on the one hand and those of Gullick and the scientific management school on the other hand differ regarding the nature and scope of Public Administration. Hence, we should understand various perspectives about the scope of Public Administration.

Scope:-

Following are the three important perspectives about the scope of Public Administration.

1.      Narrow perspective or posdcord perspective.

2.      Broad perspective or subject matter view.

3.      Prevailing view.

1.      Narrow perspective or posdcord perspective -

Luther Gullick is the main exponent of this perspective. According to him the scope of public administration is narrow or limited. It is also regarded as posdcord view. It insist that the Public

Administration is concerned only with those aspects of administration which are related with the executive branch and its seven types of administrative functions.

These seven types of functions which shows the scope of Public Administration are as follows -

1.      ‘P’ stands for planning

2.      ‘O’ stands for organization

3.      ‘S’ stands for staffing.

4.      ‘D’ stands for Directing.

5.      ‘Co.’ stands for Co-ordination.

6.      ‘R’ stands for Reporting

7.      ‘B’ stands for Budgeting

1. ‘P’ stands for Planning -

Planning is the first step of Public Administration. i.e. working out the broad outline of the things that need to be done.

2. ‘O’ stands for organization -

It means establishment of the formal structure of authority through which the work is sub-divided, arranged and co-ordinates for the defined objective.

3. ‘S’ stands for staffing -

It means the recruitment and training of the staff and maintenance of favorable conditions of work for the staff.

4. ‘D’ stands for Directing -

It means the continuous task of making decisions and embodying them in specific and general orders and instructions, and thus guiding the enterprise.

5. ‘Co’ stands for Co-ordination -

It means interrelating the various parts of organization such as branches, divisions, sections of the work and elimination of overlapping.

6. ‘R’ stands for Reporting -

It means informing the authority to whom the executive is responsible as to what is going on.

7. ‘B’ stands for Budgeting -

It means accounting, fiscal planning and control.

Evaluation -

POSDCORB Perspective about the Scope of Public Administration is limited and narrow. It stressed on the tools of Public Administration. It does not show the substance of administration. It is a technique oriented perspective, not a subject oriented.

2.      Broad perspective or subject - oriented perspective:-

Prof. Woodrow Wilson and L D White are main exponent of this perspective. They have taken a very broad approach about the scope of Public Administration.

According to them 

(A) Public Administration covers all three branches of the government. Legislative, Executive and Judicial and their interrelationship. Legislative organ makes the laws, Executive organ of the government implements the laws. And Judicial organ of the government interprets the laws. There is interrelationship between these three organs.

B) Scope of Public Administration is like a cooperative group. It consists of all from class one officer to class four employees.

C) Public Administration is a part of the political process. It has an important role in the formulation of public policy at all levels, from national to grassroots. It is closely associated with numerous private groups and individuals in providing services to the community. It has been influenced in recent years by the human relations approach.

3.      Prevailing view:-

Prevailing view divides the scope of Public Administration into two parts.-

1.      Administrative theory

2.      Applied administration

1)      Administrative theory -

It includes the following aspects.

a)      Organizational Theory -

The Structure, organization, functions and methods of all types of public authority engaged in administration, whether national, regional or local and executive.

b) Behavior -

The functions of administrative authorities and the various methods appropriate to different types of functions. The various forms of control of administration.

c) Public Personal Administration -

The problems concerning personnel e.g. recruitment, training, promotion, retirement etc. and the problems relating to planning, research, information and public relation services.

2)      Applied administration -

It includes the following aspects:-

a)      Political functions -

It includes the executive - legislative relationship, administrative activities of the cabinet, the minister and permanent official relationship.

b) Legislative function -

It includes delegated legislation and the preparatory work done by the officials in connection with the drawing up of bills.

c) Financial functions -

It includes total financial administration from the preparation of the budget to its execution, accounting and audit etc.

d) Defense - Functions relating to military administration.

e) Educational function - It includes functions relating to educational administration.

f) Social welfare administration -

It includes the activities of the departments concerned with food; housing, social security and development activities.

g) Economic Administration -

It is concerned with the production and encouragement of industries and agriculture.

h) Foreign administration -

It includes the conduct of foreign affairs, diplomacy, international cooperation etc.

i)        Local administration –

It concern with the activities of the local self-governing institutions.

Conclusion:-

The modern state cannot confine its field of activities to only maintenance of law and order, dispensation of justice, collection of revenue and taxes. The modern state is expected to provide more and more services and amenities to the people. This results in tremendous growth both in the governmental responsibilities as well as in the administrative machinery of the state. Naturally the scope of public administration is increased.

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AN INTRODUCTION TO PUBLIC ADMINISTRATION

INTRODUCTION

Public Administration as independent Subject of a social science has recent origin. Traditionally Public Administration was considered as a part of political science. But in Modern age the nature of state-underwent change and it became from police stale to social service state. As a consequence, the Public Administration, irrespective of the nature of the political system, has become the dominant factor of life. The modern political system is essentially ‘bureaucratic’ and characterized by the rule of officials. Hence modern democracy has been described as ‘executive democracy’ or ‘bureaucratic democracy’. The administrative branch, described as civil service or bureaucracy is the most significant component of governmental machinery of the state.

Meaning of Public Administration

Administer is an English word, which is originated from the Latin word ‘ad’ and ‘minister’. It means to serve or to manage. Administration means management of affairs, public or private.

Various definitions of Public Administration are as follows-

Prof. Woodrow Wilson, the pioneer of the social science of Public Administration says in his book ‘The study of Public Administration’, published in 1887 “Public Administration is a detailed and systematic application of law.”

According to L. D. White “Public Administration consists of all those operations having for their purpose the fulfillment of public policy as declared by authority.” Both above definitions are done from traditional viewpoint and related only to the functions and actions of Administration.

Following thinkers have taken a broad view while defining Public Administration

According to Simon –

 “By Public Administration is meant the activities of the executive branches of the national, state, & local governments.”

According to Willough –

 “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.”

According to 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.”

According to 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. 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 programs are carried to success.”

Conclusion:-

All above modern definitions of Public Administration emphasize the value based character of Public Administration and Public Administration as a science and art of administration. A close scrutiny of the definitions reveals that Public Administration has following important characteristics or features.

Important characteristics of Public Administration

1.  It is part of executive branch of government.
2.  It is related with the activities of the state.
3.  It carries out the public policies.
4.  It realizes the aspirations of the people as formulated and expressed in the laws.
5.  Waldo and other thinkers insist on the commitment and dedication to the well being of the people. Otherwise Public Administration behaves in a mechanical, impersonal and inhuman way.
6. Public Administration is politically neutral. 

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