NEW PUBLIC ADMINISTRATION

Introduction: -In the evolution of Public Administration one more stage is the emergence of “New Public Administration.” During 1960s it was found that the science of Public Administration displayed unawareness of numerous socio-economic and political problems as well as its inadequacy to offer any solution to the problems.

Emergence

In 1967, American Academy of political and social science organized a conference in Philadelphia. The topic was “The Theory and practice of Public Administration: Scope, objectives and methods.” In this conference participants expressed their views and after discussion following points emerged -

1.      Bureaucracy should be studied structurally as well as functionally.

2.      Definition of the subject is as difficult as de-lineation of its scope.

3.      A hierarchical view of organizational authority needs to be changed; administrators must view workers as “coordinates” rather than ‘subordinates’,

4.      Policy and political considerations are replacing management concerns as the major focus of public Administration.

5.      Future administrators should be trained in professional schools. Public Administration courses should emphasis not only administrative organization and procedures but also in interdisciplinary approach.

6.      Public Administration has not been able to deal with societal problems.

Conclusion of the discussion was - Public Administration should be viewed as an academic discipline, as a field exercise and as administration in the public interest.

In 1968 in Minnow brook conference Dwight Waldo expressed following points about new Public Administration.

1.      What is the proper terrain of Public Administration?

2.      What are the logics of inquiry appropriate to the terrain?

3.      What is the social relevance of knowledge in Public Administration?

In 1971, Frank Marini published a book ‘Towards a new Public Administration’ New Public Administration emphasis on the following themes:-

1.      Rejected the value neutral view

2.      Less generic and more public

3.      Stress on social equity

4.      Anti-bureaucratic, anti-hierarchical, anti-technical.

5.      Socially conscious and client oriented view.

6.      Stress on Decentralization of administrative process.

7.      Stress on qualitative transformation.

1.      Rejected the value neutral view -

The new Public Administration made clear its basic normative concern in administrative studies. It rejected the value neutral view taken by behavioral political science.

2.      Less generic and more public -

New Public Administration stresses on innovation and change. Hence, it takes more public and client oriented view.

3.      Stress on Social equity -

The protagonists of new Public Administration state that the distributive functions and impact of governmental institutions should be Public Administration’s basic concern. The purpose of public action should be the reduction of economic and social disparities and the enhancement of life opportunities for all social groups. They take action-oriented stand and said that Public Administrators should work for the removal of the wrongs of society.

4.      Anti-bureaucratic, anti-theoretic and anti-technical -

To serve the cause of social equity is to actively work for social change. The attack is on the status-quo and against the powerful interest entrenched in permanent institutions.

5.      Take client-oriented and socially conscious view -

In the third - world countries where Public Administration is in dire need of basic, qualitative transformation. New Public Administration displays an intense concern for relevant societal problems.

6.      Stress on Decentralization of Administrative process -

New Public Administration gives importance to Institutional pluralism. Functions, responsibilities should be distributed in many parts.

7.      Stress on qualitative transformation -

It stresses ethics and values. It lays emphasis on change. The study of formal organization, its structure and processes is of secondary importance to the new theorists. According to this new approach the most important need of the times is to be alive to the contemporary issue and problems with a view to finding ways and means for their solution, and to have organizational change to suit the changing times.

Conclusion -Public Administration of the state will become more meaning and useful with these characteristics of new Public Administration.

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Difference between traditional public administration and Development Administration:-

Development Administration -

1. Change - oriented

2. Goal and result oriented

3. Flexible and dynamic

4. Its objectives are complex and multiple

5. Concerned with new tasks.

6. Believes in decentralization

7. Stress on planning

8. Creative and innovative

9. Stress on participation of people

Traditional Public Administration

Status-quo oriented

Emphasis on economy and efficiency

It is hierarchical and rigid.

Its objectives are simple and limited.

5. Concerned with routine operations.

6. Believes in centralization.

7. Does not rely much on planning.

8. It resists organizational change.

9. Stress on directions from authority.

Conclusion:-

Though there is difference in public administration and Development administration, yet both are supplementary to each other. One cannot sustain in the absence of another.

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Hallmarks of Development Administration:-

1.      Change - oriented

2.      Goal - Oriented and result oriented

3.      Citizen participation in the administration

4.      Commitment to development

5.      Integrated and holistic process

6.      It has two sides – one is development programmes and other is its implication

7.      Its scope of Operation is wide.

8.      Stress on planning

9.      Believes in decentralization.

1.      Change - oriented

Development administration is change-oriented. Traditional administration which was oriented towards the maintenance of stability and statuesque. Hence, Pai Panandikar said development Administration means ‘administration of planned change’. The planned development is intended to achieve specific results within the specified time.

2.      Goal-oriented and result-oriented

It is result-oriented. It expects specific results and expresses in most areas clear-cut norms of performance. Consequently, it would also be judged on the basis of results achieved.

3.      Citizen participation -

Development being a process of social and economic change, citizen participation in the task of administration is vital. The public servants must be able to carry the citizens with them and draw them activity into the developmental processes. To basic change in the outlook of the civil servants.

4.      Commitment to development

Development administration requires a firm commitment, a sense of involvement and concern on the part of civil servants, if the goals of development are to be realized.

5.      Integrated and holistic process -

Development administration is inter-related and holistic process of change. It refers to the structure, organization and behavior necessary for the implementation of schemes and programmes of socio-economic change undertaken by the governments of developing nations.”

6.      It has two sides -

Firstly, it refers to the administration of developmental programmes, the methods used by large-scale organizations, especially governments, to implement policies and plans designed to meet developmental goals.

Secondly, Development Administration involves the strengthening of administrative capabilities. These two aspects are intertwined in development administration.

7.      Its scope of operation is wide -

Traditional public administration was limited to its function of maintaining law and order. But the scope of development administration is wider.

8.      Stress on planning -

It is planned change. The administrative capabilities are strengthened to achieve developmental goals.

This objective is linked with planning. The planned development is intended to achieve specific results within the specified time.

9.      Believes in decentralization -

Traditional administration believes in centralization. But Development administration believes in decentralization.

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Meaning and definitions of development administration:

Weidner stated that Development Administration means “an action oriented and goal-oriented administrative systems.” Weidner emphasized that the study of development administration can help to identify the conditions under which a maximum rate of development is sought and obtained. He contended that existing models for comparison were limited in their usefulness because they made inadequate provision for social change. He suggested development administration as a separate focus for research, the end being to relate different administrative roles, practices, organizational arrangements and procedures to the maximizing of development objectives. Pai Panadikar identifies Development Administration with “administration of planned change.”

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DEVELOPMENT ADMINISTRATION

The concept of Development Administration is a development of the post 1945 era. Following reasons are responsible for the emergence of this concept -

Reasons:

1.      Emergence of newly independent developing countries.

2.      Development schemes in the developing countries.

3.      Establishment of comparative administration group in 1960

1.      Emergence of newly independent developing countries:-

The traditional concept of public Administration as ‘law and order machinery or revenue administration underwent transformation with the emergence of the ‘Welfare state’ during the 20th century. Also it was response to the emergence of the ‘Newly Independent states’ in Asia and Africa, These countries have problems of poverty, unemployment, illiteracy, malnutrition etc. In these countries, the government and its administrative machinery are looked upon as agents of change. The necessities have made the administration in developing countries development - oriented.

2.      Development schemes in the developing countries:-

These developments have had a profound impact on the public administration. The concern with administration for development has compelled attempts to formulate a system of thought capable of integrating complex socio-economic and political systems hitherto considered to be outside the area of public administration. Further, most developing countries have realized that national development is essentially an integrated process of change. It is a dynamic process directed towards transforming the entire society, enmeshing its economic, social, political and administrative aspects, for an all-round, balanced change.

3.      Establishment of comparative Administration group in 1960-

D. Waldo, Fred Riggs, Weidner were talk of New Public Administration. These scholars in 1968, in Minnibook conference, attempted to define public Administration anew. They focused on the concept of development administration, in different ecological settings, operates in order to achieve a set of social goals.

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Importance of the study of comparative public administration:-

1.      Provide a scientific basis and help for theory building.

Now it is believed that generalizations relating to administrative structures and behavior emerging out of comparative studies in different nations and cultures can help in formulating theoretical constructs which can provide a scientific basis to the study of public administration

2.      Contributes to a greater understanding-

The study of comparative public administration contributes to a greater understanding of the individual characteristics of administrative system functioning in different nations and cultures.

Besides, Comparative studies also help in explaining factors responsible for cross-national and cross-cultural similarities as well as difference in the administrative system.

3.      Can understand impact of environmental factors on administration -

Through comparative analysis we can find out which important environmental factor help in the promotion of administrative effectiveness and which administrative structures function appropriately and successfully in what type of environmental settings. Accordingly we learn about the administrative practices followed in various nations and then we can try to adopt those practices which can fit in our own nations and systems.

4.      Academic utility -

Scientific and systematic study of public administration is possible with the approach of comparative study. Appropriate administrative reforms and changes can be brought about in different nations.

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COMPARATIVE PUBLIC ADMINISTRATION

New trends:-

COMPARATIVE PUBLIC ADMINISTRATION

Fred Riggs is the father of Comparative Public Administration. In 1962 Fred Riggs in his article “Trends in comparative study of Public Administration,” emphasized on following points:-

a)      Emphasized the need to study politico-administrative institutions in their Social settings. After the Second World War, the study of third world countries became a common subject of almost all social sciences. Scholars of comparative Public Administration analyzed the question of administrative development to direct socio-economic change in cross – cultural contexts.

b)      Hence Comparative Public Administration means cross-cultural and cross national study of Public Administration.

c)      To understand impact of comparative Public Administration is necessary.

d)     Fred Riggs pointed out three trends in the Comparative study of public administration.

1.      From normative to empirical orientation.

2.      From ideographic to homothetic orientation

3.      From non-ecological to ecological orientation

1.      From normative to empirical orientation -

It means emphasis on the scientific methods, with a view to evolve the science of public Administration, Normative study stress on ‘what ought to be’ and Empirical study stress on ‘What is’. In comparative Public Administration we study from ‘what ought to be’’ to ‘What is’.

2.      From ideographic to homothetic orientation-

Ideographic orientation means study of one nation only or Individualistic studies. E.g. concentration on the unique case or case study, the single country, the biography etc.

Homothetic orientation means Universal studies. This approach seeks generalizations, laws hypotheses that assert regularities of behavior, correlation with variables. In comparative public administration, we go from individualistic study to universal study.

3.      From non-ecological to ecological orientation -

The ecological orientation meant the study of the environment of the administrative system and interaction between the two. Administrative system operates within the political system and is also influenced by social and economic forces. Thus the political, social and economic factors constitute the ‘environment’ of the administrative system.

e)      Comparative administrative studies have been conducted on three levels.

1)      Macro studies

It means focus on the comparisons of whole administrative system.

E.g. India and the United States in their ecological contexts. Generally the relationship between an administrative system and its external environment are highlighted in the macro level studies.

2)      Middle Range studies

It means studies are of specific aspects of administrative system.

E.g. a comparison of local government in different countries.

3)      Micro studies

It relates to an analysis of a part of an administrative system.

E.g. the recruitment or training in two or more administrative organizations.

Thus the question of modernization and developmental diversity in different systems are of great importance to the students of comparative public administration.

f)       Ramesh Arora has summed up the elements of comparative public administration as under:-

1)      Cross cultural Comparison

2)      Developmental Dimensions

3)      Ecological perspective

4)      Goal orientation

1)      Cross cultural comparison -

It means broad comparisons among administrative system of western and non-western countries.

2)      Developmental Dimensions -

It means broad comparison of linkage with the question of modernization.

3)      Ecological perspective -

It means comparative study of the interaction between the administrative system and their environment.

4)      Goal orientation -

It means analysis of the unique goals of particular cultures in relation to their administrative system.

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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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