from two words have their own an aspect of the ‘The word public administration is made i.e public and administration, both of the significant mean larger field of administ Administration The English word admi combination of two latin words, means to serve, to direct, to control, and to manage affairs. In its Iiteral sense administration simply means management of affairs-public or business affairs The concept of administration is defined by various ‘writers inthe following ways: = EN. Gladden; "Administration is a long and slightly pompous word, but it has a humble meaning. For it means to care for or look after people, to manage affairs is determined action taken in pursuit of a conscious purpos: Herbert A. Simon: "In its broadest sense, administration can © ter is derived from a ‘ad" + "ministrare” which Administration has to do with getting the accomplishment of defined et oe as A >governmental ut Public The word "pu 4 variety of meanings, but ie admi administration wis the action part of the governm esa goals of the ration consi running at of doing work of in X-ray mat e work of efforts of the people y can work together to accomplish t ir set n offered by F.A. Nigro and L.G. Nigro is known as the example of the modem comprehensive view of ‘According othe Nigros, "Public Administration’ # is co-ope group effort in a public setting,groups and rvices to the community.” ions of the Public Administration has been managerial view gives Simon, Smithburg and supporters of this view. Thomson are other important wider sen the three branches of the government, ic. the legislature, executive and ji activities of only the execut iary, and the narrow sense includes the fe branch of the government. IB_Nature of Public Administration ‘Administration is the use of m: theories and processes to ful There are two broad view regarding the nature of Public, ‘Administration. They are; View: segments Looking at various de! scribed to this view. en, depends upon Admini heterogeneous mass jonw The many v. tration make responsi While dealing with the scope of Public Administration exeeullve® keeping. one: there are two important views regarding the scope of Public aa -hsasbeem ey a records, research and inspection. 1) POSDCORB view and ememmnhe planning, aecou ae 2, The Subject Matter View 1. The POSDCORB view ick advocate this view of scope of Public ion consisted of st the POSTCORB POSDCORB the summed up in the acror Seven element ter of which implies one element of "POSDCO! administration Luther Gulick explain in the following ways: P- Planning: That is working out in broad outline the Ul need to be done and the methods for doing them to accoi the purpose set for the enterprise. a s nature of the fun the fact that different administrative agencies hese seven elements of administration In contrast to the "POSDCORB" ie services rendered and the fi ye agency. lays emphasis on th performed by an adminis ie ee =bib ied” | clement involved in. ledge of the subject matter the essemt ‘matter with which it is concerned. Administration should study substa administration, not only the t However, The POSDCORB view and subject matter view ly exclusive, but complement each other. They together constitute the proper scope of the study of public administration. Thus Lewis Mc rightly saids, "Public POSDCORB. the other blade is knowledge h these technique are applied. Both to make an effective tool.” (M. Laxmikant, 200 Scope of Public Administrative as a disci Public administration as a discipline consists of following branches: i. Organiz theory and behaviour: It deals with the formal structure, internal functioning and performance of i external environment and the behaviour of groups and individuals with in them, Public personnel administra training, pay scales, promotion, employee relations ete. The efficiency of administration depends on the efficiency of the persons employed. be as le Man Sinee every ey, the volume of available to government and its pro Tt concerns administration of development plans and programmes undertaken by the developing important aspect of development admi ‘outputs. (SP Naidu, 2014) There are five According to Ordway Tead Scope of ‘Administration which are as follows: ‘a, Production b. Assuring Public Usze ¢ Finaneer and Account d. Personnel . Co-ordination In "The Nature of the Adm McG: .9) of Jasse B. Sears, Seope of ‘Administration is give in following Six poi Loe 91g about the mechanism. According to RF, Campbell 1, Acquiring of a feeling of being at home in one"s cutie 2. Leaming about one"s culture. 3. Contributing to one’s culture. admi tration is an evolving applied soy in the process of evolution, Public Administration is “Centrally concerned with te organization of government pi the behaviour of officials (usu ind programmes ly non elect responsible for their conduct. Many unelected public servass. 3. can be considered to be public administrators, including head city, country, regional, state and federal departments such a municipal budget directors, Human Resources (HR) administrators, city managers, census managers, state mettl Scope y administration organization provides scale of operations. Public consumers with an tual product, produced using is, and services produced using mediating technology in atch or “mass scales. Some specific features of public administration are stressed as follows. L Change and Responsiven bring abouit certain internal as well as external chan; that public administration could be made more rele environment. For th bbe more flexible and adaptabl Structural change im Ad admi hierarchical structures in admis Client Centriei administrator should be judged view of government, but from administrative actions did not improve ive not with stan they may have |‘ensure the growth Some other features of public 2 1. Monopotistie approach no competition to gover. service provider. dministration are; 1. - rule of law is the basis of eg, Consistency of treatment government policy anonymity - expected 10 work bebind the curains ji, bureauerats) ity - bureaucrats have indirect aecount public and dire public responsibility - responsible to public (bureaucray 5 6. Public information - Right to Information Act. ion. 7. Large scale organi According to Gerald E. Caiden, (The Dynamics of Pubic tration 1971) the Features or peculi a. Unavoidable b. Legal monopoly of coercive forces c. Priority activities. 4. The largest single multi purpose organization, e. Political directions. f Unmeasurable purposes, Higher expectations. ci Aas a Multi Managerial public administration have emphasized others, nothing the importance of sovereignty const regulation in public administration have viewed. Each of these approaches (ends to stress different values and procedural and structural arrangements for the operation of public istration. Each views the citizen in a remarkably different way and each adopts a different perspective on how to develop knowledge. The Managerial approach to public administration > Those who defines pub take a business like approach to view public administration is essi bbusiness and ought to be run accordi principles and values. Managerial approach have bvo subsets. They are (a) Traditional management and (b) a contemporary reform oriented New Public Management (NPM). = 132 en ee eeapproach — to ments were to be made on the basis partnership. Many 5 were rejected as the basis for hi public administrators, the reformer believed that the selection and tenure of public servant could be based on their efficiency and performance. approach depended on the existence of a dichotomy between politics and admis Wood Row Wilson, was a strong supporter of reforms, Wilson Wrote “Administration fi sphere of structure univer the contempory reader as odd, b iment of a given set of tasks. Spe teauires coordination, and bureaucracy relies on hierarchy for this purpose Bureaucratic organizations which spell out the are also organized along functions and " principle and are organized jon of employees is based on their on their merit, rational scheme. The sel ity to perform the tasks at hand, The managerial approach to public administ traditional approach rarely considers members of the be customers. One need not go so far as Max Weber (1864 — 1920), the foremost analyst of bureaucracy, in considering "dehumanization" to be the "spec view the bureaucrat as a “cog” in an organizational machine over which he or she has virtually no control. This perspective as promoted by the scientific management movement and the traditional managerial approach, which tend to tum the freue” of bureaucracy or tohave no bearing on no bearing on the classi administration, which views structure rather than human terms, dit jidual employee to the organization. itive Approach ‘The traditional managerial approach emphasize a ‘method in developing knowledge. The Kemel of the idea that Public Administration could be a science was ined in Woodfow Wilson"s 1887 essay. By 1926, Leanard White noted that publ istration was being transformed from an art into a science, And in 1937 Luther Gulick and L. Unvick could publish most influentially, "paper on the seience of Administration.” admi In practice, treating public administration as a science has promoted an effort to develop generalizations about administrative behaviour. This involves the formulation of hypothesis that can be tested em tional managerial approach’ mney, economy, eff to favour rational bud: “16 proach to public ates. The new jon began to take hold in the United Jn is reform oriented and seeks to improve public sector from the premise that traditional performance. It sta ‘pureaucratically organized “proken” and consequent government. After years of an “pureaucrat bashing” and neg: admini wasteful Fortunately for the new managerial reformers, some models for improvement were already av he English speaking world abroad, Newzcaland, Australia, and the United Kindgom has been undertaking drastic administrative reforms. ‘As Usborne and Gabler reported several cities and states USA has successfull same. Taken as a whole, these reforms, embrace the following premises ee ee ee =eorganizations. A corollary of making public admi ike is to make it customer driven. The pt nts are viewed as customers to whom the government should be responsive. Agencies should use their resources to create valued services for customers Jn more market and agency Government may reply appropriately on third parties such as other governments not for profit organizations and ration to deliver their services, implement their es and enforce some of their r. should be Government Traditional deregulated. procurement and allocation of agency resources is inappropriate to results oriented public administration. ‘An extension of deregulation is that employees should be ‘empowered to use their jobs. Empowerment is not only possible, it is highly desirable because today's public sector workers are well educated and because computerization makes a great deal more info available to them, Empowerment, as opposed t0 hi promotes team work. flexible, innovative, problem solving, entrepreneut act as service ey organization, become ub units becomes more Monomous. Employees empowerment also disminishes he sel for hierarchy because it makes command and conto) inappropriate, The boundaries between Jess distinet as administers ind as contr ‘management and their environments becom responsiveness to customer’s needs at require them to devote more attention to nezo monitoring private service providers Cognitive Approach The NPM is largely driven by theory, but mining what works and what does not. It choice approach to public as superior to public can be developing technical ways. Hard measures such as the 0: often be used to sce whether changes in admi operations are associated with such things as decl teenage pregnancy, infant mortality and dropout rates. Even where it is not possible to use quantitative indicators of performance, surveys can be used to determine levels of -gon Bench makers can -19-employees. NPM decision mah _aThe Political Approach to Public Administration The political Approach «the value public administration was stated by Wallace say te: Apple New Deal (1933 ~ accountability are viewed ascenter of government, groups to counteract each ot representation to a comprehensive variety of the organized political, economic and social groups that are found in a society at large. ‘Overlapping missions and programs the administrative. Structure comes to resemble a ps platform, Agency become adversary of agen\ resolution of conflict is shifted to the wares, the fe, interagency committees, and the cours This approach to administrative organization has been wid denounced as making governm but it persists because adminis ‘viewed as a political question heavily emphasizing political values. Cognitive Approach ical approach view science as an appropriate way factual knowledge. It often bases decisions on the ions, g is a contest among a Pi he political perspec! competing administration views budge doctuments. Allocation are the political system rank competing values, not neces: hhow the money will be used most effectively or best ‘customer demand. pressure on public administrators are significant constraints on decision making, The desirability of a decision tends to be The legal Approach to Public Administration {The legal Approach to Public Acres 000 te This approach is derived prima sources, a. Administrative law: It can be defined as the body of law 1s that control generic administrative processes. It consists of st executive orders; the 2 23 5 ertur ned to safeguard individuals rights in an adjudieatory formate by hearing inistrative law judge. Agencies began © courts, and consequently I play a greater role in their act contemporary legal approach to. publ since the 1950's the wide array of new co expansion in the afford consttut ike hearings, to governmental ie process. Such as trial ‘duals whose through adr including. prob Fight to treatmer public mental he \ces where governmental are being, ‘¢ Approach ‘The legal approach fa developing knowledge. Facts are intentions, oF han as subjes egal approach is worry aboutBudgeting: The legal approach to bud ordered public school desegregation. Decision Making incremental. The it of the applicable ions. Decisions are ‘concepts and language of 1g in future cases. Relation of Public Administration with other discipline is in administrative situation, has be called as “social science”. But the question relation to the other social science, upon as autonomous, sciences. But accordin, science of public administrative scie S deals with government i government is action, The two, there shade, both imperceptibly shading off into each ot But in the carly stages of it's developmen public administration was sought to be drawn Political science by the writes. prof. Wi "Although politics set the tasks for ad bbe suffered to manipulate it’s office. The is a field of business. It is removed from hurry and strife of politics it; it at most points, stands apart even from the debatable round of constitutional study”. According to them concern with factual question. They differentia Political science and public Administration on the ground that while the politicians was mainly concemed with the exercise of Political power, namely how to win power keeping and hhis opponent from it, the administrator exercises only power as is granted or assigned to him by virtue of his position in the administration. And his task is to use that power ni the shake of power but for the rendering of certain se In recent time, the present writers are now emphasizing the close. relation between political science and publ administration. In the words of John M Gaus."A. theory public administration mean in our times a theory of politics to.." Legislation is one phase where as administration is another. But aeprincess and adventurous dynasti analysing the origin and growth of administrative agencies and departments, wever, No clear cut 's ends and However, of I {i the top level, have themselves to the historical study of ‘experimental and to do wi strators, particularly a administration have been reach and have been themselves contribu ature but would also et ors. The proper maintenance and science of public adh administrators. administ social actions, ad a. jon and Jaw which they were solved, are of valuable interest to the present Bear day administrators. framework of the law of the land. And intimately connected with the study of law. Over -28- 29becomes in of public law’ knowledge of the laws of the country. Admi the making of law. Civil servants have to draw bil they need acquire sufficient technical knowledge of “jurisprudence and law making." with a view of to bui ty, public administration is being welfare activities which are having a far reaching effect upon the liberty and welfare of the ini jens, The law which is needed to regulate these new relationship has much to depend upon the accumulated experience of public adr Thus, in a way law has become an off shoot of public administration. 4. Public Administration and Economies The study of publ with that of econo Administration has everyday to deal administration has much in common This is so because Public ‘manufacturer, producer, distributor and server in different business and social welfare fields. ‘The present day administrator, there are cannot do without having a comprehensive knowledge of Economics. Every ped into a separate study called vation. Most of the 1 forms. and principles, personnel management ds have been borrowed borrowed by public admini The increasing pre occupation of the government with industrial and business matters has led to the creation of the economic civil service and the management pool and methods of recruitment, conditions of service, tenure and promotion of these services are different from those of the tradi prevailing in private administration. Thus public adm is deeply indebted to the science and practice of economics. 5. Public Administration and Sociology Sociology studies society in its fundamental forms and social action. Therefore the two are very closely related to each other. Public administrations borrow useful hypothesis over the working and inter action of social groups from sociology. Max Weber's "Essay on Bureaucracy" was the first systematic contribution of a sociologist to the field of public —30- ae — a SSAccording to school of problems are viewed in their environmental sett help of opinions surveys and sampling and other of opinions surveys and sampling and other research valuable data has been lected and analyzed to study the adaptive response of people ng under given conditions. Thus, coll to administrative operation sociology has given public administration a used judiciously, may broaden the horizons of public new perspective which, istration a great deal. 6. Public Administration and Psychology ie admini inistration did not other than legal or ture of public al interest. The knowledge ‘The earlier writers in the field of pul not recognize any perspective of adi recognize any perspective of administ ional. And, therefore, the early istration is devoid of any psycholo} ical approach has opened up new vistas of dministration. Administration has been discovered to in which the informal relationships psychologi to public a be essentially a human affai ‘are much more important than the formal. It is wuld work in one way if there is good 1g and sympathy between the head and the pointed out an organization wo mutual understandin: sub ordinates. ‘Apaet from the formal hierarchy, there are many informal groups of the employees in an organizations And thes groups. produce a far greater influence upon the “ideas and Bttmudes of the workers than the official commands and circulars. eee SS a2 Amangement for a staff counseling, mutual consolation machinery and other management Employees co operation devices have been based on the basis of psychological study of public administration, Likewise, psychology has development study of taining techniques 2° Pret as public relation and publicity system of governments. 7. Public Administration and Geography was Montesquieu who has pointed out as early as the Jnteenth century thatthe form of government in a country #5 Targely determined by is geographical, features The habitat of the people as a deep effet upon their way of life and hence, on their social institutions and problems. Physical feature, ike Mountains, desers, rivers, valley ee. often determine the srovndares of administrative areas. The size ofthe county 2nd the nature of it’s land surface make the intemal communicadons ey or dficat and they in tum, detemine whether OF £25) eration woud be centralized or decentralized: John M Gaus was first to emphasize the geographic anh oRefleions on Public Administrations” published 1087, Dahl also stressed the need of studying admin se savoceencan wing The to, OS relate is cata fats to adinisation was no ver) POST But gradually as rea. studies, increased and sufficient data got co efforts to trace specifi‘and Fayol are of the views that admini basic principles are applicable or private. though the activities performed by government agencies are defined os public administration, there are many pri agencies which also perform tasks which are strictly pul service or welfare oriented, Conver re are many tasks performed by the government bureaucracy which may be of a private nature. Secondly, methods and work procedures may be common jon, government has been draw business knowledge and experise of private admi trun there enterprise. In many countries there is a interaction between the public and private sectors. iments have often been ion in the government, Candidates from private estal recruited to senior administrative posi lowever there denied that there st the two. According differentiate publ 8) Uniformity, down broad policy has to im hy parliament, 2. Profit M Admit or Marginal Return; Public aservices of the government often run ata loss, y duty bond to spend on them. jon caters to social needs and publ ways to facil post and telegraph network fac ite movement of goods and passengers; the ite communication, to provide medical aid ple. The scope of private ied wi providing marketable consumer goods to public, catering to the economic needs of citizens. Besides, the natures of some of the government services is so wide comprehensive and expensive that no private ‘administration can undertake them, e.g. maintaining a vast network of police, army, railways/roadways or post and telegraph ie Responsibility: The public administrations are trained and duty bond to respect the wishes of the public and cater to their needs. In the words of Apple by ent administration I other epresentatives through the legislature. In Private administration finances are not controlled. by outside ageney. 6. Conformity to laws and Regulations: The public administrators cannot do anything contrary Advantages of the study of Public Administration The study of public administration both as a field of activity and as a discipline has certain ‘dvantages. Woodrow Wilson believed that the central purpose of administrative study was to discover and est executive practice in goverment. The study of public admit learn the basic concepts and theories of ion, a) public admini f the importance of people, of government and its b) promotes an awareness administrative activities in the ©) Promotes a superior under ship with the socie it governs. 3h) educates people for i interest in them to take part in publ P. Naidu, 2014) gaa CHAPTER -2 EVOLUTION OF THE STUDY OF PUBLIC ADMINISTRATION @_Evolution of the study of Public Administration The term "Public Administration” stands for two order. Second, sociology political science, economics, philosophy and so on. Public administration as governmental activity is as old as political society and as a field of academic study public functioning of government. In the cig! jermany and Austria showed interest undertook systematic research on the topics related to public administration. The objective of their study and research was to train candidates y emphasized the descriptive st and procedures and professional ra Towards the last half of meaning and scope of public admin! iy in the USA, the tion was defined for theRumki Basu, the the 20" century. i) The Scientific management movement advocated by F.W, Taylor. The 19" century industrialization which gave rise to large- ions. scale organi 2) The emergence of the concept of welfare state replacing the police state (laissez-faire). ‘The movement for governmental reform due to negative iv) consequences of "spoils system". ‘Stages in the Evolution Public administration has developed as an academic discipline through a succession of a number of overlapping paradigm which are as follows: stage I: Politics - Administration Dichotomy (1887-1926) Stage Il: Principles of Administration (1927-1937) 938 - 1947) I: Era of challenges ~40- independent ion. Hence, Wilson is Wilson believed that of polities. from the paws of pol ans. In his words "chat ide the proper sphere of offic ines. He observed, “The js removed from the fe ony as the methods "house are a part of the life of society; only as @ is part of the manufactured product. jieved that that admi ‘Thus, he said that, Thus he bel Jon is the latest fruit of that study of the was begun some twenty two hundred years f our own country, almost aving now, What we never had be talled for a separate study of of cour is a birth of generation. We are bs science of adi public administration. His basi argumentjore business like ess mi pedago: such as Wilson (1887), Goodnow (1900) (1900) jg yy developm ie public administration. He made a sharp cones study of was the first public administration was. pul testbook on public adminis picked up academic i ws nwo fur ms of government, the gabjec 5 simian He of polities universities began to offer courses of instruction in put ies has to do with p administration. do with the execution of ction was provided by the of Public Administration in 1927. He also argues @serted that administration there are certain fundamental principles of general application analogot and separate dis regarded as the "Father characterizing any sciences, of American Public Admi Henry observed that the postulates advanced by Goodnow and his academic prog ‘were naive at best LD. Money and A.C. Rei Organization” (1939) and Luther papers on the sciences of Admi tempt to discover a In the beginning of 20" century, The poli ‘administration dichotomy emerged as a conceptual orientation and received the first serious attention of scholars. The =concerned witl earn big. Also indu industries led to ne unforeseen and therefore di Taylor and Henri Fayol stepped in and generated thei p They were successful sin management that Were when F.W. | principles Henri Fayol advocated for adopting engineering based scientific methods in the field of industrial work process in order to inerease efficiency and economy. These schools of thought are grouped under the classical theory of administration, Max Weber was the important classical theorist who conceptual framework of bureaucracy deserves special mention as brovght about a paradigm shift in th administration, He was the first to provide the solid theoretical base. He viewed bureaueracy as a pased’ central system that regulated the organization" structure and process accordingly to technical knowledge and maximum ffficiency. He was concerned about the evolution of modem aspects of public admini thought apart from being called the classical schoo! of thou: ‘also known as the mechanical theory of organization! ‘administration. The seven prin’ stration and workers was challenged nged. The human s theory brought about a para admi emphasize the structural aspects of organi: Human Relation School led by Elton Mayo importance of human factor and human relations in principles approach to organizational analysis by demonstrating the role of informal organizations in determining organizational efficiency. These studies give rise to "human relations" theory ation. The main focus of this approach was to study These studies groups in organization and the importance of group behavior to management. In other words, the work in organization gets affected by the attitudes, feelings, sentiments, and social ns of the workers. The Human Relations School led to the discovery of the effect of the informal organization on the formal structure The scholars of this theory identified variables ike informal organization, leadership, morale and motivation forvwriters had which challenged the classical public ad them were: a) Cd, Bamard: The functions of Executive (1958) coverbs of Administration (1946) {ministration. Sor b) Herbert A. Simon: The pr ¢) Herbert A. Simon : Administrative Behaviour (1947) d) Robert Dahl: The Science of Public Administration ‘Three Problems (1947) ©) Dwight waldo : The Administrative Herbert A. Simon was the mo: 's of administration and describes them as "proverbs". Wwocated the "behavioural approach" to public ‘a more scientific discipline. He ing" as the altemative to the if any “theory” is the heart of ‘administration, and that the vocabulary of administrative theory must be derived from the logic and psychology of human choice.” Simon rejected the idea of politics-administration dichotomy and recommended an empirical approach to study of public administration, : Robert - Dahl-another writer aurged that the evolution of science of public administration was hindered by three problems, They were: 2) The frequent impossibility of excluding normative considerations from the problems of public administration. Sele ea —y ‘The study of public adm same clarii stration must be founded on pects of human behavio & science of ps the existing tendency to treat technical terms and to regard te organizations as more or less hhuman beings that con material. ¢) The unscientific nature of principles of administration which are based on a few examples drawn from national and historical settings. Robert Dhal emphasized that public administration ¢ escape the effects of national psychology and social, political and cultural environment in which it develops. He suggested for the cross cultural studies, or comparative studies. Chester Bamard and Edwin Stene were other two remarkable theorists of the Behavioural Schoo! led by above writers Stage IV - Crisis of Identity (1948 - 1970) With the rejection of politics administration dichotomy and principles of administration, public administration suffered from the crisis of identity. consequently scholars of public administration reacted in two ways: i) Some of them returned to the fold of political science (the mother science). However they wer not encouraged by political scientists, John Gaus in his article entitled "Trends in the theory of Public Administration ( developed a thesis that “a theory of public administration means in our time a theory of polities also." Further, "dominion of political science over public administration. —46- a7