The Key Concepts and Scope of Public Administration

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TOPIC 1:

THE KEY CONCEPTS AND SCOPE OF PUBLIC

ADMINISTRATION [3 LECTURES]

1.1. What is administration?What is administration?What is administration?What is administration? Differently defined by different people, and

different people use it to main different things. At a general level, administration is used to mean

four different thingso Administration as a field of study, particularly

in higher learning that is related to how beaffairs of people are managed to accomplishsocial goals.

oAdministration as a process of managing affairsof groups/public affairs (intended to achieveshared goals)

o As a profession/vacation, a specializedprofession that requires skills related tomanaging affairs of the people to make thingsdone

o As an executive part of the organization, agovernment for instance including the presidentand his ministers. Those who set direction of

public policy in a country.

As a process, administration is as old as the age of manon earth. However, as a field of study and professiondated back to 1887 when Woodrow Wilson elevated it in hisseminal paper, The StuThe StuThe StuThe Study of Administrationdy of Administrationdy of Administrationdy of Administration It thereforedepends on which of the four someone may be referring to.

Individual Scholars have defined administration indifferent ways. Some of the popular definitions are

provided below:

ScholarScholarScholarScholar Definition /Quoted StatementDefinition /Quoted StatementDefinition /Quoted StatementDefinition /Quoted Statement1 Woodrow Wilson

(1887), The StudyofAdministration,

Administration is the most obvious partof government; it is government in action,it is the executive, the operative and themost visible side of the government.

2 John McDonaldPfiffner (1960),

Administration is the organization anddirection of human and material resources


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AdministrativeOrganization

to achieve desired ends.

3 Edgar NormanGladden (1949),An Introductionto PublicAdministration

Administration is a long and slightlypompous word, but it has a humble meaning,for it means to care for or look afterpeople, to manage affairs. is determinedaction taken in pursuit of consciouspurpose.

4Luther Gullick(1937), Paperson the Scienceofadministration

Administration has to do with gettingthings done, with the accomplishment ofdefined objectives.

5 Felix A. Nigro(1970), ModernPublic

Administration

Administration is the organization anduse of men and materials to accomplish apurpose.

6 L.D. White The art of administration is thedirection, co-ordination, and control ofmany persons to achieve some purpose orobjective.

7 Simon, Smithburg& Thompson(1950),PublicAdministration

In its broadest sense, the administrationcan be defined as the activities of groupcooperating to accomplish common goals.

Generally,Generally,Generally,Generally, administration refers to the art and science ofconceiving, initiating, planning, coordinating, andexecuting collective, conscious, and cooperative affairsof the people to achieve specified objectives/goals. It isabout how people come together to decide, implement, andexecute collective actions directed towards shared anddefined ends by assembling and pressing together differentresources into tangible actions/results.

Is AdministrationIs AdministrationIs AdministrationIs Administration the Same athe Same athe Same athe Same as Management?s Management?s Management?s Management?Both of the two are used in organizations (publicand private). AdministrationAdministrationAdministrationAdministration is the force, whichlays down the objectlays down the objectlays down the objectlays down the object for which an organizationorganizationorganizationorganization andits managementmanagementmanagementmanagement are to strive and the broad policiesbroad policiesbroad policiesbroad policiesunder which they are to operate. ManagemManagemManagemManagementententent on theother hand, is that which leads guides and directsan organizationorganizationorganizationorganization for the accomplishment of pre-


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determined object. While administration isconcerned with setting the goal, management isconcerned with achieving the goal. However, theboundaries between management and administrativefunctions in organizations tend to be dark.

1.2. COMPONENTS OF ADMINISTRATIONCOMPONENTS OF ADMINISTRATIONCOMPONENTS OF ADMINISTRATIONCOMPONENTS OF ADMINISTRATIONAccording to Simon et al (1950), administration as aprocess has certain rudimental components, in this view,which simplify the understanding of the process ofadministration. The essentials of administration accordingto them are (1) cooperative effortcooperative effortcooperative effortcooperative effort, and (2) pursuit ofpursuit ofpursuit ofpursuit ofcommon objectivescommon objectivescommon objectivescommon objectives. Their well known sentence;

When two men cooperate to roll the stone

that neither of the two would have movedalone, the rudiments of administration hasappeared. (Pp. 1)

(From their simple example) of two men cooperating to rollthe (big) stone we can directly identify more than justtwo components of the process of administration. Theseinclude

PresePresePresePresense of cooperativense of cooperativense of cooperativense of cooperative efforts:efforts:efforts:efforts:----Meaning that morethan one person investing their mental and physicalenergies to achieve a purpose.

Presense of the Shared Purpose/objectives:Presense of the Shared Purpose/objectives:Presense of the Shared Purpose/objectives:Presense of the Shared Purpose/objectives:-thecooperative efforts are mounted towards achievingcertain known purposes

ThereThereThereThere should be Coordination:should be Coordination:should be Coordination:should be Coordination:- as in the case ofrolling the stone, there should be somebody to saywhat should be done at what time, who should do what,and what has to begin and what to follow.

Choice of technology:Choice of technology:Choice of technology:Choice of technology:- How to do it/the methods(whether to use a pulley to roll the stone, use a jibof crane, use heavy ropes and pull, use hands e.t.c.

It must be noted that administration is not the process ofrolling the stone, but rather how the shared need to rollthe stone to a certain point is reached, coordinated, andbrought into action.


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1.3. DEFINING PUBLIC ADMINISTRATION: (PUBLICNESS VS.DEFINING PUBLIC ADMINISTRATION: (PUBLICNESS VS.DEFINING PUBLIC ADMINISTRATION: (PUBLICNESS VS.DEFINING PUBLIC ADMINISTRATION: (PUBLICNESS VS.

PRIVATENESS DEBATE)PRIVATENESS DEBATE)PRIVATENESS DEBATE)PRIVATENESS DEBATE)What is PWhat is PWhat is PWhat is Publicublicublicublic AAAAdministrationdministrationdministrationdministration then?then?then?then?As in the case of administration, there are many

definitions. Some of the most popular are summarizedbelow:

Scholar Definition /Quoted Statement1 Woodrow Wilson

(1887), The Studyof Administration,

Public administration is the detailed and systemaapplication of law. Every particular application of is an act of administration.

L.D. White Public administration consists of all thoperations having for their purpose the fulfillmor enforcement of public policy. In other worWhile attributed the word public in pubadministration as denoting the government-t

administration of the government. It includes mactivities of government institutions (coumilitary, police, legislature) and ciadministration like delivery of a letter, the sale of public landnegotiation of a treaty, the award of compensation to an injured workman

quarantine of a sick child, the removal of litter from a park, manufact

uranium 235, and licensing the use of atomic energy2 John McDonald

Pfiffner (1960),AdministrativeOrganization

Public Administration consists of getting the workgovernment done by coordinating the efforts of peoso that they can work together to accomplish their tasks. Administration is the organization direction of human and material resources to achidesired ends pp.481

3 Simon, Smithburg &Thompson(1950),PublicAdministration

Public Administration is meant, in common usage, activities of the executive branches of national, stand local governments, government corporations certain other agencies of a specialised charactSpecifically excluded are judicial and legislatagencies within the government and non-governmenadministration.

4 Luther GullickLuther GullickLuther GullickLuther Gullick(1938)(1938)(1938)(1938)

Public Administration is that part of the scieof administration which has to do with governmand thus concerns itself primarily with executive branch where the work of government done, though there are obviously problems connection with the legislative and judicbranches.

5 Dwight WaldoDwight WaldoDwight WaldoDwight Waldo Public administration is the art and sciencemanagement as applied to the affairs of State.

6 Nicholas HenryNicholas HenryNicholas HenryNicholas Henry Public Administration is a broad-ranging amorphous combination of theory and practice; purpose is to promote a superior understanding government and its relationship with the society,governs, as well as to encourage public policies m


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responsive to social needs and to institmanagerial practices attuned to effectiveneefficiency and the deeper human requisites of citizenry.

7 F.A. Nigro and L.G.Nigro

They consider public administration to be cooperative group effort in public settings, wh

covers all branches of government and thinterrelationship, and has an important role policy formulation (thus part of political procesIn some ways, it is significantly different fprivate administration, but closely associated wnumerous individual private groups that provservices to communities.

Generally;Generally;Generally;Generally;Some definitions have emphasis on the knowledge and

skills part of public administration, while some look atit as just an activity aimed at achieving collectivematters of the people in government. Public administrationmay be defined as an artartartart and sciencesciencesciencescience of managing thepublic affairs of the government. It is a business side ofthe state as it is concerned with delivery of services tothe people, serving the interests of the people, but stillexecuting the will of the state.

As an art, public administration is associated with doing.

Thus, it uses creative skills that involve imagination.Its emphasis is more on practice than theory.Administrative problems are artistic and thus theycondition Public officials to work artistically thinkingand doing depending on talents rather than theorizing. Asa science (as Gullick, Urwick, Woodrow, Willoughby, Fayol,and Taylor believed) apply certain fundamental principles.Principles used in public administration are a result ofscientific knowledge and systematic research (Gladden,1964:3). Administrators use scientific techniques,

research, data, techniques, and skills to solve problems.If viewed from the side of the academicdiscipline/profession-it becomes a science. As also arguedby Donnel and Werich (1982:2) the process ofadministration is an art, but the systematic knowledgeused is more a science. This makes public administrationboth an art and science.


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What makes An Administration Public (publicness?)What makes An Administration Public (publicness?)What makes An Administration Public (publicness?)What makes An Administration Public (publicness?)

1.4. The focus and locus of public administrationThe focus and locus of public administrationThe focus and locus of public administrationThe focus and locus of public administrationFocus: what is its core business (what is done in publicadministration). Locus: Where is public administration

done?

Generally, defining the scope calls for two differentperspectives (that disagree with one another) regardingthe answers to the question such as what is the concern ofpublic administration and where is public administrationdone.

The Narrow perspectiveThe Narrow perspectiveThe Narrow perspectiveThe Narrow perspectiveThat public administration is concerned with five major

activities that are always performed in the executivebranch of the government. There are Planning, Organizing,Directing, Staffing, Coordinating, Reporting, andBudgeting (PODSCORB), which are only executive functionsof the government.

The Broad PerspectiveThe Broad PerspectiveThe Broad PerspectiveThe Broad PerspectiveThat public administration is conducted in all branches ofgovernment and institutions of the government. They arguethat even the PODSCORB functions are carried out in other

branches of government and sometimes they are political innature.

Is public administration different from PrivateIs public administration different from PrivateIs public administration different from PrivateIs public administration different from PrivateAdministration?Administration?Administration?Administration?Some scholars say that it is different while some say thatit the same as private administration. There are twogeneral arguments regarding the difference and similaritybetween public and private administration.

Argument 1:Argument 1:Argument 1:Argument 1: Public administration is different fromprivate administrationBenin and Gaus suggest that for one to understand thedifference between public and private administration,there is a need to use three major bases (Benin and Gaus,1983, Herbert Simon, Peter Drucker, and Paul H. Appleby).These are;


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Agency:Agency:Agency:Agency: whether the agency is serving in publicambit or its own?

Interest:Interest:Interest:Interest: whether the agency serves theinterests of the people in a particular

organization or the whole public. Access:Access:Access:Access: In a public entity, there is more access

to processes and information compared to privateentities.

Some scholarsSome scholarsSome scholarsSome scholars who believe that there is a differencebetween public and private argue that the publicness andPrivateness of administration depends on what type ofGoodGoodGoodGood is being administered. They argue that a good willalways range from pure public good, public good, to

private good. Pure public good:Pure public good:Pure public good:Pure public good: is not rival, it is non-excludable,

and its extension to another person does not meanreduction of effectiveness (public health, publicsecurity, and defense, prison services).

Public Good:Public Good:Public Good:Public Good: it is non-excludable, non-rival, but itsextension to the other persons may imply cost on theside of provider. E.g. Higher education, (in somecountries even secondary education)

Private Good:Private Good:Private Good:Private Good: Is rival and excludable in the sensethat extending it for others to enjoy imply cost.E.g., beer in the bar, Zuku TV, etc

Hebert Simon et al (1950)Hebert Simon et al (1950)Hebert Simon et al (1950)Hebert Simon et al (1950) provide three differencesbetween public and private administration. There are;

While public administration is bureaucratic, privateadministration is business like.

Whereas public administration is political, privateadministration is non-political

While public administration is characterized by red-tape, private administration is not.

Other scholarsOther scholarsOther scholarsOther scholars argue that the two differ since uniformlaws regulate public administration, has externalfinancial control, accountability of officials topolitically elected leaders, returns that cant be measuredin terms of money (Sir Josiah Stamp), and accountabilityto public (according to Appleby).


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While some of the distinguishing features seem to havebeen disapproved by the changes in the administration ofmodern governments, most of the distinctive features ofpublic administration continue to provide basis for

distinction between public administration (government) andprivate (business) administration.

Argument2Argument2Argument2Argument2:::: Public Administration is the same as privatePublic Administration is the same as privatePublic Administration is the same as privatePublic Administration is the same as privateadministrationadministrationadministrationadministrationScholars like Gullick, (1968) have suggested that there isno difference between private administration and privateadministration. They suggest that administration isadministration be it in the business or the government.Administration is primarily concerned with 7 functions

which are performed in both government and marketorganizations. These are commonly abbreviated as POSDCORB:P Standing for Planning Both public and private sectors use itO Standing for Organizing Both public and private sectors use itD Standing for Directing Both public and private sectors use itS Standing for Staffing Both public and private sectors use itC Standing for Coordinating Both public and private sectors use itR Standing for Reporting Both public and private sectors use itB Standing for Budgeting Both public and private sectors use it

From this point of view, they see the attempt to

differentiate public from private administration is liketrying to retain outdate-and indeed the negative featuresof the old administrative models (such as inefficiency,rigid rules, and red-tapism) in public administration.

TraditionalTraditionalTraditionalTraditional Difference between Public and PrivateAdministration

Basis ofDistinction

Public Administration Private Administration

1 Motive Operate with a primary aim

of delivering public good-not profit

Primarily operate to make

profit and not promotingwelfare

2 Public Gazeand Scrutiny

The business of publicadministration operateunder strict public gazeand scrutiny-anything bad

There is no close publicwatching over theadministration of businesses

3 Politicality Public administration ismore influenced by

Private administration workfree from close control by


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political process political actors4 The legal

frameworkPublic administration isregulated by the law andabide by constitutionalrules and officialsexercise powers in definedlegal bounds

The directors and owners ofprivate organizations apartfrom the law they maydevelop their own rules andregulations (differing fromthe government law)

5 Constituency Public officials arerequired to treat thepeople equally (notfavoring one over theother)

Businesses can choose toprovide special treatment totheir special customers (inrelation to income or socialclasses).

6 Monopoly ofservices

In public administration,governments may choose tomonopolize essentialservices and restrictcompetition in those areas

e.g. security services.

The private sectors operatethrough competition and noFirm can exercise monopolyover a given type of service

However, changes in administration and managementapproaches suggest that the differences above are partialin the sense that features attributed to publicadministration also apply to private administration andvice versa. Thus, it is suggested that publicadministration and public administration are similar.

Similarities between Public and Private AdministrationSimilarities between Public and Private AdministrationSimilarities between Public and Private AdministrationSimilarities between Public and Private Administration

Processes and procedures (even skills-e.g clerical, accounting,managerial) of administration apply in both public and private

organization

Today the public enterprises are changing in the way that operating toavoid loss (profit motive) is no longer a peculiar motive. Public

organizations must also operate productively in the modern world

(think of TANESCO).

Private concerns of the private sector are also regulated by the laws,regulations, and policies of the government

Both seek maximum contact with the public: Private and publicadministration serve the people (as customers/clients or citizens).

Therefore, both must maintain working with people.


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Topic 2: Approaches and Development of PublicTopic 2: Approaches and Development of PublicTopic 2: Approaches and Development of PublicTopic 2: Approaches and Development of PublicAdministration [6 lectures]Administration [6 lectures]Administration [6 lectures]Administration [6 lectures]

2.1. Development of Public Administration (activity,2.1. Development of Public Administration (activity,2.1. Development of Public Administration (activity,2.1. Development of Public Administration (activity,and field)and field)and field)and field)

Paradigmatic Shifts (core landmarks)Paradigmatic Shifts (core landmarks)Paradigmatic Shifts (core landmarks)Paradigmatic Shifts (core landmarks)A paradigm- Is dominant belief that guidesintellectualization about a social phenomenon at a giventime. Influences the definition, understanding, anddebates about phenomena.

1.Politics/administration dichotomy (1900-1926)2.Principles of Administration (1937-1927)3.Public Administration as political Science

(1950-19704.Public administration as management (1956-1970)5.Public Administration as Public Administration

1970-1990s6.Current movement NPM

Old versus New models of Public AdministrationOld versus New models of Public AdministrationOld versus New models of Public AdministrationOld versus New models of Public AdministrationThe (old) traditional model as characterized by Hughes(2003) refers to an administration under the formalcontrol of the political leadership, based on a strictlyhierarchical model of bureaucracy, staffed by permanent,neutral and anonymous officials, motivated only by thepublic interest, serving any governing party equally, andnot contributing to policy but merely administering thosepolicies decided by the politicians. This model derivesfrom Woodrow Wilson and Frederick Taylor, and Max Weber.

The Weberian Bureaucratic modelThe Weberian Bureaucratic modelThe Weberian Bureaucratic modelThe Weberian Bureaucratic model for example; assumed thatbureaucracy (as a modern form of organization in Germany)was an expression of the best form of legitimateauthorities. Max Weber classified legitimate authorityinto three types

a) Traditional Authority:Traditional Authority:Traditional Authority:Traditional Authority: includes two forms ofsocial organization; HouseholdHouseholdHouseholdHousehold in whichacceptability and legitimacy is based on bloodties (relatives), favourites and servants(e.g. family, and VassalsVassalsVassalsVassals, which include ruleof feudal lords who swear loyalty to monarch


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and hold land in exchange for militaryservice. In the traditional authorities,actions depend on customs and values.

b) Charismatic Authority:Charismatic Authority:Charismatic Authority:Charismatic Authority: In this form of authority,legitimacy comes from personal traits and charisma

of a leader. Equally, legitimacy and actions dependon values, beliefs, and personality.

a) Legal Rational AuLegal Rational AuLegal Rational AuLegal Rational Authority (bureaucracythority (bureaucracythority (bureaucracythority (bureaucracy): Webersbureaucracy was an ideal type of organization. Heargued that bureaucracies were increasingly movingtowards this pure type (ideal type which hecharacterized as follows).i. Specialization:Specialization:Specialization:Specialization: Each administrative official

has a clearly defined area of responsibility and

competence.ii. Hierarchy:Hierarchy:Hierarchy:Hierarchy: A chain of command and

responsibility is established whereby officialsare accountable to their immediate superior fortheir conduct and for those below them.

iii. Express Rules and RegulatExpress Rules and RegulatExpress Rules and RegulatExpress Rules and Regulations:ions:ions:ions: The functioningof a bureaucracy is governed by a consistentsystem of abstract written rules which definethe limits of their officials authority, areapplied to specific cases in fulfilling their

tasks, and improve strict discipline andcontrol, leaving little chance of discretion.

iv. ImpersonalityImpersonalityImpersonalityImpersonality of Officialsof Officialsof Officialsof Officials: there is a cleardistinction between offices and their incumbent.Bureaucrats performance comes from the spiritof formalistic impersonality, and workingaccording to calculable rules and withoutregard for persons.

v. Appointment and Career Growth on Basis of MeritAppointment and Career Growth on Basis of MeritAppointment and Career Growth on Basis of MeritAppointment and Career Growth on Basis of Merit(Meritocracy)(Meritocracy)(Meritocracy)(Meritocracy): Officials are appointed based on

technical knowledge, skills, and expertise theypossess.

vi. Permanent of Tenure:Permanent of Tenure:Permanent of Tenure:Permanent of Tenure: Full time salariedofficials who are full-time paid employees witha career. Promotion based upon seniority,achievement, or a combination of the two.


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The effect of shifts in models and paradigms onlaw enforcement functions

2.2. The Core approaches for Studying PublicAdministration

Managerial Approach

Political Approach Legal Approach

Documents

The Key Concepts and Scope of Public Administration