PUBLIC ADMINISTRATION

Previous Years Questions carrying 5 MARKS

Discuss the role of hierarchy in an administrative organization.

The term hierarchy literally means the rule of higher over the lower. In administrative
terminology, it means a graded organization of several successive levels, in which each the lower
levels is immediately subordinate to the next higher one and through it to the other higher levels
right up to the top. In such an organization authority, command, and control descend from the
top to downwards step-by-step. Under the hierarchical system all-administrative organization
follow the pattern of the superior subordinate relationships through a number of levels of
responsibility reaching from the top to the bottom of eh structure. Under it no intermediate level
can be skipped over in the dealing of eh people at the lower rung with those at the top or vice
versa. In other words, the rule of through the proper channel is followed under this system.

Mooney and Reiley refer the principle of hierarchy as the scalar process because under it there is
a pyramidal type of organization. Every position in the organization finds its appropriate place in
the hierarchy. The superior gives orders to the subordinate himself receiving and obeying orders
from superiors. The subordinate accepts the decision of the superior as a guide to his own
behaviour. Thus, through link after the chief executive is united with each individual employed.

What do you understand by in-service, post-entry and vestibule trainings?

In service training - It is a sort of training which is imparted to the candidates after their
selection to the public service. This training will stimulate the employees to make best efforts
and to improve their performance.

Post-Entry Training: Unlike the in-service training, it is not directly related to the job. It aims at
broadening the general ability of the employees. Since 1961, the GOI has been granting study
leave to civil servants for undergoing special course which is capable of widening the
employee’s mind and improving his ability.

Vestibule training: It involves a series of introductory lectures followed by inspection trips to the
departments and field stations to provide first-hand knowledge to the employees. It combines
theory and practice. The senior officer of the Forest Service in India are imparted this type of
training.
Examine the concept of “Politics-Public Administration Dichotomy”

This is the beginning of evolution of public administration as a discipline. The basic theme
during this stage was the advocacy for the separation of politics from administration, popularly
known as the ‘politics-administration dichotomy’. This stage began with the publication of
Woodrow Wilson’s essay ‘The Study of Administration’ in the political science quarterly in
1887. This essay laid the foundation for a separate, independent and systematic study in public
administration. Hence, Wilson is regarded as the ‘Father of Public Administration’. Frank J.
Goodnow in his book ‘Politics and Administration’ published in 1900, made a sharp conceptual
distinction between two functions of government, that is, politics and administration. In 1926, L.
D. White’s ‘Introduction to the Study of Public Administration’ was published. It was the first
textbook on public administration. With its publication, the subject picked up academic
legitimacy, that is, the American universities began to offer courses of instruction in public
administration.

Enumerate any three principles of good budgeting.

The formation of the budget is guided by certain basic principles must be followed. The more
important of these principles are as follows:

1. The budget must be a balanced one: Generally speaking the estimated expenditure should not
exceed estimated income. When expenditure exceeds estimated income, it is called a deficit
budget. Though deficit budgeting is risky in that it can lead to inflation. However, up to a point it
is acceptable because it helps fight or downturn in economic activity.

2. Estimates should be on a cash basis: This is how it is in India, Britain and U.S.A. This kind of
cash budgeting has the advantage that the final preparation of accounts of a year can be done
soon after its close, though it may not reveal the true financial picture for the year. By deferring
payments that are due in that year, a surplus instead of a deficit will be shown in the present
year’s budget, which is incorrect. In contrast to the cash budget, there is the revenue budget
which corrects this deficit, but it results in long delays in preparation and presentation of
accounts and this makes the exercise of financial control difficult.

3. Budget must distinguish between recurring expenditure and income on the one hand and
capital payments and receipts on the other. In other words, there must be a distinction between
current or revenue budget and capital budget. Each part must be balanced separately and the
overall surplus or deficit is ascertained by taking both into account.
Distinguish between public and private administration.

While public administration deals with activities of the government, private administration is
related to administration of private organisations. Public administration is concerned with
achieving state purpose like welfare of the people, on the other hand, private administration is
concerned with profit.

1. Difference in motive- Public Administration aims at provision of services whereas Private

Administration is profited oriented.
2. Uniformity: Public Administration advocates equality of treatment in dealing with the
public whereas private can exercise preferential.
3. Financial Control: External control in Public, whereas no such control in private
administration.
4. Public accountability: Public administration is characterised by public accountability
from which private administration is free. Public administration has to function in its
environment which consists of the press, political parties, pressure group, etc.
5. Legal framework: Public administration has to function within legal framework, that is,
within the limits set by the laws, rules and regulations. Private administration, on the
other hand, is relatively free from such limits and enjoys flexibility.
6. Efficiency: Lower level of efficiency in public administration. With profit as motive, the
level of efficiency in private administration is much higher.
7. Prestige: Public administration enjoy high status and prestige in comparison to their
counterpart.

State the similarities between Public Administration and Private Administration

Thinkers like Fayol are of the opinion that all administration whether Public or Private possess
the same fundamental characteristics. While addressing the second Congress of Administrative
Science, Fayol aptly remarked, ‘‘we are no longer confronted with several administrative
sciences but with one which can be applied well to public and private affairs’’. This obviously
indicates that there is much in common between public and private administration. The
following points would reveal the major points of similarities between them:

1. In the first place, many principles, techniques and procedures are common to both of them.
Activities like accounting, management, purchase, disposal etc. are very common to both types
of administration.
2. The aim of both is to achieve maximum contact with the people. Both would be insignificant
without mass contact.

3. A hierarchical organizational set up exists in both public administration and private

administration. This helps in demarcating the duties and responsibilities in the cases of both.

4. In both public administration and private administration certain skills such as clerical,
accounting, managerial and statistical are essential for running the administration smoothly.

5. Both public administration and private administration adopt modern methods to increase the
efficiency of administration in the fields like personnel administration, financial administration,
superannuation arrangement, staff welfare etc.

Briefly discuss the three theories of leadership.

Trait Theory: This theory says that a person becomes a leader because of the traits possessed by
him. It is concerned with identifying the personality traits of leaders. The trait theory assumed
that leaders are born and are not made. This came to be popularly known as ‘great-man theory’
of leadership. A person becomes a leader because of traits possessed by him and cannot be
learned by experience. People by birth inherit certain qualities or traits like intelligence, courage,
fearlessness, mental strength, etc. Supporters of this theory: Chestard Barnard, Ordway Tead,
Millet, Terry, Appleby and Schell.

Behavioural Theory: Unlike the trait theory which concentrated on what leader ‘are’, the
behavioural theory concentrate on what leader ‘do’. The behavioural researchers sought to find
out what the leaders do, how they lead, how they behave, how they motivate subordinates, how
they communicate and so on. They concentrated on leadership functions and styles.

Situational Theory: This theory believes that the leadership is influenced by situational variables
and thus differs from situation to situation. It views leadership in terms of a dynamic interaction
between a number of situational variables like the leader, the followers, the task situation, the
environment and so on. Thus, leadership, according to this theory, is multi-dimensional.

Explain the ‘POSDCoRB’ view of Public Administration.

POSDCORB view of Public Administration This is a narrow view of public administration and
takes into account only the executive branch of the government. In other words this view
corresponds with the managerial view. Hendry Fayol, [Link], and Luther Gulick are the main
supporters of this view. Luther Gulick’s view on the scope of public administration is very
important because he has explained that in detail. He sums up these techniques in the word
POSCORB, each letter of which describe one technique.
Planning means the working out in broad outline the things to be done, the methods to be
adopted to accomplish the purpose. Organization means the establishment of the formal structure
of authority through which the work is sub-divided, arranged, defined, and coordinated. Staffing
means the recruitment and training of the personal and their conditions of work. Directing means
making decisions and issuing orders and instructions. Co-ordination means the interrelating the
work of various divisions, sections, and other parts of the organizations. Reporting means
informing the superiors within the agency to whom the executive is responsible about what is
going on. Budgeting means fiscal planning, controlling, and accounting. According to Gulick the
POSDCORB activities are common to all organizations. They are the common problems of the
management, which are found in different agencies regardless of the nature of work they do.
POSDCORB gives unity, certainty, and definiteness and makes the study more systematic.

Explain the principle of scalar process.

Hierarchy or scalar process means a graded organisation of several successive levels in which
one of the lower level is immediately subordinate to the next higher one and through it to the
other higher steps right up to the top. The shape of the administrative structure is that of a
pyramid. Mooney and Reiley call it the scalar process.

The basic principle of the scalar process are:

1. A person will have only one immediate superior from whom he will receive orders.
2. A person will not receive orders from lower status.
3. No intermediate level shall be skipped over in the dealing of the people at the top with
those lower level or vice versa.
4. A person who is given responsibility for a task will have authority commensurate with
this responsibility.

From the above features it is clear that in the scalar system authority, command and control
descend from the top to the bottom step by step. L D. White narrates the basic functions of
hierarchy. According to him it is primarily the channel of command. It is the principal channel of
communication downward an upward along with the flow of information, advice, specific
instructions, warnings and commands. It is the channel for the delegation of authority.

How does legislature control administration in parliamentary democracy?

In all systems, parliamentary or presidential, control of the administration by the legislature is

important because all state activities emanate from the legislature. The Ministers are collectively
responsible to the parliament in a parliamentary form of government.
a. Law-making Process—the legislature makes the law which determines the organization,
functions and procedures of public administration-a new department may be created-after
passing from legislature the rule must be send to the executive for his approval
b. Question-Hour—in the parliamentary system, the minister are the members of the
legislature-they attend its sessions and are present in House to reply to the questions put by
the members of the legislature-in every parliamentary system there is the practice of setting
apart one hour of Parliament’s meeting time for questions which is called Question Hour-a
very healthy check on administration
c. Budgetary System—budgetary system places control of administration in the hands of the
executive-the legislature passes the budget every year and authorizes expenditure and no
money can be spent by the administration without proper authorization from the legislature-
members criticize the policies of the government
d. Audit and Report—government has no power to detailed investigation on financial
transaction-this is done by the Auditor and Comptroller-General-the Public Accounts
Committee of the Legislature thereafter scrutinizes the Report and reviews the financial
dealings of the different departments of the Government
e. Debates and Discussion—important for the Parliament to examine and scrutinize the
activities and efficiency of various governmental agencies-inaugural address of the President,
the Budget Speech, introduction of a bill for amendment of an Act or enactment of new law,
introduction of Motions or Resolutions provide an occasion for debates and discussions and
its lapses and failures of administration
f. Appointment Committee—the appointment by the legislature of committees from its own
membership is another method of exercising control over administration i.e. public accounts
committee, estimate committee, public undertakings etc.

Define ‘line’ agency. Distinguish it from ‘staff agency’.

The administrative agencies which perform the functions that directly contribute to the
achievement of primary or main purpose of Government organization, directing, making
decision, command, control and supervision are “Line agencies”. Line agency performs the
primary or main function for which an organization came into existence. Line agencies are
responsible to execute the policies and programmes sanctioned by legislature. They issues
directions to field agencies and supervise the implementation of different programs, projects,
schemes. They monitor the performance of different officials through reports and inspection.
They are in direct contact of people and try to elicit their cooperation to achieve the primary
purpose of organization.
The concept of line and staff, developed first in military organisation. It was borrowed from
there and applied to civil organisation and administration. The distinction between these units
lies in the nature of work done by them. The line agencies directly work for the achievement of
the organizational purpose and the staff agencies advise and assist the line agencies in their
activities. The staff agencies do not exercise authority or command, but only assist and counsel.
The staff agencies assist the Line agencies by performing these secondary functions.

Explain the grounds of judicial intervention in administrative cases.

The judicial control is a check upon highhandedness or arbitrariness of the executive. The court
can intervene when a complaint is lodged to the judiciary by a person who feels that his rights
have been violated or likely to be infringed by some actions of the public officials. Moreover, the
court (judiciary) intervenes in administrative cases on the following grounds:

1. When the administrative case involves lack of jurisdiction. (Overfeasance)

2. When the administrative case involves error of law. (Misfeasance)
3. When the administrative case involves error of fact-finding. d. When the administrative
case involves error of procedure.
4. When the administrative case involves abuse of discretion. (Malfeasance)

The citizens who are affected by the above cases can seek the intervention of judiciary in the
administrative acts.

Write a brief note on the Planning Commission of India.

The erstwhile Planning Commission was established in March 1950 by an executive resolution
of the Government of India on the recommendation of the Advisory Planning Board constituted
in 1946, under the Chairmanship of K.C. Neogi. Planning Commission was neither a
constitutional body nor a statutory body. In other words, it was a non-constitutional or extra-
constitutional body (i.e. not created by the Constitution) and a non-statutory body (not created by
an act of Parliament).

Planning Commission by this resolution of the government was, thus, expected to perform a key-
role in the economic development of the country and it worked as the supreme organ of planning
for social and economic development.

The Prime Minister was the Chairman of the Planning Commission, which used to work under
the overall guidance of the National Development Council. The Deputy Chairman and the full-
time members of the Commission, as a composite body, provided advice and guidance to the
subject Divisions for the formulation of Five Year Plans, Annual Plans, State Plans, Monitoring
Plan Programmes, Projects and Schemes.
Functions of Planning Commission:

1. To make an assessment of the material, capital and human resources of the country,
including technical personnel and to investigate the possibilities of augmenting such of
those resources as are found to be deficient in relation to the nation’s requirements.
2. To formulate a plan for the most effective and balanced utilisation of the country’s
resources.
3. To determine priorities as between projects and programmes accepted in the plan.
4. To indicate the factors that retard economic development and to determine conditions
which should be established for the success of the plan.

How is administrative accountability ensured by the Judiciary in a parliamentary

democracy?

Judicial control over administration means the powers of the courts to examine the legality of
officials’ acts and thereby to safeguard the rights of the citizens-the courts cannot interfere in the
administrative activities of their own accord but only when they are invited to do so by any
person-the courts cannot interfere in each and every administrative act—courts can interfere on
the following grounds;

1. Lack of Jurisdiction—every officer has to act within the limits of the authority given to him
and also within a specified geographical area-if he acts beyond his authority or outside the
geographical limits of his powers, his acts will be declared by the courts as ultra vires and
hence ineffective
2. Error of Law—a public servant may misinterpret the law and may impose upon the citizens
duties and obligations which are not required by law
3. Error of Fact-Finding—if an official has mistaken or wrongly interpret facts or ignore
them-this may affect a citizen adversely and so there may be ground for bringing a case in a
court of law
4. Abuse of Authority—if a public official uses his authority vindictively to harm some
person, the courts can intervene and punish him if he is found guilty of using his authority to
take a personal revenge
5. Error of Authority—public officials have to act according to a certain procedure as laid
down by laws and if they do not follow the prescribed procedure, the court have a right to
question the legality of their action, on appeal from the party affected.

Write a brief note on ‘spoil system’.

The spoils system, also known as the patronage system, refers to the practice of political parties
awarding government positions to loyal party supporters and campaign workers. The spoils
system has a long history in US politics and has been both celebrated and criticized for its impact
on government efficiency, transparency, and corruption.

The spoils system emerged in the US in the 1820s and 1830s, during the presidency of Andrew
Jackson. Jackson, a strong advocate of the spoils system, believed that government positions
should be awarded to those who supported him and his party. Jackson argued that this system
would help to ensure that government officials were committed to his policies and would work to
advance his agenda.

Under the spoils system, government officials were selected based on their loyalty to the ruling
party rather than their qualifications or expertise. This meant that government positions were
often filled by inexperienced and unqualified individuals who were unable to perform their
duties effectively. In addition, the spoils system also led to widespread corruption, as party
supporters would often demand favours and rewards in exchange for their loyalty.

What are the reasons of conflict between Line and Staff Agencies?

Though line and staff units are indispensable in all government organisations and are meant to
complement each other, the relationship between them is not always cordial and happy. The
reasons for such conflicting situation are as follows:

a) The staff agency being close to the chief executive tend to use the authority of line
agency.
b) The differences between line and staff in terms of age, status, outlook, experience and
technical competence.
c) The staff people usually adopt “ivory tower” approach that is they suggest unrealistic
plans and ideas to the line people who are more practical in their approach, leading to
misunderstanding and tension between the two.
d) The tendency of line officials to disown responsibility.
e) The staff officials tend to discover the deficiencies in the work and procedures of line
authorities.

What measures should be taken to reduce the conflict between Line and Staff Agencies?

Measures to Reduce Conflicts:

a) The Chief Executive should clearly specify the nature of responsibilities of line and staff
people. This enables him to hold them responsible for their mistakes.
b) The opportunities to exchange roles should be created i.e. there should be periodic
transfer between the line and staff.
 c) Both should be encouraged to get better acquainted with each other as well as with their
mutual roles.
d) The line people should be given training in staff work and vice versa. This enables them
to know the proper aspects and dimensions of their duties and responsibilities.

What are the principles of Promotion?

There are three principles of promotion. They are:

1) Seniority Principle: According to this principle the order of precedence in making promotion
is determined by the duration of service of the employees.

2) Merit Principle: This implies that the most meritorious employee should be promoted.
Promotion is determined by the qualifications and achievements of employees irrespective of the
length of service.

3) The Seniority-cum-Merit Principle: It provides that promotion should be determined on the

basis of both, the length of service as well as qualification and achievement of the employees. In
general, the first principle is applied at lower levels, the second principle at higher levels, and the
third principle at the middle levels.

What is the meaning of Training? Explain the objectives of training.

Training is the process of developing skills, habits, knowledge and attitudes in employees for the
purpose of increasing the effectiveness of employees for the purpose of increasing the
effectiveness of employees in their present governmental positions as well as preparing
employees for future government position.

The objectives of training are:

a. To produce a civil servant who can transact his business with precision and clarity.
b. To attune the civil servant to the tasks he is called upon to perform in a changed world.
c. To make the civil servant community conscious.
d. To develop the capacity for higher work and greater responsibilities.
e. To improve the morale of the civil servants.
f. To broaden the vision and outlook.
g. To promote integrity.
h. To inculcate the attitude that a civil servant is not a master but a public servant.

Explain the meaning and concept of Recruitment. 3marks

Recruitment is the most important aspect of public personnel administration. Recruitment means
filling up the vacant posts in civil service. It has negative and positive connotations. Negatively,
it aims at eliminating those who are not qualified and suitable for the posts in the service. This
negative recruitment stands for – Elimination of political influence. Prevention of favoritism.
Keeping the „rascals‟ out. Positively, recruitment aims at filling the vacant posts with the best
qualified and most competent persons.

Define Promotion. What is the importance of Promotion?

The word „Promote‟ is derived from the Latin expression “Promovere” which means “to move
forward”. According to Torpey, “Promotion refers to the movement of an employee from one
position to another position having a higher grade. A promotion involves increased duty and
responsibility for the employee.

Importance of Promotion

(1) It keeps the experienced employees in an organization.

(2) A man is ambitious by nature, thus with this arrangement, personnel-development makes
its way.
(3) It motivates the employees to do their best.
(4) When the facility of promotion is available, then people are ready to join the lower
grades.
(5) Efficiency and prestige of an organization increases where there is system of promotion
(6) It is an effective tool for increasing morale and motivation.

Explain styles of Leadership.

The behaviour exhibited by a leader during supervision of subordinates is known as leadership

style. There are three basic styles of leadership i.e. (a) Autocratic (b) Democratic (c) Laissez
Faire

(a) Autocratic Style: This is also known as authoritarian or directive style of leadership. In this
the entire authority is concentrated in the hand of the leader. He decides all policies, gives orders
and demands complete obedience from them. He withholds rewards or gives punishment.

Democratic Style: Also known as participative style of leadership, in this, the leader allows the
subordinates to participate in the decision making process. All policy & decisions are arrived
through group discussions. The communication flows freely and is multidirectional. This style
became popular during the era of human relations approach.
Lassez Faire Style: It is also known as free reign style of leadership. In this style, the leader gives
complete independence to the subordinates. He allows them to set their own goals and achieve
them. Leade’s participation is minimum and his only job is to supply various materials and
information asked by the subordinates.

What are the factors that determine Span of Control?

The exact length of span of control depends on the following four factors:

1. Function: It refers to the type/nature of work to be supervised. The span of control is

more when the work to be supervised is of easy, routine, mechanical character than when
the work is of difficult, non-routine, intellectual character.
2. Time: It refers to the age of organization concerned. The span of control is more in old
organizations than in newer organizations, because in older organizations, things get
stabilized while newer organizations will have few precedents.
3. Space: It refers to the place of work to be supervised. The span of control is more when
the supervisor and the subordinates to be supervised are under the same roof, than when
the subordinates work in different rooms or at a distance from the supervisor.
4. Personality: It refers to the competence of the supervisor and the supervised. The span of
control is more when the supervisor is intelligent, energetic and tactful than when he is
weak, dull and incompetent.

Explain Fayol’s Gangplank.

To speed up the flow of business and avoid delay in disposal of cases, Henry Fayol suggested an
alternative route called “gangplank”, as illustrated in the following way.

Following the line of authority (scalar chain), F to communicate with P, has to go through E-D-
C-B-A-L-M-N-O and back again. On the other hand, it is much simpler and quicker to go
directly from F to P by making use of FP as a “gang-plank”, if the procedure is agreeable to
higher officials, that is, E and O. Thus, the concept of Gangplank stands for establishing a
communication channel with an employee of the same level, i.e. horizontal communication
system.

Define Hierarchy. What are its advantages?

The term “Hierarchy” is derived from the Greek term for a ruling body of priests organized into
ranks. Literally, „hierarchy‟ means the control of the higher over the lower. In administrative
phraseology, it means an organization structured in a pyramidal fashion with successive steps
interlinked with each other from top to bottom. Fayol referred to it as the “scalar chain” while
Mooney and Reiley called it the “scalar process”. The word “scalar” is derived from “scale”
which means “ladder” with several steps.

Definition: L. D. White, “Hierarchy consists of the universal application of the superior-

subordinate relationship through a number of levels reacting from top to bottom of the structure.”

Advantages of Hierarchy:

1. It serves an instrument of integration and coherence in the organization.

2. It acts as a channel of communication.
3. Enables to fix responsibility at each level.
4. It acts as a channel of communication.
5. It prevents congestion of work at the top level.
6. It facilitates decentralization of decision-making.
7. It facilitates delegation of authority.
8. It simplifies procedures for file movement.
9. It promotes discipline and order in the organization.