Public Administration Chapter 1 - Introduction - meaning , scope and significance of public administration ; Wilson’s

Why? What? How?- scope and it’s relevance vision of Public administration ; Evolution of the discipline and its present status ; New Public
administration ; Public choice approach ; Challenges of liberalisation , privatisation and
Key concerns - changed over its evolution and will keep transforming keeping at core globalisation ; Good Governance: concept and application ; New Public Management
efficiency , effectiveness and responsibility towards public.
As the society becomes more complex , role of PA will keep enhancing - it will have to
borrow theories and practices from different other disciplines and sectors to make
administration more inclusive, sustainable and efficient.

It’s What(theoretical) and how (action) part needs to be more dynamic and cross cultural, 1. Meaning, scope and significance of Public administration
inter disciplinary and reactive and predictive at the same time.
Also it has to respond to the changing behaviour in other disciplines and areas like politics, Public administration as an Activity is as old as humanity. Practical experiences and principles
science and technology , philosophy , sociology etc. can be seen mentioned in several ancient texts like Kautilya’s Arthashastra.
The environment in which it has to perform , makes it more proactive and inter disciplinary Over centuries and different stages of becoming more complex society , there appeared a need to
so that the 3 Es - economy , efficiency and effectiveness along with inclusiveness and study public administration as a Discipline.
responsibility can be upheld. The first such real effort to make it a separate field of study started when the Essay ‘The study of
Administration’ was published in Political Science quarterly in 1887 by Woodrow Wilson.
Although the idea of ecology at that time was not there but ecology of idea was there - spoils
system was prevalent , corruption was high, society was becoming more complex and demanding ,
state was becoming insufficient in providing basic services etc
Booklist Before that , political system and principles were at the centre of focus and study.

Chapter 1 - Nicholas Henry + Mohit Bhattacharya And before making it a separate field of study , it should be defined and should have a meaning to
Chapter 2 - Prasad and Prasad the term Public administration , what’s its scope and significance etc needs to be answered.
Chapter 3 - Stephen Robbins
Chapter 4 - internet Meaning - many thinkers and scholars , practitioners tried to give meaning to the term Public
Chapter 5 - Mohit + newspaper articles and internet + IGNOU Administration
Chapter 6- MP Jain Public Administration = Public (synonym for govt./state) and administration = to take care of
Chapter 7- RK Arora Or government’s activities in process , it is management of state’s affairs at all levels
Chapter 8 - Mohit + internet
Chapter 9- IGNOU + reports Wilson - PA is a science of administration which seeks to straighten the paths of govt, to make it’s
Chapter 10- Sapru and Sapru + IGNOU + magazines + Henry business less business-like , to strengthen and purify its organisation and to crown its duties with
Chapter 11 - internet + reports dutifulness.
Chapter 12- IGNOU + official documents and reports
Waldo - PA is art and science of management as applied to the affairs of state.
Waldo cautioned against the danger of defining PA.

https://t.me/publicadministrationCSE/2478 The most comprehensive definition that encompasses the major core areas of public
administration is given by Nigro and Nigro , summed up Public administration as
https://www.icloud.com/pages/ - a cooperative group effort in public setting
01eedCaC3GH4PFrhsdIdP3KBw#Public_Administration_Paper_1_Analysis_ - role in public policy formulation
- covers all branches - executive, judiciary and legislative
- different from private administration (the differences and thinkers associated)
https://www.icloud.com/pages/066UNAht9a-apDJe9nJMNnZjA#pub_ad_paper_2_analysis_ - is multi stakeholders activity
- non political though operating in political system (Wilson knew it)
- deals with goal achievement of the government , people’s interest and laws
- interdisciplinary in nature as it draws from other subjects , brings those theories in action in public
sphere - sociology, economics, law , psychology etc

Every society has a philosophy , common goals , aspirations and urge for development and
growth. This is the What part i.e the philosophical part/ philosophy of the society. And to operate
the philosophy, the society needs a government (political system) - govt. adopts that philosophical
part of the society and sets goals , programmes and agendas.
The core parts of philosophy, to bring in continuity and certainty, enshrined in legal documents
called Constitution, laws, vision documents etc.
To bring those goals and philosophy into reality - role of public administration comes as the Action
(activity) part.
Thus PA can be visualised as the means to achieve the philosophical ends of any country/
society.
PA is the visible part of the government. It functions through organisations (public ) - organisational Approaches to the study of Public Administration
theory ; how to make those organisations more E3 - theories of leadership , work study ,
Philosophical Legal approach Historical approach Case method approach
techniques of administrative improvement + CPA
Also these organisations involves functions and functionaries plus the finance which is blood in Based on normative Emphasises the Studies the field in the Attempts to reconstruct
veins of any organisation - Personnel administration , financial administration and management , approach I.e it constitutional/ legal light of past historical the administrative
administrative law ; + public policy to smoothen the development process to achieve goals concentrates on what structure , organisation , developments having realities and makes the
Therefore, a study of PA involves a study of Public organisation specifically - ought to be power and limitations their impact on the students of public
Organisation’s structure (both intra and inter organisational structure ) present administration aware of
organisations’s process (communication , decision making , control , citizen engagement them
etc)
Organisation’s environment and situation Is most comprehensive Studies PA as part of the L.D. White , IIPA, USA during 1930s
Organisation’s behaviour (personnel , morality , capacity building , ethics , values , and oldest approach law Jeffersionians etc
motivation , morale etc)
Plato , Hobbes , In Germany , USA,
Mahabharata , Britain etc
Other definition of PA was given by Wilson , Waldo , LD White , Gullick etc according to their Vivekananda , Peter Self Goodnow ✅
convenience

Nature Other Approaches - Structural , Human relations, Behavioural , systems , comparative ,

- means the type or main characteristic of something and what is to be expected from it as per its ecological , Development , Public choice etc
behaviour. Empirical approach - derives ‘actual’ public administration I.e what it is.
- for nature of PA - two views are there I.e integral view(suits department like postal) and Normative - which describes ‘ideal’ public administration I.e. what ought to be
managerial view (in every organisation)
- Integral view sees PA in each and every activity performed in an organisation I.e from top Distinguishing points Public administration Private administration
managers to bottom workers , all are part of public administration as a process. This view was
supported by Wilson, LD White, Pfiffner, Fayol etc Political direction Directed by the political executive Non political in nature but in times of
- Managerial view - bothered with only activities that get things done rather than doing the things. of the country for implementing emergency it can be directed by political
Takes into account the managerial activities of an organisation. Gulick , Simon , Merson , etc are public policies executive like during COVID-19
supporter of this view
Purpose of existence To promote human welfare and Decision is primarily taken on the profit
So the most comprehensive view/description of PA is given by Nigro and Nigro social good - sustainability of good earning motive which is not the case for
life public administration
Scope Nature of Budget Often a deficit budget is prepared , Private organisations can not survive
- the extent of the area or subject matter that something deals with because the expenditure of govt without profits
- as and activity(has a scope coincident with the ambit of the state) and as a discipline scope exceeds its income
varies
- entails the following processes - POSDCoRB of Gulick as a discipline and Subject matter view Legal framework Rule-bound, public administrators Though they also functions within the
- Lewis Mariam - PA as an instrument with 2 blades POSDCoRB + subject matter view can never bypass the rule of law confines of law still isn’t constrained by
- POSDCoRB represents only the tools of administration , ignores the knowledge of the subject law as is the public administration
- Subject matter view - depends on the function of organisation , substantive concern of the
organisation is important ( health , defence etc have their own specialised techniques ) Uniformity of Article 14, 15, 16 and etc other Giving preferential treatment to certain
- remember POSDCoRB and Subject matter view are not mutually exclusive treatment laws for uniformity clients id considered to be a common
- + Walker’s Administrative Theory - studies structure , organisations , functions and methods of all business practice
types of public authorities and the applied administration Accountability Accountable to people Can take decisions in the interests of the
- Pfiffner talks about management of personnel , public financing and administrative accountability. organisation without being answerable to
the public
Frederick C. Mosher - The elusiveness of a disciplinary core for Public Administration gives the
subject its strength and fascination. Scale of operations Quite a large scale , almost Not the case
everything under the sun is covered
by PA

Monopolistic nature Some activities are monopolistic no such parallel

like national security, law and order,
mint and currency etc

Anonymity Whatever is done is in the name of not the case

the govt and the head of the state

Code of ethics and Financial control - parliament, Not the case

external financial appropriation , CAG , Audits , RTI
control etc + Moral and legal obligations
Sir Josiah Stamp - 4 principles differentiate public from private organisation Woodrow Wilson
- Principle of uniformity
- Principle of external financial control - later 1880s , complex societies started as a result of Industrialisation , led to growing function of
- Principle of Ministerial responsibility state and growth of government
- Principle of profit motive - also these were time , when Political science was busy in writing constitution , nature of state ,
essence , power etc
Paul Appleby - “Breadth of scope, impact and consideration”, public accountability and political - Wilson felt that it was difficult to organise administration in democracy than in monarchy,
character are the 3 distinguishing features which differentiate public from private administration. administration has to continuously respond to multitudinous monarch called Public Opinion
- Essay ‘the study of administration’ in 1887 , essay stressed the need for scientific study
Urwick, Henri Fayol and MP Follett - that all administration is one and there is no difference and after that scholars rushed with new theories and ideas.
between public and private administration. - His Essay was regarded as a ‘significant trail-blazing effort.
- According to him , study of administration developed as a consequence of complexities of Society
Appleby, Simon, John Gauss, Ludwig Von Mises, Josiah Stamp and Peter Drucker - that , growing functions of state and growth of governments.
there are some crucial differences between public administration and private administration. - Before 19th century - Thinkers and Scholars were busy in finding and establishing the ‘what
‘ part of administration I.e the definition of state, what is constitution , nature of state , essence and
Structural - Functional Approach seat of sovereignty (Mostly concerned with the problems of democracy and monarchy)
- for Wilson - science is the saviour + science of administration
Offshoot of the ‘systems analysis’ and is the means of explaining what structures perform what - his idea of new meaning of government —- as more responsive to people and opinion
basic functions in the political system. - According to him , administration can be developed through comparison (CPA)
This approach revolves around two key concepts - structures and functions. - he said that administrative questions are not political questions , he focused more on
This approach is a tool of investigation and based on certain basic assumptions: implementation aspects of administration
- It takes the society as a single inter-connected system, each element of which performs a specific - he wanted the civil service to be cultured and self sufficient enough to act with sense and vigour
function. and yet to intimately connected with the popular thought. ( training , and capacity building
- If society is a system as a whole, it has its parts that are inter-related. aspect)
- Underlying the whole social structure there are broad aims and principles that are observed bt the - Constitution (source of unlimited power) - proper distribution of constitutional authority is
members of the society. administration
- His main idea was to increase government efficiency by development of administration system
Three basic questions are involved in the concept of the functions: away from political interference
- what basic functions are discharged in any given system - He was aware of the interdependence between politics and administration , while trying to carve
- by what instruments those functions are performed out the field go Public Administration
- under what conditions the performance of these functions is done. - He provided the starting point for systematic enquiry
- Objective of science of administration ——> to guide administrator in the efficient performance
Shortcomings - structural functional analysis primarily focuses on static relationships rather than of government business
on dynamic ones, so it is accused of being anti-change + it is nothing else but an exercise to - For him, no difference between public and private administration
defend and justify the status quo of colonial political and administrative structure from changing - Wilson - dichotomy + comparative administration + business like approach + policy
towards socialism. implementation via non political administration + search for science of administration +
policy determination via politics + constitutional focus
- Borrow the science but filter it through cultural lenses
- For him , administration is to be technically competent and politically neutral for a democracy
https://www.jstor.org/stable/2139277?seq=3#metadata_info_tab_contents

- His vision of PA can be analysed by his 3 inter related areas of emphasis

1. Politic-adm dichotomy which emphasised on distinguishing the special features of
administration
2. Advocated a scientific study of the subject of administration
3. Advocated the use of comparative methods in the study of administration
Evolution of Public administration and its present status I) stage theory (by observing distinguishing characteristics of subject in different periods)
II) School of thought theory
During the course of evolution , the boundaries of PA in terms of scope (locus) and its orientation III) Paradigm theory
(focus) has been continuously shifting. IV) Approach theory
focus of PA changed depending upon the contextual conditions.
Due to diversity of problems being faced - new theories, concepts , techniques , relationships,
borrowings etc

Locus - means the institutional where of the field I.e. the institution with which the discipline has
been associated
Focus - depicts specific what of the field. The knowledge of the field and its expertise comprise
this focus.

Mosher - perhaps it is best if PA is not defined. It is more an area of interest rather than a
discipline. More an emphasis rather than a science. It is necessarily cross disciplinary and the
overlapping and vague boundaries should be considered as resources rather than the irritant.

Many parameters has been identified to study the evolution of PA as discipline like Dichotomy
concept , locus and focus concept , Paradigms , pendulum etc

Peter Self - study of PA developed as an offshoot of political science

1st stage - era of dichotomy ( still relevant as versions of dichotomy changed from complete
dichotomy to qualified and complementarity dichotomy)
2nd stage - stage of orthodoxy - looking for principles only - efforts to delineate firmly the
boundaries of new discipline of management - question of values were no longer bother what was
the disciplinary orthodoxy of PA.
3rd stage - Human relations approach
4th stage - Heralded by Bernard and Simon - Dahl’s essay - Science of PA (3 problems)

Simon provided an alternative definition of PA and widened the scope of subject by relating it to
psychology , sociology , economics and political science.

Nicholas Henry classified the evolution in 6 paradigms

Paradigm 1- era of dichotomy (1890/1990 - 1926)
Paradigm 2 - era of principles (1927-37) + era of sub paradigms ( 1938-46 - challenges) + 1947 -
continuous ( response to challenges)
Paradigm 3 - PA as political science (1950-70)
Paradigm 4 - PA as management (1956-1970) + sub paradigm (1960 -70) - phase of challenge
Paradigm 5 - PA as PA (1970 onwards)
Paradigm 6 - PA as governance (1980 onwards)

Paradigm theory 1st out forward by Thomas Kuhn - as a universally recognised exemplar or model
according to identified usage

Vincent Ostrom - 2 paradigms ( model of Bureaucratic administration and Democratic

administration)
Denhardt - 3 paradigms ( Old PA , NPM, NPS)

another concept to look at the evolution of PA as discipline is Instrumental and value rationalities
Instrumental rationalities - TPA, Privatisation , NPM , and Holistic governance
Value rationality - NPA, democratic administration , NPS, Public value management
These above 8 theories analysed in light of 5 elements
I) assumption about human nature
II) Methodology
III) Role of government
IV) Core values
V) Disciplinary positioning

On Public administration hundreds of Articles , monographs - demonstrating flourishing academic

world - material looks at Public Administration mainly from following perspectives -
Pendulum movements in development of PA Theories - refers to these theories being in a certain Politics-adm Structural Human Behavioural Developmen Public Political
period of time , situated at one end of their movement trajectory (very left/right) dichotomy approach relations approach t approach policy economy
When series of problems - they shift to other end approach approach
Development of PA theories sways between two end points
Politics and Attaches Emphasis on Brings out Concentrates Puts stress Studies the
Instrumental rationality oriented PA - adm are significance human side internal on on public application
sticks to the assumption of rational self distinctively to value free of enterprise putting in development policy of economic
interest and prefers empirical research separate science of focus his aspect of methods and
techniques , advocating role definition of management rationality adm models of
managers and actively building and value political
administrative science. problems

Value rationality - oriented PA - sticks to Politics is Economy Brings out Considers Studies Emphasis Establishes
the assumption of reflective altruism , puts about policy and flaws and decision historical formulation relationship
emphasis on development of public spirit formulation efficiency are limitations of making as socio-eco and and
and keen on normative research methods, and adm always in mechanical the heart of and political implementati interaction
proposing role definition of politicians and pursuing administrative philosophy. about focus concept of administratio consideratio on of welfare between
From the perspective of value rationality , PA is a process that deals with public affairs and implementati organisation n ns having programmes public
provides public service according to the principle of democracy and constantly instills PA spirit to on impact on and thus administratio
public - focus of publicness of PA - focus on ends and ignoring administrative means adm attaches n and
factors. significance political
NPA - adheres to social equity to policy economic
Democratic administration - advocates practising social equality policies.
NPS - preserves civil rights Legislature Public Stresses Relates PA to
Public value management - proposes creation of public value and cabinet aspect of PA socio- sociology,
locate is virtually psychologica and
School of thought Representative advocators Major publications politics while dropped l factors of psychology
and their dominating the executive work there by
period locates situations broadening
administratio its scope
TPA (1887-1968) Wilson , Taylor and Weber Study of Administration (1887) n
Principles of scientific
management , Economy and Advocates a Lays stress Concerned
society (1921-22) value free on the with the
science of structure of relationship
NPA (1968-1979) Frederickson NPA (1980) , The spirit of PA management the among
(1997) organisation people in
Privatisation E.S. Savas or any organisation
(1979-1987) administrativ
e setup
Democratic Gary L.Wamsley
Administration Vincent Ostrom
(1987-1991) Charles Goodsell According to Golembiewski PA developed - through 5 overlapping paradigms , paradigms
NPM (1991-1996) Christopher Hood , Osborne and Owen Reinventing government (1992) , characterised and understood in terms of their locus and focus
Hughes Public management and 1900 - Frank Goodnow - ‘Politics and administration’ - dichotomy ✅
administration : an introduction 1926 - LD White - An introduction to the study of PA - as 1st textbook on the subject - reflects the
(1994)
theme of that period - dichotomy ✅ , economy and efficiency should be the watchwords of Public
NPS ( 1996 - 21st Denhardts Managing government , Administration - focus turned to search for principles that can enhance efficiency and
century beginning ) Governing Management , economy
NPS:serving not steering (2003) 1927 - Willoughby - Principles of PA
Follett - Creative experience
Holistic Governance Perri 6 Holistic Governance (1997) Mooney and Really - Principles of Organisation
Towards Holistic governance
(2002) 1927-37 - golden years of ‘principles and techniques’ in life of PA
Public value Mark Moore Public Value theory and practice 1924-40 - Hawthorne experiment - Human relations approach - drew attention to the formation and
management (2010) effect of work groups phenomenon of leadership , conflicts , cooperation
After WW2 - environment changed - focus shifted to interdisciplinary studies New Public Administration
Simon’s - ‘ Administrative Behaviour (1947)’
And Bernard’s - Functions of Executive (1938) - genesis lay in 2 factors
i) 1960s was a turbulent period (numerous societal problems + steady decline in the commitment
Behavioural approach - psychological aspects of management of Americans to institutions such as family , church , media , profession and govt )
Robert Merton and Peter Blau - ‘ Study of Bureaucracy’
1960s - CPA and DA ii) need to hear young scholars and practitioners as PA was facing a kind of generation gap
1970/68 - NPA
1971 - Waldo - PA in time of turbulence so MB1 —-> to analyse the effect of these changing perspectives

Aimed at —> making PA socially relevant and change agent

Paradigm 1 Paradigm 2 Paradigm 3 Paradigm 4 Paradigm 5 Paradigm 6
(1900-1926) (1927-37) (1950-70) (1956-1970) (1970 (1980
Emerged out - public policy approach to PA was emphasised
Politics -adm Principles of PA as Political PA as onwards ) onwards)
- E3 was there , now equity(social) was added
dichotomy PA science Management PA as PA Governance
- Values in public services —- pendulum shifting towards value rationality from the Instrumental
Thinker - Thinker - JM Gauss Waldo’s rationality
Goodnow 1900 Willoughby criticism of TPA - change the nature and function of public institutions
- active and participative citizens
Money and Gulick and A theory of PA Sub paradigm - Activism + Moving away - Hierarchy was challenged
power - Urwick - means in our forces of normativism ✅ from - realised that pluralism had ceased to be the standard for the practice of PA
rockfeller family rigorous time a theory of separation government ,
analysis politics also. towards Old PA — gave significance to Administration rather than Public + emphasised principles and
Governance procedures rather than value and philosophy + focused on efficiency and economy rather than
effectiveness and service efficiency
Academic - by Willoughby Political Seeds for own
late 1920s - 30 confirmed scientists gave renaissance ,
NPA —-> the new philosophical that emerged out from MB1 is NPA
to 40 existence of PA as 2nd class new theme -
universities with principles citizenship publicness
Question- what was the new in PA ? and was that new really a new for PA ?
PA programmes
NPA - represents - post behaviouralism + post positivist + inter disciplinary and social equity
1903 -American Sub Paradigm 1939 - funding oriented
political science - Era of of American
association challenges society for PA According to Fredrickson , NPA is - less generic more public , less descriptive more prescriptive ,
founded (1938-50) more oriented towards changing reality , no less scientific , less neutral and more normative
+
LD White - 1st Humanistic 🔼 an attempt He referred to certain key features of NPA :
book devoted challenges - i) change and responsiveness
to loosen PA
to field , 1926 Mayo, Simon , ii) client centricity
from restraints
Bernard iii) structural changes
of Pol. Sci.
iv) emphasis on multidisciplinary perspective
His book , Broad basing
provided challenge - MB1 - Political science background participants + radical , revolutionary , confrontational and
intellectual Dahl - 1947 - 3 change oriented + was decidedly anti behavioural
base for next questions to PA
paradigm Robert Golembiewski identified anti goals or situations that NPA needs to abandon - Anti Positivism
+ Anti Technology + Anti Hierarchy + (Anti Bureaucratic + Anti Theoretical )
Farrel Heady -
CPA Limitations of NPA - failed to develop a clear intellectual framework + very difficult to identify the
Sub Paradigm newness of NPA + can not be successfully implemented without political will
2 - response to
challenges Thus , NPA philosophy rejected - value neutrality + dichotomy + machine model of scientific
(1947-50) efficiency.

Old - structural , focus on principles , E3 motive, status quoist

New - flexible , dynamic , change oriented and cliental oriented

Events which inspired 1968 conference -

I) honey report on higher education for public services
ii) philadelphia conference on theory and practice of PA
Honey report 1967 - disclosed the true state of health of PA as a discipline in US Public choice Approach
Report identified 4 problems I) insufficient resources at the disposal of the discipline
ii) intellectual argument over the status of the discipline (is it a discipline , science or profession?) - please note "public" here refers to the administrators and the choices they make while
iii)institutional weaknesses implementing and formulating policies
iv) gap between scholars of PA and practising administrators
- application of economic tools to study problems that traditionally are in province of political
- report made 11 recommendations science
- Establishment of a national commission on pubic service administration to exert broad - Central tenet of this approach —> human being is considered to be a utility maximiser
leadership in meeting the needs of government for educated manpower - to study the functioning of any public organisation one needs to look at the behaviour of people in
- A substantial fellowship programme for PG students organisation
- Internship programmes - individual gain-maximising
- Support for university personnel engaged in research on governmental and public affairs issues
Report induced many scholars to think deeply about its place and role in the society. - PCA denies the legitimacy of decision making at the group level

⬇ - consists of 2 related elements

i) Methodological Individualism - considers holistic approach misleading , Individual should be
unit of analysis , rejects viewing the society as an organism
Then came Philadelphia conference - organised by Department of Political science -
Presided over by James Charlesworth - Theme: Theory and Practice of PA
ii) Rational choice - people are assumed to be able to rank alternatives in order of preference and
The conference was divided into 2 ideological camps during course of discussion and deliberation.
choose the most preferred alternative
Young radical scholars - boycotted as they wanted revolution and overall change in the present
system of PA and
sometimes iii) politics as exchange
Seasoned moderate scholars - slow and gradual change
Tullock , Buchanan, Niskanen(1971)
Various concerns emerged out of the deliberations in conference -
- increase in functions and complexities calls for widening scope of PA - discipline should be
Main features - anti bureaucratic approach + institutional approach + economic logic to
made more flexible to develop it properly
- The discipline was considered with policy making and execution so dichotomy useless problems + democratic administration + consumer oriented organisational design
- PA should be more applied into nature , should focus more on social problems
- Discipline should promote social equity and values Components - Rent seeking theory + Capture theory (Stigler) + Self seeking behaviour theory
- Management should be flexible and should be innovative ( Downs)
- Administrators should be trained in professional schools
- Administrative ethics Solution by Niskanen and Ostrum - increase competition by increasing multiple institutions +
increase incentives for Bureaucracy
⬇ Ostrum(1974) —-> creating multiple decision centres

Gave broad philosophical framework Criticism - elitist biased + where is the choice + faulty assumptions ( utility maximiser ) +
New Right ideology + corporatism
Then 1968 - Minnowbrook Conference - led to NPA - 1971- NPA: The Minnowbrook perspective
+ PA in time of turbulence : Dwight Waldo Post Weberian Development
- PCT

-Critical Theory (Juger Habermas) - roots (Frankfurt School , Karl Marx , Knowledge in society is
not objective ) - Towards changing society as a whole ( esp Power structures ) - pleaded for
debureaucratisation , democratisation and free flow of communication

-Discourse theory - (Charles J. Fox and Hugh T. Miller) - proposes that in our daily activities , the
way we speak and write is shaped by the structures of power in our society and that because our
society is defined by struggle and conflict our discourses reflect and crate conflicts - Radical -
rejecting dichotomy subscribers to view that both policy and administration may better is graspable
as public energy field ( energy field encompasses various actors like public organisation + NGOs+
4th estate and Citizen groups etc)

-1980s - sound management practices in PA

-1992 - Reinventing government (Osborne and Gaebler)

-WB’s concept of governance

Observations - Traditional PA assumptions were frequently shattered by contemporary happenings

Tullock - his work “the politics of bureaucracy” published in 1965 - propounds that bureaucrats are Post modern / Post Weberian theories - a historical perspective would reveal that bureaucracies
primarily motivated by selfishness. Desire to enhance their selfish interests like promotion throughout the world have rarely responded effectively to environment challenges on their own
prospects, public interest is of peripheral concern. Bureaucrats are not subject to the influence of - mid to late 20th century , central message of post modernism states that there is no such thing as
competitions . an objective, single truth independent of humans capacity to interpret and explain , e.g. Not all
people would see stealing as -ve (anakentavada)
Vincent Ostrom - his work ‘Intellectual crisis in American Public administration’ 1974 has put a
question mark on the basic assumptions of the classical public administration such as - dichotomy , - Rejects the trilogy of - Wilsonial Political adm dichotomy + SM paradigm of Taylor + Ideal Type
single centre and hierarchy Bureaucracy of Weber
Instead of above concepts , he advocates that diverse decision making structures should be there.
Popular participation should be there. Post Modernism - is the belief that there is no absolute reality and reality is socially constructed
He proposed dispersed administrative authority. Along with its decentralised exercise closer to the - it prefers methodological Anarchy
people. - it rejects methodologies of modernism viz - essentialism , universalism , logical positivism ,
functionalism and reductionism

Development dynamics - anti - development thesis - AG Frank , Escobar etc

Weber —- > his theory of Bureaucracy was a response to the demand of industrial capitalist
economy , which required an efficient administration
He made an attempt at the rationalisation of Bureaucratic structures
- emphasised on control and discipline in working of organisation ( so did Taylor)
Disciplinary Orthodoxy of PA
- formalistic , still trying to build solid universalistic structures
- obsessed with efficiency, economy and effectiveness
- insensitive to democratic ideas
- culture bound ( and so the reductionist approach)
- practitioner oriented ( and so it was more reactionary and not addressing the real problems)

MB_2, 1988

Time - when changing role of state was recognised , more importance to privatisation , contracting
out and role of non state actors like NGOs recognised
+
increasing levels of poverty and unemployment

- Due to this changing scenario , new thrust areas such as Leadership, technology policy , legal
and economic perspectives also found place in the deliberations .

- Need - to establish linkages between the theory and practice of PA on one hand and between
scholars and administrators on the other

- realised that the external and internal environment in which PA work is so complex
- Public personnel systems were sought to be reformed

Themes - 11 themes emerged out of deliberations of MB2

1st 5 -> historical perspective
last 6 -> focus on current and future visions of theme

MB2's Intention —> to access impact of NPA on administration as discipline and practice + to
address issues not in MB1

New Issues - Leadership + constitutional perspective + technology + interdisciplinary influence +

futuristic issues + public personnel management

Context changed — > demand for less government and more governance + attempt to take best
out of both ( NPM - more instrumental + NPA- more value rational)

MB2 - created momentum towards consensus based decision + gave call for capable bureaucrats
( diff from MB1's anti bureaucratic anti goal) , it was more civil and more practical
 - Reengineering Model - fundamental rethinking and radical redesigning of process of
MB2 - set its vision onto near future , as it was realised that nature of PA changing quickly as organisation , process designed to suit organisation , flexibility , IT used , out sourcing , Work
activities are changing Study and O&M

Legacy carried forward in MB2 — social equity + democratic values + centrality of PA + ethics+ - OECD model - strengthening steering function , devolving authority + ensuring accountability and
accountability + emphasis on epistemological questions devolving authority + developing competition and improving human resource

Impact of NPM - on delivery of high quality + performance targets + increased operational

New Public management flexibility + receptiveness to competition + pluralism management support service

- term coined by Christopher hood in 1991 Criticism - debatable theoretical base + unclear functioning mechanism + debatable content +
economic logic is flawed + public private similarity challenged
- 1980s , challenges posed to administration to reduce reliance on Bureaucracy , curtail growth of
expenditure and seek new ways of delivering public services NPM rejects - Dichotomy , hierarchy , over centralisation of power, supremacy of rules in
administration , rationality in DM, inward looking orientation , impersonal nature of administration ,
⬇ ⬇ Why? rigidity in administrative setup
Because govts all over began to consume scare resources , Bureaucracy was considered
10 features of NPM - osborne and Gaebler (recommended Entrepreneurial government) -
Unwieldy , unresponsive , inefficient , ineffective and unable to withstand the competition
catalytic govt, community owned govt, competitive , mission drive, result oriented , customer driven
, entrepreneur , decentralised , market oriented govt
The NPM is also called ‘managerialism’ by Pollitt
‘Entrepreneurial government, by Osborne and Gaebler
‘Market based public administration’ by Lan and Rosenbloom
MB3_conference
‘Third way’ between public and private administration by U.A. Gunn
- dwelt at length on the issue of PA in dark times focussing on some questions for the future of the
Factors that gave rise to NPM
field
- ⏫ ⏫ govt expenditure and poor economic performance
- influence of neo liberalism ( favoured cutting back of welfare state , maximising individual liberty - Environment ( dark times) - 9/11, terrorism , globalisation , devolution , women issues , networked
and freedom encouraging market mechanisms) governance
- Impact of new right philosophy ( favoured markets as more efficient for allocation of resources) , +
proposed minimal role for state - neoliberal ideology , downsizing govt. , opening up more space for market , effects of
- Public choice approach globalisation + Non govt agencies
- Washington Consensus
Overall idea - focus on comparative aspects of administrative studies
NPM's Focus - restructuring govt operations along market lines
- distinguishing strategic policy formulation highlights - took serious note of contemporary international issues + overall impression was that
- emphasising performance evaluation and quality improvement "humanity is living in dark times " and can / Does PA has capacity to deal with these issues
- value for money for the customer
- stressing upon effective services provision W.B. Donham, 'If our civilization fails, it will be mainly because of breakdown of administration'.

Salient Features - there was a serious intellectual heart searching going on among the attendee scholars ,
- productivity , marketisation , service orientation , decentralisation , policy-adm dichotomy , examining and expanding the seminal ideas of great predecessors about governance in dark times
emphasis on managerial skills , adoption of private sector managerial practices by public sector ,
Use of IT, contracting out etc - carried forward themes of MB1 and MB2
- result oriented and objective focused
- prescriptive + descriptive + E3 New Themes
- New Managerialism - emphasis on comprehensive democratic performance management and Networked governance
- entrepreneurial government - globalised perspective to PA
- Reinventing Model (10 points approach) - a need for renaissance of comparative study
- context sensitivity strongly highlighted ( think global , act local)
1979 - Thatcherism in UK and Reaganism In USA - peer review process + interdisciplinary
1991 - concept of citizen's charter - future of Public Management , Public service and Public administration ( NPM, NPA, NPS)
New Zealand - towards corporatisation and privatisation , concept of Total Quality Management - to exchange knowledge of current and emerging public service challenges in a variety of settings
and cultures
- integrated use of economic, sociological and advanced conceptual models - to develop a network of scholars to support future collaboration and the exchange of ideas
Roots - PCT + Neo Taylorism = Managerialism 2.0
Challenges of liberalisation, privatisation and globalisation New Public Service

- Globalisation , the process through which an increasingly free flow of ideas, people, goods , - Denhardt and Denhardt - 2002 ,
services and capital leads to integration of economies and societies - often viewed as - NPS: Serving not steering - concept of co-governance - means government and the
irreversible force but not administration sharing the authority of decision making with one or more entities
- Globalisation represents a political choice in favour of international economic integration - it may - 7 features of NPS -
be challenged and even reversed , both has it’s consequences I) value people , not just productivity
- Choices do come with consequences II) Seek public interest
- Globalisation or internationalisation is not a new phenomenon III) Serve rather than steer
- Brettonwoods Institutions have important role in making globalisation work better , and they IV) Accountability isn’t simple
pushed for it, (Washington Consensus) V) Think strategically , act democratically
VI) Serve citizens , not customers
Washington Consensus - a set of economic policy recommendations for developing countries, VII)Value citizenship over entrepreneurship
that became popular during the 1980s
The term refers to the level of agreement between IMF, WB and US D/o Treasury on policy - emphasis the primary role of public servant is to help citizens , articulate them and meet their
recommendations. - all shared the neoliberal view - (favouring policies that promote free shared interests rather than to attempt to control and steer society.
market , deregulation and reduction in government spendings)
- Against - I) marginalisation of govt and its role + marginalisation of common citizens
Why? - D and D wanted to connect NPS with NPA but Nicholas Henry wanted to connect NPS
- 1980s - rising debt crisis in developing countries - British Economist John Williamson in 1989 , with NPM
first used the term Washington Consensus - D and D recommended - listening to public rather than telling + concept of co-governance and
- WB and IMF , promoted those key reforms throughout developing world by attaching policy concept of ethics
conditions , known as stabilisation and structural adjustment programs.
- Included - exchange rate policies so that country could be integrated into the global economy +
allow market forces to operate freely by removing subsidies and state controls and engage in a
program of privatisation.
- Late 1990s - increasing criticism - so the approached changed to poverty reduction and
need for participation by govt and civil society . (Post-Washington Consensus) + read
with India’s PMLA and FCRA

- This reinvention and reengineering - created engaged administration - led to 5 fold shift in PA
(Size + participation + structure + process and Activation)
- 2004 - Networked Governance by - Stephen Goldsmith and William Eggers , with new
challenges like - negotiating skills + consensus building + firmness + coordination + ensuring
public interest
- Farazmand - dominant control of globalising corporate elite

- Impact of globalisation - creates prerequisites for international competition + cost control +

productivity consciousness + adoption of international best practices .
(brought PA in a country under Public Scrutiny)
- Challenges - context sensitivity (monoculture) + challenge of cultural globalisation + challenge
of global accountability + (natives vs foreigners)
Governance

Governance and govt are interchangeably used , both denoting the exercise of authority in an
organisation, institution or state.
Authority = legitimate power (Weber distinguished between 3 kinds of authority)
Power = ability to influence the behaviour of others

Governance is a broader term than government. It refers to the various ways in which social life is
coordinated.
Govt can therefore be seen as one of the institutions in governance , it is possible to have
governance without govt(Heywood 1997)

Governance has many definitions -

Kaufman et al - “The traditions and institutions by which authority in a country is
exercised”

WB - “The way…power is exercised through a country’s economic , political and social

institutions”

UNDP - “The exercise of economic, political , and administrative authority ti manage

country’s affairs at all levels. It comprises mechanisms, processes and institutions through
which citizens and groups articulate their interests , exercise their legal rights , meet their
obligations and mediate their differences.

WB- promoting fairness, transparency and accountability.

OECD - a system by which business organisations are directed and controlled

Ultimate challenge - is to create a system of governance that promotes supports and sustains
human development - especially for the poorest and most marginal. And this requires innovation
and experimentation.
Good governance - is participatory , transparent and accountable + effective and equitable +
promotes rule of law

Administrative governance - is the system of policy implementation .

Governance has 3 legs - economic , political and administrative

5 aspects to sustainable human development = empowerment + cooperation + equity+

sustainability + security

To govern is to exercise power and authority over a territory, system or organisation.

In traditional parlance , govt rules and controls , but in governance, it orchestrates and manages.

Governance is the process whereby elements in society wield power and authority and influence
and enact policies and decisions concerning public life, economic and social development .
Concept is indeed a product of late 20th century when development became a
preoccupation of societies and states.

Governance in simple terms - “The process of decision making and the process by which decisions
are implemented or not implemented.
- undertaking of activities , management of resources , organisation of citizens , communities ,
local bodies , business organisations and the branches of the state.
- 1989 WB - 1st international organisation to use the term
- 1992 - WB popularised the phrase “Good Governance”
- OECD, UNDP etc also defined their version of Good Governance / Governance
Concept of Governance is used in several contexts
- Governance as the minimal state
- Governance as corporate governance
- Governance as NPM
Governance as good governance - Good governance means bringing about goodness in all the Chapter 2 - Administrative thought - scientific management and scientific management
3 sectors - government + civil society + corporate world movement , Classical Theory , Weber’s Bureaucratic model - its critique and post-weberian
developments , Dynamic administration (MP Follett) , Human relations school , Functions of
Characteristics of good Governance executive (Barnard) , Simon’s decision making theory , participative management (Likert, Argyris,
- interdependence between organisations , broader than government McGregor)
- Continuing interactions between network members
- Accountability and ethics in decision making and implementation Administrative thought can be understood as ideas , theories , recommendations and principles
- Transparency and predictability about organisations and their effectiveness I.e. these are thoughts pertaining to how to run and
- A long term view of the public interest operate or how to administer organisations.

One goal of good governance is to enable an organisation to do its work and fulfil its mission. Good Public organisations are expected to be effective and efficient - they should successfully achieve
governance results in organisational effectiveness. the societal goals assigned to them + efficiently use the resources entrusted to them.
Good governance is about both achieving desired results and achieving them in the right
way. HOW TO MAKE THESE ORGANISATIONS EFFECTIVE AND EFFICIENT?
Right way = largely shaped by cultural norms and values This is what administrative thought is about i.e how to form and operate effective organisations.
But there are certain characteristics of GG that are universal - 8 characteristics of GG by UNDP
- participatory Administrative thought is explanation about administration of organisations because administration
- Consensus oriented deals with organisation , thus administrative thought or theories are often synonymously termed as
- Accountable organisational thought and theories also.
- Transparent Administrative theory/thought has borrowed heavily from organisational thought and thought
- Responsive emerging in the field of management roughly around same time beginning 1890s
- Efficient and effective
- Equitable and inclusive The thoughts that have emerged over this evolutionary history of about 125 years have been
- Follows the rule of law broadly classified by experts into 3 major schools of thought.
These core characteristics are mutually reinforcing
Classical (1890s to 1930s) Neo classical (1930s to 1960s) Modern (1960 + )

Structural (procedural) + techno- Behavioural (socio-psycho Environmental (situational)

economic effective effectiveness )

Scientific management model + Human relation theory + Systems theory + contingency

General administration theory + Behavioural theory theory
Bureaucracy theory
Scientific management and scientific management movement Fredrick Taylor (1856-1915) Henry Fayol (1841 - 1925)
Fredrick Taylor (1856-1915) Henry Fayol (1841 - 1925)
His 4 principles of SM - development of true Criticism - neglected the structural aspect ,
- regarded as the father of Scientific management - father of ‘ Classical Theory ‘ science of work + scientific selection and treatment of organisations considered defective
- Term coined by Louis Brandies - Founder of ‘Management process school’ progressive development of workman + bringing Bernard and Simon - managerial organisations can
- 📖 -> ‘Administration Industriellet Generale’ together science of work and scientifically selected not be explained purely in terms of a set of
and trained men + division of work and principles about formal organisation structure -
- his main concern was the productivity in the - his intent was to initiate a theoretical analysis responsibility between management and workers participant behaviour departs from planned
industries and so his principles and thoughts were appropriate to a wide range of organisation behaviour
to increase the productivity - Made no distinction between public and private - Science , not rule of thumb From Human relations school - Fayol and Taylor
organisation - Harmony , not discord have mostly ignored the social- psychological or
- Cooperation , not individualism emotional needs of the employees
- believed that ‘ best management is a true science’ - 6 activities , 5 functions ( Managerial activity ) - 14 - Maximum output , not restricted
, applicable to all human activities principles - Mental revolution
- his passion for efficiency was boundless and his - Elements of Management - Planning , organising( - Functional foremanship ( Rejected the Principle
capacity for work phenomenal human and material) , commanding , of Unity of Command ) , he doubted the efficacy of
coordination and control the linear system + he specialised 9 qualities of a
good foreman
- concept of Soldiering + reasons for soldiering - Human organisation - indirectly talked about
- To avoid elimination due to surplus , non Human behaviour - Management by Exception + Exception
incentive wage system encourage low Principle ( in shop management , helped the
productivity , relying on rule of thumb managers to reward the exceptional high
performance workers )
- 19th Century - a new industrial climate in USA , - Attributes of Manager - Physical , Mental , Moral ,
demand was high, industries under stress and General Education , Special Knowledge , Criticism - Trade Unions , Managers , as
pressure Experience impersonal and underemphasised the human factor
- Also increase in industries -> gave rise to + as Theory X + Physiological Organisation theory
managerial class ( Simon and March)
Taylor’s Papers - A piece rate system (1895) - He states that Principles of administration are not - He himself recognised the potential for abuse of
- Shop management (1903) rigid , they must be capable of adaptation to his methods + His theory was based on Incentive
- The Art of cutting Metal (1906) various enterprises and settings schemes , left other factors of happiness
- The Principles of Scientificmanagement (1911)
Taylor's main thesis - that management rests upon
- Principles of Wage Administration - A piece Rate 14 principles - Division of Labour + Authority and clearly formulated laws and principles with universal
system was an outstanding contribution responsibility + Discipline + Unity of command + applicability in all organisation which entitles it to
- Paying men not positions + observation and Unity of direction + General interest > Individual the status of true science
analysis( work and time study) + differential rate interest + Remuneration + Equity + Centralisation +
Scalar chain + Order + initiative + esprit de corps +
stability of tenure - His principles overshadowed important structural
principles such as coordination , delegation and
- To him , the objective of management -> to pay Fayol - Training is a continuous process ( from decentralisation
high wages + increase industrial efficiency ( ICOR school to services )
less) + application of scientific methods (R and D) + Gang Plank - refers to the need for level jumping in Soldiering - workers working below their capacity -
standardisation of work + giving formal training to a hierarchical organisation reasons - if they become more productive , some of
workers + ensure friendly cooperation + ( less relevant in govt. organisation in which the line them would become surplus and would be
of authority are less clear than in private eliminated + non incentive wage systems
organisation ) encourage low productivity - employee higher pace
may become a standard as a result of which the
Defects he identified - > management had no - knowledge of administration rather than technical employees fear that their wages may come down.
understanding of responsibilities + lack of knowledge is needed at higher levels of an
standards + natural and systemic soldiering + no organisation
incentives + lack of studies + no understanding of
right man for right job

What he recognised -> the need for scientific - attempted to build management theory on basis
methods of selection + potential for further learning of observation of practical issues
+ coordinated system of shop management + - General theory of management applied at top
collaboration and cooperation between workers level
and management for application of scientific - Management not viewed from perspective of
methods + scientific fact finding as important tool workshop management
Scientific management model - F.W. Taylor Scientific management movement - In earlier days , Taylor called his concepts “Task system” or
“Task Management”.
- he was frustrated by the poor productivity of the organisations of his era and he wanted to do Taylor declared that “management is a true science resting upon clearly defined laws, rules and
something about it. principles”
- He was of the view that organisations lack a Systematic and scientific methodology which This wave of Taylorism gave the hope of solving the industrial problems through objective
would have guaranteed them cost reduction , economy and efficiency , sustainable prosperity , principles. - this became a sort of movement
productivity and granted success. The greatest success of the scientific movement was witnesses in Russia, where immediately
after Bolshevik revolution , Lenin welcomed Taylor’s concepts in 1917.
His core concern - was that organisations were not achieving the kind of prosperity and
productivity that they could have achieved and that they should have achieved. Classical theory
Organisations were being run off individualistic approach , relying on managers intuitions and trial
and error methods. The structuralists were mainly concerned about devising the proper structure of organisations and
giving some principles to divide the work efficiently so that economy and efficiency could be
His core objective - wanted to discover and establish a science of managing organisations better achieved.
i.e a systematic methodology and a body of knowledge using which organisations can be more
effective and efficient. Major premises - emphasis on structure of the organisation + believes that there are certain
Certain best methods and practices are there - we need to find them , study them , standardise principles of organisation which are universally valid + believes that the principles enunciated by
them - to increase E3 the classical theory are scientific in nature and a science of administration could be found based
Basically he wanted to replace ‘intuitive Individualism’ in administrating organisations by logical on such principles + economy and efficiency are virtues to be achieved by the organisations
and institutionalised scientism.

His ideas stated with the publication of 1895 paper ‘a piece rate system of wage payment’ and in
1911 - ‘principles of scientific management’

Scientific Management Model

Principles of scientific management Techniques of scientific management

- Philosophy - operative tools

- Prescriptions , what should organisations - and How to do.
do.

Principles of scientific management

- science , not rules of thumb
- Cooperation , not individualism
- Maximum output , not restrictive output
- Harmony , not discord
- Mental revolution = sum of all above 4 principles
Science , not rules of thumb
This principle is very soul of Taylor’s model - a systematic body of knowledge for operating
organisations , discovered via logical enquiry into the organisations work .
Logic + enquiry + analysis = Best methods ( body of knowledge)

He emphasised a shift away from non scientific intuitive individualism to institutionalised scientism
for operating the organisations. Observe —> discover —> standardise

Cooperation , not individualism - it is not good for an organisation to ride on one person’s
wisdom because then it is sailing or sinking with him. He wanted to minimise individual discretion
by using logically discovered and standardise methodologies.
Gulick (1892-1993) and Urwick (1891- 1983) Follett, Fayol and Urwick - do not make distinction between Public and Private organisation

“The Papers on the science of administration” - Mooney and Reiley - proposed 4 principles of organisation
1937 I. Coordinating principle
ii. Scalar principle
- efficiency and productivity was the main focus iii. The functional principle
- Infused those ideas and theories in public iv. Staff and line
organisation

Earlier theorists - Ideas + writings + researches ->

synthesised and integrated by G and U -> on
organisations , structures and executive functions
- both had rich experience in working of civil
service , military and industrial organisation

- Their theory is called ‘Administrative

Management Theory’

Co-edited the famous book - ‘Papers on the

science of administration’ published in 1937
Urwick’s other work - Committees on organisation
and Meaning of Rationalisation (1929)

Gulick gave 10 principles - Division of work or

specialisation , bases of departmental organisation ,
coordination through hierarchy , deliberate
coordination , coordination through committees,
decentralisation , unity of command, line and staff,
delegation , span of control
+
Coined ‘POSDCORB’

Urwick - 8 principles of administration

- principle of objective + principle of
correspondence + principle of responsibility +
scalar principle + principle of span of control +
principle of specialisation + principle of
coordination + principle of definition

They also gave - theory departmentalisation , unity

of direction , unity of command, principle of staff ,
principle of span of control
Weber’s Bureaucratic model - critique and post-Weberian Developments Dynamic Administration - MP Follett

He was a sociologist and interested in studying the concept of domination and how it is She evolved principles of human association and organisation in the context of the industry. Her
rationalised in society. According to him domination / authority is exerted through charisma , contribution followed from an admirable combination of intellectual power, personal observation
tradition and rationality. and broad human sympathy.
He believes in the inevitability of bureaucracy in a modern state. According to her conflicts are the result of ‘socially valuable differences’ . Conflict should not be
He gave theories of domination , leadership and legitimacy of authority. His concept of seen with any biases.
bureaucracy is very closely related to his ideas on the legitimacy of authority.
Bureaucracy according to him, consists of only appointed officials leaving out the elected ones.
Idea of Law of situation : Concept of power Functional Unity: Concept of
By bureaucracy he generally meant legal - rational bureaucracy only unless otherwise stated.
constructive depersonalising with rather than Authority of leadership
conflict orders power over function
Features - impersonal order + rules + sphere of competence + hierarchy + separation of personal
and public ends + written documents + monocratic type + merit-based recruitment 3 ways of dealing The order should Power over’ Authority must be Leadership does
conflict - not be given by represents coercive functional and not come from the
domination , one person to the power while ‘power functional authority official status to
Critiques of Weber’s Bureaucratic model compromise and other , rather with’ represents carries with it position but from
Robert Merton Philip Selznick Talcott Parsons Alvin Gouldner Bendix and Rudolf integration situation should the co-active responsibility. the attributes like
decide power initiative .
Trained incapacity Due to division of There was an The influence of It was not possible Follett favours This law gives Promotes better Authority Is derived Categorises 3 type
of Bureaucracy - as functions - sub unit inconsistency environmental to adhere to rules integration method importance to the understanding , from the function of leadership - of
dysfunctional goal internalisation between the claims factors on the without the for resolving the authority of the reduces conflicts and thus has little position , of
aspects of expertise and behaviour of influence of general conflict. situation rather and friction to do with the personality and of
claims of bureaucrats was social and political than individual hierarchy of function.
obedience based ignored by Weber values. position.
on discipline .
She gave some Orders should be But can be With experience She lists 3 imp
Believed that Weber’s Questioned the Rules abiding These so called steps in the integral to the achieved by and knowledge functions of leader
bureaucrats are bureaucracy internal nature may prove technical process of situation following the law of comes the ability to - coordination , the
more inclined to believes in idealism consistency of the dysfunctional in functionaries had integration. situation , accomplish the definition of
defend their own design of certain the tendency to integration and designated purpose and
interests bureaucracy. circumstances. dominate the functional unity function and thus anticipation.
whole system. the authority.
Bureaucrats La Palombara -
emphasise suggested that Alternative system of governance : Neighbourhood voluntary groups
formality over Russian or Chinese She did not make a distinction between private and public organisations.
interpersonal model may suit She mentioned that instead of the present system an alternative system of governance needed to
relationships developing be evolved in which a system of ‘network of neighbourhood voluntary groups’ should be
countries. established replacing the then administrative structures.
Means ends
reversal . The rules
become more
important than the
goals of the
organisation.
Human relations school - Elton Mayo and Others Rabble hypothesis v/s Herd Hypothesis

Human beings were the subjects of study of these researchers , and this give rise to the human Rabble(crowd) hypothesis - Given by David Ricardo- men are a horde of unorganised
relations approach to administrative theory. individuals actuated by pure self interest. Assumes that man is an isolated human motivated by
In 1930s as a response to the scientific management movement, the HR movement was born. only monetary incentives. Scientific management believes in this view of men.
According to psychologists, sociologists and anthropologists , people in classical theory, were Taylor believed when workmen are herded together in groups or gangs each man in the gang
treated as mere cogs in a machine. becomes far less efficient than in his individual capacity and the efficiency of the gang as a whole
1920s - Elton Mayo and others conducted the Hawthorne experiments and came out with some may fall to or go below that of worst man in the gang.
new paradigms in organisation theory.
Mayo replaced this hypothesis with Herd hypothesis - assumes mankind as herd - group of
Great Illumination Relay Assembly test Human attitudes and Social organisation people sharing a common bond or culture. Only monetary incentives do not motivate men but
experiment - 1924-27 room experiment sentiments experiment 1931-32 their social and psychological needs also play important role.
1927-32 1928-31
Classical theory Human relations theory
Study concluded that Research group Workers were given the Aka Bank Wiring
regardless of the level os concluded that since freedom to express their experiment Focuses on structure, order , formal organisation , Identified informal groups as a major explanation of
illumination , the both the groups were views on likes and Management noted that economic factors and rationality behaviour in the organisation
production in both subjected to wage dislikes of management groups made their own
groups increased. incentive scheme - norm of output Take an atomistic view and treats workers as a cog Considers workers essentially as social beings
in the machine
By this proof , the But still the production It was found that there Workers were not
illumination theory was of both the groups was no relationship allowed by the group as Authoritarian style of supervision Democratic style
abandoned. became constant between complaints and a whole to increase or
facts decrease the output Economic reward and physical coordination of work Socio-psychological rewards and group sanction
are regarded as motivators are considered as important motivators
Research group It means there is It seemed that the whole An informal pressure
concluded that it might something else that led experiment provided was exerted on the
be due the interest to greater output for them with a mechanism workers to do this
shown by the group in both the groups. to ‘let off steam’ which through a highly
the workers that the Thus Hypothesis 1 was made workers feel better integrated social
workers were producing not confirmed. structure within the
more or may be due to group.
incentive scheme

Mayo later concluded Then the girls were Mayo concluded that the The organisational
that , the girls behaved allowed to interact with “informal social behaviour has to be
as a ‘social unit’ and due each other and relationships” seen primarily in social
to the interest shown by supervisors. Workers developed in the course and psychological
the research team into were not feeling like of an experiment , which terms.
their working, the girls cogs in the machine. was mainly responsible Management has to
developed a sense of They were now feeling for the increased learn new skills.
participation in the responsible for their production.
study. work.

Hypothesis 1- individual The increased inter- He proposed - in order Mayo’s studies showed
wage payment incentive, personal relations led to to study behaviour - the that human factors are
increased the output the work satisfaction organisation should be determinants of
Hypothesis 2- changes among them. This looked at as ‘social organisational
in supervisory increased the production structure’ efficiency
techniques improved the level of the groups.
attitude and output

Conclusion
- there existed informal organisation in every formal organisation
- Feeling of recognition , belongingness and security is more important in determining the
productivity and morale of the worker
- Informal organisations are far more effective in exercising influence over the habits and
attitudes of the workers rather than the formal norms of the organisation
- Most effective style of supervision is that in which informal organisations of workers are
contacted by management before introducing any change (participative management)
Functions of Executive - Chester Bernard Simon’s decision making Theory
He is considered to be the father of the social system school. He introduced social concepts into
the analysis of managerial affairs. He was an executive as well as administrative theorist best His main contribution to the field of public administration has been to analyse how individuals
know for his work ‘The functions of the executive’ make decisions in bureaucratic organisations.
He was associated with Elton Mayo for a long time and his influence is evident in Bernard’s He always remained focused on the central problem of public administration I .e. decision making.
writings also. He propounded a rationalistic theory of administration on his ‘Administrative Behaviour’. His
He gave a new definition of the organisation “as a system of consciously coordinated activities of concept of bounded rationality is one of the most important concept in field of public
two or more persons”. Communication , contribution and coordination is must administration.
The organisation comes onto existence when -
- there’re people who are able to communicate with each other
- People are willing to contribute and Different stages in the Importance of values Concept of bounded Types of decisions
- People stand for accomplishing some common purpose decision making and facts in decision rationality according to Simon
Conditions show that organisation is a co-operative system. process making

Theory of contribution- Concept of Authority Concept of leadership Concept of informal Problem identification - Selection of course of As the capacity of the Programmed decisions
satisfaction equilibrium organisations organisational action taken to solve a human mind for - routine and repetitive in
environment to be problem - depends on formulating and solving nature - adhoc solutions
Survival of an Proposes acceptance as He defines leadership as He defines informal studied by executive to individual’s values while complex problems is are not needed rather a
organisation depends on the basis of Authority. A power of individuals to organisations as an identify the problem - effectiveness depends very small compared definite procedure to
the maintenance of member accepts inspire cooperative aggregate of personal this is called on information available with the size of the handle them.
equilibrium between the communication as decisions by creating contacts and intelligence activity about the alternative. problems.
contributions and the authoritative only when 4 faith interactions. Could exist
satisfaction of its conditions are without any collective Determination activities - With values and facts The key to simplification Non-programmed
participants. satisfied :- purpose. to identify all the are involved in decision of choice process is the decisions - to deal with
possible alternatives to making . A decision replacement of the goal new type of situations -
Individual participant 1. Communication is 5 qualities of a leader :- Facilitates formal solve the problem, contains empirical and of maximising with the organisation has to be
would remain in the understood vitality and endurance, organisations by - advantages and ethical elements . But goal of satisficing , of creative and innovative -
organisation only when 2. Consistent with decisiveness, maintaining disadvantages of various the factual part alone finding a course of special purpose
his inducements organisational persuasiveness, communication channels alternatives are leads to scientific action that is good decisions
outweighed his purpose responsibility , , cohesiveness , self analysed. This is called verification. enough .
contribution. intellectual capacity respect and choices design activity
Bernard rejected the 3. Compatible with the 1. According to him Functions of executive Appraisal of alternatives Rational decision Human behaviour falls Programmed and non
classical economic man personal interests of the Intellectuals tend to - maintenance of and selection of solution making - Simon between total rationality programmed decisions
concept and agreed with member be irresponsible , communication, - costs and gains in assumed that and non-rationality. An is a continuum with two
the human relationists 4. Member is mentally non decisive and non formulation of each are critically administrator has perfect administrator makes ends. In between lies
with regard to the and physically able to persuasive , that’s organisational purpose, analysed , then best knowledge of all the only ‘satisficing many types of decisions.
motivation of people in comply with the order why it’s in last in his securing essential possible alternative is possible courses of decisions’ He mentioned use of
the organisation. list of qualities services from individuals selected - this is called action etc required for computers in decision
choice activity taking decisions. making +new techniques
Sources if satisfaction - Bernard gave 7 His Theory of
4 types of specific principles of Motivation is based on Skills required - But administrator faces New science of adm- to
inducements and 4 communication following 4 elements:- creativity, judgement , lots of constraints. - more unprogrammed to
general incentives experience and time, resources, programmed decisions .
quantitative analysis cognitive etc
Specific inducements - Zone of Indifference - Willingness to cooperate
material(money) , zone of activity the + individual must
personal non material , orders falling within surrender his personal Science of administration - Herbert Simon advocated the development of a new science of
desirable physical which will be accepted preferences + given administration based on the theories of ‘logical positivism’. His ultimate aim is to evolve a pure
conditions , ideal by the individuals order must fall in ZoI + science of administration. Such a science is possible only after values have been separated from
benefactions such as unmindful of the nature inducement and facts. He maintained that for decision making to be scientific, public administration must apply
pride of workmanship of the authority. incentives determine analytical methods and must concentrate on the facts to the exclusion of value judgements.
etc width of ZoI

General Incentives - Inducements can widen

personal comfort in this zone , executive
communicating, should be conscious of
associated this zone and try to
attractiveness, widen as much as
adaptation of working possible.
conditions, enlarged
participation
Participative Management Chris Argyris

Is a process of associating employees of an organisation in the decisions that affect them, in the Was basically a psychologist who studied organisation from the standpoint of psychology.
organisational decision making and increasing autonomy and control over their work lives. He viewed the organisation as an open system and has analysed the interactions between the
Underlying belief - employees will become more motivated , they will have far more commitment organisation and the individual and between the organisation and the external environment.
to the organisation , they will become more productive and ultimately they will be more satisfied He proves that the personal development of members of the organisation is shaped by the culture
with their jobs. existing in the organisation.

Human personality and Concept of inter- Form of future T Group or sensitivity

Rensis Likert the organisation personal competence organisations training

In modern environment, pressure was much on employees and competitive environment had Human personality Due to lack of He seeks to develop He emphasises relevant
generated pressure for more productivity. Likert was mainly interested in knowing the causes of affects the organisation interpersonal ‘flat organisations’ training which may
this pressure. very much. competence there is abandoning the present sensitise towards their
lack of trust pyramidal organisations. work situation
Accord to Likert , there are 2 categories of supervisors : job centred and employee centred.
Job centred - aim at the performance of assigned tasks only, they ensure that all the prescribed Organisational He recommends - According to him. ,the T group method is
standards are adhered to and job is finished on time. management should showing openness to future organisations designed to prepare
- do not trust their employees provide a culture in ideas , accepting would be a mix of employees for effective
- Exercise close supervision due to lack of trust which the members of responsibility for one’s traditional and modern group functioning. It
- Do not give freedom to subordinates the organisation may ideas and feelings , forms. increases inter personal
- Pronounce punishments when mistakes occur develop their becoming innovative in Matrix organisation competence ,
- Subordinates feel a lot of pressure due to them personalities from a ideas and feelings, structure psychological energy
state of infancy to a assisting others in and self esteem of the
state of psychological accepting and employees.
Employee centred - believe in human aspects and team building
maturity. experiment with feelings
- trust their subordinates
- Subordinates feel motivated , allow subordinates to take initiatives Infant passivity - adult There are some basic For achieving Fusion - Immediate effect go the
- General rather than close supervision is exercised , assist subordinates in case of mistakes activity incongruencies organisational training was a marked
occur and do not exert pressure Dependence - between the needs of an redesigning, structure, decrease in suspicion
independence organisation and that of staffing and job and mistrust among
Erratic , shallow and the personal arrangements, managers leading to
Concept of supportive Linking-pin model Management systems System IV brief interests — to development of the managerial controls , openness of approach
relationships management style stable and deeper individual. rewards , penalties and between them.
interests etc Informal organisations incentive system.
Supervisor should be As an alternative to the System 1- exploitative Leadership - confidence overall from infancy to born.
supportive so that traditional hierarchical -authoritative and trust should be adult -Self actualisation
employees maintain a structure of traditional System 2- benevolent - employee centred
feel of personal worth , organisations. Every authoritative Motivational forces - The management Solution - Job He recommends Job He emphasised the
dignity and importance member of the System 3 - consultative economic rewards , strategy should be such enrichment , Enlargement instead of fusion process to
for organisation. organisation is a System 4 - participative participation and that it promotes the participative narrowing down of resolve this individual-
member of a higher level involvement in goal personal development management culture, functions. organisation needs
group and leader of a 2 and 3 are intermediate setting etc and psychological honest and frank conflict paradox.
lower level group. levels maturity of the members discussions
of the organisation.
Interaction - influence In this model , group He pleads for only Communication - down
system according to functions and processes gradual change from up and with peers ,
him , facilitates the become far more system 1 to system 4 friendly interaction
integration of important than the and not abrupt change goal setting -
organisational and individual roles. participation based
managerial processes Overall strategy and Both formal and informal
such as coordination, philosophy of the organisational forces
communication , DM etc management should support
change in accordance to System IV organisation
system 4 principles. = organic organisation
Douglas McGregor Administrative management approach - Fayol , Mooney and Reiley , Gulick and Urwick and
MP Follett
‘Human side of enterprise’ - he develops his 2 managerial approaches called Theory X and Theory
Y. - their theory was based on certain major premises
Basic argument - that the theoretical assumptions which the management holds about controlling I. Gave importance to structure of administration - so known as structuralists
its human resources determine the whole character of the enterprise. II. They assumed that there is universality of experience
III. They believed that the principles they have developed are scientifically valid
Theory X- carrot and stick Theory Y Theory Z by William G. Ouchi
theory

To avoid work is human nature People are not by nature opposed According to hum , productivity
People lack ambition and are lazy, to organisational goals, people and trust went hand in hand .
avoid taking responsibilities like to take responsibility, are not Emphasises in structuring the
People are self centred and lack lazy , they see fulfilment of their organisation around a powerful Q. What was the science to Wilson , that he was referring to?
commitment to organisational goals in organisational goals, bonding attachment between - a systematic and disciplined body of knowledge which he thought would be latest fruit of
goals people can be motivated workers and firms. science of politics
People dislike change why? - due to prevailing spoils system
- Dichotomy ? - he was well aware of the fact that PA was essentially political in nature
Due to above - they need to be Emphasis the cooperative Where everyone from top to - Less unbusinesslike - concentrating E3 , meant that administration can learn from private
persuaded, rewarded, punished endeavour of management and bottom plays one’s part in an industry also
and controlled to achieve employees . integrative unity of business.
organisational goals

External control is regarded as a Democratic , an invitation to Theory Z culture sees the

necessity to deal with immature innovation , self control, self worker’s life as a whole and not Wilson’s basic concerns - I. Structures of public organisations
and irresponsible employees direction , development of both , as a half machine from 9 to 5 ii. Administrative process
employee friendly culture etc iii. Interpersonal and inter group relationships
iv. Environment
Natural corollary - participative
approach to decision making

Dahl’s essay identified 3 problems -

I. Frequent impossibility of excluding normative considerations from problems of PA I.e. PA was
too normative
II. Inescapable fact that study of PA must be a study of certain aspects of human behaviour
Dahl - study of administration must embrace the whole psychological man
III. Advocated for CPA

What was the disciplinary orthodoxy of PA?

- formalistic
- Obsessed with E3 only
- Insensitive to democratic ideas
- Culture bound
- Practitioner oriented

Lacunae of TPA
- too formalistic
- Excessively oriented towards obsolete philosophical scientific base
- Obsessed with the instrumental values , economy and efficiency
- Insensitive to democratic
Specific ideas of practical value emerged from classical approach
I. Identification of organisation as a distinct function to be studied and practised
II. Introduced clear thinking about authority , responsibility , delegation etc
III. Propounded the idea that administration is a separate activity
IV. Played significant role in rationalising and stimulating production in the industrial organisation
V. It’s limitations were also useful , instigating further investigations in organisational behaviour
TPA NPM NPS Concepts associated with system are (systems approach ) -
I. Synergism - holism (Gestalt) and entropy
Theoretic foundation - Political Economic theory , positivist Democratic theory II. Homeostasis I.e. dynamic equilibrium
theory + Naive social science III. Cybernetic I.e. feedback mechanism
IV. Organism I.e. cohesiveness
Administrative rationality Technical and economic Strategic rationality V. Isomorphisms I.e similar properties
rationality VI. Equifinality I.e. similar results
Public interest Self interest Citizen interest

Rowing Steering Serving # Antidote to entropy - Information

Had 3 constructive legacies for

field of PA
I. Stronger emphasis on
performance motivated
administration
II. An international dialogue on
stronger comparative
dimension
III. Integrated use of economic ,
sociological and other
advanced conceptual models

Niskanen Vincent Ostrom

Prominent contributor to His work can be

PCT summarised as seeking
to understand the
decision making process
of individuals and
balance between group
and individual interests .

Budget maximising How institutions

model - the notion that transform and
the bureaucrats will transformed by
attempt to maximise heir individuals
agency’s budget and
authority

1971 book - Refined the concept of

Bureaucracy and polycentricity in PA
representative
government

Strongly challenged the He proposed at quasi

field of PA in 1971 market (competition )
between decision
centres would increase
flexibility and
responsiveness .

Democratic
administration( more
heterogenous , bottom
up structures) ✅
TPA - bureaucratic
administration
Theory / idea Contributor ADMINISTRATIVE BEHAVIOUR - process and techniques of decision making ,
Communication , Morale , Motivation theories : content, process and contemporary , Theories of
Capture Theory George Stigler The powerful interest leadership : Traditional and modern
group can influence the
enactment of laws and
regulations
DM - an activity that involves a choice of a future course of action from amongst many courses
Self seeking behaviour Anthony Downs available to possible in order to serve some goals.
theory
Simon’s DM - ✅
5 fold shift in PA Guthrie Size + participation + 7 step model of decision making - define the problem , identify the available alternatives , evaluate
structure + process and the alternatives, make the decision , implement the decision , evaluate the decision and refine/
activation improve the decision
Networked governance Stephen Goldsmith and With new challenges ,
Techniques of decision making
(2004) William Eggers new skills are needed
Six thinking hats Decision tree Brain storming Delphi Technique
Dominant control of Farazmand
globalising corporate Created by Edward De which allows to project Has the objective of In situations where
elite Bono , concept is that for the likely outcome of generating highly dynamic and shared
decision makers must each decision options creative, innovative and decisions are to be
NPS Denhardt and Denhardt
look at the decision from subsequently so as to even radical solutions taken without the
Reinventing model Osborne and Gaebler 10 point approach all point of views. facilitate a choice. through group discuss. dysfunctional
consequences of shared
Business process Thomas Daveport (1990) decision making
reengineering STH solution visualise Seeks to present a Used when Allows the benefits of
Cybernetic Theory Norbert Weiner and recognise every diagrammatic organisations want to collective wisdom
decision maker wearing representation of various create dynamic solutions without the evils
Viable Systems Theory Stafford Bear each of 6 hats so as to alternatives and their by using collective associated with it.
develop an all round sequential payoffs. wisdom
Concept of System C. West Chuchman perspective involving
Constraint facts and values.

Then - If model Lawerence and Lorsch White Hat - data Attempt is to build
available and use of info consensus about a
Concept of Trained Veblen’s + filling the expected complex topic without
Incapacity gaps + involves analysis the necessity for
of available data contributors to meet in
Notion of Dewey Red hat - uses intuition , person.
“occupational gut and emotions Panel of experts
psychosis” Black hat - look at formulates a set of
Professional Warnottee decision situation hypothesis about the
deformation pessimistically , future state of affairs
cautiously and regarding the issue.
defensively - possible These are distributed to
failures all the contributors.
Yellow hat - for
positivity and optimism
Green hat - creativity
Blue hat - process
control and is for main
decision maker - allows
to manage all other hats
Problems of decision making Theories of Motivation
- involvement in routine
- which problem to solve Is predisposition to act in a specific goal directed manner .
- Priority of decisions Need gives rise to a drive to achieve the goal. The extent of the drive depends on the perceived
- Bias etc level of satisfaction that can be achieved by the goal.

Theories of decision making Already done - Rational economic man + + McGregor + Chris Argyris

Rational theory Incremental theory Revised garbage can Other models Maslow’s theory of Herzberg’s Motivation - McClelland’s Theory of Vroom’s Expectancy
model hierarchy of needs Hygiene theory Needs theory - 1964

Decision making first Decision makers Kingdon - decision Participatory model , He identified 5 basic He concluded that Focuses on 3 needs- A person will be
isolates the problem considers only a few making is chaotic - the Elite Theory, Political human needs which people have 2 different nAch - need for motivated to do things
from the solution and alternatives for dealing decision making can be model , public choice constitute a hierarchy in categories of needs achievement based on offered reward
then identifies various with the problems. understood in the theory ascending order which are independent nPow- need for power if - (a) he believes in the
alternative solutions. context of 3 separate of each other and affect nAff- need for affiliation worth of that reward
streams their behaviour .

Cost and benefits of all These differ only These streams operate Physiological needs - People dissatisfied - due High achievers when , (B) believes in the
the alternatives are then marginally from the independently - problem food, air, water, sleep , to the environment in high degree of personal probability of getting
worked out and existing policies. The , political and policy shelter , sex etc which they working. responsibility is there the reward
compared with each change takes place streams steer the
other. Best alternative is slowly. decision making Safety needs - need for Satisfied - mainly due to Motivation = valence x
decided. process. shelter, clothing ,stable work itself - motivators expectancy x
environment , security , - Jon enrichment instrumentality
Several constraints exist It is a continuous pension
- talked earlier in process in which the
Simon’s decision making decision is generally by Social needs - need to Hygiene factors - rooted Valence = perceived
consensus. be liked by others to in the environment and worth of the offered
belong to a group or prevents dissatisfaction reward for which
organisation besides from the job. employee’s motivation is
their families sought

Esteem needs - need Hygiene factors - Expectancy - perceived

Communication for self esteem and company policy, working probability that the
recognition from others. conditions, supervision, activity will lead to the
Is the process by which people attempt to share meaning via the transmission of symbolic All the outward symbols salary, status , job actually getting that
messages. of recognition go with it security. reward
It involves people, involves shared meaning, is symbolic gesture , sounds, letters, numbers and Self actualisation - Motivation factors - Instrumentality -
words highest level need - fully work itself challenging , perception about the
realising ones potential achievement , increased effort-performance link ,
Shannon and Weaver attempted to describe the general process of communication for all the and becoming what one responsibility , growth degree effort needed for
situations. Their model included the basic elements viz communicator / sender + an encoder + is capable of becoming . and development required performance
a message + transmission + a decoder + a receiver + feedback and noise

Barriers - differing perceptions , language differences , noise , emotionality , inconsistent verbal

and non verbal communication , distrust etc
ERG theory Equity theory Re-enforcement theory Porter and lawler’s Regulatory Management
performance -
J. Stacy Adams 1963 B.F. Skinner 1971 satisfaction model Regulation - refers to controlling human or societal behaviour by rules and regulations .
1968
Genesis - PCA ( Should be ) + Capture Theory ( Could be )
Also a needs theory Addresses the Says that the behaviour Substantially complete
3 core categories - motivation process on of an individual is a model of motivation 1991 reforms - SEBI, NSE, CCI etc
Existence + relatedness basis of individual’s function of its likely which to a large extent is
+ growth (ERG) perception about equity consequences rather based on Vroom’s model 3 sets of justification for regulatory intervention
than his intrinsic needs i. prevention of market failures
ii. restriction or removal of anti competitive practices
Version of Maslow’s , it Fairness of reward that Individuals can not be From Vroom’s - Valence iii. promotion of public interest
does away with the he got relative to his- motivated based on their and expectancy
hierarchy and categories I) input internal cognitive events 3rd variable - equity/ WATER SECTOR - still a natural monopoly and completely controlled by Govt.
needs on basis of II) Education, I.e. needs and urges effort (Adam’s equity)
empirical findings/ qualification etc What motivates them is Motivation = Valence x Considerable information asymmetries exist in health and education sector
III) Perception about their external expectancy x effort/ - Public interest regulation can always be manipulated by lobbies to further their vested interests
comparative rewards environment. equity

Existence = 3 kinds of equity - Behaviour is not a According - the strength Regulation in India - 1. Economic regulation ( Electricity Act , Foreign trade Act etc )
physiological and safety I) my input and output function of needs. of motivation will 2. Public Interest ( BIS , 1986 , QCI , ) but positive impact is missing
Relatedness = social + II) My qualification and Behaviour = function of depend on the value of 3. Environment ( EPA, 1986)
other esteem output consequences of that the reward, the amount
Growth = self esteem + III) Others input and behaviour , the past of effort which is Problems - institutional imperfections , multiplicity of procedures , bureaucratic delays , lack of
self actualisation output and my input consequences or likely required in his business friendly regulation and policies
and output consequences perception to get that
Individuals can be reward and the POWER - recent changes , monitor them closely
If a person feel that there motivated by positive expectancy of getting Energy - the diversity and accessibility measures important
is no balance between reenforcement I.e that reward on Oil and Gas - PNGRB
the reward and input in praise for their successful completion of Coal - deregulation and auction process including HELP
comparison - performances and that activity. Telecom - recent changes + TRAI
demotivated negative reenforcement. Ports - new models like landlord model , sagarmala , port trusts
Airports - PPP , AAI DGCA , BCAS
Performance = Roads - NHAI , new modes like HAM , BOT , TOT etc
motivation x ability Railways - board and operator + regulator

Water supply and sanitation - Authority ????? M/o Jal Shakti initiatives
The Blake Mouton Grid
+ Reforms in education sector like HECI , RISE etc and similarly MCI ( medical )
Also known as Managerial Grid Model, is a framework used to determine a leader’s behavioural BEFORE REFORMS - important sectors were regulated by Line Ministries
style, identifying their concern for people versus their concern for task production.
Based on these 2 leadership types, management theorists Blake and Mouton identified 5 For good regulatory Governance - independence and accountability are properties
management styles: Impoverished management, Produce-or-perish management, middle of the
road management , country club management and Team management. Coordination between the regulator and line ministry is missing - too much interference

# Social Accountability

- public accountability through civic management ( methods and ways to be formed )

- In which it is ordinary citizens who participate directly or indirectly in extracting accountability
- Accountability is the obligation of power holders to account for their actions ( Good
Governance is itself accountability oriented )
- SA ( as it is the extraction process ) depends on the Performance which is
Performance = quality( standards should be there ) / expectations ( depends on many
developmental factors)
- SA has dual benefit - Intrinsic value (empowers the society ) + better service delivery
- Few Methods - Participatory planning, policy formulation , and Budgetary Analysis
Citizen Report cards (Delhi) , Citizen’s Charter , active social media engagements
- Challenge - Institutionalising social accountability practices in Governance ( Role of M/o
Cooperation )
- Accountability Management system should be identified and strengthened
Public Policy

Thomas R. Dye - whatever govt chooses to do or not to do

Richard Rose - PP is not a decision , it is a course or pattern of activity

Public policies are governmental decisions and are actually the result of activities which the govt
undertakes in pursuance of certain goals and objectives
⬇
Goal oriented - outcome of the government’s collective actions

PP is +ve - in sense that it depicts the concern of the government and involves its action to a
particular problem on which the policy is made - has sanction of law and authority

-vely - it involves a decision by governmental officials regarding not taking any action on a
particular issue - many theories has been put on this

PP are instruments which lead to achievement of goals - it is the broad direction or

perspective that the govt lays down in order to take decisions.
Policy consists of several decisions that are taken to fulfil its aim. ( Decisional theories)

Policy types - substantive , regulatory , distributive , redistributive etc

Cycle - formulation (most difficult and complex - here brain storming takes place) ——>
implementation (needs administrative development and integration , action part , purpose ,
communication, resources etc needs to be divulge ) ——-> policy education —> policy
monitoring —-> policy feedback ——> policy evaluation ——> policy analysis

Public Policy ( Characteristics)

- a very complex process

- a dynamic process ( continuing input of resources and motivation)
- comprises various components
- DM at every step ( lot of info gathering, processing and objectivity needed )
- lays down major guidelines
- directed at the future
- use of best possible means ( Administrative tools , Personnel administration )

Characteristics of PP in developing states

- Inheritance, legacy and working pattern of ruling elite shape features of policy making
- feedback system and mechanism is too weak
- policy strategy not consciously determined
- prioritisation of values and operational goals are well spelled out
- intense search for alternatives is made
- very difficult to ascertain the real output
- evaluation and redesigning very different/ not up to mark
- voters play insignificant role
- role of intellectuals is far short
- strong political executive than permanent executive
- shortages of manpower , skill , resources etc
- lack of data and proper knowledge
- communication policy weak
- average quality of making
- policy as a more political tool /
 PA Forms -
Policy Science
i. Prospective - involves the production and transformation of information before policy actions
- 1st formulated by Harold Lasswell in 1951 ("The Policy Orientation”) - father of ‘policy are initiated and implementation
science’
- oriented toward improvement of policy making and is characterised by a series of paradigms ii. Retrospective - after policy actions have been taken
different in important respects from contemporary normal sciences ( like today's digital paradigm
plays imp role in Policy cycle) iii. Integrated - more comprehensive form of analysis which combines the operating styles of
- based upon a fusion between behavioural science and analytical decision approaches practitioners concerned with production and transformation of info both before and after policy
- He wanted a continuous mediation between knowledge and action actions have been taken
- absorbs many elements from - Decision Theory , General Systems Theory , Organisation
Theory etc
Goals = societal benefits - societal costs
Mega Policies - master policies which deal with overall goals , basic assumptions , conceptual
framework , policy instruments , implementations strategies and similar interpolicy directives
Policy Sciences -
Meta Policies - policies on how to make policies , deals with characteristics of policy making
study the process of deciding or choosing and evaluating the relevance of available
system ( includes structure, process , personnel , inputs , outputs etc )
knowledge for the solution of problems. - implies that there is a need to enlarge the base of
the discipline
- policy sciences as explicitly normative DROR
- is a problem solving activity
- ventured to argue the need for bringing different social discipline under the umbrella of a
For Lasswell - Policy sciences were i. Contextual ii. multidisciplinary iii. problem oriented
He wants a continuous meditation between knowledge and action supra discipline called Policy Sciences

Policy Science must pay attention to - - He Categories the existing body of knowledge into 3 levels
i. clarification of goals i. control over environment ( as what prescribed by Wilson in response to Spoils system ) - ( is the
ii. description of trends most advanced )
iii. analysis of conditions ii. control over individual and society
iv. projection of future developments iii. control over control (Meta Control ) - this is the least developed - Drop - this should be the
v. invention , evaluation and selection of alternatives main focus

Dror - that control over control should become main focus - blid spots of human knowledge is the
main cause of sufferings

He holds that rapid advancements in area of Sci and Tech would trigger off tremendous changes
without supplying the necessary values
Policy Analysis
e.g. Sex determination technology and changing socio cultural values
- employs multiple methods of enquiry and argument to produce and transform policy relevant
information
DROR's LAW - ' while human capacities to shape the environment , society and human beings
- so can not be bounded into disciplinary boundaries are rapidly increasing , policy making capabilities to use those capacities remain the same ."
- partly descriptive aiming at the production of information about causes and consequences of - this suggests that society should be able to have a direction system
public policies Suggestions by him
- also normative since its practitioners seek as well as produce info. about the value of such - barriers between social science disciplines should be broken
consequences for past, present and future generations. - concept of value free science should be rejected
- Explanation of policy rather than prescription of policy - gulf between pure and applied science should be bring closer
- Technique to measure organisational effectiveness through the examination and evaluation of
the effect of a programme.

PA - produces knowledge ( evaluation and advocacy (what govt. ought to do ) ) - Answers - what
are the causes and consequences of policies , of what value are policies and what policies should
be adopted?

Chandler and Plano - PA is a systematic and data based alternative to intuitive judgements
about the effects of policy and policy options.
#important EASTON step 3 - collecting required info and data

- pleaded that the discipline of political science should be rooted in a new approach agency concerned decide the criteria and norms to be followed for the implementation purposes.
- acc to him , Political science in state of crisis as its usefulness is being questioned
- for long time PS concerned only with concepts of state and power ( limited knowledge Case study - New Education Policy 2020
about the fundamental distribution of power among basic social aggregates)
Elmore identified 4 main ingredients
He gave 3 orientations necessary to fill in the gaps - I) clearly specified tasks and objectives
i. basic concepts of PS needs to be reoriented in such a way that they are distinct from the other ii) a management plan (management theories and tools etc)
kinds iii) objective means of measuring subunit performance
ii. discipline must take into account the new data and fresh experience iv) a system of management controls and social sanctions
iii. the role of value judgements is realised in formulation of new theory
3 Different approaches to PI
He - we should start with common sense idea of political life i.e ' What is the nature of good life
' ? What policies can seek to achieve these goals ? 1. Top down approach - PRESSMAN and WILDAVSKY ( flavour of Taylorism and SMM - and
so many of the principles are adopted ) - makes clear distinction between policy formulation
Power struggle among individuals and groups - Easton attempts to redefine the discipline of (top) and policy implementation (subordinates)
political science based on a new approach - but requires following conditions
- clear and logical consistent objectives
His New Approach - Political Process - as authoritative allocation of values for society - implementation process structure
- committed and skilled manpower
New Orientation - 3 important components - support from legislative and pressure groups
i. Policy - through it certain things are denied to some people - adequate time and sufficient resources
ii. Authority - lies in people who accept the allocation of values - good coordination and communication
iii. Society

He pleaded for a strong moral foundation for the discipline of political science , discipline 2. Bottom up approach ( political env is required + administrative capacity ) , role of Street
must go into the question of value judgements. level bureaucracy is very important - begins their implementation strategy formation with the
target groups and services deliver because they find that target groups are actual implementers of
- policy science must go beyond the incrementalism and contemplate values which can result in policy.
more drastic revisions
3. Hybrid approach - combination of both the above
#important Policy Implementation - as the degree of control exercised over operations of In implementing a policy design , a great deal of attention has to be given to such aspects as
policy "Institutional arrangements " allocation of tasks to personnel , scheduling dependencies and
making decisions - ( use TECHNIQUES OF ADMINISTRATIVE IMPROVEMENT , PERSONNEL
- game of bargaining , persuasion and manoeuvring under conditions of uncertainty ADMINISTRATION , FINANCIAL ADMINISTRATION AND MANAGEMENT )

- involves interaction ( power dependency approach ) within multiplicity of organisation

(organisational exchange approach )
Successful implementation dependent on - inputs , outputs and outcomes
Nicholas Henry - "PI as the execution and delivery of public policies" implementation agents - bureaucracy , legislative bodies , judicial bodies , interest groups , NGOs,
PPP political structure etc
O'Toole - "PI is referred as the connection between the expression of governmental intention and
actual result "
Implementation studies - as in 1970s , after policy sciences , many policies were formulated in
- as the degree of control exercised over operations of policy different countries and most of them failed - so focus started on studying implementation
- involves developing and pursuing a strategy of organisation and management to ensure that the
policy process is completed with minimum delays , costs and problems

- is also a complex process , involves many steps

step 1 - study and understanding of policy statement/document
(unless implementors are well conversant with the details, goals, objectives and time
framework of the policy ; unless they address themselves to various dependent and
independent variables likely to interact and affect each other , the task of implementation
can not go ahead smoothly)
step 2 - breakdown it in several segments
 - cost overruns
- changing of policy problems
- new problem may arise after implementation

(In India - multiple policies are needed for achieving same objective - reasons!)

Policy Evaluation - whether programmes live upto their expectations - provides the ammunition
for future change and policy refinement

final phase - is broader and more strategic in scope , considers the merits and effectiveness of
policy
An activity designed to judge the outcome of govt policy
strategic process of determining the merit , value and worth of someone or something
- a means of determining and appropriateness , effectiveness and efficiency of govt. policies and
contributing to policy improvement and innovation

Anderson conceptualised that

- PE is a functional activity that occurs throughout the policy process and not simply in last stage
alone

Problems in PE
- uncertainty over policy goals
- inadequate resources
- limited policy areas
- conflicting goals
- irresponsive people
1856 - 1915 - Taylor Financial Administration - Monetary and fiscal policies ; Public borrowings and public debt;
1841 - 1915 - Fayol Budget - types and forms ; Budgetary process ; Financial accountability ; Accounts and Audit
1864 - 1920 - Weber
1892 - 1993 - Gulck Financial Management - Budget as a political instrument , Parliamentary control of public
1891 - 1983 - Urwick expenditure ; Role of finance Ministry in monetary and fiscal areas; Accounting techniques, Audit ;
1868 - 1933 - MP Follett Role of controller general of accounts and comptroller and Auditor general of India
1880 - 1949 - Elton Mayo
1866 - 1961 - Chester Bernard Financial administration - implies administration relating to the management of collecting
revenues and expenditure for running the public administration.
1916 - 2001 - Simon
Refers to certain rules and methods relating to revenue and expenditure
1908 - 1970 - Maslow
1906 - 1964 - Douglas McGregor
1903 - 1981 - Rensis Likert
1923 - 2000 - Fredrick Herzberg
Kautilya’s Arthashastra Analytical Aspect
- Arthashastra = Political realism + Ethics / values in administration (normative)
. Was professor at Taxila and later became PM of Mauryan empire
. Concerned about the politics of Nandas in Patliputra Political realism Values in administration
. Arthashastra on basis of his experiences , mostly about politics and administration - statecraft
and talked a lot about foreign affairs Larger fish , eats smaller fish Emphasised on the concept of good governance
. ‘ The science of wealth’ - from then until now the functioning of economic systems are dealt by
political system/players. Ends are more important than means In welfare of his people , lies the happiness of King
- Environment - war , instability , chaos - Structure - monarchy + King at centre + CoM to
advise him and No Fundamental rights Eliminate political rivals Depersonalising authority
- With this political system (structural analysis) —-> he wrote Arthashastra
- Total 15 chapters - 4/15 on administration ( politics + International relations + economy + Only permanent interests Functions of the king v/s Bernard’s functions of
growth and development ) executive
- He talked more about higher level personnel and qualitative aspect of personnel is treated in
Enemies should always be closer to you Economic system - surplus budget
minutest detail.
- Highly practical approach + problem solving manner + Art and science Expand the boundaries of kingdom Code of conduct for CoM and king
- There was no explicit theory of social contract
- 3 important parts are : - Machinery of govt + principles of adm + personnel Send agents to other countries

Arthashastra
Pillars of state Nature of State Personnel Financial Duty of King

Swamin Dictatorship Methods of Appointment of

selection ✅ higher level officials
( pleasure)

Mantri Welfare Capacity building Had absolute

powers

Janapada Democratic Loyalty +

(limited) commitment +
recruitment +
promotion +
transfers etc

Kosh Yogakshema Training , eligibility

conditions and pay
and salaries

Mitra Resources efficient Tests -

utilisation Dharmopadha +
Arthopada +
Kanopadha +
Bhayopadha

Danda 30 departments on
basis of D/o Work
and specialisation

Principles
- Division of work
- Hierarchy (defines the relationship between superior and subordinate)
- Unity of command
- Centralisation
- Authority and accountability
- Discipline and coordination
- Supervision and control
- Value based administration
- Written communication - codification of laws
Thinker/ Author Book /Text Year Thinker/ Author Book /Text Year

Frank J. Goodnow Politics and Administration 1900 Riggs The ecology of Public administration 1961

LD White Introduction to the study of Public Administration 1926 Riggs Prismatic society revisited 1973

Willoughby Principles of Public Administration 1927 George Gant Development administration: concepts, goals and methods 1979

MP Follett Creative Experience 1924 Waldo Public administration in a time of revolutions

Fayol Industrial and General Management 1916 Osborne and Gaebler Reinventing government 1992

Gulick and Urwick Papers on the science of Administration 1937 Christopher Hood A public management for all seasons 1991

Taylor The Principles of scientific management 1911 Vincent Ostrum The intellectual crisis in American Public administration

Barnard The functions of the executive 1938

FM Marx Elements of Public Administration 1946

Peter Drucker The Practice of Management

Simon The proverbs of administration 1946

Simon Administrative Behaviour 1947

Robert Dahl The science of PA: 3 problems 1947

Dwight Waldo The Administrative State 1948

John Gaus Trends in the theory of Public administration 1950

Simon Organisations 1958

Cyert and March A behavioural theory of the firm 1963

March Handbook of organisation 1965

Simon Fundamental Research in administration 1953

Simon The new science of management decision 1960

Simon Shape of Automation 1960

Simon Science of the artificial 1969

Simon Human problem solving 1972

Waldo Public administration in a time of turbulence 1971

Mooney and Reiley Onward Industry 1931

Mooney and Reiley Principles of organisation 1939

Mayo Hawthorne studies 1924-32

JD Thompson Organisations in Action 1967

Charles T. Goodsell The new comparative administration - A proposal 1981

Riggs Administration in developing countries : The theory of 1964

Prismatic society
The meaning and scope of Public administration was defined for the first time in Hamilton’s ‘The
Federalist’
Charles Jean Bounin’s Principles de Administration Publique (1812) in French is considered
as the first separate treatise on the subject of public administration.

In USA, following factors have contributed to the study of PA as a separate subject in the 20th
century :
- Scientific management movement of Taylor
- 19th century industrialisation which gave rise to large scale organisations.
- The emergence of the concept of welfare state replacing the police state
- Governmental reforms due to negative consequences of ‘Spoils system’
CAG - established in 1960 , in 1962 - financial support from FORD foundation
American society for public administration - 1939

Ecological approach in the study of Public administration was initiated by JM Gaus, Robert Dahl,
Roscoe Martin, FW Riggs

Agraria -Industria model typology - 1956

Transitia - 1957

Paul H. Appleby, Josia Stamp, Simon and Peter Drucker made a distinction between public and
private administration.