arrangement of

This American recruitment

almost every
citizen.
dominated the personnel
Gartield by a system
avable
provokedthe
'Spost
0 which
US Congress
System
of
James disgruntled
to passthe firstcivil service legislation called
President
he assassinatba
Pendleton, fct,in 1583'toputan endtothe spoils system and in i1s place in
The Service
recruitment. The Civil
competilive
CommissIon was
examination
basis of
ie holding recruitment
mert as
In India,
I883to test meritby
patronage ruled the
quality
civil
civil
of
service
service recruitmen considerably
until 1854 when Macuu.
Commutee result the
Asa recommended merit as the basis of selection. France had alte

in the
tirst quarter of the
constitutes
nineteenth
another lan century.
landmark in
\mpr
Theoy
lhe evolulion
e
adopted menr' 1930's as much
as it found its role considerab,
Depression of theadministration in emerged around this time.
stateRoosevelt's
American pubic positive
enlargedbold
initiated
concept of theFranklin D.
Theprogrammes administration To couNle
depression. of economicintervention, collectively known as h
the
cconomic
take up these
newer tasks,the
recruitment
programmes for
federal bureaucracy as a
result
(193 -45
New Deal To were stepped up. The array of functions
and publir
country because ndealhe
activitie e
s,xpa
administration new
a wholly the
large-scale employer in
considerably to take up As
the only best talent in of \act
sector, the
state was virtually
opportunities inthe private the
employment government. The newly inducted personnel were
of
motivated and the
gravitated
the
intobrought distinction tothe work they were doing. The image oi
government as a result improved. Forthe first time. the United States sa
staleoncteiedty
Administrative State.
emergence of the
the Administration
Origin of Indian
India were not wholly dissimilar though the
Developments in
motivations
were different. Asort of mini-Administrative State began taking shape in India
Government of India Act, 1919 even though
underthe logic ofthe
1919, implemented
The act of government,
responsible
in 1921, made a
unconsctioowaruslyds.
planned beginning
and introduced dyarchy in the provinces. UUnder such
an arrangement, department engaged in nation building activities were transferred
Indian leaders for self government. This was the first conscious
tomove
the elected
of the colonial rulers in India to entrust tasks of governance to people's
and the sectors related to agriculture,
education,
representatives,
cooperatives,
animal husbandry, irrigation, public health etc. these are the ingredients of what
development administration..Both politicians and
later on came to be known as experiene
(a section of) the burcaucrats received their first planned
developmental activities which stood them in good stead in years to come
This
experience constituted an asset of no small significance to future India. A mi
Administrative State in India was emerging The embryo of what is now called
positive state or welfare state was born under the dyarchy of the
of India Act, 1919. The role of Public Administration became much more
Government
embracing. What is really significance is not the magnitude of the move but the
fact that all this was taking place under the colonial rule in India though primary
goal lay in maintenance of law and order in the country.
 Publlc
The tunctions of
countriesleading in
Administ
government beganraion Meaning, Nature and Scope
in all directions in all
employed
lo
ever-growinstateg public expanding The total number of
persons millons the federal,
in the and theemployment.
local governments in the USA was
overl0
functionaries. 1980s. The Central
Great Britain, in India has 48 lakh public
servants.
a much government
smaller country, has 7lakh government
Public Administration iS as old
as our ancient civilisation. But as an
independent discipline Public
Administrationis barelyclaim130foryearsa long
Public Adnministration as an academic disciplinccannot history
old whereas
asan aspect of governmental activity. public administration has been co-existing
with every political system as the action part of government for the fulfiiment
of the objectives set by the political decision-makers. From earliest times
administrative system used Public Administration in executing government
functions. Public Administration has gained immense importance since the
emergence of administrative state. Under the impact of science and technology
and the concept of welfare state, the negative concept of the state has been
replaced by the positive concept of the state. Now there is hardly any aspeet
of life which does not come under the control or Supervision of the state. Its
functions born in the capitalist and the socialist states have become manifold
Itpromoting.
is an instrument not only for protection and restraining but also fostering and
In the words of L. D. White, *Its nature, contents and scope all
go to make it the heart of problem of modern government..! The Public
Administration has come to occupy the great importance in modern society
Ainistration is essential to maintain peace, harmony and stability in the society
Bhambhri rightly said, With the breakdown of the machinery of Public
Administration, the civilisation shall itself go to pieces Public administration
stabilises social structure, social organisation and soxial relationship All this
clearly reflects that Public Administralion is imperat1ve for all socicties developed
LINC
or developing, dictatorial or democratic When Public Administration is so
important in our daily life its study is worth undertaking There seems to be an
inevitable growing trend in the activities of modetn Public Administration Thus,
Public Administration is becoming a key power in modernising the states
ADMINISTRATION :MEANING &DEFINITIONS
Before discussing the mcaning of Public Administration, it is necessary to
first understand the meaning of the term Administratton Administration is aco
operating human effort towards achieving some common goals. Thus every
group activity involves administration whether in a family, factory, hospital,
university, or in a government department. Whenever two men co-operate
together to do a thing that neither could have done alone, the rudiments of
administration appear
The word Administration is a noun from the English verb administer which
has been derived fron the Latin words 'Administrare 'ad +'ministrare which
means to serve'. In simple words it means the management of afairs, or
'looking after the people. To administer is to 'manage', direct' or 'serve'
I White L D Iniroduction o the Shady of Pbic Administration, 198, p 16
 allcollectiveeffort..be it public
is12rocesspermneating
otherwise.
fmutstratioo
A mutary, large-sale orcharacteristic of all
K Admutistration, being a speciality of modernage
in enterprises
peculiarity or
consciouspuposes, is nota quite early in the
beperceived administrative feat. growth of slone. lnder
completely cwllhiassarulimo iyhre
could wel So was
sglimnerags wzs an astonishing
Administration today, however, he
of
Bukdingthe pyramids
Empure Public been
of the Romanfeatures its purposes have
complreeoxirietyn,te,andi ov
dosungusshung variety and
enormously increasedin number, ii S
fustoes have
from the trial-and-error stage into an orderly
grown
with an orgaized.
has ever-inKTeasing body of knowledge and experience,"1"
mcthodology
organised human activities.
Administraton, thus, permeates allorganization and direction
as "the
Presthus define Adm1nistrationdesired of
discipng
material resources to achieve
ends." human
Administration, according to John A.Vieg, "is determined action
pursuit of conscious purpose. It is the sy stematic ordering of
calculated use of resources, aimed at makingthose things happen affai
aken in
rs and the
which
hoPU
that fail t0 We
to happen and simultaneously preventing developments wanlwith
labour
our intentions It is the marshalling of available
cost in
and materials
energy, time
square
in order to
m
yain that which is desired at the lowest and money"
According o L. D. White, administration is the direction,
and control of many persons to achieve some purpose or objective
Herbert A. Simon points out, "In its broadest sense,
coordination he
pro
be defined as the activities of groups cooperating to accomplish
common administration WO
According to E. A. Nigro, "Administration is the organisation Cor
men and materials to accomplish a purpose." and use of
Thus, it is clear that
attainment of aspecific goal.Administration
is collective activity directed
It is a rational action to maximize one's towards sh. Adi
means. But every collective activity cannot be called goal by rationall.
administration. In fact two
Sofeatures--organisation
and management are special features of
we can say that
administration is only that type of collective administrative: activity. hC
rational organisation and management of men and activity which involves of
material.
PUBLIC ADMINISTRATION :
As stressed at the outset, MEANING &DEFINITIONS Ca
ca
field of Public Administration is a segment of
to some, admithe usenistofrattheion'.wordBut on its meaning, there are differences. the wider ha
to the
admi nistrati ve activities
Public before
of the Administration restricts itsAccording
coverage be
organi zatio
to them, Publicn which covers government- government
within itself all the people living in being the only
.gf human and Administration is defined as the the state.
According S
material resourCEs ofutfit the organization and management
governmept. But government, as we all know, objectives Jaid down by the thb
legislature, executive, and judiciary. Is Public consists of three branches
three branches
governmentis ?Admi
Viewsnisontratthis
ion
that make up the to study all
divided. To some, Public these to

Handbook of Public Administration identified with the entire rangeaiso0l

1 A question are b

Administration, op. cit., p. 4.

 7
Nature and Scope
Administration: Meaning,
Public
branches : whereas others restrict
three
covered under theoperations branch only.
gOvernment activities of the executive'administration
Administration) to the Willoughby:"Theterm
(Le., Public quote W.F. its broadest sense, it
here to In
It may beappropriate political science in two senses.governmental affairs. It is,
in
may be employed involved
denotes the work with actual conduct
of
of legislative branch of
administration administration
thus, quite proper to speak of the affairs, or the
of the
its government, the administration of justice orjudicial
administration of affairs
i, of the
of the executive power as well as the conduct of the affairs
administrative branch of government, or the operations of the
govermment generally. In its narrowest sense, it denotes the
administrative branch only." said,
D. White defines Public Administration in the broader terms. He
L. their purpose
"Public Administration consists of all those operations having for
the fulfilment or enforcement of public policy."
Luther Gulick, on the other hand. views Public Administration as
ambracing the executive branch of government only. "Public Administration," he
with
th writes, "is that part of the science of administration which has to do
emment and, thus, concerns itself primarilywith the executive branch, where
work of government is done though there are obvicusly administrative
problemsalso in connection with the legislative and judicial branches."
ACcording to John M. Piffner, "Public Administration consists of doing the

f
uerk of government, whether it be running X-ray machine in a health laboratory or
coming money in the
mint»
Woodrow Wilson, the father of Public Administration defines, "Public
particular
LING Maxo
Administration is detailed and systematic application of law. Every
application of law is an act of administration."
the What' and the
Dimock views that "Public Administration is concerned with a.
the technical knowledge of
<how' of gOvernment. The What' is the subject matter, is the techniques
feld which enables an administrator to perform his tasks. The 'how' programmes are
of management and the principles according to which c0-operative form the synthesis
carried through to success. Each is indispensable, together they
called the Public Administration."
Administration
It is clear from the above definitions that the term Public
View has been taken
has been used in two senses-wider and narrow. The Wider
Narrow View has
up by White, Wilson, Willoughby, Pfiffner, Hamilton while
been taken up by Gulick, Simon and others.
We in India cannot accept the restricted definition of Public Administration.
So much is the mutual dependence and so intensive is the interaction between
the executive, the legislature and the judiciary that Public Administration must
be defined in the broader terms. It covers all the three branches of the
Govermment-the executive, the legislature and the judiciary. Necessarily, it is
to be studied as part of the larger political processes in a country. There is
besides,thatsector of activities which though not governmental inthe strictsense
is nevertheless supported, either wholly or partially, by the public exchequer.
Educational institutions, cooperatives,etc., fall in this category and allof them
8 Public Administration Public
are part of Public
Administration. The scope of
mind one may say that
Public Administration s, th
of
this in
wIdeenough. Keeping public affairs and their direction.
lo the organizationNATUREOFPUBLICADMINISTRATION
administration.
Administration
analysethe nature of we find
When we come to conveniently b
confronted with two broad
views, which may
writers, called the O u rse w e
act,Adivmititienecsihsntircaatli,ohen\ tega
managerial view, Accordingto some
View and the
activities--manual, clerical,
managerial,
total of all the
sum
pursuit of an objective in view. Thus, the of el
undertaken in sweeper as well as the
boy, the foreman, the
government and the
gatekeeper, the
managers in an enterprise
constitute
administration, Thçsi
the lntegral View, and acceptance of this view would have us count the s e c r ela r ie ser anA
lowest to the highest,working
of allpersons, ranging fromL.theD.White seems to share this in an

Accoerndteinrpgis
of administration,
ashim,partPubic
view.
Administration "consists of all those operations having for
purpose the fulfilment or enforcement of public policy. This definition
many fields -the delivery
a multitude gf particular operations in treaty. the award of of a
sale of public land, the negotiation of a let er,
an injured
apark,
workman, the quarantine of a sick child, the removal of
manufacturing plutonium, and lËçensing the use of atomic energy" from compensation liter
other view regards the work of only those persons engaged in performing
administration.
managerial functionsinan enterprise as constituting The
concerning management unite, control and
coordinate all
undertaken in the enterprise, thereby makingthe whole complex of
aoperctaivtiiotinses
those
like an integrated effort. This is the Managerial View of administratactioivn.ities look
Smithburg and Thompson subscribe to this view. They observe.
"administration' is also used in a narrower sense to refer to those term wTheSimon,
of
behaviours that are common to many kinds cooperating groups ; and
that do
patterns
not depend upon either the specific goals towards which they are
or the specific technological methods used to reachthese goals.
writes, "Administration has to do with getting things done, with the Gulick cooperating
Luther
ment of defined objectives."? accomplish-
These two views manifest differences. Acceptance of the integral vieu
makes us count the entire personnel of an undertaking as engaged in adminis.
tration. Furthermore, administration would differ from one sphere (e.g., educa.
tion) to another sphere (e.g.. public works), depending upon the subject matter.
The managerial view, on the other hand, holds that administration is the
organization and use of men and materials in the pursuit of a given objective.
It is a specialized calling of the manager whose function is to organize, and to
use men and materials to realize a given objective. In fine, Administration is to
be identified with the managerial techniques common as they are to all the fields
| White, L.D., op. cit. p. l.
2 Sinon, Smithburg & Thompson, Public Administration, New York. Alfred A
Knopf, 1950. p. 4.
3 Gulick, Luther, Science Values and Public Administration, in Luther Gulick &
LUrwick (Eds.).p
Papers on the Science of Administration, New York. Institute of Public Administration, 1937.
191.
 Public Administration : Meaning, Nature and Scope y
LutherG
ofactivities, Gulick sums up these techniques in the word 'POSDCORB',
leterof which describes one technique, namely, Planning, Organizing,
each Directing, Coordinating, Reporting and Budgeting.
SIalting,
may here be pointed out that neither of these views can be summarily
It Exact meaning of administration would depend on the context in which
ejected.
is
lerm
used. Dimock, Dimock and Koeing sum up by observing that "as
the Public Administration examines every aspect of government's efforts to
sstrdy the
discharge
laws and to give effect to public policy; as a procesSs, it is all the
takenbetween the time an enforcement agency assumes jurisdiction and
steps brickis
nlaced (but includes also that agency's participation, if any, in
thelast
thelaation of the programme in the first place); and as a vocation, it is
organisingand directing the activities of others in a public agency.
SCOPE OF PUBLIC ADMINISTRATION
ta definition of Public Administration, we comne across wo viewpo1nts,
takingthe broader view and the other taking the narrow view, Inthe broader
study of Public Administration includes the entire complex of all the
the
sense,branches of the government._In the narrow sense, its study inçludes only
threemanagerialpart of the executive branch of government work. The differences
ihe
opinion centreround whether admjnistration is mere. executionor application
of Over
orisa factor in the formulation of policy also. This controversy
ofpolicy Public Administration is unfortunate. During the last more than 130
the scopeof
years we
bave witnessed the growth of Public Administraion as a growing
discipline. it is bound to grow despite prejudiced reservations of narrow
disciplinaries, even from the field of social sciences, In the present developing
make Public Administration as a scientific growing discipline.
age we have to
Forthis our
approach to the study of Public Administratien-has 0-be modern,
scientificand broad, Thus, Public Administration embraces the entire area and
the activities of the government. We in India do not and cannot accept the
all
restricted view of PublicAdministrationJ So much is the mutual dependence and
so intensive is the interaction between the three branches of government that
publicadministration must be defined in the broader terms.[Necessarily, it is to
studied as a part of the larger political processes in a country.(The scope
Dahlic Administration is, thus, wide enough. Writers have defined its the scope
in different terms.
There are broadly two views about the scope of Public Administration, These
are :
I. The POSDCORB View.
2. The Subject-matter View.
1. The POSDCORB View of Public Administration
This is a narrow view of public administration and takes into account only
the executive branch of the government. In other words, this view corresponds
with the managerial view. Henri Fayol, L. Urwick, Fercey M. Queen and
Luther Gulick are supporters of this view.
Dimock, Marshall E., Dimock, Gladys 0., & Koeing, L. W. Public Administration, New York.
1958, p. 12.
 the maincategories of

adamàmininssrraaliooy
Nayol
vnmand,Co-ordinationand Control.
Ment
mw saysth¡tthe study of
Naii 4 4NN
P.M. Queen Views of .
MNNn wkaMsaN
Methods".
only
Gulick
known but hehas dealt reg
with
,tNratiMarenot the word
standPOSDCORB' ,
w
NAN
te
inmniqucs for . each
NNv hese letters
u
NY Onganising, S =Staffing, D= th

nIA
*-anein, 0 and B =Budgeting
Reting
N
-
w tdothey
mean ?
lNiuwnorans working out in broad outline the things
accomplish the
Directing, Co re

Nth o be adoptedto purpose set for

NN establishment of the
(heis meansthe sub-divided, arranged, defined formal structurethe
theeugh whhthe
work is
the detined objective.
Saging means the whole personnel, bringing in and training t
conditions of work.
and eco rOInNnatierdise f
P
maintenance of favourable
Directing means making decisions and issuing orders and
enterprise.
thus guiding the
Co-ordinatng means the all important duty of
inter-relating the
various divisions, sections and other parts of the organization.
wotk
Reporting means keeping those informed to whom executive is
about what is going on.
Budgeting means all that goes with budgeting in the
accounting and control. Tesponsbe
form of fiscal ti
POSDCORB activities are common to all organizations.
problems of management which are found in the They
different agencies
p lan ing, are th

COmmon
of the peculiar nature of the work they do. But POSDCORB
consideration only the common techniques of administration
study of the 'subject-matter' with which an agency is
view takes
and ignores the. regardles
aproach is techniguè-ortented rather thansubject-oriented. concer
Lewis ned. Gulick
"Public Administration is an instrument withtwo blades like a Meriam Says,
One blade is knowledge of ike subject-matter in which these pair of
applied. Both blades must be good to make an effective tool." teMarichniaqnuesscis ors.
the existence of such athing as a general administrator, because each denies
ate
general administration is specially conditioned byits peculiar case of
proper scope of public administration should include both the
POSDCORB and subject-matter.
subject-matter.
viewS,
The
i.e.,
2. The Subject-matter View of Public Administration
The subject-matter view of Public Administration has come
in reaction to the POSDCORB view. This view into reckoning
comprises line functions or
services meant for the people. They include law and order, defence,
security, public health, etc. These services have specialised techniques ofsocial
their
oWn, which are not covered by the POSDCORB activities.
Moreover, even the
techniques of management are modified by the subject-matter of the services in
which they have to operate. Consequently, organization and even the
techniques
 Publkc Administratton AMeaning. Nature and Scope
different Therefore emphasisis noon
sordnation in rwo different services are that there
-matter cannot be negiected In short, it can be said
Administration. Botlh
subyeot
views of the scope of Putblic
either of these
rcject
che truth
the whole into (wo heads :
represent
divided the scope of Public Administration
Pafaerhas
Principles of Public Administration,
()SphereofPublic Administration organization,
2) first category. Public Administration covers the public
Ia
the
personnel; method and procedure, material and supply: sphere of
managementof category, the
responsibility. In the second
and dministrative
Administration includes the central and state government,its regional and
words of Prof.
linaxe
public corporations. Thus, in the
Publkauthoritics and also
local "PPublic Administration, in
sum, includes the totality of governiment
ol
POMMer,encompassing cxpertise of endless variety and the techniques the
given to
activity, and management whereby order and social purpose are
g
organizalion numbers."
vast account of
eftortso above, Walker has given a more comprehensive
Besides the Administration. He has divided it into two parts :
of Public
scope
administrativetheory and applied
administration.
the func-
Administrative Theory includes the study of structure, organization, out the
methods of all types of public authority engaged in carrying all
and
tions, of all levels, i.e., national, regional, local, etc. It also studies
administration over
external control of parliament and the cabinet
problemsconnected with administration, etc.
administration, internal
the and judicial control over
Applied
difficult to give a comprehensive statement as to what the
t is new and fast growing field of public
Administrationshould include because of the
administration. He has made an attempt to classify the main
form of applied
administrationonthe basis of ten principal functions, namely,
political, legislative,
tinancial, defensive,
educational, social, economic, foreign, imperial, and local.
Today,the.
administrator is concerned not only with developing the administrative
techniques but it has also
become important for him to study the ecological and
aspects of Public Administration. It may be said that the scope of Public
human
Administration vaaries with people's expectations of what they should get from
government. Acentury ago they expected that government should
only maintain
positive welfare,
and order. Now people expect the government to promote
guarantee social security, from birth to death, guarantee
good peaceful living
BThe activities of Public Administration will be wide in scope. Prof. White
of administration are the
supportsthis view : "In their broader context, the ends
ultimate objects of the state itself, the maintenance of peace and order, the
progressive achievement of justice, the instruction of the young, protection
acainst disease and insecurity, the adjustment and compromise of conflicting
groups and interests in short, the attainment of good life."
Thus, it, is obvious that though Public Administration studies the adminis
trative branch of the executive organ, yet its scope is very wide and it varies
with the people's conception of good life.
 12 Public Administration ADMINISTRATION
PHILOSOPHY OF PUBLIC
Today, there is hardly any one in the society who does not have 10 dea
with Public Administration. Never inthe human history have so many \ooked
cilizen looks to
Administration for so much. When nearly every coherent it f
Public
ISvarious
doubly necessary
purposes, Public that
it isasessential it is imbued
Administration
with a
philosophy.
has today come to determine Th
vigour and quality of even non-governmentalinstitutions inthe society. Ordway

E. Dimock's APhilosoplhy of
Tead in the Forewordto Marshall
would the
emphasizes
this need for the formulation of a philosophy of
admiAdnismtrinaitsitoran,tion
fo
"lead to amuch more widespread professional self-conciousness and
convinced sense of direction and social justification among executives than is
now characteristic.'" Indeed, Marshall E. Dimock is so much impressed with
the need for it that he confidently asserts that "administration is now So Vas
administration comes close to belng a philoson
life,"2thatHeapoints
anof area out theoffollowing tests of what a.viable philosophy need to
philosophy

do and accomplish
entering into
1. It must bring intosharp focus all elements
2. action.
All elements entering into administrative action should, then, be
administrative
into a system of properand
unified
3. integrated and brought
Where possible relationship.
and developed, it should be borne in mind that they are
similiar
valid guides to future actions under substantially conditions,.
fuei
4. Administration is concerned with both ends and means. Askillful
of the two is the best of administrative excellence.
5. Apphilosophy of administration should be conceived in such a way that,
if it describes reality and provides reliable tool to the executive :
constitutes a grand total which exceeds the sum of its parts.
6. Agood administrative system should communicate spirit and a rounded
feeling of widespread satisfaction.
Having spoken of these tests of a viable philosophy of administration, we
now summarize some of the more important approaches to the study of Public
Administration.
DISTINCTION BETWEEN ADMINISTRATION AND MANAGEMENT
It is relevant here to make a distinction between Administration and
Management in view of a common tendency to use these two terms interchange.
ably. There are two broad views on this issue : According to one vie,
Administration is a wider term encompassing activities like the spelling out of
policies and objectives, establishment of suitable organizational structure to
conduct and promote an organized task, providing necessary resources for the
realization of the objective, etc. Administration is "a variety of component
elements which together in action produce the result of getting done a defined
task with which a group of people is charged. Administration, primarily, is the
direction of people in association to achieve some goal temporarily shared. It is
I D. Marshall E., APhilosophy of Administration, 1958, p. VIl-VIl.
2 lbid., p. 2.
 Public Administration Meaniny, Naure und Scope )
process of integratiny hunan efforts so that a desired result is
inchusive
Theroleof Management, on the 155
other hand. rests confined within
of policy, organizational structure and resources. Manazernent
o b t a i n"e d
!

the
fiamewort

concerned with those opcrations leading an oryanization towards

he
withinthishroader framework set up by administration.
prinarily

Thereisconsiderable controversy regarding the use of the tem'Managemernt ader

Adminislration
I
infact the terminological conflict between the two was raised in
isess
unin
Shekdon. He empha_iscd that
whereas
Oliver managemcntjs an
cxccutive
adninistraive' s is a decision making
editierent
hu approaches function. I he controversy has resulted
LAdministrationisabbove Management.
2Addministration
is a part of Management.
Administrationand Management are Synonymous.
Administrationis Above Management
According
tothisschoollof thought Administration and Management have different
finctions.oliverSheldon is believed to have initiated the distinction between
administration,
and management.
observes, Administration is the function in industry concerned in the
determinationofthe corporate policy. Management is the function in industry
concernedinthe execution of policy, within the limits set up by administration."
Organization is the formation of an
managementof an effective executive, administration of an effective
continues :
efective machine,
direction.
Sheldon
the
determines
Administration organisation, Management uses it. Administration
goal: Management strives towards it.
the its achievement of the ends Organization
is the machine
managementin determined by
represented in theadministration."2
defines
of view
of this school of thought can be diagram given
The
below:

ADMINISTRATION Top Management

Thinking Funcion

MANAGEMENT
Lower Management
Doing Funcion
Eie, 1.1. Administration is above Management
Administration is a part of Management
2 Accordingto thisschool of thought management is generic term for the total
process of executive control in industry or commerce. According to E.L.F. Bearch,
"ManagementisasocialI processsentaiting responsibility of an enterprisein the fulfilment
ofa givenpurposeor task."Bearch defines. Administration as "that part of management
which is concerned with installation and carrying of activities regulated and checked
against plans. " Management responsibility involve(i))the installation and maintenance
1Tead, Ordway, The Art of Administration, 1951, p. 2.
: Quted in Albert Lepawasky, Administration, pp. 35-36.
 |5
and Scope
Public Administration. Meaning, Nature
It is very
In today's business world, the two terms are used synonymously. demarcate
and to
difficult to indicate clearly the difference between the two terms, Management. In fact,the
what functions actually belong to Administration and what to the term'management"
term'administration' is used in non-businessSorganisations while
is used in business organisations.
activities. Generally,the
of of
The basic point of controversy lies in the COverage
co-ordination are the functions
perfomed
functions covering formulations of policies and their
'Administration'. Functions
'Management'.
top-level management which is usually termed as term
covered by the by administration
by managers at middle-level and lower-level are as performed the difference is
Management at all levels performs the same functions
and controlling, but
i.e., planning, organising, staffing, co-ordinating,
in varied degree. PUBLICADMINISTRATION
APPROACHESTO STUDY OFFI Administration, and
study of Public may be to
approaches to the One way
There are several categorized from many
angles.
Approach. The
former
what is more, they can be Empirical should be, while the
Normative Approach and
divide them into
what Public Administration
of actualadminis-
approach concentrates on and analysis
its eyes on descriptions the value-fact standpoint.
empirical approach setsobvious, this is a division from of study the
objects philosophical
situations. As is the
trative approaches is based upon the
Another classification of emphasize. From this angle we getmethod approach,
individual scholar seeks to the historical approach, the case approach, etc.
approach,
approach, the legal structural approach, the behavioural
the institutional and
1. Philosophical Approach oldest approach to the Public
philosophical Approach is perhaps theAn example of this approach is
The social sciences. examples being
Administration as of all otherMahabharata, other well-known
Shanti Parva of the Two Treatise of CivilGovernment
found in ' Leviathan, Locke's all
within its purview the
Plato's Republic, Hobbes ranging, taking
philosophicalapproach is wide out and enunciate
etc. The administrative activities. Its goal is to find
aspects of underlying these activities.
principles, or "ideals',
2. Legal Approach
of Public Administration came after the
the study approach
The legal approach tosense is the oldest, systematically formulated
Administration
philosophical one, but in a European tradition of rooting Public
and traces its ancestry to
the
this approach to the study of Public
adopted
in law. Those who have and concentrate on the legally prescribed structure
Administration as part of law approach was formulated at a period
authorities. This
andorganization of public State were narrowly limited and simple in nature.
when the functions of the
3. Historical Approach
Administration seeks to
The Historical Approach to the study of Publicadministration of the past
recreate a segment of history; it studies the public the information in a
within particular time spans, organizing and interpreting
chronological order. The historical approach naturally commands a powerful
attraction in a society having a rich past and can be very valuable in identifying
l6 Public Admin'stration
the uniqueness of the administrative
institutions can be best understood in thesystem. Indeed,
light of their past,many
by adopting the historical approach. We, for
Indian National Congress, founded as early as
historical development.
instance,
1885, cannot adm inislrat
which is possible
withoutunderstand ive eachapproach
real
testis

studying theits
the
whatisn
4. The Case Method Approach and,
giveanimpre
The case method approach to the study of Public isa pathetic

be popularized
place in
in the 'thirties. A case is a narration of
what
administration, keeping intact the context and all Adminhasistratactionuallbegan
y to
adequatelytc
istheproduc
Ably handled, the case method approach is a sensitive
to reconstruct the
administrative realities, and give to students relevant dimensitaokenns
one, seeking as
a it does
a bearingor

administrative process. As Dwight Waldo says, The

motivated by a commitment to the objectives and methodscaseof flavour
of the
approach
has
the social been
As Pul
human tact
to be sure, but it has been shaped also by a It is, firstly.
concerns of the humanities and by a practicalconsiderable sensitivity to scie nces, called the s

pedagogy onal
tra di ti
interest
research." The case method has come to stay in Publicin as the 'admin
cannot perhaps become the dominant approach. Since this method against Administration,
but it Publi
age, when
becoming a bit too popular in India, it is necessary to be of
aware of its study is responsibi
In the first place, reliving another person's life
through case studies
succeeds. Secondly, the most significant part of a decision
one cannot relive the agony and anxiety, and put himself in
is the acony neverlimitations. inevitably
procedure
position. another indiýidil however,
these for
5. Institutional-Structural Approach and oper
While scholars trained in law have adopted the legal approach to the studv aptly des
of Public Administration, others were content to describe the organization and impulsic
functions of public organizations. It must be emphasized here that the description Th
and tw
of organizations was formal, i.e., in terms of what they were designed to be organiz
like. The greatest limitations of this approach is that one cannot get a true picture membe
of how an organization functions in practice. warde
6. Behavioural Approach work,
humar
The growing discontentment against the institutional-structural super
approach crystallized into what has come to be called the behavioural approach for t
to the study of Public Administration. This approach, which dates back to the relati
forties, focuses on the actual behaviour of persons and groups in organizations.
Herbert A. Simon and Robert A. Dahl have been among the pioneers of this
ficati
esser
approach to the study of Public Administration. with
the preferable approach
One may, at this stage, raise a question : Which isneeds
men

to be discussed as
to the study of Public Administration ? This question
sup
overtones. Scholarship is a quest
it has today acquired considerable emotional faces, or facets, which may not bet
after truth, and truth, like a diamond, has many
No single approach may be Th
perhaps be adequately studied by any one approach.
answer the call of scholarship. Puble
me
surficient in itself and adequate enough to from a mix of approaches. It muss ad
Administration can, thus, stand to benefit relationstiy ac
remembered that these approaches do not stand in dichotomous other. While
be complementary to each 1
with each other. On the contrary, they are
Social Sciences, Vol. 13, p. 154.
1 International Encyclopaedia of the
 I8 Public Administration
equality. One cannot do betterthan quote Jawaharlal
according friendly
ontermsofto whom, "Administration like most things is, in the final analysis, a
deal with human beings,
not with some statistical \Nehru
human problem--to
administrator may think in abstract of the people he deals with, come to
conclusions which are justifiable apparently, but which miss the human element
data. .The
After all whatever department you deal with, it is ultimately a problem of human
beings, and the moment we are driven away from reality....A dministration is
meant to achieve something, and not to exist in some kind of an ivory tower,
following certain rules of procedure and Narcissus-like, looking on itself with
complete satisfaction. The test after all is the human beings and their welfare."!
Since eighties governments in all countries are showing growing concem
for the citizens. Public Administration must be responsive, must be citizen-
friendly. Citizens' charters are becoming increasingly common in Great Britain.
They improve responsiveness and performance in the public services. They
establish minimum standards of public service, reflecting the six principles of
social rights-fair treatment, entitlement, participation, openness, public account-
India, the New Delhi Municipal Council and the Delhi
ability and cooperation. In announced Citizens' Charters promising time-bound
Development Authority have
delivery systems.
ROLE OF PUBLIC ADMINISTRATION IN DEVELOPED AND
DEVELOPING COUNTRIES
being subject to local
Aquestion is often raised about Public Administrationanalysis assumes that
of
conditioning, ecological, culture-bound, etc. This ofway
locally sensitive factors and
public administration necessarily bears the impacttraits. In the same broad category
exhibits in its functioning the influence of such and the developing
developed
falls the question of public administration in the
countries.
is generally viewed as playing
In developed countries, Public Administration developed
very and is widespread,
a limited role. The infrastructure in them is This sets a limit to the role
and management.
and is under private ownership countries the prerequisites
and functions of public administration. In developinginadequately developed with
and basic amenities of good life are either absent orand manage the infrastructure
the result that the state is called upon to create
institutions because there
itself. The state, in other words, must set up educational
besides, the private
are no educational facilities available in the society and
enterprise is not strong enough to take up the responsibility.
developing
It follows from the above that Public Administration's role in a
country it is much more
country is much more quantitative while in a developed
qualitative. In a country like India a critically important thing is to first open
uP
a school manned by one teacher. It is only when the schools have been set
countries the concern
that the question of quality arises. But in the developed
of public administration is basically of a qualitative nature. Adminis-
There are other differences also. In a developed country, Public of
tration finds itself increasingly under a compulsion to justify itself in terms
New Delhi.
I His address at the inaugural mecting of the Indian Institute of Public Administration,
in March 1954. Vide The Indian Journal of Publc Administration, Vol. I, No. 1, p.
 Public Administration : Meaning, Nature and Scope 19
enterprise. The general belief is that private enterprise is
private such but expand where efficient and
the notonly stay as necessary, and many
Curentybeing operated by Public Administration should even be handed activities
over
mUst

lo
privatesector.
Indeveloping countries Public Administration occupies the central place in
theschemeof ordering social activities but not so in the developed countries.
Thisisbecause in countries like India so many look to Public Administrators
foreventheir basic living. The state in a developing country still has unfilled
Spaces.Theresult is that in a developing country every activity carries potential
signiticance, and it is the administrator who defines the job and not otherwise.
This may be illustrated. In the Government of InVia or for that matter in any
onganizationcertain posts are considered to be more
this may not be completely denied. Yet, an apparentlyprestigious
than
important but others, and
not a very
prestigious organization like the Ministry of Civil Supplies offers enormous
opportunities of good work which carries meaning even to the common man.
The waxing and waning potentialities of activities are much more in developing
countries. In a sense, each activity which Public Administration in adeveloping
ciety undertakes, entails enormous Scope for expansion, however ordinary it
may apparently look. Take, for instance, public distribution system being handled
by public administration in India. An administrative head of such a
may take a limited view of his task and may contine programme
the programme to, say,
wheat and rice. But a public servant of a public-spirited nature may ersily
the scope of public distribution programme and may expand
include many more items
of daily consumption.
Yet, the fact is that Public Administration of a
prepared and ill-motivated for the tasks lying before it. developing society is ill
into three broad categories--primitive, Human societies may fall
ifnot all countries in the world are either developing. and developed. Today, most
hs used his own unique terminology for developed or developing. Fred W. Riggs
prismatic and diffracted. Each society has these categories of societies : fused.
its own administrative
and public administration of a prismatic, that is sub-system,
Sala Model. Public Administration of a
developing society is known as
aa slow-moving. It largely works for developing country is inefficient, corrupt
institutions in the society are weak anditselfcannot and not for the people as other
Dtpotism characterise the personnel
is
control it. Favouritism and
practices in the developing countries. There
extravagance in
administration. These are some of the marks of a 'sala' model.
WOODROW WILSON'S VISION OF
Woodrow HisWilson (1856-1924) is acclaimed ADMINISTRATION
iVIAdmi
nS'Pionolintiicsaltration,
as the father of Public
senminal
Science QQuarterly'essayin 1887 runningStudy
of Public
entitled The of Administration published
into 26 printed pages spells his
bservations : Administration. In that article, Wilson made the following
1.
Functions ofof the state inboththe thepast were limited and simple which had
the effect
Administration. eclipsing visibility and importance of Public
 5
EVOLUTION OFPUBLICADMINISTRATION
AS A DISCIPLINE

: First, it
The term 'Public Administration' stands for two implicationsenforcement
like
fors to the activity of administering the affairs of government, political science,
lu and order. Second, it refers to a field of study, like that of
and so on. Public Administration as a discipline is not a very
history, sociology, Woodrow Wilson's articles entitled
d one. In fact, it was born in 1887 when may.
Science Quarterly. It
ha Study of Administrationwas published in Political
the social sciences.
thus. be regarded as among the newest of
our civilisation.
However, Public Administration, as a practice, is as old asAdministration
used Public in
Erom the earliest times our monarchial system
and Egyptians demonstrated
PNeCuting government functions. Both Sumerians pyramids. The history of Indian
their administrative skills in the construction of
book writtenin the fourth
administrative systems begins from Vedic period. The on Public Administration.
century B.C., Kautilya's Arthashastra is the oldest textand teaching of Confucious
The Ramayana and Mahabharata and the maxims the organization and working
thought contain many profound observations aboutancient west and Machiaveli's
Politics in
of governmental system. Aristotle's about the organization
The Prince in medieval west contain significant observations
and functioning of government.
The systematic study of Public Administration began World in the 18th century.
War I. Modern
Official academic status to the discipline did not come until of public
Public Administration was first taught as a part of the training course thought
officials on probation in Prussia. The subject was largely compliedthen and
which included
in adescriptive manner by professors of cameral sciences, governmental affairs.
all knowledge considered necessary for the management of
The comeralists_showed interest in the study of Public Administration. They
stressed the descriptive studies of structures, principles and procedures of public
administration. George Zincke was the most distinguished scholar of the
comeralist group.
Towards the end of 18th century the movement for governmental reform
gathered momentum especially in the United States of America where intellectual
efforts were systematically expanded for the gradual development of an exclusive
LING
Maxo

A4 Public Administration
Inthee
the structure and functioning of public 10
ake
activ
body of knowledge on the reform movement that the
this backgroundwasof born
administration. It
againstAdministration
ofwasPublic cmerging discipline
in the U. S. A. The meaning and scope of Scieace
Ass
defined for the first time in Hamilton''s
Public Administration was The RAhing
of!

Jean Bounin's principles de

(No. 72). Charles Administration) (1812) in French Admi
is nistrat
consideredion Federalis1
Publique
spaallsts
f

(Principle ofPublic of Public Administration. But the

as the first nizedasan
treause on the subject
its zenith when Viven systematic study
separate Administrati
of Public Administration reached on
(two volumes)published his work
andits stud
in 1859 with the title Administration Studies In 1926
However, Public Administration as aseparate subject of study
and developed in the U.S.A. The scientific management movement advocated by
F. W. Taylor, the 19th century industrialisation which gave rise to large scale
originated Wbite'sInir
retlasthe
lis
ands
organizations, the emergence of the concept of welfare state and the
for government reform due to negative consequences movement
of spoils-system have
cortributed to the growth of public administration. Itmay.
pusionatebe
Yet Public Administration has passed through several phases of developmen
One can broadly divide the history of Public Administration into the following pratice inva
six periods Period Il (1
1. First Stage (1887-1926)
2. Second Stage (1927-1937)
Politics-Administration Dichotomy.
Principles of Administration.
The Sec
theme the Pra
3. Third Stage (1938-1947) Era of Challenge. therr are cert
4. Fourth Stage (1948-1970) Crisis of ldentity. to discover I
5. Fifth Stage (1971-1990) Public Policy Perspective.
This pe
6. Sixth Sage (199l onwards) : Rowing to Steering.
Period I (1887-1926) : Politics-Administration Dichotomy indicates, \e
Public Administration as a discipline was born in the United States, and that publication o
country continues to enrich it even today. Woodrow Wilson, who was teaching Parker Folle
political science at the Princeton University, and who later became the President Management.
of U.S.A., is regarded as the father of the discipline of Public Administration. teached its cl
In an article entitled, The Study of Administration, published in 1887, Wilson on the Scien
emphasized the need for a separate study of Public Administration. He made a significant, f
distinction between politics and administration, and argued : "It is getting to be Urwick obse
harder to run a constitution than to frame one."! Wilson's name is associated which can be
with twonotable features. He is regarded as the founder of the discipline of Public
Administration. Secondly, he is the originator of Politics-Administration Dichotomy should gover
can be stud
which came to dominate the scene for quite some time.
enterprise, th
No notable event took place until 1900 when Frank J. Goodnow published
his Politics and Administration. In it Goodnow developed the Wilsonian theme
theory under
turther and with greater courage and conviction. He argued that Politics and What a
Administration were two distinct functions of agovernment. According to m
politics "has to do with policies or expressions of the state will" while POSDCORE
1927-1937 w
of Public Ac
administration "has to do with the execution of these policies."2 In short,
Goodnow posited the politics-administration
dichotomy.
Waldo, Dwight (Ed.): ldeas and Issues in Public Administration, New York, McGraw-Hill, 1953,
botCommanded
h in gove :
p 67.
(Goodnow, Frank J Politics and
Administration, New Yotk, Macmillan, 1914, p. 22. Insttute ol
 Evolution of Public Administration as a Discipline 45
carlypartof the twentieth century many American universities began
inthe interest in the reform movement in government, and thus scholars
field of public administration. In 1914, the American Political
Associationpublished a report which delineated the objectives of the
Political Science. One of the objectives proclaimed was to "prepare
for governmental positions." Thus. Public Administration was recog-
important sub-area of Political Science. The subject (i.e., Public
ASTaon)began to gain increasing recognition in the American universities
spreading.
sudy was steadily
appcared the first text book on the subject. This was Leonard D.
la l920,
Zaraductionto the Study of Public Adnministration This book faithfully
pA's dominant theme of the contemporary period ; its premises are that
x she administration are to be kept separate; and efficiency and economy
watchwords of public administration.
thus, be seen that the dominant feature of the first period was a
helief in politics-administration dichotomy. That this dichotomy is in
did not bother the thinkers of this period.
bo (1927-1937) : Principles of Administration
as its central
Th Second Period in the history of Publi: Administration has
the Principles of Administration. The central belief of this period was that
of administration, and it is the task cf the scholars
N rtain "principles'
application.
TsNer them and to promote their Principles
Tis period opened with the publication of W. F. Willoughby's
suggestive, and
raNic Administration (l1927). The title of the book is very
This period saw the
es, very correctly, the new thrust of the discipline. them being Mary
iion of anumber of works, the more important among
Industrial and General
Prier Follet's Creative Evperience. Henri Fayol's This period
lgmen Mooney and Reiley's Principles of Organisation. Urwick's Papers
NAdis climax in 1937 when Luther H. Gulick and Lyndallword 'science' is
ate Sience of Administration appeared. The use of the
was science.
sant, for Gulick and Urwick implied that Administration
Iaxk observed: "It is the general thesis of this paper that there are principles
can be arrived at inductively from the study of human organization which
principles
. goven arrangements for human association of any kind. These
studied as a technical question, irespective of the purpose of the
Se, the personnel, comprising it, or any constitutional, political or social
tery underlying its creation."!
Mhat are these principles ? Gulick and Urwick coined that acronym-
promote seven prtnciptes of administration. In short, thehistory
years
9.OSDCORB-
1937 -t0
were the 'golden years of principles and techniques' in the
Administration
PublicAdministration. This was also a period when Public
Wanded a high degree of respectability and its products were in great demand
In government and business.
Gick Luthet and Urwick, L. (Edited) Papers on the Science of Administration, New York,
tsuthte of Public
Administration, 1937, p. 19
46 PublicAdministrution Challenge
Era of
(1938-1947) : Theprinciples of administration began sOon to be
PeriodIII indeed, one of
advocates of the 1938 to 1947 was, contisnuous
periodfrom Chester I.
The
and the questioning. In 1938,
challenged, challengeand published. The book discusses the broader
Barnard'
The
mounting Executive was informal functions, functional 1SSues
and
Functionsofthe such as formal
administration
and
equilibriumamong
organisational units and overlay,
induce.
of environment, in the least uphold the stand
organisational Chester Barnard does notWilloughby, Gulick, Urwick etc.taken
contributions. like
ment the second period
writers of articleentitled. The Proverbs of
bythe
Herbert A. Simon
wrote an Administration
developed in his Administrative Behavior
was further
1946, and its argument Process in Administrative Organisation which
in Decision-making was awarded the Nobel Prize in the year 1978
AStudy of on which he
publishedin 1947 and Simon is that there is no such thing as principles
thesis of are in truth no better than
The principal are paraded as "principles'
administration ; what a rationalistic theory of administration
Simon developed Administration is a science
proverbs. Herbert
rationality'. Theclaimthat Public
alongwith bounded Robert Dahl in 1947, and he argued that the quest for
was challenged by factors. These were values
administration was obstructed by three Besides,
principles ofadministration while science is value-free. human person-
permeating frameworks within which organizations have
do the social
alities difer and so aresult of these
criticisms, Public Administration found
inevitably to operate. As was low. It was on
position, and the morale of the discipline
itself in a deflated Administration entered the fourth phase in its history.
this note that Public
of ldentity
Period IV (1948-1970) : Crisis Administration. The brave new
This period has been one of crisis for Public
'principles' era stood shattered and the
world promised by the thinkers of the little uncertain. Public Administration
future of the discipline appeared to be a
was facing a Crisis of Identity.
Many public administrations responded to this crisis of identity by returning
But they discovered
to the fold of the mother science, namely, Political Science. Many political
that they were not very much welcome to the home of their youth. was
scientists began to argue that the true objective of teaching in the field
intellectualized understanding of the Executive, thus, reversing the objective laid
down in 1914,namely, preparing specialists for governmental positions'. There
was also a talk of continued 'dominion of Political Science over Public
Administration'. The process of de-emphasis of Public Administration in the
larger discipline of political science got, if anything, accelerated in the 19605.
In short, this period witnessed the spectacle of Political Science, not only not
letting Public Administration separate itself from it, but also not fostering and
encouraging its growth and development within its own field.
Public Administration, naturally, was in search of an alternative and
alternative was available in the form of administrative science. Here, too, ruwith
Administration had to ose its distinctiveness and separate identity and merge
alarger ield.of its
regardless Thesetting,
protagonists
and it ofwas
thisonview
thisheld that administration
premise is administrato
that the journal. Administrative
 Evolution of Public Administration as a Discipline 47
Ouarterly was founded in. 1956. James G. March and Simon's
Drganisations, Cyert and March's ABehavioral Theory of the Firm, Marchr's
Svience
Banadbootetc., are among the important works inspired by this perspective.
v(1971-1990)
, : Public Poliey Perspective
Beriod
Despite the uncertainty and turmoil of the preceding period, Public
Administration during period 1971-90 registered progress and entered the
Public Administration attracted within its fold
an enriched vision.
seventies with
rom various disciplines and thus was becoming truly interdisciplinary
Scholars
nature.Indeed, of
allthe social sciences, it is Public Administration which
is
in most Interdisciplinary'.
its

focussing its attention more and more on the dynamics of

Itis
administration. It is also drawing heavily on the management science. Public
Administration has come closer to policy science and related areas and has been
concern for issues in the field.
showingample
(1991 onwards) : Rowing to Steering
PeriodVI
The sees of the period which began in the year 1991 were sown in the
The public bureaucracy was viviewed as the society's favourite
preceding one.problems
solutiontothe
confronting. The solution failed to feeling disillusioned
bureaucracy, leading at to search for its alternatives. The alternatives
with market and the non-governmental organisations (NGOs). New
discoveredarethe
management and the civil society are the emerging new paradigims. New
Management is discussed elsewhere in the present work. The book of
public
Public published in 1992 entitled Reinventing Government was
Osborne and Gacbler Administration which
remarkable work in the field of contemporary Public
a functions of Government.!
redefine the
Conclusion
may thus be viewed
As an academic field, Public Administration's evolution Henry includes the
.6asuccession of five over-lapping paradigms. Nicholas oAdministration
Politics-Administration dichotomy (1900-1926), Trinciples Science (1950-1970).
(1927-1937), Public Administration as a part of Political
(1956-1970) and Public
Dublic Administration as administrative science emerging focus of
Administration as New Public Administration (1970-91). The
management science, its focus
Public Administration is organisation theory and
the public interest and public affairs.
from the readers, It seeks
The foregoing discussion may invite one criticism context of the United
solely in the
to trace the history of Public Administration would, indeed, become altogether
States. The discipline of Public Administration away. The discipline
indistinguishable if the American contribution to it is taken parentage. U.S.A.
marks of its
was born in that country, and it strongly bears theof literaiure in the field of Public
continues to be the single most important source
Administration.
very much. That
This is a remarkable feature but should not surprise us"Organization Man',
called the
country has seen the emergence of what is aptly and thus is face to face with
thrusts
Sdirectly experiencing the organizational
Government; How the Entrepreneurial Spirit is
Osborne, David and Gacbler. Ted, Reinventing
Transforming the Public Sector, Prentice Hall, New Delhi, 1992.
 traditions of scholarship in this field
48 PublicAdminisiration
phenomenon. Thesupport from the
national environment. Not thus
administrativestimulationand reflectthe American concerns, and in the
the continual to
learnt
receive disciplinehasuniversalized.
unnaturally,the SUGGESTIONS
become FORIMPROVEMENT
tendto
processthey points for the
Barthwal'has
suggestedfollowing improvement
Prof. C. P. unless it is
Administration :
independentor self-contained bbased
upon
ofPublic disciplinecan be remains tobe done on this aspect.
No base. Alot, more
1. theoretical narrow shell and
viable Administration should come out of its should see
2. Public outside. It should
develop acurriculumnot only interdisciplinary
discipline.
the world
cross disciplinary of the be
but upon the Public Administration in India should done in keeping in
study of and economic
realities of India. It should not be
3. The social, political
mindthe American influence.
left to sufler professional in nature and job.
Administrationshould made more
4. Public
oriented. Administration is the need of time. It should
the study of Public
5. Popularisefrom the lowest class and
should be included as a part of primary
be taught
education curriculum.
and adult the development of the rigour
More emphasis andtimeshould be devoted to
6.
of the discipline.
Public Administration.
There is urgent need for uniformity of courses in
7. and contents of the Publie
This uniformity can be brought about the goals
Administration.
research in the disciple of Public
8. Need is also to improve the quality of
Administration.
co-ordination between the academicians
9. There should be close cooperation and from each other.
and the administrators so that both benefits
INDIA
STATUS OF PUBLIC ADMINISTRATION IN
130 years
The discipline of Public Administration is said to be more than
of
old, but it is a young discipline for India. Yet its advancement over a period
few decades has been impressive. Teaching and Research in Public Administration
has been gradually expanding. The subject is taught in many universities and
hundred of scholars have obtained research degree in this discipline and
thousands have been choosing this subject for their career. The subject is aso
taught in the training courses for civil servants. In the words of M. A. Aleui
"The status of the discipline may not be gauged by its academic advanceme
alone; the context of its applicability and utility in public affairs would be a highly
relevant yard stick. "2
C.P. Barthwal, bid., p. 80.
2 M. A., Aleem, Public Administration The Discipline and Iis Status in India. Public Administratio
uest for ldentity (Ed): V. Bhaskar Rao and A. K. Sharna, New Delhi, 1990, P. 2
 Evolution of Public
the transfer of power from
Administration as a Discipline 49
In
India,
gavetothe
intyrendence
British
Iatter the gigantic task of to Indian hands after
with
hverse features passing a challenge to those who were at the helm
for
administering
a vàstof affairs,.
country
theneedarose understanding problem
the of Public
thecountry. This was expressed by the Planning Commission
Hene

r Plandocument where it said,

in its First Fivein
Administration
It would be of considerable value at the
to obtain an independent and dynamic
time
otsent administration...the sphere of public assessment of the
problems
afpublic
theinfluence of
thought and study inactivity is steadily
the universities increasing and
theretore
incTease
"
should gradually
the Discipline in Indian Universities
Growthof
Administration in India, as
Public as a chance-erected Bhattacharya suggests, may well be
and chance-directed subject.
PublicAdministration had a modest beginning, developing as a As
considered a discipline
part of Political
Sience.PublicAAdministration made its debut in a modest way in India when
Chennai University started a diploma course in Public Administration in 1937.
Followed by this, a diploma course in Local-Self-Government was introduced
byAllahabad University in 1938. This was followed by the University of Lucknow
whichinitiatedla diploma programme in Public Administration in 1945. All these
CoUrses commenced under the auspices of the Political Science departments of
the respective universities. To Nagpur University goes the credit of setting up
thefrst independent department of Public Administration. It was known as the
ment of Public Administration and Local Self-government' and was
tzhlished in 1950 by Prof. M. P. Sharma who may he regarded as the first
Professor of Public Administration in India. In this regard Prof. Perumal writes.
Ror the first time, Public Administration was invested with full scientific
egimacy in 1949 when the Nagpur University set up a seperate department."
In course of time, a number of other universities in India have introduced
this discipline either at the Diploma level or at the Masters' level. As of today,
courses in Public Administration are offered at the Ph. D., M. Phil., M. A.
and
B.A. levels as well as through correspondence in nearly 50 universities.
tiere are variations in the pattern of offering these courses. In However,
some universities
ne courses are run by independent departments of Public
Oers, by the combined departments of Political Science and Public Administration. In
8an, in some universities they are offered at the postgraduate levelAdministration.
Oniy at the and in others
graduate level.
ESablishment of Indian Institute Public
In 1954, the Administration
government of India, following Appleby Report (1953),
esthetastbluidy,shed in Delhiandthe 'Indian Institute of Public Administration' committed to
he training withinresearch in Public
Administration. This was followed by
establishment,
Prot, V. K., N.
RCupi e d Menon
the post of
the Institute of an Indian
became the first
School of Public Administration.
Director of IIPA. The first person who
school, which commenced its workPublic
Professor of Administration was A. Avasthi. The
in 1958, was launched with the primary
IPendiruanrmalJour
, C. A., "The
nal of AdmiDevel opment of Teaching and Research in Public Administration in India",
nistrative
Sciences, January-July, 1991, p. 141.