Chapter.3 Administrative Thought

8/6/2019 Chapter.3 Administrative Thought

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'(KA IZEREDUCATION GROUPA PREM IER GROUP FO R ELITE CIVIL SERV ICES

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PUBLICADMINISTRATION

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. '-~.-vAdministrative Thought _-PAPER - I (Unit~II)

(SUMMARY OF THE CLASS NOTES)

Dr. o.P. MinocbaProfessor of Public Administration

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From Director's DeskDear studentsThese are the Summary of Class Lectures of Paper-I(Unit-II). They comprise of description and analysis ofthe dealt topics. To get the essence of the topics at leasttwo readings of the entire material is required. You are alsorequired to remember the context of the lecture so as toget the broader view. These notes will be furthersupplemented by printed booklets to explain the details ofthe topic.

Regards,HR1SHIKESH B.KULKARNID ire ct or, KA IZER EDUCATION GROUP

Head Office '.18/4, I" & 2~ Floor . Old Rajcndra Nagar .9 P P . Agrawal Sweers, New Delhi60Branch Office703. 2M floor, Above Big Apple, Opp. Bank of Maharashtra,Dr : Mukherjee Nagar. Delhi-09

E-mail: [email protected].: +91-9999910531, 01l-46102620
mailto:[email protected]:[email protected].


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INDEXAdministrative Thought

Paper-I (Unit-II)

RNo.1. Administrative Thought - Growth and Development 1"") Scientific Management and Scientific Management 2.

" Movement-, F.W. Taylor . . ,) . ,)4. H. Fayol 45. Bureaucractic Theory 7 Weber's Model 96. Mary Parker Follet 1 17. Human Relations School and Elton Mayo 128. Chester Barnard 1 49, H. Simon and Decision Making 1510. Participative Style of Managment

(RLikert, C.Argyris,D.McGregor) 19 Important Questions


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K AIZER ED UCAT IO N G RO UP aA PREM"R GROUP FOR ELITE CIVIL SERVICE'a

Growth of the "Theories of theAdministration"

F. W . Tay lor fa ther o f ScientificManagem ent considered that anorganization is a w e ll s tn ic tu re d o rg an iz ati onon ly if it is based on logical & provenprincip les. Th is w ill b ring efficiency in theorganization. It-is to be noted that HenriFayol brought the concept o fAdministrative Mallagement. (Neo-classical schoo l of thought) which w asprincip le o riented. W eber's B ureaucraticth eo ry is ap plic ab le to all la rg e o rg an izatio nsb ut is m ore re le van t to p ub lic o rg an izatio ns.A ll these schools combined together is theStructural schoo l, or Classical school o rM echanical schoo l of thought. A ll focus onp re co nc eiv ed m eth od s.In 1920's relevance of Struc tural Schoo l w as

Circumstances which Jed to theorigin of theoriesI. W ith the dawn of m odetn e ra, new

organ izations cam e. The impact ofIndustrial Revolu tion w as complexityof work. so the dem and for efficiencycam e. D em and fo r princip les cam e, thatresulted in advocating large num ber o ftheories, In the case o f bureaucracy ,prior to bureaucratic m odel of MaxWeber , "rule of men" e xiste d, an d th en"rule of law" w as a dv oc ate d.

2 . Mass p roduction , m arketing &e ffic ie nc y w as th e c on ce rn , th is re su lte din bringing new schoo l of thoughts.Th is brought "managementrevolution" which is the by -p roduc t ofIndustrial R evolution. M anagem entre vo lu tio n su pp le me nte d th e In du strialRevolution.

J People from different backgrounds.Practitioners, teachers & scholarscontributed to the adm inistra tion inth eo re tic al an d e mp iric al m an ne r.

4. A ls o p eo p le from d if fe re n t b a ckg roundslike science. law . computer science ,a rtificial intelligence. e tc . all wereconcerned w ith efficiency bu t gavedi fferent v iews therefore theories ofmanagem ent m ay have differen tjargons, bu t aim was efficiency. Them anagem ent theories are describedp rovab ly as, 5 blind m en describ ing theelephant .

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Public Admin. Paper-l :Unit-2Theorie s o f A dmin is tration

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2/ Public AdministrationStages in the growth of an Organ'ization. Refugee problem after World War2. Issue of Welfare of employee

3. Rise of trade unions world wide (India trade unionmovement started in 1926)With the advent of Welfare state movement and '"October revolution, 1917, erstwhile USSR the role of ~=uman in organization was rethought so the structural ~

school of thought was challenged and efficiency t:: : . Jdepends on human factor, man behind the machine need c~to be given importance. > -.

This led to the emergence of Human Relation eSchool. Skill was replaced by will, structure was :>replaced by human factor. Scholars of Sociology & ~Public Administration questioned the ignoring of :::;."human being" in an organization. Hawthorne u. ; : ;experiment by Elton Mayo gave impetus to this school Eof thought. ~

Human Relation expanded and gave base toBehavioural School. Behavioural School of thought,also called as Nee-Human Relation, Structure &

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Behaviour cannot exist without one another. This gaverise to Systems School of Thought, in which system .~ Cn)\\"Ihwas looked as a convergence of structure and behaviour. w Explanation of the various stages in the growth ofIt started somewhere in 1970's. Prior to that, with the . . 8 Organizationadvent of computer, decision making school of thoughts -. Stage-r: Small organizations emerged. Prior toTaylor,emerged with the use ofArtificial Intelligence then came 2 Fayol & Max Weber, organizations were run onthe Empirical School of Thought. It deals with how to < 2 _ personality, rule of thumb and intuition, in angeneralise theory. Instead of Grand theory, broad . unscientific way.generalization based on the practical ground reality e.g. c t . Stage-2: Large organizations emerged. Systemat iccase study, learning through simulation was done. Riggs < way of work was followed as given by Gulick && Barnard contributed in it. Lastly theNeill Management ~ . Urwick, Mooney & Reiley also Human Relation wasSchool of thought came. Computer researchers, Software ~ coupled. Whole Scientific bureaucratic organizationengineers contributed in it. "New" due to modern ~ became dysfunctional. This brought discontentment.technologies. (!) Bureaucracy failed miserably.

Conclusion: We can reject all schools, UltimateLy ~. Stage-3: As bureaucracy failed demand for 3D's(Democratise, Decentralise, De-bureaucratize)New Management School does not indicate the principles M intensified. But do to lack of coordination and controlofforming organization, it talks only about modernization ~ in the democratic, decentralized setup corruptionof organization. Theories were not propounded, only ~methods were given. Empirical school gives method of ~ study of organization and not principles. Decision making f f itells only the importance of decision making through NMartificial intelligence, so we are left with only two main ~school, Structural and Human Relation. Thus betweentwo opposite theories all other theories oscillate. Mostorganization theories have followed dialectic process ofchange. Dialectic path means thesis then antithesis, thensynthesis, this slowly becomes new thesis.

became a gigantic problem.Stage-4: To deal corruption openness &transparency became the need of hour. Usingtechnology ethics and morality inadministration canbe incorporated and efficiency can be brought. Sowide spread use of Information Technology (IT), ande-governance started. .Butover useof Information Technology, e-govemancealso create problems like cyber crime, hacking, multi

crore scams etc. So in the present scenario issues likecyber licensing setting up cyber office to control cybercrime, are to be thought about.

But other problems like at micro level unemploymentemerge because of the existing digital divide. AIsoinformation safety and security is a challenge we wanttransparency but not nakedness. Also overuse ofInformation Technology is leading to isolation andpsychological problems.

Theories follow a dialectic process of cbangeas represented below:

Scientific Management MovementWith the dawn of last century muss.production led

to the need for efficiency that brought ScientificManagement. Scientific Management started inAmericato strengthen capitalism i.e. create wealth for the nation.

AntithesiS~Thesis


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Public Administration 3

F.W.TAYLORF.W . Taylor was born in 1856. In 1878 hejoined as a I depends on the involvement of both management and

labour in Midvale Steel Company and became Chief workers. He wanted to bring cordial relation between theEngineer in 1884. Taylors contribution the development ~ workers & the managers. All this tells about Human factorof Scientific Management was recorded in his papers .. ~ of Taylor.They are A Piece-Rate System (1895); Shop Management ~ Functional Foreman: 8 functional foreman with are:(1903); The Art of Cutting Metals (1906) & The Principles ~ 4 Planning foreman 4 Executiveforemanof Scientific Management. Slowly and gradually he U I. Order of work & route clerk I. Executive functional boss

v 2 The instruction card clerk 2. Gang bossbecame the Chief Engineer. Having engineering ~ .w 3. The time & cost clerk 3. Repair bossbackground he looked & observed the defects in ... 4. Shop disciplinarian 4. Speed bossorganization which led to his theory of "Principles of c .2Scientific Management". In 1911, he wrote papers an g Foreman at supervisory levelvarious principles. His methodology was scientific, he l5 He indicated that decisions should be taken on wellnever advocated grand theory only wanted to replace .~ laid principles. Managers should apply Scientificadhocism. On this account he was summoned by the Management to take decision at all levels. In broadCongress Committee to give reasons. He gave a ~ philosophy of management, he focuses on applyingphilosophy to arrive at the best way of doing things. He scientific management to increase productivity &is known for "Mental Revolution". He observed that ~ efficiency. This science should be learned and practicedthere was lack of standardization of methods that is lack ~ by all the organizations.of defining the job content. The goal of management l!)remains to optimize output. Also decision should be based Zon rationality so he replaced rule of thumb. He advocated 2that if there is no incentive scheme lack of relationship ~between the work& the worker may arise. Also mismatch gbetween human potential and the job was given concern. ~ 3.Moreover military type of organizations existed at that IXtime where multiple functions were done bythe manager ~(He wanted to replace generalist by specialist). Thus = ,e have to be committed to the declared policy of the state~ and to their own profession . Present century has

I witnessed Information Revolution due to the advent ofg ; inform ation technology and communication . The~ inform ation flow is very large so neutrality , anonym ity~ becom es irrelevant.Z Present alternatives are to discard bureaucracy that8 is not to give too much importance . D ownsize and de-~ bureaucratize the bureaucratic apparatus. B ring N PM ing b ure au cra cy . In cu lc ate m an ag eria l skills inbureaucracy.Marxian view on bureaucracy 0For this govt. provides m anagement training for civilw .According to K arl Marx bureaucracy is status quoits in ~ servants through N ational Managem ent Program me:

nature. They are pro tec ting the interest of upper strata . ~ Thus in po~~ W eberian scenario bureaucracy is aThey represent the higher social elite. They have feudal :;( necessary evil a double edged weapon which has to becharacter in n~ture they are highly individualistic highly ~ used judic iously as an instrum ent of social changes .centralized leading to destruction . Secrecy m akes themfu rth er d om in an t & they try to suppress & ex plo it th ehave nots. They use pow er w ithout resp onsibility leadingto explo itation of the masses. They becom e parasite on

Concept of Public Servant

Talcott Parsons indicates that there is certaininconsistency in the m odel. They are:I. How can ideal be type either it is ideal or type .2 . The w ord bureaucracy is used interchangeably .

According to H. Simon in practice one is notp erfectly ratio nal. W e fu nc tion un der v ario us c on stra in ts.Rationality is situational. A ll the ideal state is utop ian ,cannot be changed.

W eber was dom inated by prodestian school ofthought w hich talks about increasing w ealth . A ccordingto them wealth generates happ iness. This encouragedca pita lism . C on ce rn fo r p eo ple; soc ial w elfare su ch issu eswere talked by "Catholics". This w as m issing in W eber'sm odel. H is com parative ap proach w as lim ited to French,B ritish and Germ an system . Many countries deviated. from Weberian model but succeeded like Japan, souniversality of his model w as questioned. Evenbureaucracy as th e o nly in stru men t to a ch iev e e fficie nc yw a s q ue st io ne d.

W eber like, Taylor & Fayol never discussed theim pa ct o f ex tern al fo rce s lik e; so ciety , cu ltu re & ecologyon the bureaucracy. R iggs also pointed out the nonapp licability of the model in develop ing countries.Empirically majority of the developing countries aredeviating from the ideal m odel to Sala Model. W hichindicates deviation . Riggs view ed that deviation is thec au se o f i ne ff ic ie nc y.

v.A. Pai Panandikar com mented that bureaucracy asthe only instrument of change has failed. Indianbu re au cra cy is stru ctu ra lly W ebe rian bu t be ha vio urallyn on W e be ria n.

India bureaucracy is behaviorally non-weberianbecause of 2 reasonsI. L ac k o f cla rity o f role , w ork & rela tion sh ip . Pre se nc eo f o v er la pp in g2. R ules are in terp re ted a nd m od ified .

So Indian bureaucracy is procedural bound. It is tobe noted W eber was m ore structural no t rational.

the socie ty as well as paid pshycophants. They try toe ve n p riv atiz e c iv il so cie ty .

'There is a nexus betw een bureaucracy politic ians,businessmen & crim inals" - N .N . Vohra.Post Weberian Development

Note : D iscussion on contributions of Gulick & Urw ick,line and staff w ill be provided in Prelim Bookle tsas it is no t the part of Main Syllabus ..

rPolitician!A ll p eo ple b elo ng in gto judic iary rP ub li c S ec to remployees . rA ll p eo ple b elo gm gt o d ef en ce b I.All peop le elonging toc iv il se rv ic e (c iv il se rv an t)


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K AIZER ED UCA TIO N G RO UP aA PRE.,ER GROUP FOR ELITE CIVIL SERVICESa Public Admin. Paper-I: Unit-2Administrative ThoughtC onfhc tso lve d by 3 m etho ds:Mary Parker Follet

Compromise DIntegration(surrender) (sense of satisfact(mutual benefit)-

Avoid Dominan t

IntroductionMP Fo llet brou gh t d yn am ism in Pub lic A dm inistratio n.She is un ique because she is considered as a link betw eenstructu ral and behavioural schoo l. She w as influenced bym achine mode l o f Fayol & also by Urw ick. She w as ap olitical scien tist and fo cussed h er activ ity on in dustrialunit. She tried to com bine theory and practice . Classicalthinkers didnot give im portance to the behav iour w hichshe tried to doso. S he w ro te 2 im porta nt bo ok s n am elyI. In du stria l o rg an iz atio n 1 93 32 . Dynamicadminis t rat ion 1941

In her second book she talks about constructive Power Authority and Controlconflicts. A ccord ing to her constructive conflicts need to Pow er is the ability to ge t th ings done. Pow er is the capacitybe cap italized & m anaged as they lead . to integration. to p roduce result. She aim s at converting coercive power toA lthough integration is no t easy to achieve as people are c co -o ptiv e p ow er. Pow er w ith th e p eop le w ou ld bring ab ou tno t ready to change them se lves. She talks about g iving .~ bette r understand ing & result in to developm ent o fo rder as instruc tion . She is of the view that order should c p ro fe ss io n al s ki il s. So her idea of co-optive power is likeno t be pushed rather order should c reate a cooperative .~ seedlingfor participative wcry offunctioning. A uth ority isth ink ing . This was contrary to the earlier no tion of o rder ~ a legitim ate power, a recognized pow er bur autho rity iswhich created fear. G iving order needs pooling of ~ poten tial ene rgy and power is kinetic energy . Authority &know ledge. One m ay give o rder but crea ting accep tability ~ power belongs to the position. The m om ent position iso f order is essen tial. O rder should create certain degree of ~ given , authority & pow er are inbu ilt in the position . Thecau tiou sness. This sh e calls as depersonalisation of order. .~ lim it has to be decided depending on the situation andF or til i s . give face- to face order, set examp le, and '@ fu nc tio n. S he a so ta lk s a bo ut c on tro l th at is to ta ke re me dia lunderstand the aptitude of the peop le . O rder should not -;; action. The need is to con tro l< t:be authoritatively im posed as w as in the case o f classical I I. Activitiestheories. (She ind icates that situation variations are there). ~ 3. N ot personOrder should depend on situation and function. This she w D o no t create a feeling that person is contro lled , bu tre fers to as "order with." Giving of order depends on ~ the activ ities and facts are con tro lled . C reate an

. U env ironment where work becomes self d irec ting , selfI. Situation: ex igencies ~2. N ature of function : collective functioning w here ~ regu lating , and self controlling.

subordinates are more know ledgeab le . ~ CoordinationT.he~e is no h iera.rc~ical system In modern ~ Plann ing im d coord ination is the p rocess o f ad justing.

o rg alllz~tlO n. D ep erso nalJs~tlO n o f o r~er ~o es n ot m ean ~ Plann ing is selfadju sting an d self d ire cting . Sh e ta lk s a bo utthat one should no t exercise au tho rity It on ly m eans self coo rd ina tion . G ive condition to the people where theyexercise ofa~tho rity based on the situation and fun~tion. can do things by them selves w illingly . Coord ination is

Integration - go to the root cause. Let h idden harmonisation of work. Coord ination can be ach ievedconflicts com e to the surface , which means a ll.ow through reciprocal re lationship . F~cto rs in coordination areemp loyees to say what they want to say. Al l conflicts bo th structural & beh av iou ral, it can b e ac hiev ed thro ughsh ou ld b e fu rth er c la ssifie d in to m ajo r &minor. To ach ieve in ter-persona l com munication . Com munica tion leads tointegra tion crea te certa in degree o f consciousness, create coord ination . It c an . b e h o ri zo n ta l & ve rt ic a l c oo rd in a ti o ndesirab le environment o f work, g ive face to face o rders, and it shou ld be ach ieved at early stages more so at the.understand the ap titude of w orkers, orders should not be tim e of po licy form ulation w hich Taylo r talks about in term sau thorita tively im posed but should create cooperative of standard ization. Coord ina tion is a con tinuous process.th inking. For th is o rders should be depersonalised . She Moral & m otiv atio n a lso b rin gs a bo ut c oo rd in atio n.adm its it is very d ifficult to achieve it, because in g ivenfeudal, political environm ent peop le are no t w illing toad just. Peop le have psyche of dom ination . Peop le have ath rill in d om in atio n & the refo re do not adjust to other's

1----Sef

2 . Facts &

LeadershipLeader is a person who can draw best from the group,creates suitab le environm ent, c reates initiative, b ringsunity , loya lty in the organ ization. She wasv ie w p oin ts .

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1 2 / P u bl ic A dm in is tr ati onagainst' individual' leadership , w hich is concentrated atthe top . She believed that Leaders are not born but m ade .hence she advocated that leadership m ust be scattered inthe group . She tries to give 3 concep ts of leadershipI. Leadership ofposition : f or c ef ul , a u th o ri ta ti ve a n d f orma l2 Leadership ofpersonality: m an ne ris m h um an a sp ec ts3. Leadership out of function: It is n eith er b y p os itio nnor by p ersonality . It is based on functional

dim ensio n. Sh e is focusing o n leadersh ip as a flexibleconcep t. A t tim e w e m ay require both leadership byposition & function

L eadership aim s at creating w orking environm ent. Im pactoflead er is im portant to be recognized .

The Hum an Relation w as initia ted by Elton M ayo.About Elton M ayo: H e w as an A ustralian by nationality .Studied L og ic and P hiloso phy he m ade his b eg in ning w iththe prin ting press bu t gave up imm ed iate ly , to studyPsychology. D uring W orld W ar-I he gave psychiatrictreatm ent to the so ldiers w ho suffered from shell shockd urin g th e w ar. H e jo in ed H ar va rd a s P ro fe ss or o f! n du str ia lRelation . He w as influenced by Sigm und Freud. Mayofocussed his attention on the behav iour of the workersand their p roduction capacity keep ing in v iewphysio logical, physical, econom ic and p sycho logicalaspects. H e called this app roach a clin ical m ethod . H estud ied th e social cond itioning of w orkers u nder variousexperiments like Great Illumination, Bank Wiring,AttitudeCritical Appraisal surve-y and Social Organizations.

There is no th ing classical and nothing behavioural in her. H aw tho rne Stud ies: Haw thorne experim ent wasShe is neither g rouped under c lassical no r under conducted in Haw thorne p lant of W estern E lec tricbehaviour. M any of her ideas are utop ian, im aginary,


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Public Administration /13

Criticism of EItOD MayoI. He talked about the importance of human factors to .~

motivate them, but what factors influences the human Eerelation were not discussed. External factors and 0..cultural factors were not explained by Elton Mayo. ;

2. There was no place for conflict in Mayo's philosophy Q.and he sought to achieve organizational harmony gthrough the subordination of individual & the group c : : :interest by the administrative elite. ~

3. Peter Drucker criticized human relationist for lack of 0awareness of economic dimension. ~

4. He was criticized for not understanding the role of ~union in a free society. 5

5. United Auto workers criticized the Hawthorne wresearchers as cow sociologist. f f iIt isneither structure nor sound planning nor finance, ~

ultimate success of organization depends on human factor. ; 2Investmeht in human being does not go for the law ofdiminishing return it goes for law of increasing return.

Tom Peters made a study in search of excellence,passion for excellence based on research of variousorganization. For excellence in organization 3 things areneeded:I. Technical up gradation.2 Networking means, how good relation organization

has with clients, society & stake holders ..3. Investment in Human Resource: for sustainable

efficiency the human factor is most important.Weare replacing personal management with human

resource management. It is recognized that human beingis a human being and not an employee. Hence of all theresources, human resources is the most vital one. It needo be constantly developed, motivated so that they are:0 e (0 perform.

the terminals and finish the wiring. Wages were paid on When industrialization took place firstly productionthe basis of a group incentive plan and each member got became important, secondly marketing became importanth is share on the basis of the total output of the group. It to augment profit and reduce cost. Of late the importancewas found that the workers had a clear cut target which of human being is recognized. Human relation is importantwas lower than the management target. The group as strikes are emerging, psychological problem are comingmaintained code ofconduct for group solidarity. Like one today.should not be rate busier, chesler, squealer or act Re-enforcing Conclusionofficious. Mayo found that the workers had nothing to do Human being by nature are social, hence organizationwith management or general economics. The workers should be considered as social institution rather thanviewed the interference of technologists as disturbance. techo-economic. Human Relation believes everyThey thought that the experts follow the logic of efficiency organization could form informal organization. Thiswith a constraint on their group activity. The logic of informal organization establishes norms of behaviour andefficiency did not go well with the logic of sentiments. standards of output, which may be at variance from thoseThus Hawthorne experience suggested a mix of managerial set formally. Human being tend to adhere to the informalskills. In addition of technical skills management should norms rather than formal norms. Every organization shouldhandle human relation. Mayo also suggested that the use informal organization to achieve the organizationalconcept of authority should be based on social skills. objective. Organization must bring about certain type ofOne important part of Hawthorne studies were the ~ .. b . . d b I Wexperiment conducted on 14male workers ina textile mill. 0 > monvanon y recogmtion an not y money a one. eshould try to create environment of participative styleThe 14male workers were asked to produce more, and for ~ replacing authoritative style. Every manager shouldevery extra production they were to the payed more. But it ~. develop social skill.was found that all the 14 workers assembled at free time Uand decided to maintain he same production & discarded E Earlier Notionmonetary incentive to avoid threat of being ousted. This ~ r--------------"7"----,o Administrative Taskrevealed that a collective wisdom prevailed on them. < . . : : 0Cog. . .o

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1 Technical TaskL...---......_~NewNotionAdministrative

{POSDCORBj

Relevance of-Human Relation in anyOrganization ,The diagram shows the relevance of Human Relations inany organization. The Administrative tasks expands atthe top and shrinks at the bottom. The technical tasksexpands at the bottom and shrinks at the top. But it is tobe noted that Human Relation related tasks remains thesame from top to bottom.Application Part of Human RelationsAll citizen of this country are human being so they needto be taken care of, Right to equality isbroadening forthisreason Human capital is a resource for the nation, thisresource should become an asset for the nation. Througheducation, development can take place which leads toskill development. ITls are important apart from IIMs &IITs. Earlier notion that sound mind leads to sound body,is given importance. Department of culture to inculcatespirit of humanism is created. This shows that now,


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1 4 / P u bl ic A dm in is tr at io nim po rta nc e to h um an re la tio n is b ein g g iv en a t w id er le ng thworldwide .C onclu sion : Im portance o f hum an factor is recognized byHum an Relation in an organ ization but can be app lied toentire socie ty or nation . It is also im po rtant to providelegal supp ort to m atters re la ting w ith H um an relations,like Facto ry Act. S truc tural design w as essen tia l a t thed aw n o flast cen tury , to day w hat is needed is b ehavio uralre se arc h a nd d es ig n.C ritic ism of H um an R elation School of Though tI. It has not taken into consideration the in fluence o f

h um an p e rs on al it y.The w orkers w ere not satisfied com p le te ly w ithHum an Relation Schoo l of thought. W orkers w ereexp ectin g to g et barg ain ing rig ht throu gh trade u nionb ut H um an R ela tio n fa ile d to fu lfil th eir e xp ec ta tio n.T he y c ritic iz ed H um a n R ela tio n a s ty pic ally b ou rg eo ism en ta lity , to s up pre ss th e fe elin g o f w ork er s b y g iv in ga rosy p ic ture . T rade Un ion m ovem en t wassupp ressed to strengthen the cap ita lism . Hum anRelation gave lip service , it w as m erely a step in rightd irec tion from th e stru ctural scho ol o f th oug ht.

It is the basis of em ployer-em ployee re lationsh ip , w hichis a m utual re la tionship betw een the tw o. that b ringssatisfac tion to both of them . Th is help s in con tinuity o fre la tionship . M utual benefit in a given re lation is.'s atis fa ctio n. '

2.

Chester Barnard ~(i~C hester B arn ard 's contrib ution s are very vita l fo r P ub lic g -A dm in istra tion . B ecause o f his tho ugh ts & experiences ~he is considered as sp iritual father o f social system . He .~p io ne ere d in s ys te ms th eo ry & contribu ted im mensely for Eits developm ent. H e started h is carrie r as a c lerk in J :AiTierican Telephones Teleg raph com pany in 1909, " f 2.g radually he becam e the first chairm alLQ (N ew Jersey Q.T~h ..2 .n~ c~m any. He also becam e chairm an o f A tom ic 5E nergy A gency an d p resident o f R ock fe lle r foun dations. 0: :He had experience of w orkin in both the p rivate and (!)g~ent organizations. 1 Hs ,_"_ .;... ",,, """ ~ 3.

He w as in fluenced by M ayo & Sim on . Barnard w as ~fa mo us fo r h is b oo k " Fu nc tio ns o f th e e xe cu tiv e" published ~ Why people do not accept the authority= = I. When the communication is not understood: th eUJ im plication of th is in g overn ment o rganization is th at

w hen com munication is not understood, th ings aredone due to ignorance . B ut ignorance to law is noexcuse . To increase zone of indifference thecomm unication has to be clear. This broadens theob ed ience , w ide p ub licity en su res that m ore and m orenum ber of p eop le get the in form atio n or in stru ctio ns.When the objective is not consistent: W hen theobjec tive is not c lear and consisten t the au thority isnot obeyed. H ence clear ob jec tive m ust be reflec tedin t he a ut ho ri ty .Conflict between personal interest andorganizational interest: T his c au se s d is ob ed ie nc eo f a uth or ity . T o a vo id it, c om p atib ility w ith th e in te re stof w orkers and the organization m ust be m ade.When one is not able /0 accept authority physicallyor economically: Like farm ers w ho are given loan. attim es are not ab le to pay back, due to physical andeconom ic constrain ts. They are unable to accep t the

. au thority due to their econom ic & physicalco nd itio ns. G overnm ent tr ies to co mm un icate , m akeconsonance betw een perso ral & organizat ionalin terests so as to get accep tance of autho rity . If stillau thority is not accep ted, the governm ent can takel eg i tim a te a c ti on .

Com municationC om mun icatio n is the key to co ord ination . It is th e in te r-re la tionship established to coo rdinate w ith in theo rg an iz atio n. It m otiv ate s e mp lo ye es .

. Barriers (0 Communication: P sy ch olo gic al n ois e,p hy sical n oise , lang uage etc .

Tomake communication effective following factorsare important:I. C hannel of com mun ication m ust be defined , know n.

d irec t and short. In term ed iaries should not be used.2 L ine of com mu nication sh ou ld be com ple te


18/29

Public A dm in istra tion! 15be autheritic H. Simon. The communication shou ldcommunication , there m ust be consistency in

communicat ion .4 . Com mun ication depends upon the com petence level

o f bo th superio r and sub -ordinate . It a lso dep endso n tru st le ve l b etw ee n th e s up erio r & t h e subo rd ina t e.

S. To have effec tive communication , one has to be agood listener . Hence a good listener . can be anef fec t ive .communicator .

6. A ny typ e of ineffec tive com munication w ill result in tocon flic t. m ay ham per in ter p ersonal re la tions. Soeffec tive communication is a m ust. Evencom mun ication is authenticated th rough info rm alo rg an iz atio n. In fo rm al c omm un ic atio n s up ple me ntst he f orm al c ommun ic at io n .

Comm unication is like a nervous system in theo rg an iz atio n " ,I .e re r eg ula r flo w o f th ou gh ts , a ssim ila tio no f ideas lakes p lace and is conveyed to the organization .

H. Sim on : Achievem ents of H. SimonI. He received N obel Prize in econom ics. H e is know n

fo r h is c on trib utio n in A rtific ia l In te llig en ce h e c alle dit E le ctro nic D ata P ro ce ss in g (E D P).

2 . H is theo ry w as em pirical in nature and no t ideo logical.3. . H e belongs to a m ovem ent that w as an em piricalmovemen t .4 . A lso looked at o rgan ization as a social system , like

Barnard .5 . He develop ed inter-d isc ip linary app roach .6. He really belongs to Pub lic Adm inistra tion . Taylo r,

Fayol & Weber w ere not studen ts o f Pub licAdminist ra t ion .

7 .- He au thored number o f books likea) A dm inistra tive B eh avio ur (1947),b) Shape of Au tom ation ( 1960),

~ c) Sciences o f th e Artificial (I 960).~Functions of the Executive ~ d) Hum an problem .so lv ing (1972) /Fun ions o f t he e xecutive are : ~ e) The N ew Science of Managem ent D ecisionI. Defining the pu rpo se o r objec tive , assign ing autho rity :~ He w as high ly influenced by MP Fo lle t, M ayo &

& responsibility . laying dow n ob jec tives in detail, ~ Barnard . H e w as h igh ly critical of the C las.sical School offo rm ula tio n o f b ro ad p olic ie s. = = thought, H e view ed that .

2 . I la in tenance o f communication , defin ing ro le & ~. M ost o f the princ ip les are contradic toryresponsib ility of different p ersons, se lec ting right g . . A ll th ese p rin cip le s h av e lo st th ere re le va nc e a nd th er ep eop le , creating d isc ip line , sharing know ledge, 2 is n eed fo r m od ification in the ligh t o f g row ing com plex ityp rov iding leadership , creating self d isc ip line & ~. B ecause these p rinc ip les are n ot re liable th ey are m ythinfluencing others. .~ o r slogans.

3. Secu ring essentia l serv ices through train ing, . . .incen tive schem es, su perv isio n and thro ugh creatin g < Declslo~ M akmg. M odel _ .cooperation am ong various g roups of peop le . ~ ;.o r h .lI~ the m o~t I~po rtant a~pect ofa~y o~gam zatlOn4 . Achievem ent of goals . ;:) w a~ decision m aking . . The entire orgaruzatron system

o w hich he called a 3 layered cake w here decisions are takenC ritic al Appraisal . ~ at e ach level: This concep t w as bo rrowed from m ilitary .I nf orm al o rg a ni za ti on i s n o n- p ra ct ic al . It can lead to chao s Z The 3 typ es of decisions area nd r esu lt in to u nstr uc tu re d o rg an iz atio n. It is lo ose typ e 8 L Strategic decision: taken at the top levelo f ac tiv ity w h ich m ay create indisc ip line . Even non ~ 2 Technical decisionz in vo lv e d ec is io ns ta ke n a t m id dleaccep tance o f au tho rity is p ro tec ting th ose w ho a re givin g U levelautho rity . B arnard talked ab ou t lead ership o f p osition & 5 3 . Operative decision: involves decision taken at theautho rity w ithou t givin g features of leadersh ip . H e talked W o pe ra tio na l le ve lof physical, b io logical and social organization but f f i A cco rding to h im every th ings in an organizationaleconom ic asp ects w ere m issing . A cco rding to B arker the t : ! d irec tly o r in direc tly re la tes to decision- makin g fo r eg otheo ry is abstrac t, lacks p rac tical u tility and accep tability . ~ . Authority - em pow ering peop le to m akedecision ,

Yet, he w as the person who talked abou t the social Communi~ation - a p rocess o f conveying decision .d im ension and indicated the behaviou ral d im ension in an D elegation -Adm inistra tive em pow erm ent.o rganization . H e exp lained the im portance o f in form al S im on gave . B ehav iou ral A lternative m odel. theo rgan ization, autho rity gave contribution -satisfac tion cam parison between traditional and B ehav iouralequilibrium thea,?': These w ere som e ofhis m ajo r contribution . A ltem atve M odel is a s f ol lo w s:

Traditional M odel1 . This wa s n orm at iv e2 T his w as str uc tu ra l3. A I I d ecisions taken on

f ac tu a l d im e n si on

B ehav ioural A lternative M odelI. T his m od el is em pirical in natu re2 This m odel is behav ioural in nature3 . A ll decisions taken on the basis o f and

values Sim on talks abou t cho ice w hichd eals w ith valu es. T his is lo gicalp ositiv ism w hich brin gs p rac ticality indecisio n m aking th at is p rac tical or realis tic d ecisio nV alu e based decision s are tak en at p olitical level. F actu al


19/29

1 6 I Pu b li c A dm in is tr at io n

4 . Focus was on m eans o fac hie vin g th e o bje ctiv erath er th an th e o bje ctiv e

5. R atio nality c ou ple d w itho bje ctiv ity w as g iv en im po rtan ce

decisions are taken at adm in istra tive level. Sim on in aw ay crea ted v alu e fact dicho to my.

4. Both m eans and ends were focussed . The u ltim atepu rp ose is called 'en ds' & instru ment of ac hieving it is called'm eans.' He focussed that dec ision m aking should be end

5. This m odel talks abou t bounded rationality .U nde r giv en situ ation lim ited rafio nality is takencare acco rd ing to Sim on. Bounded orL im ite d ratio nality is n ot irratio nal it is ratio nalunder a g iven circumstances. Choices canno t beob jec tiv e. It has to b e su bjective.He uses "good enough" concep t. Good enoughis ac ce ptab le , re alistic in a g iv en c irc um stan ce s.

6. This mode l focussed on satisfy ing that issatisfacto ry and suffic ien t. It is near to good enough .

7. This m odel defined the concept o f A dm inistrative m an6. Max im izatio n w as fo cu sse d

Under.this model7. This m odel defined the concept

ofeconom ic m an

Administrative Man Stands next to Economic Man but the weigh tage value , of each alternative is notknown.Ideally own personal biases has no th ing to do w ithdecision m aking but in rea lity personal preferencesplaya role in decision m aking . These assum ptionsm ade b y Sim on w ere qu estion ed.A part fro m the se factors th at effe cts de cisio n m ak ingothers are , adm in istrator face prob lem of lack ofup dated info rm atio ns at the tim e o f d ecision m aking .

. D ecision m aking has becom e high ly com plex . Lack ofp rofessio na l co mpeten ce acts as a hu rdle in d ecisionmaking .Problem of accep tab ility o f decision p reva ils.Adm in istra tively viable decision m ay not bep o li ti c al ly v i ab le .Personal values and tim e also ac t as constra ints in

3.conomic AdministrativeMan Man

SocialMan

Adm inistrative m an is p ractical, w ith in the givenfram ew ork of situa tio n. D om inatio n of the ory is m ore w ithc ertain p rac tic e. H e trie s to m ax im iz e b ut w ith satisfac tio n. (/) 4.0)

.~>Phases of Decision Making ~(/)D ecision M aking is a p rocess. It is a m ix tu re of ends & .;; 5.m ean s, qu an tifia ble an d th ose w hic h are n ot qu an tifia ble . UD ecision m aking process has 3 phases which he calls ~I. Intelligence activity ~ 6.2. D e sig n a ctiv it y < 23. Choi ce a ct iv it y g -oWhenever there is any situation , to take decision , .. . .07.intelligence is done. Intelligence activ ity invo lves ~gathering relevant in fo rm ation. In fo rmation gives us 'E~v ario us p ossib le alternatives. Each alte rnatives has 0-various other possib ilities w ith in it, once design ing is - := 1done, choices are m ade. In each of the there activities w e c.have further 3 activ ities. B y giv ing w eightage to various 5alternatives, p rio ritisa tion is done. " '" 'In governm ental sy stem 3 im portan t activ ities are ~ -;Intelligence, D esign and Choice. These 3 ac tiv itie s are 0 ;no t well integrated the cho ice may no t be based on design ~ .t:or design m ay not be based on intelligence - this resu lts \ 5 g .~ ~as an' outcome of lack of coo rdination & sharing of g :.]~infonnation... . w ~0: ~Limitations of Decision Making Model ~ ~; . : : : : .He does no t talks abou t feedback , im plem entation o f ~decision and the impact of decisions. He only talks about ~the p ro cess of de cision m ak ing , th is is a lim ita tio n.Th is m odel is concep tually usefuJ, and supposed to berational m odel but the assum ptions are thatl. All alterna tives are known, th is assump tion is .

questioned and is w rong as lim ited alternatives aretak en care to m ake d ecision .

2 W e are ab le to measure the u tility of each alternative

d ec is io n m a kin g.

v

~ - - - - - - - - . _ - - - - - - - - - - - - - - - - - - - - _ _ . x--level otintormatiou :.,ailahk:lndcI~,ir:lhk--

D ecisio n M akin g follow s G re sham 's L aw . R outin ed ecision are in c irculation bu t w ithh olds. th e im portan t

n on -r ou tin e d ec is io ns .


20/29

Pub l ic Admin i st ra t ion 117

Awareness o ralternativeTime and Cestconstrainrs

Environmentalforces

N atu re o falternatives

KAI'ZER ACADEMY m Contact Nos 9718206998 011- 46102620AN INSTITUTE FOR lAS EXAMINATION .,

, s ' \ . >. . . . >~Aclm i I I is t ra t i v c ~ ~-' Pcrxonal! ' - , 1 an Q~/ It ...;., factors -- - - - - - - - - . Administrative ~Man ~\i,\lllJ\: ul -, ~ ( )r g ~ 1 I1 i z a t i o na I

\lrg,IJlIL,llill l l;lI objcctiv c fa c tors

Satisficingdec is ions

Herbert Simon's: Model of Decision Making

Environment (Economic)

11). . .~ 11). . . u:i EI '0e,'0 -. . .~ c:QI- E:QI CE 0 . .c: "0. . c:. , wc:w

Env i ronment (Techn ica l)Organizational as a Social System Concisting of Various Sub-

systems as suggested by Chester Barnard


21/29

18/ Pub l ic Admin i s tra ti on

RationalityF or S im on ra tio na lity m ean s d esire d e nd s w ith a pp ro pria tem eans. This has been debated m any tim es. N oble endsm ay be ach ieved through illegal m eans. in pub licorganization this is considered w rong. M eans are '

~ instrum en tal pu rpose & ends are ultim ate p urp ose..;; H e q ualifies ration al ity as:,_~. Objectively rational - Where there is no b ias, no.;; p re jud ice , appropria te m eans lead to desired ends.U. Subjectively rational - It is re la tive know ledge or

The diagram show s, that in the p rocess o f ~ lim itation or non-awareness of consequences.consulta tion & discussion, tim e taken is m o re but the ~ . Cautiously rational - W hen adjustm ent is w ithaccep tability is w ider . This is an im portan t d im ension . ~ prac tical w ays, although know ledge is there , it is

g te rm ed a s c au tio usly ra tio na l._~. Deliberatelyrational-It is p u rp o se o ri en te d r at io na li ty.~ w here one is bothered only for the ultim ate end.~. Organizationally rational - Rational from0..-c organisation p oint o f v iew .

I H e also gave concep t of effic iency as fo llow s:Q,::). Concept of efficiency - He considers shortest &~ cheapest m ethod to ach ieve organizational goal asl!) . efficiency.Zo Types of Decision MakingM... . H e c la ssifie d D ec is io ns ; m ak in g in to tw o c ate go rie s:l S I. Prog ram med decision are those w hich are routineg in natu re , taken frequently under a givenw periodicity.f f i 2 N on Prog rammed ; decisions are taken fo r the firstt : : ! tim e, o nc e it b e co me ro utin e, it b ec om es p ro gra mm edc:( decision .~ Adm in istra tive decisions .are both N on p rog rammed

a nd p ro g ramme.

SkillH. Sim on gave lo t o f im portance to tra in ing w hich help s insk ill developm en t and cap acity bu ild ing . Th is im provescompetence .Acceptabili ty

yIdecision is taken this is p lann ing. P lann ing help s us tocover tim e duration . The question is how to change theattitude , behav iour and v alues in d ecision m aking . T his isdo ne th rou gh train ing, sen sitiz ing p eop le , sp ecially c ivilservan ts. T rain ing deals w ith im parting know ledge andbrin ging behav ioural chan ge, as k no wled ge itse lf brin gschanged behaviour. T rain ing broadly helps in capacity. bu ild ing E .N . G ladden talks about p rofessionalism .T raining is essen tia l for senio r adm in istra tors so as toc ha ng e th eir m in ds et. B ut th er e e xis ts a lag . A s te ch no lo gybring social change after getting d iffused in the socie tyand then th is brings change in m ind set.

-- -- -- Consulta tion -----+

Other Models of Decision MakingAuthorita tive style o f D ecision M aking : A ModelIf X tim e taken in d ecision m aking

Y tim e taken in im p lem enting the decisionZ X+YZ Zt imeIn this sty le of autho rita tive decisio n m akin g, quick

decisions are taken and m anager has to im plem ent it. Bu tin im plem entation, it takes a lo t oftim e to p ersuad e p eo pleto a cc ep t th e d ec is io ns . It is luk ew arm ap proach. S uccessrate in im plem entation of decision is 95% .Jap anese m odel of decision m aking : J M odelx = long tim e taken in decisio n m ak ing

x>Xy =tim e tak en in im plem enting the decisionyY

z = t ot al t im eW here X =tim e taken in decision m ak ing in A M odelY =tim e ta ke n 1 n im p le m en tin g th e d ec is io n in A Mo de l.Z is le ss th an Z . S in ce a cc ep ta bility o f d ec is io n is very

h ig h s o th e s uc ce ss r ate in im p le m en ta tio n o f d ec is .io n is 9 8 0 1 0 .T his p ro ve s th at p ar tic ip ativ e s ty le o f d ec is io n m a kin g is

o pte d fo r q uic k im p le m en ta tio n o f d ec is io n a nd g ettin g w id eraccep tan ce of the d ecision , altho ugh the tim e tak en to m ak edecision is m ore . W hereas. by the autho rita tive style ofm anagem ent one m ay take quick decisions but theim pl em e nt at io n t im e i s.m o re a nd t he re i s n o w i de r a cc ep ta b il it y.Planning and TrainingPlanning deals w ith fores.ee ing , vision o rientationp .rovenance . N ot waiting for im p lem entation w hen

Non Prog rammePro rarnmeTradi t ional Ru le ofMode l thum b, Procedu res.(TM) intuitions, rules,tria l a nd regulation

error, hab it, m anualsunscientific

Reposi to ryMode rn Case study of allM odel by m ethod OR techniquesH . S im on techniques convertedcomputer , into

com uters


22/29

Pub li c Adm in is tr at io n 119

V> of bankrup tcy w ere so ld to the w orkers. Y .P . S ingh w antedU to bring labour leg is la tion in w hich he advocated w orkers

Tay lo r tangen tially m entioned about the need fo r m aking E partic ipa tion of w orkers shou ld be gradual. They felt tha t~t he wo rk e rs (0 c olla bo ra te w ith th e m an ag em en t b y 'm en ta l 0... if it is successfu I in governm ent o rgan iza tio~ ivaterevo lu tion .' B ehaviour sc ien tist em phasized the need fo r < f w ould fo llow . The p riva te industry argued that w orkerspartic ipa tion . Participative sty le has go t a w orldw ide Q. ar~petent to participate, ifpartic ipa tion is to m ade itrecogn it ion today , irrespective o f the na ture o f g should be gradual. A collec tive body or fo rum can reduceo rgan iza tions. . ~ sec recy , neu tra lise personal p re jud ices & b ia se s, b rin gReason fo r the need of Participative Sty le o f M anagem ent: Z opeii: iie ss a~ m o~t im ortan tl reduce the arb ' sI. This ac t as a fo rum for sharing in fo rm ation . 0 o f pow er. This is the rea l reason why governm ent is2 . It help s to take co -op tive dec is ion particu larly in the ~ in troducing w orkers partic ipa tion in every o rgan ization

ligh t of grow ing comp lex organ iza tions. It help s in ~ ~. It is gain ing im portance in public o rgan iza tion .. form in@ ective w isdom -.Hence it help s in tak ing 5relativ ely b ette r d ecisio ns. It a lso brings w ider Waccep tance o f dec is ion , thus the rate success rnteof f f iim ple me nta tio n is v ery h ig h. t : f

3. It brings certa in degree o f~ and m otivation as it ~d~elops be long ingness tow ards the organ ization .

4 . It is a fo rum for settlem ent of d ispu tes a safety va lve ,a p eace ful m eth od of se ttlin g d isp ute s. H enc e it h elp sin n eu tra l is in g th e trad e u nio n strik e.

Critical AppraisalNote:I. W hat T ay lo r sa id w as relev an t in h is tim es w hat Sim on

has g iven is relevan t in his tim e. T he dec is ion m akingp rocess is sam e as ta lked by Tay lo r & Fayo l the re isno th ing new in Sim on m odels.

2 . He is try ing to m ake excuses and g ive p ro tec tion tosav e in effic ie ncy . G oo d en ou ghB ou nd ed ratio na lity , satis fic in g, all s uc h c on ce pts. a reexcuses no t to ach ieve the best.

3. How can 2 concep ts be added that is va lue & fact ,c om bin in g th em is in co nsisten t. T his is th e g rey area ,Sim on failed to strike a balance betw een values andfac ts in d ec isio n m ak in g.Under e ffic iency he speaks abou t sho rtest &cheapest m ethod , in such a case w here is the placefo r v alu e o r id eal o bje ctiv e.H . Sim on devia ted more tow ards comm erc ial

4.

5.o rg an iza tio ns rath er th an p ub lic o rg an iz atio ns . H en ceh is concep t are doubtful to be app licab le in pub licorganiza t ions .H e starte d w ritin g o n p ub lic o rg an iza tio n an d d ev iate d

t ow ar ds c omm e rc ia l o rg an iz at io n, a rt if ic ia l i nte lli ge nc e a ndn ev er re ve rte d b ac k.

Participative Style of Management

Importance oJ Workers ParticipationA t the h ighest level. s low ly & gradually w e are m ovingto ward s plu ral ex ec utiv es like R ailw ay B oard , 'f a B oa rde tc . . Bu t the question is w hy th~ participationof w orkers? This is because d iffe ren t in te res ts arerep resen ted . Hence today the decision m aking in a llo rg an iz atio n are d on e b y sta ke -h old ers.

W orkers partic ipa tion in m anagem ent is by se lf.,--d eterm in atio n (G erm an m od el) w he re w ork ers d ecid e w orkfor them selves o r by co -de te rm ination w here w orkers sitsw ith m an ag em en t a nd d ec id e th eir w ork . Jo in t c on su ltatio n.m ach ine ry (JC M) in Ind ia & Wh ite ly c ou nc ils in E ng la nd

prov ide for the participation of c iv il se rvan ts i _ ! lm anagem ent. A merican do no t p rov ide fo r partic ipa tionof w orkers o r c iv il servan ts. In Ind ia I & 2nd LabourComm issions also advocated fo r the participations o fworkers .

Partic ipa tio n o f w ork ers is n ec essary as w ork ers m usth av e 3 b asis rig hts:I. Right to be in fo rm ed . 2 R ig ht to b e co nsu lte d3. R igh t to decideGenesis of the idea of workers participationThere w ere som e socio log ists, w ho advoca ted the needfo r industrial dem ocracy . The w orkers participationenhances the dem ocra tic p rocess in industry . Th is w asadvoca ted by G HD Cole, he called it gu ild soc ialism . A lsoknow n as cynd ica lism that is pow er vrested Insom e gro upofpeop le . B asically th is w as suggested on Ideo logy po in to f v iew to neu tra lize the com munist ideo logy .

Rensis LikertHe belongs to behav ioural schoo l of thought, H is m ajo rthe sis is th at e ffic ie ncy & effec tiveness depends uponthe relationsh i w ith in the o rgan iza tion there fo re it is theab ility o f m anager to develop in ter-personal re la tions,w hich co ntrib ute to efficie nc y & effec tiveness. H e w asm a in c o nt ri bu to r t b survey research . H e w as the d irecto ro f th e In stitu te o f S oc ial R es.e arc h fo r 2 4 y rs. H e au th orise d2 im po an t 00 s nam e y :I. N ew Patte rn o f M anagem ent 19612 HumanOrgalllzation 1967 '

Ow ing to filS speclaIrzation in survey m ethod andquantifications, he has een able to m ake a science inm ana em ~L ikert m entioned the changes in m anagem entiszequired as: .I. D ue to m odern ization, upgrada tion of techno logy

the re is need to reth in the p riric ip les o f organ ization .2 T oday peop le are becom ing fi" eedom consc iousto

m ain tain creativ i th is em an c ange.3. D ue to inc~asin com etence; fo r th is o rganizationa l

cu ltu re is to be changed .


23/29

20/ Public Administration4. Concern for health: In modern organization s,tress

management, good health such issues are given dueimportanceto deal with rising psychologic"idproblems.All these 4 reason compels to relook in the style of

management and call for change.2 types of Management StyleL Job centred style - which believes in close

supervision, centralization of po~er to bringcoordination. Authoritative way of doing jhing isfollowed, This may create conflict but may bedesirable for quick results, short term obedience but

Limitation of the ModelL The moment 4 different styles are applied itmay lead

to discrimination.2. It is very difficult _!_onderstand h~man_min_d.3. Moreover behaviour is too dynamic to be judged.4. Participative style appea~ to be utopian and cannot

be achieved in reality. - -5. Cultural dimensions are not taken care of.

Chris ArgyrisHe looks at administration from behavioural point of view.He explained how organization should cater the needs ofcannot be sustained for long. the employee on the basis of personality. The reason is2 Employee centred style~n this focus ison employee. 5. that orgamzanon strategy have not een effective and itGiving environment to work, building up te~mspirit, has alienated the employee. They became tensed,

helping the employees becoming self directing and disinterested from work, as organization do not cater theself regulating. v> personality needs of employee.Therefore h'~ gives the concept of supportive .~ He has been management consultant. He questioned

leaders.bip. Leader must aim at interaction sharing t automation Vs. individual satisfaction. What kind ofexperience, facilitate integration, have open ~ satisfaction is needed individual satisfaction Vs.~ . _ ,communication, coordinate, lJi1iig"c'ollective process of .::: organization, self actualisation Vs. organisational interest,thinking' develop interpersonal relation through informal ~ psychological satisfaction Vs. material satisfaction.channel, provide for cross fertilization of ideas, facilitate (J.J He had been applying organisational sociology inmultichannel communication. This he refers as employee . E the organization, pioneer in organization development,centred management style. g - which is related to behavioural changes and aims at".-- -- - ~ personality development. He authored some books like:Management System lu. Organization and Innovation. /'Managem ent S ty le I - Exp lo ita tive } Job centred .

M anagem ent Sty le II - B enevo len t Exp lo ita tiv e ~ . Integration to Individual, ,/}

a... Personality & Organization, /Managem ent S ty le III - Consulta tive Em p loyee centred ~M anagem ent S ty le IV - Partic ipative I Healso contributed in the area relating to the influenceThese Styles are in continuum. ~ of organizational structure on managerial practices,

Exploitative style: In this centre of authority is the 0 sensitivity training popularly known as T-group training.I d h h I I f d I fid . ~ We become dependent, have short term vision haveea er, e as zero eve 0 trust an ow con I ence m ,_, .. ..-b di k I - - -. . d f . Z conflict between self and orgarnzanon. This IS due tosu -or mates eep c ose supervisron an use 0 coercive 0 . . f I fli k . . .. h - .... rmmatunty 0 emp oyees, con ICt eeps on mcreasmg.power ISt ere. L. b h .. d ." . < Employee become mature ut t e or~alllzatlOn ?es notBenevolent Exploitative Style. The consequence U mature. This creates problem, inmatching personal interestof decisions or th~ orders are thought b~fo:e, conce,:" ~ and the organizational interest.for employees exists but largely exploitatIve style IS W We believe in controlling caste but the human valuefollowed. f f i is reducedj'Formal organizatiogcreates de~.e~c~, a

Consultative style: Leader consults the employ~s, ~ passive.a ro~y!_:_ curbs ther~ ml~~~,rec~gnisestile kn"i>wkd~e of the workers yet decision ~ employees becomes suOmlssi~e. This creates frustration,depends m the hands of leader. conflict lack ofjnterest of ~p!9~es, lack of involvement

Participative style: Leaders; employee are equal. All it result in h l g h rate of tum over. Organization believe thatwork as ateam. Level of trust ISncreased. Here collective employees are lazy and money~, uninterested inwork,wisdom ~ils and group functions collecth:,.ely. disloyal, they generally waste time, commit many mistakestherefore the need is of coersive authority. Chris ArgrisVStyle which is emerging nowadays where leader

______ 4 considers this as a wrong assumption.has no role to play, it includes Tell, Sell, Consult, He viewed that there-are 2 important factors namely:PartiCipate, Delegate. - - I. Personality factors: These factors are related to the- Style 1,'11 are centralised, so workers face, lack of personality of the employees. Employees basicallyinterest in work resulting in low morale, this affects the are variety seeking, passive or active. communitypert=;;rmance.Style III, IV brings~ept of~'!!'l_qgel conscious or security conscious, acceptingtotal loyalty, free from conflicts, stresses and tension. He challenges or avoiding challenge.addsthat it is not one style Vs. other but which style to be 2 Organization factors: These factors are related withselected depends on the nature of work force, type of work in the organization like Isolated work, self guidedfunctions to be performed, and the situation. . work, low wages work, work which provides-Selective adoption of these styles, must be used time satisfaction & : responsible work, free time work,to time, to enhance the efficiency ~f organi~ti~ hostility oriented work etc.


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Public Administration /21Characteristics of mature and immature employees:Immature Employee Mature EmployeeL Passive L Active2 . D ep endent 2 . Indep endent3. Erratic 3. C le ar , w id er p re di ct ab le4. S h al lo w i nt er es t 4. Dive rgent & d ee p i nt er es tS . Few ways o f behaviour 5 . D iverse w ays of behaviou r6. S ho rt te rm p ers pe cti ve 6. L on g t erm p ers pe ctiv e7. Lack of se lf aw areness 7. H igh degree of s elfawareness & self

c on tro l fu ll y s elf c au tio us8. W ants to p lay 8. W ants to p lay sup er-

subo rdinate ro le ordinate ro leBased on this type of personality profile people

express themselves at work. Organization must adopt widesystem & structure based on human personality. Thereforethere should not be authoritative style of management itis not so, th'eselection of style depends on the nature ofwork & personaliry of employees." Like Likert we should create an environment such

that people move from immaturity to maturity, this he callsorganization climate or organization culture, this comesthrough sensitivity training & organizational development.

3. Providing functional leadership authority apart fromleadershipMatrix organization - All are equal, no hierarchical\structure, it is a cohesive structure, people are selfdisciplined.

4 .

Project-I Project-It Project-illTeam-ITeam-'nTeam-IIIAfter completing his job in Project-I the employees

of Team-I can go to project-II and so on. There is nopermanency, no hierarchy, no supervision and no control.Organizational structure should be according to the natureof work and type of employees.

This type of 4 organizational structure are congruentto Likert 4 management styles.

~ Sensitivity Training or T-group Trainingo" E Tstands for training. It purely aims at sensitizing people.~ rt is also called human lab. The employee are asked to> ventilate their problems, develop self understanding, andU then remove problems. Itaims at sensitizing employees totegy for Organizational Change .~ their likes & dislikes, providing regular feedb~ck,

Organizational development concept/intervention strategy: ~ experiment new ideas, deve loping sel f 'awareness,I. Provide environment for development of individual. ~ sensitising employees to other's behaviour, developing

Improve interpersonal competence of employees. : 5 s~f~st~em, & self cautiousness, to change ownChange the pyramid type of organizations. (5 personality. There is no lecture, no counselling, on Iy

4. Introduce T-group training. .~ environment is created for self analysis and self change.These strategies wi II lead to social ization, self 5 Is sensitivity training relevant to organization andregulation, this will match the individual interest & the 0 : public administration?

organizational interest. This is referred asTheory of Fusion -;: Fredrickson viewed that it is usefu I in pu bl icor Fusion Theory. It aims at building Interpersonal D .. organization, indefence administration ithas been alreadyCompetence - Create an environment; where people start 5 tested.believing in self, appreciate their work, provide a :: It has to-be adopted gradually. It is useful, wheretransformational leadership, create open forum for ~ tension or harsh work condition prevails.discussion. Create initiative so that they can experiment ~with new ideas give opportunity for self development, ~create wider sQcial environment for interaction, this will result intomoving employees from immaturity to maturity. g

The 4 types of organizational structure are ~I. Traditional model: Which is pyramid type of a ::wNM

~

Critical AppraisalA matrix organization of full maturity is totally utopian,operationall nt.ac [email protected]. H. Simon says it leads toanarchy.

He is highly critical of authority. H. Simon viewedthat authority is not bad it is how the use of authority isdone. It can be bad if used for wrong purpose. Likertconcepts are not backed by empirical_oi'!!._ofview.

Yet his major contributions are T-group Training,personality development, organizational development,immaturity maturity continuum. The important factor ishow far the cultural dimension facilitate the application ofabove ideas. No doubt technological change brings thecultural change and procedural change, so gradual changeis taking place and we are moving towards the conceptsgiven by Chris Argyris.

organization

Tradition~1 mode lLinking Pin Model.

/*\/\1 1 \ - - 1 1 \ - - 1 1 \000 000 000

Douglas Me GregorHe gave creative contributions to organizationaldevelopment. I n post was era he contributed atmanagement psychiatrist. He authored, 'The Human sideof Enterprise'. An important book on industrialpsychology in past two decades. He viewed reliance ofauthority as a means of control leads to resistance and* Manager 0 Subordinate


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2 2 / P u bl ic A dm in is tr at io nre stric te d o utp ut, th is m ea ns in effic ie nc y is d ue to re lian ceon authority . It leads to non acceptance o f au tho rity ,the re fore su itab le c lim ate has to be created by m anageron the basis o f unders tand ing of hum an natu re whichm ay be im plicit or exp licit. H e c lassified them as theo ry Xa nd th eo ry Y .

so it is no t possib le to im p lem ent theo ry Y in f eu da lo rg an iz atio n w he re trad itio na l h ie rarc hic al n atu re p re vailsand in developing countrie s the application is lim ited .Sin ce n ow de mand fo r p artic ip atio ns in w ork is inc reas in gin de velo ping co un tries , h en ce gradu ally its ap plic atio nw ill inc rease in d eve lo pin g co untrie s a lso .

Theory X Theory Z ~ < ;. " ' - 0 . . ..G iven by W illiam O uchi. H is concep t m Jap an ese sty le o fm anagem ent. Theory X , Y were high ind iv idualistic innature that m eans both X and Y looked at the em p loyeein div id ually , n ot a c olle ctiv e ap pro ac h.

Theory X focused on external nature o f man o r A d amnature o f m an -- - -- -T- eo ry Y focused on in ternal na tu re o f m an or Abramnature of m an -

CDHum an being by natu re do not w ant to work they areb asic ally le th arg ic , a vo id d oin g w ork . T he y h av e a su rv iv aln~a~e governed by surYi.~need, the refore fo rsurviv ing they work . SUS .l;H>eop le work under fearp sychosis. They w ant to b~~cted , con tro lled so thatthey can work & like to have au tho ritative stl!e ofleade rsh ip . T he y lack se lf in itia tive , c re ativ ity & avoidresponsibil i ty . l...u{q C J -r .l o : \- '. ~ tL

W here as Theory Z be lieves in group dynam ics o rTheory Y ~ a J v . . . o . v " b""'- 0..{ 0 V < A . A . \- ;. _ . .' {I til fee ling of ~ocial dim ension. On this basis the features o fThese peop le enjoy their work , they love to work as one ~ theo ry Z are:love to play , p rov ided the env ironm ent is conduc ive. This .~ I. O rgan izatio n is an ex te nd ed fam ilvg ives them leasure. They love in itiative, des ire freedom , ~ 2 . They believe in life tim e em ploy_m entthey w ant to m ake a m ark , w ant to be crea tive , they love to .;: ; 3 . They believe in senio ritl' & n~t I~~ it for upw ardwork where there is facilila tive ~de-;: ;h ip rathe r than ~ mobilitydirec ted and con tro lled leadersh ip , as authority can lead w T his is b ec au se if all a re m erito rio us th en se nio rityto dem otivation , subord ina te m ay think that superior do . . 2 is g iven im portance , ~nflict ex ist. B ut w hen m eritno t tru st th em . g - is base fo r promotion, it develops interpersonal

Trad itional scholars took an assum ption of the 2 je alo us y a nd r iv ala ri es .em ploy ees b ased o n X p ersp ec tive . B ut slo wly & gradually ~ 4 . Cultu ral d im ension - in our society.p ec ple are m ov in g to ward s Y pe rspe ctiv e. If e nv iro nm ent 'E 5 . They believe in concept o f group rew ard o r groupis changed , a concept o f total environm ent change w ill J : punishm ent. Ind iv idual rew ard o r punishm ent nottake p lace .. As when faith is vested in the subord ina tes - ;: g iven as it m ay lead to conflicts. Social d im ension is. th ey try to fu nc tio n effic ie ntly an d k ee p th e fa ith. It is th e Co very dom inant th is results in to group concep t &env ironm ent w hich help s sh ift from X to Y . T hi s r es ults g c olle ct iv e s uc ce ss .

a! Now in p riVate-sectors also fu ll panicipa tjQ n ofin to h igh de gre e o f in teg ra tio n, m otiv atio n, team sp irit & '". . , w ork ers,o wne rshi o fw Q .r1 ers th at is e quity participa tio ndevelop .m ent o f em p loy :es. Th is w ould . b ring ou t Z is facilitated . Various American com panies aretransactional change. Th is change result in to pow er g im plem enting Japanese m odel: Th is show s the u tility o fequalizations, result in to w ork ing th rough differences, ~ theo ry Z. '-resu lt in to le ss de gre e o f co ntro l & su perv isio n le ad in g to Use lfac tu alisatio n a nd Laissez faire ty pe o f m an ag em en t. g Theory W

To bring un ion and m anagem ent cooperation , he W Theory Z is an alte rna tive to theo ry X and Y . Theory W isin troduced th is concep t in a com pany nam ed SC AN LO N f f i n ot v ery c ry stallize d n or an ap plie d m od el o f m an ag em en tw here he crea ted su itab le clim ate to w ork . He observed a t! Theory W is given by K enneth B lanchard. W is ca lled ashea lthy relation be tw een the un ion & manager. A ~ wandering m anager it ind icates m anager shou ld no tcosm olog ical change , sp iritua l change cam e where peop le becom e arm c.hair m~ager he should take round of thes ta rted lov ing there w ork. factory and g ive adv l~e where ever n .eeded . .

B~yond Y - Peop le who are do ing own pro fessiona l One of the m ost, Im portant func tion of m anager IS t oh h d 't . ki d f b hav i I m ake agenda or ac tion p lan . M anager shou ld be goodresearc w 0 on requ ire any m e or e av ioura .., ! Th h lf d i h d" behav iourist and use 2 t ype o f m anagem ent strategym terven t on. ey reac se irectrve stage w ere a v ice I P '. d d S ~ dl .., I '11 . raiseIS no t nee e . econ y It IS easie r to say peop e . W I 2 R . db have i but i,. epnmaneave m a way ut It IS n?t easy to p red .'c t h~m an natu re, Then the m anger need to g ive counse lling and th isThey m ay change behav iour as behav iour IS .no t stab le shou ld be fo llow ed bv im portan t p rincip le " keep it s im p leconcep t even feudal character, fam ily cultu re all p laya and short" . To be a g~od m anager one need to use A , B , C ,ro le . E ven th e b eh av io ur m ay n ot b e rea l it m a y b e pro je cted D and W 'X Y Z where W X Y Z are re late d to e xte rn alone , so catego rising hum an personality is not easy . Any natu re o 'f hu ;'an being ;nd ' A : S, C , D are sty les ofsuch ca tego rization m ay create hurt burn ing and ill w ill m anagem ent w here,am ong the workers. A - Autho ritative. B - Benevolen t

Prac tica lly to c reate an env ironm ent based on C - Consultative. D - D elegatingpersonality in dynam ic organ ization is d ifficult. The theory There is 'noth ing beyond th is required fo ris conceptually co rrect but d ifficu lt to im plem ent. M ore m anagem ent.


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Public Administration / 23

Important Questions: Unit-II (Comment on the following)Scientific management was based on 2 majorobjectives namely, to bring efficiency & to replaceadhoc way of organizational functioning.Taylor's principle of Scientific Management broughta managerial revolution which is still relevant in crossnation & cross culture.Taylor was concerned with finding out the best wayof doing things through close observation.Fayol is known as a thinker, developing administrativemanagement theory.Taylor & Fayol are supplementary and complementaryto each other.

L 19. Mayo concept of Human Relation has provided basefor future theories of organizational behaviour.

20. According to Barnard the main function of executiveis to develop effective communication..

21 . Existing & survival of organization depend oncontribution-satisfaction equ iIibrium.

22. It is the duty of administrator/manager to increasethe zone of indifference.

3.

4 . 23 . Motivation isthe key function & to provide leadershipis the main role of executive in any organization.Simons contribution to Decision Making Theory incomparison to Taylor's Scientific Management isnothing new accept the change in technology.

5. 24 .

For his scientific experiments too legitimately Tayloris known as father of Scientific Management. V

. Q)Most of the Principles lack reliability & validity in .~large complex organization ~Fayol's principles are not only contradictory to each ~other but also myth & slogan. ~ 27.Despite limitation scientific principles advocated by ~Taylor & Fayol are relevant to even public ~ 28.

6.25. H. Simon behavioral alternate Model is based on

empirical reality.7.26. Simon has unable to make clear distinction between

factual judgement & value judgement.Simon's Decision Making theory of satisficingbehaviour is more relevant to public organization.Owing to changing nature of technology and highdegree of special ization, participative management isbecoming universal system of management.Likert's concept of job centred supervision must bereplaced in modern organization by employee centredmanagement system.

8.

9.organizations. g -

O I 0I . Bureaucratic model of Weber have been argely 0dysfunctional. .~ 29.

I L Bureaucratic model Weber may not be relevant to ~developing countries. ~

12. Most uf developing countries are structurally ~weberian, behaviourally non weberian. :;)

13. Post Weber development may require modification in ~ 3LWeberian model but cannot be rejected. ~

14. Some of the Weberian model have become outdated 8 32.& need to be discarded. ~

15. Weberian Model of bureaucracy undermine the g 33.importance of democratic model. Qw16. MP Folie! is considered as a scholar who apply theory 0: 34.in practice & who reduce the gap between structural ~& behavioural school of thought. ~ 35.

17. Some of the view ofMP Follet are utopian & difficultto folIow& implement. ..

18. Elton Mayo not only rejected the Rabble Hypothesisbut strongly argued the need for social aspects &Human Rel~tion aspect of organization.

30. Likert's concept of different management systemsindicates, management-employee relationship & leveloftrust in them.Organizational intervention can convert employeesfrom immaturi ty to maturity.Likert model of pin model was idealistic in nature,which is practically not possible.By categorising employees into X and Y, may lead todiscrimination by management.Participative style of management requires eithersupporting or-transactional style of leadership.Participative style of management is a method forpower equalization & a forum for negotiation &method of dispute settlement .

36. Though started in private sector & industryparticipative style of management is equally relevantto public sector.

Main Questions : Unit-IL The very existence & survival of societies depends 5 . Woodrow Wilson has been changing his stand on

upon efficacy of Public Administration. the nature of Public Administration.2. Politics - Administration dichotomy was il l conceived 6. Wilson advocated the need for administrationand has proved to be out-dated. basically to strengthen capitalism._ , Public choice theory advocates economic and New Public Administration is the outcome of crisis inj. 7.institutional pluralism. Comment. nature of discipline of Public Administration.4 . Woodrow Wilson raised many questions without 8. Good governance is an extended version ofNPA.providing many answers. Comment.


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2 4 / P u bl ic A dm in is tr at io n9. The m ajor challenge ow ing to L iberalization ,

P riv atiz atio n a nd G lo ba lis atio n is n eith er s tru ctu ra ln or p ro ce du ra l, b ut b as ic ally b eh av io ur al.

10 . L iberalization w ithou t regulatory m echanism w illc re ate e co no m ic c ris is .

II. P rivatisation in develop ing countries.has been doneow ing to p olitical co mp ulsio n ..

1 2. G lobalization is like ly to effec t the so vere ig n rights oft he s ta te & it m ay w ork a ga in st s ma ll e ntre pre ne urs.

1 3. In m ost of the dev elop in g co untries goo d gov em anceh as rem ained in theory & n ot in p ra ctic e.

14 . N ew P ub lic M anag em ent is anti-bu reaucratic m odel.15 . In era o f N PM , we m ay loo se the social & welfare

concep t of State .1 6. P ublic A dn\in istra tio n h as the buo yancy & resilience

to cop e w ith em erging challeng es o f socie ty .1 7. D ev elop ment of P ub lic A dm inistra tio n as a disc ip line

fo llo wed a sp iral nature o f chan ge, rather linenar o ne .18. Public A dm inistration is never end ing concep t both

i n t he o ry & pract ice .

19 . S tarted w ith neither lo cus or fo cus PublicAdm inistra tion has com e to both locus & focus.

20 . Pub lic A dm in istra tion started inco rpo rating certa inte ch no lo gy lik e G IS , c om pu ter te ch no lo gy i.e . m ov in gtow ard s the m ore sc ientific in n ature .

Note:I. C om puterization refers to - C ollec ting, storag e,

p ro ce ss in g, r etr iv al o f th e in fo rm a tio n.2 In form ation Technology - m eans when the

inform ation is commun icated w ith in theo rg an iz atio n th ro ug h te ch no lo gy .

3. Info rm ation Technology & Com munication - Info rm ation T echno logy & Communicat ionm eans w hen info rm ation is u sed w ith in Iorganization & there is com munication w ith incompl ier .

4 . e -governance - W hen in form ation techno logy &communication used in re lation to citizen it isc a ll ed e - g ov e rn an ce .


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Documents

Chapter.3 Administrative Thought