The Practice of

Public Administration

PA Justifying Itself to the Larger Community

French Magistrate Alexander Tocqueville (1831)- The study of the American panel system. He wrote: Democracy in America (1835 & 1840) emphasis on the inner workings of American democracy and its viability of its system of government.

Jacksonian Democracy

• President Andrew Jackson democratization of jobs in the civil service, open to all segments of society.

• Public employment was awarded to citizens on the basis of their political loyalties.

• In 1881 Charles Guiteau failed to secure an appointment for a consulship in Paris and assassinated President James Garfield.

Emergence of the Progressive Movement

• The progressive movement led to the professionalization of the civil service with the passage of the Pendleton Act of 1883 -the institution of the merit system in the civil service.

Woodrow Wilson 1887Classical PA

• In his famous essay – ” The Study of Administration” the separation of politics from administration and developing a science of administrative practices.

• Politics /administration dichotomy

Application of Scientific Process to the Administrative Process (1930s)

• Luther Gulick and Lyndall Urwick –POSDCORBPlanning, organizing, staffing, directing, coordinating, reporting and budgeting.

• William Willoughby- The introduction to the study of modern states (1919)

• The reorganization of the administrative branch of government (1925)

• Leonard White (1926) in his writing “Introduction to public administration” acknowledged the politics/administration dichotomy

• The Principles of administration (1927)

What is Public Administration?• Various authors and scholars contributed to

the definition of the discipline in the following manner and context;

• He says PA is the organization and management of men an materials to achieve the purposes of government.

• He further say PA is the art and science of management as applied to the affairs of the state.

Dwight Waldo 1955

Scientific Revolution

• Thomas Kuhn: The Scientific Revolutions (1962)

• The notion of paradigms: an accepted model or pattern of approaching and explaining phenomena shared by community of scholars.

• It made the discipline self conscious, integration of thoughts accumulated in the order of paradigms.

New Public Administration 1968

Minnowbrook conference at the Syracuse University Public Administration attention to policy issues and concerns of policy analysis.

Gerald Caiden 1971

• He says PA is cooperative group effort in public setting.

• He says it covers all three branches -legislative, judicial and executive

• It has an important role in formulating public policy an it is also the political process.

• It has been influenced in recent years by the human – relations approach.

Brian Fry- 1989

• it is policy-making, but it is not autonomous.

• It is one of a number of basic political processes by which the people achieves and controls governance.

David H. Rosenbloom- 1989

• It is the action part of government

• It is the field mainly concerned with the means for implementing political values. It can best be identified with the executive branch.

• It is the process and contents of implementing public policies and programs.

• It is cooperative human action whether within the public bureaucracy, the private sector, or in NGOs aimed at delivering services to the people.

Raul P. De Guzman -1993

Identity Crisis and Issue of Acceptance

• According to Danilo Reyes (The study of PA in Perspective)

• He says PA has experienced constant , almost periodic episodes of re-examination in the course of its struggle for academic acceptance.

Scientific Principles

• Frederick Taylor: Less wastage and inefficiency at the shop room level.

• -It was to increase predictive values to account for the fluid nature of the administrative phenomena.

PA Focus and Process

• Public policymaking

• Fiscal administration

• Organization and management

• Public personnel administration

• Local government administration

• Spatial information management

Public Administrationas Political Science

• Focus on the political process

• PA as an eclectic field

• Public Choice Model: adoption of economic theory

• Sociology: bureaucracy contains dysfunctions

• Psychologists began to offer new perspectives

Paradigms of PA –Nicholas Henry

• The development of each phase may be characterized by locus or focus.

• Locus: is the institutional” where” of the field, e.g. the bureaucracy

• Focus: is the specialized “what” of the field, e.g. principles of administration.

Paradigm 1: Politics/Administration Dichotomy, 1900-1926

Paradigm 2: The Principles of Administration, 1926-1937

Paradigm 3: Public Administration as a Political Science, 1950-1970

Paradigm 4: Public Administration as Management, 1956 -1970

Paradigm 5: Public Administration as Public Administration, 1970

Paradigm 6: From Government to Governance, 1990

Period of Orthodoxy

Scientific management

Bureaucracy

POSDECORB

The Most Serious Challenge

Administrative Behavior

Public Management

New Public Administration

Reinventing Government

New Public Management

New Public Service

Post Modernism

The Future Digital (e) Governance

Evolution of Paradigm

Source www.ginandjar.com

PA as a Developing Discipline

Paradigms or Models of Public Administration

• Paradigms or models attempt to interpret the development of thought in the field and to image its direction

• Politics-administration dichotomy tradition (Woodrow Wilson, Frank Goodnow)

- the role of politics has something to do with the expression of the will of state while administration, with execution

Paradigms/Models

• Science of Administration or Principles of Administration – managerial functions of planning, organizing, staffing, directing, coordinating, reporting and budgeting (Gulick and Urwick)

• Use of classical approaches such as hierarchy, functional division of tasks, centralized housekeeping activities, and line and staff distinctions (John Pfiffner)

• Bureaucratic organization is hierarchical in its structure, based on strict adherence to rules and regulations, impersonal on its behavioral side, with official documents and files providing the necessary permanence and continuity; there is security of tenure, promotion based seniority or merit and positions are held on a full- time basis; there is separation of bureaucratic actions from political and moral decisions; notion of “value-free” administration

Bureaucratic Model of Max Weber

Paradigms or Models

• Scientific management movement – application of science principles to work methods and offered the “one best way” approach of doing things. Influenced by Frederick Taylor, the approach used the scientific methods of inquiry in understanding the problems of wastage and inefficiency in the work place

• Behavioral-environmental concerns movement –evoked by studies of human relations by Elton Mayo

Paradigms or Models

• Systems theory – advocated by Herbert Simon built upon the work of Chester Barnard’s The Functions of the Executive; decision-making was at the heart of managerial processes

Administrative systems can’t limit itself to the internal perspectives of public organization but must equally address the environment in which it operates; political roles of administrators are highlighted at this stage

Paradigms or Models

• Policy issue model – Dwight Waldo argued for a reorientation of the field towards policy issues and concerns of a broader nature such as security, justice, education, science urbanism, and development

Paradigms or Models

• New Public Administration – rejects cherished values generally upheld in administrative thought particularly such norms as efficiency, effectiveness and economy; these values accentuated impersonal nature of public organizations, for they attempted to be efficient and effective at the expense of understanding the needs and demands of their target public; rejected the politics-administration dichotomy; it offered new array of values such as relevance, equity, responsiveness and the proposition that Public Administration must not simply operate within the assumptions of a stable environment, but of a volatile, changing one.

Continuation of Models

• Development Administration - popularized by Riggs, Weidner, Landau, and Gant; emerged as a field of study focused on the development of third world countries

• Gant defined DA as not only addressing State functions such as public service delivery and enforcement of laws but the inducement and management of change to pursue development aspirations; developing countries were in urgent need to implement fundamental reforms in their politico-administrative machinery.

Paradigms or Models

• Reinventing government – David Osborne and Ted Gaebler – emphasis on an “entrepreneurial government” as catalytic (steering rather than rowing); community-owned (empowering rather than serving); competitive (injecting competition into service delivery); mission-oriented (transforming rule-driven organizations); results-oriented (funding outcomes, not inputs); customer-driven (meeting the needs of the customer, not the bureaucracy)

Continuation of Reinventing Government

• Enterprising (earning rather than spending); anticipatory ( prevention rather than cure); decentralized (from hierarchy to participation and teamwork); and market-oriented (leveraging change through the market)

Paradigms or Models

New public management – a reform model; a reaction to the traditional/classical bureaucratic model described as follows:1. There should be a clear separation between politics and administration, and therefore distinct roles for political leaders (normally elected) and state officials (normally appointed)2. Administration should be continuous and predictable, operating on the basis of written, unambiguous rules3. Administrators should be recruited on the basis of qualifications, and should be trained professionals4. Organization should reflect a functional division of labor, and a hierarchical arrangement of tasks and people

Continuation of NPM

4. Organization should reflect a functional division of labor, and a hierarchical arrangement of tasks and people

5. Resources should belong to the organization, not to individuals working in the organization

6. The principal motivation should be a sense of duty , of public interest, which should override organizational or private interests

Characteristics of NPM Model

• Separation of strategic policy from operational management

• A concern with results rather than process and procedure

• An orientation to the needs of citizens rather than the interests of the organization or bureaucrats

• A withdrawal from direct service provision in favor of a steering or enabling role

• A changed, entrepreneurial management culture

• Etymologically, can be traced back to the Greek verb “kubernan” (to pilot or steer) and was used by Plato to design a system or rule.

• World bank (2000) defines Governance is the institutional capacity of public organizations to provide the public and other goods demanded by a country’s citizens or their representatives in an effective, impartial, and accountable manner subject to resource constraints

From Government to Governance, 1990

• Why GOVERNANCE and not merely GOVERNMENT? GOVERNANCE is broader and more fundamental concept than that of government alone

• The problem of modern governance is not much on the insufficiency of instruments relative to the changing objectives but rather the degree of incompatibility between objectives

From Government to Governance, 1990

The Future Digital (e) Governance

• The future is digital: walking the walk on digital government.

• A vibrant government digital service.

• Government discussing their perspectives on the path ahead.

• Digital government, building a 21st century Platform to better the people serve.

The Future Digital (e) Governance

Philippine Digital Strategy 2011-2016

The Future Digital (e) Governance