Practices, Models of Public Administration

1. The Practice of
Public
Administration

2. 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.

3. 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.

4. 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.

5. Woodrow Wilson 1887
Classical 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

6. Application of Scientific Process to the
Administrative Process (1930s)
• Luther Gulick and Lyndall Urwick –POSDCORB
Planning, 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)

7. 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

8. 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.

9. New Public Administration 1968
Minnowbrook conference at the Syracuse
University Public Administration attention
to policy issues and concerns of policy
analysis.

10. 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.

11. 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.

12. 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.

13. • 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

14. 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.

15. 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.

16. PA Focus and Process
• Public policymaking
• Fiscal administration
• Organization and management
• Public personnel administration
• Local government administration
• Spatial information management

17. Public Administration
as 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

18. 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.

19. 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

20. 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

21. 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)

22. • 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

23. 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

24. 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

25. 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

26. 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.

27. 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.

28. 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)

29. 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)

30. 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 rules
3. Administrators should be recruited on the basis of
qualifications, and should be trained professionals
4. Organization should reflect a functional division of
labor, and a hierarchical arrangement of tasks and
people

31. 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

32. 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

33. • 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

34. • 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

35. The Future Digital (e) Governance

36. • 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

37. Philippine Digital Strategy 2011-2016
The Future Digital (e) Governance