The document discusses the origins and evolution of public management and administration. It begins by explaining how the first public administrators were military officers in ancient Rome and how many principles of modern public administration originated from the Roman empire's administrative system. It then covers the influence of scientific management theorists like Taylor and Fayol in developing principles to increase organizational efficiency. Finally, it discusses the emergence of newer organizational theories like systems theory and how organizations have moved from mechanistic to more organic models.

1. The Evolution of
Management and
Organization Theory
Lecture 5 –
Administrative
Processes in
Government

2. The Origins of Public
Management
 The key to the city – harks back to an era
when the only way into a city was through
a locked gate.
 The profession of management began and
developed as the profession of arms.
– War is not possible without an effective
system of public administration.
– Military officers were the first public
administrators.

3. The Origins of Public
Management
 The profession of management began and
developed as the profession of arms.
– First armies were mobs with managers.
– Gradually developed hierarchy, line and staff
personnel, logistics and communications.
 The continuing influence of ancient Rome.
– The transfer of managerial control from those of
wealth and power to those with professional expertise
first happened in the Roman army.
– The power of technical expertise would not be seen
again until Napoleon.

4. The Origins of Public
Management
 The continuing influence of ancient Rome.
– Origins of merit system.
– Origins of civil service (to regulate pay).
– The core features of modern public administration
were first found in the Roman Empire.
– Depersonalization, separation of public and private
funds, hierarchy, functional specialization.
– The virtue of military service (as training in
administration).

5. The Origins of Public
Management
 The military heritage of public administration.
– The history of the world can be viewed as the rise
and fall of public administrative institutions.
– Rome was effective because the army’s
organizational doctrine made it superior to its
competitors and because it was backed up by a
sophisticated administrative system of supply
backed by taxes.

6. The Origins of Public
Management
 The military heritage of public
administration.
– The Roman empire only fell when its legions
degenerated into corps of mercenaries and
when its supply and tax bases were corrupted.
– Both victorious soldiers and successful
managers tend to be inordinately admired and
rewarded as risk takers.

7. The Significance of
Administrative Doctrine
 All organizations are guided by a doctrine
of management that reflects basic values.
 The first administrative doctrine (military):
Do this or die!
 Modern example (Henry Ford): All that
we ask of men is that they do the work
which is set before them. (Implication: or
be fired! Better than being shot.)

8. The Significance of
Administrative Doctrine
 More sophisticated doctrines are needed
when meaningful and fulfilling work for its
employees is the central goal of an
organization.
 These doctrines are generally more
conducive to long-term organizational
effectiveness and productivity.

9. The Significance of
Administrative Doctrine
 Doctrine and attitudes affect morale and
performance and more importantly
organizational culture.
 Organizational culture affects the overall
competence or incompetence of the
organization.

10. The Significance of
Administrative Doctrine
 Each organization’s doctrine remains in
place until technological and situational
changes make the organization’s
adaptations less useful and render the
organization incompetent.
 Every major political revolution can be
said to be caused by the same thing – poor
public administration.

11. The Significance of
Administrative Doctrine
 The evolution of management principles.
– Authoritarian or traditional management is the
classical model of military governance applied to
civilian purposes.
– Managers under an authoritarian doctrine value order,
precision, consistency, and obedience.
– This authoritarian model has been gradually been
replaced with less centralized, more participatory
models.
– Why? Because they work better with sophisticated
workers.

12. The Significance of
Administrative Doctrine
 Comparing military and civilian principles.
– No royal road to administrative wisdom. No
hard and fast principles. But:
– Nine principles of war (U.S. Army).
• Objective: Direct every, military operation toward
a clearly defined, decisive and attainable objective.
• Offensive: Seize, retain, and exploit the intiative.
• Mass: Concentrate combat power at the decisive
place and time.

13. The Significance of
Administrative Doctrine
 Comparing military and civilian principles
(contd.)
– Nine principles of war (contd.)
• Economy of force: Allocate minimum essential
combat power to secondary efforts.
• Maneuver: Place the enemy in a position of
disadvantage through the flexible application of
combat power.
• Unity of command: For every objective, insure
unity of effort under one responsible commander.

14. The Significance of
Administrative Doctrine
 Comparing military and civilian principles
(contd.)
– Nine principles of war (contd.)
• Security: Never permit the enemy to acquire an
advantage.
• Surprise: Strike the enemy at a time and/ or place
and in a manner for which he is unprepared.
• Simplicity: Prepare clear, uncomplicated plans and
clear, concise orders to ensure thorough
undestanding.

15. The Significance of
Administrative Doctrine
 Comparing military and civilian principles
(contd.)
– Catheryn Seckler-Hudson’s 12 principles of
management.
• Policy should be defined and imparted to those
who are responsible for its achievement.
• Work should be subdivided, systematically
planned, and programmed.
• Tasks and responsibilities should be specifically
assigned and understood.

16. The Significance of
Administrative Doctrine
 Comparing military and civilian principles
(contd.)
– Catheryn Seckler-Hudson’s 12 principles of
management.
• Appropriate methods and procedures should be developed
and utilized by those responsible for policy achievement.
• Appropriate resources in terms of availability and priority
should be equitably allocated.
• Authority commensurate with responsibility should be
delegated and located as close as possible to the point where
operations occur and decisions need to be made.

17. The Significance of
Administrative Doctrine
 Comparing military and civilian principles
(contd.)
– Catheryn Seckler-Hudson’s 12 principles of
management.
• Adequate structural relationships through which to operate
should be established.
• Effective and qualified leadership should head each
organization and each subdivision of the organization.
• Unity of command and purpose should permeate the
organization.

18. The Significance of
Administrative Doctrine
 Comparing military and civilian principles
(contd.)
– Catheryn Seckler-Hudson’s 12 principles of
management.
• Continuous accountability for utilization of resources and for
the production of results should be required.
• Effective coordination of all individual and group efforts
within the organization should be achieved.
• Continuous reconsideration of all matters pertaining to the
organization should be a part of regular operations.

19. The Significance of
Administrative Doctrine
 Comparing military and civilian principles
(contd.)
– The military list is more policy oriented, more
leadership directed, than the civilian list.
– The military approach underlies the
reinventing government movement.

20. What Is Organization Theory?
 A proposition or set of propositions that
attempts to explain or predict how groups
and individuals behave in differing
organizational arrangements.

21. What Is Organization Theory?
 Classic organizational theory.
– Organizations exist to accomplish production-related
and economic goals.
– There is one best way to organize for production, and
that way can be found through systematic, scientific
inquiry.
– Production is maximized through specialization and
division of labor.
– People and organizations act in accordance with
rational economic principles.

22. What Is Organization Theory?
 Theory derived from organizational
structures and procedures during the
industrial revolution.
 Adam Smith and the pin factory.
– The Wealth of Nations, 1776.
• Laissez-faire.
– Economic rationale for the factory system.
– All formal organizations are force multipliers.

23. The Origins of Scientific
Management
 The basic problem with the traditional
hierarchical organization was that it was
dependent upon the proper enculturation of
individual supervisors at every level for its
success.
 Changes in the environment can make
hierarchical organizations less competent.

24. The Origins of Scientific
Management
 Origin of the staff concept to overcome
limitations of a single mind and fleeting
time.
 The general staff concept has been adopted
by industrial and governmental
organizations.

25. The Origins of Scientific
Management
 The influence of Frederick W. Taylor (1911).
– Father of the scientific management movement.
– Scientific management principles.
• Replacing traditional, rule of thumb methods of work
accomplishment with systematic, more scientific methods of
measuring and managing individual work elements;
• The scientific study of the selection and sequential
development of workers to ensure optimal placement of
works into work roles;
• Obtaining the cooperation of workers to ensure full
application of scientific principles; And.
• Establishing logical divisions within work roles and
responsibilities between workers and management.

26. The Origins of Scientific
Management
 Henri Fayol’s general theory of management (six
principles, 1916, 1949).
– Technical (production of goods)
– Commercial (buying, selling, exchange).
– Financial (raising and using capital).
– Security (protection of property and people).
– Accounting.
– Managerial (coordination, control, organization,
planning and command of people).

27. The Origins of Scientific
Management
 Fayol (contd.).
– Dominant principle was management.
• Division of work.
• Authority and responsibility.
• Discipline.
• Unity of command.
• Unity of direction.
• Subordination of individual interest to general interest.
• Remuneration of personnel.

28. The Origins of Scientific
Management
 Fayol (contd.).
– Dominant principle was management (contd.).
• Centralization.
• Scalar chains (supervisors).
• Order.
• Equity.
• Stability of personnel tenure.
• Initiative, and.
• Esprit de corps.

29. The Period of Orthodoxy
 Interwar period a period of orthodoxy in
public administration.
– Work of government could be divided
between decision-making and execution.
– Administration was a science with
discoverable principles.

30. The Period of Orthodoxy
 Paul Appleby’s polemic.
– Politics and administration inextricably entwined.
 Luther Gulick (1937, POSDCORB).
– Planning (outline and methods).
– Organizing (structure).
– Staffing (personnel).
– Directing (decision-making).
– Coordinating (task management).
– Reporting (communication and record-keeping).
– Budgeting (fiscal planning, accounting, and control).

31. The Many Meanings of
Bureaucracy
 First, “the bureaucracy is the totality of
government offices or bureaus that constitute the
permanent government of the state.
 Second, “the bureaucracy” refers to all of the
public officials of a government, both high and
low, elected and appointed.
 Third, bureaucracy is often used as a general
invective to refer to any inefficient organization
encumbered by red tape.

32. The Many Meanings of
Bureaucracy
 Fourth, bureaucracy refers to a specific set
of structural arrangements (Max Weber).
– Bureaucrats are free as individuals, but not as
employees.
– Hierarchy.
– Clearly specified functions.
– Freedom of hiring.
– Appointment by merit.

33. The Many Meanings of
Bureaucracy
 Fourth, bureaucracy refers to a specific set
of structural arrangements.
– Due compensation and due process.
– Sole occupation.
– Advancement by merit or seniority.
– Non-proprietary rights in position.
– Strict controls.

34. Neoclassical Organization
Theory
 The neoclassical theorists gained their reputation
by attacking the classical theories.
– Important source of the power and politics,
organizational culture, and systems theory.
 Herbert Simon.
– Bounded rationality and satisficing.
– Programmed and unprogrammed decision-making.
– Management information systems.

35. Neoclassical Organization
Theory
 The impact of sociology.
– Philip Selznick – Organizations are made up
of individuals whose goals and aspirations
may not coincide with the organization’s.

36. Modern Structural Organization
Theory
 Basic assumptions
– Organizations are rational institutions whose primary
purpose is to accomplish established objectives
through control and coordination.
– There is a “best” structure for any organization in light
of objectives, environment, products or services, and
the technology of the production process.
– Specialization and division of labor increase the
quality and quantity of production.
– Most problems result from structural flaws.

37. Modern Structural Organization
Theory
 Mechanistic and organization systems.
– Mechanistic – traditional bureaucracy, best in
stable conditions.
– Organic – less rigidity, more participation, and
more reliance on workers, best in dynamic
conditions.

38. Systems Theory
 Systems theory views an organization as a
complex set of dynamically intertwined
and interconnected elements, including
inputs, processes, outputs, feedback loops,
and the environment. Any change in one
element causes changes in other elements.

39. Systems Theory
 Cybernetics – Norbert Wiener (1948).

40. Systems Theory
 The learning organization.
– Built on the doctrines of participation
– Maslow’s hierarchy of needs.
– New component technologies (the five disciplines).
• Personal mastery.
• Mental models.
• Building shared vision.
• Team learning.
• Systems thinking.