INTRODUCTION Unit I

 Meaning, Nature and Scope of Public Administration

 Evolution and Status of the Discipline

 Public and Private Administration

 New Public Administration

 New Public Management

Meaning of Public Administration:

Public Administration is the study and practice of managing public programs and the implementation
of government policies. It involves:

Planning, organizing, directing, coordinating, and controlling public services.

Executing the will of the government for the benefit of society.

Definition by Woodrow Wilson:

"Public Administration is the detailed and systematic execution of public law. Every particular
application of law is an act of administration."

In simple terms:

It’s what government workers (bureaucrats) do every day to ensure that laws are followed and
services are delivered.

✅ Nature of Public Administration:

The nature of Public Administration can be explained through the following features:

Political in Nature:

Works under political leadership and helps implement government decisions.

It is neutral in theory but closely related to politics in practice.

Managerial Function:

Like business management, it deals with planning, organizing, staffing, directing, coordinating, and
controlling.

Public-Oriented:

Focus is on public interest, not personal profit.

Aims to serve the people through welfare services.

Interdisciplinary:

Draws knowledge from various fields like law, economics, sociology, psychology, political science,
etc.

Rule-bound and Legalistic:

Operates within the framework of laws, rules, and procedures.

Bureaucratic in Character:

Based on hierarchy, division of labor, authority, and rules (as per Max Weber’s theory of
bureaucracy).

✅ Scope of Public Administration:

Two main views:

a) Narrow View (Luther Gulick & Lyndall Urwick – POSDCORB):

Focuses only on the managerial aspects of administration:

Planning
Organizing

Staffing

Directing

COordinating

Reporting

Budgeting

This view sees public administration as a technical, managerial task.

b) Wider View:

Covers policy-making, implementation, law enforcement, welfare services, developmental activities,

and citizen engagement.

It includes everything the government does—from issuing passports to fighting poverty.

Modern View:

Public Administration is not just about running offices, but about bringing change, delivering justice,
and improving lives.

📍 2. Evolution and Status of the Discipline

✅ Historical Evolution:

Phase Time Period Key Characteristics

1. Politics-Administration Dichotomy 1887 Woodrow Wilson emphasized separating politics

(policy-making) from administration (implementation). Birth of Public Administration as a discipline.

2. Classical Theory Period 1920s–30s Focused on structure, efficiency, and scientific

management. Key thinkers: Fayol, Gulick, Taylor.
3. Human Relations Movement 1940s–50s Emphasis on motivation, leadership, communication
(Elton Mayo). Recognized human behavior in organizations.

4. Behavioral Approach 1950s–60s Focus on decision-making, psychology, and empirical

research. Public administration seen as a social science.

5. New Public Administration (NPA) 1968–70s Criticized old models. Focused on social
equity, ethics, citizen participation. Slogan: "Less hierarchy, more democracy."

6. New Public Management (NPM) 1990s onward Introduced market-like practices in

government: privatization, performance measurement, customer orientation.

7. Digital/E-Governance Era 2000s onward Use of technology, transparency, e-governance, and

data for better governance.

✅ Status as a Discipline:

Today, Public Administration is a recognized academic subject and a practical field.

Studied in universities under Political Science or as an independent subject.

Considered a science and an art—it involves analysis (science) and action (art).

📍 3. Public vs. Private Administration

Feature Public Administration Private Administration

Objective Welfare of the public Profit-making

Accountability To the public, legislature, and judiciary To the owners or shareholders

Transparency High—subject to laws, RTI, audits Low—mostly internal controls

Political InfluenceYes—works under elected government No direct political involvement

Flexibility Less flexible due to laws and rules More flexible

Decision-MakingSlower, based on procedures Faster, based on business goals

Motivation Public service and duty Profit and competition

Examples Police, Municipal bodies, Health departments Private companies, banks, MNCs

Conclusion:

Both are management systems, but public administration serves people, while private
administration serves business interests.

Detailed Notes
1. Meaning, Nature, and Scope of Public Administration
Meaning
Public Administration is both an academic discipline and a practical activity. It refers to the
organization and management of government affairs, the implementation of public policies,
and the regulation and delivery of services for public welfare. In simple terms, it is
"government in action." It includes everything that public officials do – from making laws
work to managing day-to-day services like policing, education, healthcare, and sanitation.

One of the earliest and most influential definitions was provided by Woodrow Wilson, who
is often regarded as the father of Public Administration. In his 1887 essay titled “The Study
of Administration”, he described public administration as the detailed and systematic
execution of public law. According to Wilson, administration lies outside the proper sphere
of politics and should be studied as a separate science, a concept known as the politics-
administration dichotomy.

Other thinkers like Leonard D. White defined public administration as the business of the
state, concerned with how laws are carried out and services are delivered. Dwight Waldo, a
later scholar, emphasized the value-laden nature of administration, arguing that
administration is inherently political and cannot be completely separated from policy-
making.

Nature of Public Administration

Public Administration has a multidimensional nature, influenced by politics, law, society, and
management principles. Its nature can be described through various characteristics:

It is political because it operates under the direction of elected officials and implements
their policies. Administrators are expected to be politically neutral, but they cannot escape
political influence entirely.

It is bureaucratic in structure, following rules, hierarchy, and procedures as defined by Max

Weber’s theory of bureaucracy. Weber argued that bureaucracy is the most efficient form of
organization, based on hierarchy, formal rules, and impersonal relationships.

It is managerial, involving planning, organizing, staffing, directing, coordinating, reporting,

and budgeting (the POSDCORB functions, as proposed by Luther Gulick and Lyndall Urwick).
It is legalistic, operating within the framework of constitutional and legal provisions. Every
act of administration must be lawful and accountable.

It is public-serving in contrast to private business, aiming for welfare rather than profit.

It is interdisciplinary, drawing from political science, economics, sociology, psychology, and

law, among others.

Scope of Public Administration

The scope of public administration has been debated, leading to two major schools of
thought: the narrow (managerial) view and the broad (integrative) view.

The narrow view limits public administration to the executive and managerial functions of
government. Thinkers like Luther Gulick and Henri Fayol emphasized the importance of
administrative efficiency and technical processes, suggesting that administration is primarily
about managing operations, not policy-making.

On the other hand, the broad view, supported by scholars like Dwight Waldo and Felix
Nigro, includes not only the managerial aspects but also policy formulation, coordination
among departments, political responsiveness, and public accountability. This view sees
public administration as encompassing the entire process of governance—from planning
and decision-making to implementation and feedback.

Modern scholars now view public administration as a comprehensive discipline that

includes:

Policy formulation and analysis

Implementation of laws and programs

Delivery of services (health, education, welfare)

Regulation and control

Bureaucratic leadership

Crisis and disaster management

Developmental and participatory functions

2. Evolution and Status of the Discipline

Public Administration, as a formal discipline, began in the late 19th century but has evolved
through several important phases, influenced by social, political, and intellectual
developments.

Classical Phase (1887–1930s)

The discipline was born with Woodrow Wilson's 1887 essay, advocating for a scientific and
professional approach to administration. This period focused on the politics-administration
dichotomy and the development of administrative principles. Scholars like Frederick W.
Taylor introduced Scientific Management, emphasizing efficiency, time studies, and division
of labor in administration. Henri Fayol contributed with his 14 principles of management,
and Gulick and Urwick systematized administrative functions under POSDCORB.

This era was known for promoting a mechanical and technical view of administration,
focusing on efficiency, hierarchy, and rational organization.

Human Relations and Behavioral Phase (1930s–1950s)

During this period, the shortcomings of the classical approach were exposed. The
Hawthorne Experiments by Elton Mayo revealed the importance of human behavior,
motivation, and informal organization. The behavioralists emphasized understanding
administration as a social and psychological process, not just a technical one.

Herbert Simon, a key figure in this period, criticized the classical approach for being vague
and unscientific. In his work “Administrative Behavior”, he proposed decision-making as the
core of administration and introduced the concept of bounded rationality.

Post-War and Identity Crisis (1950s–1960s)

After World War II, the field faced an identity crisis. Scholars like Dwight Waldo questioned
whether Public Administration was a science, an art, or merely an extension of political
science. During this period, there was growing interest in administrative theory,
comparative studies, and public policy.

New Public Administration (Late 1960s–1970s)

Emerging from social movements and dissatisfaction with traditional bureaucracy, New
Public Administration (NPA) called for reform, responsiveness, and social equity. The
Minnowbrook Conference of 1968, led by scholars like Dwight Waldo, Frank Marini, and
George Frederickson, emphasized that public administration must serve marginalized
communities and be ethically responsible. They rejected mechanical efficiency and
advocated for participatory governance, decentralization, and citizen involvement.

New Public Management (1990s–2000s)

As governments faced economic pressures and demands for better performance, the New
Public Management (NPM) movement emerged. Influenced by neoliberalism and market
reforms, NPM sought to make the public sector more efficient by adopting private sector
principles. It emphasized performance measurement, cost-efficiency, privatization,
customer orientation, and accountability.

Thinkers like Christopher Hood and David Osborne played a major role in shaping NPM.
Their works encouraged a shift from traditional hierarchical administration to flexible,
decentralized, and competitive models.

Present Trends and Digital Governance

Today, Public Administration is entering a post-NPM era with a focus on digital governance,
participatory administration, sustainable development, and ethical leadership. Topics like e-
governance, smart cities, big data, and citizen engagement are gaining importance. Public
Administration is seen as a dynamic and evolving field that responds to the changing needs
of society.

3. Public and Private Administration

While Public and Private Administration share some common principles—such as planning,
organization, and coordination—they differ significantly in purpose, structure, and
accountability.
Public Administration is driven by public interest, service delivery, and welfare goals. It
operates under legal and constitutional frameworks and is accountable to the legislature,
judiciary, and the public. It is often slower and rule-bound due to the need for transparency,
equity, and fairness.

In contrast, Private Administration is focused on profit maximization and efficiency. It is

more flexible and less regulated, allowing faster decision-making and innovation.
Accountability is limited to owners or shareholders, and the motivation is primarily
economic.

Thinkers like Paul Appleby highlighted that public administration is different from business
administration due to its political context, wider scope, and public responsibility.

4. New Public Administration (NPA)

NPA emerged in the late 1960s, primarily in the United States, as a response to the
limitations of classical and behavioral approaches. It was influenced by civil rights
movements, anti-war protests, and rising public expectations.

At the Minnowbrook Conference (1968), scholars like Dwight Waldo, Frank Marini, and
George Frederickson articulated the main ideas of NPA. They emphasized that
administration must be responsive, socially just, and ethically committed. The traditional
focus on efficiency and hierarchy was seen as inadequate to address modern challenges.

Key features of NPA include:

Social Equity: Ensuring fair treatment and access for all citizens, especially marginalized
groups.

Citizen Participation: Encouraging involvement of the public in governance.

Relevance: Administration should deal with real-world problems, not just theoretical
models.

Decentralization and Flexibility: Reducing rigid bureaucracy in favor of adaptive methods.

Though revolutionary in thought, NPA was criticized for lacking a coherent structure and
being too idealistic to implement at scale.

5. New Public Management (NPM)

Developed in the 1990s, NPM was a global movement to reform the public sector by
introducing private sector practices. It aimed to make government more efficient,
accountable, and citizen-friendly.

Christopher Hood defined NPM as a bundle of doctrines promoting:

Results-oriented management

Performance measurement

Customer service

Decentralization

Competition through outsourcing or privatization

Use of managerial techniques from the private sector

David Osborne and Ted Gaebler, in their influential book “Reinventing Government”,
advocated for governments to be more entrepreneurial, empowering, and innovative.

NPM succeeded in making many governments more accountable and performance-driven.

However, it also received criticism for:

Promoting market logic in public services

Undermining public values like equity and fairness

Creating fragmentation and reducing public control

🔚 Conclusion

Public Administration has transformed from a narrow, bureaucratic discipline into a broad,
multidisciplinary field that reflects the complex realities of modern governance. From
Woodrow Wilson’s early ideas to the citizen-focused, tech-driven administration of today,
the field continues to evolve.

It is not just about managing offices or implementing laws—it is about shaping society,
delivering justice, and improving people’s lives through ethical and effective governance.

UNIT II
1. Organisation: Concept and Types

🔹 Meaning of Organisation

Organisation is the framework within which administrative activities are carried out.

It involves structuring roles, responsibilities, communication channels, and authority

relationships.

Aims to achieve administrative or policy goals efficiently and systematically.

🔹 Definitions

L.D. White: “Organisation is the arrangement of personnel for facilitating the

accomplishment of some agreed purpose through allocation of functions and
responsibilities.”

Mooney and Reiley: “Organisation is the form of every human association for the
attainment of a common purpose.”
🔹 Types of Organisation

1. Formal Organisation

Deliberately created, officially sanctioned structure.

Clearly defined rules, procedures, roles, and hierarchical authority.

Goal-oriented and part of the official structure (e.g., ministries, departments).

Characteristics:

Written documents (e.g., rule books, orders).

Clear authority-responsibility relationships.

Channels of communication are pre-determined.

Examples: Government departments, judiciary, public sector enterprises.

2. Informal Organisation

Unwritten, spontaneous, and evolves naturally among people.

Based on social and psychological needs, interpersonal relationships.

Characteristics:

No formal structure.
Dynamic and flexible.

Has strong influence on morale, motivation, and productivity.

Examples: Friendship networks within a department, tea-break discussions.

🔷 2. Primacy of Functional Basis in an Organisation

Functional basis means dividing the organisation based on functions or tasks (e.g.,
Finance, Law, Personnel).

It is the most common and effective basis for structuring administrative machinery.

🔹 Importance:

Promotes specialisation and expertise.

Enhances efficiency in performance.

Ensures clarity in responsibility and easy coordination within each functional area.

Example: In the government, ministries are structured functionally: Ministry of Finance,

Ministry of Education, Ministry of Health, etc.

🔷 3. Principles of Organisation

Organisational principles guide the design, functioning, and management of structures in

public administration.
✅ A. Hierarchy

The scalar chain of authority from top to bottom.

Each level supervises the one below and reports to the one above.

Max Weber emphasized hierarchy as key to bureaucracy.

Benefits:

Ensures control and discipline.

Establishes clear reporting and command relationships.

✅ B. Unity of Command

Every subordinate should receive orders from only one superior.

Avoids confusion, conflict, and dual command.

Fayol’s Principle: Ensures accountability and discipline.

✅ C. Span of Control

Number of subordinates that a manager can effectively supervise.

Ideal span varies depending on nature of work, competence, and use of technology.

Types:
Narrow span: More managers, closer supervision.

Wide span: Fewer managers, more delegation.

✅ D. Authority and Responsibility

Authority: Legal power to issue orders and make decisions.

Responsibility: Obligation to perform assigned tasks.

Key Rule: Authority and responsibility should be balanced. Giving responsibility without
authority leads to inefficiency.

✅ E. Coordination

Harmonizing efforts of all individuals and departments to achieve common goals.

Types:

Vertical Coordination: Between different levels of hierarchy.

Horizontal Coordination: Between departments at the same level.

Gulick’s View: “Coordination is the first principle of organisation.”

✅ F. Centralization and Decentralization

Basis Centralization Decentralization

Power Concentrated at the top Delegated to lower levels
Decision-making Fast at the top but slow at lower levels Quick at local levels
Example Small local bodies Panchayati Raj Institutions
✅ G. Delegation

Transfer of authority from a superior to a subordinate to carry out specific duties.

Components:

Assignment of task

Granting of authority

Creating accountability

Benefits:

Reduces burden on higher officials.

Encourages development of subordinates.

Promotes flexibility and adaptability.

✅ H. Supervision

Process of overseeing and guiding the work of subordinates.

Ensures adherence to rules, targets, and performance standards.

Effective supervision is a tool for control, evaluation, and correction.

✅ I. Line and Staff

Type Meaning Role

Line Direct chain of command, decision-making Operational authority
Staff Advisory roles; support and expertise Provide information and advice

Line and Staff Organisation:

Combines decision-making (line) with expert advice (staff).

Example: A Health Secretary (line) gets technical advice from a Chief Medical Officer
(staff).

✅ Visual Diagram: Line vs. Staff Relationship

Minister
|
Secretary (Line)
|
Dept Heads ——— (Staff Advisors)
|
Field Staff

📝 Conclusion

A sound organisation structure is critical for efficient public administration.

It must be flexible, functionally oriented, and based on principles such as unity of

command, delegation, and coordination.
A balance between formal and informal structures, and between centralisation and
decentralisation, helps in achieving both efficiency and responsiveness.

Suggested Readings

Nicholas Henry – Public Administration and Public Affairs

M.P. Sharma and B.L. Sadana – Public Administration in Theory and Practice

Rumki Basu – Public Administration: Concepts and Theories

Avasthi & Maheshwari – Public Administration