DEVELOPMENT ADMINISTRATION : AN OVER- VIEW Rechakrishnan Sapru INTRODUCTION Development administration emerged in the beginning of 1960s about the time when public administration had reached its zenith’, But since the mid 1960s, the label ‘development administration’ hes acquired a growing popularity in developing countries, although it is not entirely cleer what that label meanst. Ono source of this trend ie the view thot it is the new name given by the scholars of public administration, especially American to the developing countries so that throngh this the Governments of these countries could carry out development programmes and projects. As one article indicates it : “The emerging problem is how to combine skills which exist in these (developing) countries and bring them to beer more effectively in action progeains which will accelerate economic growth, expand social well-being, snd improve public services. This... is the essence of development administration. “In the developing countries of Asia, Africa end Latin Ameri the need of development administration has been well recognized as a means of implementing policies and plans directed towards nation—building and socio-economic ptogress*, The basic assumption towards ‘development administration’ is the “focus of attention on the building ond improvement of a public administration system as part of the total effort of national development.”* Development Administration and Public Administration ‘The expansion of the study of public administration towards ‘development ‘administration’ is simply that something is more neaded. The concept of development administration is a widely recognized concept these days and it has significantly stimulated che interest of scholars, not only of public administration but elso of social sciences, It is being attended to heavily in the developing countries with a view to orienting it to development aspects (programmes and projects related to socio-politico-economic progress) of administration. It does not imply that development administration is subservient to public administration. Development 587588 administration is as much important as the public administration is, The former refers to organized efforts to carry out development-oriented goals, the latter to the genesal or regulatory administration of the government. Ta quote Shou-Sheng Heueb, “development administration is essentially a public administration to maintain the general activity of the government as a going concern, On the other hand, development administration, as the expression implies, Jays emphasis on that role of public administration which is to develop the setivity of the government, especi: ally in the economic, political and social fields."* Thus Heueh docs not draw a clear Hine between the developmental and the general activities of the administration, The conventional public administration is concerned with maintenance of law and order, collection of revenue and application of rules, [Link]. But it differs from development administration in ite objective and scope, First, develop. ment administration is a goal-oriented administration which ix geared to the objectives of nation-building and socio-cconomie progress. Second, it legs emphasis on increasing the administrative capacity for developwnent. The first mey be referred to as ‘administration of development’ end second as ‘development of administcation’. Thus development administration has a wide scope of activities than the one public administration has. Saul [Link] observes ; “No longer is it limited to the mainten- ance of law and order, the provision of some limited public services, and the collection of taxes; rather it is specifically involved in the mobilization of resources and their allocation to a great variety of development activities, on a massive scale’? It follows from Katz's views that development administration is charged with the increasing responsibility of carrying oot planned change in the economic, social and political fields. However, while making a distinction between development administration and public administration, their respective impurtance should not be lost sight of. Tarlok Singh, in the context of development administration in India, agrees : “The character of the prevailing structure of general administration bes a decisive influence oa the strength and weakness of development’ sdministretion. ‘This is because of links which subsist between general and development edministra- tion". The objective of development administration is the attainment of development goals. Tt is the word ‘development’ that is importent that draws a line of demarcation between the two-public administration and development administration. Since the Second World War the functions of the goverament have increased in size and number. But with this, serious imbalance has emerged between the hopes of the people and realities and between the needs of development and their fulfilment, This bas resulted in set-back of national development. In order to carry out the growing functions of the government, the administrative system, which until recently bad only been looking after the general and regulatory589 administration, needs to be developed, adepted or expanded. Apparently, thie involves not only expansion, improvement or even basic reorganization of administ- ative system but also eahencement of the capabilities of administrators to orient them to the tasks of national development. ‘This type of administrative system is currently termed as ‘development administration’. It is an interdiaciplinary anbject of response to the development needs of developing countries, Before the 1950s in the government organizations there wes emphasis ‘on attaining economy and efficiency, but with the expansion in the functions of Rovernment to cope with complex problems and urgent demands of national development, many administrative reforms now recosnize that economic and efficient management is not enough, ‘The administrative machinery must be geared to the Puréuit of new development goals. Bryant very aptly remarks : “with the awakening ‘isoues of human rights and basic human needs, end a changing international order, development administration can and must address equity and redistributive issues with 2 focus on the implementation problems that theve issues raise”? Meaning of Development Administeation To study development administration, it is necessary to have some sort of working definition of the subject. A number of. scholars of public administration and related disciplines have attempted to define the concept of development administration. According to Edward W. Weidner, “development administration is concerned with maximising innovation for development” — He defines innavation for develonment as “the process of planned or intended change in the direction of modernity or nation — building and socio-economic change.” In the same voice, John Montgomery defines the development administration os “carrying out planed change in the economy (in agriculture or industry, or the capital infrastructure _Sapporting either of these), and, to a lesser oxtent, in the social services of the state (especially education and public health).”# To Inayatullah development administration is “the complex of orgeni- zational srrangements for the achievement of action through public authority in Parsuance of (1) socio-economic goals and (2) nation-building. It presupposes policies, plans and programs with a distinct development bias as well ss a bureaucracy which consciously and continually secks to modernize iteelf to meet the demands of planned change.” Fred W. Riggs defines development administration as “organized efforts to carry ont programs or projects thought by those involved to serve developmental objectives.” Farther placing an emphasis on administration of development and development of administration, Riggs observes that “development590 administration refers not only to # government's efforts to cerry out programs designed to reshape its physical, human, ond csltural environment, but alto to the struggle to enlarge a government's capacity to engege in such programs” 1* Going through the various definitions, it is found that the primary objective of development administration is to strengthen the administrative machinery which would bring about socio-politico-economic development. In brief development administration ix the process of carrying out development programmes and projects in the direction of nation—building and socio-economic progress through an administrative orgenieation. It is through public as well as non—public orgonizations and their proper manogement that a developing country can curry development policy measures for the realization of national goals. ‘Iwo Facets of Development Administration ‘The concept of development administration has two major facets. One facet of it refers to ‘development of administration’. By this we mean to develop administrators. It involves strengthening and improving administrative capabilities ‘as a means for achieving development goals. The other facet of it is ‘udministration of development’. According to this interpretation, we expect development administ- ration (administrative organization) to act ¢8 an instrument in the implementation of development programmes, projects and policies. ‘This may involve raising the standerds of educstion, transforming social systems, improving public health, raising national income, stabilising political systems, conserving national resources, improving communication system, constructing dams, power plants and undertaking many other developmental tasks of national importance. Development of administration and administration of development are thus two facets of the concept of ‘development administration’. These are two sides of one coin. In this context, red W, Riggs very aptly remarks : “The relotedness of these two sides involves a chicken and egg type of cau Advinisteation cannot normally be improved very much without changes in the environmental constraints (the infrastructure) that hamper its effectiveness; and the environment itself cannot be changed unless the administration of developments] programs is strengthened”.!® Unless the administrative effectiveness of government is increased, the developinental objectives which s. developing country may aspire for fulfilment cannot be realised. Thus the subject of development sdministration covers both the development of administration (measures to increase the administrative capabilities) and administration of development (administration as a mechanism of nationel development).