Theories in Public Administration

Theories in Public
Administration
FDM 203 Methods of Social Research
ME 204 Industrial Research & Statistical
Analysis

Jo B. Bitonio, DPA
Professor
2nd Sem 2012-2013

Introduction
• Public administration has been called many
things; a subset of political science or at least its
offspring
• Public administration is a process and as such
has been around as long as governments have
existed.
• As a discipline, it is primarily an American idea
that grew out of the late nineteenth-century
movement for government reform
Ann Prentice 1984

Introduction
PA has a relationship to political science in
that its field of endeavor is the body politic, but
where political scientists look at the political
aspect of an activity, public administrators deal
with the implementation of policy for the
smooth operation of departments, programs
and activities that are the outcomes of policy
decisions made by the bodies politic. Public
administration may be more profession than
discipline, in that it combines theory and
practice and is both science and art.
Ann Prentice 1984

What is Public
Administration?
 Public Administration is a species
belonging to GENUS
ADMINISTRATION, which genus
in turn belongs to a FAMILY which
we may call COOPERATIVE
HUMAN ACTION
(WALDO, 1955)

Source: www.ginandjar.com

4

Public Administration Theory
 PA theory is the amalgamation of history, organizational theory,
social theory, political theory and related studies focused on the
meanings, structures and functions of public service in all its forms

 PA often recounts major historical foundations for the study of
bureaucracy as well as epistemological issues associated with public
service as a profession and as an academic field.
Important figures of study include: Max Weber, Frederick Winslow
Taylor, Luther Gulick, Mary Parker Follet, Chester Barnard, Herbert
A. Simon, and Dwight Waldo.

 In more recent times, the field has had three main branches: new
public management, classic public administration, and postmodern
public administration theory.

Source: http://en.wikipedia.org/wiki/Public_administration_theory accessed Feb 2, 2013)

Context Key Values Proponents Dominant/Theories/Themes
/Principles/Issues /Sub-Concepts
1. Classical PA (Late 1800-1950’S)
 Politicized  Politics & administration  Frederick Taylor Classical PA is based on the classical
bureaucracy Dichotomy (1856 -1915) theories of administration (scientific
 Corruption  Preservation of  Robert Owen (1771- management, bureaucratic model and
 Spoils system Democracy 1858) administration management)
 Inept  Promotion of Efficiency  Charles Babbage (1792 Scientific Management
government (doing things right), -1871) o Focused on lower level of
 Popularization effectiveness (doing the  Max Weber (1864- management
of scientism in right things) and 1920) o One-Best-Way vs. Rule of
management economy (least cost) in  Herbert Simon Thumb
the government o Time & Motion Studies
 Classical approach
o Unity of command,  Theory of Bureaucracy
hierarchy, division o Max Weber’s ideal Type
of labor, one best Bureaucracy or Rational –Legal
way rule Bureaucracy (hierarchy, division
o Mechanistic view of labor, formally written rules
of the organization and procedures, impersonality,
o Closed system neutrality)
view of the
organization
Dr. Joel V. Mangahas
UP-NCPAG 2004

Context Key Proponents Dominant/Theories/Themes
Values/Principles/Iss /Sub-Concepts
ues
 Henri Fayol’s1916 o Henri Fayol’s principles of
a French industrialist, is now administration (division of labor,
recognized as the Father of authority, discipline, unity of
Modern Management. In year command, unity of direction,
1916 Fayol wrote a book subordination of individual
entitled "Industrial and interest to general interest,
General Administration". In remuneration of employee,
this book, he gave the 14 centralization, scalar chain,
Principles of Management. order, equity, stability of tenure
These 14 principles of of personnel, initiative, esprit de
management are universally corps)
accepted and used even today.
According to Henri Fayol, all
managers must follow these 14
principle

http://kalyan-city.blogspot.com/2011/04/henri-fayol-14-principles-of-management.html

What is Administration?
 ADMINISTRATION is a type of cooperative
human effort that has HIGH DEGREE OF
RATIONALITY
 The significance of HIGH DEGREE OF
RATIONALITY lies in HUMAN
COOPERATION which varies in effectiveness
of goal attainment whether we think of formal
goals, the goals of leaders, or of all who
cooperate
(WALDO, 1955)


 Administration is a PLANNED
APPROACH to solving of all kinds of
problems in almost every individual or
group activity, both public and private
(DIMOCK, DIMOCK, AND KOENIG, 1960)


9


 In its broadest sense
ADMINISTRATION can be defined as
the activities of groups cooperating to
accomplish common goals
(SIMON, 1991)


10

The study of administration is concerned with questions such as:
1. How the method was chosen?
2. How the men are working towards attainment of goals were
selected and induced to cooperate in carrying out such task?
3. How the task was divided between them?
4. How each one learned what his particular job was in the total
pattern?
5. How he learned to performed it?
6. How his efforts are coordinated with the efforts of the other?

(SIMON, 1991)


11

 Most persons, while they are engaged in ADMINISTRATION
everyday of their lives , SELDOM think formally about the
process.
 They SELDOM deliberately set out to consider the ways in
which the cooperative activities of groups are actually
arranged; how the cooperation could nbe made more effective
or satisfying; and what are the requirements for the continuance
of the cooperative activity
(SIMON, 1991)


The Universality of
Administration
 Since ADMINISTRATION is concerned with all patterns
of cooperative behavior, any person engaged in an activity
in cooperation with other persons is engaged IN
ADMINISTRATION
 Since everyone has COOPERATED with others in his
life, he has some basic familiarity with
ADMINISTRATION and some of its problems
(SIMON, 1991)


Characteristics of
Administration
The characteristics of administration are best
subsumed under two terms ORGANIZATION
AND MANAGEMENT

ORGANIZATION AND MANAGEMENT are the two faces of the
same coin

(WALDO, 1955)


14

Characteristics of
Administration
 ORGANIZATION is the ANATOMY,
MANAGEMENT THE PHYSIOLOGY, of
administration
 ORGANIZATION IS THE STRUCTURE;
MANAGEMENT IS THE
FUNCTIONING of administration

(WALDO, 1955)

Organization

Directorate General

Directorate/Bureau

Division

Section


Management

MANAGER

PLANNING IMPLEMENTATION CONTROLLING


I. Gulick – POSDECORB In 1937, Luther Gulick and Lyndall
(Planning, organizing, staffing, Urwick published their classic collection
directing, coordinating, of Papers on the Science of
reporting, budgeting Administration. Gulick was the president
of the Institute of Public Administration
and a leader in the effort to make
public administration more, well,
scientific. In the opening essay in this
collection, Gulick asked the question:
“What is the work of the chief executive?
What does he do?” Gulick summarized
his answer in the acronym
POSDCORB, which stands for: Planning,
Organizing, Staffing, Directing,
COordinating, Reporting, and Budgeting.
Indeed, into these seven “functional
elements,” Gulick argued “can
be fitted each of the major activities
and duties of any chief executive.”

www.hks.harvard.edu/thebehnreport/All%20Issues/July2011.pdf

Herbert Simon – o Administrative Behavior: a Study of
Administrative Man Decision-Making Processes in Administrative
Organization is a book written by Herbert A.
Simon (1916–2001). It asserts that “decision-
making” is the heart of administration, and
that the vocabulary of administrative theory
must be derived from the logic and psychology
of human choice," and it attempts to describe
administrative organization "in a way that will
provide the basis for scientific analysis. The
first edition was published in 1947; the
second, in 1957; the third, in 1976; and the
fourth, in 1997. As summarized in a 2001
obituary of Simon, the book "reject[ed] the
notion of an omniscient 'economic man'
capable of making decisions that bring the
greatest benefit possible and substitut[ed]
instead the idea of 'administrative man' who
'satisfices” -- looks for a course of action that
is satisfactory

http://en.wikipedia.org/wiki/Administrative_Behavior

PA Toward Systems Analysis
This change in viewpoint, which was a response to
social and technological change, poses problems in
outlining the intellectual boundaries of public
administration. Administration of activity in the public
sector is still at the core, but the full implications of this
work are not fully recognized. The concern of the 1930s
with budgets became, in the 1960s, work with the
development of techniques for analyzing costs and
benefits of programs. This is only one indication of the
shift in public administration away from structures and
processes and toward systems analysis.
Ann Prentice 1984

Context Key Values Proponents Dominant/Theories/Themes/Sub-
/Principles/Issues Concepts
 Neo-Classic Neo –Classical NEOCLASSICAL THEORY OF
Approach  Mary Parker Follet (1868- ORGANIZATION (1920’s to 1930s) –
o Importance of 1933) Neoclassical PA derived its concepts
human behavior  Barnard (1886-1961) from this school
o Socio-psychological  Elton Mayo  Commonly referred to as the human
dimension of the  Abraham Maslow relations or human behavior school
organization  Frederick Herzberg  Attempted to improve on the
o Interdependency to  Douglas McGregor classical concepts
its internal parts and  Chris Argyris  Follet – importance of the informal
relation to the  Rensis Likert system and exercising leadership
external part rather then wielding power to
environs were not motivate workers
taken into account  Elton Mayo (late 1920s to 30’s)
experiments – worker’s anchor of
security and productivity has greater
influence on employee productivity
rather than management demands;
workers are obliged to adhere to
their group norms

Reference:
UP-NCPAG 2004

NEOCLASSICAL THEORY OF
ORGANIZATION (1920’s to 1930s) –
Neoclassical PA derived its concepts from
this school
 Barnard – Function of the Executive
(1938) – viewed organization as a
cooperative system whereby workers
make contributions to it and
management provide inducements to
encourage workers to contribute to
the organization. He highlighted the
importance of social and
psychological incentives like prestige,
pride, and loyalty over economic
considerations
 Abraham Maslow – Hierarchy of
Needs (1943) – psychological, safety,
social, ego, self-actualization
 Frederick Herzberg – (1959)
Motivation hygiene theory
 Douglas McGregor – Theory X &
Theory Y (1960)

Reference:
UP-NCPAG 2004

Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/Sub-
Concepts
Abraham H. Maslow felt as  Abraham Maslow – Hierarchy
though conditioning theories of Needs (1943) –
did not adequately capture the psychological, safety, social,
complexity of human behavior. ego, self-actualization
In a 1943 paper called A Theory  Abraham H. Maslow felt as
of Human Motivation, Maslow though conditioning theories
presented the idea that human did not adequately capture
actions are directed toward goal the complexity of human
attainment. Any given behavior behavior. In a 1943 paper
could satisfy several functions called A Theory of Human
at the same time; for instance, Motivation, Maslow
going to a pub could satisfy presented the idea that
one’s needs for self-esteem and human actions are directed
for social interaction. toward goal attainment. Any
given behavior could satisfy
several functions at the same
time; for instance, going to a
pub could satisfy one’s needs
for self-esteem and for social
interaction.

Context Key Proponents Dominant/Theories/Themes/Su
Values/Principles/Issues b-Concepts
Frederick Herzberg – (1959) The Father of "Job Enrichment"
Motivation hygiene theory and the originator of the
"Motivation-Hygiene Theory

In 1959, Frederick Herzberg developed a
list of factors which were developed a list
of actors which were closely based on
Maslow’s hierarchy of needs, except it
more closely related to work. Herzberg
theorized that hygiene factors must be
present in the job before motivators can be
used to stimulate the workers:
Hygiene or Dissatisfiers:
Working conditions
•Policies and administrative practices
•Salary and Benefits
•Supervision
•Status
•Job security
•Fellow workers
•Personal life

Motivators or Satisfiers:
•Recognition
•Achievement
•Advancement
•Growth
•Responsibility
•Job challenge

http://www.nwlink.com/~donclark/hrd/history/herzberg.html

Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/Sub-
Concepts
Douglas McGregor – Theory X & Douglas McGregor, an American social
Theory Y (1960) psychologist, proposed his famous X-Y
theory in his 1960 book 'The Human Side
Of Enterprise'. Theory x and theory y are
still referred to commonly in the field of
management and motivation, and whilst
more recent studies have questioned the
rigidity of the model, Mcgregor's X-Y
Theory remains a valid basic principle
from which to develop positive
management style and techniques.
McGregor's XY Theory remains central to
organizational development, and to
improving organizational culture.
McGregor's X-Y theory is a salutary and
simple reminder of the natural rules for
managing people, which under the pressure
of day-to-day business are all too easily
forgotten.
McGregor's ideas suggest that there are
two fundamental approaches to managing
people. Many managers tend towards
theory x, and generally get poor results.
Enlightened managers use theory y, which
produces better performance and results,
and allows people to grow and develop

http://www.businessballs.com/mcgregor.htm

Integration
After World War 11,public administrators went through
a period of self-doubt and self-criticism. For many of them,
being good policy implementers and managers was no
longer enough. Theoretical questions concerning the
discipline were posed. The scope of their role and concerns
changed from that of being responsible for the traditional
planning, organizing, staffing, reviewing, and budgeting
activities to a much broader charge. Public administrators
realized that study of the organization should encompass
the study of human behavior and study of budgeting should
include the study of theory as well as practice. Public
administrators became aware of inter-connections between
science and technology and between policy and
administration.
Ann Prentice 1984

Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes
/Sub-Concepts
 Perspective  Woodrow Wilson – integrates classical approach with
o Organizations are viewed as composed (1887) social-psychological perspective of
of interrelated and interdependent parts  Frank Goodnow human relations; this represents
Looks at these parts or subsystems of the (1900) modern PA
organization in relation to its environment  Luther Gulick (1933)  Decision-Making Theory
 W.F. Willoughby o Rational decision-making
(1936) o Herbert Simon – bounded
 Leonard White rationality, satisficing
(1948)  Industrial Humanism
 Paul H. Appleby o Theories of motivation
(1949) (McGregor, Argyris,
 Dwight Waldo Maslow, Likert)
(1952)  Open Systems Theory
oOrganizations as open systems
oOrganizations responds to
internal and external forces
 Contingency Approach
oAttempts to integrate the
various schools of management
ideas
oProposes no single technique or
method is applicable to all
situations

Reference:
UP-NCPAG 2004

Modern Public
Administration
 A 'postmodern' epistemology is explored in
terms of its consequences for writing about
organizations
 The indicative period of modern public
administration in the 50s. The sub phases
include: (a) development administration; (b)
new public administration; (c) new public
management and reinventing government; and
PA as governance.
http://www.slideshare.net/jobitonio/modern-public-administration

New Public Management
The ideas of “new public
management” and “reinventing
government” were essentially born out
of the continuing search for solutions to
economic problems in 1970s and to
produce a government that “works
better but costs less.” (Denhart 2004:
136)

http://www.slideshare.net/jobitonio/new-public-administration

Reinventing Government

The idea of “reinventing government” was
advanced by Osborne and Gaebler in 1992. Their
concept of NPM was sparked by the use of business
model prescriptions for government i.e. using private
sector innovation, resources, and organizational ideas
to improve the public sector. Reinventing Government
provided ten principles through which public
entrepreneurs might bring about massive
governmental reform principles that has remained at
the core of the new public management.


Reengineering Organizations

Another similar movement was
“reengineering organizations.” This term was
coined by Michael Hammer (1990) in an article
published by the Harvard Business Review.
Reengineering offers an approach for
improving performance, effectiveness, and
efficiency of organizations regardless of the
sector in which they operate.


According to Hammer and Champy (1993),
“reengineering is the fundamental rethinking and
radical redesign of business processes to achieve
dramatic improvements in critical contemporary
measures of performance, such as cost, quality,
service, and speed.” (Hammer and Champy 1993
as cited in Halachmi 1995: 330).


Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/
Sub-Concepts
2. Development Administration 1950’s – 1960’s  Goswami  Concept of DA was
 Underdevel  Nation building (1955) coined by Goswami and
opment  Economic Development  Riggs popularized by Riggs and
 Poverty  Institutional Strengthening  Weidner Weidner
 Soft states  Involvement of people in  Roman Dubsky  Refers to almost
development  J.Net exclusively to developing
 O.P. Dwivedi countries in Asia, Africa,
 George Gant  Conceptual foundations
were western (US)
particularly, influenced
largely by scientific
management and
administrative reform
(traditional PA)

3. New Public Late 1960s to 70’s
Administration
 Widening gap between  Equity  Minnowbrook  Disparities existed because PA
the rich & poor  Responsiveness Conference has focused less on social
 Racial discrimination  Relevance  H. George purposes or values of government
 Watergate scandal  Adequacy Frederickson policies and programs on the
 Cold War  Client-orientedness economy and efficiency of
 Vietnam War – protect & promote execution
welfare of the  The value-free and neutral stance
disadvantaged of traditional PA has alienated the
groups less privileged and deprived
groups in society
 According to New PA Proponents,
public administrators should not
be neutral; they should be
committed to both good
management and social equity as
values to be achieved
 Advocated: client-oriented
administration, non bureaucratic
structures, participatory decision-
making, decentralized
administration, and advocate
administrators
UP-NCPAG 2004

Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/Sub-Concepts
4. New Public Management
 Poverty  Sustainable human  Hammer &  Reengineering
 Low standards of living development Champy o Fundamental rethinking and radical
 Globalization  Improving human  Ted Osborne and change of processes (Hammer and
 Economic Integration conditions David Gaebler Champy)
 Participation and  UNDP o Improvement (and, if necessary, overhaul)
empowerment of  ADB of systems
stakeholders  WB  Reinventing
 Improve government o Catalytic government: Steering than
operations rowing
 Streamline bureaucracy o Community-owned Government –
 Rational public Empowering rather than serving
policymaking o Competitive government : injecting
 Strong democracy competition into service delivery
 Rule of law o Mission-Driven Government: Funding
outcomes, not inputs
o Customer-Driven Government: Meeting
the needs of the customers, not the
bureaucracy
o Enterprising government: Earning rather
than spending
o Anticipatory government: Prevention
rather than cure
o Decentralized government: From
hierarchy to participation and teamwork
o Market-oriented government: leveraging
change through the market
 Public Choice Theory
 Governance
o Accountability
o Transparency
o Predictability
o participation

UP-NCPAG 2004

The Use of
Theories in
Research

Deductive approach
Typically used in Quantitative Research

Researcher tests or verify a theory

Researcher tests hypotheses with
research ?s from the theory

Researcher defines and
operationalizes variable derived
from the theory

Reearcher measures or observe
variables using an instrument to
obtain

Source: Leonardo R. Estacio Jr., MPH, Ph.D.

Deductive Approach
• Placement of a theory in quantitative research
only
• General guide:
• Introduce the theory early in the study:
• in the intro, in the review of lit,
• immediately after the hypotheses or research ?s
(as a rationale for the connection among the
variables)
• Or as a separate section of the study (ideal so
that researcher can clearly identify the theory
vis-à-vis the study) Leonardo R. Estacio Jr., MPH, Ph.D.
Source:

Quantitative Theory Perspectives
(Cresswell, 2009:59)
• “The theory that I will use is____ (name of theory). It was
developed by ____ (identify the origin, source or
developer of the theory), and it was used to study ___
(identify the topics where one finds the theory being
applied). This theory indicates that ___ (id the propositions
of hypotheses in the theory). As applied to my study, this
theory holds that I would expect my independent variable/s
___ (state independent variables) to influence or explain
the dependent variable/s (state dependent variables)
because ___ (provide a rationale based on the logic of the
theory)

Source: Leonardo R. Estacio Jr., MPH, Ph.D.

Example of Theories
• Theory on delivery of services,
implementation of programs.
• A theory that relates performance with
organizational structure

Theories in Public Administration

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