c.

Local Government
Nature & Scope of Public d. Also Public Corporations.

Administration
Walker has divided scope of PA into two parts::
Administrative theory & Applied Administration

1. Administrative theory includes the study of

Scope structure, organization, functions & methods of
Difference of opinion. Whether only managerial or complex all types of public authority engaged in carrying
activities. Whether mere executioner or application of policy out administration at all levels.
or a factor of the formulation of policy also. There are two 2. Applied administration: Classified the main
views forms of applied administration on the basis of
1. The managerial view principal functions as follows
2. The subject matter view a. Political mean the study of
executive-legislative relationships,
Managerial View
politico-administrative activities of
● Made up of managerial tasks. cabinet.
● Henri Fayol:: "the public administration is b. Legislative
comprised of planning organization, command, c. Financial
coordination & control" d. Defensive
● L. Urwick supports it. e. Educational
● P. Maqueen:: PA consists of "Three Ms". "Men, f. Social: Housing, fooding, social
Material & Methods" security & employment
● Prof. Willoughby:: In his book "Principles of g. Economic
Public administration": Five sections h. Foreign
○ General or overall administration i. Imperial
○ Organization j. Local
○ Personnel administration
○ Material & supply
PA not only attainment of the objects of a state, but it is
○ Finance
attainment of good life, peace & order, progressive
● Luther Gulick Coined the word:: POSDCORB
achievement of justice, protection against disease &
insecurity etc.
Subject Matter View
They said that POSDCORB activities cover neither the whole
administration, nor even the most important part of it. Many
other activities such as law & order, defence, social security, Public & Private Administration
education, public health & justice performed by PA. Thus Not Public Administration: Activities of the state
only POSDCORB but also subject matter. Gulick's approach Private Administration: Refers to the club, corporation or
is technique oriented rather than subject oriented. company.
PA has two blades: One is knowledge of the fields covered by
Two different views
POSDCORB, the other is subject matter, in which these
techniques are applied. One: Urwick & Henri Fayol: All administration is one, whether
private or Public. Based on notion that there are similarities
between Public & private as under
Prof. Pfiffner's divided scope into two heads:: Principles &
1. Many managerial techniques are common to
Sphere
both i.e. accounting, filing, statistics, office
1. The Principles
management & procedures, purchases,
a. Organization
disposals & stocking & personnel processes.
b. Management Personnel
Business personnel are recruited in
c. Method & procedure
government departments.
d. Material & supply
○ Establishment of administration Staff
e. Public finance
College at Lahore; where both from
f. Administrative accountability
public or private sides personnel are
2. The Sphere includes
trained, reflect the trend in this
a. Central Government
direction.
b. State government
 b. Administrator gets things done.
2. There is great influence of business techniques 2. The science of politics is an inquiry into best
on government departments & vice versa. means for formulation of policy.
3. Responsibility of both public & private 3. PA is inquiry as to how policies may best be
administration are alike. Both aim at attaining carried out.
their goal in their respective fields through the
efforts of other people & available material. According to Cleun Necley, administration demands correct
4. Both are adaptable. Both are receptive to analysis & accurate orientation with relation to other
change. sciences.
F.W. Taylor, the pioneer of scientific theory, emphasizes that
PA is a science followed by scientific methods of
Two: Differences
experimentation, observation, collection of data,
1. Public administration is bureaucratic, while classification, analysis & formulation of laws & principles.
private is business-like.
2. The methods of enforcement of rules are
different (authoritative or not) Following arguments prove PA as science:
3. Public Administration deals with the matters of 1. Public Administration is derived from
great importance experience & observation.
4. Public administration is comprehensive, Private a. Abul Fazal's Ain-e-Akbari in India,
is not so. Machiavelli's Prince are examples.
5. Public administration is uniform while private is 2. Scientific method are applicable to PA.
not so. (No discrimination vs discrimination) a. Subject matter of PA is measurable &
6. In Public administration, the government holds have relative uniformity.
a monopoly, but this is not the case in private b. To discover new techniques, many
administration. institutions are established over the
7. Public administration is conducted with the world to make comparative studies.
motive of service, while private administration 3. PA is becoming more & more exact & certain.
is profit making. a. Charles A. Beard said that PA had
8. Public administration works in the name of the developed a body of rules & axioms.
state, while private works in its own name. 4. If it is not science today, it would become in
9. Public administration is accountable to the future.
public; while private administration is not a. At present, it provides a framework of
10. The Public & private administration also differ idea about PA, would become basis
on the principle of public relation. (Open to for future.
public v. don't divulge information) b.
11. Public administration does not work more
As an Art
efficiently than private administration (PA:
red-tapism, extravagance, corruption: Pr.A: Actual running of administration. Act of doing things which
higher wage, incentives, good conditions) makes it an art.
12. Public administration is subject to external What is Art?: The act of doing things.
financial control; while private is not.
13. Public administration is more governed by
As a science & Art
governmental laws, and rules than private ad.
in matters of tenders, contracts & purchases. Both science & art. In fact more an art than a science,
because more practical than theoretical.

Science or Art
Its role in democratic State
As a science
1. PA covers all aspect of our life
What is science?:: "Investigation & observation, followed by 2. Police state in the past
tabulation, classification & correlation" 3. Now, the concept of welfare state
First to define the scope of science of public administration. a. State not confined to maintaining law
1. Relation between policy & administration: The & order or providing social security to
science of Politics: deals with methods of people, but it has been assumed as
policy formulation & execution guardian of the people & their interest.
a. Statesman formulates policy
 b. If PA fails, the objective of good life is a. War wreaks havoc. Strong
in danger. administration can cope with
c. According to Prof. W.B. Donham: "If circumstances. Even private entities
civilization fails it will be mainly fall into the scope of PA.
because of a breakdown of b. Fight against hoarders, mafia etc.
administration" c. It is a safeguard against internal
4. Radical change in the nature & volume of state enemies like saboteurs & traitors.
functions since WW1. (More & more activities.)
a. Not only protector of citizens from
external & internal dangers, but also
educator, manufacturer, distributor, Its role in Pakistan
helper & servant. ● Central & provincial ministers are ensured to
have full access to the best possible advice in
The role of PA is as under: the deciding policy questions in Pakistan.
● Pakistan is passing through substantial
1. Administration & Policy changes, and needs correct formulation of
a. Not only execution, but assists policies.
formulation of policies. ● Should greater use of advisory councils to
2. Administration & Society departments.
a. Great stabilizing force ● There should be a public administrator, who
b. Concerned with goals, values, belief, should work as secretary to ministers, aided by
systems. an advisory council.
c. Purpose is to build and institution to ● Gap during breakdown of civil government.
meet these social responsibilities. ● Helped military elites during martial law.
d. Administration exists in a social ● Helped during democratic government.
setting, yet he can deftly change ● In modernization, bureaucracy helped a lot.
society itself. Thus not only an ● 8 five-years plan is the outcome of hardworking
executive; he is also a social engineer. bureaucrats.
3. Administration & Individual According to Ralph Braibanti, political
a. Individuals need the help of PA from
modernity embraces four qualities.
cradle to grave.
b. Since birth he has been registered by 1. Conversion of valid expression of popular will
the local registrar. into actions freely predictable & consistent with
c. Vaccination, schooling, job, suitable fundamental policy of state.
place for burial etc. 2. Popular participation in political process
d. Food we eat, water, house, roads & through popular comprehension of issues,
streets etc. acceptance of personal responsibility, &
commitment to orderly pursuit of change.
4. Administration & Democracy
3. Capability of maintaining national integration
a. Ideals of democracy: progress,
by accommodating cultural, religious forces.
prosperity & protection of common
4. Capability to blend elements of popular will in
man can be obtained by impartial,
stages of development & to make it effective &
honest & efficient administration.
subject to imposition of equity & justice.
b. Modern democratic state increased
the scope of state activity, increasing Pakistan's bureaucracy provided:
demand for PA. 1. Institutional apparatus
c. To serve democracy, PA needs to be 2. Popular comprehension of issues faced by
left autonomous & free. Pakistan
5. Administration & Social Change 3. Capability of maintaining national integration
a. Not only perserver of civilized life, but 4. Capability of mixing popular will with
also great instrument of social development.
change & improvement. 5. Pakistan's administration recruits members on
b. Brings social reforms through the will the basis of merit following the Max Weber's
of people. model rather than on Ascriptive Criteria
c. If PA fail to bring social change,
alternative is the bloody-revolution.
6. Administration & war & peace