GOOD GOVERNANCE

INTRODUCTION

MEANING

UN - “the process by which public institutions conduct public affairs, manage resources, and
guarantee the realization of human rights in a manner that is free of abuse and corruption”.
HISTORY/EMERGENCE/RATIONALE
Historically there were several reasons for the emergence of the concept of ‘governance’ in
public administration. The collapse of the USSR- and the Eastern Bloc in the eighties had
erased viable alternatives to social transformation. Development administration imposed by
the West which was historically associated with bureaucracy led development unfortunately
had also failed. Planned change imposed from above by overseas aid, foreign experts and
local bureaucracy had failed to bring in systematic growth and social equity. Poverty
inequality, illiteracy, ill-health and social disorganization staled developing societies. By the
late eighties, most third world countries were in the grip of severe economic crises. Search
was on for means to stabilize their budgets and balance of payments. It was around this
period that the World Bank came out with its own prescription for a short-term stabilization
program and a long- term structural reform of the economy that would reform these
countries towards sustainable levels of growth. Concept of good governance, which is used
in the current scenario, has its genesis in policy and programmes started in the West and
supported by global agencies such as World Bank and Organization for Economic
Development (OECD) which stress the need for political and bureaucratic accountability,
sound administrative system and cooperation between the government and the civil society
organizations. Like international institutions, planners, policy makers, researchers have also
attempted to explain the basic aims and characteristics of good governance. The term
governance that has assumed significance since 1989 with its advocacy by the World Bank
was first used in France in the Fourteenth century. Process of globalization started in India in
early 90s when the government realised that there was an urgent requirement for
structural reforms in the existing model of the economy. A slew of economic reforms were
brought in the country which opened the door for liberalization and privatization of the
economy. Needless to say, these reforms have bolstered up the Indian economy and
transformed the lives of millions of the people. Presently ,

CONCEPT
The concept of ‘governance’ and ‘good governance’ are being viewed as the new paradigm
in Public Administration. In the words of Mohit Bhattacharya, “Governance, in spite of being
one of the most widely used concepts in contemporary Public Administration, has been one
which has been either simply decoded or misunderstood and abused. Governance can 217
thus be defined as the “manner in which power is exercised in the management of a
country’ ssocial and economic resources for development.” Thus governance while
encapsulating government, goes beyond it and encompasses the non-governmental
mechanism to meet the needs and aspirations of citizens. However, two other meanings of
the world ‘governance’ can be noted from recent writings on the subject. The first
commutation is in terms of widening the scope of public administration to encompass
informal, non-governmental mechanisms, community or voluntary organizations which
work for public needs or for solving community problems.
Secondly the concept of governance frees public administration from its traditional
emphasis on formal legal structures as the base of authority.
Non-governmental organizations working in the developmental sector have opened up the
possibility of governance without government of decision-making procedures and
programmatic activities that serve the public and help in the development sector; without
the formal structure and authority of government. To administer with formally constituted
governments is not, therefore, the only way available for collective problem solving of the
community.
The last meaning of governance currently in use is to include it as an ongoing global
movement towards democratization, highlighting the rule of law, human rights participatory
development and efforts towards open and transparent administration. This links up
governance to the older ethical normative issues of “good government” in political thought.
Governance then embraces not only good public management but the governing process
should move towards democratic, participatory and equitable models of development with
alert and enlightened citizens at the center stage Governance then becomes a means to
serve the larger end, i.e. empowerment and equitable development of the masses.
GOOD GOVERNANCE
FEATURES/COMPONENTS
E-GOVERNANCE AS A TOOL
e-Governance serves as a vital tool for improving the efficiency, transparency, and
accountability of government operations. By leveraging digital technologies, public
administration can enhance service delivery, reduce bureaucratic delays, and make
governmental processes more accessible to citizens.
E-Governance allows public administrators to streamline administrative functions such as
document processing, licensing, taxation, and service requests. This digitalization reduces
the need for physical paperwork, thereby minimizing the risk of errors and corruption. It
also ensures that services are delivered more promptly, enhancing the overall
responsiveness of public institutions.
Moreover, e-Governance promotes transparency by making governmental data and
processes more accessible. Citizens can track the status of their requests or complaints
online, fostering trust between the government and the public. It also provides
opportunities for greater citizen engagement through online platforms, enabling public
feedback and participation in decision-making.
Ultimately, e-Governance in public administration contributes to more accountable,
efficient, and citizen-centered governance, aligning with the principles of good governance
in the digital era.
ISSUES/CHALLENGES/BARRIERS
Weaknesses and Challenges of Good Governance
1. Implementation Gaps While good governance principles are widely accepted, the
challenge lies in their implementation. In many countries, especially developing ones,
the application of good governance is hindered by weak institutions, lack of
resources, and political will. Even where policies are in place, institutional inertia and
entrenched corruption can prevent reforms from taking effect.
2. Overemphasis on Bureaucratic Procedures Good governance often emphasizes rules,
regulations, and standard operating procedures to ensure fairness and accountability.
However, an overemphasis on bureaucracy can lead to inefficiencies and slowdowns,
as complex systems and processes may create barriers to quick and flexible decision-
making. This can sometimes hinder progress and innovation.
3. Political Interference and Corruption In practice, good governance can be
undermined by political interference and corruption. Even if transparency and
accountability mechanisms are in place, entrenched political elites or corrupt officials
can still manipulate the system for personal gain. Political instability or authoritarian
regimes can also erode the benefits of good governance by consolidating power in
the hands of a few.
4. Uneven Application Across Sectors Good governance is not always applied uniformly
across all sectors of public administration. Some areas, such as law enforcement or
healthcare, may experience significant challenges in ensuring accountability, fairness,
and transparency, while others may perform better. This uneven application can
result in inequalities and frustration among citizens.
ACCOUNTABILITY OF ADMINISTRATION: LEGISLATIVE, EXECUTIVE & JUDICIAL
INTRODUCTION
In a Welfare state line India; the administrative officials exercise numerous powers and
discretion in the discharge of their duties. Though, the Government officials are mainly
intended to implement the policies and programmes within the framework of the laws, they
are also involved in the framing of rules within the broad framework of laws passed by the
Legislature and influence the political authorities in making judicial decisions. Thus, the
Government officials have usurped the Legislative, Executive and Judicial powers. The
administrative officials should be responsible for their official actions. This responsibility of the
administrative officials is called administrative responsibility. Administrative responsibility is
defined as the liability of the officials to give a satisfactory account of the exercise of the
powers or discretion vested in them to someone to whom it is due, failing which some kind of
punishment may follow.

MEANING & DEFINITION

Administrative accountability aims to hold public servants responsible for their performance
and conduct, ensuring they act in the public interest rather than for personal gain. Key
components of administrative accountability include: Responsibility, Transparency,
Answerability and Enforcement. Thus, administrative accountability is critical in ensuring
that public administration is responsive, transparent, and operates with integrity, fostering
public trust in government institutions.
Pfiffner has made a distinction between administrative responsibility and administrative
accountability. Administrative acceptability refers to the formal and specific location of
responsibility whereas administrative responsibility is a highly personal moral quality and is

not necessarily related to formal status of power. Administrative responsibility is therefore,

subjective and works from within while the administrative accountability is objective and
works from without. If the administrative officials have to be made responsible and
accountable for their actions, certain effective controls over them become necessary.
L.D. White defines administrative responsibility as the sum total of the constitutional
statutory, administrative and judicial rules and precedents and the established practices by
means of which public officials are held accountable for their official actions.
SYSTEM OF CONTROL AND ACCOUNTABILITY
The system of control or accountability may probably be divided into two categories, viz.
(1) internal and (2) external. Internal or executive controls are those which are fitted into
the
administrative machinery and work automatically and spontaneously with the movement of
the machinery. External controls are those which are fitted outside the administrative
machinery and work within the constitutional machinery Judicial and ombudsman type.
LEGISLATIVE CONTROL
According to Willoughby the legislature exercises general power of ‘direction, supervision
and control of Public Administration’. Following are the means have been adopted by the
legislature to control over administration:
Control over delegated legislation: Delegated legislation is one of the important means to
control over legislation. In fact, delegated legislation has become a necessary evil as now a
day the matters brought before the legislature to make laws are highly technical in nature.
EXECUTIVE CONTROL
JUDICIAL CONTROL
JUDICIAL REVIEW
INDIAN CONTEXT
In India, control mechanisms over administration are essential for ensuring accountability,
transparency, and efficient functioning of public administration. These mechanisms are
designed to ensure that public administrators perform their duties in accordance with laws,
policies, and public interest. The primary control mechanisms in India include political
control, legal control, administrative control, and judicial control. Below is a brief
explanation of each with examples:
1. Political Control
 Political control refers to the oversight and direction of public administration by the
elected representatives of the people, i.e., the Legislature and the Executive.
 Example: The Parliament of India and State Assemblies hold public administrators
accountable by scrutinizing their work through debates, discussions, and questioning.
Ministries and departments are headed by Ministers who ensure that administrative
actions align with the political objectives of the government.
2. Legal Control
 Legal control refers to the oversight of administration through laws, regulations, and
policies that govern the functioning of the public sector.
 Example: The Right to Information Act, 2005 (RTI) is a key legal mechanism that
allows citizens to seek information from government agencies, promoting
transparency. Similarly, The Comptroller and Auditor General of India (CAG) audits
 government expenditures and reports on the legality and efficiency of the
administration’s financial activities.
3. Judicial Control
 The judiciary acts as a key control mechanism by ensuring that the actions of the
administration are in line with the Constitution and laws of the land.
 Example: The Supreme Court and High Courts have the power to review executive
and administrative actions to ensure they do not violate citizens' rights or the
principles of justice. A notable example is the Public Interest Litigations (PILs), where
citizens or organizations can approach the courts if they believe administrative
actions are unlawful or detrimental to public welfare.
4. Administrative Control
 Administrative control is the internal mechanism within the administration itself to
maintain discipline, integrity, and performance.
 Example: Departmental inquiries are conducted to investigate allegations of
misconduct or inefficiency among government employees. The Central Vigilance
Commission (CVC) and Lokpal are bodies that help address corruption and ensure
that administrative officers remain accountable.
5. Audit and Parliamentary Committees
 Parliamentary committees, such as the Public Accounts Committee (PAC), provide
oversight of the administration by scrutinizing the government’s expenditures and
policies.
 Example: The PAC examines reports from the CAG and ensures that public money is
spent efficiently and according to the law.
Conclusion
In India, a combination of political, legal, judicial, and administrative control mechanisms
work together to ensure that public administration operates within the rule of law, is
accountable, and serves the public interest. These mechanisms help maintain a balance
between authority and accountability in the functioning of government bodies.
CONCLUSION
CITIZEN AND ADMINISTRATION INTERFACE: CONCEPT, PHILOSOPHY & CITIZEN CHARTER
PUBLIC ADMINISTRATION
MEANING, NATURE & SCOPE

Introduction
Public Administration exists in two forms: as an activity and as a discipline or field of study.
Though relatively younger as a discipline than other Social Sciences, as an activity, it has
existed since the beginning of human civilization. Every government, regardless of time or
society, has had to perform essential functions such as defense, law and order, and revenue
collection. Public Administration has played a critical role in these activities, making it a
significant part of any political system. Over time, its role has expanded, becoming central
to the study of governance.
Meaning
Administration, of which Public Administration is a part, is a cooperative human effort to
achieve common goals. The word "administration" is derived from the Latin words 'ad' and
'ministiare,' meaning "to serve" or "to care for." It refers to the management of affairs and is
carried out to achieve pre-determined objectives. Administration involves organizing human
and material resources for a specific purpose and applies to all forms of organizations—
public, private, large-scale, or small-scale.
Essential Components of Administration:
1. Pre-determined objectives
2. Human and material resources
3. Cooperative effort
4. Proper planning and direction
Definition
Public Administration refers to the administration of governmental functions. When the
term "public" is added to "administration," it takes on a special meaning that relates
specifically to managing the activities of the government. Scholars have defined Public
Administration in various ways, emphasizing its focus on public bureaucracy and
governmental functions Scholars have defined Public Administration in varied ways.
In the words of L D White, "Public administration consists of all those operations having for
their purpose the fulfillment or enforcement of public policy". Woodrow Wilson says that,
"Public Administration is a detailed and systematic application of law; every particular
application of general law is an act of Administration". In the words of J.M Pfiffner,
"Administration consists of getting the work of government done by coordinating the efforts
of people so that they can work together to accomplish their set tasks".
According to Percy Mc Queen, "Public administration is related to the operations of
government whether local or central".

Nature
Public Administration has two widely recognized views regarding its nature:
1. Integral View:
According to the integral view, Public Administration encompasses all activities required to
implement public policy and fulfill governmental objectives. This view includes managerial,
technical, clerical, and manual activities. Every official's role, from top executives to clerks
and peons, is considered part of Public Administration.
Supporters: L.D. White, Henry Fayol, Marshal E. Dimock
Example: L.D. White defines Public Administration as "all those operations having for their
purpose the fulfillment or enforcement of public policy."
2. Managerial View:
The managerial view limits Public Administration to managerial activities performed by top-
level officials. It does not include technical, clerical, or manual activities. Administration is
viewed as planning, organizing, coordinating, and controlling to achieve desired outcomes.
Supporters: Luther Gulick, Herbert Simon
Example: Gulick states, "Administration has to do with getting things done; with the
accomplishment of defined objectives."
Comparison:
 Integral View: Includes all levels of activities, from manual to
managerial.
 Managerial View: Focuses solely on managerial functions, excluding
lower-level activities.

Scope of Public Administration

Public Administration, as both an activity and a discipline, has a wide-ranging and dynamic
scope. This scope reflects the complexity of governmental functions and the evolving nature
of public responsibilities, especially in a modern welfare state. The scope of Public
Administration is typically viewed through two lenses: as an activity and as a discipline.
A. Scope of Public Administration as an Activity
There are two prominent perspectives regarding the scope of Public Administration as an
activity: the Traditional View and the Modern View.
1. Traditional View
The traditional view confines the scope of Public Administration to the activities of the
executive branch of government. This viewpoint emphasizes the implementation of policies,
laws, and directives, and sees Public Administration as primarily concerned with executing
governmental decisions.
 Key Features:
o Focuses on the execution of policies decided by the legislative and judicial branches.
o Restricts Public Administration to the operations of the executive branch at various levels:
national, state, and local.
o Excludes the judiciary and legislature, as well as non-governmental administration.

 Supporters: This view is endorsed by scholars like Simon and Thompson.

 Criticism:
o Narrow interpretation: It limits Public Administration to the execution of policies and
excludes broader governmental activities like policy formulation, legislative functions, and
judicial administration.
o In modern democratic states, government functions are broader, including welfare, social
security, public health, and education, which are not addressed in this traditional scope.

2. Modern View
The modern view expands the scope of Public Administration to encompass all
governmental activities, not just those of the executive branch. With the rise of
welfare states and democratic governance, the government’s responsibilities
have widened to cover socio-economic and welfare functions.

 Key Features:
o Comprehensive scope: Includes the activities of all three branches of government—
executive, legislative, and judicial—and all levels of administration (national, state, local).
o Encompasses policy formulation, implementation, and evaluation.
o Reflects the modern government's role in social welfare, economic development, and the
regulation of the private sector.
 Supporters: Scholars like L.D. White, Henry Fayol, and Dimock advocate for this wider
scope.
 Significance:
o Welfare state functions: Modern Public Administration is involved in a vast array of
activities, including health care, education, social justice, public utilities, infrastructure
development, and environmental protection.
o Policy-making role: Public administrators are not just policy implementers but also policy
makers and advisors to the government.
o As per Nigro and Nigro, all three branches of government are part of Public
Administration, making this a holistic view that covers the entire spectrum of state activity.

 Criticism: While this view recognizes the wide scope of Public

Administration, some scholars argue that the rise of private
administration and market-based governance in neo-liberal times has
somewhat reduced the dominance of traditional Public Administration
functions.

B. Scope of Public Administration as a Discipline

As a discipline, Public Administration studies the theories, principles, and practices that
govern public organizations and their functioning. The scope of Public Administration as a
discipline is discussed under two key views: the POSDCORB view and the Subject-Matter
view.
1. POSDCORB View
The POSDCORB view represents a traditional framework for understanding the functional
processes of administration. This acronym, coined by Luther Gulick, breaks down Public
Administration into seven primary activities:
 P – Planning: Thinking before action, setting goals, and deciding on the methods to
achieve those goals.
 O – Organizing: Structuring authority and defining roles within an organization.
 S – Staffing: Recruiting, training, and retaining personnel for effective functioning.
 D – Directing: Leading and motivating employees, issuing orders, and making decisions.
 CO – Coordinating: Harmonizing different activities and divisions to ensure smooth
operations.
 R – Reporting: Informing stakeholders about the progress of work and ensuring
transparency.
 B – Budgeting: Fiscal planning and control, ensuring financial resources are managed
efficiently.
 Key Features:
o Focuses on the functional processes common to all types of organizations, whether public
or private.
o Emphasizes techniques of management, providing a framework for effective
administration.

 Criticism:
o Technique-oriented: Critics argue that this view is too focused on the administrative
techniques or methods (e.g., planning, organizing) and ignores the substantive or policy-
oriented aspects of Public Administration.
o Overlooks specific governmental functions: The POSDCORB view does not account for the
subject-matter expertise required in areas such as education, health, law enforcement, and
social welfare.
o Ignores the policy formulation and implementation roles of Public Administration.

2. Subject-Matter View
The subject-matter view of Public Administration recognizes that the discipline is not just
about techniques of administration but also about the subject areas it manages. Public
Administration involves handling diverse governmental functions and services, including
health, defense, agriculture, education, welfare, and public safety.
 Key Features:
o Public Administration deals with a broad range of governmental functions, including:
 Law and order: Ensuring public safety and enforcing laws.
 Finance: Managing governmental budgets, taxation, and public expenditure.
 Education: Overseeing public educational institutions and policies.
 Public health: Managing health services and ensuring public well-being.
 Agriculture: Promoting agricultural development and food security.
 Welfare: Providing social security, pensions, and public assistance programs.
 Supporters: Scholars like Walker have attempted to classify these
functions into political, financial, legislative, defense, education, and
social welfare categories.

 Significance:
o This view reflects the evolving scope of Public Administration as governments increasingly
take on more complex socio-economic responsibilities.
o Emphasizes the diverse functional areas of Public Administration and the need for
specialized knowledge in each area.
o Recognizes that Public Administration is not just about management but also about
delivering essential public services like healthcare, education, and welfare.

 Criticism: The scope of Public Administration continues to evolve with societal changes,
technological advancements, and globalization, making it difficult to define a fixed boundary
for the subject matter.

Conclusion
The scope of Public Administration is vast and multidimensional, encompassing
administrative techniques (as per POSDCORB) as well as functional areas like health,
education, law, and finance (subject-matter view). It continues to evolve as governments
adapt to new challenges, such as globalization, environmental sustainability, and digital
governance. Understanding both the activity and discipline perspectives provides a
comprehensive view of how Public Administration operates and what it studies.

Significance of Public Administration

Public administration plays a pivotal role in the governance and development of a state. Its
importance has evolved from simply executing governmental policies to becoming a
dynamic force shaping the socio-economic and political landscape of modern societies. The
critical role of public administration, as noted by scholars like John Rohr, is in "governing the
society." It forms the backbone of government functions and contributes to various
dimensions of statecraft, including policymaking, social justice, and crisis management.
Below are the key areas where the significance of public administration is particularly
evident:
1. Basis of Government
Public administration is the foundation upon which governments operate. As Paul H.
Appleby points out, "No government can exist without administration." It ensures the
continuity and smooth functioning of government institutions, whether or not political
leadership changes. In the words of Sardar Patel, India's civil services act as the "steel
frame" of the nation, highlighting their critical role in holding the state's structure together.
Public administration oversees the implementation of laws, policies, and regulations,
ensuring that public life operates smoothly.
2. Womb to Tomb Involvement
Public administration is involved in almost every aspect of an individual’s life from birth to
death. From pre-natal care to birth registration, education, healthcare, employment, and
post-retirement benefits, public administration provides essential services throughout one’s
life. Even after death, public administration plays a role in managing cemeteries and rituals,
illustrating its pervasive presence and significance in modern life.
3. Role in Democracy
In a democratic setup, public administration is integral to preserving democratic values.
According to Richard C. Box, public administration upholds democratic principles by
ensuring citizens' access to fundamental rights and public services. It serves as a bridge
between the elected government and the citizens, helping implement policies, maintaining
ethical standards, and ensuring that the public interest is always prioritized.
4. Instrument of Policy Implementation
Modern governments spend substantial time and resources on formulating policies, but it is
public administration that converts these policies into action. As Avasthi and Maheshwari
state, public progress depends significantly on the quality of its public administration. Civil
servants work diligently to operationalize government schemes, and without effective
administration, even the best policies would remain ineffective.
5. Provision of Basic Services
Public administration is the provider of essential services like education, healthcare,
housing, transport, and social security. These services form the foundation of civilized
society, and as Felix A. Nigro states, the core of administration lies in the public services it
delivers. The importance of public administration has grown as populations increase and as
societies become more complex, necessitating a reliable system to meet public needs.
6. Socio-Economic Change and Development
Public administration is a tool for driving socio-economic changes. It plays a crucial role in
the implementation of development programs and welfare initiatives, such as education
schemes, healthcare programs, and employment projects. As pointed out by F.M. Marx,
public administration is deeply involved in economic management, planning, and execution,
ensuring that societies progress and develop sustainably.
7. Sustainable Development
Public administration is also vital in promoting sustainable development, ensuring that
resources are managed in a way that meets the needs of the present without compromising
future generations. Public administrators manage everything from urban planning to natural
resource conservation, making them key players in the global effort to tackle climate change
and ensure environmental sustainability.
8. Security and Stability
One of the fundamental roles of public administration is to ensure the safety and security of
the state. Public administration oversees law enforcement agencies, defense forces, and
internal security services, ensuring that peace and order are maintained. It also plays a
stabilizing role in society, providing continuity in government functions, even during political
transitions.
9. Vital Force of Stability
In every country, especially in developing nations, public administration acts as a stabilizing
force. According to Paul Pigour, public administration ensures the continuity of governance
and prevents disruptions. By maintaining stability, it enables governments to implement
long-term development plans and foster socio-economic progress. In India, public
administration has been critical in bridging differences among various castes, communities,
and regions, thereby strengthening democracy and national unity.
10. Protector of Civilization
Public administration also plays a role in preserving historical, cultural, and civilizational
heritage. It is responsible for maintaining historical sites, protecting cultural artifacts, and
promoting traditions through initiatives like fairs, cultural programs, and exhibitions.
Without the protective role of public administration, much of our shared cultural heritage
would be at risk of disappearing.
11. Social Justice and Equity
Public administration is crucial for ensuring social justice and equity, especially in diverse
societies like India. It implements welfare programs aimed at uplifting marginalized
communities, including scheduled castes, tribes, women, children, and differently-abled
individuals. By enforcing constitutional provisions and legislative measures, public
administration helps reduce social disparities and promote equal opportunities for all.
12. Crisis Administration
During times of crisis, such as natural disasters or conflicts, public administration plays a
central role in providing relief and rehabilitation. Whether responding to floods,
earthquakes, or man-made disasters, public administrators work to restore essential
services, ensure public safety, and bring life back to normal. In many cases, the timely
intervention of public administration during crises has saved countless lives and reduced
suffering.

Conclusion
The significance of public administration has increased exponentially in the
modern era, becoming indispensable to governance and development. It acts as
both a catalyst for change and a preserver of order, playing crucial roles in
everything from implementing policies to ensuring social justice. In the words
of Dwight Waldo, public administration is not just acted upon but also "acts" as
a dynamic force shaping the state and society. Strengthening public
administrative capacities is essential to meeting the challenges of contemporary
governance, ensuring that civil services remain responsive, effective, and capable
of fulfilling the needs of the people.
 Public Administration: Evolution Since 1887

Public Administration as both a practice and a discipline has evolved dramatically since its
formal inception. While administration has been a core part of governance since ancient
times, it became a distinct field of study in the late 19th century. The journey from a
practice embedded in political philosophy to a systematic discipline has been shaped by
evolving theories, global political shifts, and emerging public needs.
Origins of Public Administration as a Discipline
Pre-1887 Developments:
 Ancient Roots: Administrative functions were evident in early civilizations such as in
ancient India, Greece, and China. Texts like Kautilya’s Arthashastra and Confucius’s teachings
discussed governance, law, and statecraft, offering insights into financial management,
personnel administration, and diplomatic strategies.
 Western Philosophers: Philosophers like Plato in The Republic and Aristotle in Politics
explored justice, governance, and statecraft. Machiavelli's The Prince provided practical
advice on state administration. However, none of these works framed administration as a
separate discipline distinct from politics or philosophy.
Formal Beginning (1887):
 The formal birth of Public Administration as a distinct field is credited to Woodrow Wilson,
whose 1887 essay The Study of Administration called for the separation of politics (policy-
making) from administration (policy implementation). This is famously known as the
Politics-Administration Dichotomy. Wilson’s essay emphasized the need for efficiency and
argued that administration should be studied separately from politics to improve
governance.
Historical Phases of Public Administration: Public Administration evolved through different
phases, which Nicholas Henry classified into five stages:
1. Period I (1887–1926): Politics-Administration Dichotomy
o Key Idea: Separation between politics (policy-making) and administration (policy
implementation).
o Contributors:
 Woodrow Wilson (The Study of Administration, 1887): Advocated for separating
administration from politics.
 Frank J. Goodnow (Politics and Administration, 1900):Furthered the politics-
administration dichotomy.
o Achievements:
 Public administration began to be seen as a distinct field.
 Early focus was on efficiency and the execution of public policies.
 L.D. White’s An Introduction to the Study of Public Administration (1926) became the first
textbook on the subject.

2. Period II (1927–1937): Search for Universal Principles

o Key Idea: Development of universal principles for administration to achieve efficiency.
o Influences:
 Scientific Management (F.W. Taylor): The idea that administrative principles can lead to
greater efficiency.
 Henri Fayol (General and Industrial Administration, 1916): Laid foundational principles for
organizational management.

o Achievements:
 Emergence of theories that emphasized universal principles applicable to both public and
private administration.
 Establishment of professional organizations such as the American Society for Public
Administration (ASPA).
 Public Administration Review was established for academic discourse.

3. Period III (1938–1947): The Humanistic Challenges

o Key Idea: Reaction against the mechanistic view of administration.
o Contributors:
 George Elton Mayo (Hawthorne Studies): Introduced the human relations approach,
highlighting the role of social and psychological factors in administration.
 Herbert A. Simon (Administrative Behavior, 1947): Criticized earlier principles as mere
"proverbs" and introduced the behavioral approach to decision-making.

o Achievements:
 Acknowledgment of the importance of informal organizations and human factors in
administration.
 Shift from rigid principles to a focus on human relationships and behavior in the
workplace.
4. Period IV (1948–1970): Crisis of Identity
o Key Idea: Public administration faced challenges as governments took on more social and
economic roles, leading to a need for new methods and theories.

o Challenges:
 The politics-administration dichotomy was widely criticized and abandoned.
 Emergence of inter-disciplinary approaches, incorporating sociology, economics,
psychology, etc., into public administration.
o Developments:
 The Minnowbrook Conference (1968) gave birth to New Public Administration (NPA),
focusing on social equity, value-based administration, and responsiveness to societal needs.
 Fred W. Riggs contributed to the development of Comparative Administration and
Development Administration, which focused on the context of administrative functions in
developing countries.

5. Period V (1971 onwards): Paradigmatic Shifts

o Key Idea: Paradigm shifts due to globalization, neo-liberalism, post-modernism, and
increased focus on policy science.
o Developments:
 New Public Management (NPM): Emphasized managerial practices, performance
measurement, and a shift towards entrepreneurial governance.
 Focus on public policy analysis: Policy formulation, implementation, and evaluation gained
prominence.
 Increasing involvement of civil society and a shift towards good governance.

o Minnowbrook II and III (1988, 2008): Reinforced the evolution of public administration in
a more inclusive and participatory direction.
o Influential Works:
 David Osborne and Ted Gaebler (Reinventing Government,1992): Advocated for a shift
towards a more entrepreneurial style of governance.
 Focus on critical social theories and neo-liberal approaches enriched the academic
discussion.
Conclusion
Public Administration, beginning as an offshoot of Political Science, has undergone
significant evolution, transforming from a narrow focus on politics-administration
dichotomy to a multi-disciplinary, dynamic, and globally relevant field. Each phase
contributed to shaping the discipline's theoretical and practical foundations. Today, Public
Administration is recognized as an independent, rich field of study with critical roles in
governance, public policy, and administrative reforms worldwide.
NEW PUBLIC SERVICES
INTRODUCTION
Public Administration as a discipline has passed through various phases and has faced a
variety of challenges too. During the last two decades or so, public administration is
undergoing dramatic change. Some general observations can be made based on the trends
of the past few decades, including New Public Administration, New Public Management,
New Public Governance, and New Public Service. The New Public Service approach is
credited to Denhardt and Denhardt. NPS strongly advocated 'service' as the central role of a
government. The government should not be run like a 'business’ , it should be run like a
‘democracy’. It envisages a comprehensive system of accountability in the management and
delivery of budgets and other operations.There will emerge a new culture of co-governance
with the administrators and citizens working together for the common good of the society.
This new attitude and new involvement is 'the New Public Service' NPS is a useful corrective
to prevailing notions of control and steering associated with earlier models of public
management. The New Public Service added the significant dimension of public interest and
citizens as the focus of public service.

Prominent Contributors:
Robert B. Denhardt – American public administration
scholar and thinker. Father of New Public Service approach.
’New Public Service:serving rather than steering’ , ‘Theories of public administration’.
Janet Denhardt – Professor of Public Administration in Arizona State University. Developed
the concept of
New Public Service with Robert Denhardt.
‘The new public service- the dance of leadership’, ‘Street level leadership.’

Roots of the New Public Service:

A counter to the mainstream models of public administration or public management that
are rooted in the idea of rational choice
• Like the new public management and the old public administration, the new public service
consists of many diverse elements and many different scholars and practitioners have
contributed. Yet there are certain general ideas that seems to characterize this approach as
a normative model.
• Significant contemporary precursors of the new public service include : However, there
are more contemporary precursors of the New Public Service, including
(1) theories of democratic citizenship
; (2) model of community and civil society ; and
(3) organizational humanism and
(4)discourse theory
PRINCIPLES
CONCLUSION

The New Public Service (NPS) emphasizes a shift from efficiency-driven approaches to a
focus on democratic values, citizen engagement, and public accountability. It prioritizes
serving the public good and fostering collaborative governance, where public servants act
as stewards of the community's needs. NPS encourages participatory decision-making,
transparency, and responsiveness to citizens, ensuring that the delivery of services aligns
with the broader goals of democracy, equality, and public trust, thus reshaping public
administration for the better.
ORGANIZATION: MEANING TYPES FORMAL & INFORMAL ORGANIZATION

MEANING

The term organisation is viewed differently by different authors depending upon the
emphasis the author would like to lay upon.
DEFINITION
“Organisation is the arrangement of personnel for facilitating the accomplishment of
some agreed purpose through allocation of functions and responsibilities” —L.D. White.
“Organization consists of the relationship of individual to individual and of group to
groups which are so related as to bring about an orderly division of labour” —Pfiffner.

FORMAL ORGANISATION
INFORMAL ORGANIZATIONS
CONCLUSION
In the context
of public
administration, an organization refers to a structured entity within the government or public
sector that is designed to implement policies, deliver services, and meet public needs.
Public administration organizations can vary in structure and function, with types including
hierarchical organizations (e.g., government agencies), decentralized bodies (e.g., local
government units), and collaborative networks (e.g., public-private partnerships). Each type
plays a crucial role in ensuring efficient governance, accountability, transparency, and
responsiveness to the needs of citizens, while upholding democratic values and public
service principles.
COMMUNICATION
INTRODUCTION

MEANING AND DEFINITION

The word communication has been derived from the Latin word ‘communis’ which means
‘common’ which indicates common understanding. It is understood as a process of
exchange of ideas, views, facts, feelings etc., between people to create common
understanding.
Pfiffner considers the communication as "the heart of management", while Millet
describes it as the "blood stream of an administrative organisation".
Peter Drucker has defined communication as "the ability of the various functional groups
within the enterprise to understand each other and each other's functions and concerns'"
" Communication is the process of effecting an inter -change of understand betweer1 two
or more people".
COMMUNICATION PROCESS
TYPES
5 3

4
CONCLUSION
SUPERVISION