Assist. Prof. Dr.

Ozer KOSEOGLU
ELEMENTS OF PUBLIC ADMINISTRATION
1. 2. 3. 4. 5. 6.
People Organization Public policy Laws and regulations Public finance Public ser
vants
TRADITIONAL MODEL OF PUBLIC ADMINISTRATION
y Public administration as both theory and practice began in the late
nineteenth century and lasted in most Western countries largely unchanged until
the last quarter of the twentieth century. y The beginning of the traditional mo
del is best seen in midnineteenth century Britain. y In 1854, the Northcote Trev
elyan Report recommended the abolition of patronage and the substitution of recr
uitment by open competitive examinations under the supervision of a central exam
ining board. y In 1883, the Civil Service Act (the Pendleton Act) was passed whi
ch established a bipartisan Civil Service Commission the holding of competitive
examinations for all applicants to the classified service
CHARACTERISTICS OF TRADITIONAL MODEL OF PUBLIC ADMINISTRATION
y An administration under the formal control of the political y y y
y
leadership, Based on a strictly hierarchical model of bureaucracy, Staffed by pe
rmanent, neutral and anonymous officials, Motivated only by the public interest,
serving any governing party equally, and not contributing to policy but merely
administering those policies decided by the politicians. Its theoretical foundat
ions mainly derive from Woodrow Wilson and Frederick Taylor in the United States
, Max Weber in Germany and Henri Fayol in France.
WOODROW WILSON POLITICS/ADMINISTRATION DICHOTOMY
y There should be a strict separation of
28th President of the United States 1913 1921
politics from the administration; of policy from the strictly administrative tas
k of carrying it out. y Administration lies outside the proper sphere of politic
s. Administrative questions are not political questions. y Politics/administrati
on dichotomy allowed public administration to emerge as a selfconscious field of
study, intellectually and institutionally differentiated from politics.
MAX WEBER: THEORY OF BUREAUCRACY
harismatic Authority the appeal of an extraordinary leader y Traditional Authori
ty such as the authority of a tribal chief; and rational/legal authority y Ratio
nal and Legal Authority ideal type of bureaucracy
y
1864 1920
PRINCIPLES OF MODERN BUREAUCRACY
1. The principle of fixed and official jurisdictional areas, which are 2. 3. 4.
5. 6. 7.
generally ordered by rules (by laws or administrative regulations). The principl
es of office hierarchy, that is supervision of the lower offices by the higher o
nes. The management of the modern office is based upon written documents (the fi
les) which are preserved. Official activity is concieved something distinct from
the sphere of private life. Public monies and equipment are divorced from the p
rivate property of the official. Office management When the office is fully deve
loped, official activity demands the full working capacity of the official. (Ful
l time occupation) The management of the office follows general rules.
FREDERICK TAYLOR SCIENTIFIC MANAGEMENT
y He advocated a change from the old system of
y
y y
Frederick Taylor 1856 1915
y
personal management to a new system of scientific management. standardizing work
, which meant finding the one best way of working and controlling so intensively
as to provide for the maintenance of all these standards. time-and-motion studi
es to decide a standard for working, a wage-incentive system that was a modifica
tion of the piecework method already in existence. The idea that management coul
d be systematic remained important in the public sector and clearly fitted very
well with the theory of bureaucracy.
HENRI FAYOL FUNCTIONS OF MANAGEMENT
y Functions of management
y Forecasting y Planning y Organizing y Commanding y Coordinating y Controlling
Fayol was born in 1841 in a suburb of stanbul, Turkey.
GULICK AND URWICK-POSDCORB
y Planning: goal setting y Organizing: arranging the organizational structure an
d y y y y y
processes to achieve the goals Staffing: recruiting and hiring personnel Directi
ng: supervising the actual processes of doing the assignments Coordinating: ensu
ring to operate in cooperation with other units and people in government Reporti
ng: tracking and communicating within the organization Budgeting: fiscal and fin
ancial activities necessary to produce and provide the programmes, services, or
activities.
SUMMERY OF THE CHARACTERISTICS
y Depends on bureaucracy, that governments should organize
y
y
y
y
themselves according to the hierarchical, bureaucratic principles most clearly e
nunciated in the classic analysis of bureaucracy by Max Weber. there was one-bes
t-way of working and procedures were set out in comprehensive manuals for admini
strators to follow. (Frederick Taylor) Bureaucratic delivery; once government in
volved itself in a policy area, it also became the direct provider of goods and
services through the bureaucracy. There was general belief among administrators
in the politics/administration dichotomy, that is, where political and administr
ative matters could be separated. Public administration is quite different compa
ring with business administration.
EMERGENCE OF NEW PUBLIC MANAGEMENT
y Political change
y Rising of the conservative governments
y Economic change
y Decline of Keynesian economic thought y Rapid change in the private sector y T
he moves towards privatization in its various forms
contracting-out,
reducing government spending y Administrative change y In the early 1980s there
were wide-ranging attacks on the size and capability of the public sector. y The
ideological fervour of attacks on the role of government, and efforts to reduce
its size, faded somewhat in the late 1990s. y Social change y Trust problem y C
hanging demands and expectations of the people
WHAT IS NPM?
y A management philosophy used by governments since
the 1980s to modernize the public sector. y NPM is generally used to describe a
management culture that emphasizes the centrality of the citizen or customer, as
well as accountability for results. y One area of reform that illustrates many
of the NPM principles is the creation of semi-autonomous agencies for service de
livery y The main hypothesis in the NPM-reform wave is that more market orientat
ion in the public sector will lead to greater cost-efficiency for governments.
CHARACTERISTICS OF NPM
y Hood (1991) attributes seven features to the NPM:
y Allowing managers to manage (=Let the mangers y y y y y y
manage) Establishing specific standards and performance measures, Emphasising ou
tput controls, Disaggregating units in the public sector, Increasing public sect
or competition, Increasing use of private sector management approaches in the pu
blic sector, Increasing discipline in resource utilisation.
ONGOING ARGUMENTS
y Privatisation of government seems prominent still
however in Australia, Scandinavia, Eastern Europe, and various Asian and Middle
Eastern countries. y Also public organizations still want to employ new manageme
nt techniques such as total quality management, performance management and strat
egic planning.
y Governments have a variety of roles, the public sector affects the y y y y
entire economy and society. Regulations, taxes, permits, infrastructure, standar
ds, conditions of employment all affect decisions made in private markets. The p
ublic sector is a large purchaser of goods and services from the private sector.
Government redistributes income from better-off members of the society to those
who are not. The public sector has a crucial role to play in determining real l
iving standards which depend for most people on government services (the quality
of schools, hospitals, community care, the environment, public transport, law a
nd order, town planning, and welfare services).
INSTRUMENTS OF GOVERNMENT
PROVISION y government provides goods or services through the government budget
2. SUBSIDY y the government assists someone in the private economy to provide de
sired goods or services 3. PRODUCTION y governments produce goods and services f
or sale in the market 4. REGULATION y using the coercive powers of the state to
allow or prohibit certain activities in the private economy. y Economic regulati
ons (price regulation, quality regulation, competition policy or antitrust legis
lation) y Social regulations (quality standards, safety levels and pollution con
trols)
1.