FDM 203 Methods of Social Research ME 204 Industrial Research & Statistical Analysis Theories in Public Administration Jo B. Bitonio, DPA Professor 2 nd Sem 2012-2013
FDM 203 Methods of Social Research
ME 204 Industrial Research & Statistical Analysis
Theories in Public
Administration
Jo B. Bitonio, DPA
Professor
2nd Sem 2012-2013
• 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
Introduction
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
What is Public Administration?
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.
Public Administration Theory
Source: http://en.wikipedia.org/wiki/Public_administration_theory accessed Feb 2, 2013)
Context Key Values
/Principles/Issues
Proponents Dominant/Theories/Themes
/Sub-Concepts
1. Classical PA (Late 1800-1950’S)
Politicized
bureaucracy
Corruption
Spoils system
Inept
government
Popularization
of scientism in
management
Politics & administration
Dichotomy
Preservation of
Democracy
Promotion of Efficiency
(doing things right),
effectiveness (doing the
right things) and
economy (least cost) in
the government
Classical approach
o Unity of command,
hierarchy, division
of labor, one best
way rule
o Mechanistic view
of the organization
o Closed system
view of the
organization
Frederick Taylor
(1856 -1915)
Robert Owen (1771-
1858)
Charles Babbage (1792
-1871)
Max Weber (1864-
1920)
Herbert Simon
Classical PA is based on the classical
theories of administration (scientific
management, bureaucratic model and
administration management)
Scientific Management
o Focused on lower level of
management
o One-Best-Way vs. Rule of
Thumb
o Time & Motion Studies
Theory of Bureaucracy
o Max Weber’s ideal Type
Bureaucracy or Rational –Legal
Bureaucracy (hierarchy, division
of labor, formally written rules
and procedures, impersonality,
neutrality)
Dr. Joel V. Mangahas
UP-NCPAG 2004
Context Key
Values/Principles/Iss
ues
Proponents Dominant/Theories/Themes
/Sub-Concepts
1. Classical PA (Late 1800-1950’S)
Henri Fayol’s1916
a French industrialist, is now
recognized as the Father of
Modern Management. In year
1916 Fayol wrote a book
entitled "Industrial and
General Administration". In
this book, he gave the 14
Principles of Management.
These 14 principles of
management are universally
accepted and used even today.
According to Henri Fayol, all
managers must follow these 14
principle
o Henri Fayol’s principles of
administration (division of labor,
authority, discipline, unity of
command, unity of direction,
subordination of individual
interest to general interest,
remuneration of employee,
centralization, scalar chain,
order, equity, stability of tenure
of personnel, initiative, esprit de
corps)
http://kalyan-city.blogspot.com/2011/04/henri-fayol-14-principles-of-management.html
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)
What is Administration?
Source: www.ginandjar.com
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
What is Administration?
Source: www.ginandjar.com
In its broadest sense ADMINISTRATION can be defined as the activities of groups cooperating to accomplish common goals
(SIMON, 1991)
10
What is Administration?
Source: www.ginandjar.com
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
What is Administration?
Source: www.ginandjar.com
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 n\be made more effective
or satisfying; and what are the requirements for the continuance
of the cooperative activity
(SIMON, 1991)
What is Administration?
Source: www.ginandjar.com
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)
The Universality of Administration
Source: www.ginandjar.com
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
Source: www.ginandjar.com
ORGANIZATION is the ANATOMY,
MANAGEMENT THE PHYSIOLOGY, of
administration
ORGANIZATION IS THE STRUCTURE;
MANAGEMENT IS THE
FUNCTIONING of administration
(WALDO, 1955)
Characteristics of Administration
Source: www.ginandjar.com
Directorate General
Directorate/Bureau
Division
Section
Organization
Source: www.ginandjar.com
PLANNING
IMPLEMENTATION
CONTROLLING
MANAGER
Management
Source: www.ginandjar.com
Context Key Values
/Principles/Issues
Proponents Dominant/Theories/Themes
/Sub-Concepts
1. Classical PA (Late 1800-1950’S) I. Gulick – POSDECORB
(Planning, organizing, staffing,
directing, coordinating,
reporting, budgeting
In 1937, Luther Gulick and Lyndall
Urwick published their classic collection
of Papers on the Science of
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
Context Key Values
/Principles/Issues
Proponents Dominant/Theories/Themes
/Sub-Concepts
1. Classical PA (Late 1800-1950’S) Herbert Simon –
Administrative Man
o Administrative Behavior: a Study of
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
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
PA Toward Systems Analysis
Context Key Values
/Principles/Issues
Proponents Dominant/Theories/Themes/Sub-
Concepts
Neo-Classic
Approach
o Importance of
human behavior
o Socio-psychological
dimension of the
organization
o Interdependency to
its internal parts and
relation to the
external part
environs were not
taken into account
Neo –Classical
Mary Parker Follet (1868-
1933)
Barnard (1886-1961)
Elton Mayo
Abraham Maslow
Frederick Herzberg
Douglas McGregor
Chris Argyris
Rensis Likert
NEOCLASSICAL THEORY OF
ORGANIZATION (1920’s to 1930s) –
Neoclassical PA derived its concepts
from this school
Commonly referred to as the human
relations or human behavior school
Attempted to improve on the
classical concepts
Follet – importance of the informal
system and exercising leadership
rather then wielding power to
motivate workers
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:
Dr. Joel V. Mangahas
UP-NCPAG 2004
Context Key Values
/Principles/Issues
Proponents Dominant/Theories/Themes/Sub-
Concepts
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:
Dr. Joel V. Mangahas
UP-NCPAG 2004
Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/Sub-
Concepts
Abraham H. Maslow felt as
though conditioning theories
did not adequately capture the
complexity of human behavior.
In a 1943 paper called A Theory
of Human Motivation, Maslow
presented the idea that human
actions are directed 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.
Abraham Maslow – Hierarchy
of Needs (1943) –
psychological, safety, social,
ego, self-actualization
Abraham H. Maslow felt as though conditioning theories did not adequately capture the complexity of human behavior. In a 1943 paper called A Theory of Human Motivation, Maslow presented the idea that human actions are directed 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
Values/Principles/Issues
Proponents Dominant/Theories/Themes/Su
b-Concepts
Frederick Herzberg – (1959)
Motivation hygiene theory
The Father of "Job Enrichment"
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 &
Theory Y (1960)
Douglas McGregor, an American social
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
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
Integration
Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes
/Sub-Concepts
Perspective
o Organizations are viewed as composed
of interrelated and interdependent parts
Looks at these parts or subsystems of the
organization in relation to its environment
Woodrow Wilson
(1887)
Frank Goodnow
(1900)
Luther Gulick (1933)
W.F. Willoughby
(1936)
Leonard White
(1948)
Paul H. Appleby
(1949)
Dwight Waldo
(1952)
– integrates classical approach with
social-psychological perspective of
human relations; this represents
modern PA
Decision-Making Theory
o Rational decision-making
o Herbert Simon – bounded
rationality, satisficing
Industrial Humanism
o Theories of motivation
(McGregor, Argyris,
Maslow, Likert)
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:
Dr. Joel V. Mangahas
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
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
New Public Management
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.
http://www.slideshare.net/jobitonio/new-public-administration
Reinventing Government
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.
http://www.slideshare.net/jobitonio/new-public-administration
Reengineering Organizations
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).
http://www.slideshare.net/jobitonio/new-public-administration
Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/
Sub-Concepts
2. Development
Underdevel
opment
Poverty
Soft states
Administration 1950’s – 1960’s
Nation building
Economic Development
Institutional Strengthening
Involvement of people in
development
Goswami
(1955)
Riggs
Weidner
Roman Dubsky
J.Net
O.P. Dwivedi
George Gant
Concept of DA was
coined by Goswami and
popularized by Riggs and
Weidner
Refers to almost
exclusively to developing
countries in Asia, Africa,
Conceptual foundations
were western (US)
particularly, influenced
largely by scientific
management and
administrative reform
(traditional PA)
Context Key Values
/Principles/Issues
Proponents Dominant/Theories/Themes/Sub-
Concepts
3. New Public
Administration
Late 1960s to 70’s
Widening gap between
the rich & poor
Racial discrimination
Watergate scandal
Cold War
Vietnam War
Equity
Responsiveness
Relevance
Adequacy
Client-orientedness
– protect & promote
welfare of the
disadvantaged
groups
Minnowbrook
Conference
H. George
Frederickson
Disparities existed because PA
has focused less on social
purposes or values of government
policies and programs on the
economy and efficiency of
execution
The value-free and neutral stance
of traditional PA has alienated the
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
Dr. Joel V. Mangahas
UP-NCPAG 2004
Context Key Values/Principles/Issues Proponents Dominant/Theories/Themes/Sub-Concepts
4. New Public Management
Poverty
Low standards of living
Globalization
Economic Integration
Sustainable human
development
Improving human
conditions
Participation and
empowerment of
stakeholders
Improve government
operations
Streamline bureaucracy
Rational public
policymaking
Strong democracy
Rule of law
Hammer &
Champy
Ted Osborne and
David Gaebler
UNDP
ADB
WB
Reengineering
o Fundamental rethinking and radical
change of processes (Hammer and
Champy)
o Improvement (and, if necessary, overhaul)
of systems
Reinventing
o Catalytic government: Steering than
rowing
o Community-owned Government –
Empowering rather than serving
o Competitive government : injecting
competition into service delivery
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
Dr. Joel V. Mangahas
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) Source: Leonardo R. Estacio Jr., MPH, Ph.D.
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