Field of Administration is field of business
The source of answer for this is from 2 books namely Prasad and Prasad and Nicholas henry ..
P&P u would have seen the corresponding reference ..Nicholas henry gives reasons why at all Public Administration dichotomy was supported in initial era .. ( a new branch and so had to support its cause diff from political science and especially during great depression , and the foundation for the principles era ..principles can develop only when u say its based on facts )
Saturday, April 3, 2010
I.A.S. PUBLIC ADMINISTRATION PAPER 1 2009 SOLVED CONTINUED
the field of public administration is a field of business (woodrow wilson)
The statement is in the context of late 19th century USA, when spoils system was prevalent, but voices for career bureaucracy were being raised. Woodrow Wilson emphasized the need for a separate field of study for public administration, separate from political science. Political science focussed its activity on the forms of government and policies. Public administration was thought to be a clerical work.
According to Wilson, it is getting difficult to run a constitution, than to frame one. Running the constitution means implementing the policies of the government. The policies were well laid, but the implementation was not efficient, and less effective. No matter how good the policy is, it is only as good as implemented. There was a need to study the field of public administration separately from the field of political science, as it was realized that question of public administration are not questions of political science.
The need was to make the business of government less unbusiness like. The principles of efficiency and economy were to be applied to the government administration, as well applied to the field if business. Thus the field of public administration, according to Wilson, is a field of business, as different from the field of political science.
There was a need to have science of public administration, where principles could be evolved, and applied to the practice of government administration. The public administration is no more to be done as clerical work, it requires more skills, similar to those required in the administration of private business.
But this similarity of the two administrations need not be taken too far, as their are many significant differences in public and private administrations. They differ in purpose, loyalty, exposure, environment setting and other aspects. The purpose of private administartion is profit, whereas that of public administration is pubic service.Private administrators are loyal to the owner of the orgabisation, whereas the public administration should orient their loyalty to citizenry in general, and elected political representatives in particular. Public administration is running on public money, and so its methods and techniques are exposed to the scrutiny of the public in general. Public administration works in the overall constitutional setting and political environment, whereas private administration works in the market environment.
Nevertheless, at that time of history, there was a need to make the public administration adopt certain practices of business administration. And so Wilson's remark was valid, and well received. Wilson is known as the father of public administration, for his contribution in carving out a separate field of public administration, separate from political science.
Currently, the situation is more complex. After many phases of public administration, and particularly after New Public Management, it has borrowed a lot from the private administration. It is collaborating with the private administration in the form of public private participation. The boudary between the two is getting blurred when it comes to developmental functions. Still public adminstration has maintained its separate identity from when it comes to critical functions, and welfare functions where private administration leaves a gap.
The statement is in the context of late 19th century USA, when spoils system was prevalent, but voices for career bureaucracy were being raised. Woodrow Wilson emphasized the need for a separate field of study for public administration, separate from political science. Political science focussed its activity on the forms of government and policies. Public administration was thought to be a clerical work.
According to Wilson, it is getting difficult to run a constitution, than to frame one. Running the constitution means implementing the policies of the government. The policies were well laid, but the implementation was not efficient, and less effective. No matter how good the policy is, it is only as good as implemented. There was a need to study the field of public administration separately from the field of political science, as it was realized that question of public administration are not questions of political science.
The need was to make the business of government less unbusiness like. The principles of efficiency and economy were to be applied to the government administration, as well applied to the field if business. Thus the field of public administration, according to Wilson, is a field of business, as different from the field of political science.
There was a need to have science of public administration, where principles could be evolved, and applied to the practice of government administration. The public administration is no more to be done as clerical work, it requires more skills, similar to those required in the administration of private business.
But this similarity of the two administrations need not be taken too far, as their are many significant differences in public and private administrations. They differ in purpose, loyalty, exposure, environment setting and other aspects. The purpose of private administartion is profit, whereas that of public administration is pubic service.Private administrators are loyal to the owner of the orgabisation, whereas the public administration should orient their loyalty to citizenry in general, and elected political representatives in particular. Public administration is running on public money, and so its methods and techniques are exposed to the scrutiny of the public in general. Public administration works in the overall constitutional setting and political environment, whereas private administration works in the market environment.
Nevertheless, at that time of history, there was a need to make the public administration adopt certain practices of business administration. And so Wilson's remark was valid, and well received. Wilson is known as the father of public administration, for his contribution in carving out a separate field of public administration, separate from political science.
Currently, the situation is more complex. After many phases of public administration, and particularly after New Public Management, it has borrowed a lot from the private administration. It is collaborating with the private administration in the form of public private participation. The boudary between the two is getting blurred when it comes to developmental functions. Still public adminstration has maintained its separate identity from when it comes to critical functions, and welfare functions where private administration leaves a gap.
I.A.S. PUBLIC ADMINISTRATION PAPER 1 2009 SOLVED
Quote:
Q. 1/c) taylor's contribution was not a set of general principles fpr organising work efficiency, but a set of operating procedures that could be employed in wach concentrate situation to secure their application.
Unlike Chester Barnard (who is criticized for having 'abstractness of presentation')
Or Maslow (who's hierarchy of needs can't be turned into a practice guideline for managers.)
Taylor doesn't just stop after giving a general principle. but gives detailed instructions & procedures on how exactly should that principle be implemented?
for example.
[top]
scientific selection of right men for right job
Here Taylor gives the 'specific operating procedures'->
Who is fit to handle pig iron ?
he shall be stupid , so phlegmatic that he nearly resembles in his mental makeup ox. (= select dumb people for manual labor.)
there is work for each type of man, dry horse & trotting horse.
There is no type of work however that suits all types of man”
Another general principle given by him
[top]Finding One best way of doing the work, replacing the old 'Rule of thumb'
But how exactly should we find that 'one best way of doing it?'
he again gives procedure :
gather mass of traditional knowledge
record it
Tabulate it
reduce it to laws rules, & mathematical formula.
Q. 1/c) taylor's contribution was not a set of general principles fpr organising work efficiency, but a set of operating procedures that could be employed in wach concentrate situation to secure their application.
Unlike Chester Barnard (who is criticized for having 'abstractness of presentation')
Or Maslow (who's hierarchy of needs can't be turned into a practice guideline for managers.)
Taylor doesn't just stop after giving a general principle. but gives detailed instructions & procedures on how exactly should that principle be implemented?
for example.
[top]
scientific selection of right men for right job
Here Taylor gives the 'specific operating procedures'->
Who is fit to handle pig iron ?
he shall be stupid , so phlegmatic that he nearly resembles in his mental makeup ox. (= select dumb people for manual labor.)
there is work for each type of man, dry horse & trotting horse.
There is no type of work however that suits all types of man”
Another general principle given by him
[top]Finding One best way of doing the work, replacing the old 'Rule of thumb'
But how exactly should we find that 'one best way of doing it?'
he again gives procedure :
gather mass of traditional knowledge
record it
Tabulate it
reduce it to laws rules, & mathematical formula.
I .A. S . PUBLIC ADMINISTRATION PAPER 1 2009 SOLVED
Instructions :
candidates should attempt que.no.1 & 5 which are compulsory & any 3 of the remaining questions selecting atleast 1 question from each section.
1. comment on any 3 of the following statements not more than 200 words each :
a) the field of public administration is a field of business (woodrow wilson)
- woodrow wilson is regarded as father of public administration as he emphasized the need for a separate study of p.a. he also indicated the nature of this study & the lines along which it should be developed . this was his vision of p.a. his ideas are contained in his seminal 1887 essay "the study of administraiton" which is seen as the beginning of the discipline of p.a.
context of Wilson's Ideas :
Wilson's ideas have to be seen as a part of the movement to reform the civil serice of america that began in 1883 with the pendleton act.
Wilson's Vision On P.A :
wilson called for & laid the foundation of a systematic study of a administration.
the major elements are :
- there should be a separate study of administration.
- such study should be a science
- he outlined the perspective for the new science.
- he outlined the suject-matter of the new science
- he indicated methedology for the science
NAture of administration :
- for wilson administraiton menat detailed & systematic execution of law
- it consisted of application of cases, of general laws.
- he talked & related administraiton with politics
- wilson beleived administration & politics are separate aspects of government.
- he laid the foundation of politics-administraiton dichotomy system of governance.
- the foundations of administration for him were the principles of politics.
- he was aware that radical distinction between these 2 would lead to the creation of bureaucratic ellite.
- finally, he thought he disagreed with interference of the general acknowledge public opinon as a valuable control on the bureaucracy. b) he believed that , especially in democracies, administration had to be responsive to the public opinion.
Wilson's View P.A. Linked to Business.Administration :
- wilson made & linked p.a. to business administraiton.
- this is because he felt even business was separate from politics.
- this has been interpreted as wilson regarding public & private administraton to be the & thus calling for a generic science of administration.
- he called for public administration taking the technology of administration used by private sector as also its central concerns of eeficiency, economy & effectiveness.
- while saying that 'administraiton is business' wilson also understood the wider & indepth agenda of p.a.
- later on he said p.a. should be business-like, but not a business.
- p.a. is an organis life he said.
Need for Separate Study :
having defined administraiton as execution of policies he said that such a function was relatively simpler to 19th c. but now sowety becoming complex through forces as growing trade & commerce the functions of administration had multiplied & had become more complex & difficult.
- he also gave reasons for such neglected by a political science as:
* america being a democracy; government was subject to popular control. thus administration was limited in scope, in keeping with liberation.
- unlike europe, government was not a monopolist in america.
- there was no consunsual american public opinion, no need for agenda of administrative reform.
- this political science was never forced to focus on p.a.
b) NPA is ..... a revolution/radicalism in words & (at best) status-quo in skills/technologies
- according to robert t glembiewski; 5 goals provided a sense of NPA from a positive perspective (what it want to approach) :
1. it implies a view of mankind as being substantially malleable & potentially perfectible.
2. its pervasive theme is the demand for relevance
3. it advocates social administration equity as the most common vehicle for guiding the task of human development.
- it recognises that administrative value-neutrality is neither possible/desirable.
4. it is determinedly relational as as against the classical p.a. is emphasis on organisations & their internal process.
5. it places a definte emphasis on innovation & change.
- dwight waldo defined positive & negative features of NPA.
- +ve it is some sort of movement in the direciton of normative theory, philosophy, social concern & activism.
- -ve it turns away from positivism & scienticism.
- he pointed out that NPA projects 3 principles clearly:
i) client-oriented bureaucracy
ii) representative
iii) people's participation in administration
According to Fredrickson, NPA is :
- less generic more public
- less descriptive more prescriptive
- less neutral more normative
- less sanguine about the application of the natural-science model to social phenomena.
- no less scientific.
fredickson called NPA as 'second generation behaviouralism'.
c) taylor's contribution was not a set of general principles fpr organising work efficiency, but a set of operating procedures that could be employed in wach concentrate situation to secure their application.
- in the lateer half of 19th c, industrial revolution took place in america which led to increase in productivity but reached a plateau, afterwords efficiency starts decreasing which led to concern for practitioners & scholors & that resulted into taylor in industry & wilson in administration.
taylor studied shop floor level to understand why efficiency is low & found 'soldering' a natural & systematic phenomenon. he propounded to decrease inefficiency by :
- applying scientific methods & techniques
- management is a true science
- assumed men is an economic man.
Assumption/aim :
promoting organisation efficiency & economy.
how : through the application of science , management & technology
Impact :
- both on administrative thought & practice
- both on industrial & governmental organisation
- both in capitalist & socialist countries.
- stakhanovite movement in USSR.
Theme :
- management is true science having :
* fised laws, rules, principles
* universal applicability
* predictability
low efficiency in organisation is due to the presence of a phenomenon known as soldering.
1. natural soldering : it is basically take it easy attitude not to over exert.
2. systematic soldering : organisation & social factors to keep the supervisor's expectation of work perfect at lower level.
to increase efficiency :
- decrease soldering through science & techniques & time & motion study.
- apply these techniques to managerial prectises to produciton process.
Principles:
- develop a science for each element of man's work
- management/ manager should fully train, teach & develop workmen.
- equal division of responsibilities between the management & workmen.
Talk About :
- science
- harmony
- cooperation
- maximum output
- deveopment of each man to his greates efficiency & prosperity.
2. answer the follwoing in 300 words : 30x2 = 60
a) consider the statements below.
i) techincally; bureaucracy represents the purest type og legalrational authority
ii) bureaucracydoes not represent the only type of legal authority.
identify the theorectical context & analyze the above statements.
- weber gave the ideal type of bureaucracy.
- according to weber, bureaucracyis a corollary to large organisation. here, the over specialised division of labour to be effective , it must have right to control & direct the activites of then. in order for such control to be effective , it must be seen as legitimate . such legitimate control is called authority by weber.
weber distinguished between 3 kinds of legitimacy/authority :
- traditional
- legal rational
- chrismatic
- the form form of organisation corresponding to rational-legal authority is called bureaucracy.
Features :
- the regular activities needed to achieve the goals of organisation are divided amongst the official as their formal duties. a complex task is thus subdivided into a number of smaller manageable jobs.
- the organisations of bureaucracyare governed by a set of abstact rules, & their application to particular cases.
- a bureaucrat perform his function in a spirit of formalistic impersonality without hatred/passion.
- appointments are made on the basis of specialist knowledge.
- his job is the role.
- promotions are based on seniority/meritor both
- there is a strict separation of official & personnel lives of bureaucracy
-debureaucratic work is conducted using a system of desks & files
- the officials is engaged in the performance of impersonal duties of his office.
-weber believed that sucha a bureaucracyis rational, efficient, stable, predictable.
Apprisal of Weber's Critique :
1. weber had meant his model to be only an ideal type . its purpose is to serve as sign-post & guide what should the organisation be like, if is to be rational.
2. though weber's model predominentaly structural , it has certain behavioral implications.
3. weber developed his model in the context of the german society of his times.
4. weber himself was aware of the demerits of bureaucracy& has pointed them out eg. itys standardization leads to suppression of initiatives, a single minded pre-occupation with uniformity & order.
5. finally it may be accepted that weber's model does have some deficiencies in today's context.
2.b) which of the models in development administraiton is / are characterised by 'selectivism' 'attainment' 'poly-functionalism? describe the corresponding theoretical roots & attributes.
- a prismatic society is characterised by 'selectivism' ' attainment' 'poly-functionalism. the basic characteristics of presimatic society are, formalism, heterogenity, overlapping.
1. formalism :
- a discrepancy exists between the precriptive & the descriptive , between formal & affective power , between impression given by constitution , law & regulations , organisational charts & statistics, actual practises & facts of govt., & society, the greater the discrepency between formal & effective , the more formalistic is a system.
- prismatic society is characterised by high degree of formalism.
- the prismatic society formalism appears in many forms & at structires like elections, cabinate, parliament etc.,
at the administration level appears intra-bureaucratic politics & ritualisation of procedures. this happens because bureaucrats have no clear sense of the goals & politics to be accomplished there is no effective political control over the bureaucracy. hte officials take their own decisions--- the prevalence of formalism encourages corruption.
2. heteroginity :
APS is characterised by high degree of heterogenity which means "the simultaneous presence, side by side of quite different kinds of systems, practices & view points. the "fused" & "refracted"models are relatively homogenous. in p.a. there exist urban area with a sophisticated intellectual class, western styles offices & the modern gadgets of administration, side by side there exist rural areas possessing tradition looks & outlooks, with villages heads or "elders" combining various political , administration, religious & social roles. heterogeneity not only in the society as a whole , but it applies also to the p.a.
3. Overlapping :
the extent to which that is described as 'administrative' behaviour is actually determined by non-administrative criteria. price indeterminacy in bazaar-canteen models is an instance of overlapping. in such a model, besides supply & demand forces which affect prices, other factors also affect the prices as the social & political relationships of buyers & sellers to each other.
the concept of price indeterminacy can be extended to included not only goods & services, but all factors of production, such as labour, capital, land, time, money. the p. of the classification combines both duties & status , achievment & ascription . salaries fixed according to status/rank & not on the basis of work performed.
- overlapping is closely related to the phenomenon of formalism & heterogeneity.
3. it is said "the perspective of p.a., developed over a century, with a tradition of management of public institution & services has received a jolt from the novelty of new public management.
bring aout the core values, approaches & assumptions of traditional p.a. & show how the new public management has attempted to change/retain them & to what extent.
- NPM connotes organising a running public organisation in more management-oriented way as that of private organisation so as to achieve more citizen satisfaction & socitel welfare.
Factors :
the years of late 80s & early 90s witnessed tremendous changes the world over necessitating changes even in the paradigm of public admin. these are :
- knowledge revolution
- technological revolution (IT/e-governance) & communication revolution.
- increased competition nationally & internationally in providing goods & services.
- aspirations of the people from government have increased.
- reduce financial resources of govt., led to managerial rethink to optimaly utilise the scarce resources.
- international dimensions :
* increasing globalisation
* increase hold of WTO overnaitonal govt's., & their policies
* emergencies of MNC's on the world scene on a huge scale.
Features :
- NPM aims at management , not policy.
- it deals with converting public bureaucracyinto agencies which deal with each other on a user pay basis.
- re-adjusting the role of the govt.,
- performance improvement
- client focus
- greater devolution & decentralisation
- flexibility
- organisation structures are simplified & hierarchies flattened to create condition for more positive & productive managerial leadership.
- providing the human & technological resources that manager needs to meet their performance margins.
- creating competitive environement
Various Techniques of NPM :
- ZBB(zero-based budgeting)
- total quality management
- HRM
- networking
- human resources accounting
- social auditing
- operational research techniques
- MBO
NPM & Tradiitonal :
NPM stipulates that public servants should have to accept more personal account for the actions of their agencies for enhanced autonomy & flexibility to them.
SECTION B
5.answer any 3 of the follwoing in not more than 200 words :
b) "technical like PERT & CPM help in effective ofice management" elaborate.
- PERT is a model for project management designed to analyse & represents the tasks involved in completion of a project . this model was givne by BOOZ & Alolen Hamilton. PERT is more of an event-oriented technique when time is important rather than cost. it was developed primarily to simplify the planning & scheduling of large & complex projects. PERT is used for every large scale, one-time complete, non-routine projects.
- PERT chart is tool to facilitate decision making. first draft of a pert chart will number its events in multiples of 10 to allow later insertion of additional events. planner decides which are the pert events & their proper order. the longest possible continous parthway takes from the initial event to the terminal event is known as critical path.
- the point marking the start /completion of one/more tasks is the pert event. the minimum possible time required to accomplish a task, assuming thing proceeds better is normally expected is optimistics time & when found out assuming every thing proceeded normally is most likely time ; where as pessimistic time denotes the maximum possible time required to complete the task, assuming everything goeas wrong.
- against all the bove expected time is the best estimate of time required to complete the task, because it relies on average, if the extended period of time. lagtime is the earliest time by which a success/event can follow a specific pert event.
- slack of an event is a measure of the excess time & resources available in achieveing the event. positive slack indicates a head of schedule against the negative indicating behind the schedule. on shedule is represented by zero slack. fast tracking it is to increase the pace of achievement & it denotes performing more critical events in parallel.
PERT Implemntation :
- determination of tasks
- order of completion
- task, time & dependency informaiton
- connectivity line between different nodes representing activities & tasks.
- broken/dotted lines
- multiple parallel/interconnectivity networks
- analysis
CPM :
this chart are similar to pert charts & are reformed to as CPM/PERT . critical path is the main stream of CPM. a critical path contains of set of dependent tasks, which together task the longest to complete. one way to draw critical tasks with a double line, rather than single line.
d) Yehezkel Droor normative models of policy making tend to be academic in perspective with poor operational utility. comment.
- dror finds lindblom's incremental model of decision making quite conservative & unsatisfactory. he belives that incremental approach is unjust as it creates a gap between those who have more power & those who have little power. the later catagory of people will find it difficult to bring about change in place of incremental & rational models. dror offers all alternative model which seeks to accept the need for rationality ; need for introduction of management technology for enhancing rationality of decision-making at low levels. policy science approach for dealing with complex problems requiring decisions at the higher levels, & need to take account of values & irrational elements in decision-making.
- dror's aims is to increase theraitonal context of govt., & build into his model the 'extra-rational' dimensions of decision-making.
dror's calls it 'normative-optimalism' which combines core elements of the rational model with extra-rational factors that are excluded from the 'pure rationality' in place of pure rational model, dror puts forwards a more complex model of about 18 stages which includes meta-policy-making stage, policy-making stage & post-policy-making stage.
Characteristics :
- it is qualitative not quantitative
- it contains both raitonal & extra-rational elements
- it is basic raitonal to economically rational.
- it is concerned with meta-policy-making
- it contains a built-in-feedback.
6. consider the following :
a) self-help groups enables women to realise their full potential in some sphere of life.
b) SHGs are providing avenues of political mobilisations.
examine the implication of these two statements & assess the potential of SHGs for development.
- SHG is a small voluntary associated of poor people preferably from the same socio-eco background who come together for the purpose of solving their co-problem through self-help.
Objectives :
- it consists of poor people whoc do not have access to formal financial institutions.
- govt., create a SHG bank in charge from where they can have cost effective delivery of credits.
- it plays a crucial role in improving savings , reduces poverty & social inequalities leading to empowerment of people especially women.
Advantages :
1. business activities upliftment if the group member economically they also help to bring social upheaval through collective work.
2. in current global economic climate micro credit can be used as a poverty alleviation too.
3. it makes people more self reliant
4. develops culture resulting in participatory democracy.
5. it results in more efficient usage of natural resources .
Current Major Issues/Problems :
- ignorance of menbers : even though the authorities take measures for creating awareness among the group members about the schemes beneficial to them, still majority of the group are unaware of the schemes of assistances offered to them.
- inadequate training facilities : the training facilities given to the members of SHGs in the specific areas of products selection , quality of products, production technologies, managerial ability, packing are not adequate to complete with that of strong units.
- problems related with materials :there is no systematic, arrangement to collect raw materials in bulk quantities & preserve them properly.
Problems Of Marketing :
- lacking of sufficient orders
- lack of adequate sale with the market agencies
- lack of adequate sale promotio measures.
- lack of permanent market for the production of SHGs.
- agencies of proper brand name
- poor/unattractive packing system
- poor quality of products.
- stiff competition from other major suppliers
- lack of stability & unity especially among women SHGs.
- exploitation by strong members.
* weak finanical management : it is found that in certain units the returns from the business is not properly invested further in the unit, & the funds diverted for other personal & domestic purpose.
* low return : the return on imvestment is not attractive incertain groups due to inefficient management.
* inadequate financial assistance : it is also found that in most of the SHGs, the financial assistance provided to them by the agencies concern is not adequate to meet thier actual requirements.
* inadequate & ill-trained staff to meet the financial institutions.
* inadequate support from line departments.
Suggestions :
- locally available material
- KERAMS (kerala rural development & marketing society)
- panchayt area can form co-operative society
- NGOs
- caliber & expertion
- awareness camps
- financial institutions/management
7. it is said that 'position classification' , as originally conceived is sound in terms of its operational characterics, but complicated & unresponsive in practive. why is it still considered better than other models of civil service classification ?
- according to willougby classification & standardisation of public employment constitutes the basis upon which the whole personnel structre must rest. a proper & systematic classification of personnel in govt., is very essential for the management of civil service in the modern state.
- PC also known as the duties classification , involves the grouping of positions on the basis of duties , responsibilities & qualifications . thus nature of job is the basis of classification, rather than the person holding the position. in this system of classification the lowest unit is the position. a position connotes a set of duties & responsibilities assigned to an empployee. a position & the incumbent of the position are different from each other. the position at any given time , may be occupied /vacant, & is immaterial for the purpose of classification . furthur employee states salary depends on his duties & responsibilites.
- this kind of classification is in use in USA, japan, taiwan, philippines & canada. there is another kind of classification called rank prvalent in UK,france india, malysia etc., however, position classification is one of the main elements of merit & system, because PC upholds the principle of equal pay for equal work & is this more just than rank, which is unrrelated to the nature/difficulty of work.
- in PC a class is made up of a number of similar position sufficiently alike in respect to their duties & responsibilities . put together. all positions in a class have identical duties with similar levels of difficulty . glenn stahl calls the class as the operating unit of PC.
- the development of PC involves many steps within the admin.systems 1. analysing & recording of the duties, 2. grouping of the position into classes.
- PC provides for a high degree of specialisation, hence, suitable for specialist service like engineering, geologist etc.,
candidates should attempt que.no.1 & 5 which are compulsory & any 3 of the remaining questions selecting atleast 1 question from each section.
1. comment on any 3 of the following statements not more than 200 words each :
a) the field of public administration is a field of business (woodrow wilson)
- woodrow wilson is regarded as father of public administration as he emphasized the need for a separate study of p.a. he also indicated the nature of this study & the lines along which it should be developed . this was his vision of p.a. his ideas are contained in his seminal 1887 essay "the study of administraiton" which is seen as the beginning of the discipline of p.a.
context of Wilson's Ideas :
Wilson's ideas have to be seen as a part of the movement to reform the civil serice of america that began in 1883 with the pendleton act.
Wilson's Vision On P.A :
wilson called for & laid the foundation of a systematic study of a administration.
the major elements are :
- there should be a separate study of administration.
- such study should be a science
- he outlined the perspective for the new science.
- he outlined the suject-matter of the new science
- he indicated methedology for the science
NAture of administration :
- for wilson administraiton menat detailed & systematic execution of law
- it consisted of application of cases, of general laws.
- he talked & related administraiton with politics
- wilson beleived administration & politics are separate aspects of government.
- he laid the foundation of politics-administraiton dichotomy system of governance.
- the foundations of administration for him were the principles of politics.
- he was aware that radical distinction between these 2 would lead to the creation of bureaucratic ellite.
- finally, he thought he disagreed with interference of the general acknowledge public opinon as a valuable control on the bureaucracy. b) he believed that , especially in democracies, administration had to be responsive to the public opinion.
Wilson's View P.A. Linked to Business.Administration :
- wilson made & linked p.a. to business administraiton.
- this is because he felt even business was separate from politics.
- this has been interpreted as wilson regarding public & private administraton to be the & thus calling for a generic science of administration.
- he called for public administration taking the technology of administration used by private sector as also its central concerns of eeficiency, economy & effectiveness.
- while saying that 'administraiton is business' wilson also understood the wider & indepth agenda of p.a.
- later on he said p.a. should be business-like, but not a business.
- p.a. is an organis life he said.
Need for Separate Study :
having defined administraiton as execution of policies he said that such a function was relatively simpler to 19th c. but now sowety becoming complex through forces as growing trade & commerce the functions of administration had multiplied & had become more complex & difficult.
- he also gave reasons for such neglected by a political science as:
* america being a democracy; government was subject to popular control. thus administration was limited in scope, in keeping with liberation.
- unlike europe, government was not a monopolist in america.
- there was no consunsual american public opinion, no need for agenda of administrative reform.
- this political science was never forced to focus on p.a.
b) NPA is ..... a revolution/radicalism in words & (at best) status-quo in skills/technologies
- according to robert t glembiewski; 5 goals provided a sense of NPA from a positive perspective (what it want to approach) :
1. it implies a view of mankind as being substantially malleable & potentially perfectible.
2. its pervasive theme is the demand for relevance
3. it advocates social administration equity as the most common vehicle for guiding the task of human development.
- it recognises that administrative value-neutrality is neither possible/desirable.
4. it is determinedly relational as as against the classical p.a. is emphasis on organisations & their internal process.
5. it places a definte emphasis on innovation & change.
- dwight waldo defined positive & negative features of NPA.
- +ve it is some sort of movement in the direciton of normative theory, philosophy, social concern & activism.
- -ve it turns away from positivism & scienticism.
- he pointed out that NPA projects 3 principles clearly:
i) client-oriented bureaucracy
ii) representative
iii) people's participation in administration
According to Fredrickson, NPA is :
- less generic more public
- less descriptive more prescriptive
- less neutral more normative
- less sanguine about the application of the natural-science model to social phenomena.
- no less scientific.
fredickson called NPA as 'second generation behaviouralism'.
c) taylor's contribution was not a set of general principles fpr organising work efficiency, but a set of operating procedures that could be employed in wach concentrate situation to secure their application.
- in the lateer half of 19th c, industrial revolution took place in america which led to increase in productivity but reached a plateau, afterwords efficiency starts decreasing which led to concern for practitioners & scholors & that resulted into taylor in industry & wilson in administration.
taylor studied shop floor level to understand why efficiency is low & found 'soldering' a natural & systematic phenomenon. he propounded to decrease inefficiency by :
- applying scientific methods & techniques
- management is a true science
- assumed men is an economic man.
Assumption/aim :
promoting organisation efficiency & economy.
how : through the application of science , management & technology
Impact :
- both on administrative thought & practice
- both on industrial & governmental organisation
- both in capitalist & socialist countries.
- stakhanovite movement in USSR.
Theme :
- management is true science having :
* fised laws, rules, principles
* universal applicability
* predictability
low efficiency in organisation is due to the presence of a phenomenon known as soldering.
1. natural soldering : it is basically take it easy attitude not to over exert.
2. systematic soldering : organisation & social factors to keep the supervisor's expectation of work perfect at lower level.
to increase efficiency :
- decrease soldering through science & techniques & time & motion study.
- apply these techniques to managerial prectises to produciton process.
Principles:
- develop a science for each element of man's work
- management/ manager should fully train, teach & develop workmen.
- equal division of responsibilities between the management & workmen.
Talk About :
- science
- harmony
- cooperation
- maximum output
- deveopment of each man to his greates efficiency & prosperity.
2. answer the follwoing in 300 words : 30x2 = 60
a) consider the statements below.
i) techincally; bureaucracy represents the purest type og legalrational authority
ii) bureaucracydoes not represent the only type of legal authority.
identify the theorectical context & analyze the above statements.
- weber gave the ideal type of bureaucracy.
- according to weber, bureaucracyis a corollary to large organisation. here, the over specialised division of labour to be effective , it must have right to control & direct the activites of then. in order for such control to be effective , it must be seen as legitimate . such legitimate control is called authority by weber.
weber distinguished between 3 kinds of legitimacy/authority :
- traditional
- legal rational
- chrismatic
- the form form of organisation corresponding to rational-legal authority is called bureaucracy.
Features :
- the regular activities needed to achieve the goals of organisation are divided amongst the official as their formal duties. a complex task is thus subdivided into a number of smaller manageable jobs.
- the organisations of bureaucracyare governed by a set of abstact rules, & their application to particular cases.
- a bureaucrat perform his function in a spirit of formalistic impersonality without hatred/passion.
- appointments are made on the basis of specialist knowledge.
- his job is the role.
- promotions are based on seniority/meritor both
- there is a strict separation of official & personnel lives of bureaucracy
-debureaucratic work is conducted using a system of desks & files
- the officials is engaged in the performance of impersonal duties of his office.
-weber believed that sucha a bureaucracyis rational, efficient, stable, predictable.
Apprisal of Weber's Critique :
1. weber had meant his model to be only an ideal type . its purpose is to serve as sign-post & guide what should the organisation be like, if is to be rational.
2. though weber's model predominentaly structural , it has certain behavioral implications.
3. weber developed his model in the context of the german society of his times.
4. weber himself was aware of the demerits of bureaucracy& has pointed them out eg. itys standardization leads to suppression of initiatives, a single minded pre-occupation with uniformity & order.
5. finally it may be accepted that weber's model does have some deficiencies in today's context.
2.b) which of the models in development administraiton is / are characterised by 'selectivism' 'attainment' 'poly-functionalism? describe the corresponding theoretical roots & attributes.
- a prismatic society is characterised by 'selectivism' ' attainment' 'poly-functionalism. the basic characteristics of presimatic society are, formalism, heterogenity, overlapping.
1. formalism :
- a discrepancy exists between the precriptive & the descriptive , between formal & affective power , between impression given by constitution , law & regulations , organisational charts & statistics, actual practises & facts of govt., & society, the greater the discrepency between formal & effective , the more formalistic is a system.
- prismatic society is characterised by high degree of formalism.
- the prismatic society formalism appears in many forms & at structires like elections, cabinate, parliament etc.,
at the administration level appears intra-bureaucratic politics & ritualisation of procedures. this happens because bureaucrats have no clear sense of the goals & politics to be accomplished there is no effective political control over the bureaucracy. hte officials take their own decisions--- the prevalence of formalism encourages corruption.
2. heteroginity :
APS is characterised by high degree of heterogenity which means "the simultaneous presence, side by side of quite different kinds of systems, practices & view points. the "fused" & "refracted"models are relatively homogenous. in p.a. there exist urban area with a sophisticated intellectual class, western styles offices & the modern gadgets of administration, side by side there exist rural areas possessing tradition looks & outlooks, with villages heads or "elders" combining various political , administration, religious & social roles. heterogeneity not only in the society as a whole , but it applies also to the p.a.
3. Overlapping :
the extent to which that is described as 'administrative' behaviour is actually determined by non-administrative criteria. price indeterminacy in bazaar-canteen models is an instance of overlapping. in such a model, besides supply & demand forces which affect prices, other factors also affect the prices as the social & political relationships of buyers & sellers to each other.
the concept of price indeterminacy can be extended to included not only goods & services, but all factors of production, such as labour, capital, land, time, money. the p. of the classification combines both duties & status , achievment & ascription . salaries fixed according to status/rank & not on the basis of work performed.
- overlapping is closely related to the phenomenon of formalism & heterogeneity.
3. it is said "the perspective of p.a., developed over a century, with a tradition of management of public institution & services has received a jolt from the novelty of new public management.
bring aout the core values, approaches & assumptions of traditional p.a. & show how the new public management has attempted to change/retain them & to what extent.
- NPM connotes organising a running public organisation in more management-oriented way as that of private organisation so as to achieve more citizen satisfaction & socitel welfare.
Factors :
the years of late 80s & early 90s witnessed tremendous changes the world over necessitating changes even in the paradigm of public admin. these are :
- knowledge revolution
- technological revolution (IT/e-governance) & communication revolution.
- increased competition nationally & internationally in providing goods & services.
- aspirations of the people from government have increased.
- reduce financial resources of govt., led to managerial rethink to optimaly utilise the scarce resources.
- international dimensions :
* increasing globalisation
* increase hold of WTO overnaitonal govt's., & their policies
* emergencies of MNC's on the world scene on a huge scale.
Features :
- NPM aims at management , not policy.
- it deals with converting public bureaucracyinto agencies which deal with each other on a user pay basis.
- re-adjusting the role of the govt.,
- performance improvement
- client focus
- greater devolution & decentralisation
- flexibility
- organisation structures are simplified & hierarchies flattened to create condition for more positive & productive managerial leadership.
- providing the human & technological resources that manager needs to meet their performance margins.
- creating competitive environement
Various Techniques of NPM :
- ZBB(zero-based budgeting)
- total quality management
- HRM
- networking
- human resources accounting
- social auditing
- operational research techniques
- MBO
NPM & Tradiitonal :
NPM stipulates that public servants should have to accept more personal account for the actions of their agencies for enhanced autonomy & flexibility to them.
SECTION B
5.answer any 3 of the follwoing in not more than 200 words :
b) "technical like PERT & CPM help in effective ofice management" elaborate.
- PERT is a model for project management designed to analyse & represents the tasks involved in completion of a project . this model was givne by BOOZ & Alolen Hamilton. PERT is more of an event-oriented technique when time is important rather than cost. it was developed primarily to simplify the planning & scheduling of large & complex projects. PERT is used for every large scale, one-time complete, non-routine projects.
- PERT chart is tool to facilitate decision making. first draft of a pert chart will number its events in multiples of 10 to allow later insertion of additional events. planner decides which are the pert events & their proper order. the longest possible continous parthway takes from the initial event to the terminal event is known as critical path.
- the point marking the start /completion of one/more tasks is the pert event. the minimum possible time required to accomplish a task, assuming thing proceeds better is normally expected is optimistics time & when found out assuming every thing proceeded normally is most likely time ; where as pessimistic time denotes the maximum possible time required to complete the task, assuming everything goeas wrong.
- against all the bove expected time is the best estimate of time required to complete the task, because it relies on average, if the extended period of time. lagtime is the earliest time by which a success/event can follow a specific pert event.
- slack of an event is a measure of the excess time & resources available in achieveing the event. positive slack indicates a head of schedule against the negative indicating behind the schedule. on shedule is represented by zero slack. fast tracking it is to increase the pace of achievement & it denotes performing more critical events in parallel.
PERT Implemntation :
- determination of tasks
- order of completion
- task, time & dependency informaiton
- connectivity line between different nodes representing activities & tasks.
- broken/dotted lines
- multiple parallel/interconnectivity networks
- analysis
CPM :
this chart are similar to pert charts & are reformed to as CPM/PERT . critical path is the main stream of CPM. a critical path contains of set of dependent tasks, which together task the longest to complete. one way to draw critical tasks with a double line, rather than single line.
d) Yehezkel Droor normative models of policy making tend to be academic in perspective with poor operational utility. comment.
- dror finds lindblom's incremental model of decision making quite conservative & unsatisfactory. he belives that incremental approach is unjust as it creates a gap between those who have more power & those who have little power. the later catagory of people will find it difficult to bring about change in place of incremental & rational models. dror offers all alternative model which seeks to accept the need for rationality ; need for introduction of management technology for enhancing rationality of decision-making at low levels. policy science approach for dealing with complex problems requiring decisions at the higher levels, & need to take account of values & irrational elements in decision-making.
- dror's aims is to increase theraitonal context of govt., & build into his model the 'extra-rational' dimensions of decision-making.
dror's calls it 'normative-optimalism' which combines core elements of the rational model with extra-rational factors that are excluded from the 'pure rationality' in place of pure rational model, dror puts forwards a more complex model of about 18 stages which includes meta-policy-making stage, policy-making stage & post-policy-making stage.
Characteristics :
- it is qualitative not quantitative
- it contains both raitonal & extra-rational elements
- it is basic raitonal to economically rational.
- it is concerned with meta-policy-making
- it contains a built-in-feedback.
6. consider the following :
a) self-help groups enables women to realise their full potential in some sphere of life.
b) SHGs are providing avenues of political mobilisations.
examine the implication of these two statements & assess the potential of SHGs for development.
- SHG is a small voluntary associated of poor people preferably from the same socio-eco background who come together for the purpose of solving their co-problem through self-help.
Objectives :
- it consists of poor people whoc do not have access to formal financial institutions.
- govt., create a SHG bank in charge from where they can have cost effective delivery of credits.
- it plays a crucial role in improving savings , reduces poverty & social inequalities leading to empowerment of people especially women.
Advantages :
1. business activities upliftment if the group member economically they also help to bring social upheaval through collective work.
2. in current global economic climate micro credit can be used as a poverty alleviation too.
3. it makes people more self reliant
4. develops culture resulting in participatory democracy.
5. it results in more efficient usage of natural resources .
Current Major Issues/Problems :
- ignorance of menbers : even though the authorities take measures for creating awareness among the group members about the schemes beneficial to them, still majority of the group are unaware of the schemes of assistances offered to them.
- inadequate training facilities : the training facilities given to the members of SHGs in the specific areas of products selection , quality of products, production technologies, managerial ability, packing are not adequate to complete with that of strong units.
- problems related with materials :there is no systematic, arrangement to collect raw materials in bulk quantities & preserve them properly.
Problems Of Marketing :
- lacking of sufficient orders
- lack of adequate sale with the market agencies
- lack of adequate sale promotio measures.
- lack of permanent market for the production of SHGs.
- agencies of proper brand name
- poor/unattractive packing system
- poor quality of products.
- stiff competition from other major suppliers
- lack of stability & unity especially among women SHGs.
- exploitation by strong members.
* weak finanical management : it is found that in certain units the returns from the business is not properly invested further in the unit, & the funds diverted for other personal & domestic purpose.
* low return : the return on imvestment is not attractive incertain groups due to inefficient management.
* inadequate financial assistance : it is also found that in most of the SHGs, the financial assistance provided to them by the agencies concern is not adequate to meet thier actual requirements.
* inadequate & ill-trained staff to meet the financial institutions.
* inadequate support from line departments.
Suggestions :
- locally available material
- KERAMS (kerala rural development & marketing society)
- panchayt area can form co-operative society
- NGOs
- caliber & expertion
- awareness camps
- financial institutions/management
7. it is said that 'position classification' , as originally conceived is sound in terms of its operational characterics, but complicated & unresponsive in practive. why is it still considered better than other models of civil service classification ?
- according to willougby classification & standardisation of public employment constitutes the basis upon which the whole personnel structre must rest. a proper & systematic classification of personnel in govt., is very essential for the management of civil service in the modern state.
- PC also known as the duties classification , involves the grouping of positions on the basis of duties , responsibilities & qualifications . thus nature of job is the basis of classification, rather than the person holding the position. in this system of classification the lowest unit is the position. a position connotes a set of duties & responsibilities assigned to an empployee. a position & the incumbent of the position are different from each other. the position at any given time , may be occupied /vacant, & is immaterial for the purpose of classification . furthur employee states salary depends on his duties & responsibilites.
- this kind of classification is in use in USA, japan, taiwan, philippines & canada. there is another kind of classification called rank prvalent in UK,france india, malysia etc., however, position classification is one of the main elements of merit & system, because PC upholds the principle of equal pay for equal work & is this more just than rank, which is unrrelated to the nature/difficulty of work.
- in PC a class is made up of a number of similar position sufficiently alike in respect to their duties & responsibilities . put together. all positions in a class have identical duties with similar levels of difficulty . glenn stahl calls the class as the operating unit of PC.
- the development of PC involves many steps within the admin.systems 1. analysing & recording of the duties, 2. grouping of the position into classes.
- PC provides for a high degree of specialisation, hence, suitable for specialist service like engineering, geologist etc.,
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