Q) Critically evaluate the journey of modern public administration.
Ans)
“Public administration is the art and science of management as applied to the affairs of the state.”
-Waldo
Public Administration comprises two words: Public and Administration. Public means government, while
the word administration comes from the Latin word word ‘ad’ and ‘ministrare’. It means to serve or to
manage. Adminstration means management of affairs, public or private. Thus, public administration means
the service and care of people or citizens by the government in action.
Public administration generally refers to the services provided by a government organisation to its
constituents. It is the outcome of an evolutionary process that may be seen from two different angles: as a
pursuit and as a topic for intellectual inquiry. Woodrow Wilson is considered the father of public
administration. According to him, politics and administration are different because the function of politics is
to make laws whereas the function of administration is to implement the laws.
“Public administration is a detailed and systematic application of law.”
- Woodrow Wilson
Public administration has evolved significantly from its early beginnings to the current state, spanning various
historical traditions that have shaped its development. The field originated as primarily pragmatic in focus, aimed at
effective governance through economy, efficiency and organizational principles. Over time, with growing
democratization, changing socio-political milieu, advancement in social sciences and spread of technology, public
administration has moved towards a broader, inter-disciplinary and theoretical orientation.
Early Systems - Power Centralization and Bureaucratization
The history of public administration dates back to ancient civilizations like Greece, Egypt and Rome which structured
administration through hierarchies of offices and officers. The Romans created complex structures across areas like
law, military, finance etc. with clear chains of command reporting up to the emperor. The Byzantine Empire (330 CE -
1453 CE) continued many Roman practices.
In the Middle Ages, early European governmental organizations emerged from royal households which had vague
responsibilities initially. By the 13th century, state duties and domestic duties in royal households started separating.
Offices like Chamberlain's subsequently evolved into modern-day treasury functions. As state affairs got more
complex, bodies like the high court, exchequer and royal council emerged to handle specific functions. Secretaries
appointed to aid nobles on the royal councils eventually evolved into professional civil servants given their proximity
to rulers and grasp of statecraft.
The origins of modern public administration can be traced back to early civilizations like ancient Egypt, China,
Mesopotamia and India where centralized bureaucratic systems developed to manage public affairs through
hierarchical office structures. China under the Tang (618-907 CE) and Sung (960-1279 CE) dynasties developed an
elaborate civil service based on competitive exams to identify talent. This merit-based bureaucracy focused on
virtues and skills required in governance and persisted until the 20th century.
Absolutist Traditions – Oriental Despotism and Arthashastra
The absolutist tradition refers to the administrative customs of absolute monarchies where the ruler wields
unchecked power. In 300 BCE, Kautilya's Arthashastra in India offered guidance on governance to Emperor
Chandragupta Maurya. In India, Kautilya's 4th century BCE treatise Arthashastra offered guidance on governance to
emperors like Chandragupta Maurya. It emphasized crown authority, state security and wealth accumulation as
foremost priorities but also espoused progressive welfare schemes for citizens’ well-being.
The analysis elaborately covered public administration matters like finances, taxation, law and order, statistics and
personnel management. Kautilya underscored knowledge of administrative science as essential for rulers and
officials. He underscored authority, discipline, hierarchy and division of labour as key organizational concepts and
pioneered the use of statistics. He advocated the use of statistics and made secular recommendations elevating
politics over religion. His "ideal state" resembles a modern welfare state with state-funded support and facilities for
vulnerable sections. Kautilya preferred a centralized administration under a monarch with absolute power. Principles
from Arthashastra differ from those in democracies with distributed authority. As monarchies declined, theories
evolved to suit democratic governance. But Kautilya pioneered thinking on the machinery of state and the art of
governance in an analytical framework. While some ideas seem authoritarian, the text shows a strategic vision
coupled with concern for citizen well-being.
Modern Public Administration – The Theoretical Journey Begins
Emergence of Modern Public Administration
Modern public administration is traced to Wilson’s seminal 1887 essay that distinguished politics and administration
as separate fields of study. This facilitated the analytical study of bureaucracies without political interference.
However, the dichotomous approach attracted criticism subsequently for its oversimplification of complex
interrelationships between policymaking and implementation.
Public Administration has passed through several phases of development. One can broadly divide the Public
Administration into the following six periods.
1. First Stage: Public Administration Dichotomy 1887-1926
2. Second Stage: Principles of Administration 1927-1937
3. Third Stage: Era of Challenge 1938-1948
4. Fourth Stage: Crisis of Identity 1948-1970.
5. Fifth Stage: Public Policy Perspective 1971- 1991.
6. Sixth Stage: Rowing to Steering 1991- continuing.
Avasthi and Maheshwari have divided the evolution of Public Administration into the following five phases
Dichotomy: Wilsonian Approach
Prof. Woodrow Wilson is called the ‘Father of Public Administration’ because the genesis of the subject can
be traced back to his 1887 article “The Study of Public Administration”. In this article, Wilson made a
distinction between political science and public administration, treating administration as a separate field of
study. He defined public administration as “the detailed and systematic application of law. It consists of all
those operations having for their purpose the enforcement of public policy as declared by authority." Wilson
argued for developing a "science of administration which shall seek to straighten the paths of government."
He projected an administration-politics dichotomy view that influenced subsequent thinkers.
