INTRODUCTION TO
PUBLIC MANAGEMENT
CHAPTER 1
LEARNING OUTCOME
At the end of the lecture, student should be
able to explain the:
Definition and Concept of Public
Management
Concept of Administration and
Management.
Traditional Model of Public
Administration
New Public Management
DEFINITION AND CONCEPT OF PUBLIC
MANAGEMENT
“Public management as a branch of the larger field of public administration or public affairs; the part
which ‘overviews the art and science of applied methodologies for public administrative program
design and organisational restructuring, policy and management planning, resource allocations
through budgeting systems, financial management, human resources management, and programme
evaluation and audit.”
Ott, Hyde and Shafritz (1991)
“public management provides theoretical and
methodological instruments to public
administration authorities so that by exercising
the management functions in the management
of resources, the degree of satisfaction of the
public interest to be as high as possible”.
“a term that considers that government and
non-profit administration resembles private
sector management in some important ways”
ADMINISTRATION MANAGEMENT
• Administration is ‘an act of • Management is ‘to conduct, to
administering’, which is then control the course of affairs by
‘to manage the affairs of’ or one’s own action, to take charge
‘to direct or superintend the of’.
execution, use or conduct of’ • management involves:
• administration essentially i. the achievement of results,
involves following ii. personal responsibility by
instructions and service the manager for results
ADMINISTRATION • Public administration is an
activity serving the public,
being achieved.
• Management does include
AND and public servants carry out administration (Mullins, 1996,
policies derived from others.
MANAGEMENT
pp. 398–400), but also involves
It is concerned with organization to achieve
procedures, with translating objectives with maximum
policies into action and with efficiency, as well as genuine
office management. responsibility for results.
• Public administration focuses • public management involves
on process, on procedures achieving results and taking
and propriety. responsibility for doing so.
SCIENTIFIC MANAGEMENT
FREDERICK TAYLOR
POLITICS-
HUMAN
ADMINISTRATION
RELATIONS
DICHOTOMY ELTON MAYO
WOODROW WILSON
THEORY OF ‘POSDCORB’
BUREAUCRACY GULICK AND
MAX WEBER
URWICK
TRADITIONAL MODEL OF
PUBLIC ADMINISTRATION
THEORY OF BUREAUCRACY (Max Weber, 1970)
3 TYPES OF
AUTHORITY
The rational/legal
the charismatic the traditional
authority
SIX PRINCIPLES FOR MODERN SYSTEMS OF BUREAUCRACY:
1. The principle of fixed and official jurisdictional areas, which are generally ordered by rules.
2. The principles of office hierarchy and of levels of graded authority
3. The management of the modern office is based upon written documents (‘the files’) which are
preserved.
4. Office management, usually presupposes thorough and expert training.
5. When the office is fully developed, official activity demands the full working capacity of the
official.
6. Officials possess technical knowledge of the rules. It involves jurisprudence, or administrative or
business management.
POLITICS-ADMINISTRATION DICHOTOMY (Wilson, 1886)
Wilson believed that the evils of the spoils system resulted from the linking of administrative
questions with political ones.
There are three main facets to political control in the traditional model of administration,
most notably in Westminster systems:
1. there is a clear relationship of accountability and responsibility. A department or agency has two basic
roles:
i. to advise the political leadership on the development, review and implementation of policy
ii. to manage its own resources so that policy may be implemented.
Each public servant is technically accountable, through the hierarchical structure of the department, to the
Cabinet, and eventually to the people.
2. there is supposed to be a strict separation between matters of policy, which are formally the province
of politicians, and matters of administration, which are left to the public service.
3. the administration is presumed to be anonymous and neutral, that is, not personally associated with
any decisions or policies that are carried out only in the name of the minister; and nonpartisan in the
party-political sense and able to serve equally any political leader -- ministerial responsibility.
SCIENTIFIC MANAGEMENT (Taylor, 1920s)
There were two main points to Taylor’s theory:
◦ standardizing work -- one best way of working’
◦ ‘controlling so extensively and intensively as to provide
for the maintenance of all these standards’
The ideas of ‘one best way’ and systematic control
were a perfect fit with rigid hierarchy, process and
precedent.
Working & procedures set out in comprehensive
manuals
HUMAN RELATIONS (Hawthorne, 1930s)
The focus of human relations is more on the social
context at work rather than regarding the worker as an
automaton responsive only to financial incentives.
In ‘Hawthorne experiments’, Mayo found that
productivity increased most by taking an interest in
the workers, and other factors, including financial
incentives, were much less important.
Mayo influenced those who thought management
should be kinder to their workers and provide some
kind of social interaction, including in government.
POSDCORB
(Gulick & Urwick, 1937)
Need to establish a set of nostrums,
follow them exactly and the
outcome would be all that could be
desired.
set of functions set out by Gulick and
Urwick (POSDCORB)
◦ Planning
◦ Organizing
◦ Staffing
◦ Directing
◦ Coordinating
◦ Reporting
◦ Budgeting
WHAT IS THE
ROLE OF
GOVERNMENT?
Public Good?
Services?
Income
Redistribution?
Enforcement?
Policies?
IMPERATIVES OF CHANGE
changes in
attack on the
economic
public sector
theory
the impact of
changes in Changes in
the private technology
sector
WHY GOVT NEEDS TO REFORM ITS
ADMINISTRATION?
Poor pattern of administration
Too bureaucratic
Too big, consuming too much money
Too inefficient, ineffective
Lack of accountability
Lack of transparency
Corruption
THE EMERGENCE OF NEW CHANGE…
Managerialism (Pollit, 1993)
New Public Management (Hood, 1991)
Market Based Public Administration (Lan &
Rosenbloom, 1992)
Post Bureaucratic Paradigm (Barzelay, 1992)
Entrepreneurial Government (Osborne, Gaebler, 1992)
New public management
Hood (1991) introduced NPM that comprises of 7 elements:
◦ Hands-on professional management in the public sector.
◦ Explicit standards and measures of performance.
◦ Greater emphasis on output controls.
◦ A shift to disaggregation of units in the public sector.
◦ A shift to greater competition in [the] public sector.
◦ A stress on private sector styles of management practice.
◦ A stress on greater discipline and parsimony in resource use.
NEW PUBLIC MANAGEMENT vs
TRADITIONAL PUBLIC ADMINISTRATION
Elements NPM TPA
Government organization Break-up of traditional structures into Services provided on a uniform basis
quasiautonomous units operating as a single aggregated unit
Control of public Hands-on professional management Control from the head quarters through
organizations with clear statement of goals and the hierarchy of unbroken supervision
performance measurement and checks and balances
Control of output measures Stress results and output control rather Control on inputs and procedures
than procedures
Management practices Using private sector management style Standard established procedures
throughout the service
Discipline in resources use Check resources demand and ‘do more Due process and political entitlements
with less’
Thank You
