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PUBLIC
ADMINISTRATION

Public Administration: meaning and evolution; public and private administration Approaches:
System Theory, Decision Making, Ecological Approach Public administration theories and
concepts: Scientific Management Theory, Rational Choice theory, New Public Administration,
Development Administration, Comparative Public Administration, New Public Management,
changing nature of Public Administration in the era of liberalisation and Globalization Theories
and Principles of Organization: Scientific Management Theory, Bureaucratic Theory, Human
Relations Theory Managing the organization: Theories of leadership and motivation.
Organizational Communication: Theories and Principles, Chester Bernard Principles of
Communication, Information Management in the organization Managing Conflict in the
Organization: Mary Parker Follett Management by Objectives- Peter Drucker

Dr Woodrow Wilson is known as father of Public Administration. Goodnow is known as father of

American Public Administration. M P Sharma is known as father of Indian Public Administration.
Important works
 Study of Administration - 1887 Woodrow Wilson
 Politics of Administration – 1900 Goodnow
 Introduction to study of Public Administration
(First book on Public Administration)- 1926 L. D. White
 Principles of Public Administration - 1927 W. F. Willoughly
 Onward Industry - 1931 Mooney and Really
 Paper on science of Public Administration - 1937 Gurwick and Urwick
 Principles of Organization - 1939 Mooney and Relay
 Study of New Public Administration: A Minnobroke prospective – 1971 Frank Marine
 Reinventing Government - 1992 David Obstrum and
Ted Gabriel
 Public Administration - Avasthi & Maheshwari
 New Public Administration - 1980 George Fredrickson
Phases of Public Administration
i. First Phase (1887-1926)
 Study of Administration 1887 Dr Woodrow Wilson
 Politics of Administration 1900 Goodnow
 Introduction to study of Public Administration 1926 L. D. White
ii. Second Phase (1926-1937) ( it Stress on Principles
& is also known as golden stage)
 Principles of Administration 1927 W. F. Willoughly
 General and Industrial Management 1917 Henry Foyal
 Principles of Organization 1939 Mooney and Reiley
 Paper on science of Administration 1937 Gurwick and Urwick
 Creative experience Marry Parker Fullet
 POSDCORB Gurwick and Urwick
iii. Third Phase (1937-1947)
(Criticism began hence k/s Critical phase)
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 Function of Executive 1938 Chester-I-Bernard
 Proverbs of Administration 1946 Herbert Simmon
 Administrative Behaviour 1947 Herbert Simmon
Robert Dhal also criticized it as Science is value free but administration not. There is human
personality difference and social framework difference between science and administration.
iv. Fourth Phase (1947-70) (Scholars starting rolling back from Public Administration to
political science).
 Comparative Public Administration 1952
 Development Public Administration 1953
v. Fifth Phase (1970-90) (Scientific & logical approaches knocked Public Administration).
 Honey Report on Higher Education 1967
 Conference on Theory and Practice of Public Administration 1967
 Minnowbrook Conference 1968
 Towards a new Public Administration: Minnow-broke Prospective 1971 Frank
Marine
 Public Administration in the time of turbulence. 1971 D. Waldo
Chief features of Public Administration- Relevance, Value, Equity and Change.
 New Public Administration 1980 George Fredrickson
vi. Sixth Phase (1990-till date)
 Boston Conference 1987
 Minnow-brook Conference 1985
 Calculus of Concept Concept by J. V. Ostrum
Theories of Public Administration
Scientific Theory: This theory was first systematic theory of organization and was given by F W
Taylor. He is also known as father of Scientific Theory. The world Scientific Management was first
of all coined by Louis Braudies.
Works of F W Taylor
 Piece Rate System 1895
 Shop Management 1900
 Art of Cutting Metal 1906
 Principles of Management 1911
 Philosophy of Management
 Development of True Science of Work
 Scientific Selection of Workers
 Scientific Education and Development
 Friendly and Mutual Cooperation between Management and Workers.
 Method of Research
Time and Speed, Functional Foremanship, Piece Rate System, Standardization of Machines
and work procedure
 Mental Revolution
 Divert attention of Workers from Surplus Value and go on increasing the profit.
 Decision should be taken on scientific conclusion rather than individual idea.
 Friendly co-operation between management and workers.
 Qualities of a good Foreman
Education, Special and Technical Knowledge, Manual Dexterity and strength, Tact, Grit (courage),
Honesty, Good Health, Energy and Judgment
This theory was adopted by various industrialist countries of that time such as Japan, UK, and
Germany etc.
Criticism of Scientific Theory
 Herbert Simmon criticized it in his work „Organization‟.
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 Karl Mark criticized this theory. He said tailor has treated man as a „cog in a wheel.‟
1. Formal Theory: This theory was given by Henry Foyal. This theory is also known as
mechanical theory or structural theory. He started his carrier as a French Mining Engineer in
1927. He was awarded Nobel Prize for his famous work „General and Industrial Management‟
in 1917. He gave following concepts.
 Elements of Organization
Technical, Commercial, Finance, Security, Accounts and Management
Principal of Organization Qualities of a good Manager
 Division of Work
 Physical fitness
 Authority and Responsibility
 Discipline  Mental Alertness
 Unity of Command
 Moral part of Character
 Unity of Direction
 Subordination of Works  General education
 Remuneration of Persons
 Technical knowledge
 Centralization
 Scale Chain  Experience
 Order
 Equity
 Stability
 E-Spirit de corps
 Inivitives

2. Human Relation Theory: this theory is also known as classical theory. Scientific theory
emphases the aspect of efficiency, economy and productivity but lacks human aspects which
were later emphases by human relation theory. This theory was given by Elto Mayo. He was an
Australian by birth, studied medicines and went to Scotland. Then further returned to Australia
and died in England in 1949. He took a job as associate professor in Harvard business school in
USA in 1926. In 1927 he took an experimental research commonly known as Harvard Research.
Works of Mayo
 Human problems of Industrial civilization 1933
 Social problems of Industrial civilization 1945
 Political problems of Industrial civilization 1947
Mayo was influenced by P. Jannet and Sigmund Freud
Harward experiment: This is a famous experiment given after a various series of experiment at
Harward plant of Western Electronics Company in Chicago by Mayo, Fritz Roethlisberg and
Dikson. They stressed on the behaviour of workers and their production keeping in view
physiological, economics, physical and psychological factors. He called this approach as
„Clinical Method‟. The outcomes of these experiments were published in Frietz Roethlisberg and
Dickson‟s work „Management and Workers‟ in 1939. Some of them are listed below:
 Productivity is affected not by physical force or stamina but by social and
psychological factors.
 Non economic regards and sanction are significant determinant of the employer‟s
motivation and job satisfaction.
 Basing division of work too stringently on specialized is not necessarily the most
efficient approach.
 Employ may react to management and work itself as member of the formal
organization rather than individuals, with this the employees will socialize with one
another and form growth with Mayo called informal Organization.
Criticism:

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 „Anti Union and pro Management‟ Loren Bartta
 „Lack of economic dimension‟ Peter Druker
 „They displace lack of awareness of a large social and technical system‟. Daniel Shell
 „Encouraged employees to interfere in private lives of industrial workers‟. W H Whyte
3. Bureaucratic theory of Organization:
The world „Bureaucracy‟ was first coined by Vincent-de-Gourney in 1746 but a systematic
treatment was done by Gatene Mosca. Further it was developed by Karl Mark, Robert K. Micheal.
The term is widened by Max Weber. He defined it as “A Sociological concept meant for rationalistic
organization of collective life”. “In this growing complexity of modern life there is one and only
organization known as Bureaucracy and there is no escape from it”.
Characteristics of Bureaucracy by Max Weber
Impersonality, Hierarchy, Permanence, Expertise, Money salary, Rules, Exclusiveness, Carrier
system, Discipline and Control
Criticism
 „Rules most important than game‟ Robert K. Merton
 „An association which cannot correct its behavior from its errors‟ Michael Crozier
 „Max Webers‟s theory is nothing more than technical instrument‟ David Bentham
 „Treated it as alien product not suitable for developing societies. Robert Presthus
 „Treated it as a something autonomous, not suitable for development societies‟. F. W. Riggs
 „Treated his ideal type as mental construction‟. Carl Fridrick
Some important definition:
 „It gives rise to Rigidity, Favourism and ritualism‟. R K Merton
 „Officials make work for each others‟. C N Parkinson
 „New form of despotism‟ Lord Hewert
 „A new middle class bourgeois affair‟ Hegel
 „Bureaucracy is a link between state and society‟ Hegel
 „Bureaucracy is the price of Parliamentary democracy‟ Herbert Marrison
 „A body of professional, permanent, paid & skilled‟ Hermin Finer
 „Bureaucracy is an instrument of exploitation‟ Mark
 „Modern is based on legal rational authority‟ Max Weber
 „Dominant Bureaucracy‟ J S Mill
 „The Continental Nuisance‟ Carlyle
 Representative Bureaucracy (concept) Jawarlal Nehru
 Committed Bureaucracy (Concept) Indera Gandhi
 Neutral Bureaucracy (Concept) Marorji Desai
 Social Justice Based Bureaucracy (Concept) V P Singh
 Reformist View of Bureaucracy (Concept) Balow
 Bureaucratic Phenomenon (Concept) Michael Crozier
 Prismatic Bureaucracy (Concept) F W Riggs
 Bureaucracy is the „govt. by officials‟. Gladden
 A system of Govt. the control of which is so completely in the hands
of officials that jeopardize the liberty of individual citizens. Lasaki
 „Bureaucracy is a sociological concept meant for
the realistic organization of collective life‟ Max Weber
 „Bureaucracy is a system of administration characterized by the lack of
expertise, impartiality & humanism‟. Maclver
 Bureaucracy is the „iron law of oligarchy‟ Robert Michael
 Bureaucracy is „ professional body of officials permanent, paid and skilled‟ Finer
Definition of Public Administration:
 Public Administration is related to the operation of government
weather center or state. P McQueen
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 It is defined as art and science of management as applied to affairs of state. D. Waldo

 It is defined as what and who of government. M. E. Dimock

 It is defined as systematic executive of law. Woodrow Wilson
 It is primary concerned with executive branch where work of government
is done. Luther Gulick
 The science of administration is an enquiry as how policies many best
be carried into operation. Merson
 It is common usage of executive branch at national, state and local. Herbert Simmon
 Any policy whose aim is the execution of public policy is called administration. L.D. White
 Public administration is the work done by the govt. to give effect to law. H Walker
 It denotes the operation of Administrative branch only. F Willoughby
Principles of Organization
Definitions
 Organization is a system of consciously co-ordination activities or forces
of two or more persons. Chester Bernard
 Organization consists of relationship from individual to individual, from group
to group which are so related to bring an orderly division of labor. Piffner &
Presthus
 Organization is the form of every human association for attainment of
common purpose. Mooney
 Principles are nothing but proverb of administration. Simmon
 They are only the working rules. L D White
 Co-ordination is the first principle of organization. Mooney
 There are some principles which can be taken as more or less proved. Gurwick, Urwick,
Henry Foyal, Willoughly.
Koontz and O Donell has given following reason for importance of Principles of Organization
 To increase efficiency of organization
 To crystallize the nature of organization job
 To achieve social goal
Principles of Organization: There are four principles of organization i.e.
a) Hierarchy
“Superior subordinate relationship from top to bottom” L. D. White
“Scalar principle of organization” Mooney
b) Unity of Command
“Every member in an organization should report to one and only one superior”
Piffner & Presthus
“Every member of organization should receive order from one superior only” Henry Foyal
Taylor favoured duel supervision i.e. by 8 persons
The Gang boss, The speed boss, The inspector, The repair boss, The order of work and route
clerk, The instruction card clerk, The time and cost clerk and The shop disciplinarian
John D Millet favoured duel supervision i.e. by 2 persons
Technical supervisor and Administrative supervisor
Seckler Hudson favored duel supervision i.e. by four persons
Policy order supervisor, Personal supervisor, Budget supervisor, Supplier and equipment
supervisor
c) Spain of Control
“The number and the range of direct habitual communication between chief executive of an
enterprise and his fellow officials” Dimock
Various thinkers offered control by different numbers e.g.
Urvey 5
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Hamilton 6
J C Worthy 20
Dale 16
Gauconas n (2n+1 + n-1) for him ideal was 6
d) Integration and disintegration
The transfer of administrative authority from lower to higher level of govt. is called
centralization and converse is decentralization L D White
Donald C Stone wrote „New horizons in Public Administration‟ in which he gave following
suggestion to chief executive as under:
 To create an environment conductive to convert efforts in pursuing the objective of
organization.
 No interference of higher at lower stage decision
 Act in economic terms
 He should be aware about work in organization
 To act predominately catalyst in working process
 To have sufficient knowledge about programe
L. D. Lipset wrote „Being an Executive‟ in which he gave qualities of executive.
Being objective & broad minded, Keeping the lives of authority straight, Having people smarter than
him, Avoid handling detail by himself
R. S. Dawar wrote „Creative Leadership‟ in which he gave qualities of leadership
Courage, Will power, Emotional stability, Independent, Knowledge, Decisiveness and initiative.
Max Weber gave three Types of authority i.e. Chrismatic Authority, Traditional Authority and
Legal-Rational Authority. He describes Legal-Rational as ideal one.
Line and Staff and Auxiliary agencies: The concept of line and staff originated in realm of military
services. Line is directly linked with Administrative command. The staf provides specialized advice
but does not command. Auxiliary provides help to both line and staff where as staff and auxiliary are
for complex organization. Staffs help chief executive in an office.
Line: In „Introduction to the study of Public Administration‟ L. D. White has given following
function of line agency
 Making Decision
 Taking Responsibility
 Interesting and depending policy operation
 Planning
 Maintaining production while seeking both efficiency and economy.
Types of line agency;
 The department: An homogenous unit where work is concentrated
USA = 13 departments headed by a secretary
UK not fixed
 Public Corporation: A Statutory body. Marshal E. Dimock defines it as “a public owned
enterprise that has been charted under federal, state or local law for a particular business or
financial purpose”. However in this there is a problem of Autonomy and control.
 Independent regulatory commission: it is a peculiar concept in USA. This commission
enjoys somewhat autonomy and is created to help head administration. They quasi-Judicial
and quasi-legislative functions.
Staff: Provides support to the line agencies but don‟t take decision
Types of staff agencies;
 General staff
 Technical staff
 Auxiliary staff

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Willoughly calls staff agencies as “Housekeeping services”
Some views about Public Administration
 Wider view of Public Administration was given by M. E. Dimock.
 Narrow view of Public Administration was given by L. Gulick.
 Integral view of Public Administration was given by L. D. White.
 Managerial view of Public Administration Herbert A Simmon.

Major functions of Chief Functions of executive as Maslow gave concept

Executive as given by L D given by Luther Gulick of „Hierarchy of needs‟
White (POSDCORB) as followings
 Formulation of policies  Planning  Physiological needs
 Create organization  Organizing  Safety needs
 Personal administration  Staffing  Social needs
 Command administration  Directing  Esteem needs
 Investigation and enquiries  Coordinating  Self-actualization
 Budgeting and responsibility  Reporting needs
 Co-ordination  Budgeting

Max Weber is known as St. Paul of concept of Bureaucracy.

According to Urwick „every organization must have its scalar chain just as every house must have its
drain‟.
Nehru said „Administration not only has to be good but also to be felt to be good by the people‟.
Accountability and Control
 Royal commission on Finance, Management & Accountability was set up in Canada in 1976.
 White said „Power in a democracy requires control and greater the power the more need for
control‟.
 Internal Emergency in India 26 June 1975 to 23 March 1977.
 Mundhra Case; question raised by Dr Ram Shabang Singh (first leader of opposition in
Lok Sabha) in Parliament. Chagla Commission inquired & T T Krishnamachari (Minister)
resigned. This is first case corruption in India.
 Pondicherry License Case 1974
 K D Malviya-Sirajuddin affair 1963.
 V K Krishna Menon resigned because he was held responsible for debar in border war with
China.
 No confidence motion was first time discussed in 1963 in Parliament of India.
Various Administrative Reform committee in India
 N. Gopal Swamy Lyenger committee – 1949 (Recommended re-organisation of post offices)
 A W Gorewala committee – 1950 (to review the working of Pub Adm. In the task of
development.)
 P H Appleby committee – 1952 (to do a survey of Administration in India)
 P H Appleby committee – 1956 (to review the working of Indian Enterprises)
 J B Kripalni committee – 1955 (to examine the issue of corruption in Indian Railway)
 A Ramaswamy muddalair committee - 1956 (to outline the criteria of merit for civil service)
 K santhanam committee – (to examine the working of Indian administration In total)
 First administrative reform commission – 1966 (under Marorji Desai & then K
Hanumanthaiah)
 D S Kothari committee – 1976 (concerned with the process of recruitment in Civil Services)
 Satish Chandra committee – 1989 (Recommended broad changes in Civil Services)
 N N Vohra committee – 1997 (to examine the issue of corruption)
 P C Jain committee – 1998 ( to examine the operational aspect of administrative law)
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 Y K Alagh committee – 2000 (to examine civil services examination)
 P C Hota committee – 2004 (changes in civil services exam)
 Second Administrative reform – 2005 Verapa Moli was its chairman, RTI was its first
demand.
Modern theories of Motivation Traditional theories of Motivation
Hierarchy of needs Maslow  Fear and punishment theory
Theory X and Theory Y Mc Gregor  Reward theory (given by Taylor)
Theory Z Ouchi  Carrot and stick theory
Two Factor Theory Herzberg
Expectation Theory Vroom
George R Terry in his work „Principle of
Ordward Tead gave following „qualities of Management‟ gave following qualities of
leadership‟ Leadership
 Physical and nervous energy  Energy
 Enthusiasm  Emotional Stability
 Sense of purpose and direction  Knowledge of human relation
 Technical mastery  Empathy
 Friendliness and affection  Objectivity
 Decisiveness  Communication skill
 Integrity  Teaching ability
 Intelligence  Teaching skill
 Faith  Technical competence

Chester Bernar: He gave 4 qualities of leadership

Vitality and endurance, Decisiveness, Persuasiveness, Responsibility and intellectual capacity
M P Follet gave three types of leadership
Leadership of position, Leadership of personality and Leadership of Function
Chester Bernard gave concept of „Zone of Indifference‟. He divided the acceptance of authority
into three types
 Those who will clearly be unacceptable
 Those which are neutral line
 Those which are unquestionable accepted, according to him order falling under this third
category came under zone of Indifference.
Management: Following are some of work on Management.
 Need Hierarchy Maslow
 Motivation Hygiene theory Herzberg
 Job Enrichment Herzberg
 Theory X, Theory Y Mc Gregor
 Theory Z 1978 William Ouchi & Alford Jaegar
 Management System Likert
System 1 Exploitive Authority
System 2 Autocratic
System 3 Consultative
System 4 Participative group, by this fourth system we can get greater efficiency.
 Maturity and Immaturity theory Argyris
 Integration of Individual and Organizational goals Argyris
 Pattern of AB Analysis Argyris
 Management Grid Blake & Mounton
 Impersonal Behaviour Sayles
 Organizational Development Bennis

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 Contingency model of leadership style Fiedler
 Human Group Homasan
 Fusion Process Bakke
 Group Dynamics Lewin
Important works in Public Administration:
 Achievement Motivation Theory 1953 David Mc Clelland
 Positive reinforcement theory/Behaviour modification theory
/operation conditioning theory 1953 B F Skinner
 Management by objective theory (MBO) 1955 Peter Drucker
 Maturity-Immaturity Theory 1957 Charis Argyris
 Expectancy theory or VIE theory
(Valence Instrumentality & Expectancy) 1964 Victor Vroom
 Equity Theory 1965 J Stacy Adams
 Performance-Satisfaction Theory 1968 Porter & Lawler.
 Goal Setting Theory 1968 Edwin Locke
 Attribution Theory 1973 Harold Kelley
 Bowling Alone: America‟s decline social capital 1995 Robert Putnam
 Financial Administration in India M J K Thavaraj
 Human Side of Enterprise Mc Gregor
 Temporal Dimensions of Development Administration 1970 D Waldo
 The intellectual crisis in American Public Administration 1974 Vincent Ostrum
 The State 1889 Woodrow Wilson
 Congressional Govt. 1885 Woodrow Wilson
 The New State 1920 M P Follett
 Management of Tomorrow 1933 Urwick
 The Idea of India S Khilnanai
 Sustainable History and Dignity of Man Nayef Al Rodhan
 The Ecology of Administration F. W. Riggs
 The problem of Science of Public Administration Robert A. Dahl
 The Developmental Administration J. L. Plambara
 Clinical approach to counseling therapy Cart Rogers
 Studies of inter-personal relation J L Moreno
Herbert A Simmon
He was born in 1916 in USA, Awarded Nobel Prize in 1978. Nobel committee conferred his work as
Epoch Making. He belonged to social system school. He said „before a science can develop
principles, it must possess concept. Decision making is most important activity of Administration‟.
The socio-psychological approach is also known as behavior approach. Some important works of
Simmon are as following;
Work Year Work Year
Proverb of Administration 1946 The new science of Management Decision 1960
Administrative Behavior 1947 Shape of automation 1960
Fundamental research in 1953 Science of artificial 1969
Administration
Organization 1958 Human Problem solving 1972
Simmon coined the terms Bounded rationality. He gave three stages of decision making i.e.
Intelligence activity, Design Activity, Choice Activity.
Administrative System of USA
 Constitution adopted on September 17, 1782 in Philadelphia, Pennsylvania and later ratified
by conventions in each state in the name of „the people‟.
 So far only 27 Amendments have done. First ten amendments known as bill of Rights. It is
world oldest federal constitution.

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 The hand written or engrossed, original document is on display at National Archives and
Record Administration in Washington DC.
 It consists of 7 Articles & 27 Amendments.
 It is based on „Separation of power‟ and „check and balance‟.
 President does not attend session of congress, nor initiate legislation directly, nor answer
question.
 Congress cannot remove him nor does he can dissolve congress.
 Father of US constitution provided indirect election for president but today elected directly.
 USA was originally a federal of 13 states but today 50.
 Federation in practice has become strong because of application of doctrine of Implied Power
as propounded by the Supreme Court of USA.
 Major amendment of USA constitution
 13th Amendment 1865 Abolished Slavery in America.
 19th - 1920 Granted suffrage to women.
 22 nd
- 1951 Regulated re-eligibility president
 25th - 1971 if president cannot perform duties, vice president will be acting
President.
 26th - Voting right to all citizens of 18 yrs old age.
 27th - 1992
 Lower house is known as „House of Representatives‟ 435 member elected for 2 years.
 Upper house called „Senate‟ consists of 100 members elected for 6 years.
 Article 1 gives power to congress
 Article 2 Gives power to President
 Article 3 Gives power to Supreme Court
 USA don‟t possess concurrent list.
 Justice Huge said “We are under a constitution but constitution is what the judge says”.
 In USA Constitution bill from state cannot reserved for present‟s assent.
 In USA Judicial review became famous by the case of Marbury Vs Maidison under Chief
Justice Marshal.
 Hoover Commission: 1st Hoover Commission was appointed by president of USA, David
Truman in 1947 for Administrative changes in federal govt. of USA. It gave 273
recommendations. It was named after Hebert Hoover, former president of USA. 2nd Hoover
Commission was appointed in 1953
Right to Information Act
 USA granted the RTI to its citizens by RTI Act 1966.
 Sweden is the only state which has conferred RTI through direct constitutional provision.
 Fulton Committee (1996-98) in Britain found too much secrecy in Pub. Adm. & hence
recommended to inquiry into office secret Act 1911.
 In 1972 Frank Report also made some recommendations.
 On July 25, 2000 govt. introduced RTI bill in Lok Sabha.
 On Oct. 12, 2005, RTI was made a const. Act. It is under Art 19(a) i.e. Right to freedom of
speech and expression.
 Central Information Commission (CIC) at Union Govt. it include one Chief Information
Commissioner (CIC) and not more than ten Information Commissioners (ICs). This is RTI is
kept under it.
 All of them appointed by president on recommendation of high powered committee
constituting PM, Leader of opp. Lok Sabha, One Union Minister.
 Tenure of appointment is 65 years age or 5 years term, no further employment.
 Can fine 250/day up to 25000 if information delayed beyond 30 days.
Financial Administration: the word „Budget‟ has been derived from a French word „Bougette‟
which means a „leather bag or wallet‟.
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Wildasky defined budget as „a series of goals with price tags attached‟.
Harold D Smith gave five principles of Budget
Executive Programe, Executive Responsibility, Reporting, Adequate tools and Multiple Procedures
Budget is prepared by following in different countries:
 Finance Ministry - India
 Bureau of Budget - USA
 Treasury - UK
Performance Budget: it is a concept of recent origin & is different from traditional budget. A
performance budget shows what wise & programe-wise. It fixes responsibility very precisely. It was
in 1860 that Sir James Wilson, the first finance member of the Governor-General‟s council
introduced the Budget in the Government of India.
Preparation of Budget in India: Finance Ministry, The Administrative Ministry, Niti Ayog & CAG.
Article 112 -117 deals with the enactment of Budget.
Zero Base Budget (ZEB):
 ZEB was first developed at Texas Instruments Inc. during 1969 by Peter A Phyrr.
 This process was first adopted by Gimmy Carter (Who later became US president) of
Georgia for the preparation of fiscal 1973 budget.
 V P Singh PM of India said that Govt. would be introducing ZEB at first in a small way in
1986-87 & then in full in Budget from 1987-88.
 ZEB technique involves a critical review of every scheme before a budget provision is made
in its favour.
Planning Programming Budget (PPB):
 IT has its roots in Industry.
 It was first practiced by USA Company General Motors in 1924.
Budgeting is known by various names. Earlier it was called as „Functional Budgeting‟ or
„Authoritative Budgeting‟. The term „Performance Budget‟ was first used by Hoover Commission
1949. Another term „Programme Budget‟ is also used. A performance Budget focuses on work and
activities of an organization where as Programe Budget treats them as but intermediate aspect &
concentrate on output analysis. A Performance Budget strives for an improvement of internal
Management of Organization by using techniques.
First Administrative Reform defines a Performance Budget as „a technique for presenting govt.
operations in terms of functions, programs, activities and objects‟.
Vote on Account: according to Art 116(a), the Lok Sabha can grant a limited sum from thr
Consolidated Fund of India to the executive to spend till the appropriate act is passed by Parliament.
It is taken for two months and is limited to 1/6 of the total expenditure of the year.
Railway and defence accounts are not audited by CAG. In 1976, Audit and Accounts department was
separated.
Jeep purchase case was a corruption case in 1918 and Whisky deal in 1948 and these are important.
Brownlow Commission: It was established in 1937 for changes in executive branch of USA Govt. Its
members were Luther Gulick, Louis Brownlow, Charles Marine. It resulted in creation of executive
office of president.
Personal Administration:
 The credit of developing scientific system of recruitment for the first time goes to China in
2nd century BC.
 Prussia was first modern time to introduce a system from 1857 onwards.
 In USA Spoil system was replaced by merit principle.
 In India as well as in Britain Merit system came to existence in 1853.
 The first use of interview in recruitment was made in England in 1909.
 Civil Service Commission is the recruitment agency in Britain.
 National Bureau of Administration is the main recruitment agency in France.

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Civil Service in India:
 Before independence, ICS exam was held in England India.
 A combined exam was held for all services except Indian Police.
 Prior to 1922, it was held in Britain only.
 In 1937 Public Service Commission (India) was converted into Federal Public Commission
under Act 1935.
 After 1943, recruitment to ICS as well as IP was suspended.
 After independence ICS, IP were not resumed and new one IAS, IPS were established.
 In 1975 Kothari Committee under D S Kothari submitted its report & said that a preliminary
screening exam should be held for IAS, other Class 1 exams.
 In 1978 Central Govt. accepted its recommendations.
 Today exam is based on Kothari committee.
 Fort William College was established in 1800 by East India Company in India.
Classification of Employees;
Classification before Independence

Class 1 Class 2 Class 3 Class 4

Classification by East India Company

Covenanted /Superior Type initially Non-Covenanted, Subordinate Type

only European were taken into Royal Indians were also taken into

Sir Charles Aitchison Commission 1886

Imperial Civil Provincial Civil Subordinate

Services Services Services

Lee Commission 1923

All India Services Central Services Provincial Services

British Administrative Services

 Oldest administrative system & oldest democratic system.
 British constitution is known as mother of constitution.
 Representative govt. first developed in Britain.
 It is mixture of Monarchy, Aristocracy and democracy.
 Great Charter is also known as constitution Charter and is a Constitutional landmark. They
are historical documents which define power of crown and liberties of citizens.
 Magna Carta 1215

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 Petition of Rights 1628
 Bill of Rights 1789
 Statues: These are the law made by British Parliament from time to time.
 Habeas Corpus Act 1679
 The status of west Minister 1931
 Minister of Crown Act 1937
 People‟s Representation Act 1948
 Privy Council
 Came into existence in 15th century.
 Presently it consists of 330 members & includes all cabinet ministers.
 It presides over by Lord President of the Council.
 Shadow Cabinet
 Unique institution of British Cabinet system.
 Formed by opposition party to balance ruling party.
British Civil Services:
 Till 19th century Britain had Patronage system of civil services.
 Civil services originated on recommendation of North Cottrevelyan Report of 1854.
 Later changes introduced on recommendation of Play-fair Commission.
 Major Committees
Name of Committee Year Name of Committe Year
Radley Commission 1986 Masterman Committee 1948
MacDonald Committee 1912 Priestley Committee 1953
Maldone Committee 1918 Plowden Committee 1961
Haldone Committee 1918 Morton Committee 1963
Assletion Committee 1944 Fulton Committee 1968
 House of Common: All the members have 5 yrs. Term and house meet once a year. Total
members of the house are 635
Country Seats Country Seats
England 516 Wales 36
Scotland 71 Northern Bee land 12
 Speaker is selected for life as long as he/she wish. In 2009, John Bercow was elected as
speaker. In 2015 re-elected for same post.
Administrative System of France:
 French Revolution (1789-1799)
 Since revolution, constitution has changed on an average of every 12 years.
 It adopted three Monarchies, two dictatorships, three imperial & four republic Constitutions.
 Present is fifth Republic constitution came into force in 1958.
 It was prepared under the instructions of General deGauthe.
 It is a written Constitution. It consists of a preamble, 92 articles, divided into 15 chapters.
 It declared Liberty, Equality and Fraternity, as motto of 5th Republic.
 Art. 2 states that France is a Republic, Indivisible, Secular, Democratic &Social.
 French constitution provides neither presidential nor Parliamentary govt. rather it provides
Quasi-presidential & Quasi-Parliamentary govt.
 President is elected directly for seven years.
 Nominated council of ministers under PM responsible to Parliament.
 It has bicameral house.
 National Assembly (Lower House) (Directly elected for 5 years) 577 members.
 The Senate (Upper House) (Indirectly elected for 9 years) 321 members.
 It has unitary govt. i.e. only Central Govt.

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 It has a constitutional Council consisting of 9 members appointed for 9 years. It works as
judicial watch dog.
 Originally in constitution president was elected indirectly, but in 1962 the const. amended to
make it direct election.
Case study method: This method was first developed in 1980 by Christopher Longdell at Harvard
Law School.
Peter Drucker said „Satisfaction with monetary rewards is not a sufficient motivation‟
Abraham Maslow gave concept Vroom gave „Expectancy Theory‟. He gave
„Hierarchy of Need‟ & mentioned following factors of an equation to calculate
following need in it motivation.
 Self Actualization  Expectancy
 Esteem  Instrumentality
 Social  Valence
 Safety
M=E×I×V
 Psychological
Michael Nash opened that Maslow‟s theory is interesting but not valid. Nash too characterized the
theories of Herzberg and Maslow as „Major wrong theories‟.
The term „Self Actualization‟ was coined by Kurt Goldstein
Administrative System of Japan:
 Renunciation of War- Art 9 of the constitution states that Japanese people forever renounce
war as a sovereign right of nation.
 Judicial Review – Art 98
 Constitution has never been amended since its enactment in 1947.
 Need special majority for amendment.
 Parliament is called Diet & it consists of two houses
 House of Representatives of Japan - 480 directly elected members
 House of Councilors - 242 directly elected members
 Prime Minister is powerful. He is commander-in-chief of Japan defense forces.
 Its constitution is also known as Pacific Constitution.
Communication (definitions)
Shared understanding of shared purpose Millet
The underlying aim of communication is a meeting of minds on common issue Tead
Good communication is the foundation for sound administration Peter
It is the heart of management Piffner
It is a process in which decisional premises are transmitted from one member of
the organization to another. Simmon
Simmon‟s work Administrative behavior laid the foundation for the economic movement known as
„Carnegic School‟.
Types of decision making
S. No. Thinker Types of Decision Making
1. Simmon Programmed and Non-Programed
2. P Drucker Generic and Unique
3. Chester Bernard Organizational and Personal
Model of Decision making
There are four model of decision making
 Bounded Rationality Model/Behavioral Model Simmon
 Model of Public Policy/Lindblom‟s Incremental Model Lindblom
 Mixed Scanning Model Etzioni‟s Model
 Dror‟s Optional Model Dror

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Types of Leadership
 Lawa University Leadership Kurt Lewin Lippit & Ralph White
 Ohio State University Leadership E A Fleishman, E F Horris, H E Burtt
 Michigian University Leadership Rensis Likert
 Great man theory of leadership: This theory states that some men possess great quality of
leadership by birth e.g. Nelson, Nepolian, Charchill, Mao, Gandhi etc.
 Management Grid Robert Blake & June Mouton.
 In managerial grid they gave following figures.
a. Impoverished 1.1
b. Country club 1.9
c. Task 9.1
d. Middle of Road 5.5
e. Team 9.9
Minnow Brooke Conferences:
 First Minnow Brooke Conference was held in 1968 at Syracuse University, USA.
 It was organized against to US govt. and Philadelphia Conference.
 Its participants were from field of Political Science only.
 Its focus was Change, Relevance, Social Equity and Value.
 It gave rise to concept of Public Administration.
 Its Chairman was Dwight Waldo.
 Its proceedings were published in report by Frank Marini in 1971 names as
“Towards a New Public Administration: The Minnow Brook Prospective”.
 2nd Minnow Brooke Conference was held in 1988 in USA at Syracuse University.
 It was organized for the support and expansion of US Administration.
 Its participants from field of Public Administration, Political Science, law,
Management Administration etc.
 Its focus was LPG – Liberalization, Privatization and Globalization.
 It gave rise to concept of New Public Administration.
 Its Chairman was H George Fredrickson.
 All its proceedings were published in work edited by Richard T Mayor and
published by Timmy Bailey named as “Public Management in the inter-connected
World: Essay in Minnow Brooke Tradition.”
 3rd Minnow Brooke Conference was held in Sept. 2008 at Syracuse University.
 It was organized at the time when US was facing global terrorism, economic and
ecological imbalances.
 It focused upon structural and functional reforms or second generation reforms.
 It gave origin to concept of 3‟E – Economy, Efficiency and Effectiveness.
 It was chaired by Rosemary O‟ Leary.
Father in Public Administration
Father of Public Administration Woodrow Wilson
Father of American Public Administration Frank Goodnow
Father of Indian Public Administration M P Sharma
Father of Development Administration George Gantt
Father of Comparative Public Administration F W Riggs
Father of New Public Administration Dwight Waldo

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