SYLLABUS SYBA Political Science Paper III Public Administration (W.E.F. Academic Year 2013-2014 for Idol Students) Lectures MODULE I 1. Introduction to Public Administration 08 1.1 Meaning 1.2 Scope 1.3 Evolution of Public Administration as a discipline MODULE II 2. Public Administration in the age of Liberalisation, Privatisation and Globalisation 10 2.1 New Public Management 2.2 Good Governance 2.3 Public Choice Approach MODULE III 3. Principles and Theories of Organisation 12 3.1 Hierachy, Delegation, Decentralisation. 3.2 Evolution of Leadership Theories: Trait, Behavioural Theories, Feidler’s Contingency Model, Situational Theory 3.3 Evolution of Motivation Theories: Early Theories- Maslow, McGregor, Herzberg; Contemporaty Theories- McCleland, Cognitive Evaluation, Victor Vroom’s Expectancy Theory MODULE IV 4. Emerging Techniques and Tools in Public Administration 10 4.1 E-Governance 4.2 Public-Private Partnership 4.3 Critical Path Method, Programme Evaluation and Review Technique, Management Information System Assignment/presentation related to above modules (5 Lectures) Suggested Reference Book in English 1. Laxmikant m., Public Administration, Tata McGraw Hill, New Delhi, 2011. 2. bhattacharya, Mohit, New Horizons of Public Administration, Jawahar Publications, New Delhi. 3. Robbins, Stephen, Organisational Behaviour, PHI, New Delhi. 4. Dahiya, Sewa Singh and Singh, Ravindra, An Introduction to Public Policy, Sanjay Prakashan 5. Sharma, M. P., and Sadana, B. L., Public Administration in Theory and Practice, Kitab Mahal 6. Avasthi, A. and Maheshwari, S. Public Administration, Lakshmi Narain Agarwal 7. Arora, Ramesh (ed.), Public Administration, Aalekh Publishers 8. Bhattacharya, Mohit (RPA), Restructuring Public Administration, Jawahar Publishers and Distrbuters, New Delhi 9. Chakrabarty, Bidyut, and Bhattacharya Mohit (ed.), Public Administration a Reader, Oxford University Press, New Delhi 10. Maheshwari Shriram (AT), Administrative Theory An Introduction, Macmillan India Ltd., New Delhi 11. Noorjahan Bava, Public Administration in the 21st Century, Kanishka Publishers New Delhi, 2010. 12. Sahni, Pardeep, and Vayunandan, Etakula, Administrative Theory, PHI, New Delhi, 2010 13. Vishnoo Bhagwan and Vidya Bhusan, Public Administrative, S. Chand., New Delhi, 2010. SECTION II Lectures MODULE V 1. Indian Administrative System 10 1.1 British Legacy 1.2 Constitutional Context 1.3 Basic Features MODULE VI 2. Personnel Administration 10 2.1 Recruitment All-India Services, Central Services and State Services 2.2 Training: All-India Services, Central Services 2.3 Training: State Services (Maharashtra) MODULE VII 3. Financial Administration and Accountability 10 3.1 Budgetary Process. 3.2 Parliamentary Committees: Public Accounts Committee, Estmatess Committee, Committee on Public Undertakings 3.3 Comptroller and Auditor General MODULE VIII 4. Challenges to Indian Administration and Remedies 10 4.1 Corruption I: Causes, and Remedies-Anti-Corruption Law, Anti-corruption Bureau, Central Vigilance Commission 4.2 Corruption II: Remedies- Lokayukta and Lokpal 4.3 Citizens’ Charters Assignment/presentation related to above modules (5 Lectures) Suggested References Book in English 1. Laxmikant m., Governance in India, Tata McGraw Hill, New Delhi, 2011. 2. Lamikant m., Public Administration, Tata McGraw hill, New Delhi, 2011. 3. Arora Ramesh, and Goyal Indian Public Administration, Institutions and Issues, Wishwa Publication, 4. Sharma, M. K., Financial Adminstraition, Anmol Publication, 5. Fadia, B. L., and Fadia, Kuldeep, Indian Administration, Sahitya Bhavan, 6. Tyagi, A. R., Personnel Administration, 7. Thavaraj, M.J.K., Financial Administration. 8. The Indian Journal of Public Administration, Special Issue on Controlling Corruption in India: Various Approaches and their Efficacy, July-September 2011, Vol. LVII, No. 3. Books in Marathi 1. Patil, V. B., Lok Prashasan, Shri Mangesh Prakashan, Nagpur. 2. Patil, V. B., Samagra Lok Prashasan, K Sagar, Pune. 3. Bhogale, Shantaram, Lokprashasanache Siddhant aani Kaeryapadhati, Kailas Prakashan, Aurangabad. 4. Patil, B. B., Lok Prashasan, Phadake Prakashan, Kolhapur. 5. Bakane, Chhaya, Lok Prashasan, Shrividya Prakashan, Pune. **** 1 Module I AN INTRODUCTION TO PUBLIC ADMINSTRATION Unit Structure 1.0 Objective 1.1 Introduction 1.2 Definition of Public Administration 1.3 Scope of Public Administration 1.4 Role and Importance of Public Administration. 1.5 Conclusion 1.6 Unit End Questions 1.0 OBJECTIVE Public Administration is an activity as old as human civilization. In modern age it became the dominant factor of life. To Study about meaning, scope and importance of Public Administration is the main objective of this unit. 1.1 INTRODUCTION Public Administration as independent Subject of a social science has recent origin. Traditionally Public Administration was considered as a part of political science. But in Modern age the nature of state-under went change and it became from police stale to social service state. As a consequence, the Public Administration, irrespective of the nature of the political system, has become the dominant factor of life. The modern political system is essentially ‘bureaucratic’ and characterised by the rule of officials. Hence modern democracy has been described as ‘executive democracy’ or ‘bureaucratic democracy’. The administrative branch, described as civil service or bureaucracy is the most significant component of governmental machinery of the state. 1.2 MEANING OF PUBLIC ADMINISTRATION Administer is an English word, which is originated from the Latin word ‘ad’ and ‘ministrare’. It means to serve or to manage. Administration means management of affairs, public or private. Various definitions of Public Administration are as follows 1.2.1 Prof. Woodrow Wilson, the pioneer of the social science of Public Administration says in his book ‘The study of Public Administration’, published in 1887 “Public Administration is a detailed and systematic application of law.” 1.2.2 According to L. D. White “Public Administration consists of all those operations having for their purpose the fulfilment of public policy as declared by authority.” Both above definitions are done from traditional viewpoint and related only to the functions and actions of Administration. Following thinkers have taken a broad view while defining Public Administration - 1.2.3 According to Simon “By Public Administration is meant the activities of the executive branches of the national, state, & local governments.” According to Willoughby - “Public Administration in broadest sense denotes the work involved in the actual conduct of governmental affairs, and in narrowest senses denotes the operations of the administrative branch only.” 1.2.4 According to Gullick “Public Administration is that part of the science of administration which has to do with government and thus, concerns itself primarily with the executive branch where the work of the government is done.” 1.2.5 According to Waldo “Public Administration is the art and science of management as applied to the affairs of the state.” 1.2.6 Marshall E. Dimock “Administration is concerned with ‘what’ and ‘How’ of the government. What is the subject matter, the technical knowledge of a field which enables the administrator to perform his tasks? The ‘How’ is the technique of management according to which co- operative programmes are carried to success.” 1.2.7 Conclusion All above modern definitions of Public Administration emphasize the value based character of Public Administration and Public Administration as a science and art of administration. A close scrutiny of the definitions reveals that Public Administration has following important characteristics or features. 1.2.8 Important characteristics of Public Administration 1. It is part of executive branch of government. 2. It is related with the activities of the state. 3. It carries out the public policies. 4. It realise the aspirations of the people as formulated and expressed in the laws. 5. Waldo and other thinkers insist on the commitment and dedication to the well being of the people. Otherwise Public Administration behaves in a mechanical, impersonal and inhuman way. 6. Public Administration is politically neutral. 1.3 SCOPE OF PUBLIC ADMINSTRATION 1.3.1 Introduction The views of L.D. White and traditionalist on the one hand and those of Gullick and the scientific management school on the other hand differ regarding the nature and scope of Public Administration. Hence, we should understand various perspectives about the scope of Public Administration. 1.3.2 Scope Following are the three important perspectives about the scope of Public Administration. 1. Narrow perspective or POSDCORB perspective. 2. Broad perspective or subject matter view. 3. Prevailing view. 1.3.3 Narrow perspective or POSDCORB perspective Luther Gullick is the main exponent of this perspective. According to him the scope of public administration is narrow or limited. It is also regarded as POSDCORB view. It insists that the Public Administration is concerned only with those aspects of administration which are related with the executive branch and its seven types of administrative functions. These seven types of functions which shows the scope of Public Administration are as follows - 1. ‘P’ stands for planning 2. ‘O’ stands for organization 3. ‘S’ stands for staffing. 4. ‘D’ stands for Directing. 5. ‘Co.’ stands for Co-ordination. 6. ‘R’ stands for Reporting 7. ‘B’ stands for Budgeting 1. ‘P’ stands for Planning Planning is the first step of Public Administration. i.e. working out the broad outline of the things that need to be done. 2. ‘O’ stands for organization It means establishment of the formal structure of authority through which the work is sub-divided, arranged and co-ordinated for the defined objective. 3. ‘S’ stands for staffing It means the recruitment and training of the staff and maintenance of favourable conditions of work for the staff. 4. ‘D’ stands for Directing It means the continuous task of making decisions and embodying them in specific and general orders and instructions, and thus guiding the enterprise. 5. ‘Co’ stands for Co-ordination It means inter-relating the various parts of organization such as branches, divisions, sections of the work and elimination of overlapping. 6. ‘R’ stands for Reporting It means informing the authority to whom the executive is responsible as to what is going on. 7. ‘B’ stands for Budgeting It means accounting, fiscal planning and control. Evaluation POSDCORB Perspective about the Scope of Public Administration is limited and narrow. It stressed on the tools of Public Administration. It does not show the substance of administration. It is a technique oriented perspective, not a subject oriented. 1.3.4 Broad perspective or subject - oriented perspective Prof. Woodrow Wilson and L D While are main exponents of this perspective. They have taken a very broad approach about the scope of Public Administration. According to them (A) Public Administration covers all three branches of the government - Legislative, Executive and Judicial and their interrelationship. Legislative organ makes the laws, Executive organ of the government implements the laws. And judicial organ of the government interprets the laws. There is interrelationship between these three organs. B) Scope of Public Administration is like a cooperative group. It consists of all from class one officer to class four employees. C) Public Administration is a part of the political process. It has an important role in the formulation of public policy at all levels, from national to grassroots. It is closely associated with numerous private groups and individuals in providing services to the community. It has been influenced in recent years by the human relations approach. 1.3.5 Prevailing view Prevailing view divides the scope of Public Administration into two parts.- 1) Administrative theory 2) Applied administration 1. Administrative theory It includes the following aspects. a) Organisational Theory The Structure, organization, functions and methods of all types of public authority engaged in administration, whether national, regional or local and executive. b) Behaviour The functions of administrative authorities and the various methods appropriate to different types of functions, the various forms of control of administration. c) Public Personal Administration The problems concerning personnel e.g. recruitment, training, promotion, retirement etc. and the problems relating to planning, research, information and public relation services. 2. Applied administration It includes the following aspects a) Political functions It includes the executive - legislative relationship, administrative activities of the cabinet, the minister and permanent official relationship. b) Legislative function It includes delegated legislation and the preparatory work done by the officials in connection with the drawing up of bills. c) Financial functions It includes total financial administration from the preparation of the budget to its execution, accounting and audit etc. d) Defence Functions relating to military administration. e) Educational function It includes functions relating to educational administration. f) Social welfare administration It includes the activities of the departments concerned with food; housing, social security and development activities. g) Economic Administration It is concerned with the production and encouragement of industries and agriculture. h) Foreign administration It includes the conduct of foreign affairs, diplomacy, international cooperation etc. i) Local administration It concern with the activities of the local self-governing institutions. 1.3.6 Conclusion The modern state cannot confine its field of activities to only maintenance of law and order, dispensation of justice, collection of revenue and taxes. The modern state is expected to provide more and more services and amenities to the people. This results in tremendous growth both in the governmental responsibilities as well as in the administrative machinery of the state. Naturally the scope of public administration is increased. 1.3.7 Table - Scope of Public Administration Three perspectives 1 2 3 Narrow Broad Prevailing view divides perspective perspective the scope in two parts. or POSDCORB 1) Planning 1) Covers all three branches 2) Organisation of the government 3) Staffing 2) like a cooperative group. 4) Directing 3) Part of political process 5) Co-ordination exponent - Woodrow Wilson 6) Reporting View - Subject oriented 7) Budgeting Exponent - Luther Gullick View - Technique Oriented Administrative Theory Applied administration 1. Organisational Theory 1. Political functions 2. Behaviour 2. Legislative 3. Public personal 3. Financial Administration. 4. Defence 5. Educational 6. Social Welfare 7. Economic