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PERSPECTIVES IN PUBLIC
ADMINISTRATION

Theories in PA
• Scientific Management Theory
• Classical Theory/ Structural Theory
• Human Relation Theory
• Bureaucratic Theory

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SCIENTIFIC MANAGEMENT
THEORY

SCIENTIFIC MANAGEMENT THEORY

The first systematic theory of organization

was formulated in the early years of the
present century by Frederick Winslow Taylor.
An Engineer by profession, he is regarded the
Father of Scientific Management.

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FREDERICK WINSLOW TAYLOR

• An Engineer by profession, he is regarded
the Father of Scientific Management.
• He was the first to advocate the adoption
of scientific methods in the field of
industrial work processes and
management, to promote industrial
efficiency and economy.

What led to the development of Scientific

Management?
• When the Industrial Revolution had reached a stage of maturity, the
rapid expansion of business and industry were giving rise to new
problems of industrial planning and management.
• The working conditions in the factories were chaotic. The work
methods, tools and procedures were neither standardized nor planned
for efficiency.
• Choice of methods of work was mainly left to the workers themselves
resulting in considerable ad-hoc planning and inefficiency.

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Tylor’s Objectives

• Optimum utilization of all available resources – human

and material, in the fiercely competitive world of business
and industry.
• The need to raise production and promote efficiency with
economy in industry urgently required new techniques of
management.

Major Goals of Scientific Management

To raise industrial output by systematic

application of the methods of science, to
managerial problems and work procedures,
in industrial establishments.

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Fundamental Assumptions
a. Industrial processes can be made open for scientific observation and
experimentation. The work procedures of labor can be reduced to basic
motions to ascertain the longest, shortest and average time needed for each
motion.
b. The standard time prescribed for each operation can be produced at a
designated standard of efficiency and economy.
c. The workers can be trained in the best methods for achieving the industrial
objectives, by management.

Major Principles of Scientific Management

1. Standardization of work methods

2. Scientific selection and training of workers
3. Equal division of work between management and
workers
4. Mutual collaboration of the workers and management

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Importance of Scientific Management

• Wastage of human and material resources was greatly minimized effecting a
better and efficient utilization of labor and materials
• It helped in the standardization of work procedures and improvement of
working conditions
• Labor was greatly benefited by higher wages, better placements and training,
limiting of working hours and the general improvement in working facilities
• Provide effective guidelines to the management to develop an effective
organization.

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CLASSICAL THEORY

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CLASSICAL THEORY
• Also known as the structural theory
• Its foremost proponents have bee Henri Fayol, Luther Gulick, L.F. Urwick, J.D.
Mooney, A.C. Reiley. M.P. Follet and R. Shelton
• The most important concern of the classical theory is the formulation of certain
universal principles of organization. It deals primarily with formal organizational
structure.
• The theory assumes that there are certain fundamental principles on the basis of
which an organization can be established to achieve a specific objectives.

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Fayol divided all activities in an organization

under six groups:
• Technical
• Commercial
• Financial
• Security
• Accounting
• administrative

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Fourteen Principles of Organization

1. Division of Work 8. Centralization
2. Authority 9. Scalar Chain
3. Discipline
10. Order
4. Unity of command
5. Unity of direction
11. Equity
6. Subordination of individual 12. Stability of tenure of personnel
interest to general interest 13. Initiative
7. Renumeration of personnel
14. Esprit de corps

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Important contribution of classical theory

• It installed a sense of purpose and increased coordination of administrative
operations and by specification of roles, brought more predictability and
stability in organizational behavior.

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Group Activity
(Due on May 28, 2022)
Present and discuss the following in the class:
1. Agency’s/Organization’s CITIZEN’S CHARTER or STAKEHOLDER’S
CHARTER (a portion only). What are the impact of the Citizen’s Charter
to efficiency (agency/organization) and satisfaction (stakeholders).
2. The organizational structure of your agency/company. Discuss positive
impact of the structure set-up and issues/challenges experienced.

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HUMAN RELATIONS THEORY

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Human Relations Theory

The essence of the human relations theory lies in

its primary emphasis on human brings,
psychological motivations and informal group
behavior – in contradistinctions to the
structuralists’ exclusive concern for principles of
organization.

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Human Relations Theory

• This theory focuses on management as a web of interpersonal
relationships. It lays greater stress on the behavior of role occupants in
an organization than the formal structure of the organization.
• The advocates of this school argue that since management and
administration involve group effort and collective endeavor of people,
the study of management must be centered on interpersonal relations.

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The tenets of the human relations school are as

follows:
1. An organization is not merely a techno-economic system. It is very much a social system.
2. The behaviour of an individual is dominated by the informal group of which he is a part.
3. An individual employee cannot be motivated by economic incentives alone. His social and
psychological needs must be satisfied to improve the level of motivation. Social
satisfaction at the work place leads to higher performance.
4. Employees are capable of self-direction and control. The employee centred and
participative style of leadership is more effective than task-centred leadership.
5. Management requires social skills to make employees feel that they are a part of the
organization. Organization must take interest in employee development and welfare.

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However, the human relations approach suffers

from the following limitations:
1. The human relations are not a really employee-oriented approach. It seeks to manipulate
and exploit the emotions of employees for the benefit of the organization. It gives
workers a false sense of participation and happiness.
2. The approach ignores the wider environmental issues such as the work task, organization
structure and trade union. Social environment may fail to motivate employees if they find
the work task highly momentous.
3. The human relations approach is based on a wrong assumption that satisfied workers are
more productive workers.
4. The approach stresses the social psychological side of management and undermines the
role of economic incentives in work motivation. If the employees feel that salary levels are
too low, they are likely to be dissatisfied despite cordial inter-personal relations.

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Bureaucratic Theory

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Bureaucratic Theory
• Bureaucracy as an organizational model was first developed systematically by
Max Weber, an eminent German sociologist.
• According to Weber, every organization can be defined as a structure of
activities (means) directed towards the achievement of certain objectives
(ends).
• To maximize efficiency and productivity, every organization develops a
system of specialization (division of tasks) and a set of systematic rules and
procedures.

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Structural and Behavioral Characteristics of

Bureaucracy
Structural Behavioral
• Division of Labor • Rationality
• Hierarchy • Impersonality
• Rules • Rule Orientation
• Neutrality
• Criticism

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Generally, Characteristics of Bureaucracy

according to Weber:
1. In bureaucracy office is arranged or ordered hierarchically like a pyramid. That is, officers
hold office according to their rank. All the officers are subject to the higher authority.
2. Bureaucratic system is characterized by impersonal and written rules. The entire
administration is run by impersonal authority and the authority is vested in rules. In other
words, in bureaucratic system, human appeal has no importance. Laws and rules conduct
the administration. All the decisions are taken on the basis of rules and their methodical
application.
3. All the officials are recruited strictly on the basis of proven efficiency and potential
competence. Officials are given specialist training. For the purpose of recruitment,
qualifications are fixed; of course there may be provision for relaxation.

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Generally, Characteristics of Bureaucracy

according to Weber:
4. Each official, in bureaucracy, has special or demarcated task. That is, there is clear
division of work and each official will have to strictly observe it. The tasks are -so
demarcated that it involves full time employment.
5. The separation of officials from ownership of the means of administration. It
means that the officials will simply conduct the administration and they cannot
claim the ownership of the means of administration.
6. The officials who perform their duties competently will have security in services
salaries and promotion. In other words, in bureaucracy efficiency, merit and
honesty are duly rewarded. There is also the scope of recognition of seniority.

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Models of Bureaucracy:
Neutral and Committed Bureaucracy
Neutral Bureaucracy

Bureaucrats are full-time, permanent non-political employees of the

government. They, therefore, should serve any government with enthusiasm,
integrity, impartiality and disinterestedness. It is said that civil servants are
required to serve the government of the day. In other words, they must show
political neutrality

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Neutral and Committed Bureaucracy

Committed Bureaucracy

Dedication or commitment is required also because the employees have constantly to

deal with complex problems, many of which are new. It is a mistake to think that all
bureaucratic activity is routine and monotonous. Developmental activity in particular
requires forecasting, planning, risk bearing, breaking new ground and experimentation.
Hence, innovations have to be made all the time. The making of innovations, or
creativity, requires emotional commitment.

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MODELS OF BUREAUCRACY
(Reading Assignment)
• Rational-Administrative Model
• Power-Bloc Model
• Bureaucratic Over-supply Model
• Liberal Bureaucracy

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Importance/Advantages of Bureaucracy
• The government cannot survive without the bureaucracy - it helps formulate
policies and implements them for the benefit of the people.
• Bureaucracy has made administration more efficient, rational, impartial and
consistent than was the case in earlier times.
• In the third world countries, bureaucracy plays an important role. It
promotes national integration and national unity through administrative
policy and action.

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Importance of Bureaucracy
• It provides various services to the public in an efficient and effective manner.
• It fights corruption, divisive and disruptive forces and enforce order and
peace in the country.

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Demerits of Bureaucracy
• One of the criticisms against bureaucracy is that it unresponsive to popular
demands and desires. Bureaucracy, tends to regard itself as the self-appointed
guardian and interpreter of public interest.
• Secondly, red tape or undue formalism is another criticism. It is true that
bureaucracy puts too much emphasis on “procedure through proper
channel” and precedents.
• Thirdly, bureaucracy is self-perpetuating.
• Fourthly departmentalism or empire building is another drawback.

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