PRINCIPLES OF PUBLIC ADMINISTRATION

CHAPTER 1:
INTRODUCTION TO
PUBLIC ADMINISTRATION

Define the meaning of Public Administration.

Differentiate the meaning of Public and Private

Administration.

TABLE OF CONTENT
1.1 DEFINITION OF PUBLIC ADMINISTRATION
1.2 CHARACTERISTICS OF PUBLIC ADMINISTRATION
1.3 SIGNIFICANCE OF PUBLIC ADMINISTRATION
1.4 POLICY AND ADMINISTRATION
1.5 ADMINISTRATION AND POLITICS
1.6 PRINCIPLES OF POLITICAL ADMINISTRATIVE DICHOTOMY.
1.7 PRIVATE AND PUBLIC ADMINISTRATION.
1.8 ROLES OF PUBLIC ADMINISTRATION.

 1.1 DEFINITION OF PUBLIC ADMINISTRATION.

Public Community having particular interest in common.
Administration Coordination of men and materials within
organisation for the accomplishment of identifiable purpose.
Public Administration can be defined as a Management of men and
materials in the accomplishment of the purpose of the state
It is the science of how a country can be ruled.
It is a governments central instrument for dealing with general
social problems.
It is the management of resources to achieve governments goals
and objectives.

Definition of PA from various scholars:

Woodrow Wilson:
the most obvious part in a government, is the action taken by
government, it is an executive, and it is a body that operates in a
government
L.D. White:
all the activities that aim to amend and implement public policy
Dwight Waldo: 2 general definitions of P.A:
- P.A is an organization and it is the management of people and
material to achieve government objective
- P.A acts as an art and science of management which relates to state
matters

Marshalls & Gladys Dimock & Douglas Fox:

Public administration is the production of products and services to
fulfill the peoples demands

Definition of PA.cont
Felix A. Nigro & Lloyd G. Nigro (1984):
PA is a group of people working together to organise
the public right
It covers the branches of executive, judicial &
legislative
It plays important roles in the transformation of public
policy and it is part of political process
Is important and different from private management
As a mediator for private groups & individuals to deliver
services to the society

PROCESS of PA..cont
Luther H. Gullick and Lyndall Urwicks (1937)
(Papers on the Science of Administration) defines PA according
to the following characters which are:
i.

ii.

P Planning
Process of generating programs for long-term social and
economic development
It is an effort to increase standard of living in society by
using the available resources
Process that determines the economic and social goal in
order to improve the human living and activities.
Ensure full utilize of limited sources like money, raw material
and human power

O Organizing.
To prepare structure for synchronization, communication and
instruction
Public sector depends on organizational structure that
provide a clear division of function and responsibility to
ministry and department
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iii.

iv.

S Staffing
Normally conducted by a government agency which elected b
the government
In Malaysia, this responsibility is given to Public Administration
Commission
Staffing is usually conducted using two methods: external
staffing and internal staffing
Public staff must go through various training to increase their
productivity
D Directing
Organization must have on officer who acts as the head of
organization
He gives direction and instruction to other staff
Instruction gives leadership, direction and motivation to staff.
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iv.

v.

C- Coordinating.
A method to synchronize the work done by various departments
in the public sector
Important due to the huge size of public organization
It covers various department and other government agencies
Prevent misspends of the cost and the time and overlapping of
duties
R- Reporting.
As an instrument to ensure an organized communication and
information flow in the administration in order to facilitate the
effective process of forming, implementing and synchronizing
public policy.
Instrument of democracy because report can ensure that the P.A
perform their responsibility effectively and further fulfill the
needs of people

vi. B-Budgeting
Documents that records the estimate budget and
income of a country in a given period
To ensure accountability

 Public administration is the device consist

of theory and practice :
i. Promote understanding of government
and its relation with society.
ii. Use public policy to meet social needs.
iii. Institute practices to effectiveness,
efficiency, meeting human requisites.

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Rosenbloom (2005):
PA is the action part of government, the means by which
the proposes and goals of government are realised
He argued the three view of the roles of PA consist of :
i.

The managerial approach

ii.

The political approach.

iii. The legal approach.

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i.

The managerial approach.

The executive function, that emphasizes the

management and organisation of public organisations
Emphasize on the technique of POSDCRB
It gives consideration to problems in organization
administration, personnel and administration
accountability
Studies the staff behavior and action
Tries different methods or procedure in work area.
Public vs private sector approach.

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ii. The political approach.

Legislative function of government

To ensure constitutional protection
Every public administrator must be unbiased in
politics and loyal in his work regardless which party is
in rule
He needs to have an ability to work together with
politicians

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iii. The legal approach.

Related to judicial function.

Role of PA in applying and enforcing the law in
specific situations.
Consider matters like duties, barrier, good behavior,
officer ability and right of citizen from the law
context
The characteristics in the approach are language of
constitution, code of law, printed judicial decisions
and appealing body like state council

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1.2 CHARACTERISTICS (ELEMENTS) OF PUBLIC

ADMINISTRATION

Most scholars do agree that the definition of PA

should consists of the following:
Cooperative group efforts (of government servants) in a
public setting
Covers all the three branches (Executive, Judiciary, and
Legislative branches) of the government
Formulation of public policies
Different structurally from private administration, but closely
associated with the numerous private groups in providing
services to the community
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1.3 SIGNIFICANCE OF PUBLIC ADMINISTRATION.

1. The importance of PA as a knowledge-based field

The importance is unquestionable because in the study

of PA one learns about government, its principles,
bureaucracy, LG and State government, political
parties, interest group etc.
In short, an effective administration would make an
individual a good administrator responsible for the
running of state development programs and he would
require a clear understanding of the principles of PA

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1.3 SIGNIFICANCE OF PUBLIC ADMINISTRATIONcont

2. The importance of PA in a Democratic country

Political scholars of PA such as Max Weber (1920), Luther and
Gullick (1937), Dwight Waldo (1953) etc have emphasized the
importance of the subject-matter of PA for good governance of a
Democratic country.

Leonard D. white succinctly stated that:

The immediate objective of the art of PA is the most efficient
utilization of resources at the disposal of officials and employees.
In their broader context, the ends of administration are the
ultimate objects of the State itself the maintenance of peace and
order, the progressive achievement of justice, the instruction of
the promise of conflicting groups and interests in short , the
attainment of the good life.
So it clear that PA is crucial to ensure a more efficient and effective
administration and management of state affairs, its resources, and
also well-being and prosperity of it, for the betterement of the
people especially in a Democratic country
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1.3 SIGNIFICANCE OF PUBLIC ADMINISTRATIONcont

3. The importance of PA to society

The importance of PA to society is immense.
A good and proper administration of state affairs (PA)
will ensure society many valuable development
programs and projects, incorruptible or morally upright
administrators, good leadership, and so on.
In essence, the virtue of PA places great emphasis on
procedures, clear rules and regulations, transparency of
oders, impeachment of the leaders through laws and
commissions, and fair elections of selected leaders by
the people. thus., it was no wonder Abraham Lincoln
(1809- 1865) stated that:

Government is of the people, by the people, for the

people.
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1.3 POLICY AND ADMINISTRATION.

The core of public administration is to generate policy
Policy normally guides every action
It provides a framework for every aim to achieve certain
objectives
Administration refers to the process where the policy and
decision is implemented
In government, the major part of administration is carried
out by the Executive branch
Public policy is a goal, objective and manifestation of the
government.
Policy and PA are interconnected.
Formulation of public policy should be based on priority and
preference.
PA is the medium between the government and the mass.
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1.5 ADMINISTRATION AND POLITICS

The study of administration should be
dichotomized (separated) from the political
activities of their leaders 9or politicians).
This is to ensure a fair and neutral treatment of
the goods and services (programs) of the
government to the needy citizens.
If there is no such dichotomization, then only
those who support the ruling political party will
get all or most of the benefits.

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1.6 THE CONCEPT OF DICHOTOMY

Dichotomy can be defined as :
A dichotomy is any splitting of a whole into exactly two
non-overlapping parts

In other words, it is a bipartition of elements which

are mutually exclusive, nothing can belong
simultaneously to both parts, and everything must
belong to one part or the other. The two ways to
partition elements are themselves a dichotomy. They
are either complements (subdivision creating
subsets) or opposites.
Separation of two entities that are opposed entirely and
different form each other

Separation refers to between administration and

politics.

Administrator as an agent of development should not

be influenced by any political sentiments
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Administrators should not involved in

politics because :

i.

Administrator is a people that responsible

to protect the PA.

ii. Timeframe limitation of a politician.

(Direct vs. Indirect Representatives)
"In whatever the situation, civil servants shall act
fairly and impartially, with integrity
and always in the interest of the public."

-Tan Sri Mohd Sidek Bin Hj. Hassan

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1.6.1 DIFFERENCES BETWEEN PA & POLITICS

Power
Structure
Purpose
Office Tenure
Activities

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1.7 DIFFERENCES OF PRIVATE AND PUBLIC ADMINISTRATION.

KEY CHARACTERISTICS

PUBLIC ORGANISATION

PRIVATE ORGANISATION

Ownership

Belongs to government

Belongs to private
ownership, e.g
shareholders

Resources

Mostly from the taxes

collected from the people

Resources are limited to

only the owners,
shareholders, and
stakeholders

Objectives

To serve the public or

people in the society

To maximize profits

System of Accountability

To the superior, and also to

the public

Accountable to only the

owner and shareholders

Size and complexity

It is the largest
organization, and dominant
force of the country

It operates on a narrow
and specialized range of
activities

Rules & governance.

Federal Constitution

Company Act 1965

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CHARACTERISTICS OF PUBLIC AND

PRIVATE SECTORS.

PUBLIC SECTOR

PRIVATE SECTOR

CHARACTERISTICS:

CHARACTERISTICS:

FUNDED BY TAXES,
BORROWING, AND
GOVERNMENT ALLOCATION.
PUBLICLY OWNED AND
CONTROLLED.
CREATED BY GOVERNMENT
TO ADMINISTER A PUBLIC
SERVICE.
DO NOT SEEK PROFITS
DO NOT PAY TAXES

Source:

VS

FUNDED BY PRIVATE
INVESTORS
PRIVATELY OWNED AND
CONTROLLED
CREATED BY PRIVATE
INVESTORS TO EARN MONEY
FOR INVESTORS.
SEEK PROFITS
PAY TAXES.

Henry, (2004), Public Administration and Public Affairs 9th Edition,

Pearson Education Inc., New Jersey,. pp 332

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SIMILARITIES
i.
ii.
iii.
iv.
v.

Subject to governments regulations.

Involved in administration.
Effective management.
Efficient utilization of resources.
Element of cooperation and esprit de
corps.

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1.8 ROLES OF PUBLIC ADMINISTRATION

Public administration plays very important role in any country. The
role of public administration is changing from being a major provider
of public services and development to promoter and facilitator of
Development.
Implementing government policies - Public administration has
important role to play in translating the ideas, wishes and policies
of politicians into reality.
Providing Public services public administration provide varieties
of services directly or indirectly through its agencies. Such services
including provision of water, education, health, electricity,
telephone, postal, transport, public housing, immigration and
security services.
Improving Service delivery improving service delivery in term of
timeliness, quality, availability, effectiveness, efficiency and
convenience. This can be achieved by considering citizens as
customer and success is measured in terms of citizens satisfaction.
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1.8 ROLES OF PUBLIC ADMINISTRATION...cont

Promoting social change and economic development improving
socio-economic status of citizens and alleviating poverty.
Maintaining peace and harmony - Public administration is a major
force for bringing stability in society.
Monitoring and control private sector activities - Public
administrationis also regulate and control private economic
enterprises to meet the objectives of the state.
Protecting of the rights of workers in industrial sector - it is
imperative for public administration to implement such laws in
order to meet the requirements of labour welfare.
Scientific and technological developments bringing new
techonologies for administration such as the advancement of egoverment.
Economic planning - Centralised economic planning has been
pursued in many developing countries as a method for socioeconomic development. It requires a large number of experts and
elaborate administrative machinery for plan formulation,
implementation, monitoring, and evaluation.
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