Evolution of Public Administration

PA evolved through five distinct phases, each shaped by the social, economic, and political context of its time.

Phase 1 — Classical/Old Public Administration (1880s–1930s)

Key thinkers: Woodrow Wilson, Frederick Taylor, Max Weber, Frank Goodnow, Henri Fayol

• Wilson (1887): "The Study of Administration" — argued administration is a "field of business" separate from politics; advocated scientific study of PA.
• Frederick Taylor (1911): Principles of Scientific Management — time-and-motion study, standardisation, differential piece-rate pay; applied to government agencies.
• Max Weber (early 20th century): Ideal-type bureaucracy — hierarchy, written rules, impersonality, merit-based selection, specialisation, clear authority.
• Henri Fayol (1916): 14 principles of management (division of work, authority, discipline, unity of command, unity of direction, etc.).

Core assumptions: Efficiency, hierarchy, neutrality, rule-following; politics and administration are separate.

Phase 2 — Human Relations Era (1930s–1940s)

Key thinkers: Elton Mayo, Chester Barnard, Mary Parker Follett

• Elton Mayo (Hawthorne Experiments, 1927–32): Productivity is affected by social factors, not just physical conditions. Gave rise to emphasis on human motivation, group dynamics, morale.
• Chester Barnard: The Functions of the Executive (1938) — organisations as cooperative social systems; authority depends on acceptance by subordinates.
• Mary Parker Follett: Advocated participatory management, conflict resolution through "integration," and circular rather than linear authority.

Core shift: From machines to people — recognising informal organisation alongside formal structure.

Phase 3 — Behavioural Era (1950s–1960s)

Key thinkers: Herbert Simon, Robert Dahl, David Easton

• Herbert Simon: Administrative Behavior (1947) — bounded rationality; decision-making is the core of administration; criticised POSDCORB's "administrative proverbs."
• Robert Dahl (1947): Argued PA must incorporate political, sociological, and psychological dimensions; cannot be value-free.
• PA became more empirical — using surveys, case studies, comparative analysis.

Phase 4 — New Public Administration (NPA), 1968–1970s

Minnowbrook Conference, 1968 (Syracuse University, convened by Dwight Waldo): A gathering of young scholars who challenged the dominant orthodoxies of PA.

NPA's key demands:

1. Social equity — PA must actively work to reduce inequality (H. George Frederickson's signature contribution)
2. Relevance — PA must respond to real social problems, not just management efficiency
3. Change — PA must facilitate, not resist, social change
4. Value orientation — administrators must make explicit value choices
5. Client-centrism — focus on the needs of citizens, especially the disadvantaged

Key publications:

• Frank Marini (ed.), Toward a New Public Administration: The Minnowbrook Perspective (1971)
• H. George Frederickson, "Toward a New Public Administration" (1971)

Phase 5 — New Public Management and Good Governance (1980s–2000s)

See detailed treatment in sections 6 and 7 below.

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