BACHELOR IN PUBLIC ADMINISTRATION

Online Learning Module

on INTRODUCTION TO PUBLIC ADMINISTRATION

Module 2

DISTINCT FUNCTIONS OF THE GOVERNMENT

EVOLUTION OF PUBLIC ADMINISTRATION

 MODULE 2

SCOPE:

This module consists of two lessons, namely:

1. Distinct functions of the Government

2. Evolution of Public Administration

OBJECTIVES:
After completing the lessons, you will be able to:

1. Discuss the distinct functions of the government

2. Discuss and explain politics-administration dichotomy.

3. Narrate the evolution of Public Administration.

LESSON 1. Distinct Functions of the Government

The idea that Public administration became an independent discipline

from its mother discipline (Political Science) is through the initiation of
the idea about politics-administration dichotomy in 1900-1926 by President
Woodrow Wilson. This idea became the foundation of establishing politics as
separated from administration. So, can this idea be possible? Can politics
and administration be dichotomized? Given the fact that our idea about the
relationship of politics and administration is essential to our government?
Politics is essential for it determine the goals and policies of the
government and administration implements those goals and policies.
He added that administration lies outside the proper sphere of
politics in that administrative questions are not political questions.
Administrative questions Wilson noted are purely within the ambit of the
administrative managers as against political question which are necessarily
the concerns of all politicians. These administrative questions can be
answered within the sphere of the executive branch without the need of any
political intervention.
 According to Tendero (1994), Administration refers to the
composite of those activities and processes concerned primarily with the
means for carrying out government programs and policy objectives. As a
field of practice, studying Public administration offers knowledge on the
proper way administration and management of the government’s functions and
affairs and also to prepare people in working for the government
efficiently. Political Science is distinct from Public administration
because it is not considered as a field of practice. It does not contribute
a knowledge pertaining to the manner of government administration. Instead,
it is focusing with the knowledge and understanding of the state and of the
principles and ideals which underlie its organization and activities (De
Leon, 2005).
Public administration brings forth a fountain of knowledge on the
techniques and methods of managing and administering government in the
phases of administrative organization, personnel administration, financial
or fiscal administration, and the management of good public relations
(Ayson & Aligada-Reyes, 2000). As a field of study, Public administration
requires methods and techniques that are scientific by using practical
knowledge, theories and paradigms from other social sciences. It is
therefore distinct from Political Science because it is multi-disciplinary
as it involves different disciplines in studying. The methods and the
techniques in administering the government’s affairs and functions involves
the knowledge from the disciplines like organization theory, sociology,
anthropology, economics, law, business administration and psychology. On
the other hand, Political science is a social science or a branch of
knowledge that deals with the theory and practice of politics and the
system of government, analysis of political activity and behavior. It
relates its field of study with the discipline like history, philosophy,
law, economics, sociology, jurisprudence and many more.
The distinction of these two disciplines is much reiterated with the
dichotomy of politics and administration. In 1900, Frank Goodnow in his
influential work “Politics and Administration” put forth the thesis that
the fields of politics and administration were separate areas of public
life and hence the two must be separate and public administration must
study only the field of administration and the study of politics to
political science (as cited in Blessan, 2010). Politics is either good or
bad. Thus, the essence of the separation of politics and administration is
to escape into the influence of bad politics that may ruin the way
administration works. For instance, here in the Philippines, there are many
good politicians but they were led towards a bad politics because they want
to gain their own interest rather than attaining goals for the general
welfare. They are trying to influence administrators in the implementation
of a certain policy since they are more powerful or dominant especially
when politicians are the one who appointed the administrators.
 In this case, the outcome is a bad administration. So, separating
administrative activity from that of political will somehow lower corrupt
and graft-ridden activity. As Wilson (1887 as cited in Tahmasebi & Musavi,
2011) would argue, the field of administration is a field of business. It
is removed from the hurry and strife of politics. Administration lies
outside the proper sphere of politics. Administrative questions are not
political questions. Although politics sets the tasks for administration,
it should not be suffered to manipulate its offices.
What do you mean by dichotomy? Dichotomy means a division or contrast
between two things that are or are represented as being oppose or entirely
different.

LESSON 2. Evolution of Public Administration

According to Alex B. Brillantes and Maricel Fernandez (2008), the

roots of Public Administration in the country can be traced back to the
American Public Administration. The field of public administration in the
country dwells on the American principles and theories which began when the
Americans established the Institute of Public Administration (IPA) at the
University of the Philippines in 1952.

The significance of the Philippine government contributed even more

to the development of the course in the country. Brillantes and Fernandez
divided the evolution of the field in the country in two distinct periods.
According to them, its evolution underwent the classical and contemporary
periods which exhibited some principles commonly pursued by most
governments.

The classical period of public administration started with the

seminal essay, that was written in The Study of Administration by Woodrow
Wilson (as cited in Brillantes and Fernandez, 2008). The paper was
published at the height of the “Progressive Movement” in the United States
which called for the separation of politics and administration. According
to Wilson, public administration is value-neutral, self-conscious and free
form any wrangling with other related disciplines specifically the field of
political science.

Frank Goodnow (as cited in Brillantes and Fernandez, 2008) continued

to debate on the dichotomy between politics and administration. His
discussion was even more meticulous than Wilson and even became more
specific in proving the distinctions between administration and politics.
 Another is Max Weber (as cited in Brillantes and Fernandez, 2008) is
another personality who made an impact through his contribution in the
field of public administration during the classical years. He
conceptualized the theory of bureaucracy that featured several variables
like hierarchy, division of labour, formal rules and procedures and
neutrality.

Another pre-eminent classical scholar of public administration

Leonard White (as cited in Brillantes and Fernandez, 2008) who disengaged
with the pitfall of discussing the dichotomy between politics and
administration. He concentrated on administration as a managerial function
and contributed the first text in the field of public administration
entitled, “Introduction to the Study of Public Administration.”

Luther Gullick (as cited in Brillantes and Fernandez, 2008) is

another classical scholar who conceptualized the immortal POSDCORB
functions. He believed that in all administrations there is “best way” of
doing a job and that is through the function which he developed.
Dwight Waldo (as cited in Brillante and Fernandez, 2008), he promoted
the idea that the thrusts and direction of the discipline is still a field
of study in his book. He concentrated on pursuing the value of efficiency
which in his opinion must characterized all government administrations.

Finally, William Willoughby (as cited in Brillantes and Fernandez,

2008) who was well known for his budgetary reforms in the government. He
promoted the concepts that the budget is an effective instrument of
democracy and is an important element of securing administrative efficiency
and economy. Without the budget, all government programs would come to
naught.

The identity crisis which confused some of the scholars of public

administration rallied behind a new concept that came to be known as the
“New Public Administration”. This new area of study in the field of public
administration was a result of the Minnowbrook Conference that was held at
Syracuse University in 1968. Dwight Waldo were organized the said
conference (as cited in Brillantes and Fernandez, 2008) who called on them
to reject the classical theories of public administration and adopt the new
set of principles. The proponents of New Public Administration, Brillantes
and Fernandez continued, should not be value-neutral and should be more
inclined to the public that needs most of the services of the government.
In addition, it should promote more principles like client-oriented
administration, non-bureaucratic administration, participatory decision-
making, and decentralized administration.
 After the New Public Administration era, a new perspective called,
the “New Public Management”. It was started in the United Kingdom during
the administration of then Prime Minister Margaret Thatcher in 1970. It was
also practiced and become popular among the members of the Organization for
Economic Cooperation and Development countries such as New Zealand,
Australia, Germany, Netherlands and Canada.

Finally, there was Good Governance as the latest among a long list of
development reforms that replaced the New Public Management movement. The
Good Governance perspective was popularized by the United Nations, World
Bank, Asian Development Bank and other international financial institution
which saw the need for developing countries to produce significant
improvements in their perspective administrative systems according to
Brillanes and Fernandez. Ledevina Carino (2000), a professor at the NCPAG-
UP said that “governance” involves several actors that interact in the
process of managing the government. She acknowledges the fact that
“governance” is not only the responsibility of the government but also a
function of the civil society and the business sector.

DISCUSSIONS:
1. What is dichotomy?

2. Distinguished politics and administration?

3. Who are the classical philosophers or scholars that studied about
public administration?

EVALUATION/OUTPUT

1. Define and explain dichotomy

2. Explain the politics and administration dichotomy.

3. What are the distinct functions of the government?

(Printed material for email or UDMoodle class)

REFERENCES:
1. INTRODUCTION TO PUBLIC ADMINISTRATION BY CARMELO RICO S.
BIHASA
2. http://www.academia.edu/35597259/Politics_Administration_Dicho
tomy/The_Start_of_Public_Administation_Evolution