EVOLUTION OF PUBLIC ADMINISTRATION:Classical School, The Shovelling Experiment

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Introduction To Public AdministrationMGT111

LESSON 02

EVOLUTION OF PUBLIC ADMINISTRATION

At the end of the lecture students should be able to understand:

Relationship between public administration, democracy and rights (Constitution of Islamic

Republic of Pakistan 1973)

Evolution of Public administration/ management and

The work of the contributors of the Classical School

In the last lecture we talked about democracy and democratic values. Why did we mention these

two concepts in the context of public administration/management? The mention was made because we

would like to know about the rights of citizens and the response of government toward democratic values.

These values and how people should respond to the work of public organizations is important. But we

know people differ over the degree to which they influence day-to-day operation of public agencies because

they do not know their rights and the procedures of government agencies. The 1973 Constitution contains

Fundamental Rights and Principles of Policies which give basic rights to citizens. Some of the articles

pertaining to human dignity and respect given in constitution are as follows:-

(1)

Security of persons: No person shall be deprived of life or liberty saves in accordance with law.

(2)

Safeguards as to arrest and detention: No person who is arrested shall be detained in custody

without being informed, as soon as many are not, of the grounds for such arrest, nor shall he be

denied the right to consult and be defended by a legal practitioner of his choice.

(3)

Slavery, forced labor, etc., prohibited: slavery is non-existent and forbidden and no law shall

permit or facilitate its introduction into Pakistan in any form.

(4)

Inviolability of dignity of man, etc.: The dignity of man and, subject to law, the privacy of home,

shall be inviolable.

(5)

Freedom of movement, etc.: Every citizen shall have the right to remain in, and subject to any

reasonable restriction imposed by law in the public interest, enter and move freely throughout

Pakistan and to reside and settle in any part thereof.

(6)

Freedom of assembly: Every citizen shall have the right to assemble peacefully and without arms,

subject to any reasonable restrictions imposed by law in the interest of public order.

(7)

Freedom of association: Every citizen shall have the right to form associations or unions, subject

to any reasonable restrictions imposed by law in the interest of (sovereignty or integrity of Pakistan,

public order or morality.)

(8)

Freedom of trade, business or profession: Subject to such qualifications, if any, as may be

prescribed by law, every citizen shall have the right to enter upon any lawful profession or

occupation, and to conduct any lawful trade or business:

(9)

Freedom of speech, etc Every citizen shall have the right to freedom of speech and expression,

and there shall be freedom to the Press, subject to any reasonable restrictions imposed by law in the

interest of the glory of Islam or the integrity, security or defense or Pakistan or any part thereof,

friendly relations with foreign States, public order, decency or morality, or in relation to contempt

of Court, (commission of) or incitement to an offence.

(10)

Freedom to profess religion and to manage religious institution: Subject to law, public order

and morality:-

(a)

every citizen shall have the right to profess, practice and propagate his religion; and

(b)

Every religious denomination and every sect thereof shall have the right to establish,

maintain and manage its religious institutions.

(11)

Safeguard against taxation for purposes of any particular religion: No. person shall be

compelled to pay any special tax the proceeds of which are to be spent on the propagation or

maintenance of any religion other than his own.

(12)

Safeguard as to educational institution in respect of religion, etc.: No person attending any

educational institution shall be required to receive religious instruction, or take part in any religious

ceremony, or attend religious worship, if such instruction, ceremony of worship relates to a religion

other than his own.

Introduction To Public AdministrationMGT111

(13)

Equality of citizens: (1) All citizens are equal before law and are entitled to equal protection of

law. (2) There shall be no discrimination based on sex alone. (3) Nothing in this Article shall

prevent the State from making any special provision for the protection of women and children.

(14)

Non-discrimination in respect of access to public places: (1) In respect of access to places of

public entertainment or resort, not intended for religious purposes only, there shall be no

discrimination against any citizen on the ground only of race, religion, caste, sex, residence or place

of birth.

The way democracy functions in the political tradition of a country have important influence on the

working of public organization. This is illustrated in Figure which shows the international, social, economic,

political system influence on public administration. The figure shows public administration in the centre and

all other systems influencing it. Thus public administration exists and functions under these influences and

is driven by these systems.

Factors Affecting Public Agencies

Public administration

Political System

Social

Economic

International

Evolution of Public Administration

One of the definitions of Public Administration is that public administration is about management

of public programmes. As we have learnt that during the period of Indus Valley civilization cities were well

constructed and planned and that the practice of public administration is old. But as a subject it is new. We

would now see the development of this practice as a subject.

The evolution of public administration/ management is discussed in following paragraphs. The

study of public administration is divided in following Schools:

1. The Classical School

2. Human Relations School

3. Behavioural School

4. System School

5. Management Science School

6. Power and Politics School

Classical School

We will examine the work of Classical School and see the theory presented by this school. We will

review the work of the main contributors of this school. The main contributors of this school are:

· Woodrow Wilson

· Leonard D. White

· W. F. Willoughby

Introduction To Public AdministrationMGT111

· Fredrick Winslow Taylor

· Henry L. Gantt

· Frank and Lillian Gilbreth

· Max Weber

· Henri Fayol

The growth of public administration has to do with the growth of markets and the fall out of

market imperfection. Example of market imperfection is pollution, i.e., markets produce goods and the

markets would not care if in the production of goods, they pollute environment. For example a

manufacturer who emits smoke will pollute the environment. Environment if gets polluted will effect the

health of people. Who is responsible for this situation? Governments intervene to correct market

imperfection and may tax the polluter.

The institutions of government therefore should be effective to control market imperfections.

Similarly if private schools charge more fees then government should open schools for those who cannot

pay high fee. How to make government institutions effective?

To answer this question we need to look at the works of those who contributed to the efficient

working of organizations. Those studying work in the organization developed theories and concepts for

increasing the efficiency and effectiveness of organization

In USA the study of government began in late 19th century. The first Essay was on `The Study of

`Administration' 1887 written by Woodrow Wilson (American Scholar and late President of USA) His essay

was of very practical nature. In his essay he pointed out following things:-

It addressed the inefficiency and corruption in USA government in late 1880's

He said that political scientist had given little attention to how government operates

He was impressed by the business, industry and technology

He believed that the work of government should be accomplished with the efficiency of private

sector.

He believed that there should be separation of politics from administration

Another article that appeared was on `Introduction to the Study of Public Administration' (1926) by

Leonard D. White. In his paper:

He commented that government should function in the context of democratic values (role of states

in human affairs). According to him there are 2 concerns in public administration:

1. Efficiency: to improve the functioning of organization.

2. Democratic values: that the organizations should keep in view the democratic values when

providing services.

W. F Willoughby in his article `Principles of Public Administration' (1927) emphasized the idea of

`value free' science of management. By value free service he meant that those executing public programmes

should be neutral unbiased and provide services without discrimination.

F. W Taylor

Fredrick Winslow Taylor is called the `father of scientific management'. He worked as machine

operator in Midvale Steel Company in USA. He observed the workers using shovels for unloading coal and

iron ore what he observed was that when workers shovel rice coal they can lift 3.75 lbs. And when they

shoveled iron ore they could lift 38 lbs.

His question was which is the right load?

In order to find the answer he thought that he should inquire and he thought should ask people.

But then he thought he should conduct experiment to find the right answer. He thought the experiment will

give the right output.

Introduction To Public AdministrationMGT111

The Shovelling Experiment

In order to conduct the experiment he selected 2 best shovelers and told them that they will be paid

double wages if they did what was told to them. The two selected men were the best in the company. They

had reputation of working hard and honestly. The two men shovelled the whole day, in two different places

until they were tired but not over-tired (a good day's work). Their supervisor noted down the following:

1. What was the number of shovelful in a day by each worker?

2. Weight of load in shovel (38-39 lbs) by each worker

His experiment gave him results that if different kinds of shovels were used, the shoveller can lift

load between 21.5 lbs to 38 lbs. But this was possible if the worker was well trained and worked

consistently.

Results of the Experiment

o There is scientific way of doing things and he called it `one best way'

o Replace rule of thumb with science

o Obtain harmony in group action rather than discord

o Achieving cooperation of human beings rather than chaotic individualism

o Working for maximum output rather than restricted output (productivity)

o Developing all workers to the fullest extent for their own and company's prosperity

o Workers should be carefully selected

We must remember that the time period of Taylor was mid 19th century, and the impact of

industrial revolution on organizations were imminent. The organizations were demanding more output

from labour. This demand led to dissatisfaction in the labour because the labour thought that if they gave

more output more will be expected.

Concepts

Classical School of Management:

They believe the efficiency of organizations can be

increased

following

standards

(scientific

management).

Value free:

without bias.

Theory:

set of assumptions based on observation or experiment

which explain phenomenon or situation.

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