What is Public Administration?

studies, case methods analysis, surveys, quantitative

● handles many public functions - budget analysis, etc.
preparation, infrastructure, job classification,
performance evaluation, pollution control, land use, etc. As a Field or Area of Inquiry
 PA is a field or area of inquiry in the sense
● is the production of goods and services designed that it is concerned on the study of how a
to serve the needs of the citizens-consumers. policy is made and implemented
(Marshall Dimock, et al. 1983)  Interrelationships between government
institution
 Human resource development of a particular
● generic expression for the entire bundle of
agency
activities that are involved in the establishment and
 Impact of environmental regulation on
implementation of public policies. (Cole Blease
communities
Graham Jr., Steven W. Hays in Managing the Public
 Economic activities
Organization (1986))
 Behavior and attitude of public servants as
they perform their official duties and
● The practice of public administration involves the leadership styles of public managers (RA
dynamic reconciliation of various forces in the 6713)
government's efforts to manage public policies and  Mechanisms adopted by poverty-focused
programs. (Melvin J. Dubnick and Barbara S. Romzek, programs to achieve their goals
1991)  Relations of government and the citizens

● use of managerial, political, and legal theories PA; Is it a Science or Art?

and processes to fulfill legislative, executive, and judicial
● PA is both a science and an art.
government mandates for the one provision of
regulatory and service functions for the society as a ●As an art, it involves creativity, leadership, a good
whole or for some segments of it. (David sense of judgment what Waldo (1955) calls the
Rosenbloom and Deborah Goldman, 1997) intangibles in administration.
● PA is an applied science because it has practical
Disciplines used in PA use for the government practically on improving its
● Political Science performance. It likewise prepares persons for
● Law
careers in public service and trains them to be good
● Business Management
● Psychology public administrators.
● Economics ● As a science, there is a body of knowledge or
● History theories that can explain or predict certain
● Sociology phenomena or variables in the field of PA.
● Its theories and concepts are built based on
In the term Public Administration: empirical research and using systematic methods.
Administration - rationality as the
Theories can be used to explain and improve the
cooperative action seeks to achieve specific goals
while art and practice of PA. (Bautista, 1990).
Public - collective, community, all or general.
“Administration for all and attainment of the Public vs Private
objective of cooperative human action to benefit Criteria Public Private
the community and the general population.” administratio administration
n
PA as a Discipline and a Practice Goal or Service- Profit-oriented
● As a practice, PA involves activities or processes mission oriented
of administering public affairs and carrying out Nature of Public goods Goods and
governmental functions (Waldo, 1955). These include goods and for all of our services for
enacting the Anti-Terror Law, constructing the Metro services they public funds those who can
Manila subway, responding to the COVID-19 provide (national afford to pay
pandemic, reshuffling at PHILHEALTH, etc. defense,
roads,
● As a field of study or discipline, PA is the streetlights,
systematic study and improvement of government public parks)
capacity and practice in forming policies, making
decisions, implementing them, and securing the PA Considerations
desired results (Ocampo, 1993). It utilizes scientific
methods that other social sciences use—empirical
  PA is subject to public pressures and Frank Goodnow, role of politics-
scrutiny and to government rules and Leonard White expression of the will of
regulations. the state,
1. Unavoidable because citizens cannot escape the administration-
execution of the will
reach of its authority
2. Can compel obedience from citizens
3. The carried-out activities are prioritized, as they
are vital for the people and society CLASSICAL MANAGEMENT AND
4. Provides a wide range of public services BUREAUCRATIC SCHOOL
5. Has the political leadership (elective officials)
6. Measuring its performance is difficult; the Scientific Management
performance of private administration is measured  fundamentally consists of certain broad
through its profit general principles, a certain philosophy,
7. Must meet public expectations which can be applied in many ways.
 managing people with regard to scientific
Evolution of PA methods of researching how the highest
amount of efficiency may be obtained
I. BEGINNINGS OF THE ADVOCACY FOR A  emphasized rationality and making
SCIENCE OF ADMINISTRATION organizations and workers as efficient as
possible
17th century Absolute Monarchy
18th century Manifestation of the FUNDAMENTALS OF SCIENTIFIC
field MANAGEMENT
2nd half of 19th century Enlargement of gov’t 1. The true interests of the employers and employees
services- Order to
are one and the same.
intensify the
study of PA 2. Maximum prosperity can exist only as the
1831 (Tocqueville) as oral and traditional, result of maximum productivity.
not taken seriously as a 3. Most important objective of management: training
subject of study, little and development of each individual in the
content to public establishment so that he can do the highest class
administrative ideas; of work for which his natural abilities fit him
called for serious
4. The one best method and best implement may
treatment of PA as a
science only be discovered or developed through a scientific
1830 (Jacksonian challenge the political study and analysis of all the methods and implements
Democracy) system; democratize in use, together with accurate, minute, motion, and
public service time study.
1883 (Pendleton Act merit system in civil 5. There must be a close, intimate, personal
of 1883) service, exams cooperation between the management and the
employees
II. PROGRESSIVE MOVEMENT: POLITICS
ADMINISTRATION DICHOTOMY (CLASSICAL PA) I. Administrative Theory (Henri Fayol’s 1916
Principles of Management)
19th Century-Woodrow Separation of two II. Bureaucratic Theory
Wilson (1887) major gov’t function:
Characteristics
1. policy-making-
legislative 1. Hierarchical Arrangement of Postitions
2. administration- 2. Division of Labor with Sphere of
executive Competence
Call for the serious study of science of 3. Written Rules for Carrying our Organized
administration: politics-admin dichotomy, business- Tasks
like management, implied generic approach 4. Impersonality (Neutrality)
5. Security of Tenure
6. Officials selected & placed on the basis
of technical competence & not on the
basis of social status/political affiliation
 Reinventing Government/ Reengineering-
III. Neo-Classical Theory/Human Relations Involves changing the ways and means
Theory using resources in new ways to achieve
Characteristics the goals of government.
 GEORGE ELTON MAYO: Based his
approach/prescriptions on an Ten Principles:
understanding of the industrial society 1. Catalytic- from rowing to steering;
 Modernization of a Primitive change
Community: a society is a cooperative 2. Community oriented- enabling
system in which cooperation is based on community to serve their own needs
understanding and the will to work than direct provision of services to
together them
 Mayo sees the workplace as the focus of 3. Competitive- injecting competition into
individual identity and the key to service delivery; The galling pook
social cohesion awards
 Hawthorne Experiments : Western 4. Mission-driven- transforming rules
Electric Company in Chicago (1927- and procedures into mission
1932) brought forward some of his 5. Results-oriented- funding outcomes,
propositions on “welfare capitalism” (an not inputs
enlightened approach to personnel 6. Customer driven- meeting the needs
management) of the customer not the bureaucracy;
customer survey
IV. New Public Administration 7. Enterprising government- earning
Objectives: Efficient, economical, and rather than spending
coordinated management of public 8. Anticipatory government- prevention
services rather than cure; planning
(1) How can we offer more or better 9. Decentralized government- from
services with available resources? hierarchy to participation and teamwork
(Efficiency) 10. Market-oriented government-
(2) How can we maintain our level of Leveraging change through market
services while spending less money? mechanism
(Economy)
GOVERNANCE
Add objective: Social Equity  The exercise of economic, political, &
(3) Do the services enhance social equity? administrative authority to manage a
Equity – a free and reasonable conformity to country’s affairs at all levels
accepted standards of natural right, law and  comprises the mechanisms, processes, &
justice without prejudice, favoritism, or fraud institutions through which citizens & groups
and without rigor entailing undue hardship. articulate their interests, exercise their
legal rights, meet their obligations and
V. Development Administration mediate their differences (UNDP)
 oriented towards change, economic
development, and all around GOOD GOVERNANCE
modernization, particularly in poorer  Promotes the rule of law
countries  Ensures that political, social & economic
 is a new public Administration exported priorities are based on broad consensus in
to the third world countries in terms society & that the poor are heard in
of technical and financial aids. decision making over the allocation of
 because primary concern is public development resources
interest, then politics and administration  Encompasses the state, but transcends
should not be separated the state by including the private sector and
civil society organizations
VI. New Public Management  Recognizes the 3 institutions of
governance:
  (1) State (2) Civil society (3) Private sector gov't programs/projects. Non-governmental
 Participatory, transparent, accountable organizations (NGOs) and people’s
organizations (POs) are examples of CSOs.
THE NEW CONCERNS OF PA
1. Borderless, global economy GOVERNANCE DEFINED
2. Explosion of new IT  Exercise of political, economic and
3. Serious environmental threats administrative authority to manage a
4. Reinventing government nation’s affairs.
5. Rebuilding communities  It comprises mechanisms, processes, and
6. Citizen participation institutions through which citizens and
groups articulate their interests, exercise
their legal rights, meet their obligations,
PHILIPPINE PUBLIC ADMINISTRATION and mediate their differences (UNDP,
 University of the Philippines (UP) Institute of 1997).
Public Administration in 1952 in Padre
Faura, Manila.  Process whereby elements in society
 University of the Philippines National College wield power and authority, and influence
of Public Administration (UP NCPAG) and enact policies and decisions
located at UP Diliman campus in Quezon concerning public life, economic, and social
City. development (International Institute of
 Agreement between the United Nations (UN) Administrative Sciences, 1996).
and the United States Technical Assistance
Program with the technical support of the Is there a Philippine Public Administration?
University of Michigan and financial support  Corpuz (1986) Public Administration in the
from both the US and Philippine Philippines shaped by education, politics,
Governments and government.
 De Guzman (1993) PA involves government
 First, it was not a result of some disciplinary in action, public bureaucracy, field of
mitosis or of an academic reawakening, but an study, and profession.
independent field and has been more
interdisciplinary in approach than its Western Key Institutions Shaping PA
counterpart Education: Weak in history and science
 There was no strong tradition of politics- Politics: Direct evolution from the Spanish era;
administration dichotomy since administrators cronyism still prevalent.
never had the illusion of being politically neutral. Government: Dominated by old principalia families;
 It gave emphasis on or favored functional slow bureaucracy and inefficiencies.
studies that relate to development processes
and goals, which, for the most part, favored Problems in PA
service-type researches for public organization  Neglected Bureau of Standards: Poor
product quality and safety concerns.
GOVERNMENT VERSUS GOVERNANCE  Weak enforcement of export standards.
 Government rules and controls. There is  Political favoritism and corruption still
the sole authority that forces exact rampant.
obedience. It metes out sanctions.  Public dissatisfaction with government
Recipients are passive and have little services and infrastructure
influence on public policies.
 Governance orchestrates and manages. Defining Philippine Public Administration
Everyone plays a part in moving society. As Government in Action: Public bureaucracy
There is trust, transparency, and shared carrying out policies.
access to public policies, and shared As a Field of Study: Understanding PA as a
accountability. discipline.
 Participation of business sector, civil society As a Profession: Managing government affairs to
organizations (CSOs), and other serve the people
stakeholders in planning and implementing
Philippine Public Administration: Still Relevant? History details how our colonial experience and our
continued struggle for freedom during this period have
 Despite challenges, PA exists in the shaped our national consciousness as a people.
Philippines.
 It requires reform and modernization to Pre-colonial Philippines:
meet current demands.  Barangays were decentralized and
 Highlight importance of improving education, independent from each other.
government accountability, and  Our country did not have a high degree of
professionalism in PA. civilization and social structure.
 A subsistence economy, with no economic
PUBLIC ADMINISTRATION stratification was prevalent among Filipinos.
 considered both a professional and  Each Filipino household was merely
scholarly discipline. As a field of study in concerned for its own consumption
the Philippines, it is offered at the graduate  Finally, they were yet to be influenced by the
level as a 2nd field of specialization. cultures of Asia.
In PA focuses on internal
1950s- management, staff function in What were the legacies of the Spanish Colonial
early government, organization and Experience?
1960s management, and personal  Colonizers physically controlled Filipinos by
and fiscal administration
forming large out of small, scattered
In PA focuses more on politics,
middle economy, and social change communities.
and late  They also psychologically controlled
1960s Filipinos through unity of church and state.
In It focuses on program  Less focus on education made Filipinos
1970s- administration, public policy ignorant and tolerant to abuses by
1980 on health, housing, etc, and colonizers.
accountability in government
Struggles against colonialism
 “PUBLIC”
 Filipinos called the intercession of their old
 The term “public” in PA means
gods in their dissatisfaction with material
governmental thus teaching and research
deprivation and oppression
efforts are only focused on problems of
 Growth of local clergy
public bureaucracy and increasing
 The elite participated in people’s protest
administrative capability.
against Spanish oppression
 But now, the term public is being
 World trade and liberal ideas brought
interpreted as “people” - public
economic and intellectual transformation
administration is delivery of services to
the people.
Development of the concept of the Filipino
1. Chinese mestizos controlled trade.
THE NEEDS IN TEACHING PA
2. Affluent families sent their children to Manila
 Teachers should have both the academic
and abroad for education
qualifications and administrative experience
3. The insulares/creoles resented the
 Production and use of indigenous teaching
superiority of the peninsulares.
materials.
4. Local priests also protested the
 Use of innovative teaching methods and
discrimination by Spanish friars.
techniques
 Formulation of more relevant models an
The 1896 Revolution: Identity and Consciousness
analytical concepts
United
The 1896 revolution marked a significant moment in
PHILIPPINE HISTORY AND FILIPINO IDENTITY
the history of the Philippines, marking the birth of the
AND CONSCIOUSNESS
Filipino nation
Public Administration Is Ethnocentric And
Renato Constantino shows a distinction between
Culture-Bound.
national identity and national consciousness.
National Identity - a sense of a nation as a cohesive
whole, as represented by distinctive traditions, Education was used to Americanize the Filipinos
culture, and language. through:
National Consciousness - a sense of oneness, 1. Nationwide public school system (basic
which comes from a community of aspiration, education, PNU, UP, etc.
response, and action. 2. English was the medium of instruction in
Counter-consciousness - a reaction against the teaching
prevailing consciousness and becomes 3. Glorification of the American way of life, its
consciousness when it triumph heroes, and institutions
 With these methods, the Americans successfully
The Development of 1896 Revolution miseducated the Filipino people, instilling in them
However, the birth of the Filipino nation during the new language and culture. Filipinos began to see
revolution was soon challenged by new colonial the adoption of American values as a positive
development, further establishing the colonial
powers, particularly with the arrival of American
mindset. As a result, miseducation and cultural
colonizers. Americanization suppressed the development of a
 A revolutionary consciousness emerged new counter consciousness among Filipinos
among the Filipino people as a result of their How did America instill contemporary
grievances and discontent against Spanish consciousness among Filipinos?
colonial rule and their growing awareness of  Training in American Values and
their shared identity. Concepts
 This revolutionary consciousness united the  Erosion of Loyalty to the
Filipino people where both masses and the Motherland
elite, despite their differences, recognized  Susceptibility to Corruption
the need to end Spanish colonial rule.  Institutionalization of Alien Culture
 For a brief period, national identity and  Rise of Consumerism
national consciousness were united since
Filipinos became one, resulting in a unified Filipino Nationalism: Key Concepts and Impact
struggle for independence from Spanish  Is “Philippine nationalism” anti-American?
colonization. This convergence marked the  Philippine nationalism isn’t anti American
birth of the Filipino nation, as the people but pro-Filipino.
stood as one in their battle against colonial  Inspired by unity in traditions, land, blood,
oppression. and dreams.
 What are the components of Philippine
The American Colonial Period: The nationalism?
Process of de-Filipinization  Empower Filipinos to direct their future.
 After defeating Spanish colonialism, the  Filipinos can govern as effectively as
unity of national identity and others
consciousness of Filipino people still did  Benefits of the nation should be for all
not last because of the arrival of American Filipinos.
colonizers.  What is the result of the failure to understand
 Constantino describes post-1896 Filipinos Philippine nationalism?
as being united and animated by their  Tension with Americans.
aspirations for freedom and boosted by  Conflicting visions led to tension until
their military successes against the Spanish. independence.
This counter-consciousness became a  What is the real nature of American policy
significant challenge to America in their toward the Philippines?
intention of colonizing the Philippines, as it  U.S. as landlord, Philippines as tenant—
strengthened the Filipinos' resistance to characterized by control and exploitation.
foreign domination.  Nationalists sought to break free from this
 The Americans focused on separating system.
identity and consciousness as a response  Who are the advocates of Philippine
to the challenge. They reshape Filipino nationalism?
consciousness by Americanizing it through  Key Supporters: Youth, middle class,
education. tenants, and small farmers.
  What is the dream that all Philippine esteem as compared with the
nationalists share? governed.
 Achieve modernity as the first Asian  The pure type of bureaucratic
colony to gain independence. official is appointed by a
 Preserve democracy and uplift the poor. superior authority
3. Normally, the position of the
BUREAUCRACY official is held for life, at least in
 refers to the administrative system public bureaucracies; and this is
governing a large institution, including increasingly the case for all similar
government. structures. This is called security
 It involves the structures, procedures, and of tenure.
regulations that are put in place to manage 4. The official receives fixed salary
public administration and enforce public laws with pension for his/her security
and policies. according to the kind of function
 The 1987 Philippine Constitution is the and length of service.
highest law in the land observed by the 5. The official is set for a “career”
three branches of government— legislative within the hierarchical order of the
(Philippine Senate and House of public service.
Representatives), executive (Malacañang
Palace), and judicial (Supreme Court). Theoretical Limitations of Max
Weber’s Systematic Analysis of
The Characteristics of Bureaucracy Bureaucracy
 Fixed Jurisdiction and its Special Functions 1. The best government is that
 The Hierarchical Structure of the Authority which governs least
 Management of Documents  Democracy which posits
 Expert Training Provided to the Government equal rights cannot permit the
Employees development of a “closed
 Full-time Commitment status group of officials (Gerth
 Rule-Based Management and Mills, 1946)
 Democracy is opposed to
The Functions of the State and Bureaucracy bureaucracy because of its
 responsible for delivering essential goods, indispensable, unshatterable,
services, and opportunities to its citizens. and overtowering power
 regulates various aspects of society to position.
ensure order, safety, and compliance with
laws. 2. The bureaucratic official has
 gathers support from its citizens through “indubitable technical
taxation, cooperation, participation in superiority” (Gerth and Mills,
government activities, civil obedience, and 1946) because he/she possesses
involvement in electoral processes. unique skills through education or
 communicates and disseminates important training.
information to the public, ensuring that
citizens are informed about government 3. Considering the statement that a
actions and policies. completely bureaucratized
administration is practically
Position of the official unshatterable.

1. Office holding is a vocation 4. Weber seemed to have referred to

2. The personal position of the official the apparatus rather than to its
is patterned in the following way: members. Bureaucracy is
 A private office or a public dehumanized.
bureau, the modern official
always strives and usually Collapse of Bureaucratic Authoritarian Regimes
enjoys a distinct social
In the 1980s, many bureaucratic authoritarian regimes
around the world began to collapse. These regimes
were characterized by centralized power, limited
political freedoms, and strong bureaucracies that
supported authoritarian leaders.

Three Philosophies of Bureaucratic Reform

Liberalism: Focus on order and sovereignty.
Liberal Democracy: Reinstating political and
administrative accountability.
Political Sociology: Adoption of institutional
mechanisms to carry out the state’s will (separation of
powers, checks and balances).