INTRODUCTION TO PUBLIC MANAGEMENT I
UNIT I
DYNAMIC CONTEXT OF PUBLIC MANAGEMENT
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UNIT I DYNAMIC CONTEXT OF PUBLIC MANAGEMENT
1.
EVOLUTION OF MANAGEMENT THOUGHT
1.1. Principles of Scientific Management
1.2. Henry Fayol’s fourteen principles of management
1.3. Max Weber’s Theory of Bureaucracy
9.
MANAGEMENT ROLES IN PUBLIC SECTOR
9.1. Interpersonal role
9.1.1. Figurehead role,
9.1.2. Leader role,
9.1.3. Liaison role,
9.2. Informational role,
9.2.1. Monitor role,
9.2.2. Disseminator role,
9.2.3. Spokesperson role,
9.3. Decisional role,
9.3.1. Entrepreneur role,
9.3.2. Disturbance handler role,
9.3.3. Resource allocator role,
9.3.4. Negotiator role
2.
SECTORS OF OWNERSHIP
2.1. Private sector
2.2. Public sector
2.3. Voluntary sector
3.
PUBLIC MANAGEMENT TERMINOLOGY
3.1. Definition of public management
3.2. Meaning of public management
3.3. Definition of public manager
4.
FUNCTIONS OF PUBLIC MANAGEMENT
4.1. Planning
4.2. Organizing
4.3. Staffing
4.4. Directing
4.5. Controlling
10.
MANAGERAL SKILLS
10.1. Technical skills
10.2. Humane skills
10.3. Conceptual skills
11.
LEVELS OF PUBLIC MANAGEMENT
5.
PUBLIC MANAGEMENT IS AN ART
12.
OBJECTIVES OF PUBLIC MANAGEMENT
6.
PUBLIC MANAGEMENT IS A SCIENCE
13.
CHARECTERISTICS OF PUBLIC MANAGEMENT
7.
PUBLIC MANAGEMENT IS A PROFESSION
14.
ADVANTAGES OF PUBLIC MANAGEMENT
8.
DIFFERENCE BETWEEN MANAGEMENT AND
ADMINISTRATION
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1. Evolution of Management Thought
Classical Approaches
1890
1900
Systematic
management
1910
1920
Administrative
management
Scientific
management
Contemporary Approaches
1930
Quantitative
management
Human
relations
1940
Systems
theory
1950
Contingency
theory
1960
1970
Current and
future revolutions
Organizational
behavior
Bureaucracy
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1.1. Principles of Scientific Management
1.
2.
3.
4.
5.
6.
7.
8.
Separation of planning and doing
Functional foremanship
Job analysis
Standardization
Scientific selection and training of workers
Financial incentives
Economy
Mental revolution
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Frederick Winslow Taylor (1911)
-Known to be the Father of Scientific Management-
 Scientific
management
is the
systematic
study of
relationships
between
people and
tasks for the
purpose of
redesigning
the work
process to
increase
efficiency.
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1. Separation of planning and doing
 The responsibility of workers and management should
be properly divided and communicated so that they
can perform them in an effective way and should be
reward for the same.
2. Functional foremanship
PLANNING ADVISOR
PRODUCTION ADVISOR
1.
2.
3.
4.
1.
2.
3.
4.
Route clerk
Instruction card clerk
Time and cost clerk
Shop disciplinarian
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Gang boss
Speed boss
Repair boss
Inspector
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3. Job analysis
 Job Analysis is undertaken to find out the one best way of
doing a job i.e. the way one which requires the least
movements, consequently less time and cost.
4. Standardization
 Codify the new methods of performing tasks into written
rules and standard operating procedures.
5. Scientific selection and training of workers

Carefully select workers who possess skills and abilities
that match the needs of the task, and train them to
perform the task according to the established rules and
procedures.
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6. Financial incentives
 Establish a fair or acceptable level of performance for a
task, and then develop a pay system that provides a reward
for performance above the acceptable level.
7. Economy
 Careful use of resources saves cost of production. It brings
in economy in operations. It results in high efficiency.
8. Mental revolution
 Mental revolution denotes harmonious relationship
between employees and employer. Cooperation of
employees should be ensured by the managers to carry out
the work in accordance with standards.
 Workers should be considered as a part of organization.
 Employer shouldn’t treat workers as mere wage earners.
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1.2. Henry Fayol’s 14 Principles of Management
1. Division of work
2. Authority and responsibility
3. Discipline
4. Unity of command
5. Unity of direction
6. Scalar chain
7. Subordination of individual interest to general interest
8. Remuneration
9. Centralization
10.Order
11.Equity
12.Stability of tenure of personnel
13.Initiative
14.Esprit de corps (Team Spirit)
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1. Division of Work
Specialization allows the individual to build up experience, and to
continuously improve his skills. Thereby he/she can be more
productive.
2. Authority and Responsibility
Authority is the right to give order and the power to extract
obedience.
Responsibility is the obligation to perform the task desired and
directed by the superior authorities.
3. Discipline
Employees must obey, but this is two-sided: employees will only
obey orders if management play their part by providing good
leadership

Discipline is systematic instruction intended to train a person, sometimes literally
called a disciple to follow a particular code of conduct or order.
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4. Unity Of Command
Each worker should have only one boss with no other conflicting
lines of command.
5. Unity of Direction
People engaged in the same kind of activities must have the
same objectives in a single plan to ensure unity and
coordination in the enterprise.
6. Subordination of individual interest to general interest
Individual interest should always be subordinate to general interest.
7. Remuneration
Employee satisfaction depends on fair remuneration for everyone.
This includes financial and non-financial compensation.
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8. Centralization
This principle refers to how close employees are to the
decision-making process. It is important to aim for an
appropriate balance.
9. Scalar chain
A hierarchy is necessary for unity of direction. Scalar chain refers
to the number of levels in the hierarchy from the ultimate authority
to the lowest level in the organization.
Employees should be aware of where they stand in the organization's
hierarchy, or chain of command
10. Order
Both material order and social order are necessary. The former
minimizes lost time and useless handling of materials. The latter
is achieved through organization and selection.
The workplace facilities must be clean, tidy and safe for employees.
Everything should have its place.
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11. Equity
Equity is a ‘combination of kindliness and justice’. Treating
employees equally is important to achieve the goal.
12. Stability of Tenure of Personnel
Employees work better if job security and career progress are
assured to them. An insecure tenure and a high rate of
employee turnover will affect the organization adversely.
13. Initiative
Allowing all personnel to show their initiative in some way is a
source of strength for the organization.
Employees should be given the necessary level of freedom to
create and carry out plans.
14. Esprit de Corps
Organizations should strive to promote team spirit and unity.
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1.3. Max Weber’s Theory of Bureaucracy

Bureaucratic Theory was developed by a German Sociologist and political economist Max
Weber (1864-1920). According to him, bureaucracy is the most efficient form of organisation. The
organisation has a well-defined line of authority. It has clear rules and regulations which are strictly
followed.
 Max Weber developed the principles of bureaucracy as a formal
system of organization and administration designed to
ensure efficiency and effectiveness.
 Bureaucracy is a body of non-elective
government officials who constitute
administrative policy-making group.
 Bureaucracy referred to government
administration managed by departments
staffed with non-elected officials.
 Bureaucracy is a system of government in which most of the important decisions
are made by state officials rather than by elected representatives
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Principles of Bureaucratic Management
Rule is a statement that tells you what is or is not allowed in a particular situation.
Procedure is a series of actions that are done in a certain order.
1. System of written rules and standard operating
procedures that specify how employees should
behave
2. Clearly specified hierarchy of authority
3. Selection and evaluation system that rewards
employees fairly and equitably
4. Clearly specified system of tasks and role
relationships
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Role is a part performed especially in a particular operation
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Weber’s Principles of Bureaucracy
1)
A manager’s formal authority derives from the position he holds
in the organization.
2)
People should occupy positions because of their performance,
not because of their social standing or personal contacts.
3)
The extent of each position’s formal authority and task
responsibilities and it’s relationship to other positions should be
clearly specified.
4)
Authority can be exercised effectively when positions are
arranged hierarchically, so employees know whom to report to
and who reports to them.
5)
Managers must create a well-defined system of rules, standard
operating procedures, and norms so they can effectively control
behavior .
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Rules, SOPs and Norms
 Rules – formal written instructions that specify
actions to be taken under different circumstances
to achieve specific goals
 Standard Operating Procedures (SOPs) – specific
sets of written instructions about how to perform a
certain aspect of a task
 Norms – unwritten, informal codes of conduct that
prescribe how people should act in particular
situations
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A continuum of organizational design alternatives: from
bureaucratic to adaptive organizations.
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2. SECTORS OF OWNERSHIP
Private sector: is that part of the economy, which is run by private
individuals or groups, usually as a means of enterprise for profit
and is not controlled by the state.
Public sector: Sometimes referred to the government sector that
deals with the production, ownership, sale, delivery and
allocation of goods and services by and for the government or
its citizens, whether national, regional or local/municipal.
Voluntary sector: It is non-profit sector of social activities
undertaken by organizations that are not for profit and non
governmental.
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3.1. Definition of Public Management
 Public management refers to managing government and non-profit
organizations.
 Public administration is the use of managerial, public, and legal theories
and processes to fulfill legislative, executive, and judicial mandates for
the provision of governmental regulatory and service functions.
3.2. Meaning of Public Management
 Public management is the planning, organizing, directing
and controlling of government operations.
3.3. Public Manager
 Public manager is the public servant who carries out
public management functions in public sector
organizations.
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4. Public Management Functions
Planning
Organizing
Public
Management
Functions
Controlling
Staffing
Directing
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4.1. Planning
A process that includes defining goals, establishing strategy, and developing
plans to coordinate activities.
4.2. Organising
Determining what tasks are to be done, who is to do them, how the tasks are
to be grouped, who reports to whom, and where decisions are to be made.
4.3. Staffing
Staffing is the process of setting job requirements through recruitment, selection,
appraisal, compensation, training and development of candidates so as to
accomplish the tasks effectively.
4.4. Directing
Directing involves determining the course, giving order and instruction and
providing dynamic leadership.
4.5. Controlling
Monitoring activities to ensure they are being accomplished as planned and
correcting any significant deviations.
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5. Public Management is an Art
5.1. Practical knowledge
Every art requires practical knowledge.
E.g. to become a good painter, the person
may not only be knowing different colour
and brushes but different designs,
dimensions, situations etc to use them
appropriately. A manager must also know
how to apply various principles in real
situations by functioning in the capacity of
manager.
5.2. Personal skill
Every artist has self style and approach
towards his/her job. That is why the level
of success and quality of performance
differs from one person to another. E.g.
there are several qualified painters but
M.F. Hussain is recognized for his style.
Similarly every manager has his/her own
way of managing things based on that
particular
person’s
knowledge,
experience and personality.
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5.3. Perfection through practice
Practice makes a man perfect. Every artist
becomes more and more proficient
through
constant
practice.
Similarly
managers learn through an art of trial and
error
initially
but
application
of
management principles over the years
makes them perfect in the job of
managing.
5.4. Creativity
Every artist has an element of creativity
with which he/she aims at creating
something that has never existed before,
which requires combination of intelligence
and imagination. Management is also
creative in nature combining human and
non-human resources in useful way so as
to achieve desired results.
5.5. Goal oriented
Every art is result oriented as it seeks to
achieve concrete results. In the same
manner, management is also directed
towards
accomplishment
of
predetermined goals.
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6. Public Management is a Science
6.1. Universally accepted principles
Scientific principles may be applied in all
situations, at all time and at all places. E.g.
- law of gravitation which can be applied
in all countries irrespective of the time.
Management
also
contains
some
fundamental principles which can be
applied universally like the Principle of
Unity of Command i.e. one man, one boss.
6.2. Experimentation and observation
Scientific principles are derived through
scientific investigation and researching
i.e. they are based on logic. E.g. the
principle that earth goes round the sun
has
been
scientifically
proved.
Management principles are also based on
scientific enquiry and observation. They
have
been
developed
through
experiments & practical experiences of
large number of managers. E.g. it is
observed that fair remuneration to
personal helps in creating a satisfied work
force.
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6.3. Cause and effect relationship
Principles of science lay down cause and
effect
relationship
between
various
variables. E.g. when metals are heated,
they are expanded. The cause is heating &
result is expansion. The same is true for
management, therefore it also establishes
cause and effect relationship. E.g. lack of
parity (balance) between authority &
responsibility will lead to ineffectiveness.
6.4. Test of validity and predictability
Validity of scientific principles can be
tested at any time or any number of times
i.e. they stand the test of time. Each time
these tests will give same result. Moreover
future events can be predicted with
reasonable accuracy by using scientific
principles. E.g. H2 & O2 will always give
H2O.Principles of management can also be
tested for validity. E.g. principle of unity of
command can be tested by comparing
two persons - one having single boss and
one having 2 bosses. The performance of
1st person will be better than 2nd.
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7. Public Management is a Profession
7.1. Specialized knowledge
Management, like any other profession,
has a systematic body of knowledge that
can be used for development of
professionals.
7.2. Code of ethics
Members of a profession have to abide by
a code of conduct which contains certain
rules and regulations, norms of honesty
enforced by a representative association
to ensure self discipline among its
members.
7.4. Professional affiliation
For the regulation of profession, existence
of a representative body is a must
7.5. Formal education and training:
There
are a number of institutes and
universities to impart education and
training for a profession. No one can
practice a profession without going
through a prescribed course.
7.3. Social obligation
Profession is a source of livelihood but
professionals are primarily motivated by
the desire to serve the society. Similarly a
manager is responsible not only to its
owners but also to the society and
therefore he is expected to provide
quality goods at reasonable prices to the
society.
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8. Difference between Management and Administration
Management
1. Nature of work
Putting plans laid down by the administration into
action
2. Type of function
Executive
3. Scope
Decisions within the framework set by the
administration
4. Level of authority
Middle
5. Nature of status
A group of managerial personnel who use their specialized
knowledge to fulfil the objectives of an enterprise.
6. Nature of usage
Used in business enterprises
7. Decision making
Decisions are influenced by the values, opinions, and beliefs
of the managers.
8. Main functions
Directing and controlling functions
9. Abilities
Requires technical activities
10. Handling
People
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Administration
1. Nature of work
It is concerned about the determination of objectives
and major policies of an organization.
2. Type of function
Planning
3. Scope
Taking major decisions as a whole
4. Level of authority
Top level
5. Nature of status
It consists of owners who invest capital in and receive profits
from an enterprise.
6. Nature of usage
Popular with government, military, educational and religious
Organizations
7. Decision making
Decisions are influenced by public opinion, government
policies, social, and religious factors.
8. Main functions
Planning and organizing functions
9. Abilities
Requires administrative rather than technical
10. Handling
Business aspects such as finance
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9. Managerial Roles in Public Sector
Managerial roles are divided into three. They are
9.1. Interpersonal role
9.2. Informational role
9.3. Decisional role
9.1.
9.1.1
9.1.2
9.1.3
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9.2.
9.2.1
9.2.2
9.2.3
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9.3.
9.3.1
9.3.2
9.3.3
9.3.4
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10. Managerial Skills
10.1. Technical skills
Technical skills are the ability to apply
specialized knowledge or expertise.
10.2. Human skills
The ability to work with, understand, and motivate
other people, both individually and in groups.
10.3. Conceptual Skills
The mental ability to analyze and
diagnose complex situations.
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11. Levels of management: Diagrammatic presentation
Top level management
Strategic
Middle level management
Tactical
Lower level management
Operational
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Levels of Management: Responsibility of managers
• Lower level managers: Responsible for daily supervision of the nonmanagerial employees who perform many of the specific activities
necessary to produce goods and services
• Middle level managers: Supervise first-line managers. Responsible
for finding the best way to organize human and other resources to
achieve organizational goals
• Top level managers: Responsible for the performance of all
departments and have cross-departmental responsibility. Establish
organizational goals and monitor middle managers. Decide how
different departments should interact Ultimately responsible for the
success or failure of an organization.
Chief executive officer (CEO): Company’s most senior and
important manager. central concern is the creation of a smoothly
functioning top-management team - CEO, COO, Department
heads
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Relative amount of time that managers spend on the
four managerial functions
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12. Objectives of Public Management
1. Improve efficiency and effectiveness in public
sector organization
2. Improve responsiveness to stakeholders
3. Improve quality of public services
4. Improve accountability and performance
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Improve efficiency and effectiveness in public sector
organization
 Organizational performance is a measure of how
efficiently and effectively managers use available
resources to satisfy customers and achieve
organizational goals.
Efficiency
– Efficiency is a measure of how well or how productively
resources are used to achieve a goal. Efficiency is to do
the things right!
Effectiveness
– Effectiveness is a measure of the appropriateness of the
goals an organization is pursuing and the degree to
which they are achieved. Effectiveness is to do the
right things!
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Improve responsiveness to stakeholders
 There are various stakeholders in the public
sector. They are local authority, service
beneficiaries, customers, suppliers, special
interest groups, media etc. The public
management has to satisfy the expectations of
each stakeholder in the system.
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Improve quality of public services
 A public service is a service which is provided
by government to people living within its
jurisdiction, either directly (through the public
sector) or by financing provision of services.
 The quality of the public services has to be
improved as the sector operates on public
funding. Improving quality of public services is a
part of accountability of public management.
 Examples of public services are water services, cooking
gas, electricity, telecommunications, fire fighting brigade,
police, army, healthcare, paramedics, transport etc. they all
have a role in protecting the public in a different way.
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Improve accountability and performance
 Accountability may be defined as answering
for, explaining or justifying one’s actions or
decisions, usually to some external body which
is independent of the original decision maker.
 Lack of appropriate resources/manpower issues need to be
addressed prior to holding people accountable.
 Organizational performance is a measure of how efficiently
and effectively managers use available resources to satisfy
customers and achieve organizational goals.
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13. Characteristics of Public Management
1.
2.
3.
4.
5.
6.
Profesionalism in public sector
Existence of performance standard and performance measure
Competition in public sector
Adoption of private sector management style into public sector
Disciplined and economic use of resources
A closer focus on results in terms of efficiency, effectiveness,
and quality of service
7. Decentralized management environments where decisions on
resource allocation and service delivery are made closer to the
point of delivery
8. A greater focus on efficiency in the services provided directly by
the public sector
9. The strengthening of strategic capacities at the center to guide
the evolution of the state and allow it to respond to external
changes and diverse interests automatically flexibly, and at
least cost.
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14. Advantages of Public Management
1. Catalytic government: Steering rather than rowing
2. Community-owned government: Empowering rather than serving
3. Competitive government: Injecting competition into service
delivery
4. Mission-driven government: Transforming rule-driven
organizations
5. Results-oriented government: Funding outcomes, not inputs
6. Customer-driven government: Meeting the needs of the customer,
not the bureaucracy
7. Enterprising government: Earning rather than spending
8. Anticipatory government: Prevention rather than cure
9. Decentralized government: From hierarchy to participation and
teamwork
10. Market-oriented government: Leveraging change through the
market
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OCMT
management
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