PART I: THE NATURE AND SCOPE OF PUBLIC ADMINISTRATION
CHAPTER 1: THE MEANING OF PUBLIC ADMINISTRATION People form organization to accomplish goals which they cannot achieve individually. One such organization is the government. The people’s involvement with government becomes inescapable since its establishment. It has assumed not only coordination but also the control function or their society.
What is Public Administration? * It is “government in action.” * It is “concerned with action in particular concrete situations, but in accordance with long-range objectives.” * It is “concerned with the institutional framework of government, its socio-economic and political milieu, and the behavior of individuals who man the bureaucratic machine.” * It is “that aspect of administration occurring under the formal aegis of government at every level.”
Government is a term embracing the totality of all institution through which the state carries out its will. Administration refers to the aggregate of those persons in whose hands the reins of the government are placed for the time being while Administrative services refers to the aggregate of governmental agencies that are necessary to carry on government routine work.
What is Management? * Management is the planning, deciding or exercising of control and supervision on some functions of the organization. * Management which is the organ of society specifically charged with making resources productive that is, with the responsibility for organized economic advance. – Peter F. Drucker

The term manager refers to either a person or position. As a person, it refers to “someone who occupies a position or someone who performs the job.” As a position, it refers to “the manager’s organizational superiority in the hierarchy of authority.”
Is Public Administration an ART or SCIENCE? ART is the proficiency in the practical application of knowledge acquired through study, experience or observation. It is also use of talent for creative work. SCIENCE is the systematic accumulation of facts, their analysis and interpretation, and their use to arrive at satisfactory conclusion. – Perfecto S. Sison While Public Administration possesses conformities analogous to the developed sciences, it is more of an art until its principle were empirically tested and verified to be of universal application. It is more responsible for the attainment of organizational objectives through execution of work done by the application of human resources. It is indeed, the art of working with people.
Public Administration vs. Private Administration Public Administration | Private Administration | Broad field of administration | Limited field of administration | Official action are based upon on public trust carrying legal accountability | Not necessarily based on public trust, limited legal accountability | Relatively routine decision-making procedure | Unlimited decision-making process | Maintenance internal status quo | Dynamic entrepreneurship | Actuation subject to public criticism | Not normally subjected to public criticism | Government corporations restricted by requirements of fiscal accountability foreign to corporate device | No such restrictions |

“To be given the opportunity to serve the people is indeed a priceless gift that a country can give a citizen. For a citizen who is given this opportunity and who would serve less than his very best in dedication and performance, indeed has committed or is committing an act of apostasy.”
Former Senate President Gil J. Puyat

CHAPTER 2: THE ROLE OF PUBLIC ADMINISTRATION IN MODERN SOCIETY

In this era of frenzied efforts toward purposely nation-building, the prime objective of emerging or developing countries as well as the revitalizing old states is to adapt to existing circumstances and influences. Their common problem is to weave their new-found form of organization or administrative structure into a strong nationhood. A government survives when it provides good public administration. Public administration is good when the people find in the government the full expression of popular will. Service to the people is the basic foundation of government, of which public administration is an essential tool. The government must not only make known its actuations to meet the people’s essential needs and desires but it must also make the people understand its ways.

The New Role of Pubic Administration The government has increasingly involved itself in national development, particularly in its economic and social spheres as it expands from its traditional functions for safeguarding the country’s national security and providing essential public facilities and services. Consequently it expands not only its machinery but also the main thrust of public administration from the attainment of economy and efficiency in the public service to that of serving as change agent in the task of nation-building.

Executive Leadership’s Role of Public Administration A public administrator is not expected to have any parts in policy decisions. Since he belongs to the civil service system, he is expected not to influence or intervene in the process of making the original decision. He is not expected to make the subsequent decision to carry it out either. But because of his technical knowledge, practical experience, and available resources at his command, politicians have to call upon him in the enactment of appropriate legislation. In fact, he has to fill the gap in solving the administrative problems of policy implementation by involving himself in its policy formulation.

Multi-function of Government – Robert McIver and Charles Page A. Function peculiar to the State: a. Maintenance of order b. Attainment of justice c. Protection of a system of property rights d. Formation of administrative and foreign policies B. Function for which the State is well-adapted: a. Conservation of natural resources b. Control of monopoly c. The maintenance of public services d. Preservation of health C. Function for which the State is ill-adapted: a. Religion b. Literary c. Artistic Production d. Evaluation D. Function for which the State is incapable of performing: a. Control of people’s opinions b. Regulation of morality Public Administration’s Role in Designing Policy Policy * It is a projected program of goal values and practices: policy process is the formulation, and the application of identifications, demands, and expectations concerning the future interpersonal reactions to self. * It is an attempt to establish a general rule, in giving it effect the administration may carry it into broader diversity of concrete situations as they perceive it. Policy Making – is the prerogative of the political or elected actors in government. The public administrator has a dual responsibility. 1. The provision of effective organizational leadership: his is the task of running a “taut ship” in directing the programs and workers under his supervision. 2. The public which he serves: a government employee, he is required to act in a manner which meets the common expectations regarding responsive and responsible government. CHAPTER 3: THE NATURE OF BUREAUCRACY Bureaucracy * It is a type of organization designed to accomplish large-scale administration tasks by systematically coordinating the work of many individuals. * In Max Weber View, bureaucracy is the best form of organization. * As an organization, it substitutes a rule of law for a rule based on the whims of those who happen to govern. * Over the years, it has become the dominant form of organization in modern societies. * It is a specific form of social organization for administrative purposes. * It is that type of hierarchical organization which is designed rationally to coordinate the work many individuals in pursuit of large-scale administrative tasks. CHARACTERISTICS OF BUREAUCRACY 1. Large and complex organization as measured by the member of the people it employed. 2. Majority of those employed were performing semi-skilled and unskilled works. 3. Relatively simple mass production technology applied. 4. Relatively simple product is produced. CHARACTERISTICS OF AN ORGANIZATION USED IN ANALYSING BUREAUCRACY 1. Position and offices are clearly defined. 2. The hierarchical arrangement of authority, rights and obligations are specifically drawn. 3. The personnel are selected on the basis of technical or professional qualifications. 4. There are defined rules governing official behavior. 5. Security of tenure and the pursuit of career with promotion in the hierarchy are assured. IDEAL TYPES OF BUREAUCRACY DIMENSION (Richard H. Hall) 1. A division of labor based upon functional specialization. 2. A well-defined hierarchy of authority. 3. A system of rules covering the rights and duties of positional incumbents. 4. A system of procedures for dealing with work situations. 5. Impersonality of interpersonal relations. 6. Promotion and selection for employment based upon technical competence. REALITIES OF MODERN ENVIRONMENT 1. An acceleration in change that requires rapid organizational adaptation. 2. Increasing technological sophistication which leads to the acceleration of change 3. Growing organizational complexity which is partially attributable to technology and partially a result of increasing organizational size. 4. Changing character of the workforce in which more highly educated, professionally oriented people are going into organization. 5. A growing expectation of the new employee for greater freedom and discretion at work. 6. More disenchantment with traditional authority, with emphasis based on a decline of command (superior or subordinate) authority and the rise of functional authority vested on expertise. MINIMIZING BUREAUCRACY’S CONGENITAL DEFECTS 1. Sensitizing prospective employees to the strengthening and weakening effects of informal relationships in varied social institutions within the bureaucracy. 2. Recruiting and continuously developing employees with a deeply ingrained sense of responsibility and competent standard of performance. 3. Inculcating in future executive and supervisory personnel at all levels the ability to set up a workable balance between the very rigid and the very lax types of bureaucracy. 4. Establishing a system periodically studying the actual operation of the social organization, identifying its defects and devising expedient means with which to remove barriers to satisfactory and efficient operations. CHARACTERISTICS OF PHILIPPINE BUREAUCRACY 1. Vulnerability to Nepotism 2. Perpetuation of the spoils system 3. Apathetic public reaction to bureaucratic misconduct 4. Availability of external peaceful means of correcting bureaucratic weaknesses 5. Survival of historical experience 6. Nonspecial typing of bureaucrats 7. Lack of independence from politics 8. Essential instruments of social change TYPES OF BEHAVIOR OF THE PHILIPPINE BUREAUCRACY 1. Conformity to policies 2. Preference toward continuity and routinization 3. Loss of self-direction or self-assertion 4. Politically supportive CHAPTER 4: GOVERNMENT AND POLITICS IN PUBLIC ADMINISTRATION Government and public administration are as old as the history of people working together in large groups. These have been essential features of human society long before the dawn of recorded history. Ever since man emerged from the most primitive forms of association, he has had to devise administrative systems.
FOUNDATION OF GOVERNMENT AND POLITICS Culture is a way of life. It refers to the abstraction of characteristics acquired by an individual or group of individuals through learning after birth. It also represents the influence upon the individual of his environment. Different from a concept of race, which also identifies a person or a group of people; it varies according to different persuasions and localities. Social elements constitute culture which includes the family system, child-rearing and the language they speak and write. It is to these basic social elements that people in a common environment identify with each other as individuals belonging to a particular group. A group is identified by the goal they seek. It is, therefore, the extent of common goal that leads to their political identity and solidarity. Politics is a “search for end as well as means.” It is the “whole range of man’s endeavor to govern him, to provide a structure and practice for the exercise of political power.” Politics is deeply involved in the fundamentals of the social order and shares in its characteristics. Hence, the analysis of politics should begin where society itself begins – that is, with the formation of groups. Society is a system of groups, and these are the breeding ground for politics. Political consciousness in a society arouses the necessity for leadership. It leads to the formation of government, which shall wield authority in the name of the organization, the society, or the people. In doing so, it becomes “a personal competition and intrigue.” The viability of any political organization is affected by various factors. Among these factors are people, territory, natural resources, technology, and economic capacity to make the political unit alive. In addition, the influence, as caused by the ecology, could be included in the list. The citizens’ needs and demands made upon the government also contribute to the viability of the political unit. The study of politics arrives only at generalizations to which there are always exceptions. The “capacity to keep” implies an ability to live with the past of a community or political unit and its people, making use of the past as a take-off ground for future actions, future policies, and future organizations; and keeping a keen sense of history to take notice from its page lessons that may be of great help in shaping or understanding the present attitudes prevailing among its people. On the other hand, the “capacity to alter” would be a go-signal for any political worker to sift through varied grains of the past what needs to be changed at present, or what could possibly be changed in the immediate future in pursuit of an immediate goal.
POLITICIAN-ADMINISTRATOR ACCORD The viability of the public administrator depends, to a great extent, on the political stability of the country. The administrator cannot divorce himself from political influences. Under the bureaucratic structure of the government, the administrator cannot achieve the objectives of his organization without political intervention. Appropriations in carrying out the goals of any government institutions, for instance, must be authorized by the legislature. Hence, he should also endeavor to win their support for the program of his administration. As a general rule, administrators have to possess broad perspectives in the management of the affairs of government. They consider primarily the national interest in the implementation of laws. However, there are some instances when the role of government institutions, as mandated in its charter, runs counter to the request or interest of a constituent of an individual politician. At this point, it is the duty of the administrator to endeavor to accommodate such request without sacrificing the interest of the government, since he cannot divorce or separate politics from administration.
THE POLITICIAN-ADMINISTRATOR ACCORD MAY BE FOSTERED BY: 1. Social relations to the extent permitted by public duty and good sense. 2. Giving the due considerations to political recommendation. 3. An intelligent discussion of the needs of the public administration jointly by legislators and administrators.
IMPLICATION TO PUBLIC ADMINISTRATION Public Administration, considerably, must look beyond the realm of cultural barriers if it were to relatively find protective ramparts in its governmental system. Political ideas in a prison, apparently, have no such use. Ideological strait jackets would also be as disadvantageous if a government is living with a maze of complexities of political eventualities in its local territories and with its relations with other world political units.

CHAPTER 5: THE ECOLOGY OF PUBLIC ADMINISTRATION
What is Ecology? Ecology is a concept borrowed from the field of biology, in which the term refers to the study of organism in the relation to its environment. In this context, ecology refers from 2 things: 1. The interaction of the organisms of public administration and their environment. 2. The interaction of the administrator with the organization itself.
FACTORS OF ENVIRONMENTAL CONSTRAINTS 1. Educational Constraints 2. Legal-Political Constraints 3. Socio-cultural Constraints a. The general attitude of the society towards managers b. The dominant views of authority and subordinates c. The extent to which cooperation between various group is a way of life d. The view of achievement e. The extent of inflexible class structure and individual class structure and individual mobility f. The view of scientific method g. The view of risk h. The view of change 4. Economic Constraints 5. Religious Constraints
PART II: ADMINISTRATIVE ORGANIZATION
CHAPTER 6: NATURE AND DEVELOPMENT OF ORGANIZATION
Definition of Organization Achievement is the be-all and the end-all of any organization. For any organization to achieve something, it must be organized, operated and administered. Organization is nothing more than the mechanism by which administration directs, coordinates and controls its business. It is indeed, the very foundation of administration. Alvin Toffler defines organization as “a structure of rules filled by humans.”
CHARACTERISTICS OF ORGANIZATION (Robert S. Weiss) 1. A set of individuals in office 2. Individual responsibility for definite tasks – functional activities – which are parts of a division of labor 3. An organizational goal to which the activities of the staff contribute 4. A stable system of coordinative relationships, or a structure
DIFFERENT THEORIES OF ORGANIZATION (Frederick Taylor) 1. Division of labor and specialization 2. Unity of command and centralization of decision-making 3. One-way authority 4. Narrow span of control
BUREAUCRATIC MODELITY OF MAX WEBER (see Chapter 3) 1. Division of labor 2. Hierarchical arrangements of offices 3. Rules for carrying out the work 4. Impersonality 5. Officials are selected on the basis of competence, and not on irrelevant considerations
MAN-CENTERED ORGANIZATION by Robert Golembiewski – believes that “moral sensitivity can be associated with satisfactory output and employees’ satisfaction.” 1. Work must be psychologically acceptable to the individual. 2. Work must allow man to develop his faculties. 3. The work task must allow the individual considerable room for self-determination 4. The worker must have the possibility of controlling, in a meaningful way, the environment within which the task is to be performed. 5. The organization should not be sole and final arbiter of behavior.
SYSTEM OF VALUES (Warren G. Bennis) 1. Full and free communication 2. A reliance on consensus 3. The idea that influence is based on technical competence and knowledge 4. An atmosphere that permits and even encourages emotional expression as well as task-oriented acts. 5. A basically human bias
SUB-SYSTEM (Daniel Katz & Robert Kahn) 1. Production or technical sub-systems 2. Supportive structures 3. Maintenance substructures 4. Adaptive structures 5. Managerial sub-systems

CHAPTER 7: TYPES OF ORGANIZATION
LINE ORGANIZATION – is the simplest and oldest form of organization structures. It is a purely line organization.
ADVANTAGES:
1. It is simple. 2. It facilitates decision-making within the organization. 3. It facilitates discipline and control of individuals in the organization. 4. It facilitates flexibility within the organization.
DISADVANTAGES:
1. It encourages the development of excessive load of administrative responsibility. 2. It encourages the development of centralization. 3. It lengthens the chain of command of the organization. 4. It prevents the development of specialization. 5. It discourages the recruitment and training of qualified personnel for the organization.

LINE AND STAFF ORGANIZATION – pattern of most large and complex organization.
ADVANTAGES:
1. It maintains a single line of responsibility, authority and accountability. 2. It provides the line executives with staff support of specialized knowledge of capability. 3. It frees the line executive from performing functions not directly related to his work. 4. It facilitates the recruitment and training of people needed by the organization.
DISADVANTAGES:
1. It creates a source of conflicts between line and staff executives. 2. It forces the staff executive to insist on their advices to line executives to show their importance in the organization. 3. It creates administrative problems if the staff authority is not carefully defined.

FUNCTIONAL ORGANIZATION – assigned to accomplish certain goals of interested sectors of our society.
ADVANTAGES:
1. It permits a high degree of specialization. 2. It is easier to fill position in such an organization since functional specialists are required to have only a limited number of talents. 3. It permits each specialist to become an expert in his own field. 4. It provides better technical supervision for subordinates.
DISADVANTAGES:
1. It suffers from dual authority and violates the principle of single accountability. 2. Authority and responsibility often overlap. 3. It is often difficult to get technical experts to work together smoothly.

COMMITTEE ORGANIZATION – a group of persons to whom, as a group, some matter is committed.
COMMITTEE AUTHORITY: 1. A committee may have a broad decision-making authority. 2. A committee may have limited function authority. 3. A committee may have advisory, investigative, and recommendatory authority. 4. A committee may have no authority, functioning merely as an educational or communicative tool of management.
ADVANTAGES:
1. Harmony may be developed among executives who were formerly suspicious of each other. 2. The viewpoint of young executives is broadened through participation in large-scale problems. 3. Continuity of committee functions may be provided by replacing only a few committee members at a time.
DISADVANTAGES:
1. A committee is made up of the unfit selected by the unwilling to do the unnecessary. 2. The cost of committee action in time is likely to be considerable. 3. Where committees are required to come to some conclusion or reach some decision, there is danger that the action will be meaningless/ 4. The time required for through deliberation, discussions and reaching agreements often result in indecision. 5. Committee may come up with forced decisions. 6. Split responsibility. 7. Committee seek unanimous or near unanimous decisions.
BEST USE OF COMMITTEES: 1. Where group deliberations and judgments are important. 2. Fear of improper use of authority. 3. Represent interest group. 4. Motivation through participation. 5. Coordination of planning. 6. Policy development and interpretation 7. Administrative communication 8. Training 9. Innovation 10. Avoid action
AVOIDANCE OF USE OF COMMITTEES: 1. When one manager is better. 2. Fact gathering and research. 3. Fast decision-making. 4. Substitute of other weaknesses. 5. Rubber stamp predetermined solutions. 6. Present technical reports or printed material which could be circulated. 7. Perform work.
LIMITATION OF COMMITEES: 1. If a committee has to decide an issue which has been argued by members. 2. Group thinking is always influenced by emotionalism. 3. The committee tends to diffuse responsibility, making it difficult to fix accountability. 4. There is an opportunity for one person to dominate the group.