Favadigns oJ FuIIic Adninislvalion

AulIov|s) NicIoIas Henv

Bevieved vovI|s)
Souvce FuIIic Adninislvalion Beviev, VoI. 35, No. 4 |JuI. - Aug., 1975), pp. 378-386
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378
Paradigms
of Public Administration
Nicholas
Henry, University of Georgia
Public
administration
again
is
examining
it-
self.1 Given the
history
of the
field,
this exercise
probably
is a
sign
of health. While
self-scrutiny
can
be overdone-the late
mathematician,
John von
Neumann,
once described the state of a
discipline
that had become far too involved with
self-study
by coining
the term
"baroquism"-a
reexamina-
tion
by public
administrationists of where the field
has been and where it is
going appears
worthwhile.
As an intellectual
enterprise, public
administration
has reached a
point
of radical
departure
from its
own
past.
It is
my purpose
in this article to:
(1)
sketch
the
development
of the field
by describing
four
broad
paradigms
of American
public
administra-
tion, (2) speculate
on what the
emerging paradigm
of
public
administration
may
turn out to
be,
and
(3) attempt
to
justify why
it is
mandatory
that
public
administration "come into its own" as an
identifiable, unique,
and
institutionally
inde-
pendent
field of
instruction, research,
and
prac-
tice.
"Paradigm"
no doubt is an overworked word.2
Nevertheless,
it is a useful one because there is no
other term that
conveys
the
concept
of a field's
self-identity
and the
changing dynamics
of that
identity. Paradigmatic questions
are of
especial
significance
in
public
administration. With
ap-
proximately
90
per
cent of all advanced
degree
graduates
in
public
administration
going
into
government employment,3
with
roughly
one-in-six
members of the American labor force
working
for
one
government
or
another,
and with administra-
tive-profession-technical personnel
the
major
growth
factor in
public
service
hiring practices,
it
follows that the
way
in which
public
administra-
tion defines itself will determine to a
profound
degree
the manner in which
government
works. It
The author wishes to
express
his thanks to Professors
Robert T. Golembiewski and Frank
Thompson,
both of
the
University
of
Georgia,
for their
helpful critiques
of
this article. Final
responsibility is,
of course,
the author's.
* Five
paradigms
of
public
administration are
sketched in an effort to indicate that the notion of
public
administration as a
unique, synthesizing
field is
relatively
new. The
discipline
is conceived as an
amalgam
of
organization theory, management science,
and the
concept
of the
public
interest. It is
suggested
that it is time for
public
administration to establish
itself as an
institutionally
autonomous
enterprise
in
colleges
and universities in order to retain its social
relevance and worth.
is with these reasons in mind that we should turn
to a reconsideration of the trite
yet worthy
question
of "What is
public
administration?"
Public Administration's
Eighty
Years
in a
Quandary
Public administration's
development
as an aca-
demic field
may
be conceived as a succession of
four
overlapping paradigms.
As Robert T.
Golembiewski has noted in a
perceptive essay
on
the evolution of the
field,4
each
phase may
be
characterized
according
to whether it has "locus"
or "focus." Locus is the institutional "where" of
the field. A
recurring
locus of
public
administra-
tion is the
government bureaucracy,
but this has
not
always
been the case and often this traditional
locus has been blurred. Focus is the
specialized
"what" of the field. One focus of
public
adminis-
tration has been the
study
of certain
"principles
of
administration," but, again,
the foci of the disci-
pline
have altered with the
changing paradigms
of
public
administration. As Golembiewski observes,
the
paradigms
of
public
administration
may
be
understood in terms of locus or
focus;
when one
has been
relatively sharply defined,
the other has
been
relatively ignored
in academic circles and
vice-versa. We shall use the notion of loci and foci
in
reviewing
the intellectual
development
of
public
administration.
JULY/AUGUST
1975
PARADIGMS OF PUBLIC ADMINISTRATION
Paradigm
1: The
Politics/Administration
Dichotomy,
1900-1926
Our benchmark dates for the
Paradigm
1
period
correspond
to the
publication
of books written
by
Frank J. Goodnow and Leonard D.
White; they
are,
as are the
years
chosen as
marking
the later
periods
of the
field, only rough
indicators. In
Politics and Administration
(1900),
Goodnow
contended that there were "two distinct functions
of
government,"
which he identified with the title
of his book.
Politics,
said
Goodnow,
"has to do
with
policies
or
expressions
of the state
will,"
while administration "has to do with the execu-
tion of these
policies."5 Separation
of
powers
provided
the basis of the
distinction;
the
legislative
branch,
aided
by
the
interpretive
abilities of the
judicial branch, expressed
the will of the state and
formed
policy,
while the executive branch admin-
istered those
policies impartially
and
apolitically.
The
emphasis
of
Paradigm
1 was on locus-
where
public
administration should be.
Clearly,
in
the view of Goodnow and his fellow
public
administrationists, public
administration should
center in the
government's bureaucracy.
The initial
conceptual legitimation
of this locus-centered
definition of the
field,
and one that would wax
increasingly problematic
for academics and
practi-
tioners
alike,
became known as the
politics/admin-
istration
dichotomy.
Public administration received its first serious
attention from scholars
during
this
period largely
as a result of the
"public
service movement" that
was
taking place
in American universities in the
early part
of this
century.
Political
science,
as a
report
issued in 1914
by
the Committee on
Instruction in Government of the American Politi-
cal Science Association
stated,
was concerned with
training
for
citizenship, professional preparations
such as
law,
and
training "experts
and to
prepare
specialists
for
governmental positions."6
Public
administration, therefore,
was a clear and
signifi-
cant subfield of
political science,
and
political
science
departments
in universities were
perceived
as the
logical place
in which to train
public
administrators.
Public administration
began picking up
aca-
demic
legitimacy
in the
1920s; notable in this
regard
was the
publication
of Leonard D. White's
Introduction to the
Study of
Public Administra-
tion in
1926,
the first textbook devoted in toto to
the field. As
Dwight
Waldo has
pointed out,7
White's text was
quintessentially
American Pro-
gressive
in character
and,
in its
quintessence,
reflected the
general
thrust of the field: Politics
should not intrude on
administration; management
lends itself to scientific
study; public
administra-
tion is
capable
of
becoming
a "value-free" science
in its own
right;
the mission of administration is
economy
and
efficiency, period.
The net result of
Paradigm
1 was to
strengthen
the notion of a distinct
politics/administration
dichotomy by relating
it to a
corresponding
value/fact
dichotomy. Thus, everything
that
public
administrationists scrutinized in the executive
branch was imbued with the
colorings
and
legiti-
macy
of
being
somehow "factual" and "scien-
tific," while the
study
of
public policy making
and
related matters was left to the
political
scientists.
The
carving up
of
analytical territory
between
public
administrationists and
political
scientists
during
this locus-oriented
stage
can be seen
today
in
political
science
departments:
it is the
public
administrationists who teach
organization theory,
budgeting,
and
personnel,
while
political
scientists
teach
virtually everything
else.
Paradigm
2: The
Principles
of
Administration,
1927-1937
In 1927 F. W.
Willoughby's book, Principles of
Public
Administration,
was
published
as the
second
fully fledged
text in the field. While
Willoughby's Principles
was as
fully
American
Progressive
in tone as White's
Introduction,
its title
alone indicated the new thrust of
public
adminis-
tration: that certain scientific
principles
of admin-
istration were
"there,"
that
they
could be dis-
covered,
and that administrators would be
expert
in their work if
they
learned how to
apply
these
principles.
Public administrationists were in
high
demand
during
the 1930s and
early
1940s for their
managerial knowledge,
courted
by industry
and
government
alike. Thus the focus of the field-its
essential
expertise
in the form of administrative
principles-waxed,
while no one
thought
too seri-
ously
about its locus.
Indeed,
the locus of
public
administration was
everywhere,
since
principles
were
principles,
and administration was adminis-
tration,
at least
according
to the
perceptions
of
Paradigm
2.
Furthermore,
because
public
adminis-
trationists had contributed as much if not more to
the formulation of "administrative
principles"
as
had researchers in
any
other field in
inquiry,
it also
JULY/AUGUST 1975
379
PUBLIC ADMINISTRATION REVIEW
followed that
public
administrationists should lead
the academic
pack
in
applying
them to "real-
world"
organizations, public
or otherwise.8
The
"high
noon of
orthodoxy,"
as it often has
been
called,
of
public
administration was marked
by
the
publication
in 1937 of Luther H. Gulick
and
Lyndall
Urwick's
Papers
on the Science
of
Administration.
Principles
were
important
to
Gulick and
Urwick,
but where those
principles
were
applied
was
not;
focus was favored over
locus,
and no bones were made about it. As
Urwick said in the
Papers,
It is the
general
thesis of this
paper
that there are
principles
which can be arrived at
inductively
from the
study
of human
organization
which should
govern
ar-
rangements
for human association of
any
kind. These
principles
can be studied as a technical
question, irrespec-
tive of the
purpose
of the
enterprise,
the
personnel
comprising it,
or
any constitutional, political
or social
theory underlying
its creation.9
That was
public
administration in 1937.
The
Challenge,
1938-1950
In the
following year, mainstream, top-of-the
heap public
administration received its first real
hint of
conceptual challenge.
In
1938,
Chester I.
Barnard's The Functions
of
the Executive
ap-
peared.
Its
impact
on
public
administration was
not
overwhelming
at the
time,
but it later had
considerable influence on Herbert A. Simon when
he was
writing
his
devastating critique
of the
field,
Administrative Behavior.
Dissent from mainstream
public
administration
accelerated in the 1940s and took two
mutually
reenforcing
directions. One was the
objection
that
politics
and administration could never be
separ-
ated in
any remotely
sensible fashion. The other
was that the
principles
of administration were
logically
inconsistent.
Although inklings
of dissent
began
in the
1930s,
a book of
readings
in the
field,
Elements
of
Public Administration,
edited in 1946
by
Fritz
Morstein
Marx,
was one of the first
major
volumes
which
questioned
the
assumption
that
politics
and
administration could be dichotomized.
Perhaps
the
most succinct statement
articulating
this new
awareness was
expressed by
John Merriman Gaus
in 1950: "A
theory
of
public
administration
means in our time a
theory
of
politics
also."'1
Arising simultaneously
with the
challenge
to
the traditional
politics/administration
dichotomy
of the field was an even more basic contention:
that there could be no such
thing
as a
"principle"
of administration. In 1946 and
1947,
a
spate
of
articles and books
by
Robert A.
Dahl, Simon,
Waldo,
and others
appeared
that addressed the
validity
of the
principles concept
from a
variety
of
perspectives.
1 The most formidable disection of
the
principles
notion
appeared
in 1947: Simon's
Administrative Behavior. Simon
effectively
dem-
onstrated that for
every "principle"
of administra-
tion advocated in the literature there was a
counter-principle,
thus
rendering
the
very
idea of
principles
moot.
By mid-century,
the two
defining pillars
of
public
administration-the
politics/administration
dichotomy
and the
principles
of administration-
had been
toppled
and abandoned
by
creative
intellects in the field. This abandonment left
public
administration bereft of a distinct
episte-
mological identity.
Some would
argue
that an
identity
has
yet
to be found.
The Reaction to the
Challenge,
1947-1950
In the same
year
that Simon razed the tradi-
tional foundations of
public
administration in
Administrative
Behavior,
he offered an alternative
to the old
paradigms
in a little-noted
essay
entitled
"A Comment on 'The Science of Public Adminis-
tration,'
"
published in the Public Administration
Review. For
Simon,
a new
paradigm
for
public
administration meant that there
ought
to be two
kinds of
public
administrationists
working
in
harmony
and
reciprocal
intellectual stimulation:
those scholars concerned with
developing
"a
pure
science of administration" based on "a
thorough
grounding
in social
psychology,"
and a
larger
group
concerned with
"prescribing
for
public
policy,"
and which would resurrect the then-
unstylish
field of
political economy.
Both a
"pure
science of administration" and
"prescribing
for
public policy"
would be
mutually reenforcing
components:
"there does not
appear
to be
any
reason
why
these two
developments
in the field of
public
administration should not
go
on side
by
side,
for
they
in no
way
conflict or contradict."'
2
Despite
a
proposal
that was both
rigorous
and
normative in its
emphasis,
Simon's call for a
"pure
science"
put
off
many
scholars in
public
adminis-
tration and
political
science alike.
First,
Simon's
urging
that social
psychology provided
the basis
for
understanding
administrative behavior struck
many public
administrationists as
foreign
and
discomfiting;
most of them had no
training
in
JULY/AUGUST
1975
380
PARADIGMS OF PUBLIC ADMINISTRATION
social
psychology. Second,
since science was
per-
ceived as
being "value-free,"
it followed that a
"science of administration"
logically
would ban
public
administrationists from what
many
of them
perceived
as their richest sources of
inquiry:
normative
political theory,
the
concept
of the
public interest,
and the entire
spectrum
of human
values. In
sum, then, public
administrationists
faced the worrisome
prospect
of
retooling only
to
become a
technically
oriented
"pure
science" that
might
lose touch with
political
and social realities
in an effort to cultivate an
engineering mentality
for
public
administration.
There was also a more
positive
rationale for
scholars in
public
administration to retain their
linkages
with
political science; i.e.,
the
logical
conceptual
connection between
public
administra-
tion and
political
science: that
is,
the
public
policy-making process.
Public administration con-
sidered the "black box" of that
process:
the
formulation of
public policies
within
public
bu-
reaucracies and their
delivery
to the
polity.
Politi-
cal science was
perceived
as
considering
the
"inputs
and
outputs"
of the
process:
the
pressures
in the
polity generating political
and social
change.
Hence,
there was a carrot as well as a stick
inducing
public
administrationists to
stay
within the
homey
confines of the mother
discipline.
Political
scientists,
for their
part,
had
begun
to
resist the
growing independence
of
public
adminis-
trationists and to
question
the field's action
orientation as
early
as the mid-1930s. Political
scientists,
rather than
advocating
a
public
service
and executive
preparatory program
as
they
had in
1914, began calling for,
in the words of
Lynton
K.
Caldwell,
"intellectualized
understanding"
of the
executive
branch,
rather than
"knowledgeable
action" on the
part
of
public
administrators.13 In
1952 an article
appeared
in the American Political
Science Review
advocating
the
"continuing
domin-
ion of
political
science over
public
administra-
tion.,"
4
By
the
post-World
War II
era, political
scientists
could ill afford the
breakaway
of the subfield
which still
provided
their
greatest drawing
card for
student enrollments and
government grants.
The
discipline
was in the throes of
being
shaken
conceptually by
the "behavioral revolution" that
had occurred in other social sciences. Political
scientists were aware that not
only public
adminis-
trationists had threatened secession in the
past,
but now other
subfields,
such as international
relations,
were restive.
And,
in terms of science
and social science
both,
it was
increasingly
evident
that
political
science was held in low esteem
by
scholars in other fields. The formation of the
National Science Foundation in 1950
brought
the
message
to all who cared to listen that the chief
federal science
agency
considered
political
science
to be the
distinctly junior
member of the social
sciences, and in 1953 David Easton confronted
this lack of status
directly
in his influential
book,
The Political
System.
5
Paradigm
3: Public Administration as Political
Science, 1950-1970
In
any event,
as a result of these concerns
public
administrationists remained in
political
sci-
ence
departments.
The result was a renewed
definition of locus-the
governmental
bureau-
cracy-but
a
corresponding
loss of focus. Should
the mechanics of
budgets
and
personnel proce-
dures be studied
exclusively?
Or should
public
administrationists consider the
grand philosophic
schemata of the "administrative
Platonists,"
as one
political
scientist called
them,
such as Paul
Appleby?
6 Or should
they explore quite
new
fields of
inquiry,
as
urged by Simon,
as
they
related to the
analysis
of
organizations
and deci-
sion
making?
In
brief,
this third
phase
of defini-
tion was
largely
an exercise in
reestablishing
the
linkages
between
public
administration and
politi-
cal science. But the
consequences
of this exercise
was to "define
away"
the
field,
at least in terms of
its
analytical focus,
its essential
"expertise." Thus,
writings
on
public
administration in the 1950s
spoke
of the field as an
"emphasis,"
an "area of
interest,"
or even as a
"synonym"
of
political
science.1
7
Public administration, as an identifiable
field of
study, began
a
long,
downhill
spiral.
Things got relatively nasty by
the end of the
decade
and,
for that
matter,
well into the 1960s.
In
1962, public
administration was not included as
a subfield of
political
science in the
report
of the
Committee on Political Science as a
Discipline
of
the American Political Science Association. In
1964 a
major survey
of
political
scientists indi-
cated that the Public Administration Review was
slipping
in
prestige among political
scientists rela-
tive to other
journals,
and
signalled
a decline of
faculty
interest in
public
administration
general-
ly.
8
In
1967, public
administration
disappeared
as an
organizing category
in the
program
of the
annual
meeting
of the American Political Science
Association. Waldo wrote in 1968 that, "The truth
JULY/AUGUST 1975
381
PUBLIC ADMINISTRATION REVIEW
is that the attitude of
political
scientists ... is at
best one of indifference and is often one of
undisguised contempt
or
hostility.
We are now
hardly
welcome in the house of our
youth."'
9
A
survey
conducted in 1972 of the five
major
political
science
journals
of a
non-specialized
nature indicated that
only
four
per
cent of all the
articles
published
between 1960 and 1970 could
be included in the
category
of "bureaucratic
politics,"
which was the
only category
of the 15
possible
that related
directly
to
public
administra-
tion.2
Paradigm
4: Public Administration as
Administrative Science, 1956-1970
Partly
because of the
"undisguised contempt"
being displayed
in a number of
political
science
departments,
some
public
administrationists
began
searching
for an alternative.
Although Paradigm
4
occurred
roughly concurrently
with
Paradigm
3 in
time and never has received the
broadly
based
favor that
political
science has
garnered
from
public
administrationists as a
paradigm (although
its
appeal
is
growing),
the administrative science
option (a phrase
inclusive of
organization theory
and
management science)
nonetheless is a viable
alternative for a
significant
number of scholars in
public
administration. But in both the
political
science and administrative science
paradigms,
the
essential thrust was one of
public
administration
losing
its
identity
and its
uniqueness
within the
confines of some
"larger" concept.
As a
paradigm,
administrative science
provides
a focus but not a
locus. It offers
techniques
that
require expertise
and
specialization,
but in what institutional
setting
that
expertise
should be
applied
is undefined. As
in
Paradigm 2,
administration is administration
wherever it is
found;
focus is favored over locus.
A number of
developments,
often
stemming
from the
country's
business schools,
fostered the
alternative
paradigm
of administrative science. In
1956,
the
important journal,
Administrative Sci-
ence
Quarterly,
was founded
by
a
public
adminis-
trationist on the
premise
that
public,
business,
and
institutional administration were false distinctions,
that administration was administration. Public
Administrationist Keith M. Henderson, among
others, argued
in the mid-1960s that
organization
theory was,
or should
be,
the
overarching
focus of
public
administration.21
Also in the
1960s, "org-
anization
development" began
its
rapid
rise as a
specialty
of administrative science. Because of its
involvement in social
psychology,
its concern with
the
"opening up"
of
organizations,
and the "self-
actualization" of their
members, organization
de-
velopment
was seen
by many younger public
administrationists as
offering
a
very tempting
alternative for
conducting
research on
public
bureaucracies but within the framework of admin-
istrative science: democratic values could be con-
sidered,
normative concerns could be
broached,
and intellectual
rigor
and scientific
methodologies
could be
employed.22
But there was a
problem
in the administrative
science
route,
and a real one. If it were selected as
the sole focus of
public administration,
could one
continue to
speak
of
public
administration? After
all,
administrative science, while not
advocating
universal
principles,
nevertheless did and does
contend that all
organizations
and
managerial
methodologies
have certain
characteristics, pat-
terns,
and
pathologies
in common. If
only
admin-
istrative science defined the field's
paradigm,
then
public
administration would
exchange,
at
best,
being
an
"emphasis"
in
political
science
depart-
ments for
being,
at
best,
a subfield in schools of
administrative science. This often would mean in
practice
that schools of business administration
would absorb the field of
public
administration;
whether
profit-conscious
"B-school
types"
could
adequately appreciate
the vital value of the
public
interest as an
aspect
of administrative science was
a
question
of
genuine importance
to
public
admin-
istrationists,
and one for which the
probable
answers were less than
comforting.
Part of this
conceptual dilemma,
but
only part,
lay
in the traditional distinction between the
"public"
and
"private" spheres
of American socie-
ty.
What is
public administration,
what is
every-
thing
else
(i.e., "private" administration),
and
what is the
dividing
line between the two
types
has
been a
painful
dilemma for a number of
years.
As most of us
know,
"real world"
phenomena
are
making
the
public/private
distinction an in-
creasingly
difficult one to define
empirically,
irrespective
of academic
disputations.
The research
and
development
contract,
the
"military-industrial
complex,"
the roles of the
regulatory agencies
and
their relations with
industry,
and the
growing
expertise
of
government agencies
in
originating
and
developing
advanced
managerial techniques
that were and are
influencing
the
"private
sector"
in
every aspect
of American
society,
all have
conspired
to make
public
administration an elusive
entity
in terms of
determining
its
proper paradigm.
JULY/AUGUST
1975
382
PARADIGMS OF PUBLIC ADMINISTRATION
This dilemma is not
yet fully resolved, and
confusion about the
public variety
of the field of
administration seems at least
understandable; one
scholar,
in
fact,
has
argued
that we should
begin
talking
about
"public administration,"
since all
kinds of
managerial organizations increasingly
find
themselves
relating
to
public, governmental,
and
political
concerns due to the
growing
interre-
latedness of
technological
societies.23
The
principal
dilemma in
defining
the
"public"
in
public
administration
appears
to have been one
of dimension.24
Traditionally,
the basis of defini-
tion for the term has been an institutional dimen-
sion. For
example,
the
Department
of Defense has
been
perceived by
scholars as the
legitimate
locus
of
study
for
public administration,
while the
Lockheed
Corporation
was seen as
beyond
the
field's
proper
locus of concern. These were institu-
tional distinctions.
Recently, however,
this institu-
tional dimension seems to be
waning among
scholars as a definitional
base,
while a
growing
philosophic
and ethical dimension
appears
to be
waxing. Hence,
we are
witnessing
the rise of such
concerns for the field as "the
public
interest" and
"public
affairs." As
concepts,
these terms tend
implicitly
to
ignore
institutional
arrangements
and
concentrate instead on
highly
normative issues as
they
relate to the
polity. Thus,
rather than
analyzing
the
Department
of Defense as its
legiti-
mate locus of
study, public
administration finds
itself
scrutinizing
the
Department's relationships
with Lockheed and other
private
contractors as
these
relationships
affect the interests and affairs
of the
public.
The normative dimension
supplants
the institutional dimension as a
defining
base for
the locus of
public
administration.
As a
paradigm,
administrative science cannot
comprehend
the
supravalue
of the
public
interest.
Without a sense of the
public interest, administra-
tive science can be used for
any purpose,
no
matter how antithetical to democratic values that
purpose may
be. The
concept
of
determining
and
implementing
the
public
interest constitutes a
defining pillar
of
public
administration and a locus
of the field that receives little if
any
attention
within the context of administrative
science, just
as the focus of
organization
theory/management
science
garners
scant
support
in
political
science. It
would
seem, therefore,
that
public
administration
should,
and
perhaps must,
find a new
paradigm
that
encourages
both a focus and a locus for the
field.
The
Emerging Paradigm
5: Public Administration
As Public
Administration, 1970-?
Despite continuing intellectual turmoil, Simon's
1947
proposal
for a
duality
of
scholarship
in
public
administration has been
gaining
a renewed
validity.
There is not
yet
a focus for the field in
the form of a
"pure
science of
administration,"
but at least
organization theory primarily
has
concerned itself in the last two and a half decades
with how and
why organizations work, how and
why people
in them
behave, and how and
why
decisions are made.
Additionally,
considerable
progress
has been made in
refining
the
applied
techniques
of
management science,
as well as
developing
new
techniques,
that often reflect what
has been learned in the more theoretical realms of
organizational analysis.
There has been less
progress
in
delineating
a
locus for the
field,
or what
public
affairs and
"prescribing
for
public policy"
should
encompass
in terms relevant to
public
administrationists.
Nevertheless,
the field does
appear
to be
zeroing
in
on certain fundamental social factors
unique
to
fully developed
countries as its
proper
locus. The
choice of these
phenomena may
be somewhat
arbitrary
on the
part
of
public administrationists,
but
they
do share commonalities in that
they
have
engendered cross-disciplinary
interest in univer-
sities, require synthesizing
intellectual
capacities,
and lean toward themes that reflect urban
life,
administrative relations
among organizations,
and
the interface between
technology
and human
values-in
short, public
affairs. The traditional and
rigid
distinction of the field between the
"public
sphere"
and the
"private sphere" appears
to be
waning
as
public
administration's new and
flexibly
defined locus waxes.
Furthermore, public
admin-
istrationists have been
increasingly
concerned with
the
inextricably
related areas of
policy science,
political economy,
the
public policy-making pro-
cess and its
analysis,
and the measurement of
policy outputs.
These latter
aspects
can be
viewed,
in some
ways,
as a
linkage
between
public
adminis-
tration's
evolving
focus and locus.
Institutionalizing Paradigm
5: Toward
Curricular
Autonomy
With a
paradigmatic
focus of
organization
theory
and
management science,
and a
para-
digmatic
locus of the
public
interest as it relates to
JULY/AUGUST 1975
383
PUBLIC ADMINISTRATION REVIEW
public affairs, public
administration at last is
intellectually prepared
for the
building
of an
institutionally
autonomous educational curriculum
that can
develop
the
epistemological uniqueness
of
the field. What that curriculum will be is
open
to
speculation,
but some trends seem to be
emerging.
One is that the field is
burgeoning.
Between 1970
and 1971
alone, undergraduate
enrollments in
public
administration increased 36
per cent,
and
between 1971 and 1972
graduate
enrollments
went
up
50
per
cent.2
A second trend is institutional. Public adminis-
tration
programs normally
still are
lodged
in
political
science
departments, although
this ar-
rangement clearly
is
declining.
In a
period
of one
academic
year (1971-72
to
1972-73), graduate
public
administration
programs
that were a
part
of
political
science
departments
sank
precipitously
from 48 to 36
per cent,
and those
programs
connected with business schools
(only
13
per
cent
in
1971) appeared
to be
declining
as well. On the
clear
upswing
were those
programs
that functioned
as autonomous units within the
university. During
the same
period,
the
percentage
of
separate
schools of
public
administration or
public
affairs
more than
doubled,
from 12
per
cent in 1971 to
25
per
cent in
1972; separate departments
of
public
administration (as opposed
to
separate
schools)
accounted for 23
per
cent of the 101
graduate programs surveyed
in 1972-73.2 6
How
public
administration is situated in univer-
sities determines to a
significant
extent what
public
administration is. With a
plurality
of
public
administration
programs
still
being
conducted in
political
science
departments,
we can infer that
political
science
currently
dominates the field
intellectually
as well as
institutionally;
in
brief,
the
arrangement represents
the fulfillment of Gaus'
statement on a
theory
of
public
administration
being simply
a
theory
of
politics. Unfortunately,
locating public
administration
programs
in
politi-
cal science
departments
has its costs. As
Eugene
P.
Dvorin and Robert H. Simmons
observe, "any
desire for extensive
experimentation" by public
administrationists
"may depend upon
the assent of
departmental colleagues"
in
political
science
who are
unreceptive
and insensitive to the administrative
phenomenon
in the
emerging
bureaucratic order. Under
such conditions their
power
of decision
making
exceeds
their
responsibility
for the
program....
Under such
conditions,
the
problems
of
public
administration are
compounded by
the traditional
disposition
of
political
science to itself assume an orthodox stance of value-free
scholarship.
It would be difficult, therefore,
to
expect
one
branch of
political
science to
radically depart
in its central
assumptions
from those
comprising
the
body
of its host
discipline.27
Similarly,
those
public
administration
programs
that are a
part
of business schools-the administra-
tive science
approach-are
limited in their
poten-
tiality
for
development.
Administrative science is
reflective of the earlier
paradigm
of
public
admin-
istration which was founded
upon
the notion of
certain immutable administrative
principles,
in
that both
paradigms represent essentially
technical
definitions of the field.
Politics, values,
normative
theory,
and the role of the
public
interest are not
salient concerns in the administrative science
paradigm, yet
it is
precisely
these concerns that
must be critical in
any intelligent
definition of
public
administration.
Hence, public
administration must borrow and
redefine in its own terms the
concept
of the
public
interest from
political science,
and
synthesize
this
concept
with the
methodologies
and bureaucratic
focus extant in administrative science. For all
practical purposes,
this
unique, synthesizing
com-
bination can be
accomplished only
in institutional-
ly
autonomous academic
units,
free of the intel-
lectual
baggage
that burdens the field in
political
science
departments
and administrative science
schools alike.
Fortunately,
the institutional trend in
public
administration
appears
to be
heading
in the direc-
tion of
establishing separate
schools of
public
affairs and
separate departments
of
public
adminis-
tration. The MPA and DPA
degrees
are
gaining
in
student
popularity,
and those academic
journals
concerned with
public policy, public
affairs,
and
the
public bureaucracy
are
flourishing
and
pro-
liferating.
A
major sign
of
public
administration's
growing independence
is the dramatic
growth
of
institutes of
government, public
administration,
and urban
affairs,
and various kinds of
public
policy
centers in universities. In an 18-month
period
between 1970 and
1972,
the number of
such units more than doubled to
approximately
300.28
It is time for
public
administration to come
into its own. Substantial
progress
has been in this
direction
intellectually.
For
perhaps
the first time
in
public
administration's 80
years
in a
quandary,
a tentative
paradigm
has been formulated for the
field that defines the
discipline's "specialized
what" and its "institutional where." This intellec-
tual
ripening
must not be allowed to wither in
institutional
settings
that are
unsympathetic-
JULY/AUGUST 1975
384
PARADIGMS OF PUBLIC ADMINISTRATION
perhaps
antithetical-to
public
administration's
new and vital
paradigm.
The use of the field to
society
seems
obvious, and,
in an
age
in which
higher
education
generally
is
suffering
from declin-
ing enrollments, public
administration
programs
are
turning away highly qualified applicants.
In
short,
the
social, economic, intellectual,
and
politi-
cal reasons for
public
administration to assert its
identity
and
autonomy
are there. It remains to be
done.
Notes
1. There are a number of recent
writings addressing
the
old
question
of "What is
public
administration?"
from a new
perspective. Representative published
works of
quality
include: James C. Charlesworth
(ed.), Theory
and Practice
of
Public Administration:
Scope, Objectives,
and Methods
(Philadelphia:
Amer-
ican
Academy
of Political and Social
Science,
October
1968);
Frank Marini
(ed.),
Toward a New
Public Administration: The Minnowbrook
Perspec-
tive
(Scranton: Chandler, 1971);
Richard J.
Stillman,
II, "Woodrow Wilson and the
Study
of Administra-
tion: A New Look at an Old
Essay,"
American
Political Science
Review, Vol. 67
(June 1973), pp.
582-588;
Vincent
Ostrom,
The Intellectual Crisis in
American Public Administration
(University,
Ala.:
University
of Alabama
Press, 1973); Dwight Waldo,
"Developments
in Public
Administration,"
in The
Annals
of
the American
Academy of
Political and
Social
Science, Vol. 404
(November 1972), pp.
217-245;
and Howard E.
McCurdy,
"The
Develop-
ment of Public Administration: A
Map,"
Public
Administration: A
Bibliography,
Howard E.
McCurdy (ed.) (Washington,
D.C.:
College
of Public
Affairs,
American
University, 1972), pp.
9-28. I
should state here that I am not
considering
the
sub-field of
comparative public
administration in this
article on the
grounds
that it has
developed
somewhat
independently
of its
parent
field.
2. And I
likely
am
using
it
inappropriately
in this
article.
Nevertheless, "paradigm" conveys
to most
people
what I want it to
convey;
to wit: How
mainstream
public administrationists have
perceived
their
enterprise during
the last 80 or so
years.
3. National Association of Schools of Public Affairs
and Administration
(NASPAA),
Public
Affairs
and
Administration
Programs:
1971-72
Survey Report
(Washington,
D.C.:
NASPAA, 1972), p.
1.
4. Robert T.
Golembiewski,
"Public Administration As
A Field: Four
Developmental Phases," Georgia
Political Science Association
Journal, Vol. 2
(Spring
1974), pp.
24-25.
5. Frank
Goodnow,
Politics and Administration
(New
York:
Macmillan, 1900), pp.
10-11.
6.
"Report
of the Committee on Instruction in Govern-
ment," Proceedings of
the American Political Sci-
ence
Association, 1913-14
(Washington,
D.C.:
APSA, 1914), p.
264.
7.
Dwight Waldo, "Public
Administration," Political
Science: Advance
of
the
Discipline,
Marian D. Irish
(ed.) (Englewood Cliffs, N.J.:
Prentice-Hall, 1968),
pp.
153-189.
8. The
high status of
public administration relative to
other kinds of studies in the administrative sciences
during
this
period
is reflected in Robert Aaron
Gordon and James E. Howell, Higher Education for
Business
(New York: Columbia
University Press,
1959), notably pp.
379-393.
9.
Lyndall Urwick, "Organization
as a Technical Prob-
lem," Papers
on the Science
of Administration,
Luther Gulick and L. Urwick
(eds.) (New York:
Institute of Public
Administration, 1937), p.
49.
10. John Merriman
Gaus, "Trends in the
Theory of
Public
Administration," Public Administration Re-
view, Vol. 10
(Summer 1950), p.
168.
11. For
example:
Robert A.
Dahl, "The Science of
Public Administration: Three Problems," PublicAd-
ministration
Review, Vol. 7
(Winter 1947), pp. 1-11;
Herbert A.
Simon, "The Proverbs of Administra-
tion," Public Administration
Review, Vol. 6 (Winter
1946), pp. 53-67,
and Administrative Behavior
(New
York: Free
Press, 1947);
and
Dwight Waldo, The
Administrative State
(New York:
Ronald, 1948).
12. Herbert A.
Simon,
"A Comment on 'The Science of
Public
Administration,' " Public Administration Re-
view, Vol. 7
(Summer 1947), p.
202.
13.
Lynton
K.
Caldwell, "Public Administration and the
Universities: A
Half-Century of
Development,"
Pub-
lic Administration
Review, Vol. 25
(March 1965), p.
57.
14. Roscoe
Martin, "Political Science and Public Admin-
istration-A Note on the State of the
Union,"
American Political Science
Review, Vol. 46
(Septem-
ber
1952), p.
665.
15. David
Easton, The Political
System (New York:
Knopf, 1953). Easton
pulled
no
punches
in his
appraisal
of the status of
political
science. As he
noted
(pp. 38-40),
"with the
exception
of
public
administration,
formal education in
political
science
has not achieved the
recognition
in
government
circles
accorded, say,
economics or
psychology." Or,
"However much students of
political life may seek
to
escape
the
taint,
if
they
were to
eavesdrop
on the
whisperings
of their fellow social
scientists, they
would find that
they
are almost
generally stigma-
tized as the least advanced."
16. Glendon A.
Schubert, Jr.,
"'The Public Interest' in
Administrative
Decision-Making,"
American Political
Science
Review, Vol. 51
(June 1957), pp.
346-368.
17. Martin Landau reviews this
aspect
of the field's
development cogently
in his "The
Concept
of
Decision-Making in the 'Field' of Public Administra-
tion," Concepts
and Issues in Administrative Be-
havior, Sidney Mailick and Edward H. Van Ness
(eds.) (Englewood Cliffs,
N.J.:
Prentice-Hall, 1962),
pp.
1-29. Landau writes
(p. 9), "public
administra-
tion is neither a subfield of
political science,
nor
does it
comprehend it;
it
simply
becomes a
syno-
nym."
18. Albert Somit and
Joseph Tanenhaus, American
Political Science: A
Profile of
a
Discipline (New
York:
Atherton, 1964), especially pp.
49-62 and
JULY/AUGUST 1975
385
PUBLIC ADMINISTRATION REVIEW
86-98.
19.
Dwight Waldo, "Scope
of the
Theory
of Public
Administration,"
in
Charlesworth, op. cit., p.
8.
20. Contrast this
figure
with the
percentage
of articles in
other
categories published during
the 1960-1970
period: "political parties,"
13
per cent; "public
opinion,"
12
per cent; "legislatures,"
12
per cent;
and
"elections/voting,"
11
per
cent. Even those
categories dealing peripherally
with "bureaucratic
politics"
and
public
administration
evidently
re-
ceived short shrift
among
the editors of the
major
political
science
journals. "Region/federal govern-
ment" received four
per cent,
"chief executives"
won three
per cent,
and
"urban/metropolitan gov-
ernment"
comprised
two
per
cent. As the author of
the
study notes,
"The conclusion is
inescapable
that
political
scientists in recent
years
have not
paid
much attention to the vast new
public
bureaucracies
emerging
at all levels of the American and other
Western
political systems
... in
practice,
if not in
theory,
our
discipline
still seems to
operate
as if the
bureaucracies ... were someone else's business." The
quotations
and
percentages
are in Jack L.
Walker,
"Brother,
Can You
Paradigm?" PS,
Vol. 5
(Fall
1972), pp.
419422. The
journals surveyed
were
American Political Science Review,
Journal of
Poli-
tics, Western Political
Quarterly,
Midwest Political
Science Journal,
and
Polity.
21. Keith M. Henderson, Emerging Synthesis
in Ameri-
can Public Administration
(New
York: Asia Publish-
ing House, 1966).
22. The
growing impact
of
organization development
(and the entire administrative science
paradigm)
on
public
administration is
aptly
indicated by
the recent
symposium
on the
topic
conducted
by
the Public
Administration Review. Of the six contributors to
the
symposium, only
two were associated with
political
science
departments,
and
only
one with a
public
administration unit. The
remaining
contribu-
tors were in administrative science, education,
and
psychology.
See: Larry
Kirkhart and Neely
Gardner
(co-eds.), "Symposium
on
Organization Develop-
ment,"
Public Administration Review, Vol. 34
(March/April 1974), pp.
97-140.
23.
Lynton
K. Caldwell, "Methodology
in the
Theory
of
Public Administration,"
in Charlesworth, op. cit.,
pp.
211-212.
24. Public administrationists,
in an effort to
distinguish
their field from
"private administration,"
have taken
a number of
differing
directions. Marshall Edward
Dimmock and
Gladys Ogden
Dimmock's Public
Administration (New
York:
Holt,
Rinehart and
Winston,
4th edition, 1969) perhaps
come closest to
a
philosophic
dimension in
defining
the
"public"
in
public
administration by
their discussion of an
"appreciation
of the
public"
and the
concept
of "the
common man"
(pp. 585-591).
Most textbooks in the
field, however,
either
rely
on an institutionally
formulated distinction between
"public"
and
"pri-
vate,"
or avoid the issue
by relating public
adminis-
tration to
political
science and the
public policy-
making process.
An
example
of the former is Felix
A.
Nigro
and
Lloyd
G.
Nigro's
Modern Public
Administration
(New
York:
Harper
and
Row,
3rd
edition, 1973).
The authors define
"public"
in terms
of their
"goldfish
bowl" thesis. As
they
state
(p. 15):
"... no
public organization
can ever be
exactly
the
same as a
private
one.... As has often been
said,
the
public
official
operates
in a
goldfish
bowl. ... Al-
though
the officials of a
private company
also have
important public contacts, they
are not
operating
in
a
goldfish
bowl." John M. Pfiffner and Robert
Presthus,
in their Public Administration
(New
York:
Ronald,
5th
edition, 1960),
also
rely
on institu-
tionally
based
thinking
when
they distinguish "pub-
lic" from
"private"
administration on the
grounds
that
public
administration "is
mainly
concerned with
the means for
implementing political
values" its
unique "highly legal framework,"
its
"susceptibility
to
public criticism,"
and its
inability
to "evaluate its
activities in terms of
profits."
Both texts are
operating
on variants of
Paradigm
1 in that there is a
clear locus
(or "public")
for the field which is
perceived
in institutional terms.
By contrast,
John
Rehfuss's Public Administration as Political Process
(New
York: Charles Scribner's
Sons, 1973);
James
W.
Davis, Jr.'s,
An Introduction to Public Adminis-
tration:
Politics, Policy,
and
Bureaucracy (New
York: Free
Press, 1974);
and Ira
Sharkansky's
Public
Administration:
Policy-Making
in Government Agen-
cies
(Chicago: Markham,
2nd
edition, 1972)
all
reflect a
Paradigm
3
perception
in that
public
administration is seen as
political
science.
Hence,
"public" in contrast to
"private"
is either
ignored
as
a distinction or its
legitimacy
as a distinction is
denied. Davis at least confronts this stance
directly
(p. 4) by stating that,
while the field is
broadly
interdisciplinary,
it nonetheless is
"patent
that this
book
represents only
the
political-science part
of
public administration,
not the
part
that would be
written
by
the economist or someone from a
business school."
Similarly, Sharkansky
observes
(p.
3)
that his book "concentrates on those
components
that
appear
to be the most relevant to the
political
process
and that have received the most attention
from
political
scientists." Rehfuss tends to toss in
the towel
by noting (pp. 220-221) that,
"Until the
relationship
between
public
and
private
administra-
tion is clarified
(if, indeed,
it ever can
be),
there is
unlikely
to be
agreement
on the
type
of
graduate
training."
25. As calculated from
figures
in
NASPAA, op.
cit.
(1971-72), pp. 1-2,
and
NASPAA,
Graduate School
Programs
in Public
Affairs
and Public Administra-
tion,
1974
(Washington,
D.C.: NASPAA 1974), p.
2.
26. NASPAA, op.
cit.
(1971-72),
Table
1, p. 105,
and
NASPAA, op.
cit.
(1974), p.
2.
27.
Eugene
P. Dvorin and Robert H.
Simmons,
From
Amoral to Humane
Bureaucracy (San
Francisco:
Canfield, 1972), pp.
52-53.
28. Grace M. Taher (ed.), University
Urban Research
Centers,
1971-1972
(Washington,
D.C.: The Urban
Institute,
2nd edition, 1971), p.
i.
JULY/AUGUST 1975
386