Model tradional manajemen publik.ppt

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The Traditional Model of Public

Administration (TMPA)



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Lecture Outline

Introduction

Early Public Administration

The emergence of the Traditional Approach of Public

Administration Traditional Approach key theories

The Bureaucratic Management

The Scientific Management

The Administrative Management The weaknesses of the traditional model



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Introduction

Traditional approach of Public Administration was once a

major reform movement in its days

Began in the late C19th and formalized between 1900-20

and lasted till 1970-80s

Major contributors:

Woodrow Wilson

Taylor

Max Weber

Gulick and Urwick Fayol

Longest standing and most successful theory of

management in the public sector



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Introduction

Transformed from amateurs bounded by personal

loyalty to professional occupation in administering public

organizations

People work best when acting according to the law and

precedents

An operative of government in the hands of permanent

officials



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Introduction

Key features of the traditional model:

An administration under the formal control of the political

leadership

Based on strictly hierarchical model of bureaucracy Staffed by permanent, neutral and anonymous officials

Motivated only by the public interest

Serving any government party equally

Merely confining to administering of those policiesdecided by the politicians



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Early public administration

It existed in most civilization before the advent of the

„traditional model‟

Gladden(1972): Administration has existed ever since

there have been governments Egypt

administer irrigation from Nile and Pyramids

China

Han Dynasty (206 BC to 220 AD)

Based on Confucian percept that the government:

should run by men chosen, not by birth but by virtue and

ability



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Europe

Greek, Roman, Holy Roman, Spanish, etc.

controlled from center by rules and procedures



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US - 19th Century

“Spoils system”

political patronage in appointments:

corruption, inefficiency, and the emergence of a classof politicians – “spoils men”

growing conflicts between executive and legislature

over appointments

growing demands from office-seekers, particularlyfollowing elections



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Key features of early public administration

personal,

traditional,

particularistic (based on loyalty to a particularindividual: king or minister)

patronage and nepotism

corruption and misuse of office



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Emergence of the Traditional Public

Administration Model (TPA)

UK 1854

Northcote-Trevelyan Report

The public service should be carried out by: a carefully selected body of young men who have been

through a proper system of examinationUS 1883

Civil Service Act (the Pendleton Act)

Competitive exams

Level of appointment based on grade secured inexamination

Probation, apportion at Washington based on population

of different states and areas



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Germany (Europe)

Theory of Bureaucracy:

a distinct, professional public service,

recruited and appointed by merit,

politically neutral, which would remain in office

throughout changes in govt.



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Key contributors:

F. W. Taylor (1911)

Scientific Management (inside the administrative system)

Standardizing work – one best way of working

Controlling so extensively and intensively

Incentive wage system

Henri Fayol (1841-1925)

Managerial functions(6),

Principles of administration(14)



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Woodrow Wilson (1886)

Professor at Princeton, key activist in reform

movement

Politics/administration dichotomy

Max Weber (1864-1920)

Bureaucracy



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Traditional Approach theories

Three important theories

1. Bureaucratic Management

the agency and rules

2. Scientific Management the men,

methods and equipment,

pay systems

ONE BEST WAY3. Administrative Management

the structure and functions



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Bureaucratic management (BM) Most influential theory in traditional PA

Looks at the organization as a whole and is based upon:

firm rules,

policies and procedures

a fixed hierarchy and

a clear division of labor with appointments basedon merit

The bureaucracy is an important institution in facilitatingcapitalism as it is based on rationality and efficiency

Main contributors are: Max Weber and Woodrow Wilson



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Bureaucratic management (BM)

Max Weber

Authority and its Legitimacy

the prime basis of his theory

emphasized the importance of the concept of authorityand its legitimacy

it must be based on the perception of legitimacy

The 3 modes of authority:

Charismatic authority based on personality and hypnotic power of individual

leader



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Traditional Authority

based on belief in the sanctity of tradition

it inheres in a particular individual who may have

either inherited it or be invested with it by ahigher authority

Rational-legal Authority

based on rational grounds and anchored in

impersonal rules that have been legally enactedor contractually established.

The law is supreme.



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Principles of Bureaucracy

Weber sets out six principles for modern system of

bureaucracy, deriving from the idea of rational-legal

authority

1. The principle of fixed and official jurisdictional areas,

which are generally ordered by rules, that is by laws

and administrative regulations

2. The principles of office hierarchy and levels of graded

authority



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3. The management of the modern office is based upon

written documents, which are preserved

Bureaucracy segregates official activity as something

distinct from the sphere of private life.

Public monies and equipment are divorced from the

private property of official.

4. Office management, at least all specialized office

management should be distinctly modern and based on

expert training5. When office is fully developed, official activity demands

full working capacity of the official – full time job



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6. The management of office follows general

rules, which are more or less stable, more or

less exhaustive, and which can be learned



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The Position of the Official

Office holding is considered a vocation, following

examinations and rigorous course of training

Entrance into office is considered:

an acceptance of a specific obligation of faithfulmanagement in return for a secure existence

no rent-seeking attitude



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Weber describes the position of the official as:

the modern official always strives and enjoys a

distinct

social esteem as compared with the governed

he is appointed by a superior authority

the position is held for life

have the legal guarantees against arbitrary dismissal

or transfer to ensure objective discharge of their duties



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he receives regular compensation like a:

fixed salary and

the old age security provided by a pension.

Salary is based on status/rank/grade and length of

service

he is set for a “career” within the hierarchical order

and moves from lower to higher position (eg. MoT)



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Weber considers the bureaucracy as efficient because

of its:

precision,

speed,

consistency,

availability of records,

continuity,

possibility of secrecy,

unity,

rigorous coordination and minimization of interpersonal

friction, and costs.



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Woodrow Wilson

Three main aspects of political control

1. Clear relationship of accountability and responsibility

A department has two main roles: To provide advise and review and implement policies;

To manage resources

Public servants are technically accountable through the

hierarchy order2. Strict separation of policy and administrative matters

3. Administration is anonymous and neutral



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Politics and administration dichotomy

A strict separation of politics from administration

Administration is about the execution of law

Enhances professionalism and merit Allows a specific study of public administration

The best way to control corruption and arbitrary

decisions



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Parliamentary countries

Wilson‟s principle mainly applied to parliamentary

countries

Politicians make policy decisions for public servants to

administer

Political matters are handled by politicians

Administrative matters are handled by public servants



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Features

rules

impersonality division of labour

hierarchy

authority structure

lifelong commitment rationality

Focus

• wholeorganisation

Benefits • consistency• efficiency

Drawbacks • rigidity• slowness



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Scientific management (SM)

Developed, and became famous, through the work of

Fredrick Taylor (1911)

A renowned theory in early years of the 19th century

He criticized the methods of traditional management as:

Subjective or intuitive evaluation.

Decision were based on feelings, opinions and traditional

past experience

Jobs were preformed by rules of thumb, rather than

standard times, methods, or motions



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The prevalent practices were assumed to be correct and

no efforts were made to introduce new techniques of

management

Training at least, was under an apprentice system and

no formal techniques of skill development existed Taylor was interested in replacing the TM with SM

by:

developing the most scientific and rational principles for

handling people, machines, materials, and money to secure maximum benefits for the employers as

well as the employees



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Taylor‟s objectives were to:

point out the great loss through inefficiency in almost all of

our daily acts

convince that the remedy for inefficiency lies in systematic

management, not an unusual or extraordinary man

to prove that management is a science, resting upon:

clearly defined laws,

rules and principles,



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Scientific management

Principles of Scientific Management

Taylor offered four (4) principles as the basis for SM:

1. Develop a science for each element of an individual‟swork by breaking every job into its elements

2. Scientifically select, train, and develop the worker3. Cooperate with the workers to ensure that all work is

done in accordance with the scientific principles

4. Divide work and responsibility equally between

managers and workers. Management should: design the work,

setup and supervise the work and

the workers are free to perform the work



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Important Contributions

Time and Motion Studies

to establish appropriate standards for task

performance

Wage - Incentive System

More wages when task is performed according to

specifications within the allotted time

Ordinary wages if the time allotment is exceeded



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Mental Revolution

For Taylor, SM is more than „a series of expedients to

increase efficiency

It requires a „mental revolution‟ to science

experimentation for both management



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Impact on Public Sector Management

Taylor believes that scientific management could be

applied to the public sector

In his judgment, the average public employee did little

more than one-third to one-half of a good day‟s work‟

It offers an effective and efficient way to operate

government organizations

The ideas of „one best way‟ and systematic control

were a perfect fit with the rigid hierarchy, process, and

precedents



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Scientific features

training routines and

rules

„one best way‟ financial motivation

Focus

worker

Benefits • productivity• efficiency

Drawbacks • overlooks socialneeds



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Administrative management

Administrative Management focuses on the managers

and the functions they perform

Also known as functional or process approach

Primarily based on the ideas of Henri Fayol (1841-

1925)

Some other notable contributors include:

Mary Parker Follet (1868-1933)

Luther Gullick and Lyndall Urwick



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Fayol proposes 6 separate interdependent areas ofmanagement responsibilities:

1. Technical operations concerned with producing

2. Commercial operations: purchasing and selling

3. Financial operations: acquiring and allocating capital4. Security operations: safety of goods and people

5. Accounting operations: recording of costs, profits,

liabilities, assets, preparing balance sheets

6. Managerial operations. defined in terms of five (5) functions



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Planning

draw up plans of actions

Organizing

build up the structure of the undertaking

Commanding

maintain the activity among the personnel

Coordination

bind together, unify and harmonize activity and effort Control

see that everything occurs in conformity with policy and

practice



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7. Remuneration of staff

8. Centralization

9. The scalar chain/line of authority

10. Order11. Equity

12. Stability of staff

13. Initiative

14. Esprit de corps



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Administrative features

defining of management

functions

division of labour

hierarchy

authority

equity

Focus manager

Benefits • clear structure• rules

Drawbacks • doesn’t considerenvironment• emphasis onmanagers’ behaviour



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Key Principles of the Traditional Model

Lane 1993:

The tasks of public institutions are to be decided by

politicians but executed by administrators

Administration is based on written documents

Public tasks are organized on a continuous, rule-

governed basis

The rules according to which work is conducted may be

either technical or legal. In both cases, trained

individuals are necessary



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The tasks or functions are divided into functionally

distinct sphere, each furnished with the requisite

authority and sanctions

Offices as well as tasks, are arranged hierarchically;

there is a preference for centralization

The resources of the organization are quite distinct from

those of the members, as private individuals and the

office holder cannot appropriate their office for private

aims



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In the public sector there is one dominating interest, the

public interest, which sets limits on the influence of self-

interest in politics and administration

Public employees are expected to have a vocation or a

sense of duty to fulfill the obligations of their roles



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Challenges to the Traditional Model

The clear distinction between politics and administration

is inappropriate and impractical

Relationship between politicians and bureaucrats is

complex and fluid

Administrators influenced political outputs

Does not reflect managerial roles of bureaucrats

The work of public servants are fundamentally political



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One best way

Following the procedures manual

Limited initiative and creativity

No responsibility for results In reality there is not „one best way‟ only „many

possible answers‟ (Behn 1998)



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The emphasis on rules overrides results and ends

Effectiveness and goal achievement are moreimportant

Bureaucracies only work when bending the rules

Decentralization works better than centralization Public officials tend to motivate more by their self-

interest rather than the public interest

Employment for life

does this mean an employee cannot be firedregardless of poor performance



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Political neutrality

Public officials do what they want instead of the wishes of

the elected government

The bureaucracy as a distinct elite is now a myth



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Summary

Traditional

ModelCriticisms NPM

Bureaucracy

Administrative

Scientific

Early

AdministrationCriticisms

Model tradional manajemen publik.ppt

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