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Transcript of Model tradional manajemen publik.ppt
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1
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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Early public administration
Europe
Greek, Roman, Holy Roman, Spanish, etc.
controlled from center by rules and procedures
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Early public administration
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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Early public administration
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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Emergence of the Traditional Public
Administration Model (TPA)
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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Emergence of the Traditional Public
Administration Model (TPA)
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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Emergence of the Traditional Public
Administration Model (TPA)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Bureaucratic management (BM)
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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Scientific management (SM)
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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Scientific management (SM)
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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Scientific management
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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Scientific management
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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Scientific management
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 management
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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Administrative management
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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Administrative management
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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Administrative management
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 management
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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Key Principles of the Traditional Model
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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Key Principles of the Traditional Model
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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Challenges to the Traditional Model
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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Challenges to the Traditional Model
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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Challenges to the Traditional Model
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