9/15/2013

PA-301: COMPARATIVE PUBLIC ADMINISTRATION

Lecture: One

History, Meaning and Significance of CPA

Md Shahidulla Kaiser Lecturer Department of Public Administration University of Chittagong E-mail: kaiser2cu@gmail.com

What do we understand from the previous pictures???

Any guess? What is the visible benefit of Comparison? Are we familiar with the tendencies of making comparison in our daily life? If it is yes!. Then how comparison might look like in the study of Public Administration????

Why Comparison?
Part of our psychological makemake-up to compare ones performance with that of others (Bannister, 2007) An orderly comparison is needed when you present a systematic explanation (Arora, 1972) NonNon-comparative or adad-hoc description and explanation adds relatively little to the scientific development of a discipline(Arora discipline 1972). Comparison is the only laboratory open to most social scientists(Peters, 1996,:15) Comparison is fundamental to all human thoughts. . . . It is the methodological core of the humanistic and scientific method as well (Almond et al. 2000, 13) In his famous article The Study of Public Administration, in 1887, Woodrow Wilson declared, Of ourselves, so long as we know only ourselves, we know nothing.

Comparative Elements in Early Administrative Theory

Public Administration as an aspects of Government activity has existed ever since the emergence of political system Even Max Weber also used comparative approach to study the legal rational authority of bureaucratic model. Comparison is continuous process since Aristotles Politics In 1887, Woodrow Wilson in his famous article The Study of Administration emphasized the need for comparative studies of administration. He emphasised nowhere nowhere else in the whole field of politics........................., can we make use of the historical, comparative method more safely than in the province of administration administration (Wilson, 1887) Wilson (1887) argued certain administrative practises of Europe could be borrowed by the United States.

Comparative Elements in Early Administrative Theory

Eaton proposed the introduction of British Personnel practises in the United States. Taylors Scientific Management influenced the American Administrative System. Its one best way was applied in Soviet Union by Lenin. White (1926) and Willoughby (1927) both adopted management approach to public administration and showed interest to build a science of administration through the articulation of certain universal principles of administration In 1947, Robert Dahl in his essay The Science of public Administration: Three problems called for more research on Comparative public Administration. He declared that as as long as the study of public administration is not comparative, claims for a science of public administration sound rather hollow (Dahl, 1947: 8)

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Why it was essential to study Public Administration from Comparative Perspectives?

The study of Public Administration before WWII was culture bound, i.e. it was limited to the study of western nations and institutions. It was non-comparative in character because despite the study of governments of several nations within the same cultural framework, cross-cultural, crosstemporal analysis and explanation was rare. (Basu, 2004: 392) Many students of Public Administration began to realise that the traditional approaches in PA is too rigid and too narrow.

History of Comparative Public Administration or CPA

The WWII provided scopes to the American scholars to study the administrative system of countries in Europe and Asia (Haque, 2010) This was also part of US government initiatives to reconstruct the post war economies in the prescription of Marshall Plan and Point four Programme. In 1952, first conference on Comparative Administration was held in Princeton University organized by Public Administration Clearing House. Nimrod Raphaeli endorsed this conference as the starting point of studying CPA in USA. In1953, American Political Science Association (APSA) had a committee on Comparative Administration. Comparative Administration Group (CAG) was appointed by American Society for Public Administration (ASPA), F.W. Riggs was the Chair of the group. Section for Comparative and International Administration (SCIA) is the current status of CAG under ASPA (Heady and Stokes, 1962)

History of Comparative Public Administration

The emergence of CPA as a field is linked to the process of decolonization and the expansion of nation-states. CPA in its origins attempt to help in developing the administrative practice of developing nations. CPA was a cold war strategy to contain communism. CPA as a field became almost irrelevant after financial support dried out because it could not established itself. CPA shifted from the development practice into academic debate. Changes around the world (foreign debt, neoliberalism, etc.) offer a great opportunity for the revival of the field.

History of CPA
Jreisat, using Ryans (1994) ideas, identifies three stage of CPA Imperialist Missionary (Post WW II-1960s) Anti-parochial, Antiethnocentric (19701980) Interdependence (1980s-Present) Heady argues that CPA started as a field focusing of development administration The 1970s was a decade of retrenchment. Financial support dried out. Scholars begin reappraising the field. Shift from technical assistance to action-goal oriented practice

What is Comparative Public Administration (CPA)?

Public Administration itself faces problem in getting a unified definition. Comparative Public Administration is a branch of Public Administration. This already implies that there is little point trying to draw strict dividing lines between comparative public administration proper and some aspects of, say, European studies or of comparative law or of healthcare administration ( Pollitt, 2011: 115). The another problem of defining CPA is its substantive content. What are the issues in the Public Administration that are qualified for Comparison? Two aspects should be considered before defining the CPA: Focusing the public organizations rather than private and should emphasise on inter-cultural comparison rather than intra-cultural comparison. (Quah, 1979). Then what about International Organizations??? Like UN, OECD or WB. Aren't they play more important roles in the current globalised world?? Increasingly, comparativists need to incorporate a transnational as well as an inter-national dimension to their analyses (Pollitt, 2011). Pollitt also asserted that CPA does not require any methodological or theoretical apparatus in order to be classified as Comparative)

What is Comparative Public Administration (CPA)?

Nimrod Raphaeli asserted CPA as a study of Public Administration on a comparative basis (Raphaeli, 1962:22). Riggs restricted Comparative studies in the Public Administration to those studies that are empirical, momothetic and ecological. However Quah criticized the definition of CPA by Riggs as it is too narrow and excludes normative and idiographic studies CPA is the comparative study of institutions, process, and behaviors in many context. Context (or environment in comparative analysis generally refers to all external influences that affect management, such as societal values, norms, religion, political culture, and economy. Jreisat (2002: 1)

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CPA definition continues....

CAG defined CPA as the theory of public administration as applied to diverse cultures and national settings and the body of factual data, by which it can be expanded and tested (cited in Heady) However according to Quah the definition of CAG focus on intercultural or cross-cultural comparison but overlooked its focus on public organization. Robert Jackson defined CPA as that facet of the study of public administration which is concerned with making rigorous crosscultural comparisons of the structures and processes involved in the activity of administering public affairs.

What is Comparative Public Administration (CPA)?

Comparative public administration (CPA) is the study of administrative concepts and processes across organizations, nations, and cultures. The main concern of CPA is not only to recognize similarities and differences among administrative systems and functions, but also to establish general patterns and to discover and define successful or unsuccessful practices (Heady 2001; Jreisat 2002). In sum, CPA in simple terms refers to a comparative study of government administrative systems functioning in different countries in the world. CPA cannot be disentangle from politics. Politics is a key intervening variable. Thus, cross comparison of different political structure become essential to advance the knowledge and practice of Public Administration.

Characteristics of CPA
CPA is relatively new study in the field of Public Administration that emerged after WWII. CPA in its pre-paradigmatic stage and still do not have any paradigm. CPA is empirical, nomothetic and ecological CPA was dominated by American scholars and practitioners. CPA emphasised on theory building and development administration.

What is Comparative Public Administration (CPA)?

Public Administration itself faces problem in getting a unified definition. definition Comparative Public Administration is a branch of Public Administration. So it is very unlikely to get a unanimous definition for CPA as well. Two aspects should be considered before defining the CPA: Focusing the public organizations rather than private and should emphasise on inter-cultural comparison rather than intracultural comparison(Quah, 1979). Nimrod Raphaeli asserted CPA as a study of Public Administration on a comparative basis(Raphaeli, 1962:22). F.W. Riggs restricted Comparative studies in the Public Administration to those studies that are empirical, momothetic and ecological (Riggs, ) However Quah criticized the definition of CPA by Riggs as it is too narrow and excludes normative and idiographic studies

WHAT IS CPA?
CPA is the comparative study of institutions, process, and behaviors in many context. Context (or environment in comparative analysis generally refers to all external influences that affect management, such as societal values, norms, religion, political culture, and economy. Jreisat (2002: 1)
In sum CPA cannot be disentangle from politics. Politics is a key intervening variable. Thus, cross comparison of different political structure become essential to advance the knowledge and practice of PA. Are bureaucracies the same among political systems, operating under a capitalist political economy and a democratic system? Example: USA vs. Canada Do public administrators behavior vary under different political systems with the same level of development ? Example: India vs. China What role does PA play under different political economies (market vs. command)? Example: USA vs. former USSR

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CPA definition continues....

CAG defined CPA as the theory of public administration as applied to diverse cultures and national settings and the body of factual data, by which it can be expanded and tested (cited in Heady) However according to Quah the definition of CAG focus on inter-cultural or crosscultural comparison but overlooked its focus on public organization. Robert Jackson defined CPA as that facet of the study of public administration which is concerned with making rigorous cross-cultural comparisons of the structures and processes involved in the activity of administering public affairs. Comparative public administration (CPA) is the study of administrative concepts and processes across organizations, nations, and cultures. Th e main concern of CPA is not only to recognize similarities and diff erences among administrative systems and functions, but also to establish general patterns and to discover and defi ne successful or unsuccessful practices (Heady 2001; Jreisat 2002).

Characteristics of CPA
CPA is relatively new study in the field of Public Administration that emerged after WWII. CPA in its pre-paradigmatic stage and still do not have any paradigm. CPA is empirical, nomothetic and ecological CPA was dominated by American scholars and practitioners. CPA emphasised on theory building and development administration.

CPA AS A PROFESSIONAL PRACTICE

CPA has been closely linked with international development agencies such as USAID. The objective was to help developing countries to catchup with the developed world by improving the practice of the public sector. The professions faith went hand in hand with the commitment of developed nations to international development. The fact that most developing nations have failed to make the leap into the league of developed nations and, many are failed states, put into question the professional practice of public administrators.

Level of Analysis
There are three analytical levels of Comparative Public Administration (Basu, 2004: 393) Macro level (Whole Administrative System: For example, comparison between India and Great Britain. This is rare but not impossible) MiddleMiddle-range (Certain parts of Administration: Comparison of Local Government system between two or more nations) Micro level (Comparison for individual or small parts of Administration: For example, comparing the recruitment or training system of a administration)

Approaches to the study of Comparative Public Administration

Riggs presented three trends in the study of CPA 1. From normative to empirical approach (Riggs, 1962: 10-11) 2. From ideographic to momothetic approach (Riggs, 1962: 12) 3. Non-ecological approach to ecological approach (Riggs, 1962)

Significance of CPA
Heady () pointed three reasons for comparison in the study of Public Administration CPA is an important prerequisite for the development of science of Public Administration CPA would help to increase international cooperation as a result of the increase in knowledge and understanding of the various administrative systems in the world CPA provided necessary data to consider the feasibility of adopting or adapting certain administrative devices used in foreign countries for their own country

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Significance of CPA
Nimrod Raphaeli said Learn distinctive characteristics of particular administrative systems Identify the social, cultural and political factors in determining the success and failure certain administrative features Explain the differences in the behaviour of bureaucracy and bureaucratic systems What to be done to improve the performance of bureaucracy

Significance of CPA
Quah summarized the above mentioned reasons with the inclusion of their thinkers CPA is significant in the development of a science of Public Administration Two more practical reasons
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To help students, practising administrators , specialists, technical assistance experts know and understand more about public administration in other countries (Thicker, Heady and Raphaeli) To consider the possibility of administrative reforms viceversa (Wilson, Heady, Thicker and Raphaeli)

Significance of CPA
Basu (2004: 393) The study of Comparative Public Administration contributes to a greater understanding of individual characteristics of administrative system functioning in different nations and cultures. Comparative studies also help in explaining factors responsible for crossnational and cultural similarities as well as difference in the administrative systems. Administrators, policy-makes and academicians can examine causes for the success or failure of particular administrative structures and patterns in different environmental setting We learn about the administrative practices followed in various nations. We can endeavour to adopt those practices which can fit in our own nations and systems.

Scope/Range of Comparative Public Administration (CPA)

Just like the scope of Public Administration, the scope of Comparative Public Administration is in doubt, though the ubiquity is not. However, attempts have been made at setting the scope, with scholars arguing that it studies public administrative system of a country or a culture and of different countries and cultures. Yet the scopes of CPA is broad. The scope of Comparative Public Administration seems to generate considerable debate. Thompson even proposed to include Comparative Private Administration The scope of CPA is increasing. The comparative emphasis has been shifted from Structures and Intuitions to Functions and Process (Singh, 2012: 328) There are five types of range in the study of Comparative Public Administration Inter-institutional Analysis: Intra-national Analysis: Cross-National Analysis: Cross-cultural Analysis: Cross-temporal Analysis

Scopes of CPA
Chandler (2000) provided the following parameter to determine the scopes of CPA Political Culture The Constitutional Framework The Civil Service Central Government Agencies Federal and Local Government Agencies Financing the system Coordinating the system Managing the system Accountability, Secrecy and Openness Democracy and the administrative system

Scope: Woodrow Wilson in his essay Study of Administration expressed the view that comparative studies were necessary. To see whether administrative processes in the us were relevant or applicable to other countries. To see whether any administrative institution or practices can be transplanted from other countries to the U.S administration.