Scope of Public Administration
The scope of public administration deals with the extent and boundaries of administrative
study and practice. It examines what public administration covers, what activities are
included, and what skills and knowledge are required to manage public organizations
effectively. In this section, we will study the different perspectives on the scope, primarily the
Managerial View and the Subject Matter View. We will also explore the contributions of
prominent scholars, their definitions, and frameworks, and understand why the managerial
approach is considered foundational in the study of public administration.
1. Managerial View
The managerial view defines public administration primarily as a set of managerial tasks
performed by administrators. It focuses on the techniques, functions, and processes used to
manage public organizations efficiently. This approach emphasizes how administration is done
rather than what is administered. Scholars supporting this view argue that administration is
universal, meaning the principles can be applied across different organizations regardless of the
type of service.
Henri Fayol
Henri Fayol described public administration as being comprised of five major functions, which
form both logical categories and practical steps in the administrative process. According to
Fayol, these functions are essential for effective management in any organization.
Functions of Fayol:
• Planning: Preparing for future tasks and deciding the methods to accomplish them
• Organization: Arranging resources and defining authority for effective operations
• Command: Directing and guiding employees to achieve objectives
• Coordination: Harmonizing activities to avoid conflict and duplication
• Control: Monitoring performance to ensure objectives are met
L. Urwick
L. Urwick supported Fayol’s view and emphasized that administrative principles are universal.
He highlighted that management techniques could be applied in both government and
business organizations. Urwick reinforced the idea that administration can be studied, taught,
and improved scientifically.
P. Maqueen – “Three Ms”
, According to Maqueen, public administration consists of Men, Material, and Methods.
• Men: Human resources involved in administration
• Material: Physical and financial resources used
• Methods: Procedures and techniques applied
This shows that administration is essentially about managing people, resources, and processes
efficiently.
Professor Willoughby
Professor Willoughby also contributed in this regard and considered Fayol’s and his followers’
views too abstract to understand. He divides his well-known work, The Principles of Public
Administration, into five sections:
1. General or overall administration – broad principles guiding administrative action
2. Organization – structuring authority and dividing work efficiently
3. Personnel administration – managing human resources including recruitment, training,
and performance
4. Material and supply – procuring and managing physical resources
5. Finance – budgeting, financial control, and allocation of resources
Luther Gulick – POSDCORB
Luther Gulick summarized the seven core managerial activities in public administration using
the acronym POSDCORB:
• Planning: Preparing broad outlines and methods to accomplish tasks
• Organizing: Structuring authority and arranging sub-divisions
• Staffing: Recruiting and maintaining suitable personnel, improving morale and
performance
• Directing: Issuing orders and providing guidance to staff
• Coordinating: Harmonizing different parts of work to prevent overlap, conflict, or
wastage
• Reporting: Keeping superiors and subordinates informed through inspection, research,
and data
• Budgeting: Financial administration and resource allocation
Criticism of Managerial View
While the managerial view emphasizes techniques and processes, critics argue that it is too
narrow, focusing only on common administrative tasks and ignoring the specific content or
subject matter of government work, such as education, law enforcement, health, or social
welfare.
The scope of public administration deals with the extent and boundaries of administrative
study and practice. It examines what public administration covers, what activities are
included, and what skills and knowledge are required to manage public organizations
effectively. In this section, we will study the different perspectives on the scope, primarily the
Managerial View and the Subject Matter View. We will also explore the contributions of
prominent scholars, their definitions, and frameworks, and understand why the managerial
approach is considered foundational in the study of public administration.
1. Managerial View
The managerial view defines public administration primarily as a set of managerial tasks
performed by administrators. It focuses on the techniques, functions, and processes used to
manage public organizations efficiently. This approach emphasizes how administration is done
rather than what is administered. Scholars supporting this view argue that administration is
universal, meaning the principles can be applied across different organizations regardless of the
type of service.
Henri Fayol
Henri Fayol described public administration as being comprised of five major functions, which
form both logical categories and practical steps in the administrative process. According to
Fayol, these functions are essential for effective management in any organization.
Functions of Fayol:
• Planning: Preparing for future tasks and deciding the methods to accomplish them
• Organization: Arranging resources and defining authority for effective operations
• Command: Directing and guiding employees to achieve objectives
• Coordination: Harmonizing activities to avoid conflict and duplication
• Control: Monitoring performance to ensure objectives are met
L. Urwick
L. Urwick supported Fayol’s view and emphasized that administrative principles are universal.
He highlighted that management techniques could be applied in both government and
business organizations. Urwick reinforced the idea that administration can be studied, taught,
and improved scientifically.
P. Maqueen – “Three Ms”
, According to Maqueen, public administration consists of Men, Material, and Methods.
• Men: Human resources involved in administration
• Material: Physical and financial resources used
• Methods: Procedures and techniques applied
This shows that administration is essentially about managing people, resources, and processes
efficiently.
Professor Willoughby
Professor Willoughby also contributed in this regard and considered Fayol’s and his followers’
views too abstract to understand. He divides his well-known work, The Principles of Public
Administration, into five sections:
1. General or overall administration – broad principles guiding administrative action
2. Organization – structuring authority and dividing work efficiently
3. Personnel administration – managing human resources including recruitment, training,
and performance
4. Material and supply – procuring and managing physical resources
5. Finance – budgeting, financial control, and allocation of resources
Luther Gulick – POSDCORB
Luther Gulick summarized the seven core managerial activities in public administration using
the acronym POSDCORB:
• Planning: Preparing broad outlines and methods to accomplish tasks
• Organizing: Structuring authority and arranging sub-divisions
• Staffing: Recruiting and maintaining suitable personnel, improving morale and
performance
• Directing: Issuing orders and providing guidance to staff
• Coordinating: Harmonizing different parts of work to prevent overlap, conflict, or
wastage
• Reporting: Keeping superiors and subordinates informed through inspection, research,
and data
• Budgeting: Financial administration and resource allocation
Criticism of Managerial View
While the managerial view emphasizes techniques and processes, critics argue that it is too
narrow, focusing only on common administrative tasks and ignoring the specific content or
subject matter of government work, such as education, law enforcement, health, or social
welfare.
