United Nations General Assembly, Second Committee
Panel Discussion on
Challenges and Changes in Public Administration around the World
1 November 2001
Challenges in Public Administration from Developing Nations
O. P. Dwivedi, Professor,
Department of Political Science
University of Guelph, Canada
I. Development administration: lineage and challenges
When a developmental creed emerged in the West, it posited that in order to attain development,
a country’s administrative structure should conform to the standards of the most advanced
industrial societies. The key issue, then, was the transformation of the existing traditional
machinery into the new entity. This was to be accomplished through administrative
development: the modernization of the public service machinery through external inducement,
transfer of technology, and training by so-called foreign experts. For this task, various
prescriptive models were advocated by the Western experts. This tradition was based on the
dichotomy between politics and administration; it was a system that relied on hierarchy, unity of
command, political neutrality, recruitment and promotion on the merit principle, public service
accountability, objectivity, and probity.
In reality, these principles were to work side by side with the existing indigenous cultures and
traditional values. Thus, a parallel value system gained currency along with the Western models.
For example, when the NPM movement prescribed a ‘leaner but meaner state’, which meant that
public servants everywhere would be better trained, more professional, more globally-minded,
more ethical, more productive, more prone to serve customers, and more responsive to business
groups’ demands in general. And of course, as the argument goes, a smaller civil service would
result in better remuneration, thus eliminating opportunity as well as enticement for corruption.
Based on this premise, the state was to retreat. However, the gap thus created was to be filled by
a matching progress in civil society and the private sector. Instead, poverty, civil strife, and other
problems ensued; and a “true” governing system never materialized. While the West was
celebrating the “retreat of the State”, deprivation grew at an alarming rate in many developing
nations. Corruption increased, and civil society as well as social capital deteriorated. In reality
the effect was that practices, styles and structures of administration generally unrelated to local
traditions, needs and realities succeeded in reproducing the symbolism, but not the substance of,
for example a British, French or American administrative system.
Confronted with an ineffectual developmental bureaucracy and governing institutions, the
Western solution was to call for even more administrative reforms. Thus, the most important
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challenge before these countries was what to do, and how much to make their own administrative
system imitative and ritualistic in order to get international aid and appreciation from the West.
It is now acknowledged that such an imitative system has not worked well. What happened?
1. For years, the Western scholars have been unable to include the alternatives in the form of
non-Western contributions to developmental studies. Ignorance in the West has continued to
overshadow the need to appreciate the importance of indigenous culture, traditions and style
of governance, their administrative styles, which reflect the distinctiveness and complexity of
their various national identities, as well as realities and cultural diversities. These factors
must be taken into consideration when public service reforms and aid-related conditions are
being imposed. For example, we do know that in developing nations, the nature of public
expectations from their governments is basically different from those prevailing in the West;
and thus it is sometimes counter-productive to force debureaucratization and privatization in
the South.
2. The outer layers of each nation’s style of governance are directly affected by current
circumstances and global challenges. The paradox is that, while demands on the public sector
to provide more services are growing, the state apparatus in developing nations is being
forced to shrink and retreat. Instead, developing nations are being compelled to follow the
costly fads in the industrialized nations. We also know that any profound administrative
reform entails significant attitudinal and value changes, which are based on local culture and
traditions. Thus, efforts at administrative restructuring, “modernization”, and bringing other
types of reforms must address first, either directly or indirectly, the question of the
indigenous style, values and culture of governance (Nef, 1998).
From this author=s viewpoint, a country=s culture and style of governance are the key to the
understanding of what makes a country function, it is imperative that any public sector reform
forced upon on developing nations draws on the local customs, culture and traditions. When the
local culture and traditions are discarded in the favour of Western-style management practices,
and when there is not enough time given to these nations to see if such a transplantation has
already taken root in the body politic, a hodgepodge of two value systems starts operating
simultaneously with no specific standards against which effectiveness of that administrative
system, as well as the conduct of public officials, could be measured. Such standards in the past
have been drawn from the purely mono-cultural perspective of the North. Instead, an inclusive
and multi-cultural mixture of alternate medicine is needed.
II. From mono-culture to a multi-cultural universe of public administration
By the beginning of the twentieth century, two major events occurred which shaped the future of
public administration as a discipline. First was the emphasis that Woodrow Wilson and Frank W.
Goodnow placed on the separation of administration from politics as the single most essential
public administration reform in achieving efficiency and removing the objectionable and
immoral practices of spoils and patronage besetting the democratic system of governing. While
Wilson expounded his theory on separation of administration from politics in 1887, other
scholars joined a steady stream of advocates for maintaining the dichotomy. By the 1950s, the
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politics-administration dichotomy was assumed both as a self-evident truth and as a desirable
goal. Administration was perceived as a self-contained world of its own, with its own separate
values, rules and methods, which were universalistic in nature. Thus, public administration came
to be known as the universe of facts, enshrined in a value-free environment, ready to be applied
anywhere in the world, akin to scientific experiments as mentioned below.
The second was the rise of scientificism in the discipline. While the roots of scientific analysis in
social science disciplines can be traced back to the Age of Enlightenment, slowly the two core
elements of scientific method started influencing the philosophical and human sciences. These
core elements are rational objectivity and quantification. The main purpose of these scientific
elements was, and still is, to remove biases and fallacies of human thought by searching for >hard
data’ which can be measured, and then presented in an objective and rational manner. In this
context, academics and practitioners of public administration are considered to be applied
scientists, who remain dispassionately aloof from that subjective (and therefore irrational) realm
of culture, values and ethical issues.
Furthermore, the American scientific management specialists thought that the science of
administration was an end itself worthy of systematic study and improvement. For them,
government administration was a machine to be driven by scientific management theories such
as POSDCORB principles, PPBS, MBO and most recently the New Public Management. It was
also thought that the scientific study of administration led to the discovery of principles of
administration analogous to the principles or laws of the physical sciences. And finally, it was
assumed that the principles of administration determined the way in which specific
administrative values, such as efficiency and economy, could be realized.
In such a scientific environment, the use of merit principle became the main ingredient
sustaining the functioning of government administration. Thus, public administration turned into
(as it was thought by some) a scientific endeavour in which individuality was emphasized
because the individual was the unit of measurement in relation to output, efficiency and
accountability. Such a philosophy was well suited for the entrenchment of the merit principle in
the West because it encouraged individual achievement. It was much later, after the 1970s, that a
different philosophy of administration emerged which stated that public administration could not
be reduced to a very reductionist scientific experiment alone because the important imperatives
of culture, spirituality, ethics and morality would remain fenced out. Thus, a tortuous evolution
occurred when the issue of universalistic application of Western-born public administration was
challenged.
The need for an inclusive and multicultural world of public administration: During the past
century, scholars and practitioners of public administration carried out their work as if all public
administration and governance values emanating from the West were universally applicable, akin
to scientific principles, and local context or culture did not matter. That vestige of a one-
dimensional rationalism is now slowly giving way to a fuller recognition and understanding of
the impact and consequences of people’s values.
Development administration has been the handmaiden of Western comparative public
administration, an academic field that has not succeeded in breaking loose from its old moorings
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because it still presses for Northern, universalistic designs tied to a single, competitive and
capitalistic world economy. For example, details of administrative structure, procedure, financial
or human-resources management, central-local relationships, organization of ministries or
departments, the role of parastatals, linkages with civil society and grassroots groups for
purposes of licensing, permitting, and regulation, and the recruitment/ socialization mechanisms,
all these are based on the system perfected in the North. Sometimes lonely voices in the
development community call for realizable change from the bottom up, and suggest that it would
be desirable if the North could use many ideas from different sources in the South to enrich its
own discipline of public administration as well as its protégé—development administration—by
including sensitivity to the local customs, indigenous culture, as well as spirituality, thereby
bridging the gap between North and South by drawing a new course which will be holistic and
multi-cultural.
It is also clear that through globalization, a certain dependence and continued reliance on the
theory and methodology of the Western-style administration is being emphasized. Would it not
be a sad situation when everywhere in the world, not only the governing system but also the style
of doing things becomes the mirror image of Western values and practices. Developing countries
have a lot to change, and so does the West. One thing is clear: the current crisis of development
and administration is precisely a consequence of the inability of the West to incorporate the
substance of other non-Western developmental experiences into the prevailing conceptual
mould. It is also clear that new approaches to North-South relations are required by
acknowledging that alternatives to Western-led reforms might have some values for other
nations, just as alternate medicine has finally received acceptance in the West.
The essence of this plea is in the identification of unity in diversity principle so that alternatives
(based in South) do not get discarded simply because either these are not well argued, or are not
couched in fine languages. At the same time, the author is not advocating a non-involvement and
a total detachment of development administration from its parents, public (and comparative)
administration. Because, there are some core values, (such as the rule of law and due process,
efficiency, economy, accountability, impartiality, integrity, fairness, protecting and serving the
common good, etc.) of public administration which are universal in nature and are applicable
everywhere irrespective of local traditions, culture and context. Nevertheless, as argued earlier, a
holistic approach to administration requires considering all alternatives available.
III. From universalistic to a holistic public administration
The following general propositions are offered as concluding observations:
1. The time has come to examine the disruptive impacts of frequent public service
reorganizations and reforms, as well as a periodic paradigm shifts. We already know that it is
tougher to implement than to design; and we also know that the work is not finished with
implementation alone, because there is a danger of backsliding. Without ongoing nurturing,
reforms do fade away. Thus, there is a need to get out of the apparent frenzy on doing many
reforms so that public service institutions are able to have a breathing space to solidify gains
made, and to strengthen their organizational culture. Could not we pause for some time to see
what gains have been made thus far, and whether such gains are effective enough; only then
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further reforms and changes should be considered. It is equally important that while
contemplating new reforms, alternatives available are to be included drawn from the local
circumstances, history and culture. In addition, governments should undertake a regular
(periodic) assessments of progress made; because it is one thing to introduce measures of
reforms but quite another to make them stick. Progress made ought to be regularly and
consistently assessed.
2. Not enough attention has been paid to certain weaknesses in the government=s management
control framework. For example, the accountability of administrative heads of departments is
still not transparent especially when they get transferred from their post too often too soon.
While these administrative heads demand results and accountability from their subordinates,
should not these heads be also held responsible for creating an innovative and vibrant
atmosphere for their people? In the final analysis, it is through the efforts of such people that
results can be achieved and good government is possible.
3. Good government also depends on the good performance of its public servants because it is
the government and its state machinery that are the best defense of ordinary citizens against
organized business, labour, and the powerful vested interests which seek special privileges in
laws, or simply to do what they want. Strengthening of governmental institutions ought to be
the top priority.
4. As mentioned earlier, in the past, the public service reforms neglected taking into account the
historical perspectives and cultural dimensions (Argyriades, 2001). Sensitivity to culture and
history of a nation is crucial when designing, imposing, and implementing public service
reforms. Dictating reforms from outside without considering the cultural and historical
factors would not achieve expected results as has been demonstrated with respect to the NPM
movement.
5. Each time a new paradigm gets created someone in the West, it starts with the notion that any
problem can be solved if there exists a detailed blueprint, sufficient external aid, and political
will. However, our experience has been that these three prerequisites would not be met by
most of the developing world; and hence the experiment is not successful. In place of
requiring developing nations to implement such blueprints any time when a new paradigm
gets manufactured, the time has come to focus and concentrate of results instead of creating
grand visions. Because such visions get multiplied as each international development
institution tries to broaden its scope and idealism pertaining to areas of human development.
We should also consider that perhaps the objectives of such visions and paradigm are not
realistic enough. Perhaps in our optimism, we have not paid enough attention to strengthen
institutions (which are supposed to implement such spectacular plans) because we have taken
for granted that ideals and plans are self-administering. Perhaps the time has also come to
pause and reflect on the question: has the medicine prescribed by the West been reasonable
and realistic enough? And if one does not take into account such factors as culture and style
of governance, local traditions and beliefs, politics and style of doing things, social and
demographic plurality, law and order situation, civil society, and responsible and ethical
governance, the new Century may not be much different than what we have gone through
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with the last 50 years of the past century. The essential need is to shift from materialist to
post-materialist and spiritual standards.
Should not this challenge be faced first by the bigger players in development arena (such as the
World Bank, IMF and several bi-lateral development aid agencies) so that they could transform
their rhetoric into reality? Should not they ought to pursue a basic bottom-up policy, thinking
first of the poor peoples, their governing system, their customs and traditions, and most
importantly encouraging alternatives to the Western models so that developing nations may be
able to choose between alternatives rather than being consigned to the philosophy of “only one
size fits all”. Finally, before another paradigm gets manufactured in the West (along with the
notion that any problem can be solved with a detailed blue-print provided, some foreign aid
promised, and the necessary political will on the part of recipient secured), has not the time come
to focus on results instead of keep on creating grand visions because such grand visions keep on
multiplying as each international institution tries to broaden its idealism and scope of activities in
the field of human development (Einhorn, 2001). Are the objectives of globalization realistic
enough? Have we paid adequate attention to the quality of institutions responsible to implement
such grandiose plans? Or, we have taken it granted that ideals and plans are self-effecting. And
thus, the time has really come to pause and reflect on the matter: whether the prescription for
change needs to be altered. My view is that the new century demands a new thinking to face the
greatest dilemma before the humanity: how come a small group of nations keep on “progressing”
while the majority remains poor and deprived.
References:
Argyriades, Demetrios. (2001). “Governance and Public Administration in the 21st Century: New
Trends and New Techniques”. A Report by the General Rapporteur for the International
Congress of Administrative Sciences, held in Athens, Greece, 9-13 July 2001, published by the
International Institute of Administrative Sciences, Brussels, Belgium.
Caiden, Gerald E., and O.P. Dwivedi. (2001). “Official Ethics and Corruption” in Where
Corruption Lives, (edited by Gerald E. Caiden, O.P. Dwivedi, and Joseph G. Jabbra).
Bloomfield, CT., USA: Kumarian Press, pp.245-255.
Dwivedi, O.P. (1994), Development Administration: From Underdevelopment to Sustainable
Development
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