Chapter 1: Foundations & Nature of Public Administration

Public administration is a practical field concentrated on managing organizations and implementing policies to achieve public goals. In modern society, the role of government has expanded beyond simple law enforcement to becoming a key mechanism for solving complex social issues.

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1. Concept and Evolution of Administration

(1) Broad vs. Narrow Definition

• Broad (General): Collective cooperative efforts with a high degree of rationality (includes government, NGOs, and corporations).
• Narrow (Governmental): Activities performed by government organizations to achieve the public interest.

(2) Historical Stages

• Legislative State (19th Century): “The state should intervene as little as possible.” A ‘Small Government’ focused on literal law enforcement.
• Administrative State (Modern): Following the Great Depression, the role of administration expanded significantly to solve socio-economic crises (‘Big Government’).

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2. The Duality: Science vs. Art (Technique)

A long-standing debate on the academic nature of public administration.

Aspect	Science (Explanation)	Art / Technique (Prescription)
Focus	Objective laws, explanation	Problem solving, prescription, practice
School	Behaviorism (Simon)	New Public Admin (Waldo)
Value	Value-neutrality, facts	Value-ladenness, norms

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3. Administration, Politics, and Management

(1) Politics and Administration

• Classically, ‘Dichotomy’ emphasized neutrality and expertise. Modernly, ‘Monism’ recognizes that administration also performs political functions (policy formulation).

(2) Administration and Management (Efficiency)

• Similarities: Bureaucratic nature, goal-oriented tools, cooperative action.
• Differences:
  • Administration: Pursuit of public interest, coercive means, strict legal regulations.
  • Management: Profit pursuit, non-coercive, relatively free operations.

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Key Checklist

• Which academic nature emphasizes ‘value’ and ‘problem solving’ over mere ‘facts’? (Answer: Art / Technique)
• What is the characteristic of the ‘Administrative State’ compared to the ‘Legislative State’? (Answer: Enhanced expertise and expanded government role)
• Which nature did Herbert Simon emphasize in his behaviorist approach? (Answer: Science)