UNIVERSITY OF MAIDUGURI CENTRE FOR DISTANCE LEARNING

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1 UNIVERSITY OF MAIDUGURI CENTRE FOR DISTANCE LEARNING PAD 411: Development Administration (2 Units) Course Facilitator: Dr. Raphael Adole Audu

2 STUDY GUIDE Course Code/ Title: PAD 411: Development Administration Credit Units: 3 Timing: 26hrs Total hours of Study per each course material should be twenty Six hours (26hrs) at two hours per week within a given semester. You should plan your time table for study on the basis of two hours per course throughout the week. This will apply to all course materials you have. This implies that each course material will be studied for two hours in a week. Similarly, each study session should be timed at one hour including all the activities under it. Do not rush on your time, utilize them adequately. All activities should be timed from five minutes (5minutes) to ten minutes (10minutes). Observe the time you spent for each activity, whether you may need to add or subtract more minutes for the activity. You should also take note of your speed of completing an activity for the purpose of adjustment. Meanwhile, you should observe the one hour allocated to a study session. Find out whether this time is adequate or not. You may need to add or subtract some minutes depending on your speed. You may also need to allocate separate time for your self-assessment questions out of the remaining minutes from the one hour or the one hour which was not used out of the two hours that can be utilized for

3 your SAQ. You must be careful in utilizing your time. Your success depends on good utilization of the time given; because time is money, do not waste it. Reading: When you start reading the study session, you must not read it like a novel. You should start by having a pen and paper for writing the main points in the study session. You must also have dictionary for checking terms and concepts that are not properly explained in the glossary. Before writing the main points you must use pencil to underline those main points in the text. Make the underlining neat and clear so that the book is not spoiled for further usage. Similarly, you should underline any term that you do not understand its meaning and check for their meaning in the glossary. If those meanings in the glossary are not enough for you, you can use your dictionary for further explanations. When you reach the box for activity, read the question(s) twice so that you are sure of what the question ask you to do then you go back to the in-text to locate the answers to the question. You must be brief in answering those activities except when the question requires you to be detailed. In the same way you read the in-text question and in-text answer carefully, making sure you understand them and locate them in the main text. Furthermore before you attempt answering the (SAQ) be

4 sure of what the question wants you to do, then locate the answers in your in-text carefully before you provide the answer. Generally, the reading required you to be very careful, paying attention to what you are reading, noting the major points and terms and concepts. But when you are tired, worried and weak do not go into reading, wait until you are relaxed and strong enough before you engage in reading activities. Bold Terms: These are terms that are very important towards comprehending/understanding the in-text read by you. The terms are bolded or made darker in the sentence for you to identify them. When you come across such terms check for the meaning at the back of your book; under the heading glossary. If the meaning is not clear to you, you can use your dictionary to get more clarifications about the term/concept. Do not neglect any of the bold term in your reading because they are essential tools for your understanding of the in-text. Practice Exercises a. Activity: Activity is provided in all the study sessions. Each activity is to remind you of the immediate facts, points and major informations you read in the in-text. In every study session there is one or more activities provided for you to answer them. You must be very careful in answering these activities because they provide you with major facts of the text. You can have a separate note book for the activities which can

5 serve as summary of the texts. Do not forget to timed yourself for each activity you answered. b. In-text Questions and Answers: In-text questions and answers are provided for you to remind you of major points or facts. To every question, there is answer. So please note all the questions and their answers, they will help you towards remembering the major points in your reading. c. Self Assessment Question: This part is one of the most essential components of your study. It is meant to test your understanding of what you studied so you must give adequate attention in answering them. The remaining time from the two hours allocated for this study session can be used in answering the self- assessment question. Before you start writing answers to any questions under SAQ, you are expected to write down the major points related to the particular question to be answered. Check those points you have written in the in-text to ascertain that they are correct, after that you can start explaining each point as your answer to the question. When you have completed the explanation of each question, you can now check at the back of your book, compare your answer to the solutions provided by your course writer. Then try to grade your effort sincerely and honestly to see your level of performance. This procedure should be applied to all SAQ

6 activities. Make sure you are not in a hurry to finish but careful to do the right thing. e-tutors: The etutors are dedicated online teachers that provide services to students in all their programme of studies. They are expected to be twenty- four hours online to receive and attend to students Academic and Administrative questions which are vital to student s processes of their studies. For each programme, there will be two or more e-tutors for effective attention to student s enquiries. Therefore, you are expected as a student to always contact your e- tutors through their addresses or phone numbers which are there in your student hand book. Do not hesitate or waste time in contacting your e-tutors when in doubt about your learning. You must learn how to operate , because ing will give you opportunity for getting better explanation at no cost. In addition to your e-tutors, you can also contact your course facilitators through their phone numbers and s which are also in your handbook for use. Your course facilitators can also resolve your academic problems. Please utilize them effectively for your studies. Continuous assessment The continuous assessment exercise is limited to 30% of the total marks. The medium of conducting continuous assessment may be through online testing, Tutor Marked test or assignment. You may be required to submit your test or assignment through your . The continuous assessment may be conducted more than once. You must make sure you participate in all C.A processes for without doing your

7 C.A you may not pass your examination, so take note and be up to date. Examination All examinations shall be conducted at the University of Maiduguri Centre for Distance Learning. Therefore all students must come to the Centre for a period of one week for their examinations. Your preparation for examination may require you to look for course mates so that you form a group studies. The grouping or Networking studies will facilitate your better understanding of what you studied. Group studies can be formed in villages and township as long as you have partners offering the same programme. Grouping and Social Networking are better approaches to effective studies. Please find your group. You must prepare very well before the examination week. You must engage in comprehensive studies. Revising your previous studies, making brief summaries of all materials you read or from your first summary on activities, in-text questions and answers, as well as on self assessment questions that you provided solutions at first stage of studies. When the examination week commences you can also go through your brief summarizes each day for various the courses to remind you of main points. When coming to examination hall, there are certain materials that are prohibited for you to carry (i.e Bags, Cell phone, and any paper etc). You will be checked before you are allowed to enter the hall. You must also be well behaved throughout your examination period.

8 COURSE TITLE: DEVELOPMENT ADMINISTRATION COURSE CODE: PAD 411 COURSE FACILITATOR: DR. RAPHAEL ADOLE AUDU.

9 INTRODUCTION The Nigerian government is increasingly assuming new functions due to the complex nature of the Nigerian state. In an attempt to respond to the emerging social and economic challenges, there is the need for the government prioritizes its development programmes and projects. This can only be achieved through moving away from traditional public administration to development administration strategies. The issue of development and modernization has been a great concern to scholars and policy makers. Despite the efforts of the government of Nigeria to modernize and develop the Nigerian society, the issue of development still remained a great concern to scholars and development planners. It is in view of the foregoing fact that this course: development administration is designed to expose students to the various models and theories of development administration and see how they could be applied in the Nigerian context. These models and theories are effective tools in reviewing and controlling government programmes, particularly as it relate to unemployment, poverty alleviation, rural and community development and developments in Nigeria. Hence, the need for us to examine the concept and dynamics of development and development administration and to also interrogate the need for paradigm shifts in Nigeria and Africa in general.

10 Course objective The course is designed to expose the students first to the meaning and dynamics of administration and development. It also went further to conceptualize development administration. Examines modernization and underdevelopment theories. The aim of the course is also to find out the basis and foundation for the study of development administration in developing countries with special emphasis on Nigeria. Furthermore, the course examines the operations, methods and machinery of government, planning and the nature of administration in developing countries. In fact, it focused on economic planning, industrial strategies and budgeting in Nigeria.

11 TABLE OF CONTENTS Course Objective Study Session 1: Basic Concepts in Development Administration 1.1 Meaning of Administration Meaning of Public Administration Relevance of administration in political systems Meaning of Civil Service Characteristics of the civil service Functions of the civil service Meaning of Development Dimensions of Development Summary Self Assessment Questions References Activity Study Session 2: The Meaning and Growth of Development Administration 2.1 Meaning of development administration Features of development administration Summary Self Assessment Questions References Activity Study Session 3: Theories and Models of Comparative Public Administration 3.1 Fredrick W. Riggs Theory of Prismatic Ssociety Features of Sala Model Max Weber Bureaucratic Model (Legal rational authority) Criticisms of the Bureaucratic Model

12 3.6 Structural Functionalism: Talcott Parsons Summary Self Assessment Questions References Activity Study Session 4: Modernization and Underdevelopment Theory 4.1 Modernization theory Criticism against the Modernization theory Underdevelopment theory Features of Underdevelopment Meaning of Dualism Summary Self Assessment Questions References Activity Study Session 5: Planning and development Planning in Nigeria 5.1 Meaning of Planning Factors to be considered in the planning process Objectives of Planning Types of Plans Machinery of Planning Development Planning in Nigeria Summary on the objectives of national development plans in Nigeria.. 44 Summary Self Assessment Questions References Activity

13 Study Session 6: Poverty and Poverty Alleviation Programmes in Nigeria 6.1 Meaning of Poverty The Nature of Poverty in Nigeria Causes of Poverty in Nigeria Approaches of Poverty Reduction in Nigeria Development Programmes/Poverty Reduction Strategies in Nigeria Summary Self Assessment Questions References Activity Study Session 7: Rural Development 7.1 Meaning of rural development Characteristics of a rural area Aims and objectives of rural development Problems confronting rural development in Nigeria Summary Self Assessment Questions References Activity Appendix

14 Study Session 1: Basic concepts in Development Administration Introduction Before we delve into the main subject matter (Development Administration), it is important that we clarify some of the basic concepts that will be used in this discourse. Concepts such as administration, civil service and development. These concepts need to be defined for you to understand the course development administration. Without you having adequate knowledge of these concepts, you will find it difficult to understand the perspectives of our narratives as far as this course is concerned. This session will therefore discuss some of the basic terms or concepts that are fundamental to the understanding of Development Administration as a course of study. Study outcomes By the end of this session, you will be able to: 1.1 Define the term Administration 1.2 Define public administration 1.3 State the relevance of administration in political systems 1.4 Define the civil service 1.5 List the characteristics of the civil service 1.6 Highlight the main functions of the civil service 1.7 Define development 1.8 State the main dimensions of development Bold terms 1.1 Meaning of administration Administration as a concept has attracted a lot of writings from so many scholars due to its broad nature. Literally, the term administration means management of affairs in an organization. The organization could be public or private. The term management should not be confused in any way with administration though they are most at times used interchangeably. Management can be said to be the manipulation of both human and material resources in order to achieve organizational goals or objectives while administration on the Page 1 of 98

15 other hand is seen by E.N Gladden cited in Lamikanth (2007) as a long and slightly pompous word with a humble meaning, for it means, to care for or look after people, to manage affairs is a determined action taken in pursuit of a conscious purpose. While Nigro (1978) see administration as the organization and use of men and materials to accomplish a purpose. Pfiffner (1978) was also in similar frame of mind when he posited that administration is the organization and direction of human and material resources to achieve desired ends. The definitions given by both Nigro (1978) and Pfiffiner, (1978) are almost similar in meaning as the writers see the use of men and material resources as very important ingredients in administration. However, there are some other writers who have different views on the subject matter (administration). For instance Brooks (1980:4) in his own attempt at explaining the meaning of administration stated that: Administration is the capacity of coordinating many and often conflicting social energies in a single organism, so adroitly that they shall operate as a unit. Marx (1978) advanced that administration is a determined action taken in pursuit of a conscious purpose. According to him, it is the systematic ordering of affairs and the calculated use of resources aimed at making those things happen which one desires to happen and for taking everything to the contrary. Waldo (1978) simply viewed administration as a type of cooperative human effort that has a high degree of rationality. From the definitions given above, administration can be seen from two perspectives. First, the use of men and material to achieve the purpose of an organization. Second, it is a collective group effort aimed at achieving the objectives of an organization. In fact administration is a generic term that can be found in any organization be it public or private. ITQ Define the term administration ITA Administration can be seen from two perspectives. First, the use of men and material to achieve the purpose of an organization. Second, it is a collective group effort aimed at achieving the objectives of an organization Meaning of Public Administration The word public administration means government. Hence, the focus of public administration is on public bureaucracy, that is, bureaucratic public administration or Page 2 of 98

16 administrative organization of the government. Before looking at the meaning and dynamics of Comparative Public Administration, it is important we consider the meaning of Public Administration because the knowledge of public administration would enable us have a better perspective of the subject matter (Comparative Public Administration). The knowledge of public administration would enable us compare government across national and international borders. Public administration refers to the processes whereby government policies are carried out by officials of government or quasi governmental bodies. The public service includes institutions such as: The Civil Service, the Judiciary, the Police, the Prisons, Public Corporations, the Universities, Local Government Councils and the Political Class. In essence, public administration is understood to mean the process of executing government policies decided upon by the political executives who constitute the higher authority in the hierarchy. According to Pfeiffer & Presthus (1978) public administration is concerned with the means for implementing political values. Dimock (citing Caiden 1971) see public administration as the accomplishment of a politically determined objective. Adebayo (1989) in his own attempt at the meaning of public administration posit that public administration is when administration is qualified by the word public it simply means the practice of administration in a particular segment of society; public administration is therefore any governmental administration that operates in a particular sphere of government. It is in fact the machinery for implementing government policy. From the forgoing, one could say that public administration encompasses process and activities of government institutions and structures. Public administration can therefore be said to be the machinery of various Ministries which advice and execute government policies and programmes. In other words public administration refers to the agencies and institutions in the political, administrative, economic, social and other spheres funded wholly and partially from the nation s wealth. In fact public administration is an aspect of the larger field of administration. It exists in a political system for the accomplishment of the goals and objectives formulated by the political decision makers. It is also known as governmental administration because the adjective public. Woodrow (1964) view public administration as a detailed and systematic execution of law. Every particular application of law is an act of administration. He went further to state that Page 3 of 98

17 administration is the most obvious part of the government, it is the government in action; it is the executive; the operation and the most visible side of government. Gladden (1978) stated that public administration is concerned with the administration of government while Laxmikanth (2007) citing Herbert Simon on his part viewed public administration as the activities of the executive branches of National, State and Local Governments. Carson and Harris (1978) on their part, sees public administration as the action part of government, the means by which the purposes or goals of the government are realized. Nigro (1978) has an all encompassing view of public administration when he stated that public administration is: (i) is a cooperative group effort in a public setting (ii) covers all the three branches executive, legislative and judicial, and their interrelationship (iii) has an important role in the formulation of public policy and thus part of the political process (iv) It is different in significant ways from private administration; and (v) It is closely associated with numerous private services to the community. In summarizing the above definitions, one would discover that public administration has been used in narrow and wider sense. In the wider sense, public administration includes the activities of all the three branches of the government that is, the legislature, executive and the judiciary while in the narrow sense public administration deals with the activities of only the executive arm of government and it is related agencies. ITQ What is the difference between public administration and business administration? ITA Public administration has to do with the activities of the government. Through its Ministries, Departments and Agencies provide services to the citizenry on non profit basis while the motive behind business administration is for profit maximization. Page 4 of 98

18 1.3 Relevance of administration in political systems Administration is found in every organization. It includes all efforts geared towards the achievement of organizational goal. Where men live together they have to work together, and where they work, they have to be so put to their jobs and each other so as to create a harmonious combination of men and material that is called administration. From the forgoing, the purpose of administration can be said to: i. Improve the wellbeing of man as such any administrative activity that has no ii. iii. iv. ITQ human element cannot be said to be administration. Promote group effort. Two or more persons must be available in an organization before a task can be performed. The objective or goal of any organization is to achieve some goals or objectives. These goals cannot be achieved without adequate planning. And organization without a plan cannot achieve its goal. The use of money (finance) and material is very essential in any organization. The availability of these factors in an organization determines its growth and development. List any two relevance of administration in political systems ITA i. Improve the wellbeing of man as such any administrative activity that has no ii. human element cannot be said to be administration. Promote group effort. Two or more persons must be available in an organization before a task can be performed. 1.4 Meaning of civil service The term civil service can refer to either a branch of governmental service in which individuals are employed on the basis of professional merit as proven by competitive examinations, or the body of employees in any government agency other than the military. A civil servant is a person in the public Sector employed for a government department or agency. The status of a civil servant varies from country to country. In the United Kingdom, for instance, only Crown employees are referred to as civil servants, county or city employees are not. Many consider the study of civil service to be a part of the field of public Page 5 of 98

19 administration. Workers in non-departmental public bodies may also be classified as civil servants for the purpose of statistics and possibly for their terms and conditions. An international civil servant or international staff member is a civilian employee that is employed by an international organization. These international civil servants do not resort under any national legislation (from which they have immunity of jurisdiction) but are governed by an internal staff regulation. All disputes related to international civil service are brought before special tribunals created by these international organizations, for instance, the Administrative Tribunal of the International Labour Organization. Specific referral can be made to the International Civil Service Commission (ICSC) of the United Nations, an independent expert-body established by the United Nations General Assembly. Its mandate is to regulate and coordinate the conditions of service of staff in the United Nations while promoting and maintaining high standards in the international civil service. 1.5 Characteristics of the civil service The following are the characteristics of the civil service: 1. Permanency: The civil service is permanent in nature. Once appointed as a civil servant, one is completely sure of his continuity in office and all benefits even of retire unless he misbehaves and he is dismissed. The Executive and the legislature can be disbanded or dissolved but the civil servants can continue to remain in office to serve them next government with equal loyalty 2. Impartiality: The civil servants must be impartial in discharging their functions and responsibility to whatever political party in power or that forms the government. To guarantee this, civil servants should not take part in partisan politics. They are to serve any government with equal dedication no matter their personal views or inclinations 3. Anonymity: Even though civil servants execute and advice the executives on policy matters, the minister or commissioner cannot mention a civil servant as being responsible for his action when he is called to defend his policies 4. Expertise action: As civil servants were recruited on the basis of their skill and expertise, the minister relies on them for expert advice. Page 6 of 98

20 1.6 Functions of the civil service Below are some of the functions of the civil servants 1. Drafters of legislation: they help as drafters of legislation and in shaping and developing particular policies of their ministries 2. Implementation of policies: It is the duty of the civil servants to implement policies and laws made by the National Assembly 3. Drafting of annual budgets: It the responsibility of the civil servants to draft financial estimates annually for their ministries which are incorporated into the annual budget. 4. Civil servants advice the executives on policy issues in their ministries. ITQ Who is a civil servant? ITA A civil servant is a person in the public Sector employed for a government department or agency. 1.7.Meaning of development Development is a word with many implications. It is a changing and dynamic concept. It covers social, economic and political life of the people as such as its implications differ from one discipline to another. In Economics it means growth, of national economy; in sociology it means raising the standard of life of the people, while in Political Science and administration it means the stabilization of democratic order and the capacity of political systems to deal with problems threatening to destroy the system. It is in view of the above fact that Michael Todaro defines development as a multidimensional process involving changes in structures, attitudes and institutions as well as the acceleration of inequality, and the eradication of absolute poverty. In similar manner, the World Development Report (1990) attempts to define development in the context of several indices. It advanced that the challenge of development in the broadcast sense, is to improve the quality of life especially in the world s poor countries, a better quality of life generally calls for higher incomes in fact it covers better education, higher standards of health and Page 7 of 98

21 nutrition, less poverty, cleaner environment, more equality of opportunity, greater individual freedom and a richer cultural life. The term development has also generated a lot of confusion among scholars and writers within the social science field. The concept lacks a single definition due to its broad, dynamic and polemic nature. However according to Adebayo A. Adedeji Development is the fulfillment of man s physiological, mental, and social needs. This definition is in line with Abrahams Maslow needs theory. Dudley Seers on his part, see development as creating the conditions for the realization of human personalities or potentialities. He went further to ask 3 questions: what is happening to poverty? What is happening to inequality? And what is happening to unemployment? He sees human beings as the centre of development in every society. Walter Rodney sees development purely from the socio-economic perspective that society developed economically as its members increased jointly in their capacity to deal with their environment. More so, Joseph Lampobarak sees development as economic growth, which is produced by the system, which is capable of producing political, social and economic variables in the system. However, S. M. Eisentsdht viewed development as the introduction of new ways of doing things in a society in an effort to bring desired changes in the social, economic, political and cultural areas of areas of a society. E.H Coleman looked at development from a purely subjective perspective. He said that development is what you think it is. His argument came as a result of the fact that there are different societies with different opinion, culture, ideas etc what a society feels is development is regarded as development. Professor Dennis Goulet identified at least three components or core values, which showed same as conceptual basis and practical guidelines for the understanding of the inner meaning of development. These three values are: 1. Life sustenance. 2. Self esteem. 3. Freedom They are core values because they are representing the common goods thought by individuals in a society. They relate to fundamental human needs which find their expression in almost all societies and cultures at all time. Page 8 of 98

22 Life- sustenance Page 9 of 98 Development Administration: PAD 411(UNIT 3) This refers to the ability to provide basic necessities of life. All people have certain basic needs without which life would be impossible. These include: Shelter, health, safety and protection. When any of these needs or condition is absent or in critical short supply we may say that a condition of under development has occurred. Self-esteem This is another component of good life that constitutes a sense of worth and self respect of not been used as a tool by others for their ends. In fact, all states and individuals seek some form of identity, dignity and respect. Freedom. This is the final universal core value. Freedom here, seem to be understood in the more fundamental sense of freedom or emancipation from alienating materials conditions of life and freedom from the social substitutes of men, ignorance, misery, dogmatic beliefs etc. Freedom involved the expanded range of choices for societies and their members, together with the minimization of external constraints in the pursuit of some goals which we call development. ITQ List the three core values of development identified by professor Goulet. ITA 1. Life sustenance 2. Self esteem 3. Freedom 1.8 Dimensions of development The multi-dimensional nature as well as its complexity has led to the consideration of the concept today in line with various aspects of human life. Thus, we now have economic development, socio-cultural development as well as administrative development. Economic development Economic development is concern with promotion and establishment of an economic system that would improve the standard of living through the effective utilization of resources for the provision of basic infrastructure, high productivity, higher percapita income and net capital investment in productive sectors of the economy which will in turn lead to a higher gross national output. Economic development is generally defined to imply a qualitative improvement in the overall supper structure through the eradication of poverty, unemployment, provision of a good

23 standard of living and effective manpower utilization. It also include improvement in material welfare, especially for persons with the lowest incomes, the eradication of mass poverty, diseases and early death. Socio-cultural development This aspect of development depends very much on advancement of the forces of production at a particular stage and at a given time. Socio-cultural development should not only lead to interpretation of one s environment but also those socio-cultural forms that affects the development efforts of individual and societies at large. Some of the socio-cultural factors that influence development positively include: Improved Education 1 Ability to read and write acquisition of skills as well as general enlightenment by every member of the society. 1 Provision of adequate infrastructure light, water, energy, transport and communication etc. Improvement in health care services Provision of both curative and preventive health services so as to reduce infant mortality, maternal mortality, increase life expectancy increase productivity of labour etc finally; Changes in the belief And values as well as the norms of the society which cause serious problems to development efforts e.g. language, arts, literature, music mode of dressing e.t.c Political development According to Huntington David Apter and Lucian Pye, political development occurs when societies essentially exhibits high degree of order, stability, role and structural differentiation as well as institutionalization. To the International Social Sciences Research Council (ISSRC) a society is said to be development politically if it is able to overcome the following challenges: (a) The challenge of authority or state building (b) The challenge of unity. (c) The challenge of participation. (d) The challenge of distribution. Page 10 of 98

24 Administrative development. Development is basically the responsibility of the government especially the in developed countries. Thus, societies develops the machineries of government must correspondingly be equipped to cope with the new roles and demands that accompany it i.e. vital government machineries must respond to the needs of the people through the establishment of institutions that would plan, execute and implement the policies of government to individuals, groups and societies at large. In short, administrative development within the administrative sector th3e public bureaucracy is responsible for planning, and executing governmental policies. Thus, development administration has to do with the transformation of some subjective immoral values such as corruption, inefficiency, apathy into objective rationalism, handwork, accountability, and initiatives toward the development of a true science of work. The indicators of administrative development include: 1. Administrative effectiveness and efficiency. 2. Improve attitude to work ethics 3. Minimization of corruption 4. Improve skills etc ITQ What is Economic development? ITA Economic development is concern with promotion and establishment of an economic system that would improve the standard of living through the effective utilization of resources for the provision of basic infrastructure, high productivity, higher per-capita income and net capital investment in productive sectors of the economy which will in turn lead to a higher gross national output. Read also: what is development? Summary In Study Session 1, you have learned that: 1. Administration is the use of men and material to achieve the purpose of an organization. Page 11 of 98

25 2. It is a collective group effort aimed at achieving the objectives of an organization. 3. Public administration covers all the three branches executive, legislative and judicial, and their inter-relationship 4. Public administration has an important role in the formulation of public policy and thus it is a part of the political process 5. Administration is relevant in political systems as it Improve the wellbeing of man as such any administrative activity that has no human element cannot be said to be administration. 6. Civil service is the machinery made up of the personnel of the various ministries which advice and executive government policies. 7. Development as a concept that has generated a lot of writings due to its broad and polemic nature 8. The dimensions of development include: political, socio cultural, economic and administrative development. Self assessment questions Now that you have completed this study session, you can assess how well you have achieved its Learning outcomes by answering the following questions. Write your answers in your study Diary and discuss them with your Tutor at the next study Support Meeting. You can check your answers with the Notes on the Self-Assessment questions at the end of this Module. SAQ 1.1 (Testing Learning outcomes 1.1) Define the term administration SAQ 1.2 (Testing Learning outcomes 1.5) List four characteristics of civil servants Activity What is the relevance of administration in political systems? Page 12 of 98

26 Relevance of administration in political systems Relevance 1: Relevance 2: Relevance 3: Relevance 4 References Ake, C. (1996). Democracy and development in Africa.Ibadan: Spectrum Books Ltd. Bello, K. (2005). Essentials of Public Administration, Kano Flash Printers. Bagchi, A.K. (1982). The Political Economy of under development London, Cambridge press. Barbara, I. (1993). The meaning of development interaction between New State and old ideas U.SA, University of Salford. Frank, A.G. (2009). Development Accumulation and under development, New York monthly Review Press Ghosh, B.N. (2006). New Comparative Government New Delhi, Lotus press Isaiah, O.D (2006). Essential s of Public administration. Niger State, Jube publications Labini, P.S. (2001).Underdevelopments strategy for reform Canbridge university press. Mbumega, A (2012). Issues of development and poerty reduction in Nigeria.Makurdi Destiny Ventures Rodney, W. (1972). How Europe underdeveloped Africa, Abuja.Penalf Publishing Inc. Ron, A. (1995). Development Studies: An introduction through selected readings. Greenwich University press. Page 13 of 98

27 Study Session 2: The meaning and growth of development administration Introduction In study session 1, you were acquainted with some of the basic concepts or terms that would assist you to comprehend the meaning of development administration. Having familiarized yourself with these concepts, it is important for us to examine the meaning of development administration in this session. Learning outcomes By the end of this session, you will be able: 2.1. Define development administration 2.2. List the features of development administration 2.3. State the purpose of development administration Bold term 2.1. Meaning of development administration The term development administration has also attracted attention from so many scholars in the field of political science and administration. According to Irving Swerdlow development administration is administration in poor countries he defined two inter-related tasks in development administration that is, institutional building and planning. Han been Lee advanced that development administration is concerned with the problems involved in managing a government or an agency thereof so that it acquires an increasing capacity to adopt to and act upon new and continuing social changes with a view to achieving a sustained growth in political, economic and social fields. Merle Fainsod on his part stated that development Administration is a carrier of innovating values. It embraces the array of new functions assumed by developing countries embarking on the path of modernization and industrialization. Ordinarily, development administration involves the establishment of machinery for planning, economic growth and mobilization and allocation of resources. Collins (1993) posited that development administration is concerned with the achievement of change under conditions where change is difficult. Page 14 of 98

28 Put more concretely, its focus is on a range of instrumentalities employed to achieve the ends of national, social and economic development, the machinery of planning, the role of government in development, the public corporations, marketing boards, projects and administrative reforms at all levels. B.B Schaffer advanced that development Administration is about development programs, policies and projects in those conditions in which there are usually wide and in which there are peculiarly low capacities and severe obstacles in meeting them. See also ITQ Development administration is about development programmes, policies and projects. True or False ITA True 2.2. Features of development administration Development Administration has the following characteristics: 1. Change-oriented. That is it brings about socio-economic change rather than the maintenance of the status quo. 2. It is goal oriented; it is aimed at achieving progress in social1 economic1 political and cultural goals (result oriented) 3. Development Administration has commitment. High morals and motivation in work situation to achieve developmental goals. 4. Client oriented that is meeting the needs of the specific target groups which could be farmers, children, the vulnerable group, civic society, Bureaucrats etc. 5. Time oriented: Development administration programmes, projects or policies should be completed within a specific period of time limit. 6. Citizen participation Enlisting popular support and the involvement of the masses in the formation and implementation of development programmes. 7. Innovativeness: That is replacing or improving administrative structures, methods and procedures for the effective realization of developmental goals. Below is a Tabular explanation of the differences between development Administration and Traditional Public Administration. Page 15 of 98

29 Table 2.1.Differences between development and Traditional Public administration Development Admin Traditional Public Admin 1. It is change oriented It is status quo oriented 2. It is dynamic and flexible It is hierarchical and rigid 3. It emphasizes on effectiveness in goal It emphasizes on economy and efficiency achievement 4. Its objectives are complex and multiple Its objectives are simple 5. It is concerned with new tax It is concerned with routine operations 6. It believes in decentralization It believes in centralization 7. It relies heavily on planning Does not rely on much planning 8. It has a broad scope Its scope of operations is limited 9. It has a time limit It has no time orientation Source: Joseph Rugumyamheto (1998) Table 2.1 shows the differences between development administrations in a country particularly in a developing country such as Nigeria. Public administration generally deals with the traditional function of any government that involves the provision of roads, schools, hospitals, construction of bridges and markets. Development is a broader concept that goes beyond this function. It has to do with how development particularly in third world countries can be accelerated. See Table 2.2 for a better understanding of the aims and objective of public administration and development administration. Page 16 of 98

30 Table 2.2: Paradigm shift: from Traditional Public Administration to Result Oriented Management TRADITIONAL ADMINISTRATION PUBLIC RESULTS ORIENTED ADMINISTRATION 1. Weberian/hierarchical organizational structure 2. Rules driven decision 3. Rules and procedures 4. Executives appraisal based primarily on compliance with the rules. 5. Focus on the tasks/functions Flexible/professionally oriented structures Result driven decision making Results based performance appraisal Focus on the client/target service beneficiaries. Source: Joseph Rugumyamheto (1998) Deriving from the analysis in Table 2.2, we can see that most governments in Africa are rushed to the bureaucratic cultures of their public administrative systems, conformity and control. There is this prevailing philosophy that much greater flexibility is required in the management of the public service in order to improve morale and productivity. In addition, many governments have encouraged the shift of emphasis from administration to service delivery or the delivery of programmes. Therefore, through the civil service reforms and the introduction of development programmes, the governments are in hot pursuit of a paradigm shift, from bureaucratic oriented management to a results oriented management. Table 2.2 shows the features of traditional public administration and result oriented management. Page 17 of 98

31 ITQ List any three features of Public administration ITA 1. It is status quo oriented 2. It is hierarchical and rigid 3. It emphasizes on economy and efficiency 2.3 Purpose of development administration The term development administration was first used in 1955 by an Indian scholar called Goswami. The concept later became more popular with writers like: Edwin Weidner, Fredrick W. Riggs, Joseph Lapolombra, George Gant etc. Development administration emerged as a sub-field of Public Administration in the 1950s and 1960s. The factors which led to its emergence include: 1. Over-emphasis on the study of the means of public administration and the under emphasis on the study of the goals of administration by the traditional public administration. 2. The emergence of newly independent developing countries in Asia, Africa and Latin America due to the collapse of colonialism and imperialism; 3. United Nations sponsored development schemes in developing countries through multilateral technical aid and financial assistance; 4. Extension of American Economic and Technical assistance and plans to newly emerged developing countries; 5. Setting-up of the Comparative Administration Group (CAG) in 1960 under the umbrella of the American society for public Administrative (ASPA); and 6. Search for a new indigenous administrative model to meet developmental needs of developing countries due to the failure of the western model of development in these countries. Page 18 of 98

32 ITQ List any two motivational concerns of development administration. ITA 1. Over-emphasis on the study of the means of public administration and the under emphasis on the study of the goals of administration by the traditional public administration. 2. The emergence of newly independent developing countries in Asia, Africa and Latin America due to the collapse of colonialism and imperialism. Summary In Study Session 2, you have learned that: 1. Development administration is administration in poor countries. 2. Development administrations have two inter-related tasks that are, institutional building and planning. 3. Development administration is concerned with the problems involved in managing a government or an agency thereof so that it acquires an increasing capacity to adapt to and act upon new and continuing social changes with a view to achieving a sustained growth in political, economic and social fields. 4. Development Administration is a carrier of innovating values. It embraces the array of new functions assumed by developing countries embarking on the path of modernization and industrialization. 5. Public administration has to do with traditional functions of government such as maintenance of peace and security. 6. Development administration involves programmmes, and projects that will produce social, political and economic development in developing countries. 7. One of the main motivational concerns of development administration is the extension of American Economic and Technical assistance and plans to newly emerged developing countries. Page 19 of 98

33 Self assessment questions Now that you have completed this study session, you can assess how well you have achieved its Learning outcomes by answering the following questions. Write your answers in your study Diary and discuss them with your Tutor at the next study Support Meeting. You can check your answers with the Notes on the Self-Assessment questions at the end of this Module. SAQ 2.1 (Testing Learning outcomes 2.1) Define the term development administration SAQ 2.2 (Testing Learning outcomes 2.2) List four characteristics of development administration Activity List the main differences between public administration and development administration. Differences between public administration and development administration Public Administration Development administration References Ake, C. (1996). Democracy and development in Africa.Ibadan: Spectrum Books Ltd. Bello, K. (2005). Essentials of Public Administration, Kano Flash Printers. Bagchi, A.K. (1982). The Political Economy of under development London, Cambridge press. Barbara, I. (1993). The meaning of development interaction between New State and old ideas U.SA, University of Salford. Page 20 of 98