Public Administration Optional Syllabus for UPSC 2025

Chapter

Focus area

GS Linkages

1

INTRODUCTION

In depth

Meaning, scope, and significance of Public Administration

WHAT DO YOU STUDY WHEN WE STUDY PUB AD?

scope, and Significance of Public Administration Meaning and significance of ‘public’ and ‘administration’,

What is public interest and how it impacts the scope of public administration?

Why is Public administration important for society? Public-Private Dichotomy,

Scope of public administration in the current era. Government to governance

Governance theory –

issues in GS II 

Wilson’s vision of public administration

WHERE IT ALL BEGAN?

Dichotomy and Wilson’s logic behind separating the study of administration from politics. The search for efficiency leading to future developments in the discipline of Public Administration. Wilson as the father of PA.

Criticism of Wilson’s Vision for PA and Dichotomy.

–NA

Evolution of the discipline and its present status.

VARIOUS PHASES IN THE DEVELOPMENT OF A DISCIPLINE…

Epistemological perspectives in the theory building and other Philosophical developments. The logic behind modern, postmodern, positivism, neo etc.

The idea of paradigm, paradigms in public

administration.

Changing Nature -Governance ,

Topics like transparency ,Reforms and Citizen Centric Administration.- GS II

New Public Administration 1 and 2

IMPORTANT MILESTONES

Background for the emergence of NPA,

Basic premises, vision, and impact, rejection of dichotomy.

Criticism of NPA 1 and 2

Public Choice Approach

ECONOMICS IN PUB AD…

Concept and basic premises, Impact and Criticism

Developmental economy ,behavioural economics ,corruption etc-GS II & III

Challenges of liberalization privatization and

globalization

IMPACT OF LPG ON GOVERNMENT ADMINISTRATION…

How the LPG movement has altered the nature of scope of public administration.

GS II, GS III ,GS IV

Good Governance

WHAT DO WE EXPECT FROM THE GOVERNMENT TODAY AND WHAT GOVERNMENT EXPECTS FROM THE PEOPLE…

The de1inition given by the world bank.

Parameters of governance and good governance.

GS II & IV

Probity in Administration,Administrative Reforms and anti corruption initiatives -GS IV

New Public Management

THE ECONOMICAL PRINCIPLES GUIDING THE DIRECTION FOR PUBLIC ADMINISTRATION

Retreat of the state and expansion of the private sector for its attributes of ef1iciency. (Wilsonian

vision)

GS II ,GS IV :Administrative Reforms ,New models of Administration .

2

Administrative thinkers

Scienti1ic management and SM movement

EARLIEST ATTEMPT OF DEVELOPING A SCIENCE OF ADMINISTRATION…

Scienti1ic management of Taylor, Structures, The vocabulary used by Taylor, Elementalism Criticism

Classical Theory

A.  Fayol

B.  Gulick and Urwick

MORE SCHOLARS LOOKING FOR A SCIENCE OF ADMINISTRATION…

Managerial View, Functionalist (Functions performed by an organisation and a manager) Criticism.

Principles of Organisation, Human factor, and

Time in Public Administration

Weber’s Bureaucratic Model – its critique and post-Weberian Developments

MILESTONE IN PUB AD: BUREAUCRACY – THE GOOD, BAD AND UGLY.

Authority and Power, Types of authorities,

Characteristics of Bureaucracy, relevance of bureaucracy, critique of bureaucracy, weber’s analysis on shortcoming of bureaucracy, post Weberian development – neo- Weberian state,

Blacksburg manifesto, new public service, public goods, and public interest, pareto optimality

Polity and governance issues -GS II

Issues in civil services ,problems and issues in administration-GS IV

Dynamic Administration (Mary Parker Follett)

BRIDGE: FROM OLD SCHOOL TO THE NEW.

Follet’s Contingency Model, order of the situation, Con1lict Resolution,

Views on

Power, Authority, leadership, communication, and Control. Criticism of Follet’s ideas in dynamic administration.

Human Relations School (Elton Mayo and others)

BRINING HUMANS BACK IN THE ORGANIZATION…

Hawthorne Experiment,

Group Behaviour and dynamics in industrial organisations, Importance of informal groups.

Functions of the

Executive (Chester Barnard)

FUNCTIONS OF EXECUTIVE: MANAGING PEOPLE

IN THE ORGANIZATION…

Organisations as systems of Human Cooperation, Total situation, formal and informal organisations,

Leadership -Ethical and Administrative-GS IV

acceptance of authority (Fiction of Authority), Characteristic of a complex organization, Contribution-Satisfaction Equilibrium, Zone of Indifference,

Views on communication, coordination, decision making, authority, power, leadership, qualities of a leader, moral/ethical leadership, planning.

Criticism.

Simon’s decision- making theory

A PERSPECTIVE THAT BROKE THE COURSE OF PUB AD!

Decision making model, Programmed and non- programmed decisions, rationality and Bounded rationality, ‘satisfyising’ behaviour, administrative man, Fact-Value dichotomy, Zone of acceptance, 4 types of rationalities, views on authority and ef1iciency, Communication, informal organization,

Criticism of Simon.

Moral and ethical dilemmas ,efficiency and rationality in decision making- GS IV

Participative Management (R. Likert, C.Argyris, D.McGregor).

ORGANIASATIONS FOR THE PEOPLE’S GROWTH…

R. Likert –

i.         Supervisory Styles

ii.       (Job Centred vs Employee Centred)

iii.        Interaction In1luence system to maximize skills, resources, and individual’s motivation at different levels of organisation

iv.        Linking Pin Model

v.         Management Systems (System – 1 to System –4)

vi.        Ways of managing con1lict

D. McGregor –

i.   Theory X and Theory Y,

ii.  Scanlon Plan,

iii. Rehabilitation of Rational Emotive Manager,

iv. Working through differences,

v.  Transactional In1luence

C. Argyris –

i.         Strategies for Organizational Development:

ii.         Maturity-Immaturity Theory Improving Interpersonal Competence

iii.        Organisational Structures – Pyramid Structure, Modi1ied Formal Organisation, Matrix Organisation.

Democratization in administration-attitude and behavioural reforms ,emotional intelligence -GS IV

iv.        Techniques of Programmed Learning –

Sensitivity (T- Group) Training

v.         Individual and Group adaptation

vi.        Organisational Learning Criticism of the above thinkers

Theories – system and

contingency

MODERN ORGANISATIONS…

Analysis and evaluation of models

3

Administrative

Behaviour

Communication; Morale;.

GLUE THAT BINDS ORGANISATIONS…

Role and processes of communication. Manuel castells- network society,

Values ,attitude and emotional intelligence ,impact of structural and social reforms within administration-GS IV

Motivation Theories – content, process and contemporary;

THE DRIVING FORCE BEHIND ACTIONS OF PEOPLE…

Traditional, content Vs. Process, Contemporary. Contributions: Maslow’s need hierarchy Herzberg, McGregor, Alderfer ERG model

Victor vroom’s VIE model Pavlov’s Reinforcement theory, Operant condition theory of B.F Skinner, Edwin Locke (Goal setting theory)

Equity Theory (Stacy adams)

Cognitive evaluation theory by Charms. Criticism

-Values ,attitude and emotional intelligence ,impact of structural and social reforms within administration- GS IV

Theories of Leadership: Traditional and Modern

LEADER MUST BE FIRM YET GENTLE…

Trait theories, modern theories, contingency theories.

Contributions:

OHIO Study, Likert Michigan Study

Leadership grid, Blake and Moulton

Fiedler’s Contingency theory Path Goal Theory, Robert House

Lifecycle approach, Hersey & Blanchard Cognitive resource theory, Diago and Garcia Leader-member exchange theory,

Contemporary developments.

5

Accountability and control:

THE MORAL SIDE OF ADMINISTRATION AND HOW TO ENSURE IT…

Entire probity in administration and good governance for ethics in governance -GS IV

Concepts of accountability and

control

The basic concepts. How accountability, responsibility and control linked.

Legislative, Executive, and judicial control over administration

Means of accountability and control

Different ,means by which accountability is ensured in the organization.

Entire probity in administration and good governance for ethics in governance -GS IV

Citizen and

Administration

Understanding the citizen administration interface

and ways of improving it.

GS II-Governance issues and Social Justice .

Role of media, interest groups, voluntary organizations. Civil society; Citizen’s Charters; Right to Information,

Social audit

The actors outside government that are asking right questions and making the administration answerable for their actions.

The concepts and its implication for administration and democracy.

6

Administrative Law:

WITH GREAT POWERS COMES GREATER

RESTRICTIONS… CONSTITUIONALISM AT WORK

 Administrative Ethics ,Reforms for Transparency,Justice Delivery

GS-IV/ GS II

Meaning, scope and signi1icance;

Common law vs administrative law

Dicey on Administrative law;

Dicey’s criticism of droit administratif

Delegated legislation;

Growth, relevance and control of delegated

legislation

Administrative Tribunals.

Need and scope. Tribunalisation of justice, in the context of administrative law.

7

Comparative Public Administration:

ADMINISTRATION ACROSS THE BORDERS – STUDYING PUB AD BEYOND USA

NA

Historical and sociological factors

affecting administrative systems;

Search for scienti1ic and universal principles of administration, Ecological and Systems Approach

Administration and politics in different

countries;

Understanding the Ecological aspects in1luencing administration and vice versa

Current status of Comparative Public

Administration;

New CPA, Globalisation and Development, Development Administration

Ecology and administration;

Ferrel Heady, Riggs, Sala Model, Internal and external environment in1luence: Theoretical

models.

Riggsian models and their critique.

Agraria-industria typology, Prismatic model, Bazaar- canteen model, Riggs on development,

critical appraisal of Riggs.

8

Development Dynamics:

WHAT DEVELOPMENT MEANS TO DIFFERENT

SOCIETIES AND HOW GOVERNMENT CARRIES IT OUT

Indian society ,social justice and women development -GS I & GS II.

Concept of development;

Development administration: origin and evolution, comparison with traditional, dynamism of scope.

Changing pro1ile of

development administration;

Conceptual perspective, various phases: Crisis phase, governance phase.

‘Anti-development thesis’; Bureaucracy and development;

Participative development, Contribution of scholars: Jean Dreze, Amartya Sen, Antithetical aspect, Contribution of scholars: Weber, Peter Blau, Riggs. Indian Perspective- empowerment

approach.

Strong state versus the

market debate;

Theoretical and practical emerging scenarios.

Impact of liberalisation on administration in

developing countries;.

Administration from regulatory to facilitator, challenges, minimalist state, Neo-liberal model

Women and development

– the self-help group movement

Womenisation of development, role and issues faced by women and SHGs

9

Personnel

Administration:

HOW TO MANAGE PEOPLE IN THE GOVERNMENT

ORGANIZATION

 Administrative Reforms GS-II ,Recent Initiatives,Accountability & Control GS II & GS IV

Constitutional Position of Civil Services GS II

Importance of human resource development;

Role of HRD in government, HRD developments in government systems, approaches to integrated

HRD.

Recruitment, training, career advancement, position classi1ication, discipline, performance appraisal, promotion, pay

and service conditions;

Types, relevance and issues. (Recent developments in Indian administration)

employer-employee relations, grievance redressal mechanism; Code of conduct;

Administrative ethics

Whitley commission, Administrative ethics, (learning the topic with paper 2 examples)

10

Public Policy:

DESIGNING A MANUAL OF PUBLIC SERVANT TO FULFILL THE PURPOSE OF DEMOCRACY

Models of policy- making and their critique

Systems model, rational models, Incrementalist

model: Lindbloom, Dror’s normative-optimum model, mixed model

Processes of conceptualisation, planning and implementation, monitoring, evaluation and review and their

limitations

Techniques involved in policy making, models and agencies involved in policy process, formal and informal channels, Perspectives and challenges involved.

NA

State theories and public policy

formulation.

Role of state in making and implementing the policies, Marx’s views, Socialist view on the state.

GS-I(Indian Society)

11

Techniques of

Administrative Improvement:

HOW TO MAKE ADMINISTRATION MORE

EFFIECIENT – LEGACY OF SCIENTIFIC MANAGEMENT.

 Administrative Reforms GS II & GS IV

Organisation and methods, Work study and work management;

e-governance and information technology;

The tools, techniques and methods of improving administrative ef1iciency.

Management aid tools like network analysis,

MIS, PERT, CPM.

12

Financial Administration:

MANAGING THE FUEL OF GOVERNMENT BUSINESS EFFECTIVELY.

Monetary and fiscal policies;

Influencing macroeconomic outcomes using the 2 tools of Monetary and Fiscal Policy, FRBM Act,

2003

  Administrative Reforms GS II

Public borrowings and

public debt,

Debt management, transparency and

accountability, framework and pitfalls.

Budgets – types and forms;

Institutions involved in budgetary

process: Parliament, Political Executive, Audit

Department, Parliamentary Committees, Scrutiny of Budget, Principles of Budget-making

Financial Reforms -Budgeting GS III

Budgetary process; Financial accountability;

Implementation of budget, scrutiny of budget, reforms in financial management.

Accounts and audit.

Types and forms: Legal audit, social audit, ethical

audit.

Syllabus

Focus area

GS Linkages

Evolution   of   Indian Administration:

UNDERSTANDING THE ORIGIN OF PUBLIC ADMINISTRATION IN INDIA.

1

Kautilya’s Arthashastra;

Kautilya’s theory on Political Realism, Relevance of Arthashastra in the present context, Saptanga Theory, Personnel Administration, Revenue Administration

Ancient History-Politics & Administration 

GS I /GS II

Mughal administration;

Administrative Reforms introduced by the Mughals(Mansabdari System), Centralised and Urban despotism, Indian and Extra-

Indian Elements, Revenue Administration

Legacy of British rule in politics and administration

– Indianization of public services,               revenue administration, district administration, local self- government.

Reorganisation of the provinces, Administrative Reforms, Rural and Urban Governance, Police and Military Administration, Evolution of Civil Services. Post-Independence           developments, Coercive to Welfare Administration, Development of Political and

Administrative Culture.

Political development under British Rule-GS II

2

Philosophical            and Constitutional framework                    of government:

THE LAW OF THE LAND

The context in which the Indian constitution was developed.

Political philosophy & Governance Issues-GS II

Salient features and value premises;

Various value premises mentioned in the constitution

Constitutionalism; Political culture;

Meaning and scope, practical realities.

Bureaucracy                and democracy;  Bureaucracy

and development.

Nature, Roles and responsibilities of Bureaucracy in the Indian context.

3

Public                     Sector

Undertakings:

ROLE OF PSU IN NATIONA BUILDING AND CHANGING SCENARIO IN THE ERA OF

NPM

State Enterprises-GS II

Public  sector  in  modern

India;

Changing nature of PSU: A chronological

overview.

Forms of Public Sector Undertakings; Problems of Autonomy,  accountability,

and Control;

A historical perspective on PSU in India. Role of PSU in economic growth

Planning & Socialism Model of Development-GS III

Impact of liberalization and

privatization.

Modern practices in the management of

PSE

4

Union Government and Administration:

THE GOVERNMENT MACHINARY AT THE CENTRAL        GOVERNMENT,        ITS ASSESSMENT  FOR  EFFICIENCY  AND

EFFECTIVENESS.

 Constitution & Union governance Judicial reforms-GS II

Executive,      Parliament, Judiciary – structure, functions, work processes; Recent                    trends; Intragovernmental

relations;

Executive, Parliament, Judiciary- structure, functions, work processes

Recent   Trends,   Intra-governmental relations.

Cabinet Secretariat; Prime Minister’s Of]ice; Central Secretariat; Ministries and Departments;

Signi]icance of the of]ices, changing dynamics as per the in]luence of the PM, structures and process in the government

administration – assessing their effectiveness

 Polity & Governance, Extra Constitutional Bodies-GS II

Boards;       Commissions; Attached  of]ices;  Field

organizations.

Various forms of organization in the government of India and their utility.

5

Plans and priorities

Machinery of planning; Role, composition and functions of the Planning Commission and the National      Development

Council;           ‘Indicative’ planning; Process of plan formulation at Union and State levels; Constitutional Amendments (1992) and decentralized planning for

economic development and social justice

Need for planning, How planning has shaped growth of India, relevance of planning in the era of NPM and LPG.

Assessment of various institutions involved in planning, evaluation of their performance in terms of effectiveness.

GS III-Indian Economy, Dis investment PSU’s, State Enterprises

6

State Government and Administration:

THE GOVERNMENT MACHINERY AT THE

STATE GOVERNMENTS, ITS ASSESSMENT FOR EFFICIENCY AND EFFECTIVENESS.

GS II- Indian Polity & Governance

Union-State administrative, legislative, and financial relations; Role of the Finance        Commission; Governor; Chief Minister; Council of Ministers; Chief

Secretary; State Secretariat; Directorates.

Understanding the structures, process and interaction of government machineries at the level of states.

Various institutions, their mandate, role in running a government.

Critical assessment of various of]ices. Way forward.

7

District  Administration since Independence:

THE GOVERNMENT MACHINERY AT THE LOWER LEVELS OF GOVERNMENT, ITS ASSESSMENT  FOR  EFFICIENCY  AND

EFFECTIVENESS.

GS II-Governance , Indian administration 

Changing  role of the Collector; Union-state-local relations; Imperatives of development management and  law   and   order administration;     District administration            and democratic decentralization.

Understanding the structures, process and interaction of government machineries at the level of district.

The layer that directly interacts with people. The visible arm of government aka administration.

Various institutions, their mandate, role in running a government.

Critical assessment of various of]ices. Way

forward.

Nature of Indian Administration-GS IV 

8

Civil Services:

PERSONNEL              ADMINISTRATION: PRACTICAL REALITIES

Polity & Governance-GS II

Constitutional position; Structure, recruitment, training, and capacity- building; Good governance initiatives; Code of conduct and discipline; Staff associations;        Political rights; Grievance redressal mechanism;  Civil  service

neutrality; Civil service activism.

Extension of the personnel administration from paper 1. The personnel administration in Indian context. Issues and way forward.

Civil services reforms ,Code of ethics, Code of Conduct- GS II /GS IV

9

Financial Management:

FINANCIAL MANAGEMENT: CHECKING

THE FUEL OF THE GOVERNMENT AND ENSURING ITS EFFECTIVENESS.

GS -III- Indian Economy, Audit  Accounting ,Financial Reforms

Budget  as a political instrument;

Signi]icance of ]inancial management for the government.

Parliamentary control of public expenditure.

Role of ]inance ministry in monetary and ]iscal area;

Accountability and control in ]inancial management

Accounting techniques; Audit; Role of Controller General of Accounts and Comptroller  and  Auditor

General of India.

Financial management and control, various institutions in place – their evaluation and way forward.

10

Administrative Reforms since Independence:

ADMINISTRATIVE    REFORMS     FOR

EFFICIENT   AND   EFFECTIVE   OF ADMINISTRATION.

Various Topics in GS II ,Polity & Governance

Major concerns; Important Committees                 and Commissions;  Reforms  in

]inancial management and human                 resource development; Problems of

implementation.

Meaning of reforms, nature of administrative      reforms,      various commissions and committees.

Issues in implementation of administrative reforms

11

Rural Development:

Local Governance-GS II

Institutions and agencies since independence; Rural development programmes: foci and strategies; Decentralization         and

Panchayati Raj; 73rd Constitutional amendment

Carrying forward the concept of development from the paper 1, Governmental initiative for rural development in India, various structures, processes  in  place,  assessment  of

government initiatives, possible way forward.

12

Urban Local Government:

Municipal governance:

Local Governance & Reforms-GS II

Municipal      governance: main  features,  structures,

]inance and problem areas; 74th            Constitutional Amendment; Global-local debate; New localism; Development dynamics, politics and administration

with special reference to city management.

Deepening democratic processes, Strengthening Governance at local level, learning from the best practices across the borders.

13

Law       and       Order Administration:

Accountability & Control ,Police Reforms

British legacy; National Police           Commission; Investigative agencies; Role of central and state agencies including      paramilitary forces in maintenance of law and order and countering insurgency and terrorism;  Criminalisation

of         politics         and administration;      Police-

Existing structures, processes and behaviour, problems in current system, the need for change, government actions to change the status quo, reforms.

Colonial Legacy –

GS II & GS IV

public relations; Reforms in Police.

14

Significant issues   in

Indian Administration:

Governance problems-GS II

Ethics in Administration -GS IV

Values in public service; Regulatory Commissions; National Human Rights Commission; Problems of administration in coalition regimes;                Citizen- administration interface; Corruption                  and administration; Disaster management.

Factual information related to various institutions in news, Issues from current affairs, and contemporary changes to be incorporated from newspapers.