Model Answer
0 min readIntroduction
Fred Riggs, in his seminal work ‘Administration in Developing Countries’ (1964), proposed the concept of ‘differentiation’ to understand public administration in developing nations. He argued that developing countries exhibit ‘fused’ administrative systems characterized by overlapping roles, lack of specialization, and a prevalence of particularistic norms. This contrasts with ‘differentiated’ systems in developed countries, marked by functional specialization, impersonality, and universalistic principles. However, the post-globalization era, with its increased interconnectedness and flow of ideas, capital, and people, presents a complex scenario that necessitates a re-evaluation of Riggs’s framework and its applicability in the 21st century.
Riggsian Differentiation: A Recap
Riggs’s model posited a spectrum of administrative systems ranging from ‘fused’ to ‘differentiated’. Key characteristics of ‘fused’ systems included:
- Role Fusion: Individuals holding multiple, often conflicting, roles.
- Particularism: Decisions based on personal relationships rather than objective criteria.
- Lack of Specialization: Limited division of labor and functional expertise.
- ‘Prismatic-Salaam’ Effect: Distortion of policies as they move down the administrative hierarchy.
He believed that modernization would lead to differentiation, mirroring the administrative structures of developed nations.
Globalization’s Impact on Differentiation
Blurring of Public-Private Boundaries
Globalization has led to increased privatization, public-private partnerships (PPPs), and the rise of non-state actors in service delivery. This blurs the lines between the public and private spheres, challenging Riggs’s clear distinction between them. For example, the increasing role of NGOs in healthcare and education in many developing countries demonstrates this blurring.
Rise of Transnational Actors & Networks
The emergence of multinational corporations (MNCs), international organizations (like the WTO, IMF, World Bank), and transnational advocacy networks (TANs) has created a complex web of actors influencing public administration. These actors operate across national boundaries, diminishing the state’s control and challenging the traditional hierarchical structure envisioned by Riggs. The influence of the World Bank’s structural adjustment programs on administrative reforms in developing countries exemplifies this.
Convergence vs. Divergence
While globalization promotes certain universalistic principles (e.g., transparency, accountability) through international norms and standards, it also reinforces existing inequalities and creates new forms of differentiation. The adoption of e-governance technologies, for instance, can enhance efficiency but also exacerbate the digital divide, creating a new form of administrative differentiation based on access to technology.
The Changing Role of the State
Globalization has prompted a shift in the role of the state from a direct provider of services to a facilitator and regulator. This ‘steering’ role requires new administrative capabilities, such as policy coordination, network management, and risk assessment, which may not fit neatly into Riggs’s traditional framework. The concept of ‘New Public Management’ (NPM), popularised in the 1980s and 90s, reflects this shift.
Limitations of Riggs’s Framework in the Globalization Era
Riggs’s model was criticized for its:
- Ethnocentric Bias: Assuming Western administrative models as the ideal.
- Static View: Failing to account for the dynamic nature of administrative systems.
- Oversimplification: Reducing complex administrative realities to a single dimension of differentiation.
Globalization further exacerbates these limitations by introducing new complexities and challenging the notion of a linear path towards ‘differentiation’.
Relevance of Riggs in the 21st Century
Despite its limitations, Riggs’s framework remains relevant as a starting point for understanding administrative systems in developing countries. The concept of ‘fused’ systems still resonates in contexts where informal practices, patronage networks, and weak institutional capacity persist. However, it needs to be adapted to account for the transformative forces of globalization and the emergence of new administrative paradigms.
Conclusion
In conclusion, while Riggs’s concept of differentiation provided a valuable framework for understanding public administration in the post-colonial era, the post-globalization landscape presents significant challenges to its applicability. Globalization has blurred the lines between public and private, empowered transnational actors, and prompted a redefinition of the state’s role. A nuanced understanding of these changes is crucial for developing effective administrative reforms that address the specific challenges and opportunities of the 21st century. The future of public administration lies not in simply replicating Western models, but in forging hybrid approaches that combine universal principles with local contexts.
Answer Length
This is a comprehensive model answer for learning purposes and may exceed the word limit. In the exam, always adhere to the prescribed word count.