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 universalism. 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 functional specialization within the bureaucracy.
- ‘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 is a prime example.
Convergence vs. Divergence
While globalization promotes certain aspects of differentiation – such as the adoption of market-oriented reforms and performance-based management – it also fosters divergence. The ‘Washington Consensus’ policies, initially promoted globally, faced resistance and adaptation in various contexts, leading to diverse administrative models. Furthermore, the rise of populism and nationalism in recent years has led to a reassertion of state control in some countries, contradicting the trend towards liberalization and deregulation.
The ‘Post-Bureaucratic’ Paradigm
Globalization has spurred the adoption of ‘post-bureaucratic’ models of public administration, emphasizing flexibility, decentralization, and citizen participation. These models, often facilitated by information and communication technologies (ICTs), challenge the rigid hierarchical structures characteristic of traditional bureaucracies. E-governance initiatives in India, such as the Digital India program (2015), exemplify this shift.
Limitations of Riggs’s Framework in the Globalization Era
Riggs’s model was criticized for its:
- Eurocentric Bias: Assuming that the Western model of administration is the ideal.
- Static View: Failing to account for the dynamic nature of administrative systems.
- Oversimplification: Reducing complex administrative realities to a simple ‘fused-differentiated’ dichotomy.
Globalization exacerbates these limitations by introducing new complexities and challenging the applicability of a linear, evolutionary model of administrative development.
| Riggsian Concept | Impact of Globalization |
|---|---|
| Clear Public-Private Divide | Blurring due to PPPs, privatization |
| State as Primary Actor | Rise of transnational actors & NGOs |
| Hierarchical Structure | Decentralization & network governance |
| Universal Path to Differentiation | Diverse adaptations & reassertion of state control |
Conclusion
While Riggs’s concept of differentiation provided a valuable framework for understanding public administration in developing countries, the post-globalization era has significantly altered the landscape. Globalization has challenged the core assumptions of his model, leading to a more complex and nuanced reality. The administrative systems of today are characterized by a hybridity of ‘fused’ and ‘differentiated’ elements, influenced by both global forces and local contexts. A more nuanced and context-specific approach, acknowledging the interplay between globalization, localization, and the evolving role of the state, is necessary to effectively analyze and manage public administration in the 21st century.
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.