Model Answer
0 min readIntroduction
Fred Riggs, a prominent scholar of comparative public administration, proposed an ‘ecological approach’ to understanding administrative systems. He argued that public administration couldn’t be studied in isolation but needed to be understood within its socio-political and economic environment. In his seminal work, “Administration in Developing Countries: The Theory of Prismatic Bureaucracy” (1964), Riggs observed three key ‘trends’ discernible in the comparative study of public administration, offering a framework for analyzing administrative structures across different nations. These trends provide a lens to understand the complexities of administrative systems, particularly in developing countries.
Riggs’s Three Trends in Comparative Public Administration
Riggs identified three crucial trends that help in understanding the variations in public administration across different countries. These are:
1. Formal-Informal Dichotomy
Riggs argued that all administrative systems exist on a spectrum between formal and informal structures. The formal structure represents the officially prescribed rules, regulations, and procedures, while the informal structure encompasses the unwritten norms, customs, and personal relationships that influence administrative behavior.
- In developed countries, the formal structure tends to dominate, leading to a more rational and predictable administration.
- In developing countries, the informal structure often plays a significant role, sometimes overshadowing the formal system. This can lead to patronage, corruption, and a lack of transparency.
Example: In India, despite the existence of well-defined bureaucratic procedures, ‘jugaad’ (improvisation) and personal connections often influence decision-making, demonstrating the interplay of formal and informal elements.
2. Fused-Fragmented Continuum
This trend relates to the degree of centralization or decentralization in an administrative system. Riggs posited a continuum ranging from ‘fused’ to ‘fragmented’ administration.
- A fused administration is characterized by a high degree of centralization, where power and authority are concentrated at the top. This often leads to a lack of responsiveness to local needs.
- A fragmented administration is decentralized, with power dispersed among various agencies and levels of government. While potentially more responsive, it can also suffer from coordination problems and duplication of effort.
Example: China’s administrative system, with its strong central control and hierarchical structure, exemplifies a fused administration. Conversely, the United States, with its federal system and multiple layers of government, represents a more fragmented approach.
3. Simplified-Differentiated Spectrum
This trend focuses on the level of specialization and complexity within an administrative system. Riggs identified a spectrum ranging from ‘simplified’ to ‘differentiated’ administration.
- A simplified administration is characterized by a lack of specialization, with officials performing a wide range of tasks. This is common in developing countries with limited resources and a small administrative apparatus.
- A differentiated administration is highly specialized, with officials possessing specific skills and expertise. This is typical of developed countries with complex administrative needs.
Example: In many African nations, civil servants often handle multiple portfolios due to limited staffing, representing a simplified administration. In contrast, countries like Germany have highly specialized administrative branches, reflecting a differentiated system.
| Trend | Formal | Informal | Fused | Fragmented | Simplified | Differentiated |
|---|---|---|---|---|---|---|
| Characteristics | Rules-based, Impersonal | Customs, Relationships | Centralized, Top-down | Decentralized, Dispersed | Lack of Specialization | High Specialization |
| Typical Context | Developed Countries | Developing Countries | Authoritarian Regimes | Federal Systems | Resource-constrained Nations | Developed Economies |
Conclusion
Riggs’s three trends remain relevant for understanding the complexities of public administration in a comparative context. While his ‘prismatic bureaucracy’ model has faced criticism for its generalizations, his framework provides valuable insights into the interplay of formal and informal structures, the degree of centralization, and the level of specialization in administrative systems. His work encourages a nuanced understanding of administrative realities, moving beyond simplistic comparisons and recognizing the influence of socio-political 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.