An Analysis of Woodrow Wilson’s Essay on Administration

Introduction

The sphere of public administration has seen tremendous transformation and progress in recent decades. This Note makes two important attempts—first, to trace the eternal relevance of one of the most famous and historic essays of the social sciences, by Woodrow Wilson, in the continuing evolution process of public administration as an independent academic discipline with an intelligible pragmatic structure. Second, to highlight the significant points he raised and indicate the contemporary relevance of the essay, which guides the very complex, strategic and interconnected discourses related to authority and governance, through a precise analysis of it. The purpose of this piece, in my perspective, is to make an evaluation that would shed light upon the root of constant pressures the political regimes across the world face due to the dynamic nature of internal and external structures attached to the institution of government.

The three-part essay titled ‘The Study of Administration’ by Woodrow Wilson (1887), a former American President, politician and academician, published in the prestigious Political Science Quarterly in July 1887 during his teaching period at the Bryn Mawr College, calls for an action to reform public administration as a separate intellectual discipline outside the sphere of politics through detailed and systematic application of public laws. He clearly explained the ‘politics-administration dichotomy’ and the need for an autonomous administration, distinct from politics, with an independent and professionally trained bureaucracy with experts who respect the separation of powers derived from the ‘consent of the governed’. For him, ‘politics is the special province of the statesman’ while administration, in contrast, is the most pivotal aspect of technical officials. An optimistic intellectual, Wilson believed in the power of a few wise people over those with negative attitudes and answers about the question of role assigned to public opinion vis-à-vis administration and auxiliary agencies. He expects the people to be authoritative critics with certain principles, skills and convictions attained through the tutor of experienced civil servants. According to him, an administration must be sensitive enough to comprehend the public opinion with vigour and for that proper training, aided by universities, is needed. He proposed a new civil service culture, which replaces the characteristic problems with the old bureaucratic behaviour, through comparative studies and historical understanding to accomplish its purposes and improve both personnel and organisation. He stressed upon the importance of effective administration in attaining progress and the outputs he expects from reforms, in areas including academia through the educational initiative of the government without wasting time, efforts and resources. He urged the scholars and administrators to have a clear understanding of different perspectives and scrutinise thoughts to comprehend their weakness and virtues in a systematic manner. After an analysis of the constitution and functioning of systems like monarchy, tyranny, oligarchy and democracy, he tried to figure out a perspective about power and the possession of it and strongly believed that America is a country of principles and recommended his people to learn other things to make a command on public administration to ensure the country’s dominance in the subject matter.

The essay presents a comprehensive take on why the duties of civil servants must be scientifically studied and systematically suited to certain policy standards and subsequently analysed the origin of administrative bureaus, various forms of governments and systems that existed over many years to create warfare of thoughts and renewed principles in the world. He also quoted the Hegelian definition of philosophy to mark the relevance of a philosophical understanding and intelligence in administrative matters to defeat certain difficulties and challenges arising over different periods. In other words, he believed that the duty of states and the governance function are getting more and more complex every day; so we need new undertakings and controls. In this regard, the role of professors, universities and specialised schools to promote wisdom, scientific knowledge and experience becomes ever relevant in public administration as the duty and conscience of states continue to widen.

In short, Wilson tried to ‘Americanise’ the European Public Administration, radically, in thought, principle and direction to get the people out of ‘bureaucratic fever’ through a fresh state approach to deal with the deteriorating atmosphere of corruption, discrimination, anarchy and confusion after a close comparative analysis. Changes or reforms are inevitable, but some countries may refuse and take a long time for it compared to others and moreover the focus areas of reforms are different in various societies of distinct polity. For instance, as he mentioned, the political history of England and America ‘has been a history, not of administrative development, but of legislative oversight, law-making and criticism’ and hence they, despite all the vast strategic advantages in the arena of liberty and practical political skill, stood behind many other nations in terms of bureaucratic organisation and governing capability. Similarly, he pointed out and praised the reforms and systematic functioning of administration that happened in countries like Prussia, which suffocated many with its particular system of administration, and France during the reign of Frederick the Great and Napoleon to substantiate the dichotomy between constitution and administration in practical terms. The comparison made between Henry, Richard and John substantiates the relevance of administrative competence of the head of a country that he stressed throughout the essay. His major contribution in this essay was the comprehensive explanation of public opinion, and the role of an enlightened bureaucracy to organise efficient, responsible, accountable and vigilant governing systems across the globe to make progress.

According to Wilson, efficient learning of the multidimensional character of societies with a historical outlook about the attitude of earlier sovereigns who enjoyed ‘absolute power’ and those who shared power could rectify the flawed methods of administration by ensuring a general urge for change and new answers to many important constitutional and administrative questions. It may influence the social environment and minds of the public to expect and work for progress with refreshed executive methods, free from confusion and unnecessary expenses. Most importantly, after an insightful explanation of the historical evolution of new administrative governments, this essay went on to convey the author’s support to peace over hatred, revolutionary reforms over stagnation and ‘trust over suspicion’, and it also rejected the corrupt patronage system and called for nonpartisan appointment to permanent and independent civil service after universal political education and administrative training, hence guaranteeing a moral atmosphere and sanctity to administrative offices. With a clear conviction upon the concepts of state, territory and sovereignty, he proposed an exam in selection of a cultured and self-sufficient administrator with careful plans, strong methods and enlightened discretion in practical application of power to ensure the best public criticism with limited external interference and necessary allegiance to the government policy.

The essay clearly states that there must be no confusion or doubt connected to politics on matters of administration and everything must happen in an independent logical manner without distraction. Hence it is quintessential to have a clear intellectual view on the difference between the overall realm of administrative function and constitutional function. Historically, governments across the world focused greatly on constitutional reforms, rather than studying the true aspects of necessary state action in administrative management. As a man who argued for the existence of public administration as a special school of study, his constitutional spirit, vision upon the division of authority in a distributed manner and esteem for federal laws are very much evident between the lines explaining his paramount view on the inclusive application of public law through awakened, multiple and wider scientific reflections through universal political education and systematic administrative studies rather than doing too much by vote.

Importantly, he promoted the adoption of the science of administration to new areas and competitive exams followed by specialised training to recruit sensitive civil servants without prejudice, and urged America to command ‘how-to-do-it’ and scrutinise permanent officials and foreign governments, but importantly the things learned from other countries must not be blindly borrowed as a mere transplant would do evil. It is said to read all the fundamental differences of conditions from place to place and make decisions that are democratically politic in all aspects to look much beyond ‘constitutional mistrust’ of governance which existed with the constitutional government in the United States. Bureaucracy can continue to be the best only if the whole civil service of a state is removed from the common political life of people. According to him, ‘administrative questions are not political questions’ and the duty of America is to serve the most efficient life to federal organisation with pride and mutual loyalty amongst hieratically placed members of an organisation or administrative community for the sake of public interest and improvement.

It is imperative to note that he emphasised upon the application of more efficient and pragmatic administrative methods and brilliant governing styles, which were even adopted by undemocratic regimes during the various stages of history since there has been a clear connection between field of authority, public administration and business. Wilson concluded his seminal essay after a detailed intellectual explanation of the subject matter and the objects of the art of public administration which holds some operational uniformity across the World, demanding more openness, vigour and sensitive public participation with reasoned criticism.