Dwight Waldo compiled the above-cited book in order to complete requirements for his Ph.D. in Political Science at Yale University in 1942. This volume has been considered "classic" in the field of Public Administration because it reflects most of the primary aspects or elements accepted by all Public Administration specialists. Within the pages of Waldo's work, the philosophy of his field is explained in depth, as well as the developmental history of the bureaucratic state. Additionally, emphasis is placed on scientific methods of management, with reference to critical criteria and ideological concepts.
It is important to mention that this text was derived from the field of political science, even though it concentrates on public administration. For the last 50 years, a scholarly debate has arisen concerning whether political science should or should not include "public administration". Today, public administration theorists, such as Wilson, Goodnow and, to some degree, Willoughby, are convinced that this field is clearly separate from political science, largely due to "psychological" differences.
In the body of his text, Waldo introduces the concept of The Great Society which, in his opinion, is based upon business activity, a sector, he feels, constituting a "civilization" in itself. One role, he points out, of Public Administration is to influence favorably the private sector, stimulating growth and development. The author confirms that in many countries the State controls business, but, in the United States, it seems that business controls the State, as well as all thought processes concerning new approaches to Public Administration.
Turning to another critical concept, Waldo speaks of the evolution of social trends in the United States. He mentions that, during the 19th Century, a fundamental moral order was dominant. Slowly, these fundamental laws were eroded by modern ideas, and the entire concept of government, and public administration, changed. As these transitions occurred, new managerial styles emerged. Realism began to occupy an important place in the minds of theorists. Goodnow, for example, drawing on his legal and comparative theoretical knowledge, prompted the reform toward "new management." His ideas, however, were too limited for new management scholars and they expanded them. Executive leadership, administrative reorganization, and the model of private sector activity were among the primary characteristics of this new school of thought.
When Waldo, writing in the 1942-1947 time frame, turned to the issue of centralization of power, he noted that in Oregon at the turn of the century, city government had directed its attention toward a commission-type model of governance, consisting of a Council, rather than a central figure, such as a Mayor. He recognized, however, that a shift between centralized models and decentralization often occurred on a rotating basis. When centralized power is in fashion, people use the Federal Executive concept as justification, he comments. On the other hand, when discussing the advantages of decentralization, Waldo mentions "government by the people and for the people" as a guiding slogan.
In his overall remarks, he emphasizes harmony and order in society, suggesting that they should become primary objectives. Another focal point in the text, which, in my opinion, makes his writing truly "classical", is the notion of "scientific management." This theory was pioneered by Frederick W. Taylor who master-minded the successful organizational concepts used in private industry. Later, these ideas were transferred by public administration theorists to the public sector. The basic concept of scientific management dealt with a "production unit", much like an assembly-line produces a given amount of work in a predetermined time period. As of 1947, Waldo claims that there is no concrete evidence showing the positive influence of this scientific approach. However, it has favorably affected "harmony, efficiency and economy", according to Dr. Waldo. He states that management evolves through experience on-the-job, actually creating the basis for a new "science."
The author feels that the "good life" can be achieved through efficient, well-planned societal growth, using public administration as a tool to accomplish these goals. He outlines specific criteria guiding all actions within the bureaucratic model; in doing so, he speaks of the "utilitarians" who wish basically to abolish higher moral law. He also describes in detail key criteria for achieving the most "happiness" for most citizens.
When addressing another major issue, somewhat later in his book, Waldo divides government power into five principal points or classes. The first three are the traditional branches of Western Democratic governmental structure: executive, legislative and judicial. He confirms his belief in the validity of checks and balances. Further, when speaking of the fourth class of power -- the Administrative Segment -- Waldo states that political control of administrative bureaucrats must be limited to only what is "necessary." Overriding all segments of power is the fifth, the electorate, that is to say, the voters.
Waldo, summarizing Willoughby, actually seems to find fault in the thinking of the Constitutional Framers who divided power over Administration approximately equally between the President and Congress.
The Administrative State, in Chapter 9, turns to a pivotal question. In fact, this Chapter uses a phrase which requires explanation. Waldo calls "cosmic constitutionalism" the idea which focuses on "moral" and "physical" needs. A society requires clarification of these priorities, he argues. Essentially, he asks:
1. Is moral law going to govern a society?
2. Or will physical requirements, such as making money at any cost, dominate the value-system, thus affecting the philosophy of public administration throughout the entire country?
He makes the distinction between theory and actual practice, when discussing these concepts.
The United States, in 1947 when Waldo wrote his "Preface to the First Edition", was still largely a "moral" country; however, values were, even then in the Post-War era, swinging dramatically toward physical needs and growth, sometimes at the expense of "morality", defined in the 19th Century sense.
This volume contains a number of secondary concepts which are worthy of discussion, as well. However, the major qualities which made The Administrative State a "classic" in the field of Public Administration have been reviewed briefly above.