An Approach to a Science of Administration

Writers on public administration place much emphasis upon the possibilities and importance of discovering and applying scientific principles in their field of study. But very few of them have ventured to state the basic premises upon which they seek to build that science. Many of those whose writings imply that major principles have been discovered announce, not premises, but conclusions, which, regardless of their practical merits, can hardly be called anything but opinions. On the other hand, several scholars seek to escape from errors of commission by avoiding the use of such scientific terms as “principles” or “efficiency.” If they go beyond descriptive analyses to advocate particular plans of organization or methods of procedure, they use terms which denote value judgments, thereby admitting by implication that they are expressing mere opinions. In a few published discourses, basic premises are stated and reasoning is developed therefrom. However, most of those premises—or “principles”—are referred to by name only, such as “the principle of leadership”; they are not stated in terms of precise causal relations which can be verified or which can serve adequately as bases for further reasoning. It may be regarded as unwise to venture a statement of what one considers the basic premises upon which a science of administration may be built. But every body of theory is built upon fundamental assumptions, either expressed or implied. Moreover, a body of theory is complete, and has scientific value, only when the premises are sufficiently clear to permit objective scrutiny and verification. Erroneous hypotheses, stated precisely, may be more scientific than vague or unexpressed assumptions; for only the former will lend themselves to verification. In other words, trial and error is an essential part of scientific method.