Citizens, public administration and the search for theoretical foundations

Many students of public administration have claimed, as rationale for the field, that the Prince, the President, the Legislator or the Ruling Class needs help. In contrast, John Gaus argued that it is the citizens who need help. From the latter perspective, the questions become, under what conditions is it likely that administration will provide help in democratic settings where legitimate government depends on popular consent? To help citizens effectively, does it make any difference how public administration, and in particular the relations between administrators and citizens are organized?