Of the many aspects of public administration, the ethical aspects are perhaps the most important but the least codified. While administrative rules and procedure have been codified in various public documents and manuals, there is no manual for the ethics of public servants.
4. While organisational behaviour analyses the factors which influence the behaviour of individuals in an organisation, ethics refers to those norms and standards which behaviour of the people in an organisation must conform. While behaviour analysis deals with factual aspects, ethics relates to the normative aspects of administration. The normative aspects are of the greatest significance. Just as for an individual if character is lost, everything is lost, so also for an administration if the ethics is lost, everything is lost. Neither efficiency nor loyalty could be substitute for high ethical standards. In India, though there is no ethical code for public administrators, there are what are called, the Government Servants Conduct Rules. These rules lay down what constitutes misconduct for the public servants. It is apparently implied that such misconduct, which is not permitted, is also unethical conduct.
The underlined word manual in the context of the given passage means