The Political and Cultural Environment ... - archives.enap.caarchives.enap.ca/bibliotheques/2007/02/24789965tdm.pdf · Contents V Municipal Government 98 Towns and Special Districts

Chapter 1

Chapter 2

Preface xvii

Defining Public Administration 1 KEYNOTE: Go Tell the Spartans 1

The Definitions of Public Administration 6 Political Definitions of Public Administration 7 Legal Definitions of Public Administration 13 Managerial Definitions of Public Administration 19 Occupational Definitions of Public Administration 23

The Evolution of Public Administration 28

The Core Content 29 It's an Adventure! 31

A CASE STUDY: How a President Undeservedly Received Credit for Founding a Discipline 32

Summary 33

Review Questions 34

Key Concepts 34

Bibliography 35

Recornrnended Books 35

Related Web Sites 36

The Political and Cultural Environment of Public Policy and Its Administration 37

KEYNOTE: Who Decides If the United States Should Wage War? 37

What 1s Public Policy? 41 Public Policymaking in a Republic 42 Executive Powers 45

IV Contents

The Policymaking Process 48

Agenda Setting 50 Decision Making 52 A Single Calculating Decision Maker-Not! 54 Impiementation 55 Evaluation 59

Power-The External Perspective 60 Pluralism 61 Group Theory 63

Power-The Internal Perspective 67

Organizational Goals 68 Internal Power Relationships 69

The Cuitures of Public Organizations 71 The Outside Cultural Environment 71 ''

The Inside Cultural Environment 73 Professional Socialization 75 Symbolic Management 76

A CASE STüDY: Were the Space Shuttle Astronauts Killed by Fog? 77

Summary 80

Review Questions 80

Key Concepts 80

Bibliography 81

Recommended Books 82


Chapter 3 The Continuous Reinventing of the Machinery of Government 83

KEYNOTE: The New Feudalism 83

What 1s the Machinery of Government? 86 Fine-Tuning the Machinery 86 The Rise and Fa11 of Govetnmental Machinery 87

The Administrative Architecture of the U.S. Government 88 Executive Branch Machinery 90

State and Local Government Machinery 95 State Government 96 County Government 97

Contents V

Municipal Government 98 Towns and Special Districts 99 Local Management Machinery 100 Metropolitan Government 101 Continuous State and Local Reform 102

Reforming the National Machinery of Government 104 The Brownlow Committee 106 The Hoover Commissions 108 The Ash Council 109 The President's Private Sector Survey on Cost Control 109 Reinventing Government 110 The Gore Report 112 The End of Reinvention 113 The Micromanagers 114

The Pressure for Pnvatization I 16

Strategies for Privatization 117 Privatization in the Military 11 8 The Nonprofit Gambit 120 Voluntarism and Philanthropy 122

A CASE STUDY: The Revolution in the British Machinery of Government 1979-2005 125

Summary 127

Review Questions 128

Key Concepts 128

* Bibliography 129



Chapter 4 Intergovernmental Relations 13 1 . .

KEYNOTE: The Age of Devolution 132

The Evolution of Federal Systems 136 Alliances and Confederations 137 Defining Intergovernmentai Relations 137

The Fundamental Settlement 139

The Constitution 139 The European Union 140

The American Federal System 141 Three Categories of Governments 142

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VI Contents

The Structure of Intergovernmental Relations 144 The Effects of Pluralism 145 The Marble-Cake Metaphor 146

Dynamic Federalism 147

Dual Federalism 147 Cooperative Federalism 148 Creative Federalism 149 New Federalism 150 New New Federalism 150

.. Intergovernmental Management I 5 I ,

Picket Fence Federalism 15 3 Councils of Government and Intergovernmental Agreements 153 Mandate Mania 154 Mandates and the War on Terrorism 156 .V

The Transformation of Governance 158

Fiscal Federalism -Following the Money I 5 8 The Theory of Fiscal Federalism 159 Grant Programs 162 From Contractive to Coercive Federalism 164

The Devolution Revolution 165

The Public Choice Solution 166 The Race to the Bottom 167

TWO CASE STüDIES: How Intergovernmental Management Became Intergovernmental Chaos: The Cases of United Flight 93 and Hurricane Katrina 168

Summary 170


Key Concepts 171

Bibliography 172



Chapter 5 Honor, Ethics, and Accountability 174 KEYNOTE: Niccolo Machiavelli, the Preeminent Public Administration Ethicist 175

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Contents VI1

The Origins and Nature of Honor 178 National Honor 179 Why Honor Precedes Ethics 180 Dimensions of Honor 180 Regime Values 182

Corruption in Government I 83 Bribery 183 Watergate 184

Lying for Your Country 186

The Dirty Hands Dilemma 18 8 Lying About Sex 189

Hierarchy of Ethics 191

The Four Levels of Ethics 192 The Iran-Contra Affair 192 The Higher Law Defense 193

Codes of Honor, Conduct, and Ethics 194 The New Face of Dueling 194 Honorable Behavior 195 Was "Deep Throat's" Behavior Honorable? 196 Standards of Conduct 197

The Challenge of Accountability 198

Constitutional and Legal Constraints 200 Obsessive Accountability 201 Avoiding Accountability 203

Legislative Oversight 204 Hearings 204 Casework 206

A CASE STUDY The Blood o n Robert McNamara's Hands- and Conscience 207

Summary 210

Review Questions 21 1

Key Concepts 21 1

Bibliography 212



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Vlll Contents

Chapter 6 The Evolution of Management and Organization Theory 215

KEYNOTE: Moses Meets the First Management Consultant 216

The Origins of Public Management 21 8 The Continuing Influence of Ancient Rome 220 The Military Heritage of Public Administration 222

The Evolution of Management Principles 223 Comparing Military and Civilian Principles 223 The Principles Approach 226

What 1s Organization Theory? 227 Classical Organization Theory 228 Adam Smith and the Pin Factory 229 .P

The Origins of Scientific Management 232 The Staff Concept 232 The Influence of Frederick W. Taylor 233 Fayol's General Theory of Management 238

The Period of Orthodoxy 23 8

Paul Appleby's Polemic 239 Luther Gulick's POSDCORB 240

The Many Meanings of Bureaucracy 241 Al1 Government Offices 241 Al1 Public Officials 242 A General Invective 242 Max Weber's Structural Arrangements 242

Neoclassical Organization Theory 244 Herbert A. Simon's Influence 245 The Impact of Sociology 245

"Modern" Structural Organization Theory 247 Basic Assumptions 247 Mechanistic and Organic Systems 247

Systems Theory 248 Cybernetics 249 The Learning Organization 250 Complex Adaptive Systems 251

A CASE STUDY: The Critical Importance of Administrative Doctrine 251

Summary 254


Contents IX

Key Concepts 256

Bibliography 256



Chapter 7 Organizational Behavior 259 KEYNOTE: Organization Development in Hollywood: From The Sands of Iwo Jima to G.I. Jarze 259

Organizational Behavior 264

Group Dynamics 266 Organization Development 269 The Impact of Personality 273

The Impact of Bureaucratic Structure on Behavior 274 Bureaucratic Dysfunctions 275 Bureaucratic Impersonality 276 Bureaucrat Bashing 278 The Case for Bureaucracy 281

Motivation 282

The Hawthorne Experiments 282 The Needs Hierarchy 283 The Motivation-Hygiene Theory 284 Toward a Democratic Environment 285 Theory X and Theory Y 286

The Future of Organizations 289

Postbureaucratic Organizations 289 Postmodernism 291 The Problem of Technocracy 292 The Core Themes of Postmodernism 293 Postmodern Public Administration 294 A Feminist Perspective 295

A CASE STUDY: The Dangers of Groupthink from Pearl Harbor to the War in Iraq 298

Summary 300


Key Concepts 301

Bibliography 302



"W

X Contents

Chapter 8 Managerialism and Performance Management 305 KEYNOTE: Socrates Discovers Universal Management 305

Managerialism 309

A New Managerial Revolution 310 Policy Entrepreneurs 31 1

Reengineering 3 IZ Radical as Opposed to Incremental Change 3 12 Becoming a Reengineer 3 1.3

Empowerment 3 14 Empowering Teams 315

Entrepreneurialism 3 I 6 a

Toward a Cornpetitive Public Administration 318 The New Public Management 319

What 1s Performance Management? 321

The Politics of Performance Management 323 Management Control 324

Productivity Improvement 324 Productivity Measurement 325 Barriers to Productivity Improvement 326 Total Quality Management 327 It's the Customer, Stupid! 329

A CASE STUDY: From E-Commerce to E-Government 331

Summary 334


Key Concepts 335

Bibliography 335



Chapter 9 Strategic Management in the Public Sector 338 KEYNOTE: When Short-Term Leaders Do Long-Term Planning 338

What 1s Strategic Management? 341 Objectives 342 The Planning Horizon 345

Contents XI

Capabilities 347 Game Theory 349

Four Strategic Factors 350 The Public-Private Paradox 351 The Importance of Being Close to the Center 354 Organizational Language and Culture 355 Organizational Place 356

Strategic Management Tools 3 5 7 Best Practices 358 Benchmarking 359 Management Scorecards 360

A CASE STUDY: How Military General Staffs Became the First Strategic Think Tanks 362


Key Concepts 366

Bibliography 367



Chapter IO Leadership 369 KEYNOTE: The Hedgehog, the Fox or Henry V 369

Leading for Performance 372 Defining Leadership 373 Leadership and Management 374 Trait Theories 375 Transactional Approaches 377 Contingency Approaches 380 Transformational Leadership 381 The Importance of Optimism 383

Too Much Leadership 3 85

Micromanagement 386 Overmanagement 387

Moral Leadership 387 The Bully Pulpit 387 Rhetorical Leadership 387

A CASE STUDY: Transforming the Postal Service 389

Summary 392


Key Concepts 393

Bibliography 393



Chaptei I I Personnel Management and Labor ~e1aGons 396 KEYNOTE: The Adventures of a Young Man: as a Personnel Technician 396

The Personnel Function 402 r Recruitment 403 Merit Selection 404 Position Classification and Pay 406 Performance Appraisal 408 Training 409 Management Development 41 1

The Bittersweet Heritage of Civil Service Reform 4 12 The Nethenvorld of Public Personnel Administration 413 From Spoils to Merit 415 The Pendleton Act 416 State and Local Reform 417 The Rise and Fa11 of the Civil Service Commission 41 8 The Civil Service Reform Act of 1978 420 Reinventing Public Personnel Administration 421 Privatizing Public Personnel 423

Patronage Appointments 424 The Constitutionality of Patronage 426 Veterans Preference 426 Patronage Gone Bad 427

Public Sector Labor Relations 428 The AFL-CIO 429 Administrative Agencies 429 Collective Bargaining 43 1 Impasse Resolution 433 Strikes 434 Why Strikes Occur 435

A CASE STUDY: The Air Traffic Controllers Strike 437

Contents Xlll

Summary 438


Key Concepts 439

Bibliography 440



Chapter 12 Social Equity 442 KEYNOTE: Three Thousand Years of Sexual Harassment 442

What 1s Social Equity? 444 Mandating Social Equity 445 The New Public Administration 446

The Challenge of Equality 447 Racism 447 The Bitter Heritage of Slavery 448 From Reconstruction to Second Reconstruction 450 An Administrative Fix for Racism 451

Equal Employment Opportunity 453 Origins of Affirmative Action 453 The Case for Affirmative Action 455 The Case Against Affirmative Action 456 Representative Bureaucracy 457 Reverse Discrimination 458 Justifying Diversity 461 The Ongoing Role of Race in Public Administration 462

Nonracial Discrimination 463 Sex Discrimination 463 Sexual Harassment 464 Pregnancy Discrimination 467 Gender Discrimination and Education 467 Age Discrimination 468 Disabilities Discrimination 468 Sexual Orientation Discrimination 470

A CASE STUDY: Social Equity Through Social Insurance 471 Summary 476


Key Concepts 476

XIV Contents

Bibliography 477



Chapter 13 Public Financial Management 480 KEYNOTE: Take Me Out to the Bal1 Game and You Buy the Ticket: Public Stadium Financing 481

'i

The Importance of Public Financial Management , 483 Six Principles 484 Balanced Budgets 485 The Fiscal Year 486

A*

Budgeting Theory and Practice 486 The Taft Commission 487 The Influence of Keynes 489 The Objectives of Budgeting 490 The Two Types of Budgets 491

Waves of Innovation in Budget Making 491 The Executive Budget 492 Line-Item Budgeting 493 Performance Budgeting 493 Program Budgeting Versus Incrementalism 494 Zero-Based Budgeting 497

Contemporary Budget Reform 498 Integrated Budgets 498 Multiyear Budgets 499

Financing Public Expenditure 500

Taxation 502 The Ability-to-Pay Principle 503 The Flat Tax 505 User Charges 506 Grants 507

The Problem of Debt 507

Abuse of Public Debt 508 Municipal Bonds 508 The Rating Agencies 509 Bonds, Debt, and Emergency Recovery 510

Contents XV

Economic Policy 5 I I

Monetary Policy 512 FiscalPolicy 513

A CASE STUDY: Social Security Reform 514 Summary 517


Key Concepts 519

Bibliography 5 19



Chapter 14 Program Audit and Evaluation 522 KEYNOTE: Captain Bligh's Program Evaluation of the Mutiny on the Bounty 522

What 1s an Audit? 529 Multiple Applications 530 History of Auditing 531

Types of Audit 534 Compliance Audit 534 Performance Audit 536 Interna1 Audit 537

Program Evaluation 53 8 Policy Analysis 1s Not Program Evaluation 538 Legislative Program Evaluation 540 Types of Evaluation 541 Evaluation Standards 542 Management Control: Evaluation in Microcosm 544 Evaluation and the Democratic Process 545

A CASE STUDY: Jeremy Bentham, the Philosopher of Policy Analysis and Program Evaluation 546

Summary 548


Key Concepts 549

XVI Contents

Bibliography 550



Glossary 552 Appendk: Additional Sources 559

Index 560

Documents

The Political and Cultural Environment ... - archives.enap.caarchives.enap.ca/bibliotheques/2007/02/24789965tdm.pdf · Contents V Municipal Government 98 Towns and Special Districts