Introducing Public Administration

Preface xvi

Chapter 1 Defining Public Administration
KEYNOTE: Go Tell the Spartans
The Definitions of Public Administration
Political Definitions of Public Administration
Legal Definitions of Public Administration
Managerial Definitions of Public Administration
Occupational Definitions of Public Administration
The Evolution of Public Administration
The Core Content
The Cycles of Administrative Reform
It's an Adventure!
A CASE STUDY: How a President Undeservedly Received Credit for Founding a Discipline
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 2 The Political and Cultural Environment of Public Policy and Its Administration
KEYNOTE: Who Decides If the United States Should Wage War?
What Is Public Policy?
Public Policymaking in a Republic
Executive Powers
The Policymaking Process
Agenda Setting
Decision Making
A Single Calculating Decision Maker-Not!
Implementation
Evaluation
Feedback
Power-The External Perspective
Pluralism
Group Theory
Power-The Internal Perspective
Organizational Goals
Internal Power Relationships
The Cultures of Public Organizations
The Outside Cultural Environment
The Inside Cultural Environment
Professional Socialization
Symbolic Management
A CASE STUDY: Were the Space Shuttle Astronauts Killed by Fog?
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 3 The Continuous Reinventing of the Machinery of Government
KEYNOTE: The New Feudalism
What Is the Machinery of Government?
Fine-Tuning the Machinery
The Rise and Fall of Governmental Machinery
The Administrative Architecture of the U.S. Government
Executive Branch Machinery
State and Local Government Machinery
State Government
County Government
Municipal Government
Towns and Special Districts
Local Management Machinery
Metropolitan Government
Continuous State and Local Reform
Reforming the National Machinery of Government
The Brownlow Committee
The Hoover Commissions
The Ash Council
The President's Private Sector Survey on Cost Control
Reinventing Government
The Gore Report
The End of Reinvention
The Micromanagers
The Pressure for Privatization
Strategies for Privatization
Privatization in the Military
The Nonprofit Gambit
Voluntarism and Philanthropy
A CASE STUDY: The Revolution in the British Machinery of Government 1979-2001
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 4 Intergovernmental Relations
KEYNOTE: The Age of Devolution
The Evolution of Federal Systems
Alliances and Confederations
Defining Intergovernmental Relations
The Fundamental Settlement
The Constitution
The European Union
The American Federal System
Three Categories of Governments
The Structure of Intergovernmental Relations
The Effects of Pluralism
The Marble-Cake Metaphor
Dynamic Federalism
Dual Federalism
Cooperative Federalism
Creative Federalism
New Federalism
New New Federalism
Intergovernmental Management
Picket Fence Federalism
Councils of Government and Intergovernmental Relations
Mandate Mania
Mandates and the War on Terrorism
The Transformation of Governance
Fiscal Federalism-Following the Money
The Theory of Fiscal Federalism
Grant Programs
From Contractive to Coercive Federalism
The Devolution Revolution
The Public Choice Solution
The Race to the Bottom
TWO CASE STUDIES: How Intergovernmental Management Became Intergovernmental Chaos: The Cases of United Flight 93 and Hurricane Katrina
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 5 Honor, Ethics, and Accountability
KEYNOTE: Niccolo Machiavelli, the Preeminent Public Administration Ethicist
The Origins and Nature of Honor
National Honor
Why Honor Precedes Ethics
Dimensions of Honor
Regime Values
Corruption in Government
Bribery
Watergate
Lying for Your Country
The Dirty Hands Dilemma
Lying About Sex
Hierarchy of Ethics
The Four Levels of Ethics
The Iran-Contra Affair
The Higher Law Defense
Codes of Honor, Conduct, and Ethics
The New Face of Dueling
Honorable Behavior
Was "Deep Throat's" Behavior Honorable
The Common Law
Standards of Conduct
The Challenge of Accountability
Constitutional and Legal Constraints
Obsessive Accountability
Avoiding Accountability
Legislative Oversight
Hearings
Casework
A CASE STUDY: The Blood on Robert McNamara's Hands-and Conscience
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 6 The Evolution of Management and Organization Theory
KEYNOTE: Moses Meets the First Management Consultant
The Origins of Public Management
The Continuing Influence of Ancient Rome
The Military Heritage of Public Administration
The Evolution of Management Principles
Comparing Military and Civilian Principles
The Principles Approach
What Is Organization Theory?
Classical Organization Theory
Adam Smith and the Pin Factory
The Origins of Scientific Management
The Influence of Frederick W. Taylor
Fayol's General Theory of Management
The Period of Orthodoxy
Paul Appleby's Polemic
Luther Gulick's POSDCORB
The Many Meanings of Bureaucracy
All Government Offices
All Public Officials
A General Invective
Max Weber's Structural Arrangements
Neoclassical Organization Theory
Herbert A. Simon's Influence
The Impact of Sociology
"Modern" Structural Organization Theory
Basic Assumptions
Mechanistic and Organic Systems
Systems Theory
Cybernetics
The Learning Organization
Complex Adaptive Systems
A CASE STUDY: The Critical Importance of Administrative Doctrine
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 7 Organizational Behavior
KEYNOTE: Organization Development in Hollywood: From The Sands of Iwo Jima to G.I. Jane
Organizational Behavior
Group Dynamics
Organization Development
The Impact of Personality
The Impact of Bureaucratic Structure on Behavior
Bureaucratic Dysfunctions
Bureaucratic Impersonality
Bureaucrat Bashing
The Case for Bureaucracy
Motivation
The Hawthorne Experiments
The Needs Hierarchy
The Motivation-Hygiene Theory
Toward a Democratic Environment
Theory X and Theory Y
The Future of Organizations
Postbureaucratic Organizations
Postmodernism
The Problem of Technocracy
The Core Themes of Postmodernism
Postmodern Public Administration
A Feminist Perspective
A CASE STUDY: The Dangers of Groupthink: Pearl Harbor to the War in Iraq
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 8 Managerialism and Performance Management
KEYNOTE: Socrates Discovers Universal Management
Managerialism
A New Managerial Revolution
Policy Entrepreneurs
Reengineering
Radical as Opposed to Incremental Change
Becoming a Reengineer
Empowerment
Empowering Teams
Entrepreneurialism
Toward a Competitive Public Administration
The New Public Management
What Is Performance Management?
The Politics of Performance Management
Management Control
Productivity Improvement
Productivity Measurement
Barriers to Productivity Improvement
Total Quality Management
It's the Customer, Stupid!
A CASE STUDY: From E-commerce to E-government
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 9 Strategic Management in the Public Sector
KEYNOTE: When Short-Term Leaders Do Long-Term Planning
What Is Strategic Management?
Objectives
The Planning Horizon
Capabilities
Environment
Four Strategic Factors
The Public-Private Paradox
The Importance of Being Close to the Center
Organizational Language and Culture
Organizational Place
Strategic Management Tools
Best Practices
Benchmarking
Management Scorecards
A CASE STUDY: How Military Staffs Became the First Strategic Think Tanks
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 10 Leadership
KEYNOTE: The Hedgehog, and Fox or Henry V
Leading for Performance
Defining Leadership
Leadership and Management
Trait Theories
Transactional Approaches
Contingency Approaches
Transformational Leadership
The Importance of Optimism
Too Much Leadership
Micromanagement
Overmanagement
Moral Leadership
The Bully Pulpit
Rhetorical Leadership
A CASE STUDY: Transforming the Postal Service
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 11 Personnel Management and Labor Relations
KEYNOTE: The Adventures of a Young Man as a Personnel Technician
The Personnel Function
Recruitment
Merit Selection
Position Classification and Pay
Performance Appraisal
Training
Management Development
The Bittersweet Heritage of Civil Service Reform
The Netherworld of Public Personnel Administration
From Spoils to Merit
The Pendleton Act
State and Local Reform
The Rise and Fall of the Civil Service Commission
The Civil Service Reform Act of 1978
Reinventing Public Personnel Administration
Privatizing Public Personnel
Patronage Appointments
The Constitutionality of Patronage
Veterans' Preference
Patronage Gone Bad
Public Sector Labor Relations
The AFL-CIO
Administrative Agencies
Collective Bargaining
Impasse Resolution
Strikes
Why Strikes Occur
A CASE STUDY: The Air Traffic Controllers Strike
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 12 Social Equity
KEYNOTE: Three Thousand Years of Sexual Harassment
What Is Social Equity?
Mandating Social Equity
The New Public Administration
The Challenge of Equality
Racism
The Bitter Heritage of Slavery
From Reconstruction to Second Reconstruction
An Administrative Fix for Racism
Equal Employment Opportunity
Origins of Affirmative Action
The Case for Affirmative Action
The Case Against Affirmative Action
Representative Bureaucracy
Reverse Discrimination
Justifying Diversity
The Ongoing Role of Race in Public Administration
Nonracial Discrimination
Sex Discrimination
Sexual Harassment
Pregnancy Discrimination
Gender Discrimination and Education
Age Discrimination
Disabilities Discrimination
Sexual Orientation Discrimination
A CASE STUDY: Social Equity Through Social Insurance
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 13 Public Financial Management
KEYNOTE: The Budget Game
The Importance of Public Financial Management
Six Principles
Balanced Budgets
The Fiscal Year
Budgeting Theory and Practice
The Taft Commission
The Influence of Keynes
The Objectives of Budgeting
The Two Types of Budgets
Waves of Innovation in Budget Making
The Executive Budget
Line-Item Budgeting
Performance Budgeting
Program Budgeting Versus Incrementalism
Zero-Based Budgeting
Contemporary Budget Reform
Integrated Budgets
Multiyear Budgets
Financing Public Expenditure
Taxation
The Ability-to-Pay Principle
The Flat Tax
User Charges
Grants
The Problem of Debt
Abuse of Public Debt
Municipal Bonds
The Rating Agencies
Bonds, Debt and Emergency Recovery
Economic Policy
Monetary Policy
Fiscal Policy
A CASE STUDY: Social Security Reform
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites

Chapter 14 Program Audit and Evaluation
KEYNOTE: Captain Bligh's Program Evaluation of the Mutiny on the Bounty
What Is an Audit?
Multiple Applications
History of Auditing
The Government Accountability Office
Types of Audit
Compliance Audit
Performance Audit
Internal Audit
Program Evaluation
Policy Analysis Is Not Program Evaluation
Legislative Program Evaluation
Types of Evaluation
Evaluation Standards
Management Control: Evaluation in Microcosm
Evaluation and the Democratic Process
A CASE STUDY: Jeremy Bentham, the Philosopher of Policy Analysis and Program Evaluation
Summary
Review Questions
Key Concepts
Bibliography
Recommended Books
Related Web Sites
Glossary
Appendix: Additional Sources
Index