Introducing Public Administration

by Shafritz, Jay M.; Russell, E. W.

• ISBN13: 9780321217318
• ISBN10: 0321217314
• Edition: 4th
• Format: Hardcover
• Copyright: 2005-01-01
• Publisher: Longman

Summary

Provides a solid conceptual foundation in public administration, with real-world case studies and the latest information on trends in the discipline, including a look at the changes brought about by the "war on terror," by the creation of the Department of Homeland Security, and by the domestic initiatives of the Bush administration.Defining Public Administration; The Political and Cultural Environment of Public Policy and Its Administration; The Continuous Reinventing of the Machinery of Government; Intergovernmental Relations; The Evolution of Management and Organization Theory; Organizational Behavior; Managerialism and Performance Management; Strategic Management in the Public Sector; Leadership; Personnel Management and Labor Relations; Social Equity; Public Financial Management; Auditing, Accounting, and Evaluating; Honor and Ethics, and Accountability.Anyone interested in public administration.

Table of Contents

Preface	xvi
Defining Public Administration	1	(37)
Keynote: Go Tell the Spartans	1	(4)
The Definitions of Public Administration	5	(23)
Political Definitions of Public Administration	6	(6)
Legal Definitions of Public Administration	12	(6)
Managerial Definitions of Public Administration	18	(4)
Occupational Definitions of Public Administration	22	(6)
The Evolution of Public Administration	28	(5)
The Core Content	29	(1)
The Cycles of Administrative Reform	30	(2)
It's an Adventure!	32	(1)
A Case Study: How a President Undeservedly Received Credit for Founding a Discipline	33	(1)
Summary	34	(1)
Review Questions	35	(1)
Key Concepts	35	(1)
Bibliography	36	(1)
Recommended Books	36	(1)
Related Web Sites	37	(1)
The Political and Cultural Environment of Public Policy and Its Administration	38	(45)
Keynote: Who Decides If the United States Should Wage War?	38	(4)
What Is Public Policy?	42	(6)
Public Policymaking in a Republic	43	(2)
Executive Powers	45	(3)
The Policymaking Process	48	(12)
Agenda Setting	50	(2)
Decision Making	52	(2)
A Single Calculating Decision Maker--Not!	54	(1)
Implementation	55	(4)
Evaluation	59	(1)
Feedback	60	(1)
Power---The External Perspective	60	(7)
Pluralism	61	(3)
Group Theory	64	(3)
Power---The Internal Perspective	67	(4)
Organizational Goals	68	(1)
Internal Power Relationships	69	(2)
The Cultures of Public Organizations	71	(6)
The Outside Cultural Environment	72	(2)
The Inside Cultural Environment	74	(1)
Professional Socialization	75	(1)
Symbolic Management	76	(1)
A Case Study: Were the Space Shuttle Astronauts Killed by Fog?	77	(2)
Summary	79	(1)
Review Questions	80	(1)
Key Concepts	80	(1)
Bibliography	81	(1)
Recommended Books	82	(1)
Related Web Sites	82	(1)
The Continuous Reinventing of the Machinery of Government	83	(45)
Keynote: The New Feudalism	84	(2)
What Is the Machinery of Government?	86	(2)
Fine-Tuning the Machinery	86	(1)
The Rise and Fall of Governmental Machinery	87	(1)
The Administrative Architecture of the U.S. Government	88	(6)
Executive Branch Machinery	89	(5)
State and Local Government Machinery	94	(8)
State Government	95	(1)
Country Government	96	(2)
Municipal Government	98	(1)
Towns and Special Districts	99	(1)
Local Management Machinery	100	(1)
Metropolitan Government	101	(1)
Continuous State and Local Reform	102	(1)
Reforming the National Machinery of Government	102	(13)
The Brownlow Committee	104	(3)
The Hoover Commissions	107	(1)
The Ash Council	108	(1)
The President's Private Sector Survey on Cost Control	108	(1)
Reinventing Government	109	(2)
The Gore Report	111	(1)
The End of Reinvention	112	(1)
The Micromanagers	112	(3)
The Pressure for Privatization	115	(7)
Strategies for Privatization	116	(1)
The Nonprofit Gambit	117	(2)
Voluntarism and Philanthropy	119	(3)
A Case Study: The Revolution in the British Machinery of Government 1979--2001	122	(3)
Summary	125	(1)
Review Questions	125	(1)
Key Concepts	125	(1)
Bibliography	126	(1)
Recommended Books	127	(1)
Related Web Sites	127	(1)
Intergovernmental Relations	128	(40)
Keynote: The Age of Devolution	129	(4)
The Evolution of Federal Systems	133	(3)
Alliances and Confederations	134	(1)
Defining Intergovernmental Relations	134	(2)
The Fundamental Settlement	136	(2)
The Constitution	136	(1)
The European Union	137	(1)
The American Federal System	138	(3)
Three Categories of Governments	138	(3)
The Structure of Intergovernmental Relations	141	(2)
The Effects of Pluralism	141	(1)
The Marble-Cake Metaphor	142	(1)
Dynamic Federalism	143	(5)
Dual Federalism	143	(1)
Cooperative Federalism	144	(1)
Creative Federalism	145	(1)
New Federalism	146	(1)
New New Federalism	146	(2)
Intergovernmental Management	148	(6)
Picket Fence Federalism	150	(1)
Councils of Government	150	(1)
Mandate Mania	151	(2)
Mandates and the War on Terrorism	153	(1)
Fiscal Federalism--Following the Money	154	(6)
The Theory of Fiscal Federalism	156	(2)
Grant Programs	158	(2)
From Contractive to Coercive Federalism	160	(1)
The Devolution Revolution	160	(3)
The Public Choice Solution	162	(1)
The Race to the Bottom	162	(1)
A Case Study: Intergovernmental Management and the Crash of United Flight 93	163	(2)
Summary	165	(1)
Review Questions	165	(1)
Key Concepts	165	(1)
Bibliography	166	(1)
Recommended Books	167	(1)
Related Web Sites	167	(1)
Honor, Ethics, and Accountability	168	(40)
Keynote: Niccolo Machiavelli, the Preeminent Public Administration Ethicist	169	(3)
The Origins and Nature of Honor	172	(4)
National Honor	173	(1)
Why Honor Precedes Ethics	173	(1)
Dimensions of Honor	174	(1)
Regime Values	175	(1)
Corruption in Government	176	(4)
Bribery	177	(1)
Watergate	178	(2)
Lying for Your Country	180	(5)
The Dirty Hands Dilemma	181	(1)
Lying About Sex	182	(3)
Hierarchy of Ethics	185	(3)
The Four Levels of Ethics	186	(1)
The Iran-Contra Affair	186	(1)
The Higher Law Defense	187	(1)
Codes of Honor, Conduct, and Ethics	188	(3)
The New Face of Dueling	188	(1)
Honorable Behavior	189	(1)
The Common Law	190	(1)
Standards of Conduct	191	(1)
The Challenge of Accountability	191	(7)
Constitutional and Legal Constraints	194	(1)
Obsessive Accountability	195	(2)
Avoiding Accountability	197	(1)
Legislative Oversight	198	(2)
Hearings	198	(1)
Casework	199	(1)
A Case Study: The Blood on Robert McNamara's Hands---and Conscience	200	(4)
Summary	204	(1)
Review Questions	205	(1)
Key Concepts	205	(1)
Bibliography	206	(1)
Recommended Books	207	(1)
Related Web Sites	207	(1)
The Evolution of Management and Organization Theory	208	(42)
Keynote: Moses Meets the First Management Consultant	209	(1)
The Origins of Public Management	210	(6)
The Continuing Influence of Ancient Rome	213	(2)
The Military Heritage of Public Administration	215	(1)
The Evolution of Management Principles	216	(4)
Comparing Military and Civilian Principles	216	(3)
The Principles Approach	219	(1)
What Is Organization Theory?	220	(4)
Classical Organization Theory	221	(1)
Adam Smith and the Pin Factory	222	(2)
The Origins of Scientific Management	224	(6)
The Influence of Frederick W. Taylor	226	(3)
Fayol's General Theory of Management	229	(1)
The Period of Orthodoxy	230	(2)
Paul Appleby's Polemic	231	(1)
Luther Gulick's POSDCORB	231	(1)
The Many Meanings of Bureaucracy	232	(4)
All Government Offices	233	(1)
All Public Officials	233	(1)
A General Invective	233	(1)
Max Weber's Structural Arrangements	234	(2)
Neoclassical Organization Theory	236	(2)
Herbert A. Simon's Influence	236	(2)
The Impact of Sociology	238	(1)
``Modern'' Structural Organization Theory	238	(2)
Basic Assumptions	238	(1)
Mechanistic and Organic Systems	239	(1)
Systems Theory	240	(3)
Cybernetics	241	(1)
The Learning Organization	242	(1)
A Case Study: The Critical Importance of Administrative Doctrine	243	(3)
Summary	246	(1)
Review Questions	247	(1)
Key Concepts	247	(1)
Bibliography	248	(1)
Recommended Books	249	(1)
Related Web Sites	249	(1)
Organizational Behavior	250	(46)
Keynote: Organization Development in Hollywood: From The Sands of Iwo Jima to G.I. Jane	250	(4)
Organizational Behavior	254	(11)
Group Dynamics	257	(3)
Organization Development	260	(4)
The Impact of Personality	264	(1)
The Impact of Bureaucratic Structure on Behavior	265	(8)
Bureaucratic Dysfunctions	266	(1)
Bureaucratic Impersonality	267	(3)
Bureaucrat Bashing	270	(3)
The Case for Bureaucracy	273	(1)
Motivation	273	(7)
The Hawthorne Experiments	273	(2)
The Needs Hierarchy	275	(1)
The Motivation-Hygiene Theory	276	(1)
Toward a Democratic Environment	276	(2)
Theory X and Theory Y	278	(2)
The Future of Organizations	280	(9)
Postbureaucratic Organizations	280	(2)
Postmodernism	282	(2)
The Problem of Technocracy	284	(1)
The Core Themes of Postmodernism	284	(2)
Postmodern Public Administration	286	(1)
A Feminist Perspective	286	(3)
A Case Study: The Dangers of Groupthink	289	(2)
Summary	291	(1)
Review Questions	292	(1)
Key Concepts	292	(1)
Bibliography	293	(1)
Recommended Books	294	(1)
Related Web Sites	295	(1)
Managerialism and Performance Management	296	(34)
Keynote: Socrates Discovers Universal Management	297	(3)
Managerialism	300	(3)
A New Managerial Revolution	302	(1)
Policy Entrepreneurs	302	(1)
Reengineering	303	(2)
Radical as Opposed to Incremental Change	303	(1)
Becoming a Reengineer	304	(1)
Empowerment	305	(3)
Empowering Teams	306	(1)
The Self-Directed Work Team	307	(1)
Entrepreneurialism	308	(5)
Toward a Competitive Public Administration	309	(2)
The New Public Management	311	(2)
What Is Performance Management?	313	(3)
The Politics of Performance Management	314	(1)
Management Control	315	(1)
Productivity Improvement	316	(8)
Productivity Measurement	317	(1)
Barriers to Productivity Improvement	318	(1)
Total Quality Management	319	(3)
It's the Customer, Stupid!	322	(2)
A Case Study: From E-commerce to E-government	324	(2)
Summary	326	(1)
Review Questions	327	(1)
Key Concepts	327	(1)
Bibliography	327	(2)
Recommended Books	329	(1)
Related Web Sites	329	(1)
Strategic Management in the Public Sector	330	(31)
Keynote: When Short-Term Leaders Do Long-Term Planning	330	(3)
What Is Strategic Management?	333	(10)
Objectives	334	(3)
The Planning Horizon	337	(3)
Capabilities	340	(2)
Environment	342	(1)
Four Strategic Factors	343	(7)
The Public--Private Paradox	344	(2)
The Importance of Being Close to the Center	346	(2)
Organizational Language and Culture	348	(1)
Organizational Place	349	(1)
Strategic Management Tools	350	(4)
Best Practices	351	(1)
Benchmarking	352	(1)
Management Scorecards	352	(2)
A Case Study: How Military Staffs Became the First Strategic Think Tanks	354	(3)
Summary	357	(1)
Review Questions	358	(1)
Key Concepts	358	(1)
Bibliography	359	(1)
Recommended Books	359	(1)
Related Web Sites	360	(1)
Leadership	361	(25)
Keynote: The Hedgehog and the Fox	361	(3)
Leading for Performance	364	(12)
Defining Leadership	365	(1)
Leadership and Management	366	(2)
Trait Theories	368	(1)
Transactional Approaches	369	(2)
Contingency Approaches	371	(2)
Transformational Leadership	373	(1)
The Importance of Optimism	374	(2)
Too Much Leadership	376	(2)
Micromanagement	377	(1)
Overmanagement	377	(1)
Moral Leadership	378	(2)
The Bully Pulpit	378	(1)
Rhetorical Leadership	378	(2)
A Case Study: Transforming the Postal Service	380	(3)
Summary	383	(1)
Review Questions	383	(1)
Key Concepts	383	(1)
Bibliography	384	(1)
Recommended Books	385	(1)
Related Web Sites	385	(1)
Personnel Management and Labor Relations	386	(46)
Keynote: The Adventures of a Young Man as a Personnel Technician	386	(6)
The Personnel Function	392	(11)
Recruitment	393	(1)
Merit Selection	394	(1)
Position Classification and Pay	395	(3)
Performance Appraisal	398	(2)
Training	400	(2)
Management Development	402	(1)
The Bittersweet Heritage of Civil Service Reform	403	(10)
The Netherworld of Public Personnel Administration	403	(2)
From Spoils to Merit	405	(1)
The Pendleton Act	406	(1)
State and Local Reform	407	(2)
The Rise and Fall of the Civil Service Commission	409	(2)
The Civil Service Reform Act of 1978	411	(1)
Reinventing Public Personnel Administration	412	(1)
Patronage Appointments	413	(3)
The Constitutionality of Patronage	415	(1)
Veterans' Preference	415	(1)
Public Sector Labor Relations	416	(11)
The AFL-CIO	417	(1)
Administrative Agencies	418	(1)
Collective Bargaining	419	(3)
Impasse Resolution	422	(2)
Strikes	424	(1)
Why Strikes Occur	425	(2)
A Case Study: The Air Traffic Controllers Strike	427	(1)
Summary	428	(1)
Review Questions	429	(1)
Key Concepts	429	(1)
Bibliography	430	(1)
Recommended Books	431	(1)
Related Web Sites	431	(1)
Social Equity	432	(37)
Keynote: Three Thousand Years of Sexual Harassment	432	(2)
What Is Social Equity?	434	(1)
Mandating Social Equity	435	(1)
The New Public Administration	436
The Challenge of Equality	431	(12)
Racism	437	(1)
The Bitter Heritage of Slavery	438	(2)
From Reconstruction to Second Reconstruction	440	(1)
An Administrative Fix for Racism	441	(2)
Equal Employment Opportunity	443	(9)
Origins of Affirmative Action	443	(2)
The Case for Affirmative Action	445	(1)
The Case Against Affirmative Action	446	(1)
Representative Bureaucracy	447	(1)
Reverse Discrimination	448	(3)
Justifying Diversity	451	(1)
Nonracial Discrimination	452	(8)
Sex Discrimination	453	(1)
Sexual Harassment	454	(2)
Pregnancy Discrimination	456	(1)
Age Discrimination	457	(1)
Disabilities Discrimination	458	(1)
Sexual Orientation Discrimination	459	(1)
A Case Study: Social Equity Through Social Insurance	460	(5)
Summary	465	(1)
Review Questions	466	(1)
Key Concepts	466	(1)
Bibliography	467	(1)
Recommended Books	467	(1)
Related Web Sites	468	(1)
Public Financial Management	469	(41)
Keynote: The Budget Game	470	(2)
The Importance of Public Financial Management	472	(4)
Six Principles	474	(1)
Balanced Budgets	475	(1)
The Fiscal Year	476	(1)
Budgeting Theory and Practice	476	(5)
The Taft Commission	477	(2)
The Influence of Keynes	479	(1)
The Objectives of Budgeting	479	(2)
The Two Types of Budgets	481	(1)
Waves of Innovation in Budget Making	481	(6)
The Executive Budget	481	(2)
Line-Item Budgeting	483	(1)
Performance Budgeting	483	(1)
Program Budgeting Versus Incrementalism	484	(2)
Zero-Based Budgeting	486	(1)
Contemporary Budget Reform	487	(3)
Integrated Budgets	488	(1)
Multiyear Budgets	489	(1)
Financing Public Expenditure	490	(7)
Taxation	491	(2)
The Ability-to-Pay Principle	493	(1)
The Flat Tax	494	(2)
User Charges	496	(1)
Grants	496	(1)
The Problem of Debt	497	(3)
Abuse of Public Debt	498	(1)
Municipal Bonds	498	(1)
The Rating Agencies	499	(1)
Economic Policy	500	(3)
Monetary Policy	501	(1)
Fiscal Policy	502	(1)
A Case Study: Social Security Reform	503	(3)
Summary	506	(1)
Review Questions	507	(1)
Key Concepts	507	(1)
Bibliography	508	(1)
Recommended Books	509	(1)
Related Web Sites	509	(1)
Program Audit and Evaluation	510	(30)
Keynote: Captain Bligh's Program Evaluation of the Mutiny on the Bounty	510	(8)
What Is an Audit?	518	(4)
Multiple Applications	518	(1)
History of Auditing	519	(1)
The General Accounting Office	520	(2)
Types of Audit	522	(4)
Compliance Audit	522	(2)
Performance Audit	524	(1)
Internal Audit	525	(1)
Program Evaluation	526	(8)
Policy Analysis Is Not Program Evaluation	526	(2)
Legislative Program Evaluation	528	(1)
Types of Evaluation	529	(1)
Evaluation Standards	530	(1)
Management Control: Evaluation in Microcosm	531	(2)
Evaluation and the Democratic Process	533	(1)
A Case Study: Jeremy Bentham, the Philosopher of Policy Analysis and Program Evaluation	534	(3)
Summary	537	(1)
Review Questions	537	(1)
Key Concepts	537	(1)
Bibliography	538	(1)
Recommended Books	539	(1)
Related Web Sites	539	(1)
Glossary	540	(7)
Appendix: Additional Sources	547	(1)
Index	548