Public Administration in the New Century

Transcription

1 A Public Administration in the New Century A Concise Introduction \r f \ JEFFREY D. GREENE University of Montana THOMSON WADSWORTH Australia Canada Mexico Singapore Spain United Kingdom United States

2 Contents PREFACE xi 1 UNDERSTANDING PUBLIC ADMINISTRATION: THE ACCOMPLISHING SIDE OF GOVERNMENT What Is Public Administration? 2 Politics, Power, and Authority 8 The Context of Public Administration and an Overview of the American Political System 9 Values about Government and Public Administration 9 Environmental Conditions 12 Political Factors That Affect Public Administration 17 Federalism, Intergovernmental Relations, and Separation of Powers 19 Pluralism and Interest Groups 22 Political Culture 24 Ideology 26 Capitalism 29

3 Individual Rights and Liberties 34 How Large Is the Public Sector? 36 Summary 39 Notes 40 STUDYING PUBLIC ADMINISTRATION: AN OVERVIEW OF THE DISCIPLINE 48 The Study of Public Administration 48 The Discipline of Public Administration: A Brief Overview 50 Classical Period: The Politics-Administration Dichotomy and the Principles of Public Administration ( ) 51 Behaviorist Period (1940s-1970): Public Administration as Political Science ( ) and as Management ( ) 54 The New Public Administration ( s) 60 Public Administration as Public Administration (1970 ) and the Refounding Period (1980s- ) 61 Some People to Know: Great Contributors to Public Administration 67 Woodrow Wilson: Founder of American Public Administration, and Much More 67 Frederick Taylor: Scientific Management 68 Max Weber: The Concept of Bureaucracy 68 Mary Parker FollettA Thinker Ahead of Her Time 69 Elton Mayo: The Hawthorne Studies and the Human Relations Movement 69 Chester Barnard: Organizations as Systems of Exchange 70 Herbert Simon: The Idea of Bounded Rationality 70 Dwight Waldo: The Statesman with Eclectic Views about Public Administration 71 Peter Drucker: Management by Objectives, and Much More 72 Aaron Wildavsky: Budgetary Politics and Incrementalism 72 E. S. Savas: Privatization Is the Key to Better Government 73 David Osborne and Ted Gaebler: Reinventing Government 74 Summary 74 Notes 75

4 vii 3 BUREAUCRACY 79 Bureaucracy: The Part of Government We Love to Hate 79 The Concept of Bureaucracy 81 Growth of the Federal Bureaucracy: A Brief History 84 Administrative Structure of the Federal Government 90 Cabinet Departments 93 Government Corporations 96 Independent Executive Agencies 97 Independent Regulatory Commissions 97 Administrative Structure of State Governments: An Overview 98 Administrative Structure of Local Governments: An Overview 100 Getting Bureaucracies to Work Together: Intergovernmental Relations 101 Taking a Closer Look at Bureaucracy 104 Anatomy of Bureaucracy: An Organizational Chart or Sphere of Cooperation 108 Inside Bureaucracy 112 Self-Interested Officials 113 Mixed-Motive Officials 113 Life Cycles of Bureaucracies 115 Summary 117 Notes FUNDAMENTALS OF ORGANIZATIONAL THEORY AND MANAGEMENT 122 The Study of Organizations 122 Political Approaches 123 Organizational Approaches 124 Humanistic Approaches 132 Models of Decision Making: An Overview 136 Nature of Managerial Work 143 Managerial Styles 149 Leadership 151 Trait Theory 154 Behavioral Theories of Leadership 155

5 Ohio State University Studies 155 University of Michigan Studies 156 Contingency Theory of Leadership 156 Path-Goal Theory of Leadership 159 Additional Ideas about Leadership 160 Theories of Motivation 162 Content Theories of Motivation 163 Process Theories of Motivation 167 Organizational Culture 172 Organizations for the Future 174 Summary 179 Notes BASICS OF PUBLIC PERSONNEL ADMINISTRATION 189 Differences between Public and Private Personnel Administration 190 Evolution of Public Employment in the United States 193 From the Gentleman's Administrations of Colonial Elites, through Spoils and Patronage, to the Merit System 193 Challenges to the Merit System: Equal Employment Opportunity, Affirmative Action, and Representative Bureaucracy 202 Sexual Harassment 209 Comparable Worth 211 Labor Unions in the Public Sector 213 What Do Personnel Departments Do? Basic Functions of a Public Personnel System 217 Summary 226 Notes AN OVERVIEW OF PUBLIC BUDGETING 232 Different Ways to Think about Budgeting 234 A Short History of American Budgeting 238 The Budget Cycle 240 Federal Budgetary Process: An Overview 243

6 Types of Budgets 251 Line-Item Budgets and Incrementalism 251 Performance Budgeting: Planning-Programming-Budgeting Systems (PPBS) 252 Zero-Based Budgets (ZBB) 253 Capital Budgets 254 Taxation, Revenues, and Expenditures 255 Tax Equity and Tax Expenditures 255 Major Types of Taxes 258 Fiscal Policy, Monetary Policy, and Public Budgeting 261 Summary 268 Notes BASICS OF PUBLIC POLICY 272 Understanding Public Policy 272 The Public Policy Process: An Overview 275 Agenda Setting 276 Policy Formulation 281 Policy Implementation 286 Policy Evaluation 287 Policy Change or Termination 288 Methods for Studying Public Policy 289 Empirical Method 290 Interpretative Method 291 Rational Choice Method 292 Additional Ways to Study Public Policy 295 Conceptual Frameworks for Understanding Public Policy: Two Models of Politics 297 What Is the Public s Role in the Public Policy Process? Expertise versus Democracy 300 Policy Analysis: Examples of Substantive Public Policy 302 Summary 302 Notes 310

7 8 PUBLIC ADMINISTRATION AND ISSUES RELATING TO GOVERNMENT PERFORMANCE 316 Government Performance 316 Gauging Government Performance: The Broad Perspective 317 Gauging Government Performance: A Closer View 324 Privatization 332 The Case Against Privatization 338 Reinventing Government 342 Summary 351 Notes ETHICS AND PUBLIC ADMINISTRATION 360 Ethics in Government and Public Administration 360 Sources of Values in American Society 361 Public Administrators and Ethical Orientations: Two Models That Affect Organizations 365 Religion and Philosophical Systems 369 The Legal System 371 Codes of Conduct 372 Major Ethical Principles 372 Individual Ethics and Organizations: Where Values Can Collide 378 What Does It Mean to Be an Ethical Administrator? ASPA's Code of Ethics 379 Ethics and the Public Interest 383 Summary 385 Concluding Comments 386 Notes 387 INDEX 391