Summary p. 80 Review Questions p. 80 Key Concepts p. 80 Bibliography p. 81 Recommended Books p. 82 Related Web Sites p. 82 The Continuous Reinventing

Transcription

1 Preface p. xvii Defining Public Administration p. 1 Keynote: Go Tell the Spartans p. 1 The Definitions of Public Administration p. 6 Political Definitions of Public Administration p. 7 Legal Definitions of Public Administration p. 13 Managerial Definitions of Public Administration p. 19 Occupational Definitions of Public Administration p. 23 The Evolution of Public Administration p. 28 The Core Content p. 29 It's an Adventure! p. 31 A Case Study: How a President Undeservedly Received Credit for Founding a Discipline p. 32 Summary p. 33 Review Questions p. 34 Key Concepts p. 34 Bibliography p. 35 Recommended Books p. 35 Related Web Sites p. 36 The Political and Cultural Environment of Public Policy and Its Administration p. 37 Keynote: Who Decides If the United States Should Wage War? p. 37 What Is Public Policy? p. 41 Public Policymaking in a Republic p. 42 Executive Powers p. 45 The Policymaking Process p. 48 Agenda Setting p. 50 Decision Making p. 52 A Single Calculating Decision Maker-Not! p. 54 Implementation p. 55 Evaluation p. 59 Power-The External Perspective p. 60 Pluralism p. 61 Group Theory p. 63 Power-The Internal Perspective p. 67 Organizational Goals p. 68 Internal Power Relationships p. 69 The Cultures of Public Organizations p. 71 The Outside Cultural Environment p. 71 The Inside Cultural Environment p. 73 Professional Socialization p. 75 Symbolic Management p. 76 A Case Study: Were the Space Shuttle Astronauts Killed by Fog? p. 77

2 Summary p. 80 Review Questions p. 80 Key Concepts p. 80 Bibliography p. 81 Recommended Books p. 82 Related Web Sites p. 82 The Continuous Reinventing of the Machinery of Government p. 83 Keynote: The New Feudalism p. 83 What Is the Machinery of Government? p. 86 Fine-Tuning the Machinery p. 86 The Rise and Fall of Governmental Machinery p. 87 The Administrative Architecture of the U.S. Government p. 88 Executive Branch Machinery p. 90 State and Local Government Machinery p. 95 State Government p. 96 County Government p. 97 Municipal Government p. 98 Towns and Special Districts p. 99 Local Management Machinery p. 100 Metropolitan Government p. 101 Continuous State and Local Reform p. 102 Reforming the National Machinery of Government p. 104 The Brownlow Committee p. 106 The Hoover Commissions p. 108 The Ash Council p. 109 The President's Private Sector Survey on Cost Control p. 109 Reinventing Government p. 110 The Gore Report p. 112 The End of Reinvention p. 113 The Micromanagers p. 114 The Pressure for Privatization p. 116 Strategies for Privatization p. 117 Privatization in the Military p. 118 The Nonprofit Gambit p. 120 Voluntarism and Philanthropy p. 122 A Case Study: The Revolution in the British Machinery of Government p. 125 Summary p. 127 Review Questions p. 128 Key Concepts p. 128 Bibliography p. 129 Recommended Books p. 130

3 Related Web Sites p. 130 Intergovernmental Relations p. 131 Keynote: The Age of Devolution p. 132 The Evolution of Federal Systems p. 136 Alliances and Confederations p. 137 Defining Intergovernmental Relations p. 137 The Fundamental Settlement p. 139 The Constitution p. 139 The European Union p. 140 The American Federal System p. 141 Three Categories of Governments p. 142 The Structure of Intergovernmental Relations p. 144 The Effects of Pluralism p. 145 The Marble-Cake Metaphor p. 146 Dynamic Federalism p. 147 Dual Federalism p. 147 Cooperative Federalism p. 148 Creative Federalism p. 149 New Federalism p. 150 New New Federalism p. 150 Intergovernmental Management p. 151 Picket Fence Federalism p. 153 Councils of Government and Intergovernmental Agreements p. 153 Mandate Mania p. 154 Mandates and the War on Terrorism p. 156 The Transformation of Governance p. 158 Fiscal Federalism-Following the Money p. 158 The Theory of Fiscal Federalism p. 159 Grant Programs p. 162 From Contractive to Coercive Federalism p. 164 The Devolution Revolution p. 165 The Public Choice Solution p. 166 The Race to the Bottom p. 167 Two Case Studies: How Intergovernmental Management Became Intergovernmental Chaos: p. 168 The Cases of United Flight 93 and Hurricane Katrina Summary p. 170 Review Questions p. 171 Key Concepts p. 171 Bibliography p. 172 Recommended Books p. 173 Related Web Sites p. 173 Honor, Ethics, and Accountability p. 174

4 Keynote: Niccolo Machiavelli, the Preeminent Public Administration Ethicist p. 175 The Origins and Nature of Honor p. 178 National Honor p. 179 Why Honor Precedes Ethics p. 180 Dimensions of Honor p. 180 Regime Values p. 182 Corruption in Government p. 183 Bribery p. 183 Watergate p. 184 Lying for Your Country p. 186 The Dirty Hands Dilemma p. 188 Lying About Sex p. 189 Hierarchy of Ethics p. 191 The Four Levels of Ethics p. 192 The Iran-Contra Affair p. 192 The Higher Law Defense p. 193 Codes of Honor, Conduct, and Ethics p. 194 The New Face of Dueling p. 194 Honorable Behavior p. 195 Was "Deep Throat's" Behavior Honorable? p. 196 Standards of Conduct p. 197 The Challenge of Accountability p. 198 Constitutional and Legal Constraints p. 200 Obsessive Accountability p. 201 Avoiding Accountability p. 203 Legislative Oversight p. 204 Hearings p. 204 Casework p. 206 A Case Study: The Blood on Robert McNamara's Hands-and Conscience p. 207 Summary p. 210 Review Questions p. 211 Key Concepts p. 211 Bibliography p. 212 Recommended Books p. 213 Related Web Sites p. 214 The Evolution of Management and Organization Theory p. 215 Keynote: Moses Meets the First Management Consultant p. 216 The Origins of Public Management p. 218 The Continuing Influence of Ancient Rome p. 220 The Military Heritage of Public Administration p. 222 The Evolution of Management Principles p. 223

5 Comparing Military and Civilian Principles p. 223 The Principles Approach p. 226 What Is Organization Theory? p. 227 Classical Organization Theory p. 228 Adam Smith and the Pin Factory p. 229 The Origins of Scientific Management p. 232 The Staff Concept p. 232 The Influence of Frederick W. Taylor p. 233 Fayol's General Theory of Management p. 238 The Period of Orthodoxy p. 238 Paul Appleby's Polemic p. 239 Luther Gulick's POSDCORB p. 240 The Many Meanings of Bureaucracy p. 241 All Government Offices p. 241 All Public Officials p. 242 A General Invective p. 242 Max Weber's Structural Arrangements p. 242 Neoclassical Organization Theory p. 244 Herbert A. Simon's Influence p. 245 The Impact of Sociology p. 245 "Modern" Structural Organization Theory p. 247 Basic Assumptions p. 247 Mechanistic and Organic Systems p. 247 Systems Theory p. 248 Cybernetics p. 249 The Learning Organization p. 250 Complex Adaptive Systems p. 251 A Case Study: The Critical Importance of Administrative Doctrine p. 251 Summary p. 254 Review Questions p. 255 Key Concepts p. 256 Bibliography p. 256 Recommended Books p. 257 Related Web Sites p. 258 Organizational Behavior p. 259 Keynote: Organization Development in Hollywood: From The Sands of Iwo Jima to G.I. Jane p. 259 Organizational Behavior p. 264 Group Dynamics p. 266 Organization Development p. 269 The Impact of Personality p. 273 The Impact of Bureaucratic Structure on Behavior p. 274

6 Bureaucratic Dysfunctions p. 275 Bureaucratic Impersonality p. 276 Bureaucrat Bashing p. 278 The Case for Bureaucracy p. 281 Motivation p. 282 The Hawthorne Experiments p. 282 The Needs Hierarchy p. 283 The Motivation-Hygiene Theory p. 284 Toward a Democratic Environment p. 285 Theory X and Theory Y p. 286 The Future of Organizations p. 289 Postbureaucratic Organizations p. 289 Postmodernism p. 291 The Problem of Technocracy p. 292 The Core Themes of Postmodernism p. 293 Postmodern Public Administration p. 294 A Feminist Perspective p. 295 A Case Study: The Dangers of Groupthink from Pearl Harbor to the War in Iraq p. 298 Summary p. 300 Review Questions p. 301 Key Concepts p. 301 Bibliography p. 302 Recommended Books p. 303 Related Web Sites p. 304 Managerialism and Performance Management p. 305 Keynote: Socrates Discovers Universal Management p. 305 Managerialism p. 309 A New Managerial Revolution p. 310 Policy Entrepreneurs p. 311 Reengineering p. 312 Radical as Opposed to Incremental Change p. 312 Becoming a Reengineer p. 313 Empowerment p. 314 Empowering Teams p. 315 Entrepreneurialism p. 316 Toward a Competitive Public Administration p. 318 The New Public Management p. 319 What Is Performance Management? p. 321 The Politics of Performance Management p. 323 Management Control p. 324 Productivity Improvement p. 324

7 Productivity Measurement p. 325 Barriers to Productivity Improvement p. 326 Total Quality Management p. 327 It's the Customer, Stupid! p. 329 A Case Study: From E-Commerce to E-Government p. 331 Summary p. 334 Review Questions p. 334 Key Concepts p. 335 Bibliography p. 335 Recommended Books p. 337 Related Web Sites p. 337 Strategic Management in the Public Sector p. 338 Keynote: When Short-Term Leaders Do Long-Term Planning p. 338 What Is Strategic Management? p. 341 Objectives p. 342 The Planning Horizon p. 345 Capabilities p. 347 Game Theory p. 349 Four Strategic Factors p. 350 The Public-Private Paradox p. 351 The Importance of Being Close to the Center p. 354 Organizational Language and Culture p. 355 Organizational Place p. 356 Strategic Management Tools p. 357 Best Practices p. 358 Benchmarking p. 359 Management Scorecards p. 360 A Case Study: How Military General Staffs Became the First Strategic Think Tanks p. 362 Summary p. 365 Review Questions p. 366 Key Concepts p. 366 Bibliography p. 367 Recommended Books p. 367 Related Web Sites p. 368 Leadership p. 369 Keynote: The Hedgehog, the Fox or Henry V p. 369 Leading for Performance p. 372 Defining Leadership p. 373 Leadership and Management p. 374 Trait Theories p. 375 Transactional Approaches p. 377

8 Contingency Approaches p. 380 Transformational Leadership p. 381 The Importance of Optimism p. 383 Too Much Leadership p. 385 Micromanagement p. 386 Overmanagement p. 387 Moral Leadership p. 387 The Bully Pulpit p. 387 Rhetorical Leadership p. 387 A Case Study: Transforming the Postal Service p. 389 Summary p. 392 Review Questions p. 392 Key Concepts p. 393 Bibliography p. 393 Recommended Books p. 394 Related Web Sites p. 395 Personnel Management and Labor Relations p. 396 Keynote: The Adventures of a Young Man as a Personnel Technician p. 396 The Personnel Function p. 402 Recruitment p. 403 Merit Selection p. 404 Position Classification and Pay p. 406 Performance Appraisal p. 408 Training p. 409 Management Development p. 411 The Bittersweet Heritage of Civil Service Reform p. 412 The Netherworld of Public Personnel Administration p. 413 From Spoils to Merit p. 415 The Pendleton Act p. 416 State and Local Reform p. 417 The Rise and Fall of the Civil Service Commission p. 418 The Civil Service Reform Act of 1978 p. 420 Reinventing Public Personnel Administration p. 421 Privatizing Public Personnel p. 423 Patronage Appointments p. 424 The Constitutionality of Patronage p. 426 Veterans Preference p. 426 Patronage Gone Bad p. 427 Public Sector Labor Relations p. 428 The AFL-CIO p. 429 Administrative Agencies p. 429

9 Collective Bargaining p. 431 Impasse Resolution p. 433 Strikes p. 434 Why Strikes Occur p. 435 A Case Study: The Air Traffic Controllers Strike p. 437 Summary p. 438 Review Questions p. 439 Key Concepts p. 439 Bibliography p. 440 Recommended Books p. 441 Related Web Sites p. 441 Social Equity p. 442 Keynote: Three Thousand Years of Sexual Harassment p. 442 What Is Social Equity? p. 444 Mandating Social Equity p. 445 The New Public Administration p. 446 The Challenge of Equality p. 447 Racism p. 447 The Bitter Heritage of Slavery p. 448 From Reconstruction to Second Reconstruction p. 450 An Administrative Fix for Racism p. 451 Equal Employment Opportunity p. 453 Origins of Affirmative Action p. 453 The Case for Affirmative Action p. 455 The Case Against Affirmative Action p. 456 Representative Bureaucracy p. 457 Reverse Discrimination p. 458 Justifying Diversity p. 461 The Ongoing Role of Race in Public Administration p. 462 Nonracial Discrimination p. 463 Sex Discrimination p. 463 Sexual Harassment p. 464 Pregnancy Discrimination p. 467 Gender Discrimination and Education p. 467 Age Discrimination p. 468 Disabilities Discrimination p. 468 Sexual Orientation Discrimination p. 470 A Case Study: Social Equity Through Social Insurance p. 471 Summary p. 476 Review Questions p. 476 Key Concepts p. 476

10 Bibliography p. 477 Recommended Books p. 478 Related Web Sites p. 479 Public Financial Management p. 480 Keynote: Take Me Out to the Ball Game and You Buy the Ticket: Public Stadium Financingp. 481 The Importance of Public Financial Management p. 483 Six Principles p. 484 Balanced Budgets p. 485 The Fiscal Year p. 486 Budgeting Theory and Practice p. 486 The Taft Commission p. 487 The Influence of Keynes p. 489 The Objectives of Budgeting p. 490 The Two Types of Budgets p. 491 Waves of Innovation in Budget Making p. 491 The Executive Budget p. 492 Line-Item Budgeting p. 493 Performance Budgeting p. 493 Program Budgeting Versus Incrementalism p. 494 Zero-Based Budgeting p. 497 Contemporary Budget Reform p. 498 Integrated Budgets p. 498 Multiyear Budget p. 499 Financing Public Expenditure p. 500 Taxation p. 502 The Ability-to-Pay Principle p. 503 The Flat Tax p. 505 User Charges p. 506 Grants p. 507 The Problem of Debt p. 507 Abuse of Public Debt p. 508 Municipal Bonds p. 508 The Rating Agencies p. 509 Bonds, Debt, and Emergency Recovery p. 510 Economic Policy p. 511 Monetary Policy p. 512 Fiscal Policy p. 513 A Case Study: Social Security Reform p. 514 Summary p. 517 Review Questions p. 518 Key Concepts p. 519

11 Bibliography p. 519 Recommended Books p. 520 Related Web Sites p. 521 Program Audit and Evaluation p. 522 Keynote: Captain Bligh's Program Evaluation of the Mutiny on the Bounty p. 522 What Is an Audit? p. 529 Multiple Applications p. 530 History of Auditing p. 531 Types of Audit p. 534 Compliance Audit p. 534 Performance Audit p. 536 Internal Audit p. 537 Program Evaluation p. 538 Policy Analysis Is Not Program Evaluation p. 538 Legislative Program Evaluation p. 540 Types of Evaluation p. 541 Evaluation Standards p. 542 Management Control: Evaluation in Microcosm p. 544 Evaluation and the Democratic Process p. 545 A Case Study: Jeremy Bentham, the Philosopher of Policy Analysis and Program Evaluation p. 546 Summary p. 548 Review Questions p. 549 Key Concepts p. 549 Bibliography p. 550 Recommended Books p. 550 Related Web Sites p. 551 Glossary p. 552 Additional Sources p. 559 Index p. 560 Table of Contents provided by Blackwell's Book Services and R.R. Bowker. Used with permission.