Public Personnel Management

Transcription

1 Fourth Edition Public Personnel Management Contexts and Strategies A Donald E. Klingner Florida lnternationl HJniversity John Nalbandian University of Kansas Prentice Hall Prentice Hall Upper Saddle River, New Jersey 07458

2 Contents Preface vii PART I INTRODUCTION 1 The World of Public Personnel Management / Introduction, 1 Public Personnel Management Functions, 2 Public Jobs as Scarce Resources, 2 The Four Traditional Values: Responsiveness, Efficiency, Individual Rights, and Social Equity, 3 Emergent Anti-Government Values: Individual Accountability, Limited and Decentralized Government, and Community Responsibility' for Social Services, 4 Personnel Systems, 6 Contemporary Systems: Alternative Organizations and Flexible Employment Relationships, 8 Conflict and Compromise among Alternative Personnel Systems, 15 Systems in Collision: A Historical Analysis of Public Personnel Management in the United States, 18 Toward a General Model: Public Personnel Management, Development, and Democratization, 29 Summary, 33 Key Terms, 33 Discussion Questions, 34 Case Study: Values and Functions in Public Personnel Management, 34 Notes, 35 2 The Public Personnel Manager's Job 38 Introduction, 38 The Size and Scope of Public Employment in the United States, 39 Shared Responsibility' for Public Personnel Management, 40 The Public Personnel Manager's Job under Different Personnel Systems, 42 The Job of the Public Personnel Manager: Technician, Professional, Human Resource Management Specialist, and Mediator, 49 What Knowledge, Skills, and Abilities Do Public Personnel Managers Need? 56 How Do Public Personnel Managers Get into the Field? 58 Taking Charge of Your Own Career Development as a Professional Public Personnel Manager, 60 Summary, 63 Key Terms, 64 Discussion Questions, 64 Case Study: Choosing a Municipal Personnel Director, 65 Exercise: A Self-Development Plan for a Public Personnel Manager, 67 Notes, 68 PART II PLANNING 3 Budgeting, Planning, and Productivity 70 The Critical Link: Why Budgeting and Financial Management Are Essential to Public Personnel Management, 71 The Role of the Personnel Director in Budget Preparation, Approval, and Management, 75 Various Techniques for Forecasting Human Resource Needs, 76 Uncertainty in Human Resource Planning and Downsizing, 80 What Is Productivity'? 84 Productivity and Privatization: What's a Personnel Manager to Do? 87

3 Expanding the Personnel Director's Role in Productivity Programs, 88 Summary, 90 Key Terms, 91 Discussion Questions, 91 Case Study 1: A Day in the Life of a City' Manager, 91 Case Study 2: Privatization, 93 Notes, 94 Analysis, Classification, and Evaluation 96 Introduction, 96 From Position Management to Management of Work and of Human Resources, 98 The Two Problems with Traditional Job Analysis and Job Descriptions, 104 The Importance of Job Descriptions under Other Public Personnel Systems, 108 How to Improve Traditional Job Descriptions, 110 The History of Classification, 111 Point-Factor Job Evaluation, 114 A Critique of Job Evaluation, and Alternatives to It, 115 Job Evaluation and Pay Equity, 119 fob Evaluation and Other Personnel Activities, 119 Summary, 120 Key Terms, 120 Discussion Questions, 120 Case Study: Who's Most Qualified to Be Minority Recruitment Director?, 121 Notes, 126 Pay and Benefits 127 The New Compensation and Benefits Environment, 128 The Legal Context of Compensation Policy and Practice, 130 Issues Involved in Pay Disparity Based on Race and Gender, 131 Setting Pay in Alternative Personnel Systems, 132 Pay for Performance, 134 Merit Pay, Seniority', and Cost-of-Living Allowances, 137 New Pay, 139 Statutory Entitlement Benefits, 142 Discretionary Benefits: Pensions, 143 Discretionary Benefits: Health Insurance, 146 Other Emergent Employee Benefit Issues, 146 Pay, Benefits, and Conflicts among Personnel Systems, 150 Summary, 151 Key Terms, 151 Discussion Questions, 152 Exercise: New Pay, 152 Case Study: The Cost of Absenteeism, 152 Notes, 154 PART III ACQUISITION 6 The Saga of Social Equity: Equal Employment Opportunity, Affirmative Action, and Workforce Diversity 156 Equal Employment Opportunity and Affirmative Action: What Are They? 158 Affirmative Action Law and Compliance Agencies, 158 Affirmative Action Compliance: Voluntary and Involuntary, 160 Impact of the Judicial System on Interpreting and Enforcing Social Equity through Affirmative Action, 161 The Shifting Focus of Controversy: From Employment Preferences to Contract "Set-Asides," 165 From Affirmative Action to Workforce Diversity, 166 Impact of Workforce Diversification Programs, 169 Conflict Over Social Equity: The Role of the Personnel Manager in Achieving Productivity and Fairness, / 73 Summary, 176 Key Terms, 777 Discussion Questions, 177 Case Study 1: Values in Conflict: Equal Opportunity'or Affirmative Action? 178

4 Case Study 2: Between a Rock and a Hard Place on Affirmative Action Compliance, 179 Case Study 3: From Affirmative Action Compliance to Workforce Diversification Programs, 180 Notes, Recruitment, Selection, and Promotion 182 The Acquisition Function, 183 Value Conflicts and the Acquisition Function, 183 Differences in Perspective: Political Appointees and Career Civil Servants, 186 External Influences and Contemporary Challenges, 188 Steps in the Staffing Process, 193 Recruitment and Selection Models, 196 Test Validation and the Acquisition Function, 201 Americans with Disabilities Act (ADA), 270 Summary, 212 Key Terms, 213 Case Study: Merit or Politics? 214 Discussion Questions, 213 Notes, 215 PART IV DEVELOPMENT 8 Leadership and Performance in Turbulent Times 217 The Challenges to Traditional Civil Service Systems, 218 Consequences of These Challenges for Leadership and Employee Performance, 221 Differences between Political and Administrative Viewpoints, 222 Explaining Employee Performance: Equity' and Expectancy Theories, 226 Influences on Employees' Motivation to Perform, 231 Influences on Employees' Ability' to Perform, 234 Organizing for Productivity" Alternative Work Systems, 235 Tools Managers Use to Enhance Employee Performance. 240 Managing Employee Anxiety, 241 Summary. 243 Key Terms, 243 Discussion Questions, 244 Case Study 1: Requiem for a Good Soldier. 244 Case Study 2: Recruiting a Water Plant Technician, 246 Case Study 3: Between a Rock and a Hard Place, 247 Notes, Training, Education, and Staff Development 250 Objectives of the Development Function: Training, Education, and Staff Development, 251 Environmental Challenges and Organizational Responses, 253 Ongoing Issues in Human Resource Development, 262 Three Roles of the Human Resource Development Specialist, 263 Training Needs Assessment, Design, and Evaluation, 264 Different Perspectives from Alternative Personnel Systems, 269 Summary, 270 Key Terms, 270 Discussion Questions, 270 Appendix: A Personal View of Diversity Training. 271 Case Study 1: Develop a Diversity Training Program, 272 Case Study 2: Training Vignettes, 273 Notes Performance Appraisal 275 Why Evaluate Performance?. 276 Performance Appraisal and Alternative Personnel Systems, 277 Contemporary Challenges to Performance Appraisal, 278 Performance-Based and Person-Based Evaluation Criteria, 279 Appraisal Methods, 282 Who Should Evaluate Performance? 292

5 Characteristics of an Effective Appraisal System, 295 The Human Dynamics of the Appraisal Process, 296 Performance Appraisal, the Sanctions Process, and Fairness, 298 Summary, 299 Key Terms, 300 Discussion Questions, 300 Case Study: Evaluating Appraisal Instruments, 300 Notes, Health and Safety 302 Occupational Safety and Health, 304 Workplace Violence, 307 Tobacco, Alcohol, and Illegal Drugs, 310 AIDS, 313 Employee Assistance Programs (EAPs), 315 Balancing Organizational Effectiveness and Employee Rights, 316 Summary, 318 Key Terms, 318 Discussion Questions, 318 Case Study 1: Developing a Workplace AIDS Policy, 319 Case Study 2: Workplace Violence: "In Hindsight, We Could See It Coming," 319 Notes, 321 PARTV SANCTIONS 12 Organizational Justice 323 The Sanction Function, 324 Establishing and Maintaining Expectations, 325 Protecting Employee Rights, 326 The Americans with Disabilities Act: Balancing Organizational Efficiency and the Rights of Employees and Applicants, 332 Freedom of Speech, Association, and Privacy, 333 Liability of Public Employees, 339 Property' Rights and Due Process, 340 Organizational Citizenship, Grievance Procedures, and Employee Perceptions of Fairness, 341 Discipline and Counseling of the Unproductive Employee, 343 Steps in the Grievance Process, 346 The Sanction Function in Alternate Personnel Systems, 349 Organizational Justice, Productivity', and Workforce Diversity, 350 Summary, 351 Key Terms, 352 Discussion Questions, 352 Case Study: Juan Hernandez v. the County, 353 Notes, Collective Bargaining 360 The History of Collective Bargaining, 361 Collective Bargaining, Individual Rights, and the Constitution, 364 Collective Bargaining Practices, 366 Pressures on Public-Sector Collective Bargaining, 372 The Future of Collective Bargaining: From Private Privilege to Public Interest, 376 Summary, 380 Key Terms, 380 Discussion Questions, 381 Case Study: Good Management or Bargaining in Bad Faith? 381 Notes, Developing a Strategic Human Resource Capability 386 Introduction, 386 Strategic Human Resource Management, 386 Strategic Human Resource Management in Action, 400 Summary, 403 Key Terms, 403 Discussion Questions, 403 Case Study: Personnel Management: Part of the Problem or Part of the Solution? 404 Notes, 405 Index 406