PAD3003-04 Midterm Study Guide Week 1 Slides -Late 18th to early 19th century -Social setting and government

role: more than 95% Americans involved in agriculture; limited government -Public administration: George Washington, Alexander Hamilton (federalist papers- one of the founding fathers of public administration), Andrew Jackson (7th president, led to creation of the spoils system) -Late 19th to early 20th century -Social setting and government role: urbanization, immigration, industrialization; increase in public service demand -Public administration: Jacksonian government spoils system; assassination of President James A. Garfield (1881); Civil Service Reform act (1883); Woodrow Wilson (1887- 28th president) the study of administration , politics administration dichotomy; Frederick Taylor (1912) the principles of scientific management -Between the World Wars -Social setting and government role: great depression (1929~late 1930 s); new deal (president Franklin D. Roosevelt); Keynesian economics prevailed- by increasing government spending, able to stimulate economy by implementing monetary policy; modern bureaucratic state- role of government expands -Public administration: Max Weber (1922)- created word bureaucracy; Gulick (1937) functions of the executive: POSDCORB (planning, organizing, staffing, directing, coordinating, reporting, budgeting); any manager in public organization performs all these functions -World War II to 1960 -Social setting and government role increasing; new deal policies and war effort -Public administration: politics- administration dichotomy challenged; Simon (1947); Waldo (1948) -1960 s to early 70 s -Social setting and government role: scientific-technical era; NASA s Apollo program (1969); Great Society program (President Lyndon B. Johnson)government s social intervention and change, included policies that tried to eliminate poverty; Keynesian economics still popular; in the 70 s high rates of inflation and economic downturns -Public administration: new public administration- Frederickson (1971) -1970 s to present

-Social setting and government role: 70 s high inflation rates and tax revolts (limit property taxation); governments were required to develop cutback management; small government (increased privatization); National Performance Review (1992 Clinton Administration); strategic management agenda of President George W. Bush -Public administration: new public management movement (70 s to 80 s); field of public management received attention (80 s); new public service (Denhardt, 2004) Week 3 Slides -Definitions of public administration: -From the Latin word, administrare : to serve, to minister, to furnish a benefit, to manage affairs for others -Public Administration (PA): to serve others, the public, within the context of the rule of law through the management of human, financial, and information resources in the development, implementation, and evaluation of policy in both government and nonprofit organizations -PA is extremely broad discipline -Why have government? -Provide public goods not supplied by the market (national defense, criminal and civil justice, protection of precious resources, emergency response, essential services to poor) -Provide infrastructure to conduct business (initial construction of roads and signage, public transport, utilities, channels of communication) -Set and enforce rules of the game for the market -Soften negative externalities of unregulated Capitalism (address social problems and inequities) -Minimize effects of business cycle swings -3 roles of public administrators in government according to David Rosenbloom (1993): -Managerial: an executive function, which focuses on implementation and efficiency -Political: a legislative function, which focuses on representativeness, responsiveness, accountability, and effectiveness -Legal: a judicial function, which focuses on applying and enforcing the law, adjudicating disputes, protecting rights, following procedures, and ensuring equity -Wilson vs. Frederickson -Wilson (1887): main points- politics administration dichotomy; the field of administration is a field of business; in congruence with the Pendleton Act (1883), establishing the sanctity of public office as a public trust, and by making the service unpartisan (not related to a specific political party), making the

government business like; administrative (constitutional) questions are not political questions; public administration is detailed and systematic execution public law; objective of administrative study: study what government can properly and successfully do, how it can do these proper things with the utmost possible efficiency and at the least possible cost -Frederickson (1971): main points- policy (politics)- administration continuum; movement started in Minnowbrook conference (Syracuse, NY); adding the value of social equity to the classic public administration objectives and rationale (good management, efficiency, economy) and rejecting politics- administration dichotomy; social equity includes activities designed to enhance the political power and economic well-being of there minorities; organizational change would be decentralization, contracts, client involvement, etc. **Main difference is Wilson wanted to separate politics from PA and make it a field of business, Frederickson wanted to add values of social equity to classic PA objectives Week 4 Slides -The classical management movement (early 20th century to early 1940 s); Frederick Taylor, Max Weber, Luther Gulick, Henri Fayol, etc.; stresses vertical command-andcontrol hierarchy -Max Weber s model of bureaucracy prescribes the following elements: 1. Division of labor and functional specialization 2. Vertical Hierarchy 3. Formal rules and procedures 4. Maintenance of records and files 5. Emphasis on impersonality in performing tasks -Weber s 3 types of power: traditional, charismatic, legal-rational authority (power in bureaucracy)- impersonal official obligation, hierarchy of offices, selection based on technical qualifications, office constitutes a career (life-time employment), promotion based on seniority and performance; authority based on rank not individual; administrative-clerical-production staff (hierarchal order); Weber did not recognize negative consequences of the bureaucracy-claiming the need for charismatic leaders -Weber s bureaucracy: over-conformity to rules and procedures, trained incapacity, red-tape, empire building

-Frederick Taylor s theory of scientific management (1916) is based on 4 underlying values: 1. Efficiency 2. Rationality 3. Productivity 4. Profit

-Scientific management: influenced by industry and assembly line processes; adheres to the view of workers as economic man; each job can be analyzed and the most efficient process can be determined one best way ; piecework incentive plan; managers told workers how to do their job most efficiently, managers do all the thinking; organizations were finely tuned machines and workers were interchangeable cogs in the machine; efficiency in work is primary goal of management and leads to high output; **ultimate goal is profit-sharing between management and the workers -Variances between American PA and Weberian ideal bureaucracy: -More and more specialized professions are working in government agencies; Weber envisioned a professional bureaucrat; American experience has produced the bureaucratic professional; difference in continuing competency and tenure systems -Weber emphasized career employment to develop knowledge and skills and institutional memory; currently, we have jobs that perform public administration function across the three sectors: private, public, and non-profit -Luther Gulick (1937) POSDCORB: planning, organizing, staffing, directing, coordinating, reporting, and budgeting; functions of the executive; any manager in public administration performs all these functions -Human relations school: questioned the rigid structure of the formal organizational models; emphasized the effect of leadership on worker performance and social interaction -Elton Mayo (1920 s ~1930 s): Hawthorne studies found that within a formal organizational framework there was an informal social structure that affected worker behavior and motivation; informal organizations are useful for solving mental fatigue of workers -Abraham Maslow s needs hierarchy (1943): a person s needs are not all equal, but arranged in a hierarchy of prepotency; once lower needs are satisfied, they are no longer motivators; top to bottom: self-actualization, esteem, belonging, safety, physiological -Douglas Mcgregor s theories x and y (1960): X- classical economic man model; Y- responsible, self-directed man -Neo-classical school -Herbert Simon (1946): -The principle of management as proverbs ; attack on principles; unity of command, span of control, organization by purpose, process, clientele, and place; accepted in administrative situations, but not as a science -Suggest fact-value dichotomy: factual propositions are statements about the observable world and the way in which it operates

-The concept of economic man vs. administrative man: bounded rationality, satisfice (satisfy + suffice) -Design issues: -Centralization vs. decentralization -Centralization: an organizational pattern focused on concentrating power at the top of an organization; accountability may be less complicated, organizations may deviate less from top-management goals, less flexibility and adaptability -Decentralization: an organizational pattern focused on distributing power broadly within an organization; becomes more necessary with the increasing scope and complexity of many organizations; often results in greater complexity, greater opportunity for employee/client participation, complicates accountability and monitoring -Tall vs. Flat hierarchies -Tall hierarchy assumes a distinct vertical chain of command through which tasks are coordinated; problems include one-way communication, distorted communication, and a one-dimensional perspective -Flat hierarchy assumes tasks are coordinated through an exchange process among hierarchical equals in a collegial, collaborative fashion; problems include lack of buffers and too many leaders Week 5 Slides -Historical periods of civil service: 1. 1789-1829: Government by gentlemen - positions at all levels filled with well-educated, wealthy, white, male landowners 2. 1829-1833: Government by common man - populist government by ordinary citizens, patronage and spoils rampant 3. 1883-1906: Government by the good - civil service emerged as a profession; merit, competence, and efficiency were valued 4. 1906-1937: Government by the efficient - efficiency and scientific management strengthened; more activist role for administrators began to emerge 5. 1937-1955: Government by administrators- executive branch greatly expanded power; representativeness and responsiveness now core values 6. 1955-1995: Government by professionals- career and professional needs of administrators emphasized 7. 1995-present: Government by citizens, experts, and results- results-driven and performance-oriented government; use of technology to make government more open -Comparing patronage with merit:

-Patronage system (1789-1883): employees selected based on politics and party loyalty; politically associated with executive; easily controlled by executive; enables institutional change AKA the spoils system -Merit system (1883-present): employees selected based on skills and qualifications; take civil service exam; immune or insulated from political control; creates institutional memory ; AKA civil service -Affirmative action: specific efforts to recruit, hire, and promote qualified members of a minority or disadvantaged groups for the purpose of eliminating present effects of past discrimination -Executive Order 10925: 1961 EO that prohibits discrimination in employment by federal agencies and contractors -1964 civil rights act: prohibits discrimination on the basis of race, color, religion, sex, or national origin in most private sector employment; created the equal employment opportunity commission (EEOC) for its enforcement -1972 equal employment opportunity act: strengthened the authority of the EEOC to enforce anti-discrimination laws in state and local governments -Recruitment: the process of advertising job openings and encouraging candidates to apply; designed to provide organizations with an adequate number of viable candidates from which to make its selection decision -Selection: examination process that selects personnel out of candidates from recruiting process (merit selection); job relatedness is the paramount consideration in developing a selection device rule (test validity is important) -Compensation: General schedule (GS)- established in 1949, based on the idea that employees should be rewarded for longevity rather than performance standards; federal employees receive a pay rise (if approved by congress) each time they receive a satisfactory job performance assessment; within each pay grade there are ten steps , and promotion is based on years of service (GS-1 through GS-15); GS-12 through 15 are all upper-level positions; GS 5-7 are most common entry for college graduates Matching with the private sector -Federal workforce compensation comparable to market wage -Federal Salary Reform Act of 1962 FSRA -Federal Pay Comparability Act of 1970 FPCA -Financial incentives -Incentive awards program act of 1954 IAPA: first attempt to provide incentives for outstanding ideas or performance in the federal government -Civil Service Reform Act of 1978 CSRA: origin of pay-forperformance system

-Performance evaluation: performance measurement- can be measured in objective manner, supervisor and employee can make consensus; performance appraisal (usually annual)- quantitative and qualitative aspect, objective and subjective, output is usually the ratings, normal distribution of ratings, for the employee and the organization -Pay-for-performance: a system that uses extrinsic monetary incentives to motivate increased or enhanced employee effort and performance; based on the merit system from 1883 Pendleton Act; issues of performance appraisal, availability of sufficient financial resource -Herzberg s two-factor theory about employee motivation: satisfiers- achievement, recognition, work itself, responsibility, advancement, growth; dissatisfiers- company policy and administration, supervision, working conditions, interpersonal relations, salary, status, job security -Collective bargaining: formalized process of negotiation between management and labor, which address terms and conditions of employment including pay, working conditions, and benefits -Difference between private and public sector collective bargaining: 1. Top public managers are either elected or politically appointed, both types of selection are influenced by labor groups and the general public 2. Public-sector collective bargaining is multilateral instead of bilateral 3. Because public agencies possess near monopolistic control over essential services, the costs of a strike or work slowdown are enormous -23 states and the District of Columbia extend full collective bargaining rights to all public employees, 13 states protect bargaining rights for some public employees, and 14 states do not provide for collective bargaining for any state or local government employees -Process: after election among possible members, a union is recognized as the bargaining agent; bargaining team is selected; scope of bargaining is defined: what issues will be subject to negotiation; process of proposals discussed and revised until agreement on a proposal is reached by all parties; proposed agreement is ratified by vote of union members; once contracted is signed, work begins on the next round of negotiation talks Week 6 Slides -Examples of values in PA: democracy, social equity (vertical and horizontal), public good, efficiency, productivity, redundancy, effectiveness, legitimacy, neutrality -How is limited government guaranteed? 1. Separation of powers 2. Checks and balances 3. Federalism

4. Judicial Review -Characteristics of public organizations: vertical hierarchy, well-defined routines and procedures, well-defined rules about managerial controls over organizational activities, reliance on precedent to resolve problems, face limited competition, provide services without regard to ability to pay, multiple, conflicting, and/or ambiguous goals, subject to intense public scrutiny, subject to political repercussions -Characteristics of private organizations: profit oriented, evaluated based on profits or losses, provide products or services for payment, centralized responsibility among executives, define their markets, set their own goals, long-term oriented, less entitlement , dynamic and responsive, greater risk and uncertainty -Bureaucratic power: can be consolidated by expertise and political support -The collective expertise an agency may have on the programs for which it is responsible give an agency power and influence because the agency will gain: 1. A monopoly on information in the subject area, which makes their expertise indispensible in any decision making pertaining to that subject 2. A pattern of increasing reliance on bureaucratic experts for technical advice 3. Increasing control by experts of bureaucratic decisions -Political support comes from: the legislature, the executive branch, constituent and clientele interest groups, the general public -Articulating how bureaucrats relate to interest groups: iron triangle relationships: 1950 s-1970 s- alludes to the fact that earlier policy subsystems were closed largely to insiders; the reciprocal influence relationships between agencies, interest groups, and legislative committees are a key element in bureaucratic power Legislative committee Government agency Interest group -Legislative support for administrators: MOST IMPORTANT SOURCE OF SUPPORT for administrative agencies because they have the power of the purse -How do agencies cultivate legislative support? Respond promptly to request information; effectively promote and manage programs in which legislators have a stake; cooperate administratively with legislators electoral needs; anticipate legislative preferences regarding the operations of particular programs -Street-level bureaucracy: -Who are the street-level bureaucrats? Public service workers who interact directly with citizens in the course of their jobs, and who have substantial discretion in the execution of their work (teachers, police officers, judges) -Why are they important? The face of government; socialize individuals into society, determine eligibility for services and sanctions, receive the brunt of

public displeasure, often deal with elements of society that private firms and individuals prefer to avoid -Discretion: political leaders can t/won t decide details and punt difficult choices to bureaucracy; discretion is inevitable in running programs, in part due to vague and conflicting directives; administrators have information = power; tenure can outlast leadership; administrators have own political base -Bureaucratic neutrality: bureaucracies carry out policies and directives in a politically neutral way; bureaucracies are guided by legislative intent, subject to legislative oversight, and responsive to chief executive direction -Four types of accountability: Romzek and Dubnick s (1987) typology distinguishes between them1. Bureaucratic accountability: describes relations between supervisors and subordinates within an organization 2. Professional accountability: behavior governed by norms and ethics of a particular profession (social work, education) 3. Legal accountability: behavior governed by the law of the land and by various legal arrangements such as contracts 4. Political accountability: broad range of activity through which constituents and stakeholders participate in determining policies and overseeing their implementation