Introducing Public Administration

633 Pages·2016·5.15 MB·English

by  Jay M. Shafritz et al.

Introducing Public
Administration
Now in an extensively revised 9th edition, Introducing Public Administration provides
students with the conceptual foundation they need, while introducing them to import-
ant trends in the discipline. Known for its lively and witty writing style, this beloved
textbook examines the most important issues in the field of public administration
through the use of examples from a variety of disciplines and modern culture. This
unique approach captivates students and encourages them to think critically about
the nature of public administration today. Refreshed and revised throughout, the
9th edition contains a number of important updates:
(cid:81) A n examination of the effect of the Obama administration on the discipline,
especially economic and financial management and budgetary policy, allowing
students to apply the theories and concepts in the text to recent US government
practice.
(cid:81) A n exploration of the 2008 economic meltdown and its consequences for
the regulation of financial markets, cut-back management, and social equity,
providing students with a critical look at recent changes in the global economy.
(cid:81) A ll-new images, international examples, keynotes, and case studies have been
incorporated to reflect the diversity of public servants throughout history. Case
studies correspond to those in optional companion book Cases in Public Policy
and Administration to offer clear discussion points and seamless learning with
the two books side by side.
(cid:81) N ew sections on careers in public service, whistleblowing and public employee
dissent, networks and collaboration across organizations, social innovation,
managerialism and productivity improvement, Big Data and cloud computing,
collaboration and civic engagement, and evidence-based policy and management.
Complete with a companion website containing instructor slides for each chapter,
a chapter-by-chapter instructor’s manual and sample syllabus, student learning objec-
tives and self-test questions, Introducing Public Administration is the ideal introduc-
tion to the discipline for first year masters students, as well as for the growing number
of undergraduate public administration courses and programs.
Jay M. Shafritz is Professor Emeritus of Public Administration from the Graduate
School of Public and International Affairs at the University of Pittsburgh, USA.
E.W. Russell is Adjunct Professor of Public Administration in the School of Public
Health at La Trobe University in Melbourne, Australia.
Christopher P. Borick is Professor of Political Science in the Department of Political
Science at Muhlenberg College, USA.
Albert C. Hyde is Senior Scholar in Residence in the School of Public Affairs at
American University in Washington, DC, USA.

Introducing Public
Administration
Ninth Edition
SHAFRITZ
JAY M.
RUSSELL
E. W.
BORICK
CHRISTOPHER P.
HYDE
ALBERT C.
For support material associated with Introducing Public Administration, Ninth Edition,
please go to www.routledge.com/cw/Shafritz
First published 2017
by Routledge
711 Third Avenue, New York, NY 10017
and by Routledge
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Routledge is an imprint of the Taylor & Francis Group, an informa business
© 2017 Taylor & Francis
The right of Jay M. Shafritz, E.W. Russell, Christopher P. Borick, and
Albert C. Hyde to be identified as authors of this work has been asserted
by them in accordance with sections 77 and 78 of the Copyright,
Designs and Patents Act 1988.
All rights reserved. No part of this book may be reprinted or reproduced or
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without intent to infringe.
Library of Congress Cataloging-in-Publication Data
Names: Shafritz, Jay M., author.
Title: Introducing public administration / by Jay M. Shafritz, E.W. Russell,
Christopher P. Borick, and Albert C. Hyde.
Description: Ninth edition. | New York : Routledge, 2016. |
Includes bibliographical references and index.
Identifiers: LCCN 2016010466 | ISBN 9781138666337 (hardback : alk. paper) |
ISBN 9781138666344 (pbk. : alk. paper) | ISBN 9781315619439 (ebook)
Subjects: LCSH: Public administration—Textbooks.
Classification: LCC JF1351 .S448 2016 | DDC 351—dc23
LC record available at http://lccn.loc.gov/2016010466
ISBN: 978-1-138-66633-7 (hbk)
ISBN: 978-1-138-66634-4 (pbk)
ISBN: 978-1-315-61943-9 (ebk)
Typeset in Sabon LT Std
by Apex CoVantage, LLC
BRIEF CONTENTS
Detailed Contents vi
Preface xiii
Key Events in Public Administration xvi
CHAPTER 1 Defining Public Administration 1
CHAPTER 2 T he Political and Cultural Environment of Public Policy
and its Administration 40
CHAPTER 3 The Continuous Reinventing of the Machinery of Government 85
CHAPTER 4 Intergovernmental Relations 139
CHAPTER 5 Honor, Ethics, and Accountability 187
CHAPTER 6 The Evolution of Management and Organization Theory 231
CHAPTER 7 Organizational Behavior 273
CHAPTER 8 Managerialism and Information Technology 319
CHAPTER 9 Strategic Management and Government Regulation 361
CHAPTER 10 Leadership 390
CHAPTER 11 Personnel Management and Labor Relations 415
CHAPTER 12 Social Equity 464
CHAPTER 13 Public Financial Management 507
CHAPTER 14 Program Audit and Evaluation 556
Index 589
v
DETAILED CONTENTS
Preface xiii The Evolution of Public Administration 23
A Short History of Public Administration 24
Key Events in Public Administration xvi
The Pre-modern Period and Five Eras
of Civil Service Development 26
CHAPTER 1 Defining Public The Modern Period and Shifting
Perspectives on the Roles of Government 28
Administration 1
Working in the Public Sector in the
Keynote: Go Tell the Spartans 1 Twenty-First Century 30
The Definitions of Public Administration 6 A Case Study: How a President Undeservedly
Political Definitions of Public Administration 6 Received Credit for Founding a Discipline 33
Public Administration Is What Summary 34 (cid:81) Review Questions 35 (cid:81)
Government Does 6 Key Concepts 35 (cid:81) Bibliography 37 (cid:81)
Public Administration Is Both Recommended Books 38
Direct and Indirect 7
Public Administration Is a Phase in the Public
CHAPTER 2 The Political and Cultural
Policymaking Cycle 9
Public Administration Is Implementing Environment of Public Policy and its
the Public Interest 9 Administration 40
Public Administration Is Doing Collectively
Keynote: Who Decides Whether the United States
That Which Cannot Be So Well Done
Should Wage War? 40
Individually 10
Legal Definitions of Public Administration 11 What Is Public Policy? 47
Public Administration Is Law in Action 11 Public Policymaking in a Republic 47
Public Administration Is Regulation 12 Executive Powers 49
Public Administration Is the King’s Largesse 13 The Restricted View 49
Public Administration Is Theft 13 The Prerogative Theory 49
Managerial Definitions of Public The Stewardship Theory 51
Administration 14
The Policymaking Process 51
Public Administration Is the Executive
Agenda Setting 53
Function in Government 15
Decision Making 56
Public Administration Is a Management
Specialty 15 A Single Calculating Decision
Maker—Not! 57
Public Administration Is Mickey Mouse 16
Implementation 58
Public Administration Is Art,
Not Science—or Vice Versa 16 Evaluation 60
Occupational Definitions of Public Feedback 61
Administration 17
Power—The External Perspective 61
Public Administration Is an Occupational
Pluralism 62
Category 17
Group Theory 64
Public Administration Is an Essay Contest 18
Public Administration Is Idealism in Action 19 Power—The Internal Perspective 67
Public Administration Is an Academic Field 20 Organizational Goals 68
Public Administration Is a Profession 23 Internal Power Relationships 68
vi
Detailed Contents vii
The Cultures of Public Organizations 70 The Obama Revolution—The Return of Big
The Outside Cultural Environment 71 Government 116
Cultural Values and Administration 71 The Micromanagers 117
The Inside Cultural Environment 72 The Pressure for Privatization 118
Professional Socialization 73 Strategies for Privatization 119
Symbolic Management 74 Privatization in the Military 120
A Case Study: How Old Bottles Create New Jobs— The Nonprofit Gambit 122
Both Legal and Not 76 The Faith-Based Initiative 123
Voluntarism and Philanthropy 125
Summary 80 (cid:81) Review Questions 80 (cid:81)
Key Concepts 80 (cid:81) Bibliography 82 (cid:81) A Case Study: The Revolution in the British
Recommended Books 84 Machinery of Government (1979–2011) 128
Summary 132 (cid:81) Review Questions 133 (cid:81)
CHAPTER 3 The Continuous Reinventing of Key Concepts 133 (cid:81) Bibliography 135 (cid:81)
Recommended Books 137
the Machinery of Government 85
Keynote: The New Feudalism 86
CHAPTER 4 Intergovernmental
What Is the Machinery of Government? 89
Relations 139
Fine-Tuning the Machinery 89
Keynote: The Intergovernmental Problem of
The Rise and Fall of Governmental
Marijuana 139
Machinery 90
The Evolution of Federal Systems 145
The Administrative Architecture of the US
Alliances and Confederations 146
Government 91
Defining Intergovernmental Relations 146
Executive Branch Machinery 94
Executive Office Agencies 94 The Fundamental Settlement 147
Executive Departments 94 The Constitution 147
Independent Public Bodies 95 The European Union 148
Separation of Powers 96
The American Federal System 149
State and Local Government Machinery 98 Three Categories of Governments 149
State Government 102 Unitary Government Advantages 151
County Government 102 Federal Government Advantages 151
Municipal Government 104 Confederations 152
Towns and Special Districts 105
The Structure of Intergovernmental
Local Management Machinery 105
Relations 152
Metropolitan Government 106
The Effects of Pluralism 153
Continuous State and
The Marble-Cake Metaphor 154
Local Reform 108
Dynamic Federalism 154
Reforming the National Machinery
Dual Federalism 155
of Government 108
Cooperative Federalism 155
The Brownlow Committee 110
Creative Federalism 156
The Hoover Commissions 111
New Federalism 156
The Ash Council 112
New, New Federalism 158
The President’s Private Sector
Survey on Cost Control 112 Intergovernmental Management 158
The National Performance Review: Councils of Governments and
“Reinventing Government” 113 Intergovernmental Agreements 159
Reinvention in Recess 115 Mandate Mania 160
viii Detailed Contents
Mandates and the War on Terrorism 161 Obsessive Accountability 213
The Transformation of Governance 162 Avoiding Accountability 214
Fiscal Federalism—Following the Money 164 Legislative Oversight 215
The Theory of Fiscal Federalism 165 Hearings 215
Grant Programs 168 Casework 217
The Devolution Revolution 170 A Case Study: The Gas Chamber of Philadelphia:
The Public-Choice Solution 172 How a 1977 Incident at Independence Mall
Illustrates the “Banality Of Evil” Concept First
Welfare Reform 172
Applied to Adolf Eichmann, the Nazi Holocaust
The Race to the Bottom 176
Administrator 217
A Case Study: Why Illegal Immigration Is an
Summary 226 (cid:81) Review Questions 226 (cid:81)
Intergovernmental Mess and Will Remain So 177
Key Concepts 227 (cid:81) Bibliography 228 (cid:81)
Summary 182 (cid:81) Review Questions 182 (cid:81) Recommended Books 230
Key Concepts 182 (cid:81) Bibliography 184 (cid:81)
Recommended Books 185
CHAPTER 6 The Evolution of Management
and Organization Theory 231
CHAPTER 5 Honor, Ethics, Keynote: Reorganization at the State Department
and Accountability 187 is Nothing New 232
Keynote: Niccolò Machiavelli, the Preeminent The Origins of Public Management 235
Public Administration Ethicist 187 The Continuing Influence of Ancient Rome 236
The Military Heritage of Public
The Origins and Nature of Honor 190
Administration 237
National Honor 191
Why Honor Precedes Ethics 1 92 The Evolution of Management Principles 239
Dimensions of Honor 193 Comparing Military and Civilian
Principles 239
Regime Values 194
The Principles Approach 241
Corruption in Government 195
What Is Organization Theory? 242
Bribery 195
Classical Organization Theory 243
Watergate 196
Adam Smith and the Pin Factory 244
Lying for Your Country 196
The Origins of Scientific Management 246
The Dirty Hands Dilemma 197
The Staff Concept 246
Lying about Sex 198
The Influence of Frederick W. Taylor 247
Hierarchy of Ethics 200
Fayol’s General Theory of Management 250
The Four Levels of Ethics 200
The Period of Orthodoxy 250
The Iran-Contra Affair 201
Paul Appleby’s Polemic 251
The Higher Law Defense 202
Luther Gulick’s POSDCORB 251
Codes of Honor, Conduct, and Ethics 203
The Many Meanings of Bureaucracy 252
Honorable Behavior 203
All Government Offices 253
Was “Deep Throat’s” Behavior Honorable? 204
All Public Officials 253
Standards of Conduct 205
A General Invective 253
Whistleblowing 206
Max Weber’s Structural
Protecting the Public’s Right to Know 206 Arrangements 254
Protecting Whistleblowers 207
Neoclassical Organization Theory 255
The Challenge of Accountability 210 Herbert A. Simon’s Influence 257
Constitutional and Legal Constraints 212 The Impact of Sociology 257
Detailed Contents ix
“Modern” Structural Organization Postmodern Public Administration 305
Theory 259 A Feminist Perspective 306
Basic Assumptions 259
A Case Study: The Dangers of Groupthink
Mechanistic and Organic Systems 259 from Pearl Harbor to the War in Iraq 309
Systems Theory 260 Summary 312 (cid:81) Review Questions 313 (cid:81)
Cybernetics and Complex Adaptive Key Concepts 313 (cid:81) Bibliography 315 (cid:81)
Systems 260 Recommended Books 317
Collaborative Management 262
A Case Study: The Critical Importance of CHAPTER 8 Managerialism and
Administrative Doctrine 263 Information Technology 319
Summary 267 (cid:81) Review Questions 268 (cid:81) Keynote: Socrates Discovers Universal
Key Concepts 268 (cid:81) Bibliography 270 (cid:81) Management 319
Recommended Books 272
Managerialism 323
A New Managerial Revolution 324
CHAPTER 7 Organizational
Policy Entrepreneurs 325
Behavior 273
Reengineering 325
Keynote: Henry II of England, Archbishop of Radical as Opposed to Incremental
Canterbury Thomas Becket, and Rufus Miles of the Change 325
US Bureau of the Budget: How a Medieval King,
Becoming a Reengineer 326
a Martyred Saint, and an American Bureaucrat
Illustrate Miles’s Law 273 Empowerment 328
Miles’s Law 275 Empowering Teams 328
The Rise of Thomas Becket 275
Entrepreneurialism 329
Becket’s Predicament 276
A New Archbishop of Canterbury 277 Toward a Competitive Public
Miles’s Law in Action 277 Administration 330
The New Public Management 332
Organizational Behavior 279
Group Dynamics 282 What Is Performance Management? 333
Organization Development 285 The Politics of Performance
Management 334
The Impact of Personality 288
Management Control 335
The Impact of Bureaucratic
Productivity Improvement 335
Structure on Behavior 289
Productivity Measurement 335
Bureaucratic Dysfunctions 290
Barriers to Productivity Improvement 336
Bureaucratic Impersonality 291
Total Quality Management 337
Bureaucrat Bashing 293
The Case for Bureaucracy 294 Information Technology 339
Social Networks and New Media:
Motivation 294
Government 2.0 340
The Hawthorne Experiments 295
Facebook 340
The Needs Hierarchy 296
Twitter 341
The Motivation-Hygiene Theory 296
YouTube 342
Toward a Democratic Environment 297
Texting 343
Theory X and Theory Y 298
From E-Commerce to E-Government 345
The Future of Organizations 301
The Two Faces of E-Government 346
Postbureaucratic Organizations 301
Postmodernism and Technocracy 303 Wired Citizens 346
Social Network Analysis 304 One-Stop Government 347