ED 100 271

TITLE

INSTITUTION

PUB DATENOTEAVAILABLE PROS

!DRS PRICEDESCVIPTORS

DOCURENT BEMIRE

RI 006 174

Guidelines and Standards for Professional MastersDegree Programs in Public Affairs/PublicAdministration.National Association of Schools of Public Affairs andAdministration, Washington, D.C.7442p.National Association of Schooloa of Public Affairs andAdministration, 1225 Connecticut Avenue, NOT" Suite300, Washington, D.C. 20036 ($2.00)

RF-60.75 BC Not Available from EMS. PLUS POSTAGEDegree Requirements; *Graduate Study; Guidelines;*Higher Education; *Rasters Degrees; ProgramEvaluation; Program Guides; Program Improvement;*Public Administration Education; *Public AffairsEducation

ABSTRACTThe guidelines and standards for professional masters

degree programs in public affairs and public administration aredesigned to provide criteria for evaluating educational and trainingprograms as well as for measuring the competencies of publicmanagers. The applicability, objectives, and program content of theguidelines are stated in the introductory material. A matrix ofprofessional competencies of graduates of public affairs/publicadministration programs and of public managers is presented withemphasis on program format, composition and qualifications offaculty, student admission policies and services, programorganization and jurisdiction, and facilities. Recommendations forthe implementation of the guidelines and standards are also given.(NJM)

I

BUT COPY AVAILABLE

GUIDELINES AND STANDARDSwFOR PROFESSIONAL

MASTERS DEGREE PROGRAMSIN PUBLIC AFFAIRS /

PUBLIC ADMINISTRATION

ij s ofARrkitflerOP staL

m.hArlok4i.. uldsrlturtVt

ostouc4rtok,% ..AS HEE% rif Pic,

:, I A 4 ,, v AN VF'f .E'D A ir,lt.4'}' f w

,lae,.% l4 0% ,/N CS . ' P. .. ", 4

i'.'4 'I.:,

C '1,'.."kf i f ',%44 1 V Wf Pqr

,f ,, ,'4a a; oi...., ,:qya,

os,,,S ,, 'r .',I

Et), Cal'1% Oke PO,

C

.:ff.241-:e;

t, r-;CWIJ

NASPAA

NATIONAL ASSOCIATION OF SCHOOLS OFPUBLIC AFFAIRS AND ADMINISTRATION

WASHINGTON, D.C.

1974

BEST COPY AVAILABLE

The National Association of Schools of Public Affairs andAdministration (NASPAA) is a professional education associationdedicated to the advancement of education and training in publicaffairs and public administration. Composed of 130 schools andprograms, NASPAA serves as a national center for information aboutprograms and developments in this field. It fosters goals andstandards of educational excellence, and represents the concerns andinterests of member institutions in the formulation and support ofnational policies for education in public affairs/public administra-tion. It cooperates with governmental organizations, professionalassociations, and national public interest groups to improve thequality of public management. NASPAA is affiliated with theAmerican Society for Public Administration, a national organizationfor those interested in advancing the public service at all levels ofgovernment.

For information concerning NASPAA membership, activities, andpublications contact: Staff Director, National Association of Schoolsof Public Affairs and Administration, Suite 300, 1225 ConnecticutAvenue, N.W., Washington, D.C. 20036.

Copyright0 1974 by theNational Association of Schools of Public Affairs and Administration,Washington, D.C. All Rights Reserved

Library cf Cooszess Catalog No. 7443241.

Pr ice $2.00

Copies may be ordered prepaid fromNational Association of Schools of Public Affairs anti Administration

1225 Connecticut Avenue, N.W., Suite 30Washington, D.C. 20036

GUIDELINES AND STANDARDSFOR PROFESSIONAL

MASTERS DEGREE PROGRAMS

IN PUBLIC AFFAIRS/PUBLIC ADMINISTRATION

NASPAA

NATIONAL ASSOCIATION OF SCHOOLS OFPUBLIC AFFAIRS AND ADMINISTRATION

WASHINGTON, D.C.

1974

TABLE OF CONTENTS

Introduction

Guidelines and Standards for Professional Masters Degree Programs inPublic Affairs/Public Administration 3

Applicability

Objectives

Program Content

Matrix of Proiessional Competencies of Graduates ofPublic Affairs/Public Administration Programs and ofPublic Managers

Program Format

Composition and Qualifications of Faculty

Student Admission Policies and Services

Program Organization and Jurisdiction

Facilities

Implementation of Guidelines and Standards

Appendix A.

Appendix B.

Appendix C.

Appendix D.

Background and Findings of Guidelines/Standards S. u iy

Members of NASPAA Standards Committee WhichPrepared Guidelines and Standards . 35

Members of Committees of Professional AssociationsAdvising on Guidelines and Standards . 36

4

4

5

7

17

20

de Oa

24

25

27

28

Acknowledgements 38

ii5

Introduction

Guidelines and Standards for Professional Masters Degree Pro-grams in Public Affairs/Public Administration were unanimouslyadopted by the delegates to the annual conference of the NationalAssociation of Schools of Public Affairs and Administration held inSyracuse, New York. on May 5, 1974. Although primarily directedto various facets of the educational process, the Guidelines andStandards are designed to foster the development of the overallprofession of public management. Thus, they are relevant to Jourconstituencies, namely: (1) students, (2) educational institutions, (3)public service employers, and (4) the public management profession.

The Guidelines and Standards are not prescriptive; they set forthgoals to be attained rather than requirements to be imposed. Theyprovide criteria for evaluating educational and training programs inpublic affairs/public administration as well as for measuring thecompetencies of public managers. They are sufficiently broad andflexible to be applied to all professional masters degree programsirrespective of site and specialization and to all public managersirrespective of the level of government or the functional area ofspecialization. The Guidelines and Standards also help to demarcatethe professional boundaries of the field of public affairs/publicadministration so that education and training can be more sharplyfocused and pertinent.

The Guidelines and Standards will be widely distributed. NASPAAencourages students, educational institutions, employing jurisdictionsand practitioners to use them in their respective evaluation processes.Within the limits of its resources, NASPAA is prepared whererequested to provide technical advice and assistance. NASPAA hopesthat the Guidelines and Standards will engender more cooperativerelationships and actions among all who are concerned withimproving the quality of public management.

I

Guidelines and Standardsfor Professional

Masters Degree Programsin Public Affairs/Public Administration

These guidelines and standards have been established to improvethe quality of public affairs/public administration programs for thepurpose of providing more competently trained managerial personnelfor the public service. Although focusing upon the educationalprocess for the professional masters degree. they are designed toserve several constituencies, namely:

Students. both preservice and inservice, who wish to identifyappropriate educational institutions and programs in which to enrollfor professional training. These glidelines and standards can berelated to program descriptions found in college catalogues and willprovide students some commirative measure of the content, emphasisanti calibre of respective degree programs.

Educational Institutions which are seeking to establish newprofessional masters degree programs or to enhance the quality ofexisting programs in public affairs/public administration. For theseinstitutions the guidelines and standards provide criteria for evalua-ting the various facets of a program and for denoting ways forimproving the educational process and student product. It should beemphasized that these guidelines and standards do not constituteprovisions for accreditation nor do they impose any specificinstitutional requirements: instead they should be viewed as criteriafor fostering and aiding institutional self-appraisal.

Public. Service Employers and Jurisdictions that are endeavoringto measure the competencies of graduates of respective professionaldegree programs for specific positions and career service develop-ment. These guidelines and standards will enable those who employthe graduates to compare the nature and content of differenteducational and training programs for the purpose of determiningwhich institution best serves their employment needs.

The Public Management Profession which is striving to improvethe quality of the public service through the training and develop-ment of better public managers. These guidelines and standards setforth the common attributes of a professional public manager andprovide yardsticks whereby individuals can measure their ownadministrative qualifications and competencies.

.

73

Applicability

These guidelines and standards are designed to apply to profes-sional masters degree programs in all schools, departments, programs,and other organizational units which have as their objective theeducation and training of competent managers for the public service.They also apply to program specializations (e.g., urban affairs, healthadministration, criminal justice, international administraion, etc.)which feature the training of public managers for specific functionsor levels of government.

The guidelines and standards are not applicable to professionalschools and programs where training in administration is peripheralto the training of subject matter specialists. However, they arepertinent to joint programs combining managerial training withsubject-matter specialization, whether these joint programs are or arenot located in the same organizational unit.

Although established for proftsion; .asters degree programs,these guidelines and standards also relevant for professionalundergraduate programs, continuing eu ,,cation programs or othertraining efforts that focus upon the preparation of qualified publicmanagers. Standards of managerial competency for the public serviceremain the same irrespective of the form or level of instruction.Moreover, masters degree programs draw students from under-graduate levels a ad feed into doctoral studies and continuationlearning so that the relationships of all public managements trainingprograms regardless of level should be kept in perspective.

Objectives

These guidelines and standards are designed to promote thefollowing objectives:

To foster a professional focus and approach to public affairs/public administration education and training in contrast to a liberalarts focus and approach which presently prevails for many programs.The professional masters degree should be specifically directed to thepreparation of practitioners who will be potentially qualified, byvirtue of education, outlook and commitment for managerialpositions in the public service. Every phase of the program, beginningwith student admissions and the qualifications of faculty, throughprogram content, instructional patterns, counseling and placement,should reflect a professional identity, orientation and thrust.

To foster professional programs which will provide graduateswith specific competencies for public management. These programsshould incorporate the knowledge, skills, values and behavioressential to the successful practitioner. The degree to which a student

4

attains professional competency will he some measure of how wellguidelines and standards have been applied.

To develop close professional relationships in all aspects ofpublic service training and personnel development between employ-ing jurisdictions and educational institutions. The education ofpublic managers is a continuous and lifelong process beginning withpreservice training and continuing through various stages of anindividual's professional career. Constant interaction and dovetailingof training requirements and capabilities is essential between educa-tional institutions and employing jurisdictions if the education is tohe effectively accomplished and the nation's needs for professionallytrained managerial manpower are to be met.

To identify the distinguishing elements of managerial trainingprograms for the public service in contrast to those programs trainingfor business and other segments of private enterprise. The particularattributes of public service management must be featured andemphasized in public affairs/public administration programs if thetraining is to he of optimum value for governmental employment.

To provide benchmarks for the relationships of masters pro-grams in public affairs/public administration to other professionalschools and related programs. Professional guidelines and standardswill clarify the respective training responsibilities between publicaffairs/public administration programs and other professions andwill establish the basis for better institutional cooperation. Clarifica-tion of training roles and responsibilities among professions will helpto provide a sound basis for building stronger career developmentprograms for various areas of specialization within public servicejurisdictions.

To develop understanding of the scope and character of qualityprograms in public affairs/public administration with educationalinstitutions. These guidelines and standards should provide usefulinformation and criteria to educational administrators and facultyfor resolving issues of organizational status, facilities and resourcebase.

Program Content

Educational programs in public affairs/public administrationshould be designed to provide graduates with professional com-petencies for careers in public management. A public manager'sprofessional competence rests upon four basic elements: (1) know-ledge. (2) skills, (3) values and (4) behavior. The content of each ofthese elements should be consciously integrated into professionaldegree programs if potentially qualified managerial personnel are tobe produced for the public service.

9

Ti) provide educational institutions with common standards forprogram eValtlill ion and development. the constituents of an academ-icitraining program are set forth in the ft) flowing matrix. The subjectmatter of the matrix should constitute the core of any professionaldegree in public affairs/public administiation including programspecializations te.g.. urban affairs, health administration. criminaljustice. international administration, etc.) which emphasize manager-ial training for public service. The matrix encompasses qualificationsdesirable for all public managers irrespective of the level ofgovernment or the functional area of administration. It may also beapplied to the public administration systems of other nations wheredemocratic institutions and values prevail.

is 10

MATRIX OF PROFESSIONAL COMPETENCIESOF

GRADUATES OF PUBLIC AFFAIRS/PUBLIC ADMINISTRATION PROGRAMS

AND OFPUBLIC MANAGERS

BEST COPY AVAILABLE

PART I - SUBJECT MATTER AREAS

Public InterestKnowledge Skills Values Behavior

A. Political, Social &Economic Context

1-A-1 1-A-2 1-A-3 1-A-4

B. Analytical Tools:Quantitative andNonQuantitative

1-B-1 1-B-2 i -13-3 1 -B -4

C. individual /Group!OrganizationalDynamics

1C-1 1-C-2 1-C-3 -C-4

D. Pol c Analysis 1.- D-1 -0-2 I--D -3 I-D-4E. Administrative/

ManagementProcesses

1-E-1 1-E-2 1-E-3 1-E-4

PART II - PROGRAM SPECIALIZATIONS

A, Level of Government A-1, 2, 3, 4

B. Public Function B-1 through 13

for content of matrix, sea matching outline on the following paw

° . o

7

Part 1 Subject Matter Areas

A. Political-Social-Economic Context

1. Knowledge of:a. Cultural and social mores and patterns.13. Political values and pimesses.z. Governmental institutions, powers and relationships,d. Economic systems. incentives and controls.C. Environmental factors and resource availabilitiest -

Of

Skills in:

a. Analysis and interpretation of political-social-economicforces and trends.

b, Application of political-social-economic knowledge tosolution of public problems.

c. Evaluation of the political- so cial- economic impact andconsequences of administrative policies ani actions.

3. Public Interest Values represented by knowledge of andcommitment to:Democratic traditions and practices, constitutionalism

and the rule ofh. The purposes and limitations of government as an

instrument for fostering social and economic pro-gress.

c. Access for individuals and groups to centers of power anddecision making.

J. The political direction and responsibility of administra-tion and administrators.

e, Standards of official/personal conduct and ethics.

4. Behavior represented by:a. Tolerance of diverse views of other persons and groups.b. Capacity to adjust to complex political-social environ-

ments and situations.c, Ability to function as a social/organizational change

agent.d. Participation in public action programs, e.g., community

development projects, citizen advisory groups, etc.

B. Analytical Tools: Quantitative ani Non-Quantitative

I. Knowledge of:

a. Quantitative decision methodology; e.g., accounting,parametric and non-parametric statistics, linear pro-gramming, modeling, etc.

12

h. Electronic data processing and information systems.Systems and procedures analysis; e.g..C. organization sur-

veys, work measurement, etc.d. Behavioral science methodology; e.g., sociometrie sur-

veys, value analysis. leadership assessment, etc.e. Legal processes and controls.

Skills in:

a. Logical analysis and diagnosis.b. Research design and application.c. Computer utilization and application.d. Application of quantitative and non-quantitative meth-

odology to organizational situations.e. Oral and written communications and presentations.

3. Public Int, rest Values represented by knowledge of andcommitment to:

a. Objectivity and rationality in the conduct of publicaffairs.

b. Utilization of science and research to foster publicpurposes.

c. Impartial inquiry and investigation of public needs andproblems.

d. Openness in communication and interpretation of dataand findings to the public.

4. Behavior represented by:

a. Involvement in data gathering and problem solvingexercises.

b. Familiarity with public documents, legal sources andforms of administrative communications.

c. Preparation of correspondence, reports and positionpapers.

d. Participation in professional asrociations, internships andother forms of experiential learning.

C. Individual/Group/Organizational Dynamics

I. Knowledge of:

a. Individual and group behavior; e.g., individual motiva-tion. dynamics of groups, modes of leadership, etc.

b. Organization structure, process and dynamics; e.g.,models, authority, development strategies, decisionmaking, etc.

c. Communications theory and process.

0 13

d. Professionalism and public service: e.g., evolution ofpublic services, roles and standards of professions.characteristics of bureaucracies, etc.

Skills in:

a. Personal motivation and leadership,b. Interpersonal and group relationships.c. Identification and analysis of political and organizational

power.d. Application of appropriate models of organization,

leadership and decision making.e. Coping with organizational stresses, limitations and

change.

3, Public Interest Values represented by knowledge of andcommitment to:

a. Protection and fostering of individual rights, liberties andwelfare.

b. Promotion of organizational equity and ,ifectiveness.c. Reconciliation of private interests with public objectives

and needs.d. Concern for the clients served by the organization.

4. Behavior as represented by:

a. Consistency, genuiness and integrity in human andorganizational relationships

b. Positive attitudes concerning individual growth and or-ganizational improvement.

c, Willingness to share insights and experiences with others.d. Recognition and understanding of variations in human

and organizational motivations and approaches.e. Participation in professional associations, internships and

other forms of experiential learning.

D. Policy Analysis

1. Knowledge of:

a. Application of analytical and administrative tools tosolution of public problems.

b. Processes by which policy is formulated, implemented,and evaluated.

c. Strategies for optimization and selection of alternatives.d. Distinctive attributes of policy relative to specific func-

tional areas; e.g., health, transportation, etc.

14so

Skills in:

Sock)-ceonomic analysis; e.g., cost- benefit analysis, socialimpact analysis, etc.

b. Political diagnosis; e.g.. public opinion evaluation, grouppower surveys, legislative-executive relationships, etc.

c. Problem comprehension and interpretation; e.g., identifi-cation of strategic issues, liaison skills, advocacy, etc.

d. Policy measurement, scaling and design.e. Program impact measurement: e.g., program evaluation,

outcome or effectiveness measurement, etc.

3. Public Interest Values represented by knowledge of andcommitment to:

a. The use of data and analysis to enlarge the scope ofpublic choice.

b. Policies and programs which foster equality of oppor-tunity and well-being.

c. Measures to increase citizen understanding of publicpolicie and their impact.

d. Standards of program formulation and conduct.e. Procedures for full and fair assessment of program

benefits and costs to various publics.I. Measures to increase client and public participation in

public policy formulation and evaluation.

4. Behavior represented by:

a. Ability to relate and integrate diverse factors to commonobjectives.

b. Methods of adaptation to political and organizationalpressures and constraints.

c. Ability to bargain, compromise and arbitrate.d. Participation in professional associations, internships and

other forms of experiential learning.

E. Administrative/Management Processes

I. Knowledge of:

a. Administrative planning and organizational design.b. Management systems and processes including leadership,

decision making, direction, and organization develop-ment and change.

c. Personnel administration including staffing, training andcollective bargaining.

d. Finance and budgeting.c. Program evaluation and control.

1511

2. Skills in:

a. Conceptualizing, goal setting, organizatior design andprogram development.

b. Work assignment and supervision.c. Negotiating and persuading.d. Monitoring, assessment-and review.

3. Public Interest Values represented by knowledge of andcommitment to:

a. The role and use of organizations and administrativeprocesses to achieve public objectives.

b. Standards of efficiency and effectiveness in the conductof the public's business.

c. Standards of individual and organizational integrity andperformance.

d. Public surveillance and review by citizens and theirelected representatives.

e. A working environment conducive to individual fulfill-ment and the attainment of public confidence.

4. Behavior represented by:

a. Openness to new ideas and proposals.b. Recognition and consideration of strengths, weaknesses

and desires of others.c. Facility in applying management tools and processes to

varied organizational situations and problems.d. Effectiveness in undertaking organization and manage-

ment surveys.e. Participation in professional associations, internships and

other forms of experiential learning.

Part II Program Specializations

A. Level of Government1. Urban/Local2. State/Regional3. National4. International

B. Public Function (some examples)1. Community Development2. Criminal Justice3. Business Regulation4. Educational Administration

r.

12 16

5. Environmental Administration6. inance and Budgeting7. International Development Administration8. Manpower and Employment9. National Security and Arms Control

10. Personnel11. Planning12. Public Health13. Public Works Administration14. Transportation15. Urban and Regional Planning

Content of Matrix: Part I Subject Matter Areas

The matrix is composed of two major parts: Part I, SubjectMatter Areas, and Part 11, Program Specializations. Part 1 calls for thedevelopment of student competencies in five major subject matterareas: (A) The Political-Social-Economic Context of Public Affairs/Public Administration, (B) Analytical Tools: Quantitative andNon-Quantitative, (C) Individual/Group/Organizational Dynamics,(D) Policy Analysis. and (F) Administrative/Management Processes.

Dirisions of knowledge: Within each of these areas are listed basicdivisions of knowledge which a professional degree should cover.Collectively these divisions encompass a wide range of disciplines anddraw heavily upon the background and learning of the social andbehavioral sciences, including specific fields of administrative science.Graduates of professional degree programs may give, by virtue ofinclination or opportunity, more study and emphasis to some ofthese divisions of knowledge than to others and consequently showgreater pro:iciency in selected fields. At a minimum, however, alldegree candidates should be exposed to end have an understanding ofthe interrelationships of these fields and their uses for the publicmanager.

Skills: With each of the categories of knowledge in the matrix areassociated skills which the graduate of public affairs /public admin-istration programs should acquire. Some of the skills are conceptualand analytical in nature, others involve interpersonal relationshipsand still others require training in specific tools of maltagement.Obviously, some graduates, by virtue of native abilities and training,will be more qualified in some skills than others, but all should beexpected to have orientation to the range of attributes, techniquesand proficiencies which make a qualified public manager.

Public Interest Values: A particularly significant matrix categorysignifying the competency of graduates from public affairs/publicadministration programs is education in public interest values. Foundunder this classification are the values to which a public manager

13 17

skulk' be committed in conducting the public's business; valueswhich particularly distinguish the field of public administration.They include a pervasive understanding of democratic institutionsand practices and of the ways whereby the public interest iseffectively served. Equally important, public interest values involvethe kit iopment of a personal code of standards and ethics soessential to the quality and integrity of the public service. Inasmuchas there can be differences over the priorities of specific values,educationa programs may reflect different value emphases; however,these should be made explicit in the literature describing content ofthe program.

Behavior: Finally, the competencies of public affairs/publicadministration graduates in knowledge, skills and values should bereflected in their behavior. For purposes of this matrix, behaviorencompasses personal attitudes and values, the ability to interacteffectively with other individuals and groups, and the capacity toadjust to diverse situations, particularly under conditions of stressand constraints. Although the concomitants of managerial behaviormay he formally studied, they are also acquired through directexperience in situational contexts. Professional degree programsshould, therefore, consciously plan and foster the students' behavior-al training both in intramural and extramural settings. In particular,experiential learning should be provided through exposure to andparticipation with practitioners, public agenc;es, and professionalorganizations.

The christens of tin' tnatrix should not he viewed as separateentities or as classifications jer specific courses. Nor should anyparticular significance be attached to the ordering or sequencing ofthe divisions. On the contrary, the divisions should be perceived interms of their interrelationships and with the recognition that anumber of the divisions are interchangeable within the overallcategories to attain reasonable proficiency in a given area. Of majorconsequence, therefore, is that the integrity of the educationalprogram is measured, not only in terms of discrete units of studentaccomplishment, but from the standpoint of how well the graduatehas assimilated, integrated, and demonstrated the knowledge, skills,behavior and values reflected in the subject matter areas of thematrix.

Content of Matrix: Part II Program SpecializationsPart II of the matrix deals with program specializations. As noted

above, the subject matter of the matrix should be integrated withany program which specializes in the training of public managers fora special function or level of activity. Thus the matrix may be placedin the context of a level of government, e.g., urban affairs, national

14 18

administration. or international administration. Similarly, the matrixmay be related to a public function such as environmental planning,finance and budgeting or transportation. The teaching materials orthe situational contexts may be drawn from a particular level ofgovernment or program activity. Alternatively, the matrix may besupplemented with courses that focus upon the substantive aspectsand problems of health, business regulation or other programspecialties. in many cases these courses will be offered by otherprofessional departments and schools in cooperation with or as aservice for public affairs/public administration programs.

Some degree of program specialization may also occur within thecontext of the matrix. Within policy analysis, for example, theopportunity exists to apply the knowledge and skills of that categoryto a specific public function. Or, to use another illustration, thestudent pursuing a career in finance and budgeting probably willbecome more proficient in accounting than a student emphasizingpersonnel administration, who may focus more on developing skillsinterpersonal relations. However, specialization should not be carriedto the point where essential managerial components of the matrix areneglected.

Applicability of Matrix

This matrix has been designed primarily for professional mastersprograms, notably the MI'A degrees (Master of Public Affairs andMaster of Public Administration). However, it may provide guidanceto professional undergraduate programs (e.g., Bachelor of PublicAdministration), to continuing education programs (e.g., certificateprograms) or to other programs which have as their objective thetraining of qualified public managers. It should be stressed that thematrix reflects the desirable professional competencies of graduatesand not the number of years or courses necessary to attaincompetency. Therefore, any professional degree program professingto train public managers may he evaluated, as noted above, from thestandpoint of how proficient the graduates are relative to the contentof the matrix.

Although the length of time is not specified, many undergraduateprograms in public affairs/public administration will find it difficultin contemporary college settings to devote the amount of attentionnecessary, amidst general academic field requirements, to appropri-ately cover the broad range of subject matter in the matrix. In thesecases the matrix may be used as a guide for improving thepreparation of students for more specialized graduate work, Atinstitutions where the undergraduate program in public affairs/publicadministration has developed a strong professional focus throughouta four-year curriculum, the subject matter of the matrix may be

19

adequately covered. But here again the degree of professionalcompetency attained in the undergraduate program will also dependupon the maturity, sophistication and experience of the student.

Some constraints concerning the applicability of the matrix alsoare present in conjunction with the continuing education student.Afore often than not, extension, extended degree and similarprograms will he offered on a part-time basis over indefinite periodsof time. Although students in these programs may have considerablerelevant experience as practicing professionals. the opportunity topursue needed subject matter of the matrix may not materialize,particularly where the work is taken at outposts some distance fromthe mother campus. Under these circumstances the continuingeducation student may find it difficult to till gaps or integrate thevarious components of the matrix. The degree of professionalcompetency attained, therefore, in continuing education settings willdepend to a large extent on how the educational delivery systems canbe effectively adapted to relate the content of the matrix to thelearning needs of the students without loss of quality.

Jurisdictional Responsibility for Matrix

Within general university requirements and procedures, primaryresponsibility for the program content of the matrix must rest withthe deans (directors or chairmen) and faculty of public affairs/publicadministration programs. This must include jurisdiction not onlyover courses, training methods and training facilities, but over theselection, counselling and placement of students. Successful fulfill-ment of the objectives of the matrix cannot be accomplished withoutcareful intermeshing of all aspects of a professional developmentprogram. As recommended elsewhere in this Report, programs inpublic affairs/public administration should have the same degree ofinstitutional and educational autonomy as accorded other profes-sional schools in the university/college setting.

However, jurisdictional responsibility does not imply that allcourses or training methods called for by the subject matter of thematrix MUM be offered by faculty of public affairs/public administra-tion programs. Indeed, the interdisciplinary character of the matrixmay make 4t both essential and desirable, particularly where a largeMulti-purpose professional public affairs/public administrationschool does not exist, for students to complete some of the academicrequirements in other departments and professional schools. Never-theless, under those circumstances it is incumbent upon the publicaffairs/public administration program to review frequently theappropriateness and content of courses and training programs givenby other departments and professional schools and to see that publicadministration students have equal and continuous access to thoseofferings along with others.

2010

An entering student may not have to pursue all phases of thematrix inasmuch as he/she may bring certain professional competen-cies into the degree program. Much, of course, will depend upon thestudent's previous educational background, professional experienceand personal attributes. The undergraduate may bring to thegraduate de: ree inogram a good foundation in the political/social/economic col,' At of administration and/or have proficiency in anumber of analytical methodologies. Similarly, the professionalemployee with substantial governmental service may have hadconsiderable exposure to management processes or have developedorganizational/behavioral skills. Where proficiency can be demon-strated in a particular subject matter of the matrix, the studentshould not be forced to spend time on this area merely to meetinflexible requirements of a degree program. Rather, the publicaffairs/public administration program should employ the matrix asan instrument for measuring students' pre-entry qualifications andsubsequent progress and for developing a flexible schedule ofeducational requirements. Effective and continuous counselling andfaculty evaluation, therefore, is particularly critical for maintainingstandards of program quality and for achieving the public manage-ment competencies projected by the matrix.

Program Format

Length of Program

A professional masters degree program in public affairs/publicadministration should be of sufficient duration to enable the studentto cover satisfactorily the subject matter content of the matrix,including program specializations. The areas of the matrix in whichthe student may he expected to demonstrate proficiency will dependupon his fields of concentration and career objectives. However, thestudent should he exposed to all areas of Part 1 of the matrix for thepurpose of developing a meaningful understanding of the interrela-tionships of the various subject matters and their application tomanagerial settings and situations.

Students entering masters degree programs with little or noedu rational background or professional experience in the subjectmatt,:r of the matrix should plan to spend the equivalent of two fullacademic years in coursework. Where students have had strongundergraduate preparation or have been engaged in managerialactivities, some of the subject matter requirements might beapprt.xiately waived or reduced. In no case, however, should thestudent expect to spend less than the minimum equivalent of acalendar year of formal coursework in addition to the internship toobtain a masters of public affairs/public administration degree.

4 *17 21

A special responsibility rests upon masters degree programs toprovide systematic coverage of the subject matter content of thematrix with schedules and frequencies of offerings to enable thestudent to make the most effective use of time. For many programsthis will call for the introduction of new offerings or the reorganiza-lion of existing courses to relate and integrate the elements of publicmanagement into meaningful contexts for the prospective practi-tioner. The potential student should he encouraged to choosebetween programs on the basis of how well they cover the subjectmatter of the matrix in relation to program specializations in whichhe/she is interested.

The Educational Format

Professional masters degree programs are encouraged to offer thesubject matter of the matrix in varying formats, including theconventional course, the intensive semester, weekend sessions,off-campus ton-site) instruction, and other modes. The educationalformat should take into consideration the nature of the subjectmatter to be dealt with, the composition of the student group, theinstructional resources available, and other factors for the purpose ofproviding the most meaningful learning experience. In particular,professional education programs in public affairs/public administra-tion should recognize that traditional classroom approache.s alone arenot adequate for providing potential practitioners with realisticexposure to the working environment of the public manager.

Special attention should be given to devising forms of educationalinstruction that meet the needs of the rapidly expanding number ofin-career students who are seeking to improve their managerialcompetencies while holding full-time professional positions. Not allof these personnel are degree- hound, but nevertheless they constitutea significant portion of administrative manpower in the publicservice. Professional training programs in public affairs/public admin-istration should make it possible for h-career students who are notmasters degree candidates to further their studies through educa-tional formats and delivery systems that provide the same level ofinstructional quality for those students who are enrolled to obtain aprofessional degree.

Regardless of the educational format used, the number ofstudent-faculty contact hours for comparable courses and for theoverall degree program should remain the same for instruction givenin residence or in off-campus centers. However, nonresident andpart-time public affairs/public administration programs should pro-vide special learning opportunities that will compensate for thegreater number of informal contacts of student to student andstudent to faculty that are available to the full-time resident student.

22

Also. the physical facilities and instructional resources should beconducive to the effective transmission of knowledge. This isparticularly important when the educational program moves offcampus where some of the learning aids such as libraries orcomputers are not readily available. Under those circumstances. theprofessional training program is obligated to work out alternativearrangements to maintain the quality of instructions.

Field Experience

As set forth in the matrix. experiential learning constitutes anindispensable element of the professional masters degree program.Provision should be made for students without a significant profes-sional work background to have a carefully planned clinicalexperience. A recommended approach is the establishment of afull-time internship of at least three months (or its equivalent in apart -time internship) in a governmental agency or a quasi-govern-menial agency oriented to the public sector. Another approach mightinclude student service as a junior member of a professionalconsulting team which is studying a governmental agency in depth.The essence of this: recommended standard is a work experiencewhich provides the student with a realistic exposure to an organiza-tion/bureaucracy environment through which to develop awarenessof the internal dynamics of an organization and of the values andattitudes of public employees to both their clientele and theiradministrative-political superiors.

Internships, in particular, must he carefully planned and directedif the student is to have an educationally enriching experience.Representatives of government agencies and educational institutionsmust work closely together in arranging associations and assignmentsthat will draw upon the student's proficiencies while at the sametime enhancing his/her learning needs and career objectives. Aneducational director representing the academic institution shouldprovide continuing educational supervision for the internship forwhich formal course or degree credit should be given.

Other experiential learning opportunities, such as field surveys ofpracticums, should be fostered by professional masters degreeprograms to relate theory and practice, but they should not beregarded as substitutes for those clinical opportunities which providein-depth involvement in a public or quasi-public organizationalenvironment.

Non-Residential Programs

Where it is deemed to be appropriate to the institutional missionand setting, professional masters degree programs in public affairs/public administration should be motivated to offer instruction at

I

111 23

off-campus centers in educational formats suitable for the full-timeemployee. However, as has been noted, off-campus work should beoffered under the same standards and with the same quality aspertains to the full-time residential student.

A number of measures can be taken to assure that in-careerstudints do not become step-children in a professional degreeprogram. Most important is to have the full-time resident facultycontinuously involved and committed to the educational develop-ment of the non-residential, continuing education program. This canbest he accomplished by adhering to a standard that one-half of theeducational offerings in off-campus centers should he given by facultywho hold full-time academic appointments in the institution offering,he professional degree program. Not only will such an instructionalobligation bring the campus-based teachers closer to the environmentof the administrator, but it assures the in-career student access to andcontact with outstanding faculty.

The quality of off-campus degree work also depends upon theavailability of adequate counselling and placement services. Theseservices are particularly critical for the in-career student who moreoften than not needs much help in his/her personal assessment ofmanagerial competencies and career goals. Professional degree pro-grams in public affairs/public administration should see counsellingand placement of in-career personnel as a rich opportunity formoulding and strengthening managerial performance in the publicservice. They should work closely with public jurisdictions todevelop meaningful continuing education programs for public servicepersonnel.

Finally. the quality of off-campus degree work can be enhancedby building innovatively upon governmental and educational re-sources of the immediate community. Where the center does nothave appropriate library holdings, arrangements should be workedout for students to have access to the benefits of a comprehensivelibrary. Similarly, cooperative procedures might be initiated withother institutions for access to electronic data processing equipmentand other learning aids. Government agencies within the area can beused as laboratories for student research, investigation and experi-ence. in short, if the off-campus center is located in a communitythat is rich in governmental and educational resources, the possibili-ties exist for developing a more professionally rewarding programthan on a more isolated residential campus.

Composition and Qualifications of Faculty

The development of a faculty with appropriate knowledge andskills and with clear commitment to the professional training of

2420

public managers is indispensable to a strong and vibrant professionalmasters degree program in public affairs/public administration. Theeducation of both pre-service and in-service students will beshortchanged it' significant portions of the faculty associated with theprogram make public service training secondary to other educationalgoals. An outstanding managerial carps for the public service cannever be achieved without dedicated teachers whose primary interestis the development of a profession of public managers.

Size of Faculty

The masters degree program should be composed of a full-timefaculty of sufficient size and qualification to cover the subject matterof the matrix including program specializations. As a standard for aminimum program the public affairs/public administration facultycomplement should not be less than live full-time persons. In a largeor diverse program, faculty may he drawn from other professionalschools and departments. However, there should always be assignedto the program a faculty nucleus with sufficient professional identityand community of interests to provide continuous surveillance anddevelopment of both residential and off-campus students andofferings.

Professional Competence of Faculty

Encouragement should be given to the employment of full-timefaculty members who, in addition to other educational qualifica-tions, have served in government positions or who have workedclosely with public jurisdictions and agencies in advisory andconsulting assignements. This will provide more of the professional-practitioner viewpoint and approach in instruction, a phase oftraining where many of the existing professional programs are weak.Masters degree programs should also he encouraged to appointqualified practitioners as part-time faculty particularly for thosesubject matter areas of the matrix where the resident faculty lackexpertise. However, to achieve good integration of the educationalprogram and offerings, at least half of the courses at both theresidential campus and off-campus centers should be given byfull-time faculty of the institution sponsoring the masters degreeprogram.

To strengthen relationships between public attain/public adminis-tration programs and public agencies, greater interaction betweenfaculty members and practitioners should be fostered. In addition toserving as part-time instructional staff', practitioners should becontinuously involved in various aspects of the educational programsuch as participation in team teaching, colloquia, demonstrationprojects and practicums. They can assist with the planning, develop-

;10

21 25

nient and evaluation of student internships and other clinicalexperiences. They should he members of school-appointed advisorycommittees concerned wall program development. program evalua-tion and program relationships with the governmental community.

Similarly. faculty mentivrs should be encouraged to take sab-baticals and leaves of absence for governmental assignments toimprove their understanding of the administrative environment andof as teachers in a professional field. They should beobligated to participate in the development and supervision ofclinical experiences for students. They should serve as advisors togovernmental projects and agencies and participate in the activities ofprofessional associations, the latter providing a fruitful meetingground for both academicians and practitioners. Efforts by facultymembers to improve professional competence should weigh heavilyin appointment and promotion evaluations.

Finally. to maintain a higl quality of professional instruction, themasters degree program shou1d establish a process for evaluating theindividual couise or offering.. its contribution to the programcurriculum. and the quality of its presentation on the part of boththe folk ime and part-time fdeulty. In this conn,.ction. the practi-tioner-teacher and the full-time faculty member can be of mutualassistance in improving the professional quality of each other'sinstruct ion.

Students Admission Policies and Services

To he effective professional training centers. master degreeprograms in public affairs/public administration must give primeconsideration to the students, their aspirations and motivations, theireducational needs and their career objectives. A student-centeredprogram will place more emphasis upon looking at students in termsof their potential capacities as public managers than in terms ofdegree requirements that have to he fulfilled.

Accordingly, degree requirements in masters programs should heinterpreted and applied flexibly, taking into account the educationaland job experience background of students and their future plans. Ashas been previously noted. where a student can demonstratecompetency in a particular category of the matrix, he/she should notbe required to allocate time to this subject matter solely for thepurpose of fulfilling inflexible degree requirements. Students shouldbe encouraged early in their degree programs to try to define andclarify their career objectives so that their academie studies can bedefined to meet particular personal development needs and gaps inbackground as related to career goals.

2622

Admission Standards

Inasmuch as professional masters degrees in public affairs/publicadministration may encompass different specializations, each pro-gram should articulate its own admission standards including any.specific requirements imposed beyond the minimum standardsestablished by its college or university. In addition to grade pointaverages, graduate record examinations and other quantitative data,particular attention should be given to biographical essays. letters ofreference. and other associational materials which give insights intothe candidate's potential qualities as a public manager. For post-entry students proportionately more emphasis should he given to thecharacter of professional experience in admissions evaluations. Also,specific procedures for recruiting and supporting minority anddisadvantaged students should he an integral part of the admissionssystem.

Student Counselling and Evaluation

Strong and continuous counselling, responsive to student needs,should be conducted from the point of admission through gradua-tion. Although counselling responsibilities may be centered in oneindividual or office within the public affairs/public administrationschool or program, all members of the faculty should participate instudent evaluation processes. Evaluation systems for measuring theprofessional competencies of students should he established inrelationship to knowledge, skills, values and behavior of the matrix.Students should be given appraisals of their progress towardprofessional competency at specific stages of their work. Students, inturn, should he encouraged to seek guidance and assistance fromfaculty members and practitioners associated with the program whohave expertise and skills to impart on particular subject matter andspecializations.

Placement and Career Guidance Services

The ultimate measure of success of a professional degree programrests upon how well graduates secure sought-after professionalpositions and upon the progress they continue to make in theirprofessional careers. An important elm-tent, therefore, in the publicaffairs/public administration program Is the provision for regular,adequate, and comprehensive placement and career guidance services.These services may be operated as a separate endeavor by the publicaffairs/public administration school or department or in conjunctionwith a university-wide office.

The placement and career guidance services should be available notonly to current graduates but to alumni of the program. These

23 2 7

BEST COPY AVAILABLE

services offer a means of maintaining closer contact and communica-tion with practitioners who are former gaduates. The practitionersin turn can provide useful information feedback concerning positionopenings and be helpful in working out suitable internships and otherexperiential opportunities. Effective placement and career guidanceservices depend upon having a coordinator (director) who has abroad knowledge of professional employment trends and whomaintains a wide range of governmental contacts and relationships.

Records of Graduates

The masters degree program in public affairs/public administrationshould maintain records on the placement and career advancementsof students who have graduated. These records should be supple-mented by systematic evaluation including interviews with gradua-tes for the purpose of determining the strengths and weaknesses ofthe training program.

These records should be used for (1) comparing the graduate'sprofessional career progress with the evaluations that were made ofhis/her managerial potential as a student, (2) analyzing the effective-ness of various courses, specializations and other aspects of theprogram relative to the career progress of specific graduates, and (3)comparing the overall effectiveness of the training program visa -visthose of other institutions. Needless to say, the maintenance ofrecords designed to foster the evaluation of the educational outcomeof a professional training program in public affairs/public administra-tion will go far toward impiuving the calibie and performance of theentire public management profession.

Program Organization and Jurisdiction

The establishment of standards concerning the organization andjurisdiction of professional masters degree programs in publicaffairs/public administration is difficult because of the manyvariations in institutional structure for carrying on degree programs.What is presented in this section is offered as an organizational modelwhich encompasses criteria deemed to be important for achieving astrong professional training program. The important test for adoptingany structural change is the degree to which it fosters more effectiveprofessional education and training of public managers together withthe development of the public management profession.

The public affairs/public administration masters degree programshould be offered under, the jurisdiction of a unit, namely a schoolor department, which possesses the same degree of independenceaccorded other professional schools and demrtments within theinstitution. The unit should have sufficient powers and status to

2824

BEST COPY AVAILABLEprovide a professional thrust to the public affairs/public administra-tion program and to maintain high visibility and close links withpublic agencies and the professional community.

The public affairs/public administration degree-giving unit shouldbe headed by a dean. director or chairman who would be selectedafter consultation with the public affairs/public administrationfaculty. The unit should have a designated budget over which itexercises control.

Subject to general university requirements and procedures, thepublic affairs/public administration unit should have responsibilityfor the following functions:

Appointment and promotion of faculty assigned to the unit.Establishment of courses and program specializations.Establishment of degree requirements and certification of degreecandidates.Admission, counselling and placement of students.Supervising as to content, requirements, staffing and overallquality all off-campus programs in public affairs/public adminis-tration including non-degree, certificate granting and full-degreeprograms.Engaging in cooperative educational programs with otherschools and departments within the college or university andwith other educational institutions and governmental agencies.Maintenance of relationships with the professional community.

Facilities

Appropriate physical facilities should be provided to enable thepublic affairs/public administration school or department to carryout effectively the objectives of its program. While specific building,laboratory 21)d other requirements will depend upon the size anddiversity of the program including specializations, a recommendedstandard is that the facilities should be comparable to those of otherprofessional schools and programs within the college or university.

Other sections of these standards and guidelines have stressed theneed for adequate library holdings and other learning aids to supporta professional training program of high quality. Within the frame-work of general university policy and practice, the public affairs/public administration faculty should have a strong voice in theorganization and management of the collection which serves theneeds of their students. For the library to be organized and managedwithin the public affairs/public administration school or department,or as a separate entity within the university or college library system,will help to ensure more effective utilization and better access for

2. 29

public affairs/public administration staff and students. If the latterarrangement prevails, then the public affairs/public administrationfaculty should share directly in the responsibility for budget andexpenditures for the public affairs/public administration collection.

Public affairs/public administration students should also haveequal opportunity with other students to use computers, informationand retrieval facilities, audio-visual communication systems andsimilar educational resources. As has been previously noted, if theseare not available in off-campus centers, arrangements should be madewith other institutions within the community that possess thesefacilities for student access and use. Educational institutions aspiringto offer high quality public affairs/public administration programsshould endeavor to provide whatever learning instruments arenecessary for developing the professional competencies of a publicmanager.

h 2630

Implementation of Standards and Guidelines

These guidelines and standards are designed to provide informa-tion for evaluating the quality of professional masters degreeprograms in public affairs/public administration. They will be madeavailable to students and faculty, educational institutions, publicjurisdictions and agencies, professional personnel, and to others whomay be concerned with improving the profession of public manage-ment.

For educational institutions in particular, the guidelines andstandards provide criteria for undertaking a self-evaluation of publicaffairs /public administration programs. The National Association ofSchools of Public Affairs and Administration (NASPAA) urges everyeducational institution that now offers a masters degree in publicaffairs/public administration to undertake an appraisal of theeffectiveness of its program. if requested, NASPAA will provide,within the limits of its resources, appropriate technical assistance tothe institution in this undertaking.

NASPAA will keep a record of institutions that have completedself-evaluation surveys. The summaries of findings, including pro-posed improvements, will be published. Through the exchange ofinformation and data, NASPAA hopes to foster the advancement ofprofessional training programs in public affairs/public administrationas well as of the public management profession in general.

AI $27

31

Appendix A

BACKGROUND AND FINDINGSOF GUIDELINES /STANDARDS STUDY

Background

The Guidelines and Standards for Professional Masters DegreePrograms in Public Aflirs1Public Administration grew out of aresolution adopted by the delegates to the 1973 annual conferenceof the National Association of Schools of Public Affairs andAdministration held in San Diego, California. The resolution stated:

That the president of NASPAA reconstitute the Committee onStandards and charge it with the task of pthering informationnecessary to enable the Association to work toward thedevelopment of guidelines for academic programs in the fieldsof public affairs and administration and to complete that taskand circulate its report to the membership prior to the 1974annual meeting. (Adopted April 1, 1973. San Diego, California.)

A study was conducted during the academic year 1973-1974 bythe Standards Committee (whose membership is listed in AppendixB) assisted by Professor Ernest A. Engelbert from the University ofCalifornia, Los Angeles. From the outset the Committee wasmotivated by the following considerations:

to solicit information and views from a broad spectrum ofeducators and practitioners who were knowledgeable about theconditions and needs of education and training in publicaffairs/public administration.

to give primary focus at this time to the professional mastersdegree in public affairs/public administration, recognizing, how-ever, that the masters degree must be placed in contextualrelationships with all levels of educational programs under-graduate, graduate and continuing education.

to foster the development of professional educational andtraining programs in public affairs/public administration in closi;conjunction and cooperation with employing jurisdictions andagencies for the purpose of meeting the managerial needs of thepublic service.

to prepare a report which would be useful not solely toeducational institutions but to all grobps, from students topractitioners, who are involved or concerned with improvingpublic affairs/public administration as a professional field.

; 32

=_

The Committee gathered information from a number of diversesources. The annual survey of graduate programs of NASPAAmember institutions furnished much valuable statistical data on thecharacter and content of schools and programs. helpful communica-tions were received from a number of educators and administrativeofficials throughout the country in response to a request for inputinto the work of the Standards Committee that was placed innewsletters sent to ASPA and NASPAA membership. Recent reportsdealing with education and training for the public service provideduseful background and analysis of important issues.

Various members of the Standards Committee conducted inter-views with administrators and personnel directors of a selectednumber of state and local governments and special districts.Discussions at the federal level were held with administrativepersonnel from various agencies, notably the U.S. Civil Service .Commission and the Office of Management and Budget in theExecutive Office of the President. Some members of the Committeeattended conferences which dealt with the quality of professionaltraining for the public service. Several professional associations.drawing from their ex leriences in establishing guidelines andstandards, gave helpful advice and counsel to the Committee.

To obtain a better understanding of the outlooks and needs ofpractitioners and public employing jurisdictions, the StandardsCommittee asked several prominent professional associations to lendassistance. These include the American Society for Public Adminis-tration, the International City Management Association, the Interna-tional Personnel Management Association, the National Academy ofPublic Administration, the National Association of Counties and theNational Training and Development Service. The memberships ofcommittees designated by these professional associations to workwith the Standards Committee are listed in Appendix C.

Summary of Findings

The following paragraphs provide a brief summary of the StandardCommittee's findings which appeared to be particularly relevant forguidelines and standards for professional masters degree programs:

a Education and training in public affairs/public administration ispresently experiencing a rapid growth and diversification at allacademic levels, undergraduate, graduate and continuing education.Enrollments at the undergraduate level are more than twice whatthey were a decade ago, while at the graduate level degree candidateshave tripled during the last ten-year period. Recent years have alsowitnessed the creation of new types of educational and trainingprograms in urban affairs, criminal justice, public health, and other

29 33

BEST COPY AVAILABLE

fields as institutions responded to meet the needs for administrativetalent in the public service. Of significance is the increasedjob-oriented outlook of students in programs at both the under-graduate and graduate levels who, in contrast to a few years ago,appear to be seeking training that is occupationally useful. This isespecially true for the part-time graduate student who now out-numbers the full-tiine graduate by more than two to one in publicaffairs/public administration programs.

Despite the growth and vitality of education and trainingprograms in public affairs/public administration, educators responsi-ble for dirccting programs are,faced with some major problems anddifficulties in operating a high quality professional program. Perhapsmost noteworthy is that there is no clear differentiation betweendifferent levels and types of professional programs and programspecializations. For example, the Committee found some associate ofarts degree programs with more course specializations than somebachelor degree programs and some undergraduate programs withgreater professional emphasis than was shown in some masters degreeprograms. Program differentiation is further obscured by unplannedintermingling of full-time and part-time students, those with andwithout work experience, and students with different educationalneeds and career objectives. Particularly for those public affairs/public administration programs which have not clearly articulated forwhom and what they are training, the nature and quality of theeducational product is difficult to ascertain.

At the masters level, among programs purporting to trainpersons with capacities for public management, great variety existswith respect to program length, the range of subject matter to beoffered, core requirements, the nature of specializations, the use ofpractitioners as teachers, the availability of counselling and place-ment services, the amount of credit granted for experience, and otherfactors. At the one extreme, programs may be found which are oneyear in length, have few subject matter requirements and give creditfor experience for more than half of the units needed for the degree.At the other extreme are masters programs which can be more thantwo years in duration depending upon the student's previouseducational background, have a well-defined subject-matter core.specify required course sequencei, and allow few course electives. Asmatters now stand, the masters degree in public affairs/publicadministration is the only professional degree among all professionsthat are training for the public service for which guidelines andstandards have not been drawn to assure program quality. Theevidence shows that the clientele students and employers arebewildered by the profuse variations in programs In their respectivesearches for a worthy professional education and competentlytrained personnel.

34

BEST COPY AVAILABLE

The threat of the "cheap" professional degree in publicaffairs/public ad in inistrat ion is growing with pressures emanatingfrom several sources. Practitioners working full-time who are desirousof enhancing their employment status constitute a fertile market foreasy programs that can be completed as quickly as possible.Accommodating schools seeking to make the "fast buck" are movinginto communities around the nation where a potentially profitableclientele exist. Non-residential and often innovative programsspawned by respectable institutions in financial distress are operatingwith poor supervision and lower standards than prevail on themother campus. Indeed, institutions without sul.,stantial public orprivate funding. yet endeavoring to maintain high quality programsunder great financial strain, currently face the danger of having theirprograms undermined by the loss of students who, in the absence ofeducationally or professionally accepted standards, gravitate to the"cheap degree" program.

The diffuseness of program content, the non-existence ofagreed-upon criteria for measuring program quality, and the lack of aprofessional focus have resulted in difficult institutional relationshipsfor public affairs/public administration programs in the college-university setting. Public affairs/public administration schools andprograms find themselves competing with other professional schoolsand programs for resources and facilities without the professionalsupport that other professions get from their accrediting associations.The director of a public affairs/public administration program cannotuse the leverage of profession-wide standards in negotiation withcollege deans and presidents for improving the faculty-student ratio,for providing better course balance, for enhancing counsellingservice, etc. A large number of programs have not been able toachieve sufficient organizational and program autonomy to operateeffectively. In short, public affairs/public administration programs inmany institutions are suffering in their efforts to improve qualitybecause much of the academic and administrative hierarchy do notview these programs as truly professional education.

The proliferation of courses and program specializations inmanagement and administration taking place in many universities iscomplicating relationships between public affairs/public administra7tion and other professional schools and programs. Within differentpublic affairs/public administration programs may be found special-izations in health administration, educational administration, urbanplanning, criminal justice, to mention a few. Within schools ofbusiness (a number of which are changing their names to schools ofmanagement or administration) some of the same program specializa-tions, including public administration, have been created. Similarly,in other professional schools may be found courses and programspecializations deemed competitive with work offered by the public

31

affairs/public administration unit. As universities move toward morerationalization of courses and specializations among professionalschools, public affairs/public administration programs more oftenthan not will suffer a disadvantage in jurisdictional disputes becausethe subject matter content and boundaries of its professional fieldare amorphous and ill-defined.

Steps now being taken by the American Assembly of CollegiateSchools of Business to accredit programs in public administration,urban administration, and other public sector management programswithin schools of business could have some serious consequences forpublic affairs/public administration programs at many institutionsbecause the latter do not bear some professional seal of approval. Forbetter or for worse, academic institutions point with pride toprograms for which they have received accreditation, with the recordshowing accredited programs also winning greater financial support.Similarly the evidence indicates that the more progressive publicjurisdictions and agencies give employment preference to graduatesfrom accredited programs, so that students graduating from highquality, but non-accredited, programs may fare less well. Thedirectors of at least some public administration, public sectororiented programs in the schools of business view the AACSBdevelopments seriously and have informally indicated that it will beto their programs' advantage to seek accreditation through AACSB ifthe proposed provisions are adopted.

Practitioners and employing agencies are expressing increasingdissatisfaction with the major variations in educational content andprofessional focus found Iii public affairs/public administrationmasters programs. They find the graduates of these programsdiffering substantially in their knowledge, skills and competencies forpublic management. A number of public jurisdictions, therefore, areturning to Master of Business Administration programs for adminis-trative talent inasmuch as the business schools are deemed toproduce a more uniform and consistent educational product. ifdissatisfaction with qualifications of public affairs/public administra-tion graduates becomes widespread, the implications for the publicservice could be far reaching. Generally speaking, public employerswould welcome the establishment of guidelines mid standards forprofessional degree programs if for no other reason than to improvethe civil service selection process.

Finally, there appears to be some evidence that public affairs/public administration is losing ground ris-d-ris other professions in thepublic service because of its lack of status as a professional field. TheU.S. Civil Service Commission, for example, has established specialeducational requirements for entry-level positions for each of themajor professions with the exception of public affairs/publicadministration. Indeed, only a few jurisdictions throughout the

3632

country have designated any positions to be tilled by publicaffairs/Mlik aaMitastration degree holders such as now exist forother professions. While the desirability of creating positions to befilled exclusively by persons bearing professional degrees may well bedebated, the fact remains that civil service systems presently givelittle recognition or preference to the public affairs/public adminis-tration profession or to the uaduates of professional trainingprograms in this field.

Alternative Courses of Action

On the basis of its investigations and findings, the StandardsCommittee considered three alternative courses of action. The firstalternative explored was the preparation of a report for the NASPAAmembership with a recommendation that the establishment ofGuidelines and Standards for professional masters degree programswere not necessary at this time. A recommendation "to do nothing"would have been based on the assumption that undesirable trends setforth in the findings were those associated with a growing andchanging profession which would be self-correcting as the professionadvanced and matured. The Committee rejected this alternativebecause the members felt (I) that conditions described woulddeteriorate with unfortuante consequences for all schools andprograms. (2) that lurking in the background was the possibility ofoutside intervention by institutional accrediting associations or statelicensing boards, and perhaps most important (3) that the educa-tional profession of public affairs/public administration should notsit passively by but should give positive leadership to the develop-ment of more effective educational and training programs.

A second course of action discussed by the Standards Committeewould have involved a recommendation to transform NASPAA into afull-fledged accrediting association with powers similar to thosepossessed by other accrediting bodies. The Committee studied therequirements and practices adopted by other professional associa-tions to improve the quality of educational programs and thecompetencies of graduates. While the members found much that waslaudatory in formal accrediting systems, they felt that this was thewrong route for NASPAA to go. primarily because ( I ) formalaccreditation resulted in over-standardization and conformity at theexpense of program innovation and creativity, (2) the diversity ofexisting NASPAA programs made this an undesirable system toimpose and perhaps impossible to implement, and (3) the Committeefelt that an alternative system could be thvised that would place theresponsibility upon each institution for improving the quality of itspublic affairs/public administration program rather than upon anoutside accrediting association.

33 37

Accordingly. the Standards Committee chose to follow anothercourse. namely the formulation of guidelines and standards whichfocus (I) upon the developinnt of the overall profession of publicmanagement and (2) upon the goals to be attained rather than uponrequirements to be impcsd. Moreover, it chose to make theguidelines and standards relevant not only for educational institu-tions, but for students. public service employers, practitioners andothers who are concerned with the evaluation of education andtraining programs in public affairs/public administration. TheStandards Committee held the conviction that the time had comewhen the National Association of School;; of Public Affairs andAdministration should give leadership to the improvement anddevelopment of the profession of public management.

38

Appendix B

MEMBERS OF STANDARDS COMMITTEEWHO PREPARED GUIDELINES AND STANDARDS*

Frank P. Sherwood, ChairmanWashington Public Affairs CenterUniversity of Southern California

Charles F. BonserIndiana University

Alan K. CampbellSyracuse University

Lisle C. CarterAtlanta University Center

Frederic N. Cleave land (ex officio)Duke University

Geoffrey Y. CornogSangamon State University

Ernest A. Engelbert (ex officio)University of California, Los Angeles**

Laurin L. HenryUniversity of Virginia

Thomas P. Murphy (ex officio)University of Maryland

Clara Penniman (ex officio)University of Wisconsin

Clyde J. Wingfield (ex officio)Bernard M. Baruch CollegeCity University of New York

Sherman WymanUniversity of Texas at Arlington

*Augmented by five members of the NASPAA Executive Council swigs ex officio.*Report capered with the assistance of &nest A. Eassibest.

as 39

BEST COPY AVAILABLE

Appendix C

MEMBERSHIP OF COMMITTEESOF PROFESSIONAL ASSOCIATIONS

ADVISING ON GUIDELINES AND STANDARDS

American Society for Public Administration

William W. Allison Charles A. PounianExecutive Administrator Director of PersonnelEconomic Opportunity Atlanta, Chicago Civil Service

Inc. CommissionAtlanta, Georgia Chicago, Illinois

Ray GoodeExecutive Vice-PresidentGreater Miami Urban CoalitionMiami, Florida

Edward HamiltonPresidentGriffenhagen-Kroeger, Inc.San Francisco, CaliforniaErsa H. PostonPresidentNew York State Civil Service

CommissionAlbany, New York

International City Management Association

Charles SpathDirectorOrganization and Personnel

DivisionU.S. Atomic Energy CommissionAlbuquerque, New Mexico

Robert F. Van HornAdministrative OfficerEast Palo Alto Municipal

CouncilEast Palo Alto, California

Dana BaggettInternational Personnel

Management AssociationWashington, D.C.

Richard CusterTown ManagerWest Hartford, Connecticut

Wesley McClureCity ManagerSan Leandro, California

Frank SherwoodWashington Public Affairs CenterUniversity of Southern

CaliforniaWashington, D.C.

International Persimnel Management Association

Stephen Davidovich, DirectorStaff Development and ResearchOntario Department of Civil

ServiceOntario, -

3S

Nesta Gallas, Dean, GraduateStudies

John Jay College of CriminalJustice

City University of New YorkNew York, New York

40

BEST COPY

Peter Giovannini, ManagerCareer Development DivisionPersonnel DepartmentPort Authority of New York

and New Jersey

Muriel MorseGeneral ManagerLos Angeles City Personnel

DepartmentLos Angeles, California

National Academy of Public Administration

Thomas W. FletcherPresidentNational Training and Develop-

ment ServiceWashington, D.C.

Bertrand M. HardingFormer Associate Administrator

for ManpowerFederal Aviation Administration

Roger W. JonesConsultantOffice of Management and Budget

Budget

National Association of CountiesLarry BrownRock County AdministratorJanesville, Wisconsin

Stanley CowieHennepin County AdministratorMinneapolis, Minnesota

William FeldmeierMaricopa County Budget

DirectorPhoenix, Arizona

Charles MillerMaricopa County ManagerPhoenix, Arizona

William A. MedinaChiefExecutive Development and

Training BranchOffice of Management and

Budget

Graham W. Watt, DirectorOffice of Revenue SharingU.S. Department of the

Treagary

Daniel MurphyOakland County ExecutivePontiac, Michigan

M. D. TarshesSan Mateo County ManagerRedwood City, California

Arthur Will, Jr.Chief Administrative OfficerLos Angeles CountyLos Angeles, California

John V. WitherspoonGuilford County ManagerGreensboro, North Carolina

National Training and Development Service

Thomas W. Fletcher, PresidentNational Training and Develop-

ment Service

Roy Gregg, AssociateNational Training and Develop-

ment Service

37

Frederick E. Fisher, VicePresident

National Training and Develop-ment Service

Appendix D

ACKNOWLEDGEMENTS

Many organizations and individuals contributed to NASPAA'sGuidelines and Standards Study, some of whom are identified in thisreport. Special recognition, however, should be given to the FordFoundation which provided a modest grant to NASPAA for thepurpose of underwriting expenses for Professor Ernest Engelbert whoassisted the Standards Committee with its study.

Valuable information came from the work of the NASPAACommittee on Surveys, chaired by Dean A. Lee Fritschler ofAmerican University and by the processing of survey data under thesupervision of Professor A. J. Mackelprang of the University ofDelaware.

Finally, the NASPAA headquarters staff should be recognized forthe back-up support it gave to the Standards Committee.

42; t.