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THE REINVENTING GOVERNMENT E1ERCISE

0eam A: 8ureaucrats and Citi7ens >Con: ?eep status @uo40eam 8: 8ureaucrats and 8ig 8usiness >Pro: ake change4

3ssue: Pri'ati7ation of the Department of Public 6er'ices of the cit# of /hite 8luff, !regon.!rgani7ational chart for areas of ser'ice attached.

M'!e%&$'%#: 2

oderators: 0oss coin to see which team begins. )ach team presents for ( minutes. Another (minutes for rebuttals of additional arguments. ?eep order. ?eep proceedings ci'il.0eams: Choose a recorder to keep notes of #our meeting and a spokesperson to present thearguments. )'er#one else on the team, be alert to assist the spokesperson as needed. se the board as needed.

3mportant concepts from 6hafrit7 and ussell, Public Administration.6ome suggestions to get #ou started.

$

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DIRECTOR

(White Bluff, Oregon)

DEPARTMENT OF PUBLIC SERVICES

ADMINISTRATIONBUREAU OF

PUBIC WOR!SOPERATIONS

EN"IRONMENTASER"ICES

OPERATIONS

ACCOUNTIN#

INFORMATION S$STEMS

PANNIN#

MAINTENANCE OPERATIONS

ASP%ATOPERATIONS

%EA"$E&UIPMENT'REPAIR

FORESTR$

PAINTIN# DI"ISION

CONSTRUCTION DI"ISION'

FACIITIES MANA#EMENT

AND RECORDS'PERMITS

COECTION DI"ISION

ANIMACONTRO

RODENTCONTRO

REC$CIN#OPERATIONS

ARGUE FOR PRO AND CON

Politics*Administration Dichotom#5Can politics and administration reall# remain separate in public bureaucraciesB >Pro and Con4

&

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Power 3ssues in the 8ureaucrac#56pecial interest power 'ersus public interest power issues >Proand Con4

)thics 3ssues53s it e'er acceptable for public administrators to dirt# their hands2 for the publicgoodB >Pro and Con4

Arguments: 6peak to the benefits of #our position costs of the opposing position.

(

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CHAPTER T3O: THE POLITICAL AND CULTURAL ENVIRONMENT OFPUBLIC POLIC0 AND ITS ADMINISTRATION

LEARNING OBJECTIVES After reading Chapter " in the textbook, the student should be able to:

1. 3dentif# the concept of public polic#.

". Distinguish public polic# from public administration and link the two constructs together.

$. )xplain how public polic# is made in a democratic republic like the nited 6tates.

&. 3dentif# and explain the fi'e ke# stages of the polic#making process:a. Agenda setting b. Decision making

c. 3mplementationd. )'aluatione. eedback

(. )xplain the characteristics of power as a structural concept in the polic#making c#cle.

+. )xplain how power in'ariabl# enters the polic#making process through external andinternal force fields2 that affect the public organi7ation:

a. 0he impacts of external power resulting from pluralism and social group powerin the nited 6tates

b. 0he impacts of internal power resulting from relationships, coalitions, negotiations,

and bargaining within American public organi7ations

-. nderstand the meaning of organi7ational culture2 as it relates to public administration.

. )xplain how the following impact the cultures of public organi7ations:a. )xternal societal cultures b. 3nternal cultures and subcultures of organi7ationsc. Professional sociali7ationd. 6#mbols, dramas, gestures, 'alues, etc.

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I. Publi P'li)"&4ing: Public polic#making is hierarchical in nature. 0he broadest polic# ismade at the top, but officials at lower le'els, also known as street*le'el bureaucrats, ha'ediscretion in interpreting and e'en making polic#. 3n the nited 6tates the people are consideredso'ereign the# >through their elected representati'es4 make public polic#, and this concept isknown as democrac#. 0he legislati'e branch of go'ernment has the greatest number of enumerated powers and makes the law. 0he executi'e branch administers and enforces theselaws, and the %udicial branch interprets and enforces them. )ach le'el of go'ernment5federal,state, and local5in'ol'es these three distinct entities, or branches, of go'ernment.

II. T+e R'le 'f E-eu$i/e P'5e% in & Re(ubli: 0he authors pro'ide us with three 'iews of executi'e power. 0he conser'ati'e 'iew maintains that the president, go'ernor, or ma#or is anagent of the legislature. 0hus, hisEher powers are restricted b# it. A more liberal 'iew is the one of executi'e prerogati'e, which holds that under certain circumstances the chief executi'e possessesand can use extraordinar# powers to safeguard the nation. 0he stewardship theor# of executi'e power is based on the belief that the president is a trustee of the people and can take an# actionsnot specificall# forbidden b# the Constitution on their behalf. All presidents assume one of these

three executi'e models.

III. T+e P'li)"&4ing P%'e##: 0he polic#making process is a complex group of acti'ities.3n our textbook these are explained as: 14 Agenda setting or identification of the polic# issue,where the citi7ens produce ideas for change or impro'ement. 0hese bubble up through the'arious political channels for consideration b# the legislature or the courts. "4 Decisionmaking:;ere a decision is made, either rationall# >based on complete information4 or, more often,incrementall# >bit*b#*bit at the margins of problems4. $4 3mplementation in'ol'es putting ago'ernment polic# into effect. 3mplementation is an inherentl# political process. re@uentl# theagendas of those implementing the program seep into the implementation process itself. &4)'aluation is the appraisal process of polic#making to determine the effecti'eness and the

efficienc# of a gi'en program. 9enerall#, the executi'e branch of go'ernment undertakes thee'aluation, but courts also do so in their anal#sis and %udgment of cases. (4 eedback: 0his stageof the polic# process completes the c#cle, and new agenda items e'ol'ing from the completed process start the polic#making c#cle all o'er again.

IV. T+e R'le 'f P'5e% in $+e P'li)"&4ing P%'e##: 0he theor# of force fields helpsexplain the role of e-$e%n&l &n! in$e%n&l ('5e% that is brought to bear on an agenc# and its ke# pla#ers from man# directions. &. E-$e%n&l P'5e% F'%e#: Pluralism is a concept that begins inthe go'ernment itself. 0he three branches of go'ernment5legislati'e, executi'e, and %udicial5 exert power o'er each other. Additionall#, American societ# is made up of competiti'e groups,and power shifts from one to the other in time. 6ome hold the 'iew that groups of interestedindi'iduals with shared attitudes and special interests, not go'ernment, are the mechanism b#which social policies are formulated. )lite theor# states that ke# members of the group ha'e thelionFs share of power in polic#making. 0he metaphor of the salad bowl explains that each socio* political group is a distinct power entit#. !thers belie'e that go'ernment itself is a group thatcompetes with other groups. b. In$e%n&l P'5e%: /ithin organi7ations, coalitions %ocke# for power to secure scarce resources. Dependenc# power explains that indi'iduals or groups whoha'e control of ke# products and ser'ices make others dependent upon them. 0hose from therational*structural school belie'e that power resides in legitimate authorit#, while others suggest

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+. 0he meaning of a color*blind2 societ#.

FORCE FIELD E1ERCISES,PO3ER AND CULTURAL FORCES;De#igne! f'% In!i/i!u&l Pl&)e%#<

=. PO3ER INFLUENCES ON PUBLIC ADMINISTRATION:

Draw a circle representing a public organi7ation5for example, the )n'ironmental ProtectionAgenc# >)PA4, federal go'ernment le'el or the 6tate Department of 0ransportation, statego'ernment le'el or the Count# Hail, local go'ernment le'el. IClass or 3nstructor chooses one.J

Draw power forces from fields that impact on this agenc# as follows:a. 6traight line arrows for negative power influences. b. Dotted line arrows for positive power influences.c. )xplain #our model.

2. CULTURAL INFLUENCES ON PUBLIC ADMINISTRATION:

Draw a circle representing a militar# organi7ation such as the arm#, na'#, air force, marines or a paramilitar# organi7ation such as the police, %ail securit# guards, or coast guard. IClass or 3nstructor chooses one.J

a. /hat sort of organi7ational culture is #our chosen organi7ation likel# to ha'eB b. Describe what s#mbols, artifacts, and emblems reinforce the culture of this organi7ation.c. /hat, if an#, is the local, state, or regional impact on this organi7ationFs cultureB

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CHAPTER THREE: THE CONTINUOUS REINVENTING OF THE MACHINER0 OF GOVERNMENT

LEARNING OBJECTIVES

After reading Chapter $ in the textbook, the student should be able to:

l. nderstand the concept of rein'enting the machiner# of go'ernment.

". nderstand the administrati'e structure of the federal go'ernment, in particular theexecuti'e branch machiner#.

a. )xecuti'e !ffice Agencies b. )xecuti'e Departmentsc. 3ndependent Public 8odies

$. nderstand the administrati'e structure of state and local go'ernment, in particular:a. 6tate 9o'ernment

b. Count# 9o'ernmentc. unicipal 9o'ernmentd. 0owns and 6pecial Districts

&. nderstand the ma%or go'ernment reform mo'ements in this centur#, in particular theimplications of:

a. 0he 8rownlow Committee b. 0he ;oo'er Commissionsc. 0he Ash Councild. 0he 9race Commissione. 0he ein'enting 9o'ernment o'ement

f. 0he 9ore eportg . ein'entors 'ersus icromanagers

(. Define ke# items listed at the bottom of the pages and at the end of the chapter.

+. /rite critical essa#s on topics co'ered in the chapter.

SUGGESTED LECTURE

LECTURE THREE

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I. T+e M&+ine%) 'f G'/e%n"en$ refers to all of the structural arrangements that allowgo'ernment to function at the federal, state, and local le'els. 3n time, after a process of internale'aluation, and, more often, after suggestions or demands from their external en'ironment, allorgani7ations come to reali7e that deficiencies and errors exist within their s#stems. 0he# ma#then undertake the process of reorgani7ation or rein'ention of go'ernment. 0he first suchrein'ention was the Constitutional Con'ention of 1--, but the actual phrase entered our lexiconaround the time of the first Clinton presidential campaign in the earl# 1

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T+e B%'5nl'5 C'""i$$ee: 9o'ernment grew rapidl# and hapha7ardl# during the Kew Deal.0o help the president manage his assignments, the 8rownlow Committee substantiall# increasedthe si7e of the presidential staff in 1# P%i/&$e Se$'% Su%/e) 'n C'#$ C'n$%'l ;PPSSCC< ;$+e G%&eC'""i##i'nthe 9ore eport4, that spoke to the mushrooming national debt,the enormous waste in go'ernment, the diminishing of public trust, and a 'ariet# of ills.

VII. Mi%'"&n&ge%#,A C'n#e?uene 'f G'/e%n"en$ Ref'%": A 'ariet# of other

executi'e branch reforms that tinkered with the machiner# of go'ernment took place besides theones mentioned abo'e. 0he combined effect of these laws was to unleash a mob of micromanagersin go'ernment. Kowhere is this more pre'alent than in Congress, where members spendinordinate amounts of time micromanaging issues that make them look good to their constituentsrather than focusing on public polic#making.

G%'u( E-e%i#e

T+in4 Piee6T+e R'le 'f G'/e%n"en$ in $+e T5en$)fi%#$ Cen$u%)7

Di/i!e $+e l# in$' $5' g%'u(#. G%'u( = i# $+e 6 Invisible Hand of Government 7 G%'u(. T+i#g%'u( 5ill &%gue f'% & le##e% %'le f'% g'/e%n"en$ in $+e $5en$)fi%#$ en$u%). G%'u( 286Visible Hand of Government 7 5ill &%gue $+&$ g'/e%n"en$ &((%'(%i&$el) + & "u+

b%'&!e% %'le $' (l&) in $+e li/e# 'f i$# i$i*en# in $+e $5en$)fi%#$ en$u%).

Cl# E-e%i#e

ou are a senior anal#st in the firm of Quick and Devoe Associates, a management consulting firmin Cannons'ille, California. Cannons'ille is basicall# a uni'ersit# town with the largeCannons'ille ni'ersit# as its core enterprise5an organi7ation that has special expertise in'eterinar# medicine and in the management and biological sciences.

our assignment concerns the local Cannons'ille Cit# Moo. 0his is a local go'ernment entit# that

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has been ha'ing difficult# for se'eral #ears. 3t has alread# been determined b# a preliminar# stud#that if the 7oo management could be turned around, the facilit# could be made profitable becauseof its strategic location, which is close to se'eral ma%or metropolitan areas in southern California,its spectacular scenic 'istas, and its uni@ue population of tropical animals.

PROBLEMS

* low re'enues due to lack of 'isitor interest, de'elopment funding, and other fundingoptions5retail sales, special programs, and exploration of go'ernment grant monies

* high expenses in the areas of animal diets, horticulture, and grounds management

* a seasonal emplo#ment workforce made up of part*timers who are difficult to manage

* animal health problems

* interference b# political elites in go'ernment who use the 7oo for political purposes andfor patronage appointments

GOALS

0he 7oo needs to be updated in terms of its three strategic goals:

* ecreation* Conser'ation* )ducation

ou ha'e been asked to look at se'eral options for rein'enting2 the 7oo. 6hould it be pri'ati7edB6hould it become a non*profit entit#B Could it remain a public entit#, with some functionsoutsourced to pri'ate 'endorsB 0he anal#sis is up to #ou. 8ased on the readings in Chapter $,what would #ou suggestB 8ack up #our recommendations with strong arguments. Pro'ide a oneor two page executi'e summar# of #our recommendations.

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CHAPTER FOUR: INTERGOVERNMENTAL RELATIONS

LEARNING OBJECTIVES

After reading Chapter & in the textbook, the student should be able to:

1. nderstand the e'olution of the .6. federal s#stem of go'ernment.

". Comprehend the d#namic structure of .6. intergo'ernmental relations:a. Dual ederalism b. Cooperati'e ederalismc. Creati'e ederalismd. Kew ederalisme. Kew Kew ederalism

$. ake connections to the 'arious t#pes of intergo'ernmental management:a. Picket ence ederalism

b. Councils of 9o'ernment >C!9s4c. Costs of Compliance

&. Discern the man# wa#s in which fiscal federalism works.

(. ?now what the de'olution re'olution2 means and how it came about.

+. Define ke# terms at the bottom of the pages and at the end of the chapter.

-. /rite critical essa#s on topics co'ered in the chapter.

SUGGESTED LECTURE

LECTURE FOUR

I. T+e E/'lu$i'n 'f $+e U.S. Fe!e%&l S)#$e": 0he nited 6tates was originall# a looseconfederation of independent states that delegated powers on selected issues to a centralgo'ernment. 8# its 'er# nature, this kind of central go'ernment is inherentl# weak and has fewindependent powers. 0he Constitutional Con'ention of 1-- was assembled to address theinade@uacies of the s#stem. 3n 1-< the nited 6tates pro'ided itself with a Constitution which has been continuousl# in force since then. A true federal s#stem, such as ours, is one that has a writtenconstitution that di'ides go'ernment between the central go'ernment and constituent subnationalgo'ernments,

assigning powers to each. 6uch powers cannot be changed unilaterall# or b# ordinar# processes of legislation. 0oda# we see three main categories of go'ernments around the world: 14 Uni$&%)

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g'/e%n"en$#8 such as the nited ?ingdom, "4 Fe!e%&l g'/e%n"en$#, such as ours, and $4C'nfe!e%&$i'n#, such as the )uropean Communit#, a commonwealth of so'ereign states. 0hereare ad'antages and disad'antages to each.

II. T+e D)n&"i S$%u$u%e 'f In$e%g'/e%n"en$&l Rel&$i'n#: 3ntergo'ernmental relations arelike a marble cake, with the le'els of go'ernment intermingled within each other. 0he relationshipsha'e e'ol'ed o'er the #ears 'ia 'arious understandings of the term federalism.2 &. Du&lFe!e%&li#": this configuration no longer exists howe'er, in the last centur#, branches of go'ernment could, and did, pretend that the# were functionall# separate and workingindependentl#, but not against each other. b. C''(e%&$i/e Fe!e%&li#": As its name suggests, thisis a more collaborati'e relationship between federal and state go'ernments. Cooperati'e federalismalso has an interstate dimension, as participator# programs were undertaken among se'eral statesand the federal go'ernment5such as prisoner extraditions, parks and wildlife acti'ities, etc. .C%e&$i/e Fe!e%&li#": 0his came about in President HohnsonFs 'ision for the 9reat 6ociet# of integrating the poor into mainstream America through programs such as ;ead 6tart, whereb# thefederal go'ernment ga'e direct grants to local go'ernments, b#passing the state entirel#. ;owe'er,the notion that all wisdom rested at the federal le'el angered man# states. !. Ne5 Fe!e%&li#":

President Kixon attempted to return autonom# to the states that was taken awa# in prior eras. etat the same time, President Kixon hoped to retain a strong national go'ernment. e. Ne5 Ne5Fe!e%&li#" was about re'enue*sharing5to arrest the rising fiscal burdens of man# state and localgo'ernments, to help offset the fiscal imbalances between states, and to use the accumulated budget surpluses. /hen budgets became tighter and deficits increased, the polic# was curtailed.8ecause of this curtailment of federal funding, the subnational go'ernments had no choice but tocut back and to simultaneousl# tr# their hands at new wa#s to cut budgets, enhance, or sa'e mone# b# pri'ati7ation, outsourcing, etc. 0he rein'enting go'ernment mo'ement stems from this. 3n 1

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IV. Fi#&l Fe!e%&li#": ollowing the mone#: 3n the beginning of our federal s#stem, statestended to ha'e more autonom# due to geographic distances between them and the center. 0he picture changed with ad'ancements in technolog# and industr# that o'ercame such difficulties. 0hescene changed again due to program increases during the Kew Deal and with social laws of the1

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tired of going to /ashington to kiss the ring.2 0he# claim that the# are not often treated asgo'ernments in their own rights. 0he# resent /ashington b#passing them in dealing with localgo'ernments, especiall# when pro'iding grant monies.

GROUP 2: T+e An$i$+e#i#

“&he 'nited $tates is a (epublic% 1

A number of states and special interest groups disagree with this position and ha'e asked for adebate to precede the actual meetings. 0his was appro'ed b# the Publius2 group. 0hus, another group of lieutenant go'ernors from opposing states and leaders of public interest groups ha'earri'ed to present the opposing 'iew. 0he# sa# that man# of the 'er# states that want moreautonom# were beneficiaries of the federal s#stem. 0he# %ust want mone# without strings attachedand, hence, are reall# the /elfare ueens2 of the federal s#stem. Public interest groups argue thatif it is to be left up to the states to determine certain social policies, then the power*elites in thes#stem will gobble up e'en more of the benefits. /ho, the# ask, will protect the rights of the poor

and disad'antaged if the federal go'ernment is taken out of the pictureB

14 Di'ide into two teams. "4 0ake the thesis and antithesis positions. $4 )lect a speaker. &4 )lect anote*taker. (4 Caucus for about 1"1( minutes. (4 )ach side presents for ( minutes. +4 0here is a"*minute rebuttal time between presentations. -4 6um up for $ minutes.

16ee page 1$- in the textbook on wh# toda# Qthe nited 6tatesQ is a singular noun.

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CHAPTER FIVE: THE EVOLUTION OF MANAGEMENT ANDORGANI@ATION THEOR0

LEARNING OBJECTIVES

After reading Chapter (, the student should be able to:

1. nderstand the origins of public management:a. 0he ilitar# ;eritage of Public Administration b. 0he Continuing 3nfluence of Ancient ome

". Comprehend the significance of administrati'e doctrine.

$. nderstand the e'olutionar# nature of organi7ation theor#:a. Classical !rgani7ation 0heor#

>14 6cientific anagement>"4 ;enri a#olFs 9eneral 0heor# of anagement

b. 0he Period of !rthodox#c. 0heories of 8ureaucrac#d. Keoclassical !rgani7ation 0heor#e. odern2 6tructural !rgani7ation 0heor#f. 6#stems 0heor#

&. Define ke# terms at the bottom of the pages and at the end of the chapter.

(. /rite short critical essa#s on ma%or issues co'ered in the chapter.

SUGGESTED LECTURE

LECTURE FIVE

I. E&%l) Influene# u('n Publi A!"ini#$%&$i'n: 0he oman militar# had the earliest andmost per'asi'e impact on public administration. 0oda#, the lexicon of public administrationemplo#s man# words, phrases, and s#mbols reminiscent of this heritage. egular pa# and pensions,concepts of lo#alt# to the legion, li'er#, and pride in the profession kept the militar# moti'ated anddisciplined. 0he oman state go'ernment was a depersonali7ed entit#5not owned b# an#monarch. 3t was di'ided into units of command in a centrali7ed hierarchical structure. 0ax mone#kept the arm# strong.

II. T+e Signifi&ne 'f A!"ini#$%&$i/e D'$%ine: 0he management principles from themilitar# relied on span of control and unit# of command. 0his kind of authoritarian go'ernancedemands order, precision, and obedience. A core set of principles promotes goal achie'ement,coordinated actions, morale, lo#alt#, and sta#ing power in public administration. ;owe'er, the

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administrati'e policies generall# also permit flexibilit# and growth. 0hus, administrati'e doctrinesare models that are constantl# e'ol'ing. 0he principles2 approach to management is important because it sought to make an art as well as a science of administration. 3t also sought to show thatmanagement was a skill that could be taught.

III. T+e E/'lu$i'n&%) N&$u%e 'f O%g&ni*&$i'n T+e'%): /e ha'e seen man# theories of organi7ations li'e and die, as well as be changed and modified. 0he ma%or groupings are: &.Cl#i&l O%g&ni*&$i'n T+e'%): /hile organi7ation theor# began with the authoritarian modeloffered b# the militar#, it came into its own during the industrial re'olution when workers had fewrights,2 which explains wh# its tenets seem harsh. Adam 6mith5the father of the discipline of economics5was the first to set forth guiding principles for di'ision and speciali7ation of labor. =<Sien$ifi M&n&ge"en$: As the organi7ation function became more complex, industrial engineerssought the best wa# to keep people working while tr#ing to come up with more scientific designsof work. rederick 0a#lorFs scientific management,2 with its time*and*motion studies, had itsgenesis in such thinking. 2< Hen%i F&)'l># Gene%&l T+e'%) 'f M&n&ge"en$ was a theor# that he belie'ed applied to all organi7ations: production of goods and ser'ices, commerce, finance,securit#, accounting, managerial coordination and control, e@uit#, scalar chains, and esprit de

corps. b. T+e Pe%i'! 'f O%$+'!'-): At the time of the Kew Deal, it was finall# understood thatdecisions in public polic# and administration were blatantl# political in tone. 0he second tenet of the orthodox# mo'ement was a return look at the principles of management approach. Luther 9ulickFs famous P!6DC!85planning, organi7ing, staffing, directing, coordinating, reporting,and budgeting5held center stage and harkened back to 0a#lorFs one best wa#2 of management. .T+e'%ie# 'f Bu%e&u%&): 8ureaucrac#2 has multiple meanings5from public offices and publicofficials to red tape and waste. ax /eberRs bureaucrac# described an ideal t#pe2 of bureaucrac# 5rational, classical, conser'ati'e. 3t included the Protestant work ethic, the need for a charismaticleader, and a 'alue*free approach to social research. !. Ne'l#i&l O%g&ni*&$i'n T+e'%) was alater 'ariation of the classical rational*structural form. 3ts exponents sought to modif# themechanistic, o'ersimplistic 'iews of the classical school. ;erbert A. 6imon was the first to

challenge the rational*structural approach with his bounded rationalit#2 theor# he argued thathuman beings ha'e cogniti'e limits on rationalit# and, furthermore, the decision*makingen'ironment can ne'er include all information in a comprehensi'e wa#. Also at this time, fromPhilip 6el7nick and sociological research, we learned that organi7ations did not exist like islandsisolated from their en'ironments. e. 6M'!e%n7 S$%u$u%&l O%g&ni*&$i'n T+e'%): 0homas8urns and 9. . 6talker identified two organi7ational t#pes: mechanistic s#stems2 >reminiscent of the one best wa#,2 useful in stable conditions4 and organic s#stems >more e'olutionar#, like biological organisms, useful in more d#namic conditions4. f. S)#$e"# T+e'%): 6#stems thinking isimportant to organi7ational theor# because the whole world is made up of interrelated organic andd#namic s#stems. Hames 9leick made his famous obser'ation of this in the 8utterfl# )ffect,2 i.e.,the fluttering of a butterfl#Fs wings in 0ok#o ma# influence the Kew ork stock market becauses#stems theor# 'iews organi7ations as constantl# acting and reacting to their internal and externalen'ironments. 0hus with decision making, unexpected and unanticipated outcomes ma# occur throughout the s#stem. Korbert /iener argued that organi7ations stri'e to maintain a state of d#namic e@uilibrium through a process of adaptation. /iener explained that organi7ations self*regulate and adapt to sur'i'e. 0he learning organi7ation2 was a concept de'eloped b# Peter

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6enge, who sought to destro# the illusion that the world is compartmentali7ed, separate, and madeup of unrelated forces. ;is learning organi7ation2 is about how organi7ations as organic entitiesadapt and learn and sur'i'e b# making better and better ad%ustments.

Cl# E-e%i#e

THE LARGE CONSEUENCES OF SMALL COURSES

14 “For the want of a nail the shoe was lost, For the want of a shoe the horse was lost, For the want of a horse the rider was lost, For the want of a rider the battle was lost, For the want of a battle the kingdom was lost, And all for the want of a horseshoenail!"

8en%amin ranklin Poor Richard#s Almanac, 1-(

"4 0he 8utterfl# )ffectHames 9leick $haos% &aking a 'ew (cience, 1abo'e4 and 9leickFs concept of the 8utterfl# )ffectexplain:

1. 0he basic tenets of s#stems organi7ation theor#.

". 0he modern organi7ation as an organic2 s#stem.

$. ;ow does technolog# ha'e a s#stems impact on the modern organi7ationB

&. ;ow does a more educated workforce ha'e a s#stems impact on the modernorgani7ationB

(. ;ow can leadership affect d#namic e@uilibrium2 in the organi7ational s#stemB

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CHAPTER SI1: ORGANI@ATIONAL BEHAVIOR

LEARNING OBJECTIVES

After reading Chapter + in the textbook, the student should be able to:

1. nderstand the meaning of organi7ational beha'ior and, in particular:a. 9roup D#namics b. 9roupthink c. ormal and 3nformal 9roups

". ecogni7e the concept of organi7ational de'elopment.

$. Comprehend the relationship between human personalit# and organi7ations.

&. 9rasp the impact of bureaucratic structure on organi7ational beha'ior, in particular:a. 8ureaucratic D#sfunctionalit#

b. 8ureaucratic 3mpersonalit#c. 8ureaucrat 8ashing

(. Learn the pre'ailing theories of moti'ation, in particular:a. 0he ;awthorne )xperiments b. 0he Keeds ;ierarch#c. 0he oti'ation*;#giene 0heor#d. c9regorFs 0heor# S and 0heor#

+. nderstand the future of organi7ations, in particular:a. 0he Postbureaucratic !rgani7ation

b. Postmodernismc. 0he emini7ation of the /orkplace

-. Define ke# terms at the bottom of the pages and at the end of the chapter.

. /rite short critical essa#s on ma%or issues co'ered in the chapter.

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SUGGESTED LECTURE

LECTURE SI1

I. O%g&ni*&$i'n&l Be+&/i'%: ;ugo Tnsterberg pioneered the application of ps#chologicalfindings from laborator# experiments to organi7ational beha'ior with the goal of matchingemplo#eesF abilities to %ob tasks, and to understand the impact of ps#chological conditions on producti'it#. 3n the 1!.D.4 is about planned organi7ational adaptation andchange geared toward increasing organi7ational effecti'eness. !.D. in'ol'es deep change, notsuperficial modifications. 3t has its origins in the ;awthorne studies and in organi7ational beha'ior*centered change processes that came out of the sensiti'it# training of ?urt Lewin and hisassociates, which attempted to focus on interpersonal communication, sur'e# researchmethodolog#, and feedback.

III. T+e I"(&$ 'f Pe%#'n&li$): 3n his book Personalit) and *rgani+ations -./, Chris

Arg#ris suggested that there was an inherent conflict between the personalities of mature adultsand needs of the organi7ation, and that organi7ations tended to treat emplo#ees like children5 most often seen in the classical, structural form of organi7ations5which leads to ineffecti'eness.

IV. I"(&$ 'f Bu%e&u%&$i S$%u$u%e 'n Be+&/i'%: )ach organi7ation has a uni@uestructure that defines how labor and technolog# will be used. 0he structures of a large bureaucrac#are conser'ati'e and slow to change and to match the organi7ation to changing social conditionsand needs. ;owe'er, no bureaucrac# in a democratic go'ernment can do an#thing that is not pro'ided for in its enabling legislation. &. Bu%e&u%&$i D)#fun$i'n&li$) is something 'er#common in our e'er#da# li'es. 8ureaucratic structure stresses depersonali7ed relationships and power and authorit# gained b# 'irtue of organi7ational position, not inno'ati'e thought or action.Gictor 0hompson calls this t#pe of emplo#ee a bureaupath.2 b. Bu%e&u%&$i I"(e%#'n&li$):ax /eber acknowledged that dehumani7ation was part of the ideal*t#pe bureaucrac#, and b# thathe meant elimination of all personal traits from official business. . Bu%e&u%&$ B+ing becamemore fashionable than e'er under President onald eagan, who was elected to two terms in officeon his stand against bureaucrac#. President Clinton pledged to clean up the bureaucrac#. nder both these leaders, public administration positions were lost in the federal go'ernment.

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V. M'$i/&$i'n: Garious theories of moti'ation ha'e de'eloped o'er time: &. T+e H&5$+'%neE-(e%i"en$#: 0hese were experiments at the ;awthorne /orks of /estern )lectric Compan#,Chicago. 0he results of the experiments re'ealed that work situations are first of all socialsituations that workers are moti'ated b# peer pressure, the attention paid to them b# significantelites, and other complex sets of factors be#ond remuneration. b. T+e Nee!# Hie%&%+): 3n animportant but contro'ersial work, A 0heor# of ;uman oti'ation,2 Abraham aslow assertedthat a personFs needs are not all e@ual but ascend in a hierarch#. At the bottom are sur'i'al needswhile at the top are self*actuali7ation needs. !nce lower needs are satisfied, the# no longer moti'ate. !thers built upon aslowFs ideas. . T+e M'$i/&$i'nH)giene T+e'%): rederick ;er7berg argued that %ob content factors such as achie'ement, ad'ancement, and responsibilit# aremoti'ators because the# lead to growth and self*actuali7ation the en'ironmental context of %obssuch as working conditions, interpersonal relations, and salar# ser'e as h#giene factors becausethe# pre'ent unpleasantness. !. T+e'%) 1 &n! T+e'%) 0: 3n his classic work 0he 1uman (ide of 2nterprise, Douglas c9regor set out his famous S and theories of opposite organi7ationalst#les. anagers holding a 0heor# S 'ision of their workers tend to be authoritarian, old*st#leleaders with a belief that people are la7#, irresponsible, and must be coerced to work. 3n contrast,

0heor# has a belief in the intrinsic good of human beings5that it is natural for people to work hard and creati'el# if organi7ational goals are clear and if there is meaning in work.

VI. T+e Fu$u%e 'f O%g&ni*&$i'n#: &. T+e P'#$bu%e&u%&$i O%g&ni*&$i'n: Dwight /aldoin 1

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concept of bureaucrac# from 9ilbert and 6ulli'anRs 1!&!(! Pinafore!

6ee page "$=, textbook.Pla# tape recording of this music. ;a'e students follow from the text.

8reak up into teams of two.

/hat concepts ha'e #ou learned so far about bureaucrac#, pathologies in organi7ations, and political d#sfunctions that relate to this amusing songB List at least fi'e, and more if #ou wish.

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CHAPTER SEVEN: MANAGERIALISM AND PERFORMANCE MANAGEMENT

LEARNING OBJECTIVES

After reading Chapter - in the textbook, the student should be able to:

1. Define the concept of managerialism2 as a new public administration doctrine.

". nderstand the notion of reengineering as radical organi7ational reform.

$. Learn about the concept of empowerment as it relates to the managerialist doctrine.

&. Comprehend the meaning of entrepreneurialism in the public sector.

(. Discern the meaning of performance management, in particular:a. 0he Politics of Performance anagement

b. anagement Control

+. elate to the issue of contracting for performance in the following areas:a. 3ndi'idual and !rgani7ational Contracts b. 0he Purchaser*Pro'ider odel

-. nderstand the notion of producti'it# impro'ement in the public sector with particularattention to the following areas:

a. Producti'it# easurement b. 8arriers to Producti'it# 3mpro'ementc. 0otal ualit# anagement

d. Pleasing the Customer

. Define ke# terms at the bottom of the pages and at the end of the chapter.

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I. M&n&ge%i&li#": 3n the 1oftenerroneousl#4 that a public administration based on pri'ate sector principles will work better.;owe'er, the political context of public administration alwa#s creates complications for the bureaucrac#.

V. Pe%f'%"&ne M&n&ge"en$: A ke# feature of performance management is strategicall#integrating all aspects of the enterprise with a 'iew toward performance outcomes. &. T+e P'li$i#'f Pe%f'%"&ne M&n&ge"en$: Planning in the public sector, as noted before, is ne'er rational or straightforward because of the political process, informational constraints, and other factors. b.M&n&ge"en$ C'n$%'l: Control s#stems monitor how well the organi7ation is responding to or de'iating from its goals. !rgani7ational goals can, and do, get lost as organi7ational members5 especiall# leaders5modif# organi7ational goals to suit personal goals. 0hus, s#stematic integrationof performance 'ia control s#stems is seen as helpful in a'oiding goal displacement >obert erton4

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and in assisting managers to keep the organi7ation in d#namic e@uilibrium >Chester 8arnard4.

VI. C'n$%&$ing f'% Pe%f'%"&ne: &. In!i/i!u&l &n! O%g&ni*&$i'n&l C'n$%&$#: 0oda#, inaddition to roles and responsibilities, the terms and conditions of hire and retention often containlanguage about the goals and targets of the %ob with rewards and sanctions attached. b. T+ePu%+e%P%'/i!e% M'!el: 0he relationship between the go'ernment, as sole bu#er or purchaser of a good or ser'ice, and its pro'iders is structured in the purchaser*pro'ider model. 3n thatstructure there are desired outcomes based on goals and ob%ecti'es of the purchaser.

VII. P%'!u$i/i$) I"(%'/e"en$: &. P%'!u$i/i$) Meu%e"en$: Producti'it# in the publicsector is a perennial concern of citi7ens, the bureaucrac#, and lawmakers. Producti'it# is measured b# the relationship between @uantit# and @ualit# of outcomes minus the @uantit# of resources usedto produce the goods or ser'ice. b. B&%%ie%# $' P%'!u$i/i$) I"(%'/e"en$: Producti'it#impro'ement is much easier talked about than done in the public sector. 3f the organi7ation lendsitself to factor#*like operations, one can undertake measurements of producti'it#. ;owe'er, ser'iceworkers such as police officers, school teachers, etc., pro'ide tangible as well as intangible outputs,which are not easil# measured e'en b# broad social indicators. . T'$&l u&li$) M&n&ge"en$:

0 became a bu77word in the 1

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to think creati'el# and inno'ati'el#. Kow #ou are being asked b# the Committee on 6tate ;ighwa#sin the legislature to come up with a plan to connect nine ke# transportation points in the state with ahighwa# s#stem. 0he# gi'e #ou the following instructions:

1. sing onl# four sections of highwa#, connect all nine points.". se onl# straight lines, no cur'es.$. ou must begin at the point where the last section stopped.&. Do not retrace #our steps.

T+in4 en$%e(%eneu%i&ll) $' #'l/e $+i# (u**le

U U U/;30) ;3LL6 60A0L) AR6 P!3K0

U U U9!G) C30 !A?!K0 )AD3K9

U U U3G)63D) CL)AG3)/ 8!/K 8L6

Adapted from alph ). 6trauch , A Critical Look at uantitati'e ethodolog#,2 Polic) Anal)sis,'ol.

33, 1

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CHAPTER EIGHT: STRATEGIC MANAGEMENT IN THE PUBLIC SECTOR

LEARNING OBJECTIVES

After reading Chapter in the textbook, the student should be able to:

1. nderstand the concept of strategic management as it applies to the public sector, with particular respect to:

a. 6trategic anagement and Planning b. atching Agenc# Capabilities and Agenc# e@uirements

". Learn about anagement b# !b%ecti'es >8!4.

$. Discern the future challenges for strategic management in the public sector.

&. Learn to perform a 6/!0 anal#sis on a gi'en public agenc#.

(. Define ke# terms at the bottom of the pages and at the end of the chapter.

+. /rite short critical essa#s on ma%or issues co'ered in the chapter.

SUGGESTED LECTURE

LECTURE EIGHT

I. S$%&$egi M&n&ge"en$: /e deri'e the concept of the art of generalship, 'i7., strategicmanagement, from its militar# heritage. 6trategic management is about the management of

resources to attain the goal in its entiret#. 0actics, a word also deri'ed from the militar#, is aboutgaining a part of the goal5or the ob%ecti'e. 3n administration, the concepts of strateg# and tacticsin'ol'e the selection of philosophies, policies, and practices to achie'e efficienc# and effecti'eness.&. S$%&$egi M&n&ge"en$ &n! Pl&nning: Public management has been slower than the pri'atesector in embracing the strategic management and planning concept. 0oda#, howe'er, it is seen asimperati'e that a public organi7ation ha'e strategic intent to proacti'el# shape the future for theorgani7ation the wa# that pri'ate corporations do, rather than merel# reacting to e'ents. Pri'atecorporations do strategic planning all the time, to specif# long* and short*term hori7ons. 8ecauseof the inherentl# political nature of public administration, howe'er, short*term thinking is oftenmore the case. Public budgeting procedures, due to their annual nature, also contribute to short,#earl# c#cles. 0he annual

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budget submission often gi'es opportunities for posturing, patronage, and politici7ing. ;owe'er,long*term planning is not impossible in the public sector. an# public pro%ects, like space science,defense, etc., re@uire long*term planning hori7ons and enormous capital in'estment, which is mostappropriatel# done b# go'ernment. Long*term planning is often done at the federal le'el and candraw national attention to a cause. ;owe'er, sometimes little is achie'ed and planning efforts aremerel# a goal in themsel'es, undertaken to gi'e exposure to political elites. Planning is mess#2 inmore wealth# democratic go'ernments where competing interests must be accommodated. 3n his1

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III. S$%&$egi M&n&ge"en$ Fu$u%e C+&llenge#: 6trategic management in the public sector has e'ol'ed from its traditional functional management focus to one which now looks towardmeasurable ob%ecti'es. As it relates to go'ernment, the term strategic management2 refers to astatement of goals that can be translated into a statement of specific targets or ob%ecti'es. 8ecausethe original sponsors of legislation ma# not ha'e a precise idea of how the end results are to bereached, goals ma# be far more philosophical than the ob%ecti'es. ;ence, explicit statements are purposel# a'oided, and the intent of the polic# is often stated in broad, general terms. A 'ariet# of challenges to strategic management are faced b# public sector managers toda#. 0he widespread useof pri'ati7ation around the world is one that will increasingl# be a topic confronting go'ernment inthe next decade.

A T5'G%'u( E-e%i#e

Di#u##i'n 'n Ce S$u!)6H'5 $+e Mili$&%) Gene%&l S$&ff# Be&"e $+e Fi%#$ S$%&$egi T+in4 T&n4#7

Di'ide into two groups.

9roup 1 is a pri'ate think tank called *gden Associates2. 0hink back on the #ear that has %ust passed. /hat one thing in #our opinion was the most significant thrust of strategic thinking at thefederal executi'e andEor legislati'e le'els in the .6.B Do #ou think that the effort and expenditurewere worth itB Anal#7e and de'elop #our ideas.

Cl# E-e%i#e

A S3OT ANAL0SISAn&l)#i# 'f O%g&ni*&$i'n&l

S$%eng$+#8 3e&4ne##e#8 O(('%$uni$ie#8 &n! T+%e&$#;In!i/i!u&l '% Te&" G&"e<

ou are the newl# appointed warden of the Cedar'ille Count# Hail. 8ecause there are man# problems existing in the %ail administration in Cedar'ille, #ou ha'e been brought in as a changeagent.2 ou ha'e come to #our position from a pre'ious position in 3llinois in the same capacit#.ou are known there for being an entrepreneurial and transformational leader. ou will bring with#ou part of #our strategic management team5#our deput# warden for human resources and #our deput# warden for administration.

0he %ail in Cedar'ille is a recentl# built incarceration facilit# with the latest in securit# technolog#and inmate housing for the two separate parts of the %ail5Adult !ffenders 3ncarceration acilit#and the Hu'enile acilit#. 0he ph#sical space ser'es as a model for this t#pe of incarcerationfacilit#. 0here is willingness on the part of the count# go'ernment to put additional re'enue andresources into the facilit# to make it work #ou ha'e a hone#moon period of two #ears to do this.

Among the issues raised in #our appointment documents as C)! to this facilit# are the following:

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6ecurit# issues and keeping inmates inside the prison is the paramount concern. 8e#ondthis, strategic management needs to be strengthened with additional talent in the

area of financial management. 0he accounting s#stem is in disarra#.

0here are emplo#ee morale problems. !fficers are not properl# trained in the use of restraintand safet# techni@ues. 0here are some drug and alcohol abuse problems among theemplo#ees. /omen ha'e traditionall# been emplo#ed onl# in the lower clerical ranks. 0he %ail has a macho2 culture, which the count# wants to see being changed to a more

caretaking culture with emphasis on rehabilitation and training for inmates and a special*needs program for %u'enile offenders.

Counseling, librar#, and chaplain ser'ices are not a'ailable to staff and inmates. 0heorgani7ation could outsource >pri'ati7e4 gardening, laundr#, and %anitorial ser'ices morecheapl# than what is pro'ided in*house through work.

0here will be a state re'iew of how the %u'enile offenders are managed in Cedar'ille. 3f there arecontinuing problems in this area, the state is considering a 'oucher program to enable %u'enile

offenders to be mo'ed to the Catholic Hu'enile ale 3nstitutional acilit#, a non*profit organi7ationoutside Cedar'ille, or to the aleigh 3nstitution for oung en, a pri'ate detention center inCedar'ille. 3f the re'iew is bad, the Cedar'ille %ail stands to lose a substantial portion of its budget.Con'ersel#, if the state re'iew shows that %u'eniles should be retained at Cedar'ille, the state andfederal go'ernments will kick in with substantial grant*in*aid funding.

0he count# super'isors want #ou to accomplish the following ma%or strategic tasks within #our first three months in office.

0OUR ASSIGNMENT

3. De'elop:1. A Mi##i'n 6tatement". A 6tatement of G'&l#$. A 6tatement of e) Ob9e$i/e#

emember #our model:

MISSION GOALS OBJECTIVES

b%'&! (+il'#'(+) "'%e f'u#e! /e%) f'u#e! &n! #(eifi

33. De'elop:60)K90;6, /)A?K)66)6, !PP!0K303)6, and 0;)A06 anal#sis

>6/!0 anal#sis4 for the Cedar'ille Hail5see page $$& of textbook for #our model.

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CHAPTER NINE: LEADERSHIP AND ACCOUNTABILIT0

LEARNING OBJECTIVES:

After reading Chapter < in the textbook, the student should be able to:

1. nderstand the kinds of power that leadership exerts upon the organi7ation.

". Learn about the pre'ailing theories of leadership, in particular:a. 0rait 0heories of Leadership b. 0ransactional 0heories of Leadershipc. Contingenc# 0heories of Leadershipd. 0ransformational Leadership 0heories

$. Comprehend the more d#sfunctional aspects of too much leadership, in particular:a. icromanagement b. !'ermanagement

&. Discern the role leaders pla# in moral guidance of public organi7ations.

(. Learn about the need for leaders to be accountable in public administration.

+. nderstand the o'ersight role that legislati'e leadership pla#s in go'ernment.

-. Define ke# terms at the bottom of the pages and at the end of the chapter.

. /rite short critical essa#s on ma%or issues co'ered in the chapter.

SUGGESTED LECTURE

LECTURE NINE

I. Le&!e%#+i(: Leaders are those who get people in organi7ations moti'ated to do things the#ma# ne'er ha'e done before or ma# not wish to do. Leadership is about the exercising of authorit#and it is done both formall# and informall#. rench and a'en suggest fi'e t#pes of leadership power: expert power, referent power, reward power, legitimate power, and coerci'e power.Charismatic leadership, described b# ax /eber, is power similar to referent power. Chester 8arnard described three essential functions of the leader: to pro'ide a s#stem of communication to promote the securing of essential efforts and to formulate and define the mission, goals, and

ob%ecti'es of the organi7ation.

II. T+e'%ie# 'f Le&!e%#+i(: &. T%&i$ T+e'%ie# 'f Le&!e%#+i(: 0he trait approach suggests thatleaders ha'e uni@ue characteristics or traits that are distinct from followers, and that leaders are born and not made. ;owe'er, these trait theories ha'e fallen into disfa'or, mainl# because thetheorists could ne'er identif# which traits make an effecti'e leader. b. T%&n#&$i'n&l T+e'%ie#:

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After the 1

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VI. Legi#l&$i/e O/e%#ig+$: 0he legislature5either in the form of the cit# council, the statelegislature, or the congress5monitors the executi'e branch to see that laws are faithfull# executed.!'ersight takes man# forms5Congressional hearings on the budget or in'estigations on specialissues 6enate confirmation of appointees for cabinet positions and 6upreme Court nominees. An#member of Congress can instigate an in'estigation, and Congress operates as a kind of grand %ur#read# at all times to hear testimon# on improper actions.

G%'u( E-e%i#e

T+in4 Piee6T%&n#f'%"ing $+e P'#$&l Se%/ie2

0he twent#*first centur# has brought new challenges to the .6. postal ser'ice. As group, brainstorm what some of these might be >e.g., anthrax mailings, pornographic material, the need to pro'ide e* ser'ices4. )ach student should choose one of the themes deri'ed from the brainstorming session or should write a one*page anal#tical essa# in the form of a memorandumfrom the Postmaster of a local postal ser'ice to hisEher emplo#ees.

Cl# E-e%i#e

A HUNTANDPEC E1ERCISE ON PUBLIC ADMINISTRATION CONCEPTS

ou are a human resources specialist in the cit# go'ernment offices for the industrial cit# of Lamont, Kebraska. ou ha'e %ust graduated with a 8.A. in Public Administration from theni'ersit# of Kebraska. A complaint has been brought to the attention of #our boss from a groupof emplo#ees in the Department of Administration against their director, s. 8e'erl# ;uxtable.0he report, which has been formall# written up b# the hearing officer, is gi'en below. our boss

has asked #ou, as a first step, to look o'er the complaint and list an# public administrationconcepts embedded in the complaint. ou remember #our classes in public administration clearl#and ha'e no trouble in picking out at least eight concepts.

REPORT

s. 8e'erl# ;uxtable is the director of administrati'e ser'ices in the cit# of Lamont. 6he has beenin this position for the last six months. ;er prior position was assistant director of polic# and planning, which she held for two #ears. 0here were a number of serious problems with her work inthat %ob. Despite these problems, when the director of administrati'e ser'ices position becamea'ailable, she was promoted to this position with the support of her brother*in*law, ichael;uxtable, the deput# ma#or of Lamont. Prior to her assistant director position, s. ;uxtableser'ed 'er# successfull# o'er a ten*#ear period as a budget anal#st in the accounting department.

s. ;uxtableFs immediate problems stem from her management st#le. 6he gi'es 'er# littleflexibilit# for independent decision making b# her staff and insists that rules and regulations beadhered to 'er# closel#, regardless of the circumstances in'ol'ed. ;er emplo#ees feel like robotsand that their creati'it# and initiati'e are being stifled. s. ;uxtableFs own opinion is that she is an

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excellent leader. 6he belie'es that she has the intelligence, energ#, and aptitude that is needed to bea good leader but that her problems ha'e been inherited. ;er staff, sa#s s. ;uxtable, arecomplainers, incompetent, la7#, and irresponsible. 0his came about because the pre'ious manager had a hands*off st#le of leadership, which created problems of laxness and discipline, and she willnot tolerate either of these things in her department. 8ecause of s. ;uxtableFs insistence onsticking to the rules, rigidit#, and o'erconformit#, the public is not being ser'ed in an efficient andtimel# fashion b# the departments that report to her.

eanwhile, citi7ens of Lamont are expressing their frustrations and calling for a new catal#tic,entrepreneurial go'ernment. 0he# ha'e been calling for greater performance standards andaccountabilit# of cit# ser'ices. 0he ma#or has undertaken a re'iew of cit# operations with a 'iewto making radical changes in the wa# the cit# deli'ers its efforts to the public. ;owe'er, thema#or has been st#mied at e'er# turn b# his director of administrati'e ser'ices, s. ;uxtable.0his latest complaint from the emplo#ees in her department gi'es the ma#or added ammunition toadd to the case for dismissal of s. ;uxtable.

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CHAPTER TEN: PERSONNEL MANAGEMENT AND LABOR RELATIONS

LEARNING OBJECTIVES

After reading Chapter 1= in the textbook, the student should be able to:

1. nderstand the personnel function in the public sector and its role in:a. ecruitment b. erit 6electionc. Position Classificationd. Performance Appraisale. 0rainingf. anagement De'elopment

". Comprehend the histor# and current challenges of ci'il ser'ice reform.

$. )xplain the issues surrounding patronage appointments, including:a. 0he role of patronage in the political process. b. 0he function and importance of the Plum 8ook.c. 0he @uestions of the constitutionalit# of the process.d. 0he preference @uandar#.

&. nderstand the principles that go'ern labor relations in the public sector, including:a. 0he process of collecti'e bargaining. b. 0he legal foundation of the process.c. 0he impact of strikes in the public sector.

(. Define ke# terms at the bottom of the pages and at the end of the chapter.

+. /rite short critical essa#s on ma%or issues co'ered in the chapter.

SUGGESTED LECTURE

LECTURE TEN

I. T+e Pe%#'nnel Fun$i'n deals with the technical functions of emplo#ment, such asrecruitment, selection, training, and e'aluation. Personnel re@uires an understanding of law as wellas the ma%or de'elopments in the social and beha'ioral sciences. Personnel administration hase'ol'ed from being largel# a clerical function into a professional practice. &. Pe%#'nnel Me%i$Sele$i'n: 0his process began with ci'il ser'ice reform in the late nineteenth centur#, which ga'e birth to the Pendleton Act in 1$. 0he act created the .6. Ci'il 6er'ice Commission. 3tmandated open competiti'e examinations, probationar# periods, and protection from political pressures for the federal bureaucrac#. 0he Pendleton Act mandated that examinations had to bepractical in their character.2 0he primac# of practicalit# was later reaffirmed in Griggs v! Duke Power $ompan) >1

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the work. b. P'#i$i'n Cl#ifi&$i'n#: 0raditional position classifications organi7e all %obs in a ci'ilser'ice merit s#stem into classes on the basis of duties for the purposes of establishing chains of command, salar# scales, and delineating authorit#. . Pe%f'%"&ne A((%&i#&l is about thedocumentation of work performance of emplo#ees. ost appraisals are too sub%ecti'e andimpressionistic to be useful because the# are done in*house, and thus e'aluators are reluctant todestro# group harmon# with negati'e e'aluations. 8ecause of this, outside consultants aresometimes hired to do the ratings. !. T%&ining: 0raining has alwa#s been considered an option, or a luxur#, in organi7ations. 3n the 1LA4,to o'ersee federal labor management policies. f. Rein/en$ing Publi Pe%#'nnel A!"ini#$%&$i'n:ecentl#, public personnel management has been hea'il# impacted b# the rein'enting2go'ernment mo'ement. 0he 1

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III. P&$%'n&ge A(('in$"en$#: Patronage comes from the word patron25in order to get

certain plum %obs, #ou need a patron in high places. &. T+e Plu" B''4: 0his is the informal namefor the publication 3!(! Government% Polic) and (upporting Positions, which comes out rightafter a presidential election and lists all the patronage %obs that a new president can fill at his or her discretion. b. T+e C'n#$i$u$i'n&li$) 'f P&$%'n&ge: 3n Rutan v! Republican Part)8 the .6.6upreme Court ruled that traditional patronage is unconstitutional. 3n the earlier decisions 4rantiv! Finkel and 2lrod v! 4urns the Court held that the irst Amendment forbids go'ernment officialsto discharge or threaten to discharge public emplo#ees solel# for not being supporters of the part#in power, unless political affiliation is an appropriate re@uirement for the position in'ol'ed. .Ve$e%&n#> Me%i$ P%efe%ene: 0he special merit earned b# honorable militar# ser'ice is a 'ariant of patronage that has been in place since the end of the Ci'il /ar, when 'eterans were first gi'en preference in ci'il offices. 3n 1

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G%'u( E-e%i#e

T+in4 PieeS$%e## Le/el# in $+e Ai% T%&ffi C'n$%'lle%#> 3'%4(l&e#

0he air traffic controllers at American airports reportedl# ha'e 'er# stressful %obs. An additionalelement of stress was added b# the e'ents of 6eptember 11, "==1. /hat additional kinds of stress*relief measures should be considered b# leadership to help air traffic controllers do their %obssafel# and securel#B

Cl# E-e%i#e#

PERSONNEL MANAGEMENT E1ERCISES ON THE CIVIL RIGHTS ACT OF =8Ti$le VII

Sen&%i' A: ar# Louise Da'ies inter'iews applicants for professional and management positionsat ASCom, 3nc., a computer compan# in the 6ilicon Galle#. 6he has been asked b# the director of human resources to attend a one*da# conference on 0itle G33, affirmati'e action, and ))!, in6an rancisco. ar# Louise has a 'er# hectic schedule, as her compan# is rapidl# expanding, andshe asks to be excused. After all, she explains, all she does is conduct the inter'iews. 0he finaldecisions are made higher up in the human resources department. a. 3s ar# LouiseFs excuse %ustification for not goingB b. 3f #ou were the human resources director, what would #ou doB

Sen&%i' B: Pete Cha'e7 graduated with high honors from the Columbia ni'ersit# 6chool of Hournalism in the area of sports %ournalism. ;e then applied for the position of assistant sportswriter with a local paper to co'er basketball and football. PeteFs credentials were 'erified and he

was made an immediate offer o'er the telephone. /hen he arri'ed for the inter'iew, howe'er, hesensed that something was amiss. ;e was told that the position had been withdrawn. Later Petelearned from a 'alid source that it was his height, (R$2, and slender build, 1"= lbs., that dis@ualifiedhim. 0he editor had %udged that a taller sports writer would ha'e a better rapport with tall pla#ersthan a short one. Pete plans on filing a disparate impact2 claim. a. Does he ha'e a caseB b. !nwhat basisB

Sen&%i' C: 0im u%ie, a Hapanese*American, and Da'id Doughert#, an 3rish*American >white4,are both applicants for promotion for the same %ob as detecti'e sergeants in the ini@ua Policeforce. 0im has a bachelorFs degree in ph#sics and three #ears on the police force. Da'id has a bachelorRs degree in criminal %ustice, a certificate in conflict resolution, and three #ears in the policeforce. Da'id Doughert# is hired. 0im u%ie sues on the grounds of color and race discrimination.Does 0im ha'e a caseB

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CHAPTER ELEVEN: SOCIAL EUIT0

LEARNING OBJECTIVES

After reading Chapter 11 in the textbook, the student should be able to:

1. nderstand the concept of social e@uit# in America.

". Comprehend the ma%or points in the challenge for e@ualit#:a. acism in America b. 0he 8itter ;eritage of 6la'er#c. 6econd*Class Citi7enship in Americad. Legislati'e and Administrati'e emedies

$. Appreciate the notion of e@ual emplo#ment opportunit#:a. 0he !rigins of Affirmati'e Action b. 0he Case for and against Affirmati'e Action

&. 9rasp the ke# areas of nonracial discrimination:a. 6ex Discrimination b. Pregnanc# Discriminationc. Age Discriminationd. Disabilities Discrimination

(. nderstand the importance of public administrators being cogni7ant of the letter and

the spirit of social e@uit# laws.

+. Define ke# terms at the bottom of the pages and at the end of the chapter.

-. /rite short critical essa#s on ma%or issues co'ered in the chapter.

SUGGESTED LECTURE

LECTURE ELEVEN

I. S'i&l E?ui$): Although the nited 6tates aspires to social e@uit# in principle, it has notalwa#s been able to achie'e it in practice. 3n the nineteenth centur# social Darwinism inhibited thegrowth of social e@uit# through its principles of sur'i'al of the fittest and natural selection.American social Darwinism thus %ustified child labor and man# other abuses of .6. citi7ens, whichreformers tried to rectif#. einforced b# ci'il rights laws, social e@uit# is one of the foremostconcerns in public administration toda#.

II. T+e C+&llenge 'f E?u&li$): 0he 1--+ Declaration of 3ndependence proclaimed that all

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men are created [email protected] et both the Declaration of 3ndependence and the Constitution denied thisright to African*American residents and women. &. R&i#": !ur textbook defines the term racist2as a person who o'ertl# or co'ertl# practices racial discrimination on the basis of color and ethnicorigin and supports the supremac# of one race o'er another. b. T+e Bi$$e% He%i$&ge 'f Sl&/e%):0he importing of people from Africa to pro'ide sla'e labor on American plantations began incolonial times. 3t was supported b# the Constitution in Article 3, 6ection ". 0he 6upreme Courtupheld sla'er# in man# decisions, the most famous of which was Dred (cott v! (anford . 3t took aci'il war, the )mancipation Proclamation, se'eral amendments to the Constitution, and a 'astchange in social attitudes to bring us to the point at which we are toda#. et, e'en toda#, all people are not e@ual in our societ#. . Se'n!Cl# Ci$i*en#+i( in A"e%i&: After the Ci'il /ar the racial @uestion was still not settled, and man# states enacted Him Crow segregation laws. Againthe 6upreme Court upheld the so*called separate but e@ual philosoph# in its Pless) v! Fergusondecision of 1

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Commission in 1

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CHAPTER T3ELVE: PUBLIC FINANCIAL MANAGEMENT

LEARNING OBJECTIVES

After reading Chapter 1" in the textbook, the student should be able to:

1. nderstand the importance of public financial management and the duties of the public administrators in'ol'ed.

". ?now the rules and understand the politics of the budget game.2

$. nderstand the theories behind the budgeting process and their applications.

&. Comprehend the new inno'ations impacting the budgeting process.

(. 3dentif# the 'arious methods of financing public expenditures.

+. nderstand the role that debt pla#s in the budgeting process.

-. Comprehend the role that monetar# and fiscal polic# ha'e in public administration.


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&. Probit#: 0here must be scrupulous honest# in dealing with public funds, of whichthe legislators and administrators are the stewards, not the owners.(. Prudence: 6tewards should not take undue risks with public funds.+. Accountabilit#: 0hose who deal with public funds can and should be regularl#

called to account for their stewardship through legislati'e re'iew and audit processes.

II. B&l&ne! Bu!ge$#: 0he balanced budget, where receipts are e@ual to or greater than thego'ernment outla#s, is the sign of a financiall# health# go'ernment. 0here are also ad'antages,howe'er, to unbalanced2 budgets where extra spending can stimulate a slow econom#. 6uchactions ma# ad'ersel# impact the 'alue of currencies as well as ha'ing a crowding*out effect oncapital markets. All budgets function within a designated twel'e*month fiscal calendar. As the budget process is often slow, funding can be extended into a new fiscal #ear through the use of continuing resolutions.

III. T+e Bu!ge$ G&"e: 0he budgeting process is highl# political. 0here are winners andlosers in the process. 0he main currents in the politics of budgeting in the past $= #ears seem tosuggest a decidedl# indi'idualistic, multicentered decision*making milieu. 8udget makers, both

conser'ati'e and liberal, are impacted b# lobb#ists and special interest groups. Congress relies onthe Congressional 8udget !ffice to pro'ide data , while the !ffice of anagement and 8udget pro'ides data to the president.

IV. Bu!ge$ T+e'%) &n! P%&$ie: A public budget has four dimensions. irst, it is a politicalinstrument that allocates scarce public resources. 6econd, it is a managerial and administrati'etool that specifies the wa#s and means2 of pro'iding public programs and ser'ices. 0hird, it is aneconomic instrument that can dri'e an areaFs growth. ourth, it is an accounting instrument thatholds go'ernment workers accountable for the expenditure of funds with which the# ha'e beenentrusted.

V. Hi#$'%i&l Hig+lig+$# 'f Bu!ge$&%) Ref'%": 0he 0aft Commission >1

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Mero*8ased 8udgeting: calls for re%ustification of the entire budget.nified 8udgeting: consolidation of receipts and outla#s in one budget.ulti#ear 8udgeting: co'ering a time span of numerous fiscal #ears.

VIII. Fin&ning Publi E-(en!i$u%e: 9o'ernments ma# raise monies in the followingwa#s:

3mposing a direct tax paid b# the taxpa#er directl# to the go'ernment.3mposing an indirect tax paid to a third part# who then pa#s the go'ernment.3mposing user charges for go'ernment customers.Attaining grants from other le'els of go'ernment.9enerating profits from acti'ities of public enterprises.8orrowing from the public through bonds or from pri'ate lenders through loans.sing inno'ati'e finance techni@ues such as public*pri'ate partnerships.9enerating earnings from sa'ings or in'estments.

I1. T+e P%'ble" 'f Deb$: 0he national debt is the total outstanding debt of the nationalgo'ernment. 0he le'el of debt must be 'iewed in historical and comparati'e perspecti'e. 0he

historical perspecti'e looks at the particular debt position toda# compared with its long*term trend.3s the le'el of debt toda# in accord with a normal position or is it extraordinar#B 0he comparati'e perspecti'e looks at the debt le'el of one nation in comparison to others. 8oth the epublicansand the Democrats seek to show the American public that their wa# of sol'ing the debt crisis is the best wa# to lower the le'el of debt. 0he go'ernment can borrow mone# when a clear purposeexists for doing so. 0his tool, howe'er, is sub%ect to abuse, especiall# when politicians find the borrowing of mone# preferable to raising taxes. A second method of raising mone# is the sale of municipal bonds. 0hese bonds, which are rated and graded b# rating agencies, are sold to raisefunds for e'er#thing from sewer s#stems to ball parks, with interest paid b# the issuingmunicipalit#.

1. Fin&ni&l M&n&ge"en$ in L'&l G'/e%n"en$: 0here are =,=== local go'ernments,school districts, and other small bodies. 0he small units ha'e 'er# simple budgets, while the larger municipalities ma# ha'e extremel# complex budgets. 0he three ma%or methods for raising re'enuefor local go'ernments are the propert# tax, the school tax, and the local sales tax.

1I. E'n'"i P'li): )conomic polic# is the process b# which a nation manages its trade, business, and finances. 3t traditionall# consists of three dimensions: fiscal polic#, monetar# polic#,and those facets of public polic# with economic implications such as farm, energ#, and labor polic#.onetar# polic# basicall# exercises control o'er the @ualit# and cost >interest rates4 of mone# andcredit in the econom#. iscal polic# deals with the si7e of the budget, deficits, and taxes.

G%'u( E-e%i#e

T+in4 Piee6T' T&- '% N'$ $' T&- T+&$ i# $+e ue#$i'n.7

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0he cit# fathers of 8ridgepoint suffered a budget shortfall last #ear. 3n their planning for the newfiscal #ear, the# feel the# can raise the needed re'enue b# imposing a sales tax on the consumptionof the citi7ens of the communit#. 0he# are particularl# entranced with the possible tax re'enue thatcan be gained from a rede'eloped mall in the center of the cit#. 0he mall, a %oint pro%ect betweenthe cit# and a de'eloper, was rebuilt from the ruins of an abandoned shopping center that had beenan e#esore for man# #ears. 0he new mall ser'es man# of the inner cit# residents who rel# on publictransportation and li'e either below or at the po'ert# line. 0he mall has been a huge success andhas been hailed as the 'anguard of a new re'i'ed downtown shopping area. A sales tax, howe'er,would impact to a greater extent the man# low and middle income shoppers who shop downtownfor the# would pa# a greater percentage of their income to this tax than wealthier shoppers. 3s asales tax a good mo'e2 for the cit# of 8ridgepointB

Cl# E-e%i#e

THE SCHOOL TA1 CRISIS OF MEADO3BROO

eadowbrook is a municipalit# with a population of 11",===. !n 0uesda#, Hune "=, theeadowbrook 6chool 8oard informed the Cit# Council 8udget Committee that extensi'ereno'ations would be re@uired in the high school g#mnasium. 0he high school had recentl# hirednew basketball coaches for both the girlsF and bo#sF basketball teams. 8oth teams had winningseasons last #ear, and the girlsR team pla#ed in the state championships. 0he# lost in the thirdround, but it was still a 'er# impressi'e performance for a teamRs first trip to the pla#offs. 0wo of the games were pla#ed at eadowbrook and resulted in an increase in business for motels,restaurants, and retail establishments. 0he Chamber of Commerce teamed up with the 8asketball8oosters Club to ha'e a parade on ain 6treet and a pep rall# in the park. 0his resulted in a lot of interest in the team. nfortunatel#, the small g#m could not accommodate all those who wished to

attend, and an opportunit# for increased re'enue for the school s#stem through ticket sales andconcessions was lost.

0he reno'ations would include: the construction of new locker rooms.: the building of a training facilit#, including a weight room.: the replacement of the g#m floor: the expansion of the grandstands to allow for increased seating.

0otal estimated cost: N1." million

6chool Propert# 0ax Demographics:

$+V 8usiness and manufacturing >represented b# the Chamber of Commerce41=V 6ingles and couples with no children$1V Couples with children under the age of nineteen"$V etired singles and couples on fixed incomes

A town meeting has been scheduled to discuss a possible increase in the school tax to co'er thecost of the reno'ations.

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6chool 0ax: A school tax is a local propert# tax imposed b# a school district to co'er the cost of pro'iding education and related acti'ities.

CHAPTER THIRTEEN: AUDITING8 ACCOUNTING8 AND EVALUATING

LEARNING OBJECTIVES

After reading Chapter 1$ in the textbook, the student should be able to:

1. Define an audit and understand the role auditing pla#s in an# organi7ation.

". nderstand the role of the 9eneral Accounting !ffice.

$. 3dentif# the different t#pes of audits and how the# are executed.

&. Define and understand accounting and its function in an organi7ation.

(. Discern the differences between polic# anal#sis and polic# e'aluation.

+. nderstand the reasons for polic# anal#sis and e'aluation.

-. Discuss the standards under which e'aluation takes place.


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Auditing in the federal sector is the responsibilit# of the 9eneral Accounting !ffice >9A!4.)stablished in 1

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CHAPTER FOURTEEN: HONOR AND ETHICS

LEARNING OBJECTIVES

After reading Chapter 1& in the textbook, the student should be able to:

1. nderstand the meaning of honor and distinguish it from ethics.

". 8e able to identif# and discuss corruption in go'ernment.

$. Comprehend ethical issues as the# relate to public administration in such situations as thedirt# hands dilemma.2

&. nderstand the meaning of conflict of responsibilities in public administrationas it relates to impacted stakeholders.

(. Distinguish between the different le'els of ethics in public administration.

+. nderstand the concept of whistleblowing and the protections for whistleblowers.

-. nderstand how codes of honor, conduct, and ethics relate to public administrationthrough understanding standards of conduct.


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III. E$+i&l I##ue# in Publi A!"ini#$%&$i'n: Lies 8ig and Little25Adolph ;itler and HosephcCarth# are two of the most prominent examples of big liars who ha'e hurt societ# as a whole, but on a smaller scale l#ing is common in go'ernment. 3t takes man# forms, from outright lies toinnuendo, omissions, etc. 3t can be argued that public administrators in a democrac# can beexcused for l#ing when there are dire national priorities to consider. 0he @uandar# of l#ing for the public good has been a topic of debate from the time of Plato, who spoke about the noble lie.20he dirt# hands dilemma,2 like the noble lie, is another famous @uandar# encountered in ethics.Public officials dirt# their hands when the# commit an act generall# considered wrong to further the public good. achia'elli upheld this dilemma in his famous statement: when the act accuses,the result excuses.2

IV. C'nfli$# 'f Re#('n#ibili$ie#: 0he public is composed of di'erse stakeholders each withconflicting, but often deser'ing, interests. 0his presents the @uandar# of 'iable alternati'es becausethe public administrator cannot satisf# the ideal of uni'ersal happiness. 0hus it becomes importantto keep the concepts of %ustice, e@ualit#, and the in'iolabilit# of indi'idual rights in mind whenchoosing the best course of action for the ma%orit#. Dennis 0hompson argued that there can be noadministrati'e ethics because of an inherent conflict in the nature of the duties of a public

administrator and the administrati'e structures of the position. 0hese people must be morall#neutral2 and #et follow the structural dictates of polic# hence, he argues, the# cannot be heldaccountable. et the 3 was %ust following orders2 defense conflicts with the personal moralobligation to do the right thing.

V. Hie%&%+) 'f E$+i#: 0he four le'els of ethics are personal moralit#, professional ethics,organi7ational ethics, and social ethics.

VI. 3+i#$lebl'5ing: /histleblowing takes place when an emplo#ee decides that obligations tosociet# come before obligations to the organi7ation. /hen Daniel )llsberg leaked the PentagonPapers, which documented the step*b#*step %udgments that brought America into the Gietnam /ar,

he was charged with espionage. /hile the charges were later dismissed, )llsbergFs actionssuggested that he belie'ed that his obligation to societ# outweighed the proscriptions of law. )'enin lesser cases, whistleblowing can ha'e serious conse@uences, and for this reason the go'ernment, beginning with the Ci'il 6er'ice eform Act in 1

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subse@uentl# fired for incompetence. Allen has recei'ed satisfactor# ratings on his performance sofar, hence he assumes that it was due to the whistleblowing that he was terminated. Does he ha'erecourse under statutor# law for wrongful dischargeB

Cl# E-e%i#e

MR. ARJMENIAN BLO3S HIS 3HISTLE

P%'('#i$i'n: A democratic societ# benefits from moral dissent.

r. Ar%menian, an Armenian*American, is the deput# finance director in the cit# of Pine alls,California. Pine alls is situated on the 6acramento i'er in California, where an annual e'entknown as the Pine alls egatta is held. 0he regatta recei'es state, count#, and local funding.ecentl#, in a 1==*page letter to the regatta board of directors, r. Ar%menian accused Dr.Lawrence Pierpont oster, the chairman of the regatta, of misusing nearl# N"==,=== of theregattaFs funds for personal purposes. A week after this disclosure, r. Ar%menian was fired as the

deput# finance director b# the ma#or of Pine alls, the ;onorable /ill# 8o#le, who is a close personal friend of regatta chairman oster. 0he charges are incompetence and hostilit#, but thee'idence produced is 'ague. r. oster has denied all charges but has been unable to explainsatisfactoril# the large sums of mone# deposited into his personal bank accounts following theannual regatta e'ents.

1. 8ased on #our readings and prior knowledge of ethics, pick out from the list below the rele'ant

ethical issues in'ol'ed:

noble lie burglar# whistleblowingconflict of interest briber# grafttheft dirt# hands dilemma honorificconscientious ob%ection embe77lement deceptionachia'elli corruption l#ing

". )xplain the concepts #ou ha'e chosen as the# relate to ethics in the case of Pinealls.

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