Defining Public Administration: Selections from the International Encyclopedia of Public Policy and Administration

465 Pages·2000·36.8 MB·English

by  Jr.

ic Administration
Editor in Chief
Jay M. Shafritz, University of Pittsburgh
David H. Rose~~bloomTh, e American Universiv
E. W. Russell, mctoria University of Technology, Melbourne
Associate Editors
Abdtlllah Al-aalaf, h~stituteof Public Admhistratio~S~a, udi Arabia
Geert Bouckaert, Katholieke Universiteit Leuven, Belgium
Beverly A. Cigler, Pennsylvania State, Harrisburg
Peter Foot, United Kingdom Joint Services Command and Staff College
Arie Halachi, Temessee State University
Marc Holzer, Rutgers, The State University of New Jersey
Rchard D. Heimovics, University of Missouri-Kansas City
Jerry McCaffery, Naval Postgraduate School
J. Steven Ott, University of Utah
David 0. Renz, Universiv of Missouri-Kamas City
Noma M. Riccucci, University at Albmy, State University of New York
Larry D. Terry, Cleveland State University
Kemeth E Warren, St. L,ouis University
ections om the
In ternationa
icy and Adminis tuation
Editor in Chief
\ A Mcrnber of rhe Pcrseus Books Group
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Library of Congress Catalogiing-b~-PublicntionD ata
Defining public administrdtion : selections from the X~nterrratictnale ~rcyclctpedioa f pu"olic
policy and administration / efitt~irin chief, Jay M. SI-\alritz,
p. cm.
Includes bibliographicnX references ancl index,
ISBN 0-8133-9766-9 (pbk,)
1. Public administration. 2. Policy sciences. I. ShaPritz, Jay M.
W-087104
CIF
The paper used in this publicatloll meets the reyuiremetlts of the American National
Srancliard for Penx~nnencec tf Paper for Priiltted Library Materials 239.48-1984.
Preface
Part 1 Ovenriews of Public Administration
1 Public Admhistrxation, Frank Marini
2 American Administrative Radition, Nichohs Flt.nl:y
3 E'clmil7ist 'Theory of Puhtic Admir7istration, Cluitrzilla Sfin~rs
Part 2 Policy Making
4 Policlv; Willianz H, Park
5 Policy Leadership, Jeffi~yS . Luke
6 Policy Network, Glanrles J. Fox and Eiugh 1: Miller
7 Rule, Cart~elizlsM . ECenilin
Part 3 Inlergavernmentztl Relations
8 Inkrgoverrlme~~tKate latio~~Dsa, te Kmlze and Deil S. Wrighf
9 Ma~datcsf,e frey D. Sfrazlssma~
10 Govermmt Corporatio~j~er,r y Mitcllell
Part 4 Bureaucracy
11 Bureaucracy l2lmlpit E Wurnnzrl
12 Bureaucrat Bashing, Chrles 7: Goodsell
13 Bureaupathoiogy, Rzktk I-Joagk~dD &iot:,g
Part 5 Organization Behavior
14 0rganizatior.d Culture, Dvclra Yanow a~ldG UYB . Adams
15 Groupthink, Rolittrt 1: Golenzbieu?tiki
16 Miles's taw, fefley K* Gtliler
17 Parlkhsan" sL,aw, Pefer Fut;ll'
18 Peter Prkciple, Strsan C. Paddock
Part G PuloZic Management:
19 I'ubijc Manqement, Mary E. Gzry
20 Scientific Managemerrt, f uditll A. Merkle
21 Managetnent Science, Unrt~thyO lsl'lfski and Michele Colfins
22 Entrepreneurial Public Admi~~istrationC,a rl J1 Bellone
Part '7 Strategic Management
23 Leacdership, Frt.cScrick: W. Cibsog and Fwd E. Fiedlm
wn
24 Strategic P lanhg, M. Kysorz
25 Mission Statement, Kezjin l? Kcarns
Part 8 Performance Management
26 Productivity, Mart I-lolzer
27 Reengineering, Albcrt C, Hyds
28 Quality Circles, A~z-tlz-MrieR izzo
29 hblic Entevrise, diirger Wef fe~lzall
Part 9 Human Resources Management
30 hblic Personnel Administration, Ronnld D. Sylaia
31 Mentoring, Sf ezten W, Hays
32. Pay-for-Pcl-formance, Ue~niMs . DLzley
33 Workforce Ukersity, Uolzuld E. Klingner
34 Glass Ceilhg, Kat.l.zerine C. Nafl
Part 10 Financial Management
35 Finmcial Admir~istratioJ~o~h~, aL . Mikesell
36 Cox~gressiox~Baul dget Process, Philip G. Joyce
37 Target-Based Budgeting, In~neS . Rzibin
Part 1% Auditing and Accountability
38 Audit, Ira Sharkansky
39 Accou~~tabifitBya,r brara S. Romzek and Melvin J. Dzrbnick
40 Stewardship, Uoziglras E Morga~
Part 12 Ethics
41 Acimillistrative Morality Willa Mal-ier Bruce
42 Standards of Conduct, April Hejka-Ekins
43 Regime Values, John A. Rahr
44 Lying with Statistics, Claire Felbifzger
45 mislleblower, Debor~llD .C oldman and Datlid H. Rosenbloom
Appendix
f ~zdex
Public administration is the totality of the working day activities of all of
the world's bureaucrats, all of the people who work for governxnenb-
r/vhether their activities are legal or illegal, competent or incompetent, $c-
cent or despkable. It is very much like trhe cosmos once described by fhe
British scie~rtistJ . B. S. Haldane: "The universe is not only queerer than
we suppose, but queerer than we can suppose," Things are much the
same with public administration. It is not only far vaster in scope than
most citizens suppose, it is so extensive md per~rasivein . modern life that
not even the most imaginative of us can haghe it all. kt, we must try
because the administration of the public's business is too important to ig-
nore, too much a part of our everyday fives, md too potentially dmger-
ous to what ':llhomas Jeffersor.1 hmously called our "life, liberty7a nd pur-
suit of happiness.'"
This book, appropriat-ely atitled Defilti~gP zlbfic Administmtion, is &us
designed to stir the imaginations of readers. T%e articles collected herein
are all reprinted fmm the f~zteurzafionaEl ncycIopedia of Pzkbiic PoIic!~a nd Ad-
mz'nli;tmfion( Boulder, CO: Westvievv; 2998). This collection of articles from
the E~cyclc~pedwiua s c~atedto offer a samplixlg of the riches to be fomd
with& the larger work. The artjcks have been o~armizeds o that they can
be easily used as a supplement to a core text in m intmductory public ad-
ministration course at either the undergraduak or graduate level. The ar-
ticle?; selected are -among the most readable and most interestillg to be
found in the larger work. k~deedo, ne goal in c~atingth is collectior~w as
to encourqe students to delve into the rest of the Encyclopediu.
T%e four-volume Ency~loda s9 00 ilrticles written by 462 contribu-
tors from 23 corntries and 42 af the 50 U.S. states. It was designed so that
its contents-a combhation of historical md descriptive articles, proce-
dural presentations, and inte~retivecs says--wodd be of interest to the
germeral reader as well aa the specialist. Contained therej.n am definitions
of the vocabulary of public policy and admi~~istratioans it is used
.. .
vltl Preface
Ihroughout the world from the smallest towns to the largest national bu-
reaucracies, h d w hen we say defistitions we mean just that; ail articles
start by defhing their topic. So if all the mader is =eking it; a quick ex-
piar~ationo f the meaning of a co~~treoprt practice, they need read no fur-
ther than tt7e first paragraph. The rest of lrhe article wiIl still be there if
and when the reader needs more detailed information. It is this defhi-
tionall format that ixlspired the title of the book you are holding.
It is very important that public adrnivristration be defhed in the most
expansive mamer possible, flow else to examine its richness and sub-
tlety? How else to become aware of its historical significmce, universal
application, and current developments? Plahlic administration is both di-
rect md indirect. It: is direct when gwemment employees provide ser-
vices to the public as varied as local bus service, martgage insura~~ce,
mail deiivery, wakr, and electricity It is indirect when ijoven~menpt ays
private contractors to pr0l4ide goods or services for citizens. For example,
while NASA opemkes the space shuttle, the shuttle itself was built by the
employees of private corporations. The security guards and cleankg
staffs of mny government "oudinggs are employees of private compa-
nies. Does this put any of them outside the realm of pUblic administra-
tion? Not at all, Remember that a government agency must hire, evallu-
ate, and hold &em accounta:hle for the vality of their performanc
r/vheeher these corrrpanies see to the cleiu~ingo f toilets or lrhe building o
spaceships.
Throughout the kvorld, govert~meinet mployees do things that aKect
the dajly Eves of their fellow citizens. mesu things range horn the heroic
(SLEC~a s a firefighter rescuing a child from a burning building) to the
mundanc (such as cleaning the streets). Usudy these efforts are hencfj-
cial. Sometimes they are not, Most of the tivne in most countries public
administrators tend to the public's hsiness; for example, they build
schoois and highays, collect trash, put out fires, glow snow where it is
cold, kill mosytnitoes w h ei~t is hot, ar~dp rovide essential social savices
for the midllle ciass as weil as the poor. Unfortunately in sme h d s
public employees may be engaged to torture the hnocent and mtxrder
esty Internationai is the Nobel Prize-whing organization
that seeks to gain the release of political and religious prisoners by publi-
cizing their plight. Each year it publishes a =port on the sbks that bra-
hlize and violate the civil ri@ts of their ci.tizens, riiow who do you think
does all this brutalizing and violathg? None other than their local public
administrators! As a profession, public administration has devel~ped
values and ethical stmdards. But as an activity, it has no values. It merely
reflects the cdtural norms, behefs, and power realities of its society. It is
simply government dohg whatever governme~d~ote s-in whatever pu
litical and cuitural cox~texitt happens to exist.
Ihe Encyclopedia is a major cffmt tward the inten~atiox~ianlt egration
of the literature on public policy and administration-which are two
sides of the same coin. (policy behg the decisionmaking side kvhile ad-
mkistration is the implementation side). We called the E1.zcycEaprdia '"-
krnational" because it contains extensive coverage of public policy and
administration cmcepts and practices from throughout the world.. In-
deed, public administration is increasingly m izzternatioalal discipline.
While the administrative systems of nation-states w ere once laqely self-
contained, today cross-fertiiization is the norm..T he natior~aml arketplace
of ideas herein policies and techniques once competed has been re-
placed by am international markclplace. Thus the Erzcyclopedia conti-liRs
articles on reinventing government in the United States, matcherism in
the United Kingdom, and the New Zealand model. T k r eform dis-
cussed in these articles (further elaborated upm by cmceptual articles on
devolution, mmagerialism, and market test-ing, mong others) have been
widely influential. mffercnt poliSical cultures, Xet alone diffe*g admjn-
istrative machinery, require differe~a~dtm inistrative solutions. Never&e-
less the compe:ilillg reason for students of public ahhistratim to be
fdya ware of the wealth of new management ideas a ~addm histrative
experiments happening in other states is not so much to be able to imitate
as to adapt.
In order to prok4ide a sense of the cultural differentiation of the world's
admiTlistrative regimes, many arljcles focus on the adrninjstrative tradi-
lions of a society-ior example, the Americm administrahe tradition,
the Geman administrative tradition, md the Islamic admhistrative tra-
dition. Other articles focus on unique adminisirathe institutions wiehir~a
state----fore xarrrple, the Ecole Natiox~aled fAdministratiol~in fiance, the
Federal Reserwe System in the United States, a d t he Prime Mhisterfs
Office in Canada. Extensive coverage is also given to the practices and in-
stitzlli,ons of the Ewpean Community; for exanzple di~ctivep, illariza-
tion, and subsidiarity
Finally "oclcause so much of the public's administration is cmducted
outside of kaditimal governmcnt burctaucracies, extenshe coverage has
been given to nongovernmental and nonprofit orgmization manage-
mcnt. Tl~ust,h ere arc major articles on fou~~dationvso, luntary actiox~,