Democracy, Bureaucracy, and the Study of Administration

533 Pages·2001·79.92 MB·English

by  Camilla Stivers

Democracy, Bureaucracy,
and the Study of Administration
ASPA CLASSICS
Conceived and sponsored by the American Society for Public Administra
tion (ASPA), the ASPA Classics series will publish volumes on topics that
have been, and continue to be, central to the contemporary development of
public administration. The ASPA Classics are intended for classroom use
and may be quite suitable for libraries and general reference collections.
Drawing from the Public Administration Review and other journals related
to the ASPA sections, each volume in the series is edited by a scholar who is
charged with presenting a thorough and balanced perspective on an endur
ing issue. These journals now represent some six decades of collective wis
dom. Yet, many of the writings collected in the ASPA Classics might not
otherwise easily come to the attention of future public managers. Given the
explosion in research and writing on all aspects of public administration in
recent decades, these ASPA Classics anthologies should point readers to de
finitive or groundbreaking authors whose voices should not be lost in the
cacophony of the newest administrative technique or invention.
Public servants carry out their responsibilities in a complex, multidimen
sional environment. The mission of ASPA Classics is to provide the reader
with a historical and firsthand view of the development of the topic at
hand. As such, each ASPA Classics volume presents the most enduring
scholarship, often in complete, or nearly complete, original form on the
given topic. Each volume will be devoted to a specific continuing concern
to the administration of all public sector programs. Early volumes in the
series address public sector performance, public service as commitment,
and diversity and affirmative action in public service. Future volumes will
include equally important dialogues on reinventing government and public
service ethics.
The volume editors are to be commended for volunteering for the sub
stantial task of compiling and editing these unique collections of articles
that might not otherwise be readily available to scholars, teachers, and stu
dents.
ASPA Gassics Editorial Board
Marc Holzer, Editor-in-Chief
Rutgers University, Campus at Newark
Walter Broadnax, University of Maryland
Beverly Cigler, Pennsylvania State University
Patricia Ingraham, Syracuse University
Richard C. Kearney, East Carolina University
Don Kettl, University of Wisconsin
Camilla Stivers, Cleveland State University
Books in This Series
Democracy, Bureaucracy, and the Study of Administration,
ed. by Camilla Stivers
Performance Based Budgeting,
ed. by Gerald J. Miller, W. Bartley Hildreth, and Jack Rabin
Public Sector Performance: Management, Motivation, and
Measurement, ed. by Richard C. Kearney and Evan M. Herman
Diversity and Affirmative Action in the Public Service,
ed. by Walter D. Broadnax
Public Service: Callings, Commitments and Constraints,
ed. by Marc Holzer
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Democracy,
Bureaucracy,
and
the Study of
Administration
edited by
Camilla Stivers
Cleveland State University
^JXfestview
l • Mill
^*-- A Member of the Perseus Books Group
ASI'A Classics series
All rights reserved. Printed in the United States of America. No part of this publication may
be reproduced or transmitted in any form or by any means, electronic or mechanical, includ
ing photocopy, recording, or any information storage and retrieval system, without permis
sion in writing from the publisher.
Copyright © 2001 by Westview Press, A Member of the Perseus Books Group
Published in 2001 in the United States of America by Westview Press, 5500 Central Avenue,
Boulder, Colorado 80301-2877, and in the United Kingdom by Westview Press, 12 Hid's
Copse Road, Cumnor Hill, Oxford OX2 9JJ
Find us on die World Wide Web at www.westviewpress.com
Library of Congress Cataloging-in-Publkation Data
Democracy, bureaucracy, and the study of administration / edited by Camilla Stivers.
p. cm. — (ASPA classics)
ISBN 0-8133-9809-6
1. Public administration. 2. Bureaucracy. 3. Democracy. 1. Stivers, Camilla.
II. Series.
JF1351.D447 2000
351—dc2l
00-05-357
The paper used in this publication meets the requirements of the American National Standard
for Permanence of Paper for Printed Library Materials Z39.48-1984.
10 9 8 7 6 5 4 32
PERSEUS
POD
ON DEMAND
CONTENTS
List of Tables x
Introduction xi
Part One
Politics and Administration 1
1 Political Ends and Administrative Means,
David M. Levitan (1943) 4
2 The American Bureaucrat: A History of a Sheep in
Wolves' Clothing, Barry D. Karl (1987) 14
Part Two
The Study of Administration 33
3 The Proverbs of Administration, Herbert A. Simon (1946) 38
4 The Science of Public Administration: Three Problems,
Robert A. Dahl (1947) 60
5 Public Administration and Business Management,
L. Urwick (1957) 77
6 Stories Managers Tell: Why They Are as Valid as
Science, Ralph P. Hummel (1991) 87
7 Grout: Alternative Kinds of Knowledge and Why
They Are Ignored, Mary R. Schmidt (1993) 110
8 Public Management: Should It Strive to be Art,
Science, or Engineering? Robert Behn (1996) 123
Vlll Contents
Part Three
Responsibility, Accountability, Responsiveness 159
9 Gauging Administrative Responsibility,
Arthur A. Maass and Laurence I. Radway (1959) 163
10 Accountability in the Public Sector: Lessons
from the Challenger Tragedy, Barbara S, Romzek
and Melvin J. Dubnick (1987) 182
11 Responsiveness and Neutral Competence in
American Bureaucracy, Francis E, Rourke (1992) 205
12 The Listening Bureaucrat: Responsiveness in
Public Administration, Camilla Stivers (1994) 222
Part Four
Citizens and the Administrative State 235
13 Maximum Feasible Manipulation,
Sherry R. Arnstein (1973) 239
14 Citizenship and Professionalism in Public Administration,
Terry L. Cooper (1984) 266
15 Citizenship and Service Delivery: The Promise of
Coproduction, Charles H. Levine (1984) 280
16 The Question of Participation: Toward Authentic
Public Participation in Public Administration,
Cheryl Simrell King, Kathryn M. Feltey, and
Bridget O'Neill Susel (1998) 301
Part Five
Professionalism in Public Administration 325
17 The Mind of the Career Man, Fritz Morstein Marx (1960) 328
18 Professionalism and Bureaucratic Responsiveness:
Conflict or Compatibility? Richard C. Kearney
and Chandan Sinha (1988) 337
Contents IX
19 Public Administration and the Paradox of
Professionalization, Beverly A. Cigler (1990) 355
Part Six
Bureaucracy 393
20 The Dialectical Organization: An Alternative
to Bureaucracy, Orion R White, Jr. (1969) 396
21 The Coming Death of Administrative Man,
R obert B. Denhardt and Jan Perkins (1976) 413
22 A Bureaucratic-Centered Image of Governance:
The Founders' Thought in Modern Perspective,
David Lowery (1993) 424
Part Seven
Leadership 451
23 Authority in Organizations, Robert V. Presthus (1960) 454
24 The Existentialist Executive, Anders Richter (1970) 464
25 The Management of Social Transformation,
David C. Korten (\981) 476
26 Leadership: Arranging the Chairs—Reflections
on the Lessons of Neely Gardner,
Camille Gates Barnett (1992) 498
Editor's References 506
About the Editor 507
Index 509