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Public Values and Public Interest: Counterbalancing Economic Individualism (Public Management and Change) PDF

223 Pages·2007·0.76 MB·English
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PUBLIC VALUES AND PUBLIC INTEREST Public Management and Change Series Beryl A. Radin, Series Editor EDITORIAL BOARD Robert Agranoff Michael Barzelay Ann O’M. Bowman H. George Frederickson William Gormley Rosemary O’Leary Norma Riccucci David H. Rosenbloom TITLES IN THE SERIES Challenging the Performance Movement: Accountability, Complexity, and Democratic Values Beryl A. Radin Charitable Choice at Work: Evaluating Faith-Based Job Programs in the States Sheila Suess Kennedy and Wolfgang Bielefeld The Greening of the U.S. Military: Environmental Policy, National Security, and Organizational Change Robert F. Durant How Management Matters: Street-Level Bureaucrats and Welfare Reform Norma M. Riccucci Managing within Networks: Adding Value to Public Organizations Robert Agranoff Measuring the Performance of the Hollow State David G. Frederickson and H. George Frederickson Public Values and Public Interest: Counterbalancing Economic Individualism Barry Bozeman Revisiting Waldo's Administrative State: Constancy and Change in Public Administration David H. Rosenbloom and Howard E. McCurdy PUBLIC VALUES AND PUBLIC INTEREST COUNTERBALANCING ECONOMIC INDIVIDUALISM BARRY BOZEMAN Georgetown University Press Washington, D.C. Georgetown University Press, Washington, D.C. www.press.georgetown.edu © 2007 by Georgetown University Press. All rights reserved. No part of this book may be repro- duced or utilized in any form or by any means, electronic or mechanical, including photocopy- ing and recording, or by any information storage and retrieval system, without permission in writing from the publisher. Library of Congress Cataloging-in-Publication Data Bozeman, Barry. Public values and public interest : counterbalancing economic individualism / Barry Bozeman. p. cm. — (Public management and change series) Includes bibliographical references and index. ISBN 978-1-58901-177-9 (alk. paper) 1. Public interest—Economic aspects. 2. Common good—Economic aspects. 3. Public administration. I. Title. JC330.15.B68 2007 351.01—dc22 2007007015 ∞This book is printed on acid-free paper meeting the requirements of the American National Standard for Permanence in Paper for Printed Library Materials. 14 13 12 11 10 09 08 07 9 8 7 6 5 4 3 2 First printing Printed in the United States of America I dedicate this book to the public administration and public policy students and practitioners who I have been privileged to teach and from whom I have been privileged to learn. CONTENTS Illustrations viii Acknowledgments ix Chapter One The Privatization of Public Value 1 Chapter Two Economic Individualism and the “Publicness” of Policies:Cases and Controversies 22 Chapter Three Economic Individualism in Public Policy 47 Chapter Four Economic Individualism in Public Management 68 Chapter Five Public Interest Theory and Its Problems 83 Chapter Six Toward a Pragmatic Public Interest Theory 100 Chapter Seven Values,Value Theory,and Collective Action 113 Chapter Eight Public Values 132 Chapter Nine Public Value Mapping:The Case of Genetically Modified Foods and the “Terminator Gene” 159 Chapter Ten Managing Publicness 175 References 187 Index 207 vii ILLUSTRATIONS Tables 1.1 Definitions of Public Concepts 17 4.1 New Public Management Traits, Emergent and Developed 78 4.2 Contradictions and Trade-offs in Public Management Reform 80 5.1 The Public Interest as Market Value 96 7.1 Characteristics of Values Discourse and Practice 116 7.2 Values: A Summary of Assumptions 117 8.1 Elicited Public Values, by Category 140 8.2 Values Profile for Danish Civil Servants 143 8.3 Public Value Mapping Model 145 10.1 Emergent Characteristics of NPM versus Managing Publicness 184 10.2 Comparing Developed Characteristics of NPM and Managing Publicness 185 Figures 8.1 Public Value Mapping Grid 157 9.1 Public Value Mapping Grid for GURT and Illustrative Science Policies 172 9.2 Public Value Mapping Grid Projecting GURT Outcomes 173 viii ACKNOWLEDGMENTS My thanks begin with Monica Gaughan. As faculty colleague, spouse, and critic, Monica contributed with heart and mind, inspiring me with her ideas, courage, integrity, and, most of all, her unique brand of outrageousness. Two individuals who contributed a great deal to the book are designated as chapter coauthors. Mary Feeney (University of Georgia) has been working with me for several years on various aspects of the public values agenda and wrote much of chapter 2. In addition, she read the entire manuscript and of- fered valuable criticism, and she provided research assistance for the book. Ben Minteer (Arizona State University) is perhaps the world’s premier scholar of John Dewey’s philosophy as it pertains to public interest theory and envi- ronmental ethics. He helped shape the book and is a coauthor of chapter 4. Torben Beck Jorgensen (University of Copenhagen) has served as an in- formal consultant, confidante, and critic. He read a complete first draft of the manuscript and provided excellent advice that led to many improvements. Researchers at the Consortium for Science, Policy and Outcomes (CSPO), now centered at Arizona State University, have been instrumental in many ways, providing support, encouragement, and collaboration. I am particularly grateful to CSPO stalwarts Michael Crow, Daniel Sarewitz, and David Guston. Three of my colleagues at Georgia Institute of Technology, my faculty home during most of the time I was writing this book, have been extremely helpful. Thanks to Bryan Norton, Gordon Kingsley, and Juan Rogers. They lis- tened patiently as I struggled to develop rough ideas and provided many use- ful suggestions. At my current academic home, University of Georgia, my colleague Hal Rainey provided his usual excellent advice and criticism. He read the entire first draft of the manuscript and provided excellent ideas for revision. Our decades- long dialogue about “publicness” has greatly influenced my thinking and, just as important, encouraged me to keep working on this endlessly fascinating topic. George Frederickson read and commented on the draft manuscript, and his ef- forts have helped me produce a book that is much better than it would have been without his advice. I have also been greatly influenced by reading the ex- cellent body of theory and research he has produced on topics pertaining to cit- izenship, community, and public interest. Finally, I am grateful to the highly competent, professional, and congenial staff at Georgetown University Press, especially Gail Grella. ix CHAPTER ONE THE PRIVATIZATION PUBLIC VALUE OF It is in vain to say that enlightened statesmen will be able to adjust these clashing interests,and render them all subservient to the public good. —JAMESMADISON,The Federalist No. 10 No deliberation of politics and political theory claims a more venerable heritage than the dialogues on the existence, nature, and requirements of the “public interest” or the “common good.” In Aristotle’s Politics, the “com- mon interest” (to koinei sympheron) is the rationale for proper constitutions; St. Thomas Aquinas in Summa Theologiae identifies the common good (bonum commune) as the worthy goal of government; Locke’s Second Trea- tise of Government declares that “the peace, safety, and public good of the people” are the transcendent political purposes. We need not go back hundreds of years to find interest in public interest theory. In the early years of the twentieth century, many prominent political scientists paid homage to the idea of the public interest. Pendleton Herring’s (1936) reconciliation theory was premised on public managers’ ability to di- vine the common good; Emmette Redford (1954) viewed the public interest as the key to effective regulatory administration; Phillip Monypenny (1953) anchored his public administration ethical code in a concept of the public in- terest. Even the foundation stone of American public administration, Woodrow Wilson’s (1955) Study of Administration, originally published in 1887, set its famous politics/administration dichotomy in a concept of the collective good (Rutgers 1997). Nowadays, many sophisticates’ reaction to public interest appeals is much the same as nonbelievers’ responses to discussions of God and the afterlife: nervous embarrassment tempered by a faint hope for some alternative to the void. How did this happen? The reasons for a decline in public interest argu- ment and theorizing are many and varied. Social and academic fashion seems to have played a role. The development of quantitative social sciences and its inexhaustible demand for empirical evidence lessened our patience for topics 1

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Economic individualism and market-based values dominate today's policymaking and public management circles - often at the expense of the common good. In his new book, Barry Bozeman demonstrates the continuing need for public interest theory in government. "Public Values and Public Interest" offers a
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