Part One:Paradigms of Public Administration 1
Chapter1 Big Democracy,Big Bureaucracy 4
Constraint:The Context and Tradition of Public Administration in the United States 4
Attenuations:The Legacy of Limited Public Administration 7
Government,Public Leaders,and Public Trust 11
Bureaucrats:Image and Reality 13
Revolt and Resistance:Americans and Governmental Growth 14
Why Bureaucracy? 15
Explaining Things 16
Power:The Gray Eminence of the Public Administrator 17
Chapter 2 Public Administration's Century in a Quandary 29
The Beginning 29
Paradigm 1:The Politics/Administration Dichotomy,1900-1926 30
Paradigm 2:The Principles of Administration,1927-1937 32
The Challenge,1938-1950 34
Reaction to the Challenge,1947-1950 36
Paradigm 3:Public Administration as Political Science,1950-1970 37
The Impact of Political Science:Bureaucracy in the Service of Democracy 40
Paradigm 4:Public Administration as Management,1956-1970 41
The Impact of Management:Understanding the“Public”in Public Administration 42
The Forces of Separatism,1965-1970 45
Public Administration as Neither Management Nor Political Science 46
Paradigm 5:Public Administration as Public Administration:1970-? 48
Governance:Toward a New Paradigm? 49
Part Two:Public Organizations 57
Chapter 3 The Threads of Organizations:Theories 58
Models,Definitions,and Organizations 58
The Closed Model of Organizations 59
The Open Model of Organizations 62
The Closed and Open Models:The Essential Differences 69
Closed or Open Organizations? 70
The Literature of Model Synthesis 74
Are Public Organizations Different? 76
Chapter 4 The Fabric of Organizations:Forces 79
Society and the Assessment of Organizations 80
Information and Intelligence in Organizations 82
Information,Intelligence,Organizations,and Four Dead Horses 84
Decision Making in Organizations 87
Administration in Organizations 92
Control,Power,and Authority in Organizations 95
Society and Change in Organizations 100
Chapter 5 The Fibers of Organizations:People 115
What Can Organizations Do to You? 115
Administrative Humanity:Classicism,Social Psychology,and Public Administration 116
Models of Adult Development 120
Models of Cultural Behavior 122
Models of Political Behavior 125
Culture and the Bureaucrat 126
Darwinism and the Organizational Personality 129
Leadership in Organizations 130
The Evolution of Leadership Theory:Defining Leadership for the Times 134
Leading the Public Organization 140
Part Three:Public Management 147
Chapter 6 Clarifying Complexity:Problems of Public Management 150
Clarifying Systems of Public Management 150
Clarifying Public Costs and Benefits 152
Clarifying Public Information 155
Society and the Information Resource 155
Clarifying Public Decisions 161
The Information Resource and the Future ofGovernance 165
Chapter 7 Corruption's Consequences:Performance Measurement,Public Program Evaluation,and Productivity 170
Definitions:Naming Things What They Are 170
Efficiency for Good Government,1900-1940 171
Budgeting to Control Costs,1940-1970 173
Managing for Efficiency and Effectiveness,1970-1980 174
Privatizing for Less Government,1981-1992 175
Waste,Fraud,and Abuse:The New Meaning of Corruption,1975-Present 177
A New Public Management,1992-Present 179
The Old Origins of the New Public Management 180
The Place of Performance Measurement 184
The Practice of Performance Measurement 186
Public Program Evaluation 191
The Place ofPublic Program Evaluation 192
Permutations of Public Program Evaluation 193
The Practice of Public Program Evaluation 196
Using Public Program Evaluations 199
Two Productive Innovations 201
Chapter 8 The Public Budget:Purposes and Processes 214
Line-Item Budgeting,1921-1939 216
Performance Budgeting,1940-1964 217
Planning-Programming-Budgeting,1965-1971 218
Management by Objectives,1972-1977 221
Zero-Base Budgeting,1 977-1980 222
Sunset,Sunrise:Sunset Legislation in the States,1 976-1981 224
The Emergence of the Uncontrollables,1980-Present 224
Target-Base Budgeting,1980-1992 225
A Founder on Deficits 226
The Legacies of Target-Base Budgeting 229
Cutback Management:Responding to the Reality of Red Ink 232
Budgeting for Results,1993-Present 235
Building Budgets:Strategies and Tactics 237
The Process:Congress and Budget Making 239
Chapter 9 Managing Hman Resources in the Public Sector 250
The Evolution of American Public Human Resource Management 250
The Civil Service System:The Meaning of Merit 255
The Collective System:Blue-Collar Bureaucrats 264
Riffed 265
The Political Executive System:Politics in Administration 270
The Professional Career System:The Person over the Position 273
The Professional Public Administration System:Embracing the Professions of Politics and Management 274
Race,Sex,and Jobs:The Challenge of Affirmative Action 276
Does Public Human Resource Management Have a Future? 290
Part Four:Implementing Public Policy 303
Chapter 10 Understanding Public Policy 305
Public Policy Analysis:A Brief History 305
Political Science,Public Administration,and Policy Analysis 306
The Incrementalist Paradigm of Public Policymaking and Implementation 307
The Rationalist Paradigm of Public Policymaking and Implementation 314
The Problems of the Paradigms 320
The Strategic Planning Paradigm of Public Policymaking and Implementation 321
Strategic Planning:The Public Experience 322
Truly Universal Strategic Planning 326
Chapter 11 Intersectoral Administration 331
Why Collaborate? 331
An American Orthodoxy:Business Is Better 333
The Privatization of Federal Policy:Public Programs and Private Profit Seekers 334
The Process of Privatization:Integration,Operation,and Separation 336
Is Business Better?Obscure Answers from Washington 339
Contractingin Corruption:A Capital Case 341
The New Privatization:The Federal Procurement Reforms 341
The Beltway Bandits:Service Contracting and the Curious Question of Consultants 342
Privatizing in the States 344
Privatizing by Local Governments 345
To Privatize or Not to Privatize:Local Pressure and Public Programs 346
Local Contracting:Management and Cost 347
Cuning Costs:Companies or Competition? 349
Practical Privatization:Lessons Learned 350
The Public Authority 350
“Whoops” 356
The Independent Sector:Experiences in Interdependence 360
Implementation by Individuals:Volunteers and Vouchers 365
Chapter 12 Intergovernmental Administration 379
Thousands and Thousands of Governments 379
The Constitution and the Courts:Setting the Rules 380
The Evolution of Intergovernmental Administration 381
Fiscal Fcderalism 385
Money and Mandates:Federal Instruments of Implementation 387
Sorting Out Federalism:Fruitful or Futile? 391
Federalism among Equals:The States 392
Intergovemmental Administration:The State and Local Perspective 393
A Load ofLocal Government:Definitions,Scope,Functions,Revenue Sources,and Forms of Government for Counties,Municipalities,Townships,School Districts,and Special Districts 396
Regionalism in the States:The Odd American Experience with Intergovernmental Planning 404
Intedocal Cooperation:Creeping Regionalism 406
Place,People,and Power:The Puzzle of Metropolitan Governance 408
Chapter13 Toward a Bureaucratic Ethic 426
The Rise of Public Sector Ethics 426
Practicing Ethical Public Administration 427
Deeper Currents:Bureaucracy and the Public Interest 429
Ethic Orange 430
Justice as Fairness:AView ofthe Public Interest 438
Intuitionism,Perfectionism,and Utilitarianism 438
Applying the Justice-as-Fairness Theory 440
The Passion of Public Administration 442
Appendix A:Information Sources,Journals,and Organizations in Public Administration by Specialization 447
Budgeting and Finance 447
Criminal Justice 448
Ethics 448
Federal Government 448
Human Resource Management 449
Independent Sector 449
Information Resource Management 449
Intergovernmental Administration 449
Local Government 450
Minority Affairs 450
Nonprofit Sector(see Independent Sector) 450
Planning 450
Program Evaluation and Performance Measurement 450
State Government 451
Welfare,Health,and Public Safety 451
Appendix B:Annotated Information Sources in Public Administration and Related Fields 452
Appendix C:Selected Annotated Journals Relevant to Public Administration 455
Appendix D:Sdected Academic,Professional,and Public Interest Organizations with Websites and Descriptions 459
Appendix E:Correct Forms ofAddress for Public Officials 463
Appendix F:Becoming a Public Administrator 465
Careers in Public Administration:How Many Jobs,How Much Pay? 465
Preparing for a Position in Public Administration 466
Finding a Position in Public Administration 469
Sample Consolidated Résumé 470
Appendix G:American Society for Public Administration Code of Ethics 473
Name Index 475
Subject Index 477