Reconciling public administration and democracy: the role of the responsible administrator

This article considers whether the individual responsibilities of bureaucratic officials provide a useful means for reconciling the tension between democracy and bureaucracy. Three questions central to the proper definition of bureaucratic responsibility are examined: (1) What is the relation of bureaucratic responsibility to the view that proper bureaucratic conduct is essentially a matter of ethics and morality? (2) If the appeal to moral values does not ordinarily offer an acceptable guide to proper bureaucratic conduct, upon what principles does a theory of bureaucratic responsibility rest? (3) What issues arise in putting responsibility into practice within a complex organizational setting? The article concludes that a democratic, process-based conception offers the most useful way of thinking about the responsibilities of bureaucratic officials.

The tension between democracy and bureaucracy has bedeviled public administration. However one defines democracy, its core demand for responsiveness (to higher political authorities, the public, client groups, or whatever the presumed agent of democratic rule) does not neatly square with notions of effective organization of the policy process and efficient delivery of goods and services, which are central to the definition of bureaucracy. Responsiveness need not guarantee efficiency, while bureaucratic effectiveness and efficiency often belie democratic control.

This tension between democracy and bureaucracy persists, but that it is the individual administrator who directly experiences the tension is especially important as a guide toward a resolution of this conflict. Since divergence is central to this tension between democracy and bureaucracy, speculation about the responsibilities of bureaucratic officials—their individual places within the bureaucracy, particularly the administrator's thoughts, choices, and actions—provides fruitful terrain for resolving the question of bureaucracy's place within a democratic system of rule.

Three questions need to be addressed if one accepts the premise that individual responsibility is central to locating the place of bureaucracy in a democratic order. First, what is unique about bureaucratic responsibility, especially in contrast to the view that these are largely ethical problems that can be resolved by appeal to moral values? Second, if dilemmas of bureaucratic conduct are by and large not resolvable through appeal to moral values, upon what other principles does a theory of bureaucratic responsibility rest? Third, what issues arise in putting responsibility into practice, especially within a complex organizational setting? This list of questions is not meant to be exhaustive but only a starting point for discussion.     

Character ethics and public administration

Character ethics addresses the conditions, values, and ideas that give shape to our ways of life - to our character as a people. It has formed an integral part of political life and thought throughout history. It has, however, fallen to neglect during much of this century. We ignore it at our peril. A growing communitarian movement has renewed attention to character or “virtue” ethics in recent years, much of it focused on local, grassroots initiatives. This essay introduces the reader to some basic aspects of character ethics, and then presents an argument for its relevance to public administration. The argument focuses on the application of character ethics to organizational-economic arrangements and conditions which form a great part of the public administration's responsibilities. The organizational economy constitutes a vital foundation for shaping civic character. Since public administration influences the organizational economy, our ethical responsibilities should include continually examining practices in this arena for their general effects on our habits and dispositions as a people.

Is there no virtue among us? If there be not, we are in a wretched situation. No theoretical checks, no form of government, can render us secure. To suppose that any form of government will secure liberty or happiness without any virtue in the people is a chimerical idea.

James Madison⁽¹⁾     

The professional as public servant: the decision-making dilemma

Administrative decision-making is increasingly complicated today by conflicting responsibilities that pressure decision-makers in different directions. Public servants are responsible to the law, Congress, administrative superiors, the agencies in which they serve, and the public. Those public servants who are members of a profession, attempting to apply special expertise and knowledge to the solution of public problems, face a set of even more complex responsibilities, governed as they are by their own professional codes of conduct whose tenets must be melded with the other obligations of governmental decision-makers.

Conscientious governmental officials are likely to base their decisions on their responsibilities to the public, in light of moral and ethical criteria as well as professional standards (where applicable), while recognizing their accountability to their organizational superiors. Civil servants who are members of a profession frequently find themselves making extremely complex decisions for which they must accept the responsibility for the application of their professional ethics in the context of their many other obligations.

The decision-making task of professionals who are also civil servants is often, therefore, an especially difficult and painful one. Cases of deep moral conflict will occur as they try to resolve their conflicting responsibilities.     

“Two roads diverged in a yellow wood:” Public administration,the management orthodoxy,and civic humanism

Public administration is confronted with a dilemma: whether to follow the course of the management orthodoxy; or to follow the course of civic humanism. It is argued that the profession should follow the latter path. Democratic public administration must be informed by a civic idealism, centering on civic virtue, that insures that morality will be realized in action. Yet in recent years, public administration has become overly entranced with the orthodoxy of the management sciences. The profession's ties with the management sciences have proven to be practically advantageous, but, overall, the association has been negative. Public administration has begun to lose its soul: its sense of civic idealism. The management orthodoxy adopts a more positivist stance, because virtue will not yield to the dominant methodology and is, hence, considered to be unreliable. A civic humanist approach to public administration requires a rather exalted notion of human potential, and a conception of political service as something both necessary and unique. Thus, in a correctly ordered republic, a public administration, guided by civic humanism, would consider the promotion of virtue among all citizens as a primary responsibility.

The 19th century brought about the creation of the modern organization. The early organizationalists argued that society would no longer need to rely upon the unpredictable virtue of its leaders and citizens. Instead, through scientific administration, all societal needs could be assessed and met by organizations. That assumption, in a more sophisticated guise, has carried over to the present day. Thus, the primary responsibility of organizational leadership is to ensure organizational survival. Such leaders are not required to be individuals of virtue; they only need to be effective motivators and managers.

If this argument is accepted, then the question becomes one of how public administration can recover its soul. First, the core of the public administration curriculum must be a political philosophy centering upon civic humanism. Second, public management goals and techniques must be modified to promulgate civic virtue. Granted, these recommendations are overtly idealistic, but, then, public administration should be an idealistic profession.     

Organizational loyalty and personal ethics: The moral priorities of Chinese cadres

The ethical norms of senior cadres in the Peoples Republic of China are examined with respect to personal ethics, organizational loyalty and social responsibility. The extent to which one of these sets of norms may take priority over the other is investigated using survey research. The personal ethical values of the 46-50 age group are found to be unusually acute for a group of middle-aged administrators, much closer to those of the younger cadres. Also, they demonstrate exceptional homogeneity in their responses as compared to other age groups. However, they appear to have little independence of conscience when confronted with concrete decision making situations. Loyalty to the organization is found to be particularly dominant over personal ethics and responsibility to the larger society among these 46-50 year-old cadres. Lacking a moral anchor in any foundational philosophy or ideology, these cadres are highly vulnerable to control by the bureaucracies in which they are employed. Further research is suggested to explore the possibility that the Cultural Revolution of 1966-76 may have impacted this particular generation of cadres in ways that severed their ties to Marxism and traditional Chinese values rooted in Confucianism.     

Toward managerial artistry: Appreciating and designing organizations for the future

This article suggest that change be taken seriously; that we accept environmental change as ubiquitous, as more differentially defined perceptually. A classification of contextual changes is offered which, since it includes discontinuous change, goes beyond conventional thinking. For each type of contextual change the associated archetypical organizational forms and thematic managerial concerns and competencies are outlined. We suggest that organizations in the future should be configurations of forms because of multiple contextual circumstances, and that such configurations will require a mix of managerial competencies and the meta-competency be termed managerial artistry.

In general, the human mind is conservative. Long after an assumption is outmoded, people tend to apply it to novel situations. ---Daniel J. Isenberg

One should never underestimate the stimulation of eccentricity. ---Neil Simon, Biloxi Blues

Change is thematic in the contemporary literature on organizing and management. This literature is anything if not prolific about the management of change. Until quite recently, research and advice about the management of organizations has reflected an ideology of gradualism. Effective organizational change was seen to proceed by small, incremental adjustments. The environments of organizations was presumed to be stable or growing. Lately, supposedly having entered what Drucker⁽¹⁾ termed the “age of discontinuity,” organizational change is seen as requiring managers to choose between organizational extinction or immediate and radical transformation.⁽²⁾ These two theses, incrementalism and transformation, however, no doubt oversimplify the circumstances facing contemporary and future managers. A somewhat more refined and encompassing model of change and its concomitants is surely needed so that more appropriate organizations are created and more responsive managerial competencies are developed.

We will not detail either the nature or the extent of change in the modern world for this has been done by so many others.^(3,4,5,6,7) Everything is supposedly changing more or less--globally, nationally, industries and organizations, people, everything! And as if that weren’t enough, we also hear repeatedly that the absolute rate of change in our world is likewise increasing. Of course, reflecting all of this change, the tasks and responsibilities of managers everywhere are also changing. For many of us, the constant drum beat of change, change, change has a numbing quality and it becomes difficult to retain the idea of change in our minds. For others of us the change refrain proves overwhelming and we retreat to the relative comfort of simplifying images and slogans. A certain amount of loose metaphorical talk prevails about “catching and riding the wave of change”⁽⁸⁾ or about having to cope with conditions of “permanent whitewater”⁽⁹⁾ or even “thriving on chaos” .⁽¹⁰⁾ Somehow the presumptions of stability has jump-shifted to quantum, revolutionary change.

What if we took change seriously? What if we believed that managing change really was at the core of management? These are the aims of this essay. We will argue that the simple, bipolar conceptions of environmental change are inadequate; that the environmental conditions in which organizations find themselves discontinuous change, and that they are neither homogenous nor absolutely objectively real. We will also argue that management's proclivity to believe there is a one best way to manage, once we know what we are up against, is even more fallacious than before, and that there are new as well as old ways of bundling managing. To take change seriously thus promotes managerial artistry, those competencies of appreciation and design and facilitation of appropriately refined organizational forms. Managerial artistry thus brings proactive choice to the forefront as executive become more aware of the possibilities in organizational environments and their associated structures and competencies.

This essay will proceed in four sections. In the first we will sketch the range and nature of four alternative organizational environments. Second, we will outline the organizational designs associated with each type of environmental circumstance. The third section then examines designs and the managerial competencies and concerns that seem to be needed for each environmental alternative. Last we will comment on the implications of what has been outlined for the managerial artistry of the future.     

Black administrators and racial road blocks in public organizations: problems and recourse

Discussions in the representative bureaucracy literature have tacitly assigned the responsibility of representing the interests of blacks to individual black administrators. Relying on black employee groups (or solidarity groups) to represent the interests of blacks is ignored. The possibility that black members of organizations have a group interest to be represented is not considered in the literature.

Assigning there presentation responsibility to individual black administrators is rejected be cause of barriers that can be created by racial road blocks (to kenism and different perceptions of race relations). It is argued that solidarity groups are a more effective means of representing the interests of blacks. Assigning the responsibility to solidarity groups should: (1) neutralize the effects of racial road blocks; (2) limit individual representation activities and thus permit each black administrator to concentrate on job performance; and (3) shift the focus in there presentative bureaucracy literature away from the individual and start concentrating on the representation activities of solidarity groups.     

Reinforcing public responsibility? Influences and practices in street‐level bureaucrats' engagement in policy design

Previous literature demonstrates that when street‐level bureaucrats believe that the policy as designed is not desirable, they utilize various strategies to change the situation. This study suggests that when street‐level bureaucrats believe that fixing a policy through the manner in which it is implemented is not enough, they will try to influence the design of the policy directly. Three factors promote this decision: public perceptions revealed in their interactions with clients, professional ethical values and a supportive organizational environment. We test this argument using Israeli public social workers in the context of urban renewal. We discuss the problems and benefits of involving street‐level bureaucrats in policy design and view such actions as related to welfare reform and changes in the state's responsibility for its citizens. We maintain that in this changing environment, street‐level bureaucrats' involvement in policy design should be formally institutionalized.     

Public Administration Reform in Jordan: Concepts and Practices

ABSTRACT

This study reviews the transition of Jordan from a British colony to a modern independent state. It covers contextual attributes influencing the development of the administrative system such as centralization, demographic explosion, low economic growth, excessive reliance on patronage in recruitment for public positions, and corruption. These and other factors hinder administrative reform efforts. As case analysis illustrates, administrative decision making is non-institutional, regularly undermines the merit system, indifferent to accountability, and manifests a low commitment to professional ethics. The study emphasizes that administrative reform in Jordan needs to reconcile these obstacles and to advance skilled and ethical organizational leaders.     

Professional leadership in local government

Local public service professionals are experts who temper their use of expertise with public service ethics. Public service ethics differ from the ethical codes of most professions in that they stress external accountability. Ethical codes of private sector professions create a sense of responsibility to the profession and help undergird professional autonomy. Public service ethics emphasize public responsibility and help create public accountability. City and county managers show how public service ethics can help make experts accountable to the public.     

Executing priority national development in indonesia: Program innovation of the junior minister

In the process of Indonesia's administrative reform and conduct of its planned development efforts, several innovative measures evolved in its executive structure. One of these was the use of temporary organizational entities to expedite the achievement of development goals where sectors/programs of the national development plan encompass two or more executive agencies and/or levels of governments. In organizational design, the executive problem is the reconciliation between responsibility and authority with the purpose of achieving maximum technical efficiency in the execution of priority development programs. As an organizational device to deal with this problem, the offices of six junior ministers were established. By employing the technique of executive authority in rank, these ministers, heading temporary agencies organized in terms of program responsibility as specified in the development plan and as approved by the cabinet, have become the organizational means by which to integrate all of the disparate project activities vested in the executive line agencies in productive organizational cores. Should this organizational innovation prove successful, it will be one of the more important organizational contributions in recent years to the execution of centrally planned development programs in a developing society.     

The Enemy Within? The Connection between Insider Threat and Terrorism

ABSTRACT

While the threat from terrorism has gained widespread acknowledgment over the last decade, the infiltration of organizations by “terrorist” insiders has not, and the potential dangers these individuals present has not been fully explored. There is a need to understand the wider aspects of insider threats, including motivations and attack methodologies, and to be able to demonstrate the potential devastation that could be caused. Organizations can attempt to mitigate the potential for insider infiltration by both terrorist and other hostile actors, and if such individuals were within an organization, there are procedures and strategies that can be employed to prevent exploitation of existing organizational vulnerabilities and detection of insiders. This article provides an informed and new approach to the connection between insider threat and terrorism.     

Labor law as an impediment to labor relations reform: Leveling the playing field

The primary professional society of American public administration has developed a code of ethics that appears to be largely irrelevant to the realities of bureaucratic experience. An explanation of this paradox can be found in the sociological literature on the professions and code-writing. Professional codes are designed to reyulate the behavior of a profession's members, but this is generally seen as a secondary aspect of a more fundamental objective: the need to assure the public at large that the profession's power is being exercised responsibly. From this perspective, the public administration code can be interpreted first as part of an attempt to legitimate the profession in the face of hostile challenges to its authority, and second as an effort to engender ethical behavior. Such an interpretation helps to explain the profession's failure to confront the organizational and political barriers that impede effective implementation of the code. The paper concludes with an observation on the implications of the argument for the further development of ethics in public administration.     

TAKING THE ‘HIGH ROAD’: DOES PUBLIC SERVICE MOTIVATION ALTER ETHICAL DECISION MAKING PROCESSES?

Although public administration scholars have long been interested in promoting administrative ethics, recent lapses in judgment by government employees make the study of ethics even more pressing. Yet, we know relatively little about how public values and publicly oriented motives influence the ethical obligations employees reference when confronting organizational problems. We employ Perry's (2000) process model of public service motivation to connect public values, public service motivation, and employees' understanding of their ethical obligations. Using data collected from over 1,400 managers in United States municipal governments, we present findings that suggest that public service motivation appears to be positively correlated with ethical obligations rooted in virtue and integrity, or high road ethics, for less professionalized employees. Further, broader constellations of public values encourage increased application of high road ethics for the same employees, but only to the extent that they foster public service motivation.     

How Much Is Really Known About the Meaning of the Term “Conflict of Interest”?

Often codes of ethics require dealing with conflict of interest (CoI) without defining the boundaries of the phenomenon. In this case, CoI recognition is left to the discretion of the individual. The aim of this work is to answer to the following research questions: How much is really known about the meaning of the term CoI? Do individuals share the same CoI definition? In order to address these questions, we use the results of a questionnaire administered to 86 Italian public sector employees during some training courses on conflict of interest and corruption. The choice of this sample is particularly significant in that the Italian regulation provides for all public employees a code of conduct that requests avoiding, or at least disclosing, the CoI without prior definition of the meaning of the term. The results of our analysis show that public employees are uncertain about or come to different considerations of what CoI is and is not; consequently they deal with it in different ways. Thus, codes of conduct and ethics trainers should direct more attention on CoI definition, providing examples to facilitate its identification and resolution.     

Rationality,Culture, and Structure in the Making of Suicide Bombers: A Preliminary Theoretical Synthesis and Illustrative Case Study

Suicidal violence involves three levels of analysis: individual motivations, organizational strategies, and societal conflicts. Using rationalist, culturalist, and structuralist approaches to contentious politics, this article explores the intersection of rationality, norms, and conflict in the making of extreme violence. The case of Palestinian suicide bombers demonstrates the interdependence of the three approaches to explaining suicidal violence. For individuals, self-sacrifice is conceived as an act of personal redemption rooted in religious morality and national salvation. For organizations, human bombs provide strategic advantages in the context of asymmetrical warfare. For collectivities, martyrs are venerated when three conditions converge: (1) cultural norms encompass symbolic narratives that honor martyrdom; (2) legitimate authorities acquiesce to extreme violence; and (3) conflicts generate feelings of victimization and threat by external enemies.     

ETHICAL CLIMATE AND RULE BENDING: HOW ORGANIZATIONAL NORMS CONTRIBUTE TO UNINTENDED RULE CONSEQUENCES

Rules help ensure consistent employee behaviour, yet rule bending occurs in public organizations every day. Previous research indicates that rule bending is influenced by organizational structure and personal characteristics (DeHart‐Davis 2007). This present study considers the influence of organizational norms on rule bending by exploring the impact of ethical climate, which signals to employees the best course of action when faced with situations that are ethical in nature (Victor and Cullen 1987, 1988). To investigate this relationship, survey data from employees of a large American local government are analysed. Results from a structural equation model show that three ethical climates – ‘organization interest’, ‘team interest’, and ‘rules/SOP’ – significantly influence rule bending. Findings suggest that organizational norms play a critical role for employee behaviour and public managers can consider rule bending and ethical climate as impetuses for organizational change.     

THE VISIBLE HAND OF THE STATE: ON THE ORGANIZATIONAL DEVELOPMENT OF INTEREST GROUPS

To understand dynamics within communities of organized interests, researchers have primarily studied organizational births and deaths. The organizational development of established interest organizations has received far less attention. This article claims that the evolution of interest groups' organizational features is strongly affected by evolving resource dependencies with the state. A life‐history case study of an environmental interest organization is used to substantiate this argument empirically. The findings demonstrate that resource dependence relations with state actors critically shape organizational development, but that this dependence affects an organization's mission, structure, and strategy in different ways. This conclusion highlights the vital role of government patronage in the survival and maintenance of interest organizations.     

MPA as management education

The central theme of this article is that we have not adequately addressed the question of teaching management. The academic community has done a better job of preparing persons for technical/professional positions in personnel, budgeting and policy analysis. This failure to address the problem of teaching management leaves students (particularly mid-career students) without a foundation for understanding their role as managers. Given that so many MPA students aspire to be managers, it is time we faced this failure and sought means to correct it.

The article suggests a framework to understand and promote public management education. The central argument is to direct management education toward those factors which reflect the public values which underlie the concept of governance. Toward that end public management education must reflect three elements:

1) the political and ethical foundations of publicness,

2) the examination of the practice of management in public organizations, and

3) the skills needed to accomplish the task of management.

An MPA program should reflect all three of these elements if it is to provide an adequate management education. Nevertheless, it must also be recognized that career-long learning is the ultimate goal. Further, management education is but one task of an MPA program. The development of technical competencies in the other aspects of government, such as in budgeting and policy analysis are similarly important goals for MPA programs. A curriculum that accommodates both the management skills and technical competencies needs of students should be our goal.     

INITIATING AN UNDERGRADUATE COURSE IN APPLIED ETHICS

ABSTRACT

This article describes an experimental course in undergraduate applied ethics at the University of Arizona. The course had a dual emphasis of individual moral reasoning and organizational strategies to encourage honesty. The moral reasoning section concentrated on the difference between teleological and deontological thinking. The organization part of the course used Cooper's 4-part typology of individual attributes, external structure, organizational culture and societal expectations. The course was well received by the students and one of the group projects made specific, creative recommendations for the next iteration of the course. Another group proposed an Honor Pledge for the students and faculty of the School of Public Administration and Policy. In all, the pedagogical style of facilitator was found to be most helpful by the instructor.