‘Intelligence,Public Confidence and Security’

Richard Gid Powers, Secrecy and Power: The Life of J. Edgar Hoover (New York: The Free Press, 1987). Pp. 624; $27.95.

Jeffrey Richelson, American Espionage and the Soviet Target (New York: William Morrow, 1987).

John Keegan, The Mask of Command (New York; Viking Penguin 1987). Pp. 368; $18.95.

Major General Rygor Slowikowski, In the Secret Service: The Lighting of the Torch (London: The Windrush Press, 1988). Pp. 285; £16.95.

Alexandre de Marenches and Christine Ockrent, The Evil Empire: The Third World War Now (London: Sidgwick &; Jackson, 1988), Pp. 224, £13.95

Robert Marshall, All the King's Men (London: Collins, 1988). Pp.314; £12.95. Brendan M. Murphy, Turncoat (New York: Harcourt Brace Jovanovich, 1987). Pp. 301; $19.95.

Ray Godson (ed.), Comparing Foreign Intelligence: The U.S., the USSR, the U.K. and the Third World (New York: Pergamon Brasseys, 1988), Pp. 157; $18.95.

Stephen J. Cimbala (ed.). Intelligence and Intelligence Policy in a Democratic Society (Dobbs Ferry, New York: Transnational Publishers Inc., 1987). Pp. 262. $37.50.     

Whither Power in Public Administration? Attainment,Dissipation, and Loss

Norton Long's 1949 essay, “Power and Administration,” has a complicated legacy. First, analysis reveals both support for and important refinements of Long's arguments since the article's publication. Second, Long's claim has proven problematic that competition among agencies for power would bring more coordination and a cross‐agency sense of purpose to the federal government. Third, the bureaucratic pluralism that he explained and defended produced special interest biases that were off‐putting to large segments of citizens and thus helped create an unsupportive political environment for needed capacity building in the federal government. Fourth, by not considering how institutions “coevolve,” Long failed to warn that “horizontal power” building by individual agencies would provoke efforts by elected officials to enhance their control over bureaucracy in ways that, over time, diminished their collective sources of power. Finally, much remains to be done before what Long called a “realistic science of administration” incorporating the “budgeting of power” exists in public administration.     

Public housing,health, and health behaviors: Is there a connection?

This paper explores the relationship between public housing, health outcomes, and health behaviors among low-income housing residents. While public housing can be a dangerous and unhealthy environment in which to live, the subsidized rent may free up resources for nutritious food and health care. In addition, public housing may be of higher quality than the available alternatives, it may provide easier access to health clinics willing to serve the poor, and it may link residents to social support networks, which can improve mental health and the ability to access higher-quality grocery stores. To test whether there is a "back-door" health benefit to the public housing program, we analyze data from the Fragile Families and Child Wellbeing Study. We minimize the effects of selection into public housing with controls and instrumental variables estimation and find that the results are somewhat sensitive to the instrumental variable used, and thus, we conclude that we are unable to detect a robust health benefit from public housing for our measures of health. However, we do find some evidence that public housing residency has mixed effects on domestic violence, increases obesity, and worsens mothers' overall health status.     

‘Just Thinking:’ Attitude Development,Public Opinion,and Political Representation

The role of public opinion polls in electoral democracy is undeniable because, for good or for bad, they affect, in part, the kinds of laws and policies elected officials enact. But the voices measured in polls are not perfectly representative of their populations of interest. More precisely, polls generally sing with a more “knowledgeable” accent than those they represent because of the greater tendency of the less knowledgeable to remain silent. This distortion, however, can be palliated by providing conditions more propitious to attitude development. By relying on survey-experiments conducted in Brazil and in the U.S., I present evidence that inducing people to think more carefully before answering attitude questions reduces substantially the likelihood of the less knowledgeable, which compose most of the Brazilian and American populations, to express a nonopinion response. Thus providing people with greater opportunity to think about politics—something most of them do not do very frequently—makes for more representative measures of public opinion. But the analyses also suggest that increased thought induces greater uncertainty or ambivalence among the most knowledgeable. As a whole, this paper improves our understanding on how people come to develop political attitudes and on the conditions that lead to greater attitude uncertainty or ambivalence. It also carries important lessons and implications for survey design more generally.

Making a difference? Public perceptions of coalition,single-party,and minority governments

It is often argued that coalition governments are less likely to ‘make a difference’ than single-party governments. Because they are composed of multiple actors who need to agree to policy innovations, and because there are fewer personnel changes between successive coalition governments, coalitions are associated with fewer policy differences. From this it follows that public perceptions that governments should ‘make a difference’ will be weaker under coalition than single-party governments. The same logic applies to minority governments, which require support to pass legislation from opposition parties, and hence are less likely to deliver on their commitments. Using data from the Comparative Study of Electoral Systems, this paper tests these hypotheses. The expected effects, albeit small ones, are found for coalition governments, but only in old democracies.     

Public Services after Austerity: Zombies,Suez or Collaboration?

Public services—in the UK and elsewhere—are under considerable pressure, not just from austerity, but also from a variety of social, demographic and technological changes (in effect ‘austerity plus’). In this context, three broad options are open to policy‐makers: continue with tried‐and‐tested approaches while spending less money, which in the UK means a reliance on ‘New Public Management’ (NPM); withdraw completely from certain public services; or develop new approaches to public administration. We argue that all of these approaches have been attempted in recent years, but it is the final option that is most interesting and potentially the most beneficial. In this article, we examine experiments with these new approaches in responding to ‘austerity plus’. In particular, we examine various attempts at ‘collaboration’ in public services and discuss the risks associated with them. We conclude by setting out the extent to which policy‐makers have moved beyond NPM and suggesting some of the benefits that this could bring.     

Public subsidies and charitable giving: Crowding out,crowding in,or both?

Abstract Whether government subsidies to nonprofit organizations leverage (crowd in) private donations, or rather crowd them out has been actively debated for some time. A third hypothesis, explored theoretically and tested empirically in this paper, is that the two phenomena are actually not inconsistent with one another: At low levels of subsidies, government support may stimulate private giving, whereas at high levels it could have just the opposite effect. The model presented is based on this idea, which yields implications relevant to nonprofit management and public policy, and tests it with data on symphony orchestras. The conclusion is that the maximization of private donations and total “unearned” revenues are not compatible goals. Further, nonprofits that suffer from short‐term liquidity problems or managerial shortsightedness may face a “subsidy trap,” in which they are forced to rely on suboptimal levels of subsidies in terms of maximizing the firm's revenues. © 2000 by the Association for Public Policy Analysis and Management.     

Useful to whom? Public management research,social science,and the standpoint problem

Answering “Big Questions” in public management will require close connections to social science, in particular political science. Yet connections are impeded by the difference in standpoint from which these questions are regarded by public management researchers and political scientists. Changing to a citizen standpoint changes the Big Questions and pushes political science and PM research toward unification. It also makes research more useful—at least to citizens.     

What Triggers Public Opposition to Immigration? Anxiety,Group Cues,and Immigration Threat

We examine whether and how elite discourse shapes mass opinion and action on immigration policy. One popular but untested suspicion is that reactions to news about the costs of immigration depend upon who the immigrants are. We confirm this suspicion in a nationally representative experiment: news about the costs of immigration boosts white opposition far more when Latino immigrants, rather than European immigrants, are featured. We find these group cues influence opinion and political action by triggering emotions—in particular, anxiety—not simply by changing beliefs about the severity of the immigration problem. A second experiment replicates these findings but also confirms their sensitivity to the stereotypic consistency of group cues and their context. While these results echo recent insights about the power of anxiety, they also suggest the public is susceptible to error and manipulation when group cues trigger anxiety independently of the actual threat posed by the group.     

Repositioning American Public Administration? Citizen Estrangement,Administrative Reform,and the Disarticulated State

Levels of citizen estrangement from government in the United States have risen rather consistently since the late 1960s and have reached all‐time highs in recent years. Evidence is accumulating in political science research to suggest that public administrative theory may have contributed to this trend since the Progressive Era in the early 1900s. The authors develop this thesis by arguing that administrative theory in the United States has persistently portrayed public managers as “bridge builders” who link an expertise‐challenged citizenry to government in ways that emphasize bureaucratic over democratic administration. Moreover, despite claims of yet another “new” paradigmatic shift for the field, collaborative governance scholarship to date exhibits similar tendencies. To support this argument, the authors assess the common citizen‐marginalizing tendencies of three sets of administrative reforms in American public administration: the progressive, associationalist, and polycentric heritages. They offer counterarguments to this thesis and call for critical self‐reflection by the field and a more empirically robust research agenda on this topic.     

Market Orientation and Public Service Performance: New Public Management Gone Mad?

The backbone of theory of the market‐based approach New Public Management is that market orientation improves public service performance. In this article, market orientation is operationalized through the dominant theoretical framework in the business literature: competitor orientation, customer orientation, and interfunctional coordination. Market orientation is examined from the vantage point of three stakeholder groups in English local government: citizens, public servants, and the central government’s agent, the Audit Commission. Findings show that market orientation works best for enhancing citizen satisfaction with local services, but its impacts on the performance judgments of local managers or the Audit Commission are negligible. The conclusion discusses important implications of these findings for research, policy, and practice.     

Motivating Employees of the Public Sector: Does Public Service Motivation Matter?

ABSTRACT

This article analyzes if, and to what extent, the public service motivation (PSM) construct has an added value to explain work motivation in the public sector. In order to address the specificity of PSM when studying work motivation, the theoretical model underlying this empirical study compares PSM with two other explanatory factors: material incentives, such as performance-related pay, and team relations and support, such as recognition by superiors. This theoretical model is then tested with data collected in a national survey of 3,754 civil servants at the Swiss municipal level. Results of a structural equations model clearly show the relevance of PSM. They also provide evidence for the importance of socio-relational motivating factors, whereas material incentives play an anecdotal role.     

Introduction: The Transcripts of Peace: Public,Hidden or Non-obvious?

This piece introduces the special issue on everyday peace indicators. It considers the limitations of orthodox approaches to capturing and evaluating peace. Many of these approaches are top-down and reflect state-centric approaches. Alternatively they are focused on specific peacebuilding programmes and have little to say about the wider context in which peace is being built or obstructed. The lived-experience of conflict and war-to-peace transitions is often written out of accounts of peace and conflict. While recognizing that measuring peace is an inherently complex task, this introductory essay notes that there is little appetite among international organizations to reassess how they record and evaluate peace. In part, this is explained by the lucrative political economy of monitoring and evaluation. This special issue seeks to contribute to thinking about new agendas for evaluating peace.     

Does Organizational Image Matter? Image,Identification, and Employee Behaviors in Public and Nonprofit Organizations

Organizational image, identity, and identification are powerful concepts in terms of understanding members’ behaviors and beliefs. In particular, the term “image” has frequently been used to describe the overall impression of the organization, but most scholars have only focused on organizational image as it is perceived by external audiences. However, organizational image as perceived by members within an organization is critical for determining its impact on individual employees’ motivation, work behaviors, and further performance at work. This article explores the roles of organizational image and identification in explaining organizational behaviors—extra‐role behavior and absenteeism—in public and nonprofit organizations. A series of seemingly unrelated regressions were used to analyze survey data from 1,220 respondents. Results show that organizational image is positively related to employee identification, and identification has a significant influence on promoting extra‐role behavior and lowering employee absenteeism.

Practitioner Points

• Organizational image as perceived by members of an organization is an aggregate of individual employees’ perceptions of the organization based on their own experiences and judgments (perceived organizational identity) and outsiders’ judgments about the organization (construed external image).
• Both perceived organizational identity and construed external image influence the extent to which employees are likely to identify themselves as part of their organization.
• The higher an employee's level of identification, the more he or she is likely to engage in extra‐role behavior.
• Managing organizational image and identification in a positive way can significantly reduce costly voluntary employee absences, which are reasonably avoidable absences.

     

U.S. Tobacco Control: Public Health,Political Economy,or Morality Policy?

Tobacco control policy usually has been framed in terms of public health and political economy, but it also has been called a morality issue. Through a systematic historical analysis, this paper examines dimensions of morality policy and evaluates tobacco control in the United States for its fit with those characteristics. Moral concerns have been a part of tobacco control policy at certain times, first in the early twentieth century, and, more recently, since the mid‐1980s with the rise of “denormalization” of tobacco as a goal of some antitobacco organizations. Drawing from recent studies of other “morality” policy issues, it argues that tobacco control is a “blended” issue, one which can take on different dimensions depending on successful interest group framing. The adoption of Healthy Public Policy as a governmental goal has coincided with a movement toward a “secular morality” in the political culture, facilitating a broader appeal to the public.     

Public Participation and Environmental Policy: What Factors Shape State Agency's Public Participation Provisions?

Public participation is becoming increasingly common in environmental decision making. While researchers have focused on understanding why individuals get involved and the impact of their engagement, less is known about the forces that shape agency and legislative decision making regarding participation. This paper uses multinomial logistic regression to explore the determinants of public participation provisions in state hazardous waste programs over time. The results suggest that states with more liberal citizenry, higher levels of manufacturing, and urban areas are more likely to formalize the participation provisions in their hazardous waste programs. Comparatively, states with fewer Democratic representatives are more likely to informally engage in public participation procedures in their states programs.     

Adaptive Management for Oil and Gas Development on Public Lands: An Innovative Approach to Resource Protection,or Symbolic Placation of Public Interests?

Energy development on public lands in the intermountain west is often contentious due to concerns over detrimental impacts to wildlife. To mitigate harm to ungulates and other species, federal agencies often utilize adaptive management, a structured decision‐making framework predicated on “learning while doing.” But in the context of recent energy development, does adaptive management represent an innovative approach to conservation, or is it a largely symbolic policy used to contain the scope of conflict? This article, rooted in the agenda‐setting literature, applies Sarah Pralle's (2006) framework to strategies of conflict containment used by the Bureau of Land Management (BLM) and industry in three contentious energy development projects in Wyoming. The findings indicate that the BLM's use of adaptive management can be understood as a strategy for conflict containment, rather than as a substantive policy change in public lands oil and gas development.     

Does Targeted,Disease‐Specific Public Research Funding Influence Pharmaceutical Innovation?

Public funding for biomedical research is often justified as a means to encourage development of more (and better) treatments for disease. However, few studies have investigated the relationship between these expenditures and downstream pharmaceutical innovation. In particular, although recent analyses have shown a clear contribution of federally funded research to drug development, there exists little evidence to suggest that increasing targeted public research funding for any specific disease will result in increased development of drugs to treat that disease. This paper evaluates the impact of changes in the allocation of U. S. National Institutes of Health (NIH) extramural research grant funding across diseases on the number of drugs entering clinical testing to treat those diseases, using new longitudinal data on NIH extramural research grants awarded by disease for years 1975 through 2006. Results from a variety of distributed lag models indicate that a sustained 10 percent increase in targeted, disease-specific NIH funding yields approximately a 4. 5 percent increase in the number of related drugs entering clinical testing (phase I trials) after a lag of up to 12 years, reflecting the continuing influence of NIH funding on discovery and testing of new molecular entities. In contrast, we do not see evidence that increases in NIH extramural grant funding for research focused on specific diseases will increase the number of related treatments investigated in the more expensive, late-stage (phase III) trials.