PAR’s Social Equity Footprint

During the 75th anniversary of Public Administration Review (PAR), this article examines the social equity scholarship published in PAR from 1940 to 2013. Less than 5 percent of all articles published in PAR since its inception focus on social equity. The articles published in PAR are primarily concentrated within the areas of personnel and public policy. Very few articles were published in the areas of budgeting or ethics. While social equity scholarship published in PAR has made a valuable contribution to understanding the career inequities of women and minorities in the public sector, scholars and professionals need to more thoroughly examine the black box of agency practice and structural inequities to examine why they persist. The challenge for future social equity research in public administration is to examine broader dimensions of equity and to understand how social inequities in administration can be mitigated.     

Social Equity and Evidence: Insights from Local Government

This article examines the role of evidence‐based decision making in social equity, with a particular focus on local government. It offers an assessment of the past, present, and future of such efforts by engaging themes from Matias Valenzuela's article based on King County, Washington. King County is one of more than 70 local governments that are members of the Government Alliance on Race and Equity, a growing national network of governments using an evidence‐based approach to achieve racial equity. In general, previous social equity measures have focused largely on measuring the extent to which disparities exist. More recently, tools and resources have become available to assist local governments in designing and evaluating their approach and performance in reducing social inequities. Future evidence should include more standardized measures to benchmark success, provide comparative analysis, and better support the identification of best practices.     

Creating Public Value with Tax and Spending Policies: The View from Public Economics

According to the framework rooted in public economics, governments can create public value by focusing tax and spending policies on remedying market failures and addressing concerns about fairness embodied in a social welfare function. By pursuing optimal tax and spending policies, governments navigate the omnipresent trade‐offs between equity and efficiency. Of course, in practice, the process by which policies are adopted does not resemble the planner's problem in social choice theory. In addition, real fiscal policies do not look much like the recommendations that arise from the optimal tax literature. Governments operate in public choice environments that are not conducive to focused remedying of market failure, and they suffer from their own tendencies to fail to achieve their objectives. Nevertheless, many of the tools are in place to help the federal and state governments focus tax and spending in ways that can maximize public value.     

From Policy to Practice: From Ideas to Results,From Results to Trust

Few areas of public administration have been more discouraging, over a longer period of time, than the struggle to build public trust in government's work. However, new research suggests that public administrators can build trust by improving the results they produce for citizens. Practical, practicable steps can produce big improvements: improving government's focus on citizens' needs; engaging employees; focusing on fairness; and, especially, concentrating on the delivery of public services at the “retail” level. Citizens, research shows, can discriminate among levels of government, the administration of different programs in different functional areas, and the work of individual administrators. That provides strong hope for improving trust, in an era when too often government appears too untrustworthy.     

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.     

“The Color of Money” revisited: Racial lending patterns in Atlanta's neighborhoods

Abstract

In 1988, the Atlanta Journal‐Constitution published “The Color of Money,” an influential series examining mortgage redlining in Atlanta. The articles documented wide lending disparities between white and black neighborhoods of similar income levels. Given sweeping changes in housing finance since 1988, we seek to determine whether Atlanta's racial geographic disparities in mortgage lending have changed.

Analysis of 1992 to 1996 Home Mortgage Disclosure Act data reveals slight improvement. Atlanta's depository lenders made 4.2 times as many conventional home purchase loans per owner‐occupied unit to middle‐income white neighborhoods as they did to middle‐income black neighborhoods; a decade earlier, this ratio was 5.2. Nondepositories post lower ratios, particularly for Federal Housing Administration‐insured loans, but this market segment raises concerns because of potential abuses. By the indicator of most enduring theoretical and policy interest—conventional home purchase lending by depositories—the patterns that aroused concern a decade ago are still evident today.     

Why PAR?

Is the Public Administration Review still necessary? Some think that PAR, which debuted in 1940 as America's first and only generalist scholarly public administration journal, belongs to a bygone era of two‐cent postage stamps—a time of coal furnaces, steam radiators, and wood‐burning stoves, when language was crafted longhand or by manual typewriter; when a slide rule calculated most math problems; when a long‐distance telephone call was rare and expensive; when the entire Army, Navy, and State departments were housed within a single building in Washington, DC, the Old Executive Office Building next to the White House; when President Franklin D. Roosevelt communicated to Americans through fireside chats; and when many in the United States still worried about keeping their jobs in the aftermath of the Great Depression, fiercely favoring isolationism over foreign entanglements and strict racial segregation throughout the South.     

Evaluating Urban Public Schools: Parents,Teachers, and State Assessments

Among the most contentious questions in public administration is how the performance of public organizations should be evaluated, and nowhere is this issue more salient than in urban public schools. While significant attention has been devoted to studying administrative measures of public organizations, the views of citizens concerning performance have been widely criticized and are not frequently gathered by schools. How these assessments relate to each other is central to many questions in education policy (e.g., choice, equity) and has important implications for democracy, bureaucratic professionalism, and public performance. This debate can be viewed as focusing on the distinction between convergent validity and discriminant validity. Using data from New York City's public school system with a cross‐sectional time‐series approach, parent and teacher evaluations are compared to government records of schools’ characteristics and performance. The findings suggest that parents and teachers are able to conduct intelligent, meaningful evaluations of school quality.     

Topic Modeling the Research‐Practice Gap in Public Administration

The possible existence of a research‐practice gap is the topic of a long‐standing debate in the field of public administration. In this Viewpoint essay, the authors examine the agendas of scholars and practitioners using the topic modeling technique of computational social science. Topic modeling a content analysis of 35 topics identified in Public Administration Review and PA Times (3,796 articles) showed that just over 50 percent of topics were common to both groups, indicating shared interests. There were, however, topics that the two groups distinctly focused on. Moreover, scholars and practitioners attached significant differences to the weights allocated to the prominent topics in their writing. Taken together, these findings indicate that topic modeling can shed new light on the research‐practice gap in public administration.     

Bureaucratic discretion,social equity,and the administrative legitimacy dilemma: Complications of New Public Service

Bureaucratic discretion continues to be one of a public administrator's primary powers while at the same time being one of their most controversial. Used in a positive way, bureaucratic discretion can enhance social equity; however, this practice can create administrative legitimacy dilemmas. As such, this paper conceptually discusses the theoretical position of public administrators that contributes to their engagement in legitimacy dilemmas, which is further complicated by the tenets of New Public Service. We argue that if public administrators are engaged in authentic interactions with the public and use their discretion to reflect the interests of the public, then they are engaged in truly democratic governance. We place this argument in the context of achieving social equity and highlight an avoided question in public administration. Finally, recommendations for future research are offered as a means progressing the social equity agenda in public administration.     

Gender and the Personal Shaping of Public Administration in the United States: Mary Anderson and the Women's Bureau, 1920–1930

Scholars of public administration in the United States traditionally view the 1920s as a decade when the administrative orthodoxy, emphasizing efficiency and organizational structure, dominated the field. This viewpoint recently has been challenged by arguments that the social justice–oriented views of women progressives and the philosophy of pragmatism also influenced public administration. However, no one has examined how women public administrators implemented exceptions to the prevailing, masculine viewpoints of administrative objectivity and the strict dichotomy between politics and administration during the 1920s. Using Mary Anderson (1872–1964), the longtime director of the U.S. Department of Labor's Women's Bureau, as a case study, this article examines how her experiences as a woman worker and labor organizer influenced her advocacy of an alternative view of public administration, and how, from 1920 through 1930, she established the Women's Bureau within the prevailing orthodoxy yet also made the government agency a notable exception through its vigorous support of social justice feminism, particularly during and after the 1926 national Women's Industrial Conference.     

Exploring the Role of Nonprofits in Public Service Provision: Moving from Coproduction to Cogovernance

This article investigates the determinants of nonprofits' involvement in cogovernance, or the planning and design of public services, using a unique data set of park‐supporting nonprofit organizations in large U.S. cities. The results indicate that nonprofits are more likely to get involved in cogovernance when they are younger, larger, and operate in communities that are more resourceful and stable. In addition, the likelihood of nonprofits' involvement in cogovernance is negatively associated with the level of social capital and government capacity to provide corresponding public services. The article points to an emerging mode of government‐nonprofit collaboration that goes beyond the production and delivery of public services. As public managers face extensive challenges in sustaining the desired level of public services, these findings have important policy implications for efforts to promote citizen participation and cross‐sector solutions to complex social problems.     

A Call to Action—The Essential Role of Advocacy

Editor's Note: The Perspectives featured in this issue of Public Administration Review were adapted from May 2016 commencement addresses: Anna Maria Chavez, the CEO of the Girl Scouts of the USA, spoke on the 12th at Arizona State University's College of Public Service and Community Solutions; Nancy Pelosi, the Democratic Leader in the United States House of Representatives spoke on the 7th at New York University's Wagner School of Public Service; and Tommy Thompson, the former Governor of Wisconsin and Secretary of Health & Human Services, spoke on the 15th at the University of Wisconsin's La Follette School of Public Affairs. These Perspectives reaffirm the highest principles of American public administration: that by and large, government is NOT the problem, and quite often indeed holds the solution; that effective and helpful public policy depends on informed expert opinion and research; and that those who enter public service should do so with a commitment to the notion that America best fulfills its promise when we seek the well‐being of all people, including the least fortunate. We chose these messages from among a wealth of commencement speeches because while they come from leaders with quite different political views, background, and experience, taken together they offer a coherent and inspiring call to public service. Dan Feldman, Perspective and Commentary Editor     

Proverbs and the Evolution of Public Administration

Herbert Simon, in his 1946 essay “The Proverbs of Administration,” indicted public administration as having conflicting and contradictory theories and an absence of a knowledge base that could provide a guide to practice. Simon proposed that public administration define concepts, adopt efficiency as its objective, focus on the study of decision making, and construct models that could predict efficient results. This 75th‐anniversary article revisits Simon's essay in light of contemporary public administration. It examines the progress that has been made and what still needs to be accomplished, and it ends with a list of barriers to further progress.     

Women Police in Post‐Fitzgerald Queensland: A 20 Year Review

The Fitzgerald report was the catalyst for major reforms to Queensland's system of government and criminal justice, and included explicit recommendations related to women in policing. Reforms led to the removal of discriminatory barriers and significant improvements in the recruitment and promotion of women. However, these changes provoked a backlash in the 1990s that led to reductions in female recruitment. A return to less discriminatory policies eventually ensued, with steady improvements on key equity indicators. This paper provides a historical perspective on developments over the two decades since Fitzgerald, and includes a critical analysis of the implementation of contemporary equity and diversity strategies within the policing context. Recruitment of women police in Queensland has plateaued at one‐third and progress in the overall number of sworn women and women in management is slow. The paper concludes by emphasising the wider lessons for a more developed and proactive gender equity program in public sector employment and policing.     

FHA restructuring proposals: Alternatives and implications

Abstract

This article evaluates problems of the Federal Housing Administration (FHA) under its current structure, develops criteria for judging alternative structures, and suggests one alternative—an assigned risk pool—that encourages efficiency in the insurance function while still promoting low‐ and moderate‐income housing. A historical introduction explains how the current institutional relationships came about and created FHA's problems.

FHA's decline resulted from the mixing of a heavy social agenda with the basic insurance objective, a destructive reorganization of the Department of Housing and Urban Development that caused FHA to lose control and focus, and government's inherent inability to respond to market signals. Yet the economic rationale for government involvement in FHA functions is strong. An FHA organized as an independent government agency, a government‐sponsored enterprise, or even a privatized entity structured as an assigned risk pool could improve efficiency of underwriting, pricing, and administration while achieving the redistributional objectives.     

Valuing Public Value: Recognising and Applying Knowledge About the Governmental Process*

Rhodes and Wanna (2007) have criticised Moore's argument for ‘public value’ as an organising construct for public managers, claiming that it is confused, ill‐informed, ignores the central dynamic of political life, and demands that public managers become ‘Platonic guardians’, making it totally inappropriate for use in Australia. This article examines Moore's analysis and Rhodes and Wanna's critique, and explores the relevance for the argument of the complex nature of authority in Australian government, recent developments in the social science understanding of governing, and the experiential knowledge of practitioners. It cites the governing of the Murray‐Darling Basin as an example, and discusses the different discourses that academics and practitioners use in making sense of complexity in governing.     

Public affairs in China: exploring the role of brand fairness perceptions in the case of Mercedes‐Benz

Mr Sheng Wang demonstrated his perception of Mercedes‐Benz's unfair treatment and insensitivity to Chinese buyers by having his Mercedes sports coupe towed by a water buffalo through his Chinese hometown, Wuhan. But he did not stop there. Next, he ordered workers, specifically hired for this purpose, to pound the car with sledge hammers and sticks until the exterior was completely disfigured. Journalists love the story's inherent drama, and in subsequent days, media reports showed images of the car being towed and ultimately smashed. The event created strong public awareness about both Mr Wang's dissatisfaction about the treatment he received from Mercedes‐Benz and the subsequent Mercedes‐Benz's management reactions triggered by the event. In our paper, we explore this case in more detail, highlighting the crucial role of brand fairness in managing brands in China. Although brand managers implicitly emphasize the importance of fairness in branding strategies, brand management emphasizing fairness is an underdeveloped research concept. Our paper provides an understanding of theories and concepts of brand (un)fairness and brand fairness management illustrated by what we refer to as the Mercedes‐Benz case. We identify three dimensions of Brand Fairness Management: prevention, procedures, and outcomes. This framework will assist brand managers in China in developing successful brand fairness strategies and management programs. We posit that implementing these branding practices will increase the likelihood that consumers perceive the brand in question as fair, leading to an increase in loyalty and positive word‐of‐mouth. Copyright © 2013 John Wiley & Sons, Ltd.     

Controlling Administrative Discretion Promotes Social Equity? Evidence from a Natural Experiment

Although social equity has been a formal pillar of public administration for decades, identifying mechanisms through which public officials inadvertently reproduce unfair conditions remains a relevant topic. In particular, it is important to understand how the habits and practices of street‐level bureaucrats may result in an unjust allocation of public resources. This article provides evidence on how the administrative discretion conferred on school principals may result in an efficient but unfair condition regarding the allocation of students across schools, thus undermining social equity. By exploiting a natural experiment, we are able to provide reliable evidence on how controlling administrative discretion decreases the segregation of students based on their socioeconomic status.