Education and training in public administration: transference of segmenting organizational behavior

Organizations can survive, let alone progress, only if they carry out meaningful transactions with society at large. This process requires they differentiate their “organizational being” to respond to clientele needs and/or user demands. The inherent problem is that these differentiated structures may become segmented into tightly closed systems, being in effect organizations within organization characterized by self-serving vested interests. Expediency becomes the operating rule. Segmentation is common to all societies, but it is especially prevalent in situations of decline.

Advanced in this discussion is that the segmentation process may be accelerated and consolidated by in-house training and education, and especially by those of a public management character. A plea is made for universities to become more actively engaged in (a) the preparation and placement of “quality” educated persons and (b) the search/development of new public organization.     

Information technology and education for the public service

Nation-wide surveys of graduate programs in public administration/affairs support assertions by critics that most programs do not provide students with adequate preparation for coping with information technology. This paper identifies the computer-related knowledge and skills demanded by the contemporary administrative workplace and, after analyzing the sufficiency of current curricula offerings, proposes three goals for education in the use and management of information technology and suggests curriculum revisions necessary to reach these goals. Finally, implementation problems associated with curricula revisions are identified and discussed.     

Science,technology, and public administration: the government-university nexus

The relations between governments and universities, particularly with respect to science and technology, is traced from the agricultural period and the land-grant era to the research and development era involving particularly the fields of medicine and defense, to the modern era which is lacking a coherent national policy.

Among the institutional relations that are critical to science, technology, and public administration, those involving government-university linkages stand out. In the past, there have been two major eras of government/university relations: the land-grant era and the federal mission agency era. More recently, a third era has emerged—what we call the new federalist era. The first period featured a decentralized institutional model focused on a single economic sector: agriculture. The second was characterized by a more centralized federally dominated approach. This third era is still evolving. Its primary ingredients include university ties with many segments of industry. And government includes that as well as federal agency roles.

During the land-grant era, dating from 1862, a large number of universities, devoted initially to problems of agriculture and the mechanical arts, were created. The era was characterized by a research system involving a federal agency, state government, universities, and an industry of individuals with little or no research capability. It was a highly decentralized system, responsive to multiple needs throughout the country, with a heavy emphasis on technology transfer. It gave the initial impetus to the university in fashioning an applied role. Whatever else may be said about this system—good or bad—it certainly made the American agricultural industry more productive.

In the federal mission agency era, dating from World War II, federal agencies spent vast sums to pursue national goals in defense, space, energy, and other fields by creating programs supporting universities. On the expectation there would eventually be practical payoffs, federal agencies supported basic research largely on the universities’ terms. States were not involved in any significant degree. Industry was, of course, very much a part of this system, but in the case of defense and space, it was primarily as developers of technology for government rather than users of technology for civilian goals.

This system worked unevenly. The greatest continuity was the Department of Defense (DOD) as a sponsor of research and development, including research in universities. That is what was seen as a problem in the era of Vietnam. For many critics, it is a problem today, with Star Wars merely the most dramatic example of a too close university involvement with DOD.

There were discontinuities in most of the areas of federal mission agency support. At the time of Minnowbrook I, the desire was to redeploy science and technology to other mission areas that would improve the human condition. The process was difficult, as various domestic agencies had problems establishing and maintaining relations with science and technology. In the 1980s, most of the civilian programs were cut back and the energy program was slated to be eliminated altogether.

Today, the United States research system, and thus the government-university partnership, is in a new-federalist era of science and technology. Here, the federal government, state governments, industry, and universities cooperate and collide as each tries to make the most of several new technologies now emerging with a perceived high economic potential. Meanwhile, the university-DOD relationship has been rebuilt after a decade of rupture. In an environment of increasing global competition, the old institutional models are giving way to novel arrangements.

What has happened is that a new mission—a new problem or opportunity—has become more salient in the 1980s. This is the mission of economic development and competitiveness. Economic competitiveness is a broad and diffuse mission. The juxtaposition of this mission with science and technology is because a good part of this competition is expected to be waged on the frontier of new technology. Japan, in particular, has made technological leadership in the cluster of fields cited above a national imperative, and other nations are following suit.⁽¹⁾

No federal mission agency is clearly identified with, much less in charge of, a mission. Indeed, the mission has not been officially proclaimed but exists only as a rallying cry. The question to be resolved is whether the present scattered response is enough, or if a more comprehensive national policy should be established. If established, should a new federal mission agency be set in motion to lead the assault—perhaps one modeled after the Japanese MITI? If so, how would it relate to the other players? Given the role of the states in particular, it would seem that a cooperative model drawing on federal and state resources might be designed.     

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⁾     

Information technology and transitions in the public service: A comparison of scandinavia and the united states

New information technologies have the potential for transforming the ways governments are organized, the activities they perform, how they perform them, and the nature of work itself. Governments in the U.S. and Scandinavia have followed fundamentally different approaches to the introduction of computing and to dealing with its effects. These differences in approach to automation have influenced each country's view of the role of government in anticipating and dealing with the effects of changes in computer technology on the public service workforce.     

Moral integrity,organizational management,and public education

Today, three independently originated interests are led by their implications to converge upon needed reform of public education. One of these interests arises from the shift by employers from the “command and control” model of management to a model of managers as facilitators. Another arises from the demand for “more integrity” in business, public administration, and the professions, in response to repeated exposures of corruption over the past decade. The third is the autonomous interest of education in preserving and supporting, rather than extinguishing, the innate motivation to learn that is evident in infants and young children.

At a time when proposals for educational reform are coming from many quarters but differ widely on principles and aims, my argument is that the three national interests that are identified above can be shown to converge upon the direction educational reform should take. That direction is away from education as “jug to mug” knowledge transference (the educational equivalent of “command and control” management), and into participatory education in which the spontaneous interests of students have an important role in shaping the curriculum, and the initiatives of students are utilized in the conduct of their classrooms and their schools. Only in this way can schooling serve to develop the autonomous initiatives of individuals that are required alike by facilitative management, by the educational goal of lifelong learning, and for the acquisition by persons of the cardinal moral virtues whose backbone we term integrity.     

Roward a public philosophy of public administration: a civic perspective of the public

The thesis of this article is that a publicphilosophy of public administration needs to be formulated. It must not be based upon romantic and technocratic approaches as past efforts have been. It must rest instead upon a revitalized concept of the public that stresses the importance of public interdependency, public learning, public language, and a critical evaluation of the relationship between the role of the state and public administration. This emphasis has important implications for the respective responsibilities of both academicians and practicing administrators.     

Moral education and the teaching of public administration ethics

This article discusses two major objections to moral education and argues that a professional education in public administration cannot avoid some intrusions upon the personal freedom of its students nor can it avoid a certain degree of indoctrination. It is suggested that the benefits of a morally educated but civic-minded professional outweigh the costs of an autonomous professional.     

Reinventing government and reformulating public administration

The National Performance Review is the most recent of a succession of major public sector reform initiatives. The conceptual base of the Review draws from Osborne and Gaebler and competitive market models of administration. This article discusses the relevance of the base and models, given the current responsibilities of the national government. An alternative concept, governing capacity, is proposed as the appropriate theoretical focus for the study of public administration.     

Trends in teaching public administration: a view from the proceedings of the national conferences on teaching public administration

This article identifies trends in research on teaching public administration. Topics receiving substantial amounts of attention within years, within multiple years, and across time are identified. Cumulation of research on certain topics is identified. This study is based on data from the Proceedings of the National Conferences on Teaching Public Administration between 1978 and 1989.     

City management,public administration and the American enlightenment

As the cost and size of government continues to escalate, there is a growing concern over increasing the efficiency and effectiveness in the delivery of public services. Productivity bargaining as one tool has Cained the attention of a small but growing number of public officials who see this technique as one rational method of resolving the conflicting pressures generated by the demand for government services on the one hand and limited resources on the other. The experience of one large metropolitan area with productivity bargaining is reviewed at some length.     

Chinese public administration: misunderstanding and implications

This paper argues that current research works on Chinese public administration are atheoretical or pre-theoretical, that findings generated could not serve as a basis for the development of a general (or medium-range) theory of Chinese public administration or Chinese bureaucratic behavior, and that atheoretical or pre-theoretical research contributes very little to advancement of usable knowledge for problem-solving. The foci of the discussion in this paper are four major fallacies and problems, namely, over-simplification of causes, misformation of concept, stereotyping, and non-usable knowledge. It is concluded that China scholars should be more theoretically rigorous and work with their counterparts in China in order to contribute to theory-building and practical problem-solving.     

Professionalism and public administration: A bibliography

Abstract

This paper tests public budgeting to ascertain if it has both a long‐run equilibrium and short‐run incremental process. In the model, the decision‐maker strives to achieve budgetary balance over the long‐run but is constrained in the short‐run and follows incremental decision‐making. The interaction between expenditures and revenues, along with several control variables, is tested for each of the Canadian provinces using data between 1961 and 2000. The results show that in the long‐run, expenditures force the budget toward balance in all the provinces with the exception of British Columbia. In that province, there was a fiscal synchronization of revenues and expenditures working in combination. In the short‐run, incrementalism occurs in nine of the ten provinces.     

Deregulation and the decline of public administration teaching in the UK

In 1991 eight polytechnics offered a BA in public administration while five universities provided the degree with either public or social policy. Currently, no higher education institution in Britain offers a BA degree solely entitled 'public administration'. The subject area is, however, offered in 16 higher education institutions under a variety of names that include, in any order, the words 'public', 'management', 'policy' and 'administration'. This paper analyses the reasons for the transformation during the 1990s in undergraduate courses for the public sector. It is argued that these changes do not so much derive from academics, employers or students taking on board an enthusiasm for new public management but are as much the consequences of deregulation of student choice and an expansion in student numbers that has not been matched in financial terms. The consequence has been to increasingly move this sector towards business and management teaching geared to private sector interests and away from its more political and social science roots.     

Ethics and public administration: critique and reconstruction

In the post-Watergate era, many observers saw the renewed interest in administrative ethics as a passing fad. Now, over a decade later, the continued interest in this area belies this judgment. Indeed, this increased concern with administrative ethics is rooted in the realization that administration is as much an ethica, as technical pursuit. One cannot read John Rohr's "Ethics in Public Administration: A State of the Discipline Report," delivered at the 1986 ASPA Conference, without receiving the distinct impression that administrative ethics is an area of practice and study that is experiencing a profound upheaval. Views are diverse and often inchoate. Assumptions behind ethical prescr- ptions are still frequently unstated and unexamined. In addition, we still continue to seek techniques that will ensure administrative ethicality without understanding the nature of the ethical problems confronted in public administration and the reasons they are confronted. In short, there exists a need for theoretical clarification and classification in the area of ethics and public administration.     

Organization structure and the effectiveness of public agencies

There is little consensus about the impact of various organization structures on organization effectiveness. The most notable characteristic of empirical research on the purposes of this assessment is to develop some under-standing of the reasons structure/effectiveness research continues to disappoint. The more important barriers to research progress include: (1) a continued reliance on “blackbox empiricism;” (2) underspecified models ; (3) measurement discontinuities ; (4) sampling complexities; (5) conceptual problems pertaining to aggregation; and (6) basic methodological and statistical errors. In addition to reviewing these problems, this study presents a propositional inventory of structure/effectiveness research and assesses the evidence that has accumulated. Special attention is given to problems involved in the application of findings in a public sector setting. Finally, it is argued that a current primitive state-of-the-art is such that the best approach to applied structure/effectiveness research is to temporarily suspend concern about external validity and concentrate on rigorous logitudinal analyses of single organizations.     

Current challenges of the mexican state and of mexican public administration

This article deals with the problems that the Mexican government will need to face in order to go on with the reform of the state. The cycle of such a reform (privatization, liberalization and democratization) is already closing down. While ending this process, however, Mexico also started to see an increasing number of demands calling for administrative reform and, above all, the federalization of government and public administration. This is what the author calls the strategic agenda of the Mexican government.

In order to implement the administrative reform, the author favors enhancing the accountability of the Mexican government, by increasing public participation in the policy and decision making processes. With regard to the federalization of government and public administration, Aguilar proposes the implementation of policy tools never used in Mexico, such as fiscal federalism (categorical and block grants, for instance), together with new constitutional, political and administrative arrangements.     

Foundations of public administration: Introduction to the symposium

The nature of retrospectives on the literature of public administration has taken a turn in recent years away from polite respect for our heritage, and toward a belief that the older literature can solve some of our most pressing current problems in administration. Specifically, modern works often bemoan a lack of fundamental purpose or moral direction for administration, and these were among the strongpoints of more dated literature. The articles of this symposium largely seek to find current answers in the investigations of long ago.