In the service of democracy

The notion of service can encompass much more than the basic duties of obedience, loyalty, trust, and courage directed solely to some higher secular authority. It can also encompass a duty to a “common good,” a “good society,” a “public,” or a people. If public service is to be viewed as an integral component of our democratic political system, the ethical-moral values of faith, hope, and love must be recognized as the critical impulses which energize a life dedicated to the service of democracy. But such an approach is very different from the current focus of democratic ethics. In particular the love ethic inevitably moves on a collision course with many of our basic canons of public sector management such as the concept of formal, institutionalized, bureaucratic authority, the notion of detached, dispassionate, objective neutrality, and the almost absolute emphasis placed on rational, routinized, programmed behavior.

To labor in the service of democracy is to recognize that all of us are called, in one way or another, to be watchmen, sentinels, or prophets of others. It is a recognition of the fact that a life in service of democracy is a life of constant instruction, giving and receiving knowledge about right conduct in the formation of one person's character by another, and in the acceptance of another's guidance in one's own growth. In a word, society is dependent on the career professionals in governments at all levels to lead it to a new value vision of the common good. As a first step in this direction, public administrators must be willing to confront the suppressive and debilitating constraints which currently are being imposed on bureaucracy from all directions, and to reaffirm the values and virtues inherent in the notion of service which have unified the ethical forces of democracy so well in the past.     

Purpose and practice in public administration education: The place of substantive public policy areas

Public administration's early identification with the concept of a strong executive has resulted in an emphasis on staff functions in its graduate education programs. In the practicing world, staff functions are viewed as tools employed in the actual practice of public administrators, namely the delivery of substantive public services. Although public administration is characterized as an applied field, it does not focus its theory building and educative efforts on that which practicing public administrators actually do. The field necessarily imports other disciplines, but it does not provide the unique focus that would justify this borrowing; its current research agenda and training curricula are available in other disciplines. Public administration graduate students should concentrate in individual substantive policy areas, and the field should focus on optimizing organizational arrangments for delivering societal knowledge as public services. Interorganizational theory can provide the common theoretical framework necessary to mitigate the centrifugal effects of a variety of “administrations” within the field. The approach developed by J. Kenneth Benson is outlined; it provides a unique theoretical niche for public administration, yields a framework for comparative analysis, and defines the field's relationship to political science.     

Creating Public Sector Pedestals and Examining Falls from Grace: Examining ICMA Ethical Sanctions

The International City and County Management Association, (ICMA), ensures that members who engage in misconduct are identified and sanctioned. Dozens of public sanctions have been issued over the past 20 years, and this paper considers the substance of these penalties. The article identifies the processes used to ensure compliance with its code of ethics. We report the types of ethical violations ICMA has discovered through these processes. A more systematic way of recording what is occurring is necessary if strategies are to be devised to help current and upcoming public administrators avoid similar violations. Finally, we ask public administrators who have been sanctioned by ICMA to explain how and why the ethics violations occurred and the impact of the public censure on their personal lives and careers.     

Static law and dynamic administration: Marshall dimock's assault on the legal profession

This article examines Marshall Dimock's thought on the relation between public administration and law. The examination revolves around his book, Law and Dynamic Administration,but also incorporates insights from his many other works. Dimock treated the idea of rule of law as an important source of authority and guiding principles for both the public administrative and legal professions. He criticized the legal profession harshly for its tendency in this century to disparage and reject law as such a source. Its treatment of law has led to many abuses that affect the legitimacy and efficacy of all who govern in our society. Dimock hoped to reunify the fields with a common jurisprudence that is mindful of public, institutional needs. In the process, he pressed the point that public administrators should be legal artisans in their own right, contributing confidently to the content and processes of the law for public benefit.     

Ethical implications of the new managerialism: conflicting loyalties: normative pluralism in modern public administration one australian perspective

As public resources are not unlimited, choices have to be made between various community goals and the extent of their fulfilment. There is no necessary conflict between managing and attempting to allocate public resources amongst competing and sometimes conflicting goals in a more efficient, effective, economic and accountable manner on the one hand and contributing to society's overall wider goals on the other. Attention is drawn, however, to the need to deal in a balanced way with the requirements of equity, probity, fairness, impartiality, ethical considerations, public accountability, the public interest, and the exercise of public trust as well as, for example, deficiencies in data. A sound ethical basis is essential for workable and good administration.     

Local Government Public Servants Performance and Citizens Participation in Governance in Nigeria

Abstract

This paper examines the performance of public administrators at the local government level in Nigeria. It traces the development of local governments in Nigeria from 1945 to present times. It argues that the shift in the critical decision‐making powers and functions of local government requires its public administrators to be better‐trained professionals. However, without citizens' participation in governance, public servants' accountability will be low. The study addresses the following questions: How do public sector performance and development of actions by citizens affect accountability in the local governments? How much training do public administrators in Nigeria's local governments have in public management? What is the relationship between performance and citizenship participation in local governments' development process? The question of interests in this study is how public administration at the local government level can better serve Nigeria's communities and in so doing develop authentic relationship with citizen groups, and equitably enhance public trust, legitimacy, and performance of the public sector in the nation.     

The ethical foundations of american public administration

From the founding of the Republic to the age of Jackson, Federalist administrators dominated the federal public service, infusing it not only with a high level of ethics, but also with an active religious covenant that gave the new Republic a fundamental political purpose. That convenant was eventually lost, but has been restored a few times in our history. By comparison, the modern respect for the privateness of political power is poorly suited to support an ethical and committed public service.     

Can poverty be funny? The serious use of humour as a strategy of public engagement for global justice

This article examines the use of humour as a strategy to promote increased public engagement in the countries of the global North with issues of global justice. The central argument of the article is that humour can be both an ethical and an effective way of attracting and sustaining public engagement in struggles for global justice. There are risks and limits to the use of humour to represent issues of poverty and injustice but, given low levels of public engagement in these issues in the countries of the global North, humour is a risk worth taking.     

A STRATEGY FOR FORMULATION AND IMPLEMENTATION OF CODES OF ETHICS IN PUBLIC SERVICE ORGANIZATIONS

Codes of ethics in public service organizations are designed to serve three purposes: provide enduring solutions to existing ethical problems, educate the public about the mission of the organization, and foster an ethical climate in the organization. There is no agreement in the literature as to how useful and effective codes are. This paper argues that codes of ethics can be effective with respect to these three goals, only if careful attention is given to the process of internalization of the code's provisions. Internalization is most likely to occur under two interrelated conditions: when members of an organization clarify, articulate, and establish integrated values systems; and when the ethical code is formulated and adopted as a consequence of a participatory democratic process. When members of the organization are able to relate the code's provisions to their personal integrated values systems, a greater compliance and commitment will prevail.     

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.     

Training Public Administrators in Africa: A Case Study of Civil Service Employees in Ghana

Abstract

Much of the dialogue on public administration training in Africa is about how to prepare administrators to cope with pressures global forces exert without considering how to educate individuals to meet also the unique demands of public service. This essay examines the nature of training in Africa, drawing on Ghana's experience with management training programs. It first describes and critiques training based on bureaucratic and managerial perspectives, which emphasize the acquisition of rational, technical, and managerial skills comparable to international and global standards, and argues that such training does not necessarily provide career professionals with a broad work ethic suitable for the local context. It then concludes by suggesting the possibility of developing a composite training program that takes account also of the need to provide non-traditional skills and experience-based knowledge professionals need to be able to operate in the unique historical, social, and political conditions of Africa.     

Professionalism,Responsiveness, and Representation: What do They Mean for City Managers?

The literature in public administration advances three important values for public administrators. In their roles as technical experts, public administrators are professionals whose decisions are guided by the norms and principles of the public administration profession. In their roles as appointed officials, public administrators are expected to be responsive to their elected superiors. As representatives of the community, they are expected to voice the concerns and demands of citizens. Professionalism, responsiveness, and representation all are considered fundamental values that must be reflected in administrative decisions and actions. Despite the importance of these three values for public administration, insufficient empirical research has been done to examine what these values mean for public administrators. That is, the critical question that remains unanswered is: “What activities of public administrators are associated with these three values?” Based on a nationwide survey of city managers, this article identifies critical activities in which public administrators get involved, then reduces these activities into factors (dimensions), and finally examines the correlation of these factors with attitudes of city managers towards professionalism, responsiveness, and representation. The findings of this research help make these three values more concrete by associating them with major policy and political activities of city managers.     

The new public personnel and the new public service

The New Public Administration sought a public service whose legitimacy would be based, in part, on its promotion of “social equity.” Since 1968, several personnel changes congruent with the New Public Administration have occurred: traditional managerial authority over public employees has been reduced through collective bargaining and changes in constitutional doctrines; the public service has become more socially representative; establishing a representative bureaucracy has become an important policy goal; more emphasis is now placed on employee participation in the work place; and legal changes regarding public administrators’ liability have promoted an “inner check” on their behavior. At the same time, however, broad systemic changes involving decentralization and the relationship between political officials and career civil servants have tended to undercut the impact of those changes in personnel. The theories of Minnowbrook I, therefore, have proven insufficient as a foundation for a new public service. Grounding the public service's legitimacy in the U.S. Constitution is a more promising alternative and is strongly recommended.

The New Public Administration, like other historical calls for drastic administrative change in the United States, sought to develop a new basis for public administrative legitimacy. Earlier successful movements grounded the legitimacy of the public service in high social standing and leadership, representativeness and close relationship to political parties, or in putative political neutrality and scientific managerial and technical expertise. To these bases, the New Public Administration sought to add “social equity.” As George Frederickson explained, “Administrators are not neutral. They should be committed to both good management and social equity as values, things to be achieved, or rationales. “⁽¹⁾ Social equity was defined as “includ[ing] activities designed to enhance the political power and economic well being of … [disadvantaged] minorities.” It was necessary because “the procedures of representative democracy presently operate in a way that either fails or only very gradually attempts to reverse systematic discrimination against” these groups.⁽²⁾

Like the Federalists, the Jacksonians, and the civil service reformers and progressives before it, the New Public Administration focused upon administrative reform as a means of redistributing political power.⁽³⁾ Also, like these earlier movements, the New Public Administration included a model of a new type of public servant. This article sets forth that new model and considers the extent to which the major changes that have actually taken place in public personnel administration since 1968 are congruent with it. We find that while contemporary public personnel reflects many of the values and concerns advanced by the New Public Administration, substantial changes in the political environment of public administration have frustrated the development of a new public service that would encompass the larger goals and ideals expressed at Minnowbrook I. Building on the trends of the past two decades, this article also speculates about the future. Our conclusion is that ultimately the public service's legitimacy must be grounded in the Constitution. Although its focus is on macro-level political and administrative developments, the broad changes it discusses provide the framework from which many contemporary personnel work-life issues, such as pay equity and flexitime, have emerged.     

INFORMATION SYSTEMS AND NEW PUBLIC MANAGEMENT - A VIEW FROM THE CENTRE

The combination of new public management reforms and 'informatization' is presenting opportunities for the re-engineering of government business activities. Awareness and debate about the implications of this are limited however. Structural reforms to public services need to take account of the notion of information stewardship, and an essential competence of public officials is to manage and use information held in trust. Public service reforms which lead both to fragmentation and to the contract culture have implications for information systems development and implementation. Whilst new technology can be used to alter radically the administrative and service delivery systems of government, technical possibilities must be set alongside issues such as the privacy of the individual and the protection of public interest. The article also discusses the role of the Office of Public Services and Science, and HM Treasury, in stimulating appropriate strategies to cope with these dilemmas.     

Public administration in Marshall Dimock's textbooks

This article examines the relationship between Marshall Dimock's positive, broad-based concept of public administration and his approach to writing undergraduate textbooks. Analysis shows that both Dimock's American government and public administration textbooks provide a different slant on public agencies than that available in most current introductory volumes. In particular, his American government textbook is more positive in tone about agencies than are its modern counterparts. The public administration textbook has comparative material that rarely appears in introductory-level textbooks.

This article analyzes how Marshall Dimock's conception of public administration as an important area of study with links to policy and leadership anchored his textbook writing. In the 1950s Dimock co-authored two popular textbooks for basic undergraduate courses, one in American government and the other in public administration.⁽¹⁾

Scholars still debate what textbooks in either field should teach students about public agencies. Cigler and Neiswender argue that current American government textbooks portray administration in a negative light. All authors see bureaucracy as a problem of some sort, few explain the role administrators play in shaping policy and none discuss reasons to enter the public service.⁽²⁾ Cigler and Neiswender suggest that American government textbooks must change to aid accurate perceptions of the administrative role. In particular, they believe the texts must add material on the public service as a profession and compare American agencies with those in other nations.

Since public administration textbooks are a key way that majors in the field learn material, debate ensues on what material they should contain. Recent articles explore how textbooks define key terms such as policy and how they integrate the work of various theorists.⁽³⁾

While all widely-used textbooks deal with both the political environment and internal agency functions (e.g., personnel, finance), no consensus exists on how to allocate space between political and managerial concerns nor on exactly which subtopics should be covered. No consensus exists on how much space should be devoted to policy making and policy analysis with some textbooks covering this topic and others skimming it lightly.

One often cited problem with contemporary texts is the lack of a comparative focus and a concomitant need to internationalize the curriculum.⁽⁴⁾ The thrust of current proposals is that students need a more broad-based education to prepare them for global leadership.

Interestingly, Dimock's approach to public administration led him to write textbooks that in some ways surpass what is available today. While the majority of the topics he presents (and their ordering) are similar to current efforts, he offers unique emphases that deal with the above mentioned criticisms. Far from being an exercise in academic nostalgia, examining Dimock's textbooks is a useful way of giving current writers new insights.

To appreciate Dimock's approach to textbook construction we first have to identify the core concepts behind his approach to public administration education. Afterwards, we can analyze the treatment of public agencies in American Government in Action, relating it to Cigler and Neiswender's critique of contemporary textbooks, and -examine how various editions of Public Administration conceptualize the field.     

The future of professionalization and professionalism in public administration: Advancements,barriers, and prospects

This article examines the advancements, barriers, and prospects of the field of public administration as it seeks professionalism through professionalization. Overall, this essay delves into six broad areas of advancement and an equal number of obstacles. The milestones focus on the criteria of a profession and public administration's fulfillment of those standards, far-reaching credentialization, the expanding entry of women and minorities, the development of performance criteria, intergovernmental networking, and an expansion of associations. The impediments to the further evolution of the field toward professional development include the continuing value conflicts over the ultimate purposes of the field; the persistent politicization of the federal workforce; the inability of public servants to affect the uses of privatization; the erosion of national, state, and local governmental human-resource capacity; the confusion over the teaching of ethics and the promulgation of operational codes; and the prevalence of authoritarian administration without significant democratic inroads. The respective enumerations were not intended to suggest an exact symmetry between accomplishments and obstacles in the field--only that progress and deficiencies are prominent and substantial. Nor were these considered lists intended as exhaustive.

The central theme of this article is that, paradoxically, the prospects of this profession are encouraging because of the growing public need for its services despite persistent, widespread unpopularity. This research concludes that public administrators face an ambivalent future in which their emerging profession continues to prosper and expand amidst increasing alienation and frustration from the public whom they serve. This irony may not be alleviated until there is a socially and politically agreed-upon agenda for public servants to execute. If such a consensus is ever forged, then public administrators may become popular as well as professionally effective.     

Policing the Party: Conflicts between Local Prosecutors and Party Leaders under Late Stalinism

During the late Stalin era, many of the USSR's local party control officials and prosecutors entered into a protracted conflict over who had the right to judge the conduct of communists; prosecutors charged that party committees were shielding communists from prosecution, while control officials claimed that party organs were deferring to prosecutors and abandoning their traditional oversight role. This article will argue that although some party committees were interfering in the courts, the dominant story of party–procuracy relations under post-war Stalinism involved the disengagement of party organs from the oversight of administrative wrongdoing, with long-lasting consequences for the Soviet regime's attitude toward corruption.