Character ethics and the transformation of governance

A focus on character ethics has the power to transform public adminstration, and transform governance as we know it. Virtue demands of us many things that professionalism, efficiency, effectiveness, and ordinary bureaucratic practices do not. It requires that we be perceptive and discerning, and that we have a predisposition to make judgments and act with courage. Focusing on character ethics would transform governance because a public service characterized by virtue and the attending fundamental respect for the dignity and worth of others, would not deny the public their rightful role in self-governance. A virtuous public servant will be an enabling and empowering force in our institutions of governance, helping reinvigorate civic virtue among both public administrators and the general citizenry. But if an ethic of character is to take hold in public administration, we need to design organizational environments and management practices more conducive to the development of virtuous habits. Fortunately such changes are also likely to foster productivity, creativity, and effectiveness.     

Evaluating public policy: The administrative role

If public administrators are not heavily involved from the beginning in the development of public policy, policy implementation and program evaluation may not be possible. The tasks and people needed for organizing policy change are identified and the roles of the public administrator in these efforts are discussed. This article describes three legislative efforts in which public administrators were heavily involved at the beginning stages of policy development; administrators helped to create programs that were subsequently more amenable to evaluation.     

A replication of “the effects of making public service employees aware of their prosocial and societal impact”

Recent studies show that simple recall tasks can make public employees more aware of the positive impact they have on others and society. This in turn increases their motivation. However, studies often draw on paid survey respondents, such as respondents recruited via Amazon MTurk, resulting in an unfortunate mismatch between test sample and target population. Addressing the need to test recall tasks among real-world public servants, we conducted a wide replication (n = 412) of a recent study by Vogel and Willems. Our findings suggest that the effect sizes of recall tasks are likely relatively smaller when deployed “in the wild.” Based on our findings, we propose three themes for a future research agenda and point practitioners to areas of attention when implementing recall tasks in real-world settings.     

Can Knowledge of Islam Explain Lack of Support for Terrorism? Evidence from Pakistan

In this research note we employ the work of Wiktorowicz who suggests that persons who are knowledgeable of Islam may be more capable of critically evaluating the claims of militant recruiters and ideologues and thus be more resistant to their appeals than those who are not knowledgeable. This gives rise to an interesting research question: Does knowledge of Islam reduce support for Islamist militancy? To evaluate this research question, we employ data derived from a nationally representative survey fielded among 16,279 Pakistanis in 2011. Using several survey items, we construct a “knowledge index” to measure respondents’ basic knowledge of Islam, which is our principal independent variable. To operationalize support for militancy we use two survey items that query respondents about their support for two prominent Islamist militant groups based in and from Pakistan: the Afghan Taliban as well the sectarian group, Sipah-e-Sahaba-e-Pakistan (also known as Lashkar-e-Jhangvi and Ahle Sunnat Wal Jamaat). We use ordinary least squares regression to evaluate the impact of our independent variables upon support for these two groups, controlling for other relevant factors. We find that knowledge of Islam does predict less support for these two groups; however, other variables such as sectarian organization and ethnicity have greater predictive power.     

In search of identity: Public administration education in taiwan

Education program plays an important part in transmitting public administration knowledge to future administrators. What constitutes the “core” knowledge is presumably determined by societal expectations. Using Public Administration education in Taiwan as an example, this study finds that there exists a “crisis of identity” which concerns the proper role of administrators -- generalists vs. specialists. Public Administration education program in Taiwan, oriented toward a liberal arts education, has failed, according to some, to provide well trained and qualified students for the public services. The current education programs have resulted in a disjointed process in which the diffusion of public administration knowledge is discontinuous.     

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.     

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.     

Public administrators in interactive democracy: a multi-paradigmatic approach

ABSTRACT

Currently, interactive forms of democracy that bring local politicians into dialogue and collaboration with relevant and affected citizens are mushrooming. While some research has investigated how interactive democracy affects citizens and politicians, we know little about what interactive democracy means for public administrators. This article presents the results of a case study of role perceptions and coping strategies among public administrators assisting a new type of interactive political committee in two Nordic municipalities. Guided by a multi-paradigmatic conceptual framework featuring public administrators’ roles and coping strategies in interactive governance, the study shows that individual public administrators identify with different administrative roles, and that political and administrative leadership sentiments condition their choice of coping strategies. Moreover, the coping strategy that public administrators select to handle intra- and inter-paradigmatic role dilemmas can have dire consequences for the interplay between interactive democracy and local representative government.     

A Model of Learned Implementation

The majority of the literature concerning the implementation of public policy assumes that public managers can carry out new policy initiatives regardless of the behavioural, cognitive or technical demands that the introduction of such policies may make upon them. There has been a tendency to assume that managers actually have the detailed technical knowledge by which to enact such new policies. The paper proposes that in effect, public managers have to learn a range of often new and detailed techniques in order to implement what are often ambiguous policy directives. Drawing on data gathered from the introduction of capital investment appraisal in the British National Health Service, a model of Learned Implementation is presented that describes one way in which public managers can learn to enact new policy initiatives. Using a mix of six organizational processes and variables, the model demonstrates how learning occurs and is used to solve the problems that are inherent in the introduction of new policy initiatives. The model further describes how the managers routinize these solutions into job tasks and procedures and hence a policy initiative is operationalized. The paper concludes with a discussion about the difficulties of predicting the operational consequences of new policy initiatives and raises questions about knowledge, ability and capability in the implementation of public policy.     

Teaching public policy in a public administration program

An overlooked aspect of academic concern in public administration is the realm of public policy. Policy intrudes into administration at a number of crucial points; administration influences the direction and emphasis of policy in various ways. These interrelationships warrant more attention in the training of public administrators. Regrettably, they have remained largely off-limits in the training of public administrators. Why and how we should proceed to alter this state of affairs is the essence of the symposium that follows.     

Supply or Demand? Migration and Political Manipulation in Mexico

Collective remittances are the money flows sent by hometown associations (HTAs) of migrants from the USA to their communities of origin. In Mexico, the 3?×?1 Program for Migrants matches by three the amounts that HTAs send back to their localities to invest in public projects. In previous research, we found that municipalities ruled by the party of the federal government were more likely to participate in the Program. The political bias in participation and fund allocation may stem from two possible mechanisms: HTAs?? decisions to invest in some municipalities but not in others may reflect migrants?? political preferences (a demand-driven bias). Alternatively, government officials may use the Program to finance their own political objectives (a supply-driven bias). To determine which of these two mechanisms is at work, we studied a 2?×?2 matrix of statistically selected cases of high-migration municipalities in the Mexican state of Guanajuato. We carried out over 60 semistructured interviews with state and municipal Program administrators, local politicians, and migrant leaders from these municipalities. Our qualitative study indicates that migrant leaders are clearly pragmatic and that the political bias found is driven by elected officials strategically using the Program. The bias in favor of political strongholds is reinforced by the Program??s requirements for cooperation among different levels of government. This study casts doubt about the effectiveness of public?Cprivate partnerships as valid formulas to reduce political manipulation. It also questions the ability of matching grant programs to reach the areas where public resources are most needed.     

Public Sector Growth: Comparing Politicians’ and Administrators’ Spending Preferences

The notion that appointed bureaucrats act as budget maximizers still stands strong within theories attempting to explain the growth in the size of the public sector. This paper reports the results of a case study that included local authority politicians and bureaucrats in 30 Norwegian municipalities and where differences in spending preferences was empirically investigated. Counter to the original theory, bureaucrats seem to be less expansive than their political counterparts. The most expansive were found to be members of political left‐wing parties, the more peripheral politicians and administrators, women, those with lower education and those working in the public sector. Nevertheless, there is some support given to a modified hypothesis that administrators have stronger preferences for ‘slack’ (that is, organizational slack in terms of spending more money on internal administration) than politicians. The data also strongly support the notion that within a specialized sector, both politicians and administrators have similar preferences for higher spending to their specific sector.     

Leadership and innovation in the administrative state

The field of public administration, as well as the social science upon which it is based, has given little serious attention to the importance of vigorous leadership by career as well as non-career public administrators. The field tends to focus on the rigidities of political behavior and the obstacles to change. To reclaim an understanding of the importance of individual leadership the author suggests the use of biography and life history. The behavior and personality of the entrepreneur is an especially helpful perspective on the connection between leadership and organizational or institutional innovation. The case of Julius Henry Cohen, who played a pivotal role in the development of the New York Port Authority, is used to illustrate the connection between the entrepreneurial personality or perspective and innovation.

In the social sciences—and especially in the study of American political institutions—primary attention is given to the role of interest groups and to bureaucratic routines and other institutional processes that shape the behavior of executive agencies and legislative bodies. In view of the powerful and sustained pressures from these forces, the opportunities for leadership—to create new programs, to redirect individual agencies and broad policies, and to make a measurable impact in meeting social problems—are very limited. At least this is the message, implicit and often explicit, in the literature that shapes the common understanding of the professional scholar and the educated layperson in public affairs.⁽¹⁾ For administrative officials, captured (or cocooned) in the middle—or even at the top—of large bureaucratic agencies, the prospects for “making a difference” seem particularly unpromising. In his recent study of federal bureau chiefs, Herbert Kaufman expresses this view with clarity:… The chiefs did not pour out important decisions in a steady stream. Days sometimes went by without any choice of this kind emerging from their offices … If you need assurance that you labors will work enduring changes on policy of administrative behavior, you would do well to look elsewhere. ⁽²⁾

There are, of course, exceptions to these dominant patterns in the literature. In particular, political scientists and other scholars who study the American presidency or the behavior of other national leaders often treat these executives and their aides as highly significant actors in creating and reshaping public programs and social priorities. ⁽³⁾ However, based on a review of the literature and discussions with more than a dozen colleagues who teach in political science and related fields, the themes sketched out above represent with reasonable accuracy the dominant view in the social sciences.

The scholarly field of public administration is part of the social sciences, and the generalizations set forth above apply to writings in that field as well.⁽⁴⁾ (Indeed, Kaufman's book on federal bureau chiefs won the Brownlow Award, as the most significant volume in public administration in the year it was published.) Similarly, the argument regarding scholarly writing in the social sciences can be extended to the texts and books of reading used in courses in political science and public administration; what is in the scholarly works and the textbooks influences how we design our courses and what messages we convey in class. The provisional conclusion here, then, is that in courses as well as in writings the public administration field gives little attention to the importance of vigorous leadership—by career as well as noncareer administrators. Neither does it give much attention to the strategies of leadership that are available to overcome intellectual and political obstacles which impede the development and maintenance of coalitions which support innovative policies and programs.⁽⁵⁾

The further implication is that students learn from what we teach, directly and indirectly. Students who might otherwise respond enthusiastically to the opportunities and challenges of working on important social programs learn mainly from educators that there are many obstacles to change and that innovations tend to go awry.⁽⁶⁾ And there the education often stops, and the students go elsewhere, to the challenges of business or of law. Those students who remain to listen seem to be those more attracted to the stability of a career in budgeting or personnel management. Public administration needs these people, but not them alone. If career officials should have an active role in governance and if the general quality of the public service is to be raised, does it not require a wider range of young people entering the service—including those who are risk-takers, those who seek in working with others the exercise of “large powers”?

Taken as a class, or at least in small and middle-sized groups, scholars in the fields of public administration and political science tend to be optimistic in their outlook on the world. Informally, in talking with their colleagues, they tend to convey a sense that public agencies can do things better than the private sector, and they sometimes serve (even without pay) on task forces and advisory bodies that attempt to improve the “output” of specific programs and agencies and that at times make some modest steps in that direction. Why, then, do public administration writings and courses tend to dwell so heavily on the rigidities of political behavior and the obstacles to change?

One reason may be our interest, as social scientists, in being “scientific.” We look for recurring patterns in the complex data of political and administrative life, and these regularities are more readily found in the behavior of interest groups and in the structures of bureaucratic cultures and routines. The role of specific leaders, and perhaps the role of leadership generally, do not as easily lend themselves to generalization and prediction.

Perhaps at some deeper level we are attracted to pathology, inclined to dwell on the negative messages of political life and to emphasize weakness and failures when the messages are mixed. Here, perhaps more than elsewhere, the evidence is impressionistic. ⁽⁷⁾

Some of the concerns noted above—about the messages conveyed to students and to others—have been expressed by James March in a recent essay on the role of leadership. He doubts that the talents of specific individual managers are the controlling influences in the way organizations behave. He, however, questions whether we should embrace an alternative view—a perspective that describes administrative action in terms of “loose coupling, organized anarchy, and garbage-can decision processes.” That theory, March argues, “appears to be uncomfortably pessimistic about the significance of administrators. Indeed, it seems potentially pernicious even if correct.” Pernicious, because the administrator who accepts that theory would be less inclined to try to “make a difference” and would thereby lose some actual opportunities to take constructive action.⁽⁸⁾

March does not, however, conclude that the “organized anarchy” theory is correct. He is now inclined to believe that a third theory is closer to the truth. Administrators do affect the ways in which organizations function. The key variable in an organization that functions well is having a “density of administrative competence” rather than “having an unusually gifted individual at the top.” How does an organization come to have a cluster of very able administrators—a density of competence—so that the team can reach out vigorously and break free from the web of loose coupling and organized anarchy? Here March provides only hints at the answer. It happens, he suggests, by selection procedures that bring in able people and by a structure of motivation “that leads all managers to push themselves to the limit. “⁽⁹⁾     

National security and domestic policy-making: the similarities and the critical differences

This analysis focuses on the discussion of whether (and how) national security and domestic policy-making processes are similar and/or different. Though many similarities are evident, it is the contention of this article that there are critical differences between national security and domestic policy-making that fundamentally affect the output from each of them. In addition, it is essential that public administrators develop a fuller understanding of national security policy-making processes since these processes do have theoretical, practical, and organizational impacts on institutional effectiveness, democratic processes, and governmental productivity. Let's remember that in the immediate post-Vietnam period many of us in the public management sectors--federal, state, and local-- dreamed of vast amounts of money being mainstreamed into the domestic coffers. Today that expectation is called the “peace dividend”. Little did we understand how much policy-making sophistication was embedded in the DOD. Therefore, as we move into the 1990s, this analysis reminds public administrators of their responsibilities to understand the national security arena in order to detect both the unique features as well as the broader generalizations attending this microcosm of public policy-making. All of us in public administration must make certain that this fertile laboratory of public policy is researched and investigated so as to ensure that the proper policy trade-offs are made in the 1990s.     

POLITICAL PRESSURES,ORGANIZATIONAL IDENTITY,AND ATTENTION TO TASKS: ILLUSTRATIONS FROM PRE‐CRISIS FINANCIAL REGULATION

Regulatory agencies, like most public organizations, typically operate with multiple tasks and goals, which requires them to prioritize some tasks over others. Such prioritization, while essential, engenders a risk of bureaucratic oversight of significant material problems. Despite the ubiquity and importance of these concerns, our understanding of agencies' allocation of attention across tasks is limited. This article develops a model of agencies' allocation of attention across tasks, which involves an interaction between external public and political pressures and agencies' distinct organizational identities. A brief comparison between two cases of pre‐crisis financial regulation illustrates the proposed model. The two cases suggest that the British Financial Services Authority's and the Israeli Supervisor of Banks' distinct identities conditioned their responses to similarly vigorous pressures to devote more attention to firms' alleged mistreatment of their customers, with important implications for these regulators' attention to firms' capitalization and liquidity.     

Challenges to american public administration: complexity,bureaucratization, and the culture of distrust

In the United States, the development of public administration has depended on its different historic challenges. There have been periods characterized by much contemplation of “why things don’t work,” when one hears more about the problems of the field than about solutions. In contrast, solutions become the center of discussions during periods of optimism. Public Administration in the United States has seemingly entered an era of reform over the past decade. Such an era is characterized by a major change in attitute, particuarly towards two challenges, those of complexity and bureaucratization. The treatment of these challenges has gone from pessimistic views of the mid-1970s to the current more proactive approaches. Public administration in the United States has always had to contend with its low level of legitimacy, but every so often the level of distrust would decrease enough for the nation's leaders to carry out needed reforms. Such a time is approaching as public administrators in the United States prepare to take on the challenges of complexity and bureaucratization. To do so effectivelly, however, requires a greater level degree of trust than is now forthcoming from the public. Until the cultural challenge is confronted, all other efforts are likely to fail. Looking at how the other challenges have been transformed can help us underestand what it takes to transform a challenge from an obstacle into a target for change. Less optimistically, it may be necessary to wait until the culture evolves on its own.     

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.     

How electoral incentives shape performance measurement efforts

Although scholars have assessed how the electoral connection of legislators and chief executives affects their support for performance measurement, we know less about how electoral considerations might influence agency administrators’ focus on performance measurement. I suggest that independently elected administrators’ attention to their agency's performance measurement system may be conditional on the likelihood that their efforts in this area will help them realize their electoral goals. Because there is a greater electoral incentive to focus on performance issues when government performance is deficient, elected administrators should be as likely as, if not more likely than, their non‐elected counterparts to focus on performance measurement when the government is performing poorly and less likely to do so when the government is performing well. I find evidence that supports this expectation. This article provides insight into the implications of electoral incentives for management decisions.