Introduction to the Special Issue on Comparative Chinese/American Public Administration

In the field of public administration practice, China has a history of several thousand years, whereas the United States has a much shorter history of hundreds of years of governance. In terms of the scholarly development of public administration in China, the roots of those intellectual resources can be traced far back, to Confucius's ideology of governance and the ancient development of a civil service system some 2,000 years ago. In terms of the systematic development of public administration as an independent subject of learning, however, the United States has been a leader worldwide. Public administration as a discipline in the United States dates back to the late nineteenth century, with extensive scholarly research and publications in the early twentieth century ( Follett 1926 ; Goodnow 1900 ; Taylor 1912 ; Weber 1922 ; White 1926 ). In the Chinese context, although there were occasional studies of public administration in the first half of the twentieth century, systematic study was deferred until the middle of the 1980s. They were only truly continued following the official launch of master of public administration degree programs at the beginning of the twenty-first century. In this respect, China was a latecomer, and Chinese scholars almost always date the study and scholarship in this field to about 1980. Over the past eighty years or so, the United States has established more than 200 MPA and related programs, while China has founded 100 MPA programs in just the past eight years. Recognizing the urgent need for MPA training, China is trying to catch up to the demand for social development and societal transition. Considering that China has a population of 1.3 billion, compared to a population of 300 million in the United States, it looks as if there is great potential for China to expand its MPA programs .     

American Indian Tribal Governance and Management: Public Administration Promise or Pretense?

Research on tribal governance in the United States is scarce within modern public administration scholarship. Nonetheless, tribal governance is a pre‐Columbian practice that predates the U.S. Constitution and federal law. Drawing from several disciplines, John C. Ronquillo of the University of Georgia demonstrates that interdisciplinary sources offer rich information for present‐day public administration research about Native American tribes. Tribal governance literature is definitely not “missing,” but instead is moderately “unassembled” as a subfield of public administration. Building on what is available, the author suggests several key issues within tribal governance in need of urgent academic attention.     

Perceptual Bias and Public Programs: The Case of the United States and Hospital Care

This article examines whether the public holds biased perceptions of public organizations (in this case, hospitals) in the United States and whether organizations get credit for positive results from program evaluations. Using an experimental design that replicates Hvidman and Andersen's 2016 Danish study, the study finds no negative public sector biases in the United States, but organizations are not given any credit for positive program evaluations. These results hold in two experimental replications. The implications of the findings for the measurement of public perceptions of government programs and for effective democratic governance are discussed.     

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

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

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.     

Governing Small‐Town America Today: The Promise and Dilemma of Dense Networks

This essay examines the governance of small towns in the United States. Small towns have received little attention in the public administration literature to date, yet 1 in 10 Americans still lives in one, representing roughly 75 percent of all municipalities in the United States and some 33 million people. Small towns are characterized as dense, multiplex networks that lend unique dynamics to local politics. However, they face significant social, economic, technological, and demographic trends that compromise towns’ prevailing frame of reference, fracture their networks, and alter the traditional setting of small‐town governance. In the face of these issues, “thicker,” more active ways of engaging the public are needed to reknit community bonds and build civic capacity. Service learning for master of public administration students is proposed as a way to develop the emotional intelligence necessary to make sense of the complex social dynamics of small towns and to facilitate the hard work of building enabling relationships.     

Collaborative Governance: Integrating Management,Politics, and Law

Scholars have engaged in an ongoing dialogue about the relationships among management, politics, and law in public administration. Collaborative governance presents new challenges to this dynamic. While scholars have made substantial contributions to our understanding of the design and practice of collaborative governance, others suggest that we lack theory for this emerging body of research. Law is often omitted as a variable. Scholarship generally does not explicitly include collaboration as a public value. This article addresses the dialogue on management, politics, and law with regard to collaborative governance. It provides an overview of the current legal framework for collaborative governance in the United States at the federal, state, and local levels of government and identifies gaps. The institutional analysis and development framework provides a body of theory that incorporates rules and law into research design. The article concludes that future research on collaborative governance should incorporate the legal framework as an important variable and collaboration as a public value.     

Retrofitting the Administrative State to the Constitution: Congress and the Judiciary's Twentieth-Century Progress

One of the twentieth century's "big questions" for United States government has been how best to retrofit, or integrate, the full-fledged federal administrative state into the constitutional scheme. The public administration orthodoxy initially advocated placing the executive branch almost entirely under presidential control; Congress and the federal judiciary responded otherwise. Congress decided to treat the agencies as its extensions for legislative functions and to supervise them more closely. The courts developed an elaborate framework for imposing constitutional rights, values, and reasoning on public administration practice. As the challenge of retrofitting continues into the twenty-first century, public administrators might profitably play a larger role in the constitutional discourse regarding the administrative state's place in constitutional government.     

Homeowners Associations as Private Governments: What We Know,What We Don’t Know,and Why It Matters

Homeowners associations (HOAs) are private governments that are reshaping urban governance and service delivery in large parts of the United States. Despite the fact that millions of Americans are HOA members, the field of public affairs has paid scant attention to these new governance entities. The essays in this symposium call attention to HOAs’ potential effects on urban services and civic life in the hope of sparking interest among scholars and public managers to include HOAs in our understanding, research, and teaching of contemporary urban governance.     

Reflections on Vincent Ostrom,Public Administration,and Polycentricity

Among Vincent Ostrom's many contributions to the study of public administration, policy, and political science, the concept of polycentricity remains his single most important legacy. This essay locates the origins of this concept in Ostrom's early research on resource management in the Western United States and demonstrates its continuing influence throughout The Intellectual Crisis in Public Administration, The Political Theory of a Compound Republic, and his other major publications. Although typically pigeonholed within the confines of the public choice tradition, Ostrom's body of work should be widely appreciated as an early statement of the critical importance of network forms of governance in democratic societies.     

The Need to Build Administrative Capacity in the Age of Rapid Globalization: A “Modest” Prescription or a Major Blueprint?

Most scholars would agree that we are in an age of rapid globalization. The phenomenon of “globalization” is well documented and thoroughly discussed by many. What is missing among scholarly work is a clear statement as to what needs to be done in terms of public administration in order to meet the challenges of rapid globalization. What should the new public administration for the twenty‐first century look like?     

Unprecedented Challenges,Familiar Paradoxes: COVID-19 and Governance in a New Normal State of Risks

This Viewpoint essay understands China's COVID-19 responses through the lens of six paradoxes, focusing on normal and non-normal governance, competing values, expertise and politics, centralization and decentralization, public and private, and technology and institutions. Preliminary lessons are drawn regarding pandemic governance: embedding resilience into all aspects of governance; developing a public value framework for pandemic governance and improving individuals' ethical capacity; institutionalizing policy capacity on pandemic governance and requiring expertise in relevant positions; balancing centralized coordination and decentralized responses with a stable and ready-to-work commanding center; enabling businesses and nonprofits for pandemic governance but regulating them appropriately; and enacting technologies to revolutionize pandemic governance with proper institutional safeguards.     

The FBI,A Hundred‐Year Retrospective

No civilian government agency in the United States has received as much attention from authors as the Federal Bureau of Investigation. Much of the early writing consisted of laudatory pieces that parroted the output of the agency’s extensive public relations apparatus. This was followed by a reactive era of critical literature following the Watergate scandal and the death of J. Edgar Hoover. This article surveys the key literature on this controversial agency, including both perspectives and insider memoirs, Hoover biographies, and recent scholarly works.     

Paradigm Shift in Public Administration: Implications for Teaching in Professional Training Programs

The decline in popularity of New Public Management worldwide reinvigorated the search for a new paradigm in the field of public administration. Several alternatives to New Public Management, such as the New Governance and Public Value paradigms, have gained prominence in recent years. Despite tensions among these paradigms, exceptional challenges for public administration teaching programs exist. Xun Wu and Jingwei He of the National University of Singapore compiled data on public administration and management courses from 48 top master of public administration degree programs in China and the United States. This essay analyzes how competing paradigms influenced the selection of course content and pedagogical foci in professional training curricula. The authors conclude that in order to take advantage of an unprecedented opportunity provided by the rapid, global expansion of professional education in public administration, there is an urgent need to find a synthesized theoretical framework .     

We All Need Help: “Big Data” and the Mismeasure of Public Administration

Rapid advances in our ability to collect, analyze, and disseminate information are transforming public administration. This “big data” revolution presents opportunities for improving the management of public programs, but it also entails some risks. In addition to potentially magnifying well‐known problems with public sector performance management—particularly the problem of goal displacement—the widespread dissemination of administrative data and performance information increasingly enables external political actors to peer into and evaluate the administration of public programs. The latter trend is consequential because external actors may have little sense of the validity of performance metrics and little understanding of the policy priorities they capture. The author illustrates these potential problems using recent research on U.S. primary and secondary education and suggests that public administration scholars could help improve governance in the data‐rich future by informing the development and dissemination of organizational report cards that better capture the value that public agencies deliver.     

Network Structure and Governance Performance: What Makes a Difference?

Comparing and evaluating the performance of governance networks are important tasks for researchers and practitioners of network governance and public administration. Limited by the lack of network data across space and time, the study of network performance and effectiveness at the network level is not on pace with advances in theories and methodologies in network analysis. With a novel methodology to measure clean energy governance networks using hyperlink network analysis across the contiguous United States, this article collects a large sample of self‐organizing policy networks in the same policy domain across geographic locations. This article proposes that governance networks with high overall bridging and bonding social capital perform better. Regression analyses show that network structures have statistically significant effects on governance outcomes. States with high average closeness and average clustering in their governance networks are more likely to have faster clean energy development.     

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.     

Alberto Guerreiro Ramos, 20 Years Later: A New Science Still Unrealized in an Era of Public Cynicism and Theoretical Ambivalence

Alberto Guerreiro Ramos's public life and scholarly works challenge us to rethink and reconceptualize the field of public administration, particularly in this era of public cynicism and theoretical uncertainty. This article examines the historical context of his earlier writings and how they influenced his later scholarly work. As a prominent Brazilian scholar working in the United States, Guerreiro Ramos's "in-betweenness," as he called it, provided him a unique and little-appreciated perspective from which to reevaluate the social sciences. The result was his last book, The New Science of Organizations: A Reconceptualization of the Wealth of Nations, one of the most polemical works published in the field and an examination of the fundamental assumptions of public administration and the social sciences.     

The Reformer's Spirit: How Public Administrators Fuel Training in the Skills of Good Governance

The public administration literature has long identified public administrators as key players in achieving government reform. Public managers may be motivated to provide employee access to training in governance skills by several factors, including the need to fulfill the current functions of government, to expand employee responsibilities, or to reform administrative processes and/or programs. The authors examine the impact of public managers on the availability of governance skills training by observing how the desire to achieve reform influences their training decisions in light of other motivating factors. They find that training in citizen input, client relations, and performance indicators are significantly and substantively more prevalent in organizations when public managers believe that such training is necessary for reform, and that the more “democratic” a skill, the more likely a reform motivation will outweigh other factors.