Section 1
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Different voices about dichotomy
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Mar 1, 2020
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Section 1
(50 cards)
Different voices about dichotomy
-Ignored the realities of bureaucratic politics -From distributive to re-distributive -Attack on the over simplistic nature -Abbleby (1949): "government is politics" -Waldo (1984): PA research is grounded in political theory -Selznick (1949): TVA managers "co-opted" elected officials in implementation -Simon (1967): Wilson's notion is normative -The "politics school" argued that politics is a part of administration
When should we treat people equally, and when should we treat them unequally?
-This changed with the social and environmental movements of the 1960s-1970s -Sometimes we need to treat people differently in order to achieve fairness; requires analyzing "same-versus-different" questions
Administrative downsides
-Lowi (1979) argues against giving bureaucrats too much discretion as they become more difficult to control -How do we hold street-level bureaucrats accountable for their decisions? -How do we reduce goal ambiguity and ensure bureaucrats meet organizational aims?
Searching for virtue
-The traditional public administration ethics canon: merit-based system, standardization, ethics rules, codes of professionalism, etc. -Did the canon work? -Yes, government was more ethical and professional by the 1970s than in the spoils era -But what was the price? -Slowed down, inflexible, government with excessive red tape; did little to reduce the worst parts of unethical behavior in government; just addressed the smaller matters
Court Decisions limiting discretion
-Industrial union department AFL-CIO v. American Petroleum (1980): administrators need to establish "set standards" -Due process: -Goldberg v. Kelly (1970) -Matthews v. Eldridge (1976) -Londoner v. Denver (1908) -Bi-metallic investment company v. state board of equalization (1915) -Search and seizure protection -Torts
Frank Goodnow's dichotomy-- three authorities
-Judicial authorities -Executive authorities -Administrative authorities
Social Equity
-Derived from John Rawls' A theory of Justice (1971) as well as the new public administration (NPA) movement in the late 1960s and 1970s -Suggests that justice is the central organizing principle of government -Advocated that government should actively address social equity issues such as discrimination and unequal access to policymaking
Goodnow's dichotomy -- function of politics
-Harmony between expression and execution -Otherwise, political paralysis -Harmony required the independence of two functions -Executing authority should be subordinated to the expressing authority, which is more representative of the people -Legal separation of the bodies in the government -The party system
Dorman Eaton
Chair of first Civil Service commission; drafted the Pendleton Civil Service Act of 1883
Max Weber's bureaucratic model
-Formal rules and regulations -Specialized roles -A hierarchal structure -Clear chain of command What are the consequences? -Centralized and hierarchal power -Power held in the hands of so few -Bureaucrats tend to follow authority blindly
Cooper's "big questions" of administrative ethics?
1. What are the normative foundations? Whose ethics should we adopt? 2. How do American administrative ethical norms fit into a global context? 3. How can organizations be designed to support ethical conduct? 4. When should we treat people equally in order to treat them fairly, and when should we treat them unequally?
Mine fire in Centralia (1947)
Look up in powerpoint (week 3)
Goldberg v. Kelly (1970)
Hearing necessary for the termination of welfare benefits
Regime values, constitutional theory, and founding thought
-Our values are found in the U.S. constitution and the court's interpretation of it -Main values include freedom, equality, and property -Implies that taking a job in government is an ethical decision; we expect government workers to uphold these values
Bi-Metallic investment company v. State board of equalization (1915)
No hearing necessary when the policy decision affects all property owners
Philosophical Foundations
1. Human centered 2. Social and government institutions are a means to satisfying individual needs 3.The individual is of supreme value, not society, and all individuals are of equal moral value
Bureaucracy
-Max Weber (1864-1920) -"idea type" 1. The principle of fixed and official jurisdictional areas ordered by rules, laws, and administrative regulations 2. The principle of office hierarchy 3. Administration based on written document 4. Division of labor 5. Full working capacity of the official in the official activity 6. The duty of following general rule in the office management
Leonard White's textbook
-Administration is unitary process -The basis for study is management not law -Is an art, but transformance to a science -Administration is the heart of modern management
Market Failure Theory
Prescribes the use of markets, not governments, unless the efficiency of markets has been undermined by a monopoly, poor information to consumers, the inability of producers to protect against free riders, etc.
William Willoughby's budgeting reform
-How budgets would advance and provide control -How budgets enhance legislative and executive cooperation -How budgets ensure efficiency
Civil Service Reform
-Took place after the civil war, but roots in the founding age -Problems from spoils system -Dorman Eaton's reform efforts -Tenure -Merrit system -Future challenge of civil service
Matthews v. Eldridge (1976)
No hearing necessary for termination of disability benefits
Woodrow Wilson
-1856-1924 "founder of public administration" -Not only personnel problems, but also on organization and management in general -Organizational efficiency and economy -Politics-administration dichotomy
Frank Goodnow's dichotomy-- two functions of Government
-Politics -Administration -Legislature discharges administration through special acts; Executive discharges politics through veto power
Administrative Discretion- Why? The Policy Cycle
-Harold Lasswell -Agenda setting: the recognition of a certain subject as a problem demanding further government attention -Policy Formulation: Exploring options or alternatives available for addressing the problem -Decision making: Deciding on a course of action, whether to perpetuate the policy status quo or after it -Implementation: Putting the decision into practice -Evaluation: Assessing the effectiveness of a policy in terms of its intentions and results
Citizenship Theory
-The citizen's role in society provides the normative foundation -Public administration's role is derived from that of the citizen; public administrators work on behalf of the citizens -The importance of being responsive to citizens, encouraging their participation, being accountable to them, viewing them as the locus of ultimate administrative loyalty, respecting the dignity of the individual, fostering reasoned deliberation and encouraging civic virtue and concern for the common good
Progressive Movement
-Main goals -Search for greater democratic participation by the individual -Application of science and specialized knowledge and skills -Main Strategies -Control corruption -"Hull house" by Jane Addams
What are the normative foundations?
Five alternatives: -Regime values, constitutional theory, and founding though -Citizenship theory -Social equity -Virtue or character-based ethics -The public interest
Public Interest - declining?
Why? -Too ambiguous -Quantitative and behavioral approaches and the need for precise answers -Seems out of place with theories of interest groups that try to maximize competing interests -Societies and government succeed in rendering life less fearful -Barry Bozeman
Administrative Authorities
Attend to the scientific, technical, and so to speak, commercial activities of the government
Elton Mayo
-Hawthorne experiment -Human relation school
What is public life?
"Publicness" vs. "Government" -Special districts, pricate utilities, charter schools, quasi-governmental agencies, government corporations, etc. "privatizing" traditional governmental operations Today, there is a different form of "big government" -Known as third-party government, the hollow state, the shadow bureaucracy, the blended public workforce, etc. Public life today is "publicness" or degrees of what is public
Mary Parker Follett
The giving of orders
Judicial Authorities
Apply the law in concrete cases where controversies arise owing to the failure of private individuals or public authorities to observe the rights of others
Individualism - growing?
-"A philosophy emphasizing in matters economic the values and interests of the individual" -"Selfishness in which one favors oneself and maybe a small set of family and friends" - Alexis de Tocqueville -Adam Smith's "invisible hand"; free markets maximize efficiency as well as freedom -Jeremy Bentham's "utilitarianism"; greatest good for the greatest amount; sometimes works/conflicts with economic individualism
Londoner v. Denver (1908)
Hearing necessary when property interests of an individual or a small group are subject to a tax
How can organizations be designed to support ethical conduct?
-Milgram's experiments on obedience to authority, as well as Zimbardo's stanford prison experiment- rules, hierarchy, cultural norms affect organizational behavior; William Whyte's (1956) "organizational men" were extremely loyal and subservient to authority -NASA disasters, challenger (1986) and columbia (2003), illustrate how resource constraints, politics, scheduling and financial pressure, and lack of vision led to poor decisions -Perhaps institutions can be "designed" in order to promote ethical decision making
"Searching for virtue in the public life"
-H. George Frederickson -Virtue is better understood in the public life -Virtue is to be found in "vulgar ethics" rather than abstraction -Virtue is to be found in the development of organizational rules, procedures, leadership, and culture, or "vulgar ethics"
How do American administrative ethical norms fit into a global context?
-Perhaps international treaties, pacts, agreements, conventions, etc. suggest that there is a global public ethic -Such values could be self-determination, freedom, honesty, trust, stability, transparency, market economies, open democracy, etc
Virtue and v. the public interest
-Virtue: this movement eschewed the rational analysis approach to ethical decision making and argued for greater emphasis on individual character and morals -The public interest involves questions concerning: are public administrators acting on the behalf of broad shared interests, or special, limited ones?
Politics
Has to do with policies or expressions of the state will
The Iron Triangle
Congress: -Gives funding and political support to the Bureaucracy -Gives friendly legislation and oversight to the interest group -Gets electoral support from the interest group -Gets policy choices and execution from the Bureaucracy Interest Group: -Gives electoral suport to congress -Gives congressional support via lobby to the Bureaucracy -Gets friendly legislation and oversight from congress -Gets low regulation and special favors from the Bureaucracy Bureaucracy: -Gives low regulation and special favors to the interest group -Gives policy choices and execution to congress -Gets funding and political support from congress -Gets congressional support via lobby from interest groups
Administrative Discretion- Why? Lipsky (1980): "street-level bureaucrats"
-Include police officers, teachers, social workers, etc. -- basically any public administrator who regularly comes in direct contact with clients (citizens) -They make policy, provide public benefits, and keep order -Their discretionary power is needed for effective and efficient government
Formal rules and bureaucratic discretion--How?
Discretion -Can pretend they never receive the order -Simply delay -Hold up a policy chance on technical ground Whistleblowing -Enhancing our self-respect -Gaining and maintaing the esteem -Force responsible actions Resignation
What are ethics?
-French and Granrose (1995) -"Normative guidelines resolving conflicts of interest to enhance societal well-being" -Thompson (1985) when affecting the well-being of other individuals and society -The rights and duties that individuals should respect -The conditions that collective practices and policies should satisfy
Market-based governance
-Market failure theory -Ex: sales of public assets to private parties; privatization and contracting out; policies based on vouchers and tax credits; creation of hybrid organizations such as government corporations; government management of contractors, etc.
Administration
-Has to do with the execution of these policies -Referred to executive and administrative authorities
Scientific Management
-From rule-of-thumb methods to systematic, more scientific measuring individual work accomplishment -Scientifically selecting and developing workers to ensure their role -Cooperation between managers and workers -Logical divisions of work and responsibilities -Frederick Taylor "father of scientific management"
Finding virtue in the new governance era?
Look to "grass-roots publicness" -Citizen participation, social equity, social capital, cooperation, collaboration, etc. "Effective 'publics' have trust, make and enforce rules, build structures, practice reciprocity, and have cultures of ethical leadership" "Send the philosophers home" and embrace "vulgar ethics" - i.e. common or ordinary ethics -Put rules, regulations and red tape in place to keep bureaucrats from behaving badly
Executive Authorities
Have the general supervision of the execution of the state will
Section 2
(49 cards)