Evolution of Public Policy Theory in Public Administration

1. CONTEXT FOR ORGANIZATION THEORY PUA 713 DR. SPRINGER FALL 2005

2. INSIDE FORCES ON A PUBLIC AGENCY MANAGER MORALE EMPLOYEE/UNION DEMANDS AGENCY HEAD OR MANAGER AGENCY HEAD OR MANAGER BUDGET CONSTRAINTS PROFESSIONAL ASSOCIATIONS. DEMANDS OF UNITS NEED TO MAINTAIN OR INCREASE PRODUCTIVITY

3. THE POLITICAL & CULTURAL ENVIRONMENT OF PUBLIC POLICY & IT’S ADMINISTRATION • WHAT IS PUBLIC POLICY • Public Policymaking in a Republic • Executive Powers • The Restricted View • Wm. Taft and Strict Constructionism • The Prerogative Theory • John Locke and Executive Privilege • The Stewardship Theory • T. Roosevelt and Actions in the Public Interest

4. THE POLITICAL & CULTURAL ENVIRONMENT OF PUBLIC POLICY & ITS ADMINISTRATION • THE POLICY MAKING PROGRESS • Agenda Setting • Process of ideas bubbling up for consideration • Anthony Downs – Preproblem, Alarmed Discovery, Recognition, Decline of Public Interest, Post Problem Phase • Decision Making • Rational • Intelligence, Recommending, Prescribing, Invoking, Application, Appraisal, and Terminating Phases • Implementation – small decisions at the margin • Seven Reasons for Incrementalism • Evaluation • Feedback

5. RATIONAL ACCORDING TO HERMAN SIMON1958 • MAKING OPTIMAL CHOICES IN HIGHLY SPECIFIED ENVIRONMENT • IDENTIFYING ALTERNATIVES A GIVEN • CONSEQUENCES FOR EACH • CERTAINTY, RISK, AND UNCERTAINTY • DECISIONMAKER CAN RANK CHOICES BASED UPON CONSEQUENCES • GOOD SELECTION POSSIBLE • MINIMAX RISK=MAXIMUM BENEFIT AND MINIMUM CONSEQUENCE

6. THE POLITICAL & CULTURAL ENVIRONMENT OF PUBLIC POLICY & ITS ADMINISTRATION • POWER--THE EXTERNAL PERSPECTIVE • Pluralism • Assuming the shifting of power within a democracy • Group Theory • Madison – Federalist Paper #10 • Interest Groups Will Be Heard and Can Be Managed • Organizational Goals • Internal Power Relationships

7. THE POLITICAL & CULTURAL ENVIRONMENT OF PUBLIC POLICY & ITS ADMINISTRATION • THE CULTURES OF PUBLIC ADMINISTRATION • The Outside Cultural Environment • The Inside Cultural Environment • Professional Socialization • Symbolic Management

8. THE EVOLUTION OF ORGANIZATIONAL AND MANAGEMENT THEORY From Moses Meets a Management Consultant to New Public Management

9. A CHRONOLOGY • 400 B.C. SOCRATES – MGT IS AN ART UNTO ITSELF • 360 B.C. ARISTOTLE – CULTURAL CONTEXT • 1776 ADAM SMITH – OPTIMAL ORGANIZATION OF PIN FACTOR • 1813 ROBERT OWEN – EMPLOYEES ARE VITAL MACHINES • 1910 LOUIS BRANDEIS AND FREDERICK TAYLOR - SCIENTIFIC MANAGEMENT • 1922 MAX WEBER –BUREAUCRACY AS A STRUCTURE

10. A CHRONOLOGY • 1937 GULICK’S POSDCORB • 1940 MERTON AND THE DYSFUNCTIONS OF BUREAUCRACY • 1946 SIMON ATTACKS THE PRINCIPLES APPROACH • 1948 WALDO ATTACKS THE GOSPEL OF EFFICIENCY • 1949 SELNICK AND TVA’S COOPTATION • 1954 DRUCKER AND MANAGEMENT BY OBJECTIVES • 1957 ARGYRIS AND THE CONFLICT BETWEEN PERSONALITY AND THE ORGANIZATION

11. A CHRONOLOGY • 1961 THOMPSON FINDS DYSFUNCTION DUE TO ABILITY VS AUTHORITY • 1962 PRESTHUS’ UPWARDMOBILES, INDIFFERENTS AND AMBIVALENTS • 1964 CROZIER – BUREAUCRACY AS AN ORGANIZATION THAT CANNOT LEARN FROM ERRORS • 1966 BENNIS PROCLAIMS DEATH TO BUREAUCRATIC INSTITUTIONS • 1968 HERZBERG – MOTIVATORS, SATISFIERS AND HYGIENE FACTORS • 1972 CLEVELAND – CONTINUOUS IMPROVISATION IS REQUIRED • 1976 MACCOBY AND THE GAMESMAN • 1981 PFEFFER – POWER IN ORGANIZATIONS

12. A CHRONOLOGY • 1983 ROSABETH MOSS KANTER AND THE CHANGEMASTER • 1988 ZUBOFF AND THE AGE OF THE SMART MACHINE • 1990 GAGLIARDI AND SYMBOLS AND ARTIFACTS • 1992 OSBORNE AND GAEBLER RE-INVENT GOVERNMENT • 1997 VIRTUAL ORGANIZATIONS AND BEYOND • 2000 SNOOK ANALYZES SYSTEMIC BREAKDOWN IN FRIENDLY FIRE • 2002 PERROW AND ORGANIZING AMERICA: WEALTH, POWER AND ORIGINS OFCORPORATE CAPITALISM

13. MOSES CREATES FIRST BUREAUCRACY • JETHRO – INSTEAD OF COUNSELING EVERYONE – TEACHING ORDINANCES AND LAWS SO THEY FIND THEIR OWN WAY USING BASIC PRINCIPLES • HAVING TO DEAL WITH ONLY THE HARD CHOICES

14. EIGHT DEFINITIONS OF ORGANIZATION • WEBER • OBEY ORDERS • WALDO • STRUCTURE OF INTER-RELATIONS • BARNARD • CONSCIOUSLY COORDINATED ACTIVITIES • SELZNICK • STRUCTURAL EXPRESSION OF RATIONAL ACTION

15. EIGHT DEFINITIONS OF ORGANIZATION • KATZ AND KAHN • ENERGETIC AND INTERDEPENDENT INPUTS-OUTPUTS • SILVERMAN • SOCIAL INSTITUTIONS WITH SPECIAL CHARACTERISTICS AND LEGITIMACY • COHEN, MARCH, OLSEN • COLLECTION OF ISSUES LOOKING FOR RESOLUTION AND DECISION MAKERS LOOKING FOR WORK

16. BRINGING THEORIES INTO PERSPECTIVE • DOMINANT METAPHORS • PRIMARY UNITS OF ANALYSIS • RELATION OF INDIVIDUAL TO ORG. • MEANING OF RATIONALITY • PRIMARY VALUES EMBODIES IN THEORITICAL PERSPECTIVES • “GENERIC” NO DIFFERENCE BETWEEN PUBLIC AND PRIVATE SECTOR THEORIES???

17. THREE ARENAS OF PUBLIC ORGANIZATION • INTER-ORGANIZATIONAL • PUBLIC ADMINISTRATOR ACTS AS AGENT • INTRA-ORGANIZATIONAL • PUBLIC ADMINISTRATOR HAS A PLACE IN THE ORGANIZATION • ORGANIZATION TO INDIVIDUAL • INTERACTIONS WITH INDIVIDUALS INSIDE AND OUTSIDE AND DISCRETION

18. BUREAUCRACY ACCORDING TO MAX WEBER • 1. FIXED AND OFFICIAL JURISDICTIONAL AREAS DEFINED BY REGULATIONS • 2. AUTHORITY AND SUPERVISION • 3. WRITTEN AND PRESERVED FILES • 4. EXPERT TRAINING IS ASSUMED • 5. OFFICIAL ACTIVITY DEMANDS AND RECEIVES FULL CAPACITY • 6. MANAGEMENT FOLLOWS STABLE, COMPLETE AND UNDERSTANDABLE RULES

19. POSTURE OF THE OFFICIALACCORDING TO WEBER • OFFICE HOLDING IS A VOCATION • SOCIAL ESTEEM • APPOINTED BY LEGITIMATE AUTHORITY • TENURE FOR LIFE • COMPENSATION AND PENSION • SET FOR A CAREER WITHIN HIERARCHY OF PUBLIC SERVICE

20. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • THE ORGINS OF PUBLIC MANAGEMENT • The Continuing Influence of Ancient Rome • The Military Heritage of Public Administration • Comparing Military & Civilian Principles • The Principles Approach • The Cross-Fertilization of Military & Civilian Management

21. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • Key Concepts • Merit system • Public Works • Police • Commander in Chief • Span of Control • Unity of Command

22. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • WHAT IS ORGANIZATION THEORY? • Classical Organization Theory • Production related and economic goals • Systematic Organization • Division of Labor • People Act Rationally • Adam Smith and the Pin Factory • Laissez-faire capitalism

23. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • THE ORGINS OF SCIENTIFIC MANAGEMENT • Frederick W. Taylor • Time and Motion, Measuring Management • Worker Development • Worker Cooperation • Division of Work • Fayol’s General Theory of Management • Six Principles – technical, commercial, financial, security, accounting, management

24. FREDERICK TAYLORPRINCIPLES OF SCIENTIFIC MGT.DECEMBER, 1916 • RESTRICTING WORKER OUTPUT HURTS THE WORKER • PRACTICE PRECEDES THEORY • GOODWILL IS CREATED AMONG WORKERS • WORKERS ASSUME NEW BURDENS VOLUNTARILY • THE SCIENCE OF SHOVELING AT BETHLEHEM STEEL • COSTS MONEY AND JUSTIFIES PROFIT • MR. BARTH INCREASING WORK 2-3 TIMES THROUGH ANALYSIS

25. FREDERICK TAYLORPRINCIPLES OF SCIENTIFIC MGT.DECEMBER, 1916 • 1ST PRINCIPLE: LEARNING THE SCIENCE OF WORK BY STUDYING MOTION AND TIME ON THE JOB • 2ND PRINCIPLE – SELECT AND DEVELOP WORKMEN • 3RD PRINCIPLE – BRINGING SCIENCE TOGETHER WITH TRAINED WORKERS • 4TH PRINCIPLE – DIVIDING WORK BETWEEN WORKERS AND MGT.

26. FAYOL’S PRINCIPLES OF MANAGEMENT • DIVISION OF WORK • AUTHORITY AND RESPONSIBILITY • DISCIPLINE • UNIT OF COMMAND • UNITY OF DIRECTION • SUBORDINATION OF INDIVIDUAL TO GENERAL INTEREST • REMUNERATION OF PERSONNEL • CENTRALIZATION

27. FAYOL’S PRINCIPLES OF MANAGEMENT • CLEAR LINE OF AUTHORITY • ORDER • EUITY • STABILITY OF TENURE OF PERSONNEL • INITIATIVE • ESPRIT DE CORPS

28. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • THE PERIOD OF ORTHODOXY- between the wars • Paul Appleby’s Polemic • Govt is different because Govt is Politics • Luther Gulick’s POSDCORB

29. POSDCORB AS AN ORGANIZING PHILOSPHY • PRIMARY ACTIVITIES OF THE EXECUTIVE • CONSEQUENCE: • EMPHACIZING MEANS OF ADMINISTRATION NOT PURPOSE • DICHOTOMY BETWEEN POLITICS AND ADMINISTRATION • EFFICIENCY OF WORK IS IMPORTANT THRU DIVISION OF LABOR

30. POSDCORB AS AN ORGANIZING PHILOSPHY • PLANNING • ORGANIZING • STAFFING • DIRECTING • COORDINATING • REPORTING • BUDGETING

31. FOUR VIEWS OF ORGANIZATION DETERMINISTIC VOLUNTARISTIC • MACRO LEVEL MICRO LEVEL

32. FOUR BUREAUCRATIC POSTURESTOWARD A COMPOSITE APPROACH • APPROACH • FORM • SCOPE • COVERAGE • MOTIVE OR VALUES • ORIGINS • NET IMPACT ON PUBLIC INTEREST • NET IMPACT ON PERFORMANCE • WEBERIAN OR RESPONSIBLE • REPRESENTATIVE • PUBLIC SERVICE • PUBLIC CHOICE

33. ADMINISTRATIVE DECISION-MAKING • DECISION MAKING: CHOICES • EFFICIENCY VS. EFFECTIVENESS • PRODUCTIVITY • WEBER – LEGAL/RATIONAL (INSTRUMENTAL) AUTHORITY • RIGHTS AND THE ADEQUACY OF PROCESS • PUBLIC WELFARE ADMINISTRATORS AND THEIR CLIENTS • REPRESENTATION AND CONTROL OF DISCRETION • ROLE OF MORAL OBLIGATION/CODES OF ETHICS

34. WHAT DOES PUBLIC ADMINISTRATION DEAL WITH? • DECISIONS THAT • AFFECT PEOPLE’S LIVES • ARE MADE IN THE NAME OF THE PUBLIC • USE PUBLIC RESOURCES • TAME AND WICKED PROBLEMS • PERSONAL VS. ORGANIZATIONAL ACTION

35. SYSTEM BETRAYED CASE • DECISIONS MADE • POLICY • ADMINISTRATION • SORTING THROUGH INTERESTS • ACCOUNTING FOR CONSEQUENCES • JUSTIFYING ACTIONS • WHOSE TO BLAME?

36. FOUR QUESTIONS TO THINK ABOUT. . . • WHAT IS THE PUBLIC ADMINISTRATION FRAMEWORK? • WHAT ARE THE THEORIES THAT APPLY TO ORGANIZATIONAL BEHAVIOR? • HOW WOULD YOU DEFINE ORGANIZATIONAL THEORY? • COMPARE AND CONTRAST CLASSICAL AND NEOCLASSICAL APPROACHES TO ORGANIZATIONAL BEHAVIOR

37. MOVING FROM CLASSICAL ON. . . • INDUSTRIAL REVOLUTION • EFFICIENCY AND EFFECTIVENESS • ORGANIZATION BY DECISION SETS • ORGANIZATIONS AS PURPOSIVE ENTITIES • INTEGRATING INDIVIDUALS • ORGANIZING AS REVEALED SELF-INTEREST • ORGANIZING AS SOCIAL ACTION • OGANIZING AS DISCOVERED RATIONALITY

38. SUPERINTENDENT’S REPORT • 1856 – ERIE RAILROAD COMPANY SETTLED PRINCIPLES • DIVISION OF RESPONSIBILITIES • POWER TO CARRY OUT • MEANS OF MEASUREMENT • PROMPT REPORT OF ERRORS SO CORRECTED • DAILY REPORTS, CHECKS AND BALANCES • ADOPTION OF SYSTEM TO ALLOW GENERAL SUPERINTENDENT TO DETECT AND CORRECT ERRORS IMMEDIATELY

39. THE ENGINEER AS AN ECONOMIST • SEPARATE FROM THE AMERICAN SOCIETY OF MECHANICAL ENGINEERS • SHOP MANAGEMENT • ORG. , RESPONSIBILITY, REPORTS, SYSTEMS OF WORK, EXECUTIVE MANAGEMENT • SHOP ACCOUNTING • TIME, WAGES, COSTS, BOOKKEEPING, EXPENSES, RECORDS OF RESULTS AND PROFITS

40. CLASSICAL SCHOOL1930’S AND INFLUENTIAL TODAY • 1. ORGS EXIST TO ACCOMPLISH PRODUCTION RELATED GOALS • 2. ONE BEST WAY TO ORGANIZE • 3. PRODUCTION IS MAXIMIZED THROUGH SPECIALIZATION AND DIVISION OF LABOR • 4. PEOPLE AND ORGANIZATIONS ACT IN ACCORDANCE WITH RATIONAL ECONOMIC PRINCIPLES

41. THE ECONOMY OF INCENTIVESCHESTER BARNARD - 1938 • SPECIAL INDUCEMENTS FOR PRODUCTIVITY • MATERIAL • PERSONAL DEVELOPMENT • WORKING CONDITIONS • IDEAL BENEFACTIONS • SATISY PERSONAL IDEALS RELATED TO FUTURE AND ALTRUISM • ORGANIZATION ATTRACTIVENESS • INCENTIVES DIFFER BY ORG. PURPOSE • INDUSTRIAL – PRODUCTION OF MATERIAL GOODS + LIMITED MATERIAL REWARDS • POLITICAL – PERSONAL PRESTIGE/MATERIAL REWARDS IMPORTANT TO IDEAL BENEFACTIONS • RELIGIOUS – FAITH/LOYALTY MADE POSSIBLE BY MATERIAL CONTRIBUTIONS

42. BUREAUCRATIC STRUCTURE AND PERSONALITYROBERT MERTON - 1957 • THE DYSFUNCTIONS OF BUREAUCRACY • SECRECY • OCCUPATIONAL PSYCHOSIS • OVERCONFORMITY • SECULAR AND SACRED DIVISION OF LABOR • DEPERSONALIZATION • DISCREPANCY BETWEEN IDEOLOGY AND FACT • SERVANTS OF THE PEOPLE? • QUESTIONS TO BE ANSWERED • PRESTIGE SYMBOLS TO INNER CIRCLE?

43. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • “MODERN” STRUCTURAL ORGANIZATION THEORY • Talcott-Parsons 1951 • Social Systems vs. Political Organizations • Basic Assumptions • ORGANIZATIONS ARE RATIONAL • BEST STRUCTURES • DIVISION OF LABOR • PROBLEMS ARE STRUCTURAL • Mechanisms and Organic Systems

44. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • NEOCLASSICAL ORGANIZATION THEORY- 1776 TO 1937 • ORGANIZATIONS DO NOT EXIST AS ISLAND • Herbert Simon’s Influence • SATISFICING • BOUNDED RATIONALITY • The Impact of Sociology • SELZNIK – GOALS AND VALUES NOT NECESSARILY ALIGNED • OPENING UP ORGANIZATIONS

45. ORGANIZATIONS AS NON-RATIONAL INSTITUTIONSSELSNICK - 1948 • ORGANIZATIONS AS ECONOMIES • ORGANIZATIONS AS ADAPTIVE SOCIAL SYSTEMS • STRUCTURAL-FUNCTIONAL ANALYSIS • SECURITY, STABILITY CONTINUITY, RECALCITRANCE, HOMOGENEITY OF OUTLOOK • CO-OPTATION • PROCESS OF ABSORBING NEW ELEMENTS AS A MEANS OF AVERTING THREATS

46. ORGANIZATIONS AS A COLLECTION OF BEHAVIORSCyert & March -1959 • COALITIONS • OBJECTIVES SET THRU BARGAINING, INTERNAL CONTROLS AND ADJUSTING TO EXPERIENCE • EXAMPLE: COMMITTEE AND PAINTING • PREDICTIVE THEORY • DEMANDS AND PROBLEMS FOR MEMBERS • TOOL TO CHANGE DEMAND OVER TIME • ATTENTION-FOCUS TOOL FOR DEMANDS • ATTENTION-FOCUS TOOL FOR PROBLEMS • DEMAND EVALUATION PROCEDURE • TOOL FOR CHOOSING AMONG VIABLE COALITIONS

47. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • SYSTEMS THEORY • SYSTEMS ANALYSIS-RIGOROUS COLLECTION, MANIPULATION AND EVALUATION OF DATA TO MAKE GOOD DECISIONS • CYBERNETICS – ADAPTIVE SYSTEMS REQUIRING MULTI-DISCIPLINARY APPROACHES • THE LEARNING ORGANIZATION-PERSONAL MASTERY, MENTAL MODELS, SHARED VISION, TEAM LEARNING, SYSTEMS THINKING

48. THE EVOLUTION OF MANAGEMENT & ORGANIZATION THEORY • THE ORGINS OF PUBLIC MANAGEMENT • The Continuing Influence of Ancient Rome • The Military Heritage of Public Administration • Comparing Military & Civilian Principles • The Principles Approach • The Cross-Fertilization of Military & Civilian Management

49. NEO-CLASSICAL: ORGANIZATIONS AS DECISION SETS • FROM SYSTEM, HIERARCHY, STRUCTURE TO NEO-CLASSICAL: • HUMAN ANALYSIS • DECISIONMAKERS • SERIES OF CHOICES • RATIONAL LINKAGES • BOUNDED BY ORGANIZATIONAL PURPOSE

50. FAYOL’S FOURTEEN PRINCIPLES • PRINCIPLES APPLY DIFFERENTLY IN DIFFERENT SITUATIONS • ADMINISTRATION: TO BRING A BETTER, ORDERED LIFE FOR THE ORGANIZATION AND THOSE WORKING IN IT • SUBORDINATION OF INDIVIDUAL INTERESTS TO COMMON GOOD • HIERARCHY • CENTRALIZATION • UNITY OF COMMAND AND MANAGEMENT