Fluent Essays

1. The idea of a “politics-administration dichotomy” has had a lot of influence in American reform thinking in public administration. Discuss the dichotomy. Discuss how the dichotomy is supported and opposed. Finally, tell me what you think about it (300-350 words) 2.    Trace the development of American public administration from the founding to the present day. Explain how the focus of the profession has changed (making sure to include SPECIFIC examples). (300-350 words) 39214_fm_rev04.indd 4 12/11/12 2:28 PM Public Administration An Action Orientation Seventh Edition R O B E R T B . D E N H A R D T University of Southern California J A N E T V. D E N H A R D T University of Southern California TA R A A . B l A N c Arizona State University Australia • Brazil • Mexico • Singapore • Spain • United Kingdom • United States 39214_fm_rev04.indd 1 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. 39214_fm_rev04.indd 4 12/11/12 2:28 PM This is an electronic version of the print textbook. Due to electronic rights restrictions, some third party content may be suppressed. Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. The publisher reserves the right to remove content from this title at any time if subsequent rights restrictions require it. For valuable information on pricing, previous editions, changes to current editions, and alternate formats, please visit www.cengage.com/highered to search by ISBN#, author, title, or keyword for materials in your areas of interest. Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. © 2014, 2009, 2006, Wadsworth, Cengage Learning ALL RIGHTS RESERVED. No part of this work covered by the copyright herein may be reproduced, transmitted, stored, or used in any form or by any means graphic, electronic, or mechanical, including but not limited to photocopying, recording, scanning, digitizing, taping, Web distribution, information networks, or information storage and retrieval systems, except as permitted under Section 107 or 108 of the 1976 United States Copyright Act, without the prior written permission of the publisher. Library of Congress Control Number: 2012943892 ISBN-13: 978-1-133-93921-4 ISBN-10: 1-133-93921-X Wadsworth 20 Channel Center Street Boston, MA 02210 USA Cengage Learning is a leading provider of customized learning solutions with office locations around the globe, including Singapore, the United Kingdom, Australia, Mexico, Brazil and Japan. Locate your local office at international.cengage.com/region. Cengage Learning products are represented in Canada by Nelson Education, Ltd. For your course and learning solutions, visit www.cengage.com. Purchase any of our products at your local college store or at our preferred online store www.cengagebrain.com. Instructors: Please visit login.cengage.com and log in to access instructor-specific resources. Public Administration: An Action Orientation, Seventh Edition Robert B. Denhardt, Janet V. Denhardt, and Tara A. Blanc Publisher: Suzanne Jeans Executive Editor: Carolyn Merrill Acquiring Sponsoring Editor: Anita Devine Development Editor: Michael B. Kopf, S4Carlisle Publishing Services Assistant Editor: Patrick Roach Media Editor: Laura Hildebrand Brand Manager: Lydia LeStar Marketing Development Manager: Kyle Zimmerman Rights Acquisitions Specialist: Jennifer Meyer Dare Art and Design Direction, Production Management, and Composition: Cenveo Publisher Services Manufacturing Planner: Fola Orekoya Cover Image: Rachelle Antoinette Printed in the United States of America 1 2 3 4 5 6 7 16 15 14 13 12 For product information and technology assistance, contact us at Cengage Learning Customer & Sales Support, 1-800-354-9706 For permission to use material from this text or product, submit all requests online at www.cengage.com/permissions. Further permissions questions can be emailed to [email protected] 39214_fm_rev04.indd 2 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. For all our children 39214_fm_rev04.indd 3 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. 39214_fm_rev04.indd 4 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. v cONTENTS PREFACE xiv ACknowlEdgmEntS xvii About thE AuthoRS xviii ChAPtER 1 PERSonAl ACtIon In PublIC oRgAnIZAtIonS 1 What Is Public Administration? 2 Values of Democracy 3 Contrasting Business and Public Administration 5 Ambiguity 6 Pluralistic Decision Making 6 Visibility 7 Thinking about Public Administration Today 7 Publicness 8 The Global Context 9 What Do Public Administrators Do? 10 An Inventory of Public Management Skills 11 Voices of Public Administrators 13 Why Study Public Administration? 14 Preparing for Administrative Positions 16 Combining Technical and Managerial Training 17 Interaction of Business and Government 18 Influencing Public Organizations 19 Making Things Happen 20 Issues in Public Administration Theory and Practice 22 Politics and Administration 22 Ensuring Accountability 23 Bureaucracy and Democracy 24 Efficiency versus Responsiveness 25 Summary and Action Implications 26 Study Questions 26 Cases and Exercises 27 For Additional Reading 30 Appendix: Office of Personnel Management List of Core Executive Qualifications 31 ChAPtER 2 thE PolItICAl ContEXt oF PublIC AdmInIStRAtIon 35 Administrative Organizations and Executive Leadership 36 Administrative Organizations 39 39214_fm_rev04.indd 5 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. v i Contents The Executive Office of the President 39 Cabinet-Level Executive Departments 40 Independent Agencies, Regulatory Commissions, and Public Corporations 41 Agencies Supporting the Legislature and the Judiciary 41 The State Level 42 The Local Level 44 Cities 44 Counties 46 Native American Tribes 46 Special Purpose Governments 47 Nonprofit Organizations and Associations 48 Relationships with the Legislative Body 49 The Policy Process 50 Agenda Setting 50 Policy Formulation 52 Policy Legitimation 53 Policy Implementation 54 Policy Evaluation and Change 55 Types of Policy 55 Regulatory Policy 55 Distributive Policy 57 Redistributive Policy 57 Constituent Policy 58 Sources of Bureaucratic Power 59 Legislative Supervision: Structural Controls 61 Legislative Veto 62 Sunset Laws 63 Sunshine Laws 63 Agency Conduct 64 Legislative Supervision: Oversight 65 Legislative Supervision: Casework 66 Relationships with the Judiciary 67 Quasi-Legislative Action 67 Quasi-Judicial Action 69 Agency Discretion 69 Judicial Review 70 Concerns for Due Process 71 The Courts and Agency Administration 72 Summary and Action Implications 74 Study Questions 75 Cases and Exercises 76 For Additional Reading 77 39214_fm_rev04.indd 6 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. Contents v i i ChAPtER 3 thE IntERoRgAnIZAtIonAl ContEXt oF PublIC AdmInIStRAtIon 79 The Development of Intergovernmental Relations 82 Dual Federalism 84 Cooperative Federalism 85 Picket-Fence Federalism 86 The Reagan and First Bush Years 89 The Clinton Presidency 90 The Bush Administration 91 Obama and Federalism 94 Judicial Influence 96 The State and Local Perspective 98 Funding Patterns 98 Preemptions and Mandates 99 Preemptions 99 Mandates 102 Subnational Relationships 104 State to State 104 State to Local 105 Local to Local 107 Working with Nongovernmental Organizations 108 Privatization and Contracting 109 The Management of Nonprofit Organizations 114 Operational Leadership 114 Resource Development 115 Financial Management 116 Board Governance 117 Board-Staff Relations 118 Advocacy 119 Summary and Action Implications 119 Study Questions 120 Cases and Exercises 121 For Additional Reading 122 ChAPtER 4 PlAnnIng, ImPlEmEntAtIon, And EVAluAtIon 123 Planning 124 Strategic Planning 125 Planning for Planning 125 Organizing for Planning 127 Steps in Planning 127 Statement of Mission or Objectives 128 Environmental Analysis 128 Assessment of Strengths and Weaknesses 128 39214_fm_rev04.indd 7 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. v i i i Contents Analysis of Organizational Leaders’ Values 129 Development of Alternative Strategies 129 The Logic of Policy Analysis 129 Steps in Policy Analysis 130 Defining the Problem 130 Setting Objectives and Criteria 131 Developing Alternatives 132 Analyzing Various Policies 132 Ranking and Choosing 133 Costs and Benefits 133 Other Quantitative Techniques 134 Implementation 138 Organizational Design 139 Systems Analysis 141 Reengineering 143 Evaluation 144 Program Evaluation 145 Evaluation Designs and Techniques 146 Qualitative Techniques 147 Quantitative Techniques 148 Summary and Action Implications 149 Study Questions 150 Cases and Exercises 150 For Additional Reading 152 ChAPtER 5 budgEtIng And FInAnCIAl mAnAgEmEnt 155 The Budget as an Instrument of Fiscal Policy 156 The Budget as an Instrument of Public Policy 157 Where the Money Comes From 158 Individual Income Tax 159 Corporation Income Tax 159 Payroll Taxes 160 Sales and Excise Taxes 160 Property Taxes 160 Other Revenue Sources 161 Where the Money Goes 161 From Deficits to Surplus and Back 163 The Bush Tax Plan 165 Obama and Economic Recovery 166 State and Local Expenditures 167 The Budget as a Managerial Tool 169 Budget Formulation 169 39214_fm_rev04.indd 8 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. Contents i x Budget Approval 172 Budget Execution 174 Audit Phase 176 Approaches to Public Budgeting 176 The Line-Item Budget 177 The Performance Budget 178 Program Budgeting 179 Outcome-Based Budgeting 181 Budgetary Strategies and Political Games 181 Strategies for Program Development 182 Aspects of Financial Management 184 Capital Budgeting 184 Debt Management 186 Risk Management 187 Purchasing 187 Accounting and Related Information Systems 188 Government Accounting 188 Computer-Based Information Systems 190 Summary and Action Implications 191 Study Questions 192 Cases and Exercises 193 For Additional Reading 200 ChAPtER 6 thE mAnAgEmEnt oF humAn RESouRCES 203 Merit Systems in Public Employment 204 Spoils versus Merit 204 The Civil Service Reform Act and Its Aftermath 208 Reinvention and the National Performance Review 210 State and Local Personnel Systems 212 Hiring, Firing, and Things in Between 213 Classification Systems 213 The Recruitment Process 214 Pay Systems 217 Conditions of Employment and Related Matters 218 Sexual Harassment 219 AIDS Policy 220 Workplace Violence 221 Removing Employees 221 Personnel Reform Efforts 222 The Changing Character of Labor-Management Relations 224 Steps in the Bargaining Process 227 39214_fm_rev04.indd 9 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. x Contents To Strike or Not to Strike 229 Unions Redefined 230 Correcting Patterns of Discrimination in Public Employment 232 Americans with Disabilities Act 233 Questions of Compliance 234 Affirmative Action and Reverse Discrimination 236 The Glass Ceiling 238 Relations between Political Appointees and Career Executives 239 Summary and Action Implications 241 Study Questions 242 Cases and Exercises 243 For Additional Reading 246 ChAPtER 7 thE EthICS oF PublIC SERVICE 249 Approaches to Ethical Deliberation 249 Reasoning, Development, and Action 251 Moral Philosophy 252 Moral Psychology 253 Moral Action 255 Postmodern Ethics 257 Issues of Administrative Responsibility 259 The Limits of Administrative Discretion 260 Avenues for Public Participation 263 Transparency in Government 265 The Ethics of Privatization 266 Ethical Problems for the Individual 267 Interacting with Elected Officials 267 Following Orders 268 Conflicts of Interest 270 Whistle-Blowing 273 Prohibitions on Political Activities 275 Managing Ethics 277 Establishing an Ethical Climate 278 Summary and Action Implications 280 Study Questions 281 Cases and Exercises 281 For Additional Reading 284 Appendix: Code of Ethics of the American Society for Public Administration (ASPA) 285 39214_fm_rev04.indd 10 12/11/12 2:28 PM Copyright 2013 Cengage Learning. 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Contents x i ChAPtER 8 dESIgnIng And mAnAgIng oRgAnIZAtIonS 289 The Organizational Context 289 Images of Organizing in the Public and Nonprofit Sectors 291 The Functions of Management 292 The Early Writers: A Concern for Structure 294 Recognizing Human Behavior 298 Two Classic Works 300 The Organization and Its Environment 302 Systems Theory 302 From Political Economy to Organization Development 304 Decision Making in Organizations 305 Organizational Culture, Organizational Learning, and  Strategic Management 307 Guidelines for Public Management 313 Postmodern Narratives on Management 315 Postmodernism 315 Issues of Gender and Power 316 Summary and Action Implications 317 Study Questions 318 Cases and Exercises 318 For Additional Reading 319 ChAPtER 9 lEAdERShIP And mAnAgEmEnt SkIllS In PublIC oRgAnIZAtIonS 323 Leadership and Power 324 Communication 331 Listening 331 Have a Reason or Purpose 332 Suspend Judgment Initially 332 Resist Distractions 332 Wait before Responding 333 Rephrase What You Listen To in Your Own Words 333 Seek the Important Themes 333 Use the Thinking-Speaking Differential to Reflect and Find Meaning 334 Speaking 334 Writing 335 Delegation and Motivation 336 Delegation 336 Motivation 337 Pay and Job Satisfaction 337 Reinforcement Theory 338 Goal Setting 340 39214_fm_rev04.indd 11 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. x i i Contents Individual Decision Making 342 Group Dynamics 345 Advantages of Group Decision Making 345 Disadvantages of Group Decision Making 346 Interpersonal Dynamics in Groups 348 Specialized Techniques for Group Decision Making 349 Conflict, Bargaining, and Negotiation 350 Summary and Action Implications 352 Study Questions 353 Cases and Exercises 354 For Additional Reading 357 Appendix: “Lost on the Moon” Exercise: Answers from NASA Experts 358 ChAPtER 10 AdmInIStRAtIVE REFoRm, PRoduCtIVItY, And PERFoRmAnCE 361 New Public Management, Reinvention, the Management Agenda, and Nonprofit Reform 363 The New Public Management 363 Reinventing Government 364 The Management Agenda 365 Nonprofit Management Reform 366 The Results of NPM and Reinvention 368 Information and Communication Technologies 369 Technology and Management Reform 370 E-Government and E-Governance 371 Performance Measurement 374 Implementation Issues in Quality and Productivity 384 Steps to Productivity Improvement 385 Summary and Action Implications 388 Study Questions 389 Cases and Exercises 390 For Additional Reading 391 ChAPtER 11 oPPoRtunItIES FoR thE FutuRE: globAlIZAtIon, dEmoCRACY, And thE nEw PublIC SERVICE 393 The Importance of Public Service 393 Trends in Public Service 394 Economic Changes and Redefining Government 394 Globalization 397 The Role of Citizens in the Governance Process 398 39214_fm_rev04.indd 12 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. Contents x i i i Ethics and the Imperatives of Good Governance 402 A Final Note 404 Study Questions 405 Cases and Exercises 405 For Additional Reading 406 glossar y 407 References 415 Index 431 39214_fm_rev04.indd 13 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. PREFAcE The seventh edition of Public Administration: An Action Orientation updates the text by taking it through President Obama’s first term and into his second term, follow- ing a very close election. It discusses the implications of the recent economic crisis, explores the resulting budget deficits at all levels of government as well as the increase in the national debt, considers the possible ramifications of the Obama health care reform effort, and covers recent political moves to limit collective bargaining for public employees. Most notably, the book has been revised to more completely examine performance in government, on the one hand, and efforts to engage citizens in the work of public and nonprofit organizations, on the other hand. Placed in the context of the history of reform in the field, we now have extended our discussion of management reforms such as the New Public Management, updated material on advances in information and com- munication technology, and given more emphasis to performance management systems. In addition, we have included important new material dealing with leadership, organi- zational theory, and bureaucracy; expanded the discussion of special purpose govern- ments, including school districts; and given a closer look at the increasingly important connection between public administration and civic action or citizenship. We particu- larly emphasize new efforts to promote transparency, collaboration, and participation in public and nonprofit organizations, with much of this discussion centering on the New Public Service. We have once again reordered the chapters to create a more logical progression of material given the large number of revisions since the organization of the previous edition. Additionally, new vignettes asking “What Would You Do?” give students the opportunity to think about and discuss their responses to specific and real- istic challenges in public service. Finally, we have inserted in each chapter a reference to CourseReader. CourseReader for Public Administration: An Action Orientation ISBN-13: 9781133939214 (Public Administration: An Action Orientation with Printed Access Card for CourseReader) CourseReader 0-30 PAC ISBN-13: 9781133350385 (Printed Access Card) CourseReader 0-30 IAC ISBN-13: 9781133350378 (Instant Access Code) In addition to reviewing important public administration issues, we have selected cer- tain readings that highlight the focus of each chapter. Assigning readings can often be a difficult process. Within each chapter, you will come across reading assignments that are easily accessible within the Cengage Learning CourseReader. We have designed the CourseReader selections to tie in seamlessly with the section material. Keeping in mind that we must make the most of the time today’s busy students can allocate to extra reading, we’ve handpicked one selection per chapter that will add the most to their study, reinforce the concepts from the text, and help them apply what they’ve learned to events around them. You may assign the questions that accompany the readings as graded or completion- based homework or use them to spark in-class discussion. x i v 39214_fm_rev04.indd 14 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. Preface x v CourseReader is an easy-to-use and affordable option to create an online collection of readings for your course, and this is the first and only introductory book to political sci- ence offering a customizable e-reader. You may assign the readings we’ve recommended for each chapter without any additional setup, or you can choose to create and customize a reader specifically for your class from the thousands of text documents and media clips within CourseReader. You can also ● add your own notes and highlight sections within a reading. ● edit the introductions to the readings. ● assign due dates using the pop-up calendar. ● easily organize your selections using the drag-and-drop feature. You can view a demo of CourseReader at www.cengage.com/coursereader. Companion Website for Public Administration: An Action Orientation ISBN 13: 9781133938712 Students will find open access to tutorial quizzes for every chapter, while instructors have access to the Instructor’s Manual for Public Administration: An Action Orientation. Instructor’s Manual for Public Administration: An Action Orientation online ISBN 13: 9781133949145 The Instructor’s Manual includes an introduction on teaching public administration, ideas on preparing and designing a syllabus, a section on using supplementary textbooks, an overview and test bank including multiple-choice, true/false, and essay questions for each chapter, and a section on ideas for class activities. Like previous editions, the seventh edition contains subtle but telling differences from other books in the field. We assume that students in an introductory course in public administration don’t want to learn about the profession only in the abstract, but are inter- ested in influencing the operations of public agencies, as managers from the inside or as citizens from the outside. They want to acquire the skills necessary for changing things for the better. For this reason, it is important that the text not only introduce students to the schol- arly literature of public administration, but also that it helps them develop the insights and abilities that will make them more effective and responsible actors. This book con- tains a good deal of material that is basic to working in or with public organizations. At the same time, the discussion attends to the complex and often confounding values that distinguish work in the public sector. Most significant, however, is the focus on personal values and interpersonal skills that are crucial to effecting change in public organizations. Another feature of the book is its balanced attention to the work of managers at all levels of government and in nonprofit organizations. Although the federal government is a powerful model for the study of public administration, managers of state and local agen- cies are important actors in the governmental process, and their work is acknowledged and examined as well. Similarly, we show how managers of associations, nonprofit and “third- sector” organizations, and even traditionally private organizations are now confronting 39214_fm_rev04.indd 15 12/11/12 2:28 PM Copyright 2013 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. x v i Preface the same issues faced by administrators in the public sector. In fact, we frequently use the term public organizations to describe all such groups involved in the management of pub- lic programs. This edition also gives proper attention to the global dimensions of public administra- tion today. No longer is administrators’ work confined to their own organizations or even to their own jurisdictions. The complexity of modern life means, among other things, that administrators must be attentive to developments around the world as well as to those at home. Decisions made in a foreign capital may affect the work of a public administrator even more significantly than those made only miles away. Today, knowledge of interna- tional affairs and comparative issues is important not only to those who work in other countries but also to all who work in public administration. Public Administration: An Action Orientation remains distinctive in its treatment of the ethics of public service. The topic of ethics is thoroughly covered in a separate chap- ter, and references to ethical concerns appear throughout the text. Ethical issues cannot be separated from action. Indeed, every act of every public servant, at whatever level of government or in any related organization, has an important ethical dimension. For this reason, we have made a strong effort to discuss the ethical considerations that are a part of all administrative activities. Finally, Public … 39034_fm_rev05.indd 2 22/10/15 7:26 AM C l a s s i C s o f P u b l i C a d m i n i s t r a t i o n 39034_fm_rev05.indd 1 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. 39034_fm_rev05.indd 2 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. C l a s s i C s o f P u b l i C a d m i n i s t r a t i o n E i g h t h E d i t i o n Jay m . s h af r it z Professor Emeritus University of Pittsburgh a l b e r t C . Hyd e Senior Scholar in Residence American University Australia ● Brazil ● Mexico ● Singapore ● United Kingdom ● United States 39034_fm_rev05.indd 3 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. 39034_fm_rev05.indd 2 22/10/15 7:26 AM This is an electronic version of the print textbook. Due to electronic rights restrictions, some third party content may be suppressed. Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. The publisher reserves the right to remove content from this title at any time if subsequent rights restrictions require it. For valuable information on pricing, previous editions, changes to current editions, and alternate formats, please visit www.cengage.com/highered to search by ISBN#, author, title, or keyword for materials in your areas of interest. Important Notice: Media content referenced within the product description or the product text may not be available in the eBook version. Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. © 2017, 2012, 2009 Cengage Learning ALL RIGHTS RESERVED. No part of this work covered by the copyright herein may be reproduced, transmitted, stored, or used in any form or by any means graphic, electronic, or mechanical, including but not limited to photocopying, recording, scanning, digitizing, taping, web distribution, information networks, or information storage and retrieval systems, except as permitted under Section 107 or 108 of the 1976 United States Copyright Act, without the prior written permission of the publisher. Library of Congress Control Number: 2015939687 ISBN: 978-1-305-63903-4 Cengage Learning 20 Channel Center Street Boston, MA 02210 USA Cengage Learning is a leading provider of customized learning solutions with employee s residing in nearly 40 different countries and sales in more than 125 coun- tries around the world. Find your local representative at www.cengage.com. Cengage Learning products are represented in Canada by Nelson Education, Ltd. To learn more about Cengage Learning Solutions, visit www.cengage.com. Purchase any of our products at your local college store or at our preferred online store www.cengagebrain.com. Classics of Public Administration, Eighth Edition Jay M. Shafritz, Albert C. Hyde Product Director: Paul Banks Product Manager: Carolyn Merrill Content Developer: Amy Bither Managing Content Developer: Megan Garvey Associate Content Developer: Rachael Bailey Product Assistant: Michelle Forbes Marketing Manager: Valerie Hartman Senior Content Project Manager: Corinna Dibble Art Director: Sarah Cole Manufacturing Planner: Fola Orekoya IP Analyst: Alexandra Ricciardi IP Project Manager: Farah Fard Production Service and Compositor: MPS Limited Cover Designer: Studio Montage For product information and technology assistance, contact us at Cengage Learning Customer & Sales Support, 1-800-354-9706. For permission to use material from this text or product, submit all requests online at www.cengage.com/permissions. Further permissions questions can be emailed to [email protected] Printed in the united states of america Print number: 01 Print Year: 2015 39034_fm_rev05.indd 4 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. WCN: 02-200-203 ChronologiCal ContEnts Part One | Early Voices and the First Quarter Century | ancient times to s | 2 1. the analects of Confucius (300 bCE) Confucius 19 2. on duties (44 bCE) Cicero 23 3. of the Principle of utility (1780) Jeremy Bentham 29 4. on War (1832) Carl von Clausewitz 32 5. the study of administration (1887) Woodrow Wilson 35 6. Politics and administration (1900) Frank J. Goodnow 48 7. Problems of municipal administration (1904) Jane Addams 51 8. scientific management (1912) Frederick W. Taylor 56 9. the movement for budgetary reform in the states (1918) William F. Willoughby 59 10. bureaucracy (1922) Max Weber 63 11. introduction to the study of Public administration (1926) Leonard D. White 68 12. the Giving of orders (1926) Mary Parker Follett 76 Part Two | the new Deal to Mid-Century | the 1930s to 1950s | 84 13. bureaucracy and the Public interest (1936) E. Pendleton Herring 101 14. notes on the theory of organization (1937) Luther Gulick 105 15. report of the President’s Committee on administrative management (1937) Louis Brownlow, Charles E. Merriam, and Luther Gulick 114 16. bureaucratic structure and Personality (1940) Robert K. Merton 119 17. a theory of Human motivation (1943) A. H. Maslow 127 18. the Proverbs of administration (1946) Herbert A. Simon 135 19. the administrative state revisited (1940, 1965) Dwight Waldo 149 20. theory Y: the integration of individual and organizational Goals (1957) Douglas McGregor 166 21. the science of “muddling through” (1959) Charles E. Lindblom 172 Part Three | From JFK to Civil service reform | the 1960s and 1970s | 184 22. the road to PPb: the stages of budget reform (1966) Allen Schick 203 23. organizations of the Future (1967) Warren Bennis 219 24. Policy analysts: a new Professional role in Government service (1967) Yehezkel Dror 230 25. the life Cycle of bureaus (1967) Anthony Downs 238 26. rescuing Policy analysis from PPbs (1969) Aaron Wildavsky 251 27. administrative decentralization and Political Power (1969) Herbert Kaufman 265 28. the End of liberalism: the indictment (1969) Theodore J. Lowi 278 29. toward a new Public administration (1971) H. George Frederickson 282 30. dilemmas in a General theory of Planning (1973) Horst W. J. Rittel and Melvin M. Webber 295 31. systematic thinking for social action (1971) Alice M. Rivlin 307 39034_fm_rev05.indd 5 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. 32. the implementation Game (1977) Eugene Bardach 318 33. Watergate: implications for responsible Government (1974) Frederick C. Mosher and Others 332 34. representative bureaucracy (1974) Samuel Krislov 339 35. intergovernmental relations: an analytical overview (1974) Deil S. Wright 344 Part Four | From reagan to reinvention | the 1980s and 1990s | 358 36. Public and Private management: are they Fundamentally alike in all unimportant respects? (1980) Graham T. Allison 384 37. street-level bureaucracy: the Critical role of street-level bureaucrats (1980) Michael Lipsky 402 38. Public budgeting amidst uncertainty and instability (1981) Naomi Caiden 410 39. Public administrative theory and the separation of Powers (1983) David H. Rosenbloom 421 40. agendas, alternatives, and Public Policies (1984) John W. Kingdon 433 41. the Possibility of administrative Ethics (1985) Dennis F. Thompson 444 42. american Federalism: madison’s middle Ground in the 1980s (1987) Martha Derthick 453 43. the organizational Culture Perspective (1989) J. Steven Ott 465 44. From affirmative action to affirming diversity (1990) R. Roosevelt Thomas, Jr. 472 45. toward a Feminist Perspective in Public administration theory (1990) Camilla Stivers 481 46. the motivational bases of Public service (1990) James L. Perry and Lois Recascino Wise 491 47. managing state Government operations: Changing Visions of staff agencies (1990) Michael Barzelay and Babak J. Armajani 501 48. From red tape to results: Creating a Government that Works better and Costs less (1993) The National Performance Review 514 49. using Performance measures in the Federal budgeting Process (1993) U.S. Congressional Budget Office 522 Part Five | Public administration in the twenty-First Century | 532 50. information technology and democratic Governance (2002) Joseph S. Nye Jr. 545 51. unmasking administrative Evil (2004) Guy B. Adams and Danny L. Balfour 555 52. the Ethics of dissent: managing Guerilla Government (2006) Rosemary O’Leary 567 53. inside Collaborative networks: ten lessons for Public managers (2006) Robert Agranoff 584 54. Public Value: theory and Practice : Conclusions (2011) John Benington and Mark H. Moore 596 a Chronology of u.s. Public administration 609 vi | Chronological Contents | 39034_fm_rev05.indd 6 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. toPiCal ContEnts the Discipline of Public administration the analects of Confucius Confucius . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19 the study of administration, Woodrow Wilson . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35 introduction to the study of Public administration, Leonard D. White . . . . . . . . . . . . . . . . . . . . . . . . 68 the administrative state revisited, Dwight Waldo . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 149 toward a new Public administration, H. George Frederickson . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 282 Public administrative theory and the separation of Powers, David H. Rosenbloom . . . . . . . . . . 421 Public administration in context Politics and administration, Frank J. Goodnow . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48 administrative decentralization and Political Power, Herbert Kaufman . . . . . . . . . . . . . . . . . . . . . . 265 the End of liberalism: the indictment, Theodore J. Lowi . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 278 toward a Feminist Perspective in Public administration theory, Camilla Stivers . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 481 Bureaucracy bureaucracy, Max Weber . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 63 bureaucratic structure and Personality, Robert K. Merton . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 119 organizations of the Future, Warren Bennis . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 219 the life Cycle of bureaus, Anthony Downs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 238 street-level bureaucracy: the Critical role of street-level bureaucrats, Michael Lipsky . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 402 managing state Government operations: Changing Visions of staff agencies, Michael Barzelay & Babak J. Armajani . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 501 organization theory scientific management, Frederick W. Taylor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 56 the Giving of orders, Mary Parker Follett . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 76 notes on the theory of organization, Luther Gulick . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 105 the Proverbs of administration, Herbert A. Simon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 135 the organizational Culture Perspective, J. Steven Ott . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 465 human resources Management a theory of Human motivation, A. H. Maslow. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 127 theory Y: the integration of individual and organizational Goals, Douglas M. McGregor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 166 representative bureaucracy, Samuel Krislov . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 339 From affirmative action to affirming diversity, R. Roosevelt Thomas, Jr. . . . . . . . . . . . . . . . . . . . . . 472 the motivational bases of Public service, James L. Perry & Lois Recascino Wise . . . . . . . . . . . . . . . 491 the Budgetary Process the movement for budgetary reform in the states, William F. Willoughby . . . . . . . . . . . . . . . . . . . . 59 the road to PPb: the stages of budget reform, Allen Schick . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 203 rescuing Policy analysis from PPbs, Aaron Wildavsky . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 251 39034_fm_rev05.indd 7 22/10/15 9:27 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. viii | topical Contents | using Performance measures in the Federal budgeting Process U.S. Congressional Budget Office . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 522 Public budgeting amidst uncertainty and instability, Naomi Caiden . . . . . . . . . . . . . . . . . . . . . . . . . . 410 Public Management Problems of municipal administration, Jane Addams . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51 report of the President’s Committee on administrative management, Louis Brownlow, Charles E. Merriam, & Luther Gulick . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 114 Public and Private management: are they Fundamentally alike in all unimportant respects? Graham T. Allison . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 384 From red tape to results: Creating a Government that Works better and Costs less, The National Performance Review . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 514 Public Value: theory and Practice : Conclusions John Benington and Mark H. Moore . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 596 Public Policy and analysis of the Principle of utility, Jeremy Bentham . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29 the science of “muddling through,” Charles E. Lindblom . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 172 Policy analysts: a new Professional role in Government service, Yehezkel Dror . . . . . . . . . . . . . 230 dilemmas in a General theory of Planning, Horst W. J. Rittel & Melvin M. Webber . . . . . . . . . . . 295 agendas, alternatives, and Public Policies, John W. Kingdon . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 433 Program implementation & Evaluation on War, Carl von Clausewitz . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32 systematic thinking for social action, Alice M. Rivlin . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 307 the implementation Game, Eugene Bardarch . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 318 intergovernmental relations intergovernmental relations: an analytical overview, Deil S. Wright . . . . . . . . . . . . . . . . . . . . . . . . 344 american Federalism: madison’s middle Ground in the 1980s, Martha Derthick . . . . . . . . . . . . . 453 information technology and democratic Governance, Joseph S. Nye Jr. . . . . . . . . . . . . . . . . . . . . . . 545 inside Collaborative networks: ten lessons for Public managers, Robert Agranoff . . . . . . . . . . . 584 Public service Ethics on duties, Cicero . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23 bureaucracy and the Public interest, E. Pendleton Herring . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 101 Watergate: implications for responsible Government, Frederick C. Mosher & Others . . . . . . . . . . 332 the Possibility of administrative Ethics, Dennis F. Thompson . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 444 unmasking administrative Evil, Guy B. Adams & Danny L. Balfour . . . . . . . . . . . . . . . . . . . . . . . . . . 555 the Ethics of dissent: managing Guerilla Government Rosemary O’Leary . . . . . . . . . . . . . . . . . . . . 567 39034_fm_rev05.indd 8 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. ix PrEFaCE be assured—the editors are not so bold as to assert that these are the classics of public administration. the field is so diverse that there can be no such list. However, we do contend that it is possible to make a list of many of the discipline’s most significant writers and provide representative samples of their work. that is what we have attempted here. it is readily admitted that writers of equal stature have not found their way into this collection and that equally important works of some of the authors included here are missing. Considerations of space and balance necessarily prevailed. the primary characteristic of a classic in any field is its enduring value. We have classic automo- biles, classic works of literature, and classic techniques for dealing with legal, medical, or military prob- lems, and so on. Classics emerge and endure through the years because of their continuing ability to be useful. The Three Musketeers is as good an adventure story today as it was in 1844 when alexandre dumas wrote it. but how many other nineteenth-century novels can you name? Few have general util- ity for a twenty-first-century audience. it has been no different with the professional literature of public administration. much has been written, but what is still worth reading today or will be tomorrow? the intent of this collection is to make readily available some of the most worthwhile material from the past that will be equally valuable for tomorrow. We had three criteria for including a selection. First, the selection had to be relevant to a main theme of public administration. it had to be a basic statement that was consistently echoed or even attacked in subsequent years. it also had to be important—of continuing relevance. this leads to our second criterion: significance. the selection had to be generally recognized as a significant contribu- tion to the realm and discipline of public administration. an unrecognized classic seems to us to be a contradiction. as a general rule, we asked ourselves, “should the student of public administration be expected to be able to identify this author and his or her basic themes?” if the answer was yes, then it was so because such a contribution has long been recognized by the discipline as an important theme by a significant writer. Whereas the editors can and expect to be criticized for excluding this or that particular article or writer, it would be difficult to honestly criticize us for our inclusions. the writ- ers chosen are among the most widely quoted and reprinted practitioners and academics in public administration. the basic idea of this book was simply to bring them together. the final criterion for inclusion was readability. We sought selections that would be read and appreciated by people with or without a substantial background in public administration. selections  are  arranged  in  chronological  order.  While past editions have started with Woodrow Wilson in  1887, this  edition includes four new/old readings, beginning with Confucius in ancient China, that address themes that are essential to understanding the development of public administra- tion as part of state-building. and while Classics has always been a collection of readings about u.s. public administration, these four new/old selections are a reminder that before the american experi- ence, there existed other forms of public administration as part of other states: China, rome, and Prussia, among others. our hope is still that when presented in chronological order, the collection will give the reader a sense of the continuity of the discipline’s thinking and show how the various writers and themes liter- ally build on or depart from each other. this also facilitates introducing the writers’ themes as repre- sentative of a particular era. obviously, many authors can span (and have spanned) the decades with their contributions to the literature of the discipline. nevertheless, the selections reprinted here should be viewed and discussed in their historical context. although many of the selections might seem quite old to a student readership, do not for a moment think that they are dated. they are considered classics in the first place because of their continuing value to each new generation. We are pleased that this text is so widely used in schools of, and courses on, public administration. We naturally hesitate to change a product that has proved so useful to our peers. but this edition of 39034_fm_rev05.indd 9 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it. x | Preface | Classics has a number of changes. the publishing world has changed and textbooks have been greatly affected by the digital revolution. in some cases, selections we have included in the past were unavail- able or the rights to reprint prohibitively expensive.  While we are aware that the textbook market is becoming in many ways a rental market, our aim remains to make this book affordable for use in the classroom as both a main resource or as a supplement to other required textbooks. Even more impor- tantly, we hoped that that this might be a book that would remain in the students’ professional collec- tion after graduation for future reference and not have to be sold back to help pay down student loans. Even when some previous classics were not available, we have—using fair use doctrine—included a short excerpt on a critical idea, discussed the central theme and included the full reference for the student to find for further reading. Classics is organized in five sections, concluding with the new section for the twenty-first cen- tury, which was added in the last edition. it is even more apparent that the pace and scale of political, economic, social, technological, and now ecological change in the environment since 2000 does rep- resent a new era. Consequently, it needs to be discussed as such. the global economy and environ- ment demands a broader, deeper, and truly global perspective on the purpose and design of public administration—whether it is in the united states, the European union, russia, China, brazil, india, south africa, or wherever. We fully expect that much will be different within our field as american public administration meets global governance issues. Future editions will surely reflect this inevitable movement. in past editions, we have thanked many of our colleagues and friends for their help in the prepara- tion of the current and earlier editions. the list has grown longer with each edition. We thought for this edition we would simply acknowledge the obvious—that a work like Classics of Public Administration is the result of an ongoing conversation with old and new colleagues and increasingly old and new stu- dents. it has been our great fortune to have colleagues and friends who have both supported the book and taken the time to educate us about what they feel is truly classic about our field. two special notes of appreciation are warranted. Professor Eric Zeemering at northern illinois university Public administration department has been instrumental in keeping us current on the progress and direction of intergovernmental relations. Professor david rosenbloom of the american university remains our oldest and most frequent advisor on classics. Finally, we thank the publishing team at Cengage learning, including amy bither, Carolyn merrill, Corinna dibble, alexandra ricciardi, and Farah Fard. Jay M. shafritz Professor Emeritus The University of Pittsburgh albert C. hyde Senior Scholar Department of Public Administration and Policy School of Public Affairs  American University 39034_fm_rev05.indd 10 22/10/15 7:26 AM Copyright 2017 Cengage Learning. All Rights Reserved. May not be copied, scanned, or duplicated, in whole or in part. Due to electronic rights, some third party content may be suppressed from the eBook and/or eChapter(s). Editorial review has deemed that any suppressed content does not materially affect the overall learning experience. Cengage Learning reserves the right to remove additional content at any time if subsequent rights restrictions require it.