Fluent Essays

Students will select 4 chapter concepts (a list will be provided) that they will present on during the semester. This includes an explanation of the concept and demonstrating the concept in the practical world (through news articles, media, film, music, etc.). Students will need to include at least one peer-reviewed article to support their presentation. Students can do one additional topic presentation for extra credit.  STAKEHOLDER ANALYSIS BUFFERING METHODS BOUNDARY-SPANNING UNITS ENVIRONMENTAL SCAN Basically, I need these terms above to be defined on a PowerPoint and provide an example of each of the 4 terms.  These Definitions comes from the textbook that I will attach. Chapter 4 UNDERSTANDING AND MANAGING PUBLIC ORGANIZATIONS FIFTH EDITION Join us at josseybass.com Instructor Resources Comprehensive instructor resources to accompany this fifth edition of Understanding and Managing Public Organizations are available online at www.wiley.com/college/rainey . Materials are organized by chapter and include the following: • Two sample syllabi . Both are intended for graduate-level courses and are intended to provide students with a solid grounding in the concepts, top- ics, and research in public management and organization theory. • PowerPoint slides for each chapter . These follow the organization of the text and highlight the chapter themes and main subparts. • Key terms for each chapter . A list of key terms is provided for each chapter. • Discussion questions for each chapter . These questions can be used in class to prompt discussion on key themes or assigned to students as homework. The typical discussion question can be answered in one or two paragraphs. • Writing assignments and reports . These are intended to be take-home writing assignments, as they require more thorough consideration of topics and, in some instances, additional research. The typical question can be answered in as few as two pages or developed further into a more lengthy report. • Case studies . Nine case studies can be found at the end of this document, with suggestions for their use. • Class exercise . All class exercises can be completed in less than forty-fi ve min- utes of class time. These are designed to reinforce chapter lessons while encouraging collaborative learning among students. Essential Texts for Public and Nonprofi t Leadership and Management The Handbook of Nonprofi t Governance , by BoardSource Strategic Planning for Public and Nonprofi t Organizations , 5th Edition, by John M. Bryson The Effective Public Manager: Achieving Success in Government Organizations , 5th Edition, by Steven Cohen, William Eimicke, and Tanya Heikkila Handbook of Human Resources Management in Government , 3rd Edition, by Stephen E. Condrey (ed.) The Responsible Administrator , 6th Edition, by Terry L. Cooper The Jossey-Bass Handbook of Nonprofi t Leadership and Management , 3rd Edition, by David O. Renz, Robert D. Herman, and Associates (eds.) Benchmarking in the Public and Nonprofi t Sectors , 2nd Edition, by Patricia Keehley, and Others The Ethics Challenge in Public Service , 3rd Edition, by Carol W. Lewis, and Others Managing Nonprofi t Organizations , by Mary Tschirhart and Wolfgang Bielefeld Social Media in the Public Sector: Participation, Collaboration, and Transparency in the Networked World , by Ines Mergel Meta-Analysis for Public Management and Policy , by Evan Ringquist The Practitioner ’s Guide to Governance as Leadership: Building High-Performing Nonprofi t Boards , by Cathy A. Trower Measuring Performance in Public and Nonprofi t Organizations , by Theodore H. Poister Human Resources Management for Public and Nonprofi t Organizations: A Strategic Approach , 4th Edition, by Joan E. Pynes Fundraising Principles and Practice , by Adrian Sargeant, Jen Shang, and Associates Hank Rosso ’s Achieving Excellence in Fundraising , 3rd Edition, by Eugene R. Tempel, Timothy Seiler, and Eva Aldrich (eds.) Handbook of Practical Program Evaluation , 3rd Edition, by Joseph S. Wholey, and Others (eds.) UNDERSTANDING AND MANAGING PUBLIC ORGANIZATIONS FIFTH EDITION Hal G. Rainey Cover design by Michael Cook Cover image © Scibak/Getty   Copyright © 2014 by John Wiley & Sons, Inc. All rights reserved. Published by Jossey-Bass A Wiley Brand One Montgomery Street, Suite 1200, San Francisco, CA 94104-4594—www.josseybass.com No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, scanning, or otherwise, except as permitted under Section 107 or 108 of the 1976 United States Copyright Act, without either the prior written permission of the publisher, or authorization through payment of the appropriate per-copy fee to the Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, 978-750-8400, fax 978-646-8600, or on the Web at www.copyright.com. Requests to the publisher for permission should be addressed to the Permissions Department, John Wiley & Sons, Inc., 111 River Street, Hoboken, NJ 07030, 201-748-6011, fax 201-748-6008, or online at www.wiley.com/go/permissions. 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Jossey-Bass books and products are available through most bookstores. To contact Jossey-Bass directly call our Customer Care Department within the U.S. at 800-956-7739, outside the U.S. at 317-572-3986, or fax 317-572-4002. Wiley publishes in a variety of print and electronic formats and by print-on-demand. Some material included with standard print versions of this book may not be included in e-books or in print-on-demand. If this book refers to media such as a CD or DVD that is not included in the version you purchased, you may download this material at http://booksupport.wiley.com. For more information about Wiley products, visit www.wiley.com. Library of Congress Cataloging-in-Publication Data Rainey, Hal G. (Hal Griffi n). Understanding and managing public organizations / Hal G. Rainey. —5th Edition. pages cm. — (Essential texts for public and nonprofi t and public leadership and management) Includes bibliographical references and index. ISBN 978-1-118-58371-5 (pbk.); ISBN 978-1-118-58449-1 (ebk); ISBN 978-1-118-58446-0 (ebk) 1. Public administration. I. Title. JF1351.R27 2014 351–dc23 2013044990 Printed in the United States of America fifth edition PB Printing 10 9 8 7 6 5 4 3 2 1 vii CONTENTS Figures, Tables, and Exhibits ix Preface xi The Author xix PART ONE THE DYNAMIC CONTEXT OF PUBLIC ORGANIZATIONS 1 1 The Challenge of Effective Public Organization and Management 3 2 Understanding the Study of Organizations: A Historical Review 16 3 What Makes Public Organizations Distinctive 53 4 Analyzing the Environment of Public Organizations 86 5 The Impact of Political Power and Public Policy 109 PART TWO KEY DIM ENSIONS OF ORGANIZING AND MANAGING 145 6 Organizational Goals and Effectiveness 147 viii Contents 7 Formulating and Achieving Purpose: Power, Decision Making, and Strategy 173 8 Organizational Structure, Design, Technology, Information Technology, and Social Media 208 9 Understanding People in Public Organizations: Motivation and Motivation Theory 257 10 Understanding People in Public Organizations: Values, Incentives, and Work-Related Attitudes 297 11 Leadership, Managerial Roles, and Organizational Culture 335 12 Teamwork: Understanding Communication and Confl ict in Groups 382 PART THREE STRATEGIES FOR MANAGING AND IMPROVING PUBLIC ORGANIZATIONS 407 13 Managing Organizational Change and Development 409 14 Advancing Effective Management in the Public Sector 449 References 487 Additional Reference Materials 533 Name Index 539 Subject Index 555 ix Figures 1.1 A Framework for Organizational Analysis 11 1.2 A Framework for Organizational Analysis (Elaboration of Figure 1.1 ) 12 3.1 Agencies, Enterprises, and Hybrid Organizations 71 3.2 Public and Private Ownership and Funding 72 3.3 “Publicness”: Political and Economic Authority 74 6.1 Conceptual Framework of the Government Performance Project 161 6.2 The Competing Values Framework 166 9.1 Formulations of Expectancy Theory 279 Tables 3.1 Typology of Organizations Created by Cross-Classifying Ownership, Funding, and Mode of Social Control 75 6.1 Effectiveness Dimensions for Educational Institutions 164 10.1 The Complexity of Human Needs and Values 300 10.2 Types of Incentives 301 10.3 Perry ’s Dimensions and Questionnaire Measures of Public Service Motivation 315 FIGURES, TABLES, AND EXHIBITS x Figures, Tables, and Exhibits 13.1 Organizational Decline and Cutback Management: Tactics for Responding to Decline and Funding Cuts 415 14.1 Characteristics of High-Performance Government Organizations 460 Exhibits 2.1 Major Developments in Organization and Management Theory in the Twentieth Century 46 3.1 Distinctive Characteristics of Public Management and Public Organizations: A Summary of Common Assertions and Research Findings 79 4.1 General Environmental Conditions 88 4.2 Descriptive and Analytical Dimensions of Organizational Environments 93 4.3 Major Environmental Components for Public Organizations 99 5.1 Sources of Political Authority and Infl uence of Institutions, Entities, and Actors in the Political System 112 5.2 Guidelines for Managing Relations with the News Media 119 6.1 Organizational Effectiveness: Dimensions and Measures 163 9.1 Questionnaire Items Used to Measure Work Motivation 264 9.2 Categories of Needs and Values Employed in Selected Content Theories 269 9.3 Concepts and Principles of Operant Conditioning 283 9.4 Methods Commonly Used to Enhance Work Motivation in Organizations 291 11.1 Managerial Roles and Skills 347 11.2 Conceptions and Dimensions of Culture 356 11.3 Background References for Assessing Organizational Culture 358 12.1 Communication Problems and Distortions 393 13.1 Attributes of Innovations That Affect Their Implementation 419 13.2 Phases of an Action Research Model for Organizational Development 428 13.3 Patterns of Successful Organizational Change 435 13.4 Steps for Successful Organizational Transformation 436 13.5 Determinants of Successful Implementation of Organizational Change in the Public Sector 437 13.6 Conditions for a Successful Change in a Federal Agency 446 14.1 Propositions About Effective Public Organizations 462 14.2 Osborne and Gaebler ’s Strategies for Reinventing Government 467 14.3 The National Performance Review: Major Priorities and Initiatives 470 14.4 Conditions for Successful Privatization and Contracting Out 481 xi The previous editions of Understanding and Managing Public Organizations reviewed the literature on management and organization theory and suggested applications to the public sector grounded in evidence from research on public organizations and the people in them. The book has served primarily as a text in courses for master of public administration stu- dents and in seminars for doctoral students in public administration and public affairs programs. It has also served the needs of scholars, and it has a high number of citations in the Social Science Citation Index for a book of this type, in this fi eld. The revisions in this fi fth edition seek to enhance the book ’s usefulness to students and scholars. The book also seeks to meet certain needs of practicing managers and professionals. Reviewers of earlier editions suggested greater integration among the chapters and the addition of an organizing framework for the material. The fi rst chapter now includes a conceptual framework that links the chap- ters and topics in the book. This framework emphasizes a fundamental challenge for leaders and members of organizations: that of integrating and coordinating the components and domains of the organization. These include the organization ’s environment, strategy- and decision-making processes, goals and values, culture, structure, power relationships, tasks, and communication processes. This integration, of course, must also include the people—the organization ’s leaders, teams, and groups, and PREFACE xii Preface their motivations, work attitudes, and behaviors. As the book illustrates, the fi eld of management and organizational theory has developed no compre- hensive theory or scientifi c solution that achieves this integration. Without wanting to slight or offend my fellow authors, I assert that no existing text on organizations and their management achieves a highly effective integra- tion of the topics any more than this one does. Nevertheless, the book ’s chapters describe concepts and insights from the organization and man- agement literature that support leaders’ and managers’ efforts to think and act comprehensively, and to integrate the topics and issues they face. The fi nal chapter illustrates how to use the framework to approach man- agement challenges—such as privatization of public services—in an inte- grative, comprehensive fashion. In addition, an online instructor ’s guide is available, which includes cases and exercises that instructors can use to challenge students to consider how to bring multiple topics and concepts to bear on the same case. The book ’s chapters fl esh out the conceptual framework by review- ing the theories, research, and practices associated with major topics in the fi eld of organizations and their management. As described in Chapter One, the fi eld of public management and leadership has continued to develop rapidly since publication of the previous editions. Accordingly, many chapters and topics in this edition have been expanded to cover new material and new developments. This includes research on such topics as how public managers lead and behave, effective performance in govern- ment agencies, organizational commitment in public organizations, differ- ences between public and private managers’ perceptions of the personnel systems with which they work, organizational culture in public organiza- tions, and many other topics. This edition includes expanded coverage of developments on the topic of “public values,” of research on public service motivation, and of recent research on strategic decision making in public organizations. It includes much more coverage than in previous editions of the rapidly developing topic of networks and collaboration in the public service delivery and governance. This edition generally updates the reviews of research on the many topics in the book, such as the Meier-O ’Toole model of public management. The chapters on the major topics of the book show that researchers have published a profusion of studies on these and other topics since the fourth edition appeared, thus raising a major challenge for those who seek to review and interpret them all. In addition, previous editions of this book have analyzed, as does this one, the distinctions between public organizations and their members, on the one hand, and other types of organizations, leaders, and employees, Preface xiii such as those in the business sector, on the other. Chapter Three presents a conceptual analysis of these distinctions: What do we mean when we refer to these different types of organizations and the people who work for them? How do we defi ne them and study their differences? Subsequent chapters describe research articles and other forms of evidence that compare public and private organizations in terms of the topics that these chapters cover. Many studies of this type have appeared in recent years. Assembling these studies, describing them, and interpreting them for the reader has posed another serious challenge, but a welcome one, because one of the book ’s objectives is to provide the most comprehensive compilation and review possible of such research-based comparisons of public and private (and public and nonprofi t) organizations. Another goal and challenge of the previous editions of the book was to cover important developments in the practice and contemporary con- text of general management and public management. Previous editions covered such topics as Total Quality Management (TQM); the infl uence of the best-selling book Reinventing Government (Osborne and Gaebler, 1992) and the REGO movement it spawned, including the federal government ’s National Performance Review; and the management of privatization and contracting-out programs, among others. Some of these developments have become dated and less prominent over time, but reviewers and col- leagues advised against deleting them. The review of such developments in Chapter Fourteen provides a history of many of the management improve- ment initiatives in recent decades. The review illustrates how ideas move through government and other domains over time, and the interplay between academic scholarship and theory, on the one hand, and the prac- tice of management, on the other. This edition reports on research evalu- ating the infl uence of these developments on governments at all levels in the United States and in other nations. It also covers more recent develop- ments such as the New Public Management movement around the world, the George W. Bush administration ’s President ’s Management Agenda and its Program Assessment Rating Tool (PART), and the human capital move- ment in government. The book provides such coverage in part to make this edition more useful than the previous editions for practicing managers and profession- als and for students interested in such roles. It also offers many sugges- tions for those faced with practical leadership and management challenges, including managing relations with the media (Chapter Five), enhancing one ’s power and authority (Chapter Seven), conducting strategic decision- making processes (Chapter Seven), motivating employees (Chapter Ten), xiv Preface managing and leading organizational culture (Chapter Eleven), manag- ing confl ict (Chapter Twelve), leading organizational change (Chapter Thirteen), and other topics. In addition, it gives examples of how these insights and concepts are used in the fi eld. For instance, Chapter Eight begins with a description of the major structural reform that the U.S. Internal Revenue Service underwent, and of the structural changes made at a national laboratory in response to public concerns about its safety. Chapter Nine points out that many of the efforts to reform pay systems in government would have been much more effective if they had been informed by a clear understanding of a number of motivation theories. Chapter Thirteen shows how strategies for leading organizational change have led to successful large-scale change in government agencies, and how not applying such strategies has led to failure in other instances. Chapter Thirteen provides a summary of points of expert consensus about success- ful management of large-scale organizational change. When my coauthor, Sergio Fernandez, and I published this summary in Public Administration Review (PAR) and on the PAR website, we received very positive comments from government offi cials about the usefulness of the summary. Ultimately, the book pursues the theme that effective leadership involves the well-informed, thoughtful, integrative use of a variety of man- agement concepts and points rather than the hot pursuit of catchy phrases and glib advice. As an illustration of this theme, consider that many stu- dents of military strategy and history express great admiration for Carl Von Clausewitz ’s classic treatise On War (1986). Clausewitz took the position that he could not advise an individual commander on how to conduct a specifi c campaign because such situations are so highly varied and contin- gent. Rather, he aimed to provide general perspective and insight on how to conceive of the nature and enterprise of war. Even persons who loathe military force and military analogies might accept the point that people facing practical challenges often profi t from general understanding and insight as much as from detailed prescriptions. Audience The primary audience for previous editions of Understanding and Managing Public Organizations included graduate students and scholars interested in public management and applications of organization theory to the public sector. The difference between the needs of doctoral students and those of master of public administration (M.P.A.) students and undergraduate Preface xv students presents a challenge for this book. Faculty colleagues at other universities who have used the book in their classes have sometimes men- tioned that their M.P.A. students do not see the need for the many citations to academic research articles and reviews of such academic materials. They also mention, however, that their doctoral students value and appreciate the reviews of academic literature and research, and the citation of such work. For this fi fth edition, this raised the question of whether I should reduce the reviews and citations of academic research to meet the needs and preferences of some M.P.A. students, or to keep this coverage and even extend it by updating it. Faculty colleagues with whom I discussed this mat- ter, as well as anonymous reviewers of the proposal for this edition, mostly advised the latter approach—keeping the coverage of academic research. One reviewer emphatically insisted that this coverage represents a distinc- tive contribution of the book, and that I should avoid “dumbing down” the book. This edition does try to accommodate, in certain ways, the preferences of students who do not see the need for the academic citations. In Chapters One and Fourteen, long lists of parenthetic references citing multiple books and articles have been moved to endnotes, to enable an uninter- rupted fl ow of the text. In addition, as mentioned earlier, an instructor ’s guide is now available. It includes key terms, examples, potential writing assignments, and case discussion exercises. The instructor ’s guide also includes and illustrates suggestions and alternatives for using the materi- als and approaching the topics of a course using the book. These materials can enliven the topics and make them more accessible for M.P.A. students. Microsoft PowerPoint presentations are also available for each chapter; they provide many rich illustrations and graphics that can enliven a discus- sion and coverage of the topics. These resources are available at www.wiley .com/college/rainey . Reviewers of the previous editions said that practitioners would be unlikely to delve into the detailed reviews of research and theory the book provides. I concede this point, but grudgingly. This assumption underestimates many practicing leaders and managers who are thought- ful and refl ective students of leadership and management. They may dis- like abstruse academic discourse because they are inclined to action and strive for practical results. They may also fi nd quick advice and bright ideas attractive. When practicing managers enroll in courses in academic set- tings, however, they often lead their classes in insight and in showing an interest in new concepts and broad perspectives. They often spurn “war stories” and how-to manuals. xvi Preface Thus the lines between practicing managers, students, and manage- ment scholars often blur. Sometimes practicing managers seek degrees in long-term academic programs and play the role of student. Often they teach or help to teach courses. Therefore, although the primary goal of this book is to serve students and scholars interested in research and the- ory, it can also serve practicing managers and leaders. This book can serve as a reference for busy managers who want a review of basic topics in the fi eld and who might fi nd the conceptual framework and some of the sug- gestions and examples useful. Organization The best overview of the organization of the book can be obtained by reviewing the table of contents. Part One covers the dynamic context of public organizations. Its fi ve chapters introduce the basic objectives and assumptions of the book and the conceptual framework mentioned ear- lier. Chapter One discusses the current context of public management in practice and in scholarship, and the challenges this context raises for applying organization and management theory to public organizations. Chapter Two summarizes the history of organization and management the- ory, describing the development of some of the most important concepts and issues in the fi eld, which are discussed further in later chapters. In addition, this historical review shows that most of the prominent organiza- tion and management theorists have been concerned with developing the general theory of organizations and have not been particularly interested in public organizations as a category. Their lack of interest in public organi- zations justifi es the effort made in this book to apply organization theory to public organizations, and it also indicates the challenges involved. Chapter Three defi nes public organizations and distinguishes them from private ones. It also provides an introductory overview of the assertions about the nature of public organizations made in later chapters. Chapters Four and Five review the literature on organizational environments, particularly the political and institutional environments of public organizations. Part Two focuses on key dimensions of organizing and managing. These seven chapters concentrate on major topics in organization theory and management, including goals and effectiveness, power, strategy, deci- sion making, structure and design, and the people in organizations (includ- ing discussions of values, motivation, work-related behaviors and attitudes, leadership, organizational culture, teams and groups, communication, and Preface xvii confl ict). They describe current research on these topics and discuss how it applies to public organizations. Part Three covers strategies for managing and improving public orga- nizations. Chapter Thirteen addresses organizational change and devel- opment. Chapter Fourteen, the last chapter of the book, presents ideas for achieving organizational excellence in the public sector. Finally, the chapter illustrates how the conceptual framework may be used to pursue a comprehensive management strategy that addresses both new initiatives and long-standing challenges. Acknowledgments I still owe thanks to all the people mentioned in the fi rst four editions, and the list has grown even longer. It defi es enumeration here. Despite my concern about leaving out anyone, I must leave out a great many people anyway. I offer thanks to all those who have discussed the book with me and made suggestions, including Craig Boardman, Barry Bozeman, Delmer Dunn, Patricia Ingraham, Ed Kellough, Ken Meier, Larry O ’Toole, Sanjay Pandey, and many others, including anonymous reviewers for this and pre- vious editions. As were the previous editions, this book is dedicated primar- ily to my son, Willis, my daughter, Nancy, and my wife, Lucy. Doctoral students in the School of Public and International Affairs at the University of Georgia provided invaluable assistance with this edi- tion and previous ones. These include Meriem Hodge and Harin Woo, who provided reviews of current research and suggestions about how to use them, as well as assistance in editing and revising the content. This edition also benefi ts from contributions to past editions by former doc- toral students. These include Professor Young Han Chun of Seoul National University, Professor Jay Eungha Ryu of Ohio University, Professor Sergio Fernandez of the Indiana University School of Public and Environmental Affairs, Professor Chan Su Jung of the City University of Hong Kong, Professor John Ronquillo of DePaul University, Professor Jung Wook Lee of Yonsei University, and Mike Koehler of the U.S. Department of Homeland Security. I refer to another of our doctoral graduates, Professor Deanna Malatesta of the School of Public and Environmental Affairs of Indiana University, Purdue University at Indianapolis, as my coauthor on the instructor ’s guide and PowerPoint presentations. This claim is …