Public Administration Marc Holzer and Richard W. Schwester have written a fresh and highly engaging textbook for the introductory course in Public Administration. Their coverage is both comprehensive and cutting-edge, including not only all the basic topics (organization theory, budgeting, human resource management, etc.), but also reflecting new realities in public administration: innovations in e-government, the importance of new technology, changes in intergovernmental relations, especially the emphasis on inter-local and shared regional resources, and public performance and accountability initiatives. Public Administration has been crafted with student appeal in mind. Each of the book’s chapters is generously illustrated with cartoons, quotes, and artwork—all reinforcing the book’s theme that the field of public administration is rooted in the cultural and political world. Each chapter is also supported with a listing of key terms, exercises, and additional resources. Marc Holzer (PhD, University of Michigan) is Distinguished Professor at the Institute for Public Service, Suffolk University-Boston. He was previously University Professor and Founding Dean at the School of Public Affairs and Administration, Rutgers University. Professor Holzer is extensively published, is a Past President of the American Society for Public Administration and is a Fellow of the National Academy of Public Administration. Richard W. Schwester (PhD, Rutgers University) is Associate Professor of Public Management at John Jay College of Criminal Justice (CUNY). His research centers on the use of technology in government, inter-local shared services, and police and emergency service delivery models. Professor Schwester is editor of the Handbook of Critical Incident Analysis (Routledge, 2012) and co-author of Public Administration in a Globalized World (M.E. Sharpe, Inc., 2014). The third edition of this already comprehensive and engaging textbook is a welcome addition for both students and instructors. Professors Holzer and Schwester have expertly woven together a robust discussion of theory, historical analysis, and striking visual displays in a manner that vividly depicts the importance of public administrative bodies in the United States. This is sure to capture the attention of students of public administration in a manner that contributes to professional preparation and success. Alexander C. Henderson, Long Island University, USA In the third edition of their superb and popular introductory textbook, Holzer and Schwester have done a remarkable job of capturing the contemporary themes that popular media and scholars discuss, while providing a thorough background of the historical and multifaceted development of the field. The language is straightforward, the graphics are exceptional, and—without losing an American focus—the sweep of the attention of Public Administration: An Introduction is more global than typically found in most introductory textbooks. Montgomery Van Wart, California State University, USA The third edition of Marc Holzer and Richard Schwester’s text provides those new to public administration with engaging introductions to a variety of topics in the field. Among the updates is a newly-added chapter on navi gating and analyzing big data, which helps students better understand the role of big data analysis in public administration. This text assists student understanding of the main themes and concepts of each chapter in an easy manner by utilizing artwork, cartoons and quotes, as well as recent case studies. Moreover, the instructor’s guide contains several useful resources including PowerPoints, quizzes, video and web resources, and customizable lesson plans allowing instructors to be well-prepared for classes. Taehee Kim, Seoul National University of Science and Technology, South Korea Public Administration An Introduction Third Edition Marc Holzer and Richard W. Schwester Third edition published 2020 by Routledge 52 Vanderbilt Avenue, New York, NY 10017 and by Routledge 2 Park Square, Milton Park, Abingdon, Oxon, OX14 4RN Routledge is an imprint of the Taylor & Francis Group, an informa business © 2020 Taylor & Francis The right of Marc Holzer and Richard W. Schwester to be identified as authors of this work has been asserted by them in accordance with sections 77 and 78 of the Copyright, Designs and Patents Act 1988. All rights reserved. No part of this book may be reprinted or reproduced or utilised in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers. Trademark notice: Product or corporate names may be trademarks or registered trademarks, and are used only for identification and explanation without intent to infringe. British Library Cataloguing-in-Publication Data A catalogue record for this book is available from the British Library [First edition published by M. E. Sharpe 2011] [Second edition published by Routledge 2016] Library of Congress Cataloging-in-Publication Data Names: Holzer, Marc, author. | Schwester, Richard Wilmot, 1977- author. Title: Public administration : an introduction / Marc Holzer and Richard Schwester. Description: Third edition. | Abingdon, Oxon ; New York, NY : Routledge, 2019. | Includes bibliographic references. Identifiers: LCCN 2019003376| ISBN 9781138579644 (hardback : alk. paper) | ISBN 9781138579668 (pbk. : alk. paper) | ISBN 9780429507878 (ebook) Subjects: LCSH: Public administration. | Public administration—Decision making. | Policy sciences. Classification: LCC JF1351 .H655 2019 | DDC 351—dc23 LC record available at https://lccn.loc.gov/2019003376 ISBN: 978-1-138-57964-4 (hbk) ISBN: 978-1-138-57966-8 (pbk) ISBN: 978-0-429-50787-8 (ebk) Typeset in Minion Pro and Avenir by Apex CoVantage, LLC Visit the eResources: www.routledge.com/9781138579644 Contents List of Illustrations vii Preface xii SECTION I: FOUNDATIONS OF PUBLIC ADMINISTRATION 1 1 What Public Administration Entails 3 2 Organizational Theory and Management 41 3 Politics and Public Administration 73 4 Intergovernmental Relations 91 5 Ethics and Public Administration 109 SECTION II: MANAGING PEOPLE AND ADMINISTERING PUBLIC SERVICES 139 6 Managing Human Resources 141 7 Public Decision-Making 187 8 Public-Sector Leadership 221 9 Public Budgeting 249 SECTION III: IMPROVING THE EFFICIENCY AND EFFICACY OF PUBLIC ORGANIZATIONS 269 10 Public Performance 271 vi ConTEnTs 11 Program and Policy Assessment 299 12 Existing Data, Big Data, and Analyzing Data 333 13 Technology and Public Administration 359 14 The Future of Public Administration 397 Index 422 Illustrations List of IMAGES 1.1 “City Life” Mural by Victor Arnautoff, Coit Tower, 1934. 2 1.2 City Water Tunnel #3. 10 2.1 Postal Workers Sorting Mail—Mural, William Jefferson Clinton Federal Building, Federal Triangle, Washington, DC. 40 2.2 Ford Assembly Line: Workers on the First Moving Assembly Line Put Together Magnetos and Flywheels for 1913 Ford Autos. 45 2.3 Frank and Lillian Gilbreth with 11 of their 12 children circa 1920s. 46 2.4 Bloomberg Bullpen. 66 3.1 Poster for Congress of Industrial Rights. 72 3.2 “To the Victors Belong the Spoils.” 79 3.3 “Uncle Sam’s Christmas Dream.” 85 3.4 The Pendleton Act Provides Civil Service Reform: 1883. 86 4.1 “Another Perfect Storm.” 90 5.1 “Lincoln’s Second Inaugural,” Allyn Cox, US Capitol. 108 5.2 The Tuskegee Study. 113 5.3 “Waterboarding from the Inquisition to Guantanamo.” 114 5.4 “No Surrender,” Harper’s Weekly Illustration. 116 5.5 Thomas Nast Cartoon. 118 6.1 “How We Fish: A Mural about Work.” 140 6.2 “Employee of the Month—John Parker,” by Patrick Regout. 142 6.3 National Nuclear Security Administration. 154 6.4 Demonstrating Success. 159 6.5 Sample Employee Evaluation Form. 169 6.6 Employee Performance Appraisal. 174 7.1 “Law through the Ages.” 186 7.2 Potential Stakeholders and Typical Steps Involved in a Major New Highway. 206 7.3a Colin Powell Photo. 214 viii List of iLLustrations 7.3b Colin Powell Diagram. 214 7.4 “And We’re Firmly Opposed.” 216 8.1 “The Inauguration of FDR.” 220 8.2 Eleanor Roosevelt Statue, Riverside Park, New York City. 223 8.3 “8 Types of Leaders.” 226 8.4 General George Patton. 227 9.1 The US Treasury Department. 248 10.1 “Knowledge Wins,” Daniel Stevens, 1918. 270 11.1 “City Council in Session.” 298 11.2 “Well, Your Structure Looks Good.” 319 12.1 Big Data Includes Complex Analytics That Reveals Patterns and Trends. 332 13.1 “The Wealth of a Nation” by Seymour Fogel. 358 14.1 “Celebrating 100 Years of Powered Flight, 1903–2003.” 396 14.2 “Rescue Efforts by New York City Firefighters at the World Trade Center, September 11, 2001.” 398 FIGURES 1.1 US Government Organizational Chart. 4 1.2 Revenue Sources: Federal Government. 5 1.3 Federal Government Expenditures. 5 1.4 FY 2018 Mandatory Spending. 7 1.5 FY 2018 Discretionary Spending. 7 1.6 DHS’s Integrated Enterprise Governance Structure. 13 1.7 MWRA Organization and Management Chart. 14 1.8 City of Burlington Organizational Chart. 15 2.1 Evolution of Bureaucratic Models. 47 2.2 XY Theory. 57 2.3 The Deming Wheel. 64 3.1 Senior Executive Service Program Design Logic. 81 3.2 Classic Iron Triangle. 82 3.3 Frequency of Use of Oversight Techniques, 95th Congress. 83 4.1 Layer Cake and Marble Cake Models of Federalism. 92 4.2 Picket Fence Model of Federalism. 93 4.3 Potential Shared Services Outcomes. 97 5.1 “The Athenian Oath,” Prominently Displayed at the Entrance to the Maxwell School of Citizenship and Public Affairs at Syracuse University. 111 6.1 Human Resource Strategy Processes. 145 LIsT of ILLusTrATIons ix 6.2 Maslow’s Hierarchy of Needs. 166 7.1 Decision-Making Steps. 189 7.2 “Decision-Making,” Herbert Simon. 193 7.3 Bounded Rational Decision-Making. 195 7.4 Garbage Can Model. 197 7.5 Political Model of Organizational Decision-Making. 208 7.6 Groupthink Theoretical Framework. 215 8.1 Situational Leadership. 231 8.2 Management Triangle. 234 8.3 Gaining the Power to Lead. 237 8.4 Checklist for Supervisors. 241 9.1 The Spending Pipeline. 251 9.2 Who Puts the Budget Together and How? 253 9.3 Challenges Cost Estimators Typically Face. 255 9.4 Right and Wrong Ways of Defining Program Objectives. 258 9.5 Comparison of Two Approaches to Budgeting. 260 9.6 Priority-Based Budgeting: How It Works in Walnut Creek. 262 9.7 Government Taxes and Revenue Sources, Fiscal Year 2017. 263 10.1 Public-Sector Uses of Performance Management. 273 10.2 Sample Performance Measurement Architecture for a Human Resource (HR) Organization. 277 10.3 Strategies for Performance Measurement Success. 279 10.4 Strong Example of Performance Reporting. 280 10.5 NCPP’s Ten Point Criteria for Performance Reports. 281 10.6 Downside of Performance Measurement. 281 10.7 Balanced Scorecard: Private-Sector Context Versus the Public Sector. 282 10.8 The Balanced Scorecard. 283 10.9 The Conceptual Framework of Citizen-Initiated Performance Assessment. 285 10.10 Performance Management Dashboard With the Balanced Scorecard of the Washington State Transportation Improvement Board. 285 10.11 Citizen Involvement: The Case of Des Moines, Iowa. 288 10.12 Major Potential Advantages and Problems With Delivery of Public Services by For-Profit Companies. 288 11.1 SWOT Diagram. 308 11.2 National Forum on Youth Violence Prevention Logic Model. 314 11.3 Steps in the Evaluation Process. 316 11.4 Interrupted Time Series. 317