Giáo trình public administration understianding management politics and law in the public sector 8e by rosenbloom

Eighth Edition PUBLIC ADMINISTRATION Understanding Management, Politics, and Law in the Public Sector David H Rosenbloom American University Robert S Kravchuk Indiana University Richard M Clerkin North Carolina State University public administration: understanding management, politics, and law in the public sector, eighth edition Published by McGraw-Hill Education, Penn Plaza, New York, NY 10121 Copyright © 2015 by McGraw-Hill Education All rights reserved Printed in the United States of America Previous editions © 2009, 2002, and 1998 No part of this publication may be reproduced or distributed in any form or by any means, or stored in a database or retrieval system, without the prior written consent of McGraw-Hill Education, including, but not limited to, in any network or other electronic storage or transmission, or broadcast for distance learning Some ancillaries, including electronic and print components, may not be available to customers outside the United States This book is printed on acid-free paper DOC/DOC ISBN 978-0-07-337915-9 MHID 0-07-337915-8 Senior Vice President, Products & Markets: Kurt L Strand Vice President, General Manager, Products & Markets: Michael Ryan Vice President, Content Production & Technology Services: Kimberly Meriwether David Brand Manager: Laura Wilk Product Development Coordinator: Adina Lonn Marketing Specialist: Alexandra Schultz Director, Content Production: Terri Schiesl Content Project Manager: Kelly Hart Buyer: Nichole Birkenholz Cover Designer: Studio Montage, St Louis, MO Cover Image: “Gears of Planet Earth.” FreeDigitalPhotos.net by Ventrilock Media Project Manager: Jennifer Bartell Compositor: Cenveo® Publisher Services Typeface: 10/12 Sabon LT Std Printer: R R Donnelley All credits appearing on page or at the end of the book are considered to be an extension of the copyright page Library of Congress Cataloging-in-Publication Data Rosenbloom, David H Public administration : understanding management, politics, and law in the public sector / David H Rosenbloom, American University, Robert S Kravchuk, University of North Carolina/Charlotte, Richard M Clerkin, North Carolina State University — Eight edition pages cm ISBN 978-0-07-337915-9 (alk paper) Public administration United States—Politics and government I Kravchuck, Robert II Clerkin, Richard M III Title JF1351.R56 2015 351—dc23 2013044743 The Internet addresses listed in the text were accurate at the time of publication The inclusion of a website does not indicate an endorsement by the authors or McGraw-Hill Education, and McGraw-Hill Education does not guarantee the accuracy of the information presented at these sites www.mhhe.com ABOUT THE AUTHORS David H Rosenbloom is Distinguished Professor of Public Administration at American University in Washington, DC He earned a Ph.D in political science from the University of Chicago Professor Rosenbloom writes extensively about public administration and democratic-constitutionalism He is the recipient of the 1999 Dwight Waldo Award for outstanding contributions to the field of public administration, the 2001 John Gaus Award for exemplary scholarship in the joint tradition of political science and public administration, and the 2012 Leslie A Whittington Award for excellence in teaching He is a fellow in the U.S National Academy of Public Administration, from which he received the 2001 Louis Brownlow Award for his book Building a Legislative-Centered Public Administration Rosenbloom is editor-in-chief of the CRC/Taylor & Francis Series in Public Administration and Public Policy, serves on the editorial boards of more than a dozen professional journals, and is a Life Associate Trustee Board Member at Marietta College He was Visiting Chair Professor of Public Management at City University of Hong Kong in 2009 and 2010 and frequently lectures at universities in China and Taiwan In 1992 he was appointed to the Clinton-Gore Presidential Transition Team for the Office of Personnel Management Robert S Kravchuk is Professor and Director of the Master of Public Affairs Program in the School of Public and Environmental Affairs at Indiana University in Bloomington, Indiana His teaching and research focus on public budgeting and finance, administrative theory, and the political economy of formerly socialist countries in transition, with a special emphasis on Ukraine and Russia His administrative experience includes service as Under Secretary in the Connecticut State Budget Office, U.S Treasury Resident Budget Advisor to the Minister of Finance of Ukraine, and appointment by the U.S Secretaries of State and the Treasury as Financial Advisor to the President of Bosnia-Herzegovina He is a frequent writer and lecturer on public budgeting, administrative reform, and government capacity-building Currently, he is researching the emergence of complex financial networks among U.S Defense Department major weapons acquisition projects, and is writing a modern text on public financial management His future projects include a canonical history of American administrative thought, and a comprehensive history of Russian public administration from Ivan the Terrible to Vladimir Putin In addition to Indiana University, Professor Kravchuk has taught at the University of North Carolina–Charlotte, the University of Connecticut, University of Hartford, and LeMoyne College He lives in Bloomington, Indiana, with his family Richard M Clerkin is an Associate Professor in the Public Administration Department in the School of Public and International Affairs and the Interim Director of the Institute for Nonprofit Research, Education, and Engagement at North Carolina State University He received his Ph.D in Public Affairs from Indiana University–Bloomington, where he was a Chancellor’s Fellow The main focus of his research is on the interplay of government and nonprofit sectors In particular, he studies motivations for public service and public benefiting activities Recent research in this vein has examined public service motivation in sector work preferences and in the decision of active duty military to reenlist A new stream of research, the Changing Philanthropy Project, explores the impact of geographic mobility and regional philanthropic traditions on 1) the volunteering and donating behavior of individuals and 2) the ability of nonprofit organizations to adapt to these changes in their community His research has been published in Public Administration Review, American Review of Public Administration, Armed Forces & Society, Nonprofit and Voluntary Sector Quarterly, and Nonprofit Management and Leadership He lives in Raleigh, North Carolina, with his wife and children iii CONTENTS IN BRIEF Preface xv iv PART I INTRODUCTION: DEFINITIONS, CONCEPTS, AND SETTING CHAPTER The Practice and Discipline of Public Administration: Competing Concerns CHAPTER The American Administrative State: Development and Political Environment 43 CHAPTER Federalism and Intergovernmental Relations: The Structure of the American Administrative State 100 PART II CORE FUNCTIONS 145 CHAPTER Organization: Structure and Process 146 CHAPTER Public Personnel Administration and Collective Bargaining 208 CHAPTER Budgeting and the Public Finances 264 CHAPTER Decision Making 323 PART III THE CONVERGENCE OF MANAGEMENT, POLITICS, AND LAW IN THE PUBLIC SECTOR 361 CHAPTER Policy Analysis and Implementation Evaluation 362 CHAPTER Regulatory Administration: An Illustration of Management, Politics, and Law in the Public Sector 402 Contents in Brief PART IV PUBLIC ADMINISTRATION CHAPTER 10 Public Administration and the Public 452 CHAPTER 11 Public Administration and Democratic Constitutionalism 489 CHAPTER 12 Accountability and Ethics 530 CHAPTER 13 The Future 562 Glossary 576 Credits 583 Index 585 AND THE PUBLIC 451 v CONTENTS Preface xv PART I INTRODUCTION: DEFINITIONS, CONCEPTS, CHAPTER AND SETTING The Practice and Discipline of Public Administration: Competing Concerns Some Definitions Emphasizing the Public in Public Administration Constitutions The Public Interest The Market Sovereignty 11 Regulation and Service 13 Managerial, Political, and Legal Approaches 14 The Managerial Approach to Public Administration 14 Traditional Managerial Approach to Public Administration 15 The New Public Management (NPM) 19 The Political Approach to Public Administration 26 The Legal Approach to Public Administration 30 The Six Trends Transforming Government 35 Conclusion: Public Administration Reconsidered 37 Study Questions 39 / Notes 39 / Additional Reading 42 CHAPTER The American Administrative State: Development and Political Environment 43 The Rise of the American Administrative State 44 The Political Roots of the American Administrative State 46 The Legal Origins of American Public Administration 49 The Managerial Origins of the Contemporary American Administrative State 54 vi Contents Administrative Authority and Responsibility 57 The Paradox of Administrative Power 57 Administrative Independence 58 Public Policy Making 61 Responses to the Rise of the Administrative State 61 The President and Public Administration 62 Congress and the Administrative State 70 The Courts: A Judicial Response to Modern Public Administration 74 Interest Groups 80 The Public 84 Political Parties 85 State and Local Governments 87 Extensions to the Administrative State 88 The Managerial Approach 89 The Political Approach 90 The Legal Approach 91 Conclusion: The Administrative State 93 Study Questions 93 / Notes 94 / Additional Reading 98 CHAPTER Federalism and Intergovernmental Relations: The Structure of the American Administrative State 100 Why Federalism? The Political Approach 101 What Federalism Does 102 Dual Sovereignty 103 Bicameralism 104 Multiple Layers of Representation 106 Administrative Decentralization: The Managerial Approach 107 The Quest for Uniformity: The Legal Approach 108 The Fourteenth Amendment 108 The Commerce Clause 109 The Tenth Amendment 110 The Eleventh Amendment 111 Evolving Models of American Federalism 112 American Government: The Building Blocks 114 Municipalities 116 Townships 119 Counties 119 School Districts and Other Special Districts 119 States 120 Federal 122 vii viii Contents Intergovernmental Relations 125 Federal-State Relations and Fiscal Federalism 125 “Horizontal Federalism”: Interstate Relations 132 Relationships among Local Governments 136 Conclusion: Federalism and Intergovernmental Relations 138 Study Questions 140 / Notes 140 / Additional Reading 142 PART II CORE FUNCTIONS 145 CHAPTER Organization: Structure and Process 146 Organizations and Organization Theory 147 What Are Organizations? 147 Organization Theory 148 Commonalities in Public Administrative Organization 149 Bureaucracy 149 Scientific Management 154 The Human Relations Approach 156 Leadership 158 Motivation 164 Contemporary Approaches to Organization Theory 168 Managerial Perspectives on Public Organization 178 Orthodox Public Administration: POSDCORB 178 Challenges to the Orthodoxy 180 What Will Replace POSDCORB? 180 The Political Approach to Public Organization 185 Pluralism 187 Autonomy 188 The Legislative Connection 188 Decentralization 188 A Checklist of Political Questions on Administrative Organization 189 The Legal Approach to Public Organization 190 Independence 191 The Commission Format 191 Insulation from Ex Parte Influences 192 Independent Hearing Examiners–Administrative Law Judges 192 Staffing for Adjudication 193 Alternative Dispute Resolution 193 Contents Conclusion: The Future 194 Fundamental Assumptions 194 Democratic Organization 195 Market-Based Organization 198 The Networked Organization 200 Study Questions 201 / Notes 201 / Additional Reading 207 CHAPTER Public Personnel Administration and Collective Bargaining 208 Historical Background 209 Public Personnel Administration According to “Gentlemen” 210 Public Personnel Administration According to “Spoils” 211 Public Personnel Administration According to “Merit” 213 Management, Politics, and Law in Public Personnel Administration 218 Civil Service Reform, 1978 219 HRM Reform in the 1990s and 2000s 222 Managerial Public Personnel Administration 223 Position Classification 224 Recruitment, Selection, and Promotion 228 Performance Appraisal 232 Pay 235 Workforce Planning 238 Cutbacks 238 Quality of Work Life (QWL) 239 Political Neutrality 240 The Political Approach to Public Personnel Administration 241 Responsiveness 241 Representativeness 243 The Legal Approach to Public Personnel Administration 246 The Constitutional Rights of Public Employees and Applicants 247 The Liability and Immunity of Public Employees 250 Collective Bargaining and Labor-Management Partnerships 252 Collective Bargaining 252 Labor-Management Partnerships 256 Conclusion: Three Possible Futures for HRM 257 Study Questions 259 / Notes 259 / Additional Reading 263 ix 592 Index federal grant system devolution of, 128–129 types of grants under, 126–128 unfunded mandates reform of, 129–130 federalism constitutional framework creating, description of, 101 dual sovereignty concept and, 103–104 evolving models of American, 112–114 federal-state relations and fiscal, 125–132 intergovernmental relations and, 138–140 interstate relations and horizontal, 132–135 legal approach quest for uniformity under, 108 managerial administrative decentralization of, 107–108 “nation-centered,” 103, 104, 113 regulatory, 410–411 “state-centered,” 103, 113 U.S system of state-centered, 103–104, 105 Web site resources on, 143 federalism models cooperative, 112, 113 creative, 114 dual, 112, 113 “layer-cake,” 112 “marble-cake,” 112 new, 113, 114 “picket fence,” 114 summary of, 112–114 Federalist No 10 (Madison), 90, 500 Federalist Papers, 90, 494, 500 Federalist Party, 210 Federal Labor Relations Authority (FLRA), 56, 220, 256 Federal Maritime Commission, 412 Federal Maritime Commission v South Carolina State Ports Authority, 111 Federal Personnel Manual, 55, 63, 222, 570 Federal Register, 51, 81, 418, 424, 436 Federal Reserve Act (1913), 49 Federal Aid Road Act (1916), 126 federal-state relations devolution (1990s) affecting, 128–129 entitlements and, 131–132 fiscal federalism/grants focus of, 125–128 other aspects of, 130–131 shifting developments in, 132 unfunded mandates reform and, 129–130 welfare reform and, 130 Federal Trade Commission Act (1914), 49, 412, 423 Feeney, Personnel Administrator of Massachusetts v., 516 feminist theories, 177 Fiedler leadership model, 158 Fifteenth Amendment, 106 Fifth Amendment, 441, 513, 519 “fifth branch” of government, 80 Filburn, Wickard v., 109 Finkel, Branti v., 87 First Amendment, 76, 80, 86, 91, 499, 522, 555, 568 FISA (Foreign Intelligence Surveillance Act), 521 fiscal federalism, 125–130 fiscal year definition of, 284 federal government dollar (fiscal year 2014), 269 flexibility reform, 21 Florida, Seminole Tribe of Florida v., 111, 392 FLRA (Federal Labor Relations Authority), 56, 220, 256 focus on results reform, 20 FOIA (Freedom of Information Act) [1966], 12, 364, 553 Food and Drug Administration (FDA), 54, 408, 416, 421, 423, 432, 433, 445 food and drug labeling, 416 forced-choice technique, 234 forced distribution, 234 Ford, Gerald R., 86 Foreign Intelligence Surveillance Act (FISA), 521 formal coordination instruments (president’s office), 69 formalization decision making approach, 327 formula grants, 126 Fourteenth Amendment constitutional constraints extended to state/local governments by, 493 due process under the, 106, 108 equal protection under the, 31, 106, 501, 513, 518 interstate relations and equal protection under, 134 partisanship under, 86 privacy rights under, 519 procedural due process under, 31, 106, 392, 441 religious liberties under, 91 Fourth Amendment privacy rights protected by, 77–78, 519, 520, 522 unreasonable searches/seizures prohibited by, 341–342 Fox, William F., 273 FraudNet, 552 Freddie Mac, 124 freedom constitutional value of, 501–504 legal constraints on administrative action related to, 504–506 right of religious, 499–500 structure of substantive rights related to, 506, 508 values conflicts involving, 503–504 Freedom of Information Act (1966), 12, 364, 553 Freedom to Manage Act (2001), 69 Freeman, Bill, 435 Friedman, Lawrence, 50 Friedman, Milton, 465 From Red Tape to Results: Creating a Government That Works Better & Costs Less (NPR report, 1993), 21 Frontiers of Public Administration, The (Gaus), 556 FTC (Federal Trade Commission), 124, 409, 414, 418 FTC v Sperry & Hutchinson, 76 full faith and credit clause (U.S Constitution), 134 Functions of the Executive, The (Barnard), 157 G Gaebler, Ted, 19 GAO (Government Accountability Office) and National Performance Review (NPR), 63 auditing function of, 391, 548 budgetary control function of, 551 creation of, 72 description of, 56 FraudNet for reporting misconduct to, 552 investigations of misconduct by, 552 oversight function of, 550, 567 recommendations for public administrative organizations by, 195 “gag” orders, 553 “garbage can model” of decision making, 330, 349–350 593 Index Garcia v San Antonio Metropolitan Transit Authority, 110 Garfield, James, 216 Gates, Bill and Melinda, 92 Gaus, John, 556 GDP (gross domestic product) government expenditures expressed as percent of, 266–267 government spending (2014) as share of, 267 gender classifications equal protection rights related to, 246, 516 profiling related to, 393–394 general legislative oversight, 391 “gentlemen” era (1789–1829), 210–211 Gilman, Stuart, 551 Glass-Steagall Act (1933), 54 globalization, 568 Global War on Terror (GWOT), 305 Gloria Streater, Walter Little v., 378 “going public” practice, 552–553 Goldberg v Kelly, 459, 510 “Golden (Sacagewea) Dollar,” 389 Goodsell, Charles, 467–468 Gore, Al, 21, 383, 558 Gormley, William, 438 government building blocks of American, 114–125 “electronic,” 198 employment by, 45, 46 federalism, federalism and intergovernmental relations of, 138–140 goals of, 46 intergovernmental relations of federal, state, local, 125–138 intervention in economy and society, 50 public interaction through e-government form of, 483 six trends transforming, 35–37 “third-party,” 47–48, 130, 544 “We the People” contract with, 499 See also federal government; local governments; state governments governmental fiscal policy making, 276–278 governmental process model, 349–350 Government in the Sunshine Act (1976), 12–13 government services citizen ratings of Georgia (1992), 469 PTM (Percent to Maximum) measurement of, 469 therapeutic, 481 government shut downs (1995, 1996), 298 governors, 121–122 GPRA (Government Performance and Results Act) [1993], 74, 82, 188, 195, 314, 318, 384, 551, 568 GPRMA (Government Performance and Results Modernization Act) [2010], 74, 82, 188, 195, 286, 305, 311, 313, 314, 318, 384, 566, 568 Graham, John, 427 Gramm-Rudman-Hollings Balanced Budget and Deficit Reduction Acts (1985 and 1986), 294 “Grand Convention” of 1787, 103 grant system devolution of, 128–129 types of grants under, 126–128 unfunded mandates reform of, 129–130 graphic rating scale, 232, 233 “grassroots” democracy, 106, 136 Gratz v Bollinger, 504 Great Britain, 384 Great Recession (2007–2009), 54, 124, 126, 265, 278, 301 Great Society programs creative federalism of, 114 premise of, 363 grid regulations (“grid regs”), 328–330 grievance arbitration, 255 groupthink concept, 334 Grutter v Bollinger, 501, 504 GS-16 level employees, 555 GSA (General Services Administration), 56, 122 Guantanamo military base, 567 “guerrilla government,” 496–497 Gulick, Luther, 18, 178 Gun-Free School Zones Act (1990), 109 GWOT (Global War on Terror), 305 H Hamilton, Alexander, 210 Hammer, Michael, 184 Hammond, Arthur, 314 Hampton, Robert, 171 Hanssen, Robert, 540 “hard look” approach, 441 Harley v Schuylkill County, 492 Harvard Business Review, 162 Hatch Acts (1939, 1940, 1993), 86, 240 “Hawthorne effects,” 156–157, 436 Hawthorne Works (Western Electric Company), 156 Hayek, Friedrich, 465 headlamp standard comments (Department of Transportation), 52–53 Heckler v Chaney, 442 Heinrich, Carolyn, 384 Henry, Gary, 469 Heritage Foundation, 423 Herzberg, Frederick, 166, 167 Herzberg’s two-factory theory, 166–167, 235 HEW (U.S Department of Health, Education, and Welfare), 305 “HEW Grapples with PPBS” (Drew), 305 Hialeah (Florida) animal sacrifice ordinances, 505 hierarchy in decision making, 326–327 Hildreth, W Bartley, 126 hiring freezes, 294 Homeland Security Act (2002), 57, 222–223 “honest” graft, 537, 538 Hoover, J Edgar, 160, 161, 535 “horizontal” federalism, 132–135 Horner, Constance, 491 House Post Office and Civil Service Committee, 570 How Institutions Think (Douglas), 175 “How to Choose a Leadership Pattern” (Tannenbaum and Schmidt), 162 HRM (human resources management), 209 See also public personnel administration Hudson, Chicago Teachers Union v., 256 Human Capital Survey (2006), 497 human relations approach, 156–158 human services integration, 471 Human Side of Enterprise, The (McGregor), 185 Hummel, Ralph, 18, 456–458, 459 Hurricane Katrina, 10, 563 hygienes, 166, 167 “hyperpluralism,” 338 I IBM Center for the Business of Government, 35 ICC (Interstate Commerce Commission), 49, 191, 404, 416, 423 IGs (inspectors general), 56, 548 Illinois, National Bellas Hess v., 272 immigration Immigration and Naturalization Service v Jagdish Rai Chadha, 26, 294, 392 Woodrow Wilson on rising rate of, 214–215 594 Index immunity absolute, 31 absolute substituted with qualified, 78 Eleventh Amendment provisions on state, 111–112 of public employees, 250–252 qualified, 31 Supreme Court’s new standard on, 78–79 See also liability impact analysis assuming causality in nonexperimental, 368–369 described, 366–367 interpreting results of, 367 limited opportunities for experimentation, 367 quasi-experimental research designs for, 369–370 See also policy impact (or outcome) impersonal view of individuals, 17–18 implementation evaluation applications of, 395–396 legal perspective on, 391–395 monitoring and measuring performance for, 382–387 NPM (new public management) approach to, 380–382 political perspective on, 388–391 relationship to policy analysis, 363 traditional managerial perspectives on, 372–380 See also policy analysis; public policy implementation studies, 370–372 “impossible choices” in public administration, 10–11 implied powers clause, 104 impoundments, 284, 294–296 income taxes, 271–272 incrementalism, 29 incremental model of decision making components of the, 336–338 critique of the, 338–339 overview of, 335–336 independent agencies, 122, 416 independent regulatory commissions, 65, 122, 124, 415–416, 424 India-Pakistan war (1971), 333 individual income taxes, 271–272 individuality constitutional value, 518–519 individuals in the administrative state, 456–466 constitutional value of diversity among, 500–501 democratic constitutionalism on individuality of, 518–519 economic context of, 464–466 enforcement mechanisms that are external to, 554 legal approach to public administration on, 33 NPM customer view of, 23–24 political approach to public administration on, 28–29 political system context of, 461–463 protecting constitutional rights of, 30–32 societal context of, 456–461 traditional managerial impersonal view of, 17–18 See also constitutional rights; public Industrial Union Department, AFL-CIO v American Petroleum Institute, 76, 344–345 “informal organizations,” 156–157 information technology (IT), 354–355, 570, 571 information transparency, 12 inspectors general (IGs), 56, 548 Institute of Shortening and Edible Oils, 425 “institutional memory,” 238 interest groups legislative lobbying by, 80 political role of, 80 public administration relationship to, 80–81 public policy influence by, 82–84 intergovernmental relations federal and state governments, 125–132 between local governments, 136–138 between state governments, 132–135 See also authority Internal Revenue Service Restructuring and Reform Act (1998), 72 Internet sales tax controversy, 272–274 Internet Tax Freedom Act (1998), 273 interstate commerce, 133 Interstate Commerce Commission (1887), 49, 191, 404, 416, 423 interstate compacts, 135 interstate cooperation, 133–134 intolerance of risk, 415 Introduction to the Study of Public Administration (White), 16, 567 Iraq War, 463 “iron triangle,” 83 IT (information technology) decomposition promoted through, 570 impact on decision making by, 354–355 “informated workplace” facilitated by, 571 J Jackson, Andrew, 86, 125, 210, 211–212, 565 Jackson, Robert, 500 Jagdish Rai Chadha, Immigration and Naturalization Service v., 26, 294, 392 Jefferson, Thomas, 125, 210, 211, 294 Jehovah’s Witnesses, 499 Jenkins, Missouri v., 34, 316 job sharing practice, 239 Johnson, Lyndon, 114, 304, 363 Johnston, Michael, 536 Jones, James H., 368 judicial activism, 74 judicial branch, 123 See also U.S Supreme Court judicialization of public administration increasing, 30, 480, 513 judicial system ADR (alternative dispute resolution), 33, 191, 193–194 ALJs (administrative law judges) of, 192–193 constitutional rights strengthened/ articulated by, 75–76 judicial review function of, 53 liability and immunity issues reviewed by, 77–79 public law litigation or remedial law role of, 77 response to modern public administration by, 74–79 scrutiny of administrative decisions by, 76 Jungle, The (Sinclair), 408, 409 Juran, Joseph, 182 “just compensation,” 509 K Kahn, Robert, 171 Kamensky, John, 35 Kaplan, H Roy, 185 Katz, Daniel, 171, 468, 469 Katzenbach v McClung, 108 Kaufman, Herbert, 173, 189 Keeping Faith (Carter), 62 Kelly, Goldberg v., 459, 510 Kelly, Raymond W., 507 Kelo v City of New London, 509, 510 Kennedy, John F., 339 Kettl, Donald, 42 Keyishian v Board of Regents, 501, 503 Keynesian approach, 276–278 Keynes, Lord John Maynard, 276 King, James, 55 King, Martin Luther, Jr., 535 595 Index Kingdon, John, 349 Kitzhaber, John, 21 Klein, Gary A., 348 Koop, C Everett, 162 L labor-management partnerships, 256–257 LaPalombara, Joseph, 536 law See administrative law; constitutional law “law of counter control” (Downs), 542 “layer-cake federalism,” 112 leader-member exchange theory, 158 leader-participation model, 158 leaders common traits, qualities, and skills of, 158–160 qualities of effective, 157–158 leadership “boss-centered,” 162 definition of, 158 exceptional public administrator, 160–161 exemplary public administrators, 161 moral, 161–162 qualities of effective, 158–160 “subordinate-centered,” 162, 163 throughout an organization, 163–164 trait theory of, 158 leadership style choosing a, 162–163 continuum from boss- to subordinatecentered, 162 League of Women Voters, 84 “least restrictive alternative” principle, 505, 506 Lebron, Michael, 523 legal approach to accountability and ethical issues, 554–556 budgeting and decision making under the, 34 budgeting/budgets influenced by, 316–317 cognitive approach applied by the, 33–34 to decision making, 34–35, 339–343 foundations of, 30–31 implementation evaluation perspective of, 391–395 increasing relevance of the law and, 31 legal values inherent in, 31–32 organizational structure under the, 32–33 to policy implementation, 391–395 to the public, 478–479 to public administration organizations, 190–194 quest for uniformity under, 108–112 to regulatory administration, 440–442 summary of, 38 view of the individual under the, 33 See also constitutional law; public administration legal values in public administration, 31–32 legislative branch, 123 See also U.S Congress legislative oversight, 391, 550, 551 Legislative Reference Service, 71 Legislative Reorganization Act (1946), 70, 567 legislative veto, 392 legitimacy constitutional value of, 498–500 norms and values of political exchange, 537 participation and, 81 salute and pledge allegiance issue of, 499 Levin-Coburn Report (2011), 536 Lewin, Kurt, 185 Lewis, Carol, 545, 557 Lewis, Eugene, 159, 160, 535 Lewis, John, 507 liability AEC (Atomic Energy Commission) nuclear testing, 534 changing presumption of public administrator’s, 78 of public employees, 250–252 Supreme Court’s new standard on, 77–78 See also immunity; litigation liberty constitutional value of, 501–503 legal constraints on administrative action related to, 504–506 structure of substantive rights related to, 506, 508 tension between equality and, 50–51 values conflicts involving, 503–504 Light, Paul, 67, 98 limited-term appointments, 221 Lincoln, Abraham, 212 “line-item veto,” 69, 295 Line-Item Veto Act (1996), 295 Lipman-Bluman, Jean, 177 Lipset, Seymour Martin, 532 litigation AEC (Atomic Energy Commission) nuclear testing, 534 immunity from, 77–79, 111–112, 250–252 judicial system role in public (or remedial) law, 77 liability and, 77–79, 250–252 See also adjudication; liability Little v Streater, 378 Lloyd–La Follette Act (1912), 216 Local 2677, American Federation of Government Employees v Phillips, 495–496 local governments average ratings of services, 469 complicated organization/activities of, 87–88, 101 constitutional constraints extended to, 493 counties, 101, 119 “Dillon’s rule” on authority of, 132 Eleventh Amendment provisions on immunity of, 111–112 full- and part-time employment (1980–2004) by, 46 municipalities, 116–119, 251 participation in policy implementation by, 388 property tax revenue of, 274–275 relationships among, 136–138 responses to public administration by, 86–87 school districts, 119–120 special districts, 119–120 townships, 119 See also federal government; government; state governments Long, Norton, 186 Lopez, United States v., 109 Loyalty Review Board, 247 Lucas, Bush v., 252 M Macoby, Michael, 169 Madison, James, 90, 494, 495, 500 Madoff, Bernard, 433 Maine, Alden v., 111 “Maine 200” program, 435–436 Majone, Giandomenico, 396 majoritarian politics, 412 managerial approach accountability and ethics perspectives of, 546–548 administrative decentralization under, 107–108 to budgets and budgeting, 19, 301–312 cognitive approach under, 18–19 to decision making, 19, 324–335 596 Index managerial approach (Continued) NPM as changing the face of the, 565–567 to organizational structure, 16–17, 178–185 origins and development of, 15–16 to policy implementation, 372–380 to the public, 470–471 to public personnel administration, 223–241 to regulatory administration, 432–435 use of overhead agencies, 55 view of the individual under, 17–18 Scientific Management Movement, 16, 17 See also NPM (new public management); public administration; traditional managerial approach “managerial presidency,” 62–70 “marble-cake federalism,” 112 March, James, 349 marginal cost concept, 375 market-based approaches to decision making, 345–346 market-based organizations, 198–200 market failure labor immobility form of, 411 regulation to prevent, 408–410, 411 See also economy market functioning regulation, 409 marketization reform, 20 Marketplace Fairness Bill (2013), 273 markets and market factors economic trade-offs affecting public expectations, 10–11 public administration affected by, 8–11 Maryland, McCullough v., 104 Maslow, Abraham, 165–166 Maslow’s “hierarchy of needs,” 165–166 Massachusetts Proposition 2½, 275 matching grants, 127–128 Mayo, Elton, 156 mayor-council municipal government, 118 mayors, 118, 131 MBO (management by objectives), 181, 565 McCarthy, Joseph, 242, 540 “McCarthyism,” 242 McClelland, David, 167 McClung, Katzenbach v., 108 McCullough v Maryland, 104 McGregor, Douglas, 185 McNamara, Robert, 304 Mead Corporation, United States v., 442 Meat Inspection Act (1907), 49 median voter model, 89 Medicaid, 128, 131–132, 269 Meier, Kenneth, 346 Meltzner, Arnold, 396 merit decision making approach, 327–330 merit examinations, 231 “merit system” era (since 1883), 213–218 Miami–Dade County Metropolitan Government, 136 “micromanagement,” 551 Miles’s law, 194 military base downsizing, 334 “military-industrial complex,” 540 Miller, Michelle, 469, 470 Miller, Thomas, 469, 470 “millionaires’ club” (U.S Senate), 215 mimetic isomorphism, 175 Mintzberg, Henry, 570 Missouri v Jenkins, 34, 316 Mitchell, Alison, 460 mixed-scanning decision making approach, 351–352 Model Cities Act (1966), 475 Model Cities Program, 388, 475, 476 Model State Administrative Procedures Act, 54 moral leadership, 161–162 Mormons, 106 Morrill Act (1862), 126 Morrison, United States v., 109 Morrison v Olson, 6, 497, 555 Morton Thiokol, 334 Moses, Robert, 160, 161 Mosher, Frederick, 461, 462, 531 motivation expectancy theory on, 167 Herzberg’s two-factory theory on, 166–167 Maslow’s hierarchy of needs on, 165–166 PSM (Public Service Motivation) theory on, 165, 235 understanding, 164–165 See also employees Motor Vehicle Manufacturers Association v State Farm, 76 Moynihan, Daniel Patrick, 476 MSPB (Merit Systems Protection Board) description of, 56 duties of, 193 reforms of, 219–220, 240 sexual harassment studies by, 244 “muddling through” decision making, 29 “multiple budgets” problem, 281 municipalities, 116–120, 252 Myers v United States, 27 “mythical presidency,” 62–64 N Nader, Ralph, 413 narrow tailoring, 505, 506, 514, 515 NAACP, 503 NASA, 122, 176 NASBO (National Association of State Budget Officers), 322 National Academy of Public Administration, 42 National Aeronautics and Space Administration, 122, 176 National Association of Manufacturers, 436 National Bellas Hess v Illinois, 272 national debt, 265, 278–280, 563 national debt ceiling, 299–300 National Environmental Policy Act (NEPA) [1969], 438–439, 478 National Fish Meal and Oil Association, 425 National Governors Association, 273 National Highway Transportation Safety Administration (NHTSA), 416 National Labor Relations Act (1935), 412 National Labor Relations Board (NLRB), 124, 410, 418 National League of Cities, 131 National Milk Producers Federation, 418 National Organization for Women, 306 National Park Service, 297 National Performance Review (NPR) [1993], 21–23, 54, 62, 63, 70, 309, 383, 384, 426, 436, 459, 461, 462, 471, 473, 549–550, 565–566, 568, 573 National Renderers Association, 425 National Security Agency (NSA), 390, 541, 543 National Security Council (NSC), 351–352 “national security letters,” 541 National Training Laboratories, 185 National Treasury Employees Union, United States v., 555 National Treasury Union v Von Raab, 250 natural disasters Hurricane Katrina, 10 “Zipf’s Law” on, 10 597 Index Naturalization, Alien, and Sedition Acts (1798), 125 Natural Resources Defense Council, 478 Natural Resources Defense Council, Chevron v., 442 Natural Resources Defense Council, Vermont Yankee Nuclear Power Corporation v., 442 natural rights, 502 necessary and proper clause, 104 negotiated rule making, 432 Negotiated Rulemaking Act (1990), 81, 193–194, 416, 432, 444 neo-institutional theory, 175 NEPA (National Environmental Policy Act) [1969], 438–439, 478 network model of influence, 83 network organizations, 36, 200–201 New Deal (1933–1938) dual federalism of, 112, 114 public administration growth during, 26, 70, 75, 313, 565, 566 “New Democrats,” 565 New England Regional Commission, 135 new federalism, 113, 114 New Jersey v New York, 105 new performance budgeting, 309–312 “new property” rights, 510–511, 512 “new public service” paradigm, 198 New York Bureau of Municipal Research, 302 New York v United States, 110 NGA (National Governors Association), 273 NHTSA (National Highway Transportation Safety Administration), 416 Nice, David, 112 NIMBY (“not-in-my-backyard”) syndrome, 439 Ninth Amendment, 502 9/11 (2001), 63, 463, 541, 563, 567 Nixon, Richard M., 114, 161, 294, 431 NLRA (National Labor Relations Act) [1935], 412 NLRB (National Labor Relations Board), 124, 410, 418 No Child Left Behind legislation (2000), 128 noncareer appointments, 221 nondistribution constraint on nonprofits, 89 nonexperimental design, 367 NOPE (“not on planet Earth”) syndrome, 439 normative isomorphism, 175 North Dakota, Quill v., 272 “Notes on the Theory of Organization” (Gulick), 178 NPM (new public management) accountability and ethics perspectives of, 549–550 alternative service delivery premise of, 380–381 approach to the public by, 490 budgeting and decision making under, 24 bureaucracy criticism by, 153 central tenet of the, 194 changing face of management through, 570–571, 564 cognitive approach under, 24 decision making approach under, 24, 345–348 definition of, discretionary approach promoted by, 381–382 employee empowerment approach by, 346–348, 457, 531 HRM reform (1990s) through, 222–223 leadership approach favored by, 164 on local governments’ role, 136–138 main elements, premises and characteristics, 19–26 managerial approach related to, 14–15, 55 market criteria of, 345–346 NPR report (1993) formally adopting, 21–23 organizational structure preferred by, 23 performance and monitoring approach of, 130, 568–569 policy implementation approach by, 380–387 regulatory administration approach by, 435–437 rule-bound approach rejected by, 348 on subjects of bureaucratically organized administration, 457–458 summary of, 38 view of the individual under, 23–24 See also managerial approach; public administration NPOs (not-for-profit organizations), 9, 90, 91 NPR (National Performance Review) [1993], 21–23, 54, 62, 63, 70, 309, 383, 384, 426, 436, 459, 461, 462, 471, 473, 549–550, 565–566, 568, 573 NRMA (Negotiated Rulemaking Act) [1990], 81, 193–194, 416, 432, 444 NSA (National Security Agency), 390, 541, 543 NSC (National Security Council), 66 Nuclear Regulatory Commission, 432 nuclear testing litigation, 534 O Obama, Barack, 64, 69, 128, 129, 244, 387, 423, 431, 469, 540, 565, 566 obligations, 285 Occupational Safety and Health Administration (OSHA), 49, 60, 343, 345, 414, 416, 425, 426, 432, 436, 445, 520 Occupational Safety and Health Administration Act (1970), 59, 343–344 customer service standards of, 382–383 regulatory functions of, 410, 419 rule making by, 418 social factors related to, 414–415 See also workplace safety O’Connor, Sandra Day, 110, 509 OEO (Office of Economic Opportunity), 495–496 off-budget, 281 Office of Financial Research (OFR), 432 Office of Thrift Supervision (OTS), 536 offsetting receipts, 285 OGE (U.S Office of Government Ethics), 548, 551, 555 OHS (Office of Homeland Security), 63, 391 OIRA (Office of Information and Regulatory Affairs), 424 Oil Protection Act (1990), 425 Oklahoma City bombing (1995), 468 O’Leary, Rosemary, 496–497 Olney, Richard, 413 Olson, Morrison v., 6, 497, 555 OMB (Office of Management and Budget) agency rule making role of, 424 Circular A-76 procedures of, 84, 474 creation of, 281 description of, 55, 66 estimates on paperwork generated by regulation, 424 examples of performance measures used by, 385–387 OIRA (Office of Information and Regulatory Affairs) of, 424 organization of the, 282 outcome as defined by, 385 preparing the executive budget, 281–286 as presidential management tool, 66 598 Index OMB (Continued) review of agency rule making by, 430–431 Web site, 322 See also budgeting/budgets; EOP (Executive Office of the President) ombudsman, 470 OMB Watch (Center for Effective Government), 478 on-budget, 285 ONDCP (Office of National Drug Control Policy), 66 open-systems theory, 170–171 operations management, 181 OPM (Office of Personnel Management) and “constitutional literacy,” 491 customer service standards of, 383 description of, 55, 471 duties of, the, 122, 124, 192, 220 Human Capital Survey (2006) by, 497 and performance standards, 184 radical decentralization implemented by, 570 oral examinations, 229–230 “Oregon Benchmarks” program, 21–22, 384 Oregon Progress Board, 21 Oregon Shines, 22 organizational autonomy, 188 organizational culture changing, 184–185 perspective of, 175–177 organizational humanism, 185 organizational memory, 339 organization development (OD), 185 organizations bureaucratic, 149–154 characteristics of, 148 definition of, 147 democratic, 195–196 Hawthorne experiments on, 156–157 “informal,” 156–157 market-based, 198–200 network, 36–37, 171–172 PBOs (performance-based organizations), 184, 199 sampling of personalities within all, 168–169 scientific administrative in different types of, 179 See also public administration organizations Organizations in Action (Thompson), 171 organization theory complex adaptive systems (CAS) approach, 173–175 ecological model, 173 expectancy theory, 167 feminist theories, 177 Herzberg’s “two-factory theory,” 166–167 human relations approach, 156–158 legal approach to, 190–194 Maslow’s “hierarchy of needs” on, 165–166 neo-institutional theory, 175 network organizations approach to, 171–172, 200–201 organizational culture perspective, 175–177 political approach of, 185–190 premises of, 148 scientific management, 154–156, 180 systems approach to, 169–171 Weber’s “ideal-type” bureaucracy, 17, 149, 150–154 Web site resources on, 207 “zone of indifference,” 157–158 “original intent” constitutional concept, 493–494 Osborne, David, 19 O’Toole, Laurence, 346 Ott, Steven, 176 outcome analysis assuming causality in nonexperimental, 368–369 described, 366–367 interpreting results of, 370 limited opportunities for experimentation, 369 quasi-experimental research designs for, 369–370 See also policy impact (or outcome) outlays definition of, 285 relationship between budget authority, appropriations and, 290 relationship to budget authority (2008), 291–292 outsourcing services (“third-party government”), 47–48, 130, 544 “overbreadth” principle, 504, 505, 506 “overhead agencies,” 54–55 overhead policy, 397–398 oversight, 391 P Papers on the Science of Administration (Gulick and Urwick), 18, 178, 179 paperwork reduction, 424, 439, 483 Paperwork Reduction Acts (1980, 1995), 424, 439 paradox of administrative power, 57 Parrish v Civil Service Commission of Alameda County, 492 partnership trend, 36 PART (Program Assessment Rating Tool), 69, 384, 387 Patent and Trademark Office, 184 Patient Protection and Affordable Care Act (“Obamacare”), 377, 389 path-goal theory, 158 patronage and patronage systems, 86, 87, 211 Pay-as-You-Go (PAYGO), 283 “pay caps,” 237 pay levels, 235–238 PBOs (performance-based organizations), 184, 199 Pendleton Act (Civil Service Act), 213, 216, 218, 243 Pennsylvania v Union Gas, 111 PERBs (Public Employment Relations Boards), 256 Percent to Maximum (PTM) method, 469 performance appraisals of, 232–235 government trend toward measuring, 35 implementation evaluation by monitoring/measuring, 382–387 NPM (new public management) focus on, 130, 564, 568–569 OMB examples of measuring, 385–387 regulation’s negative impact on economic, 423 “360” degree evaluation of, 232 See also benchmarking performance budget, 302–303 performance examinations, 229 performance measurement, 35, 382–387, 550 performance on demand trend, 36 Perrow, Charles, 148, 171, 173, 326 personal responsibility, 563, 571–572 Personal Responsibility and Work Opportunity Act (1996), 130, 415 Personnel Administrator of Massachusetts v Feeney, 516 philanthropy, 91–92 Phillips, Local 2677, American Federation of Government Employees v., 495–496 plain language communication, 483 pledge allegiance issue, 499 pluralism consensus and challenge of political, 332–333 Index constitutional value of diversity and, 500–501 “hyperpluralism,” 338 public administration, 28–29, 187–188 Poister, Theodore, 469 political action committees (PACs), 539 police powers of state governments, 106, 109 policy analysis applications of, 395–396 complexity of policy design and, 396–398 economics-based paradigm, 396 growing concern with, 363–364 implementation evaluation relationship to, 362–363 implementation studies, process analysis approaches to, 370–372 outcome, 364–370 Web site resource on, 401 See also implementation evaluation; public policy Policy and Administration (Appleby), 180 policy cycle, 12 policy design, complexity of, 396–398 policy impact (or outcome) analysis of, 364–367 comparing policy output to, 364 examples of customer service standards for, 383 OMB definition of, 384 program logic model on, 365 See also outcome analysis policy implementation using analysis and evaluation to facilitate, 395–396 cost-effectiveness issue of, 377 impact of policy design on success of, 371, 396–398 legal perspective on, 391–395 NPM (new public management) approach to, 380–387 representation, responsiveness, and accountability issues of, 388–391 traditional managerial approach to, 372–380 See also public administration; public policy policy making circularity of, 339 governmental fiscal, 276–278 policy output comparing policy impact or outcome to, 364 program logic model on, 365 political appointments, 67–69 political approach to accountability and ethical issues, 550–554 to budgeting/budgets, 29, 312–315 cognitive approach applied under, 29 to decision making, 29–30, 335–339 implementation evaluation perspective of, 388–391 individual view under the, 28–29 to local governments, 132 organizational structure using the, 28 origins and development of, 26–27 to policy implementation, 388–391 to the public, 474–478 to public administration organizations, 185–190 to public personnel administration, 241–246 to regulatory administration, 437–439 summary of, 38 See also public administration political culture boss-follower, 537 creating a new administrative, 572–573 “CYA” (cover your a[natomy]), 571 political and legal ramifications of violating, 537–540 political-machine-based, 537 public administration defined by politics and, 565–567 “rights revolution” (1950s–1970s) inclusion into the, 568 varying definitions of corruption by different, 536–540 See also political system political discretion, 544 political exchange, 537 political-machine-based culture, 537 political neutrality concept, 210–211, 240–241 political parties public administration relationship with, 85–87 subversion charges lodged by, 540–541 unconstitutionalizing of political patronage by, 86 political patterns client politics, 412–413 entrepreneurial politics, 413–414 interest group politics, 412 majoritarian politics, 412 political system bureaucratically organized welfare office client, 459 599 individual in the, 461–463 welfare office experiment, 460 See also political culture politics of regulation, 411 Politics, Position, and Power: The Dynamics of Federal Organization (Seidman), 189–190 Ponzi scheme, 433 popular sovereignty, 461 pork-barrel allocations, 313, 539 pork-barrel legislation, 72, 74, 268, 313 Port Authority of New York and New Jersey, 135 POSDCORB, 178–179, 180 position classification system, 18, 224–228 Posner, Paul, 129 Powell, Lewis, 79 “Power and Administration” (Long), 186 PPBS (Planning Programming Budgeting System), 304–306, 335 Preamble (U.S Constitution), 46 “predictive empirical relationships” principle, 518 premise controls, 326 presidential authority, 64–65 presidential office See EOP (Executive Office of the President) President’s Management Advisory Board, 64 President’s Management Council, 64 Presthus, Robert 169 Prevention of Violence Against Women Act (1994), 110 Primer on Performance Measurement (OMB), 385–387 Printz v United States, 110 principal-agent relationships, 37 privacy rights basic structure of, 519–520 constitutional value of, 519–521 domestic surveillance after 9/11 and, 521 IT (information technology) impact on, 355 private interests balance, 444–445 private property See property rights private-public administration comparison, 5–13 Privatization: The Key to Better Government (Savas), 380–381 privileges and immunities clause, 134 procedural due process constitutional structure of, 512 as constitutional value, 511–513 Fifth Amendment takings doctrine applied to, 507, 508, 509 600 Index procedural due process (Continued) First Amendment applied to, 252 Fourteenth Amendment guarantee of, 108, 378, 507 judicial strengthening of, 75–76 as legal value, 31 “new property” rights and, 510–511 and procedural rules, 51 and protection of individual rights, 394 regulatory administration adversarial, 441 and substantive rules, 51, 519 Walter Little v Gloria Streater on, 378 See also constitutional rights; constitutional values process analysis, 370–372 product safety regulation, 408 Professional Services Council, 84 program budget, 303–306 program logic model, 365 Progressives, 565 project grants, 126–127 promotion practices, 221–222 property rights constitutional value related to, 507–511 emergence of “new property” rights, 510–511 eminent domain as it relates to, 508–509 Fifth Amendment takings doctrine related to, 508, 509 Kelo v City of New London on, 509, 510 property tax, 274–275 Proposition 2½ (Massachusetts), 275 Proposition 13 (California), 275 prospective adjudication, 340 “Proverbs of Public Administration” (Sayre), 180 PSM (Public Service Motivation), 165, 235 PTM (Percent to Maximum), 469 public administrative reasons for decision making exclusion of, 479 client/customer satisfaction of the, 463 “clientela” relationship with the, 536 as clients or customers, 454, 471–473 as contractors, 455–456 coproduction activities by, 477 direct political participation by, 475–476 e-government interaction with, 483 evaluation of public administration by, 466–470 government services rated by, 469–470 “immediacy bias” of, 468–469 as the individual in society, 456–461 as the individual in the economy, 463–466 as the individual in the political system, 461–463 as litigants, 455 ombudsman services provided to, 470 paperwork reduction benefits to, 483 as participants, 454–455, 482 plain language communication with, 483 public administration’s interaction with, 453–456 as regulatees, 454–455 as street-level encounters, 455, 481–482 unrealistic expectations of, 467–468 Web sites on public administration interactions with, 488 See also citizens; individuals public administration activist role of, 364 characteristics and definitions of, 3–5 client-centered, 476–477 complexity and challenges facing, 563, 564–565 constitutional right to disobey by, 492 constitutional structure of, 5–7, 494–498 creating a new culture for, 572–573 defined by politics, 565–567 definition of, disaggregation of, 569 discretionary, 381–382, 496–497 factors distinguishing private from, 5–14 individual public participation in, 482–484 large size and scope of, 543–544 ongoing partnership between democratic constitutionalism and, 525 perspectives on the public by, 470–479 pluralism concept of, 28, 187–188 as “political process,” 26–27 public evaluation of, 466–470 public interest focus of, 7, 84–85, 443 public’s interaction with, 453–456 as “public trust,” 11 putting the public back in, 479–484 reconsidering perspectives on, 37–39 reform models recommended for, 20–21 scale and scope, 543–544 separation and collapse of powers within, 494–495 summary of different perspectives of, 38 three “masters” of, 497–498 Web site resources on theories of, 42 Web sites on public interactions with, 488 See also agencies; legal approach; managerial approach; NPM (new public management); policy implementation; political approach public administration organizations autonomy of, 188 checklist of political questions on, 189–190 commission format of, 191–192 Corporation for National and Community Service, 151 decentralization of, 188–189 democratic, 195–198 Department of Homeland Security See U.S Department of Homeland Security fundamental assumptions about, 194–195 independence of, 191 insulation from ex parte influences, 192 legal approach to, 190–194 legislative connection of, 188 managerial perspectives on, 178–185 market-based, 198–200 pluralism of, 187–188 political approach to, 185–190 staffing for adjudication of, 193 See also agencies; bureaucracy; organizations public administration practices federal and state constitutions defining, 5–7 market concerns affecting, 8–11 public interest focus of, 7–8 regulation and service as, 13–14 sovereignty concept affecting, 11–13 public administrators avoiding conflict of interest by, 547–548, 553–554 Code of Ethics for, 557 corruption of, 536–540 ethics of, 544–546 full-time status of, 542 “guardian” role of, 532 Index job security of, 542 lack of political direction given to, 543 “law of counter control” issue of, 542 liability and immunity issues of, 77–79 misconception of the public interest by, 532–536 need to understand the constitution by, 490–494 problem of coordination, 542–543 rotation of, 551–552 as sovereign agents, 11–13 special expertise and information held by, 541 “street-level,” 30 subversion of, 540–541 summary of perspectives on, 38 Supreme Court’s new standard of liability for, 77–79, 491–492 See also accountability “public benefit” doctrine, 509 “public choice” movement, Public Citizen, 437, 478 public employee unions, 84 Public Employment Relations Boards (PERBs), 256 Public Entrepreneurship: Toward a Theory of Bureaucratic Political Power (Lewis), 159–160, 535 public expectations, 467–468 public goods, public interest bureaucratic politics and confusion over, 335 economic trade-offs affecting, 10–11 groups, 84, 477–478 misconception of, 532–536 policy implementation representation of demographic, 388–389 public administration focus on, 7–8, 84–85, 443 regulation as being in the, 416, 443 public law litigation (or remedial law) See litigation public personnel administration collective bargaining in, 252–256 historical background of, 209–218 labor-management partnerships in, 256–257 management, politics, and law in, 218–223 managerial approach to, 223–241 misconceptions of, 532–536 political approach to, 241–246 protective nature/job security of, 542 reforms in the 1990s and 2000s, 222–223 three possible futures for HRM in, 257–259 Web site resources on, 263 See also civil service; employees; HRM (human resources management) public personnel administration history “gentlemen” era (1789–1829) of, 209, 210–211 “merit system” era (since 1883) of, 209, 213–218 “spoils system” era (1829–1882) of, 209, 211–213 public policy administrative authority/responsibility in, 61 American Administrative state role in, 46–47 constitutional integrity of, 392–393 cycles, 12 design complexity of, 396–398 equal protection of, 393–394 formulation of, 365–366 interest groups’ influence on, 83–84 overhead, 397 public administrators’ public trust and role in, 12–13 regulatory, 397–398 sociotherapeutic, 397 See also implementation evaluation; policy analysis; policy implementation “public purpose” doctrine, 509–510 Public Service Motivation (PSM), 165, 235, 373 public trust, 11 “publicness,” 14 Pure Food and Drug Act (1906), 49, 408, 413 Q quasi-experimental design, 367, 369–370 quasi-public goods, 9–10, 509 Quill v North Dakota, 272 qui tam legal doctrine, 555–556 QWL (quality of work life), 239 R racial classifications equal rights protections related to, 513–515 profiling related to, 393–394 Radin, Beryl, 396 random drug testing, 250 ranking employees, 234 “rat hair” list (FDA), 434 601 rate-setting regulation, 408–409 rating scale, 232, 233 rational-comprehensive model critique of the, 332–335 steps of the, 330–332 rationality, economic, 178 Reagan, Ronald, 62, 67, 128, 138, 342, 468, 565 real property tax, 274–275 rebudgeting process, 297 reconciliation, budget, 285 recruitment practices, 228 Redford, Emmette, 461 reasonableness as a judicial norm, 441–442 “Red scare” (1940s–1950s), 75, 242 “red tape,” 414, 423–424, 430, 549 regime values concept, 554, 555 Regional Councils (Councils of Government), 138 regulatees, 454 regulation administration of, 411 economic performance dampened by, 423 employment, 410 environmental protections, 409–410 estimates of benefits and costs of major federal, 427 expense of, 422–423 formal and informal rule making and, 430–431 incompetence and impropriety criticism of, 424–425 market failure and, 408–410 market-functioning, 409 negotiated rule making and, 432 origins of, 404–408 overinclusiveness of, 425–426 to prevent market failure, 408–410 product safety, 408 public administration’s role in, 13–14 public interest focus of, 416 “red tape” produced by, 423–424 traditional managerial perspective of, 432–435, 481 See also deregulation; rule making regulatory administration common criticisms of, 421–429 determining success of, 426–429 development and growth of, 404–415 enforcement, 435 Executive Order 12866 (1993) on principles of, 431 “good inspector” and businessperson interaction, 420 legal approach to, 440–442 602 Index regulatory administration (Continued) NPM (new public management) approach to, 435–437 “new style” (or “social”), 411 overview of, 403 political approach to, 437–439 political patterns of, 411–414 social factors affecting, 414–415 structure and process of, 415–421 synthesizing approaches toward, 442–445 “takings,” 441 traditional managerial perspective on, 432–435, 481 Web site resources on, 449 regulatory agencies adjudication function of, 418–420 inspection and compliance functions of, 420–421 life cycles, 413 listed and described, 405–407, 425 rule making function of, 416, 418 regulatory federalism, 410–411 Regulatory Flexibility Act (1980), 439 regulatory negotiation (“reg-neg”), 81 regulatory policy, 397–398 regulatory ratchet, 426 regulatory reform, 429–432 Rehnquist, William, 6, 344 Reich, Charles, 464 “reinventing government” idea, 15 Reinventing Government (Osborne and Gaebler), 19 Reissman, Leonard, 169 religious exercise/expression, 247 religious freedom rights Jehovah’s Witnesses and, 499 Santería faith case study on, 502 remedial law, 31 remedial law (or public law litigation), 77 repackaging budgets, 299 replevin action, 522 “Report of the U.S Senate Select Committee to Study Governmental Operations with Respect to Intelligence Activities (1975–1976),” 535 representation equal rights context of, 243–246 ethics and accountability promoted through, 552 multiple layers of federal government, 106 as policy implementation issue, 388–389 See also responsiveness representative bureaucracy, 187, 243 reprogramming process, 296 Republican Party, 210, 501, 540, 566 Republican Party of Illinois, Rutan v., 87 rescissions, 285, 294 residual powers, 104 responsiveness equal rights context of, 241–242 NPM’s focus on customer, 20 policy implementation and issue of, 389–390 See also representation Results Act (Government Performance and Results Act, GPRA) [1993], 74, 82, 188, 195, 314, 318, 384, 551, 568 Results Modernization Act (Government Performance and Results Modernization Act, GPRMA) [2010], 74, 82, 188, 195, 286, 305, 311, 313, 314, 318, 384, 566, 568 retrospective adjudication, 340–341 revenue evaluation criteria administrative capability issue of, 275–276 economic effects of, 276 equity and political feasibility of, 275 sources of, 268–275 See also budgeting/budgets revenue sharing, 114 revenue sources additional taxes and, 275 individual and corporate income taxes, 271–272 Internet sales tax controversy, 272–274 real property taxes, 274–275 sales and use taxes, 272 reverse discrimination, 246 “revolving door,” 82, 547, 553 Ricci v DeStefano, 251 Riccucci, Norma, 161 Rickover, Hyman, 160, 161 Ridge, Tom, 63 “rights revolution” (1950s–1970s), 568 Riordan, William L., 538 risk comparative risk analysis of, 428 intolerance to, 415 Road to Serfdom, The (Hayek), 465 Robbins, Stephen, 158 Roberts, Robert N., 251 Roe, Saenz v., 516 Roethlisberger, Fritz, 156 Rohr, John A., 547, 548, 554 Romzek, Barbara, 556 Roosevelt, Franklin D., 64, 75, 112, 313 Roosevelt, Theodore, 408 rotation in office, 551–552 Rowley, Colleen, 572 Rozelle, Martha, 479 rule making “ambush,” 436 cost-benefit analysis as deterrent to, 443 formal and informal, 430–431 negotiated, 432 OMB role in agency, 424 procedures for, 51, 192, 422 See also regulation rule of law, 191 “rule of three” approach, 229, 331 Rutan v Republican Party of Illinois, 87 S Sabatier, Paul, 83 Sabol, Barbara, 460, 481 Sacagewea (“golden”) dollars, 389 Saenz v Roe, 516 St Louis intergovernmental map, 137 sales and use taxes advantages of, 272 controversy over Internet, 272–274 “entity isolation” problem of, 274 revenues from, 272 salute the flag issue, 499 San Antonio Metropolitan Transit Authority, Garcia v., 110 Sanford, Terry, 114 Santería faith case study, 502 satisfactory decision concept, 337–338 “satisfycing,” 337 Savas, E S., 380–381 Sayre, Wallace, 26 SBREFA (Small Business Regulatory Enforcement Fairness Act) [1996], 82, 439 Scalia, Antonin, Schedule C political appointments, 67, 68 Scheppach, Raymond C., 126 Schmidt, Warren H., 162, 163 school districts Gratz v Bollinger case on, 504 Keyishian v Board of Regents case on, 501, 503 as local government component, 119–120 Shelton v Tucker case on, 503, 504 Schurz, Carl, 214 scientific management, 16, 154–156, 185 603 Index Scientific Management Movement, 16, 17, 225 Scientific Management, Principles of (Taylor), 17 scope of bargaining, 253 scorecard ratings, 69 Scott, William, 171 SEC (Securities and Exchange Commission), 124, 409, 468 Section 501(c)(3) organizations, 92 Securities and Exchange Act (1934), 409 Seidman, Harold, 189, 190, 328 selection practices, 228–232 Seminole Tribe of Florida v Florida, 111, 392 Senate Governmental Affairs Committee, 570 Senate Permanent Subcommittee on Investigations, 536 Senior Executive Service (SES), 68, 221–222, 240, 242, 252 separation of powers accountability quest complicated by, 542–543 administrative collapse of, 494–495 administrative structure and constitutional, 494 constitutional framework for, three “masters” of public administration and, 497–498 September 11, 2001 (“9/11”), events of, 63, 463, 541, 563, 567 sequestration, 283, 293 SES (Senior Executive Service), 68, 221–222, 240, 242, 252 “Seven Deadly Sins of Policy Analysis, The” (Meltzner), 396 sexual harassment studies, 244 Shapiro v Thompson, 379, 516 Shelton v Tucker, 503, 504 Sherman Antitrust Act (1890), 49, 409, 412 Shipping Act (1916), 412 Silent Spring (Carson), 409 Simon, Herbert A., 42, 154, 180, 337, 354 Sinclair, Upton, 408, 409 situational factors, 230 Six Trends Transforming Government (Abramson, Breul, and Kamensky), 35–37 Small Business Administration, 122 Small Business Regulatory Enforcement Fairness Act (SBREFA) [1996], 82, 439 Smith, Adam, 173 social classifications, 516 Social Security Disability Insurance (SSDI), 328–330, 379 program and Trust Fund, 279, 300, 378, 513 Social Security’s “800” telephone service, 472 society, bureaucracy as being at odds with, 456–461 sociotherapeutic policies definition of, 397 Great Society programs as, 363 Sorensen, Theodore, 339 Souter, David, 251 South Carolina State Ports Authority, Federal Maritime Commission v., 111 sovereignty definition and meaning of, 11, 102, 104, 186, 254 “public trust” element of, 11–13 Space Shuttle Challenger, 334 span of control, 107 special districts, 119 specialization as a decision making approach, 16, 333 “Spectacular” billboard (New York City), 523 Sperry & Hutchinson, FTC v., 76 “spiral of silence” effect, 467 “spoils system” era (1829–1882), 85, 214–215 Staats, Elmer B., 161 Standard & Poor’s, 299 Standards of Conduct, Federal, 548 state action constitutional limits of, 521, 524 description of, 521, 522 See also American administrative state state constitutions comparison of federal to, 120–122 public administration practices defined by, 5–7 State Farm, Motor Vehicle Manufacturers Association v., 76 state governments bureaucratic size and growth of (1954–2011), 114–116 complicated organization/activities of, 87–88, 120–122 Eleventh Amendment provisions on immunity of, 111–112 full- and part-time employment (1980–2004) by, 46 intergovernmental relations of federal and, 125–132 interstate relations between different, 132–135 sales and use tax revenue of, 272–274 structure of, 120–122 See also federal government; government; local governments state sovereignty constitutional establishment of, 106 judicial expansion of, 106 Statute of Charitable Uses (1601, U.K.), 92 Steamboat Inspection Service, 404 Steck, Henry, 81 “steering, not rowing” reform, 20 Stickney, Wyatt v., 33 Stigler, George, 413 Stillman, Richard, 45 Stone, Deborah, 377 strategic planning, 352 Streamlined Sales & Use Tax Agreement, 273 Streater, Little v., 378 street-level administrators, 30, 76, 373 street-level encounters, 373, 478, 481–482, 455 “strong mayor plan,” 118 “Study of Administration, The” (Wilson), 15, 85 subordinate-centered leadership style, 162–163 substantive constitutional rights as legal value, 31–32 structure of, 506, 511 substantive due process, 519 subversion “McCarthyism” fears of, 75, 242, 540 by public administrators, 540 sunset provisions, 315, 364, 390–391 sunshine laws, 390, 553 “superagencies,” 66 supplemental appropriation, 281 surplus See budget surplus or deficit surrogate-market regulation, 409 Susan B Anthony dollars, 389 Svara, James, 545, 557 Swiss, James, 183 systems approach to organization theory, 169–171 closed systems theory, 170 open systems theory, 170, 171 T Taft Commission (1912), 281, 302 takings clause (Fifth Amendment), 508–511 Tannenbaum, Robert, 162, 163 604 Index TARP (Troubled Asset Relief Program), 367 Tausky, Curt, 185 Taxation Freedom Act (1998), 273 tax breaks (a.k.a “loopholes,” “tax expenditures,” and “tax preferences”), 268, 464 taxes administrative capability issue of, 275–276 economic effects of, 276 equity and political feasibility of, 275 individual and corporate income, 271–272 real property, 274–275 sales and use, 272–274 tax expenditures, 266 Taxpayer Relief Act (1997), 286 Taylor, Frederick Winslow, 16, 154– 156, 178, 225 Taylorism (scientific management), 154–156, 178, 225 Tea Party movement, 74 technical efficiency, 346 “telecommuting,” 570 teleological ethical decision making, 545 Tenth Amendment, 104, 110 Tenure of Office Act (1820), 212 Terrorism Information and Prevention System (“TIPS”), 389 thalidomide scandal (1960s), 433 The Jungle (Upton Sinclair), 408, 409 Theory X, 185 Theory Y, 185 therapeutic government services, 397, 481 “third-party government,” 47–48, 130, 544 third sector, 92 Thirteenth Amendment, 499, 521 Thompson, James D., 171 Thompson, Shapiro v., 379, 516 Thompson, Victor, 458, 531 “360” degree evaluation, 232, 233 Three Mile Island catastrophe (1979), 432 “three-tier structure” of equal protection, 513, 514 Thornton, U.S Term Limits v., 393 Time, Chance, and Organizations (Kaufman), 173 “TIPS” (Terrorism Information and Prevention System), 389 Town of Clarkstown, Carbone v., 110 townships, 119 TQM (total quality management) benchmarking used with, 184 comparing BPR to, 184 description of, 182–183 performance appraisal under, 232 and performance-based organizations, 184 traditional managerial approach accountability and ethics perspectives of, 546–548 budgeting and decision making under, 19 bureaucratic organizational structure of, 16–17 cognitive component of, 18–19 decision making, 19 history of, 15–16 origins and development, 15–16 to policy implementation, 372–380 to the public, 470–471 to regulatory administration, 432–435 summary of, 38 view of the individual under, 17–18 See also bureaucracy; managerial approach transparency, 12–13 Transportation Equity Act (1998), 72 Transportation Security Administration, 63 Troubled Asset Relief Program (TARP), 367 trust funds, 285 Tucker, Shelton v., 503, 504 Tuskegee studies (1932–1972), 367, 368 U UMRA (Unfunded Mandates Reform Act) [1995], 129 “uncontrollable spending,” 300 “undercover boss,” 460 underinclusiveness, 505 Underwriters’ Laboratories, 404 uniform legal codes, 135 Union Gas, Pennsylvania v., 111 unitary governments, 102 United States, Myers v., 27 United States, New York v., 110 United States, Printz v., 110 United States v Brignoni-Ponce, 518 United States v Lopez, 109 United States v Mead Corporation, 442 United States v Morrison, 109 United States v National Treasury Employees Union, 555 United States v Virginia, 515 unity of command, 32 University of Michigan, 504 unobligated balance, 285 Urwick, Lyndall, 18, 178 USA PATRIOT Act, 563 U.S Bureau of the Census, 472 U.S Coast Guard, 563 U.S Census of Governments (2002), 101 U.S Chamber of Commerce, 436 U.S Civil Service Commission, 171, 327 U.S Congress actions facilitating public administrative growth, 70–72 administrative state relationship with, 70–74 bicameralism of, 104, 106 casework (or constituency service) performed by, 71, 72 “housekeeping” employees of, 71 pork-barrel legislation by, 72, 74 presenting the federal budget to the, 288 See also legal statutes; legislative branch U.S Constitution Article VI, 498 bicameralism established by, 104, 106 commerce clause of, 109–110, 411 comparison of state constitutions to, 120–121 dominant federal authority established by, 104 dual sovereignty embodied in, 103–104, 106 federal structure embodied in the, 101, 103 full faith and credit clause of, 133–134 implied powers in, 104 interstate compacts allowed under, 135 multiple layers of representation established by, 106 necessary and proper clause of, 508 “original intent” concept of, 493–494 “police powers” of the states in, 106 Preamble to the, 46 public administration practices defined by, 5–7, 494–498, 572 public administrators’ need to understand the, 490–494 state sovereignty established by the, 103–104 as “We the People” contract function of, 499 See also Bill of Rights; constitutional law; democratic constitutionalism Index U.S Constitution Amendments First Amendment, 76, 80, 86, 91, 499, 522, 555, 568 Fourth Amendment, 77–78, 341–342, 519, 520, 522 Fifth Amendment, 441, 513, 519 Eighth Amendment, 524 Ninth Amendment, 502 Tenth Amendment, 104, 110 Eleventh Amendment, 111–112, 392 Thirteenth Amendment, 499, 521 Fourteenth Amendment, 31, 86, 91, 106, 108, 134, 392, 441, 493, 504, 513, 518, 519 Fifteenth Amendment, 106 U.S Corporation for National and Community Service organization chart, 151 U.S Customs Service, 436, 507 U.S Department of Agriculture, 48, 170 U.S Department of Defense (DOD) complexity of, 122, 171–172, 306 contracting and vendor payment process used in, 182 employment in, 49 U.S Department of Education, 305 U.S Department of Energy, 474 U.S Department of Health, Education, and Welfare (HEW), 305 U.S Department of Homeland Security creation and role of, 63, 453, 563 domestic surveillance issue of, 521, 535 Homeland Security Act (2002) reforming, 57 multiple personnel systems in, 570 organization of, 150 personal responsibility promoted by, 415 U.S Department of Justice (DoJ), 389–390, 423, 497, 556 U.S Department of State, 383 U.S Department of the Interior, 438 U.S Department of Transportation, 52, 192, 421 U.S Department of Veterans Affairs, 48, 49, 62 use taxes See sales and use taxes U.S Government Manual, 58 U.S Government structure, 123 U.S House of Representatives, 104, 106 U.S Office of Government Ethics (OGE), 548, 551, 555 U.S Postal Service administrative growth of, 48, 49 customer service standards of, 383 exempt employees of, 570 as federal corporation, 124 increased employment of the, 63 market forces affecting the, marketization reform of the, 20 public ranking of services by, 469, 473 reconnaissance satellites to track postal trucks by, 546 U.S Public Health Service, 367, 368, 477 U.S Senate, 104, 215, 535 U.S Secret Service, 563 U.S Supreme Court on administrative efficiency, 27 “Chevron doctrine” limited by, 442 on constitutional rights of public employees, 247–250 on federal authority under commerce clause, 109–110 on individual freedom of mind importance, 501 judicial review role of, 53 as mandating constitutional law, 79 political neutrality upheld by, 240–241 on protecting individual constitutional rights, 31–32 on salute and pledge allegiance issue, 499 scrutiny of administrative decisions by, 76 state sovereignty expanded by, 110 See also judicial branch U.S Supreme Court cases Alden v Maine, 111 Baker v City of St Petersburg, 518 Branti v Finkel, 87 Bush v Lucas, 252 Carbone v Town of Clarkstown, 110 Chevron v Natural Resources Defense Council, 442 Chicago Teachers Union v Hudson, 256 Citizens to Preserve Overton Park v Volpe, 76, 441 Craig v Boren, 516, 518 D.C Federation of Civic Associations v Volpe, 192 Dolan v City of Tigard, 442 Elrod v Burns, 87 Federal Maritime Commission v South Carolina State Ports Authority, 111 FTC v Sperry & Hutchinson, 76 Garcia v San Antonio Metropolitan Transit Authority, 110 Goldberg v Kelly, 459, 510 Gratz v Bollinger, 504 605 Grutter v Bollinger, 501, 504 Heckler v Chaney, 442 Immigration and Naturalization Service v Jagdish Rai Chadha, 26, 294, 392 Industrial Union Department, AFL-CIO v American Petroleum Institute, 76, 344–345 Katzenbach v McClung, 108 Kelo v City of New London, 509, 510 Keyishian v Board of Regents, 501, 503 Local 2677, American Federation of Government Employees v Phillips, 495–496 McCullough v Maryland, 104 Missouri v Jenkins, 34, 316 Morrison v Olson, 6, 555 Motor Vehicle Manufacturers Association v State Farm, 76 Myers v United States, 27 National Bellas Hess v Illinois, 272 National Treasury Union v Von Raab, 250 New York v United States, 110 Pennsylvania v Union Gas, 111 Personnel Administrator of Massachusetts v Feeney, 516 Printz v United States, 110 Quill v North Dakota, 272 Ricci v DeStefano, 251 Rutan v Republican Party of Illinois, 87 Saenz v Roe, 516 Seminole Tribe of Florida v Florida, 111, 392 Shapiro v Thompson, 379, 516 Shelton v Tucker, 503, 504 United States v Brignoni-Ponce, 518 United States v Lopez, 109 United States v Mead Corporation, 442 United States v Morrison, 109 United States v National Treasury Employees Union, 555 United States v Virginia, 515 U.S Term Limits v Thornton, 393 Vermont Yankee Nuclear Power Corporation v Natural Resources Defense Council, 442 Walter Little v Gloria Streater, 378 West Virginia State Board of Education v Barnette, 499–500, 501 Wickard v Filburn, 109 Wyatt v Stickney, 33 606 Index U.S Treasury Department, 281 utilitarian ethical decision making, 545 V ValuJet crash, 432, 544 Van Riper, Paul P., 45 Vermont, State of, 390 Vermont Yankee Nuclear Power Corporation v Natural Resources Defense Council, 442 Virginia, United States v., 515 Virginia Military Institute (VMI), 515 virtual intuition decision making, 545 Volpe, Citizens to Preserve Overton Park v., 76, 441 Volpe, D.C Federation of Civic Associations v., 192 voluntary sector failure, 92 Von Raab, National Treasury Union v., 250 W Waldo, Dwight, 42, 180, 490, 572 “Wall Street and the Financial Crisis: Anatomy of a Financial Collapse” (Levin-Coburn Report), 536 Walter Little v Gloria Streater, 378 Washington, George, 210 Washington Post, 77 weak-mayor plan, 118 Weber, Max, 17, 149, 154, 158, 178, 496, 498, 500, 553 Web sites American Society for Public Administration, 42 budgeting/budgets, 322 constitutional law, 529 decision making, 359 federalism, 143 federal, state, and local administration, 99 government ethics, 561 National Academy of Public Administration, 42 organization theory and behavior, 207 policy analysis, 401 public administration interactions with the public, 488 public administrative theory, 42 public personnel administration, 263 regulatory administration, 449 Weick, Karl, 147 welfare office client at a bureaucratically organized, 459 experiment leading to user-friendly, 460 welfare reform, 128, 130 “We the People” contract, 499 Westley, Frances, 147 West Virginia State Board of Education v Barnette, 499–500, 501 Whigs, 212 “Whig sellout” (1840), 212 whistle-blowing, 249, 382, 552 White, Leonard, 16, 18, 567, 569, 572 White, Lucie, 459 White House Office, 63, 391 See also EOP (Executive Office of the President) “Why the Courts Are Running D.C.” (Washington Post editorial), 77 Why Leaders Can’t Lead (Bennis), 159 Wickard v Filburn, 109 Wildavsky, Aaron, 314, 395 Wiley, Harvey, 413 Wilson, James Q., 48, 49, 98, 412–415, 432 Wilson, Woodrow, 15, 18, 85, 214–215, 244, 364, 480, 482, 490, 491 “womb-to-tomb” welfare state, 466 workforce planning, 238 workplace safety benzene in the, 343–345 Occupational Safety and Health Administration Act (1970) on, 59, 343–345 See also Occupational Safety and Health Administration (OSHA) World War II (1941–1945) and public administration growth during, 26, 48, 70 World Wide Web, 355 Wright, Dale, 161 written examinations, 229 Wyatt v Stickney, 33 X X efficiency, 346 Z ZBB (zero-base budgeting), 306, 307–308, 335, 565 zero-sum promotions, 231 “Zipf’s Law,” 10 zone of indifference, 157–158 Zuboff, Shoshana, 355, 571 ... Additional Reading 449 PART IV PUBLIC ADMINISTRATION AND THE PUBLIC 451 CHAPTER 10 Public Administration and the Public 452 The Public? ??s Interaction with Public Administration 453 Clients and Customers... Administration and Collective Bargaining 208 CHAPTER Budgeting and the Public Finances 264 CHAPTER Decision Making 323 PART III THE CONVERGENCE OF MANAGEMENT, POLITICS, AND LAW IN THE PUBLIC SECTOR 361... and implementation evaluation and regulatory administration Part IV focuses on the place of the ? ?public? ?? and the ? ?public interest” in public administration Chapters are devoted to public administration