Showing papers in "Public Administration Review in 2004"

Citizen Participation in Decision Making: Is It Worth the effort?

Abstract: It is widely argued that increased community participation in government decision making produces many important benefits. Dissent is rare: It is difficult to envision anything but positive outcomes from citizens joining the policy process, collaborating with others and reaching consensus to bring about positive social and environmental change. This article, motivated by contextual problems encountered in a participatory watershed management initiative, reviews the citizen-participation literature and analyzes key considerations in determining whether community participation is an effective policy-making tool. We list conditions under which community participation may be costly and ineffective and when it can thrive and produce the greatest gains in effective citizen governance. From the detritus of an unsuccessful citizen-participation effort, we arrive at a more informed approach to guide policy makers in choosing a decision-making process that is appropriate for a community's particular needs.

E‐Government and the Transformation of Service Delivery and Citizen Attitudes

Abstract: The impact of new technology on public-sector service delivery and citizens' attitudes about government has long been debated by political observers. This article assesses the consequences ofe-government for service delivery, democratic responsiveness, and public attitudes over the last three years. Research examines the content of e-government to investigate whether it is taking advantage of the interactive features of the World Wide Web to improve service delivery, democratic responsiveness, and public outreach. In addition, a national public opinion survey examines the ability of e-government to influence citizens' views about government and their confidence in the effectiveness of service delivery. Using both Web site content as well as public assessments, I argue that, in some respects, the e-government revolution has fallen short of its potential to transform service delivery and public trust in government. It does, however, have the possibility of enhancing democratic responsiveness and boosting beliefs that government is effective.

The Marketization of the Nonprofit Sector: Civil Society at Risk?

Abstract: The public sector has increasingly adopted the methods and values of the market to guide policy creation and management. Several public administration scholars in the United States have pointed out the problems with this, especially in relation to the impact on democracy and citizenship. Similarly, nonprofit organizations are adopting the approaches and values of the private market, which may harm democracy and citizenship because of its impact on nonprofit organizations’ ability to create and maintain a strong civil society. This article reviews the major marketization trends occurring within the nonprofit sector—commercial revenue generation, contract competition, the influence of new and emerging donors, and social entrepreneurship—and surveys research on their potential impact on nonprofit organizations’ contributions to civil society. The article ends with a discussion of the significance of marketization in the nonprofit sector for public administration scholars and public managers.

Network structures: Working differently and changing expectations

Abstract: There is a growing need for innovative methods of dealing with complex, social problems. New types of collaborative efforts have emerged as a result of the inability of more traditional bureaucratic hierarchical arrangements such as departmental programs to resolve these problems. Network structures are one such arrangement that is at the forefront of this movement. Although collaboration through network structures establishes an innovative response to dealing with social issues, there remains an expectation that outcomes and processes are based on traditional ways of working. It is necessary for practitioners and policy makers alike to begin to understand the realities of what can be expected from network structures in order to maximize the benefits of these unique mechanisms.

Women's Jobs, Men's Jobs: Sex Segregation and Emotional Labor

Abstract: Job segregation—the tendency for men and women to work in different occupations—is often cited as the reason that women's wages lag men's. But this begs the question: What is it about women's jobs that causes them to pay less? We argue that emotional labor offers the missing link in the explanation. Tasks that require the emotive work thought natural for women, such as caring, negotiating, empathizing, smoothing troubled relationships, and working behind the scenes to enable cooperation, are required components of many women's jobs. Excluded from job descriptions and performance evaluations, the work is invisible and uncompensated. Public service relies heavily on such skills, yet civil service systems, which are designed on the assumptions of a bygone era, fail to acknowledge and compensate emotional labor.

Three traditions of network research: What the public management research agenda can learn from other research communities

Abstract: This article identifies and describes the development of three parallel streams of literature about network theory and research: social network analysis, policy change and political science networks, and public management networks. Noting that these traditions have sometimes been inattentive to each other's work, the authors illustrate the similarities and differences in the underlying theoretical assumptions, types of research questions addressed, and research methods typically employed by the three traditions. The authors draw especially on the social network analysis (sociological) tradition to provide theoretical and research insights for those who focus primarily on public management networks. The article concludes with recommendations for advancing current scholarship on public management networks.

Desperately Seeking Selznick: Cooptation and the Dark Side of Public Management in Networks

Abstract: Most literature on public-sector networks focuses on how to build and manage systems and ignores the political problems that networks can create for organizations. This article argues that individual network nodes can work to bias the organization's actions in ways that benefit the organization's more advantaged clientele. The argument is supported by an analysis of performance data from 500 organizations over a five-year period. A classic theoretical point is supported in a systematic empirical investigation. While networks can greatly benefit the organization, they have a dark side that managers and scholars need to consider more seriously.

Doing Things Right: Effectiveness in Local Nonprofit Organizations, A Panel Study

Abstract: This study investigates whether nonprofit organizational effectiveness is judged consistently by differing constituencies and whether changes in board effectiveness and overall organizational effectiveness (judged by differing constituencies) are the result of changes in the use of practices regarded as the “right way” to manage. The results show that different constituencies judged the effectiveness of nonprofit organizations differently, at both periods; that a change in the use of correct board practices over time, controlling for board effectiveness at time 1, was not related to board effectiveness at time 2; and that a change in the use of correct management practices, controlling for organizational effectiveness at time 1, was not related to organizational effectiveness at time 2, except for board members. Implications of the results are considered. Claims about best practices for nonprofit boards and organizations must be evaluated more critically. Finding the right fit among practices is more important than doing things the “right way.

Public Meetings and the Democratic Process

Abstract: Public meetings are frequently attacked as useless democratic rituals that lack deliberative qualities and fail to give citizens a voice in the policy process. Do public meetings have a role to play in fostering citizen participation in policy making? While many of the criticisms leveled against public meetings have merit, I argue that they do. In this article, I explore the functions that city council and school board meetings serve. While they may not be very good at accomplishing their primary goal of giving citizens the opportunity to directly influence decisions made by governing bodies, they can be used to achieve other ends, such as sending information to officials and setting the agenda. As a complement to deliberative political structures, public meetings have a role to play by offering a venue in which citizens can achieve their political goals, thereby enhancing governmental accountability and responsiveness.

Formal Procedures, Informal Processes, Accountability, and Responsiveness in Bureaucratic Policy Making: An Institutional Policy Analysis

Abstract: This study examines the role of public notice and comment in the development of 42 rules. These procedures can provide useful information to policy makers about the preferences of those who stand to be affected by agency actions. More importantly, they serve as cues for the accommodation of interests and the resolution of conflict through processes that are grounded in agencies' accountability to political officials. Yet, an examination of the interrelationship between formal, procedural constraints and the informal processes surrounding them reveals that the effects of notice and comment in promoting bureaucratic responsiveness are limited in ways that have received little systematic analysis. A consideration of the tension between the instrumental goal of procedural accountability and the political tasks that often dominate bureaucratic policy making suggests that it is desirable to return to the original use of notice and comment as a device for exposing agencies to the views of affected interests.

Drivers and Consequences of Citizen Satisfaction: An Application of the American Customer Satisfaction Index Model to New York City

Abstract: Using data from two telephone surveys of New York City residents conducted during 2000 and 2001, this article employs the American Customer Satisfaction Index (ACSI) model to examine the drivers—and behavioral consequences—of overall satisfaction with local government services. While the ACSI model has been widely used to analyze customer satisfaction in the private sector and, more recently, in the federal government, it has not been tried in a local government context. Applying the ACSI model to New York City, we find the perceived quality of public schools and especially the police, as well as road conditions and subway service, are the most salient drivers of satisfaction, but the significance of each service varies across income, race, and geography. For all groups in the city, overall satisfaction drives both trust in local government officials and intentions to move out of the city. Advantages and limitations of using the ACSI model to assess the quality of local government services are discussed.

"Knowing" the Rules: Administrative Work as Practice

Abstract: This article presents a theory of administrative work as practice. Building on a rich narrative of a mid-level administrator in the Dutch Immigration Office, four core elements of administrative practice are identified: contextuality, acting, knowing, and interacting. Taking cues from practice theory and ethnomethodology, the author argues that the visible aspects of administrative work (decisions, reports, negotiations, standard operating procedures, and-on a higher level of institutional abstraction-structures, legal rules, lines of authority, and accountability) are effectuations, enactments of the hidden, taken-for-granted routines: the almost unthinking actions, tacit knowledge, fleeting interactions, practical judgments, self-evident understandings and background knowledge, shared meanings, and personal feelings that constitute the core of administrative work. Taken together, contextuality, acting, knowing, and interacting make up a unified account of practical judgment in an administrative environment that is characterized by complexity, indeterminacy, and the necessity to act on the situation at hand.

The Regulation Dilemma: Cooperation and Conflict in Environmental Governance

Abstract: Across the United States and around the world, businesses have joined voluntary governmental and nongovernmental environmental regulations. Such codes often require firms to establish internal environmental management systems to improve their environmental performance and regulatory compliance. Meanwhile, governments have been offering incentives to businesses that self-police their regulatory compliance and promptly report and correct violations. This article examines how governmental regulatory enforcement can influence firms' compliance with mandatory and voluntary regulations. Cooperative regulatory enforcement—in which firms self-police their environmental operations and governments provide regulatory relief for voluntarily disclosed violations—yields optimal win–win outcomes, but only when both sides cooperate. If firms are likely to evade compliance, governments are better off adopting a deterrence approach. If governments insist on rigidly interpreting and enforcing laws, firms may have incentives to evade regulations and not voluntary codes. Cooperation is possible through credible signals between firms and government.

Big Questions in Administrative Ethics: A Need for Focused, Collaborative Effort

Abstract: Introduction1 I have argued elsewhere that administrative ethics as a significant field of study is only about 30 years old, dating from the mid-1970s, largely instigated by the work of the New Public Administration, and reflecting developments in thought about public administration dating back into the 1930s. During these few decades, scholarly work on administrative ethics and its application to practice have expanded with enormous speed and rich diversity, both in the United States and around the world. The number of journal articles, books, courses, conferences, and training exercises have proliferated beyond anyone’s wildest expectations. More than a passing fad, administrative ethics has demonstrated its sustainability and its centrality to the field (Cooper 2001, 1–36). What is lacking with respect to these developments is anything like a focused effort by groups of scholars to study specific sets of significant research questions in a sustained and systematic fashion. There is an enormous amount of interesting but highly disparate scholarship on administrative ethics reflecting the diverse and often episodic interests that capture our attention. The existence of this rich diversity of work is not bad at all; rather, it indicates lively intellectual engagement and the multifaceted nature of the field. It also may be viewed as a necessary scoping of the field in its early stages, the product of an energetic exploration of the range of concerns in the study of administrative ethics. After approximately three decades, however, there is very little that manifests ongoing scholarship by working groups based on specific theoretical perspectives, sets of related problems, or significant issues. Without collaborative efforts to fix our gaze on the most fundamental and vexing questions that are essential to moving administrative ethics forward, there is a risk that the creativity and energy now being directed to the subject will dissipate, and that our field will fail to earn the sustained prominence in journals, curricula, and professional development it deserves. Without this kind of concentrated work, administrative ethics may remain an interesting but peripheral concern. None of us can define the elements and boundaries of such concentrated efforts; that needs to become a matter in which many of us invest ourselves. We need to work at building consensus among those interested in administrative ethics about sets of research questions that, in some sense, define the heart of the field. Not intended to preclude or exclude other work on other questions, the call here is for the establishment of a center of gravity for the development of administrative ethics around some focused collaborative efforts. Diversity of interests articulated by many from various areas in public administration are needed to keep the field fresh and lively; focused efforts of those mainly committed to studying administrative ethics may be required to provide sustainability, coherence, and sufficient weight to advance it solidly into the core of public administration. This essay should be viewed as the first bid in a conversation about those “big questions” around which some focused, sustained, and collaborative activity might be organized. It began with an invitation I sent out to the ASPA Section on Ethics Listserv on September 27, 2002. In that message, members of the section were asked to offer their nominations for the “big questions” in administrative ethics. Thoughtful responses were received from 10 persons, with excellent proposals for questions of central impor-

Devolution and Innovation: The Adoption of State Environmental Policy Innovations by Administrative Agencies

Abstract: Do states act as laboratories for reform? Are state administrative agencies likely to adopt policy innovations? This study analyzes the adoption of environmental policy innovations by state administrative agencies in the area of hazardous waste regulation. Four explanations are developed to explain the factors that affect innovation adoption: the severity of the problem, the importance of institutional factors, the role played by interest groups, and contextual factors. Institutional factors, such as state wealth and administrative professionalism, are important determinants of innovation adoption. State agencies are also likely to adopt innovations to deal with problems created by hazardous waste contamination. In addition, state environmental managers are not directly influenced by interest groups, and the inclusion of all stakeholders is likely to lead to greater support for new policy initiatives. Implications for practitioners are drawn based on the study's findings.

The Implementation of Welfare Reform Policy: The Role of Public Managers in Front‐Line Practices

Abstract: This study examines the extent to which staff in local welfare systems have embraced new welfare reform goals and, if so, the extent to which local management practices contribute to the alignment of staff priorities with policy objectives. It looks at agency structure and several aspects of public management from a microperspective that prior research has linked to agency performance including training, performance monitoring, staff resources, leadership characteristics, and personnel characteristics. The research indicates that front-line workers in welfare offices continue to believe that traditional eligibility determination concerns are the most important goals at their agencies. It also finds that management practices and the structuring of agency responsibilities matter: To the extent that public managers want to redirect local staff to focus their attention on the new goals associated with welfare reform, they can create the conditions under which staff have clear signals about what is expected and could provide them with the resources and incentives to realign their priorities.

Managing the Public Service Market

Abstract: Prescriptions for improving contracting focus on how public managers can negotiate, implement, and monitor contracts to enhance service delivery and save costs. Yet, the well-functioning markets that effective contracting requires cannot be taken for granted. All markets risk failure. Consequently, public managers must manage the market to ensure competition and the flow of information about vendor performance, effective contract practices, and so on. We supplement transaction-cost theory with scholarship on public management networks to evaluate refuse services in nine governments in the Columbus, Ohio, metropolitan area. Our analyses reveal that even in the case of refuse collection, where nonspecific asset investments and easily measured service outputs and outcomes enhance contracting success, public managers looking to improve service delivery still must manage the market and the network supporting it.

Measuring Accountability for Results in Interagency Collaboratives

Abstract: This article examines the intersection of two types of innovations that are increasingly common in public administration—accountability for results and interagency collaboration. Recent scholarship suggests four approaches that collaborators can use to increase their accountability for results. The article proposes measures of these four approaches to assess a collaborative's capacity for accountability, and uses them to compare the accountability of human services collaboratives in 10 states. The findings indicate that collaboratives tend to use the four approaches together with one another. In combination, the various approaches may help collaborators manage their stake holders' expectations about their actions and accomplishments. Further research is needed to determine whether a collaborative's capacity for accountability for results actually correlates with improvements in outcomes.

Different Perspectives on the Practice of Leadership

Abstract: Public administrators need not only practical and intellectual permission to exercise leadership, but also a practical and intellectual understanding of what leadership actually is. Much has emerged in the public administration literature and practice about the need for and legitimacy of public managers exerting leadership in their work, complementing the traditional functions of organizational management and policy implementation. Calling on the experiences and ideas of practitioners, this article offers an empirical understanding—both descriptive and prescriptive—of what leadership actually looks like as it is practiced by public managers. It uncovers five leadership perspectives (ranging from leadership as equivalent to scientific management, to leadership being a whole-soul or spiritual endeavor) held by public managers and discusses their implications for public administration. It legitimizes the notion that leadership is a crucial part of public administration and offers public managers the chance to improve or enhance those legitimate leadership activities.

Building Secure Elections: E-Voting, Security, and Systems Theory

Abstract: The increased use of information technology promises to revolutionize both the provision of government services and the vibrancy of democracy. In the aftermath of the Florida voting controversy during the 2000 presidential election, governments have placed their faith in technology, adopting e-voting machines that offer enhanced voter convenience and eliminate the need for subjective recounts. However, the same underlying assumptions that apply to e-government theory do not apply to e-voting because of the severity of consequences if failure occurs and the loss of transparency traditionally associated with the voting process. A more useful theoretical guide is systems theory, which deals with complex, high-risk systems. This literature has been largely overlooked by adopters of e-voting technology, even though the practical criticisms of e-voting made by computer security specialists reflect an essentially systems theory perspective.

Parkinson's law and the New Public Management? Contracting determinants and service-quality consequences in public education

Abstract: Why is contracting used more frequently under some circumstances than others? What is its impact on spending for core mission and on service quality? These questions are explored with data from more than 1,000 Texas school districts. The evidence for a recent three-year period shows that contracting is negatively related to spending on school districts' central task and is not positively associated with district performance. Why, then, do districts contract? While several variables are associated with the degree of contracting, the most interesting is the relative size of a district's bureaucratic staff. Furthermore, the relationship between contracting and bureaucracy is reciprocal: Each is associated with subsequent growth in the other. The dynamic suggests an updated version of Parkinson's law. These findings indicate the need for researchers to probe the causes and consequences of contracting more thoroughly to help public managers assess this important option.

Learning from Diversity: A Theoretical Exploration

Abstract: Public-sector organizations tend to be more racially and ethnically diverse than private-sector organizations, leading to the challenge of enhancing heterogeneous work group effectiveness. Recent work suggests that a group's “diversity perspective,” or set of beliefs about the role of cultural diversity, moderates diverse group performance. One perspective, the integration and learning perspective, argues that heterogeneous groups function better when they believe that cultural identities can be tapped as sources of new ideas and experiences about work. However, simply holding the integration and learning perspective may not be sufficient. Research on general group learning has shown that it requires particular behaviors and cognitive frames. This article integrates recent work on diversity perspectives with long-standing research on team learning to propose a conceptual model of learning in culturally diverse groups. It suggests that both the integration and learning perspective and more generic learning frames and skills must be present.

The Paradox of Implementing the Government Performance and Results Act: Top-Down Direction for Bottom-Up Implementation

Abstract: Research on the implementation of the Government Performance and Results Act generally has not considered how the strategic plan, annual performance plan, and annual performance report are produced and used. Are the documents good decision and management tools, as the act intends, or are agencies internalizing them to meet the unique needs of their organization? Interviews with representatives of 14 cabinet-level federal agencies suggest that implementation of the act is not standardized. Instead, it is influenced by the unique challenges that agencies face. Further, there is a relationship between the implementation challenges and the overall use of the documents.

Service Quality and Benchmarking the Performance of Municipal Services

Abstract: How can local officials select benchmarking partners whose best practices have the most potential for applicability and success in improving service performance? This study suggests the process for selecting the most appropriate benchmarking partners and for making fair performance comparisons will be advanced if local officials initially address the issue of what level of input service quality level is desired or can be provided. Using data collected from a national survey, the study presents a framework for measuring service quality for municipal solid waste recycling programs. It examines the connection between input service quality and service outcomes and describes the results of analyses of the contextual factors and best practices that distinguish the top recycling performers and potential benchmarking partners in each service-quality class. The study suggests a model for how local officials can use this type of information to select an appropriate benchmarking partner. The study shows that a quality-of-service framework for municipal services can advance local decision making about what citizens and stakeholders expect and will support in terms of input service quality. It also can help local officials identify benchmarking partners that provide a service at the desired level of quality.

The Changing Structure of American Cities: A Study of the Diffusion of Innovation

Abstract: Using historical and numerical analysis and the five-part schema, this study finds that over the past 50 years structural modifications and adaptations by American cities have generally followed the standard S curve of the diffusion of innovation. In tests of Kaufman's and Hirshman's theories of epochs of change from representativeness to administrative efficiency, this study determines that mayor-council cities have, in a standard innovation diffusion S curve, adopted many of the key features of council-manager cities, increasing their administrative efficiency. At the same time, council-manager cities, again in an S curve, have adopted many of the key features of mayor-council cities, increasing their political responsiveness. Fewer cities are now either distinctly mayor-council or council-manager in form, and most cities are structurally less distinct, constituting a newly merged or hybrid model of local government—the type III city.

Administration, Governance, and Policy Tools in Welfare Policy Implementation

Abstract: Landmark welfare reform legislation passed in 1996 has been operating by legislative extensions since its expiration in September 2002. At this writing, reauthorization has been derailed by controversy over various legislative proposals. In this article, we contribute to the welfare policy debate by studying the importance of specific policy tools and the role of public administration in the dramatic fall in welfare caseloads from 1996 to 2000. Using administrative and survey data on welfare programs in 44 states, we test our theory that caseload reduction is a function of administrative commitments, policy design, and administrative actions linked to five sets of governance variables: environmental factors, client characteristics, treatments, administrative structures, and managerial roles and actions. We find strong evidence that administrative action to move clients into work, coupled with administrative commitments, can provide important links between policy goals and policy outcomes.

Bureaucratic Posture: On the Need for a Composite Theory of Bureaucratic Behavior

Abstract: This article examines the underlying assumptions and main findings of four streams of research on bureaucratic postures. It explores the utility of each school of thought for understanding how perspectives on bureaucratic postures are associated with the advancement of the public interest and bureaucratic performance. A main conclusion is that, although limited in scope of application, each stream has merit. Nonetheless, the existing research is too narrow: The field needs to consider a more complex model of bureaucratic behavior that draws from these four fields to offer a framework that is widely applicable to the range of motives for work found in the public bureaucracy and the variety of behaviors that individuals exhibit. Some attributes that may characterize such a model are sketched out.

Public Administration, the History of Ideas, and the Reinventing Government Movement

Abstract: Public administration writers, with some notable exceptions, generally have not paid a great deal of attention to the history of ideas. However, public administration inquiry is profoundly affected by longstanding political and social ideas. This article shows how the idea of the state as a purposive association—that is to say, a collective enterprise that is driven by some set of substantive ends or purposes—has helped to shape the thinking and discourse of some public administration writers, particularly those of the reinventing government movement. The implications of this for public administration inquiry and education are examined.

Gender Equity: Illusion or Reality for Women in the Federal Executive Service?

Abstract: With the passage of the Civil Service Reform Act in 1978, the federal government created the Senior Executive Service (SES) and formally committed the federal government to equal employment opportunity, advocating a “federal service reflective of the nation's diversity.” Since then, women have made dramatic progress in the ranks of the SES. This research probes the following questions: Has women's advancement into the ranks of the SES been illusory or real? Are women simply being appointed to token positions to fulfill affirmative action goals? Or do they contribute to governance from real positions of power and influence? Using data from a recent survey of Senior Executive Service members, this research indicates that male and female members of the SES have almost identical responsibilities and, most interestingly, women executives rate themselves as relatively more influential than do their male colleagues.

State Wildlife Policy and Management: The Scope and Bias of Political Conflict

Abstract: State wildlife policy and management are often characterized by divisive political conflict among competing stakeholders. This conflict is increasingly being resolved through the ballot-initiative process. One important reason the process is being used so often is the way state wildlife policy and management decisions are often made by state wildlife commissions, boards, or councils (the dominant way these decisions are made in the United States). These bodies are often perceived by important stakeholders as biased, exclusive, or unrepresentative of nonconsumptive stakeholder values. As a result, unsatisfied interest groups often try to take decision-making authority away from these institutions and give it to the public through the ballot initiative. Cases and examples from Alaska, Arizona, Colorado, and Idaho are examined in this context. The article finishes by outlining four broad alternatives that may be debated in the future: the no change alternative, the authoritative expert alternative, the structural change alternative, and the stakeholder-based collaborative conservation alternative(s).