May, 2015 EXPLORING an ALTERNATIVE PUBLIC RELATIONS FRAMEWORK for THE
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EXPLORING AN ALTERNATIVE PUBLIC RELATIONS FRAMEWORK FOR THE PUBLIC SECTOR A Dissertation Presented to The Graduate Faculty of The University of Akron In Partial Fulfillment of the Requirement for the Degree Doctor of Philosophy Andrea M. Ferraro May, 2015 EXPLORING AN ALTERNATIVE PUBLIC RELATIONS FRAMEWORK FOR THE PUBLIC SECTOR Andrea M. Ferraro Dissertation Approved: Accepted: _____________________________ _____________________________ Advisor Interim Department Chair Dr. Raymond W. Cox III Dr. John C. Green _____________________________ _____________________________ Committee Member Dean of the College Dr. Francois K. Doamekpor Dr. Chand Midha _____________________________ _____________________________ Committee Member Interim Dean of the Graduate School Dr. Ghazi Falah Dr. Rex Ramiser _____________________________ _____________________________ Committee Member Date Dr. Namkyung Oh _____________________________ Committee Member Dr. Julia A. Spiker ii ABSTRACT Public relations is a critical function of a democracy as government must create policies and programs, generate awareness, inform, encourage input and engagement, solicit support, and measure results. Furthermore, government has a responsibility to protect and promote public interest. Thus, public administrators must practice public relations. However, existing models developed in the corporate context make practicing public relations in government challenging. This study examines the differences between the public and private sectors and advocates a new public relations framework, allowing government to practice public relations more effectively. Although research has discovered differences between the two sectors, there has been little attempt to create an alternative model of public relations for government use. This is important research since new models of governance and administration have engaged citizenship at the root of their practice and public administrators are tasked with increasing public participation in environments characterized by cynicism and distrust. Today, public relations must be able to assist administrators with the task of establishing and maintaining relationships with citizens. Based on the review of literature in both the communication and public administration disciplines and findings from this study, which utilized interviews with practicing public communicators in city and county government in the state of Ohio, the iii author proposes an alternative framework of public relations for the public sector. This new model, entitled the Government-Citizen Relationship Framework, recognizes the differences between the public and private sectors, assimilates the study findings, and incorporates an endogenic tradition by utilizing both the relationship dimensions in the relational theory of public relations and public participation decision making to help establish relationships with citizens and build community. This study attempts to fill the gap in the research, contribute to theory building in the communication and public administration disciplines, and offer praxis to public administrators so they can accomplish both pragmatic and democratic public relations. iv TABLE OF CONTENTS Page LIST OF FIGURES …………………………………………………………………….ix CHAPTER I. INTRODUCTION…………………………………………………………………….1 Distinctions Between the Public and Private Sectors…………………………….......6 Theoretical Frameworks…………………………………………………………….14 Purpose of Study ………………………………………………………………........21 II. REVIEW OF LITERATURE...……………………………………………………..26 History of Public Relations…………………………………………………….........27 Limitations Regarding the History of Public Relations……………………………..40 Defining Public Relations…………………………………………………………...43 The Role of Public Relations in Government………………………………….........48 Differences Between the Public and Private Sectors………………………………..56 Public Participation………………………………………………………………….69 The Relational Theory of Public Relations………………………………………….72 Summary…………………………………………………………………………….75 III. RESEARCH DESIGN………..………………………………………………….....77 Qualitative Approach in an Interpretative Paradigm………………………………..78 Theory……………………………………………………………………………….80 v Research Design……………………………………………………………………...82 First Step: Purposeful Sampling of Study Population ……………………………….82 The Survey……………………………………………………………………………84 Second Step: Face-to-Face Semi-Structured Interviews………………………….….85 Third Step: Exploring an Alternative Public Relations Framework for the Public Sector…………………………………………………………………………89 Summary………………………………………………………………………..........89 IV. RESULTS…………………………………………………………………………...91 Online Survey Findings……………………………………………………………...92 Analysis of the Interviews…………………………………………………………...95 Summary……………………………………………………………………………139 V. EMERGENT ALTERNATIVE PUBLIC RELATIONS FRAMEWORK FOR THE PUBLIC SECTOR: THE GOVERNMENT-CITIZEN RELATIONSHIP FRAMEWORK………………………………………………………………..........142 The Government-Citizen Relationship Framework………………………………...144 Discussion of the New Framework…………………………………………………147 Summary……………………………………………………………………………150 VI. SUMMARY AND CONCLUSIONS………………………………………….......151 Summary and Review of Central Themes……………………………………..........151 Limitations and Implications for Future Studies……………………………………158 Conclusions…………………………………………………………………………160 REFERENCES………………………………………………………………………....163 APPENDICES……………………………………………………………………….....175 vi APPENDIX A. THOMAS’ (1995) PUBLIC PARTICIPATION EFFECTIVE DECISION MODEL INTEGRATED WITH GRUNIG & HUNT’S (1984) FOUR INDICES TO MEASURE PUBLIC RELATIONS MODELS (AS PROPOSED BY THE AUTHOR)……………………………………………….....176 APPENDIX B. HUMAN SUBJECTS APPROVAL FROM THE INSTITUTIONAL REVIEW BOARD, OFFICE OF RESEARCH ADMINISTRATION, THE UNIVERSITY OF AKRON………………………….178 vii LIST OF FIGURES Figure Page 5.1 The government-citizen relationship framework of public relations………………………………………………………………………145 viii CHAPTER I INTRODUCTION Communication is a critical component for government. For a democracy to survive, public information must be available (Garnett, 1992; Wilcox & Cameron, 2012). It is the role of government, at the federal, state, and local levels, to communicate in an attempt to create policies and programs, generate awareness, inform, educate, solicit support, and measure results (Wilcox & Cameron, 2012). Public administrators and elected officials must utilize communication to help develop, implement, and monitor policies, programs, and legislation (Garnett, 1992). It is also the responsibility of government to seek feedback from its citizens so it can gauge public opinion and support and adjust programs and services accordingly. Citizens, in turn, must be able to interact with and respond to their government and communication is the key to active citizen engagement. Whether it is writing letters to elected officials, attending public meetings, or getting involved in local grass-roots causes, it is important for citizens to be able to influence and judge the role of government in their lives (Wilcox & Cameron, 2010). Developing effective communication programs for both internal and external audiences is often referred to as public relations. Communication is an activity of public relations and has been central to both the study and practice of public relations (Ledingham & Bruning, 2000). Public relations practitioners develop and manage 1 communication between their organizations and important stakeholders/target publics (Grunig & Hunt, 1984). At the heart of public relations is creating and maintaining beneficial relationships with employees, consumers, government, the community, the media, and other special publics (Grunig & Hunt, 1984). Public relations practices and theories have been largely embraced by corporations and non-profit organizations in the private sector, yielding successful results (Grunig & Hunt, 1984; Wilcox & Cameron, 2012; Broom & Sha, 2103). Public relations has also been employed by government and continues to be utilized by the public sector. As early as the beginning of the twentieth century, the Bureau of City Betterment was established for the purpose of attaining more efficient management and operation of the city of New York, and it used publicity to help achieve that (Stivers, 2000). Publicity was also exercised by the New York Bureau of Municipal Research to reveal to citizens inefficiency, waste, and poor living conditions, especially amongst the immigrant populations, resulting in public outcry that led to support for municipal reform (Stivers, 2000). President Wilson appointed George Creel, a journalist, as chairman of the Committee on Public Information, which would help build support by the American people for World War I efforts through advocacy and publicity, including the Four- Minute Men community volunteers and the publishing of a daily newspaper about the war efforts (Fleming, 2003). Lee (1998) notes that public relations was presented as a responsibility of public administrators in early public administration textbooks from the 1920s through the 1950s and two important functions it served was to advertise the services of government 2 agencies and create support for policy. Dimock (1937) asserted that public administration needs to be concerned with responsiveness. He wrote in 1934, “The most neglected aspect of public administration is salesmanship – what is usually called, in the broader sense, public relations” (p. 660). White’s Introduction to the Study of Public Administration (1947) advises administrative agencies to be concerned with executing policy and its public relations endeavors “directed