PAI 801 Fall 2014 Intellectual History of Public Administration Tuesdays, 12:30 pm-3:15 pm Maxwell Hall 402

Professor Vernon Greene 413 Maxwell Hall [email protected] Secretary: Mrs. Tammy Salisbury ([email protected] ) Office Hours: Wednesday 1:00-3:00 and by appointment

Course Description: This seminar will consider the course through time and space of public administration considered both as a concrete body of practical activity in the world, and as a self- conscious field of academic inquiry. The former (call it public administration) has roots that extend back into antiquity insofar as humans have grappled with the challenge of organizing collective behavior in the attempt to survive and to become effective and enduring actors in historical time. The latter (call it Public Administration) is far more recently recognized as a distinct academic discipline, having reached its fullest and most clearly distinctive academic status in the United States, emerging from other disciplines (such as law, political science, sociology, business studies and industrial management) beginning mainly in the mid-to-late 19th century. Our seminar will consider these phenomena in both the pa and PA senses of the term, but with much more emphasis on the latter. While we will be primarily concerned with the 20th century US experience, significant parts of the seminar will be devoted to looking at public administration within a fuller historical and philosophical framework, as well as in a broader international and global context.

Organization of Work: Over the course of the semester, we will read, discuss, abstract, review and analyze a considerable body of journal articles and parts of several books, and each week selected students will report on them in class. In addition, towards the end of the course each student will write a 20-25 page analytical essay (plus an annotated bibliography of the literature cited) on a challenging question in the field, with specific questions to be assigned by me on 30 October, by which time we will have covered most background material. I will lecture regularly, yet every class will have extensive student participation and leadership responsibility. If we all pull our weight, this class will prove interesting, as well as intellectually engaging and valuable.

Grading: Marks will be based on my best estimate of your performance relative to your prior background and level of effort. I don’t grade competitively among individuals except in terms of the degree to which I think you are giving your best effort. If you weren’t rather bright in any case, you wouldn’t be in the program---so I am looking forward to reading and hearing what you have to say. Proportionally, the overall course grade will be based 50% on your contribution to weekly reading/writing and discussion assignments, 50% will be based on the analytical essay. Investment in making this essay your best work will also likely prove of value on your comps.

Assignments: Written Assignments are to be submitted electronically as WORD documents. Format: Submitted assignments must have your name and the assignment due date within the file name, and within the document you must have page numbers and a simple header with the identical information on every page. Thus an assignment for the second week for a student by name of Juan Doe would have a filename like JDoe_9_1_14.docx and the page header would be JDoe_9_1_14. When you report on, say, several readings, please submit as a single document, but start each report on a new page.

Submission: Unless otherwise indicated, written assignments are due by noon on the Monday before the Tuesday class during which the topics covered will be discussed. Except by prior arrangement or due to medical emergency, late submissions will be penalized one letter grade if they are no more than 24 hours late, and will not be accepted beyond 24 hours after being due. The lowest assignment grade will be ignored in determining the final grade. Assignments are submitted as WORD email attachments to the mailbox: [email protected].

Academic Integrity: Per University Policy, students must abide by the academic rules and regulations established by Syracuse University regarding the ethics of academic work. These require students to exhibit honesty in all academic endeavors. Cheating in any form is not tolerated, nor is assisting another person to cheat. The submission of any work by a student is taken as a guarantee that the thoughts and expressions in it are the student's own except where properly credited to another. This includes any source, including the Web. Violations of this principle include giving or receiving assistance where otherwise prohibited, fraud, plagiarism, or any other deceptive act in connection with academic work. Plagiarism is “…the representation of another's words, ideas, programs, formulae, opinions, or other work products as one's own, either overtly or by failing to attribute them to their true source" (Syracuse University Bulletin 2003-2004: p. 2). See also (http://supolicies.syr.edu/ethics/acad_integrity.htm). Note that paraphrasing without attribution is plagiarism. It is strictly your responsibility to understand what plagiarism is and how to correctly reference documents and give proper attribution to other peoples’ ideas and arguments. Please consult a writing and reference guide if necessary, and see the library website (http://library.syr.edu/cite/index.html) for resources of this kind. Penalties for violations are usually quite severe, ranging from course failure, to dismissal from the program (the norm for PhD students), to dismissal from the university. While you may discuss assignments among yourselves in this course as you choose, you must then write up your assignments entirely on your own.

Books:

Necessary Text: Classics of Public Administration, Jay M. Shafritz and Albert C. Hyde (Paperback, 5th or 6th or 7th edition ok). Try to buy or borrow (very soon) from more senior students where possible---retail prices are quite high. But if you want new, it can be purchased or rented from Amazon.com very promptly.

A Modest, Personal (and decidedly partial) Modern Canon:

Dwight Waldo, The Administrative State: A Study of the Political Theory of American Public Administration Herbert Simon, Administrative Behavior Vincent Ostrom, The Intellectual Crisis in American Public Administration Frederick Mosher, Democracy and the Public Service Chester Barnard, The Functions of the Executive Aaron Wildavsky, The Politics of the Budgetary Process David Rosenbloom, Federal Service and the Constitution Michael Lipsky, Street Level Bureaucracy John Rohr, To Run a Constitution James Q. Wilson, Bureaucracy Eugene Kamenka, Bureaucracy Karl Polanyi, The Great Transformation Herbert Simon, Victor Thompson, and Donald Smithburg, Public Administration Rosemary O’Leary, The Ethics of Dissent: Managing Guerrilla Government Barry Bozeman , Public Values and Public Interest: Counterbalancing Economic Individualism Michael Spicer, The Founders, the Constitution, and Public Administration Deborah Stone, Policy Paradox and Political Reason James Scott, Seeing Like a State Vincent Ostrom, The Political Theory of a Compound Republic

Course Materials can be found in G:\MAX-Filer\Collab\PAI 801-vgreene-F14.

This directory contains four subdirectories: 1) ADMIN (for me); 2) DISTRIBUTION MATERIALS (contains current syllabus as well as article and chapter readings for you in .pdf form); 3) DROPBOX (We will not use this) and 4) PUBLIC (also not used by us). This year, homework submissions will be made by email to the mailbox address : [email protected] as WORD attachments. (We used to use the Dropbox folder for homework submission, but for a number of reasons it drove people crazy.)

Schedule of Readings

August 26 : Introduction to the course and discussion of your questions of interest.

September 2: Major Issues in the Field—An Overview

This is an introductory sampler of some major enduring issues and mainstream thinkers in the field, intended mainly as a preliminary intellectual orientation.

Please prepare and submit a 1 page double spaced précis of the essential points and arguments in the Waldo against the world (specifically Simon and Drucker) exchange. Then ½ page précis of the other articles. Submit to the mailbox: [email protected] by noon Monday, Sept. 2 as a WORD email attachment. (A précis is a type of summary where the author’s principal claims and arguments for them are first fully, fairly and clearly stated, and then critiqued---it is a type of writing that is typical of academic literature reviews, and a valuable skill to master early in your academic career).

Dwight Waldo, Development of Theory of Democratic Administration, American Political Science Review, 46, 1, 1952.

Herbert A. Simon, Peter F. Drucker, Dwight Waldo, Development of Theory of Democratic Administration: Replies and Comments, American Political Science Review, 46, 2, 1952.

Donald F. Kettl, Public Administration at the Millennium: The State of the Field, Journal of Public Administration Research and Theory, 2000, 10, 1

Laurence E. Lynn, Restoring the Rule of Law to Public Administration: What Frank Goodnow Got Right and Leonard White Didn’t, Public Administration Review, 69, 5, 2009.

Donald P. Moynihan, Our Usable Past: A Historical Contextual Approach to Administrative Values. Public Administration Review 69, 5, 2009. (reply to Lynn).

Tina Nabatchi, Addressing the Citizenship and Democratic Deficits: The Potential of Deliberative Democracy for Public Administration, The American Review of Public Administration, 40, 2010.

September 9: Studying and Reforming The American Administrative State—A Sampler From The Era of Orthodox Prescription and Taking Control

From Classics:

Woodrow Wilson, The Study of Administration (1887)

Frank Goodnow, Politics and Administration (1900)

Jane Addams, Problems of Municipal Administration (1904)

Frederick Taylor, Scientific Management (1912)

William Willoughby, The Movement for Budgetary Reform in the States (1918)

Max Weber, Bureaucracy (trans. 1947)

Leonard White, Introduction to the Study of Public Administration (1926)

Mary Parker Follett, The Giving of Orders (1926)

September 16: The New Deal through the post- WWII years: The Emerging Heterodoxy

From Classics

Luther Gulick, Notes on the Theory of Organization (1937)

Chester Barnard, Informal Organizations and Their Relation to Formal Organizations (1938)

Robert K. Merton, Bureaucratic Structure and Personality (1940)

A. H. Maslow, A Theory of Human Motivation (1943)

Paul Appleby, Government is Different (1945)

Herbert Simon, The Proverbs of Administration (1946)

Dwight Waldo, The Administrative State: Conclusion (1948)

September 23: The Field at Mid- to Late Mid-Century: Heterodoxy and the Emergence of Policy Analysis

Norton Long, Power and Administration, Public Administration Review, Vol. 9, No. 4 (Autumn, 1949)

From Classics

Douglas M. McGregor, The Human Side of Enterprise (1957)

Charles E. Lindblom, The Science of “Muddling Through” (1959)

Daniel Katz and Robert Kahn. Organizations and the System Concept (1966)

Morton Grodzins, The American System (1966)

Herbert Kaufman, Administrative Decentralization and Political Power (1969)

Theodore Lowi, The End of Liberalism: The Indictment (1969)

Alan Schick, The Road to PPB (1966)

Aaron Wildavsky, Rescuing Policy Analysis from PPBS (1969)

Jeffrey Pressman and Aaron Wildavsky, Implementation (1973)

September 30: Historical/Theoretical Perspectives

Mark R. Rutgers, Can the Study of Public Administration do without a Concept of the State? : Reflections on the Work of Lorenz Von Stein, Administration & Society 1994 26: 395.

Michael W. Spicer, On Friedrich Hayek and Public Administration: An Argument for Discretion within Rules. Administration & Society 1993 25: 46.

Jim Garrison, Pragmatism and Public Administration, Administration & Society 2000 32: 458.

Michael Ross Potter, Governing With One Hand on the Plow: Adding the Voice of Federal Farmer to the Constitutional School of American Public Administration, Administration & Society 44(7) 779–799

Christian Rosser, Examining Frank J. Goodnow's Hegelian Heritage: A Contribution to Understanding Progressive Administrative Theory, Administration & Society, 45(9) 1063–1094.

Carl Shaw, Hegel's Theory of Modern Bureaucracy, The American Political Science Review, (86,2), (Jun., 1992)

James Steinberg, Restoring Government Service as a Valued and Honored Profession, Public Administration Review, Vol. 72, Issue 2, pp. 175–176. © 2012 by The American Society for Public Administration.

October 7: Collaborative and Participatory Governance

Peters, B. Guy & Jon Pierre (2000). Citizens Versus the New Public Manager: The Problem of Mutual Empowerment. Administration & Society, 32(1): 9-28.

Nabatchi, Tina (2010). Addressing the Citizenship and Democratic Deficits: Exploring the Potential of Deliberative Democracy for Public Administration. American Review of Public Administration, 40(4): 376-399.

Fung, Archon (2006). Varieties of Participation in Complex Governance. Public Administration Review, 66(special issue): 66-75.

Nabatchi, Tina & Lisa Blomgren Amsler (2014). Direct Public Engagement in Local Government. American Review of Public Administration, 44(4suppl): 63s-88s.

Kettl, Donald (2006). Managing Boundaries in American Administration: The Collaboration Imperative. Public Administration Review, 66(special issue): 10-19.

Ansell, Chris and Allison Gash (2008). Collaborative Governance in Theory and Practice. Journal of Public Administration Research and Theory, 18(4): 543-571.

Emerson, Kirk, Tina Nabatchi, & Steve Balogh (2012). An Integrative Framework for Collaborative Governance. Journal of Public Administration Research and Theory, 22(1): 1-29.

October 14: Bureaucracy

Evelyn Brodkin, Bureaucracy Redux: Management Reformism and the Welfare State, Journal of Public Administration Research and Theory, (17,1), (2006)

Carl Shaw, Hegel's Theory of Modern Bureaucracy, The American Political Science Review, (86,2), (Jun., 1992). (again)

Johan P. Olsen, Maybe It Is Time to Rediscover Bureaucracy, Journal of Public Administration Research and Theory, (16,1), (2005)

Vernon L. Greene, Sally Coleman Selden, and Gene Brewer, Measuring Power and Presence: Bureaucratic Representation in the American States. Journal of Public Administration Research and Theory, Vol. 11, No. 3 (2001). October 21: Public Administration Theory and Economics: Public Choice/Rational Choice From Classics

Michael Barzelay et al., Breaking Through Bureaucracy (1992)

Max Weber, Bureaucracy (trans. 1947) (yes, again)

Warren Bennis, Organizations of the Future (1967)

Guy B. Adams and Danny L. Balfour, Market-Based Government and the Decline of Organizational Ethics, Administration & Society 2010 42: 615

David M. Van Slyke, Agents or Stewards: Using Theory to Understand the Government-Nonprofit Social Service Contracting Relationship, JPART 17:157–187, 2007.

Trevor L. Brown, Matthew Potosi, David M. Van Slyke, Contracting for Complex Products, JPART 20:41– 58. Larry D. Terry, The Thinning of Administrative Institutions in the Hollow State, Administration & Society 2005 37: 426.

October 28: Market Based Government:

Terry Moe, The New Economics of Organization, American Journal of Political Science, (28,4), (Nov., 1984)

Colin Hay, Theory, Stylized Heuristic Or Self-fulfilling Prophecy? The Status Of Rational Choice Theory In Public Administration, Public Administration (82,1), (2004)

Theodore Lowi and Herbert Simon, Lowi and Simon on Political Science, Public Administration, Rationality and Public Choice, JPART (2, 2), (Apr., 1992)

Richard Posner, From The New Institutional Economics to Organization Economics: With Applications to Corporate Governance, Government Agencies, and Legal Institutions, Journal of Institutional Economics (2010), 6: 1, 1–37.

Elinor Ostrom, Beyond Markets and States: Polycentric Governance of Complex Economic Systems, American Economic Review, 100, (June, 2010).

November 11: Globalization and Governance

Donald Kettl, The Global Revolution in Public Management: Driving Themes, Missing Links, Journal of Policy Analysis and Management, 26(3), 446-462, 1997.

B. Guy Peters & John Pierre, Governance Without Government? Rethinking Public Administration, Journal of Public Administration Research and Theory, 8(2) 223-243, 1998.

Ali Farmazand, Globalization and Public Administration, Public Administration Review, 59(6), 509-522, 1999.

Mark Huddleston, Onto the Darkling Plain: Globalization and the American Public Service in the Twenty-First Century, Journal of Public Administration Research and Theory, 10(4), 665-684, 2000.

Laurence Lynn, Globalization and Administrative Reform: What Is Happening in Theory?, Public Management Review, 3(2), 191-208, 2001.

Herbert Simon, Public Administration in Today’s World of Organizations and Markets, PS Online, December 2000.

Laurence J. O'Toole, Jr. and Kenneth I. Hanf, Public Administration and Impacts of International Governance, Public Administration Review, Vol. 62,

November 18: Public Administration In the 21st Century

From Classics

Joseph S. Nye, Jr., Information Technology and Democratic Governance

Irene S. Rubin, Perennial Budget Reform Proposals

Deborah Stone, Policy Paradox: The Art of Political Decision Making

Robert Agranoff, Inside Collaborative Networks: Ten Lessons for Public Managers

Jonathan GS Koppell, Administration Without Borders, Public Administration Review, v70

George Abonyi and David Van Slyke, Governing on the Edges: Globalization of Production and the Challenge to Public Administration in the 21st Century, Public Administration Review, v70

James Perry & Neal Buckwalter, The Public Service of the Future, Public Administration Review, v70

December 2: Public Ethics and Administrative Citizenship:

From Classics

John A. Rohr, Ethics for Bureaucrats: An Essay on Law and Values

Carol W. Lewis, The Ethics Challenge in Public Service

Guy Adams & Danny Balfour, Unmasking Administrative Evil…

H. George Frederickson and David Hart, The Public Service and the Patriotism of Benevolence, Public Administration Review, (45, 5), (Sep. - Oct., 1985)

H. George Frederickson, Confucius and the Moral Basis of Bureaucracy, Administration & Society, (33, 4), (January 2002)

Camilla Stivers, Citizenship Ethics in Public Administration, Chapter 23 in Handbook of Administrative Ethics, Terry Cooper (ed.), Dekker, 1994.

William D. Richardson and Lloyd G. Nigro, The Constitution and Administrative Ethics in America, Administration & Society 1991 23: 275