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Ppt3.pptxWhat is Public Administration
No generally accepted definition and many differing opinions from scholars
The formation and implementation of public policy
PA is an Art or Science ?
Simon and Waldo Debate
“They say, I say”
Last week
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What is Public Administration
No generally accepted definition and many differing opinions from scholars
The formation and implementation of public policy
PA is an Art or Science ?
Simon and Waldo Debate
The formal birthing of public administration in the U.S.
Politics and Administration Dichotomy: Wilson and Goodnow
Politics = will of the state
Administration = execution of the will
Criticism: Waldo and Frederickson
Frederickson: the dichotomy lacks an empirical warrant, because administrators both execute and make policy. (administration = will of the state + execution of the will)
Administrators are not neutral (value) discretion
Waldo: be skeptical to politics/administration dichotomy, because the administration influences and interacts with the politics and the policymaking process (The Comey rule)
Who is a public administrator
Last week
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Ethics and Public Administration
PAD 3003 Public Administration in American Society
Week 3
Lecture for PAD 3003 online class
Hello everyone, welcome to my class, public administration in American society week 3, ethics and public administration.
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This Week
What is Public Administration?
Wait, what is the public part of Public Administration?
Publicness/Public Value
Or are public organizations different from private/business organizations?
Two Points:
Are there clear boundaries between public and private sectors?
If there is a clear boundary, can they learn each other? Can government run like business? Can non-profit run like business?
Ethics and Public Administration
Is administrative ethics in public administration different from business?
Public Value
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Publicness
What is Public Administration?
Wait, what is the public part of Public Administration?
Yes, efficiency
No, the value of social equity won’t take precedence.
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The nature of public service imposes higher standards of conduct on civil servants than are placed on private sector employees.
But there are many aspects of public administration that make it difficult to attain a satisfactory level of accountability.
Ethics and Public Administration
Source: Rosenbloom, D. H. (1998). Understanding Management, Politics, and Law in the Public Sector. New York: McGraw-Hill.
Ethical can be considered a form of self- accountability, or an “inner check” on public administrators’ conduct. However, the inner check may be enforced by requirements that administrators’ behavior comport with a variety of external standards.
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Publicness
What is Public Administration
Wait, what is the public part of Public Administration?
Background:
Public choice school
Market Failure vs. Government Failure
the Reagan Administration
Conservative philosophies: less regulation, “privatization”, supply-side economics
Differentiating government from the private sector
Publicness: public value, public interest, public service motivation, etc.
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Wamsley and Zald (1973)
Public-private continuum: ownership and funding
| Public Ownership | Private Ownership | |
| Public Funding (Taxes, government contracts) | Department of Defense Social Security Administration Police Department | Defense Contractors Rand Corporation Research Corporation |
| Private Funding (sales, private donations) | U.S. Postal Service Government-owned Utilities Federal Home Loan | General Motors General Electric |
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Wamsley and Zald (1973)
How about other organizations?
| Public Ownership | Private Ownership | |
| Public Funding (Taxes, government contracts) | ||
| Private Funding (sales, private donations) |
Private Prison
National Parks
NASA
SpaceX
Citigroup after 2008 financial crisis
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Wamsley and Zald (1973)
How about other organizations?
| Public Ownership | Private Ownership | |
| Public Funding (Taxes, government contracts) | NASA National Parks | Private Prison SpaceX Citigroup after 2008 financial crisis |
| Private Funding (sales, private donations) | National Parks |
Private Prison
National Parks
NASA
SpaceX
Citigroup after 2008 financial crisis
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Perry and Rainey (1988): The Typology of Organization
| Ownership | Funding | Mode of Social Control | Example | |
| Bureau | Public | Public | Polyarchy | Bureau of Labor Statistics |
| Government Corporation | Public | Private | Polyarchy | Pension Benefit Guaranty Corporation |
| Government-sponsored enterprise | Private | Public | Polyarchy | Corporation for Public Broadcasting |
| Regulated enterprise | Private | Private | Polyarchy | Private electric utilities |
| Government enterprise | Public | Public | Market | Government printing office that must sell services to government agencies |
| State-owned enterprise | Public | Private | Market | Airbus |
| Government contractor | Private | Public | Market | Grumman |
| Private enterprise | Private | Private | Market | IBM |
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Publicness
What is Public Administration
Wait, what is the public part of Public Administration?
Background: Public choice school
the Reagan Administration
Conservative philosophies: less regulation, “privatization”, supply-side economics
Differentiating government from the private sector
Publicness: public value, public interest, public service motivation, etc.
Publicness: Defined as a characteristic of an organization which reflects the extent to which the organization is influenced by political authority.
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Bozeman (1987): The Authority Mix
| Economic Authority | Political Authority |
| Increased concern for technical efficiency | Increased accountability to external political actors |
| Entrepreneur-manager oversight | Increased interdependence |
| Market valuation of labor | Concern with externalities |
| Production incentive | Closer ties to political cycles |
| Market-based evaluation of performance | Increased public visibility |
| Increased concern with equity and other such social goals |
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Bozeman (1987): Political and Economic Authority
Economic Authority
Political Authority
Private firm managed by owner
Closely held private firm professionally managed
Corporation with shares traded publicly on stock market
Corporation heavily reliant on government contracts
Government sponsored enterprise
Government corporation or government organization funded through user fees
Government agency (funded by taxes)
Small voluntary association
Government-Industry research cooperative
Professional association
Private nonprofit organization
Research University
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Bozeman (1987): Political and Economic Authority
Economic Authority
Political Authority
Private Firm managed by owner
Government agency (funded from taxes)
Small voluntary association
Professional association
Closely held private firm professionally managed
Corporation heavily reliant on government contracts
Corporation with shares traded publicly on stock market
Private nonprofit organization
Government sponsored enterprise
Government-Industry research cooperative
Government corporation or government organization funded through user fees
Research University
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Discussion
Could you fill these organizations into the figure?
Economic Authority
Political Authority
Amazon
Tesla
Chick-fil-A
Private Prison
Yellowstone National Parks
NASA
SpaceX
Citigroup after 2008 financial crisis
Federal Reserve
FBI
CIA
Department of Homeland Security
Department of defense
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All Organizations Are Public
Publicness: Defined as a characteristic of an organization which reflects the extent to which the organization is influenced by political authority.
Because political authority affects some of the behavior and processes of all organizations
“Public” pertains to the effects of political authority
Organizations can be more public in respect to some activities and less public in respect to others
All organizations are public, but some are more public than others
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All Organizations Are Public
Axiom 1 (The multi-dimensional assumption) : Publicness is not a discrete quality but a multi-dimensional property. An organization is public to the extent that it exerts or is constrained by political authority • Axiom 2 (The decomposition assumption): A given organization may be more influenced by political authority in some of its processes and behaviors than in others and thus can be said to be more public in some of its processes and behaviors and less so in others • Axiom 3 (The equivalency assumption): For purposes of judging the impact of publicness on organizational behavior, political constraint is equivalent to political endowment. It is unnecessary to distinguish the motive underlying the influence of political authority
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Publicness and Organizational Processes
Publicness and resource processes – Less autonomy – Less stability
Publicness and organizational life cycles
Publicness and structural processes – More red tape – More centralization
Publicness and goal processes – More transitive (externally oriented) goals than reflexive (internally oriented) goals – More interdependence
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Public and Private: Similarities & Differences
Herbert Simon (1946) argues that there are more similarities than differences between public and private organizations.
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Bozeman (2007) Public Values and Public Interests
Public Values and Public Interests: Counterbalancing Economic Individualism
What is the privatization of public value?
Economic individualism: individual liberty and each person’s role as a producer
“A philosophy emphasizing in matters economic the values and interests of the individual.”
Human centered, values are based on the needs of humans, not society
Social and government institutions are, at best, a means to satisfying individual needs.
Individual is of supreme value; all individuals are of equal moral value.
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Bozeman (2007) Public Values and Public Interests
Public Values and Public Interests: Counterbalancing Economic Individualism
Individualism assumes that the best society is one that permits the individual maximum freedom of choice, that each person is the best judge of his or her interests, and there is no transitivity of interest.
Free market by Adam, maximize efficiency as well as freedom
Market efficiency serves both as rational for delivery of goods and services and as rallying cry.
To some extent, the creation of the welfare state can be viewed as a repudiation of economic individualism.
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Bozeman (2007) Public Values and Public Interests
Public Values and Public Interests: Counterbalancing Economic Individualism
Public interest is an ideal, whereas “public values” have specific, identifiable content. In a particular context, the public interest refers to the outcomes best serving the long-run survival and well-being of a social collective construed as a “public.”
A society’s “public values” are those providing normative consensus about (a) the rights, benefits, and prerogatives to which citizens should (and should not) be entitled; (b) the obligations of citizens to society, the state, and one another; and (c) the principles on which governments and policies should be based.
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Bozeman (2007) Public Values and Public Interests
Public Values and Public Interests: Counterbalancing Economic Individualism
Individualism vs. Collectivism
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Public Interests and Creating Public Values
You work for marriage licensing in a state that has just legalized same-sex marriage, but your personal religious belief is against it. You are instructed to start processing the requests today. What will you do?
You work for federal EPA and love what you do. The new president appointed a new EPA administrator who has had an anti-environment record of 25 years. The administrators has just asked to design a plan to reduce the regulatory burden in your area. What will you do?
Similar story can be written about gun control, contracting out, war on drugs...etc.
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Managing Behavior in the Public Interest
How can we manage our own behavior and influence the behavior of others in a manner that is consistent with the public interest and the values of democratic governance?
What we do and how we do it has implications for the relationship between citizens and their government
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Strategy across sectors
The need for a strategy is common across sectors
Defining source of revenues
What constitutes and how one measures the value produced by different organizations
Mission and Goals
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Moore (2000) Managing for Value
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Moore (2000) Managing for Value
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Moore (1995)’s Triangle
Moore (1995)’s triangle includes the interdependent process: defining public value outcomes, creating the authorizing environment necessary to achieve the outcomes, building operational capacity with resources inside and outside the organization.
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Competing Approach: Moore vs. Bozeman
Agree with value is rooted in the desires and perceptions of individuals but there are different kinds of desires to be satisfied.
Public value is defined as a summary equivalent of private value in corporate management, which is measured against the extent to which a set of public values are realized at reasonable economic, political, and social costs.
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Competing Approach: Moore vs. Bozeman
Public value sets out a philosophy of public management and diagnostic frameworks to guide public managers and interventions. At least, public value is partially endogenous to the process
Four extant approaches—managerial expertise, ethical values, aggregation of interests, and citizen participation—coexist in an iterative process of three steps—participation, legitimation, and implementation.
Administrative ethnic provides more details of public value
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This Week
What is Public Administration?
Wait, what is the public part of Public Administration?
Publicness/Public Value
Or are public organizations different from private/business organizations?
Two Points:
Are there clear boundaries between public and private sectors?
If there is a clear boundary, can they learn each other? Can government run like business? Can non-profit run like business?
Ethics and Public Administration
Is administrative ethics in public administration different from business?
Cooper’s Four question: normative foundations, organizational behaviors and social equity
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What are ethics?
What cause unethical behaviors: individual and organization factors
How do ethics relate to PA?
Ethics and Management in Public Organizations
“Two things fill the mind with ever new and increasing admiration and awe, the more often and steadily we reflect upon them: the starry heavens above me and the moral law within me. I do not seek or conjecture either of them as if they were veiled obscurities or extravagances beyond the horizon of my vision; I see them before me and connect them immediately with the consciousness of my existence.” ― Immanuel Kant
Ethics
Definitions:
French and Granrose (1995) – “A set of normative guidelines directed at resolving conflicts of interest so as to enhance societal well-being”
Thompson (1985) on administrative ethics:
(a) The rights and duties that individuals should respect when they act in ways that seriously affect the well-being of other individuals and society;
(b) The conditions that collective practices and policies should satisfy when they similarly affect the well-being of other individuals and society.
Ethics
Unethical behaviors may be the result of personal value or personal traits.
The corruption experiment ( https://youtu.be/2KyavuKmdNE)
Why do you think people would like to bribe the research assistants?
Will People Behave Ethically?
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Machiavellianism: The Prince
“End justifies the means” philosophy
Kantian ethics: deontological ethical theory
Humans are required never to treat others merely as a means to an end, but always as ends in themselves.
In the two situations, what is your choice respectively? And why?
Will People Behave Ethically?
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Organizational characteristics may be contributing factors of unethical behaviors.
The Sandford prison experiment ( https://www.youtube.com/watch?v=3XN2X72jrFk)
The Milgram experiment ( https://www.youtube.com/watch?v=O1VOZhwRvWo)
Will People Behave Ethically?
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Organizational characteristics may be contributing factors of unethical behaviors.
Milgram experiment: Teacher vs. learners (confederate of the experimenter)
If the learner made mistakes, the teacher needed to executive electric shock
The level of shock, raging from 15V (volts) to 450V, would increase each time
What people did in that experiments?
Some people deny to do so as the level of shocks increase.
But the experimenter provide four prods and if one was not obeyed the rules:
Prod 1: Please continue
Prod 2: The experiment requires you to continue
Prod 3: It is absolutely essential that you continue
Prod 4: You have no other choice but to continue
65% (two-thirds) of participants (i.e., teachers) continued to the highest level of 450V. All the participants continued to 300V.
Will People Behave Ethically?
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What do we learn from those two experiments? Is there any real case reflected the results of experiments? From PA’s perspective, what can we do to prevent unethical behaviors?
Small Group Discussion
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The nature of public service imposes higher standards of conduct on civil servants than are placed on private sector employees.
But there are many aspects of public administration that make it difficult to attain a satisfactory level of accountability.
Ethics in PA
Source: Rosenbloom, D. H. (1998). Understanding Management, Politics, and Law in the Public Sector. New York: McGraw-Hill.
Ethical can be considered a form of self- accountability, or an “inner check” on public administrators’ conduct. However, the inner check may be enforced by requirements that administrators’ behavior comport with a variety of external standards.
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While public employees are often forced to choose between obeying policy and serving the needs of clients, they need to balancing diverse and competing demands:
Loyalty to the organization
Responsiveness to the needs of the public
Consideration for the employees’ own objectives and desires.
Choosing the client’s interests over the interests of the organization may be the most ethical action of all (Strait 1998, p.18)
Actions (or inactions) of bureaucrats could be both ethically important
Need for Administrative Ethics
What Are the Normative Foundations for Public Administration Ethics?
How Do American Administrative Ethical Norms Fit into a Global Context?
How Can Organizations Be Designed to Support Ethical Conduct?
When Should We Treat People Equally in Order to Treat Them Fairly, and When Should We Treat Them Unequally
Cooper’s Four Questions
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Which one do you think is the most important normative foundation for public administration ethics? And why?
What Are the Normative Foundations for Public Administration Ethics?
| Normative Foundations | Vote |
| Regime Values, Constitutional Theory, and Founding Thought | |
| Citizenship Theory | |
| Social Equity | |
| Virtue | |
| Public Interest |
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How Do American Administrative Ethical Norms Fit into a Global Context?
Video: https://www.youtube.com/watch?v=ABWYOcru7js
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How Can Organizations Be Designed to Support Ethical Conduct?
Hierarchical bureaucratic organizations generally not only have failed to encourage ethical action by the people who work within them, but often have created serious impediments to their efforts to do the right thing.
People may just follow the order from the authority
Organizational Culture
Rules, Procedures, whistleblowing
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When Should We Treat People Equally in Order to Treat Them Fairly, and When Should We Treat Them Unequally
What is difference between equality and equity?
Equality can be converted into a mathematical measure in which equal parts are identical in size or number.
Equity is a more flexible measure allowing for equivalency while not demanding exact sameness.
For example, a child entering school who does not speak English is at a substantive disadvantage compared to her native English-speaking classmates. Though the entire class may receive equal instruction in language, the non-English-speaking student requires additional tutoring if her training is to be equitable with that of her classmates.
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When Should We Treat People Equally in Order to Treat Them Fairly, and When Should We Treat Them Unequally
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When Should We Treat People Equally in Order to Treat Them Fairly, and When Should We Treat Them Unequally
How do we distribute COVID-19 vaccine in Florida?
Critical people:
Health care personnel,
Other essential workers
Long-term care facility residents and staff
People with underlying medical conditions who are at-risk of severe COVID-19 illness
People 65 years of age and older
People from racial and ethnic minority groups
People from tribal communities
People housed in correctional and detention facilities
People attending colleges/universities
People with disabilities
People who are underinsured or uninsured
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When Should We Treat People Equally in Order to Treat Them Fairly, and When Should We Treat Them Unequally
Social vulnerability refers to the potential negative effects on communities caused by external stresses on human health. Such stresses include natural or human-caused disasters, or disease outbreaks. Reducing social vulnerability can decrease both human suffering and economic loss.
The CDC/ATSDR Social Vulnerability Index (CDC/ATSDR SVI) uses 15 U.S. census variables to help local officials identify communities that may need support before, during, or after disasters.
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Social equity concerns fall naturally within the purview of PA, for government is the entity of last resort when the market and social dynamics create problems that do not resolve on their own.
Policy debates about public education, access to health care, housing, food, water, and environmental justice all provide examples of the social equity frontier—yesterday, today, and tomorrow.
Justice, fairness, and equality have everything to do with PA:
Laws don’t carry out themselves
Administrators implement the law through interpretation and discretion
Maintained early that administrators should be neutral
PA’s obligations:
Administer the laws they work in a fair manner.
Advance social equity by seeking to hire and advance a varied workforce.
Provide moral leadership to citizens.
Equity: How Does Equity Relate to PA?
For the field: Cooper’s questions: How do we infuse ethics into public administration?
For yourself: How do you reason executing your job requirements when there is a feeling of personal moral disagreement with the executing action that is taking place?
For field application: What lessons can public administration learn about ethics from other fields?
Questions to Ponder for Making Material Matter
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“The hope of virtue in the public life is to be found not just in the individual propensity to be ethical, but more so in the development of organizational rules and procedures, in virtuous leadership, and in the development of virtuous public cultures,” Frederickson (2010).
Argues that public administration has been slow to react to different types of “public contexts” and ethical issues that emerge in those contexts.
Frederickson, 2010
Next session
Organizational Theory and Management
Required readings:
Textbook, Chapter 2 Organizational theory and management
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