Public administration and public affairs 12th edition nicholas henry test bank

INSTRUCTOR’S MANUAL
&
TEST BANK
to accompany

PUBLIC ADMINISTRATION
AND PUBLIC AFFAIRS
Twelfth Edition

Nicholas Henry
Georgia Southern University

Prepared by:
Christine Ludowise
Georgia Southern University

Pearson
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TABLE OF CONTENTS

Table of Contents

ISBN-10: 0-205-86445-7
ISBN-13: 978-0-205-86445-4


Lesson Assignments

4

Chapter 1

Big Democracy, Big Bureaucracy

5

Chapter 2

Paradigms of Public Administration

11

Chapter 3

The Threads of Organizations: Theories

17

Chapter 4

The Fabric of Organizations: Forces

24

Chapter 5

The Fibres of Organizations: People

33

Chapter 6

Clarifying Complexity: The Public’s Information Resource

41

Chapter 7

The Constant Quest: Efficient and Effective Government

48

Chapter 8

The Public Trough: Financing and Budgeting Governments

56

Chapter 9

Managing Human Capital in the Public Sector

69

Chapter 10

Understanding and Improving Public Policy

81

Chapter 11

Intersectoral Administration

88

Chapter 12

Intergovernmental Administration

97

Chapter 13

Toward A Bureaucratic Ethic

107

LESSON ASSIGNMENTS


Each of the text's thirteen chapters are organized in this test banks as follows:


A summary of the chapter.



The educational objectives of the chapter.



Key concepts and terms in the chapter.



Multiple choice, true/false, and short answer questions.

Through the use of this Instructor’s Manual and Test Item File, the instructor's task should be
eased, classroom discussions enhanced, and tests rendered more rigorous. You will find that
Public Administration and Public Affairs becomes an even more effective instructional tool with
these features.

Chapter One

BIG DEMOCRACY, BIG BUREAUCRACY
CHAPTER OVERVIEW
A discussion of the tradition and context of American public administration sets the tone for the
book, focusing on American’s preference for constrained public leadership. The public
perception of bureaucracy (pejorative) is juxtaposed with the public’s reliance upon and
acceptance of public administrators (favorable). The chapter concludes by discussing the
cultural, institutional, and legal contexts in which public administration takes place in the United
States.
CHAPTER OBJECTIVES
1.
2.
3.
4.
5.

Understand the political culture and developments that shaped U.S. government and
public administration.
Explain the difference between Hamilton’s and Jefferson’s vision of the bureaucracy.
Understand the consequences of a constrained government and public administration.
Reconcile the differences between public suspicion of public administration and positive
individual experiences with public administrators.
Identify the importance of the policy-making role of public administrators.

CHAPTER OUTLINE
AN UNPROMISING PRECIS
The Indians and the English
Administration by Ambassadors: The Articles of Confederation
Administration by Legislators: The First State Constitutions
Administration by Enfeebled Executives: Jefferson Prevails
Hamiltonian Energy

Jeffersonian Constraint
A CULTURE OF CONSTRAINT
Americans and Their Governments
Governing in a Distrusting Culture
Distrust of Elected Leaders
Distrust of Government
Why Trust Matters
Some Diverse and Unexpected Correlations
High Trust Equals High Performance
THE CONSEQUENCES OF CONSTRAINT
Hobbled Elective Chief Executives
The Domesticated Presidency
Constraining Governors
An Insipid Appointment Power


Lieutenant Governors, Term Limits, and Recalls
Puny Political Powers
The Rising Recall
Constraining Local Elected Chief Executives
Hobbled Governments
Constraining the Federal Government
Constraining State Governments
Constraining Local Governments
The Unclear Outcomes of Imposed Constraints
Hobbled Governmental Growth
INFERNAL VERNON: A CASE OF UNCONSTRAINED PUBLIC ADMINISTRATION (case
study)
THE BUREAUCRAT: BRAINED, BLAMED AND BOUNCING BACK
Bashing Bureaucrats

Politicians’ Pandering
Academia’s Undercutting
Media’s Mordancy
Are Bureaucrats to Blame?
The Public Likes Public Administrators
Encountering Bureaucrats
The Bureaucrat: Government’s Savior?
THE PARADOXICAL POWER: THE GRAY EMINENCE OF THE PUBLIC
ADMINISTRATOR
Staying Power
Discretion Counts
Policymaking Power
Policymaking by Federal Administrators
Policymaking by State Administrators
Policymaking by Local Administrators
Lethargic Local Legislators
The Demise of Democracy?
Stopping Power
The Contest for Control
Presidents versus Bureaucrats: Mobilizing the Bureaucracy
Presidential Frustration
Bringing Bureaucracy to Heel?
Executive Expertise
Presidential Indifference
Control and Autonomy
A Bureaucracy Newly Girded
Governors versus Legislators: The Battle for the Bureaucracy
KNOWLEDGE: THE BASE OF BUREAUCRATIC POWER

Knowledge is Power
Knowledge, Power, and the Public Interest
KEY CONCEPTS/TERMS/INDIVIDUALS
social contract
The Articles of Confederation
Alexander Hamilton
Thomas Jefferson
the “hollow government”
“government by gridlock”
social capital
recall
referendum
initiative or initiative petition
staying power
discretionary power
legislative veto
policy agenda
noetic authority
Max Weber
TEACHING IDEAS
1.

Have students, in groups, revisit and rewrite the Constitution. Ask them to design and
insert an additional article that clearly articulates the role of the bureaucracy in American
Government. Then discuss the problems they faced in clearly defining and limiting the
“fourth” branch of government.

2.

Invite the local city or county manager to speak to your class. Ask him/her to focus their

discussion on their relationships with the executive and legislative branches, as well as
how s/he views his/her policy-making role.

3.

Ask students to relate a good experience they or their family has had with a public agency
or with public services. Have them reconcile their experience with the perception of
bureaucracy as a big, unwieldy, unhelpful entity.

BACKGROUND READING
De Tocqueville, Alexis. Democracy in America. New York: Penguin Classics, 2003.
Goodsell, Charles T. The Case for Bureaucracy: A Public Administration Polemic, 2nd
ed. Chatham: Chatham House, 1985.
Hamilton, Alexander, James Madison, and John Jay. The Federalist Papers. New York:
Penguin Classics, 1987.


Lorenzo, David J. “Countering Popular Misconceptions of Federal Bureaucracies in
American Government Classes.” Political Science and Politics (December 1999): 743747.
Wilson, Woodrow. “The Study of Administration.” Political Science Quarterly 2
(June/July 1887): 197-222.
MULTIPLE CHOICE QUESTIONS
1.

The unwritten agreement between the government and the governed that defines the
responsibilities of each party is referred to as a
a.
b.
c.
d.

2.

At the local level, public administration is characterized by unusually weak
a.
b.
c.
d.

3.

a recall
a referendum
an initiative
a supermajority

______________________ is the device used to reconcile bureaucracy with democracy.
a.
b.
c.
d.

5.

chief executives.
budgetary officers.
legislative bodies.
judges.

In many states, citizens have constrained government activities by adopting principles of

direct democracy. Which of the following places an issue on the ballot through petitions
signed by registered voters?
a.
b.
c.
d.

4.

referendum.
discretionary decision.
social contract.
constitution.

Public administration
Public policy
Civic responsibility
Legislative action

American public administration is characterized as
a.
b.
c.

aggressive.
constrained.
forceful.


d.

6.

destructive.

The power that is derived from knowledge is __________ authority.
a.
b.
c.
d.

partial
narrow
classified
noetic

7.

What percentage of American has a favorable opinion of government workers?
a.
20%
b.
50%
c.
70%
d.
90%

8.

A _________________ election allows voters to determine whether an elected official

can complete his/her term in office.
a.
b.
c.
d.

9.

primary
referendum
recall
general

_________________ power refers to a public administrator’s authority to decide how to
implement public policies.
a.
b.
c.
d.

Discretionary
Legislative
Judicial
Noetic

10.
Congressional repeal of an executive action taken in the course of administering a law is
known as a
a.
b.

c.
d.

line-item veto.
legislative veto.
discretionary veto.
political veto.

TRUE/FALSE QUESTIONS
11.

The Articles of Confederation created a strong national government with a centralized
bureaucratic structure. FALSE


12.

Public administration and bureaucracy are specifically referenced in the U.S.
Constitution. FALSE

13.

The majority of Americans believe that they have been treated fairly in their interactions
with public bureaucrats. TRUE

14.

In contrast to Alexander Hamilton, Thomas Jefferson supported a constrained
administrative tradition. TRUE

15.

The United States has smaller governments and lower taxes than comparable countries.
TRUE

16.

There is a clear correlation between strong social capital and low performing state
government. FALSE

SHORT ANSWER QUESTIONS
17.

Discuss why U.S. presidents may feel frustrated by or indifferent to the bureaucracy.
What are the potential consequences of these actions?

18.

Why did the Framers of the U.S. Constitution create constrained government structures
and processes?

19.

Discuss the differences between the image and the reality of the public bureaucrat.

20.

What are some of the features of constrained public administration?

21.

How would you describe American’s view of their governments today?

22.

Discuss the ways in which legislative and executive institutions have been
“bureaucratized”.

23.

Speculate on the “staying power” of government agencies. What mechanisms prevent
the failure of government bureaucracies?

Chapter Two
PARADIGMS OF PUBLIC ADMINISTRATION
CHAPTER OVERVIEW
The intellectual evolution of the field and profession of public administration is reviewed,
focusing on the major developments in the twentieth century. Six paradigms of public


administration are explained, concluding with a discussion of the waning of government and the
development of governance in the public sector.
CHAPTER OBJECTIVES
1.
2.
3.
4.
5.

Understand and explain how the discipline of public administration has developed over

time.
Understand the relationship between how public administration is defined and
how public administration is practiced.
Identify the perceived differences between politics and administration and discuss how
those concepts have evolved and meshed over time.
Discuss the concept of principles of administration. Identify the principles included in
the anagram POSDCORB and why they were considered important foundations of public
administration.
Describe public administration as an autonomous field.

CHAPTER OUTLINE
THE BEGINNING
Think Tanks for Public Service
Public Administration and the Intellectuals: The Fortuitous Year of 1914
Public Administration – “No Career for a Gentleman”
Turning Sharply: Academia’s Reconsideration
PARADIGM 1: THE POLITICS/ADMINISTRATION DICHOTOMY, 1900-1926
The Uses of the Dichotomy
The Dilemma of the Dichotomy
PARADIGM 2: PRINCIPLES OF PUBLIC ADMINISTRATION, 1927-1937
A Reputational Zenith
Money and Power
An Academic Backtrack
The Meaning of Principles
THE CHALLENGE, 1938-1950
Deflating the Dichotomy
The Demise of the Dichotomy
A Dead Dichotomy, a Diminished Field
Puncturing the Principles
Fearful Reactions

PARADIGM 3: PUBLIC ADMINISTRATION AS POLITICAL SCIENCE, 1950-1970
Consternation and Contempt
The Impact of Political Science: Bureaucracy in the Service of Democracy
PARADIGM 4: PUBLIC ADMINISTRATION AS MANAGEMENT, 1950-1970


The “Groundswell” of Management
“Fundamentally Alike in All Unimportant Respects”
The Erratic Impact of the Intellectuals
What is Missing?
The Impact of Management: Understanding the “Public” in Public Administration
The Agency, or Institutional, Definition of “Public”
The Interest, or Philosophic, Definition of “Public”
The Access, or Organizational, Definition of “Public”
Three Interlocked Understandings of “Public”
THE FORCES OF SEPARATISM, 1965-1970
PARADIGM 5: PUBLIC ADMINISTRATION AS PUBLIC ADMINISTRATION, 1970PRESENT
NASPAA’s Nascency
The Statistics of Secession
From Politics/Administration Dichotomy to Political-Administration Continuum
The Pioneers of Public Administration Were Right
Professional Public Administration Improves Governance
Public Administrators, Politicians, and Teamwork
Two Quiet Revolutions: The Pioneers’ Prime Proposals
LOGICS: POLITICS AND ADMINISTRATION (case study)
PARADIGM 6: GOVERNANCE, 1990-PRESENT
The Future of Governing
The Decline of Governments
“Making a Mesh of Things”: The Rise of Governance
Does Governance Work?

The Future of Public Administration: The Nonprofit Sector?
PUBLIC ADMINISTRATION, HAPPY AT LAST
KEY CONCEPTS/TERMS/INDIVIDUALS
The New York Bureau of Municipal Research
Paradigm 1
Frank J. Goodnow
politics/administration dichotomy
politics
administration
Leonard D. White
Paradigm 2
W.F. Willoughby
Luther H. Gulick and Lyndall Urwick
Chester I Barnard
Herbert A. Simon


span of control
American Society for Public Administration
Paradigm 3
Paradigm 4
administrative science
generic management
agency
interest
access
National Academy of Public Administration
Paradigm 5
National Association of Schools of Public Affairs and Administration (NASPAA)
Master of Public Administration (M.P.A.) programs

Paradigm 6
government
governance
focused deterrence
TEACHING IDEAS
1.

Ask students about the principles that American government is based upon. As they
discuss those values, focus their attention on both the normative and the procedural
aspects. Is it possible to make administration “value-free”? Why or why not? Could we
ever divorce administration from politics?

2.

Place students in small groups. Ask each group to come with it’s own “principles” of
public administration. What is the role and purpose of administration in the public
sector? What should it do – and what does it do? Again, emphasize the normative
aspects of those questions.

3.

Have students discuss the input that citizens can have on local policy- and decisionmaking through their interactions with local administrators, executives, and legislators.
Ask them to clearly articulate why local government is generally more responsive to
citizen feedback.

BACKGROUND READING
Agranoff, Robert and Michael McGuire. “American Federalism and the Search for
Models of Management.” Public Administration Review 61 (November/December
2001): 671-681.
Goodnow, Frank J. Politics and Administration. New York: Macmillan, 1900.

Gulick, Luther and Lyndall Urwick. Papers on the Science of Administration. New
York: Institute of Public Administration, 1937.


Simon, Herbert A. Administrative Behavior: A Study of Decision-Making in
Administrative Organizations, 3rd ed. New York: Free Press, 1976.
Waldo, Dwight. “Public Administration.” Political Science: Advance of the Discipline,
Marian D. Irish, ed. Englewood Cliffs: Prentice Hall, 1968.
MULTIPLE CHOICE QUESTIONS
1.

Woodrow Wilson set the tone for the early study of public administration with an essay
entitled
a.
b.
c.
d.

2.

The emphasis of the first paradigm of public administration was
a.
b.
c.
d.

3

The Function of the Executive.
Administrative Behavior.

Public Administration Today and Tomorrow.
Principles of Administration.

Founded in 1939 to separate public administration from political science, the primary
association of scholars and practitioners of public administration is the
a.
b.
c.
d.

5.

political corruption.
the science of management.
the existence of a dichotomy between politics and administration.
principles of governance.

In 1947, Herbert Simon published a devastating critique of public administration entitled
a.
b.
c.
d.

4.

The Study of Politics.
The Study of Administration.
The Paradigm of Progress.
The Development of Organizational Thought.

American Political Science Association.
American Society for Public Administration.
National Academy of Public Administration.
Public Administration Theory Network.

Administrative science attempted to place public administration more clearly within the
field of
a.
b.
c.

political science.
sociology.
psychology.


d.
6.

Schools that offer the MPA degree may apply for accreditation through ___________,
which brings with it higher prestige, more effective programming, and enhanced ability
to recruit faculty and students.
a.
b.
c.
d.

7.

business administration.

American Political Science Association
American Society for Public Administration
National Association of Schools of Public Affairs and Administration
National Academy of Public Administration

Which of the following was not advocated for by early public administrationists?
a.
home rule
b.
non-partisan elections
c.
short ballots
d.
citizen satisfaction surveys

8.
___________________ is a network-based method designed to reduce gang-related
violence through collaborative governance across multiple policy sectors, including police,
prosecutors, and social workers.
a.
b.
c.
d.
9.

The major difference between government and governance is that governance is
a.
b.
c.

d.

10.

Scientific management
Focused deterrence
Critical variable analysis
Interdependence

institutional only.
institutional and networked.
institutional and global.
networked and privatized.

__________________ refers to the degree of openness that distinguishes privateness
from publicness.
a.
b.
c.
d.

Agency
Interest
Access
Locus

TRUE/FALSE QUESTIONS
11.

Early in its development, public administration emerged as a building block of political

science. TRUE


12.

American public administration clearly mirrors the fundamental values and precepts of
American political science. TRUE

13.

Public administration is no different than business administration and management.
FALSE

14.

Using objective measures, career public administrators are the most effective government
managers. TRUE

15.

The council-manager form of government has brought more conflict and less
collaboration to local governments. FALSE.

16.

Politics is an inevitable element of public administration. TRUE.

17.

The vast majority of students in M.P.A. programs nationwide are male. FALSE

SHORT ANSWER QUESTIONS
18.

There are six paradigms of public administration. Trace the development of the
discipline from the politics/administration dichotomy through the politics-administration
continuum.

19.

What is the politics/administration dichotomy?

20.

Describe the major forces that undermined the politics/administration dichotomy and the
principles of administration.

21.

In the 1920s and 1930s, the concept of principles of administration dominated the field.
Discuss the development of this paradigm.

22.

Public administration upholds the values of the political system, as described by political
science. What are some of these values?

23.

Discuss why it may be in the best interest of the public and public agencies for

administrators to have public administration backgrounds rather than degrees in political
science or business.