Instructor:         Jos C.N. Raadschelders
                          classroom: Kaufman 139
                          tel.: 405-325-6620
                          e-mail: raadschelders@ou.edu

Office hours: in DAHT, rm. 304 and to be established first day of class

Required Texts:
1) Yehezkel Dror (2001). The Capacity to Govern. A Report to the Club of Rome. London/Portland, OR: Frank Cass. ISBN 0-7146-5228-8 (cloth) 264 pages.
2) O.C. McSwite (2002). Invitation to Public Administration. Armonk, NY: M.E. Sharpe. ISBN 0-7656-0915-0 (pbk, $ 19.95) 118 pages.
3) Jos C.N. Raadschelders (2003). Government: A Public Administration Perspective. Armonk, NY: M.E. Sharpe. ISBN 0-7656-1126-0 (pbk, $ 35.95), 442 pages.
4) Richard J. Stillman (1999). Preface to Public Administration: A Search for Themes and Direction. Burke, VA: Chatelaine Press. ISBN 1-57420-065-8 (pbk) 250 pages.
5) Small reader with articles.

Grading:
Grading will be based on two book review papers (each 15%, each 75 points), a curriculum paper (30%, 150 points), a presentation (20%, 100 points), two group and two plenary discussion reports (10%, 50 points), and participation and attendance (10%, 50 points).

Grading Scale: A = 500 - 450, B =  449 - 400, C = 399 - 330, D = 329 - 280, F = 279 - 0.

Late Work: The curriculum assignment (d) is due on 1 November. The two book review papers are due on by the end of November (or sooner if possible) and should be turned in prior to class. The two group and plenary reports are due the week after the discussion (i.e. 22 September respectively 6 October). Late work will be penalized.

Course Content: The study of public administration is concerned with the various ways in which government is involved in aggregating the varied demands from the public at large and how these demands are transformed into action. Many disciplines are concerned with aspects of this transformation of individual and collective demands into public policy. Organizational psychology studies group decision-making under pressure; health sciences study health policies; economics traces the boundaries of rational decision-making and individual choice; the legal profession studies constitution and regulatory power; authority can be studied from a legal, theological, philosophical, political perspective, etc., etc. The study of public administration can serve as a framework, to say the least, for all of these various contributions to our understanding of government and governance. Is it possible to integrate these various bodies of knowledge about government, and can administrative ‘science’ be a excellent vehicle for that? More than in any other academic discipline it is the publicness of government decision-making down to implementation that defines the study. What makes government public today is its huge role in the representation, protection and advancement of the general interest and the transparency, permeability and accountability of its organizations and office-holders. Government is deeply embedded in and intertwined with society. It is society as a collection of individuals and as a community of people that defines and legitimizes the government of, by and for citizens. Given that the business of government is society at large as well as serving the concerns of distinct components of that society, the study of public administration explores the role and position of government and its administrative apparatus along two lines:
a) the internal dynamics in the structure and functioning of public organizations, within
b) its relevant domestic and even international environment.
             Advanced training in public administration, whether for an academic or a practitioner career, should include both specialized courses as well as courses that emphasize the embeddedness of public administration in society. The study has long been identified as public administration proper which focuses on theories of public organizations, on decision and policy making, on policy evaluation, on human resource management, on public finance and budgeting, on public management, on intergovernmental relations, on representativeness etc. However, from early on - and becoming stronger in the course of the 20th century - the study has also included attention for public administration expanded. This ‘approach’ includes attention for, e.g., law, judiciary, executive, elected officials, political appointees, (legitimate) interest groups, citizen functionaries, media, issue networks, iron triangles, public sector ethics, and so forth. Research and teaching in public administration can be pursued with a purely academic objective (enhancing knowledge for the sake of knowledge only), but the legitimation of the study - a major concern since the 1970s - depends in part upon the degree to which its students ‘produce’ usable knowledge (both in terms of prescriptions as well as understanding). It is for this reason that the field-seminar will focus on the interplay between research and teaching and at the same time will provide the student with an overview of the major intellectual developments in the field.

Course Objectives: This course departs from the viewpoint that P(p)ublic A(a)dministration (to use Waldo’s distinction between study and field) cannot be understood without attention for the wider societal environment it serves. The concept of the ‘wider societal environment’ refers both to contemporary society as well as to the make-up of that society, i.e., its past, its culture, its values, and so forth. Equally important is that future professors of public administration (or any academically taught discipline for that matter) have to be aware of the interplay between research and teaching. This course serves four major objectives:
1. developing an in-depth knowledge of the origins and development of the study of public administration in response to guidance for reforms in the social-political context;
2. developing in-depth knowledge of the inter-disciplinary nature of the study of public administration because its material object takes precedence over its formal object;
3. developing a personal outlook on the nature of the study of public administration and how that translates into research and teaching;
4. enhancing awareness of the embeddedness of public administration in the larger environment and of the influence of social change (in the widest possible meaning) on public administration;
5. developing an understanding of the various ways in which a public administration curriculum can be developed, and acquiring experience with the development of a curriculum and a course program;
6. developing an understanding of the impact that research has upon the quality of teaching and vice versa.

Target Group: The field-seminar is developed with an eye on the needs of Ph.D.-students many of whom will pursue an academic career. It is especially useful for those Ph.D. students that have already completed some course work in the graduate program. To be sure, Ph.D.-students for whom this is one of the first courses in the graduate program shall find it challenging but will come away with a broad foundation upon which to further develop and tailor their interests in public administration.

Course Format: The course format is one of lectures and discussion. Each week the class will start with a lecture of about 75 minutes (7.00 - 8.15 p.m.. After a short break we will have the student presentation followed by a plenary discussion of a particular study (8.30 - 9.40 p.m.).

Assignments:
a) students will have to write a book review paper (ten pages) on a book (empirical or theoretical research) selected from the literature provided in this syllabus (pp.3-7; dependent upon enrollment, the titles marked * will have to be selected first);
b) students will have to present a critical discussion of that book followed by plenary discussion;
c) students will have to write a book review paper (ten pages) on a handbook/introduction to public administration, selected from the list provided in this hand-out (pp.9-10);
d) students will have to develop the outline of a curriculum for public administration and will develop two of the classes in that program in more detailed course syllabi.
e) students will have write two group and two plenary discussion reports.\

Academic Misconduct: University policy will be followed. See the Academic Misconduct Code, printed in full in the 1998-99 OU Student Handbook.

Students with disabilities: Any student in this course who has a disability that may prevent him or her from fully demonstrating his or her abilities should contact me personally as soon as possible so we can discuss accommodations necessary to ensure full participation and facilitate your educational opportunities.

Religious Holidays: It is the policy of the University to excuse absences of students that result from religious observances and to provide without penalty for the rescheduling of examinations and additional required class work that may fall on religious holidays.

25 August: Introduction to the Field-Seminar
(i.a. distribution of assignments; books marked * will have to be selected first)

I Teaching and Framing the Study of Public Administration
(Literature abbreviations: YD - Dror; OCS = McSwite; JR =- Raadschelders; RS = Stillman)

8 September: The Public Administration Curriculum
7.00 - 8.15: Lecture: National Approaches to Developing a Public Administration Curriculum
Literature: RS ch.1; reader essay 1.
8.30 - 9.40: Discussion: An eclectic, fragmented approach or a unified approach?

15 September: Literature: OCM entirely.
Prepare notes on your view regarding the ideal public administration curriculum and the ideal course syllabus. The students are divided into two groups of four and they meet at the assigned class time to discuss their preferences regarding curriculum and syllabi for about 60-70 minutes. Following that, the two groups report in plenary and the class as a whole will discuss (dis)advantages of the various “ideal” curricula. and syllabi. This pre- and in-class assignment serves as further preparation for assignment d. The group reports and plenary discussion ought to be summarized and made available to the instructor.

22 September: An Integrative Approach to the Study of Public Administration
7.00 - 8.15: Lecture: Types of Knowledge Integration
Literature: reader essays 2 and 4.
8.30 - 9.40: Student presentation followed by discussion on:
* Waldo, Dwight (1984 [1948]). The Administrative State. A Study of the Political Theory of American Public Administration. New York/London: Holmes & Meier Publishers.
- Simon, Herbert (1957 [1947])). Administrative Behavior. A Study of Decision-Making Processes in Administrative Organization. New York/London: The Free Press/Collier-MacMillan Limited.

29 September: Literature: YD entirely; RS chs. 5 to 7; essay 3.
Prepare notes on what you believe ought to be the direction that the study of public administration should take. Should it further develop as a study separate from political science? Should it seek to blend with political science on a basis of equality (i.e. a Study of Government? Should it identify itself more as a sub-field of political science. The students will meet at the appropriate class time and discuss their views in two groups of four during 60-70 minutes. They will then report in plenary. The two group reports and the plenary discussion ought to be summarized and made available to the instructor. This discussion serves as the conclusion to this bloc about the nature of the study of public administration and should help the student in the study and discussion of a handbook in public administration (assignment c.) from a contemporary perspective.

6 October: The Intellectual Development of the Study of Public Administration with or versus Political Science
7.00 - 8.15: Lecture: Five Stages in the Development of the Study
Literature: reader essays 3, 5 and 6; JR ch.15.
8.30 - 9.40: Student presentation followed by discussion on:
* McSwite, O.C. (1997). Legitimacy in Public Administration. A Discourse Analysis. Thousand Oaks, etc.: Sage Publications.
- Ostrom, Vincent (1974 [1973]). The Intellectual Crisis in American Public Administration. Tuscaloosa: The University of Alabama Press.
- Wamsley, Gary L., et al. (1990). Refounding Public Administration. Newbury Park etc. Sage Publications.

II Characteristics of American Society

13 October: Individualism amidst Collectiveness or Vice Versa?
7.00 - 8.15: Lecture: The American Dream
Literature: RS chs. 2-4.
8.30 - 9.40 Student presentation followed by discussion on:
* Croly, Herbert (1965 [1909]). The Promise of American Life. (A.M. Schlesinger, jr., ed.). Cambridge, MA: Belknap.
- Bellah, Robert M., et al. (1996 [1985]). Habits of the Heart. Individualism and Commitment in American Life. Berkeley etc.: University of California Press.

20 October: Degrees of Government Intervention: Government in a Democratic Society
7.00 - 8.15: Lecture: Features of Policy Making
Literature: JR chs. 2 and 11.
8.30 - 9.40 Student presentation followed by discussion on:
* Coontz, Stephanie (1992). The Way We Never Were. American Families and the Nostalgia Trap. New York: Basic Books. (see also by the same author: 1997, The Way We Really Are: Coming to Terms with America’s Changing Families . New York: Basic Books).
- Lowi,  Theodore J. (1969). The End of Liberalism. Ideology, Policy, and the Crisis of Public Authority. New York: W.W. Norton & Company, Inc.

27 October: Political and Religious Values
7.00 - 8.15: Lecture: Politics and Religion in Public Life
Literature: JR chs. 3-5
8.30 - 9.40 Student presentation followed by discussion on:
* Lipset, Seymour Martin (1979 [1973]}. The First New Nation. The United States in Historical and Comparative Perspective. New York: W.W. Norton & Company, Inc.
- Stillman, Richard J. (1998). Creating the American State. The Moral Reformers and the Modern Administrative World They Made. Tuscaloosa: The University of Alabama Press.
 

III American Society as Welfare State

3 November: Origin and Development of the Welfare State in the United States
7.00 - 8.15: Lecture: The United States a Welfare State?
Literature: JR ch.8.
8.30 - 9.40 Student presentation followed by discussion on:
* Skocpol, Theda (1992). Protecting Soldiers and Mothers. The Political Origins of Social Policy in the United States. Cambridge, Mass./London: The Belknap Press of Harvard University Press.
- Eisner, Marc Allen (2000). From Warfare State to Welfare State. World War I, Compensatory State-Building, and the Limits of the Modern Order. University Park, PA: Penn State University Press.

10 November: The Welfare State in Comparative Perspective
7.00 - 8.15: Lecture: From Laissez-Faire to Intervention?
Literature: JR ch.8.
8.30 - 9.40 Student presentation followed by discussion on:
- Flora, Peter & Arnold J. Heidenheimer (eds.) (1990). The Development of Welfare States in Europe and America. New Brunswick/London: Transaction Publishers.
* Goodin, Robert E., Bruce Heady, Ruud Muffels, Henk-Jan Dirven (1999). The Real Worlds of Welfare Capitalism. Cambridge: Cambridge University Press.

17 November: Regulating for Welfare and Social Order
7.00 - 8.15: Lecture: From Status to Contract and Beyond
Literature: JR chs. 6-7.
8.30 - 9.40 Student presentation followed by discussion:
* Hurst, James Willard (1977). Law and Social Order in the United States. Ithaca/London: Cornell University Press.
- Wolin, Sheldon S. (1990). The Presence of the Past. Essays on the State and the Constitution. Baltimore/London: The Johns Hopkins University Press.

IV Public Sector Ethics

24 November: October: Bureaucracy and Duty
7.00 - 8.15: Lecture: Ethics and Ethical Dilemmas for Administrators
Literature: JR chs. 9, 10 and 13.
8.30 - 9.40 Student presentation(s) followed by discussion:
* Gawthrop, Louis C. (1998). Public Service and Democracy. Ethical Imperatives for the 21st Century. New York/London: Chatham House Publishers.
- Cooper, Terry L. (1998). The Responsible Administrator. An Approach to Ethics for the Administrative Role. San Francisco: Jossey-Bass.
 
 

1 December: Citizen and Duty
7.00 - 8.15: Lecture:  Civic Virtues: Citizen Participation in What?
Literature: JR ch.14.
8.30 - 9.40 Student presentation(s) followed by discussion:
* Heater, Derek (1990). Citizenship: The Civic Ideal in World History, Politics and Education. London/new York: Longman.
- Marshall, T.H. (1965). Class, Citizenship, and Social Development. New York: Anchor Books.

V Social Change and Cultural Challenges

8 December: The Leader’s Role: Wise Restraint, Benevolent Imposition
7.00 - 7.45: Lecture: Domestic Concerns and International Obligations?
Literature: JR ch.12.
8.00 - 9.00 Student presentation(s) followed by discussion:
* Albrow, Martin (1996). The Global Age. State and Society Beyond Modernity. Cambridge: Polity Press.
- Hofstede, Geert (1997). Cultures and Organisations: Software of the Mind. London: McGraw-Hill.
9.00 - 9.40:
a) Discussion: Qua Vadis Public Administration?
b) Discussion: What is the Ideal Curriculum for Public Administration?
c) Evaluation of Class

(See booktitles provided in the program of class, pp.3-7). The student will have to select one of the books mentioned in the program of class. The student will develop a presentation on it that focuses on the main message of the book. The book review paper will have the following components:
1. Introduction: contains a brief introduction into the relevance of the subject matter of the book you selected. The introduction should invite the reader to continue reading.
2. Summary of the Book (5 pages): discuss the content of the book in about 5 pages. Focus on the main thesis of the study and highlight how the author(s) have developed that thesis. Indicate whether or not you find that the author(s) has lived up to the promises made in the foreword, introduction, and first chapter of the book. You are invited to pay extra attention to one issue addressed in that book that you found particularly interesting. Also elaborate where you feel the book is incomplete or not.
2. Reception of the Book (3 pages) The impact a book has (had) can be traced by looking at the various reviews of it in scholarly journals. Is there a difference between early reviews and references to the book in later years. Trace the ‘history’ of the book by outlining
a) which book reviews appeared in what journals and how they evaluated the book. Was there consensus about its quality or were there differences of opinion? (check at the Book Review Digest and the Book Review Index in the library); and
b) how often a book has been referenced since its publication (check Social Science Citation Index).
3. Relevance (4 pages): A discussion on whether or not this book is relevant to the study of public administration.

Format and Content of the Paper
1. General page format: The paper should be typed on 8,5 by 11-inch paper. Margins should be one inch on all sides of the paper. Select a font that is plain and easy to read such as Times Roman or Courier, 12 point type. Line spacing should be 1.5. Page numbers should start on the first page with text (hence the title page and the table of contents do not count as a page). Do not bind your paper or enclose it with a plastic cover. Place one staple in the upper left corner, or use a paper clip at the top of the paper. The paper should be about fifteen pages in length.
2. Title page: the following information will be centered on the title page:

Select a handbook/introduction of public administration from the list below and write a review of it. The student could pay attention to, for instance:
- the attention for topics specific to public administration proper and public administration expanded; what topics are addressed in the book?
- what educational level is targeted by the author: undergraduate or graduate; do you believe the author targeted his book properly? (pay attention to the fact that ideas about what a good introduction/handbook is may vary over time);
- how is the study of public administration presented: as eclectic or as unified?;
- publication history: how many editions/printings, are there differences between first and last editions?
- is there a dominating disciplinary focus: e.g., law, economics, sociology, political science etc.
- background of the author: educational background, publishing history, etc.;
- strengths and weaknesses of the book: in general but also in relation to our time.
The student will decide the sequence of sections; the paper format is the same as for the assignment b. book review.

- Caiden, Gerald E. (1971). The Dynamics of Public Administration: Guidelines to Current Transformations in Theory and Practice. Hinsdale: Holt, Rinehart and Winston Inc.
- Dimock, Marshall, Gladys Dimock, Douglas Fox (1983). Public Administration. New York: Holt, Rinehart and Winston Inc.
- Dubnick, Melvin J., Barbara S. Romzek (1991). American Public Administration: Politics and the Management of Expectations. New York: MacMillan.
- Garvey, Gerald (1997). Public Administration. The Profession and the Practice. A Case Study Approach. New York: St. Martin’s Press.
* Gaus, J.M. (1947). Reflections on Public Administration. University, AL: The University of Alabama Press.
* Gladden, E.N. (1966). An Introduction to Public Administration.  New York: Staples Press.
- Gordon, George J., Michael E. Milakovich (1998). Public Administration in America. New York: St. Martin’s Press.
- Henry, Nicholas (1999). Public Administration and Public Affairs. Upper Saddle River, NJ: Prentice Hall.
* Hill, Larry B., F. Ted Heber (1979). Essentials of Public Administration. A Text with Readings. North Scituate, MA: Duxbury Press.
- Kass, Henry D., Bayard L. Catron (eds.) (1990). Images and Identities in Public Administration. Newbury Park, CA: Sage.
* Lynn, Naomi B., Aaron Wildavsky (eds.) (1990). Public Administration: The State of the Discipline. Chatham, NJ: Chatham House Publishers.
* Marx, F. Morstein (1946). Elements of Public Administration. New York: Prentice Hall.
- Nigro, Felix A., Lloyd G. Nigro (1989). Modern Public Administration. New York: Harper & Row.
- Perry, James L. (ed.) (1996 [1989]). Handbook of Public Administration. San Francisco: Jossey-Bass Publishers.
* Peters, B. Guy, Jon Pierre (eds). (2003). Handbook of Public Administration. London: Sage Publications.
* Pfiffner, J.M., R. Presthus (1967). Public Administration. New York: Ronald Press Company.
- Rabin, Jack, W. Bartley Hildreth, Gerald D. Miller (1998). Handbook of Public Administration. New York: Marcel Dekker.
* Rosenbloom, David H., Deborah D. Goldman (1989 [1983]). Public Administration: Understanding Management, Politics, and Law in the Public Sector. New York: Random House.
- Sharkansky, Ira (1978). Public Administration: Policy-Making in Government Agencies.  Chicago: Markham Publishing Company.
* Shafritz, Jay M., E.W. Russell (2003, third edition). Introducing Public Administration. New York: Longman.
*  Simon, Herbert A., D.W. Smithburg, V.A. Thompson (1970 [1950]). Public Administration. New York: A.A. Knopf.
- Starling, Grover (1986). Managing the Public Sector. Homestead: The Dorsey Press,
- Stillman, Richard J. II, (1992 or later edition). Public Administration. Concepts and Cases. Boston etc.: Houghton Mifflin Company.
* White, Leonard D. (1939 [1926]). Introduction to the Study of Public Administration. New York: MacMillan.
* Willoughby,  W.F. (1927). Principles of Public Administration. Washington, D.C.: The Brookings Institution.

The student will have to develop a public administration curriculum that includes both the undergraduate and the graduate level. This paper shall have two parts:
- Part 1 (10 pages): A complete curriculum of public administration, including:
a) a series of classes/courses from the elementary up to the advanced level;
b) attention for the intellectual foundations of such a curriculum, e.g.:
- should the curriculum be developed on the basis of an inductive or of a deductive approach? (this addresses the question whether or not there is a ‘core’ to the field; an eclectic or a holistic approach);
- how will theory and practice be balanced? (this addresses the tension in the study between the need for theoretical background as well as for practical skills);
- how will theoretical and practical knowledge be balanced with methodological skills (this addresses the tension between skills for academic research and practical skills);
- how will public administration proper, public administration expanded, and ‘auxiliary’ courses be balanced? (this addresses the degree to which understanding of public administration and government requires course work in other academic disciplines);
- Part 2 (10 pages): Two detailed syllabi for two totally different courses in terms of subject matter (one for undergraduate students, one for graduate students) selected from the generic curriculum developed in part 1 (5 pages each), including:
- brief course content
- course objectives
- course program: from week 1 to week 15 (pay attention for desired frequency of class meetings)
- course methods: lectures by instructor, plenary discussion, Argue why particular methods would serve the course objectives;
- course assignments: student presentation, research paper, observation paper, mid-term and/or final exam, pop-quiz, independent literature study etc.
- literature: argue also why you would opt for a comprehensive book, a number of books, a reader etc.
p.s.: the student could select two courses of which the assignment(s) would benefit his/her research.