PADM 6490 Seminar in Politics of Administration
Summer term, 2014
Instructor: A.-M. Rizzo, Ph.D.
Department of Public Administration
Office: Suite F, 4th floor, TSU Avon Williams Campus
Phone: 615 790 3015
Email: [email protected] or [email protected]
Catalog Description This seminar addresses the ways in which parties, political action
committees, interest groups, legislators, the courts, other agencies and professional groups
shape administrative action, public policy and organizational structure(s). Required for the MPA
(3 credits)
Introduction
This course is one of the first you should take in the Master’s of Public Administration program.
It is a required or “core” course in the MPA program. This course might be viewed as a
companion to or an extension of the introductory Seminar in Public Administration (PADM
6210). Approaching this course we assume you have at least a rudimentary background in
American government to appreciate the Constitutional and legal foundation of this course. But
generally speaking, if public administration can be captured as a field examining systems, policy
and politics, this course tackles the latter material. Public administration cannot be thoroughly
understood without fully appreciating how much politics is part of the job. As Dwight Waldo
(and John Gaus before him) notably said, public administration is politics.
As we consider this subject throughout this course, students must be open to regarding politics
and issues of power in a neutral, objective, non-ideological manner. I say this because
although partisan politics is now part of our national dialogue and the subject of much media
scrutiny, bureaucratic politics are much more deeply rooted and complex. We will consider
politics using a macro-institutional approach as well as from the personal or individual public
servant’s vantage point.
So, what will we cover this semester? We will explore two sets of objectives this term.
Course Content
Individuals preparing to enter the public service or government in any capacity should
understand it at two levels. Certainly the history of American government and its roots in the
Constitution and the law provide the foundation for how and why we have checks and
balances, separation of powers and a federal intergovernmental system. How this system
works is a main focus of this course and is addressed through the following material.
1. The Institutional-Structural Framework of Bureaucracy is conveyed through the
literature concerning:
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The Constitutional-legal and structural foundations of American government
The bureaucrat’s role in government and how to relate to other actors, other
institutions, i.e. a macro system approach to politics
Types of public officials including bureaucrats, political and elected: their motives,
interests, resources
Types of bureaus
Types of public policies and the institutional relations which create and sustain them
Common situations for political gamesmanship
The importance of rules and rulemaking
Legislative, executive and judicial oversight of bureau activities
If we were to prepare students solely with information about how American government
operates without attention to his or her place in it, we would be negligent. To rectify this, the
course spends some time relating what individuals must understand about personal political
strategies in the government workplace. Much of the research and literature in this area,
interestingly, spans sectors. It is not so much that politics is absent in business but it assumes a
different character there. Occasions for competition or exercising power tend to focus on
profit, not a larger share of the budgetary pie. Turf protection and autonomy are not as critical
as the “bottom line.” Competitors tend to be others in the same business or market, not all
others in the same sector and level of government. These conditions aside, all managers
irrespective of sector need to work with authority issues, professional values, competition,
empire builders and conflict. But in government these issues must take precedence. While
neophytes might expect politics to be in the background, they occupy the foreground. In
government agencies you cannot accomplish tasks or complete work without engaging in
politics at some point in the process. And so, we devote some time to the following concerns.
2. Personal Politics in the Workplace
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Your personality type, political skill, power stances, beliefs about politics will be
explored through inventories.
Bureaucratic politics at this level focus on the student as the center of the situation, i.e.
a micro system approach
Teaching Philosophy:
The instructor’s role as I see it, is to serve the self-directed, responsible graduate student as a guide,
facilitator and coach. Each class I will present you with important
questions to help you focus your learning. If you are diligent in your studies, you will discover the
subject through reading, exercises and activities. However, bear in mind that in most respects this on
line course is at best an independent reading course. Your success in learning this subject depends
largely on your ability to be responsible for and take charge of his/her own learning. In any class taught
partly on line such ownership is crucial. In a required MPA course, it will be essential if you are to
succeed. Ultimately I want this course to assist you to develop your own theory about how
organizations work and evolve as well as understand your political style and how this provides a
“window” on public organizations. Your political style and perspectives on government and the
bureaucracy learned through this class should help you to manage, strategize and influence public
organizations as an employee.
Course Audience
This course is intended for Master’s students, Ph.D. in public administration students deficient
in the field’s foundation, or other graduate students interested in the subject.
Students admitted to the Master of Public Administration program should expect that this
course to assist them in navigating the fascinating world of administrative politics, also known
as bureaucratic politics. In this course some terminology will be a little different. Bureaucracies
and bureaucrats will not be employed as pejorative terms. We will never refer to bureaucrats
as “pointy headed” in this class! While common parlance - or Rush Limbaugh - may stereotype
bureaucrats, we will utilize the term to refer to public administrators employed by government
agencies. Most but not all public servants belong to civil service (political appointees are
exceptions; the state of Georgia has done away with civil service classification, etc.). In any
case, for general purposes in this course the bureaucracy, the public administration, public
service are equivalent concepts. The term bureaucrat is used interchangeably with public and
civil servants; public administrators and public managers are the same, and so on.
Students beginning the MPA are always encouraged to complete PADM 6210 the Seminar in
Public Administration in their first semester of the program. This preparation adequately lays a
comprehensive and thorough foundation for PADM 6490 Seminar in Politics of Administration.
With a little work however, first term students or those lacking 6210 background can acquire
mastery of this subject matter without difficulty.
Prospective MPA students – those wishing to enter the Master’s program in future – may take
this course to discover whether public administration is a good fit in terms of their career
choice or advanced degree program. Business, education or other graduate students may
want to discover the field and enrich their understanding about public agencies and how they
contribute to the economy and society.
Students admitted to the Ph.D. in Public Administration lacking the MPA would be well advised
to take this as a preparatory elective as it outlines the field. As such, it should be taken prior
to enrolling in the doctoral equivalent: PADM 7220. A caveat is in order however: the career
or professional nature of the MPA degree means that PADM 6490 better addresses that
audience’s needs and not those of future academicians and scholars. Additional reading,
research and preparation will be required to command the American government canon at an
advanced level.
Instructional Methodology
PADM 6490 is an on-line course with lectures, reading and case study exercises taught each
class on eLearn. Students are expected to be prepared and informed participants in class
discussion whether they occur on line or in person.
Because the course relies on thorough acquaintance with the eLearn course management
system, it is incumbent upon students to master its tools. All assignments - discussion
postings, homework – will be posted using either the Discussion board or the eLearn drop box.
Therefore it is imperative that students learn how to use them. By all means I encourage you to
complete the Desire2Learn Orientation offered to you. It will help you progress through the
semester much quicker and learn more effectively.
Learning effectively on-line will require different skills from on campus classes. At a minimum,
the competent on-line student:
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Is a self directed learner. This means the student believes he or she is responsible for
learning the course subject matter. S/he checks progress in the course, attends to
deadlines, takes initiative to remedy deficiencies, misunderstandings and requests
feedback from the instructor
Is responsible for reading and understanding the syllabus and other guidelines for the
class, assignments, timelines, emails, etc. The response “I didn’t read the
deadline/instructions/my email concerning this” is not an acceptable excuse.
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The instructor will be contacting you using your mytsu address. If you choose not to
check your mytsu email, the onus is on you!
Knows how to schedule and creates a study routine, pacing him or herself to complete
work in a timely manner
Checks frequently with the course homepage and offers feedback to the instructor as
needed
Submits assignments on time
Reviews course material routinely
Takes notes and can summarize a discussion
Is well prepared for on-line discussions, speaks informatively and expresses points
relevant to the discussion
For further information, please consult
http://www.clt.odu.edu/oso/index.php?src=lo_effective
Please note: If for any reason you find that the server is not functioning or the drop box is not
receptive, make sure you email the assignment to me at [email protected] to avoid
rejection of the assignment due to lateness. Because such events can occur at any time it is
advisable to post early to avoid penalties.
Course Objectives:
At the end of this course the successful student will be able to:
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Describe how the U.S. Constitution, the law and government structure frames the
context in which bureaus and bureaucrats operate
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Discuss the legislative, executive, judicial and interest group influence on bureau activity
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Explain types of bureaus/public agencies common in the American system
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Describe types of public policies in the U.S. political system and the structural
arrangements essential for each
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Describe types of public officials, their motives and perspectives
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Describe environmental conditions, resources, authority and other elements which
constrain as well as advantage bureau action
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Discuss the impact of professionalism, expertise and political neutrality on bureaucratic
behavior
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Explain the importance of rules and rulemaking as well as the five types common in
American government
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Describe models for bureau reform and the significance of bureaucratic accountability in
the public administration’s effectiveness
Required Texts:
These textbooks have been ordered through the TSU Avon Williams bookstore. However,
please note that many articles required for the course are published on line at the eLearn
course site. The course cannot be completed without accessing those readings as well.
Ripley, Randall B. and Grace A. Franklin, Congress, Bureaucracy and Public Policy. Brooks/Cole
Publishers: ISBN 0-534-14454-3. Fourth edition or later is preferable. Since this book is now
out of print, the book store was only able to locate used copies. These you can locate yourself
at bestbookbuys.com or another reputable source at a reasonable price. So, to enable you to
discover this classic work, chapters from Ripley and Franklin used in this course have been
photocopied and placed in relevant modules. They’re better than nothing…
Wilson, James Q. Bureaucracy: What Government Agencies Do and Why They Do
It. Basic ISBN: 0-465-00785-6.
Course Requirements:
Written Assignments (9)
Discussions (8)
45 points
25 points
Quizzes (2)
30 points
Total
100 points
Written Assignments: (45 points total)
There are 9 assignments that the student will be required to complete.
The assignments are organized along with the assigned readings for that
week. You are to answer the questions in your own words. Do not rely on
quotations from the readings. I want to see what you interpret, how you make
sense of the reading. I already know what the author(s) wrote: what lessons do
you draw? You will be evaluated in terms of how insightful your lessons are and
how succinctly you express them.
Rather than wait until the end of the semester when the Reading
Assignment is due – in one document, it is recommended that you
complete these assignments as you work your way through the readings.
You are encouraged to work at your own pace as follows. Check the
assignment section each class to see the written assignment to
accompany the readings for that class. The written assignment relates to
the reading for that week. Each assignment carries a maximum of five (5)
points of your final grade.
These written assignments should be submitted as one document in the
eLearn drop box by the stated deadline. Please submit using Word
software.
The assignments are to be submitted via the eLearn drop box on or
before the semester deadline. If the dropbox fails for technical reasons,
send the assignment as an attachment to the instructor’s email. This
advice however only applies when the drop box encounters server
problems; all deadlines still apply. Because technical difficulties can
occur at any time, I strongly advise you to post early. Email should only
be used as a back-up system if the drop box fails due to technical
reasons.
Discussions (5 top grades; 5 points each = 25 points total)
The instructor believes that subject matter is best learned when
examined, critiqued and analyzed. Discussions are one method of
accomplishing this. Eight discussions will occur during the term with five
points maximum credit attached to each of the top five grades. Please
check the Discussion icon every on-line class period for assignments.
Please note that if you miss a discussion deadline, the discussion cannot
be “made up” via email to the instructor. The purpose of discussions is to
share information, viewpoints and ideas with the class on a chosen topic.
This must occur in cooperation with other students within a given time
frame. For this reason as well as others, it is imperative that you
maintain access to eLearn throughout the course.
Quizzes (15 points each; 30 points total)
From four to five quizzes will be available throughout the semester.
These will usually be short essays or multiple choice. The top two grades
earned will each be worth 15 points will test student mastery of the
subject to date. They will be scheduled with advance notice and offered
during a specific time frame. The student can choose when to take the
quiz within that time frame. He or she will have only one opportunity to
take the quiz.
Final Grading Scale: A = 100 – 90; B = 89 – 80; C = 79 – 70; D = 69 – 60; F = below 60.
Classroom Civility:
In an online course, expectations about civility will differ from the traditional classroom.
Students will still be expected to follow all University rules regarding language and behavior,
and in all other matters. TSU’s Code of Conduct includes discipline for acts of personal
misconduct such as lewd, indecent or obscene conduct or threats of indecent or inappropriate
acts. Please consult the TSU Code of Conduct and Disciplinary Offenses section in the TSU
Student Handbook for more complete information.
Please consult The MPA Student Handbook online or in print for additional information
concerning conduct, advisement, admissions, graduation and the program as a whole.
Academic Integrity
Tennessee State University expects all students to conduct themselves with honesty and
integrity. This means that you will not cheat and you will not help others in doing so.
Whenever you submit as your own work that which originates from another, whether the other
is a published source, a friend, or a paper archive, you commit a serious violation of academic
integrity known as plagiarism (Wilde, 2008, p. 4).
The Department reserves the right to discipline students for cheating, plagiarism, fabrication,
violation of University rules and otherwise contributing to academic misconduct. As the
instructor, I will attach severe penalties to any cheating or plagiarism I discover: this includes
assigning a grade of “F” for the course and placing a letter in your student file about the
incident. You can be accused of plagiarism after you have completed a course, so you should
never pass your papers on for others to use. Remember: a student who provides answers or a
paper for another to use is just as guilty of cheating as the user. Consequently, if I discover that
your paper, or another similar to it, has been submitted by another student in another class,
you can be found guilty of plagiarism.
Acts of plagiarism warrant special mention. Students are especially warned against
(www.tnstate.edu/11p/promoting academic integrity. htm, p. 2):
1) Copying the work of others on tests or assignments;
2) Copying without quotation marks and appropriate documentation from original sources;
3) Paraphrasing factors or ideas of an author without appropriate citation.
For information on proper form as well as what not to do, one good place to begin is:
www.georgetown.edu/honor/plagiarism.html This homepage contains a dazzling array of
rationales for why plagiarism is not only dishonest, unprofessional and in some cases,
prosecutable . Please pay special to the section on “Examples of Plagiarism” Avoid these! The
TSU Undergraduate Catalogue section on “Academic Misconduct” As the TSU Student
Handbook makes clear (see p. 16), penalties for plagiarism and other academic dishonesty
range from a zero on the assignment to failure in the class.
Students with Special Learning Needs
If you believe you need special accommodations to conduct your course work, contact Ms.
Patricia Scudder, Director of Students with Disabilities, Disabled Student Services office, at 615
963-7400, preferably before the second class meeting. The Department of Public
Administration, in conjunction with the Office of Disabled Student Services, makes reasonable
accommodations for qualified students with medically documented disabilities. The instructor
must be aware of your status if it will affect your class activities and assignments before
assignments are due.
Course Schedule***
Please refer to the schedule provided at the eLearn course Content link. Readings in the
required books are listed first followed by readings available at the eLearn course site.
*** Note: Because this course is open to PhD as well as MPA and other
graduate students, readings recommended for PhD and those interested are
indicated by italic print. Master’s students are required to read only the
assignments indicated in regular type.