| 머리말 This text is an extended and edited version of the original textbook titled ‘Public Administration: An Introduction (M.E. Sharpe, 2011)’ by Marc Holzer and Richard Schwester.
Unlike previous public administration textbooks, this book focuses on a dynamic learning system rather than a static volume. This has made this textbook received very well by students, scholars and practitioners in the public sector. In the meantime, there have been a growing number of requests among students, scholars, practitioners to share foreign countries’ government experience and further develop a stronger and more effective model for effective public administration on a global context.
Public administration, in general, deals with the role of the public sector and seeks effective solutions for social problems at the same time. As social problems are intertwined and complicated in nature, to search out effective solutions for specific situations in a country presents a great challenge to public managers. In this difficult situation, the most effective, enduring way to provide high performing solutions is to benchmark against what other governments or countries have done in similar situations. Of course, different contextsand cultures have to be considered in order to make realistic decisions. It is to be noted, however, that diagnosing current public sector situations and pondering over specific solutions certainly require public managers to view all problems from a comparative perspective. Effective public mangers should see social problems from viewpoints both of unique situations and comparative perspectives. They have to understand what has been learned from other governments’ cases before they reach a final decision on their own case.
Our public sector environments are rapidly changing, thereby forcing public managers to make accurate and speedy decisions, which is very difficult in nature. However, to adapt to the change of environment and survive, public sector managers should put on multiple lenses with which to view social phenomena. They have to be equipped with knowledge of multiple cases in order to precisely diagnose and solve social problems. The starting point is that we need to learn what other countries (governments) have done and have been doing in similar situations.
This textbook is a response to requests from practitioners in the field. Although the importance of a comparative perspective in the field of public administration has often been overlooked for the past few decades, we still believe that comparative perspectivesare a necessary first step to under-
standingpublic administration phenomena and identifying effective solutions.
While introducing and discussing American public administration issues, this textbook provides critical views of parallel Korean public administration issues for each chapter. In this regard, not only will students and practitioners be able to more deeply understand their own countries’ public sector issues, but they also will be able to improve and extend their knowledge of effective solutions based on lessons learned from different countries’ experiences. From this perspective, this book is for both American and Korean students studying public administration at the initial stage.
While there have been many public administration textbooks in the field (both in Korean and in English), there has been few books introducing public administration issues from a comparative perspective based on the two countries.
American public administration has been the mainstream in the field, and thus has had great impact on other countries’ public administration throughout the world. In the meantime, Korean public administration, although its modern history is relatively short, has rapidly grownin terms of practical solutionsand theoretical implications in the field.
Tradition, cultures, behaviors, and attitudes that Korean public administration is based on are different from what American public administration is based upon. However, there are also many similarities between the two countries.
We hope that this textbook will serve as a main basis for sharing different experiences and discussing effective solutions among students, practitioners, and scholars between the two countries.
This book could not have been completed without the assistance of a number of dedicated individuals. In particular, we wish to thank Taehee Kim, Soojin Kim, and Mirae Kim, who are doctoral students at Rutgers-Newark, for their tremendous efforts to collect Korean cases and data for this book.
Special thanks go to Mr. Choonhwan Lim, President of Daeyoung Moonhwasa Publisher, who supported us to publish this volume in Korea and Harry Briggs, Executive Editor of M.E. Sharpe, who helped us start reworking the original book published in the US from a comparative perspective.
Finally, we always are indebted to our famillies,-Madeleine Holzer, and our sons, Ben and Matt and his wife Wendy; my wife Serena and my mother Judith; Kyung-Yeon, and our sons, Joshua and Donghyun-who patiently tolerated our compulsive attention to this effort.
Marc Holzer,
Richard W. Schwester
Seok-Hwan Lee 차 례 CHAPTER 1 Public Administration: An Indispensable Part of Society 2
Government Requires Resources 4
What Do We Get for All of These Resources? 13
How Government Is Organized to Deliver Services 15
How Government Serves Others 19
What, Then, Is Public Administration? 31
History of Korean Public Administrationand Central Government 33
Comparing Government’s Organizational Chart 33
Comparing Total Government Expenditures 34
Comparing the Composition of Social Insuranceand Retirement Receipts 34
Comparing Total Government Receipts 35
Comparing Total Government Receipts by Source 36
Comparing Government Employment and Percentage of Population 36
Comparing Military Spending as a Percentage of Total Budget 37
Key Terms 39
References 39
Supplementary Readings 41
Electronic Resources 42
Case Studies 43 CHAPTER 2 Organizational Theoryand Management 54
Theories of Managerial Efficiency 56
The Classical Management Movement 56
The Neo-Classical School 64
The Human Side of Organizational Management 69
Contemporary Organizational Theories 75
Structural Theory 75
Systems Theory 78
W. Edwards Deming and Japanese Management 78
Organizational Economic Theory 83
Organizational Culture 84
National Performance Review 85
Understanding Different Cultures and History
between the Two Countries 87
Comparing Different Cultures between the Two Countries 87
Different Nations, Different History 89
Key Terms 99
References 99
Supplementaty Readings 102
Electronic Resources 102 CHAPTER 3 Managing Human Resources 104
Human Resources Management 106
Productive Human Resource Management 108
Cultivating and Maintaining a High-Quality Diverse Workforce 111
Creating a Quality Work Environment 147
Different Motivational Bases between the Two Countries 152
Key Terms 157
References 157
Supplementary Readings 161
Electronic Resources 161 CHAPTER 4 Public Decision Making 162
How Decisions Are Made 164
The Nature of Decision Making 164
Theoretical Models of Decision Making 171
Dysfunctions in Decision Making 187
Reaching Consensus When People Have Different Valuesand Interests: Does National Culture Matter? 196
Key Terms 200
References 200
Supplementary Readings 201
Electronic Resources 201 CHAPTER 5 Politics and Public Administration 202
The Intersection of Politics and Administration 204
Reform and Neutrality 204
The Reality of Bureaucratic Politics 206
Checking Bureaucratic Discretion 211
Checks and Balances: Are They Good Intentions toSupport Government? Or Do They HamperGovernment Performance? 225
Key Terms 227
References 227
Supplementary Readings 228
Electronic Resources 228
Case Citations 229 CHAPTER 6 Intergovernmental Relations 230
The Layers of Government 232
The Idea of Federalism 232
Interlocal Shared Government 234
Improving Performance via Intragovernmentaland Intergovernmental Competition 240
Shared Service among Local Entities: Would both Countries Suffer from the Same Problems? 247
Key Terms 249
References 249
Supplementary Readings 251
Electronic Resources 251 CHAPTER 7 Public Performance 252
Improving Government Performance 254
The Importance of Knowledge Sharing and Training 254
Total Quality Management: Customer Focus and Responsive Public Organizations 255
Issues in Organizational Responsiveness 259
Measuring Performance to Improve Performance 266
The Role of Privatization in Government Performance 285
UOFO (Unreasonable Objectives-focused Organization):Working beyond Boundarieson the Organizational Chart 286
Key Terms 288
References 288
Supplementary Readings 292
Electronic Resources 292 | CHAPTER 8 Program Evaluation 294
What is Program Evaluation? 296
How to Collect Empirical Data 297
Conducting Evaluations and the Importance of Stakeholders 302
Ethical concerns 318
Complexity of Program Evaluation:Can We Control Exogenous Variables? 320
Key Terms 322
References 323
Supplementary Readings 324
Electronic Resources 324 CHAPTER 9 Public Budgeting 326
Budgeting Process 328
The Federal Budget Process 328
Types of Budgets 331
Where Do Governments Get This Money? 343
Theories of Budgeting 346
Performance, Budget and Politics Relationship: What is Right?/What is Wrong? 351
Key Terms 355
References 355
Supplementary Readings 356
Electronic Resources 357 CHAPTER 10 Public-Sector Leadership 358
Leading People 360
Management Functions 360
Prevailing Leadership Theories 367
Types of Leadership Power 382
Organizational Culture and Different Leadership Styles 387
Key Terms 391
References 391
Supplementary Readings 392
Electronic Resources 392 CHAPTER 11 Ethics and Public Administration 394
Administrative Ethics 396
What Are Ethics? 396
Bureaucracy and Ethics 400
Formal Rules and Bureaucratic Discretion 409
Corruption Levels and Cultural Difference 416
Key Terms 419
References 419
Supplementary Readings 420
Electronic Resources 421 CHAPTER 12 Technology andPublic Administration 428
High Tech Government 430
Technology Organization 433
The Network and Its Security 434
Knowledge Management 438
The Basics: Database Evolution 438
Convergence and Innovation 441
The Connected Society: Trends andOpportunities Facing Public Managers 443
E-Government and Citizens’ Willingness to Move 461
Key Terms 465
References 465
Supplementary Readings 468
Electronic Resources 469 CHAPTER 13 Public Service andPopular Culture 470
Public Servants 472
The Image of the Public Servant 474
The Real Public Servant 476
Capturing the Attention of Youth 488
Public Information 492
Networks and Professional Organizations 493
Images of Public Servant and Current Situationin Korea 496
Key Terms 499
References 499
Supplementary Readings 503
Electronic Resources 504 CHAPTER 14 The Future of Public Administration 506
The Evolution of Public Administration 508
Governance Networks 508
Performance Measurement 511
Citizen Participation 516
Globalization: The Internationalization of Public Administration 519
E-Governance 522
Transparency 527
Key Terms 529
References 529
Supplementary Readings 532
Electronic Resources 533
Case Studies 533 Index 534 |
저자약력 Marc Holzer, PhD
Dean and Board of Governors Professor
School of Public Affairs and Administration
Rutgers University-Newark, New Jersey Richard W. Schwester, PhD
Associate Professor
John Jay College of Criminal Justice
The City University of New York(CUNY) Seok-Hwan Lee, PhD
Professor
Public Administration and Public Policy
Kookmin University, Seoul |
