PAD 6108
Fall, 2017

David Hedge
Office:  218 Anderson
Phone:  273-2367
Course Web Page:
Office Hours:  M,W 9:00-10:30 and by appt

Course Objectives

 PAD 6108 is an introduction to public bureaucracies and the people who study them.  Over the next few weeks, we will examine many of the major writings and analyses on bureaucracy, primarily as it operates in the U.S. Students should leave the course with a sense of  a)  some of the ethical, political, and administrative issues faced by public administrators and their superiors;  b) how (and why) bureaucracies operate in America; and c) how bureaucracies interact with the larger political and private environments in which they serve.

Course Premises

 The course proceeds off a number of assumptions concerning the role of the administrative sector in society.  In Democracy and the Public Service (1968: 1),  Frederick C. Mosher maintains that:

 1.  governmental decisions and behavior have tremendous influence upon the nature and development of our society, our economy, and our policy;

 2.  the great bulk of decisions and actions taken by governments are determined or heavily influenced by bureaucratic officials, most of whom are appointed, not elected;

 3.  the kinds of decisions and actions these officials take depend upon their capabilities, their orientations, and their values; and

 4.  these attributes depend heavily upon their backgrounds, their training and education, and their current associations.

In addition, recent research and analysis suggest a fifth premise:

 5.  the actions and behaviors of administrators and bureaucracies are also conditioned (albeit imperfectly) by their larger political and economic environment.


 Class time will be spent reviewing the week's readings.  While the readings are often extensive, I expect them to be read (and on time) and I expect you to be prepared to summarize, critique, and draw implications from each of the assigned readings (you will be asked to write a brief 1-2 page reaction paper most weeks). My role will simply be to guide the discussion.  I do not intend to lecture.

 Both the midterm and final paper require you to synthesize some of the major analysis in the field (more on this later).  In addition, you will participate in a group project that examines a particular policy/administration situation.  Each student will also participate in a classroom debate.  Both of the latter exercises entail a written and oral component.

 Grades are apportioned as follows:

  35% -- Final Paper
  35% -- Midterm (take home)
  15% -- Group Project
  15% -- Class Discussion (including reaction papers) and Debate

 Late papers/assignments are accepted only in rare and deserving cases, at the discretion of the instructor, and subject to a grading penalty.  I normally do not give incompletes.

Students are expected to comply with UF's Academic Honesty GuidelinesStudents who commit an act of academic dishonesty will suffer the appropriate sanction.

The Course Web Page

I have created a web page for this course at the address listed above.  It includes this syllabus and other information about the course.


 Charles T. Goodsell,  The New Case for Bureaucracy CQ Press, 2015.

 Herbert Kaufman,  The Forest Ranger Baltimore, Maryland: John Hopkins University Press, 1960.

 Marissa Golden. What Motivates Bureaucrats? Politics and Administration During the ReaganYears. New York:Columbia University Press, 2000.

  Additional readings have been placed on reserve ® in the graduate student room on the 3rd floor of Anderson Hall and others are available through JSTOR.

Course Outline, Schedule, and Readings

OVERVIEW (4 weeks)

August 22-- Introduction to the Course

 August 29-
The Case for (against) Bureaucracy

     Charles Goodsell. 2015.  The New Case for Bureaucracy.  ALL

September 5-- Theories of Organizations:  The Classics

    David H. Rosenbloom. 1983. "Public Administration Theory and the Separation of Powers."  Public Administration Review.  (May, June):  219-227. JSTOR

     Brian R. Fry. 2008.  "Introduction." Mastering Public Administration.  (Chatham House) pp. 1-14.  ®

     Nicholas Henry.  1989.  "The Threads of Organization Theory." in Public Administration and Public Affairs . ®

     Brian R. Fry. 2008.  "Max Weber." Mastering Public Administration . pp. 15-46. ®

 September 12 -- Theories of Organizations:  Recent Classics

   Terry M. Moe. 1984.  "The New Economics of Organization."  American Journal of Political Science.
   28:739-777. JSTOR

    Brian Fry.  2008.  "Herbert Simon:  A Decision Making Perspective." Mastering Public Administration. pp.
    181-217. (®


September 26 -- The Individual and the Organization

    Selden, Sally. 1997. Chapter 1, pp 3-9 and Chapter 3 in The Promise of Representative Bureaucracy. Armonk NY: ME Sharpe.

    David M. Hedge, Donald C. Menzel, and George Williams. 1988. "Regulatory Attitudes and Behavior: The Case of Surface Mining Regulation."  Western Political Quarterly. 44: 323-340. ® & JSTOR

    Michael Lipsky. 1976.  "Toward a Street-Level Bureaucracy." in Hawley et al., Theoretical Perspectives on Urban Politics . (Prentice-Hall).  ®

    Harold Gortner etal.  1997.  Chapter 8, "Work Motivations."  in Organization Theory, Wadsworth.

    Sanford Schram, Joe Soss, Richard Fording, and Linda Houser. 2009 "Race, Choice, and Punishment at the Frontlines of Welfare."  American Sociology Review.  74: 398-422.
    Keiser, Lael.  2010.  "Understanding Street Level Bureaucrats Decision Making,"  Public Administration Review. 70 (02) pp.247-57JSTOR

October 3 -- The Individual and the Organization

     Herbert Kaufman. 1960.  The Forest Ranger . ALL.

     Terry J. Tipple and J. Douglas Wellman. 1991.  "Herbert Kaufman's Forest Ranger 30 Years Later:  From
   Simplicity and Homogeneity to Complexity and Diversity."  Public AdministrationReview.  pp. 421+. JSTOR 

          Debate # 1 (Affirmative Action)

    Resolved:  State and local governments should be required to vigorously pursue affirmative action efforts on behalf of women and minorities     including hiring quotas and minority set asides.

October 10-- The Structure of Organizations:  Hierarchy and it Alternatives

    Gortner et al.  Chapter 4, "Organizational Structure and Design."   Organization Theory. ®

     Karen M. Hult and Charles Walcott. 1989.  "Organizational Design as Policy Analysis."  Policy Studies
  Journal.  pp. 469-494.  JSTOR

    Debate #2  (Drug Testing in the Workplace)

    Resolved:  Public employees should be subject to drug testing as a condition for the receipt and maintenance of employment.

October 17 -- The Structure of Organizations:  Going Outside the Public Sector

     John E. Chubb and Terry M. Moe. 1988.  "Politics, Markets, and the Organization of Schools."  American
  Political Science Review .  82:1065-1089. JSTOR

    Demetra Nightingale and Nancy Pindus.  1997.  "Privatization of Public Social Services."  Urban Institute.

   Carol Da Vito and Sarah Wilson. 2001. "Faith-Based Initiatives:  Sacred Deeds and Secular Dollars."  Urban Institute

   Donald M. Van Slyke. 2003. "The Mythology of Privatization in Contracting for Social Services," Public Administration Review,  (May/June)  63: 296-315. JSTOR

   Jonathon G.S. Koppell. 2003.  Ch. 1-3.  The Politics of Quasi-Government  Hybrid Organizations and the Dynamics of Bureaucratic Control. Cambridge University Press.

        Debate # 3  (Privatization of the Schools)
    Resolved:  The state of Florida should adopt an expandd voucher system whereby parents can choose to send their children to the public or private school of their choice.

October 24 -- Midterm Due - No Class

October 31 -- Decision Making in Organizations

    Gortner et al. Chapter 7, "Organizational Decision Making." Organization Theory.  ®


November 7 - Bureaucratic Responsibility:  An Overview

    William Gormley. 1989. Chapter 1, "A Framework for Analysis," in Taming the Bureaucracy (Princeton University Press). @

    Barbara S. Romzek and Melvin Dubnik. 1987. "Accountability in the Public Sector:  Lessons from the
  Challenger Disaster."  Public Administration Review. pp. 227-238. JSTOR

    Michael Nelson. 1982. "A Short Ironic History of American National Bureaucracy." Journal of Politics .

November 14 --  Political Control of the Bureaucraccy

   Golden. What Motivates Bureaucrats? Politics and Administration During the ReaganYears. ALL                                 

November 21 -- No Class - Thanksgiving

December 5  -- Group Presentations

Monday, December 11 -- Final Paper Due