Power,policy and paperwork: The bureaucratic representation of interests

This article compares how five government documents evaluate a proposed dam in Central Arizona. One of the consequences of this dam would be to force a small Native American community from their ancestral land. Spanning almost forty years, these documents illustrate changes in how a federal agency legitimated these projects and their negative social impacts to different audiences. These records are used here to argue for the importance of careful textual analysis of bureaucratic paperwork, as an additional form of understanding the multiple dimensions of social, economic, and political power over disempowered groups.     

AGENCY GROWTH, SALARIES AND THE PROTECTED BUREAUCRAT

In contrast to numerous assertions in the literature on bureaucratic behavior that government employees seek to promote the growth of their agencies to increase their salaries, this paper offers empirical evidence indicating the absence of a significant positive relationship between agency growth and salaries. The impact of agency growth on salaries is estimated using a random sample of individual federal white-collar employees. Inspection of civil service rules reveals that most federal employees are highly insulated from fluctuations in agency staffing or budget appropriations. The existence of a highly protected bureaucracy raises questions about the control and performance of federal workers.     

Comparing Public and Private Sector Decision-Making Practices

Public and private sector decision making is studied with anexperiment. The study compares decision making in a tax-supportedgeneral purpose governmental agency with that done by a businessfirm selling to a market, using a simulation to capture differencesin the preferences and practices of mid-level managers workingin the two sectors. The simulation calls for participating managersto assess the risk and prospect of adopting budgets tailoredto match each sector. A cognitive culture that stresses analysis,speculation, bargaining, or networking is employed to fashiona budget appropriate for a public and a private sector organization,each with a controversial and a noncontroversial budget amount.The literature on public/private differences was consulted tomake predictions, suggesting that public sector managers wouldfavor bargaining and networking and private sector managerswould favor analysis and speculation. The cognitive style literaturesuggests that managers favor budgets constructed with an approachthat is consistent with their preferred cognitive style andsee less risk in the choice, except in a public setting whererisk would be unaffected. The study finds that private sectormanagers are more apt to support budget decisions made withanalysis and less likely to support them when bargaining isapplied. Public sector managers are less likely to support budgetdecisions backed by analysis and more likely to support thosethat are derived from bargaining with agency people.     

Agency costs,property rights,and the evolution of labor unions

Collective bargaining requires that an agent represent workers. This paper examines the implications for the trade union movement of the resulting agency costs. Without transferable rights in the union, union members lack the means and incentive to bring forth the innovative agent controls common to the modern corporation. Considerations of the bargaining strengths of employers and employees, each represented by an agent, provide an explanation of the simultaneous decline of private sector union membership (corporate share holders have been more successful at lowering agency costs) and growth of public sector union representation (where the union official, a “double agent,” serves the interest of both employee and bureaucratic employer). The authors acknowledge the helpful remarks Donald L. Martin whose earlier research on property rights in unions inspired this effort. Don Bellante’s work was supported by a grant from the Research Committee of the College of Business Administration, University of South Florida.     

THE EFFECTS OF NON-CLEARING LABOR MARKETS ON THE DEMAND FOR PUBLIC SPENDING

The median-voter model suggests the causal sequence: distribution → spending → bureaucracy, whereas the bureaucratic model proposes the chain: bureaucracy → spending → distribution. In the presence of labor-market distortions and underemployment labor contracts, we argue that an initial link must be added to each causal chain; namely, the excess supply of labor in the private sector. Empirical estimates of both the median-voter and bureaucratic models indicate that inter-country differences in per-capita public spinding are an increasing function of differences in wage rates.     

Private Provision of Infrastructure in Emerging Markets: Do Institutions Matter?

Governments in developing countries have encouraged private sector investment to meet the growing demand for infrastructure. According to institutional theory, the role of institutions is paramount in private sector development. A longitudinal dataset of 40 developing economies between 1990 and 2000 is used to test empirically how different institutional structures affect private investment in infrastructure, in particular its volume and frequency. The results indicate that property rights and bureaucratic quality play a significant role in promoting private infrastructure investment. Interestingly, they also suggest that countries with higher levels of corruption attract greater private participation in infrastructure.     

Public employee unions and the privatization of “public” services

Public sector unions are strongly opposed to contracting with the private sector for the production of goods and services. Economic theory indicates that because of incentives the private sector should be much more efficient that the public sector — a proposition verified for numerous activities of state and local governments. This paper examines evidence at the federal level to show that substantial cost savings can be achieved by contracting out in that sector as well.     

Union premiums in the federal and private sectors: Alternative evidence from job queues

Although traditional wage estimates indicate a larger union-nonunion differential in the private sector compared to that in the federal sector, the role of non-wage benefits is ignored in such comparisons. A job queue approach shows that premiums to unionized employment (in terms of both wage and non-wage benefits) are lower in the federal sector than in the private sector. This approach not only overcomes the limitations of wage studies in examining the relative superiority of union over nonunion jobs in both sectors, but also strengthens their conclusions through a more appropriate alternative method. The author thanks John Heywood, Neil Garston, Richard Roseman, and Miles Finney for helpful comments. I also thank the editor and the referee for extremely useful suggestions.     

Private placements in social work education: Opportunity or oppression?

This article examines the issues arising from student placements in the private or commercial sector. It focuses on private residential care for adults, as the most developed area of private provision in the UK, and explores the background to this form of provision. The article then considers the private sector placement from the viewpoints of the student, the private sector agency and the educational institution. A checklist for social work educators considering placements in the private sector draws together some of the key issues. The article ends with a discussion of the pragmatic, moral, logistic and educational perspectives which influence attitudes towards the private sector.     

ELECTORAL CYCLES AND THE EARNINGS OF FEDERAL BUREAUCRATS

This paper analyzes the relationship between the timing of federal elections and the pay raises received by civilian employees of the federal government. The theoretical framework discusses how electoral wage cycles are generated as a result of optimizing behavior on the part of voters, bureaucrats, and the government. The empirical analysis uses a time series of wage rates for the twenty-eight largest federal agencies over the period 1961–1978. The study indicates that pay hikes during the Presidential election year are significantly greater (about 2 to 3 percent higher) than bureaucratic pay raises in other years.     

Private child and family serving agencies: Implications of national survey results for policy and managerial practice

The national studies represented in this symposium provide the field with greater understanding of the nature of the private sector's role in child welfare and the complex interrelationships among organizational characteristics, inter-organizational dynamics, and external influences. Research findings from symposium papers are examined through the lens of a private agency manager and implications are derived for managerial practice and policy practice both within the private agency and in relation to public/private child welfare partnerships. Key managerial competencies that may be required to move agencies and the sector towards enhanced organizational performance and child welfare outcomes are discussed.     

MUNICIPAL GOVERNMENT APPROACHES TO SERVICE DELIVERY: AN ANALYSIS FROM A TRANSACTIONS COST PERSPECTIVE

Municipal governments are less likely to contract out for service delivery if citizen preferences for the service are heterogeneous. This conclusion is based on an analysis that extends to the public sector the empirical industrial organization literature on transaction costs and the "make or buy" decision faced by private firms. Service delivery practices for sixty-three municipal services are examined. The findings are consistent with the proposition that the cost for writing and monitoring contracts may be an important consideration in municipal service delivery approach and that bureaucratic supply may not be as inefficient as some previous studies indicate.     

Neo‐liberal reform,the public sector and Black–White inequality

In this article, we offer an overview and critical assessment of recent changes wrought by “new governance” reforms within public sector work, highlighting the implications specifically for Black–White inequality, and denote where further sociological analyses are warranted. These foci are important given the widely accepted—though hardly comprehensively examined—assumption that public sector employment remains a favorable “economic niche” for African Americans. Recent sociological research, including our own, suggests that this is likely no longer the case. The very structure and functioning of public sector work have changed owing to neoliberal agendas and reforms toward privatization over the last two decades, becoming less bureaucratic and increasingly mirroring processes and inequalities more traditionally characteristic of the private sector. We emphasize the consequences particularly for African Americans and call for deeper sociological analyses of public sector racial inequalities, processes, and their consequences.     

Chapter 16: Integration of Occupational Health Services in the Federal Sector

Abstract

Federal Occupational Health (FOH) is a federal sector model of the integration and collaboration of occupational health (OH) programs that includes on-site health clinics, and environmental health as well as EAP, work-life, and wellness/fitness programs. This article reviews several aspects of integration at various levels of this public health organization.

The broad objectives of occupational health programs are to promote, support, and provide a healthy and productive, highly functioning workforce to the employer. FOH staff has special expertise and knowledge related to federal procedures, regulations and agency culture, as well as the OH disciplines. With its mission to provide occupational health services to federal agencies and federal employees, FOH has the unique opportunity to provide integrated OH services, thereby providing a more comprehensive approach to the occupational health care of the individual employee, as well as a more comprehensive approach to the health and productivity efforts of the federal agencies.

Although we have made strides and engage in continuing efforts to promote integrated programs and care, a number of additional program enhancements are in discussion and/or in process. FOH is a unique entity and the largest provider of comprehensive OH services within the federal government. It has achieved some notable success with the integration of its services across various levels of the organization with different federal organizations. Efforts have been particularly successful in bringing a coordinated response to various crises and emergency situations. With increasing knowledge and data on the benefits of integration, FOH is working to reduce both internal and external organizational barriers to bring integration of services to their maximum potential.     

Sweet-Talking the Fourth Branch: The Influence of Interest Group Comments on Federal Agency Rulemaking

Students of politics have identified a variety of actors whoappear to influence the federal bureaucracy's implementationof public policy, including Congress, the president, and interestgroups. These lines of research, however, have often portrayedinterest groups as actors with indirect influence (who, forexample, work through or with Congress), rather than assessingthe direct influence of interest groups on bureaucratic policyoutputs. I conduct a test of direct interest group influenceby analyzing an original data set composed of 1,444 interestgroup comments in reaction to forty federal agency rules. Ifind, contrary to the expectations of the extant literature,that the formal participation of interest groups during rulemakingcan, and often does, alter the content of policy within the"fourth branch" of government. I conclude that those who voicetheir preferences during the notice and comment period rulemakingare often able to change government policy outputs to bettermatch their preferences.     

The future of public sector unionism in the United States

The future of nonpublic safety, non-teacher, non-federal public sector unions is bright. As a result of past success, the unions, led by AFSCME, have an organizing culture and sufficient power within the sector to maintain and increase density. However, the challenges that lie ahead in the 21st century will surely test the strength of AFSCME and the other public service unions. The large gains in public employee membership achieved in the last third of the 20th century are not likely to come with the relative ease with which they were achieved during that period. The remaining unorganized workers are in locations and occupations that have not been historically fertile ground for unions, public or private. In addition, the threat of privatization of jobs requires public unions to re-think their traditional strategies and organize in the more hostile private sector while simultaneously protecting the public sector from attacks. The public sector unions recognize that they have a tenuous grasp on their relatively strong position and must organize to maintain and strengthen their position. Absent dramatic changes in federal private sector labor law, and adoption of numerous public sector labor laws, the resources necessary for organization will be tremendous. The future is bright for the public sector unions only because they have demonstrated a willingness to adapt to change, make sacrifices, and deploy sufficient resources to achieve growth. The views herein are the author’s and do not necessarily represent the views of AFSCME.     

Private companies' engagement in the labour market integration of refugees: An exploratory study of the city of Stuttgart,Germany

Private companies of all sizes may engage in the integration of refugees into the labour market. Taking the case study of the highly industrialised German city of Stuttgart, this study explores the motivation of (a) private large-scale international enterprises including (automotive and high-tech companies) and (b) family-owned small- to medium-sized companies (private social enterprises, suppliers to the automotive industries, architecture, and engineering companies) to do so. The research further explores the companies' challenges, opportunities and the lessons learned throughout the process. Utilising the principles of Grounded Theory, a qualitative case study approach is applied with in-depth interviews with private companies, civil society, public private partnerships and experts. The findings show that the arrival of a large number of refugees during 2015/2016 has increased the engagement of the companies, increased their cooperation with other sectors, and has correspondingly led to some innovative initiatives in refugees' labour market integration and policy advocacy. The call for the engagement of the private sector and the existence of employment-related policies such as tolerated work permits (Ausbildungsduldung/Beschäftigungsduldung) were essential to create sufficient incentives for private companies to engage in the training and employment of refugees. However, the insecure residence permits and bureaucratic procedures in the public sector mostly discouraged their engagement. Our research shows that the two company types had different possibilities, different approaches towards refugees and faced different challenges while engaging in refugee labour market integration.     

Fiscal austerity and public servant quality

In this article we use a simple model to analyze the forces that determine the size of the public sector and the quality of workers employed in that sector. Workers are heterogeneous, and the public sector chooses an employment strategy which maximizes a utility function U(s, Y) that depends on the share of the labor force employed in public service s and private sector output Y. The government is fully informed about worker productivity. We characterize the behavior of the public sector, and explore the efficiency and employment consequences of imposing fiscal constraint on the government.     

Briefly Noted

In “Guidance on Strategies to Promote Best Practice in Antipsychotic Prescribing for Children and Adolescents,” a 54‐page document from the federal Substance Abuse and Mental Health Services Administration (SAMHSA) released this spring, the federal government synthesizes the state of evidence in systems‐level strategies to promote antipsychotic best practice prescribing for young people. In response to safety concerns, federal, state, and public‐sector agencies have already invested in strategies to monitor prescribing and to support best practices. For Medicaid, since 2014 this is done by prior authorization, in which prescribing clinicians must receive approval for dispensing antipsychotic medications to youth. The document from SAMHSA is based on data collection and consensus building. Its goal is to provide a centralized resource for public‐ and private‐sector decision‐makers, prescribing clinicians, service providers, commercial insurance companies, and youth and their families. Identified strategies reviewed in this guidance include.     

When Change Hits the Fan

This case study is based on an actual situation that has been disguised and has had some hypothetical content added. It addresses several problems that may be encountered as an agency struggles with its evolution from a hierarchical bureaucratic organizational structure to an egalitarian consensus model of management. Issues include resistance to change, difficulties with the modification of staff and board roles and responsibilities, and the resultant interpersonal conflict.