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Public Organizations (V504)

Mondays, 7 to 9:45 pm

Dunes Medical/Professional Building, Room 2076

Karen G. Evans

Dunes Medical/Professional Building 2135

Office Hours: Mondays and Wednesdays, 4-5:30 pm, or by appointment

Phone: (219) 980-6843

Email – kevans@iun.edu


Required Texts | Projects and Evaluation | Schedule   Diagnostic Essay    
  

Syllabus

Overview:

Theories of organization provide the material from which public managers create the tools they need to analyze, understand, and alter behavior in the organizations they manage. Students will examine the various streams of theorizing about organizations with a special emphasis on the special characteristics of public sector organizations. Students will learn to reframe organizational experiences so that they can apply different management tools more effectively. Finally, students will explore their own theory preferences and learn how these preferences affect their ability to effectively manage organizations.

This course addresses elements of SPEA’s MPA competencies of Strategic Analysis and Action (managing complexity and change requires an enhanced ability to view the organization through many lenses) and Organizational Management (organizational environment; alternative perspectives; and leadership).

 

Required Texts:

Lee G. Bolman and Terrence E. Deal (1997) Reframing Organizations: Artistry, Choice, and Leadership, 4th edition

Other readings will be on reserve at the Library, both paper and electronic.

Projects and Evaluation
 

Evaluation:

Evaluation of the students’ performance will be made based on four factors. First, there will be a take-home midterm examination, handed out at the end of class on March 7 and due March 21. The exam will count 30% toward the students’ final grade.

 Second, each student will select an organization theorist/pivotal book or school of thought from the attached list and prepare and present a brief report on the author(s) and/or summary of the book’s salient points and/or contribution to the field of organization theory for public administration. Students will discuss where the particular book or school of thought fit into our map of organization theories as a part of the report. Students will prepare a 2-page handout for fellow students and a short (4-6 pages) paper to hand in. Students will present their findings in class according to a predetermined schedule. This report/presentation contributes 30% toward the student’s final grade. 

 Third, each student will complete a “personal theory style diagnostic essay.” In this essay the student describes his/her preferred theory model, his or her least preferred theory model, and the most characteristic errors in organizational analysis and action that a person holding their theory preference would make. This essay will amount to 3-4 pages of description and analysis along a model that will be posted on the web toward the end of the semester. The diagnostic essay contributes 30% to the student’s final grade and will be due the last class session.

 Fourth, attendance, preparation, and participation will contribute the final 10% of each student’s final grade. Attendance at all class sessions is expected; on the rare occasion where a student finds he/she must miss a class session, it is expected that the student will display the courtesy of contacting the professor before the class session. In the case where there are multiple absences, the student may be required to complete additional assignments.

***outlines for the eight management models can be accessed by following this link.

 

Please note:

All cell phones/pagers are to be turned off during class.  If you have a reason to have your device on, please tell me; you may be permitted to have it on, set on vibrate.

 The scheduled date for automatic withdrawal for this class is Friday, March 23.  If you are unable to attend or complete the course work, you should withdraw.  If you discover these difficulties after the withdraw date, please contact me.  Do not assume that lack of attendance will withdraw you from the class.  If you do not complete the work or contact me, your final grade will be and “F”.

 

Schedule of Classes and Required Readings. Students should read (and be prepared to discuss) the listed readings before the class session for which they are listed. Texts will be abbreviated: B&D (Bolman & Deal) and M (Morgan), with chapter or section numbers for each. All library materials will be identified.


 

 

Theory Models/Metaphors in Burrell and Morgan's Paradigm Scheme

 

Radical Humanist                                     CHANGE                       Radical Structuralist

Symbolic Frame (B&D)

Models:

Transformational

Personal Action

In Morgan:

Systems of Domination

Psychic Prisons

 

Subjective

 

Political Frame (B&D)

Models:

Political

Ecological

In Morgan:

Flux &Transformation

Political Systems

Objective

Human Resource Frame (B&D)

Models:

Action

Motivational

In Morgan:

Cultures

Organisms

 

Structural Frame (B&D)

Models:

Bureaucratic

Bounded Rationality

In Morgan:

Machines

Brains

 

              Interpretivist                                                    ORDER                                        Functionalist                  

 

SCHEDULE OF ASSIGNMENTS

   

Schedule of Classes and Required Readings. Students should read (and be prepared to discuss) the listed readings before the class session for which they are listed. Text will be abbreviated: B&D (Bolman & Deal), with chapter or section numbers for each. All library materials will be identified.

 

August 25       Why study organization theory?  What does it mean to frame or reframe organizational experience?  Introduction to the course, requirements, and concepts.

            Readings: B&D, Chapter 1.

 

September 1   Labor Day Holiday – no class session

 

September 8  Organizational environment and context for public organizations; metaphors as a means of understanding organizations and organizational behavior. Guest Lecturer, Ms. Cara Spicer

 

Readings: B&D, Chapter 2

September 15 Introducing the bureaucratic model. What is theorizing? What are the foundations of organization theory?

             

September 22 Introducing the rational model. A look at goals, strategies, and decision sets.

            Readings; Fry (Herbert Simon) at Library

           

September 29 The Structural Frame and the ecological model are introduced. Examination of technology, physical structure, and systems theories of organization.

            Readings: B&D, part 2

           

October 6       The Human Resources Frame and the motivational model are introduced. Examination of social structures and psychological factors in organizing.

            Readings: and B&D, part 3.

           

October 13     The Symbolic Frame and the action model are introduced. A look at organization theory in a postmodern time.

            Readings: B&D, part 5;  Midterm exam handed out.

           

October 20     Examination of market theories of organization.

            Readings: at Library, Harmon and Mayer, C 9.

 

October 27     The Political Frame and the political model are introduced. Examination of the influence of power and political action in public organizations. Midterm Exam due.

            Readings: B&D, part 4

 

November 3   Organizations as instruments of domination and the personal action model are explored.

            Readings: Calas & Smircich at Library

 

November 10 Interpretive/critical theories of organization and the transformational model are introduced. Examination of gender issues in organizations.

            Readings: Harmon and Mayer, C 10; Graham (MP Follett); and Stivers at Library

 

November 17 Learning organizations and organizational learning. Recent trends in public administration and organizational theorizing. What are we seeing in public organization theory today? Personal theory style diagnostic essay instructions posted to the web.

            Readings: “The Blacksburg Manifesto” (Library)

           

November 24 Improving leadership using frames.

Readings: B&D, part 6.

 

December 1 Review and discussion of the uses of theory in the practice of public administration.

Personal Theory Style Diagnostic Essay Due 

 

 

                   

 

Book Report book list:

1.                  Luther Gulick and L. Urwick (eds) Papers on the Science of Administration

2.                  Herbert Simon Administrative Behavior

3.                  Talcott Parsons The Social System

4.                  Chester Barnard Functions of the Executive

5.                  Dwight Waldo The Administrative State

6.                  Vincent Ostrom The Intellectual Crisis in American Public Administration

7.                  Albert O. Hirshman Exit, Voice, and Loyalty

8.                  Mary Parker Follett Dynamic Administration

9.                  Karl Weick The Social Psychology of Organizing

10.              James G. March and Herbert Simon Organizations

11.              James G. March and Johan Olsen Rediscovering Institutions

12.              Frank Goodnow Politics and Administration

13.              Douglas McGregor The Human Side of Enterprise

14.              Fred Thayer An End to Hierarchy and Competition

15.              Chris Argyris Personality and Organizations

16.              Henry Mintzberg The Structuring of Organizations

17.              Peter Senge The Fifth Discipline

18.              Michael Harmon Action Theory for Public Administration

19.              Francis E. Rourke Bureaucracy, Politics, and Public Policy

20.              Philip Selznick Leadership in Administration

21.              Peter B. Vaill Managing as a Performing Art

22.              William Bergquist The Postmodern Organization

23.              Camilla Stivers Gender Images in Public Administration

24.              Gareth Morgan Images of Organization

25.              Ralph P. Hummel The Bureaucratic Experience 

26.       Mary Jo Hatch Organization Theory: Modern, Symbolic, and Postmodern Perspectives

Possible Theory Schools for Group presentations.

  • Classical: examples of theorists: Weber, Woodrow Wilson, Taylor, Gulick, Goodnow

  • Traditionalist: Waldo, Redford

  • Neo-Classical: Simon

  • Human Relations: Maslow, Herzberg, McGregor

  • Institutionalist: March & Olsen, Ostrom, Hirshman, Terry

  • Blacksburg: Wamsley, Goodsell, Stivers  

  • New Public Management:

  • Postmodern: Farmer, Fox & Miller, Burrell

  • ‘New Science’: Wheatley, Kiel

 

If you have a book, public administration theorist, or school to suggest as a substitute for those listed above, please discuss this with me. 

 

Outline for the Personal Theory Style Diagnostic Essay

  

  1. The organizational theory that I find myself most attracted to as a basis for analysis is…

  • The essence of this theory as I understand it is…

  • The events in my background, aspects of my "personality or identity," or other factors that I feel lead me to be predisposed toward this theory are…

II. The organization theory that I find myself least attracted to is…

  • The essence of this theory as I understand it is…

  • The events in my background, aspects of my ‘personality or identity,’ or other factors that I feel lead me to be predisposed away from this theory are...

 III. What would be the most characteristic errors in organizational analysis and action that a person holding my theory preference would make?

  • What would such a person tend to project into or onto organizational situations?

  • What would such a person tend not to see in organizational situations?

  • An example of a frequently occurring situation and the mistaken action that such a person would take is…

Personal Theory Style Diagnostic Essay (Sample)
 

  1. The organizational theory that I find myself most attracted to as a basis for analysis is……….the Action Model.

    1. The essence of this theory as I understand it is…that organizations may suffer a breakdown of structure and authority such that there may be widespread inappropriate or aberrant behavior in members. When such a situation occurs (when the organization’s social order becomes this fragile), it becomes necessary for the culture to be rebuilt through the intervention of a leader who listens, who reflects back to the people their personhood or value, and who helps the group develop again a common set of shared meanings. This theory assumes that groups or organizations communally construct the social reality in which they live and act together (that there is no external, concrete reality which they could discover or to which they could relate), and that they enact reality together according to a generic set of rules. As language has no inherent standard meaning, when these rules break down, the appropriate intervention strategy is the introduction of cultural artifacts, symbols and rituals which reestablish a patterned contact between people around which a common grammar and vocabulary is developed.

    2. There are multiple events in my background, aspects of my "personality or identity," or other factors that I feel lead me to be predisposed toward this theory. First is my belief that the fostering of appropriate relationships among people is, in the long term, more important (and even more efficient) in the functioning of an organization than a task or function orientation to problem solving generally. It has been my experience as a manager that if the organizational relationships among members are healthy, even ‘impossible’ tasks—deadlines and production—become possible. Second is my predisposition to see the world holistically in terms of interconnection rather than in linear terms. While this factor can just as easily apply to all four ‘interpretivist’ models, I have found it most readily applicable in my practice in this model. Thirdly, I believe my experience as a woman and a mother translated into this approach to the organizational problems I have faced as a manager. The ‘feminine’ characteristics of patience, nurturance, and investment in developing meaning in the family generally make this a more comfortable approach to management for women than for men.

II.    The organization theory that I find myself least attracted to is…the Rational Model. (While I find most functionalist approaches less than perfectly compatible with my ‘style,’ this one holds the least appeal for me as a general tool.)

    1. The essence of this theory as I understand it is…that organizations are best explained by the structure of decision premises peculiar to their circumstances and that the lifeblood of the organization is the flow of information. The Rational Model assumes that people in organizations attempt rationality, but are unable to access all possible information pertinent to a decision, and even if they could, are unable to process this much information in their decision processes. Therefore, the organization establishes boundaries to bring information under control—permitting only the most relevant information to bear. Information relevance is determined in the set of decision premises held by the organization. This leads to satisficing decisions—those that are ‘good enough’—and allows the organization to ignore the complex array of information outside the boundary. The advantage of the Rational Model as an approach to the problem in an organization is that when this model is applicable to the source of the problem, the ‘fix’ is relatively easy. Changing the amount, variety, and timing of information—when these remedies are called for—can produce almost instantaneous positive results. The overwhelming disadvantage of this approach (from my perspective) is its cold impersonality.

    2. The events in my background, aspects of my ‘personality or identity,’ or other factors that I feel lead me to be predisposed away from this theory…include my belief that tightly bounded systems are dysfunctional in the long term in that they exclude the variety and diversity necessary for adaptation and growth. While complexity can be challenging and frightening to those who have invested themselves in a search for control, it is the stuff of innovation and creativity. While making decisions based on the assumption of certain cause-and-effect relationships leads to quicker action, it also leads, in my experience, to a set of unanticipated, often negative, consequences of the actions taken, My belief in the value of humanity in the organization is outraged, as well, in a model which denigrates human beings because they are imperfect information processors. The Rational Model brings to the forefront the question: "If not for people, for a better society, then for whom does a rational system exist?" Efficient means to some specified ends only have significance when that question is answered.

  1. What would be the most characteristic errors in organizational analysis and action that a person holding my theory preference would make?

    1. What would such a person tend to project into or onto organizational situations? A person holding my interpretive theory preferences would tend to project symptoms of human relationship problems and lack of shared meaning onto problems which are actually problems of structure and authority. We would attempt to ‘heal’ the culture where the addition of some structural role or better information process would more quickly and better solve the presenting problem. We would tend, as well, to minimize such impersonal entities as task, production, and rational efficiency in our management plans in favor of networking, coaching, and strengthening both the individuals and their interrelationships in our departments or agencies.

    2. What would such a person tend not to see in organizational situations? Persons with my theory preferences would tend not to see the influence of structure, information, ego, and power on organizational behavior. As these are often real causes of presenting problems and are amenable to appropriate intervention, our tendency to frame problems in terms of relationship and human factors could very well lead to interventions which only make the problems worse. A person, for example, who defines all problems in terms of culture, is singularly ill-equipped to make appropriate political responses, and thus often permits political problems to escalate to ‘unsolvable’ levels. This could perhaps be described as an idealistic naivete which drives many creative people out of management in public agencies—their failures to negotiate the political environment are often spectacular and dramatic. Persons such as myself might also overlook the possibilities of structural or informational solutions which are relatively easy to effect and bring quick results in favor of culture-changing activities which require considerable time and effort. If the problem is not culture, this is wasted time and effort.

    3. An example of a frequently occurring situation and the mistaken action that such a person would take is… Situations where poor information is the core problem often present symptoms which have the appearance of interpersonal relationship problems. A clerical worker, who is responsible for answering client questions may not have, in readily accessible form, the information (s)he needs to fulfill this kind of task. The clerk may have to attempt to get the information from the ‘expert’ who has it or refer the call to the expert, and this person may not be available at all times when needed. Trust and mutual respect erode. Resentment builds up between the clerk and the expert and is displayed in terms of their communication with each other and with others in the department. A manager with my theory preference might try to ‘heal’ the relationship by way of bringing the two together to "talk out their interpersonal problems." Since their problem did not arise out of their relationship in the first place, this solution would only make the situation worse. The appropriate Rational Theory solution would be to have the expert formulate reference material for the clerk to use in dealing with client inquiries. Establishing some set of correct answers and rules for when to refer a call directly to the expert would assure the clerk that (s)he would be able to creditably perform his or her tasks, and would assure the expert that (s)he would not be interrupted for trivial or routine questions. There would, then, be no basis for any inappropriate interpersonal behavior between them to occur.

 

 

 


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Text copyright 2002  K. G. Evans