“The text addresses all of the current and upcoming issues facing human resource management in the public sector. In short, the book does an outstanding job of including interesting, timely, and useful topics for the chapters.”
Jeff Ashley, Eastern Illinois University, USA
Public Personnel Management has served as an essential, concise reader for public personnel and human resource management courses in the fields of public administration, political science, and public policy over the last 25 years. Since the first edition, published in 1991, the book has offered professors and students alike an in-depth look at cutting-edge developments beyond standard textbook coverage, to provide a broad understanding of the key management and policy issues facing public and nonprofit HRM today. Original chapters are written expressly for the text by leading public administration scholars, each focusing on specific and often controversial concerns for public personnel management, such as pensions, gender and sexuality, health care, unions, and a multi-generational workforce.
Now in an extensively revised sixth edition, Public Personnel Management presents new, original chapters to examine developments of interest to researchers and practitioners alike, including: remote working, cybersecurity, public service motivation, the abandonment of traditional civil service at the state and local levels, the Affordable Care Act and its implications for practice, pension systems and labor relations, affirmative action, social equity, legislation surrounding LGBT rights, and—as the field of public personnel management becomes more internationalized—a chapter addressing public personnel management across Europe. This careful and thoughtful overhaul will ensure that Public Personnel Management remains a field-defining book for the next 25 years.
Norma M. Riccucci is Board of Governors Distinguished Professor at the School of Public Affairs and Administration at Rutgers University, Newark, USA
P UBLIC P ERSONNEL
C URRENT C ONCERNS , F UTURE C HALLENGES
Edited by Norma M. Riccucci
First published 1991, 1997 by Longman
First published 2012, 2006, 2002 by Pearson Education, Inc.
First published 2018 by Routledge
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Library of Congress Cataloging in Publication Data
Names: Riccucci, Norma, editor.
Title: Public personnel management : current concerns, future challenges / edited by Norma M. Riccucci.
Description: Sixth edition. | New York, NY : Routledge, 2017. | Includes bibliographical references and index.
Identifiers: LCCN 2017000145| ISBN 9781138689718 (hardback : alk. paper) | ISBN 9781138689701 (pbk. : alk. paper) | ISBN 9781315527055 (ebook)
LC record available at https://lccn.loc.gov/2017000145
ISBN : (hbk) 978-1-138-68971-8
ISBN : (pbk) 978-1-138-68970-1
ISBN : (ebk) 978-1-315-52705-5
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CONTENTS
About the Contributors vii
Preface xi
Chapter 1 Public Personnel Management: A Cornerstone of Effective Government 1
J. Edward Kellough
Chapter 2 Human Resources Practices and Research in Europe 12
Lotte Bøgh Andersen, Peter Leisink, and Wouter Vandenabeele
Chapter 3 Generational Differences and the Public Sector Workforce 28
Madinah F. Hamidullah
Chapter 4 Affirmative Action and the Law 40
Norma M. Riccucci
Chapter 5 Diversity, Social Equity, and Representative Bureaucracy 50
Susan T. Gooden
Chapter 6 Lesbian, Gay, Bisexual, and Transgendered Employees in the Public Sector Workforce 60
Charles W. Gossett
Chapter 7 Paying the Shadow Workforce: The Case of Health Care 78
Shugo Shinohara and Frank J. Thompson
Chapter 8 Unions in the Public Sector 97
Randall S. Davis
Chapter 9 Public Employees’ Liability for “Constitutional Torts” 110
David H. Rosenbloom
Chapter 10 Public Sector Pensions and Benefits: Reform Challenges in a New Environment 127
Albert C. Hyde and Christian Richards
Chapter 11 Public Service Reform and Motivation 150
R. Paul Battaglio, Jr.
Chapter 12 Workforce Planning in Turbulent Times 165
Heather Getha-Taylor
Chapter 13 The Senior Executive Service: Past, Present, and Future 175
Jessica E. Sowa
Chapter 14 The Role of Human Resource Management in Cybersecurity 192
Jared J. Llorens
Chapter 15 Telework in Government 200
Willow S. Jacobson
Chapter 16 Human Resources Management in Nonprofit Organizations 221
Joan E. Pynes Index 237
ABOUT THE CONTRIBUTORS
Lotte Bøgh Andersen is Professor at Aarhus University and the Danish Institute for Local and Regional Government Research. Her research interests focus on leadership, administration and management in public organizations, especially motivation and performance of public employees, leadership strategies, professional norms, and economic incentives. Right now, she is leading a field experiment that investigates more than 500 public and private leaders to find out how transformational and transactional leadership affects employee motivation and organizational performance.
R. Paul Battaglio, Jr. is Professor of Public Affairs at The University of Texas at Dallas. His research interests include public human resource management, organization theory and behavior, public and nonprofit management, comparative public policy, and research methods. He is currently co-editor-in-chief of Public Administration Review (PAR ), and was also editor-in-chief of the Review of Public Personnel Administration. Battaglio is the author of Public Human Resource Management: Strategies and Practices in the 21st Century (CQ Press, 2014)
Randall S. Davis is an Associate Professor in the Department of Political Science at Southern Illinois University. He earned his PhD in Public Administration at the University of Kansas. His research explores the environmental and psychological mechanisms that contribute to individual and organizational performance in the public sector. He has conducted research on several topics in public management including organizational goals, role stress, employee motivation, and public employee unions.
Heather Getha-Taylor is an Associate Professor in the School of Public Affairs and Administration at the University of Kansas. Her research considers the forces transforming public governance and the associated implications for effectively managing human resources. She is a graduate of the Maxwell School of Citizenship and Public Affairs, Syracuse University.
Susan T. Gooden is Professor of Public Administration and Policy at the L. Douglas Wilder School of Government and Public Affairs at Virginia Commonwealth University. She served as president of the American Society for Public Administration (ASPA ) for 2016–2017 and is a fellow of the congressionally chartered National Academy of Public Administration (NAPA ). Her most recent book is Race and Social Equity: A Nervous Area of Government (Routledge, 2014).
Charles W. Gossett is Professor of Government and of Public Policy & Administration at California State University. He has published articles on public human resource management, gay and lesbian politics, and African politics. In addition to his teaching role, he has held a number of administrative positions, including Interim Provost and Vice President for Academic Affairs. Prior to beginning his academic career, he worked for several years at the U.S. Office of Personnel Management and for the city of Washington, DC.
Madinah F. Hamidullah is an Associate Research Professor and Director of the Undergraduate Program in the School of Public Affairs and Administration at Rutgers
University, Newark. She received her Ph.D. from the University of Georgia, her BA in Dance and Political Science and MPA from the University of North Carolina at Charlotte. Her research interests include generational differences in the workforce, public management, issues of gender and diversity, and organizational performance.
Albert C. Hyde is currently an Adjunct Instructor and Lecturer at San Francisco State University’s Public Administration Program and was Scholar in Residence at the School of Public Affairs at American University in Washington, DC for the 2015–2016 academic year. He was most recently co-editor of the 8th edition of Classics of Public Administration (Cengage Learning, 2016), and co-author of the ninth edition of Introducing Public Administration (Taylor & Francis, 2017).
Willow S. Jacobson is an Associate Professor of Public Administration and Government and Director of the Local Government Federal Credit Union Fellows Program at the University of North Carolina at Chapel Hill. Her research looks at ways to better use human capital to achieve organizational success, including Strategic Human Capital Management, workforce planning, and leadership. Jacobson earned a PhD from the Maxwell School of Citizenship and Public Affairs, Syracuse University.
J. Edward Kellough is Professor and Graduate Coordinator in the Department of Public Administration and Policy at the University of Georgia. He specializes in public personnel management, public administration, and program evaluation. Recent books include The New Public Personnel Administration, seventh edition, with Lloyd G. Nigro (Cengage Learning, 2014); Understanding Affirmative Action: Politics, Discrimination, and the Search for Justice (Georgetown University Press, 2006); and Civil Service Reform in the States: Personnel Policy and Politics at the Sub-National Level, edited with Lloyd G. Nigro (State University of New York Press, 2006). His research has also appeared in numerous academic journals.
Peter Leisink has a chair in Public Administration and Organization Science at Utrecht University School of Governance, the Netherlands. His research interests are: the contribution of strategic human resource management to public service performance, leadership and motivation in (public) organizations, age-related personnel policies, and changes in public sector employment relations. Leisink conducted research and advised management in government organizations, police, elderly homes, hospitals, secondary education, and public transport. He is a co-chair (together with Lotte Bøgh Andersen and Wouter Vandenabeele) of the EGPA Study Group on Public Personnel Policies.
Jared J. Llorens is an Associate Professor and Director of the Public Administration Institute in the E. J. Ourso College of Business at Louisiana State University. His scholarly research focuses on public sector human resource management, with particular interests in compensation and recruitment. He is Editor-in-Chief of the journal Public Personnel Management. His research has been published in a variety of academic outlets, and he is a co-author of Public Personnel Management: Context and Strategies, 6th edition (Routledge, 2010). Llorens received his B.A. from Loyola University, New Orleans, his M.P.Aff. from the LBJ School of Public Affairs at the University of Texas at Austin, and his PhD in Public Administration from the University of Georgia. He is also a former U.S. Presidential Management Intern, having served as a Human Resources Specialist with the U.S. Department of Labor and U.S. Office of Personnel Management.
Joan E. Pynes is Professor of Public Administration at the University of South Florida, Tampa, Florida. She is the author or co-author four books including, most recently, of Human Resources Management for Public and Nonprofit Organizations: A Strategic Approach (Jossey-Bass, 2013), and co-author of Human Resources Management for Health Care Organizations (John Wiley & Sons, 2011) and Effective Nonprofit Management: Context and Environments (Routledge, 2011). Her research interests are public and nonprofit management.
Norma M. Riccucci is Board of Governors Distinguished Professor at the School of Public Affairs and Administration at Rutgers University, Newark. She is the author of several books in the areas of public human resource management and public management. She is author of the forthcoming book, Policy Drift: Shared Powers and the Making of U.S. Law and Policy with New York University Press. Riccucci has received a number of national awards including the American Society of Public Administration’s Dwight Waldo Award for a lifelong contribution to public administration. She is a fellow of the National Academy of Public Administration (NAPA ).
Christian Richards graduated with a Master of Public Policy from American University in 2016. Prior to attending American, he was a Legislative Analyst with the American Public Transportation Association and a staff member in the office of U.S. Representative James Langevin (D-RI ).
David H. Rosenbloom is Distinguished Professor of Public Administration at American University (Washington, DC ) and Chinese Thousand Talents Visiting Professor of Public Administration at Renmin University of China. A member of the National Academy of Public Administration (NAPA ), he is recipient of the Levine, Waldo, Gaus, Brownlow, and Mosher Awards, among others, for his scholarly contributions to the field of public administration. Rosenbloom’s competing perspectives model of public administration as management, politics, and law is widely used internationally.
Shugo Shinohara earned his PhD from and is a lecturer in the School of Public Affairs and Administration at Rutgers University, Newark. He has more than eight years of practical experience with the Embassy of Japan in Uganda and the Japanese Ministry of Infrastructure and Transport. His research interests include veterans’ affairs, local governance, history of public administration, and social equity and diversity. One of his articles regarding the consciousness of gender inequality among public and private workers has been published in the International Review of Administrative Sciences
Jessica E. Sowa is an Associate Professor in the School of Public and International Affairs in the College of Public Affairs at the University of Baltimore. Her current research focuses on public and nonprofit management, including high-performance work systems, strategic human capital management, and the management of volunteer firefighters. Sowa served on a number of journal editorial boards in public and nonprofit management and is currently the co-director of the MS in Nonprofit Management and Social Entrepreneurship program at the University of Baltimore. She recently served on the Board of Directors of the Association for Research on Nonprofit Organization and Voluntary Action (ARNOVA ) and currently serves on the board of trustees of the Northeast Conference on Public Administration.
Frank J. Thompson is Board of Governors Distinguished Professor in the School of Public Affairs and Administration at Rutgers University, Newark and an affiliated faculty member with the Rutgers Center for State Health Policy in New Brunswick. He has published extensively on issues of politics and administration, implementation, public management, and health policy. His most recent book is Medicaid Politics: Federalism, Policy Durability, and Health Reform (Georgetown University Press, 2012). Thompson is a fellow of the National Academy of Public Administration (NAPA ) and a past President of the National Association of Schools of Public Affairs and Administration. He received several awards including the Dwight Waldo Award for a lifelong contribution to public administration. Prior to joining the Rutgers faculty in 2008, he served as Dean of the Rockefeller College of Public Affairs and Policy at the University of Albany, SUNY.
Wouter Vandenabeele is an Associate Professor of Human Resources Management at Utrecht University School of Governance and a Visiting Professor at the Public Governance Institute at KU Leuven University. His main research interest is the role of people within organizations and in the motivation of employees in public service delivery. He is most known for his work on public service motivation. Vandenabeele is co-chair (together with Peter Leisink and Lotte Bøgh Andersen) of the Permanent Study Group on Public Personnel Policies of the European Group of Public Administration.
PREFACE
This book has served students, academics and practitioners of public personnel and human resources management in the fields of public administration, political science, and public policy over the last 25 years. Since its first edition in 1991, it has included cutting-edge issues in the field, topics that go well beyond textbook coverage. The book is designed to provide readers with a broad understanding of the key management and policy issues facing the field today. The sixth edition provides a major overhaul from the last edition, reflecting the changes and shifts in the field.
Some of the topics included in this sixth edition include, for example, telework, cybersecurity and public service motivation, which are at the frontiers of the practice of public personnel and human resources management. In the last several years of the Obama administration, shifts in policy around the upper levels of the federal government (i.e., the Senior Executive Service or SES ) have occurred. The reforms to the SES will also be addressed in this book.
The passage of the Affordable Health Care Act has also created some unique challenges for public personnel managers. One such challenge is the “shadow workforce.” Included in this new edition is a chapter that examines pay rates to physicians serving Medicare and Medicaid beneficiaries and the effects of these rates and associated civil service regulations on performance. Pension systems and labor relations continue to dominate the landscape and current challenges to public personnel and are also addressed. In addition, the field of public personnel management has become much more internationalized over the last several years; therefore, a new chapter addressing public personnel across Europe is also included.
Additional issues and ongoing challenges to the field are also addressed in this edition. Topics such as affirmative action, social equity, LGBTS , and nonprofits are standard features in public personnel management, and the vast changes to these areas, particularly transgender workers over the last four to five years will be covered in this edition. These, as well as the other chapters, represent the critical issues that will shape and define the field in years to come.
PUBLIC PERSONNEL MANAGEMENT: A CORNERSTONE OF EFFECTIVE GOVERNMENT
J. Edward Kellough
Public personnel management, broadly conceived, encompasses all aspects of managing government employees, but it is especially focused on administrative structures and processes associated with employee recruitment, selection, training, development, pay, benefits, performance appraisal, discipline, and union activity. These functions lie at the heart of public administration. The manner in which they are performed will impact the quality of the public workforce and the success with which government agencies pursue their varied and complex missions. Police officers, firefighters, air traffic controllers, airport security screeners, tax auditors, budget analysts, and other works who perform the multiple and diverse functions of government must be carefully selected, well trained, and capable. While organizations with top-flight employees may occasionally fail to achieve all that they set out to do given resource or other constraints, it is inconceivable to think that a public organization staffed with employees with inadequate knowledge, abilities, and skills will ever achieve desired levels of success. Effective performance of core personnel management functions is, therefore, essential for effective government.
THE COMPLEXITY OF THE PUBLIC PERSONNEL MANAGEMENT TASK
The importance of public personnel management is matched by the vast scale on which the tasks are performed. In part, this is a result of the sheer size of government. Recent data, for example, reveal that there are more than 18 million public employees in the United States. Of that number, over 4 million work in our 50 state government agencies and close to 12 million work in various local governments including the 3,000 counties, 19,000 municipalities, and 31,000 special purpose districts, and nearly countless townships and school districts. The federal government accounts for approximately 2 million employees. In addition, the size of the federal workforce has been relatively stable since 1950, while state and local government workforces have grown substantially in size (Nigro and Kellough, 2014).
In addition, public personnel administration is further complicated by the fact that public employees work in a wide range of functional areas. Local jurisdictions, for example, provide police and fire protection, sanitation services, parks and recreation, water and other utilities, street maintenance, and numerous other functions including
primary and secondary education. States are involved in highway construction, corrections systems, welfare programs, business regulation, and higher education, to name only a few activities. The federal government provides for our common defense and security, international relations and trade policy, the maintenance of our currency, the postal service, the social security system, industry-wide regulation, and assistance to states and localities in diverse areas including law enforcement and education. Public employees working in these areas are drawn from countless trades and professions, and it is in that context that effective policies and practices must be put into place to recruit, select, train, develop, pay, and retain high-quality workers.
But other aspects of the context of public personnel management are important as well. For example, the political environment in which the personnel system operates is characterized by multiple stakeholders with often conflicting interests. Chief executives, for instance, typically have significant formal authority over public personnel policy and want to use that authority to control personnel practices in the executive branch to better match preferred policy directions. Members of the legislature also have an interest in personnel policy since they share authority with the executive and are ultimately responsible for the appropriation of funds needed to run the government. Of course, legislators and executives are politicians who respond to public pressure and who also pursue policies for ideological reasons or for their symbolic value. In addition, the work of politicians is necessarily tied to the electoral cycle, so legislators and executives, and in particular, those who face term limits, must operate with short time horizons. They, and the political appointees who work under them, are often driven to act quickly if they wish to alter the shape of the personnel system. Of course, actions they take may subsequently be undone by succeeding executives or by the legislature resulting in the loss of continuity in the operation aspects of personnel systems.
The courts also, as countervailing institutions of government, have an interest in, and responsibility for, public personnel policy. Personnel systems in government rest on a foundation of public law. Statutes establish and specify elements of public personnel systems and laws, with applicability to both the public and private sectors, and regulate matters ranging from fair labor standards to medical leave and nondiscrimination policy. When disputes inevitably arise over the meaning of these statutes, we turn to the courts for resolution. Additionally, the U.S. Constitution, because it limits government authority, also constrains what government can do with respect to key aspects of public management.
The public also has an interest in the operation of public personnel systems, because we are talking about the structure and operation of government. But the public’s expression of interest rarely goes beyond the general expression that we should employ highly skilled, capable, and qualified people in public jobs. To accomplish that objective, most systems today rest on a concept known as the merit principle in which employees are hired and retained on the basis of their abilities. Employee selection rests on the results of open and competitive examinations designed to measure applicant qualifications, employees are shielded from removal without cause directly related to performance, and employees are required to behave in politically neutral ways. Of course these kinds of rules constrain management and build delays and inefficiencies into the system. As a result, organized interests with varying agendas and ideological perspectives push from time to time for reforms to increase efficiency, streamline procedures, or contract (or expand) employee rights.
Finally, we should stress that public employees themselves have an interest in public personnel management. Decisions regarding personnel policy help to define the
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