Criteria Ratings Points

Thread

Content

14 to >12.0 pts

Advanced

• Each question/prompt is answered thoroughly and logically. • Major points are stated clearly and effectively. • Clear, logical flow to post; stayed on topic.

12 to >11.0 pts

Proficient

• Each question/prompt is answered. • Major points are stated clearly and effectively for the most part. • Clear, logical and focused for the most part.

11 to >0.0 pts

Developing

• Not all facets of the prompt/questions are answered. • Lack of clarity, coherence, logic and focus in key areas.

0 pts

Not Present

14 pts

Thread

Research Engagement

12 to >10.0 pts

Advanced

• Ideas from all the required reading and presentations from the Module: Week and 2 scholarly sources are integrated. • Relates topic to Scripture/biblical principles where appropriate.

10 to >9.0 pts

Proficient

• Ideas from most the required reading and presentations from the Module: Week and 2 scholarly sources are integrated. • Scripture/biblical principles are included but unfocused at times.

9 to >0.0 pts

Developing

• Ideas from few of the required reading and presentations from the Module: Week and 2 scholarly sources are integrated. • Missing Biblical integration.

0 pts

Not Present

12 pts

Reply

Content

14 to >12.0 pts

Advanced

• 2 unique interaction posts with classmates • One reply posted to each of 2 classmates’ threads. • Moves the conversation forward with new ideas, research, and analysis. • Student’s response delivered in a thorough, thoughtful, and analytical manner with the student’s position clearly evident.

12 to >11.0 pts

Proficient

• At least 2 unique interaction posts with classmates • One reply posted to each of 2 classmates’ threads. • New ideas, research, and analysis are not always included. • Some commentary is repetitive from one reply to the next. • At times, reply posts do not seem to actually build upon classmate’s post.

11 to >0.0 pts

Developing

• Missing one or more reply posts. • Reply posts are redundant. • Little in the way of new ideas, research, and analysis are not always included.

0 pts

Not Present

14 pts

Discussion: Ethics in Public Administration – Context Grading Rubric | PADM700_C01_202440

Criteria Ratings Points

Reply

Research Engagement

9 to >8.0 pts

Advanced

• 2 unique interaction posts with classmates • One reply posted to each of 2 classmates’ threads. • Relates topic to Scripture/biblical principles where appropriate. • Contains abundant citations from required reading, presentations, and 2 scholarly sources.

8 to >7.0 pts

Proficient

• 2 unique interaction posts with classmates • One reply posted to each of 2 classmates’ threads. • Scripture/biblical principles are included but unfocused at times. • Contains some citations from reading, presentations, and scholarly sources.

7 to >0.0 pts

Developing

• Missing one or more reply posts. • Missing Biblical integration. • Limited citations from the required reading and presentations.

0 pts

Not Present

9 pts

Grammar, Spelling, & APA

15 to >13.0 pts

Advanced

Minimal to no errors in grammar, spelling, or APA.

13 to >12.0 pts

Proficient

Some errors in grammar, spelling, or APA.

12 to >0.0 pts

Developing

Numerous errors in grammar, spelling, or APA.

0 pts

Not Present

15 pts

Word Count 6 to >5.0 pts

Advanced

Appropriate word count: 450-500 words for thread; 200–250 words per reply.

5 to >4.0 pts

Proficient

100 words more or less than the required length.

4 to >0.0 pts

Developing

Over 100 words more or less than the required length.

0 pts

Not Present

6 pts

Total Points: 70

Discussion: Ethics in Public Administration – Context Grading Rubric | PADM700_C01_202440

The Profession of Public Administration: An Ethics Edge in Introductory Textbooks?

Author(s): James S. Bowman, Evan M. Berman and Jonathan P. West

Source: Public Administration Review , Mar. – Apr., 2001, Vol. 61, No. 2 (Mar. – Apr., 2001), pp. 194-205

Published by: Wiley on behalf of the American Society for Public Administration

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James S. Bowman Florida State University

Evan M. Berman University of Central Florida

Jonathan P. West

University of Miami

The Profession of Public Administration:

An Ethics Edge in Introductory Textbooks?

Given the substantial interest in public service ethics, this study examines its foundations as re- flected in paradigmatic textbooks-a unit of analysis that informs both theory and practice in the

field. The interpretative framework employed evaluates the context (the amount and placement of the topic, the use of graphics, and sources cited) as well as the content (conceptualization of management ethics and inclusion of implementation issues) of ethics found in the publications. A limited definition of a professional-one in possession of largely technical skills- is reflected in the textbooks. The implications of the findings are explored.

The ethics boom ignited by Watergate has echoed

throughout the corridors of government and the halls of

academe for more than a generation after the Nixon presi-

dency. Rather than dissipating through the years, the ech-

oes seem to intensify. In the practice of public affairs, the

result has been sensational revelations, numerous investi-

gations, new laws, and chastened officials and agencies.

Within the study of public administration, national ethics conferences have been convened, course offerings have

been expanded, and a growing literature has been created

(Bowman and Menzel 1998). Quite clearly, moral consid-

erations are of fundamental importance to the quality of

democracy and its administration-the soul of modem

public administration (Frederickson 1996).

Given the considerable interest in the topic, this study examines the attention introductory public administration

textbooks devote to it. These volumes define the proper area and focus of a discipline, its paradigm and essential ele-

ments (Kuhn 1970); they also likely affect how ethics is

presented in the classroom (if it is).' Since standards of prac-

tice are inherent in professional life, such self portraits re- veal the nature of the commitment made to excellence in

both technical competence and moral character. Indeed, the distinguishing characteristic or edge of a professional (Berman et al. 1998) is not merely the possession of exper-

tise, but also a dedication to ethical practice. How this com-

194 Public Administration Review * March/April 2001, Vol. 61, No. 2

mitment is fulfilled, especially in light of recent evidence

demonstrating the value of ethics training and education (for

example, Bruce 1998; Menzel 1997), has important impli-

cations for the profession and the public it serves.

James S. Bowman is a professor of public administration at the Askew School of Public Administration and Policy, Florida State University. His primary area is human resource management. Noted for his work in ethics and qual- ity management, he has also done research in environmental administra- tion. He is editor in chief of Public Integrity, a journal sponsored by the American Society for Public Administration, the International City/County Management Association, the Council on Governmental Ethics Law, and the Council on State Governments. He is coauthor of Human Resource Manage- ment in the Public Service: Paradoxes, Processes, and Problems with Evan Berman, Jonathan West, and Montgomery Van Wart (Sage, 2001). Email: [email protected].

Evan M. Berman is an associate professor in the Department of Public Ad- ministration at the University of Central Florida (Orlando). He is active in the American Society for Public Administration and is the 1998-2000 chair of the Section of Personnel and Labor Relations. He serves on the editorial boards of Public Administration Review and the Review of Public Personnel Admin- istration. His most recent books include Human Resource Management in the Public Service (Sage, 2001), The Ethics Edge (International City/County ManagementAssociation, 1998), andPublic Sector Performance (Westview, 1999). Email: [email protected].

Jonathan P. West is a professor and chair of the Department of Political Science and director of the graduate public administration program in the School of Business Administration at the University of Miami. His research interests include human resource management, productivity, local govern- ment, and ethics. His most recent books are Quality Management Today (1 995) and The Ethics Edge (1 998), both published by ICMA, and Ameri- can Politics and the Environment with Glen Sussman and Byron Daynes (Longman, in press). He is the managing editor of Public Integrity. Email: [email protected].

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It should be noted that no formal standards exist for the

scope or content of ethics in public administration educa-

tion; the National Association of Schools of Public Affairs,

Policy, and Administration (1992) requires only that the

curriculum "enhance the student's values, knowledge, and

skills to act ethically and effectively" (3). Nevertheless,

textbooks discuss the topic, and it is therefore sensible to

ask what might and should be included.

The data reported here should be of interest to the en-

tire profession: those involved in standard setting and ac-

creditation (who could require reconsideration of this

essential subject), practicing managers (who sometimes

wonder about the efficacy of academic treatises, espe-

cially on ethics), book authors and their publishers (who

might need to review ethics coverage in their volumes),

and students and instructors (who may wish to check the

adequacy of the textbook they use). The investigation

begins with the identification of essential dimensions

comprising public service ethics. The conceptual frame-

work used in the research is then presented, followed by

the findings from the study, and concludes with a discus-

sion of the implications of the data.

Pillars of Ethics As Callender (1998) observes, "The sense of public ser-

vice, a strong emphasis on ethical behavior, a well-devel-

oped group identity, and well established professional bod- ies that support the ideals of public service all provide part

of the professional identity of the public service practitio-

ner" (1767). Clearly, those who aspire to such status need to buttress their mastery of specialized learning and mana-

gerial skills with ethical sensitivities and a commitment to public service. Given the central place of ethics in profes- sionalism, it is important to briefly canvass its role in cur-

rent public administration theory and practice. A body of literature has developed that goes beyond

values to be upheld and includes insights into ways ethics

can be understood and encouraged in oneself and others.

Specifically, there are four pillars of ethics: (1) value aware- ness; (2) reasoning skills; (3) the role of law; and (4) orga- nizational implementation (modified from Ozar 1998; West et al. 1998).

A near-consensus exists about the values that underpin public life: responsiveness, fairness, economy, integrity, and competence. While authors vary, virtually all believe that these values constitute administrative responsibility. Such norms are thought to promote citizen service and democracy as well as to avoid corruption that causes wide- spread distrust in government (Bell 1997; Cooper 1991; Lewis 1991).

A critical practical question is, how are officials to in-

corporate these values into individual actions and organi-

zational decision making? The second pillar, ethical rea-

soning, can be illuminated using Kohlberg's stages of moral development. Stewart and Sprinthall (1993) find that ad-

ministrators (regardless of rank, age, gender, or race) are

more likely to achieve a high level of moral reasoning when

they are familiar with ethical problems and their context. Accordingly, helping managers frame issues and improve

policy making is the focus of an increasing number of eth-

ics workshops (International City/County Management

Association 1999). While, in the past, such training often

narrowly concentrated on certain values, adherence to le-

gal standards, and avoidance of wrongdoing, today's ef-

forts promote value-centered decision-making processes.

These workshops include scenarios, role-plays, and

group activities that provide in-depth information about

cases and simulate the workplace (Killilea, Pasquerella,

and Vocino 1998; Nelson and Van Hook 1998). Typically,

decision making involves a three-step process of fact gath-

ering, analysis, and problem resolution. Managers are sen-

sitized to ethical warning signs (such as, "no one will ever

know" or "everybody does it") and understanding conse-

quences of actions (Does the proposed action violate an ethical code? My personal values? Those of the commu- nity? Does it harm someone else? Would I be comfortable

explaining it on television?) Third, managers are expected to comply with ethics laws

covering financial disclosure, post-employment, private gain from public office, preferential treatment, impartial- ity, and public trust. Little is known about the effective- ness of these statutes, but what is known suggests that the laws, and the ethics commissions that investigate viola-

tions, are insufficient to ensure exemplary behavior (Dobel 1993; Smith 1999; Williams 1996, 1999). Legal compli- ance is not adequate to avoid wrongful conduct, and fos- tering proper behavior requires ongoing initiatives relevant to daily management (Menzel 1999).

Fourth, beyond training aimed at individuals are pro-

grams to nurture ethics across the organization. Some sug- gest that a key to creating an ethical climate is moral lead- ership (Berman, West, and Cava 1994; Cooper and Wright, 1992; Moore and Sparrow 1990). Brower (1999), for ex- ample, paraphrases Shakespeare, all men are but players on stage, to explain how managers model and employees learn behavior. Other studies (Brumback 1991; Menzel and Carson 1999) suggest that leadership is most effective in conjunction with efforts such as incorporating ethical con- cern into the personnel systems (from selection through training to evaluation), adopting an ethics code, and re- quiring compliance with pertinent laws. At present, the challenge is to persuade organizations that they can im- pact ethical behavior and that this can be done through a multifaceted approach. This is made easier by empirical

research revealing a positive relationship between ethics

The Profession of Public Administration: An Ethics Edge in Introductory Textbooks? 195

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and performance (Berman, West, and Cava 1994; Bruce

1994; Burke and Black 1990; Menzel 1992, 1993, 1995, 1996a, 1996b, 1999). There is also evidence that this be-

havior affects responsible risk taking and community per- ceptions of organizations, although the nexus between

employee behavior and community trust is difficult to

firmly establish (Berman and West 1997, 1998).

In short, the tenets of public service ethics include value

awareness, reasoning skills, law, and implementation strat-

egies. These foundational elements are adapted and ap-

plied below to inform the conceptual framework used in

this inquiry.

The Study Included here are 12 elementary public administration

textbooks from 1995-99 (see appendix).2 As noted, these

works are an appropriate barometer because they certify

the significance of ethics in the profession. The next sec-

tion reports raw data on the context of the ethics material

in the publications: the amount and placement of the topic,

key values and laws, the use of graphics, and sources

cited.3 The five-part interpretive framework below evalu-

ates the content of ethics coverage found in the texts. The

first three categories focus on the components of ethics

in public administration-why it is significant, what it

is, and how it is presented-and speak to the value aware-

ness and reasoning skills components of the foundational

elements previously discussed. The last two rubrics

specify how the books conceptualized the management

of ethics in public agencies, and concerns found in carry- ing out ethics programs; these dimensions pertain to the

role of law and organizational implementation aspects of

the foundational elements.

(1) The stated (or implied) importance of the topic

(the nature of the justification for inclusion in

the textbook).

(2) The definition of ethics (the presence of a clear

explanation of the term).

(3) The descriptive or normative style of the dis-

cussion (the objective or subjective quality of the narrative).

(4) The use of a legal compliance or individual/or-

ganizational development approach (conformity to imposed standards to penalize misconduct or

participatory creation of standards to enable re- sponsible behavior) in providing decision-mak-

ing guidance.

(5) The presentation of implementation techniques and issues (an analysis of ways ethical norms

and practices are transmitted, and the desirabil-

ity as well as feasibility of so doing).

196 Public Administration Review a March/April 2001, Vol. 61, No. 2

While the taxonomy facilitates the task at hand, it is cer-

tainly not definitive; the five classifications are, however, reasonable and useful for exploratory purposes. We inde-

pendently evaluated the textbooks; ambiguous cases were

discussed and resolved. Since the purpose is to provide an

overview of the general treatment of ethics, individual text-

books are not evaluated separately. However, examples from

the database are used to illustrate the inquiry.

Findings

Context

By definition, an introductory textbook (with an aver-

age length of 500 pages) typically presents parameters of

the profession by devoting chapters to a broad scope of

public administration topics-the political environment,

history of the field, organization theory, human resource

management, planning-implementation-evaluation, bud-

geting and finance, policy decision making, and so forth.

The ethics chapter(s), not necessarily so designated (see

appendix), is placed at or near the end of six of the books,

close to the beginning in three, and in both locations in

one. It constitutes an average of 6 percent (332 of 5478

pages) of the 10 textbooks that have separate ethics chap-

ters. In addition, many of the publications (including two

that