UNIVERSITY OF SOUTHERN CALIFORNIA
School of Policy, Planning, and Development
Lewis Hall — Los Angeles
20 - 23 May & 17 - 20 June 2004
Chester A. Newland, Professor
PPD 545
Human Behavior in Public Organizations
Organizational behavior is an arbitrarily defined subject, distinguished from management
and administrative theory at USC for purposes of inquiry but not separated from them in either
the study or practice of public administration. Public organizations (including non-governmental
ones) are stressed, but private-sector experience is also studied. Also, contemporary networks
and other variations on behavior contexts are examined. Differences in behaviors associated with
public, private, and other contexts, where they are observable, and absence of such observed
differences are basic topics.
Study of behavior requires inquiry about individuals, groups, and organizations, with
attention to their interrelationships and relations with society generally. It draws on varied
disciplines: philosophy, psychology, sociology, political science, biology, physiology, history,
and anthropology, in particular. It also draws on such fields as law, medicine, engineering, and
management. It ranges into religion, the arts, literature, and the full range of human endeavor and
sloth.
In short, human behavior in public organizations is a challenging, dynamic, applied and
generally interesting field. This course is designed in part to assist students in development of
useful appreciation of limits and opportunities of being human. It has practical purposes: to
strengthen students’ foundations for professional practice, research, and leisure in the field and
related activities. Bottom-line objectives are to facilitate your understanding of people’s
behaviors in organizational and related contexts and, in turn, to help you enhance your
performance in varied roles, including personally and socially valued accomplishment.
Required Books:
Three books and one USC collection of readings are required for PPD 545. These may be
purchased from the USC Bookstore:
1. Robert B. Denhardt, Janet Vinzant Denhardt, and Maria P. Aristigueta, Managing
Human Behavior in Public & Nonprofit Organizations (Thousand Oaks, CA: Sage Publications,
2002).
2. Chester A. Newland, PPD 545 Readings (Los Angeles: USC, 2004).
3. J. Steven Ott, Sandra J. Parkes, and Richard B. Simpson, Classic Readings in
Organizational Behavior, 3rd ed. (Belmont, CA: Wadsworth/Thomson, 2003).
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4. Warren G. Bennis and Robert J. Thomas, Geeks & Geezers (Boston: Harvard Business
School Press, 2002).
Related Books of Interest:
The following books are identified as examples of useful sources, but they are not
required. Included are some publications used in other USC courses that may be helpful in PPD
545.
Amitai Etzioni, My Brother’s Keeper, A Memoir and a Message (Latham, MD: Rowman
& Littlefield Publishers, 2003).
H. George Frederickson and Kevin B. Smith, The Public Administration Theory Primer
(Boulder, CO: Westview Press, 2003).
Paul Hersey and Kenneth Blanchard, Management of Organizational Behavior, 9th ed.
(Englewood Cliffs, NJ: Prentice Hall, 2000), paperback. This is a traditionally focused, mostly
private-sector, practitioner-oriented book, almost like a college-outline publication.
Larry B. Hill, The State of Bureaucracy (Armonk, NY: M. E. Sharpe, Inc., 1992).
Daniel Katz and Robert L. Kahn, The Social Psychology of Organizations (New York:
John Wiley & Sons, Inc., 1966 and 1978). This old textbook is a classic.
Daniel J. Kealey, Cross-Cultural Effectiveness, A Study of Canadian Technical Advisors
Overseas (Ottawa, Canada: Centre for Intercultural Learning, Canadian Foreign Service
Institute, 2nd ed., 2000).
L. Douglas Kiel and Euel Elliott, Chaos Theory in the Social Sciences (Ann Arbor:
University of Michigan Press, 1997).
Beryl A. Radin, The Accountable Juggler, The Art of Leadership in a Federal Agency
(Washington: CQ Press, 2002).
Peter M. Senge, The Fifth Discipline (New York: Bantam Doubleday Dell Publishing
Group, 1990).
Herbert A. Simon, Administrative Behavior (Riverside, NJ: Macmillan [Free Press], 4th
ed., with new introduction, 1997).
Thomas Vulpe et al., A Profile of the Interculturally Effective Person (Ottawa, Canada:
Centre for Intercultural Learning, Canadian Foreign Service Institute, 2nd ed., 2001).
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The World Bank, World Development Reports, 1995 and 2002 (New York: Oxford
University Press, Inc., and Washington: The World Bank, relevant years). The 1995 Report,
Workers in an Integrating World, is particularly relevant to PPD 545. The 2002 Report, Building
Institutions for Markets, is contextually useful, but it best fits other courses.
James T. Ziegenfuss, Jr., Organization & Management Problem Solving (Thousand
Oaks,
CA: Sage Publications, 2002).
Course Outline:
The following topics provide basic starting points for inquiry in this course, but the
outline cannot be strictly followed. For example, at the end of the partial overviews of the field
(set forth in the outline as the first two broad categories of subjects of class study), Part II-E calls
for analysis of today’s disciplines and practices in this field (including relevant inputs from your
own principal specialty). On day two, students will help to lead that discussion, relying on short
papers prepared for class (as noted in that part of this syllabus and in the later section on written
assignments). That broadly important inquiry cannot be elaborated upon in this outline. During
the second series of classes, the subjects identified in Parts I and II will again be examined. In
short, flexibility in times for study of topics in class sessions is required. Nonetheless, Modules
One and Two are identified in the outline, with the understanding that course materials will not
be strictly divided as shown.
Most assigned readings are in the required books listed above. For those in the PPD 545
Readings, only short titles and numbers are used in this outline. Some illustrative items will be
distributed in class, and students will (hopefully) bring others. A few publications may be
searched for electronically, in libraries or elsewhere (including governmental and other
organizations). You are not expected to read all assignments word-for-word. Study them. Learn
your human capacities and limitations.
Module One
I. Organizational Behavior as a Field of Practice: An Overview
A. Contemporary Fragments about Being Human and about Challenges for Organizations
1. Carl M. Cannon, “The Pursuit of Happiness,” in 545 Readings, # 1.
2. Bruce Stokes, “Global Is Better,” in 545 Readings, # 2.
3. Ken Dychtwald, “The Age War Is Coming,” in 545 Readings, # 3.
4. Bob Calverly, “Building the Bionic Brain,” in 545 Readings, # 4.
B. Overview of the Field
Ott et al., pp.1-28.
C. Organization Behavior and the Public Interest
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Denhardt, Denhardt, and Aristigueta (hereafter cited as DD&A), Chapters 1 & 14.
II. Varied Disciplines, Interests, and Perspectives on “Fundamentals.” Structures, Personality,
Perceptions, Beliefs, Learning, and Behaviors
A. Rationality or ???: Economics and/or Psychology ?
1. Herbert A. Simon, “Human Nature in Politics,” in 545 Readings, # 5.
2. James G. March, “The War is Over, The Victors Have Lost,” in 545 Readings,
# 6.
3. Personality!
B. Reasonableness or ???: Optimism about Human Behavior and Transformational
Ideals and/or Pessimism, Human Misbehavior, and Transactional Realities ?
1. John J. DiIulio, Jr., “Principled Agents,” in 545 Readings, # 7.
2. Ott et al., Article 5.
3. Charles Mahtesian, “Taking Chicago Private,” in 545 Readings, # 8.
4. Perception?
C. Culture, Faiths, or ???: Human Being or Becoming or . . . ?
1. Jean-Claude Garcia-Zamor, “Workplace Spirituality and Organizational
Performance,” 545 Readings, # 9.
2. Carolyn Ball and Akhlaque Haque, Diversity in Religious Practice,” in 545
Readings, #10.
3. Roger Scruton, “Impious Europe,” in 545 Readings, # 11.
4. Hugh Heclo, “The Wall that Never Was,” in 545 Readings, #12.
5. Carl Sandburg, The People, Yes (1935).
6. Beliefs!
D. Hierarchy or ???: Bureaucracy and/or Alternatives ? . . . Alternatives! Variations?
1. Ott et al., Articles 26 & 27.
2. Rob Gurwitt, “Entrepreneurial Government: The Morning After,” in 545
Readings, # 13.
3. Behaviors in networks are among variations/alternatives studied later. See 545
Readings # 35 & #36.
4. Organizational Boxes, Boundaries, or ??? Collaboration?
Connectedness!
E. Discipline and Disciplines or ???: Disconnected Concepts and Actions and or
Theory-Grounded Practicality? Experience? Learning! Advanced Knowledge
Culture?
On Thursday, 20 May, each student is to submit a copy of three double-spaced,
one-page papers (no more than three total pages will be accepted) for duplication
by USC and distribution to other students in the class. In one paper, please
identify your own basic discipline or field (engineering, anthropology, criminal
justice, political science, business, sociology, history, etc.) and briefly analyze
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one useful publication not included in this syllabus (such as a journal article,
book, or governmental publication) from that discipline/field that contributes to
understanding of organization behavior. In the second one-page paper, please
identify a second discipline or field of importance to you. Again, briefly analyze
one useful publication (not in course assignments) from that specialty that
contributes to understanding of human behavior in organizations. In a third onepage paper, please identify one major subtopic of organization behavior (as
identified in Parts III - XIII of this syllabus) and briefly summarize one researchbased publication that is relevant to that topic that is not included in this syllabus
or the assigned books.
Please do not staple the three pages, since all will be duplicated (in alphabetical
order of students’ names) for distribution. Please put your name at the top of each
one-page paper and paperclip the pages in the order of the three assigned topics.
III. Human Beings and Human (Inhuman?) Organizations
A. Individuals and/or Social Beings. Self Management? Place and Community Values?
1. DD&A, Chapter 2.
2. Values of Place and Planet (Localization and Globalization).
B. Being in Organizations: Being! Decaying? Self Actualizing? . . . in Organizations?
1. Mary B. Young, “Work-Family Backlash,” in 545 Readings, # 14.
2. Film: Why Man Creates.
C. What is Being Human?
1. W. H. Auden, Another Time (1935).
2. Richard L. Schott, “The Psychological Development of Adults,” and Mary
Timney Bailey’s comment, with Schott’s reply, in 545 Readings, # 15.
3. DD&A, Chapters 3 & 4.
IV. Decision Making
A. Textbook Perspectives: DD&A, Chapter 5.
B. Early Debates
1. Please review 545 Readings, # 5 & 6.
2. Edward Banfield, “The Decision-Making Schema,” in 545 Readings, # 16.
3. Herbert A. Simon, “A Reply,” in PPD 545 Readings, # 17.
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C. Other Classic Formulations
1. Charles E. Lindblom, “Still Muddling,” in PPD545 Readings, # 18.
2. Camille Cates (Barnette), “Beyond Muddling,” in PPD 545 Readings, # 19.
3. Mixed-Scanning Model; Garbage Can Model; Whatever?
D. Decision-Making Technologies and Systems
V. Motivation Theories and Practices
A. Textbook Treatments
1. DD&A, Chapter 6.
2. Ott et al., Pages 132 -141 and Articles 10 - 17.
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B. Public Employee Motivations
1. Michael P. Bobic and William Eric Davis, “A Kind Word for Theory X,” in
545 Readings, # 20.
2. Gregory Lewis and Susan Frank, “Who Wants to Work for the Government,”
545 Readings, #21.
3. Gene Brewer, “Building Social Capital,” in 545 Readings, # 22.
4. Jacqueline A.-M. Coyle-Shapiro and Ian Kessler, “The Employment
Relationship in the U.K. Public Sector,” in 545 Readings, # 23
C. Organizations and Markets
1. Herbert Simon, “Organizations and Markets,” in 545 Readings, # 24.
2. The World Bank, Building Institutions for Markets. This book is listed among
those recommended above. It is not required, but it will be noted in class.
3. Again consider John DiIulio’s article in the 545 Readings, # 7.
VI. Management and Leadership
A. Textbook Frameworks
1. DD&A, Chapter 7.
2. Ott et al., Pages 29 - 41 and Articles 1 - 4 and 6 - 9.
3. Fred E. Fiedler and Martin M. Chemers, Leadership and Effective Management
(Glenview, IL: Scott, Foresman and Co., 1974). This old book will be
noted here for historical perspectives on research and concepts in the field.
B. Transactional and/or Transformational Leadership
Ott et al., Article 5.
C. New Public Management and Managerialism
Moshe Maor, “The Paradox of Managerialism,” in 545 Readings, # 25.
VII. Power and Influence; Authority, Community, and Reasonableness.
A. Textbook Frameworks
1. DD&A, Chapter 8.
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2. Ott et al., Pages 385 - 392 and Articles 32 - 36.
B. “Kissing Up”
Manfred F. R. Kets de Vries, “Folie a Deux,” in 545 Readings, # 26,
C. Authority and Responsibility — Social Capital
1. Andrew B. Whitford, “Bureaucratic Discretion,” in 545 Readings, # 27.
2. Elizabeth Keller, “The Ultimate in Community Service,” in 545 Readings, #
28.
Module Two
Module Two topics will be touched upon in Module One and vice versa.
VIII. Communication
Textbook Treatment: DD&A, Chapter 9.
IX. Groups, Intergroup Behaviors, and Interpersonal Dynamics; Managing Conflicts
A. Group and Intergroup Behaviors
1. DD&A, Chapter 10.
2. Ott et al., Pages 220 - 231 and Articles 18 - 20 and 22 - 24; Ott et al., Pages
304 - 312 and Article 25. Note Articles 26 & 27, studied earlier.
B. Gender and Interethnic/Interracial Behaviors
Gregory B. Lewis, “Race, Sex, and Performance Ratings in the Federal Service,”
in 545Readings, # 29.
C. Neutrality in Public Service
Christopher A. Simon, “Testing for Bias in the Impact of AmeriCorps Service,” in
545 Readings, # 30.
D. Age and Experience
Philip E. Crewson and Bonnie S. Fisher, “Growing Older and Wiser,” in 545
Readings, # 31.
E. Managing Conflicts
1. DD&A, Chapter 11.
2. Ott et al., Article 21.
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F. Selected Contemporary Concerns
1. Consider Chaos Theory — Douglas Kiel (listed in optional readings).
2. The Contemporary “Decentralization/Devolution Movement.” Especially see
World Bank Reports.
X. Organization Change
A. Textbook Frameworks
1. DD&A, Chapter 12.
2. Ott et al., Pages 434 - 446 and Articles 37 - 44.
B. From O.D. in the 1950s - 1960s to Learning Organizations in the 1990s to AdvancedKnowledge Dynamic Cultures of 2003+.
1. Individual and Organizational Behavior Change Movements.
2. Peter M. Senge, The Fifth Discipline. Recommended Book. A Fad? An excerpt
from this book is in Ott et al., # 41.
C. Behavioral Change Technology
1. Ethan A. Singer and Leland M. Wooten, “The Triumph and Failure of Albert
Speer’s Administrative Genius,” in 545 Readings, # 32.
2. Contemporary Behavioral Change Concepts and Practices.
XI. Organization Culture Fragments
A. Classic Fragments — Ott, Articles 28 - 31.
B. Meaning and Emotion in Organization Behavior? Creating Culture? Stress! Success?
1. Ronnie J. Steinberg and Deborah M. Fogart, “Emotional Labor,” in 545
Readings, # 33.
2. U.S. Civil Service Reform Act of 1978 — Impacts of CSRA focus on monetary
rewards for performance rather than on public service.
C. Career Cultures versus Alternatives
Reconsider 545 Readings # 7, 22, & 23.
D. Organizations and Social Systems
Joseph W. Grubbs, “Participation and Change: Using Large Group Intervention
Methods,” in 545 Readings, # 34.
E. Comparative Studies
Chester A. Newland, “Transformational Challenges in Central and Eastern
Europe,” class handout.
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XII. Boundary Spanning, Networks, and Post-Modern Contexts.
A. Boundary Spanning
DD&A, Chapter 13.
B. Behaviors in Networks
1. Robert Agranoff and Michael McGuire, “Big Questions in Public Network
Management Research,” in 545 Readings, # 35.
2. Kenneth J. Meier and Laurence J. O’Toole, “Managerial Strategies and
Behavior in Networks,” in PUAD 585 Readings, # 36.
C. Post Positivism! Post Modernism!?!
XIII. Enduring and Current Issues and Fashions in Public-Sector Organization Behaviors
A. Public Interests and Organization as a Moral Problem
1. Managing in the Public Interest: DD&A, Chapter 14.
2. Codes of Conduct and Codes of Ethics.
B. Economic Rationality and Political Responsibility. Rationality? Responsibility!
1. Suzanne Piotrowski and David Rosenbloom, “The Problem of Non-MissionBased, Democratic-Constitutional Values in Results-Oriented Public
Management,” in 545 Readings, # 37.
2. Again note Herb Simon, in 545 Readings, # 5, James March, in 545 Readings,
# 6, and John DiIulio, in 545 Readings, # 7.
C. Enduring and Changing Public-Sector Values and Disciplines in Human Behaviors
1. Beryl Radin’s book, The Accountable Juggler, is not required in this course. It
is a text in PPD 546. However, Donna Shalala, the HHS Secretary who is
the key example in that book, merits study throughout this course as well.
2. Disciplines of Constitutional Democracy and Human Behavior in
Organizations and in Other Contexts.
3. Behaviors/Misbehaviors; Human/Inhuman Behaviors in and out of
Organizations; Transactional/Transformational Behaviors; Creativity,
Productivity, Sloth, etc.
Written Assignments:
Three written assignments are required for this course, as follows:
1. On 20 May, please submit three one-page papers, as assigned in Part II of the course
outline above (see pages 4 & 5). Carefully use a professional style of English composition.
Doublespace and document in a standard format. Proofread. Each paper must be no more than
one page long, for a total of three pages.
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2. On 17 June, an examination of 120 minutes will be written in class. It will be a closedbook exam. You will write on any two topics that you select from not less than eight. Subjects
will be discussed and clearly determined during the first series of classes. You may write in long
hand or with a PC word-processor.
3. By 19 July, a two-part, final term paper of 19 to 24 double-spaced pages must be
submitted (postmarked or express dated). Please do not submit email attachments. The first part
(of around 14 to 16 pages) is to be an analysis of practical aspects of human behaviors in the
organization where you now work (OR, if you are not now employed, in an organization where
you formerly worked, OR in an organization where you hope to work, OR USC or a component
organization of the University). You are to support this organization-behavior analysis with
references to specific publications assigned in this course, and you may cite other relevant
sources as well. The second part (of around 5 to 8 pages) is to be an analysis of self-assessment
and/or professionally administered instruments “designed to assess/ evaluate individuals.” Note
that the assignment does not ask you to do a self assessment; instead, you are to evaluate selfassessment tools/instruments. For example, the DD&A book includes many assessment
instruments. Also, the World-Wide Web is cluttered and/or blessed with such sites as
www.iqtest.com, www.mensa.org, www.personalitypathways.com, and www.9types.com (some
of which come and go faster than the lifetime of this syllabus). Also, educational institutions
commonly provide student guidance centers that provide assessment services. No less than
three-pages of outlines (or first drafts of your two-part paper) must be brought to class on 17
June for review with other students. Along with substantive contents and sources, correct English
composition and professional appearance will be evaluation criteria for final term papers.
Class Sessions and Grading:
Classes will be in Lewis Hall (SPPD’s building) at the USC main campus in Los
Angeles. The number of the room (probably on the second floor) will be posted on the first day
in Lewis Hall. You may also inquire on the first day at the SPPD Student Affairs Office (RGL
108) or at RGL 312.
The first class on 20 May will start at 9:00 am and will end at 5:00 pm. Sessions on other
days may be scheduled to start earlier (or to extend a bit later) for the convenience of students if
the class wishes to do that to facilitate reduced traffic congestion and/or somewhat earlier
Sunday departure schedules. Full class attendance is expected please.
As in other graduate/professional education, reasonable flexibility and responsibility are
necessary in grading. As suggested earlier, it is beyond most human capacities to read in detail
all of the assigned materials in this course. Instead, you are to study the materials reasonably,
learning in the process about limits and capacities of being human. The examination will be
evaluated as about 25 to 35 percent of the grade; the short papers and class participation will
count as about 25 to 35 percent of the grade; the final two-part paper will count as about 35 to 50
percent of the grade. The basic standard will be the fundamental one of professional practice of
public administration: a search for reasonableness.
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Course Professor:
Chet Newland is the teacher for this course. He has been associated with USC since 1966
when not in other service. He is currently USC’s Duggan Professor of Public Administration.
Twice he served as director of the Federal Executive Institute, and he was the initial director of
the Lyndon Baines Johnson Library. He was the editor in chief of the Public Administration
Review, 1984-1990. He is a past national president of the American Society for Public
Administration, and he has been a member since 1975 of the congressionally chartered National
Academy of Public Administration. He is an honorary member of the International City/County
Management Association (ICMA), and he is currently a member of the Cal-ICMA general board.
His international work outside of North America has included assignments in Bahrain,
Bangladesh, Greece, Hungary, Kazakhstan, Korea, Kuwait, Poland, and Taiwan (ROC).
You may phone Chet Newland at 916-442-6911, ext. 24; fax to 916-444-7712; e-mail to
newland@usc.edu; or stop by the USC Center, 1800 I Street, Sacramento, CA 95814-3004.
During periods of the intensive-semester course, meetings in L.A. before and after class sessions
should also be possible.
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Any student requesting academic accommodations based on a disability is required to
register with Disability Services and Programs (DSP) each semester. A letter of verification for
approved accommodations can be obtained from DSP, Office of Student Affairs, STU 301;
University of Southern California; Los Angeles, CA 90089-0896. The phone number of DSP is
213-740-0776, and that office is open from 8:30 am to 5:00 pm Monday through Friday. Please
be sure that the letter is delivered to me (the course professor) reasonably long before the start of
intensive-semester classes.
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Please do not present gifts of any sort to USC faculty or staff.
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