Managing Urban America - 7th Edition Book

Tables, Figures, and Boxes xv

Preface xvii

About the Authors xix

Part 1 The Environment of Urban Management

1 Managing American Cities in the Twenty-first Century 1

Introduction: American Cities Continue to Change and Evolve 1

How and Why American Cities Have Changed 2

The State of American Cities: Fiscal Affairs 3

The State of American Cities: Social and Demographic Conditions 6

How Cities Have Improved Their Management Capacity 9

Reinventing Government: A Pragmatic Response to Fiscal Crisis 9

The New Public Management Model: An Academic Response to REGO 13

Systems Analysis and Local Policymaking 15

Systems Theory 15

Citizen Participation in City Government 19

IT's Child-E-Govemment 21

Better Management Is Not Enough 24

Community Values 24

Institutional Inertia 26

The Political Environment 26

Leadership Qualities 26

The Plan of the Book 27

Suggested For Further Reading 29

Notes 29

2 Cities and the System of Intergovernmental Relations 33

Federalism 33

Intergovernmental Relations 40

Fiscal Federalism 40

The States and the Cities 49

Federal-City and State-City Relations: The Issue of Mandates 51

Interlocal Relations 53

Special Districts: A "Special" Type of Decentralization 56

Mechanisms for Coordination: COGs and MPOs 57

Summary 59

Suggested For Further Reading 59

Notes 60

3 Urban Political Structure 64

The Reform Movement 64

The Goals and Assumptions of Municipal Government Reformers 66

The Characteristics of Reform Government 67

The Impact of Reform 69

Forms of City Government 71

Mayor-Council Government 71

Council-Manager Government 74

Ballot Type 77

Electoral Systems 80

Judicial and Legislative Intervention 81

The Initiative, the Referendum, and the Recall 82

Home Rule and the Legal Status of the City 83

Summary 84

Suggested For Further Reading 85

Notes 85

Part 2 Managing Conflict and Delivering Goods and Services in the Modern City

4 Urban Policymaking 89

The Nature of Urban Policy 89

Policymaking as a Relatively Stable, Orderly Series of Events 91

Reactive Policymaking 95

Trifurcated Policymaking: Allocational, Developmental, and Redistributive Policies 96

Chief Executives 97

Mayors 97

City Managers 102

Mayor-Manager Relations 106

The City Council 107

Council-Manager Relations 110

Bureaucrats and Policy 113

Bureaucratic Decision Rules 115

Bureaucratic Discretion 115

Citizens' Influences on City Government 116

Elections and Voting 117

Political Parties and Interest Groups 118

Citizen Participation (Redux) and Citizen Contacts with Local Government 119

Citizen Contacts with Local Government 121

Summary 122

Suggested For Further Reading 123

Notes 123

5 Urban Planning and Development 128

The Nature of City Planning 128

Newer Approaches to Planning 129

Policy Planning 130

Obstacles to Planning 131

Planning in a Political Environment 132

Planning and Politics 133

Planning Activities 136

Comprehensive Planning 136

Zoning 139

Urban Economic Development 142

Economic Development as a Process 143

The Economic Development Plan 144

Strategies and Tools for Economic Development 146

Organizing for and Managing Economic Development 150

Leading and Managing 152

The Politics of Urban Development 152

Consensus Building 153

Who Participates and Who Benefits 153

Summary 155

Suggested For Further Reading 156

Notes 157

6 Decision Making and Analysis 160

Approaches to Decision Making 160

The Rational-Comprehensive Approach 160

Incrementalism 167

Mixed Scanning 169

The Garbage-Can Model 169

Decision-Making Tools 170

Quantitative Aids 170

Nonquantitative Aids 173

Program Analysis and Other Systematic Approaches to Decision Making 174

The Analysis Process 175

Analysis and Political Feasibility 181

Analysis Applications 183

Geographic and Management Information Systems: Friends of Analysis 185

The Contributions and Limitations of Analysis 189

Summary 190

Suggested For Further Reading 191

Notes 191

7 Urban Service Delivery 195

Goals for Service Delivery 195

Measuring Efficiency and Effectiveness of Urban Services 196

Benchmarking 199

Performance Measures 199

Using Measurement Data 200

Problems in Using Performance Measures 202

Improvements in Employee Performance 203

Technological Improvements 205

Equity of Services: A Political Goal? 206

Responsiveness in Service Delivery 208

Alternative Service Delivery 211

Contracting Out 211

Competitive Contracting 214

Intergovernmental Agreements 216

Implementing and Evaluating Urban Programs 217

Evaluation Designs 218

Evaluating Program Evaluation 220

Citizen Surveys 221

Conducting the Surveys 222

Survey Limitations 222

Summary 223

Suggested For Further Reading 224

Notes 225

Part 3 Internal Management Processes

8 The Management Process: Theory and Practice 229

Organizations as Open Systems 229

Scientific Management 230

Humanistic Management 232

Leadership 239

The Elements of Leadership 240

Leadership Traits 240

Leadership Styles 241

Situational leadership and the "Master Manager" 243

Managing for Results (MFR): Management by Objectives (MBO) and Total Quality Management (TQM) 246

The New Public Service? 247

Management by Objectives 249

Total Quality Management 252

Potential Problems with Management Techniques New to a City 259

Summary 260

Suggested For Further Reading 261

Appendix 8-A 262

Appendix 8-B 263

Appendix 8-C 264

Notes 265

9 Managing Human Resources 269

Organizing the Personnel Function 270

Structure 270

Purpose 271

Human Resource Management Functions 271

Staffing 273

Classification 277

Compensation and Performance Appraisal 278

Issues in Human Resource Management 283

Equal Employment Opportunity and Affirmative Action 283

Affirmative Action 283

The Americans with Disabilities Act of 1990 286

The Courts, EEO, and Selection Procedures 287

Comparable Worth 289

Sexual Harassment 291

Managing Diversity in Municipal Government 291

Labor-Management Relations 293

Municipal Unions 293

Collective Bargaining Procedures 295

Municipal Unions in Perspective 299

Summary 300

Suggested For Further Reading 301

Notes 301

10 Finance and Budget 307

Revenue Raising 308

The Municipal Finance System 308

Revenue Sources 308

Revenue-Raising Alternatives 310

The Politics of Revenue Raising 313

Expenditures 316

Budgeting 318

The Budget Process 318

The Traditional Approach: Line-Item Budgeting 320

Budgetary Reform 321

Reinventing Budgeting 325

Capital Improvement Planning and Budgeting 326

Whither City Budgeting? 327

Managing Municipal Finances 329

Forming Goals and Objectives 329

Planning and Budgeting 329

Reporting and Monitoring 331

Evaluating 331

The Integrated Financial Information System 331

Summary 332

Suggested For Further Reading 333

Notes 333

Part 4 The Urban Future

11 Managing the Urban Future 336

Management and Leadership in an Age of Permanent Fiscal Crisis 337

The Job of the Urban Manager 338

Leadership within the Municipal Organization 339

Managing Politics 341

Ensuring Ethical Behavior 345

Managing the Twenty-first Century At-Risk City 346

A Call to Service 348

Suggested For Further Reading 348

Notes 348

Index 351