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THE IMPACT OF ADMINISTRATIVE BEHAVIOR ON PUBLIC ADMINISTRATION TEXTBOOKS

Author(s): DELMER D. DUNN
Source: Public Administration Quarterly, Vol. 12, No. 3 (FALL 1988), pp. 369-384
Published by: SPAEF
Stable URL: http://www.jstor.org/stable/40861428
Accessed: 19-03-2017 06:06 UTC

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THE IMPACT OF
ADMINISTRATIVE BEHAVIOR
ON PUBLIC ADMINISTRATION
TEXTBOOKS

DELMER D. DUNN
University of Georgia

INTRODUCTION

The prominence of Herbert Simon's Administrative Behavior

(1947) invites assessment of its impact on the field of public
administration. [1] Simon's goal was to restructure the study of
public administration by focusing upon organization decision-
making and developing empirical studies to construct a science
of administration. The book indicted the state of the field of
public administration, especially its adherence to commonly
held principles of administration and suggested a new science of
administration should take their place, based on empirical
studies of the field. These sweeping goals invite examining how
the book impacted the field.
This study stems from an important and growing field which
Merton (1973) has dubbed "the sociology of knowledge." Such
studies focus on the production, dissemination, and diffusion of
knowledge. Although knowledge dissemination and diffusion
can occur in a variety of ways, textbooks in a field constitute a
primary route. If a given way of viewing phenomena associated
with a field of study has an impact, that should be visible in
textbooks. This study will first examine the citations and space
devoted to concepts and topics from Administrative Behavior in
public administration textbooks published since 1975. It will
then compare coverage in these texts with those published in
the 1950s and 1960s. This study utilizes content analysis,
focusing in each text on the number of citations as well as

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 (370) PAQ FALL 1988

attention devoted directly

ciated with Administrative B
detailed procedures used.

CITATIONS OF ADMINISTRATIVE BEHA VIOR

The number of direct citations of Administrative Behavior in

public administration textbooks published since 1975 provides
one measure of the book's impact on the field. The definition of
citations includes direct citations of Administrative Behavior as
well as references to Simon in the texts (as in " Simon states . . . " )
but does not include citations of other Simon works. Table 1
shows that all but one of the 27 recent introductory public
administration textbooks cite the book. Ten books cite Simon
three times or more; only five cite it six times or more.
The amount of space the texts assign to direct discussion of
these concepts provides a more revealing indicator of the book's
influence on contemporary depictions of the field. Modern texts
emphasize concepts from Administrative Behavior including
decision-making, critique of administrative principles, induce-
ments to participate, organization communication, and other
themes.
Decision-making: Organization decision-making constitutes
the most important emphasis of Administrative Behavior, with
one writer noting that to Simon decision-making was the heart
of administration (Landau, 1962:19). This emphasis, as modern
textbooks cover it, usually includes the concepts of bounded
rationality and satisficing. Consistent with Simon's stress on
decision-making, 24 of the 27 modern texts cite Administrative
Behavior when discussing decision-making. Seven of the texts
devote more than a page to it and another four about a page. But
most books include only brief references or at most several
sentences.

Critique of Administrative Principles. Simon criticized the

study of the field of public administration, especially it
emphasis upon administrative principles. He also argued for the
development of a science of administration based more upon
empirical investigation than upon adherence to normative
principles which often contradicted one another. Many

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PAQ FALL 1988 (371)

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(372) PAQ FALL 1988

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 PAQ FALL 1988 (373)

contemporary texts refer to

of the historical developm
textbooks give Simon's cr
principles almost as much attention as they give to his
discussion of decision-making. Six texts devote more than a
page to this critique and another three about a page. But, again,
most textbooks provide no more than a passing glance, if that,
to this Simon concept.
Inducements to Participate. Simon also discussed induce-
ments to participate in organizations, borrowing heavily from
Barnard (1938). He includes authority and the "zone of accept-
ance" in his treatment of relationships between organization
leaders and their subordinates. Few modern textbooks target
this set of concepts, with only 11 of the 27 referencing this
subject matter. Of the 11, only one devotes more than a few
sentecnes to it.
Organization Communication. Simon also emphasized organi-
zation communications in his explanation of administrative
behavior. But this focus does not penetrate many modern
textbooks, with only four of the 27 referring to it. None devotes
more than a few sentences to it.
Other Themes. Two Simon themes do not pass the threshold
for inclusion into the textbooks examined for this study.
Administative Behavior stressed the necessity for developing a
science of administration. Although this concern relates closely
to the critique of principles of public administration, the texts
usually emphasize Simon's evaluation of the past rather than his
call for changes in the way the field should be studied in the
future. Administrative Behavior also emphasized the informal
basis of organization behavior. Several texts discussed the
concept but none relied upon Simon directly in the discussion.
Modern public administration textbooks devote attention to
Administrative Behavior with the most persistent themes
including its contributions to decision-making and a critique of
administrative principles. Overall, however, the texts devote at
best only modest attention the the book.

INDIRECT IMPACT OF ADMINISTRATIVE BEHAVIOR

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 (374) PAQ FALL 1988

Those who study knowled

although interested in the
search for indirect impact o
inquiry stresses the ways knowledge impacts frames of
reference or paradigms; calls into question existing practices;
brings new ideas to the attention of others interested in the
questions covered by a study or a book; or sensitizes others to
new concepts and perspectives (Berg and Theado, 1981; Weiss
and Bucuvalas, 1980; Zaltman, 1983; Caplan, 1983).
Searching for indirect impact- as in the shifting of para-
digm-presents some obstacles. Most of Simon's ideas do not
enjoy unique status. Many come directly from Barnard (1938);
others appeared in conjunction with collaborators (e.g., Simon,
Smithburg, and Thompson, 1950; March and Simon, 1958).
Many individuals have studied the same arena as did Simon.
For example, Cyert and March (1963), Lindblom (1959, 1968),
and others also studied decision-making. Once ideas flow into a
stream of knowledge, it becomes difficult to take a sample
downstream to separate the relative contributions.
For these reasons, this analysis must be general and any
conclusions tenuous. But this study attempted to assess the
indirect impact of Simon's Administrative Behavior in a direct,
if limited way- by determining whether public administration
texts treat at least in chapter-length some of the concepts
propounded in Administrative Behavior. That is, regardless of
what works the authors cited, did the concepts associated with
the Simon book merit chapter-length treatment? The assump-
tion here is that, if they did, Simon's work may have had some
impact on the field.
The concepts examined here include several discussed above
-decision-making, communication, and authority- and three
additional ones which round out this analysis. Simon titled his
book Administrative Behavior and also called for creating an
"administrative science." Finally, Simon's work indicated a
concern with "leadership" of administrative agencies, although
at times he approached this topic through other concepts such
as authority.
Do modern textbooks include chapter-length treatment of any
of these six central themes? The most usual chapter-length

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PAQ FALL 1988 (375)

TABLE 2
CHAPTERS IN RECENT PUBLIC ADMINISTRATION TEXTS
DEVOTED TO MAJOR CONCEPTS IN SIMON'S
ADMINISTRA TIVE BEH A VIOR

Decision Communi- Leader- Science of

Making Authority cation ship Administration

Berkley X X
Bernstein/
O'Hara X
Bozeman X X
Fesler X
Gordon X X
Gortner X X X X
Henry X
Hill/Hebert X
Kramer X
Lorch X

McCurdy X X
McKinney/
Howard X X

Murphy X
Nigro/Nigro X X
Richardson/
Baldwin X XX
Rosenbloom X

Sharkansky X
Starling X
Williams X XX

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(376) PAQ FALL 1988

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 PAQ FALL 1988 (377)

treatment of concepts or t
turns on decision-making
books; leadership following
texts as noted in Table 2.
focus on other major conce
chapters on communication
broadly defined, and only
tive science. None utilizes the concept of administrative
behavior in chapter-length treatment. One interesting extrapo-
lation from Table 2 shows that eight of the 27 books- about
one-third of the total- contain no chapters which identify with
Simon's Administrative Behavior themes. Further, given the
variable content of modern public administration textbooks,
even the texts which assign several chapters to Simon-related
concepts actually devote only a small part of the entire texts to
such topics.

SIMON AND EARLIER TEXTBOOKS

Examining textbooks published since 1975 provides one

picture of the impact of Administrative Behavior on the field of
public administration. But the book was published first in 1947.
Does the treatment of Simon by the tectbooks published before
1975 provide any insight about the impact of the book on the
field?
The number of citations of Administrative Behavior by earlier
textbooks differs little from those of more modern textbooks as
shown in Table 3. The 1950s texts cite the work only moderately
at best with the range approximating that of the later texts. Two
1960s texts cite it more often than most earlier or later texts.
The attention texts devote to the six central concepts does
vary over time. Earlier texts, as Table 3 indicates, pay little
attention to Simon's treatment of decision-making. Only one
earlier text devotes as much as a page to it. Earllier texts'
treatment of Simon's critique of the field also contrasts sharply
with the more modern texts, with the earlier texts devoting less
attention to it. The earlier texts generally place more emphasis
on Simon's discussion of authority and inducements to partici-
pate than do modern texts. Earlier texts which discuss this set of

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 (378) PAQ FALL 1988

concepts usually do so in se
rely on ever briefer refere
and Milieu, 1954) do devote brief attention to the social
psychology of organization behavior in discussing Simon, a topic
not cited by later texts. Texts from neither era emphasize
Simon's discussion of organization communication.

CHAPTER EMPHASIS IN EARLIER TEXTBOOKS

This study also examined the chapter emphasis of earlier

textbooks. Overall, Table 4 shows that earlier texts differ little
from contemporary texts, with the most notable difference
centering on decision-making. No 1950s textbook in this study
devotes a chapter to this subject; by the 1960s, several do and
that emphasis continues in many later texts. One early textbook
devotes a chapter to administrative behavior- Simon's collabo-
rative work with Smithburg and Thompson. Overall, then,
continuity marks much of the introductory public administration
textbook subject matter from the 1950s through the 1970s and
early 1980s.
A final analysis seeks to discern Simon's influence on public
administration textbooks by examining editions of the two
textbooks published before and after the publication of Adminis-
trative Behavior- White (1939, 1948, 1955) along with the text
authored by Pfiffner (1946) and then by Pfiffner and Presthus
(1953, 1967).
White's emphasis does not change appreciably between the
first (1939) edition and second (1948) editions. White's second
edition (1948:193-196) discusses decision-making but that
discussion is brief. The second edition also contains a new
section on 'The Dynamics of Management" with chapters on
administrative leadership and on coordination and communica-
tion. These chapters do not appear in the third (1955) edition
which only briefly notes Simon, despite the fact that White
supervised the dissertation which formed the core of Adminis-
travie Behavior. Thus, none of White's texts devotes major
attention to ideas identified with Simon. This is consistent with
Simon's observation in the interview above that White showed
little interest in his work.

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PAQ FALL 1988 (379)

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 (380) PAQ FALL 1988

Pfiffner (1946) does not cit

second edition. In the 1953 e
appear and by the 1967 edit
subjects associated with th
length treatment in the 194
chapters on authority, com
chapter on decision-makin
chapter on decision-maki
chapters covering authority

CONCLUSIONS

What does this analysis show about the penetration of

Administrative Behavior into public administration textbooks?
Most textbooks do not reference it more than they did in the first
decade after its publication, but Simon's ideas do receive
somewhat more extensive coverage. Moreover, modern
textbooks provide more focus in their treatment of Simon with
decision-making and the critique of traditional administration
principles receiving the primary attention in the fourth decade
after the book's publication.
Administrative Behavior thus constitutes a clearly recognized
contribution by many recent textbook authors. But Simon's
ambitions for the book seem to go beyond marginal contribu-
tions to understanding the field. His book literally calls for
major shifts in the paradigm by which we organize the study of
public administration (Golembiewski, Welsh, and Crotty, 1969:
201). Simon's attack on traditional principles and his quest for a
science of administration indicate considerable frustration with
the paradigm which reigned at the time he wrote the book.
Kuhn (1970), of course, indicates that paradigm shifts begin just
in this way- dissatisfaction with the adequacy of the
explantions offered by the old paradigm. Indeed, Simon did not
stand alone in this frustration. Others, including Waldo (1948),
also expressed difficulties with the traditional paradigm. In fact,
the clammor of dissatisfaction continues with the quest for a
' 'new public administration, ' ' especially pronounced in the very
late 1960s and very early 1970s, providing another example of
the continued search for the paradigm which works. This

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 PAQ FALL 1988 (381)

continued quest for a new

that Simon did not inspire
trative Behavior. The texts also add to this evidence. No text-
not even that by Simon, Smithburg, and Thompson (1950) -
utilizes the paradigm put forward in the book to organize their
treatment of the field of public administration.
What do modern textbooks indicate about the field of public
administration? The textbooks indicate that the subject matter
of the field constitutes a mixture of various strands which go
back the the beginnings of systematic thinking about the field.
One finds that POSDCORB still reigns in modern texts. Many
texts also sprinkle in generous portions of "post-POSDCORB"
public administration, including theories which reflect those of
Simon, Lindblom, Cyert and March, Waldo, Argyris, Golem-
biewski, and others. A number of recent texts build onto this
base with chapters on administrative ethics (a subject which
appeared previously in chapter form in some of the 1950s texts),
and on policy analysis and evaluation. None really focuses upon
decision-making as an organizing scheme for the field- or upon
the creation of an empirically based administrative science for
public administration.
The search for a new paradigm for public administration thus
continues.

NOTES

1. The author expresses appreciation to Robert T. Golembiewski, Thomas P. Lauth,

and Ronald Randall for helpful comments on earlier drafts of this study.

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 (384) PAQ FALL 1988

METHODOLOGICAL APPENDIX

The study uses several decision rules to determine the

number of citations of Administrative Behavior in public
administration textbooks. Given different practices by authors
and publishers, the following rules were used to make citations
in all of the texts as comparable as possible.
1. Since authors follow different practices in referencing
materials, this study provides credit for one cite no matter how
lengthy the attention to a given concept from Simon. Before
credit for another citation is given, a break in the discussion
must occur.
2. Authors sometimes discuss Simon without emplicitly citing
Administrative Behavior or other Simon works. When a text-
book discusses Simon without citing his work explicitly, the
study assigns citation credit if the general subject matter
appears to be related to Administrative Behavior.
3. Explicit citations to work of Simon other than Administra-
tive Behavior are not credited in this sudy, no matter how
similar the ideas from another Simon work might be. The study
sought to examine the impact of Administrative Behavior in this
part of the analysis, not other works of Simon. Several textbooks
cite other works of Simon more frequently than they cited
Administrative Behavior.
4. The third edition of Administrative Behavior contains
several chapters of Simon's works originally published as
articles. Citations of these chapters are not included in the
citation count, consistent with number 3 above.
5. Some textbooks provide material, usually at the end of each
chapter, which includes "for further reading," bibliographies
or exercises; others do not. This study does not include citations
of Simon's work which appear in such sections; it includes only
citations or references which appear directly in the text of the
book.
6. The study uses the index and footnotes (or endnotes) in
each textbook to locate references to Simon.

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