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CHAPTER 6
The Management of Human Resources

 LEARNING OBJECTIVES
1. Understanding the value of a merit system in government employment
2. Learning about the activities of the human resources function
3. Understanding the importance of collective bargaining and labor-management relations
4. Learning about issues that affect human resources, such as diversity and discrimination
5. Understanding the relationship between the political and career administrators

 SUMMARY OVERVIEW
The concept of a merit-based civil service personnel system serves as a principal organizing
feature of this chapter. The authors address the importance of managing the people who work in
government organizations and examine the reasons behind the rules, regulations, and “red tape”
that often appear as roadblocks to effective personnel management. The chapter covers the rise of
the spoils system in the United States and the move to reform the civil service based on merit
rather than political favoritism, including the creation of the Pendleton Act, the Civil Service
Reform Act, and more recent efforts at “reinvention.” The discussion also addresses the ways in
which these reforms have been adopted at the state and local levels.
Chapter 6 also examines the main components of the personnel function, including classification
systems, recruiting, and pay systems. Conditions of employment also are addressed in this
section, as those who hire and manage government employees must be concerned with issues of
drug use, sexual harassment in the workplace, the rights of individuals with HIV/AIDS, violence
in the workplace, and processes for removing employees.
A key component of this chapter is a detailed discussion about the changes in the relationship
between labor and management in the public sector and the rise and decline of public-sector
unions. The authors trace the history of public-sector unions, outlining the conditions that led to
their development and affecting their growth. Labor-management relations at the federal level
also are contrasted with those at the state and local levels. This section offers a detailed
description of the steps in the bargaining process and discusses the implications of the decision on
the part of employees to strike. This section closes with a look at recent efforts to limit collective
bargaining rights for public employees at the federal, state and local levels.
The chapter then moves to an examination of fundamental issues of discrimination in public
employment, which includes a review of the development and purpose of equal employment
opportunity and affirmative action programs and the Americans with Disabilities Act. The
authors detail the varying approaches to enforcing compliance among employers as defined by
federal guidelines and key court decisions and discuss recent developments in attempts to correct
past patterns of discrimination against women and minorities through affirmative action. This
section also includes an examination of the problems of extending diversity throughout public

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72 Chapter 6: The Management of Human Resources

organizations and the gaps that still are being experienced by women and minorities in terms of
pay, job status, and overall employment opportunity.
The final section of the chapter deals with the difficult relations between political appointees and
career executives. The authors argue that the tension between political responsiveness and
managerial effectiveness that characterizes public administration is illustrated particularly well in
the relationship between political appointees and career public executives. As appointees become
“bosses” of career civil servants, tensions may arise because the political appointee wishes to
move in new policy directions but often has little experience in government operations while the
career executive has both knowledge and expertise but, aware of potential problems, may appear
reluctant to change. The attempt to reconcile the two positions, the authors note, brings the focus
back to the question of politics and administration.

 CHAPTER OUTLINE
I. MERIT SYSTEMS IN PUBLIC EMPLOYMENT
A. Spoils versus Merit
 Public Administration in History: THE SPOILS SYSTEM
 Exploring Concepts: PRINCIPLES OF CIVIL SERVICE
B. The Civil Service Reform Act and Its Aftermath
C. Reinvention and the National Performance Review
D. State and Local Personnel Systems
II. HIRING, FIRING, AND THINGS IN BETWEEN
A. Classification Systems
B. The Recruitment Process
C. Pay Systems
D. Conditions of Employment and Related Matters
E. Sexual Harassment
F. AIDS Policy
G. Workplace Violence
H. Removing Employees
I. Personnel Reform Efforts
 Public Administration Reform: URGENT BUSINESS FOR AMERICA
III. THE CHANGING CHARACTER OF LABOR-MANAGEMENT RELATIONS
A. Steps in the Bargaining Process
B. To Strike or Not to Strike
C. Unions Redefined
IV. CORRECTING PATTERNS OF DISCRIMINATION IN PUBLIC
EMPLOYMENT
A. Americans with Disabilities Act

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 Chapter 6: The Management of Human Resources 73

B. Questions of Compliance
C. Affirmative Action and Reverse Discrimination
 Take Action: ADVANTAGES OF DIVERSITY
D. The Glass Ceiling
E. Relations between Political Appointees and Career Executives
V. SUMMARY AND ACTION IMPLICATIONS

 CRITICAL THINKING QUESTIONS

1. The Civil Service Reform Act provided for a number of changes in personnel procedures.
Explain the importance of this legislation and discuss the impact of the major provisions
on the civil service system in the United States.
2. In order to recruit public-sector personnel on the basis of what one knows and can do
rather than on whom one knows, a public-sector recruiter or manager be attentive to
certain factors. What are they? Why is this important?
3. Recent efforts to reinvent government and reform personnel process in the public sector
have redefined the relationship between labor and management. How has this affected the
unionization of public employees? Give examples to support your discussion.

 LECTURE LAUNCHERS
1. Discuss the problems associated with the spoils system in the United States using notable
examples such as the election of Andrew Jackson, the rise of Tammany Hall, and the
administration of Chicago Mayor Richard J. Daley (related information is widely
available on the Internet). In these examples, what advantages did the spoils system
provide? What problems did it create? Why was the move to reform the civic service
system necessary?
2. Recent actions in Wisconsin, Ohio, and New Jersey represent increasing efforts to limit
collective bargaining rights. Discuss these recent events, including the factors that gave
rise to them, and explore the implications for public employees.
3. What is the difference between “equal employment opportunity” and “affirmative
action?” Define each, discuss the purpose of each, and explore what factors gave rise to
these programs.

 IN-CLASS ACTIVITIES
1. Using the links in the Web Links section below along with sources for state and local
personnel offices, have students either individually or in teams explore what kinds of
government jobs are available in your area. Students should address: (1) types of
positions that are typically available; (2) salary levels to expect for entry at the bachelor’s
or master’s level; (3) benefits associated with these positions; and (4) hiring processes for
applicants.

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74 Chapter 6: The Management of Human Resources

2. Divide the class into groups of 3 to 4 students; give each student a copy of your school’s
policy on sexual harassment with regard to administrators, faculty, staff, and students.
Have each group analyze the policy addressing the following:
(a) Is sexual harassment defined in a way that is understandable?
(b) Does the policy specify the kinds of actions that are considered harassment?
(c) Are procedures clearly defined through which sexual harassment charges can be
brought and heard?
(d) Are penalties clearly defined for each action?
(e) Does the policy act as a deterrent to sexual harassment.
(f) What can be done to strengthen, clarify, and more easily enforce the policy?

 KEY TERMS
Adverse or disparate impact Criterion for showing that employment practices affect one group
more harshly than another.
Affirmative action Use of positive, results-oriented practices to ensure that women, minorities,
individuals with disabilities, and other protected classes of people will be equitably
represented in an organization.
Bargaining unit The organization that will represent employees in conferring and negotiating
various issues.
Comparable worth Notion that men and women in jobs that are not identical but require similar
levels of skill and training should be paid equally.
Equal employment opportunity Refers to efforts to eliminate employment discrimination on
the basis of race, ethnic background, sex, age, or physical handicap; ensures that all
persons have an equal chance to compete for employment and promotions based on job
qualifications.
Final-offer arbitration Technique in which both parties must present their best offer with the
understanding that an arbitrator will choose one or the other without modification.
Job description A thorough analysis of the work to be done and the capabilities for a job;
typically contains these elements: job title, duties required, responsibilities, and job
qualifications.
Lateral entry Entry into government positions at any level.
Merit pay Increases in salary and wages that are tied to actual quality of work performed.
Merit principle Concept that selection and treatment of government employees should be based
on merit or competence rather than personal or political favoritism.
Position classification Analyzing and organizing jobs on the basis of duties, responsibilities, and
knowledge and skills required to perform them.
Rule of three Provision of most merit systems that requires at least the names of the top three
applicants be forwarded to the hiring official to allow some flexibility in selection.
Sexual harassment Any unwarranted and nonreciprocal verbal or physical sexual advances or
derogatory remarks that the recipient finds offensive or that interfere with his/her job
performance.

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 Chapter 6: The Management of Human Resources 75

Spoils system The ability to give government jobs to the party faithful; “to the victor belong the
spoils.”
Structured interviews Those in which a previously developed set of questions is used with each
applicant.
Unit determination Decision to include or exclude certain groups in a bargaining unit.
Whipsaw tactics Argument that pay or benefits negotiated by one group should be applied to
others.

 WEB LINKS
The following are links to information on general personnel issues, human resources,
and jobs:
Office of Personnel Management: (www.opm.gov).
U.S. Equal Opportunity Employment Commission: (www.eeoc.gov).
United States Department of Labor: (www.dol.gov).
HR.Com: (www.hr.com) and (www.hr-guide.com).
LaborNet: (www.labornet.org).
American Federation of Government Employees: (www.afge.org/).
American Federation of State, County, and Municipal Employees: (www.afscme.org/).
International Personnel Management Association: (www.ipma-hr.org).
International Public Management Association for Human Resources: (http://www.ipma-hr.org/).
Society for Human Resource Management: (www.shrm.org).
Public Service Careers: (www.publicservicecareers.org/).
Go Public Service: (www.gopublicservice.org/Careers.aspx).
FedWorld.Gov: (www.fedworld.gov/).
Careers in Government: (www.careersingovernment.com/index.cfm).
GovtJob.Net: (www.govtjob.net/).
USA Jobs: (www.usajobs.opm.gov/infocenter/howjobsgetfilled.asp).
The Chronicle of Philanthropy: (http://philanthropy.com/section/Jobs/224/).
Opportunity Knocks: (www.opportunityknocks.org/).

 INSTRUCTOR RESOURCES
Bowman, J. S., J. P. West, and M. A. Beck. Achieving Competencies in Public Service: The
Professional Edge. Armonk, NY: M.E. Sharpe, 2009.
Capozzoli, Thomas, and R. Steven McVey. Managing Violence in the Workplace. Delray Beach,
FL: St. Lucie Press, 1996.

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76 Chapter 6: The Management of Human Resources

Cayer, N. Joseph. Public Personnel Administration. Belmont, CA: Wadsworth/Thomson

Learning, 2003.
Coleman, Charles J. Managing Labor Relations in the Public Sector. San Francisco: Jossey-Bass,
1990.
Condrey, Stephen. E., and James. L. Perry. Handbook of Human Resource Management in
Government. San Francisco: Jossey-Bass, 2005.
Dresang, Dennis L. Public Personnel Management and Public Policy. Dallas: Pearson
Publications, 1999.
Durant, Robert. F. The Oxford Handbook of American Bureaucracy. New York: Oxford UP,
2010.
Farazmand, Ali. Strategic Public Personnel Administration: Building and Managing Human
Capital for the 21st Century. Westport, CT: Praeger Publishers, 2007.
Farnham, David. Managing People in the Public Service. Basingstoke, UK: Macmillan Business,
1996.
Huddleston, Mark, and William Boyer. The Higher Civil Service in the United States. Pittsburgh:
U of Pittsburgh P, 1996.
Ingraham, Patricia, and Carolyn Ban, eds. Legislating Bureaucratic Change: The Civil Service
Reform Act of 1978. Albany: State U of New York P, 1984.
Jackson, Susan E., ed. Diversity in the Workplace: Human Resource Initiatives. New York:
Guilford Press, 1992.
Kearney, Richard C. Public Sector Performance: Management, Motivation, and Measurement.
Boulder, CO: Westview Press, 2000.
Klingner, Donald. E., John Nalbandian, and Jared Llorens. Public Personnel Management:
Contexts and Strategies. New York: Longman, 2009.
Maranto, Robert, and David Shultz. A Short History of the United States Civil Service. Lanham,
MD: UP of America, 1991.
Menzel, Donald C., and Harvey L. White. The State of Public Administration: Issues, Challenges,
and Opportunities. Armonk, NY: M.E. Sharpe, 2011.
National Academy of Public Administration. Modernizing Federal Classification: An
Opportunity for Excellence. Washington, DC: National Academy, 1991.
Nigro, Lloyd G., and Felix A. Nigro. The New Public Personnel Administration. 4th ed. Itasca,
IL: F. E. Peacock Publishers, 1993.
Pynes, Joan E. Human Resources Management for Public and Nonprofit Organizations. 2nd ed.
San Francisco: Jossey-Bass, 2004.
Riccucci, Norma. Public Personnel Administration and Labor Relations. Amonk, NY: M.E.
Sharpe, 2007.
-----, Katherine. C. Naff, Jay. M. Shafritz, and David. H. Rosenbloom. Personnel Management in
Government: Politics and Process. Boca Raton, FL: CRC Press, 2007.
Rice, Kenneth W. Strategic Diversity: How to Leverage the Differences within the New
Workforce for Improved Organizational Performance. Bloomington, IN: Xlibris Corp., 2009.

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 Chapter 6: The Management of Human Resources 77

Rice, Mitchell F., ed. Diversity and Public Administration: Theory, Issues, and Perspectives.
Armonk, NY: M.E. Sharpe, 2010.
Risher, Howard, Charles H. Fay, et al. New Strategies for Public Pay. San Francisco: Jossey-
Bass, 1997.
Robinson, Dana Gaines, and James C. Robinson. Performance Consulting. San Francisco: Berrett
Koehler Publishers, 1995.
Selden, Sally Coleman. The Promise of Representative Bureaucracy. Armonk, NY: M.E. Sharpe,
1997.
Shafritz, Jay M., Albert C. Hyde, and David H. Rosenbloom. Personnel Management in
Government: Politics and Process. 4th ed. New York: Marcel Dekker, 1991.
Sloane, Arthur A., and Fred Witney. Labor Relations. 8th ed. Englewood Cliffs, NJ: Prentice-
Hall, 1994.
Stivers, Camilla. Gender Images in Public Administration: Legitimacy and the Administrative
State. 2nd ed. Thousand Oaks, CA: Sage Publications, 2002.
Sylvia, Ronald D., and C. Kenneth Meyer. Public Personnel Administration. Fort Worth, TX:
Harcourt College Publishers, 2002.

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78 Chapter 6: The Management of Human Resources

CHAPTER 6—MULTIPLE CHOICE

1. Which of the following was not a justification of the “spoils system”?
a. Its contribution to a politically accountable administrative system
b. The right of election winners to reward their supporters with jobs
c. The notion that any person could adequately perform the work of government
administration
d. The idea that government jobs belong to the wealthy
ANS: d

2. The Pendleton Act provided for

a. establishment of a Human Rights Commission.
b. mandated federal employee contributions to election campaigns.
c. merit-based selection of government employees.
d. the spoils system.
ANS: c

3. Merit selection, tenure, and responsiveness to political leaders are

a. no longer important elements in the civil service system.
b. the three basic principles of the civil service system.
c. important features of the spoils system.
d. features of the budgeting process.
ANS: b

4. Among the goals of the Civil Service Reform Act of 1978 were
a. to increase the technical nature of personnel administration.
b. to reduce flexibility in hiring and firing to agencies.
c. to create a more rigid classification system for senior executives.
d. to restore the merit principle which had gotten too bureaucratic.
ANS: a

5. State and local personnel systems

a. are very different from the federal civil service system.
b. tended to experience slower development of a merit-based system than the federal
system.
c. have developed merit systems in recent years partly as a result of unions.
d. were developed by the political bosses and machines.
ANS: b

6. In recent years state and local merit systems in the personnel function
a. have contracted as a result of due process requirements based on court decisions.
b. have become weaker as a result of pressure from the federal government.
c. have been strengthened as a result of expanding public employees’ due process protection
provided by courts.
d. have been dominated by political party machines.
ANS: c

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 Chapter 6: The Management of Human Resources 79

7. The arrangement of jobs on the basis of their duties, responsibilities, and skills is prepared in
a. position classifications.
b. job descriptions.
c. equal employment opportunity programs.
d. an assessment center.
ANS: a

8. A document containing job title, duties, responsibilities, and qualifications for employment is
called
a. a position classification.
b. a job description.
c. an equal employment opportunity form.
d. an assessment form.
ANS: b

9. Creating objective statements of duties, responsibilities, and employment makes it possible to

a. legally discriminate against certain classes of people.
b. recruit people who have good connections to key political figures.
c. hire someone based on what he or she knows and can do.
d. create a job based on the qualities of a particular individual.
ANS: c

10. An important implication of a merit-based pay system is

a. performance appraisal becomes a more important element in organizations.
b. everyone ends up getting paid the same.
c. that public sector employees must be paid the same as those in the private sector.
d. pay raises will be low.
ANS: a

11. Drug testing of public employees frequently has been challenged in court because
a. public employees are less likely to use drugs.
b. public employees are more clearly protected against illegal search and seizure.
c. public employees are being tested more often.
d. public employees can’t be held responsible for their actions.
ANS: c

12. Which of the following is not an example of behavior and remarks that may be defined as sexual
harassment in the workplace?
a. “Say, honey, would you get the coffee”?
b. A suggestive remark directed to a subordinate by a supervisor
c. Deliberate brushing or touching of another person.
d. Reciprocal verbal sexual advances between co-workers
ANS: d

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80 Chapter 6: The Management of Human Resources

13. Which of the following may contribute to the likelihood of workplace violence in public
organizations?
a. Reducing operating hours, hiring security guards, and increasing lighting
b. Pay disparities, personal problems, and bad management
c. Political environment, deterioration in public perception of government workers, and
increased worker stress
d. Changes in physical environment, lack of recognition from political superiors, and limits
on collective bargaining
ANS: c

14. Executive Order 10988 issued by President Kennedy in 1962

a. prohibited unions in the federal government.
b. permitted the formation of employee unions in the federal government.
c. tightened the regulations of federal employee unions.
d. established the federal Labor Relations Council.
ANS: b

15. Arbitration in labor-management negotiations

a. uses a neutral third party to negotiate a settlement.
b. uses a third party to investigate and issue specific recommendations concerning a
settlement.
c. is a fact-finding process, normally followed by binding recommendations.
d. does not occur in the governmental sector.
ANS: c

16. Mediation in labor management negotiations

a. uses a neutral third party to negotiate a settlement.
b. uses a third party to investigate and issue specific recommendations concerning a
settlement.
c. is a fact-finding process, normally followed by binding recommendations.
d. does not occur in the governmental sector.
ANS: a

17. Recent actions in Wisconsin, Ohio, and New Jersey involved efforts to
a. curb benefits and collective bargaining rights for public employees.
b. give public employees greater access to public-sector unions.
c. lower employees’ contributions for health care and pensions.
d. reduce salary levels for public employees.
ANS: a

18. The effort to see to it that women, minorities, and others will be employed in fair numbers or
proportions in an organization is called
a. equal employment opportunity.
b. reverse discrimination.
c. discrimination.
d. affirmative action.
ANS: d

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 Chapter 6: The Management of Human Resources 81

19. The basic federal legislation governing employment practices with respect to equity and related
issues is the
a. Civil Rights Act of 1964.
b. Employment Discrimination Act of 1960.
c. Affirmative Action Act of 1970.
d. American Disabilities Act of 1990.
ANS: a

20. The ADA Amendments Act of 2008 was passed in order to

a. narrow the definition of “disability” with regard to public-sector employment.
b. revise the definition of “disability” to include impairments that substantially limit major
life activity.
c. allow those with disabilities to sue an employer for discrimination.
d. support the Supreme Court’s interpretation of disability laws.
ANS: b

21. “Glass ceiling” refers to

a. covert employee observation technologies.
b. barriers (especially covert ones) to promotion for women and minorities.
c. the greater ease of promoting women and minorities now compared to the past.
d. open personnel practices.
ANS: b

22. The tension between political responsiveness and managerial effectiveness is illustrated by
a. the relationship between managers and staff employees.
b. the relationship between personnel officers and mangers.
c. the relationship between political appointees and career executives.
d. the relationship between union leaders and agency managers.
ANS: c

23. Which of the following is not one of the reasons put forth for involving career public
administrators in developing policy?
a. They have the background and expertise to make substantial contributions.
b. They have the capacity to override political decisions on policy changes.
c. They will implement a policy more effectively if they understand the need for the change.
d. They will do a better job of implementation if they feel some “ownership” of the process.
ANS: b

24. The traditional emphasis of the personnel officer of a public sector agency has been
a. to induce compliance.
b. to support managers in a consulting role.
c. to help increase productivity.
d. to persuade managers to become more effective.
ANS: a

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82 Chapter 6: The Management of Human Resources

25. Which of the following is likely not a new role for the personnel specialist in a public
organization?
a. The elimination of hiring, retention, promotion, and compensation procedures
b. Participation in development of affirmative action programs
c. Assistance in developing a productivity improvement program in the organization
d. Advise on legal issues
ANS: a

CHAPTER 6—TRUE-FALSE
1. Important features of the spoils system are merit selection, tenure protection, and responsiveness
to political leaders.
a. True
b. False
ANS: b

2. The Civil Service Reform Act created the Office of Personnel Management and the Merit
Systems Review Board.
a. True
b. False
ANS: a

3. The states and localities of the United States have generally been in advance of the federal
government in establishing a merit-based civil service system.
a. True
b. False
ANS: b

4. An important reason for using position classification systems, beyond that of connecting tasks to
the skills required to perform them, is to help ensure equity across similar jobs.
a. True
b. False
ANS: a

5. While a “step” is a set of roughly comparable jobs, “grades” are a set of pay increments.
a. True
b. False
ANS: b

6. Drug testing programs have steadily increased in the last two decades.
a. True
b. False
ANS: b

7. Sexual harassment is defined as “any unwanted and nonreciprocal verbal or physical advances or
derogatory remarks that are found offensive by the recipient or that interfere with one’s job
performance.”
a. True
b. False
ANS: a

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 Chapter 6: The Management of Human Resources 83

8. A “bargaining unit” is the organization with which the union negotiates.

a. True
b. False
ANS: b

9. Establishment of unions by federal employees is prohibited by Executive Order 10988.

a. True
b. False
ANS: b

10. Labor-management relations at the state and local level are fairly standard and uniform in nature.
a. True
b. False
ANS: b

11. In recent years, there has been greater support for public-sector unions at the federal level
although support at the state and local level has declined.
a. True
b. False
ANS: a

12. “Affirmative action” refers to the obligation of an organization to take positive steps to hire,
retain, and promote minorities, women, and others.
a. True
b. False
ANS: a

13. Support for equal opportunity programs has grown over the past two decades.
a. True
b. False
ANS: b

14. Recent actions by the courts have had the effect of narrowing what can be considered as
discrimination.
a. True
b. False
ANS: a

15. The term “glass ceiling” refers to barriers that exist to the advancement of women and minorities
in the workplace.
a. True
b. False
ANS: a

CHAPTER 6—ESSAYS/DISCUSSION
1. Describe and evaluate the “merit principle” in the civil service system. What does it mean? Why
was it established?

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Test Bank for Public Administration: An Action Orientation, 7th Edition, Robert B. Denhardt,

84 Chapter 6: The Management of Human Resources

2. Two significant pieces of legislation—the Pendleton Act and the Civil Service Reform Act—have
been instrumental in shaping the federal civil service. Discuss the importance of each. Why was
each necessary?
3. Even after the federal government created its civil service system, states and localities were slow
to adopt the same reforms. Discuss the reasons for this. What contributed to the reluctance of
states and localities to follow suit?
4. What are the main steps in the recruitment process in the federal civil service? Describe each
briefly.
5. In what ways may sexual harassment and ethics in the workplace be related? Does an ethical
workplace demand absolute gender blindness? Explain.
6. Describe the history of the development of unions in federal employment.
7. Compare the reasons for prohibiting public employee strikes with reasons given in support of the
right to strike. What conclusions can be reached? Explain.
8. Identify the principal components of an affirmative action program for an organization.
9. Evaluate “comparable worth,” summarizing the arguments pro and con. What position do you
take? Pay special attention to the equity issues involved.
10. The authors argue that the tension between political responsiveness and managerial effectiveness
that characterizes public management is particularly well illustrated in the relationship between
political appointees and career executives. Explain this. What do they mean by this? Give
examples.

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