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Journal of Public Affairs Education Vol. 15, No.4 Fall 2009<br />
Fall 2009 Volume 15, No. 4<br />
JPAE<br />
<strong>JOURNAL</strong> <strong>OF</strong> <strong>PUBLIC</strong> <strong>AFFAIRS</strong> <strong>EDUCATION</strong><br />
Flagship Journal of the <strong>National</strong> Association of Schools of Public Affairs and Administration<br />
Yongbeom Hur & Merl Hackbart<br />
MPA vs. MPP: A Distinction without a Difference?<br />
Kristina T. Lambright & Yi Lu<br />
What Impacts the Learning in Service Learning? An Examination<br />
of Project Structure and Student Characteristics<br />
David R. Schachter & Deena Schwartz<br />
The Value of Capstone Projects to Participating Client Agencies<br />
Julie Cencula Olberding<br />
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
Jeremy L. Hall<br />
Cognitive Styles Matching: Expanding the Efficacy of Group<br />
Work in MPA Courses<br />
Mordecai Lee<br />
The Return of Public Relations to the Public Administration<br />
Curriculum?<br />
Roger E. Hartley<br />
Putting Yourself in Their Shoes: The Analysis of Real-World<br />
Disputes Through Group Field Projects<br />
Mark Speicher<br />
Book Review
<strong>National</strong> Association of Schools of Public Affairs and Administration<br />
(NASPAA)<br />
Marvin Mandell, President<br />
Jeffrey Raffel, Vice President<br />
Kathleen M. Beatty, Immediate Past President<br />
Laurel McFarland, Executive Director<br />
JPAE Oversight Committee: Kathleen Beatty, Melvin Dubnick &<br />
Charles Menifield<br />
Heather E. Campbell<br />
Editor-in-Chief, Arizona State University, School of Public Affairs<br />
Iris Geva-May, Associate Editor for International and Comparative Education, Simon Fraser University Public<br />
Policy Program<br />
Michael O’Hare, Associate Editor for the Assessment and Practice of Teaching, University of California,<br />
Berkeley, Goldman School of Public Policy<br />
Production Editor: Wendy Paulson Editorial Assistant: Jeffrey C. Callen<br />
EDITOR’S COUNCIL<br />
H. George Frederickson, Founding Editor, University of Kansas,<br />
Marc Holzer, Rutgers University<br />
Edward T. Jennings, University of Kentucky<br />
James L. Perry, Indiana University, Bloomington<br />
Mario A. Rivera, University of New Mexico<br />
BOARD <strong>OF</strong> EDITORS<br />
Guy Adams, University of Missouri, Columbia Lee Friedman, University of California, Berkeley<br />
Danny L. Balfour, Grand Valley State University Nicholas Giannatasio, University of North Carolina,<br />
Frances Stokes Berry, Florida State University<br />
Pembroke<br />
Stuart Bretschneider, Syracuse University<br />
Laura Langbein, American University<br />
Jonathan Brock, University of Washington<br />
Steven R.Maxwell, Florida Gulf Coast University<br />
John Bohte, University of Wisconsin, Milwaukee<br />
Kristen Norman-Major, Hamline University<br />
John M. Bryson, University of Minnesota<br />
Dorothy Olshfski, Rutgers University, Newark<br />
Beverly Bunch, University of Illinois, Springfield<br />
Stephen P. Osborne, University of Edinburgh<br />
N. Joseph Cayer, Arizona State University<br />
Laurence J. O’Toole, Jr., University of Georgia<br />
Cal Clark, Auburn University<br />
Patricia M. Shields, Texas State University<br />
Barbara Crosby, University of Minnesota<br />
James Svara, Arizona State University<br />
Robert B. Cunningham, University of Tennessee, Barton Wechsler, University of Missouri, Columbia<br />
Knoxville<br />
David Weimer, University of Wisconsin<br />
Jo Ann G. Ewalt, Eastern Kentucky University<br />
Howard Whitton, Griffith University<br />
Blue Wooldridge, Virginia Commonwealth<br />
University<br />
CORRESPONDENTS<br />
Charlene M. L. Roach, University of the West Indies, Khalid Al-Yahya, Dubai School of Government<br />
St. Augustine Campus<br />
Journal of Public Affairs Education is published quarterly by the <strong>National</strong> Association of Schools of Public Affairs and Administration.<br />
Claims for missing numbers should be made within the month following the regular month of publication. The publishers expect to supply<br />
missing numbers free only when losses have been sustained in transit and when the reserve stock will permit. Subscription Rates:<br />
Institution, $125; Individual, $50; Student, $40; Non-U.S., add $20 to applicable rate. Electronic JPAE articles can be accessed at<br />
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2010 <strong>National</strong> Association of Schools of Public Affairs and Administration. All rights reserved. Educators may reproduce any material for<br />
classroom use only and authors may reproduce their articles without written permission. Written permission is required to reproduce<br />
JPAE in all other instances. Please contact Jacqueline Lewis, NASPAA, 1029 Vermont Ave., N.W., Suite 1100, Washington, DC<br />
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ANSI Z39.48-1984. JPAE is abstracted or indexed in EBSCO, Google Scholar, and Education Full Text Index. ISSN 1523-6803<br />
(formerly 1087-7789).
Journal of Public Affairs Education<br />
Fall 2009 Volume 15, No. 4<br />
FROM THE EDITOR<br />
Heather E. Campbell, Ph.D.<br />
MPA vs. MPP: A Distinction Without a Difference?<br />
Yongbeom Hur & Merl Hackbart. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 397<br />
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Kristina T. Lambright & Yi Lu . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 425<br />
The Value of Capstone Projects to Participating Client Agencies<br />
David R. Schachter & Deena Schwartz . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 445<br />
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
Julie Cencula Olberding. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 463<br />
Cognitive Styles Matching: Expanding the Efficacy of Group Work<br />
in MPA Courses<br />
Jeremy L. Hall. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 493<br />
The Return of Public Relations to the Public Administration Curriculum?<br />
Mordecai Lee. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 515<br />
Putting Yourself in Their Shoes: The Analysis of Real-World Disputes<br />
Through Group Field Projects<br />
Roger E. Hartley . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 535<br />
Book Review<br />
Mark Speicher . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 553<br />
INFORMATION FOR CONTRIBUTORS . . . . . . . . . . . . . . . . . . . . . .Inside back cover<br />
Cover design by Jeffrey C. Callen, with Heather E. Campbell<br />
Cover design property of NASPAA<br />
Cover photo: Old Main, Arizona State University, Tempe, AZ by Jeffrey C. Callen
FROM THE EDITOR<br />
Taken as a group, the articles in this issue of JPAE are particularly strong in<br />
moving toward one of the goals that Michael O’Hare, Associate Editor for the<br />
Assessment and Practice of Teaching, and I have for the Journal: including more<br />
outcomes assessment. We always value and enjoy the interesting ideas that<br />
colleagues have about creative ways to teach specific courses, but it also is<br />
important that we increase the amount of assessment in PA education.<br />
Performing outcomes assessments on our courses accords with much of what we<br />
teach our students. Further, colleges and universities increasingly are under<br />
external pressure to do just that.<br />
Though written separately, four of the articles in this issue address closely<br />
related topics and use multi-course comparisons to provide insight. “What<br />
Impacts the Learning in Service Learning” surveys 78 students and seven<br />
different MPA classes to understand what factors affect how much students<br />
learn during service-learning projects. The paper includes specific suggestions<br />
for faculty to improve student-perceived learning from such projects. “The<br />
Value of Capstone Projects to Participating Client Agencies” looks at Capstonebased<br />
service-learning projects, and considers how this now-widespread<br />
MPA/MPP-student experience assists the community. Its authors survey 42<br />
different clients to come up with suggestions for improving the value of these<br />
types of service-learning projects to those being served. Service-learning projects,<br />
Capstone courses, and other PA courses often involve group projects. “Cognitive<br />
Styles Matching” compares the use of Myers-Briggs Types in creating student<br />
groups, to other methods of group-construction in matched courses, and<br />
recommends the Myers-Briggs approach. “Indirect Giving to Nonprofit<br />
Organizations” studies a specific type of service learning that uses a new method<br />
of student philanthropy and compares it to the direct giving method. The article<br />
provides tradeoffs and lessons learned.<br />
Though not using course-based outcomes assessment, the other articles in this<br />
issue are also excellent and of general interest to JPAE’s readers. The first article in<br />
this issue, on whether the MPP and the MPA are actually different, is relevant to<br />
the ongoing conversation — some of it published in earlier issues of this volume<br />
of JPAE — regarding the revision of NASPAA’s standards. It is of interest to<br />
administrators, faculty, and students in MPA and MPP programs. Mordecai Lee’s<br />
paper on “The Return of Public Relations to the Public Administration<br />
Curriculum” gives us a different type of comparison — not between different<br />
types of PA degrees, but in terms of how PA degrees change over time. And,<br />
“Putting Yourself in Their Shoes” is a delightful example of creative pedagogy in<br />
the teaching of dispute resolution. This issue of JPAE also includes the first Book<br />
Review under our editorship, one that discusses, not only the book it reviews,<br />
but goals that doctoral students have for their degree programs.<br />
Journal of Public Affairs Education iii
Hard as it is to believe, with this issue, the first year of the Journal of Public<br />
Affairs Education being hosted by the School of Public Affairs at Arizona State<br />
University comes to an end. It’s been an exciting and productive year, and we<br />
are looking forward to 2010, which will include many stimulating articles, the<br />
NASPAA presidential address, another Teaching Public Affairs Conference<br />
(TPAC) symposium, and more book reviews.<br />
— Heather E. Campbell, Ph.D.<br />
Editor-in-Chief<br />
iv Journal of Public Affairs Education
MPA vs. MPP: A Distinction Without a Difference?<br />
MPA vs. MPP:<br />
A Distinction Without a Difference?<br />
Yongbeom Hur<br />
Appalachian State University<br />
Merl Hackbart<br />
University of Kentucky<br />
ABSTRACT<br />
Despite several scholarly inquiries, the question of whether there are critical<br />
differences between Masters of Public Administration (MPA) and Masters of<br />
Public Policy (MPP) programs continues in the minds of prospective students,<br />
potential employers, and university officials. Building on previous inquiries into<br />
this issue, we compare the core course content of selected MPA and MPP<br />
programs, and expand the study by investigating whether there is a correlation<br />
between the academic backgrounds of program faculty and the emphases in core<br />
curricula. We also surveyed departments or schools that have both MPA and MPP<br />
programs in order to determine the reasons for offering both programs and related<br />
issues — it was assumed that schools and departments offering both programs<br />
would have vetted program goals and content issues. Our study suggests that<br />
MPA and MPP program curricula differ. However, such differences seem more<br />
likely to be associated with faculty discipline differences than with a focus on<br />
providing graduates the core competencies required for job and career<br />
options/opportunities in these fields.<br />
RESEARCH BACKGROUND AND STUDY PURPOSES<br />
Outwardly, public affairs education programs have had one of two<br />
orientations — traditional public administration or public policy. Although the<br />
curriculum differences of the two programs — Master of Public Administration<br />
(MPA) and Master of Public Policy (MPP) — may be less pronounced than<br />
they were two decades ago, it is assumed that these differences, among other<br />
factors, are what distinguish policy-focused programs from administrationoriented<br />
programs (Lowery & Whitaker, 1994, pp. 25-26). According to<br />
Elmore (1986), “analysis and economic theory are still the hallmark of public<br />
policy programs” (p. 70). To the founders of public policy schools, public<br />
JPAE 15(4): 397–424 Journal of Public Affairs Education 397
MPA vs. MPP: A Distinction Without a Difference?<br />
administration “wore the blinders of a single discipline (political science) and<br />
lacked in interdisciplinary vision,” and “the content and personnel of public<br />
administration were thought to be low in quality and academic prestige”<br />
(Stokes, 1986, p. 45). In fact, some researchers note that most public policy<br />
programs have been developed at elite universities (De Soto, Opheim, & Tajalli,<br />
1999; Ventriss, 1991).<br />
Regarding this division of public affairs education, Lowery and Whitaker<br />
(1994) raised a question, saying “If there are no differences, or only very minor<br />
differences in emphasis, then we must ask whether separate programs and<br />
professional associations 1 are warranted or whether differences should be<br />
restored” (p. 26). Among four categories 2 that Lowery and Whitaker suggested<br />
as possible difference areas to explore, De Soto et al. (1999) investigated (a) if<br />
the psychological dispositions of students entering public administration and<br />
public policy programs were different, and (b) if the socializing effects of each<br />
program’s respective curriculum were different. They did this by surveying<br />
members of the Association for Public Policy Analysis and Management<br />
(APPAM) and the <strong>National</strong> Association of Schools of Public Affairs and<br />
Administration (NASPAA). Based on results that showed no difference in the<br />
psychological dispositions of students and the socializing effects of curricula<br />
between APPAM and NASPAA members, De Soto et al. (1999, pp. 88-89)<br />
suggested that the integration of the two orientations for public affairs<br />
education may become more complete as public administration programs adopt<br />
elements of policy evaluation and analysis, and public policy programs offer<br />
training in management and organizational behavior.<br />
The question of curriculum differences between public administration and<br />
policy analysis programs has been explored, and the general findings support<br />
Lowery and Whitaker’s (1994) argument that “the stark differences between<br />
public administration and public policy programs seem to have eroded with<br />
time” (p. 25). For example, in comparing the curriculum requirements of 35<br />
randomly selected NASPAA members and 16 randomly selected APPAM<br />
members, research by Averch and Dluhy (1992) indicated that curriculum<br />
differences between NASPAA and APPAM members were not substantial.<br />
Roeder and Whitaker (1993) analyzed curriculum components 3 of NASPAAaccredited<br />
MPA programs, and identified two distinct curriculum emphases —<br />
institutional-management orientations and analytical orientations. 4 Although<br />
Roeder and Whitaker (1993, p. 535) did not compare the curricula of NASPAA<br />
and APPAM members, they concluded that both analytical and public<br />
management approaches already were blended in NASPAA-accredited MPA<br />
programs, and therefore they expected no major differences between the<br />
curricula of NASPAA and APPAM members.<br />
The principal purpose of this study is to investigate, from core-curriculum<br />
content and other viewpoints, whether the distinction between MPA and MPP<br />
398 Journal of Public Affairs Education
MPA vs. MPP: A Distinction Without a Difference?<br />
programs represents a fundamental difference, or whether these programs just<br />
have different titles. To do this, a comprehensive investigation was conducted.<br />
That is, based on information collected through Web site visits and a survey, we<br />
compared anticipated job areas and positions, the desired competencies of<br />
graduates, and so on, in addition to performing a curriculum comparison. We<br />
then extended our inquiry to examine the association between core courses of<br />
MPA and MPP programs, and core faculty academic disciplines, in order to<br />
determine whether the faculty’s academic disciplinary backgrounds were<br />
correlated with the curriculum content of various MPA and MPP programs.<br />
This inquiry followed Denhardt’s (2001, p. 531) indication that the<br />
distinction of theory and practice in public affairs education might largely be<br />
determined by the experiences and interests of individual faculty, rather than<br />
by different students’ needs. In the same vein, Roeder and Whitaker (1993)<br />
explored the reasons why programs vary in their emphasis on curriculum<br />
components, with an expectation that the key factor for differences in<br />
program curricula might be the program faculty’s disciplinary backgrounds<br />
and specializations.<br />
However, due to data unavailability in their investigation, Roeder and<br />
Whitaker (1993) only examined MPA programs, and used surrogate variables<br />
such as minimum hours of degree requirements, percentage of full-time nucleus<br />
faculty, and percentage of full-time students. In our study, we obtained<br />
information from university Web sites in the U.S. about program faculty’s<br />
academic disciplines, and the curriculum structure of their MPA and MPP<br />
programs. This information was used to investigate program similarities and<br />
differences, as well as possible associations between faculty backgrounds and<br />
curriculum emphasis. By providing a more comprehensive assessment of the<br />
possible relationships between MPA and MPP curricula, faculty compositions,<br />
and other motivations for offering these programs, this study helps answer<br />
Lowery and Whitaker’s (1994) questions of whether program distinctions are<br />
real, and whether they should be sustained.<br />
Therefore, this study contributes to the literature as follows. First, we<br />
investigated similarities and differences between policy-oriented schools and<br />
administration-oriented schools, in a more direct and comprehensive manner<br />
than previous studies. Unlike extant studies that focus on only curriculum<br />
differences (Averch & Dluhy, 1992; Roeder & Whitaker, 1993), we compared<br />
job areas and positions expected to be filled by graduates, competencies desired<br />
for graduates, and curricula. We surveyed directors of schools or departments<br />
that offer both MPA and MPP programs, and asked them how the programs are<br />
different in terms of (a) curriculum content, (b) expected career areas and job<br />
positions, (c) the desired competencies that each program aims to achieve for its<br />
graduates, and (d) major reasons for offering MPP programs. Given that they<br />
offer both degrees, these institutions also might offer unique insights into the<br />
Journal of Public Affairs Education 399
MPA vs. MPP: A Distinction Without a Difference?<br />
similarities and differences in MPA and MPP programs. Second, we compared<br />
curricula of MPA programs with those of MPP programs in order to make a<br />
direct curriculum comparison between policy-oriented and administrationoriented<br />
schools. In previous studies that compared program curricula,<br />
researchers ignored a group of schools that offered different degrees 5 or both<br />
MPA and MPP degrees because they randomly selected NASPAA members and<br />
APPAM members. Although APPAM and NASPAA members are public policyand<br />
public administration-oriented, respectively, merely comparing randomly<br />
selected curricula of their members can be arbitrary. 6 Third, we investigated the<br />
association between curriculum contents and the faculty’s disciplinary<br />
backgrounds in these programs.<br />
This effort will help determine whether these programs have different<br />
curriculum emphases, which is believed to be a way of distinguishing policyfocused<br />
programs from administration-oriented programs (Lowery &<br />
Whitaker, 1994).<br />
METHODOLOGY<br />
In order comprehensively to investigate whether the MPA vs. MPP<br />
distinction is fundamental or merely a difference in title, we conducted three<br />
assessments:<br />
• A comparison of MPA and MPP core curricula that were similar to the<br />
comparisons of previous studies;<br />
• An analysis of faculty academic-discipline backgrounds, in order to<br />
determine whether the curriculum emphasis bears a relationship to<br />
faculty backgrounds; and<br />
• A survey of program directors at the schools and departments that offer<br />
both degrees, in order to determine differential program goals, program<br />
structural design themes, and desired competencies for program<br />
graduates, as well as any possible recruitment and placement pattern<br />
distinctions.<br />
We conducted an Analysis of Variance 7 (ANOVA) when we investigated<br />
curriculum differences (i.e., the first assessment), and the relationships between<br />
curriculum composition and the faculty’s disciplinary backgrounds (i.e., the<br />
second assessment).<br />
To acquire program curriculum and faculty background information, in<br />
November and December 2005, we researched the Web sites of all 60 schools<br />
with both NASPAA and APPAM memberships (dual-membership schools), 8<br />
and we also randomly selected 30 schools that only had NASPAA memberships,<br />
and that offered only NASPAA-accredited MPA programs. During this Web-site<br />
research process, we collected data on the schools’ core curricula of MPA and<br />
MPP programs, and their core faculty members’ academic backgrounds. To<br />
follow up on earlier empirical studies (Averch & Dluhy, 1992; De Soto et al.,<br />
400 Journal of Public Affairs Education
MPA vs. MPP: A Distinction Without a Difference?<br />
1999; Roeder & Whitaker, 1993) — ones that conducted limited comparisons<br />
and indicated no substantial differences between public policy and public<br />
administration schools — this review examined the same question across more<br />
various categories of schools and departments (i.e., NASPAA members only,<br />
APPAM members only, and dual-membership schools), and in a more<br />
comprehensive manner. Like other curriculum-comparison studies, we assumed<br />
that a curriculum-content analysis would reveal the core competencies that<br />
MPA and MPP program faculty and directors believe are important for<br />
students’ success, and therefore would assist in answering the key question of<br />
this inquiry — are these programs truly different?<br />
In addition to Web-site visits, surveys were sent in May 2006 to the program<br />
directors of 12 dual-membership schools that offered both MPA and MPP<br />
programs. The surveys asked respondents to provide detailed information about<br />
the motivation for offering both MPA and MPP programs, including the main<br />
reasons for establishing each program, the desired competencies of students<br />
completing each program, and the targeted career and job opportunities for<br />
MPA and MPP degree recipients.<br />
In the first assessment — analyzing curriculum composition — we ignored<br />
elective courses and focused on required core courses. Nor did the analysis include<br />
capstone seminars and internship courses, although either one or both are included<br />
in most MPA and MPP programs. As noted previously, in order to make a<br />
comprehensive comparison, we researched the curricula of MPA and MPP<br />
programs in various categories — schools offering both MPA and MPP programs,<br />
schools offering only MPA programs, and schools offering only MPP programs. As<br />
seen in Table 1, in order to facilitate a curriculum comparison between the<br />
programs, we grouped courses into six areas, including, for example, (a) economics<br />
& policy analysis, (b) finance & budgeting, and (c) organization & human<br />
resource management. Core courses that did not fit into one of the six specific<br />
categories shown in Table 1 were put into the “others” category. The percentage of<br />
each core course area was calculated by dividing each core area’s credit hours by the<br />
total credit hours of core courses required for the various degree programs.<br />
While we investigated school Web sites for MPA and MPP programs, we<br />
observed that program faculty members usually had academic backgrounds in<br />
such disciplines as political science, public administration, economics, and<br />
others (e.g., management, sociology, and psychology). In the second assessment,<br />
therefore, we examined the association between these three major disciplines —<br />
political science, public administration, and economics — and six common core<br />
course areas, as seen in Table 2. When collecting information about facultymembers’<br />
academic backgrounds, we limited our research to core faculty 9 with<br />
doctoral degrees, because we assumed that other faculty 10 were less involved in<br />
making decisions about department curriculum composition and structure than<br />
the core faculty with doctoral degrees. We categorized all other academic<br />
Journal of Public Affairs Education 401
MPA vs. MPP: A Distinction Without a Difference?<br />
disciplines — management, sociology, and psychology — as “other” (See<br />
Appendix D), and when academic backgrounds were not clear on the Web sites,<br />
we also included these faculty in the “other” discipline category. We identified<br />
core faculty academic backgrounds based on Web-site information 11 and did not<br />
request additional information from the schools when their faculty’s academic<br />
disciplinary backgrounds were not available online.<br />
School/department Web sites typically did not provide enough information<br />
regarding such program design issues as the reasons for establishing each<br />
program (MPA and/or MPP), desired competences to be achieved by program<br />
completion, and expected job opportunities upon graduation. Therefore, in<br />
May 2006, we sent a questionnaire requesting insights and observations on<br />
these issues to the directors of all 12 schools 12 that offered both MPA and MPP<br />
programs (See Appendix B for the list). We assumed that schools or<br />
departments with both MPA and MPP degree programs were the most capable<br />
of responding to survey questions that focused on obtaining insights about<br />
program design and goals, as well as the differences and similarities between the<br />
two programs. Seven schools responded to the survey.<br />
RESULTS<br />
Assessment 1: Curriculum Comparison<br />
As mentioned previously, although different curriculum emphasis has been<br />
believed to distinguish policy-focused (MPP) programs from administrationoriented<br />
(MPA) programs (Elmore, 1986; Lowery & Whitaker, 1994), empirical<br />
studies (e.g., Averch & Dluhy, 1992; De Soto et al., 1999; Roeder & Whitaker,<br />
1993) have reported limited differences of curriculum, and suggested that an<br />
integration of the two orientations for public affairs education may be emerging.<br />
In this study, we investigated the same question with the following hypothesis,<br />
based on the findings of previous studies:<br />
Hypothesis 1: The curriculum composition of MPP programs is not<br />
different from that of MPA programs.<br />
The table in Appendix C summarizes the percentages of each core course area<br />
for different categories of schools. In the table, we observe that MPA programs<br />
in any school category have lower percentages of “economics & policy analysis”<br />
and higher percentages of “finance & budgeting” and “organization & human<br />
resource management” in their curricula than MPP programs do. Research<br />
method courses, however, seem to be similarly emphasized for both MPA and<br />
MPP programs. Although research course content (econometrics, basic<br />
regression, survey research, etc.) might differ, we assumed that research course<br />
content was generally equivalent across programs. (See Appendix C.)<br />
To test Hypothesis 1, we ran an ANOVA, using various school categories, in<br />
order to determine if the mean proportion of each course among core curriculum<br />
402 Journal of Public Affairs Education
MPA vs. MPP: A Distinction Without a Difference?<br />
courses is different, depending on whether they are for MPA or MPP programs.<br />
As seen in Table 1, overall comparison shows that the curriculum emphasis of<br />
MPP programs was significantly different from that of MPA programs, except in<br />
policy process and research method courses. Further analysis reveals that MPA<br />
programs put more emphasis on “finance & budgeting,” public management,<br />
and “organization & human resource management,” while MPP programs placed<br />
more stress on “economics & policy analysis.” However, no curriculum<br />
composition differences were found when we compared MPA and MPP<br />
programs within schools that offer both MPA and MPP programs (N = 12). In<br />
sum, the results do not support Hypothesis 1, which was based on extant<br />
empirical results, but support theoretical arguments that curricula are different<br />
between policy-focused and administration-oriented programs. (See Table 1.)<br />
Assessment 2: The Impact of Faculty Academic Disciplines<br />
As seen in Appendix D, schools offering only MPA programs appear to have<br />
more core faculty members with doctorates in public administration, and fewer<br />
core faculty members with doctorates in economics, than schools offering only<br />
MPP programs, or those offering both MPA and MPP programs. However, we<br />
did not observe any obvious differences between MPA and MPP programs in<br />
the share of the faculty that hold Ph.D.s in political science. (See Appendix D.)<br />
Following Roeder and Whitaker’s (1993, p. 524) and Denhardt’s (2001, p. 531)<br />
arguments about faculty’s influence on course structure in their programs, we<br />
posited a hypothesis about the association between core faculty’s academic<br />
backgrounds, and course composition in their core curriculum:<br />
Hypothesis 2: Core courses of MPA and MPP programs are associated<br />
with their core faculty members’ academic backgrounds.<br />
To test this hypothesis in a comprehensive manner, we ran an ANOVA in<br />
different school categories — such as schools overall, schools offering MPAs,<br />
and schools offering MPPs. We also checked for any correlations between core<br />
courses and core faculty disciplines, in order to understand how faculty<br />
disciplines could be associated with core course emphases (correlation results not<br />
shown). For example, positive correlations would indicate more emphasis on the<br />
core courses when an ANOVA shows significant results. In the overall<br />
comparison of Table 2, programs with more faculty members who have<br />
doctorates in economics are likely to put more emphasis on “economics &<br />
policy analysis” and less emphasis on “organization & human resource<br />
management.” However, we found that, in the overall comparison, programs<br />
with more faculty members with doctorates in public administration are more<br />
likely to stress “organization & human resource management.” When we<br />
examined schools offering only the MPA compared to dual-membership<br />
schools, we observe that programs with more doctorates in political science or<br />
Journal of Public Affairs Education 403
MPA vs. MPP: A Distinction Without a Difference?<br />
Table 1.<br />
ANOVA Results for Core Courses in MPA and MPP Programs<br />
Core Course Areas (F-Statistics)<br />
Research<br />
Methods<br />
Organization<br />
& HRMb Public<br />
Mngt<br />
Policy<br />
Process<br />
Finance &<br />
Budgeting<br />
Economics &<br />
Policy Analysis<br />
Comparison<br />
MPA (74) a vs. MPP (21) 30.60*** 12.02*** 2.79 8.02** 15.85*** 0.06<br />
Overall<br />
Comparison<br />
MPA-Only (32) vs. MPP-Only (9) 19.21*** 5.24* 0.26 12.79** 3.06 0.96<br />
0.33 0.41 1.64 0.27 0.00 0.08<br />
MPA of Both MPA- & MPP-Offered (12)<br />
vs. MPP of Both MPA- & MPP-Offered (12)<br />
Among<br />
Dual-Membership<br />
Schools<br />
404 Journal of Public Affairs Education<br />
62.63*** 13.08*** 12.32** 6.57* 34.03*** 0.00<br />
MPA-Only of NASPAA-Only Members (30)<br />
vs. MPP of Dual Members (21)<br />
MPA-Only of NASPAA-Only Members (30)<br />
vs. MPP of Both MPA- &<br />
MPP-Offered of Dual Members (12)<br />
NASPAA-Only<br />
Members vs. Dual-<br />
Membership<br />
Schools<br />
41.36*** 10.57** 9.40** 1.98 34.59*** 0.40<br />
Note. *p < 0.05 **p < 0.01 ***p < 0.001<br />
a. Number of schools analyzed<br />
b. “HRM” is Human Resources Management
MPA vs. MPP: A Distinction Without a Difference?<br />
public administration are more likely to emphasize “finance & budgeting” and<br />
“organization & human resource management.” Although these associations are<br />
observed, the basis of the association is not clear. That is, curriculum<br />
composition may influence hires or faculty composition may influence<br />
curriculum content.<br />
Our analysis revealed that programs with higher percentages of faculty<br />
members with economics doctoral degrees are associated with more emphasis on<br />
“economic & policy analysis” and less emphasis on “organization & human<br />
resource management.” In addition, “organization & human resource<br />
management” courses are stressed more when the programs have relatively more<br />
faculty members with doctorates in public administration. When the programs<br />
have more faculty members with doctorates in political science, “finance &<br />
budgeting” is emphasized more. In sum, the core courses such as “economics &<br />
policy analysis,” “finance & budgeting,” and “organization & human resource<br />
management” are associated with faculty academic disciplines, while the other<br />
core courses such as policy process, public management, and research methods<br />
are not. Therefore, Hypothesis 2 is partially supported. It should be noted that<br />
only the core courses that are differently emphasized by MPA and MPP<br />
programs have significant relationships with faculty academic disciplines. This<br />
analysis suggests an association rather than causality between core curriculum<br />
content and faculty members’ academic disciplines. Given the association we<br />
found, schools that have more faculty members with doctorates in a specific<br />
academic discipline appear to be more likely to have core curricula that contain<br />
more courses associated with that discipline. At the same time, the association of<br />
faculty background and core curriculum content may suggest that programs<br />
with an emphasis in certain academic content may attract faculty with similar<br />
academic backgrounds. Therefore, if there is any causal relationship between a<br />
faculty’s academic background and the core curriculum content, it remains<br />
ambiguous and indeterminate. (See Table 2.)<br />
Since more emphasis is placed on “economics & policy analysis” in MPP<br />
programs (contrary to Hypothesis 1) and core faculty academic disciplines have<br />
a partial impact on core courses (partially supporting Hypothesis 2), we<br />
examined the impact of core faculty disciplines on offering MPP programs and<br />
being APPAM members. In fact, all MPP programs are offered by APPAMmember<br />
schools, regardless of whether they belong only to APPAM or are dualmembership<br />
schools. According to ANOVA results in Table 3, among three<br />
major core faculty disciplines, economics and public administration are<br />
associated with offering MPP programs and being APPAM members. Further<br />
analysis (not shown) revealed that, in these programs, more faculty with<br />
doctorates in economics or fewer faculty with doctorates in public<br />
administration were significantly associated with offering MPP programs and<br />
being APPAM members. (See Table 3.)<br />
Journal of Public Affairs Education 405
MPA vs. MPP: A Distinction Without a Difference?<br />
Table 2.<br />
ANOVA Results for Core Courses and Faculty’s Academic Disciplines<br />
Core Courses (F-Statistics)<br />
Research<br />
Methods<br />
Organization &<br />
Human Resource Mngt<br />
Public<br />
Mngt<br />
Policy<br />
Process<br />
Finance &<br />
Budgeting<br />
Economics &<br />
Policy Analysis<br />
Core<br />
Faculty’s<br />
Disciplines<br />
Economics 2.04* ( 2.14*) f 1.02 (1.73*) 1.43 (1.70) 1.38 (1.07) 2.63** ( 5.73***) 1.06 (1.39)<br />
Political Science 1.48 (1.70) 1.08 (1.69*) 0.93 (1.68) 1.14 (1.41) 0.84 (1.40) 0.58 (1.35)<br />
Overalla (70) b<br />
Public Administration 1.29 (1.04) 0.79 (0.85) 0.75 (1.42) 1.35 (1.51) 2.86*** (2.62**) 0.89 (1.15)<br />
Economics 0.63 (.084) 1.05 (0.93) 1.93 (1.40) 0.26 (0.35) 1.71 (1.23) 0.96 (0.68)<br />
Political Science 1.13 (0.87) 7.32**(2.26) 1.27 (1.33) 0.66 (0.74) 0.22 (0.41) 1.77 (1.27)<br />
MPA-Only c<br />
(19)<br />
Public Administration 1.08 (0.47) 0.89 (26.00**) 1.31 (4.11) 0.67 (6.44*) 2.54 (10.16*) 1.00 (2.74)<br />
406 Journal of Public Affairs Education<br />
Economics 1.06 (4.60) 1.25 (1.85) 0.54 (1.64) 0.92 (6.29) 0.50 (342.47***) 0.44 (1.48)<br />
Political Science .040 (0.94) 1.43 (1.24) 0.85 (2.55) 1.05 (2.72) 0.91 (0.56) 1.29 (1.52)<br />
Public Administration 2.33 (0.47) 0.65 (0.77) 0.62 (1.07) 1.73 (1.00) 1.03 (0.86) 0.70 (1.11)<br />
MPP-Only d<br />
&<br />
MPA/MPPd (20)<br />
Economics 0.66 (0.66) 1.21 (1.21) 0.49 (0.49) 0.21 (0.21) 10.64*** (10.64***) 2.20 (2.20)<br />
Political Science 2.86* (2.86*) 1.42 (1.42) 1.66 (1.66) 1.29 (1.29) 2.62 (2.62) 0.89 (0.89)<br />
MPA-Only e<br />
(24)<br />
Public Administration 2.96* (2.96*) 0.87 (0.87) 1.63 (1.63) 1.10 (1.10) 1.32 (1.32) 1.09 (1.09)<br />
Note. *p < 0.05 **p < 0.01 ***p < 0.001<br />
Significant ANOVA results may indicate positive or negative relationships. Further analyses were conducted to determine the direction of the relationships,<br />
by adding the Bonferroni option to ANOVA (see Statacorp 2003, pp. 108-109)<br />
a. All schools with Web sites that provided information about their core faculty’s disciplines<br />
b. Number of schools<br />
c. MPA-only-offering schools among dual-membership schools (i.e., NASPAA and APPAM)<br />
d. MPP-only-offering schools and both MPA/MPP-offering schools among dual-membership schools<br />
e. MPA-only-offering schools among dual-membership schools, among NASPAA-only members<br />
f. When joint-appointment faculty were included
MPA vs. MPP: A Distinction Without a Difference?<br />
Table 3.<br />
ANOVA Results for the Association Between Core Faculty Academic Disciplines<br />
and MPP Program Offering or APPAM Membership<br />
Core Faculty Academic Disciplines<br />
Public<br />
Administration<br />
Comparison<br />
Economics Political Science<br />
5.16*<br />
(7.06*)<br />
0.00<br />
(0.97)<br />
3.62<br />
(4.57*) b<br />
MPA-Only-Offering Among Dual-Membership Schools (19)<br />
vs. MPP-Offering Among Dual-Membership Schools (20) a<br />
MPP-Offering<br />
12.25**<br />
(22.16***)<br />
0.53<br />
(0.06)<br />
25.39***<br />
(45.70***)<br />
Accredited MPA-Only-Offering Among NASPAA-Only Members (24)<br />
vs. MPP-Offering Among Dual-Membership Schools (20)<br />
4.49*<br />
(11.47**)<br />
1.26<br />
(0.07)<br />
14.10***<br />
(26.62***)<br />
NASPAA-Ony Members (24)<br />
vs. APPAM Membersc (40)<br />
Becoming APPAM<br />
Members<br />
Note. *p < 0.05 **p < 0.01 ***p < 0.001<br />
Significant ANOVA results may indicate positive or negative relationships. Further analyses were conducted to determine the direction of the relationships,<br />
by adding Bonferroni option to ANOVA (see Statacorp 2003, pp. 108-109)<br />
a. MPP-only-offering schools and both MPP/MPA-offering schools<br />
b. When joint-appointment faculty were included<br />
c. APPAM-only members were excluded from the analysis<br />
Journal of Public Affairs Education 407
MPA vs. MPP: A Distinction Without a Difference?<br />
Assessment 3: Surveying Directors of Schools Offering Both the MPP and MPA<br />
As indicated, surveys were sent to the 12 schools identified as offering both<br />
MPA and MPP degrees. The surveys were designed to ascertain different<br />
program goals, desired graduate competencies, and recruitment and placement<br />
differences for the two programs. Although the response rate was relatively high<br />
(seven out of 12 schools), the small number of respondents limits the<br />
observations that can be drawn from the returned surveys. The survey results are<br />
reported in the following sections.<br />
1. Differences between MPA and MPP Programs.<br />
As seen in Appendix E, program directors responding to the survey<br />
generally agreed that (a) MPP programs focus more on policy analysis<br />
and MPA programs focus more on administrating public organizations,<br />
(b) MPP programs have more economics courses, but MPA programs<br />
have more administration-related courses, (c) MPP programs attract<br />
more analytically oriented students, but MPA programs attract more<br />
students interested in nonprofit management careers. (See Appendix E.)<br />
2. Desired Competencies of MPA and MPP Program Graduates.<br />
The ability to apply statistical models to evaluate policy outcomes, the<br />
ability to develop innovative approaches to solve policy issues, and the<br />
ability to evaluate performance of public or nonprofit organizations are<br />
among the competencies that both MPA and MPP programs identify as<br />
high priorities for their graduates, as seen in Appendix F. However,<br />
MPA programs put more emphasis on the ability efficiently to manage<br />
groups and organizations and the ability to motivate organizations than<br />
MPP programs do. (See Appendix F.)<br />
3. Expected Job Areas and Positions for MPA and MPP Graduates.<br />
According to the survey, there are minimal employment opportunity<br />
differences for MPA and MPP degree recipients. That is, 57 percent of<br />
participating directors said they have observed different employment<br />
opportunities for MPA and MPP graduates, whereas 43 percent of<br />
participating directors said they have not observed any difference in<br />
employment opportunities. In fact, as seen in Appendix G, there are<br />
limited distinctions between MPA and MPP graduates regarding<br />
expected job areas. Federal, state, and local governments plus nonprofit<br />
sectors are the career areas where the most jobs are expected to be<br />
obtained by both MPA and MPP graduates. Appendix H shows job<br />
positions expected to be obtained by graduates of each program, but we<br />
do not observe distinctions between MPA and MPP graduates in jobs<br />
expected to be obtained. For example, nonprofit organization<br />
management, program/agency management, or staff positions are<br />
among the most likely jobs for both MPA and MPP graduates.<br />
Personnel specialists, city managemers, lobbyists, and performance<br />
408 Journal of Public Affairs Education
MPA vs. MPP: A Distinction Without a Difference?<br />
auditors are among the least likely jobs for both MPA and MPP<br />
graduates to take. (See Appendix G and H.)<br />
4. Major Reasons for Offering MPP Programs.<br />
Directors’ responses to the question of why they offer an MPP program<br />
are shown in Appendix I. Most directors indicated that they offer an<br />
MPP program to (a) be responsive to student career objectives, (b)<br />
attract students who are not interested in MPA programs, (c) respond to<br />
national trends, and (d) be responsive to faculty interests. It is<br />
noteworthy that they do not offer an MPP program to (a) attract<br />
specific undergraduate majors, (b) create a more research-oriented<br />
degree, (c) provide a steppingstone to a Ph.D., or (d) respond to<br />
university demands. (See Appendix I.)<br />
SUMMARY AND CONCLUSION<br />
In this study, we investigated in a comprehensive manner whether policyoriented<br />
programs are different from administration-oriented programs; we<br />
followed up on previous studies — most of which argued that these two<br />
orientations were becoming more integrated by adopting each other’s elements<br />
into their separate programs, and therefore creating an effect where there might<br />
be no difference between them (Lowery & Whitaker, 1994; De Soto et al.,<br />
1999). Previous empirical studies had compared NASPAA members with<br />
APPAM members in terms of curricula or the psychological dispositions of<br />
entering students, without considering dual-membership schools and that some<br />
schools have different master’s degrees. In this study, however, Assessments 1<br />
and 3 directly compared MPA programs with MPP programs from various<br />
school categories, in terms of (a) curricula, (b) desired competencies and jobs<br />
expected to be obtained by program graduates, and (c) major reasons for<br />
offering different programs. In Assessment 2, we examined the impact of core<br />
faculty’s academic disciplinary backgrounds on (a) the programs’ core<br />
curriculum emphases, (b) offering MPP programs, and (c) becoming APPAM<br />
members. Therefore, we could establish a more proper conclusion about<br />
whether or not policy-oriented and administration-oriented programs are truly<br />
different.<br />
Above all, the findings of the curriculum comparison did not support the<br />
arguments of previous empirical studies, but instead confirmed theoretical<br />
arguments (Elmore, 1986; Lowry & Whitaker, 1994) that policy-oriented and<br />
administration-oriented schools are different in terms of their curricula.<br />
Although previous empirical studies indicated that differences between MPA<br />
and MPP programs were evaporating, this finding suggests that MPPs and<br />
MPAs are still different. Perhaps our analysis was conducted in a more<br />
comprehensive and direct manner than those studies and, as a result, program<br />
differences might have become more apparent. Also, unlike previous studies —<br />
Journal of Public Affairs Education 409
MPA vs. MPP: A Distinction Without a Difference?<br />
which based their analyses on whether or not a certain course simply was<br />
included in the curriculum — we compared curricula, based on the proportion<br />
of each disciplinary core. Therefore, we believe our approach to the question of<br />
whether MPA and MPP programs differ is more comprehensive than previous<br />
approaches, and that it provides additional insights regarding the actual<br />
differences between these two programs.<br />
Our study also suggests that the curriculum differences between MPA and<br />
MPP programs may not result from differences in the desired competencies and<br />
expected placements of program graduates. Rather, the core faculty’s academic<br />
backgrounds may play an important role in a university’s decision to offer an<br />
MPP program when it already has an MPA program, or to add an MPA<br />
program alongside an existing MPP program.<br />
The findings of this study can be useful for universities, particularly when they<br />
consider whether or not to establish supplemental MPP or MPA programs. It<br />
might be appropriate for a university contemplating an additional program<br />
offering to determine whether the motivation for the initiative is to (a) serve<br />
different students, (b) provide the educational background for additional career<br />
opportunities or (c) simply is the result of the faculty’s desire to offer a program<br />
more aligned with its dominant academic backgrounds and interests. If the latter<br />
consideration seems to be the case, a name change or distinction adjustment to<br />
the existing degree program may be more appropriate than adding a new one.<br />
In conclusion, does the distinction between MPA and MPP programs<br />
represent a real difference? The answer is both yes and no. Overall curriculum<br />
comparisons of MPA and MPP programs indicate modest differences in<br />
academic content. However, the distinction between the two programs appears<br />
to fade when both are offered by the same school or department. To insure a<br />
justifiable distinction, it seems that the respective programs should possess<br />
differences in goals and desired student outcomes, rather than simply reflect<br />
differences that are associated with their core faculty’s academic disciplinary<br />
backgrounds. Otherwise, there may be justification for the criticism that MPP<br />
programs are not really distinct from MPA programs except in their names. 13<br />
REFERENCES<br />
Averch, H., & Dluhy, M. (1992). Teaching public administration, public management, and policy<br />
analysis: Convergence or divergence in the master’s core? Journal of Policy Analysis and<br />
Management, 11(3), 541-551.<br />
Brewer, G..A., Facer, R.L., & O’Toole, L.J. (1999). What’s in a name? Comparing D.P.A. and Ph.D.<br />
programs. Journal of Public Affairs Education, 5(4), 309-317.<br />
De Soto, W., Opheim, C., & Tajalli, H. (1999). Apples and oranges? Comparing the attitudes of<br />
public policy versus public administration students. American Review of Public Administration,<br />
29(1), 77-91.<br />
Denhardt, R. (2001). The big questions of public administration education. Public Administration<br />
Review, 61(5), 526-534.<br />
410 Journal of Public Affairs Education
MPA vs. MPP: A Distinction Without a Difference?<br />
Elmore, R.F. (1986). Graduate education in public management: Working the seams of government.<br />
Journal of Policy Analysis and Management, 6(1), 69-83.<br />
Lowery, D., & Whitaker, G.P. (1994). Comparing public administration and policy analysis<br />
approaches to public service education. American Review of Public Administration, 24(1), 25-41.<br />
Roeder, P.W., & Whitaker, G. (1993). Education for the public service: Policy analysis and<br />
administration in the MPA core curriculum. Administration and Society, 24(4), 512-540.<br />
StataCorp. (2003). Stata Statistical Software: Release 8.0 (Vol. 3). College Station, TX: Stata<br />
Corporation.<br />
Stokes, D.E. (1986). Political and organizational analysis in the policy curriculum. Journal of Policy<br />
Analysis and Management, 6, 45-55.<br />
Ventriss, C. (1991). Contemporary issues in American public administration education: The search for<br />
an educational focus. Public Administration Review, 51(1), 4-14.<br />
FOOTNOTES<br />
1 The Association for Public Policy and Management (APPAM) represents the policy analysis<br />
movement. The <strong>National</strong> Association of Schools of Public Affairs and Administration (NASPAA)<br />
is broader-based, and includes many APPAM members, but it generally is more representative of<br />
public administration (Lowery & Whitaker, 1994, p. 25).<br />
2<br />
Two other areas of possible differences that De Soto et al. (1999) did not investigate were the<br />
differences in job placements for graduates of each program, and the differences in self-evaluations<br />
by those in the workplace.<br />
3<br />
The seven components were techniques of analysis, organization/management, political institutions,<br />
financial administration, economic institutions, legal institutions, and social institutions.<br />
4<br />
Institutional-management programs allocate more time to political, social, and legal institutions and<br />
processes, as well as organization and management concepts. Analytical programs are characterized<br />
by larger allocations of curriculum time to quantitative methods and statistics, financial<br />
administration, and economic institutions and processes (Roeder & Whitaker, 1993, p. 535).<br />
5<br />
It should be noted that, while NASPAA and APPAM member schools and departments principally<br />
offer MPA or MPP degrees, they may offer other master’s degrees, as in Master of Economic Policy<br />
Management, Master of Science in Urban Policy, or combination-type degrees, such as Master of<br />
Public Policy and Management.<br />
6<br />
As seen in Appendix A, ANOVA results for programs offered by NASPAA members are either similar<br />
or different, depending on which sample is chosen. For example, only “economics and policy<br />
analysis” core courses were significantly different in comparison B of Appendix A, which matched<br />
MPA programs offered by NASPAA-only members to MPA programs offered by dual-membership<br />
schools. In comparison C, which matched curricula of MPA programs offered by NASPAA-only<br />
members to MPP programs offered by dual-membership schools, most courses were significantly<br />
different.<br />
7<br />
We used Stata statistical software to run an ANOVA. As the Stata manual (StataCorp, 2003)<br />
indicates, either a one-way ANOVA or t-test can be used to determine if the mean value of one<br />
variable (e.g., the proportion of core courses in this study) is different, depending on another<br />
variable (e.g., MPA or MPP programs in this study).<br />
8<br />
The number of dual-membership schools was 60, as of November 1, 2005. Among these, seven were<br />
excluded due to having different master’s degrees, such as a Master’s of Public Policy and<br />
Management, or an MS in Urban Policy Analysis and Management, etc. (See Appendix B).<br />
Among the remaining 53 dual-membership schools, 32 offered MPA programs only, nine offered<br />
MPP programs only, and 12 offered both MPA and MPP programs.<br />
Journal of Public Affairs Education 411
MPA vs. MPP: A Distinction Without a Difference?<br />
9<br />
They are faculty members who mainly are assigned to the department (or school). Roeder and<br />
Whitaker (1993) call them full-time nucleus faculty.<br />
10<br />
They are research faculty, adjunct faculty, affiliated faculty, faculty of practice, visiting faculty,<br />
lecturers, and faculty emeriti.<br />
11<br />
We could identify core faculty’s academic backgrounds for all nine dual-membership schools that<br />
provided only MPP programs, and all 12 dual-membership schools that provided both MPA and<br />
MPP programs. However, among 33 dual-membership schools that offered only MPA programs<br />
(See Appendix B), only 18 schools provided information on their Web sites about the core faculty’s<br />
academic backgrounds. For 30 NASPAA-only members that offered only MPA programs, we<br />
checked the core faculty’s academic backgrounds, as well as the composition of their curricula.<br />
These 30 schools were randomly selected from 147 MPA programs accredited by NASPAA (as of<br />
September 1, 2005).<br />
12<br />
Questions in the survey mainly were focused on similarities and differences between MPA and MPP<br />
programs, so we chose the schools that offered both programs, and that were most capable of<br />
answering the questions. For example, in the survey, we asked, “Which of the following describes<br />
the distinguishing difference between your MPA and MPP programs?” Out of the 12 schools that<br />
offered both programs, the University of Delaware offered MPA and MA programs in urban affairs<br />
and public policy, and the University of Pittsburgh offered MPA and MA programs in public<br />
policy and management.<br />
13<br />
Brewer, Facer, and O’Toole (1999) argued that Ph.D. and Doctor of Public Administration (D.P.A.)<br />
programs are merely distinctions without a difference.<br />
AUTHORS’ NOTE<br />
We wish to acknowledge the earlier contributions of Gabriela Wolfson on<br />
related research.<br />
Yongbeom Hur is an assistant professor of public administration in the<br />
Department of Government and Justice Studies at Appalachian State University.<br />
His teaching and research interests include human resource management,<br />
research methods, and a quantitative approach to public management.<br />
Merl Hackbart is a professor of finance and public administration at the<br />
University of Kentucky. His research focuses on public financial management,<br />
budgeting, and debt management.<br />
412 Journal of Public Affairs Education
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Appendix A.<br />
Analysis of Variance (ANOVA) Results for Curriculum Comparisons Between MPA and MPP Programs<br />
Offered by NASPAA, APPAM, or Dual-Membership Schoolsa Economics & Finance & Policy Public Organization Research<br />
Policy Analysis Budgeting Process Management & HRM b Method<br />
VARIOUS COMPARISONS<br />
A MPA Program Offered by NASPAA-only Members vs. 36.22*** 6.26* 2.11 0.53 18.86*** 0.16<br />
Both MPA & MPP Programs Offered by Dual Members<br />
B MPA Program Offered by NASPAA-only Members vs. 18.98*** 0.75 0.61 0.43 3.38 0.59<br />
MPA Program Offered by Dual Members<br />
C MPA Program Offered by NASPAA-only Members vs. 62.63*** 13.08*** 5.19* 6.57* 34.03*** 0.00<br />
MPP Program Offered by Dual Members<br />
Note. *p < 0.05 ** p < 0.01 ***p < 0.001<br />
a. Dual-membership schools belong to both NASPAA and APPAM<br />
b. “HRM” is Human Resources Management<br />
Journal of Public Affairs Education 413
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix B.<br />
Programs Offered by Dual-Membership Schoolsa Schools with Dual Membership MPA/MPP MPA MPP Other Program Remarks<br />
(APPAM & NASPAA) Offered Only Only Offered<br />
American University •<br />
Arizona State University •<br />
Baruch College<br />
City University of NY •<br />
Brown University •<br />
Carnegie Mellon University Master of Public Policy & Mgmt<br />
College of William & Mary •<br />
Columbia University • Master of Economic Policy Management<br />
Cornell University •<br />
414 Journal of Public Affairs Education<br />
Duke University •<br />
Florida Int’l University •<br />
George Mason University •<br />
George Washington Univ. •<br />
Georgetown University • Master of Policy Management<br />
Georgia Institute of Technology • MS in Public Policy<br />
Georgia State University •<br />
Harvard University •<br />
Note. a = Dual-membership schools belong to both NASPAA and APPAM<br />
Sources: APPAM, http://www.appam.org; NASPAA, http://www.naspaa.org, and each school’s Web site as of Oct. 15, 2005.<br />
“Remarks” column provides supplemental information regarding MPA & MPP Programs Continued
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix B.<br />
Programs Offered by Dual-Membership Schoolsa Schools with Dual Membership MPA/MPP MPA MPP Other Program Remarks<br />
(APPAM & NASPAA) Offered Only Only Offered<br />
Indiana University • Master of Public Affairs<br />
Indiana University-<br />
Perdue University, Indianapolis • Master of Public Affairs<br />
Iowa State University •<br />
Johns Hopkins University • MA in Public Policy<br />
Kent State University •<br />
New School University MS in Urban Policy Analysis & Management<br />
New York University •<br />
Ohio State University •<br />
Pennsylvania State Univ. •<br />
Princeton University •<br />
Rutgers, the State<br />
University of New Jersey •<br />
Syracuse University •<br />
Texas A&M University •<br />
Univ. at Albany - SUNY •<br />
University of Arkansas •<br />
Note. a = Dual-membership schools belong to both NASPAA and APPAM<br />
Sources: APPAM, http://www.appam.org; NASPAA, http://www.naspaa.org, and each school’s Web site as of Oct. 15, 2005<br />
“Remarks” column provides supplemental information regarding MPA & MPP Programs Continued<br />
Journal of Public Affairs Education 415
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix B.<br />
Programs Offered by Dual-Membership Schoolsa Schools with Dual Membership MPA/MPP MPA MPP Other Program Remarks<br />
(APPAM & NASPAA) Offered Only Only Offered<br />
University of Arizona •<br />
University of California-LA • Dept. of Public Policy<br />
University of Chicago •<br />
University of Cincinnati • MA in Political Science<br />
Univ. of Colorado-Denver • MA in Political Science<br />
University of Delaware • MA in Urban Affairs & Public Policy<br />
University of Georgia •<br />
University of Illinois •<br />
University of Kentucky •<br />
416 Journal of Public Affairs Education<br />
University of Maryland- •<br />
Baltimore County<br />
U. of Md.-College Park •<br />
University of Mass.-Amherst Master of Public Policy & Admin<br />
University of Mass.-Boston MS in Public Affairs<br />
University of Michigan •<br />
University of Minnesota •<br />
U. of Missouri-Columbia •<br />
Note. a = Dual-membership schools belong to both NASPAA and APPAM<br />
Sources: APPAM, http://www.appam.org; NASPAA, http://www.naspaa.org, and each school’s Web site as of Oct. 15, 2005.<br />
“Remarks” column provides supplemental information regarding MPA & MPP Programs Continued
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix B.<br />
Programs Offered by Dual-Membership Schoolsa Schools with Dual Membership MPA/MPP MPA MPP Other Program Remarks<br />
(APPAM & NASPAA) Offered Only Only Offered<br />
U. of Missouri-St. Louis Master of Public Policy & Admin<br />
Univ. of Nebraska-Omaha •<br />
Univ. of NC-Chapel Hill •<br />
Univ. of NC-Charlotte •<br />
Univ. of Pennsylvania • Master of Gov’t Administration<br />
University of Pittsburgh • Master of Public Policy & Mgmt<br />
Univ. of Southern California •<br />
Univ. of Southern Maine Master of Public Policy & Mgmt<br />
University of Texas-Austin • Master of Public Affairs<br />
University of Texas-Dallas • Master of Public Affairs<br />
University of Washington •<br />
U. of Wisconsin-Madison • Master of Public Affairs<br />
Virginia Commonwealth<br />
University •<br />
Total (60 Schools) 12 33 9 6<br />
Note. a = Dual-membership schools belong to both NASPAA and APPAM<br />
Sources: APPAM, http://www.appam.org; NASPAA, http://www.naspaa.org, and each school’s Web site as of Oct. 15, 2005.<br />
“Remarks” column provides supplemental information regarding MPA & MPP Programs<br />
Journal of Public Affairs Education 417
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix C.<br />
Curriculum Composition of Core Courses<br />
Core Course Areas (%) a<br />
Research<br />
Methods<br />
Organization<br />
& HRMb Public<br />
Mgmt<br />
Policy<br />
Process<br />
Finance &<br />
Budgeting<br />
Economics &<br />
Policy Analysis<br />
Program Offered<br />
(No. of Schools Analyzed)<br />
Membership<br />
Others<br />
MPA Only (32) 14.9 11.7 12.5 14.9 12.7 18.1 15.2<br />
Dual-<br />
MPP Only (9) 30.0 4.5 19.4 4.5 7.5 23.9 10.4<br />
Membership<br />
Schools<br />
(NASPAA &<br />
418 Journal of Public Affairs Education<br />
MPA of MPA & MPP Offered (12) 21.6 10.8 9.6 9.6 3.6 21.6 23.4<br />
APPAM)<br />
MPP of MPA & MPP Offered (12) 27.6 6.6 14.5 7.9 2.6 20.2 20.6<br />
Non-Dual-<br />
Membership<br />
MPA Only (30) 5.6 14.5 8.9 13.5 15.6 20.5 21.8<br />
Schools<br />
(NASPAA Only)<br />
Note. a. Percentage of each category = (credit hours of each category/credit hours of all categories) * 100<br />
b. “HRM” is Human Resources Management
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix D.<br />
Academic Backgrounds of Core Faculty<br />
Faculty Members’ Doctoral Degrees (%) a<br />
Program Offered<br />
(No. of Schools)<br />
Membership<br />
Others<br />
Public<br />
Administrationc Economics b Political Science<br />
13.5 d (18.0) e 21.3 (22.2) 36.7 (26.8) 28.5 (34.0)<br />
MPA-Only<br />
(19)<br />
32.2 (26.8) 16.7 (21.2) 18.9 (7.2) 32.2 (44.8)<br />
MPP-Only<br />
(9)<br />
Dual-Membership Schools<br />
(NASPAA & APPAM)<br />
23.3 (26.3) 20.3 (23.8) 10.9 (6.2) 45.5 (43.7)<br />
MPA & MPP<br />
(12)<br />
2.7 f 15.6 17.2 64.5<br />
MPA-Only<br />
(30)<br />
Non-Dual Membership Schools<br />
(NASPAA-Accredited Only)<br />
Note. a. Percentage = (No. of each discipline/total number of all core faculty with a doctorate) * 100<br />
b. Public finance is included<br />
c. Public policy is included<br />
d. Percentage before including faculty of joint appointment<br />
e. Percentage after including faculty of joint appointment<br />
f. Percentage after including faculty of joint appointment<br />
Journal of Public Affairs Education 419
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix E.<br />
Differences Between MPA and MPP Programs<br />
Strongly<br />
Agree<br />
Agree<br />
I Am<br />
Not Sure<br />
Disagree<br />
Strongly<br />
Disagree<br />
Which of the following describes the distinguishing difference between your<br />
MPA and MPP programs?<br />
The MPP program focuses more on policy analysis than the MPA program. 14% (1) 0% (0) 0% (0) 57% (4) 29% (2)<br />
29% (2) 14% (1) 0% (0) 43% (3) 14% (1)<br />
The MPA program focuses more on the administration of public organizations<br />
than the MPP program.<br />
0% (0) 43% (3) 0% (0) 29% (2) 29% (2)<br />
The MPP program has a greater emphasis on research coursework than the<br />
MPA program.<br />
The MPP program has more economics coursework than the MPA Program. 29% (2) 0% (0) 0% (0) 29% (2) 43% (3)<br />
14% (1) 14% (1) 0% (0) 43% (3) 29% (2)<br />
The MPA curriculum includes more administration-related courses (personnel<br />
mgmt, financial mgmt, etc.) than the MPP program.<br />
420 Journal of Public Affairs Education<br />
The MPP degree has fewer course requirements than the MPA program. 29% (2) 29% (2) 0% (0) 29% (2) 14% (1)<br />
0% (0) 14% (1) 29% (2) 57% (4) 0% (0)<br />
The MPP program attracts more analytically oriented students than the MPA<br />
program.<br />
14% (1) 14% (1) 43% (3) 14% (1) 0% (0)<br />
The MPP program attracts more students who majored in economics than the<br />
MPA program.<br />
14% (1) 29% (2) 57% (4) 0% (0) 0% (0)<br />
The MPP program attracts more students who majored in political science than<br />
the MPA program.<br />
43% (3) 0% (0) 57% (4) 0% (0) 0% (0)<br />
The MPA program attracts more students from diverse undergraduate majors<br />
(arts, sciences, health, etc.) than the MPP program.<br />
14% (1) 14% (1) 29% (2) 43% (3) 0% (0)<br />
The MPA program attracts more students interested in nonprofit management<br />
careers than the MPP program.<br />
Note. Respondent numbers are in parentheses.<br />
The highest percentage of responses for each question is marked in boldface.
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix F.<br />
Priority Competencies for MPA and MPP Programs<br />
High<br />
Priority<br />
Middle<br />
Priority<br />
Low<br />
Priority<br />
Please rate the following competencies that your MPA/MPP programs are likely to aim for:<br />
86% (6)<br />
14% (1)<br />
14% (1)<br />
29% (2)<br />
0% (0)<br />
57% (4)<br />
MPA<br />
MPP<br />
Ability to efficiently manage groups and organizations<br />
57% (4)<br />
14% (1)<br />
43% (3)<br />
43% (3)<br />
0% (0)<br />
43% (3)<br />
MPA<br />
MPP<br />
Ability to motivate organizations<br />
43% (3)<br />
57% (4)<br />
43% (3)<br />
29% (2)<br />
14% (1)<br />
14% (1)<br />
MPA<br />
MPP<br />
Ability to apply statistical models to evaluate policy outcomes<br />
57% (4)<br />
14% (1)<br />
14% (1)<br />
57% (4)<br />
29% (2)<br />
29% (2)<br />
MPA<br />
MPP<br />
Ability to analyze financial statements<br />
43% (3)<br />
86% (6)<br />
43% (3)<br />
14% (1)<br />
14% (1)<br />
0% (0)<br />
MPA<br />
MPP<br />
Ability to develop innovative approaches to solve policy issues<br />
57% (4)<br />
57% (4)<br />
43% (3)<br />
29% (2)<br />
0% (0)<br />
14% (1)<br />
MPA<br />
MPP<br />
Ability to evaluate performance of public or nonprofit organizations<br />
71% (5)<br />
29% (2)<br />
29% (2)<br />
71% (5)<br />
0% (0)<br />
0% (0)<br />
MPA<br />
MPP<br />
Ability to communicate effectively with constituencies in the general public<br />
14% (1)<br />
0% (0)<br />
71% (5)<br />
50% (3)<br />
14% (1)<br />
50% (3)<br />
MPA<br />
MPP<br />
Ability to resolve disputes among individuals<br />
Note. Respondent numbers are in parentheses.<br />
The highest percentage of responses for each question is marked in boldface.<br />
Seven respondents did not answer all the questions.<br />
Journal of Public Affairs Education 421
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix G.<br />
Expected Employment Areas for MPA and MPP Graduates<br />
More than<br />
30%<br />
10–20% 20–30%<br />
Less than<br />
10%<br />
Please indicate the percent of your MPA/MPP graduates who find employment<br />
in the following areas (including further education):<br />
50% (3)<br />
40% (2)<br />
17% (1)<br />
40% (2)<br />
17% (1)<br />
0% (0)<br />
17% (1)<br />
20% (1)<br />
MPA<br />
MPP<br />
Federal Government<br />
0% (0)<br />
0% (0)<br />
60% (3)<br />
60% (3)<br />
40% (2)<br />
40% (2)<br />
0% (0)<br />
0% (0)<br />
MPA<br />
MPP<br />
State Government<br />
0% (0)<br />
0% (0)<br />
50% (3)<br />
40% (2)<br />
33% (2)<br />
60% (3)<br />
17% (1)<br />
0% (0)<br />
MPA<br />
MPP<br />
Local Government<br />
0% (0)<br />
20% (1)<br />
66% (4)<br />
60% (3)<br />
17% (1)<br />
20% (1)<br />
17% (1)<br />
0% (0)<br />
MPA<br />
MPP<br />
Nonprofit Sector<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
20% (1)<br />
33% (2)<br />
60% (3)<br />
67% (4)<br />
20% (1)<br />
MPA<br />
MPP<br />
Private Sector<br />
422 Journal of Public Affairs Education<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
20% (1)<br />
60% (3)<br />
80% (4)<br />
40% (2)<br />
MPA<br />
MPP<br />
Further Graduate Education (Ph.D., Ed.D., etc.)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
100% (5)<br />
100% (5)<br />
MPA<br />
MPP<br />
Professional Education (e.g. Law)<br />
0% (0)<br />
0% (0)<br />
50% (1)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
50% (1)<br />
100% (1)<br />
MPA<br />
MPP<br />
Other<br />
Note. Respondent numbers are in parentheses.<br />
The highest percentage of responses for each question is marked in boldface.<br />
Seven respondents did not answer all the questions.
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix H.<br />
Expected Job Positions for MPA and MPP Graduates<br />
More than<br />
30%<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
20% (1)<br />
0% (0)<br />
40% (2)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
0% (0)<br />
10–20% 20–30%<br />
40% (2) 60% (3)<br />
60% (3) 20% (1)<br />
40% (2) 20% (1)<br />
20% (1) 0% (0)<br />
40% (2) 20% (1)<br />
25% (1) 0% (0)<br />
20% (1) 60% (3)<br />
20% (1) 40% (2)<br />
20% (1) 40% (2)<br />
20% (1) 40% (2)<br />
0% (1) 20% (1)<br />
40% (2) 0% (0)<br />
40% (2) 20% (1)<br />
40% (2) 60% (3)<br />
40% (2) 20% (1)<br />
40% (2) 20% (1)<br />
33% (2) 50% (3)<br />
20% (1) 40% (2)<br />
33% (2) 50% (3)<br />
40% (2) 40% (2)<br />
0% (0) 0% (0)<br />
60% (3) 0% (0)<br />
0% (0) 0% (0)<br />
0% (0) 0% (0)<br />
0% (0) 0% (0)<br />
0% (0) 0% (0)<br />
Less than<br />
10%<br />
0% (0)<br />
20% (1)<br />
40% (2)<br />
80% (4)<br />
20% (1)<br />
75% (3)<br />
20% (1)<br />
20% (1)<br />
20% (1)<br />
0% (0)<br />
20% (1)<br />
60% (3)<br />
20% (1)<br />
0% (0)<br />
20% (1)<br />
40% (2)<br />
17% (1)<br />
40% (2)<br />
17% (1)<br />
20% (1)<br />
100% (1)<br />
40% (2)<br />
100% (1)<br />
100% (5)<br />
100% (1)<br />
100% (1)<br />
Please indicate (or estimate) the types of job position or further educational opportunities<br />
that your MPA/MPP degree-recipients are likely to take given placements in the past five years.<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
MPA<br />
MPP<br />
Budget Analysts<br />
Personnel Specialists<br />
City Management<br />
Nonprofit Organization Management<br />
Policy Analysts<br />
Lobbyists<br />
Researchers<br />
Performance Auditors (e.g. GAO)<br />
Program/Angency Management<br />
Program/Angency Staff<br />
Doctoral Students<br />
Law School<br />
Other<br />
Note. Respondent numbers are in parentheses.<br />
The highest percentage of responses for each question is marked in boldface.<br />
Seven respondents did not answer all the questions.<br />
Journal of Public Affairs Education 423
MPA vs. MPP: A Distinction Without a Difference?<br />
Appendix I.<br />
Major Reasons for Establishing an MPP Program<br />
Strongly<br />
Agree<br />
Agree<br />
I Am<br />
Not Sure<br />
Disagree<br />
Strongly<br />
Disagree<br />
What are the major reasons for establishing your MPP program?<br />
To be responsive to student career objectives. 0% (0) 0% (0) 17% (1) 33% (2) 50% (3)<br />
To attract students not interested in MPA. 14% (1) 14% (1) 14% (1) 0% (0) 57% (4)<br />
To create a more research-oriented public policy degree. 0% (0) 43% (3) 0% (0) 29% (2) 29% (2)<br />
To provide a stepping stone for doctoral studies. 43% (3) 29% (2) 0% (0) 14% (1) 14% (1)<br />
To attract students with specific undergraduate majors. 86% (6) 14% (1) 0% (0) 0% (0) 0% (0)<br />
424 Journal of Public Affairs Education<br />
To meet university demands. 57% (4) 14% (1) 0% (0) 14% (1) 14% (1)<br />
To be responsive to alumni and employer suggestions. 29% (2) 29% (2) 0% (0) 43% (3) 0% (0)<br />
To respond to national trends regarding degree offerings. 0% (0) 14% (1) 14% (1) 43% (3) 29% (2)<br />
To be responsive to faculty interests and capabilities. 0% (0) 0% (0) 14% (1) 57% (4) 29% (2)<br />
Note: Respondent numbers are in parentheses.<br />
The highest percentage of responses for each question is marked in boldface.
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
What Impacts the Learning in Service<br />
Learning? An Examination of Project<br />
Structure and Student Characteristics<br />
Kristina T. Lambright<br />
Binghamton University<br />
Yi Lu<br />
City University of New York<br />
ABSTRACT<br />
This paper examines factors that can influence how effective a service-learning<br />
project is at achieving learning objectives. It is based on data collected from seven<br />
Master’s of Public Administration (MPA) courses taught during one semester at a<br />
large state university. We find that the key factors of influence on how effective a<br />
service-learning project is at achieving learning objectives are (a) the extent that<br />
the project is integrated with class materials, (b) whether or not students work in<br />
groups, and (c) whether or not the participating students are full-time.<br />
WHAT IMPACTS THE LEARNING IN SERVICE LEARNING?<br />
Service learning is an important pedagogical tool that is widely used in both<br />
graduate and undergraduate classrooms (Anderson & Harris, 2005;<br />
Fredericksen, 2000; Gallini & Moely, 2003; Litke, 2002; Strage, 2000; Wells,<br />
2006). It improves understanding of course content (Bringle & Hatcher, 1996;<br />
Bushouse & Morrison, 2001; Reinke, 2003), and offers students an opportunity<br />
to apply the lessons being learned in the classroom to a real-life setting<br />
(Bushouse & Morrison, 2001; Druker, Stefanovic, & Cunningham, 1996; Jelier<br />
& Clarke, 1999; Parker-Gwin & Mabry, 1998). Despite its importance as a<br />
pedagogical tool, there is no standard definition of service learning (Eyler,<br />
2000). Drawing on Simons and Cleary (2006), a service-learning project for the<br />
purposes of this study is defined as a course project that (a) lasts at least a half a<br />
semester, (b) allows students to apply course concepts to real-life situations, and<br />
(c) benefits both students and community members. Because service learning<br />
has been used in a variety of contexts in MPA classrooms (Bushouse &<br />
Morrison, 2001; Campbell & Tatro, 1998; Denhardt, 1997; Dicke, Dowden, &<br />
Torres, 2004; Druker, et al., 1996; Reinke, 2003), it raises this interesting<br />
JPAE 15(4): 425–444 Journal of Public Affairs Education 425
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
question: What impacts the learning in service learning?<br />
This paper examines the factors that influence how effective a service-learning<br />
project is in terms of achieving learning objectives. Its research questions focus on<br />
two broad sets of factors that potentially influence educational outcomes. The first<br />
focus is the structure of the service-learning project, which addresses this question:<br />
Are certain structures used for organizing service-learning projects more effective<br />
at achieving learning objectives than other structures? As a second focus, this<br />
paper examines the relationship between student characteristics and educational<br />
outcomes of service-learning projects, which addresses this question: Do certain<br />
groups of students learn more from participating in service-learning projects than<br />
other groups of students do? This study is based on data collected from seven<br />
MPA courses taught during one semester at a large state university. Students in all<br />
of these classes were required to participate in a service-learning project.<br />
There has been little empirical research in higher education to determine<br />
which factors influence the effectiveness of service-learning projects in terms of<br />
achieving learning objectives. Most of the limited, empirical research tends to<br />
focus on a few aspects of either (a) project structure, or (b) students’<br />
characteristics on service-learning outcomes. This makes it difficult to develop a<br />
complete picture of the variety of factors that may influence educational<br />
outcomes for service-learning projects. Another weakness in this body of<br />
research is that it focuses almost exclusively on undergraduates.<br />
To fill these gaps, this study examines the wide-ranging impact of both<br />
project structure variables and student characteristics on educational outcomes<br />
for graduate students. It provides a greater understanding of which student<br />
characteristics impact the effectiveness of service-learning projects, and it<br />
highlights potential differences in classroom learning experiences for various<br />
types of students. This project also suggests ways that educators can structure<br />
service-learning projects in order to improve educational outcomes. This<br />
information will be particularly useful for public administration programs, as<br />
well as other graduate programs that rely on service learning as an important<br />
pedagogical tool.<br />
FACTORS INFLUENCING THE <strong>EDUCATION</strong>AL OUTCOMES <strong>OF</strong> SERVICE LEARNING<br />
This section begins by summarizing the findings of past empirical research,<br />
which compares the effectiveness of service-learning and non-service-learning<br />
experiences in achieving different pedagogical objectives. Next, several factors<br />
that are likely to impact the educational outcomes of service learning are<br />
identified, and their hypothesized impact on educational outcomes is discussed.<br />
Following this are details of the past empirical findings on factors that influence<br />
the effectiveness of service-learning projects, in terms of achieving learning<br />
objectives. Finally, gaps in this body of literature are highlighted, including the<br />
observation that the vast majority of empirical research has focused on<br />
426 Journal of Public Affairs Education
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
undergraduate students.<br />
Past empirical research that compares service-learning and non-servicelearning<br />
experiences indicates that service learning generally has a positive —<br />
and at the very least neutral — impact on learning outcomes. Scholars have<br />
approached this topic from a variety of angles. Several researchers have used selfreports<br />
to evaluate the impact of service learning on academic achievement, and<br />
find that service learning positively influences academic achievement (Gallini &<br />
Moely, 2003; Hesser, 1995; Kendrick, 1996; Markus, Howard, & King, 1993).<br />
Researchers also have assessed the impact of service learning by using more<br />
direct measures of classroom outcomes. The conclusions of this body of research<br />
have been more mixed than the research based on self-reports, and they indicate<br />
that service learning has either a positive or neutral impact on academic<br />
achievement (Batchelder & Root, 1994; Eyler & Giles, 1999; Fredericksen,<br />
2000; Kendrick, 1996; Markus, Howard, & King, 1993; Strage, 2000).<br />
While there is a general consensus that service learning has a generally<br />
positive — and at the very least neutral — impact, it is less clear which factors<br />
influence its educational impact. For example, certain structures for organizing<br />
service learning may be more effective than others. Instructors who (a) play<br />
active roles in service-learning projects, (b) closely integrate projects with course<br />
material, and (c) structure regular reflection about the service-learning<br />
experience into class time may enhance educational outcomes. By playing an<br />
active role in service-learning projects, instructors may facilitate the process for<br />
students to make critical connections, and to apply lessons learned in other<br />
classroom contexts. Integration and reflection provide students with the<br />
cognitive guidance necessary to generalize the meaning and skill-acquisition of<br />
their personal experiences to broader contexts (Conrad & Hedin, 1982; Mabry,<br />
1998), and also encourage them to see service learning as “academic material,”<br />
rather than as training or as professional socialization (Mabry, 1998; Parker-<br />
Gwin & Mabry, 1998). In addition, regular intervals of structured reflection<br />
may be important, because it establishes a routine for students, and because its<br />
cognitive components stimulate academic learning where the service component<br />
alone might not (Hatcher et al., 2004).<br />
Other aspects of project structure also may influence educational outcomes.<br />
Providing more opportunities for students to interact with service beneficiaries<br />
and increasing the duration or intensity of the service-learning experience may<br />
have a positive impact, by expanding the amount of learning “material” that<br />
students are exposed to (Conrad & Hedin, 1982; Mabry, 1998). Another aspect<br />
of project structure that may be important is student autonomy. Giving students<br />
influence over the direction of a service-learning project may help create a sense<br />
of accountability among students, and may motivate them to work harder,<br />
thereby improving educational outcomes. On the other hand, making service<br />
learning mandatory may negatively impact educational outcomes. Students who<br />
Journal of Public Affairs Education 427
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
are required to take a service-learning class may be less enthusiastic about it, and<br />
be less motivated to work hard on their service projects, when compared to<br />
students who choose to take a service-learning course. As a final aspect of<br />
project structure, whether or not students work in groups also may impact<br />
educational outcomes. Structuring service learning as a group project may<br />
increase student perceptions of accountability (Barron, et al., 1998) and<br />
logically could be expected to expose participants to a greater diversity of<br />
perspectives. On the other hand, individual projects might be more effective for<br />
achieving learning objectives, because students are not distracted by difficult<br />
group dynamics, such as problems with free-riders.<br />
In addition to project structure influencing the educational outcomes of<br />
service learning, a student’s characteristics may impact how much is learned<br />
from participating in a service-learning project. For instance, gender and race<br />
can impact a variety of interactions in the classroom, and may influence<br />
students’ experiences with service learning (Warren, 1998). There is some<br />
evidence suggesting that females and students with prior volunteer experience<br />
are more likely to participate in service-learning projects (Parker-Gwin &<br />
Mabry, 1998; Sax & Astin, 1997). Given this, one also might expect that these<br />
groups would show more academic gain from participating in service learning.<br />
Another student characteristic that may be important is past service-learning<br />
experience. Students with more of this experience may be better able to handle<br />
the uncertainty associated with service learning (Jelier & Clarke, 1999), and<br />
gain more from this pedagogical tool. Alternatively, it is possible that students<br />
with considerable service-learning experience may feel “burned-out,” due to its<br />
labor- and time-intensive nature, and show less academic gain.<br />
Finally — although it is not theorized in literature on service learning — two<br />
student characteristics that are particularly relevant to graduate programs also<br />
may influence educational outcomes: (a) whether a student has past work<br />
experience and (b) whether a student is full-time or part-time. One might<br />
expect that students with past work experience would benefit more academically<br />
from service learning, because they may be more skilled in linking theory to<br />
practice. One also might expect full-time graduate students to gain more from<br />
service learning because they tend to have fewer commitments outside of the<br />
classroom. It may be more difficult for part-time students to devote enough<br />
time to service learning to receive its full benefits.<br />
The remainder of this section summarizes the limited empirical research that<br />
examines factors influencing the effectiveness of service learning projects in<br />
terms of achieving learning objectives, and it also highlights gaps in this body of<br />
literature. Reflection is the one factor that has considerable empirical research to<br />
show its positive impact on the educational outcomes of service learning.<br />
Hatcher, et al. (2004) find a positive relationship between course quality and<br />
the use of reflection activities that are structured, regularly scheduled, and that<br />
428 Journal of Public Affairs Education
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
allow for clarification of values. In a survey of undergraduate students, Parker-<br />
Gwin and Mabry (1998) report that reflection activities can deepen interest in<br />
service-learning course content. In addition, Eyler & Giles (1999) present<br />
national survey data — collected primarily from undergraduates — and find a<br />
consistent link between academic learning outcomes and the quantity and<br />
quality of reflection. Other studies specifically have focused on in-class<br />
reflection, and present evidence suggesting that it improves educational<br />
outcomes (Batchelder & Root, 1994; Conrad & Hedin, 1982; Mabry, 1998).<br />
More-limited empirical research exists on other potentially important aspects<br />
of project structure. A few studies have examined the educational impact of<br />
closely integrating a service-learning project with course material, and report a<br />
positive relationship. Based on interviews with 57 students from six colleges,<br />
Eyler & Giles (1999) found that those who took classes where service learning<br />
was well-integrated, also demonstrated a greater ability to understand and apply<br />
knowledge — when compared to students who took courses where there was no<br />
service learning, or where service learning was not well-integrated. Eyler and<br />
Giles’ measure of integration is in part based on the frequency of reflection<br />
opportunities. According to their study, service learning is well-integrated into a<br />
class when the service experience is closely connected to course activities, and<br />
when students have frequent opportunities to reflect on the connection between<br />
the service experience and course material. Similarly, Hatcher, Bringle, and<br />
Muthiah (2004) — in their study of 471 undergraduates from nine colleges —<br />
report that the integration of academic content with the service experience is<br />
positively related to course quality.<br />
There also is limited empirical evidence that suggests a positive relationship<br />
between the amount of time spent on service learning and its educational<br />
outcomes. Conrad and Hedin (1982) found that experiential education<br />
experiences lasting for at least a semester, plus those that were more timeintensive,<br />
were associated with better outcomes in a study of 27 experiential<br />
education programs for youths ages 12 to 19. Consistent with this, Mabry<br />
(1998) conclude that service hours are positively associated with academic<br />
learning — based on survey data collected from 144 undergraduate students.<br />
A handful of studies have examined other aspects of project structure. Mabry<br />
(1998) reported that there is a positive relationship between student contact<br />
with service beneficiaries and academic learning. Batchelder and Root (1994)<br />
create a combined measure of service-learning instructional quality that is based<br />
on (a) the level of student autonomy, (b) the extent of in-class reflection on<br />
service-learning experiences, and (c) the level of instructor support. They found<br />
that service-learning instructional quality is positively related to some measures<br />
of cognitive and pro-social cognitive outcomes. Finally, Parker-Gwin and Mabry<br />
(1998) conclude that required participation does not have a consistent positive<br />
or negative impact on educational outcomes for service learners.<br />
Journal of Public Affairs Education 429
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Empirical research assessing the impact of student characteristics on the<br />
educational outcomes of service learning also is limited. A few scholars have<br />
examined the impact of gender, but report conflicting findings. Eyler and Giles<br />
(1999) report that females are more likely than males to believe that service<br />
learning helped them (a) develop an understanding of complex issues, (b) gain<br />
knowledge about the work of specific agencies, and (c) see issues in new ways.<br />
Ropers-Huilman, Carwile, and Lima (2005) reach similar conclusions, and find<br />
that females in an undergraduate biological engineering course are more likely<br />
than their male counterparts to report that their service-learning experience<br />
positively impacted their learning outcomes. On the other hand, Fredericksen<br />
(2000) compares course performance for service and non-service learners, and<br />
finds that service learning is associated with higher grades on both the second<br />
and final exams of a course for males only. Similarly, Mabry (1998) finds that<br />
males are more likely than females to believe they academically benefit from<br />
service-learning experiences.<br />
Race is another characteristic that has been considered by researchers as a<br />
potential influence on the academic benefits received by participating in<br />
service-learning projects. But findings from these studies have been mixed.<br />
Ropers-Huilman, et al. (2005) report that non-white students are more likely<br />
than white students to say that service learning improved their learning<br />
outcomes. Consistent with Ropers-Huilman, et al. (2005), Scales,<br />
Roehlkepartain, Neal, Kielsmeier, and Benson (2006) found that principals of<br />
high-poverty, urban, and majority non-white middle and high schools were<br />
more likely to describe service learning as having a very positive impact on<br />
student attendance, engagement and academic achievement. On the other<br />
hand, Eyler and Giles (1999) report that white students are more likely than<br />
non-white students to believe that service learning helped them understand<br />
and apply academic material. Mabry (1998) concludes that there is no<br />
difference between reports by whites and non-whites regarding the academic<br />
benefits they receive from service learning.<br />
A few studies have examined the impact of yet more student characteristics.<br />
Mabry (1998) found that the frequency of past volunteer work does not<br />
influence the academic benefits that students say they receive from service<br />
learning. Eyler and Giles (1999) reach similar conclusions, and report that<br />
involvement in other community service activities does not impact students’<br />
perceptions of the academic benefits of service learning. In addition, there is<br />
limited evidence that past work experience may influence the educational<br />
outcomes of service learning. The sole empirical study in this review that was<br />
based on data collected primarily from graduate students (Bushouse &<br />
Morrison, 2001) reports that only students with prior professional experience<br />
found that service-learning reflection assignments helped them make linkages<br />
between course material and practice. (See Table 1.)<br />
430 Journal of Public Affairs Education
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Table 1.<br />
Empirical Research on Factors Influencing Service Learning’s Educational Impact<br />
Project Structure<br />
Reflection<br />
Integration<br />
Time Spent on Service Learning<br />
Research Focused<br />
on Undergraduate Students<br />
Batchelder & Root (1994); Conrad<br />
& Hedin (1982); Eyler & Giles<br />
(1999); Hatcher et al. (2004);<br />
Mabry (1998); Parker-Gwin &<br />
Mabry (1998)<br />
Eyler & Giles (1999);<br />
Hatcher et al.(2004)<br />
Conrad & Hedin (1982);<br />
Mabry (1998)<br />
Contact with Service Beneficiaries Mabry (1998)<br />
Instructor Guidance Batchelder & Root (1994)<br />
Student Influence Batchelder & Root (1994)<br />
Required Service Participation Parker-Gwin & Mabry (1998)<br />
Group/Individual Project<br />
Student Characteristics<br />
Gender<br />
Race<br />
Work Experience<br />
Eyler & Giles (1999);<br />
Fredericksen (2000); Mabry (1998);<br />
Ropers-Huilman et al. (2005)<br />
Eyler & Giles (1999); Mabry<br />
(1998); Ropers-Huilman et al.<br />
(2005); Scales, et al. (2006)<br />
Volunteer Experience Eyler & Giles (1999); Mabry (1998)<br />
Full-time/Part-time Student<br />
Research Focused<br />
on Graduate Students<br />
Bushouse & Morrison<br />
(2001)<br />
Journal of Public Affairs Education 431
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
As summarized by Table 1, the existing body of research on the different<br />
factors that influence the educational outcomes of service learning is<br />
fragmented. With the exception of Mabry (1998) and Eyler & Giles (1999),<br />
these studies tend to focus on the impact of just a few aspects of how either<br />
project structure or students’ characteristics affect service-learning outcomes. By<br />
contrast, some potentially important aspects of project structure and student<br />
characteristics identified by this paper have received no attention in prior<br />
empirical research. The subsequent analysis attempts to address this gap in the<br />
literature and present a more complete picture of the impact that a variety of<br />
factors have on the educational outcomes for service-learning projects.<br />
METHODOLOGY<br />
This study is based on data collected from seven MPA courses taught during<br />
the Spring 2007 semester at a large state university. Service-learning projects<br />
were conducted as part of each course. Table 2 briefly describes these servicelearning<br />
projects. (See Table 2.)<br />
At the end of the semester, students who enrolled in each of these seven<br />
courses were asked to complete a brief survey about their service-learning<br />
project. Some students were enrolled in more than one of these courses. These<br />
students were asked to complete a separate survey for each service-learning<br />
project in which they had participated. The surveys were completed during<br />
Table 2.<br />
Service Learning Project Description<br />
Administrative Law<br />
Capstone Seminar<br />
Evaluation<br />
Logic of Inquiry<br />
Proposal Preparation/<br />
Grant Management<br />
Course Service Learning Project Description<br />
Public Management/Public<br />
Administration<br />
Public and Nonprofit Finance<br />
432 Journal of Public Affairs Education<br />
Students researched legal aspects of inter-municipal services<br />
arrangements, focusing on New York.<br />
Students researched and analyzed an organization problem<br />
and made recommendations to address it.<br />
Students designed an evaluation plan for a university<br />
scholarship program.<br />
Students conducted a survey and analyzed data from the<br />
survey for the local public transportation agency.<br />
Students wrote grant proposals for local community groups.<br />
Students conducted assessments of a university public<br />
information technology system and prepared requests for<br />
proposals based on those assessments.<br />
Students examined the feasibility of consolidating four<br />
service areas for a local county government.
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
classroom time. The survey administrator and instructor left the classroom while<br />
students completed the survey, in order to protect the anonymity of those<br />
participating in the study. Of the 88 students enrolled in each of these classes,<br />
78 completed our survey, representing a response rate of 88.6 percent.<br />
The student survey can be found in the Appendix and includes both open- and<br />
close-ended questions. In the open-ended question section, students were asked to<br />
describe the service-learning project and suggest ways that they felt the project<br />
could be improved. As part of the close-ended questions, students were asked to<br />
rate the helpfulness of the service learning project toward achieving a variety of<br />
goals, which included (a) mastering course material, (b) tying together course<br />
concepts, (c) applying course concepts to real situations, (d) developing a deeper<br />
understanding of course material, and (e) developing a deeper understanding of<br />
material outside the course, but still relevant to their graduate program. In<br />
addition, the survey asked several close-ended questions about the structure of the<br />
service-learning project. Topics included questions on instructor guidance, project<br />
integration with course material, in-class time for reflection, the amount of time<br />
spent on the project, the student’s influence over the direction of the project, and<br />
whether the project involved group activities. (See Appendix.) If students<br />
participated in group activities, they were asked to assess how well their group<br />
worked as a team. Finally, the students were asked a series of questions about their<br />
backgrounds, including their gender, race, volunteer experience, service-learning<br />
experience, work experience, and status as full-time students.<br />
Instructors teaching each of the seven courses included in this study also were<br />
asked to complete a brief survey about the service-learning project. The instructor<br />
survey primarily included questions on project structure. Instructors also were<br />
asked to describe the service-learning project. In addition, they were asked closeended<br />
questions about (a) the number of different service-learning projects that<br />
were conducted as part of the course 1 , (b) the level of contact students had with<br />
service beneficiaries, (c) who selected the topic of the service-learning project, and<br />
(d) whether the major activities and graded assignments involved group and/or<br />
individual work. If the project involved group work, the instructors then were<br />
asked who determined group composition. Finally, instructors were asked if the<br />
course was required or an elective in the MPA program.<br />
Survey data were analyzed by using Analysis of Variance (ANOVA) and<br />
multiple regression. For this analysis, we created an index score that is intended<br />
to measure students’ perceptions of how effective a service-learning project is for<br />
achieving several educational goals. This index score is based on the sum of scores<br />
for five educational outcome measures: (a) mastering course material, (b) tying<br />
together course concepts, (c) applying course concepts to real situations, (d)<br />
developing a deeper understanding of course material, and (e) developing a<br />
deeper understanding of material outside of the course that is relevant to the<br />
graduate program. With each of these outcome measures, students were asked to<br />
Journal of Public Affairs Education 433
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Table 3.<br />
Descriptive Statistics: The Educational Effectiveness Index Score<br />
and Its Components<br />
Components of the Index Obs. Mean Std. Dev. Min Max<br />
Mastery of Course Material 79 3.58 1.15 1 5<br />
Linkage of Course Concepts 79 3.86 1.07 1 5<br />
Application of Course Concepts to Real<br />
Situations<br />
Development of a Deeper Understanding of<br />
Course Material<br />
Development of a Deeper Understanding of<br />
Material Outside of the Course Relevant to<br />
the Graduate Program<br />
Note. *The reason the minimum value listed for the index is a 7 rather than a 5 is because no survey<br />
respondent actually selected a 1 for each of the components of our educational effectiveness index.<br />
use a scale, of 1 to 5, to rate how helpful the service-learning project was at<br />
achieving this outcome. A 1 indicated that the project was not helpful, and a 5<br />
indicated that the project was extremely helpful. Thus, index scores could range<br />
from a minimum of 5 to a maximum of 25. Descriptive statistics for the<br />
educational effectiveness index score and its components are included in Table 3.<br />
(See Table 3.)<br />
To examine which factors influence the educational outcomes of service<br />
learning, we began by using ANOVA to test whether there were statistically<br />
significant relationships between each of the factors we had hypothesized as<br />
influencing the educational outcomes of service learning, and our educational<br />
effectiveness index. Next, we conducted multiple regression analysis in order to<br />
assess the relative contribution of different factors for explaining the educational<br />
outcomes of service learning. The dependent variable in this regression equation<br />
— the educational effectiveness index score — is modeled as a function of<br />
project structure and student characteristics. Multiple regression enables us to<br />
isolate the impact of each variable on educational outcomes, while holding other<br />
variables constant.<br />
For our multivariate analysis, we included only the significant factors from<br />
the ANOVA results. A sensitivity analysis was performed, in order to compare<br />
our streamlined model to a model that included all of the variables that our<br />
ANOVA analysis showed as potentially influencing the educational outcomes of<br />
service learning. We chose this more parsimonious model for a variety of<br />
434 Journal of Public Affairs Education<br />
79 4.09 0.95 1 5<br />
78 3.83 1.10 1 5<br />
79 4.08 0.93 1 5<br />
Educational Effectiveness Index Score 77 19.45 4.58 7* 25
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
reasons. First, including all potential independent variables does not increase<br />
explanatory power. The adjusted R-square in the streamlined model (0.515)<br />
actually is slightly higher than in the fuller model (0.488). Second, there is more<br />
multicollinearity in the fuller model. Finally, given our modest sample size of<br />
75, we were concerned that adding several insignificant variables would further<br />
reduce our model’s statistical power.<br />
FINDINGS<br />
According to our analysis of ANOVA results, some structures for organizing<br />
service-learning projects are significantly more effective than others. As depicted<br />
in Table 4, there are significant differences in the educational effectiveness index<br />
scores of students based on the following: (a) the level of instructor guidance<br />
provided on the project, (b) the extent of project integration with course<br />
material, (c) the amount of in-class reflection time, (d) the level of student<br />
influence over the project, (e) the level of contact between students and service<br />
beneficiaries, and (f) whether the project involved group activities. With<br />
projects involving group activities, there are also significant differences in the<br />
educational effectiveness index scores of students, depending on how well they<br />
believed their group acted like a team. By contrast, other aspects of project<br />
structure do not appear to make a difference in the educational effectiveness<br />
index scores of students. These variables include the amount of time working on<br />
a project, and whether the course was required or elective. (See Table 4.)<br />
While many aspects of project structure make a significant difference in<br />
reported educational outcomes, ANOVA results provided in Table 5 indicate<br />
that only a few student characteristics make a significant difference. The only<br />
one that appears to matter is full-time student status. Full-time students have a<br />
higher mean educational effectiveness index score than part-time graduate<br />
students do. On the other hand, there are no significant differences in<br />
educational effectiveness index scores that are based on student gender, race,<br />
past volunteer experience, past service-learning experience, and past work<br />
experience. (See Table 5.)<br />
Table 6 reports the regression analysis of factors influencing the<br />
effectiveness of service learning with respect to achieving educational goals.<br />
Overall, the model explains 56 percent of the variance in the educational<br />
effectiveness index scores of students. Two aspects of project structure have a<br />
significant impact on service learning and its effectiveness at achieving<br />
educational goals: (a) integrating the service-learning project with class<br />
material, and (b) whether the activities took place in a group setting. A oneunit<br />
increase in integration leads to a 4.283-point increase in the educational<br />
effectiveness index, significant at the 0.01 level. This represents approximately<br />
17 percent of the range of values in the index.<br />
Journal of Public Affairs Education 435
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Table 4.<br />
ANOVA Analysis of Project Stucture Variables and Effectiveness Score<br />
Project Structure Variables Educational Effectiveness Index Score<br />
Instructor Guidance on this Project<br />
436 Journal of Public Affairs Education<br />
Mean Std. Dev.<br />
Number of<br />
Observations<br />
A little guidance 14.11 4.04 9<br />
Some guidance 18.96 3.13 26<br />
A great deal of guidance 20.9 4.61 42<br />
Integration of Project With Course Material<br />
Not at all integrated 12 4.4 7<br />
Somewhat integrated 18.08 3.55 39<br />
Very well integrated 23 2.36 30<br />
In-Class Reflection Time<br />
A little time 16.2 5.33 15<br />
Some time 19.11 4.05 38<br />
A great deal of time 22.17 3.42 23<br />
Hours Per Week Spent Working on the Project Outside of Class<br />
Less than 2 hours 18.5 5 4<br />
2-5 hours 18.5 4.25 30<br />
More than 5 hours 20.02 4.77 41<br />
Student Influence Over Project<br />
A little influence 14.29 5.38 7<br />
Some influence 19 4.3 30<br />
A great deal of influence 20.7 4.03 40<br />
Contact Between Students and Service Beneficiaries<br />
A little contact 19.10 4.50 42<br />
Some contact 18.14 4.76 22<br />
A great deal of contact 22.85 2.82 13<br />
Project Involved Group Activities<br />
No 20.75 4.26 24<br />
Yes 18.87 4.65 53<br />
Extent To Which Group Members Work As a Team<br />
Not at all like a team 14 7.7 4<br />
Somewhat like a team 17.93 3.85 14<br />
Very much like a team 19.97 4.34 35<br />
Required Class<br />
No 19.76 4.65 21<br />
Yes 19.34 4.6 56<br />
Significance<br />
(Prob>F)<br />
***
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Table 5.<br />
ANOVA Analysis of Student Characteristics Variables and Effectiveness Score<br />
Student Characteristics<br />
As % of<br />
Total Number<br />
of Students<br />
Educational<br />
Effectiveness<br />
Index Score<br />
Gender<br />
Male 28% 20.85<br />
Female<br />
Race<br />
72% 19.18<br />
White 80% 19.58<br />
Non-white<br />
Involvement in Volunteer Activities<br />
20% 19.73<br />
Not at all involved 19% 19<br />
Somewhat involved 51% 19.03<br />
Very involved 30% 20.27<br />
Number of Prior Service-Learning Projects (Participated In)<br />
None 39% 18.48<br />
1-3 projects 31% 20.4<br />
More than 3 projects<br />
Public/Nonprofit Work Experience<br />
30% 19.65<br />
None 36% 19.63<br />
3 years or less 31% 21.09<br />
4 years or more<br />
Full-Time Graduate Student Status<br />
33% 18.64<br />
No 35% 18.04<br />
Yes<br />
***
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Table 6.<br />
Factors Influencing Educational Effectiveness of Service Learning (Regression)<br />
Independent Variables Coefficient Std. Err. P>|t|<br />
Project Structure<br />
Instructor Guidance 0.912 0.656 0.169<br />
Integration with Class Material 4.283 0.805 0.000***<br />
Students’ Influence 0.480 0.632 0.450<br />
Reflection 0.341 0.679 0.617<br />
Contact with Service Beneficiaries -1.167 0.930 0.214<br />
Group Work (1=Yes) -2.439 1.442 0.095*<br />
Student Characteristics<br />
Full Time Students (1=Yes) 1.391 0.805 0.088*<br />
Constant 8.217 2.618 0.003<br />
Number of Obs. 75<br />
Prob>F 0.000<br />
R-squared 0.561<br />
Adjusted R-squared 0.515<br />
***
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
skills than a traditional class would. Some crucial skills for conducting servicelearning<br />
projects — such as interpersonal skills — may not even be related to<br />
the course subjects.<br />
When designing service-learning projects, instructors also should weigh the<br />
tradeoffs involved with having students work together. Due to their size and<br />
scope, service-learning projects often require students to work in groups, which<br />
makes the workload manageable. However, our findings indicate that students<br />
who worked in groups gave their service-learning project a lower educational<br />
effectiveness rating than the students who did not participate in group activities<br />
did. Among the students who worked in groups, we find significant differences<br />
in student educational effectiveness ratings depending on how well students<br />
believed their group acted like a team. This highlights the importance of group<br />
dynamics in service learning, and suggests that, for service-learning projects that<br />
rely heavily on group work, instructors should carefully consider group<br />
composition and monitor group cohesion.<br />
Another critical consideration for instructors is the students’ capacity to<br />
perform the service-learning project. Service-learning projects can be very laborand<br />
time-intensive. Part-time students may not be able to devote enough time<br />
to gain the full academic benefits of the service-learning approach. Service<br />
learning may be a more effective pedagogical tool for some graduate MPA<br />
programs than it is for others. MPA programs that primarily serve part-time<br />
students should consider whether the emphasis placed on service learning in<br />
their curricula is realistic, given their student populations.<br />
Aside from status as a full-time graduate student, our ANOVA and<br />
multivariate analyses indicate that most student characteristics do not impact<br />
the educational outcomes of service learning. However, this finding may be<br />
unique to MPA programs. Many MPA students are strongly committed to<br />
public service, and generally may be more receptive to service learning than<br />
other types of graduate students. Further research should explore whether the<br />
impact of student characteristics on the educational outcomes of service learning<br />
matters more for different types of graduate programs.<br />
Reflection is the one factor that has considerable empirical research to show<br />
its positive impact on the educational outcomes of service learning. While there<br />
are significant differences in the educational effectiveness index scores of<br />
students based on their amount of in-class reflection time, we find that other<br />
factors are more important for determining the educational effectiveness of<br />
service-learning projects. One possible explanation for this is that our analysis<br />
only focuses on in-class reflection time. Perhaps if we had included measures of<br />
both in-class and out-of-class reflection time, we would have found that it had a<br />
more significant impact on the educational outcomes of service learning.<br />
Another reason for our findings may be because some of the studies that<br />
emphasize the importance of reflection do not consider the impact of project<br />
Journal of Public Affairs Education 439
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
integration. Moreover, none of the studies that focus on reflection examine the<br />
impact of group dynamics or full-time student status on the educational<br />
outcomes of service learning. In addition, the vast majority of research on<br />
factors that influence the educational outcomes of service learning has focused<br />
on undergraduates. The focus and content of service-learning projects<br />
performed by graduate students may be fundamentally different than of those<br />
performed by undergraduates. As a result, the factors that influence the<br />
educational impact of service learning for graduate students may be different<br />
than those that influence its impact on undergraduates.<br />
CONCLUSION<br />
The 2009 standards for the <strong>National</strong> Association of Schools of Public Affairs<br />
and Administration (NASPAA) stress that “our public service degrees give<br />
graduates the competitive skills they need to lead the public sector” (NASPAA,<br />
2009, Mission Statement). As one of the many strategies aimed at achieving this<br />
goal, service learning brings the community into the classroom, and provides<br />
students an opportunity to grapple with real-life problems. Our preliminary<br />
findings indicate that the key factors of influence on the effectiveness of a<br />
service learning project in achieving its learning objectives are (a) the extent to<br />
which the project is integrated with class materials, (b) whether or not students<br />
work in groups, and (c) whether or not participating students are full-time.<br />
Given the limited literature on service learning in the field of public affairs,<br />
we believe that more research is needed on this topic. In particular, our research<br />
suggests it would be helpful to know more about how to structure successful<br />
groups, and how to determine which strategies are the most effective for<br />
integrating service learning with class materials. Our research focused on servicelearning<br />
projects as seen from the perspective of students and instructors.<br />
However, community organizations also play a crucial role in these projects.<br />
Researchers should examine how community-university relationships impact<br />
service-learning outcomes, and explore how community organizations and<br />
universities can work together to facilitate the learning process. Ideally, future<br />
research will provide a more comprehensive understanding of the factors<br />
influencing the educational outcomes of service learning, particularly for<br />
graduate students.<br />
REFERENCES<br />
Anderson, D., & Harris, B. (2005). Teaching social welfare policy: A comparison of two pedagogical<br />
approaches. Journal of Social Work Education, 41, 511-526.<br />
Barron, B.J.S., Schwartz, D.L., Vye, N.J., Moore, A., Petrosino, A., Zech, L., Bransford, J.D., & The<br />
Cognition and Technology Group at Vanderbilt University. (1998). Doing with understanding:<br />
Lessons from research on problem- and project-based learning. The Journal of Learning Sciences, 7,<br />
271-311.<br />
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Batchelder, T., & Root, S. (1994). Effects of an undergraduate program to integrate academic learning<br />
and service: Cognitive, prosocial cognitive, and identity outcomes. Journal of Adolescence, 17, 341-<br />
355.<br />
Bringle, R., & Hatcher, J. (1996). Implementing service learning in higher education. Journal of<br />
Higher Education, 67, 221-239.<br />
Bushouse, B., & Morrison, S. (2001). Applying service learning in Master of Public Affairs programs.<br />
Journal of Public Affairs Education, 7, 9-17.<br />
Campbell, H., & Tatro, B. (1998). Teaching program evaluation to public administration students in a<br />
single course: An experiential solution. Journal of Public Affairs Education, 4, 101-122.<br />
Conrad, D., & Hedin, D. (1982). The impact of experiential education on adolescent development.<br />
Child & Youth Services, 4, 57-76.<br />
Denhardt, R. (1997). Foreword: Experiential education in public administration. Journal of Public<br />
Administration Education, 3, 149-151.<br />
Dicke, L., Dowden, S., & Torres, J. (2004). Successful service learning: A matter of ideology. Journal<br />
of Public Affairs Education, 10, 199-208.<br />
Druker, M., Stefanovic, D., & Cunningham, B. (1996). Student teams studying organizations:<br />
Connecting the classroom through field experience. Journal of Public Administration Education, 2,<br />
131-142.<br />
Eyler, J. (2000). What do we most need to know about the impact of service-learning on student<br />
learning? Michigan Journal of Community Service Learning, Special Issue (Service Learning Research),<br />
11-17.<br />
Eyler, J., & Giles, G.E., Jr. (1999). Where’s the learning in service-learning? San Francisco: Jossey-Bass<br />
Publishers.<br />
Fredericksen, P. (2000). Does service learning make a difference in student performance? Journal of<br />
Experiential Education, 23, 64-74.<br />
Gallini, S., & Moely, B. (2003). Service learning and engagement, academic challenge, and retention.<br />
Michigan Journal of Community Service Learning, 10, 5-14.<br />
Hatcher, J.A., Bringle, R.G., & Muthiah, R. (2004). Designing effective reflections: What matters to<br />
service learning? Michigan Journal of Community Service Learning, 11, 38-46.<br />
Hesser, G. (1995). Faculty assessment of student learning: Outcomes attributed to service-learning and<br />
evidence of changes in faculty attitudes about experiential education. Michigan Journal of<br />
Community Service Learning, 2, 33-42.<br />
Jelier, R., & Clarke, R. (1999). The community as a laboratory of study: Getting out of the ivory<br />
tower. Journal of Public Affairs Education, 5, 167-180.<br />
Kendrick, J. (1996). Outcomes of service-learning in an introduction to sociology course. Michigan<br />
Journal of Community Service Learning, 3, 72-81.<br />
Litke, R. (2002). Do all students “get it?:” Comparing students’ reflections to course performance.<br />
Michigan Journal of Community Service Learning, 8, 27-34.<br />
<strong>National</strong> Association of Schools of Public Affairs and Administration. (2009). Mission statement. In<br />
NASPAA standards 2009: Defining quality in public affairs education. Retrieved August 4, 2009,<br />
from http://www.naspaa.org/accreditation/standard2009/goal.asp<br />
Mabry, J.B. (1998). Pedagogical variations in service learning and student outcomes: How time,<br />
contact, and reflection matter. Michigan Journal of Community Service Learning, 5, 32-47.<br />
Markus, G., Howard, J., & King, D. (1993). Integrating community service and classroom instruction<br />
enhances learning: Results from an experiment. Educational Evaluation and Policy Analysis, 15,<br />
410-419.<br />
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Parker-Gwin, R., & Mabry, J.B. (1998). Service learning as pedagogy and civic education: Comparing<br />
outcomes for three models. Teaching Sociology, 26, 276-291.<br />
Reinke, S. (2003). Making a difference: Does service-learning promote civic engagement in MPA<br />
students? Journal of Public Affairs Education, 9, 129-138.<br />
Ropers-Huilman, B., Carwile, L., & Lima, M. (2005). Service learning in engineering: A valuable<br />
pedagogy for meeting learning objectives. European Journal of Engineering Education, 30, 155-165.<br />
Sax, L.J., & Astin, A.W. (1997). The benefits of service: Evidence from undergraduates. The<br />
Educational Record, 78, 25-32.<br />
Scales, P.C., Roehlkepartain, E.C., Neal, M., Kielsmeier, J.C., & Benson, P.L. (2006). Reducing<br />
academic achievement gaps: The role of community service and service learning. Journal of<br />
Experiential Education, 29, 38-60.<br />
Simons, L. & Cleary, B. (2006). The influence of service learning on students’ personal and social<br />
development. College Teaching, 54(4), 307-319.<br />
Strage, A. (2000). Service-learning: Enhancing student learning outcomes in a college-level lecture<br />
course. Michigan Journal of Community Service Learning, 7, 5-13.<br />
Warren, K. (1998). A call for race, gender, and class sensitive facilitation in outdoor experiential<br />
education. Journal of Experiential Education, 21, 21-25.<br />
Wells, M. (2006). Teaching notes: Making statistics “real” for social work students. Journal of Social<br />
Work Education, 42, 397-404.<br />
FOOTNOTES<br />
1<br />
In some courses, all students worked on the same service-learning project. In other courses, students<br />
worked on different projects.<br />
Kristina T. Lambright is an Assistant Professor of Public Administration at<br />
Binghamton University’s College of Community and Public Affairs. She teaches<br />
classes on research methods and evaluation. Her research interests include<br />
service learning, service delivery structure, contracting and privatization,<br />
organizational ownership, and networks. She recently has had articles published<br />
in the Journal of Public Administration Research and Theory, Journal of Policy<br />
Analysis and Management, American Review of Public Administration, Nonprofit<br />
and Voluntary Sector Quarterly, and in the Journal of Public Affairs Education. Email:<br />
klambrig@binghamton.edu.<br />
Yi Lu is an Associate Professor with the Department of Public Management at<br />
John Jay College of Criminal Justice-City University of New York. Her research<br />
interests are performance management and budgeting, shared services, and MPA<br />
education. Her studies have been accepted for publication in such journals as<br />
Public Budgeting and Finance, Public Performance and Management Review, the<br />
Journal of Public Budgeting, Accounting and Financial Management, and the<br />
Municipal Finance Journal. She can be reached at ylu@jjay.cuny.edu.<br />
442 Journal of Public Affairs Education
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
Appendix<br />
Student Survey<br />
Course Number and Name: ________________________________________<br />
Section Number: __________________________________________________<br />
1) Describe the service-learning project for this course in two to three sentences.<br />
2) On a scale of 1 to 5, please rate how helpful the service-learning project in this course<br />
was at achieving the following goals:<br />
1 = Project was not helpful 5 = Project was extremely helpful<br />
Mastering material covered in this course 1 2 3 4 5<br />
Tying together concepts covered in this course 1 2 3 4 5<br />
Applying concepts covered in this course to real situations 1 2 3 4 5<br />
Developing a deeper understanding of material covered<br />
in this course<br />
Developing a deeper understanding of material outside<br />
of this course that is relevant in your graduate program<br />
Developing a better understanding of the role of<br />
public/nonprofit administrators<br />
Increasing my enthusiasm for a career in public/nonprofit<br />
administration<br />
1 2 3 4 5<br />
1 2 3 4 5<br />
1 2 3 4 5<br />
1 2 3 4 5<br />
Learning to work more effectively with people 1 2 3 4 5<br />
Improving my problem-solving skills 1 2 3 4 5<br />
Improving my oral communication skills 1 2 3 4 5<br />
Improving my written communication skills 1 2 3 4 5<br />
Developing my leadership skills 1 2 3 4 5<br />
Feeling more connected to my community 1 2 3 4 5<br />
Developing a deeper understanding of the complex<br />
problems facing my community<br />
1 2 3 4 5<br />
Becoming more involved in volunteer activities 1 2 3 4 5<br />
3) How could this service-learning project be improved?<br />
4) How much guidance did the instructor provide on this project?<br />
• A little guidance<br />
• Some guidance<br />
• A great deal of guidance<br />
5) How integrated was this project into the material covered in this course?<br />
• Not at all integrated<br />
• Somewhat integrated<br />
• Very well integrated<br />
6) How much time in class was spent discussing this project?<br />
• A little time<br />
• Some time<br />
• A great deal of time<br />
Journal of Public Affairs Education 443
What Impacts the Learning in Service Learning?<br />
An Examination of Project Structure and Student Characteristics<br />
7) On average, how many hours per week did you spend working on this project outside<br />
of class?<br />
• Less than 2<br />
• 2–5<br />
• More than 5<br />
8) How much influence did you have over how this project progressed?<br />
• A little influence<br />
• Some influence<br />
• A great deal of influence<br />
9) Are you currently participating in a major service-learning project for another class you<br />
are taking this semester?<br />
Yes No<br />
10) If you answered Yes to Question 9, how much has the work you have done on the<br />
service-learning project in this class helped you with the service-learning project for the<br />
other class?<br />
• Not at all<br />
• Somewhat<br />
• A great deal<br />
Only answer questions 11 and 12 if you participated in group activities as part of the service<br />
learning project for this course.<br />
11) How many members were in your group? ______<br />
12) How well did you group work as a team?<br />
• Not at all like a team<br />
• Somewhat like a team<br />
• Very much like a team<br />
BACKGROUND INFORMATION<br />
13) Gender: Male Female<br />
14) Age: 21-29 30-39 40-49 50 or older<br />
15) Race/Ethnicity _________________<br />
16) Are you a domestic or international student?<br />
• Domestic<br />
• International<br />
17) What was your undergraduate major? ___________________<br />
18) What is your graduate student status? Full-time Part-time<br />
19) How many years of public and/or non-profit administration paid work experience do<br />
you have?<br />
• None<br />
• 3 years or less<br />
• 4-5 years<br />
• More than 5 years<br />
20) Prior to this semester, how involved were you in volunteer activities?<br />
• Not at all involved<br />
• Somewhat involved<br />
• Very involved<br />
21) Prior to this semester, how many major service-learning projects did you participate in as<br />
an undergraduate and/or graduate school student?<br />
0 1 2 3 More than 3<br />
444 Journal of Public Affairs Education
The Value of Capstone Projects to Participating Client Agencies<br />
The Value of Capstone Projects<br />
to Participating Client Agencies<br />
David R. Schachter<br />
New York University<br />
Deena Schwartz<br />
New York University<br />
ABSTRACT<br />
Many schools have experiential learning projects, often termed “capstones,” where<br />
students combine theory and practice for the benefit of an outside agency. New<br />
York University’s Robert F. Wagner Graduate School of Public Service (NYU<br />
Wagner) has devoted a great deal of thought and effort to strengthening and<br />
sustaining its Capstone program from the students’ perspective, and it has seen<br />
significant improvement. But we knew less about whether the project work our<br />
students performed was helpful to participating Capstone client organizations, as<br />
well as what factors made certain projects more successful from the clients’ point<br />
of view. In an effort to assess and understand this perspective, we undertook a<br />
post-project survey of recent Capstone clients. The results indicate very strongly<br />
that the services offered and tools created by our Capstone teams are useful to<br />
these outside agencies, and the feedback offers indications of how to increase the<br />
value of these projects going forward.<br />
THE VALUE <strong>OF</strong> CAPSTONE PROJECTS TO PARTICIPATING CLIENT AGENCIES<br />
Many <strong>National</strong> Association of Schools of Public Affairs and Administration<br />
(NASPAA) and Association for Public Policy Analysis and Management<br />
(APPAM) schools — such as those at Carnegie Mellon University’s Heinz<br />
School, Columbia University’s School of International and Public Affairs,<br />
George Washington University’s Trachtenberg School, New York University’s<br />
Robert F. Wagner Graduate School of Public Service, Princeton University’s<br />
Woodrow Wilson School, Syracuse University’s Maxwell School, and Texas<br />
A&M’s Bush School — build experiential learning opportunities into their<br />
curriculum through capstone programs, where students work on projects for<br />
JPAE 15(4): 445–461 Journal of Public Affairs Education 445
The Value of Capstone Projects to Participating Client Agencies<br />
governmental or nonprofit agencies. The format of these projects varies from<br />
four-week, intensive workshops to year-long courses, but a common theme is<br />
their emphasis on the opportunity for students to complete work in a “realworld”<br />
environment.<br />
The benefit of experiential learning opportunities to graduate students in<br />
public administration and public policy programs has been the focus of much<br />
research. Whitaker and Berner (2004) discuss the value of Master of Public<br />
Administration (MPA) public service team projects for helping students develop<br />
research and management skills. Bernstein, Ohren and Shue (2003) cite greater<br />
civic engagement as one benefit of the service-learning program at Eastern<br />
Michigan University, and conclude that the benefits of service learning outweigh<br />
the costs. Smith (2005) notes that in addition to providing NYU Wagner<br />
students with the opportunity to integrate the knowledge, understanding, and<br />
skills they’ve developed at school, Capstone students also “experience the value<br />
of professional networks and get an early introduction to many value conflicts<br />
and ethical dilemmas similar to those they will face in their careers” (Smith,<br />
2005, p.195). Many other articles emphasize the general value of enabling<br />
students to bridge theory and practice through work with the wider community<br />
(Jelier & Clarke, 1999; Allard & Straussman, 2003; Denhardt, Lewis, Raffel, &<br />
Rich, 1997; Cohen, Eimicke, & Ukeles, 1995).<br />
Most research on experiential learning programs focuses on their benefits to<br />
students, not to the client organizations. Yet, implicit in the development of<br />
these programs is the assumption that students are providing a valuable public<br />
service. Input from organizations that participate in such programs supports<br />
this assumption. For example, the Congressional Research Service (CRS), a<br />
frequent client of capstone projects, states that their “involvement in such<br />
programs can benefit the students, the school, the Congress, and CRS in<br />
multiple ways” (CRS, 2007, p.5). The client comments included in Whitaker<br />
and Berner’s (2004) article, as well as Bernstein et al.’s (2003) discussion of the<br />
benefits to the City of Ypsilanti, offer more evidence for the use of such<br />
projects to the client organization.<br />
And, NASPAA has deemed the public service component of experiential<br />
learning programs as important, too. NASPAA’s Data Task Force (McFarland,<br />
2007) — whose charge is to identify “appropriate, relevant and verifiable<br />
measures of the educational quality and characteristics of public affairs<br />
programs” and to “counter the federal government’s pressure for public<br />
accountability with their own voluntary data efforts” (p.1) — has identified<br />
“discernable impacts on community well-being and advancement” (p.3) as a<br />
desired data-collection effort.<br />
NYU Wagner sought to find out more formally and definitively if capstone<br />
projects indeed “address challenges and identify opportunities for a client<br />
organization” and “contribute not only to the students’ education, but also to the<br />
446 Journal of Public Affairs Education
The Value of Capstone Projects to Participating Client Agencies<br />
public good,” as written in the description of our Capstone program (NYU<br />
Wagner, n.d., overview). We also wanted to identify any consensus about which<br />
projects were most and least beneficial to our client organizations, and examine<br />
whether certain project characteristics were associated with better outcomes for<br />
our clients. And, finally, we thought that the size of our program might give us<br />
perspective that would be useful not only to us, but to our peer schools as well, as<br />
we evaluate and strengthen this type of experiential learning academic program.<br />
We did so via a survey of recent Capstone clients, inquiring as to the long-term<br />
usefulness the work done by our students may have had to their agencies.<br />
PROGRAM BACKGROUND<br />
NYU Wagner’s Capstone program was started in 1995. Since then, more than<br />
2,600 students have participated in more than 500 projects for approximately<br />
400 organizations. Our Capstone program is the final event for all MPA and<br />
Master of Urban Planning (MUP) candidates. Covering an academic year (two<br />
full semesters), students enroll in a Capstone section, based on a combination of<br />
their academic programs (either Public and Nonprofit Management and Policy,<br />
Health, or Urban Planning) and their specializations (Management, Policy,<br />
Finance, or International). Each Capstone section consists of a class that is<br />
scheduled to meet once a week with a faculty member, as well as a team-based<br />
project that addresses a real concern for a local, national, or international<br />
government or nonprofit agency. Client-based projects are solicited through an<br />
open RFP process that begins in the month of March, prior to the academic<br />
year that the project work will take place. Faculty and students also can suggest<br />
potential Capstone clients. Prospective clients receive e-mail messages and<br />
postcards announcing that the school is accepting proposals, and are referred to<br />
a Web site that outlines proposal guidelines as well as the program’s major<br />
components (www.wagner.nyu.edu/capstone). This Web site includes<br />
application and selection procedures, the suggested engagement fee structure,<br />
information on previous projects, and tips as to common themes among the<br />
best Capstone proposals — that they be important but not urgent; achievable<br />
within the academic timeframe and with the resources available; and provide a<br />
reasonably clear definition of the problem or issue to be addressed. All selected<br />
Capstone clients are invited to attend a group meeting in the beginning of the<br />
academic year. At this meeting, they explore ways to maximize the quality and<br />
effectiveness of their Capstone project by engaging with Capstone<br />
administration and faculty, as well as previous Capstone clients and former<br />
Capstone students. A memo summarizing the discussion of helpful tips is emailed<br />
to all clients, whether or not they attend this event.<br />
Capstone clients are asked, but not required, to complete an evaluation of the<br />
team’s work toward the end of the project cycle in April, in order to assess team<br />
performance and the quality of the product to date. All Capstone teams submit<br />
Journal of Public Affairs Education 447
The Value of Capstone Projects to Participating Client Agencies<br />
a final written report to the Capstone client, and many also present their<br />
findings and recommendations in person.<br />
Three-hundred-four students participated in NYU Wagner’s Capstone<br />
program during the 2006-2007 academic year. The vast majority of students<br />
participated in client-based Capstone projects (278, or 91 percent, in the 2006-<br />
2007 academic year), while a much smaller number elected to conduct a teambased<br />
research project without a client organization (26 students in the 2006-<br />
2007 academic year). Capstone was taught by 20 faculty members in<br />
2006-2007, and 62 projects were conducted throughout the year (57 clientbased<br />
projects and five research-based projects). In the 2006-2007 academic<br />
year, NYU Wagner received 129 project proposals from prospective clients, of<br />
which 57, or 44 percent, were selected.<br />
METHODOLOGY<br />
In November 2007, approximately six months after the students completed<br />
their work with the Capstone program, we surveyed all 57 clients from the<br />
2006-2007 academic year. 1 A request to fill out an on-line survey (see<br />
Appendix A) was sent to the client project liaisons who worked with Capstone<br />
teams, and an accompanying e-mail was sent to explain the purpose of the<br />
survey. (See Appendix B.)<br />
After two rounds of reminders and direct contacts, 42 out of 55 client<br />
agencies responded, with a total survey response rate of 74 percent. Two<br />
agencies had multiple responses; for the purposes of this analysis, their<br />
quantitative responses were averaged and counted as one response.<br />
The survey required respondents to give their name, indicate their own role<br />
in relation to the Capstone project (e.g., wrote the original project proposal,<br />
served as the primary liaison to the NYU Wagner Capstone team, worked with<br />
the team during the project year, etc.), and also the content of the project (e.g.,<br />
conducting organizational assessments, evaluating programs, reviewing or<br />
examining financial viability of projects or endeavors, conducting<br />
neighborhood or community assessments, assisting with strategic planning,<br />
evaluating client satisfaction, etc.).<br />
The survey also had respondents indicate whether the Capstone team had<br />
provided the client with specific tools or resources, and separately asked whether<br />
the team had made specific recommendations as part of the project. Additional<br />
questions addressed whether the client organization was using those tools and/or<br />
resources or following the teams’ recommendations, and how useful the<br />
organization had found the tools and resources or recommendations to be.<br />
The primary variables of interest were survey questions that asked whether<br />
Capstone had been helpful to the organization, whether the Capstone project<br />
had a lasting impact on the organization, and the respondents’ overall<br />
satisfaction with the Capstone team. These items were assessed using a 5-point<br />
448 Journal of Public Affairs Education
The Value of Capstone Projects to Participating Client Agencies<br />
Likert scale, with the top rating of 5 indicating the most positive assessment, 3<br />
representing neutral or somewhat helpful appraisals, and the lowest rating of 1<br />
representing the most negative assessment. 2<br />
In addition to numerical responses, the survey gave participants the<br />
opportunity to add comments, and asked participants several open-ended<br />
questions regarding the lasting impact of the Capstone project, overall<br />
satisfaction with the program, and suggestions for further improvement.<br />
FINDINGS<br />
Overall Satisfaction and Lasting Impact<br />
Participants indicated high overall satisfaction with the Capstone program,<br />
with a mean rating of 4.2 (N = 41; all rating scales up to 5.0), and rated the<br />
helpfulness of the Capstone project to their organizations with a mean rating of<br />
3.9 (N = 42). Clients commented that the work gave them a reference point<br />
from an outside perspective that was helpful, and that provided an understanding<br />
of “best practices” that enabled the client to feel, as one described, “secure in the<br />
knowledge we are on the right path.” Another client said “having another<br />
organization be involved with the project has helped with the advancement of<br />
the project.” Yet another client elaborated further, by saying:<br />
The Capstone evaluation [of our work] is the first objective, outside<br />
evaluation of the model and, as such, of key importance in providing a<br />
measure of “reality check.” We are very reassured by the fact that the<br />
model appears to be objectively feasible and desirable. Most of the<br />
recommendations provided by the Capstone team corresponded with<br />
what we already suspected we need. This is very helpful and reassuring<br />
as it affirms that we are on the right track.<br />
Many projects provided a needed foundation of knowledge or an approach<br />
for the client, as illustrated by one saying “we are changing practices to follow<br />
recommendations,” and by another client who was appreciative that the work<br />
“provided the foundation for our Center’s projected operating budget.” Another<br />
satisfied client reported that the Capstone project had a “positive impact on our<br />
strategic planning and a positive impact on our donor messaging.”<br />
Though less strong in their opinions, clients also indicated that they believed<br />
the Capstone project would have a lasting impact, with a mean rating of 3.5 (N<br />
= 35), as indicated by this response:<br />
I think we will continue to draw on the recommendations for some<br />
time to come — both for our planning and our fundraising.<br />
It is important to note that five respondents to the comments section indicated<br />
that the lasting impact may not be known for awhile, as exemplified by a<br />
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The Value of Capstone Projects to Participating Client Agencies<br />
respondent saying, “It’s too soon to determine whether the impact is lasting. In a<br />
few years, as other events unfold, we’ll be better able to reply to that question.”<br />
The three primary variables of interest (respondents’ ratings of the Capstone<br />
team project’s helpfulness to their organization, their assessment of the Capstone<br />
project’s lasting impact, and their overall satisfaction) all were significantly and<br />
positively correlated to one another.<br />
Client Satisfaction with Capstone Team’s Deliverables<br />
Initial desired deliverables are requested of all prospective clients by NYU<br />
Wagner as part of the client’s project proposal. Many proposals are dismissed<br />
during the vetting process, due to unrealistic or excessively far-reaching<br />
expectations of what is reasonable for a Capstone team to achieve. Once a<br />
project has been picked up by a student team, the team members meet with<br />
the client liaison to scope out the project and develop a project work plan.<br />
There usually are interim deliverables expected throughout the two semesters<br />
of Capstone, with the final product presented to the client agency at the end of<br />
the second semester.<br />
Fifty percent of respondents said the Capstone team had developed or<br />
acquired specific tools or resources for the organization, such as evaluation tools,<br />
survey instruments, policy and procedure manuals, comprehensive community<br />
assessments, resource lists, logic models, databases, and reports on the analysis of<br />
large datasets. Eighty-three percent of respondents reported that the Capstone<br />
team made specific recommendations for the organization, including<br />
recommending expansion or reduction of programs, client outreach plans,<br />
communications improvements, technical assistance, strengthening management<br />
structures, and further research. Seven percent reported that the team neither<br />
developed or acquired tools, nor made recommendations for the organization,<br />
and instead created case studies for the client agency.<br />
Tools and Resources as Deliverables<br />
Of those agencies whose projects included developing or acquiring tools or<br />
resources, 85 percent rated them at or above a 4.0 (the other 15 percent of<br />
respondents rated them at 3.0). Responses included the following three<br />
comments:<br />
• This compiled data and analysis performed by the team does not exist<br />
anywhere else. It is a unique asset.<br />
• The tools provided will probably be a better measure of our program<br />
impact. It has helped us create a rationale and a plan for more formal<br />
program evaluation.<br />
• We now have an updated manual which is critical for an organization<br />
our size.<br />
Independent sample t-tests indicated that those respondents for whom the<br />
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The Value of Capstone Projects to Participating Client Agencies<br />
Table 1.<br />
Mean Ratings of Primary Outcome Variables Based on Respondents’ Indication of<br />
Whether the Capstone Team Did or Did Not Develop or Acquire Tools or Resources<br />
Developed or<br />
Acquired Tools or<br />
Resources<br />
Note. N may not equal 42 due to items skipped by respondents.<br />
Did Not Develop or<br />
Acquire Tools or Resources<br />
n Mean n Mean t p-value<br />
Helpfullness 19 4.4 17 3.7 -2.93 0.006<br />
Lasting Impact 16 3.8 14 3.5 -0.78 0.44<br />
Overall Satisfaction 19 4.6 16 4.1 -2.09 0.04<br />
Capstone team created or acquired new tools or resources reported a significantly<br />
higher level of satisfaction and a significantly higher rating for helpfulness of the<br />
project, as well as a higher rating of lasting impact (though not statistically<br />
significant) than those for whom the project did not. (See Table 1.)<br />
Recommendations as Deliverables<br />
Of those for whom the Capstone team made recommendations, 71 percent<br />
reported that the agency followed the recommendations at least somewhat, and<br />
74 percent of these clients rated the recommendations at 4.0 or higher. Some<br />
responses were as follows:<br />
• Policy recommendations were sensible and were well-connected to the<br />
research and analysis.<br />
• The recommendations were sensible and in line with existing mission<br />
and intentions for growth.<br />
• The recommendations reflected thoughtful analysis of the data and who<br />
we are as an organization.<br />
However, 37 percent of respondents noted that they did not find the<br />
recommendations particularly helpful, with the majority of these responders<br />
claiming that if they followed the recommendations fully, it would have<br />
required them to provide additional resources or funding that they did not have.<br />
Six percent stated that they don’t think the recommendations would be helpful<br />
at all, or that they were, as one person noted, “not appropriate in our<br />
judgment.” There were no significant differences in satisfaction, impact, or<br />
helpfulness between those projects where the team made recommendations and<br />
those where they did not.<br />
Content of the Project<br />
Capstone projects can take a wide variety of approaches to assisting client<br />
agencies. The survey asked respondents to identify the nature of the project<br />
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The Value of Capstone Projects to Participating Client Agencies<br />
Table 2.<br />
Mean Ratings of Primary Outcome Variables Based on Respondents’<br />
Indication of Whether the Capstone Team’s Project Did or Did Not<br />
Encompass an Organizational Assessment.<br />
Encompassed<br />
Organizational<br />
Assessment<br />
(e.g., conducting organizational assessments, evaluating programs, reviewing or<br />
examining financial viability of projects or endeavors, conducting neighborhood<br />
or community assessments, assisting with strategic planning, evaluating client<br />
satisfaction, etc.) with the ability to choose all that apply.<br />
Clients whose projects encompassed organizational assessments reported<br />
significantly higher scores for lasting impact, helpfulness and overall satisfaction.<br />
(See Table 2.)<br />
There was a modest but significant positive correlation between the number<br />
of different types of work the projects encompassed (M = 4.2, N = 36) — for<br />
example, the work the Capstone team conducted combined organizational<br />
assessments, conducting external policy analysis, gathering and/or synthesizing<br />
empirical data, and assisting with strategic planning — and the clients’ overall<br />
satisfaction with the Capstone experience (M = 4.4, N = 35), at a 5 percent<br />
confidence level. However, there was no significant correlation between number<br />
of different types of work the project encompassed and respondents’ ratings of<br />
the lasting impact or helpfulness of the project.<br />
Client Suggestions<br />
Clients were asked in the survey for any suggestions about improving the<br />
Capstone program. We received 25 responses to this open-ended question (60<br />
percent of respondents); five respondents wrote that they did not have any<br />
suggestions at all, and six replied by saying that their experience was a positive<br />
one and had no suggestions for enhancement, as shown by the following:<br />
• If all Wagner teams were to be as flexible and resourceful as ours, every<br />
project would be a success.<br />
• We found the program to be very well conceived and organized and we<br />
appreciated the opportunity to take part.<br />
452 Journal of Public Affairs Education<br />
Did Not Encompass<br />
Organizational Assessment<br />
n Mean n Mean t p-value<br />
Helpfullness 18 4.4 18 3.8 -2.4 0.021<br />
Lasting Impact 16 4.1 14 3.2 -2.3 0.031<br />
Overall Satisfaction 18 4.8 17 3.9 -3.4 0.002<br />
Note. N may not equal 42 due to items skipped by respondents.
The Value of Capstone Projects to Participating Client Agencies<br />
Fourteen respondents provided suggestions for enhancement, ranging from<br />
“it would be great if they could actually be on-site more — like a placement”<br />
to difficulties with travel expense reimbursement procedures. A few<br />
suggestions focused on how the client is prepared for the experience and<br />
introduced to the students:<br />
I think that a first “generic” step would be to work with the client to<br />
think through what would be the optimal resource/staff commitment<br />
from the organization. I think this could be part of a general orientation<br />
to new clients. In hindsight, I wish I would have been more proactive in<br />
getting some other staff and board members involved in the project<br />
early on. Obviously, that is my responsibility, but I think some very<br />
specific discussion/training at the beginning of the process would have<br />
helped me think more about this.<br />
Perhaps it would be nice to ask soliciting organizations to come to class<br />
to make preliminary pitches about project purpose.<br />
Additional enhancement suggestions focused on clarifying expectations, better<br />
communication, and clear project scoping once the project was selected:<br />
• There needs to be a commitment to stick with the agreed-upon scope.<br />
If the team is unable to deliver, then that should be made clear in<br />
advance of concluding the study.<br />
• Our one issue was that our project was too broad in scope. While we<br />
designed the project, perhaps a little feedback on it would have helped<br />
us narrow it a bit.<br />
• In retrospect, it would have been good to have pressed the team on the<br />
initial goal [of the project].<br />
Other Comments<br />
The final question of the survey asked for any other comments that the<br />
client would like to share. Many responses focused on the student teams,<br />
calling them “interested and engaged,” “excellent,” “dedicated, attentive,<br />
competent, and sensitive to the uniqueness of the organization and its<br />
programs,” “extremely professional,” and “five enthusiastic and intelligent<br />
team members who were a pleasure to work with.” One client encompassed<br />
several of the comments by saying:<br />
We had a great team: very professional, well-organized and flexible.<br />
Also, they conveyed a respect for our organization which was<br />
appreciated and also helped us approach the work enthusiastically and<br />
made us open to the recommendations forwarded. Smart group who I<br />
bet have since gone on to great things.<br />
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The Value of Capstone Projects to Participating Client Agencies<br />
Some clients referred to elements of the experience that were problematic.<br />
One client said “The effort was fair. Not enough fieldwork was done and was a<br />
shortcoming in the final analysis,” and another acknowledged that “the faculty<br />
member in charge of the team disappeared during the term of their engagement.<br />
Though I’m sure this is very unusual, it appeared to be disruptive and the group<br />
was not as focused as it perhaps could have been.”<br />
Additional comments emphasized the positive experience they had through<br />
Capstone, with clients saying “I enjoyed the experience,” “thanks for allowing us<br />
the chance to participate,” “it is a great program!!” and “I enjoyed the project<br />
from soup to nuts.” One client summed it up by saying:<br />
Please keep it up. It’s such a great service to the nonprofit community<br />
and a great learning opportunity for the students. A win-win<br />
arrangement.<br />
DISCUSSION<br />
Overall, our clients reported that participation in NYU Wagner’s Capstone<br />
program was very helpful to their organizations, and that the Capstone projects<br />
have had a lasting impact on them. Our study shows some trends worth noting,<br />
as well as some opportunities to continue enhancing this kind of program<br />
experience, not only for NYU Wagner, but also for our peer schools.<br />
Encourage Concrete Deliverables<br />
Projects for which teams developed or acquired specific tools and resources<br />
had significantly higher ratings compared to those that did not. This implies<br />
that Capstone teams provide value to their clients with concrete deliverables.<br />
This finding should guide the outreach during the RFP and selection processes,<br />
so that prospective clients think about the kinds of projects that might engender<br />
usable resources. In addition, students and faculty can encourage and push for<br />
tangible results as part of their deliverables.<br />
Recommendations Should be Scaled to the Agency’s Reality<br />
Any recommendations made to clients need to take into account the unique<br />
realities of the participating agencies. When devising recommendations, students<br />
should be encouraged to look at the entire organizational system — its<br />
resources, culture, politics, opportunities, constraints — and not just their own<br />
discrete project. The ability to look at organizational challenges through a<br />
variety of lenses and perspectives only will enhance the likelihood of<br />
sophisticated problem solving. Incorporating a thorough and nuanced<br />
understanding of the complex environments in which their clients work should<br />
enhance the receptivity to the recommendations that students make. Student<br />
teams need not abandon their bold recommendations if they provide a tiered set<br />
of suggestions to the client that include:<br />
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The Value of Capstone Projects to Participating Client Agencies<br />
• a set of recommendations that provide relatively quick wins and easy<br />
enhancements for the agency;<br />
• a set of recommendations that require a bit more energy and resources<br />
but are do-able with the right amount of attention; and<br />
• a set that stretches the agency and might be viable in the long-term.<br />
Administrative Communication with Clients<br />
There is no reason to assume that Capstone client agencies will have had<br />
previous experience with graduate students, let alone with a process as complex<br />
as Capstone. While we have spent a lot of time and energy devising<br />
programmatic support to Capstone students and faculty, we could increase the<br />
level of communication between administration and clients throughout the<br />
year. While we encourage faculty to invite prospective clients into their<br />
classrooms to present their projects to students, not all faculty do so. We can<br />
encourage this even more, by explaining that its benefits are not only to the<br />
students in making their project choices, but that it also helps the clients — by<br />
forcing them to think about their projects in a way that puts this work into the<br />
context and process of an educational environment. And, while we invite all<br />
clients to attend an initial Capstone client meeting in October, not all of them<br />
attend. We can emphasize the value of attending this event, as it covers a lot of<br />
information that will be helpful for them as they think about their role in this<br />
partnership, and we can use on-line resources for liaisons who are unable to<br />
attend this event in person, so that they still can benefit from the discussion. In<br />
addition, checking on the projects’ interim deliverable status, monitoring how<br />
the process is going, and providing tips for successful engagement also can be<br />
integrated into the program design.<br />
Life Happens<br />
Life doesn’t always happen the way we want it to. And neither does Capstone.<br />
Data may not be readily available, the scope of a project may become unworkable,<br />
hidden agendas may arise that shift the nature and tone of the project, a key<br />
stakeholder may interrupt the progress of the work, or deeply considered<br />
recommendations may not be well-received. Dilemmas like these are to be<br />
expected. What the students choose to do with these challenges can influence not<br />
only their learning, but also their ability to deliver a viable end product to their<br />
client. We want to encourage our students to face these challenges among<br />
themselves and with the client, rather than avoid them. We want students to<br />
recognize that when these perplexing situations come along it doesn’t mean that<br />
they did something wrong, or that the client did something wrong, or that the<br />
administration did something wrong — because this aspect of the learning process<br />
is exactly what we anticipate, and we actually want our students to go through.<br />
The benefit of this trial-and-error effect happening in Capstone is that it is<br />
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The Value of Capstone Projects to Participating Client Agencies<br />
occurring in a relatively safe environment, where learning and reflection are<br />
purposefully built into the process. A key to managing this expected messiness is<br />
keeping the dialogue going. We need to teach our students to stay at the table, to<br />
manage the impasse, to be generous of spirit and exercise resiliency<br />
Messaging the Value of these Programs to Various Audiences<br />
Our survey research affirms for us that the work we’re doing is of benefit to<br />
the community, and that we can and should use this information when we<br />
report community impact data to a variety of stakeholders. We can use this<br />
information when we reach out to prospective clients, and can let them know<br />
with confidence that participating in this program will bring value to them. We<br />
can present this information to our student body, who may struggle with the<br />
concept of whether or not all the work they put into Capstone has an impact on<br />
their client agencies. We can thank our Capstone faculty members who provide<br />
the valuable oversight and guidance to our Capstone students, knowing that<br />
they are contributing not only to the development of our students but also to<br />
the many clients we serve each year. We can inform our university government<br />
and community affairs staff that we are having a positive impact on a broad<br />
swath of communities. And NASPAA can help schools like ours in devising<br />
strategies for this type of data collection by using this survey as a data template.<br />
CONCLUSION<br />
Past research has led us to draw strong conclusions about the positive impact<br />
that experiential learning and Capstone projects can have on the student<br />
experience. 3 The foregoing, however, has focused on the impact to an equally<br />
important, though less-examined, player in the Capstone experience — the<br />
client organization. Many of our Capstone clients found comfort, through the<br />
Capstone teams’ work, in knowing they were on the right track, and we, too,<br />
are reassured and energized by the findings of this evaluation.<br />
While case studies and problem sets remain as integral elements to the<br />
learning process, experiential learning opportunities (whether Capstone projects,<br />
projects tied to program evaluation courses, assessments connected to<br />
management classes, or other similar endeavors) supplement these important<br />
methods by coupling students with a real-life project for a real agency in real<br />
time, and by providing opportunities to test theories as well as to create theory<br />
from practice.<br />
Universities have a responsibility to give back to their communities in ways<br />
that enrich and deepen the relationship. Capstone programs provide a valuable<br />
way to do this. These findings give us more confidence that we are living up to<br />
New York University’s motto as “a private university in the public service.”<br />
Finding ways to measure, in a meaningful format, the impact that our types of<br />
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The Value of Capstone Projects to Participating Client Agencies<br />
schools are having on the community-at-large can be daunting. Sharing and<br />
recommending data-collection methods is a role that NASPAA has rightly<br />
committed itself to, and we believe that measuring the impact Capstone projects<br />
have on participating agencies will add positively to the discourse.<br />
REFERENCES<br />
Allard, S.W., & Straussman, J.D. (2003). Managing intensive student consulting capstone projects: the<br />
Maxwell School experience. Journal of Policy Analysis and Management, 22, 689-702.<br />
Bernstein, J.L., Ohren, J., & Shue, L. (2003). A collaborative-teaching approach to linking classes and<br />
community. Journal of Public Affairs Education, 9, 117-127.<br />
The Bush School of Government and Public Service. (n.d.) Masters of public service administration<br />
capstones. Retrieved January 30, 2008, from http://bush.tamu.edu/research/capstones/mpsa/<br />
Carnegie Mellon Heinz School. (n.d.) Systems synthesis — the Capstone project. Retrieved January<br />
30, 2008, from http://www.heinz.cmu.edu/current-students/capstone-projects/index.aspx<br />
Cohen, S., Eimicke, W., & Ukeles, J. (1995). Teaching the craft of policy and management analysis:<br />
The workshop sequence at Columbia University’s graduate program in public policy and<br />
administration. Journal of Policy Analysis and Management, 14, 606-626.<br />
Congressional Research Service. (2007). University capstone projects for academic year 2007-2008.<br />
Denhardt, R.B., Lewis, J.R., Raffel, J.R., & Rich, D. (1997). Integrating theory and practice in MPA<br />
education: The Delaware model. Journal of Public Affairs Education, 3, 153-162.<br />
Jelier, R.W., & Clarke, R.J. (1999). The community as a laboratory of study: Getting out of the ivory<br />
tower. Journal of Public Affairs Education, 5, 167-180.<br />
Maxwell School of Citizenship and Public Affairs at Syracuse University. (n.d.) Master of public<br />
administration: Master’s handbook and course guide. Retrieved January 30, 2008, from<br />
http://www.maxwell.syr.edu/pa/HANDBOOK%202007%20-%202008.pdf<br />
McFarland, L. (2007). NASPAA data task force: Report to the executive council. Retrieved March 19,<br />
2008, from http://naspaa.org/DataTaskforce/document/DataTaskForceReportOct07.pdf<br />
Robert F. Wagner Graduate School of Public Service at New York University. (n.d.) The Capstone<br />
program: Capstone overview. Retrieved January 30, 2008, from http://wagner.nyu.edu/capstone/<br />
The School of International and Public Affairs at Columbia University. (n.d.). Description of core<br />
courses. Retrieved January 30, 2008, from<br />
http://sipa.columbia.edu/academics/degree_programs/mpa/curriculum/core.html<br />
Smith, D.C. (2005). Practice, practice, practice: The clinical education of policy analysts at the<br />
NYU/Wagner School. In I. Geva-May (ed.), Thinking like a policy analyst: Policy analysis as a<br />
clinical profession. New York: Palgrave Macmillan, 187-211.<br />
The Trachtenberg School of Public Policy and Public Administration at The George Washington<br />
University. (n.d.) Master of public administration courses. Retrieved August 27, 2008, from<br />
http://www.gwu.edu/~tspppa/academics/MPA/MPA_courses.cfm<br />
Whitaker, G.P., & Berner, M. (2004). Learning through action: How MPA public service team<br />
projects help students learn research and management skills. Journal of Public Affairs Education, 4,<br />
279-294.<br />
The Woodrow Wilson School of Public and International Affairs at Princeton University. (n.d.) MPA<br />
curriculum — degree requirements. Retrieved January 30, 2008, from<br />
http://wws.princeton.edu/grad/mpa/curriculum/<br />
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FOOTNOTES<br />
1<br />
Of the 57 client-based Capstone projects completed during the 2006-2007 academic year, three<br />
clients had two separate Capstone projects that were selected by students. These projects involved<br />
different content and different client liaisons, and were overseen by different faculty members, so<br />
they were considered separate projects for this evaluation. One agency had two related projects<br />
with the same client liaison and same overseeing faculty member; these projects were considered as<br />
one for the purposes of this analysis.<br />
2<br />
Language used for Ratings of 5 included “very,” “fully,” and “extremely”; ratings of 3 used the words<br />
“somewhat,” “moderate,” and “some”; and ratings of 1 were characterized as “not at all,” “very<br />
poor,” and “no.”<br />
3<br />
See references: Smith, 2005; Whitaker & Berner, 2004; and Bernstein, Ohren, & Shue, 2003.<br />
David R. Schachter is the Assistant Dean for Student Affairs and Co-Director of<br />
the Capstone program at New York University’s Robert F. Wagner Graduate<br />
School of Public Service. He received the 2006 NACE/Chevron Outstanding<br />
Achievement Award for Innovative Programs in Career Services for his<br />
partnership with Action Without Borders/Idealist.org to create the Institute on<br />
Public Service Careers (IPSC), a program series designed to educate college<br />
career services professionals on how to increase the visibility and accessibility of<br />
public service careers to their students. He contributed chapters to The Idealist<br />
Guide to Nonprofit Careers and The Idealist Guide to Nonprofit Careers for Sector<br />
Switchers, and he teaches NYU Wagner’s Composing Your Career workshop. He<br />
received a Bachelor of Fine Arts degree from NYU's Tisch School of the Arts<br />
and a Master's Degree in Public Administration from NYU Wagner.<br />
Correspondence regarding this article should be addressed to David R.<br />
Schachter, Assistant Dean for Student Affairs, Robert F. Wagner Graduate<br />
School of Public Service, New York University, 295 Lafayette Street, New York,<br />
NY 10012. E-mail: david.schachter@nyu.edu.<br />
Deena Schwartz was the 2007-2008 NYU Wagner Capstone Project Assistant<br />
and earned her Master of Public Administration degree from NYU Wagner,<br />
specializing in public policy analysis. She currently is working in the Labor<br />
Market Initiatives department at Public/Private Ventures. Before coming to<br />
NYU Wagner, she worked at the Jewish Board of Family and Children’s<br />
Services, and the psychiatry department at the Mount Sinai School of Medicine<br />
on research regarding children exposed to traumatic events. She earned her<br />
Bachelor’s degree in Psychology from Connecticut College.<br />
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Appendix A.<br />
Online Survey<br />
1. Your Name: _________________________<br />
2. Name of Organization:_________________<br />
3. Title:_______________________________<br />
4. What was your role with the 2006-2007 NYU Wagner Capstone Project? Check all<br />
that apply:<br />
I wrote the original project proposal<br />
I served as the primary liaison to the NYU Wagner Capstone team<br />
I was not the primary liaison to the NYU Wagner Capstone team, but I worked with the<br />
team during the project year<br />
I have worked on the NYU Wagner Capstone team's project in the time since the project<br />
was completed<br />
Other (please specify) ___________________________________________________________<br />
5. Which of the following did the 2006-2007 NYU Wagner Capstone Project encompass?<br />
Check all that apply:<br />
Conducting organizational assessments<br />
Evaluating programs<br />
Addressing resource development needs<br />
Developing impact statements<br />
Conducting external policy analysis<br />
Gathering and/or synthesizing empirical data<br />
Reviewing or examining financial viability of projects or endeavors<br />
Designing and planning new initiatives<br />
Designing and planning program expansion<br />
Conducting neighborhood or community assessments<br />
Assisting with strategic planning<br />
Reviewing internal procedures<br />
Evaluating client satisfaction<br />
Other (please specify) ___________________________________________________________<br />
6. Did the 2006-2007 NYU Wagner Capstone team develop or acquire specific tools or<br />
resources (e.g. surveys, new protocols) for your organization to use?<br />
Yes No<br />
7. If yes, what tools did the 2006-2007 NYU Wagner Capstone team develop or acquire?<br />
8. How useful have you found the tools and resources developed by the 2006-2007 NYU<br />
Wagner Capstone team to be?<br />
Not at all useful Somewhat useful Very useful N/A<br />
9.<br />
Please explain: _________________________________________________________________<br />
If you haven't used these tools or resources, which, if any, of the following apply?<br />
We're planning to use them, but haven't yet<br />
Using these tools or resources would require additional resources or funding that we do<br />
not currently have available<br />
There are individuals within the organization who have concerns about using these<br />
tools or resources<br />
There are internal structures in place that create challenges in using these tools or<br />
resources<br />
We don't think the tools and resources will be useful<br />
N/A<br />
Other (please explain) __________________________________________________________<br />
10. Did the 2006-2007 NYU Wagner Capstone team make specific recommendations for<br />
your organization?<br />
Yes No<br />
11. If yes, what were some of the recommendations the team made?<br />
Journal of Public Affairs Education 459
The Value of Capstone Projects to Participating Client Agencies<br />
12. Were these recommendations appropriate and well reasoned?<br />
Not at all appropriate and well reasoned<br />
Somewhat appropriate and well reasoned<br />
Very appropriate and well reasoned<br />
N/A<br />
13. How were the recommendations received by other members of your organization?<br />
Very poorly received Moderate Very well received N/A<br />
14. Have you implemented the team's recommendations?<br />
Did not implement the recommendations at all<br />
Implemented the recommendations somewhat<br />
Implemented all the recommendations fully<br />
N/A<br />
15. If you have implemented the recommendations, have they been helpful?<br />
Not at all helpful Somewhat helpful Extremely helpful N/A<br />
16. If you haven't been able to follow the team's recommendations, which, if any, of the<br />
following apply?<br />
We're planning to follow the recommendations, but haven't yet<br />
Following through with these recommendations would require additional resources or<br />
funding that we do not currently have available<br />
There are individuals within the organization who have concerns about implementing<br />
these recommendations<br />
There are internal structures in place that create challenges in implementing these<br />
recommendations<br />
We don't think the recommendations will be helpful<br />
N/A<br />
Other (please explain)___________________________________________________________<br />
17. Please indicate your overall satisfaction with the recommendations made by the 2006-<br />
2007 NYU Wagner Capstone team.<br />
Not at all satisfied Somewhat satisfied Very satisfied N/A<br />
18. Did you use any other internal or hired resources (i.e. consultants) to follow up on or<br />
complement the work done by the 2006-2007 NYU Wagner Capstone team?<br />
Yes No Other<br />
If you answered yes or other, please explain:______________________________________<br />
19. Please indicate how helpful the 2006-2007 NYU Wagner Capstone team's project was to<br />
your organization.<br />
Not at all helpful Somewhat helpful Extremely helpful<br />
20. Has the 2006-2007 NYU Wagner Capstone project had a lasting impact on your<br />
organization?<br />
No lasting impact Some lasting impact<br />
Very significant lasting impact N/A<br />
21. In what ways (if any) has the 2006-2007 NYU Wagner Capstone project had a lasting<br />
impact on your organization? What have been the outcomes from this 2006-2007 NYU<br />
Wagner Capstone project?<br />
22. How satisfied are you overall with your experience with the 2006-2007 NYU Wagner<br />
Capstone team??<br />
Not at all satisfied Somewhat satisfied Extremely satisfied N/A<br />
23. Do you have any suggestions as for how to improve the 2006-2007 NYU Wagner<br />
Capstone program?<br />
24. Do you have any other comments regarding the 2006-2007 NYU Wagner Capstone<br />
program?<br />
460 Journal of Public Affairs Education
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Appendix B.<br />
Online Survey – Explanation Letter.<br />
Thank you for participating in the 2006-2007 NYU Wagner Capstone<br />
program.<br />
In addition to being a critical part of our graduate school students’ education,<br />
we envision Capstone as a university resource for the public good. We have<br />
received anecdotal evidence and feedback that hints to the benefit of the<br />
Capstone program to participating organizations, and in order to more formally<br />
measure any long-term impact the Capstone program has had on the greater<br />
community through our students’ projects with participating agencies, we are<br />
now embarking on a more comprehensive survey.<br />
Toward that end, we ask that you please answer a series of questions regarding<br />
your experience with last year’s Capstone program. We understand that many<br />
people in your organization may have worked with the NYU Wagner Capstone<br />
team or have worked on the project since the end of the team’s academic year, so<br />
please feel free to forward the link to this survey to any colleagues who are<br />
familiar with the project. We welcome responses from more than one individual<br />
at each organization.<br />
Journal of Public Affairs Education 461
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
Indirect Giving to Nonprofit Organizations:<br />
An Emerging Model of Student Philanthropy<br />
Julie Cencula Olberding<br />
Northern Kentucky University<br />
ABSTRACT<br />
Student philanthropy is an experiential learning approach that provides<br />
students with the opportunity to study social problems and nonprofit<br />
organizations, and then make decisions about investing funds in them. The<br />
limited literature on student philanthropy has focused on the original model,<br />
called “direct giving,” which provides students with funds to make small grants<br />
to nonprofit organizations. But the literature has not addressed an emerging<br />
model, called “indirect giving,” which partners a class with a corporation or<br />
foundation, and has students evaluate “real” grant proposals and make funding<br />
recommendations. This article examines the impact of an indirect-giving<br />
program on MPA students at Northern Kentucky University (NKU). A<br />
majority of students indicated that the program helped them to become more<br />
aware of social problems (64.8%) and nonprofit organizations (77.8%), learn<br />
the curriculum (75.7%), apply the course principles (75.7%), and gain<br />
academic skills or knowledge (62.1%). The article also discusses some “lessons<br />
learned” about the indirect-giving model of student philanthropy.<br />
INTRODUCTION<br />
Student philanthropy has been defined as an experiential learning approach<br />
that provides students with the opportunity to study social problems and<br />
nonprofit organizations, and then make collective decisions about investing<br />
funds in one or more nonprofits (Ahmed & Olberding, 2007/2008). To date,<br />
student philanthropy has been the subject of a very limited number of scholarly<br />
articles in public administration and nonprofit management outlets. The<br />
existing literature has focused on one approach to student philanthropy, which<br />
provides students in a class with funds in the range of $1,000 to $5,000.<br />
Participating students are responsible for researching community problems and<br />
nonprofit organizations, conducting a request for proposals (RFP) process, and<br />
deciding which proposals to fund or not to fund (Ahmed & Olberding,<br />
2007/2008; Irvin, 2005). This could be seen as the original model, because it<br />
seems to be the earliest means of directly engaging students in philanthropy and<br />
JPAE 15(4): 463–492 Journal of Public Affairs Education 463
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
it is still the means most commonly used. This model also has been called<br />
“direct giving,” because students have the responsibility of making decisions that<br />
directly impact the funding of nonprofit organizations (Northern Kentucky<br />
University [NKU], 2007).<br />
In addition to direct giving, there is at least one other model of student<br />
philanthropy that has emerged in the past two years or so. With this new<br />
approach, students evaluate grant proposals submitted by nonprofit organizations<br />
to a corporation or foundation in the “real world.” The students make<br />
recommendations to the corporation or foundation about which proposals to fund<br />
and which proposals not to fund, and the corporation or foundation makes the<br />
final funding decisions. Because students are not making the funding decisions<br />
themselves, this new model has been called “indirect giving” (NKU, 2007).<br />
While scholarly articles on student philanthropy in public administration and<br />
nonprofit management are few and far between, articles focusing on the new<br />
indirect-giving model are apparently nonexistent. So, this article begins to fill<br />
the gap in the literature by describing the indirect-giving model of student<br />
philanthropy, discussing its use in MPA classes at NKU, and examining its<br />
impact on students who have participated in it.<br />
Further, the limited literature on student philanthropy courses in public<br />
administration and nonprofit management primarily have looked at the impact<br />
of this pedagogy on students’ awareness, attitudes, interests, and intentions<br />
related to the nonprofit sector (i.e., their awareness of nonprofit organizations,<br />
their interest in a career in the nonprofit sector, their intentions to volunteer<br />
and donate money to charity, etc.). This study gives attention to another<br />
important goal of student philanthropy — enhancing students’ interest in the<br />
course and their learning of the course content.<br />
This article begins with a literature review that focuses on student<br />
philanthropy and its impacts, as well as the two models of student philanthropy<br />
— the original, direct-giving model, and the new, indirect-giving model. It then<br />
describes the research methodology that was used to analyze the indirect-giving<br />
model of student philanthropy at NKU, presents the results of these analyses,<br />
and discusses key findings and lessons learned.<br />
STUDENT PHILANTHROPY AND ITS IMPACTS<br />
Student philanthropy is a relatively new teaching strategy and thus the<br />
literature focusing on it is sparse, relative to other teaching strategies. Student<br />
philanthropy is an experiential education strategy that has similarities to service<br />
learning, which is much more established in literature as well as in practice.<br />
Service learning has been defined as “a teaching and learning approach that<br />
integrates community service with academic study to enrich learning, teach civic<br />
responsibility, and strengthen communities” (<strong>National</strong> Service Learning<br />
Clearinghouse, 2005, home page menu). So, student philanthropy could be<br />
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Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
defined as a teaching and learning approach that integrates charitable giving with<br />
academic study, in order to enrich learning, teach civic responsibility, and<br />
strengthen communities. Scholars and observers of service learning have<br />
identified a number of goals that are relevant to student philanthropy. Based on<br />
the existent literature on student philanthropy and service learning, as well as<br />
descriptions of student philanthropy programs, the goals are to<br />
• Enhance students’ awareness of social problems and nonprofit<br />
organizations in the community (Ahmed & Olberding, 2007/2008;<br />
Midland College, 2007);<br />
• Influence students’ attitudes, interests, intentions, and behaviors related<br />
to social responsibility and civic engagement (Markus, Howard & King,<br />
1993; Ahmed & Olberding, 2007/2008);<br />
• Increase students’ knowledge of philanthropic processes, particularly<br />
grant-seeking and grant-making (NKU, 2007; Palka, 2007; University<br />
of North Carolina at Chapel Hill [UNC-Chapel Hill], 2007);<br />
• Enhance their understanding of the academic content of the course by<br />
integrating theory and practice (Cohen & Kinsey, 1994; Astin & Sax,<br />
1998; Eyler & Giles, 1999; Rockquemore & Schaffer, 2000;<br />
Vogelgesang & Astin, 2000; Reinke, 2003; Dicke, Dowden, & Torres,<br />
2004); and<br />
• Improve their critical thinking, communication, leadership, and<br />
other work-life skills (Dicke, Dowden, & Torres, 2004; Midland<br />
College, 2007).<br />
Irvin (2005) was one of the first professors to incorporate student<br />
philanthropy or “grant-making” into a public administration course. She taught<br />
a freshman seminar at the University of Oregon that was an introduction to the<br />
nonprofit sector. Irvin secured $5,000 from Wells Fargo for the students to<br />
invest in a nonprofit organization. She had the students work in groups to<br />
research nonprofit organizations, select organizations, and persuade their<br />
classmates to invest the $5,000 in “their” organization. Irvin provided some<br />
qualitative evidence of the student philanthropy project. “When I asked the<br />
founding year’s students if their experience in the course affected their intention<br />
to volunteer, 16 of the 18 students responded positively; some in glowing but<br />
general terms, about their hope to become involved in the nonprofit sector”<br />
(Irvin, 2005, p. 320). Irvin also incorporated a similar student philanthropy<br />
project into a graduate seminar in philanthropy at University of Oregon, but<br />
she did not provide any measures of outcomes of this effort.<br />
Ahmed and Olberding (2007/2008) conducted the most extensive evaluation<br />
of student philanthropy to date. The authors cumulated and analyzed<br />
quantitative, end-of-the-semester data from about 1,000 students who<br />
participated in the Mayerson Student Philanthropy Project at NKU from 2000<br />
to 2005. According to survey results, 89.6 percent of students agreed that the<br />
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Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
philanthropy project increased their awareness of social problems, and 94.9<br />
percent agreed that it increased their awareness of nonprofit organizations. In<br />
addition, a majority indicated that their participation in a philanthropy project<br />
increased (a) their sense of responsibility to help others in need (88.6%), (b)<br />
their intention to give money to charity (83.7%), and (c) their intention to do<br />
volunteer work (82.6%).<br />
Interestingly, Ahmed and Olberding (2007/2008) found that the impact of the<br />
philanthropy project — in terms of awareness, interests, and intentions related to<br />
the nonprofit sector — was much less for MPA students than undergraduate<br />
students. The authors suggested that a potential reason for the lesser impact of<br />
NKU’s student philanthropy project on MPA students — of which more than<br />
90 percent are in-career — is that they enter courses with relatively high levels of<br />
awareness in terms of social problems and nonprofits, and relatively strong<br />
attitudes and interests in terms of their sense of responsibility to help others and<br />
their intentions to volunteer and donate money. Therefore, these in-career<br />
graduate students have a very limited capacity to improve in these areas. Ahmed<br />
and Olberding pointed to studies of service learning that have made similar<br />
conclusions — that is, service learning tends to have a relatively limited impact<br />
on MPA students because they enter the service-learning experience with strong<br />
feelings of civic responsibility and public service, as well as high levels of civic<br />
engagement (Reinke, 2003; Dicke, Dowden, & Torres, 2004).<br />
As stated earlier, there are multiple goals of student philanthropy. One is to<br />
enhance awareness, interests, and intentions related to the nonprofit sector,<br />
while another is to provide students with a richer understanding of the academic<br />
content of the course. There has not been a published article that looks at the<br />
impact of a student philanthropy project on learning by MPA students;<br />
however, scholarly research on service learning offers some insight. Overall, a<br />
number of studies have found that service learning has a positive impact on<br />
student learning (Cohen & Kinsey, 1994; Astin & Sax, 1998; Eyler & Giles,<br />
1999; Rockquemore & Schaffer, 2000; Vogelgesang & Astin, 2000; Reinke,<br />
2003; Dicke, Dowden, & Torres, 2004). Specific to the field of public<br />
administration, students in three MPA courses at Augusta State University were<br />
“unanimous in concluding that the service-learning project enhanced their<br />
understanding and mastery of course material” (Reinke, 2003, p. 134). On the<br />
evaluations of an MPA course on public-private partnerships at Texas Tech<br />
University, “67 percent of students reported that the service learning project had<br />
helped them gain a better understanding of the course material” (Dicke,<br />
Dowden, & Torres, 2004, p. 204).<br />
TWO MODELS <strong>OF</strong> STUDENT PHILANTHROPY<br />
Student philanthropy programs have been springing up across the country in<br />
recent years, and there seem to be two distinct approaches or models. As stated<br />
466 Journal of Public Affairs Education
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
earlier, direct giving is the original model and the more commonly used<br />
approach. The indirect-giving model is a new or emerging approach. Each of<br />
these models is discussed in greater detail in this section.<br />
1. Direct Giving: The Original Approach to Student Philanthropy<br />
The direct-giving model of student philanthropy allots a certain amount of<br />
funds to a class or another group of students for the grant-making process. Then<br />
students invite nonprofit organizations to apply for grants through a request for<br />
proposal (RFP) process. Students evaluate proposals and make collective<br />
decisions about which ones to fund. In the “early years” of direct-giving student<br />
philanthropy — the early 2000s — individual professors initiated and<br />
administered a philanthropy project for their classes. As discussed in the<br />
literature review, a professor at the University of Oregon started direct-giving<br />
student philanthropy projects at both the undergraduate and graduate levels. In<br />
addition to individual professors initiating student philanthropy projects, a<br />
growing number of universities have begun to create programs that serve<br />
students from various classes, disciplines, and departments. Usually, student<br />
philanthropy projects are funded by a corporation or foundation, although one<br />
or two individual professors have been know to put up their own money.<br />
The Scripps Howard Center for Civic Engagement at NKU has a directgiving<br />
program that is one of the most well-established — and most inclusive<br />
for the range of academic disciplines involved — in the United States, and it<br />
also is the largest, based on the number of courses, students, nonprofit<br />
organizations, and funding. NKU’s student philanthropy effort began in 1999<br />
with a grant from the Manuel D. and Rhoda Mayerson Foundation. About five<br />
classes per semester were designated as Mayerson Student Philanthropy Project<br />
courses, and each class was provided with $4,000 to invest in nonprofit<br />
organizations in the region. Since 1999, more than 2,000 students participated<br />
in the Mayerson project in 40 different courses, including MPA and MBA<br />
courses, as well as undergraduate courses in communication, literature and<br />
language, marketing, philosophy, sociology, and theatre. These classes have<br />
invested about $420,000 in 300 nonprofit agencies in the Greater<br />
Cincinnati/Northern Kentucky metropolitan area.<br />
Within the past couple of years, a number of universities have created courses<br />
or student organizations that generally incorporate student philanthropy,<br />
specifically using the direct-giving model. For example, at Arizona State<br />
University, a new graduate degree program in nonprofit studies began offering a<br />
course in Spring 2007 called Theory and Practice of Philanthropy. The students<br />
made site visits, prepared cases for support, and ultimately awarded $10,000 to<br />
a nonprofit organization in Phoenix (Palka, D., 2007).<br />
The Carolina Center for Public Service in the University of North Carolina at<br />
Chapel Hill (UNC-Chapel Hill) developed a one-credit class for undergraduate<br />
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of Student Philanthropy<br />
students called Promoting Change Through the Nonprofit Sector. A Web site<br />
description of the class says, “This one credit hour course is designed to offer<br />
undergraduate students an opportunity to learn about the nonprofit sector and<br />
to promote change in local communities by working together to fundraise,<br />
design grant award criteria, solicit grant proposals and decide on recipient<br />
nonprofit agencies” (UNC-Chapel Hill, 2007, Public Service Scholars section).<br />
Each semester, about eight to 15 students are selected, based on their<br />
applications, with preference for enrollment given to students in the university’s<br />
Public Service Scholars program.<br />
At other universities, student philanthropy has been established in an<br />
extracurricular council or club. Generally, these clubs involve a mix of students<br />
representing a variety of academic disciplines and levels (i.e., freshmen,<br />
sophomores, juniors, and seniors). Interested students compete for a limited<br />
number of positions on the student philanthropy council or club through an<br />
application and interview process. For example, Midland College in Texas has<br />
developed the Students In Philanthropy (SIP) club to teach “the importance of<br />
philanthropy and the role of nonprofit organizations in the community”<br />
(Midland College, 2007, student life/clubs/SIP). Students in the club raise<br />
funds, award grants to nonprofits, and “gain leadership and stewardship training<br />
through a structured program designed to educate, support and promote<br />
philanthropic leadership in the community” (Midland College, 2007, student<br />
life/clubs/SIP). Each year, up to 25 students are selected through an application<br />
and interview process. The selected students participate in the club’s activities<br />
for a full academic year, and attend weekly meetings designed to enhance their<br />
knowledge of the nonprofit and philanthropic communities.<br />
The Upstate Institute at Colgate University in Hamilton, New York, initiated<br />
the Student Philanthropy Council (SPC). “During the fall semester, experts in<br />
these fields lead seminars to guide the SPC in its efforts. In the winter, the SPC<br />
designs, solicits and evaluates Requests for Proposals (RFPs) from regional nonprofits,<br />
and reaches group consensus on which will receive funding. In the<br />
spring, the SPC disburses a total of $10,000 in grants to support regional nonprofit<br />
organizations” (Upstate Institute, 2007, home page + philanthropy<br />
council). Sophomores and juniors can apply for the council and, through a<br />
competitive process, 10 to 12 are selected to serve. The Student Philanthropy<br />
Council was funded with $50,000 from the Brennan Family Foundation, which<br />
is enough to hold five seminars through 2011 (Jenkins, 2006).<br />
2. Indirect Giving: A New Approach to Student Philanthropy<br />
In Spring 2007, the Scripps Howard Center for Civic Engagement at NKU<br />
developed a new model of student philanthropy, while maintaining the original<br />
direct-giving model. With the new model — called “indirect giving” — students<br />
468 Journal of Public Affairs Education
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
evaluate grant proposals submitted by nonprofit organizations to a corporation or<br />
foundation in the “real” world. Students complete the following tasks:<br />
• Familiarize themselves with the philanthropic mission of the<br />
corporation or foundation;<br />
• Review proposals submitted to the corporation or foundation;<br />
• Develop written evaluations of all proposals, regardless of whether or<br />
not they are being recommended for funding;<br />
• Discuss the proposals with other students in the class — particularly<br />
their strengths and weaknesses — and prioritize the proposals for<br />
funding; and<br />
• Present the class’s funding recommendations to the corporation or<br />
foundation board (limited to a few students). The board considers these<br />
recommendations, but it is ultimately responsible for making final<br />
decisions about which proposals to fund and not to fund.<br />
In addition, the professor may decide to require or encourage that students take<br />
on other activities, such as<br />
• Researching the nonprofit organizations — beyond their grant proposals<br />
— by using Guidestar, the BBB Wise Giving Alliance, and other<br />
sources; and<br />
• Conducting site visits or interviews with one or more representatives of<br />
nonprofit organizations that have submitted proposals.<br />
NKU seems to be the only university with a formalized indirect-giving<br />
program, based on a search of student philanthropy programs on the Internet.<br />
But, this is not conclusive at this point because there may be universities — or<br />
even individual professors — that have an indirect-giving program that does not<br />
appear on the Internet.<br />
Relative to the original direct-giving model of student philanthropy, the<br />
indirect-giving model has some notable advantages and disadvantages. One<br />
advantage is that the university or professor does not have to raise funds for the<br />
student philanthropy program or project, because a corporation or foundation<br />
provides the dollars to fund proposals. In contrast, the direct-giving model<br />
requires the university or professor to raise funds, usually from a foundation or<br />
corporation. As discussed in the literature review, direct-giving student<br />
philanthropy programs at other universities involve $10,000, $30,000, or<br />
$50,000 per year. A disadvantage from the university and/or faculty perspective<br />
is that it requires communication and coordination with another community<br />
partner — a corporation or foundation — that has its own priorities, schedules,<br />
personalities, etc.<br />
From the student perspective, an advantage is that the indirect-giving model<br />
provides an opportunity to participate firsthand in the grant-making process of<br />
a corporation or foundation and, thus, observe “what works and what doesn’t”<br />
in grant proposals. A disadvantage is that, relative to the direct-giving model,<br />
Journal of Public Affairs Education 469
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of Student Philanthropy<br />
students have less say in the decision-making process for funding proposals,<br />
because they make recommendations to a corporation or foundation board that<br />
itself makes the final decisions. The board’s final decisions can align with the<br />
students’ recommendations, they can completely go against the students’<br />
recommendations, or they can be somewhere in-between. With direct giving,<br />
the students make the final decisions related to funding of proposals.<br />
From the corporation or foundation perspective, one advantage is that<br />
students review the grant proposals, research the nonprofit organizations,<br />
conduct site visits, and write evaluations. This input may provide the board<br />
members and staff with valuable information and insight, and it may save them<br />
some time and energy in their own review of the proposals. Another advantage<br />
is that, by working with students, a corporation or foundation may get some<br />
satisfaction from helping to nurture a stronger sense of philanthropy and<br />
stewardship among young adults in their region. A disadvantage from the<br />
corporation or foundation perspective is that representatives should meet with<br />
the faculty and students at least twice — first, to introduce their organization<br />
and its philanthropic approach and, second, to hear students’ evaluations of<br />
grant proposals and funding recommendations.<br />
In Spring 2007, the indirect-giving model was incorporated into four classes<br />
at NKU, including a course that I teach, called Resource Acquisition and<br />
Management (PAD 621). This course is an elective for the MPA program and a<br />
requirement for the Nonprofit Management certificate. It is designed to help<br />
students gain a more comprehensive understanding of how nonprofit<br />
organizations acquire funds — including the sources of funds, fundamental<br />
principles of fundraising, and different types of fundraising programs and<br />
methods. It also looks at how nonprofits manage financial resources —<br />
including the basics of budgeting, accounting, and financial reporting. A<br />
student-learning outcome that is most relevant to the student philanthropy<br />
project is to “learn more about the grant-seeking and grant-making processes.”<br />
During the “pilot” semester, there were a few challenges. One challenge was<br />
that the number of proposals was much lower than originally planned, and this<br />
was not learned until after the semester started. For my Resource Acquisition<br />
class, the corporation originally was supposed to forward about 30 proposals the<br />
week before classes started, but it provided only eight proposals during the<br />
second week of class. This change impacted a number of factors related to the<br />
class, including the descriptions and guidelines of certain assignments, and the<br />
organization of students into “boards” or small groups. A second challenge was<br />
related to the fact that four classes at NKU were involved in the indirect-giving<br />
model, yet the involved corporation had a limited amount of funds for its<br />
philanthropy program. The board followed the funding recommendations of a<br />
couple of classes — particularly a compressed class that only met during the first<br />
eight weeks of the semester class and presented its funding recommendations to<br />
470 Journal of Public Affairs Education
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
the board much earlier than other classes. The board did not fund any of the<br />
proposals that were recommended by students in my Resource Acquisition class,<br />
which made some of them feel as if their work had little impact on the final<br />
decision-making process. A third challenge was that the grant proposals were<br />
very inconsistent in their length and quality. For instance, some proposals were<br />
10- to 12 pages in length and used a common grant application form required<br />
by some funders in the region, while other “proposals” consisted of a one-page<br />
letter with an organizational brochure attached. These differences made it<br />
difficult for students to evaluate and make recommendations, as in the<br />
“comparing apples and oranges” metaphor.<br />
After the pilot semester, the Scripps Howard Center hired an outside evaluator<br />
to look at the indirect-giving model of student philanthropy. Based on this<br />
evaluation, some major changes were made to the indirect-giving model, such as<br />
having only one class work with the corporation. In Fall 2007 and Spring 2008,<br />
the one class selected was my Resource Acquisition course. In addition to the<br />
changes made at the program level, I made changes at the course level — most<br />
important was the addition of site visits to the nonprofit organizations by the<br />
students who were evaluating their proposals. In Spring 2007 — the pilot<br />
semester — students were not required to conduct site visits because there was an<br />
expectation that the corporation was going to forward about 30 proposals to the<br />
class, and the prospect of 30 site visits in two weeks seemed potentially<br />
problematic. In Fall 2007 and Spring 2008, the expectation — and the reality —<br />
was that the corporation would forward six to eight proposals to the class. Each<br />
“board,” or group, of students was required to conduct a site visit for each of the<br />
two proposals that it was assigned to evaluate, although not every student took<br />
part in the site visits due to work schedules or for other reasons.<br />
This evaluation of the indirect-giving model helped eliminate or diminish a<br />
few challenges. For example, the change from multiple classes to one class<br />
resulted in improved communication and coordination. It also led to the one<br />
class having more influence — or at least a perception of more influence — on<br />
the corporation’s funding decisions. But at least one challenge remained through<br />
the Fall 2007 and Spring 2008 semesters — inconsistency in the quality and<br />
length of the grant proposals submitted by nonprofit organizations.<br />
METHODOLOGY<br />
This study has four research questions. Questions #1 and #2 are based on the<br />
study of student philanthropy by Ahmed and Olberding (2007/2008). These<br />
questions address the goals of student philanthropy that are based on enhancing<br />
students’ awareness, interests, and intentions as related to the nonprofit sector.<br />
Question #3 is based on another set of goals that has been identified for student<br />
philanthropy — i.e., enhancing learning. Question #4 is designed to identify<br />
underlying factors that relate to the outcomes of the student philanthropy<br />
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project. The following lists the four research questions:<br />
1. To what degree does participation in student philanthropy —<br />
particularly the indirect-giving model — increase students’ awareness of<br />
social problems and nonprofit organizations?<br />
2. To what degree does participation in the indirect-giving model of<br />
student philanthropy enhance the development of certain interests and<br />
intentions related to the nonprofit sector?<br />
3. To what degree does student philanthropy generally enhance learning,<br />
and to what degree does the indirect-giving model specifically enhance<br />
learning? Does it increase students’ interest in the course, their learning<br />
of the course content, their ability to apply the knowledge and skills in<br />
the real world, and their acquisition of knowledge and skills?<br />
4. Do certain characteristics of the course and the philanthropy project<br />
influence or impact students in terms of their awareness, interests,<br />
intentions, and learning?<br />
The Scripps Howard Center for Civic Engagement at NKU systematically<br />
collects data on the Mayerson Student Philanthropy Project. The data for this<br />
study came from an end-of-semester survey of students in the Resource<br />
Acquisition course who participated in the indirect-giving, student philanthropy<br />
project (Spring 2007, Fall 2007, and Spring 2008). Seventeen students completed<br />
the evaluation in Spring 2007, eight students completed it in Fall 2007, and 12<br />
students completed it in Spring 2008, for a total of 37 respondents. This study<br />
includes variables that have been used in earlier research on student philanthropy,<br />
particularly Ahmed and Olberding (2007/2008), because both articles analyze<br />
data from the Mayerson project survey by NKU’s Scripps Howard Center.<br />
Specifically, both studies include the following variables: Students’ awareness of<br />
social problems, awareness of nonprofit organizations, interest in community<br />
service, consideration of a career in the nonprofit sector, intention to do volunteer<br />
work, intention to give money to charity, interest in the course, interest in taking<br />
another course with a philanthropic or service component, learning of the course<br />
material, gaining of knowledge and skills, and application of course principles.<br />
This study analyzes data from the Mayerson project survey in the following<br />
ways:<br />
• Percentages of responses. In terms of the variables listed above, this<br />
study looks at the percentage of MPA students who indicated that the<br />
student philanthropy experience had a positive effect, and the<br />
percentage who indicated that it had a negative effect. The items asked<br />
respondents to assess the various effects of the student philanthropy<br />
experience on a 5-point Likert scale, with 1 being “very negative” and 5<br />
being “very positive.” In order to simplify and clarify the findings,<br />
responses to the 5-point Likert-scale items are collapsed into three<br />
categories, which get labeled as:<br />
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1. “Very negative or negative” effect.<br />
2. “No effect.”<br />
3. “Very positive or positive” effect.<br />
• Means and standard deviations. Another way that this study analyzes<br />
the effects of student philanthropy is to look at the mean response to<br />
each of the survey items listed. It also looks at the standard deviations,<br />
in order to assess the amount of variation across the 37 students who<br />
responded to the survey.<br />
• Regression analyses. The regression analyses attempt to explain<br />
variation in the effects that the indirect-giving project has on students.<br />
There are two types of dependent variables here:<br />
1. Students’ awareness, interests and intentions related to the<br />
nonprofit sector, and<br />
2. Students’ interest in and learning of the course content.<br />
There also are two sets of independent variables that may have<br />
moderated the effect of the philanthropy project on students. The first<br />
set consists of student activities related to the philanthropy project:<br />
1. Whether the student participated in site visits, and<br />
2. Whether the student presented to the corporation’s philanthropic<br />
board.<br />
In regards to site visits, the project did not have site visits in Spring<br />
2007. It did have site visits in Fall 2007 and Spring 2008, but a few<br />
students were not able to participate in them. In regards to board<br />
presentations, the number of student-presenters was limited to three<br />
each semester, due to the size of the board room.<br />
The second set of independent variables consists of student assessments<br />
of key elements of the philanthropy project in two areas:<br />
1. Satisfaction with the quality of proposals submitted by nonprofits,<br />
and<br />
2. Satisfaction with the final monetary awards or grants by the<br />
corporation’s philanthropic board.<br />
In addition, all of the regression models included control variables<br />
related to demographic characteristics of individual students, for which<br />
data were collected on the end-of-semester surveys. (See Appendix B for<br />
a condensed version of the survey instrument.) These demographic<br />
control variables included age (1 =
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
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Table 1.<br />
The Effects of the Indirect Giving Model of Student Philanthropy on Participants<br />
What effect did this [student philanthropy] experience have on the following:<br />
Survey Item Percentage of Student Participants<br />
Number of Student Participants<br />
Very Neg. & Negative No Effect Very Pos. & Positive Total<br />
Awareness of Social Problems 2.70% 32.40% 64.80% 100.00%<br />
(1) (12) (24) (37)<br />
Awareness, Interests &<br />
Intentions Related<br />
to the Nonprofit Sector<br />
Awareness of Nonprofit 13.90% 8.30% 77.80% 100.00%<br />
Organizations (5) (3) (29) (37)<br />
Interest in Community Service 2.80% 41.70% 55.60% 100.00%<br />
Organizations (1) (15) (21) (37)<br />
Consideration of a Career in 16.20% 37.80% 45.90% 100.00%<br />
the Nonprofit Sector (6) (14) (17) (37)<br />
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Intention to Do Volunteer Work 2.70% 51.40% 45.90% 100.00%<br />
(1) (19) (17) (37)<br />
Intention to Give Money to 5.40% 45.90% 48.60% 100.00%<br />
Charity (2) (17) (18) (37)<br />
Interest in This Course 5.40% 32.40% 62.10% 100.00%<br />
(2) (12) (23) (37)<br />
Interest in Taking Another Course 10.80% 35.10% 54.00% 100.00%<br />
with a Philanthropic or (4) (13) (20) (37)<br />
Service-learning Component<br />
Interest in the Course<br />
and Learning of the<br />
Course Content<br />
Learning the Course Material 10.80% 13.50% 75.70% 100.00%<br />
(4) (5) (28) (37)<br />
Application of Course Principles 2.70% 21.60% 75.70% 100.00%<br />
to Address a Community Need (1) (8) (28) (37)<br />
Gaining of Academic Skills or 2.70% 35.10% 62.10% 100.00%<br />
Knowledge (1) (13) (23) (37)
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
RESULTS<br />
Percentages of Responses<br />
Table 1 shows the percentages of responses to various measures of effects<br />
generated by the indirect-giving student philanthropy project. Looking at the<br />
“very positive and positive” column, 77.8 percent of respondents indicated that<br />
the student philanthropy experience had a positive effect on their “awareness of<br />
nonprofit organizations,” 64.8 percent said that it had a positive effect on their<br />
“awareness of social problems,” 75.7 percent of respondents indicated that the<br />
student philanthropy experience had a positive effect on their “learning of the<br />
course material,” and 75.7 percent also said that it had a positive effect on their<br />
“application of course principles to address a community need.” About 62<br />
percent of respondents indicated that the student philanthropy project had a<br />
positive impact on their “gaining of academic skills or knowledge.” It is worth<br />
noting that there were some negative responses on these measures, too. Looking<br />
at the “very negative or negative” column, 16.2 percent indicated that the<br />
student philanthropy experience had a negative impact on their “consideration<br />
of a career in the nonprofit sector,” and 13.9 percent said it had a negative<br />
impact on their “awareness of nonprofit organizations.” (See Table 1.)<br />
Overall, Table 1 shows that the indirect-giving student philanthropy project<br />
had a lesser impact on students’ interests and intentions, as related to the<br />
nonprofit sector, than the other areas. Less than half of the students said that the<br />
student philanthropy project had a positive effect on their “consideration of a<br />
career in the nonprofit sector” (45.9 percent), their “intention to do volunteer<br />
work” (45.9 percent), and their “intention to give money to a charity” (48.6<br />
percent). These results are similar to those in Ahmed and Olberding<br />
(2007/2008), which state that the original model of student philanthropy — the<br />
direct-giving model — had a relatively small impact on MPA students’ attitudes<br />
and intentions. As discussed in the literature review, Ahmed and Olberding<br />
suggest that a potential reason is because more than 90 percent of MPA students<br />
at NKU are in-career — usually in the nonprofit sector or government sector —<br />
so they enter courses with relatively established patterns of behavior in terms of<br />
giving their time and money to charities. Therefore, these in-career graduate<br />
students have a very limited opportunity for an increase on these measures.<br />
Means and Standard Deviations<br />
Table 2 shows the means and standard deviations of the various effects from<br />
the indirect-giving model of student philanthropy. On a scale of 1 to 5, with 1<br />
being “very negative” and 5 being “very positive,” the highest mean response<br />
was 3.9 for an item about the effect of the student philanthropy project on the<br />
“application of course principles to address a community need.” Two other<br />
items related to learning had relatively high means at 3.8; these were “learning<br />
of course material” and “gaining of academic skills or knowledge.” In addition,<br />
the other set of outcomes with relatively high means looks at awareness related<br />
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Table 2.<br />
The Effects of the Indirect Giving Model<br />
of Student Philanthropy on Participants<br />
What effect did this [student philanthropy] experience have on the following:<br />
Awareness,<br />
Interests &<br />
Intentions<br />
Related<br />
to the<br />
Nonprofit<br />
Sector<br />
Interest in<br />
the Course<br />
and Learning<br />
of the Course<br />
Content<br />
Note. N = 37. Survey items were based on a 5-point Likert scale with 1 being Very Negative Effect<br />
and 5 being Very Positive Effect. For each item, the minimum response was 1.0, and the maximum<br />
response was 5.0.<br />
to the nonprofit sector. The mean was 3.8 for both “awareness of social<br />
problems” and “awareness of nonprofit organizations.” (See Table 2.)<br />
Table 2 also displays standard deviations for the responses to each survey item<br />
that measured outcomes. Some of these standard deviations are high, relative to<br />
the means. For example, a couple of standard deviations are greater than 1, with<br />
means of less than 4; the S.D. is 1.31 for “consideration of a career in the<br />
nonprofit sector,” and 1.08 for “awareness of nonprofit organizations.” This<br />
indicates that there is great variation in the effects of the student philanthropy<br />
project across the 37 students in this study. The next couple of sections discuss<br />
efforts to explain some of this variation, including two sets of regression analyses<br />
and an overview of narrative responses by participants in the indirect-giving<br />
student philanthropy project at NKU.<br />
476 Journal of Public Affairs Education<br />
Survey Item Mean SD<br />
Awareness of Social Problems 3.8 0.83<br />
Awareness of Nonprofit<br />
Organizations<br />
3.8 1.08<br />
Interest in Community Service<br />
Organizations<br />
3.6 0.83<br />
Consideration of a Career in<br />
the Nonprofit Sector<br />
3.3 1.31<br />
Intention to Do<br />
Volunteer Work<br />
3.5 0.73<br />
Intention to Give Money<br />
to Charity<br />
3.5 0.77<br />
Interest in This Course 3.7 0.88<br />
Interest in Taking Another<br />
Course with a Philanthropic or<br />
Service-learning Component<br />
3.5 0.90<br />
Learning the Course Material 3.8 0.92<br />
Application of Course Principles<br />
to Address a Community Need<br />
3.9 0.81<br />
Gaining of Academic Skills<br />
or Knowledge<br />
3.8 0.86
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
Regression Analyses<br />
Table 3 shows results of the regression analyses that attempt to explain<br />
variation in the effects of the philanthropy project on students’ awareness,<br />
interests, and intentions, as related to the nonprofit sector. There are six<br />
regression models in this set of analyses, each with a unique dependent variable<br />
that measures an effect of the student philanthropy project. The independent<br />
variables in these models include each sudent’s activities that were related to the<br />
philanthropy project (whether he/she conducted site visits to the nonprofits and<br />
whether he/she made a presentation to the corporation’s philanthropic board), as<br />
well as each student’s assessment of certain key elements of the philanthropy<br />
project (the degree to which he/she was satisfied with the quality of the<br />
nonprofits’ proposals, and the degree to which he/she was satisfied with the final<br />
grants by the corporation’s philanthropic board). The control variables are each<br />
student’s age, race, and gender.<br />
Please note that the “pilot semester” control variable was dropped from all of<br />
the regression models due to multicollinearity. Most noteworthy was a correlation<br />
of -0.95 between the “pilot semester” and the independent variable “site visit.”<br />
Recall that the pilot semester of the philanthropy project in the MPA class did not<br />
involve site visits, because there was an expectation of a large number of proposals<br />
from nonprofits, which would have made site visits unfeasible.<br />
The amount of variation explained by each model ranges from very little to<br />
quite a lot. R 2 is only 0.214 in the model with “awareness of social problems” as<br />
the dependent variable, but it jumps up to 0.608 in the model with “awareness<br />
of nonprofits” as the dependent variable. The demographic control variables<br />
included age (1 =
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
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Table 3.<br />
First Set of Regression Analyses: How Student Activities and Assessments of the Philanthropy Project<br />
Moderate Its Impact On Their Awareness, Interest and Intentions Related to the Nonprofit Sector<br />
Dependent Variables<br />
Unstandardized Coefficients<br />
Intention to Give<br />
Money to a Charity<br />
Intention<br />
to Volunteer<br />
Consideration of<br />
a Career in Nonprofit<br />
Interest In<br />
Community Service<br />
Awareness<br />
of Nonprofits<br />
Awareness of<br />
Social Problems<br />
Independent Variables ß s.e. ß s.e. ß s.e. ß s.e. ß s.e. ß s.e.<br />
Constant 2.028 1.282 -0.436 1.215 0.891 1.252 -1.322 1.573 0.702 1.128 0.986 1.155<br />
Student Activities<br />
Site Visits 0.617 0.419 1.848 0.398*** 0.735 0.408* 1.311 0.515** 0.589 0.369 0.597 0.378<br />
0.254 0.419 -0.377 0.398 -0.036 0.408 -0.503 0.515 -0.023 0.369 -0.032 0.378<br />
Presentation<br />
to the Board<br />
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Student Assessments<br />
Satisfaction With<br />
0.262 0.243 0.975 0.230*** 0.524 0.245** 0.760 0.298** 0.390 0.214* 0.131 0.219<br />
Proposal Quality<br />
0.036 0.153 -0.068 0.145 0.159 0.151 0.215 0.187 0.086 0.134 0.033 0.138<br />
Satisfaction With the<br />
Final Grant Awards<br />
Control Variables<br />
Age 0.041 0.193 0.191 0.183 0.176 0.189 0.144 0.237 0.186 0.170 0.277 0.174<br />
Gender 0.299 0.377 0.411 0.358 0.122 0.366 0.823 0.463* 0.482 0.332 0.496 0.340<br />
Race 0.270 0.490 0.298 0.465 0.323 0.517 -0.491 0.601 -0.154 0.431 -0.432 0.442<br />
R-Square 0.214 0.608 0.325 0.449 0.271 0.235<br />
Note. N = 37<br />
* = Significant at p
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
coefficients in terms of size or magnitude (1.848 in the “awareness of<br />
nonprofits” model and 1.311 in the “consideration of a career in the nonprofit<br />
sector” model). This evidence indicates that the philanthropy project had a<br />
much more positive impact on those students who conducted site visits —<br />
relative to those students who did not — in terms of their awareness of and<br />
interest in the nonprofit sector. The other student activity — “presentation to<br />
the board” — is not significantly related to any of the dependent variables that<br />
measure the philanthropy project’s effects. So the impact of philanthropy project<br />
was not statistically different for students who presented to the board, when<br />
compared to those who did not, all else equal.<br />
Two other independent variables are student assessments of particular<br />
elements of the philanthropy project — satisfaction with the quality of<br />
proposals submitted by nonprofit organizations, and satisfaction with the<br />
funding decisions. Recall that some proposals were 10 to 12 pages in length and<br />
used a common grant application form, while other “proposals” consisted of a<br />
one-page letter with an organizational brochure attached. “Satisfaction with<br />
proposal quality” is positively and significantly related to four of the six<br />
dependent variables measuring the philanthropy project’s effects (“awareness of<br />
nonprofits,” “interest in community service,” “consideration of a career in the<br />
nonprofit sector,” and “intention to volunteer”). The coefficients on<br />
“satisfaction with proposal quality” are the second-largest coefficients, next to<br />
those on “site visits.” Thus, the philanthropy project had a more positive impact<br />
on students who assessed the proposals that they reviewed as being of high<br />
quality. Interestingly, “satisfaction with the final grant awards” is not<br />
significantly related to any of the dependent variables.<br />
Only one of the control variables is significant in only one of the six models.<br />
“Gender” is positively and significantly related to “consideration of a career in<br />
the nonprofit sector.” In other words, holding constant the other factors in the<br />
philanthropy project, female students were more likely to consider a nonprofit<br />
career than males.<br />
Table 4 shows results of the regression analyses that attempt to explain<br />
variation in the philanthropy project’s effects on students for learning about and<br />
being interested in the course content. There are five models in this set of<br />
analyses, each with a unique dependent variable that measures an effect of the<br />
philanthropy project. In this set of analyses, R 2 ranges from a low of 0.255 in the<br />
model showing “interest in taking another course with a philanthropic or service<br />
learning component” as the dependent variable, to a high of 0.377 in the model<br />
with “learning of the course material” as the dependent variable. (See Table 4.)<br />
As with the previous set of regressions, this set included two student activities<br />
that varied across students — whether the student conducted site visits of the<br />
nonprofit organizations that submitted grant proposals to the corporation, and<br />
whether the student made a presentation of the class’s funding recommendations<br />
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Table 4.<br />
Second Set of Regression Analyses: How Student Activities and Assessments of the Philanthropy Project<br />
Moderate Its Impact On Interest In the Course and Learning<br />
Dependent Variables<br />
Unstandardized Coefficients<br />
Gaining of Academic<br />
Skills or Knowledge<br />
Application of<br />
Course Principals<br />
Learning of the<br />
Course Material<br />
Interest in Another<br />
Philanthropic Course<br />
Interest in This Course<br />
Independent Variables ß s.e. ß s.e. ß s.e. ß s.e. ß s.e.<br />
Constant 1.777 1.321 1.993 1.381 1.002 1.243 0.968 1.117 1.594 1.268<br />
Student Activities<br />
Site Visits 1.140 0.432** 0.975 0.452** 0.879 0.407** 0.968 0.385** 1.012 0.415**<br />
0.183 0.432 0.235 0.452 0.464 0.407 -0.056 0.385 -0.740 0.415<br />
Presentation<br />
to the Board<br />
Student Assessments<br />
480 Journal of Public Affairs Education<br />
0.277 0.251 0.166 0.262 0.549 0.236** 0.498 0.223** 0.334 0.240<br />
Satisfaction With<br />
Proposal Quality<br />
-0.081 0.157 -0.074 0.165 -0.119 0.148 -0.062 0.140 -0.062 0.151<br />
Satisfaction With the<br />
Final Grant Awards<br />
Control Variables<br />
Age 0.094 0.199 0.043 0.208 0.151 0.188 0.193 0.178 0.173 0.191<br />
Gender 0.349 0.389 0.365 0.406 0.483 0.366 0.487 0.346 0.276 0.373<br />
Race 0.055 0.505 0.101 0.528 0.101 0.475 0.158 0.450 0.362 0.485<br />
R-Square 0.315 0.255 0.377 0.342 0.278<br />
Note. N = 37<br />
* = Significant at p
Indirect Giving to Nonprofit Organizations: An Emerging Model<br />
of Student Philanthropy<br />
to the corporation’s philanthropic board. Table 4 indicates that the independent<br />
variable for “site visits” is positively and significantly related to all five of the<br />
dependent variables (“interest in the course,” “interest in taking another course<br />
with a philanthropic or service learning component,” “learning the course<br />
material,” “application of course principles,” and “gaining of academic skills or<br />
knowledge”). As with the first set of regression analyses, the coefficients on “site<br />
visits” are the largest coefficients in terms of size or magnitude (e.g., 1.140 in<br />
the “interest in the course” model and 1.012 in the “gaining of academic skills<br />
or knowledge” model). This evidence indicates that the philanthropy project<br />
had a much more positive impact on students who conducted site visits —<br />
relative to those students who did not — in terms of their interest in and<br />
learning of the course content. Also similar to the first set of regression analyses,<br />
the “presentation to the board” is not significantly related to any of the<br />
dependent variables measuring the philanthropy project’s effects.<br />
In terms of the independent variables measuring student assessments of<br />
particular elements of the philanthropy project, “satisfaction with proposal<br />
quality” is positively and significantly related to two of the dependent variables<br />
measuring the philanthropy project’s effects (“learning course material” and<br />
“application of course principles”). Again, the coefficients on “satisfaction with<br />
proposal quality” are the second-largest coefficients, next to those on “site<br />
visits,” and indicate that the philanthropy project had a more positive impact on<br />
students who saw the proposals they reviewed as being of high quality.<br />
Interestingly, “satisfaction with the final grant awards” is not significantly related<br />
to any of the dependent variables in these models. None of the control variables<br />
is significant in any of the five models.<br />
Qualitative Data<br />
Appendix A provides excerpts of narrative responses by students who<br />
participated in the indirect-giving student philanthropy project at NKU. These<br />
excerpts are organized by themes that are related to the key variables of this<br />
study (e.g., awareness of nonprofits, interests and intentions related to<br />
nonprofits, etc.). The following comments are some of the positive narrative<br />
responses:<br />
• I was also considering the Public Administration/Government sector but<br />
now will be seeking a nonprofit career.<br />
• I want to explore grant writing as a career.<br />
• I will be volunteering for more things and trying to support local NPOs<br />
in multiple ways.<br />
• It was experiential and reinforced the textbook material in a less<br />
mundane way.<br />
• I have more skills to be able to enter the nonprofit sector as a<br />
professional.<br />
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• As someone who has written grants in the past, I was glad to have the<br />
opportunity to review the process from the point of view of the funder.<br />
(See Appendix A.)<br />
The following comments represent some negative perceptions of and<br />
experiences by students who participated in the indirect giving student<br />
philanthropy project at NKU:<br />
• Many nonprofits are striving to meet the needs of the community with<br />
little help and resources.<br />
• Many grant proposals are weak, cut-and-paste documents with limited<br />
attention to detail and extremely limited assessment of outcomes.<br />
• The proposals given were hit or miss. For each, excellent proposal, there<br />
was a substandard proposal.<br />
• In our capacity of reviewing and making recommendations, we could<br />
objectively evaluate the proposals, but even though we kept [the<br />
corporation’s] perceivable goals and funding strategies in mind, their<br />
board chose differently than our class.<br />
The following comments provide some insight on why the indirect-giving<br />
student philanthropy project may have had a limited impact on MPA students:<br />
• I already work in the nonprofit sector so it didn’t enhance my desire to<br />
do so.<br />
• Most students with the MPA program already volunteer ... a lot!<br />
DISCUSSION<br />
This article has attempted to fill a gap in the literature by describing the<br />
indirect-giving model of student philanthropy, and examining its effects on<br />
MPA students at NKU who have participated in it. Overall, this study found<br />
that the indirect-giving student philanthropy program had a number of benefits.<br />
A majority of MPA students indicated that the project helped them become<br />
more aware of social problems and nonprofit organizations, and it helped them<br />
to learn the course material, apply the course principles to address a community<br />
need, and gain academic skills or knowledge.<br />
It is worth noting again that the indirect-giving student philanthropy<br />
program had some negative effects on a minority of participants. Specifically,<br />
16.2 percent indicated that it negatively impacted their consideration of a<br />
career in the nonprofit sector. One reason may be that the indirect-giving<br />
program at NKU is in the early stages of development, and the data in this<br />
study are from the pilot semester and two semesters that followed. Therefore,<br />
the program has some “kinks” that need to be worked out (and that are, in<br />
fact, being worked out). For example, as stated earlier, there was inconsistency<br />
in the quality of grant proposals in all three of the semesters in this study. But<br />
NKU worked with the corporation to encourage the use of a common grant<br />
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application form used by other funders in the region. Another reason for the<br />
negative effects of the indirect-giving student philanthropy program on<br />
participants may be that it opened their eyes to some realities of the nonprofit<br />
sector and corporate philanthropy. Specifically, it may have changed some<br />
perceptions that all or most nonprofit organizations are very knowledgeable<br />
about grant-seeking, and very professional in grant-writing. These realizations<br />
seem apparent in the narrative responses by a few students regarding the<br />
qualitative data. For example, one student said that “[many] grant proposals are<br />
weak, cut-and-paste documents with limited attention to detail.”<br />
Based both on the analyses in this study and on my personal experience, this<br />
section highlights some “lessons learned” about using the indirect-giving model<br />
of student philanthropy:<br />
• Require or encourage site visits. This study found that site visits had<br />
the most significant and largest positive influence on students during<br />
their participation in the indirect-giving philanthropy project.<br />
Therefore, the professor should encourage or require site visits, if<br />
possible, in order to “make the most” of the philanthropy program.<br />
• Work with the corporation or foundation to ensure consistency in<br />
the proposals. This study found that student satisfaction with proposal<br />
quality had a number of positive and significant impacts. The challenge<br />
is that proposal quality is not a factor that the professor controls<br />
directly, but rather it is more in the hands of the funder and nonprofit<br />
organizations. With that said, the professor — or a center or<br />
department if the philanthropy program is university-wide — can work<br />
with funders to educate them about the importance of using a common<br />
grant application form, or some other standardized form, by<br />
emphasizing that it will help not only the students, but also their board<br />
members, in evaluating the proposals more fairly and wisely. (This<br />
lesson is probably more relevant to corporations, as most foundations<br />
have moved to standardized forms.)<br />
• Limit one class per funder, if possible. As discussed earlier, NKU<br />
started its indirect-giving program with four classes working with one<br />
corporation. This turned out to be somewhat difficult in terms of<br />
communication and coordination between the corporation, the<br />
university, and multiple professors. After the pilot semester, a change<br />
was made such that only one class would work with the corporation.<br />
This lesson does not imply that the program should be limited in terms<br />
of funders or classes. It implies that they should grow together; as the<br />
number of funders increases, then the number of classes can increase.<br />
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• Manage student expectations. In particular, it is important that the<br />
professor periodically remind students that they are just making<br />
recommendations — not final decisions — and that the primary<br />
purpose of the philanthropy project is to help them to learn the course<br />
content and gain skills related to grant-seeking and grant-making. An<br />
interesting and somewhat surprising finding was that “satisfaction with<br />
the final grant awards” was not significantly related to the project’s<br />
impacts on students (all else equal), because one might assume that<br />
students who disagree with the corporation’s funding decisions may find<br />
the entire project less meaningful and impactful. This result may be<br />
partly due to the fact that I tried to remind students that the<br />
corporation had the final say in terms of funding decisions, and that the<br />
primary goal was to enhance their learning.<br />
• Keep nonprofit organizations in the loop. During one semester, the<br />
nonprofit organizations that had submitted proposals to the corporation<br />
were not informed that NKU students were involved in the<br />
philanthropic process. So, some of them were caught off guard when an<br />
NKU student contacted them about doing a site visit. Ideally, the<br />
corporation or foundation should send a letter and/or email message to<br />
the nonprofits, briefly explaining the student philanthropy project,<br />
potential benefits, ways in which students will be engaged in the<br />
process, etc.<br />
• Look for ways to leverage the program. The indirect-giving model of<br />
student philanthropy can be a “win-win-win” situation for the students,<br />
funders, and nonprofit organizations. And there should be ways to make<br />
these “wins” even bigger for the parties involved. As discussed above, one<br />
way is that the professor and students can provide information and<br />
insight to funders, which may help them with the grant-making process<br />
and grant application forms. Another way is that the professor and<br />
students can help nonprofit organizations with their grant writing.<br />
Specifically, student evaluations of grant proposals should be shared with<br />
the nonprofits in order to help them learn their strengths and weaknesses.<br />
• Maintain some flexibility in the course. During the first semester that<br />
I incorporated the indirect-giving model of student philanthropy, I<br />
developed a syllabus with very specific descriptions of the assignments,<br />
etc. Again, I expected 30 proposals, but received only eight, so this led<br />
to various changes in the course structure, assignments, etc. After that<br />
experience, I learned to include more general descriptions in the<br />
syllabus, and add more details as the semester progressed.<br />
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CONCLUSION<br />
Student philanthropy is a relatively new pedagogy in public administration<br />
and nonprofit management, so its literature is quite limited. Most of the<br />
literature focuses on the original direct-giving model for which a class is allotted<br />
funds — usually a few thousand dollars — and the students research social<br />
problems, identify nonprofit organizations, request funding proposals, evaluate<br />
them, and decide which ones to fund. This article focuses on the emerging<br />
indirect-giving model, where students work with a corporation or foundation,<br />
evaluate real proposals submitted by nonprofit organizations, and make funding<br />
recommendations to the corporation or foundation. This article takes a few<br />
steps toward filling the gap in the literature by describing the indirect-giving<br />
model, discussing its use in MPA classes at Northern Kentucky University, and<br />
providing some evidence of its impact on students.<br />
The advantages of an indirect-giving program include the following:<br />
1. The university or professor does not need to raise money, as the funds<br />
for grants are supplied by a corporation or foundation;<br />
2. Students work with a corporation or foundation on grant-making in<br />
the real world, which gives them insight on both grant-making and<br />
grant-seeking;<br />
3. The corporation receives evaluations of grant proposals by students —<br />
possibly a “first cut” at the review process — and perhaps some<br />
satisfaction in knowing that they may be nurturing future<br />
philanthropists.<br />
The disadvantages include the following:<br />
1. The university or professor needs to communicate and coordinate with<br />
another community partner — the corporation or foundation — which<br />
takes time and energy;<br />
2. Students have less say or influence on the funding decisions — relative<br />
to direct giving — because they are making recommendations and not<br />
final decisions;<br />
3. The corporation or foundation needs to make plans to work with the<br />
class, which takes time and energy.<br />
The few published studies on student philanthropy primarily have examined<br />
the degree to which it impacts participants’ awareness of social problems and<br />
nonprofit organizations, interest in community service and the nonprofit sector,<br />
and intentions to donate time and money to charity. This article examines these<br />
potential impacts, as well as the participants’ interest in the course, learning of<br />
the curriculum, and acquisition of academic skills or knowledge. It may be the<br />
first study that attempts to measure this broad range of potential effects. Data<br />
from a survey of 37 students indicate that the philanthropy project helped most<br />
of them to become more aware of social problems and nonprofit organizations,<br />
more interested in the nonprofit sector, more engaged in the curriculum, and<br />
more knowledgeable and skilled.<br />
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REFERENCES<br />
Ahmed, S., & Olberding, J.C. (2007/2008). Can student philanthropy help to address the current<br />
nonprofit identity crisis? A case study of a multiyear, multidisciplinary project at Northern<br />
Kentucky University. Journal of Public Affairs Education, 13(3/4), 593-615.<br />
Astin, A.W., & Sax, L.J. (1998). How undergraduates are affected by service participation. Journal of<br />
College Student Development, 39(3), 251-263.<br />
Cohen, J., & Kinsey, D.F. (1994). Doing good and scholarship: A service-learning study. Journalism<br />
Educator, 48(4), 4-14.<br />
Dicke, L., Dowden, S. & Torres, J. (2004). Successful service learning: A matter of ideology. Journal of<br />
Public Affairs Education, 10(3), 199-208.<br />
Eyler, J., & Giles, D.E., Jr. (1999). Where’s the learning in service-learning? San Francisco: Jossey-Bass.<br />
Irvin, R.A. (2005). The student philanthropists: Fostering civic engagement through grant making.<br />
Journal of Public Affairs Education, 11(4), 325–336.<br />
Markus, G.B., Howard, J.P.F., & King, D.C. (1993). Integrating community service and classroom<br />
instruction enhances learning: Results from an experiment. Educational Evaluation and Policy<br />
Analysis, 15(4), 410-419.<br />
Midland College. (2007). Students In Philanthropy. Retrieved August 11, 2007 from<br />
http://www.midland.edu/sip/<br />
<strong>National</strong> Service Learning Clearinghouse (2005). What is service learning? (home page menu item).<br />
Retrieved August 4, 2008, from Learn and Serve America’s <strong>National</strong> Service Learning<br />
Clearinghouse Web site: http://www.servicelearning.org/what-service-learning<br />
Northern Kentucky University, Scripps Howard Center for Civic Engagement and Nonprofit<br />
Development. (2007). The Mayerson student philanthropy project. (Scripps home page + get<br />
involved). Retrieved March 11, 2008, from http://civicengagement.nku.edu/ involved/<br />
mayerson.php<br />
Palka, Debra. Graduate students experience philanthropy firsthand. (2007). Retrieved August 4, 2008,<br />
from Arizona State University, ASUNews Web site: http://www.asu.edu/news/<br />
stories/200705/20070504_SLHI.htm<br />
Reinke, S.J. (2003). Making a difference: Does service-learning promote civic engagement in MPA<br />
students? Journal of Public Affairs Education, 9(2), 129-138.<br />
Rockquemore, K.A., & Schaffer, R.H. (2000). Toward a theory of engagement: A cognitive mapping<br />
of service-learning experiences. Michigan Journal of Community Service Learning, (7), 14-25.<br />
Upstate Institute. (2007). Student Philanthropy Council. Retrieved August 5, 2009, from Colgate<br />
University’s Upstate Institute Web site: http://upstate.colgate.edu/ui-philanthropy.htm<br />
University of North Carolina at Chapel Hill, Carolina Center for Public Service. (2007). Promoting<br />
change through the nonprofit sector. (Public Service Scholars section), Retrieved August 13, 2009,<br />
from the Carolina Center for Public Service Web site: http://www.unc.edu/cps/students-scholarsphilanthropy.php<br />
Vogelgesang, L.J., & Astin, A.W. (2000). Comparing the effects of community service and servicelearning.<br />
Michigan Journal of Community Service Learning, (7), 25-34.<br />
Julie Cencula Olberding is an assistant professor in the MPA program and<br />
Nonprofit Management certificate program at Northern Kentucky University.<br />
She teaches Foundations of Public Administration, Resource Acquisition and<br />
Management, Volunteer Management, and other courses. In addition to student<br />
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philanthropy, her research has focused on collaboration among government<br />
agencies, nonprofit organizations, and the private sector for economic<br />
development. Her research has been published in the Journal of Public Affairs<br />
Education, Public Administration Review, the International Journal of Public<br />
Administration and Economic Development Quarterly. Correspondence<br />
concerning this article should be addressed to Julie Cencula Olberding, MPA,<br />
Ph.D., Department of Political Science and Criminal Justice, Northern<br />
Kentucky University, 424E Founders Hall, Highland Heights, KY 41099.<br />
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Appendix A.<br />
Qualitative Data: Excerpts of Narrative Responses by Participants in the<br />
Indirect-Giving Model of Student Philanthropy.<br />
Awareness Of Nonprofits<br />
Positive<br />
• There are far more philanthropic organizations and community needs than I had<br />
imagined.<br />
• The most significant thing is learning to understand the NP sector and learning of<br />
more NPOs.<br />
Negative<br />
• Many nonprofits are striving to meet the needs of the community with little help and<br />
resources.<br />
• Many organizations do not know enough about the logistics of philanthropy.<br />
Additional information would allow them to be better seekers of funding.<br />
• Many grant proposals are weak cut-and-paste documents with limited attention to<br />
detail and extremely limited assessment of outcomes.<br />
Interests And Intentions Related To Nonprofits – Career<br />
Positive<br />
• I was also considering the Public Administration/Government sector but now will be<br />
seeking a nonprofit career.<br />
• I want to explore grant writing as a career<br />
• I already work for a nonprofit but it expanded my knowledge about what is out there.<br />
Neutral/no effect<br />
• I already work in the nonprofit sector so it didn't enhance my desire to do so.<br />
• I already have a career in the nonprofit sector.<br />
• I'm here because I have a career in the nonprofit sector.<br />
Interests And Intentions Related To Nonprofits - Volunteer Work<br />
Positive<br />
• One guest speaker's story led me to apply as a volunteer at her organization.<br />
• I will be volunteering for more things and trying to support local NPOs in multiple<br />
ways.<br />
• Yes, I have already explored/joined organizations that match my interests.<br />
• After I complete school, my volunteer time will increase.<br />
Neutral/no effect<br />
• Full time work and full time school leave little extra time. I currently volunteer for<br />
special events at my place of employment.<br />
• Too busy with school, work and family.<br />
• Most students with the MPA program already volunteer ... a lot!<br />
Interests And Intentions Related To Nonprofits - Giving Money<br />
Positive<br />
• Philanthropy is extremely important; when I am financially in a position to contribute<br />
and make a significant impact, it will be good.<br />
Course & Student Philanthropy<br />
Positive<br />
• It was experiential and reinforced the textbook material in a less mundane way.<br />
• The hands-on approach was nice. Really helped to demonstrate what we also learned<br />
in class.<br />
• Great way to apply the material and concepts<br />
Negative<br />
• The project wasn't really appropriate for this particular course.<br />
Learning & Application<br />
Positive<br />
• I have more skills to be able to enter the nonprofit sector as a professional.<br />
• I learned the grant process from the inside out. I thought that was interesting.<br />
• I learned the process of grant evaluation and feel better able to help secure funding.<br />
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• I learned that grant seeking is not a scary process — that it might be enjoyable for<br />
someone who can follow directions/guidelines and can write. I also learned how NOT<br />
to write grant proposals.<br />
• What a grant is comprised of and what makes a good grant effective and efficient.<br />
• I know how hard it is to make a decision when an organization needs funding.<br />
Negative<br />
• I learned that the philanthropic process is often not professional. The choices are<br />
generally not educated ones.<br />
• It did not increase knowledge or skill.<br />
What Did You Most Appreciate About The Student Philanthropy Project?<br />
• The opportunity to review and evaluate proposals for the first time.<br />
• As someone who has written grants in the past, I was glad to have the opportunity to<br />
review the process from the point of view of the funder.<br />
• The hands on interviews with the administrative staff of the nonprofit groups. The fact<br />
that my input and recommendation was honored and put into practice, my program<br />
evaluation received funding.<br />
• I appreciated the experience of interviewing and recommending a local agency for<br />
funding and knowing that my opinion matters.<br />
• The opportunity to learn and be involved in actual projects and not just case studies in<br />
a book.<br />
Other Comments<br />
Quality of Proposals<br />
• The proposals given were hit or miss. For each, excellent proposal, there was a<br />
substandard proposal.<br />
Final Award(s) to Nonprofits<br />
• In our capacity of reviewing and making recommendations, we could objectively<br />
evaluate the proposals, but even though we kept [the corporation's] perceivable goals<br />
and funding strategies in mind, their board chose differently than our class.<br />
• I did not feel that our recommendation was taken very seriously.<br />
• I was disappointed that [the corporation] didn't fund any of our recommendations.<br />
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Appendix B.<br />
The Mayerson Student Philanthropy Project – Student Reflection and Evaluation.<br />
Name of Course: _____________________________________________________________________<br />
Major: ______________________________________________________________________________<br />
Minor or Area of Concentration: ______________________________________________________<br />
Gender: Male Female<br />
Do you live on NKU's campus? Yes No<br />
Age: < 18 18-25 26-35 36-45 > 45<br />
Ethnicity: American Indian/Alaska Native Asian Black or African American<br />
Hispanic or Latino Native Hawaiian or Other Pacific Islander White<br />
Other:_________________________<br />
Year in School: Freshman Sophomore Junior Senior Other<br />
# of credits earned at NKU, not including this term: ________<br />
# of college credits earned at other colleges/universities, not including this term: ________<br />
This Mayerson class has helped me to …<br />
1 = Strongly Disagree 2 = Disagree 3 = Neither Agree nor Disagree 4 = Agree 5 = Strongly Agree]<br />
Learn the course material.<br />
Develop a greater awareness of nonprofit organizations in the community.<br />
Apply principles from this course to addressing a need in the community.<br />
Consider a career in the nonprofit sector.<br />
List three (3) activities and/or assignments that increased your involvement and participation<br />
in this class.<br />
1. _________________________________________________________________________________<br />
2. _________________________________________________________________________________<br />
3. _________________________________________________________________________________<br />
List three (3) activities and/or assignments that increased your learning in the class.<br />
1. _________________________________________________________________________________<br />
2. _________________________________________________________________________________<br />
3. _________________________________________________________________________________<br />
What effect did this Mayerson class experience have on the following?<br />
1 = Very Negative 2 = Negative Effect 3 = No Effect at All 4 = Positive Effect 5 = Very Positive Effect<br />
Your intention to do volunteer work.<br />
Your intention to give money to a charity to help those in need.<br />
Your interest in community service.<br />
Your awareness of the societal problem/need(s) addressed in this class.<br />
Your sense of personal responsibility to the community in which you live.<br />
The belief that you can make a difference in the world.<br />
Your sense of purpose or direction in life.<br />
Your intention to work on behalf of social justice.<br />
Your belief that you have a responsibility to help others in need.<br />
Your interest in taking another course with a philanthropic or service-learning<br />
component.<br />
Your interest in this course.<br />
Your academic skills or knowledge.<br />
Your relationship with the professor.<br />
Your relationship with other students in the class.<br />
Your desire to stay in college or complete a degree.<br />
Your attitude toward “experiential” programs like this one.<br />
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Your willingness to contact community and civic leaders to learn about an issue.<br />
The development of functional life skills (e.g., communication, assertiveness, problemsolving).<br />
Your attitude toward those in need of services.<br />
Read the list of activities and indicate whether this is something you did (or will do) this<br />
semester in connection with the Mayerson Student Philanthropy Project.<br />
Answer with Y = Yes, N = No, or NS = Not Sure<br />
___I made an initial call to a nonprofit to learn about the services they offer or to see if<br />
they were interested in submitting a proposal.<br />
___I made at least one onsite visit to a nonprofit agency being considered for an award.<br />
___I submitted the name of a nonprofit agency for funding consideration.<br />
___I submitted the name of a nonprofit agency that eventually received funding.<br />
___I submitted the name of a nonprofit agency that did not receive funding.<br />
___I This semester I volunteered at one of the nonprofits being considered by my class for<br />
funding.<br />
___I This semester, I made a donation (money, material items) to at least one of the<br />
nonprofits being considered.<br />
___I served as a group (board) leader/co-leader.<br />
___I coordinated the visit of a nonprofit agency to speak to the class.<br />
___I presented (or will present) an award to one of the chosen agencies at the award<br />
ceremony.<br />
___I wrote a letter to a nonprofit agency indicating that its RFP had been selected (or not<br />
selected) for funding.<br />
___I coordinated (or am coordinating) at least one agency's visit to the award ceremony.<br />
___I have made plans to volunteer at a nonprofit agency next semester.<br />
___I made a presentation to a corporate philanthropy board.<br />
___I played other roles in the selection process that are not listed.<br />
Please respond to the following six philanthropy and volunteerism questions.<br />
In the 12 months prior to this course, I donated (money or material items) to a<br />
nonprofit agency.<br />
Yes No If yes, please list the name of the agency(ies): _______________<br />
As a result of this course, I increased the amount that I donate (money, materials) to<br />
nonprofit agencies.<br />
Yes No If yes, please list the name of the agency(ies): _______________<br />
As a result of this course, I increased the number of nonprofit agencies that I donate to.<br />
Yes No If yes, please list the name of the agency(ies): _______________<br />
In the 12 months prior to this course, I volunteered my time to nonprofit agency(ies).<br />
Yes No If yes, please list the name of the agency(ies): _______________<br />
As a result of this course, I increased my number of volunteer hours with nonprofit<br />
agencies.<br />
Yes No If yes, please list the name of the agency(ies): _______________<br />
As a result of this course, I increased the number of nonprofit agencies that I volunteer<br />
with.<br />
Yes No If yes, please list the name of the agency(ies): _______________<br />
Please indicate your level of satisfaction with …<br />
1 = Not Satisfied at All 2 = Unsatisfied 3 = Neutral 4 = Satisfied 5 = Satisfied<br />
The overall quality of the proposals nonprofits submitted for your consideration.<br />
The monetary award(s) this class made.<br />
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Name the most significant things you learned this semester about your community, the<br />
nonprofit sector or the philanthropic process. (Please use a few sentences to elaborate on your<br />
answers.)<br />
_____________________________________________________________________________________<br />
As a result of this course do you plan to make any changes in your life that relate to your<br />
level of involvement in campus or community life?<br />
_____________________________________________________________________________________<br />
What did you most appreciate about the Mayerson Project experience?<br />
_____________________________________________________________________________________<br />
Is there anything you would like to bring to our attention about the Mayerson Project?<br />
_____________________________________________________________________________________<br />
We would appreciate the opportunity to ask you a few additional questions about your<br />
experience via email before the end of the semester. Please provide your name and email<br />
address so we can contact you.<br />
Name _______________________________________________________________________________<br />
Email address:________________________________________________________________________<br />
NKU may want to contact Mayerson students in the future for follow-up evaluations. Please<br />
give us an address where you will continue to live or where someone can forward<br />
correspondence to you in the event you move.<br />
Name _______________________________________________________________________________<br />
Street _______________________________________________________________________________<br />
City ________________________________________ State _______ ZIP Code _________________<br />
492 Journal of Public Affairs Education
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
Cognitive Styles Matching: Expanding the<br />
Efficacy of Group Work in MPA Courses<br />
Jeremy L. Hall<br />
University of Texas at Dallas<br />
ABSTRACT<br />
This essay describes a unique approach to assigning Master’s of Public<br />
Administration (MPA) students to groups in order to enhance the value of the<br />
overall classroom team experience. The relevant mechanism of interest is the<br />
Cognitive Styles Matching (CSM) group-selection process, combined with a brief<br />
explanatory session. Many instructors utilize groups for various reasons, without<br />
considering that the selection process can be altered to maximize relevant learning<br />
and interpersonal skills development. In this approach, a Myers-Briggs Type<br />
Indicator within a CSM process is used to configure groups for semester-long<br />
course projects. The essay takes the additional step of examining the approach’s<br />
performance, by using a post-only evaluation design that considers academic<br />
performance and a survey of student perceptions regarding the CSM treatment<br />
and potential alternatives. The benefits associated with the CSM process —<br />
product consistency and learning to work with others in a collaborative public<br />
service environment — suggest a meaningful role for broader use of the CSM<br />
selection process in the MPA curriculum.<br />
INTRODUCTION<br />
Public affairs programs are challenged to prepare students for careers in public<br />
service with a curriculum that is matched to current trends and demands from<br />
the public and nonprofit sectors. Programs are attuned to these demands and<br />
the curriculum has developed accordingly. Moreover, the pedagogy has adapted<br />
to meet these expectations. In MPA programs, students are asked to complete<br />
assignments that are applied in nature. The capstone course has replaced the<br />
thesis in many programs, or is the students’ dominant choice in others. We also<br />
subject students to group assignments to simulate the collaborative work<br />
experience that most of them will encounter at some point during their careers<br />
— what Kahn (1995) refers to as experiential learning.<br />
Public managers require skills that include the ability to communicate and<br />
interact with others and, increasingly, to do so across traditional organizational<br />
boundaries. As McGuire (2006) observes, networks take on broad tasks that<br />
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extend beyond concurrent actions by independent organizations. Because<br />
problems do not regard the boundaries into which we attempt to categorize<br />
them, “no bureaucracy, however conceived or designed, can encompass any<br />
problem that matters” (Kettl, 2006, p.15). The capacity needed to work in<br />
networks is different than that needed to work within a single organization<br />
(Agranoff & McGuire, 1998). To be successful, managers engaged in<br />
collaborations will come to rely on such skills as team-building, conflictresolution,<br />
and problem-solving to reach and employ mutual understanding<br />
(Agranoff & McGuire, 1998).<br />
The use of groups in MPA programs is now fairly common, and the literature<br />
presents pedagogical techniques and ideas for incorporating group work into<br />
courses (Kahn, 1995; Schumaker, 2005; Reineke, 2001). What has gone<br />
unnoticed in such prescriptions for real-world experience is that the effectiveness<br />
of working together in a group depends on group composition and participant<br />
characteristics. The selection process matters in terms of how individuals<br />
interact with one another. It most likely affects work output quality, and it<br />
certainly influences student satisfaction with the course, as well as the process of<br />
conducting group work in classroom settings. Instructors should weigh the<br />
purpose of group effort in the classroom against the costs and benefits associated<br />
with potential processes for assigning group membership.<br />
There are many ways of assigning students to groups. While the method used<br />
may be tied to an inherent goal, each has its pitfalls. For example, students may<br />
self-select their groups. This method caters to student satisfaction — people<br />
select persons they prefer to work with — but in the real world we do not<br />
always get this opportunity. Instructors may opt for random assignment, which<br />
caters to our deep concern for equity, but ignores the potential benefits of<br />
purposeful assignment. Arbitrary assignment also may be used to achieve<br />
diversity (e.g., gender, race, age) in each group, but these differences are<br />
external. Our internal differences may affect mutual work to a greater extent.<br />
There are many ways to assign groups, and instructors use approaches that meet<br />
their underlying process goals, or that minimize their effort both at the time of<br />
assignment, and during the course of group effort.<br />
While MPA programs seek to train various types of public servants, our focus<br />
is on preparing public managers — persons who not only will be working in<br />
groups, but who also will have the opportunity to create and manage groups<br />
within their institutions in the future. Clearly we view group pedagogy as<br />
something more than a process to convey content, or we simply would ask<br />
students to work independently. During the process of developing and<br />
implementing syllabi for classes at a new institution, I encountered a general<br />
latent frustration that many students seemed to have with group work in any<br />
format. In order to understand this frustration, I began to consider ways to<br />
make the group process more meaningful. As a result of this learning process, I<br />
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have come to view the use of groups, and the group-selection method, as<br />
fundamental components of the broader MPA curriculum.<br />
This essay first provides background on the relationship between individual<br />
cognitive style and group or organizational performance. I then describe the<br />
process of Cognitive Styles Matching (CSM) by using a Myers-Briggs Type<br />
Indicator (MBTI) to assign student groups in MPA courses. I continue by<br />
discussing the method’s usefulness for developing management skills (like<br />
developing conflict resolution in peer relationships; Heimovics & Herman,<br />
1989), and I evaluate the method’s efficacy — using a post-only evaluation<br />
methodology. Surveys evaluate student satisfaction with the CSM method, and<br />
its value for helping them to do better work with others. An evaluation of<br />
survey findings also addresses the effect of inherent goal conflict, and weighs the<br />
importance of student satisfaction against learning objectives in pedagogy.<br />
BACKGROUND: COGNITIVE STYLES AND GROUP PERFORMANCE<br />
Research in psychology has examined the role of personality in organizations<br />
and work settings (O’Conner, 1992; Simon, 1987). The subfield has grown and<br />
includes journals expressly or predominantly dedicated to the topic (e.g.,<br />
Educational and Psychological Measurement, the Journal of Psychological Type, the<br />
Journal of Personality Assessment, and Group & Organization Management).<br />
Personality tests have been used extensively by organizational consultants to help<br />
people more effectively work together, and several organizations provide training<br />
to administer the official MBTI instrument (e.g., Personality Pathways, the<br />
Center for Applications of Psychological Type, the American Management<br />
Association, the Association for Psychological Type, and Type Resources of<br />
Effectiveness Enhancement, Inc., to name a few). On the Internet, it is easy to<br />
find quick personality tests to determine your type and profile, as well as your<br />
compatibilities and conflicts with other types. Popular attention<br />
notwithstanding, there is a clear evidence-base documenting the utility of<br />
cognitive style assessment.<br />
Cognitive style refers to “a person’s preferred way of gathering, processing,<br />
and evaluating information,” which “influences how people scan their<br />
environment for information, how they organize and interpret this information,<br />
and how they integrate their interpretations into the mental model and<br />
subjective theories that guide their actions” (Hayes & Allinson, 1998, p. 850).<br />
Understanding our own cognitive style clarifies our preferred way of interacting<br />
with the world and defines the nature of our interactions with others. While no<br />
style is better or worse than another, some styles are predisposed toward certain<br />
tasks. For example, extravert/perceivers are more comfortable than<br />
introvert/judgers when making presentations where hard questions will be<br />
asked. We all have natural comfort zones and proclivities that shape our<br />
approach to tasks. For example, intuitive persons look for connections and<br />
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linkages that explain the big picture, while sensing persons are attentive to detail<br />
and substantiating facts.<br />
The effects of cognitive style on individual and organizational performance<br />
have been the subject of previous research. Armstrong (2000) investigated the<br />
effects of cognitive style on individual academic performance. Among students<br />
in an undergraduate management program, those with analytic cognitive<br />
styles outperformed those with non-analytic styles on specific tasks, and in<br />
their overall degree grades. Individuals from different backgrounds drew upon<br />
their pools of tacit and explicit knowledge to contribute to group work. In<br />
fact, the tacit dimensions of their knowledge base (including cognitive style)<br />
made these individuals especially valuable contributors to group projects<br />
within organizational or inter-organizational settings (Leonard & Sensiper,<br />
1998, p. 117). Without interaction among those with varied cognitive styles<br />
— which group activities stimulate — unique perspectives based on such tacit<br />
knowledge will fail to coalesce (Leonard & Sensiper, 1998).<br />
Hayes and Allinson (1998) examine the interaction between individual<br />
cognitive style and organizational performance. Specifically, they explore how<br />
cognitive style provides a basis for designing interventions that will improve<br />
learning and performance in organizations. Among the interventions they<br />
consider are matching the learning demands of the job/task to individual<br />
preferences, and managing group composition to promote effective learning.<br />
The former addresses the allocation of tasks within the organization according<br />
to preference; the latter addresses the composition of groups to shape the way<br />
they interpret information. There are two methods of managing group<br />
composition—seeking diversity and seeking homogeneity.<br />
Seeking and managing diversity involves assigning individuals with different<br />
cognitive styles to the same group, in order to promote synergy. To be<br />
successful, this approach requires the manager to “increase awareness about<br />
communication difficulties that can arise from differences in cognitive style and<br />
help organizational members recognize the value of contributions by others who<br />
have a different approach to thinking” (Hayes & Allinson, 1998, p. 865). The<br />
authors add that it is essential for managers to play an integrating role to ensure<br />
sharing of information and interpretations, and to keep employees from forming<br />
cohesive subgroups with unique views of the world. Teams may continue to<br />
respond well in the face of change, as long as they include some members whose<br />
information-processing style corresponds to the information-processing<br />
demands of the new situation (Hayes & Allinson, 1998).<br />
A danger associated with homogeneous groups, on the other hand, is<br />
formation of a shared mental model that encourages stereotypical thinking<br />
(Hayes & Allinson, 1998, p. 866). “If all individuals in the group approach a<br />
task with highly overlapping experiential backgrounds, they may be subject to<br />
‘groupthink,’ i.e., a comfortable common viewpoint leading to closed-<br />
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Figure 1.<br />
The 16 MBTI style preferences<br />
ISTJ ISTP ISFJ ISFP<br />
INTJ INTP INFJ INFP<br />
ESTJ ESTP ESFJ ESFP<br />
ENTJ ENTP ENFJ ENFP<br />
Note. Letters indicate elements of the four<br />
dimensions: Introverts and Extraverts (I/E),<br />
Intuiting and Sensing (N/S), Thinking and<br />
Feeling (T/F), and Judging and Perceiving (J/P).<br />
From “Myers-Briggs Type Indicator,” by I.B.<br />
Myers and M.H. McCaulley 1985, Manual: A<br />
Guide to the Development and Use of the<br />
Myers-Briggs Type Indicator, (2nd ed.). Copyright<br />
1962 by the Consulting Psychologists Press.<br />
mindedness and pressures toward<br />
uniformity” (Leonard & Sensiper,<br />
1998, p. 118). As Volkema and<br />
Gorman (1998) note, heterogeneous<br />
group composition according to<br />
cognitive style can moderate the effect<br />
of problem formulation on<br />
performance (p. 117). In other words,<br />
the heterogeneous group arrives at<br />
multiple objectives that frame or define<br />
the problem they are tasked to address,<br />
which leads to more consistent<br />
outcomes than a homogeneous group.<br />
Because the tasks confronting each<br />
group are identical in a specific MPA<br />
classroom setting, I elected to assign groups with the goal of seeking cognitivestyle<br />
diversity. With proper attention to the construction of groups, students<br />
should appreciate the connection between cognitive style and task demands well<br />
enough to understand the value of purposeful group assignment. As future<br />
managers, this topic is highly salient to MPA students. Managers can encourage<br />
better exploitation of tacit knowledge by paying attention to the environment<br />
they are creating and by encouraging respect for different thinking styles<br />
(Leonard & Sensiper, 1998, p. 126). Managers and human resource<br />
practitioners have a crucial role to play in optimizing individual performance<br />
within organizations, and a precondition for managerial action is an<br />
understanding of the basis of style and its practical implications (Sadler-Smith<br />
& Badger, 1998).<br />
COGNITIVE STYLES MATCHING: THE GROUP ASSIGNMENT APPROACH<br />
Cognitive Styles Matching (CSM) is not difficult to use in constructing<br />
groups, but the technique takes more time and effort than random assignment<br />
or self-selection. This section briefly describes how to implement the CSM<br />
procedure. The first step is to ask students to complete a very brief (10-12<br />
minutes) questionnaire that produces a four-letter Myers-Briggs Type Indicator<br />
(MBTI). The particular questionnaire used is not important, as long as it is<br />
reliable. To enhance reliability, it is best if all students use the same<br />
questionnaire. (The questionnaire I use is proprietary, and cannot be reproduced<br />
here. Nonetheless, various Jungian or MBTI questionnaires are readily available<br />
in print and on the Internet.)<br />
When students have finished the questionnaire, the second step is to record<br />
their four-letter type (of which there are 16 total) and divide them so as to ensure<br />
that each letter is represented on each team. (See Figure 1.) In other words, eight<br />
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different letters should be present<br />
to adequately cover both ends of<br />
the spectrum for each of the four<br />
dimensions: Introverts and<br />
Extraverts (I/E), Intuiting and<br />
Sensing (N/S), Thinking and<br />
Feeling (T/F), and Judging and<br />
Perceiving (J/P). Figure 2 reflects<br />
the four dimensions that comprise<br />
the cognitive-style assessment. (See<br />
Figure 2.) The selection method<br />
creates inherent conflict, as<br />
opposite types (e.g. N/S and T/F<br />
types) tend to approach tasks or<br />
interact with others very differently.<br />
Figure 3 presents the outcome of a<br />
group assignment process for one<br />
class. (See Figure 3.) Provided for<br />
consideration are the four-letter configurations resulting from the questionnaire<br />
for each student, and each student’s specific score on each dimension.<br />
Building groups can be challenging, and group size affects the instructor’s<br />
ability to ensure representation of students’ cognitive styles. For example, to<br />
attain representation in groups of two, each pair of students would need to be<br />
exact opposites, which virtually never occurs. An ISTJ would need to be<br />
matched with an ENFP. Larger groups are easier to work with if the goal is to<br />
ensure that each style is included. In a group of four, for example, only one<br />
individual need have any particular style. For example, the styles might be ISTJ,<br />
ESTJ, ENTJ and ENFP. In this configuration there are three Es and only one I,<br />
three Ts and only one F, and three Js with only one P. In this case, the total<br />
amount of direct interpersonal conflict is diminished because there are only two<br />
individuals with exact opposite styles, while all other combinations of<br />
individuals share some characteristics. Even so, balance is preferred. In large<br />
classes with large groups, it still can be difficult to achieve balance. For example,<br />
in one class of 30 students I found 11 Is and 19 Es; 21 S’s and 9 Ns; and 22 Js<br />
and 8 Ps. Of those 30 students, 3 had the type ISFJ, and 4 were ISTJ. Another<br />
was IS_J, equally balanced between T and F. So, about 27 percent of class<br />
members were IS_Js. When I find significant duplication in a single style, I<br />
usually begin by assigning each person with that style to a different group, and<br />
then build the group membership around them by adding the person with the<br />
most opposite style in the next slot. For each group’s third member, I examine<br />
the combination to see if any attribute is missing, and then add a person with<br />
498 Journal of Public Affairs Education<br />
Figure 2.<br />
The four cognitive style dimensions<br />
Introversion/Extraversion Scale<br />
Introversion (I) Extraversion (E)<br />
Sensing/Intuiting Scale<br />
Sensing (S) Intuiting (N)<br />
Thinking/Feeling Scale<br />
Thinking (T) Feeling (F)<br />
Judging/Perceiving Scale<br />
Judging (J) Perceiving (P)<br />
Note. From “Myers-Briggs Type Indicator,” by I.B. Myers<br />
and M.H. McCaulley 1985, Manual: A Guide to the<br />
Development and Use of the Myers-Briggs Type<br />
Indicator, (2nd ed.). Copyright 1962 by the Consulting<br />
Psychologists Press.
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
Figure 3.<br />
Assignment of students into groups<br />
according to cognitive style<br />
MBTI E I S N T F P J Group #<br />
E S F P/J 7 2 4 3 0 7 4 4 1<br />
I N T/F J 0 7 2 3 2 2 3 4 2<br />
E S T J 5 4 5 1 6 2 4 5 3<br />
I S/N F J 0 8 3 3 3 4 3 6 4<br />
E N F J 6 1 1 6 3 6 3 4 4<br />
E/I S T J 4 4 6 0 7 3 2 6 1<br />
E N F P 6 1 1 6 4 6 7 0 2<br />
E S/N T J 5 3 4 4 8 3 3 5 2<br />
E N F P 7 0 1 6 1 7 6 1 5<br />
E S T J 6 1 8 0 5 2 2 6 5<br />
I S F J 4 5 7 0 1 6 1 7 2<br />
E N T P 5<br />
E S T J 6 1 8 1 8 0 4 5 5<br />
E/I N F P/J 4 4 1 4 3 4 4 4 1<br />
E/I N F P 6 6 0 6 2 9 7 5 3<br />
E S F P 4<br />
I N F J 0 8 0 6 3 6 2 5 3<br />
E/I S T J 4 4 6 0 6 2 1 7 1<br />
E S T J 6 1 6 1 8 1 3 5 2<br />
E/I S T J 4 4 4 3 10 0 2 5 3<br />
I S F J 4 5 3 2 1 6 1 7 5<br />
I S/N F P 1 6 4 4 2 5 7 1 1<br />
I N T P 2 5 1 6 5 4 6 2 3<br />
I S T J 3 6 7 1 6 2 3 5 4<br />
E N F P 6 1 2 5 3 6 4 3 4<br />
Note. The two students missing scores were not present during the<br />
in-class exercise and completed the assessment independently at a<br />
later time. These students reported only their dominant cognitive<br />
styles, without the scores that comprised them, and were assigned<br />
to groups on that basis.<br />
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Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
that attribute. Sometimes it still is necessary to add missing attributes with the<br />
fourth group member, but usually by that point the focus shifts to balancing the<br />
styles as well as possible. That is, make sure that I and E are well-balanced, and<br />
that S and N are well balanced, and so on, given the initial distribution of<br />
cognitive styles present in the class.<br />
The inclusion of conflicting preferences has the potential to generate moreconsistent<br />
work output, as group members balance the big picture with details<br />
or balance analysis with emotion. As noted above, this potential can be stifled<br />
by the conflict that is created by communication differences among the styles.<br />
Learning to overcome these differences to generate an agreeable product is a<br />
valuable learning objective in its own right.<br />
To achieve this learning objective, the assignment method requires additional<br />
explanation. Upon completing the questionnaires and group assignments in<br />
class, the third step is to explain what the cognitive styles mean. I devote about<br />
one hour to provide examples and clues about how the styles prefer to interact,<br />
and how they process and communicate information. During the first meeting<br />
of a semester — after reviewing the syllabus — is an ideal time to conduct these<br />
activities, because initial meetings are less useful for discussing course material.<br />
When group work commences during the semester, I pick a proximate time to<br />
remind students about the important stylistic differences, and I offer brief<br />
reminders prior to group tasks.<br />
This method provides an opportunity for students to understand themselves<br />
and why they prefer some tasks over others, and to understand the perspectives<br />
of those they work with in managing problems. When an extraverted student<br />
realizes that a very introverted team member isn’t participating, the process can<br />
be structured to allow equal participation. In this case, for example, students<br />
could be writing thoughts before sharing them one at a time around the table.<br />
So, although conflict is present and is a key part of the process, students are<br />
provided with an explanation of the expected conflicts that may arise, and how<br />
to address them. This explanation serves as a tool to help students overcome<br />
conflict and manage their interactions more effectively. Armed with this<br />
knowledge, students become much more attentive to the people they interact<br />
with, and also consider the possibility that they simply view the world through a<br />
different lens. A public manager who is better able to manage employee<br />
interactions in the workplace generally, and on teams in particular, will be an<br />
asset to an organization.<br />
Once scores are assessed, students are assigned to groups, and styles are<br />
explained, the fourth and final consideration when using CSM is the nature of<br />
the group work. One assignment of limited scope provides an introduction, but<br />
offers little interaction and thus little opportunity for the cognitive-styles<br />
understanding to be reinforced. I have found greater success with this technique<br />
when it is applied to a semester-long project, with multiple components that<br />
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Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
require the groups to meet and function in order to produce outputs a multiple<br />
number of times. When possible, the interaction is reinforced by asking the same<br />
groups to work together on in-class exercises. The best use of the technique also<br />
is demonstrated when the assignments exercise multiple cognitive-style<br />
dimensions. For example, both oral and written products are useful, as are<br />
questions that call for both analytical thinking and value-based judgments.<br />
The process is not so much about getting students to work together more<br />
cooperatively. It is inherent in the nature of the CSM process that students<br />
within a group will have varied styles that necessarily conflict with one another.<br />
Rather, the purpose is intended to generate increased understanding of how<br />
people differ, why they differ, and, with that understanding, how to work more<br />
effectively and generate better work products given those differences. Such<br />
understanding will better equip students to function in teams at the workplace,<br />
for they become aware of latent differences in cognitive styles, and find ways to<br />
capitalize on them.<br />
EVALUATION<br />
The literature examining group-selection techniques is sparse. This paper adds<br />
to that literature by reporting findings from an evaluation of the CSM<br />
technique and its effectiveness. This post-only evaluation includes two parts: (a)<br />
examining group project scores and class average final grades, and (b) a survey<br />
of students who have been subjected to the CSM group-assignment technique<br />
in three MPA classes.<br />
Post-Only Evaluation: A survey was developed during fall 2006 to assess<br />
student beliefs about group assignment in MPA courses, their satisfaction with<br />
particular assignment techniques, and their perceptions about equity and<br />
outcomes associated with various techniques. The instrument was administered<br />
during the semester’s final week of classes, in order to capture as much of the<br />
group process in each class as possible. A convenience sample of three classes<br />
provided the initial study group. Students enrolled in two concentration courses<br />
(Program Evaluation and Economic Development) were subjected to the CSM<br />
selection technique by the author in fall 2006, and students in a core public<br />
policy class were added in spring 2007. The four personality-type dimensions<br />
and their characteristics were explained to these treatment groups, and students<br />
were assigned to groups in such a way that both ends of each dimension were<br />
represented in each group, as described.<br />
Evaluation Questions: The survey included questions to collect a variety of<br />
information about respondents, and their attitudes and perceptions about<br />
group-selection processes. The substance included (a) demographics, (b) beliefs<br />
regarding selection-process equity, (c) preferences for selection methods, (d)<br />
group experiences, (e) beliefs about general group effects on course outcomes,<br />
(f) beliefs about specific course outcomes resulting from group assignment, (g)<br />
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content knowledge from the selection process, (h) recommendations for future<br />
use of the method, and (i) previous exposure to cognitive-style assessment.<br />
The CSM method was developed and utilized to provide students with<br />
substantive experience in working with individuals who they were not likely to<br />
select on their own, and whose preferred manner of interaction and information<br />
processing differed substantially from their own. This evaluation seeks to<br />
determine the following: (a) how well the method performs with regard to its<br />
impact on student performance in group projects, and in class overall; (b) how<br />
well it prepares students to work on and manage teams; (c) how students<br />
compare it to alternative group-selection techniques; and (d) whether it adds an<br />
element to the students’ training that otherwise would not be provided.<br />
FINDINGS<br />
To assess the performance of the assignment method, I draw upon two<br />
sources of information: student assignments and course grades, and student<br />
surveys. Table 1 presents a side-by-side comparison of student scores on group<br />
assignments, and their final scores in two courses that were taught by the same<br />
instructor, but that alternately used the CSM method. An introductory policy<br />
course and a specialization course in evaluation methods are the two subjects<br />
compared. In each pair-wise comparison, whether it is of the assignment or the<br />
final grade, the scores for each class using and not using CSM are similar, with<br />
some higher and some lower. However, in each case where CSM was used, the<br />
standard deviation of the score was smaller than when it was not used, which<br />
indicates more consistent outcomes. For example, in the evaluation course, the<br />
standard deviation for student scores on assignment two — when CSM was not<br />
used — was 6.11, compared to 2.67 when CSM was used. The evaluation<br />
course involved more frequent group interaction on multiple tasks, and<br />
provided greater opportunity for the lessons of CSM to be reinforced, than did<br />
the policy course. (Note: the economic development course also provided more<br />
Table 1.<br />
Comparison of Assignment and Course Grades With and Without CSM.<br />
Note. CSM = Cognitive Styles Matching<br />
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Introductory Policy Class Specialization Evaluation Class<br />
2006 2007<br />
2007 2006<br />
Assign.1 Assign.2 Assign.1 Assign. 2<br />
Selection Method Self-Select CSM Self-Select Self-Select CSM CSM<br />
Group Score Mean 89.98 89.18 87.75 93.0 91.86 91.86<br />
Std. Deviation 5.28 5.08 6.11 5.81 2.67 2.97<br />
Final Course Grade Mean 88.21 87.87 90.46 91.15<br />
Std. Deviation 10.88 7.94 6.56 3.12<br />
N = 40 N = 22 N = 7 N = 7 N = 7 N = 7
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
Table 2.<br />
Student Perceptions of the Group Selection’s Effect on Grades<br />
Course N<br />
Can Group<br />
Assignment<br />
Affect Course<br />
Grades?<br />
Did Group<br />
Assignment<br />
Affect This<br />
Course Grade?<br />
CSM<br />
Improved<br />
Group<br />
Grade<br />
CSM<br />
Improved<br />
Course<br />
Grade<br />
Program Evaluation (Mean) 7 100% 28.6% 42.9% 42.9%<br />
Positive 42.9%<br />
No Effect 42.9%<br />
Negative 14.3%<br />
Economic Development (Mean) 10 90% 30.0% 50.0% 40.0%<br />
Positive 50.0%<br />
No Effect 30.0%<br />
Negative 20.0%<br />
Public Policy Process (Mean) 22 90.9% 9.5% 31.8% 22.7%<br />
Positive 42.9%<br />
No Effect 23.8%<br />
Negative 33.3%<br />
Note. All % = % of Students Who Responded Yes<br />
frequent group interaction, although it is omitted in this table because the CSM<br />
technique was used each time the course was offered, thus providing no<br />
comparison data for consideration.) (See Table 1.)<br />
There does not appear to be a substantial impact on grades, except that<br />
grades are more consistent across the groups when CSM is employed.<br />
Following the literature noted earlier, this probably suggests more consistent<br />
problem-definition and objective-framing as a result of the group assignments.<br />
Turning to survey responses, students receiving the CSM treatment were asked<br />
to provide their perceptions of the method’s impact on their assignment and<br />
course grades. These survey results are reported in Table 2. All in all,<br />
responding students believe that group assignments can impact their grade in a<br />
course. In the three classes surveyed, more than 90 percent of students<br />
indicated that their group assignment could impact their course grade. Further,<br />
when asked how their group assignment in that particular course affected their<br />
grade, most indicated that their group assignment had a positive effect (from<br />
43 to 50 percent) or no effect (from 24 to 43 percent), while fewer reported a<br />
negative effect on their course grade based on their group assignment (from 14<br />
to 33 percent). Students then were asked about the CSM method in particular,<br />
and its effects on group grades. Between 32 and 50 percent of respondents<br />
indicated that the CSM improved their group assignment grades, while 23 to<br />
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Table 3.<br />
Student Perceptions About the Value of CSM and Cognitive Styles<br />
for Public Service Training<br />
Note. *1 = No Effect; 5 = Very Strong<br />
**1 = Not at All Valuable; 5 = Very Valuable<br />
All % = % of Students Who Responded Yes<br />
43 percent thought it did not affect their course grade. On average, most<br />
students found that their group assignments resulting from the CSM process<br />
had positive to neutral effects on grades. (See Table 2.)<br />
A second outcome of interest is the content-knowledge students gained,<br />
regarding cognitive styles and working with others, as a result of the CSM<br />
assignment and group process. Table 3 presents students’ perceived value of the<br />
CSM method for their public-service training, and the value of their<br />
introduction to cognitive styles in terms of ability to work with others.<br />
Students receiving the CSM treatment were asked to indicate how much the<br />
individuals that comprised a group’s membership affected work quality. On a<br />
scale of 1 to 5, with 5 being the strongest effect, students in each treatment<br />
group reported that they believed group membership affected work quality. (See<br />
Table 3.) Ranging from 4.5 (public policy) to 4.8 (economic development),<br />
students readily acknowledged that their group membership affected the quality<br />
of their work. Students next were asked about the value that cognitive styles<br />
information provided to their public-service training. Response options ranged<br />
from not valuable to very valuable, on a scale of 1 to 5, again with 5 being very<br />
valuable. Students in each class responded that the value of the information to<br />
their public-service training was above average. Scores ranged from 3.1 (public<br />
policy) to 4.0 (economic development). Students were asked to indicate (yes/no)<br />
whether the CSM process generally improved their ability to work with others<br />
504 Journal of Public Affairs Education<br />
Program<br />
Evaluation<br />
Economic<br />
Development<br />
Public Policy<br />
Process<br />
People in Groups Affect Work Quality* 4.7 4.8 4.5<br />
Value of CSM Information<br />
to Your Public Service Training**<br />
CS Matching Improved My Ability to Work<br />
with Others on Class Projects<br />
CS Intro Improved My Ability to Relate<br />
to Others in Group-Oriented Work Settings<br />
CS Intro Enabled Me to Work<br />
With My Group in This Class<br />
CS Intro Will Enable Me<br />
to Manage Team Efforts as a Public Manager<br />
3.7 4 3.1<br />
57.10% 80% 54.50%<br />
71.40% 77.30%<br />
71.40% 72.70%<br />
90.90%<br />
N = 7 N = 10 N = 22
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
on class projects. Again, most students responded yes, with about 55 percent<br />
giving that response for public policy, 57 percent for program evaluation and 80<br />
percent for economic development.<br />
The economic development course was surveyed first, and more questions were<br />
added to the instrument before it was distributed to subsequent classes, in order to<br />
enhance the quality of information regarding this outcome. Students in program<br />
evaluation and public policy courses were asked if the introductory material<br />
improved their ability to relate to others in group-oriented work settings, and<br />
whether the introductory material enabled them to work with their group in that<br />
class, specifically. Both groups responded yes to both questions, with favorable<br />
responses ranging from 72 to 77 percent. Students in public policy were asked an<br />
additional question: “Will the introductory material enable you to manage team<br />
efforts as a public manager?” Ninety-one percent of students in this class responded<br />
positively to the question. In each instance, students acknowledged the<br />
importance of group membership and indicated that the method and<br />
accompanying material were valuable to their work in class. They also<br />
acknowledged the value of the method to their role as future public managers.<br />
I next asked a series of questions that assessed student satisfaction with the<br />
CSM technique by itself, and relative to other selection methods for group<br />
work. These results are presented in Tables 4 and 5. Do students perceive the<br />
CSM method to be fair? Again, students rated the method above-average on a<br />
scale of 1 to 5. Students in public policy courses rated the method at 3.8,<br />
while those in program evaluation rated it at 4.0, and students in economic<br />
development rated CSM at 4.1. When asked if the method should be used in<br />
future courses, students were less agreeable, though still above average. Scores<br />
on this question varied from 3.4 to 3.6 on a scale ranging from No (1) to<br />
Definitely (5) in the three treatment classes. To obtain more detailed<br />
information about student recommendations, five more-specific alternatives<br />
were posed, and respondents were asked to indicate which approaches they<br />
advocated (responses were not limited to only one alternative; students could<br />
select multiple responses as they deemed appropriate). The five alternatives<br />
posited were (a) to discontinue use of the method, (b) to continue the<br />
approach with less information and explanation, (c) to continue with more<br />
information and explanation, (d) to continue with a subsequent review of<br />
material later in the course, or (e) to continue the method with no change.<br />
The results in Table 4 show that only 14.3 to 30 percent of students<br />
recommended discontinuing the method altogether. Very few (from 0 to 14.3<br />
percent) recommended continuing with less information. Most students<br />
recommended adding additional explanation and information (20 to 43<br />
percent) or doing so at a later point in the course (10 to 41 percent). A fair<br />
number of students also recommended continuing the approach with no<br />
change (14.3 to 40 percent). (See Table 4.)<br />
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Table 4.<br />
General Student Perceptions About CSM and Its Use<br />
The argument that this method is valuable, or that students would recommend<br />
its use, is weak — unless one knows to what extent students have been exposed to,<br />
or are familiar with, cognitive styles. Students in each treatment group were asked<br />
to disclose whether they had been exposed to cognitive styles prior to this course.<br />
Available responses included the following: (a) never exposed, (b) exposed through<br />
personal research, (c) exposed in undergraduate courses, and (d) exposed in<br />
graduate courses. Students could select as many choices as were applicable.<br />
Assuming a qualitative dimension to exposure from different sources, I grouped<br />
responses into two categories: (a) those who were never exposed or only learned<br />
about cognitive styles on their own, and (b) those who learned about it in a<br />
college class as an undergraduate or graduate student. Here, the responses<br />
suggested that most students did not have substantial knowledge about cognitive<br />
styles prior to taking one of the treatment classes. A range of 55 to 71 percent of<br />
students in each class had never heard of cognitive style or had merely looked into<br />
it on their own. Only 29 to 45 percent had been exposed in an educational<br />
setting. If the technique is useful to understanding how to work with others and<br />
how to manage team efforts, and most students otherwise have no formal<br />
506 Journal of Public Affairs Education<br />
Program<br />
Evaluation<br />
Economic<br />
Development<br />
Public Policy<br />
Process<br />
Is CSM an Equitable Assignment Technique?* 4 4.1 3.8<br />
Should the CSM Technique Be Used<br />
in Future Courses?**<br />
3.4 3.6 3.4<br />
Discontinue 14.3% 30.0% 18.2%<br />
Continue With Less Information & Explanation 14.3% 0% 0%<br />
Continue With More Information & Explanation 42.9% 20.0% 22.7%<br />
Continue With a Later Review of Material 28.6% 10.0% 40.9%<br />
Continue With No Change 14.3% 40.0% 27.3%<br />
Previous Exposure to Cognitive Styles<br />
Never Exposed/Exposed Only Through Personal<br />
Research<br />
Exposed During Undergraduate or Graduate<br />
Educaton<br />
Note. *1 = Not; 5 = Very<br />
**1 = No; 5 = Definitely<br />
All % = % of Students Who Responded Yes<br />
71.4% 60.0% 54.5%<br />
28.6% 40.0% 45.5%<br />
N = 7 N = 10 N = 22
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
introduction to the material, it stands to reason that its incorporation into one or<br />
more classes in the MPA curriculum would be of value.<br />
To add further insight into students’ sentiments toward CSM and its<br />
continued use, an open-ended question enabled them to provide specific<br />
justifications for their recommendations regarding future use of the CSM groupselection<br />
method they experienced. They were asked, “Why did you make that<br />
recommendation regarding the selection method used in this course?” In the next<br />
section, the responses are reported verbatim. To make the comments more<br />
salient, they have been organized according to the positive, negative, or neutral<br />
character that they convey. These comments, especially on the positive side,<br />
demonstrated the understanding that students developed during the course. The<br />
negative comments tended to draw out the tensions experienced, but in doing so,<br />
some of the comments conveyed the content provided through the method, and<br />
readily acknowledged that different personalities did conflict. Most of the<br />
negative comments seemed to focus on a general dislike for group projects.<br />
Treatment Group Responses<br />
Positive:<br />
• Could see different personality styles that complemented other group<br />
members.<br />
• The level of comprehension was different between my group members<br />
and me, which produced better results.<br />
• Gives a better idea about teamwork when someone with a very different<br />
nature is your partner.<br />
• Unique and equitable.<br />
• Everyone in the group was not alike, so you can get alternative views.<br />
• People have different levels of cognitive strengths, and in our group they<br />
complimented [sic] each other.<br />
• I believe that personality dynamics are important to group work, and<br />
this method accounts for these dynamics and their possible negative<br />
impacts.<br />
• Everyone in our group had different styles to contribute, but we were all<br />
the same with how focused we were. Except one member.<br />
• The group fit well together; everyone did their part. There were no<br />
conflicts.<br />
• In a setting where there is little knowledge of classmates and working<br />
styles, it works great.<br />
• Seems more logical than pure randomization.<br />
• This was the easiest, most efficient group I have worked with. Might be<br />
CSM or might not …<br />
• Because a person has to learn to work with different people from diverse<br />
backgrounds with various perspectives...<br />
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Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
• It seemed to allow students to keep focused on the task at hand. When<br />
it got broad, others could bring it back into focus.<br />
• Not many instructors or students know how to utilize this method.<br />
• I know some groups found it helpful. In my group, everyone (except the<br />
slacker and plagiarizer) contributed equal and quality work.<br />
• Never had a group project run so smoothly.<br />
Negative:<br />
• Too Hard [sic] due to scheduling and limited time of grad students.<br />
• It could match “like” personalities, but work still must be done, so<br />
regardless of personalities, the team must produce.<br />
• I feel group projects create more work and should not be used. If you<br />
must use them, just use random assignment.<br />
• I would prefer not to participate in group projects.<br />
• For whatever reason, this ended up being the worst in group demands I<br />
have had — and I liked the members of my group on a personal level a<br />
lot. So I can only say that self-selection has worked better for me<br />
• Easier to work with individuals who I am more comfortable working<br />
with and those who have similar styles.<br />
• I know my classmates and I would not have chosen a slacker.<br />
• Just seems like over-thought. There are other factors to take into<br />
account (i.e. scheduling).<br />
• It was challenging to work with different personality types.<br />
• I personally had a negative experience; however, this does not mean that<br />
every time CSM is used, my experience would be negative.<br />
• I don’t like any type of group work and I think it is unnecessary at the<br />
graduate level.<br />
• Equity.<br />
Neutral:<br />
• It depends upon the alternative. It is better than random or systematic<br />
selection, but about equal with self-selection.<br />
• Group projects are tough regardless of how they are selected.<br />
Before accepting the method outright, it is useful to compare it to alternative<br />
approaches. Treatment group students were asked to compare the equity of the<br />
CSM method to alternative selection techniques. (See Table 5.) Students were<br />
asked whether CSM was more (+1) or less (-1) equitable than five alternativeselection<br />
approaches, or whether each pair was neutral with regard to equity<br />
(0). A positive response indicates agreement that CSM is more equitable than<br />
the alternative; a negative response indicates that the alternative is more<br />
equitable than CSM. For each class and each alternative-selection technique,<br />
508 Journal of Public Affairs Education
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
Table 5.<br />
CSM’s Equitability Relative to Alternative Selection Techniques<br />
CSM Is More/Less Equitable Than:*<br />
Program<br />
Evaluation<br />
Economic<br />
Development<br />
Public Policy<br />
Process<br />
Self Selection 0.71 0.30 0.09<br />
Random Assignment 0.14 0.30 0.05<br />
Seating Proximity 0.86 0.50 0.09<br />
Past Academic Performance 0.71 0.50 0.41<br />
Systematic Assignment 0.67 0.20 0.23<br />
Note. *-1 = Less Equitable; 1 = More Equitable<br />
N = 7 N = 10 N = 22<br />
the average score is positive, indicating that students who have experienced the<br />
CSM technique find it to be more equitable than the alternatives presented,<br />
including self-selection. Scores are lowest for the public policy courses, ranging<br />
from 0.05 to 0.41, while scores in the two specialization courses are higher,<br />
from 0.14 to 0.86. This difference could be the result of maturation, as<br />
students in public policy were in their first year of the program, while other<br />
students generally were in their second year of the program.<br />
Another concern that should be addressed before wholeheartedly endorsing<br />
the method is the presence of conflict. We can recall that the CSM method<br />
generates inherent conflict between individuals in the way they collect, analyze,<br />
interpret, and communicate information. The explanatory material was<br />
intended to help students recognize and overcome these differences; this was the<br />
central goal of the method. Students were asked to identify several common<br />
conflicts that arose in group project settings, including interpersonal conflict<br />
with another group member, scheduling conflicts, under-performing members,<br />
over-performing members, no conflicts, or other conflicts not listed. In the last<br />
case, students were asked to describe the conflict in an open-ended response.<br />
Students also were asked whether all group members participated equally. Table<br />
6 presents the results for each treatment class. (See Table 6.)<br />
Interpersonal conflict was relatively low, ranging from 0 in program<br />
evaluation to only 36 percent in public policy. This was a very favorable<br />
outcome, given the expectation of conflict generated by the CSM process itself.<br />
Scheduling conflict was the single greatest problem confronting the treatment<br />
groups, experienced by 50 to 71 percent of the students in each class. The freerider<br />
problem always rears its head in group assignments, and 29 to 59 percent<br />
of each class experienced a free-rider in their group. To address this concern, I<br />
integrated an anonymous group-evaluation process into all group projects that<br />
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Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
Table 6.<br />
Student Reports Regarding Conflicts Experienced<br />
enabled group members to rate their colleagues’ performances. These average<br />
participation scores then were subjected to a formula, along with the project<br />
grades, to determine each individual’s score. In my experience, students<br />
generally seemed to be very conscientious in their assessments of others’ work.<br />
Somewhat surprising was the observation that group members put forth too<br />
much effort. The appearance of leadership or over-exertion may be a<br />
manifestation of an individual’s cognitive style, or it could be the result of<br />
differences in individual academic goals. A range of 14 to 30 percent of students<br />
experienced an over-achieving group member. Only about 30 percent of<br />
students experienced no form of conflict across the groups in all three classes.<br />
And, 50 to 60 percent of students indicated that all group members contributed<br />
equally. One never knows where conflicts may arise, and while no students<br />
reported “other” conflicts in the economic development courses, 14 percent in<br />
program evaluation listed “other” conflicts, as did 23 percent in public policy.<br />
The conflicts identified were not directly related to CSM, but they provided<br />
insight into the tacit dimensions of the experience that affected group<br />
performance. The additional conflicts identified were, verbatim, as follows:<br />
• Working style affected the output.<br />
• Couldn’t agree on the final work.<br />
• Group member turned in section late.<br />
• Group member did not come to any meetings. The same group<br />
member who did not contribute.<br />
• Lack of communication.<br />
• Language barrier. Opposing ideological values.<br />
• One group member gave no effort at all.<br />
510 Journal of Public Affairs Education<br />
Program<br />
Evaluation<br />
Economic<br />
Development<br />
Public Policy<br />
Process<br />
Interpersonal Conflict With Group Members 0.0% 10.0% 36.4%<br />
Scheduling Conflict With Group Members 71.4% 50.0% 54.5%<br />
Others Put Forth Too Little Effort 28.6% 30.0% 59.1%<br />
Others Put Forth Too Much Effort 28.6% 30.0% 13.6%<br />
No Conflicts Noted 28.6% 30.0% 27.2%<br />
Equal Participation? 57.1% 60.0% 50.0%<br />
Other: 14.3% 0.0% 22.7%<br />
Note. All % = % of Students Who Responded Yes<br />
N = 7 N = 10 N = 22
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
DISCUSSION<br />
As Posavac and Carey (2003) note, surveys that seek to assess satisfaction have<br />
a place in program evaluation, but “such surveys cannot provide a sufficient<br />
means to assess the degree to which the program was effective. Some people are<br />
very satisfied with worthless treatment because they feel respected and valued by<br />
the people offering the service” (p.65). Given this difficulty, I shall attempt to<br />
consider satisfaction and value distinctly in interpreting the findings of this study.<br />
While satisfaction with the CSM method seems generally high, and while most<br />
students recommend its continued or expanded use, these observations are less<br />
important than the underlying curricular value associated with the method.<br />
Though not definitive, the results of this evaluation supply reasonable<br />
enthusiasm to continue use of CSM in an MPA program. Given the absence of<br />
problems resulting from the group-selection method itself, the continued use of<br />
CSM depends mostly on the instructor’s willingness to implement it and to gain<br />
sufficient understanding to effectively communicate personality-type differences. 1<br />
The reported results should be viewed in light of certain qualifications. First,<br />
although the survey questions emphasize the selection process itself, students<br />
completing the questionnaires may not have been able to distinguish their views<br />
concerning the group-selection process, and its attendant rationale, from their<br />
composite group experience in the course. Second, as revealed by the openended<br />
comments, many students show a general distaste for group assignments<br />
that may be latent in the findings. Future research should attempt to isolate<br />
student preferences regarding group work (versus independent assignments)<br />
from the group-selection method and the assignment content. The curricular<br />
benefit of the CSM process to public service education must be weighed as well.<br />
Students learn about their own preferences for collecting, processing, and<br />
communicating information. They learn how to work with others whose<br />
preferences differ, and they gain insight into the role of organizing and<br />
managing team efforts either internally, or through external networks.<br />
To what extent should the CSM process be used in a public service graduate<br />
program? It certainly is not necessary to use the CSM method in every graduate<br />
course. Yet, repetition in different groups may improve and reinforce students’<br />
understandings and their ability to interact with others. To be most effective,<br />
the CSM procedure should be used in at least one core course, so as to expose<br />
all students in the program at least once. Well-attended, general courses have the<br />
added benefit of creating larger groups that better represent all eight ends of the<br />
cognitive-styles spectrum.<br />
REFERENCES<br />
Armstrong, S.J. (2000). The influence of individual cognitive style on performance in management<br />
education. Educational Psychology, 20(3), 323-339.<br />
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Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
Agranoff, R., & McGuire, M. (1998). Multinetwork management: Collaboration and the hollow state<br />
in local economic policy. Journal of Public Administration Research and Theory, 8(1), 67-91.<br />
Hayes, J., & Allinson, C.W. (1998). Cognitive style and the theory and practice of individual and<br />
collective learning in organizations. Human Relations, 51(7), 847-871.<br />
Heimovics, R.D., & Herman, R.D. (1989). The salient management skills: A conceptual framework<br />
for a curriculum for managers in nonprofit organizations. American Review of Public<br />
Administration, 19(4), 295-312.<br />
Kahn, W.A. (1995). Group process checkpoints for team learning in the classroom. Journal of Policy<br />
Analysis and Management, 14(2), 310-326.<br />
Kettl, D.F. (2006). Managing boundaries in American administration: The collaboration imperative.<br />
Public Administration Review, 66(Suppl.6), 10-19.<br />
Leonard, D., & Sensiper, S. (1998). The role of tacit knowledge in group innovation. California<br />
Management Review, 40(3), 112-132.<br />
McGuire, M. (2006). Collaborative public management: Assessing what we know and how we know<br />
it. Public Administration Review, 66(Suppl.6), 33-43.<br />
O’Conner, S. (1992). Patterns of psychological type among health care executives. Hospital and Health<br />
Services Administration, 37, 431-447.<br />
Posavac, E.J., & Carey, R.G. (2003). Program evaluation: Methods and case studies (6th ed.). Upper<br />
Saddle River, NJ: Pearson Education, Inc.<br />
Reineke, S. (2001). Teachable moments: Teaching teamwork through research. Journal of Public Affairs<br />
Education, 7(3), 153-160.<br />
Sadler-Smith, E., & Badger, B. (1998). Cognitive style, learning and innovation. Technology Analysis &<br />
Strategic Management, 10(2), 247-266.<br />
Schumaker, A.M. (2005). In search of a model for effective group projects: From the MPA student<br />
perspective. Journal of Public Affairs Education, 11(1), 21-34.<br />
Simon, H.A. (1987). Making management decisions: The role of intuition and emotion. Academy of<br />
Management Executives, 1(1), 57-64.<br />
Volkema, R.J., & Gorman, R.H. (1998). The influence of cognitive-based group composition on<br />
decision-making process and outcome. Journal of Management Studies, 35(1), 105-121.<br />
FOOTNOTES<br />
1 There are numerous training programs that provide certification in the official Myers-Briggs Type<br />
Indicator and its use; they range from around $1,000 to $2,000. I do not use the official<br />
instrument in my course; I use a shorter version to save time. I had the added benefit of learning<br />
the technique in one of my graduate courses and have used it extensively since. Those who have<br />
not had this benefit may find an official weekend training course to be the best approach to<br />
quickly adopting the method.<br />
AUTHOR NOTE<br />
I wish to express gratitude to Dr. Edward T. Jennings of the University of<br />
Kentucky for comments on the research design, and to Jim Slack and Akhlaque<br />
Haque, of the University of Alabama at Birmingham, for allowing me to use<br />
their classes as comparison groups to inform the study. This study was approved<br />
under UAB IRB protocol #X061120005. Preliminary findings were presented at<br />
512 Journal of Public Affairs Education
Cognitive Styles Matching: Expanding the Efficacy of Group Work in MPA Courses<br />
the 2007 NASPAA conference in Seattle, WA. Correspondence concerning this<br />
article should be sent to Jeremy L. Hall, Ph.D. at 800 West Campbell Rd.<br />
WT17, Richardson, TX 75083-0688 or Jeremy.Hall@utdallas.edu.<br />
Jeremy L. Hall, Ph.D., is Assistant Professor of Public Affairs at the University<br />
of Texas at Dallas. His research focuses on issues at the nexus of public policy,<br />
economic development, and public management — including public sector<br />
performance and capacity. His research has earned awards from NASPAA and<br />
the Southeastern Conference of Public Administration.<br />
Journal of Public Affairs Education 513
The Return of Public Relations to the Public Administration Curriculum?<br />
The Return of Public Relations<br />
to the Public Administration Curriculum?<br />
Mordecai Lee<br />
University of Wisconsin-Milwaukee<br />
ABSTRACT<br />
There are increasing indications that public relations is slowly returning to the<br />
public administration curriculum. This was a common topic in early public<br />
administration literature, but by the second half of the 20th century it had<br />
largely disappeared from widely used textbooks. Now, with the increased power<br />
of the news media and other rapidly growing and changing alternative<br />
communications venues that define this information age, public relations is<br />
again relevant for future public managers. This article summarizes research<br />
results about these trends, based on a survey of the literature. It presents the<br />
historical and contemporary normative case for including public relations in the<br />
MPA curriculum, and synthesizes these results to provide suggestions for<br />
pedagogic approaches.<br />
INTRODUCTION<br />
We live in a media-drenched era. The news media (and subsequent offshoots<br />
such as the blogosphere) dominate the metaphorical town square and drown out<br />
other voices and venues for public discussion. Once the news media has framed<br />
an issue (i.e., given it a spin that the press pack accepts as conventional<br />
wisdom), it is very hard to change any public debate. If the media portrays<br />
something as a crisis, then it is. And any public servant who openly disagrees<br />
with the latest media narrative gets pigeonholed as a rigid bureaucrat who is out<br />
of touch with reality. Conversely, if the media decides a topic is unimportant,<br />
then it can be very hard for a government manager to get that issue on an<br />
agenda of public attention (Kalantari, 2001).<br />
This article contends that, based on research results, public relations appears<br />
to be returning to the curriculum of public administration. The context for<br />
this shift is the greatly increasing role, power, and influence of the news<br />
media, plus alternate mass communication methods, on 21st-century<br />
democratic governance. Therefore, due to a variety of causes that include new<br />
technologies and societal changes, the next generation of public servants will<br />
need training, not only in the traditional short list of management skills and<br />
JPAE 15(4): 515–533 Journal of Public Affairs Education 515
The Return of Public Relations to the Public Administration Curriculum?<br />
democratic theory, but also in media relations, public relations, and other<br />
forms of external communications.<br />
The underlying premise of public administration is that management in the<br />
public sphere is qualitatively different from a similar role in the private sector,<br />
because of the inherent differences between the two sectors. One of the<br />
characteristics that differentiates the public and private sectors is the role and<br />
power of the news media and, more generally, the importance of external<br />
communication as an element of management. For business managers,<br />
cooperating with the news media and engaging in external communications is a<br />
choice. For public administrators it is a requirement. Freedom of the press and<br />
freedom of information laws compel civil servants to be accountable to the news<br />
media and the public-at-large. Unlike their business and nonprofit cousins, they<br />
must be transparent (Fairbanks, Plowman, & Rawlins, 2007; Liu & Horsley,<br />
2007, pp.378-381; Roberts, 2006; Graber, 2003, pp.6-13).<br />
STRAWS IN THE WIND: RECENT DEVELOPMENTS INDICATE INCREASED<br />
ATTENTION TO <strong>PUBLIC</strong> RELATIONS IN <strong>PUBLIC</strong> ADMINISTRATION<br />
The rise and fall of public relations in public administration textbooks was<br />
documented by Lee (1998). By 1992, Waldo (1992) observed that interest in<br />
external (as well as internal) communications in public administration was “a<br />
significant but neglected topic” (p.xi). However, a decade after Lee’s state-of-thefield<br />
review, this inquiry indicates that external communications is beginning to<br />
reappear in public affairs pedagogy. There are three indicators of this apparent<br />
trend in academic literature: (a) recent publications in JPAE, (b) other recent<br />
research-based literature, and (c) availability of new pedagogic materials.<br />
One indicator for reconsidering the importance of public relations in public<br />
administration education is that several JPAE contributions have included the<br />
topic of public relations when discussing public administration pedagogy, even if<br />
it lacks that nomenclature. According to Peters (2009, p.15), when presented<br />
with potential curricular changes, MPA students in a capstone course wanted<br />
public relations training the most. Raphael and Nesbary (2005) focused on<br />
strategic communications, a broader topic that includes external communications<br />
within its rubric. Kirlin (2005) viewed communication as one of three civic skills<br />
that public managers needed. Klingner and Washington (2000) identified “the<br />
need to find ways to influence public policy decisions” (p.41) as part of a global<br />
approach to public administration training. Aristigueta (1997) emphasized the<br />
importance of interpersonal communication skills, which encompasses, of course,<br />
external communications. Other pedagogic topics discussed in JPAE that overlap<br />
with external communications include Kim and Layne’s (2001) discussion of egovernment,<br />
Dawes (2004) regarding information technology, Reddy (2000) on<br />
crisis management, and Fontaine (1998) suggesting the value of a mass-mediarelated<br />
course project as an effective hands-on instructional tool.<br />
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A second indicator of renewed attention to the subject of public relations is an<br />
increase in research published as academic literature. However, much of it<br />
emanates from communications- and public-relations-based academic<br />
researchers, rather than those specifically in public administration or its related<br />
disciplines. Liu and Horsley (2007) are in the midst of a longer-term project to<br />
develop a theoretical and operational model of the external communications of<br />
government, and already have published the theoretical model they are<br />
examining and testing. Diana Knott Martinelli (formerly Diana Knott), with<br />
David Martinelli (D. Knott & D. Martinelli, 2005; D.K. Martinelli, 2006)<br />
researched public information activities of government agencies, especially in the<br />
area of transportation. Fairbanks, Plowman, and Rawlins (2007) developed a<br />
model for transparency in government communication, and Motschall and Cao<br />
(2002) analyzed the public information role of police departments. Focusing on<br />
public relations in the subfield of public health, Wise (2002-03, 2001) has<br />
examined links between public relations and organizational effectiveness, and<br />
proposed a larger research agenda for examining public relations in public health.<br />
Several European-based academic sources, also in communications<br />
departments, have been interested in external government communications<br />
during the first decade of the 21st century. Øyvind Ihlen at the University of<br />
Oslo (Norway), a member of the Editorial Review Committee of Public<br />
Relations Review, has been an adviser to the national government on public<br />
relations policies, and recently has assisted in developing a new policy on<br />
governmental external communications (Ø. Ihlen, personal communications,<br />
November 14, 2007 – December 13, 2007). Dave Gelders (2005, 2006) at the<br />
Catholic University of Leuven (Belgium) and several of his colleagues (Gelders,<br />
Bouckaert, & van Ruler, 2007) have published extensively on government<br />
communications, especially about conveying governmental intentions during<br />
the public policy development process. Also, two Israeli faculty members issued<br />
a guidebook for cities and countries on crisis management media strategies<br />
(Avraham & Ketter, 2008).<br />
However, there also has been a recent increase in published scholarship<br />
regarding government public relations by faculty in public administration and<br />
related fields, although it is more modest than that from communications<br />
faculty. A study of senior public administrators at the state government level<br />
noted that “About half the administrators’ time is devoted to internal matters;<br />
about half is spent on external relations” (Bowling & Wright, 1998, p.435).<br />
Kaufman’s career-summarizing overview of the role of public administration in<br />
modern society included observations about the importance of the news media<br />
to modern public administration:<br />
Many of them [modern day reporters] assume they have a special<br />
responsibility for illuminating everything in government and politics,<br />
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and that everything in these fields is therefore fair game. … What they<br />
publish can profoundly affect the fortunes of those they write about.<br />
Everybody is aware of their power, administrative agencies no less than<br />
the others. Agencies therefore work hard to keep on good terms with<br />
the members of the fourth estate (Kaufman, 2001, p.29).<br />
Swoboda (1995) published the results of his research on media coverage of<br />
local government budgeting. LaPorte and Metlay (1996, p.344) discussed the<br />
importance of external relations in a government agency’s effort at<br />
accomplishing trustworthiness. Several chapters in the Garnett and Kouzmin<br />
(1997) handbook on the larger topic of administrative communication<br />
specifically discussed public relations. While not based in academia, Library of<br />
Congress researcher Kevin Kosar (2005) has tracked Congressional efforts to<br />
control the external communications activities of Federal agencies. Weiss<br />
(2002), who started her academic career in business administration, also wrote<br />
about public information as a tool of modern governance.<br />
Several academic researchers from public administration have published work<br />
on subjects closely related to external communications, such as freedom of<br />
information and government transparency. Probably the most prominent is<br />
Roberts (2006), who won several awards for his book, Blacked Out: Government<br />
Secrecy in the Information Age, which offers an international perspective. He also<br />
published articles on media coverage of government, the relationship between<br />
New Public Management and information, and the increasing limitations on<br />
access to information (Roberts, 1997, 2000, 2005). Focusing more specifically<br />
on the U.S., Piotrowski (2007; Piotrowski & Van Ryzin, 2005; Piotrowski &<br />
Rosenbloom, 2002) researched the federal Freedom of Information Act (FOIA)<br />
and transparency in American governments. Finally, Holden (1996) observed<br />
that “The potential interconnection between public opinion and the success of<br />
public administration is one of the most profound realities to which political<br />
science may yet direct new attention” (p.35). The non-refereed monthly<br />
publication PA Times, put out by the American Society for Public<br />
Administration (ASPA), featured two articles in mid-2008 on government<br />
public relations (Cohen, 2008; Survey on Government Communicators, 2008).<br />
Given ASPA’s membership base of both academics and practitioners, these<br />
recent articles are another indicator of the reemergence of this subject on the<br />
public administration agenda.<br />
The third sign that public relations apparently is returning to the public<br />
administration curriculum is found in pedagogic literature. Waugh and Manns<br />
(1991; Manns & Waugh, 1989) made the case in the late 1980s and early 1990s<br />
for the importance of including communications (both external and internal) in<br />
MPA curricula. Similarly, Garnett (1992, p.xv; 1997, pp.764-765) argued twice<br />
in the 1990s to incorporate communications into the MPA curriculum.<br />
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Shifting from a general, pedagogic focus on communication to the narrower<br />
topic of external communications, one of the 1998 joint committee<br />
recommendations by NASPAA and the American Political Science Association<br />
(APSA) Section on Public Administration was that “Those involved in shaping<br />
public administration curricula should work to ensure that managers more fully<br />
understand how to get their message out to the media” (Thompson, 1998, p.4).<br />
Alongside pedagogic literature, there also has been an increase in the<br />
availability of pedagogic materials that relate to using public relations in public<br />
administration. Most of them come from practitioners or “pracademics.”<br />
Overviews with a “how-to” bent offer some relatively recent examples, such as<br />
publications by the Federal Communicators Network (2001), the International<br />
City/County Management Association (2003), and the California Association of<br />
Public Information Officers (Krey, 2000). The International City/County<br />
Management Association (2002) recently issued a publication that focuses more<br />
narrowly on crisis communications. While not specifically targeted to<br />
government, Brown’s (2002) “how-to” on public appearances is an example of<br />
current applied literature that also is relevant to public administrators in<br />
training. Finally, two recent textbooks on (or including) government public<br />
relations were issued by commercial publishers, which is a significant marketbased<br />
signal of increased interest in the subject (Fitch, 2004; Lee, 2008a).<br />
REALITY CHECK: EXAMPLES <strong>OF</strong> RECENT INNOVATIVE PRACTICES IN<br />
GOVERNMENT <strong>PUBLIC</strong> RELATIONS<br />
Pedagogy in government public relations needs to be grounded in the “real<br />
world” of practice. Therefore, in contrast to the preceding academically based<br />
review, this section briefly highlights a few tangible examples of innovative<br />
practices that demonstrate how public relations can contribute to the “doing”<br />
side of public administration.<br />
Generally, there are two categories of government public relations (PR):<br />
pragmatic and democratic. The first one — pragmatic — enlists the practical<br />
uses of external communications to help accomplish the substantive mission of<br />
an agency. A columnist in the New York Times concisely stated the premise of<br />
this orientation: “No matter how lofty the aims of a government program, it<br />
usually won’t make a difference if people can’t understand it” (Leonhardt, 2007,<br />
p.C9). Some examples of pragmatically using PR to help promote the core<br />
mission of an agency include the following:<br />
• While not required, the U.S. Internal Revenue Service (2008) mailed to<br />
all taxpayers an informational sheet about economic stimulus payments<br />
being issued in mid-2008. This helped taxpayers understand the<br />
program, the amount of the check they would receive, and when they<br />
would receive it.<br />
• Rather than relying solely on post-hoc, criminal-justice-type<br />
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enforcement, the Virginia Department of Health used a preventative<br />
strategy to promote a law prohibiting sex with minors. It used<br />
billboards, coasters, cocktail napkins and postcard-sized messages as part<br />
of a widespread public information campaign to remind potential<br />
offenders about the law and its consequences (Jenkins, 2004).<br />
• The <strong>National</strong> Highway Safety Administration spent $7.5 million on an<br />
advertising campaign targeted at teenagers, with the goal of convincing<br />
them not only to wear seat belts, but also to learn the benefits of using<br />
seat belts (Thomas, 2008).<br />
• To implement the new Medicare drug-benefit program, the U.S.<br />
Department of Health and Human Services (2005) ran paid<br />
advertisements in the nation’s major newspapers to alert seniors about<br />
an upcoming TV program that explained the new benefit plan.<br />
• The legal responsibility of the U.S. Labor Department’s Employee<br />
Benefits Security Administration is that it “protects the integrity of<br />
pensions, health plans, and other employee benefits for more than 150<br />
million people.” Hence, it did not deal directly with citizens, only with<br />
plan managers and corporations. Yet, in the spirit of that legal mission,<br />
it posted an online retirement planning calculator that any citizen could<br />
use. The device won critical acclaim from the Wall Street Journal, which<br />
judged it as “one of the best” of all the tools available to people as they<br />
plan for retirement (Ruffenach, 2008, p.2).<br />
The second category of government PR activities relates to public<br />
administration’s general role of promoting democracy. Some examples of using<br />
external communications to further the democratic role of public administration<br />
include the following:<br />
• In 2007, a professional association of Canadian accountants released<br />
results of a best practices survey of democratic reporting throughout the<br />
Canadian public sector — especially public reporting incorporating<br />
performance results data (Canadian Comprehensive Auditing<br />
Foundation, 2007).<br />
• In 2008, the U.S. Office of Management and Budget (2008) and the<br />
Treasury Department, as a way to inform the public on the long-term<br />
consequences of current budget trends, issued an eight-page summary of<br />
fiscal trends in the Federal government.<br />
• While rebuilding a bridge that collapsed in Minnesota, the state’s<br />
Department of Transportation realized that the work site would be of<br />
high interest to citizens. Therefore, it arranged with the construction<br />
contractor to conduct “Sidewalk Superintendent” tours every Saturday<br />
during the rebuilding process. This way, citizens could become better<br />
informed about seeing their tax dollars at work (Davey, 2008).<br />
These examples demonstrate the vitality of the practice of government public<br />
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relations and its centrality to both the pragmatic and democratic missions of<br />
public administration. They are intended as concrete indicators regarding the<br />
utility of public relations in the PA curriculum.<br />
THE NORMATIVE CASE FOR <strong>PUBLIC</strong> RELATIONS IN TRADITIONAL MANAGEMENT<br />
AND <strong>PUBLIC</strong> ADMINISTRATION LITERATURE<br />
In preceding sections, this inquiry has identified contemporary writings and<br />
examples indicating the apparent re-recognition of the value that public<br />
relations brings to public administration. However, given that PR used to be<br />
viewed as an important topic (Lee, 1998), it may be helpful to summarize<br />
earlier normative literature, even though it gradually faded from widespread<br />
contemporary attention. Barnard (1938/1982), one of the earliest management<br />
theorists, argued that if “one examines all the acts of any person for even one<br />
day it will be at once evident in nearly all cases that many of these acts are<br />
outside any system of coöperation [sic] … In addition it appears necessary to<br />
regard as a part of an organization certain efforts of many persons not<br />
commonly considered ‘members’”(pp.70-71, emphasis original).<br />
In a recent edition of a seminal study of decision-making in all large<br />
organizations, Simon (1997) noted:<br />
Observation indicates that, as the higher levels are approached in<br />
administrative organizations, the administrator’s “internal” task (his<br />
relations with the organization subordinate to him) decreases in<br />
importance relative to his “external” task (his relations with persons<br />
outside the organization). An ever larger part of his work may be<br />
subsumed under the heads of “public relations” and “promotion.” The<br />
habits of mind characteristic of the administrative roles at the lower and<br />
higher levels of an organization undoubtedly show differences<br />
corresponding to these differences in function (p.294).<br />
Addressing the same question from the public relations perspective, Grunig<br />
(1992) estimated that corporate CEOs spend 25 to 75 percent of their time on<br />
external relations (p.236). According to two other public relations researchers,<br />
“Some executives say they now spend as much as 50 percent of their time<br />
attending to issues management, either in the form of government relations,<br />
dealing with regulatory matters, or social responsibility programs” (Gaunt &<br />
Ollenburger, 1995, p.202). Shifting specifically to public administration literature,<br />
the normative value of public relations often was noted in mid-20th-century<br />
writings. In 1941, Mosher emphasized that “In a democracy the importance of<br />
public relations can hardly be overstressed. … On the whole, public authorities<br />
have signally failed to keep their ‘masters,’ the public, acquainted with their<br />
enterprises and the problems for which they are responsible” (1941, pp.3-4). In<br />
outlining the responsibilities of a senior administrator, Stone (1945) argued that<br />
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“external affairs” was one of the key roles of an agency head. For him, the measure<br />
of an executive’s success was providing the agency with “a favorable climate within<br />
which to function,” which was accomplished largely through “outside<br />
responsibilities” (p.58, emphasis added). Gulick (1948) concluded that one of the<br />
15 lessons learned from World War II was that “The support of public opinion is<br />
essential for good administration,” and therefore successful government<br />
management must include “a continuous process of taking the public into one’s<br />
confidence” (pp. 110-111). In 1949, Fesler (2008/1949) theorized that Federal<br />
regional directors had three important roles, one of which was “to be the principal<br />
contact man [sic] or public relations man [sic]” (p.82) for the region.<br />
During that time, the discipline launched a major effort to use case studies as<br />
a focal point for public administration pedagogy. In the 1950s, one of the<br />
widely used casebooks was issued by the Inter-University Case Program (ICP)<br />
and edited by its staff director, Harold Stein. He divided the broad subject of<br />
public administration into seven topics, one of which he titled “Relations with<br />
the Public” (Stein, 1952, pp.739-853). That section contained four cases (of 26<br />
in the book) and the cross-index listed several others that were relevant to the<br />
subject (p.860). A year later, ICP published another case on public relations,<br />
titled “The Regional Information Officer” (Kriesberg, 1953).<br />
Also in the 1950s, Lawton (1954) concluded that “As a public figure, the<br />
administrator is inevitably up to his ears in public relations” (p.118). Later in<br />
the decade, Redford (1975/1958) argued that, for a government agency to<br />
implement a program, citizen “support is a vital necessity for program<br />
effectiveness. Agencies must be allowed facilities for obtaining it if they are to<br />
accomplish anything for the public” (p.88). In a different piece, he broadened<br />
his generalization to encompass a wider array of public information activities,<br />
with a multiplicity of purposes: “In a democratic society each agency must bear<br />
a responsibility for informing people of the benefits and liabilities of its program<br />
and, except as required for national security or the privacy of its staff, for<br />
making its processes known to society” (Redford, 1969, p.139).<br />
Throughout his career, Dimock made the normative case that public relations<br />
was important to senior public administrators. In 1934, in one of his first<br />
publications, he began an article (in a non-refereed journal) with this statement:<br />
“The most neglected aspect of public administration is salesmanship – what is<br />
usually called, in the broader sense, public relations” (Dimock, 1934, p.660).<br />
Thirty years later, he still was trying to persuade public administration of the<br />
value in following his PR advice:<br />
1. Think of public relations simply as administrative policy, not as a<br />
separate activity.<br />
2. Watch public relations more closely than you do any other function,<br />
personnel matters included (Dimock, 1965, p.48, emphasis added).<br />
The same year as Dimock’s 1965 comments, a report to the British<br />
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government by the United Kingdom’s Royal Institute of Public Administration<br />
echoed his normative argument about the importance of external<br />
communication at the highest levels of public administration. The report called<br />
for increasing the training in public relations for senior civil servants, even<br />
though they “do not come into contact in a very direct way with the ordinary<br />
citizen, but whose activities affect almost everything the ordinary citizen does”<br />
(Ogilvy-Webb, 1965, pp.181-182).<br />
However, the literature also cautioned public administrators to be wary in<br />
their public relations practices, so as not to trigger legislative and executive<br />
hostility. Elected officials object to the term “propaganda” as opposed to<br />
“information” (the definition of which is in the eye of the beholder), and to<br />
overt attempts by a government agency to obtain and mobilize public support.<br />
Popularity with the citizenry can enhance an agency’s autonomy, thereby<br />
reducing the leverage politicians can wield over it (Carpenter, 2001, pp.344-<br />
355; Lee, 1997; Rourke, 1984, p.50; 1961, pp.183-207; Simon, Smithburg, &<br />
Thompson, 1991/1950, pp.402-422). Given that public relations can benefit<br />
the institutional interests of an agency, it must be practiced with some caution.<br />
NOMENCLATURE FOR THE 21ST CENTURY<br />
There is no commonly accepted nomenclature for this subject matter, with<br />
some of it having come and gone in popularity over the decades. Some<br />
commonly used terms include (in alphabetical order)<br />
• Communication, Communications, Public Communication,<br />
Organizational Communication, Administrative Communication,<br />
External Communication;<br />
• Information, Public Information;<br />
• Public Affairs;<br />
• Publicity; and<br />
• Public Relations, External Relations.<br />
Each of these terms has advantages and disadvantages. For example,<br />
“communication” (and its variations) often is a modern-day term for three other<br />
fields: journalism, speech therapy and rhetoric (as in the old-fashioned academic<br />
title of Speech Departments). “Information” has been largely appropriated by<br />
the subject of information technology (IT) or information studies (formerly<br />
librarianship). In the Federal government, “public affairs” is a polite synonym<br />
for public relations, with most Cabinet departments having an assistant<br />
secretary for public affairs (Lee, 2008a). However, the term can be confused<br />
with its usage in public administration, such as in the title of this publication,<br />
the Journal of Public Affairs Education (JPAE), and its sponsor, the <strong>National</strong><br />
Association of Schools of Public Affairs and Administration (NASPAA). Also,<br />
“public affairs” is widely used in the private sector as a title for corporate<br />
lobbying and PR programs (Harris & Fleisher, 2005).<br />
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“Publicity” is usually viewed as an old-fashioned and too-narrow term, while<br />
“public relations” tends to be anathema to Congress — ever vigilant to stomp<br />
out self-serving propaganda from the bureaucracy. Similarly, in contemporary<br />
popular usage, the initials PR tend to convey an unsavory, barely truthful, and<br />
manipulative meaning. Therefore, if only by process of elimination, “external<br />
relations” or “external communications” become terms that have a relatively selfexplanatory<br />
and neutral meaning. Nonetheless, this author’s preference is<br />
“public relations.” That approach is reflected in the nomenclature of most of the<br />
courses currently offered (see next section and Appendix A). When viewed<br />
literally, the term is very compatible with the term public administration. So,<br />
“public relations in public administration” does more than just focus on the<br />
maintenance of relations with audiences outside the bureaucracy. The duplicate<br />
use of the word “public” can be seen not as repetitive, but rather as highlighting<br />
the public-ness of public administration itself. If one argues that government<br />
management is a qualitatively different activity than business administration,<br />
then the focus on the public context of both public administration and public<br />
relations helps distinguish the government manager’s responsibilities from<br />
comparable counterparts in the business or nonprofit sectors (Lee, 2002). In<br />
this context, the communications and information activities of public relations<br />
in public administration would, by necessity, be different from the practice of<br />
public relations in the management of organizations in the other two sectors.<br />
CONTEMPORARY PERSPECTIVES ON THE SCOPE <strong>OF</strong> THE SUBJECT AND SAMPLES <strong>OF</strong><br />
<strong>OF</strong>FERINGS<br />
Earlier literature often focused on techniques of public relations in<br />
government, but with little context regarding why a government manager might<br />
turn to public relations to accomplish agency missions. More recent literature<br />
focuses on the purposes or objectives of public relations in public administration.<br />
In the 1990s, Baker sought to define public relations in government according<br />
to the basic goals and functions of<br />
• Political communication (i.e. to influence elected decision-makers),<br />
• Information services,<br />
• Developing and protecting positive institutional images, and<br />
• Generating public feedback (Baker, 1995, pp.456-457).<br />
At the turn of the millennium, a practitioner defined the field based on what<br />
a professional actually did, and focused on the functions or responsibilities of a<br />
public information officer, which include the following:<br />
• Monitoring media coverage,<br />
• Briefing and advising political officials,<br />
• Managing media relations,<br />
• Informing the public directly,<br />
• Sharing information across the administration,<br />
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• Formulating communication strategies and campaigns, and<br />
• Researching and assessing public opinion (Édes, 2000, pp.458-461).<br />
Finally, this author suggested synthesizing the literature into a typology, based<br />
on the purposes of external relations in government management, such as<br />
1. Media relations;<br />
2. Public reporting;<br />
3. Responsiveness to the public;<br />
4. (Outreach:) Increasing the utilization of services and products;<br />
5. (Outreach:) Public education and public service campaigns;<br />
6. (Outreach:) Seeking voluntary public compliance with laws and<br />
regulations;<br />
7. (Outreach:) Using the public as the eyes and ears of an agency; and<br />
8. Increasing public support (Lee, 2008b, pp.7-11).<br />
These items represent efforts to define the scope of the topic by enumerating<br />
what is included, but a different approach can be to focus on what is excluded.<br />
From this perspective, public relations comprises all of a government agency’s<br />
external communications except for legislative relations, client and vendor<br />
relations, contract relations, detailed financial statements, marketing, and<br />
public participation in the process of adopting new agency policies. Research<br />
results based on Internet searches and other sources identified several U.S.<br />
institutions of higher education that recently have offered courses on public<br />
relations in public administration. At the time this research was conducted, the<br />
newest course based in a public administration program was a special topics<br />
seminar in 2008-09 on “Public Information and Communication,” in the<br />
School of Public Affairs at Arizona State University. Other public<br />
administration program offerings included (a) a three-credit course on “Public<br />
Relations for Public Managers” in the Department of Public Administration at<br />
Florida International University (Miami), and (b) a course on “Public<br />
Relations,” in the MPA program at Clark University (Worcester, MA).<br />
Several other universities offered public relations courses, but they were based<br />
in communications programs rather than in public administration. The newest<br />
offering was a 2009 special topics seminar on “Public Information Strategies,”<br />
in the School of Journalism and Mass Communication at the University of<br />
North Carolina-Chapel Hill. Boston University’s Department of Mass<br />
Communication, Advertising and Public Relations provided a course on<br />
“Government Public Affairs,” and the Marketing Communication Department<br />
of Columbia College Chicago lists a course titled “Political & Government<br />
Public Relations.” Appendix A provides Web links to some of the abovementioned<br />
courses, as well as a few others, at American colleges and universities.<br />
Outside the U.S., public administration programs that recently offered courses<br />
on public relations included the School of Public Administration at Renmin<br />
University of China (course title: “Government Public Relations”), the Public<br />
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Administration Department of Yarmouk University in Jordan (course title:<br />
“Public Relations in Public Administration”), and the Department of<br />
Administrative Management at Chinese Culture University in Taiwan (course<br />
title: “Government Public Relations”).<br />
In an effort to synthesize the course examples, pedagogic literature and<br />
research results cited above, Appendix B presents a suggested course outline.<br />
SUMMARY<br />
The argument that public relations is an important part of the practice of<br />
government management originally had been made in leading textbooks and by<br />
public administration writers of the mid-20th century, but attention to the<br />
subject faded as the century progressed. However, in the past decade, the field of<br />
public administration appears to be rediscovering the importance of external<br />
communications. Some signals of this trend include references to the topic in<br />
JPAE, more published research in academic journals for public administration<br />
and communications, and an increasing amount of pedagogic materials such as<br />
publications and current course offerings. In part, these trends are reflections of<br />
the rise in importance and centrality of the news media and other<br />
communication methods vis-à-vis the public sector in the 21st century.<br />
This article has sought to synthesize these shifting trends into a contemporary<br />
case for purposes of more widely re-establishing the attention given to public<br />
relations in public administration pedagogy. It has included suggestions about (a)<br />
nomenclature, (b) the scope of the subject, (c) examples of contemporary course<br />
descriptions from U.S. post-secondary public administration and communications<br />
programs, and (d) a sample syllabus for a three-credit graduate course.<br />
REFERENCES<br />
Aristigueta, M.P. (1997). Strategy and theory for intrapersonal development in public administration<br />
education. Journal of Public Affairs Education, 3, 163-176.<br />
Avraham, E., & Ketter, E. (2008). Media strategies for marketing places in crisis: Improving the image of<br />
cities, countries and tourist destinations. Amsterdam: Butterworth Heinemann.<br />
Baker, B. (1997). Public relations in government. In C.L. Caywood (Ed.), The handbook of strategic<br />
public relations & integrated communications (pp.453-479). New York: McGraw-Hill.<br />
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Mordecai Lee is a professor of governmental affairs at the University of<br />
Wisconsin - Milwaukee. His teaching responsibilities include courses for the<br />
Master of Public Administration program. He authored The First Presidential<br />
Communications Agency: FDR’s Office of Government Reports (2005) and edited<br />
Government Public Relations: A Reader (2008).<br />
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APPENDIX A<br />
Selected Courses on Government Public Relations<br />
at U.S. Institutions of Higher Education<br />
(Items listed vertically in the following order: Course title and number; Dept. or<br />
School in College or University; Web info)<br />
Public Information and Communication (PAF 591 – Special Topics Seminar)<br />
School of Public Affairs, Arizona State University<br />
Retrieved June 25, 2009, from<br />
http://spa.asu.edu/pdffiles/syllabi/summer2008/Kaan_Syllabus_Sum08.pdf<br />
Public Relations for Public Managers (PAF 4260)<br />
Dept. of Public Administration, Florida International University<br />
Retrieved June 24, 2009, from<br />
http://029d57c.netsolvps.com/catalogsample/index.php<br />
Public Relations (MPA 3090)<br />
Master of Public Administration Program, Clark University<br />
Retrieved June 23, 2009, from<br />
http://copace.clarku.edu/courses/MPA_catalog.pdf (p. 17)<br />
Governmental Public Affairs (COM CM 734)<br />
Dept. of Mass Communication, Advertising and Public Relations; Boston<br />
University<br />
Retrieved June 25, 2009, from<br />
http://www.bu.edu/bulletins/com/item15.html#anchor8<br />
Political & Government Public Relations (54-2705)<br />
Marketing Communication Dept., Columbia College Chicago<br />
Retrieved June 21, 2009, from<br />
http://www2.colum.edu/course_descriptions/54-2705.html<br />
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APPENDIX B<br />
Suggested Course Outline<br />
In some public administration programs, courses meet once a week to cater to the<br />
needs of adult and working students. This course outline is based on that structure,<br />
with each numbered topic reflecting the subject for that once-a-week class session.<br />
However, the outline easily can be adapted for other course schedules. For courses<br />
that meet more than once a week, headings 2 through 14 describe the topic for all<br />
class sessions during that week of the semester.<br />
Part I. Introduction<br />
1. Prefatory session<br />
Review of syllabus and writing projects, housekeeping.<br />
2. The Rise of the Media<br />
The centrality of communications and the news media in politics,<br />
government, and public administration in the 21st century.<br />
3. Overview of Government External Relations<br />
The pragmatic and democratic purposes of public relations. How can<br />
various external communications programs (whether pragmatic or<br />
democratic in purpose) help an administrator accomplish the mission of<br />
the agency?<br />
4. Constitutional, Legal and Political Contexts<br />
The public context of government management. Implications of<br />
freedom of the press, transparency, and freedom of information.<br />
Political oversight of the agency’s operations. Politicians at times<br />
criticize agency public relations as self-serving propaganda rather than<br />
as helpful information.<br />
Part II. Purposes of Government Public Relations<br />
5. Media Relations<br />
The duty of public administration to cooperate with the news media,<br />
given the media’s Constitutional role as an instrument of democracy.<br />
6. Public Reporting<br />
The role of the public administrator in contributing to an informed<br />
public opinion, including accountability to the citizenry for the agency’s<br />
work and performance.<br />
7. Responsiveness to the Public<br />
Seeing the work of the agency through the eyes of other stakeholders,<br />
in order to increase awareness of how to improve the agency’s<br />
interactions with external constituencies.<br />
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8. Increasing the Utilization of Services and Products<br />
Targeted communications programs can help potential clients know<br />
about the services that an agency offers, and if they qualify.<br />
9. Public Education and Public Service Campaigns<br />
Wholesale is cheaper than retail. Convincing the public-at-large on the<br />
desirability of certain behaviors (e.g., stay in school, prevent forest<br />
fires, etc.) can reduce the costs of one-on-one services.<br />
10. Seeking Voluntary Public Compliance with Laws and Regulations<br />
Ignorance of the law is no excuse, but a pragmatic public administrator<br />
understands that disseminating helpful information to appropriate<br />
audiences on laws and regulations can increase voluntary compliance<br />
and reduce regulatory and enforcement costs.<br />
11. Using the Public as the Eyes and Ears of an Agency<br />
Typified by 911 systems, citizens can co-produce agency services. This is<br />
not limited to emergency services. Other agencies can similarly benefit<br />
from mechanisms for the public to submit relevant information, such as<br />
by reporting pothole sites, or using an elder-abuse hotline.<br />
Part III. Stepping Cautiously into the Political Minefield<br />
12. Increasing Public Support<br />
Good public relations can have the effect of increasing an agency’s<br />
popularity. This, in turn, increases the agency’s autonomy from political<br />
oversight. However, overt efforts to generate public support can trigger<br />
criticism from politicians (always welcome by the news media) that the<br />
agency is engaging in propaganda and wasting tax dollars.<br />
13. Legislative Relations<br />
This is a specialized form of external communications, given that the<br />
legislative branch controls the purse strings. Agencies must try their<br />
best to cater to legislators’ interests and concerns, while taking care<br />
not to become susceptible to improper political meddling.<br />
Part IV. Summary and Conclusions<br />
14. Summary<br />
How can a government agency benefit from public relations? What<br />
approaches can a public administrator adopt to engage in successful<br />
external relations? What approaches should be adopted? Why? What<br />
approaches should not be adopted? Why?<br />
15. Semester review<br />
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Putting Yourself in Their Shoes:<br />
The Analysis of Real-World Disputes<br />
Through Group Field Projects<br />
Roger E. Hartley<br />
University of Arizona<br />
ABSTRACT<br />
This article explains the development and use of group field projects to analyze<br />
real-world public policy disputes in a course on conflict management. In the<br />
process of learning about the evolution of disputes, their management, and<br />
techniques for resolving them, students are assigned to groups and required to<br />
analyze a local public dispute involving multiple parties. Using Carpenter and<br />
Kennedy’s (2001) book, Managing Public Disputes, and other course material,<br />
students provide a detailed analysis of the conflict’s history, identify stakeholders,<br />
and learn about the positions and interests of the disputants. After extensive<br />
analysis, students recommend a conflict management program for the dispute.<br />
During the semester, this project provides a capstone of sorts to the MPA<br />
program. Students get a firsthand look at the complexity of policy disputes, how<br />
individuals and groups approach public problems, and why some policy solutions<br />
lead to successes and failures.<br />
INTRODUCTION<br />
Courses on conflict management, alternative dispute resolution, and<br />
negotiation techniques are being taught around the world in programs that<br />
focus on peace studies, and in other traditional academic disciplines such as<br />
communications and psychology. More-applied courses on managing conflict<br />
are commonly taught in professional degree programs such as law, business, and<br />
public administration. Most courses employ a variety of traditional pedagogical<br />
techniques that use a combination of textbook reading, lectures, experts as guest<br />
speakers, and discussion of what we know from theory and research (Lewicki,<br />
1986, 1997). However, research shows that learning is often enhanced when<br />
students work together to solve problems and teach each other (Bok, 2007).<br />
Courses on conflict resolution often provide student interaction by combining<br />
traditional pedagogy with the simulated practice of conflict resolution<br />
techniques. Most instructors then integrate experiential learning techniques such<br />
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as case studies, role-play exercises (e.g., mock negotiations or mediations), and<br />
computer-assisted simulations that allow students to practice conflict<br />
management and resolution techniques (Lewicki, 1986, 2002; Saunders &<br />
Lewicki, 1995).<br />
I found many of these techniques to be very beneficial for my teaching over<br />
the years. However, as I developed my course on conflict management in the<br />
public sector, it was difficult to find appropriate pedagogical materials that<br />
applied conflict management techniques in either a public or nonprofit setting.<br />
Most textbooks and simulations focus primarily on law or business disputes and,<br />
if policy-related, are geared to the perspective of future attorneys or business<br />
leaders. I had to look a little harder for public-management-related case studies,<br />
and often cobbled together appropriate cases from online conflict resolution<br />
Web sites such as Harvard Business School, the University of Washington’s<br />
Electronic Hallway, and others. While my classes were generally effective, I<br />
wanted my students to learn more about how the real-world conflicts they<br />
might face as managers and policy-makers evolve and change. In short, I wanted<br />
them to learn by “putting themselves into the shoes of others.”<br />
This article is drawn from my experiences over the past seven years, at the<br />
University of Arizona, while teaching an MPA course titled “Conflict<br />
Management in the Public Sector.” I discuss how I developed group field<br />
projects to supplement the more traditional pedagogical techniques that are<br />
commonly used in classes. It is a capstone-like project that exposes future public<br />
and nonprofit managers to regional, real-world disputes. The paper describes a<br />
bit about my course, how and why I developed the field projects, plus their<br />
goals and methodology. I end by discussing an example of a past project and the<br />
issues and problems that have come up since assigning this and other projects.<br />
COURSE BACKGROUND AND DEVELOPMENT<br />
I have been teaching in the fields of dispute resolution and conflict<br />
management for about 10 years and my approach has evolved over time. My<br />
background and interest in conflict resolution come from my dissertation work,<br />
where I studied the implementation and impact of a court-annexed mediation<br />
on a local trial-court system. Over time, I learned more and more about conflict<br />
from seminars, training, and service work. I began teaching in the field at<br />
Roanoke College in 1999, with a senior capstone course on alternative dispute<br />
resolution that was designed for majors in political science, international<br />
relations, and criminal justice. This course used traditional methods of lecturing<br />
and negotiation/mediation simulations, but suffered a bit from the lack of realworld<br />
application and group work.<br />
After three years at Roanoke, I moved to my current position at the<br />
University of Arizona. Here, I was asked to teach an existing MPA course on<br />
conflict resolution to improve the students’ negotiation skills. Each year the<br />
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course draws 15-20, mostly MPA students. It is broader in focus than the<br />
traditional courses on negotiation and alternative dispute resolution that are<br />
found in law and business schools. The course goal is to expose students to the<br />
nature of conflict, as well as to the skills and techniques of effective conflict<br />
management that are used in public and private organizations (e.g., mediation,<br />
arbitration, and “hybrids”).<br />
When I first prepared my course, I found reading material that focused<br />
broadly on dispute resolution and that also focused on business and law. I<br />
searched long and hard for material that might be applicable to the public and<br />
nonprofit sectors. Unfortunately, there was very little written for students of<br />
public administration and policy. After some searching, I was lucky to find<br />
Carpenter and Kennedy’s (2001) book, Managing Public Disputes, which focuses<br />
on disputes with multiple parties (e.g., governments, community groups,<br />
nonprofits, and private companies). The book also offers a detailed process for<br />
analyzing existing disputes and building programs to manage them.<br />
Two-thirds of the course focuses on theory and conflict resolution<br />
techniques. It begins with conflict theory, the evolution of disputes, and the<br />
differences between private and public disputes. It then covers practical<br />
techniques for resolving conflicts, which include litigation, negotiation,<br />
mediation, arbitration, and hybrids. Readings for the first two-thirds of the<br />
course includes the early chapters of Carpenter and Kennedy (2001), a very<br />
good law school text with a broad focus on dispute resolution (Goldberg,<br />
Sander, Rogers, & Cole, 2003), and the classic book, Getting to Yes (Fisher,<br />
Ury, & Patton, 1991). The latter third of the course focuses on Carpenter and<br />
Kennedy’s (2001) process for analyzing public disputes, their method of<br />
designing and implementing a conflict management program, and the<br />
application of their process to the field study.<br />
Because a semester is not very long, some things that might be taught in non-<br />
MPA courses on negotiation have to be left out when including a project like<br />
the field study described here. Surprisingly, I have been able to cover much of<br />
what I used to with lectures and readings. However, I reduced the amount of<br />
conflict theory that I formerly presented early in the class, and left out what<br />
once was a rather lengthy discussion of litigation and its process. Choosing what<br />
to leave out can be a tough call. Again, because only so much can be taught in a<br />
semester, I decided that, when teaching future public and nonprofit managers,<br />
the practice would be of more use to them than the theory.<br />
DEVELOPMENT <strong>OF</strong> FIELD PROJECTS<br />
After teaching this course at University of Arizona for a few years, I started<br />
thinking more about the applicability of my course to the public and<br />
nonprofit sectors. Carpenter and Kennedy’s (2001) method for analyzing<br />
public disputes got me thinking about how my students might be able to<br />
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explore real-world conflict settings and learn by seeing how public disputes<br />
begin and evolve. It also could be a nice way to apply many of the concepts<br />
learned in the course. Getting to Yes teaches that, for political and economic<br />
reasons, the positions and interests of disputing parties vary, and often go<br />
unstated (Fisher, Ury & Patton, 1991). Exploring the interests behind the<br />
positions of those in disputes can sometimes provide areas of common<br />
ground. Carpenter and Kennedy (2001) note how public disputes sometimes<br />
have long histories and that they can spiral out of control if not addressed<br />
early in the process. Media reports on local conflicts are typically only the tip<br />
of the iceberg when it comes to the complexity of public disputes. Parties that<br />
seem to oppose each other may have similar interests, and parties that seem to<br />
agree may have conflicting interests. Each of these realities is commonly found<br />
in the disputes of governments and nonprofit agencies.<br />
At the beginning of each semester, I assign groups of four to six students —<br />
depending upon the class size — and provide a handout describing the<br />
assignment. (See Appendix.) They are asked to identify, analyze, and build a<br />
conflict resolution process for an ongoing, local public dispute. Public disputes<br />
are defined by Carpenter and Kennedy (2001) as “controversies that affect<br />
members of the public beyond the primary negotiators” (p. 4). They may be<br />
between “communities and their decision makers, between factions in<br />
government, between organizations, and between organizations and the public”<br />
(p. 3). According to the book, public disputes have some of the following<br />
characteristics (pp. 4-11):<br />
• Complicated networks of interests (i.e., where new parties may emerge,<br />
where parties have varying levels of expertise, different forms of power, a<br />
lack of continuing relationships, different decision-making procedures,<br />
and unequal accountability).<br />
• Procedures for resolution are not standardized (i.e., no formal guidelines<br />
exist for resolution, [though] there is an influence of government rules<br />
and regulations).<br />
• A broad range of issues (i.e., new issues may emerge, technical information<br />
may be important, and parties may have strongly held values).<br />
Public disputes can involve a plan to widen a city street into a major highway,<br />
a downtown redevelopment project, a zoning dispute between neighborhoods<br />
and developers, or a proposal to declare land as a protected wilderness area.<br />
The student groups identify conflicts that are of interest to them, and that<br />
are close enough to the university so that they might easily gain access to<br />
stakeholders. Students formally propose the subject of their projects early in<br />
the semester, in a one- to two-page document. I then see if it fits the criteria of<br />
a good field project and provide feedback. The project must be doable during a<br />
semester, and cannot create any potential harm to students or those studied.<br />
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PROJECT GOALS AND METHODS<br />
Project Goals<br />
After approval of the project, students spend the semester working together to<br />
analyze the dispute and tailor it to a conflict management program design. This is<br />
done using Part II of Carpenter and Kennedy’s (2001) book, which provides<br />
details of how to analyze the conflict (chap. 4), how to design a strategy and set<br />
up a conflict management program (chap. 5), how to adopt procedures, educate<br />
parties, and develop options (chap. 6), and how to reach and carry out agreements<br />
(chap. 7). Because it would be a very tall order for students actually to help<br />
involved parties carry out the dispute management process, I only ask that they<br />
apply the contents of chapters 4 and 5 to their particular dispute, which requires<br />
an extensive analysis of the conflict and a program designed to manage it.<br />
Project Methods<br />
The predominant methods for the field project are, in part, based on chapters<br />
4 and 5 of Carpenter and Kennedy (2001). Chapter 4 covers methods on how<br />
to analyze a public dispute. Students are asked to make a preliminary review of<br />
the conflict, to gather information about the dispute and its history, to record<br />
the information, and to assess it by using some tools provided in the chapter.<br />
Students begin their research with secondary sources that include<br />
newspapers; public and government documents and reports; and essays,<br />
editorials or public positions taken by the disputing parties. From these<br />
sources, students learn the history of the conflict and the involved technical,<br />
political, social, and economic issues.<br />
Other key sources of information are interviews with parties in the dispute and<br />
with others who may have additional information (e.g., journalists covering the<br />
dispute, public officials who have no direct interest in the dispute, and technical<br />
experts). Students contact outside parties by mail to explain the project, and to<br />
ask for their help in learning about the dispute. The letter includes information<br />
about the class, a description of the project, and requests an appointment for an<br />
interview. It also explains the nature of the interview questions, the length of the<br />
interview, how the information will be used, and the terms of confidentiality.<br />
Students ask questions designed to reveal the following: (a) the history of the<br />
conflict, (b) the stakeholders’ role in the conflict, (c) what issues are important to<br />
them, (d) what they want and why they want it, and (e) other interested parties.<br />
Carpenter and Kennedy (2001) raise many of these questions, and also describe<br />
interview techniques (pp. 74-85).<br />
Another source of data is direct observation. Some students identify events<br />
like public meetings, public hearings, or gatherings such as protests that they<br />
can attend and observe. If such a gathering is not “public” — by legal definition<br />
— then permission to attend is requested.<br />
Because students are learning about active public disputes, I emphasize that<br />
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the disputing parties are often emotionally involved. As a result, I ask that<br />
students do everything they can to remain neutral and to act as objective<br />
analysts. I discuss this point before they choose their projects, and ask them to<br />
be careful about disputes they might be involved in. When students have a<br />
personal stake in the dispute, I ask that they try a different topic, switch project<br />
groups, or take on another role within the group (e.g., analyzing secondary<br />
sources). I have learned from experience that their involvement could impact<br />
the analysis process or put them in a difficult ethical position of endangering<br />
their working relationship with others.<br />
After gathering the information, students employ Carpenter and Kennedy’s<br />
(2001) instruments to analyze the data (pp. 85-91). These include tables to help<br />
them organize the information by the following categories: (a) the disputants,<br />
(b) their issues, (c) their interests, (d) the importance of issues, (e) the sources of<br />
power and influence, (f) the positions/options for resolution, and (g) their<br />
interest in working with others. Students are then ready to write about the<br />
history, the involved parties, and their interests and positions.<br />
Once this section of the paper is complete, students use the information to<br />
design a process to resolve or manage the dispute. For this, they use class<br />
material and the later chapters of Carpenter and Kennedy (2001). In chapter 5,<br />
Carpenter and Kennedy (2001) provide advice on how to (a) define the<br />
problem, (b) identify external constraints, (c) establish a conflict management<br />
goal, (d) select a meeting structure, (e) identify process steps, (f) determine who<br />
should participate, (g) define other roles, and (h) consider other process issues.<br />
Most students take what they learned in the course, couple it with the process in<br />
chapter 5, and tailor it to their disputes.<br />
LEARNING OUTCOMES AND BENEFITS<br />
Assessment<br />
The first deliverable item of the project is the proposal, which asks students<br />
to work together to identify and communicate the nature of a public dispute.<br />
This forces them to apply their knowledge of what defines a public dispute, and<br />
to work together to identify them in the community.<br />
Once the proposal is approved, we continue learning about conflict resolution<br />
techniques in class. Throughout the semester, I set aside some class time for<br />
students to discuss their projects with the class, to ask questions of each other,<br />
and to discuss the analysis process. They learn about each project, and are able<br />
to apply what they are learning while “outside” of class to what is being learned<br />
inside the classroom.<br />
Project discussion helps students to identify and deal with potential<br />
problems that might come up during analysis. For instance, what if a<br />
party refuses to talk to group members? What if a party fears<br />
repercussions involving the information revealed in an interview? What<br />
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should a group do if the involved parties ask to see the final product?<br />
These and other questions were raised in my course, and each led to<br />
valuable teaching moments. For example, in some cases students<br />
encounter important stakeholders in the dispute who do not want to talk<br />
about it. Sometimes this is for privacy reasons, sometimes it is because a<br />
disputant is involved in litigation, and in other cases it is for strategic<br />
purposes (e.g., so that the project doesn’t alert the other side to strategic<br />
actions and interests). If a promise of confidentiality does not convince<br />
people to participate, then I ask that the students do their best to<br />
construct the disputant’s positions and interests from secondary sources,<br />
and note this in the project. Other issues and problems that I encounter<br />
are explained in the last section of this paper.<br />
Later in the semester, I require students to turn in a written report (typically<br />
30 to 50 pages), and we end the class with group presentations. One week in<br />
advance of the presentation, the groups provide each student in the class with<br />
an executive summary of their reports, so that the students can read them in<br />
advance and prepare questions. The presentations last 15 to 20 minutes, with an<br />
additional 15 to 20 minutes reserved for questions.<br />
These projects also serve as excellent hands-on assignments, because group<br />
members often end up in their own disputes (e.g., over workloads, meeting<br />
times, and other personal issues). I have found through experience that these<br />
internal conflicts provide good learning opportunities while studying the<br />
material in our course. Because of free rider and other problems, I require<br />
students to fill out an evaluation sheet that is turned in at the end of class. The<br />
information is confidential so that they feel free candidly to report their<br />
experiences (both good and bad) with other group members. I ask them to rate<br />
each person on a series of scales that address workload, cooperation, and<br />
timeliness. I also ask them to provide details on each part of the assignment that<br />
they contributed, and to report on group members who were exemplary (of<br />
good or bad traits), and to discuss challenges faced by the group.<br />
The peer evaluations are used in the project’s final grade. I first read the<br />
written assignment and assign a baseline “group grade,” which can be adjusted<br />
up or down for individuals based on the evaluations. Students named by others<br />
as major contributors might receive a final project grade that is higher than the<br />
others. Those who get very low ratings as major detractors might receive a lower<br />
grade than the group grade.<br />
Learning Outcomes and Benefits<br />
I have assigned this project over the past five years and each time it has been a<br />
success. Every project experience is different. Some groups face challenges, but<br />
each learns more about conflict. The project allows them to apply what they have<br />
learned in the first two-thirds of the course to a real conflict in the outside world.<br />
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Many important concepts about conflict are exemplified by the projects each<br />
semester. For students of public administration and policy, the projects teach (a)<br />
how power affects disputes, (b) how people win and lose, (c) how well-intended<br />
policies are adopted and yield unintended consequences, and (d) how resources<br />
can be better spent to solve problems and manage future conflicts. They see how<br />
disputes evolve and how a lack of communication can exacerbate conflict. They<br />
also learn about the impact of the lack of inclusion in decision making. Many of<br />
the projects provide examples of how a well-intended politician didn’t consider<br />
all of the potential stakeholders, only to find that a group later emerges to derail<br />
the policy during its implementation. Another important concept demonstrated<br />
by projects is the impact of history on current conflicts. People are often<br />
fighting about things that happened many years ago, and the current issue<br />
under debate may only be the tip of the iceberg in terms of addressing the<br />
conflict. In the end, the process of building a conflict management program<br />
enables students to think critically about how to form procedures when<br />
stakeholders have a role in creating the process as well as the decision.<br />
EXAMPLE <strong>OF</strong> A RECENT PROJECT<br />
Since assigning the field projects, students have analyzed more than 20 local<br />
disputes. Past projects include a major downtown redevelopment plan, a water<br />
dispute between local governments, the widening of a major road, the<br />
placement of a crematorium near a subdivision, and a plan for setting aside a<br />
forest area as a protected wilderness. I elaborate on one project and its<br />
challenges below.<br />
The Public Art Looks Like Sewage!<br />
One of the most interesting projects was a public art dispute involving local<br />
neighborhood associations, city staff members, artists, and a city councilwoman.<br />
Students discovered the dispute when a local newspaper reported that<br />
citizens were angry about a public art project installed in their neighborhood.<br />
The art was a landscape project on a thoroughfare dividing three organized<br />
neighborhoods.<br />
The design symbolized the flow of water from the desert to the city by using<br />
beautiful plants, rocks, and other landscaping. It also included pipes coming up<br />
from the ground, and going back down into it, with representations of water<br />
spilling out. The artist used brown-colored water, because water is not blue<br />
when it runs through city streets.<br />
According to the neighbors, the art started going up with very little prior<br />
notice, and then the notice that was provided said only that there would be<br />
construction in the neighborhood. As the art went up, some neighbors got<br />
angry and started calling the project ugly, because the pipes looked like they<br />
were carrying “raw sewage” and not water. Complaints fueled attention to the<br />
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dispute and a response by the city and the artists. The city defended its<br />
decision to install the art as a project that had been vetted and approved. The<br />
artists were defensive about changing details that already had been approved,<br />
and were against any alterations that might infringe upon the creativity of their<br />
endeavor. Eventually, the project was stopped so the city could decide what to<br />
do about the controversy.<br />
Like most disputes, it was reported in the newspaper as a fight between the<br />
neighbors and the city. The dispute, however, was fueled after a local city<br />
councilwoman called a public meeting in the neighborhood to hear the<br />
concerns of the neighbors.<br />
My students set out to work on the project. They identified and interviewed<br />
key stakeholders, learned about the process of selecting and installing public art,<br />
and attended public meetings. In the end they discovered, among many things,<br />
that the public art project went through a lengthy process for approval, but that<br />
this process had occurred about 10 years prior to its installation. About five<br />
years before this, Phase I of the project was completed on a section of the road<br />
to the south, and it was Phase II that was creating controversy. By the time<br />
funds became available for Phase II, 10 years had passed. This meant many of<br />
the angry neighbors were not area residents when the project was approved by<br />
the city, nor when Phase I was built. There had been no process to inform<br />
newer residents about the project, so when Phase II started they were completely<br />
surprised, they believed it was being forced upon them, and they were angry<br />
about not having a say in the matter.<br />
As my students discovered more background on the dispute, they encountered<br />
a dispute of their own along the way. They learned that the city councilwoman<br />
who called the meeting had previously backed a number of other local initiatives<br />
that had angered these neighborhoods — including a failed attempt at roadwidening<br />
and a grade-separated interchange on a major road next to the area.<br />
When my students attended a public meeting, they discovered that the<br />
councilwoman was there to champion the cause of the angry neighbors. With the<br />
best of intentions, my students stood up and identified themselves, stated that<br />
they were there to analyze the dispute, and that they hoped to help. I learned<br />
about this after receiving an angry phone message from the councilwoman, who<br />
called me unprofessional for sending my students to a public meeting. According<br />
to the councilwoman, they were not part of the neighborhood.<br />
So now there was a conflict about the study of the conflict. This led to one of<br />
the best teaching moments and learning opportunities I have experienced in<br />
years. The students and I contacted the councilwoman and attempted to find<br />
out why she was angry. Although it was a public meeting open to anyone, we<br />
apologized to her and attempted to learn more about the dispute. She later<br />
provided a full interview to my students and offered her perceptions about her<br />
role in the dispute.<br />
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After analyzing the conflict, we learned that the councilwoman had essentially<br />
called the meeting to earn back the support of her constituents, after previous<br />
decisions that had created distrust. She was up for re-election in the coming year<br />
and felt that the public art had emerged without any notice or apparent buy-in<br />
by the neighbors. In addition, when my students showed up at the meeting, they<br />
unknowingly sat on the side of the room where the public artists had been sitting<br />
and airing their concerns. So when my students spoke up with their intention of<br />
studying the conflict and helping, they were perceived to be on the same side as<br />
the artists, and not the neighbors. This prompted the angry phone call and also<br />
taught us a lesson about the appearance of bias, about the importance of notice<br />
and communication, and about how the public positions of parties can differ<br />
greatly from their private interests. We also learned that, when researching a<br />
dispute, it can affect the parties and the environment where the dispute occurs.<br />
The mere act of students showing up to study the dispute also could give some<br />
parties legitimacy and alter the well-laid plans of some stakeholders.<br />
The result of the project was eye-opening to say the least. Students were able<br />
to identify “hidden” stakeholders that the media did not interview, they<br />
uncovered the roots of the problem, and they learned about the politics<br />
associated with it. The fact that so many years had elapsed between the<br />
adoption of the art policy and its actual groundbreaking pointed to the need for<br />
an implementation plan that would involve stakeholders over time, and<br />
throughout the construction process.<br />
The outcome was decided before my students could provide any information<br />
for the disputants. A compromise was made that ended the conflict. The project<br />
was stopped and the art was dug up and moved to a park on the south-side of<br />
town. In its place, the city made amends by providing additional landscaping<br />
with a bike path, trees, desert shrubs, and flowers. The artists were unhappy that<br />
the plan as approved was altered and that Phase II of the project did not match<br />
or coincide with the artistic expression found in Phase I about a mile south of<br />
it. Citizens near the park initially objected to the “new” art in their<br />
neighborhood, but things eventually quieted down.<br />
ISSUES AND PROBLEMS<br />
In the course of the field projects, my students faced problems and<br />
challenges, but each was worth the learning experience that it produced. The<br />
projects use a method that is commonly employed in the design of conflict<br />
management programs around the country, and most of the limitations and<br />
problems are encountered in any real dispute resolution process. Still, I pay<br />
special attention to what we learn each year and consider past problems in the<br />
assignment of future projects.<br />
Here, I end with some of the challenges and issues that might come up if a<br />
reader chooses this assignment. Many of my suggestions are not necessarily the<br />
same solutions that others might have for the problems.<br />
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Remaining Neutral<br />
As an analyst of disputes, I have discussed the importance of remaining<br />
neutral. I see both sides of this issue, but impart neutrality to my students as a<br />
means ensuring that they get the best possible information by building trust<br />
when they talk to people. The disputes are ongoing and sometimes come with<br />
strong feelings. I am concerned that involved parties might not speak to the<br />
students if they think they are taking sides or are actively involved in the<br />
dispute. This is difficult for me as a teacher, because sometimes students are<br />
involved in conflict as activists, have a special knowledge of a topic, and can get<br />
access to people in the dispute. I want them to choose topics they are interested<br />
in and are passionate about. When confronting the issue of neutrality, I try to<br />
remind them of the consequences. How might the lack of neutrality affect their<br />
objectivity and the veracity of the information? How might it affect them<br />
personally if they are involved in the dispute that they are studying? I remind<br />
them that the assignment is a class project.<br />
Ethical Issues/Doing Harm<br />
As the public art example demonstrates, there are many ethical issues that can<br />
arise when implementing the field project. One is confidentiality. When<br />
learning about disputes from stakeholders, students may stumble on<br />
information that might be advantageous to other stakeholders if it became<br />
public. Information might also harm the person who provides it if they are<br />
dealing with strategic issues — such as those that an employer may not want<br />
them to discuss. As such, I ask students to be up-front with involved individuals<br />
in terms of the information they seek and how it will be used. They choose<br />
whether or not to offer interviewees confidentiality, and whether the<br />
interviewees will be able to dictate what details can be revealed.<br />
Another ethical issue or problem is that the environment of a conflict can be<br />
potentially altered by the act of studying it. One very impressive project on a<br />
plan to set aside land for wilderness provided an excellent example of this issue.<br />
In the course of identifying and contacting stakeholders, students encountered a<br />
local public official and an environmental group that were pushing for more<br />
wilderness space. The students’ further inquiries were rejected and they were<br />
politely asked not to do the project at all. After a second call by the students, a<br />
staffer for the elected official contacted me and requested that my students stop<br />
using the wilderness area plan as their project. The reason given was that the<br />
wilderness project was very “fragile” in nature and that the students might<br />
awaken the interest of the opposition at a key time in the process. The staffer<br />
said that my students would “stir the pot” by contacting the opposition to<br />
interview them. In this case, the opposing stakeholders were local ranchers, the<br />
U.S. Border Patrol, and local property owners who had criticized the plan<br />
because it might harm access to grazing, access to patrolling the border, and<br />
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impact local property values. As it turned out, the elected official was in the<br />
process of trying to get the wilderness approved and needed some element of<br />
stealth to do it. We ended up having a lengthy discussion in class about how<br />
studying something can alter it. We decided not to push further with the<br />
interviews of those who wished not to be interviewed, but because it was a<br />
legitimate public issue, we decided to go forward with the project.<br />
The interests and positions of these stakeholders were interpreted from<br />
secondary sources, and from preexisting project details that were posted<br />
prominently on Web pages. The students went on to interview the opposing<br />
stakeholders, learned more about the dispute, and turned in an excellent project.<br />
Students also have the potential of playing different sides off of one another<br />
to get information. Sometimes the fact that some stakeholders are telling one<br />
side of the story may lead others — who initially wouldn’t participate— to tell<br />
the other side. A coercive force occurs when disputing parties fear that their<br />
opinions will not be represented because they are silent. Again, this should be<br />
addressed as an ethical issue and discussed in the class. It should also be<br />
discussed with involved parties when setting the appointment to interview<br />
them. With regard to ethics, the more communication and more information<br />
provided to parties in advance of the interviews, the better.<br />
Avoiding Danger and Violence<br />
First, let me say that I have never had a project that has resulted in the harm<br />
of a student and that this is not a major worry. However, there is always the<br />
opportunity for choosing a conflict that results in danger. When screening<br />
projects, I consider this potential. For example, one proposed project idea dealt<br />
with local conflicts over illegal immigration. While there are many, many<br />
projects that could easily be undertaken to address this subject, this particular<br />
one dealt with the issue of human smuggling. I was concerned about the<br />
militancy of some potential parties and stakeholders. I also wondered if some<br />
parties would be impossible to speak to. For instance, it would be difficult to<br />
speak with those who hired illegal labor or who aided in human trafficking (e.g.,<br />
“coyotes”). So the project was not doable and it was potentially dangerous. I<br />
talked with the students about what they had hoped to achieve, I pointed out<br />
possible problems, and we decided that it would be better for them to choose<br />
another topic on the subject of immigration. The students ended up choosing a<br />
legislative issue under consideration on the subject of immigration, where they<br />
interviewed interest groups, public officials, and others.<br />
Other Pedagogical Issues<br />
While there are many other interesting problems and limitations that come<br />
up in the course of these group projects, they generally are seen as uneventful<br />
(safe), interesting, and exciting for students. I wanted to mention one additional<br />
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issue that I address each semester — which is born out of excitement. Because<br />
talented young people are working on projects related to very salient public<br />
issues, stakeholders and other interested parties get excited about seeing the<br />
results and enlisting students to help with their problems. This, of course, is<br />
flattering and exciting to the students, as well as to the faculty member. I try to<br />
address each of these issues as they come up, and take the time to deliberate<br />
with my students about what they should and should not contribute. In one<br />
case, a local journalist who had been following the story wanted to do a story on<br />
the group and have access to the group project. In another case, parties in the<br />
dispute wanted a copy of the project so they could learn more about how to<br />
approach it. Others wanted to know what other parties were thinking.<br />
In each case, there is the opportunity for the projects to be useful to others<br />
and to have an impact on the community. However, my advice is to proceed<br />
with caution. One obvious issue is what to do with information that involved<br />
parties say can appear in a report, but that also must remain confidential —<br />
even though it easily could be traced back to them. Another is the potential for<br />
plans and strategies to unintentionally be turned over to another side of the<br />
dispute. There also is the potential for a document to include errors. In each<br />
case, groundwork early in the semester helps students communicate what they<br />
are hoping to produce, what they can deliver, and what potential harm might<br />
occur. When interviewing, they should give participants a choice of what to say<br />
or not say. I ask students to consider whether they wish to call the assignment a<br />
class project that remains in the students’ and instructor’s possession, or whether<br />
it should be a document that can be requested and seen by all.<br />
CONCLUSION<br />
The development and implementation of these field projects has been among<br />
the most rewarding experiences of my teaching career. I have learned a lot from<br />
studying real-world disputes and my students have learned much more about<br />
how to approach societal problems, how to fashion public policy, and how to<br />
anticipate the consequences of decisions that they and others might make.<br />
While I go to great lengths here to point out potential problems and an example<br />
of a project that led to some added work, I should point out that the vast<br />
majority of projects begin and end smoothly, with no real glitches or issues.<br />
While I have no direct measures of project effectiveness, our course evaluations<br />
ask students to rate the effectiveness of outside assignments. Other than short<br />
reflection papers on in-class simulations, this is the only outside assignment, and<br />
it represents about 80 percent of the assignments done outside of class. The<br />
outside assignments rating averaged 4.3 (of 5). Forty-two percent of the<br />
students rated outside assignments “almost always useful,” and another 42<br />
percent rated them “usually useful.” The remaining students rated outside<br />
assignments as “sometimes useful.”<br />
Journal of Public Affairs Education 547
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The Analysis of Real-World Disputes Through Group Field Projects<br />
In this paper, I spent time explaining my methodology in hopes that others<br />
can help me improve the projects, replicate the projects, or adapt them to other<br />
courses. The project may be a useful addition to almost any course on public<br />
administration, public policy, or social work. While the project only addresses a<br />
portion of Carpenter and Kennedy’s (2001) process, I can imagine the<br />
establishment of a clinic-based course or capstone where the full semester is<br />
used to analyze a dispute, design a process, and help disputants implement the<br />
process. This would require some additional background work, or a<br />
prerequisite course on conflict management. I imagine that programs in peace<br />
studies or conflict resolution could easily add this type of course.<br />
Finally, I have learned much from the experience and foist my worries on the<br />
readers only in hope that they will not make some of the same mistakes.<br />
Projects like these require lots of monitoring and in-class discussion, and<br />
present many teaching opportunities that are sometimes as valuable as the<br />
substance of the project itself. Each semester of experience leads to better and<br />
better projects.<br />
REFERENCES<br />
Bok, D. (2007). Our underachieving colleges: A candid look at how much students learn and why they<br />
should be learning more. Princeton, NJ: Princeton University Press.<br />
Carpenter, S.L., & Kennedy, W. (2001). Managing public disputes: A practical guide for government,<br />
business, and citizens’ groups. San Francisco, CA: John Wiley & Sons.<br />
Fisher, R., Ury, W., & Patton, B. (1991). Getting to yes: Negotiating agreement without giving in. New<br />
York, NY: Penguin Books.<br />
Goldberg, S.B., Sander, F., Rogers, N., & Cole, S. (2003). Dispute resolution: Negotiation, mediation,<br />
and other processes (4th ed.). New York, NY: Aspen Publishers.<br />
Lewicki, R. (1986). Challenges of teaching negotiation. Negotiation Journal, 2(1),15-27.<br />
Lewicki, R. (1997). Teaching negotiation and dispute resolution in colleges of business: The state of<br />
practice. Negotiation Journal, 13(3), 253-269.<br />
Lewicki, R. (2002). New directions and issues in the teaching of conflict resolution. Conflict<br />
Management in Higher Education Report, 2(2). Retrieved June 27, 2009, from<br />
http://www.campus-adr.org/CMHER/ReportArticles/Edition2_2/Lewicki2_2.html<br />
Saunders, D.M., & Lewicki, R. (1995). Teaching negotiation with computer simulations: Pedagogical<br />
and practical considerations. Negotiation Journal, 11(2), 157-167.<br />
AUTHOR NOTE<br />
I wish to thank David Hatcher and James Willis for their helpful comments.<br />
I also wish to thank my current and former students, who provided the<br />
inspiration and experiences behind this paper.<br />
Correspondence concerning this article should be addressed to Dr. Roger E.<br />
Hartley, Associate Professor, School of Government and Public Policy, University of<br />
Arizona, McClelland Hall, 405MM, Tucson, AZ 85721. E-mail:<br />
rhartley@eller.arizona.edu.<br />
548 Journal of Public Affairs Education
Putting Yourself in Their Shoes:<br />
The Analysis of Real-World Disputes Through Group Field Projects<br />
Roger E. Hartley is Associate Professor and Director of the Lionel Rombach<br />
Institute of Justice at the University of Arizona’s School of Government and<br />
Public Policy. He teaches courses on conflict management, judicial<br />
administration and reform, and law and public policy. His research focuses on<br />
budget politics, intergovernmental relations, judicial selection, and trial court<br />
reform in the American judicial system.<br />
Journal of Public Affairs Education 549
Putting Yourself in Their Shoes:<br />
The Analysis of Real-World Disputes Through Group Field Projects<br />
APPENDIX<br />
The Project Description<br />
550 Journal of Public Affairs Education<br />
Group Project (Groups of 4-6)<br />
This project is designed to test your knowledge and ability to identify and<br />
analyze public disputes that may be faced by any public or nonprofit<br />
manager. Each group will identify an actual public dispute that is ongoing<br />
in the community. The assignment will be to use the Carpenter & Kennedy<br />
book (2001, chaps. 4-7) to design a process to manage this particular<br />
dispute.<br />
Note that you will be acting as an analyst here, which will require you to<br />
remain neutral. Try to find a topic that interests the group, but where you<br />
have no direct stake in the problem. If you know that you are biased<br />
toward one side or the other, try to be careful about who you interview.<br />
Ask me to share a story from past projects to highlight this problem and<br />
issue.<br />
Your group will be asked to propose your topic for approval, which will<br />
consist of a one- to two-page synopsis of the dispute. After approval you<br />
will divide the work of the project and set out to analyze the dispute's<br />
history, the involved parties, and their interests. This will require interviews<br />
of dispute parties, and the use of government documents and records, as<br />
well as journalistic sources. You will follow the steps used in Carpenter &<br />
Kennedy (2001), but will tailor it to your particular problem. In the end, I<br />
expect a document that could be handed to the parties in the dispute. This<br />
report will include all the portions noted on pages 67-69 of the book that<br />
are feasible. After analyzing the dispute, you will engage the rest of what<br />
the book teaches, but at this point you only will take the opportunity to<br />
instruct the relevant parties on how to manage the dispute through the<br />
rest of the process. In a sense, you will teach them how to manage and to<br />
resolve their dispute.<br />
The project requires approval of the topic (see above), a professional<br />
document detailing the dispute resolution program, and a presentation of<br />
your project to the class.<br />
Important dates<br />
• Project proposal due Jan. 25th.<br />
• Project Executive Summary (1-2 pages) due April 26th. Must make<br />
copies for each student in the class.<br />
• Presentations of your dispute resolution program April 28/May 3<br />
• Final Report due May 5th (last day of spring classes)
Putting Yourself in Their Shoes:<br />
The Analysis of Real-World Disputes Through Group Field Projects<br />
The Assignment<br />
The assignment for the paper is somewhat open-ended, but has minimum<br />
requirements. If you look on page 67 of Carpenter and Kennedy (2001), you<br />
will see primary sections of what they call the process for managing public<br />
disputes. There are three broad pieces to this process:<br />
1. Preparing a Plan;<br />
2. Conducting a Program; and<br />
3. Carrying Out Agreements.<br />
A project that meets the minimum requirement of the assignment includes<br />
those sections under Preparing a Plan on page 67. Of course, I do not mind<br />
if you move ahead to the latter sections of Conducting a Program and/or<br />
Carrying Out Agreements. Of course, it takes access and training to be able<br />
to do these latter parts. So, in this stage, I am comfortable with you using<br />
these sections to teach those in the dispute how to conduct a program or<br />
carry it out instead of actually doing it for them.<br />
Paper Requirements<br />
1. Executive Summary: Presents a summary of the project in one to<br />
three pages that provides an overview of each section of the paper,<br />
including any recommendations or policy ideas that you come up<br />
with.<br />
2. Analysis of the Conflict: Details of this section are found in chapter<br />
4. Subsections in this part might include an overview or background<br />
of the problem and its history, issues, parties, and their interests.<br />
This will require some research and some interviewing of parties in<br />
order to determine this. Note that chapter 4 goes into a lot of detail<br />
about interviewing and types of questions.<br />
This is a portion of the paper that should be started as soon as<br />
possible. Access can be a problem at times, and you need to prepare<br />
for this and work with it. Be courteous (as I know that you all are)<br />
and put yourself in their shoes. They are busy and you should always<br />
consider scheduling interviews in advance. When doing my<br />
dissertation interviews, I wrote a letter to the persons I wanted to<br />
speak with first and explained the project that I wanted to interview<br />
them about, and said that I would call in a week. I then called and<br />
set up an appointment.<br />
Knowledge about interview techniques is presented in the chapter,<br />
but I can point you to more quick information on this if you need it.<br />
Prepare questions in advance and prepare a few follow-ups. Make<br />
sure when interviewing to ask each participant similar questions and<br />
Journal of Public Affairs Education 551
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The Analysis of Real-World Disputes Through Group Field Projects<br />
get through the most important areas. One great additional<br />
technique is “snowballing.” At the end of the interview, ask who<br />
else you should speak with to learn more about the problem, and<br />
then schedule an interview with them.<br />
3. Conflict Management Strategy and Design: This information follows<br />
from chapter 5 in Carpenter and Kennedy (2001) as well as the<br />
information gathered in section 2 of the paper. There are eight tasks<br />
to consider here on page 93. Be sure you read these sections in<br />
chapter 5. Note that nothing will fit perfectly. This assignment is to<br />
fit the process to your problem. Note: You will be designing a<br />
program to help them deal with their conflict. You will not be<br />
resolving it for them.<br />
4. Conclusion: All good documents have conclusions. Conclude with a<br />
brief summary of your major points and your primary<br />
recommendations.<br />
The Grade<br />
The grade for this project will be assigned based on the report — its<br />
amount of research, attention to detail, and overall polish. It should be<br />
well-written, proof read, and presented in the format of any business<br />
document. As I said, think of this as a document that you may want to turn<br />
over to the parties in the dispute at a later time.<br />
I will assign a grade to the group based on the project as I see it. My late<br />
policy is 5 points a day with no questions asked. If your group needs an<br />
extra day, then take the points and I will have no hard feelings. Just don’t<br />
let them add up.<br />
Because this is a group project and some individuals work harder than<br />
others, I will ask you to rate each other and will adjust the project grade for<br />
the individual according to effort and work. I also will ask you to be specific<br />
about which portions of the paper each person worked on. All of this<br />
evidence (and any other evidence that I collect) will lead some grades to be<br />
higher and some lower than the overall project score.<br />
I will grade the oral reports similarly. Be sure that each person participates<br />
in some way in the creation of the presentation and/or in the delivery of<br />
the presentation. I would like you all to use Microsoft PowerPoint or some<br />
other presentation software.<br />
552 Journal of Public Affairs Education
Review of: Doctoral Education in Public Administration at the Washington Public Affairs<br />
Center: 28 Years (1973-2001) as an Outpost of the University of Southern California<br />
Review by Mark Speicher<br />
Arizona College Of Osteopathic Medicine,<br />
Midwestern University<br />
Sherwood, Frank P.,<br />
Ed. (2008). Doctoral<br />
Education in Public<br />
Administration at the<br />
Washington Public<br />
Affairs Center:<br />
28 Years (1973-2001)<br />
as an Outpost of the<br />
University of<br />
Southern California.<br />
Bloomington, IN;<br />
iUniverse.<br />
The Washington Public Affairs Center was a doctoral program that existed<br />
from 1973 to 2001 and was designed for professionals working in public service.<br />
The program was affiliated with the University of Southern California (USC) and<br />
located in Washington, DC. Doctoral Education in Public Administration at the<br />
Washington Public Affairs Center: 28 Years (1973-2001) as an Outpost of the<br />
University of Southern California chronicles the development of this pioneering<br />
program that sought to combine adult-centered learning models (based on<br />
Knowles’ (1980/1970) theory of adult learning) and praxis-based education in the<br />
ostensible heart of public administration — the nation’s capital. The book then<br />
describes how eventual concerns about fiscal and faculty resources and the value of<br />
the Doctor of Public Administration (D.P.A.) degree to a research-intensive<br />
University like USC ended with the termination of the program.<br />
About halfway through Doctoral Education in Public Administration at the<br />
Washington Public Affairs Center, two questions are obvious. First, if USC’s<br />
Washington Public Affairs Center (WPAC) had students so satisfied with the<br />
program, why did the school close the program? Second, given claims that the<br />
program was groundbreaking in its goals and approach, why haven’t some of the<br />
innovative aspects of this program been implemented by other programs? While<br />
the book is eventually somewhat successful at answering the first question, it<br />
makes no serious attempt to answer the second. Some reasons why important<br />
elements of the program have not been introduced elsewhere are discussed below.<br />
The book includes overviews by Chester Newland (a former full-time<br />
professor at the WPAC) and Frank Sherwood (WPAC’s founding Director) on<br />
the WPAC’s development and accomplishments throughout its history.<br />
Sherwood focuses his initial overview on two of the program’s most notable<br />
JPAE 15(4): 553–557 Journal of Public Affairs Education 553
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Center: 28 Years (1973-2001) as an Outpost of the University of Southern California<br />
graduate, Ambassador Edward Perkins, former Director General of the U.S.<br />
Foreign Service and U.S. Ambassador to the United Nations. The second<br />
overview by Sherwood discusses the informal manner in which the WPAC was<br />
founded and its founding principles: (a) that it be supported by tuition, (b) that<br />
it concentrate on the application of public administration theory into practice,<br />
and (c) that it focus on adult learners and their needs. This begins the heart of<br />
the book — essays by 23 of the program’s 192 graduates on the contributions of<br />
the WPAC to their learning, to their careers, and to their lives. Essays by former<br />
faculty (Larry Kirkhart, Beryl Radin, and Ronald Stupak) bridge to a discussion<br />
of the WPAC’s demise amid changes at USC and in the D.P.A. degree.<br />
Sherwood places the program’s closing within the context of the conflict<br />
between the research and service missions of research-intensive universities like<br />
USC, and fits the D.P.A. degree and its decline squarely in the midst of this<br />
conflict. The reliance of the center on tuition funding is identified as another<br />
weakness, especially as more doctoral programs at other universities, especially<br />
public universities, could compete with the USC-WPAC D.P.A. degree at lesser<br />
cost. He also points to the Maxwell School at Syracuse University and the<br />
Cooper Center at the University of Virginia as examples of programs that have<br />
not abandoned training those who will serve in the public sphere in favor of<br />
those who will serve in the academy.<br />
The WPAC program was an original one, designed to capitalize on the<br />
experiences and knowledge of the students, in addition to the faculty’s academic<br />
backgrounds, and to adopting an adult-learner model for courses and schedules.<br />
The program began for all students with a 100-page Autobiography Learning<br />
Plan (ALP), which served as a “mission statement” for the D.P.A. program, and<br />
provided students and the faculty with information about individual students’<br />
potential gains from the program, their potential contributions to the program,<br />
and their abilities successfully to complete the program. The WPAC’s<br />
coursework was organized in intensive semesters. These semesters began with<br />
pre-course reading and included four-day intensive seminars. This schedule<br />
allowed students to maintain work schedules, as well as spend enough time in<br />
discussions to fully engage the material and to make the connections between<br />
literature and theory, and between implications for self, practice, and public<br />
organizations. This schedule was designed to integrate the WPAC’s central<br />
tenets of praxis and “andragogy,” or adult-learning theory.<br />
The WPAC dissertation was generally on a public-management topic with<br />
which the doctoral candidate was very familiar, often a specific question or<br />
problem at the candidate’s workplace. The dissertation proposal was reviewed<br />
in a structured way by both faculty and students in the program. This active<br />
involvement of peers and feedback from the entire learning community, not<br />
just the faculty, were two other hallmarks of the program described by both<br />
faculty and students.<br />
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Center: 28 Years (1973-2001) as an Outpost of the University of Southern California<br />
The 23 graduate-essayists showed a high level of agreement on the<br />
characteristics of the program that they found contributed the most to their<br />
personal and professional development. The most-mentioned characteristic of<br />
the WPAC was the rigor and substance of the program. Graduates cited the<br />
utility of having a good grounding in theory as important for their practical<br />
success as administrators and problem-solvers. The program sessions were<br />
described as challenging, intensive, and pragmatic, and the essayists credited<br />
faculty who knew how to transmit the understanding of theory and the<br />
application of theory as particularly important to the students’ learning.<br />
Many essayists also cited the two-way learning that happened between the<br />
students and the faculty as particularly important. The learning community that<br />
developed as a result of these rigorous, intensive sessions provided honest and<br />
immediate feedback to all students. These learning communities were of almost<br />
universal value to the graduate-essayists.<br />
The ALP and the dissertation are cited by many students as accomplishments<br />
in and of themselves, and as roadmaps for continued personal and professional<br />
learning and development. Even the ALP did not escape the praxis model of the<br />
WPAC. The process of writing the ALP was one of goal-setting informed by selfunderstanding,<br />
and the selection of theories or models to explore as a part of the<br />
program. The dissertation was the culmination of the seminars, and therefore was<br />
each individual student’s attempt at applying theory to a particular problem. The<br />
focus of the dissertation on praxis further emphasized the program’s commitment<br />
to the rigorous application of theory to actual public-service issues and problems.<br />
The dissertation defense was not so much an examination of the candidate, but a<br />
celebration of accomplishment, because the learning community already had<br />
critiqued the dissertation during its development. The completion of a<br />
dissertation was the sign of another success of the WPAC: another “praxistitioner”<br />
returned to the public sector at a level of competence previously<br />
unavailable to the public, the organization, or the servant.<br />
But these successes were inadequate to keep the program running. As the<br />
WPAC’s D.P.A. had to compete with more Public Administration doctoral<br />
programs (most of them Ph.D. programs capable of training both academics<br />
and practitioners), its dependence on tuition and its shoestring budget became<br />
more of a liability, because many of the other programs charged public-college<br />
tuition. The intensive semester structure allowed faculty from USC in Los<br />
Angeles and from other institutions around the country to teach in the<br />
program, but to a large extent prevented the development over time of a school<br />
of ideas surrounding the WPAC. The return of graduates to Federal or state<br />
public administration careers meant that they often were lost to any meaningful<br />
conversations on the praxis they had spent so much time learning. This lack of<br />
an ongoing community of ideas meant that there was no real constituency, save<br />
the few full-time faculty in Washington, to defend the center. Additionally, the<br />
Journal of Public Affairs Education 555
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Center: 28 Years (1973-2001) as an Outpost of the University of Southern California<br />
lack of program graduates in the conversation about public administration,<br />
about praxis, and about effective education in public administration doctoral<br />
programs meant that it was up to the faculty on loan to the WPAC to return to<br />
their home programs and implement the program characteristics. This has not<br />
happened to any real degree, indicating either that the faculty did not find the<br />
structure as valuable as the graduates, or that there was significant resistance to<br />
changing program structures in doctoral programs in public administration.<br />
Throughout the book, Sherwood discusses the importance of the publicservice<br />
focus of public administration programs, and the importance of a<br />
doctoral degree for practitioners of public administration. Other faculty mourn<br />
the loss of the public-service focus of USC and the treatment of its School of<br />
Public Affairs — and the WPAC in particular.<br />
The D.P.A. essayists in this work share a great deal in common with<br />
current and recent D.P.A. and Ph.D. graduates in public administration<br />
programs around the country. Most doctoral students want a deep<br />
understanding of the main theories of public administration gained through<br />
rigorous individual and group learning, to have their beliefs and experiences<br />
questioned, and to learn, and later work, among a community of learners<br />
while maintaining individual interests. Students at this high level would<br />
benefit from having a plan that evaluated their strengths and weaknesses in<br />
coming to the terminal degree, and a plan for the degree’s completion.<br />
Further, whether experienced or not, all students would benefit from<br />
andragogically competent teaching methods and the development of ongoing<br />
feedback from faculty and students in a constructive way.<br />
This alignment of values and education goals between Ph.D. and D.P.A.<br />
students further blurs the distinctions between the degrees, which is noted in<br />
other discussions in this journal (e.g., Brewer, Facer, O’Toole & Douglas,<br />
1999), and is noted by Sherwood — along with increased focus on research in<br />
public universities — as a cause of the decline of the D.P.A. In the end, then,<br />
this work is valuable less as a celebration of the degrees conferred by the<br />
WPAC, or the contributions to public service of the graduates, and more as a<br />
celebration that the WPAC was able to create, for however short a time, a<br />
learning community that met the personal and academic needs of its students<br />
in a way that made a real contribution to their success. Perhaps a change in<br />
focus by the WPAC to research-oriented degrees would have kept the program<br />
alive, perhaps resources for a small program thousands of miles from its<br />
sponsoring university never would have been adequate. At any rate, the book<br />
serves as an inspiration to educators and practitioners that creating an excellent<br />
learning community in a rigorous public administration program that is<br />
accessible to adult learners is not only possible, but also valuable to its faculty,<br />
to its students, and to society as a whole.<br />
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REFERENCES<br />
Brewer, G.A., Facer, R.L. II, O’Toole, L.J., Jr., & Douglas, J.W. (1999). What’s in a name? Comparing<br />
D.P.A. and Ph.D. programs. Journal of Public Affairs Education, 5(4), 309-317.<br />
Knowles, M.S. (1980/1970). The modern practice of adult education. Andragogy versus pedagogy.<br />
Englewood Cliffs: Prentice Hall/Cambridge.<br />
Sherwood, F.P. (Ed.).(2008). Doctoral education in public administration at the Washington Public Affairs<br />
Center: 28 years (1973-2001) as an outpost of the University of Southern California. Bloomington,<br />
IN: iUniverse.<br />
Mark Speicher, Ph.D., is Associate Dean for Academic Affairs at the Arizona<br />
College of Osteopathic Medicine, Midwestern University, in Glendale, AZ. He<br />
received his Ph.D. in Public Administration from the School of Public Affairs at<br />
Arizona State University in 2009.<br />
Journal of Public Affairs Education 557
<strong>JOURNAL</strong> <strong>OF</strong><br />
COMPARATIVE<br />
POLICY ANALYSIS:<br />
RESEARCH & PRACTICE<br />
CALL FOR PAPERS<br />
The Journal of Comparative Policy Analysis: Research & Practice aims to stimulate the further<br />
intellectual development of comparative policy studies and the growth of an international<br />
community of scholars in the field. It gives priority to comparative studies that:<br />
1. Contribute to comparative theory development;<br />
2. Present theory-based empirical research;<br />
3. Offer comparative evaluations of research methods;<br />
4. Derive the practice implications of theory-based research;<br />
5. Use conceptual heuristics to interpret practice;<br />
6. Draw lessons based on circumstances in which the domains compared have<br />
certain manipulable policy, program or institutional variables in common.<br />
Now published five times per year from 2010, the JCPA is the only explicitly comparative<br />
journal of policy studies. It invites manuscripts that address public policy analysis and<br />
related public administration and management in this unique manner.<br />
The JCPA encourages the submission of articles advancing comparative policy studies in<br />
public policy fields as diverse as immigration, health care, environmental protection,<br />
education, biotechnology, security or human rights, technology, public finance and<br />
budgeting, administrative reform, performance measurement, and others. The Journal<br />
welcomes proposals for Special Symposia Issues, as well as submissions to its sections on<br />
Comparative Policy Innovation and Policy Statistics.<br />
EDITOR-IN-CHIEF AND FOUNDER<br />
Iris Geva-May, Simon Fraser University, Vancouver, Canada<br />
CO-EDITORS<br />
B. Guy Peters, University of Pittsburgh, U.S.<br />
Michael Howlett, Simon Fraser University, Vancouver, Canada<br />
FOUNDING CO-EDITOR<br />
Lawrence E. Lynn, University of Chicago, U.S., (1997 - 2001)<br />
PAST CO-EDITOR<br />
John Ellwood, University of California at Berkeley, U.S., (2001 - 2002)<br />
BOOK REVIEW EDITOR<br />
Louise Comfort, University of Pittsburgh, U.S.<br />
COMPARATIVE POLICY INNOVATION EDITORS<br />
Anthony Boardman, University of British Columbia<br />
Aidan Vining, Simon Fraser University, Vancouver, Canada<br />
COMPARATIVE POLICY STATISTICS EDITOR<br />
Fred Thompson, Willamette University, Oregon, U.S.<br />
To learn more about the JCPA and the scholarly society,<br />
the International Comparative Policy Analysis-Forum, see www.jcpa.ca/icpaf<br />
The JCPA is supported by International Advisory and Editorial Boards<br />
The JCPA and its activities are supported by 37 institutional members on five continents
Information for Contributors<br />
The Journal of Public Affairs Education (JPAE) is the flagship journal of the <strong>National</strong> Association of<br />
Schools of Public Affairs and Administration (NASPAA). JPAE is dedicated to advancing teaching<br />
and learning in public affairs broadly defined, which includes the fields of policy analysis, public<br />
administration, public management, public policy, nonprofit administration, and their subfields.<br />
Advancing teaching and learning includes not only the improvement of specific courses and teaching<br />
methods, but also the improvement of public affairs program design and management. The goal of<br />
JPAE is to publish articles that are useful to those participating in the public affairs education<br />
enterprise, not only in the U.S., but throughout the world. In service to this goal, articles should be<br />
clear, accessible to those in the public affairs fields and subfields, and generalizable. The new<br />
editorial team is particularly interested in articles that (1) use rigorous methods to analyze the relative<br />
effectiveness of different teaching methods, and (2) have international and/or comparative<br />
components, or consider the effect of country setting. Articles submitted for publication in JPAE<br />
should not already be published or in submission elsewhere. Articles that have been presented at<br />
conferences are welcome.<br />
Submissions should conform to American Psychological Association (APA) style and generally meet<br />
the submission recommendations described in Appendix A of the Publication Manual of the<br />
American Psychological Association (5 th ed.).<br />
Specifically, manuscripts should:<br />
•Be typed in a standard 12-point serif font (such as Times New Roman), double- or 1-1/2-spaced,<br />
with margins of no less than one inch on all sides,<br />
•Include one document with no author names but including a title and an abstract of around 150<br />
words, and<br />
•Include another document with the title, authors’ names and contact information, and any<br />
identifying references, including acknowledgments.<br />
Electronic submissions should be made in PDF or .doc files (please no .docx files) and should follow<br />
the recommendations for electronic transmission of manuscripts described in Appendix B of the<br />
Publication Manual of the American Psychological Association (5 th ed.). Accepted articles will not be<br />
published until authors submit a manuscript that meets APA style, particularly in regard to citations<br />
and references.<br />
Submit electronic copies to jcallen7@asu.edu & hcampbel@asu.edu, and one paper copy to:<br />
Journal of Public Affairs Education<br />
Mail Code 3720<br />
411 N. Central Ave., Suite 450<br />
Phoenix, AZ 85004-0687<br />
Authors should expect to receive acknowledgment of receipt. If acknowledgement is not received<br />
within two weeks, please do not hesitate to contact us at jcallen7@asu.edu (the email address of<br />
editorial assistant Jeffrey Callen). Articles will be given initial review by the editorial team. Articles<br />
must meet basic criteria including writing quality, reasonable conformity with these guidelines, and<br />
interest to JPAE’s readers before they are submitted for external, double-blind review. If accepted for<br />
publication, manuscripts cannot be published until all authors have provided copyright transfer<br />
authority, full contact information, and short biographies (of about five lines).<br />
Because of its mission, educators may reproduce any JPAE material for classroom use and<br />
authors may reproduce their own articles without written permission. Written permission is<br />
required to reproduce any part of JPAE in all other instances.
<strong>National</strong> Association of Schools of Public Affairs and Administration<br />
1029 Vermont Avenue NW, Suite 1100, Washington, DC 20005-3517<br />
202-628-8965 fax 202-626-4978 www.naspaa.org<br />
The Journal of Public Affairs Education (JPAE) is the flagship journal of the <strong>National</strong> Association of Schools of<br />
Public Affairs and Administration (NASPAA). Founded in 1970, NASPAA serves as a national and international<br />
resource for the promotion of excellence in education for the public service. Its institutional membership<br />
includes more than 250 university programs in the United States in public administration, policy, and<br />
management. It accomplishes its purposes through direct services to its member institutions and by<br />
• Developing and administering appropriate standards for educational programs in public affairs through its<br />
Executive Council and its Commission on Peer Review and Accreditation;<br />
• Representing to governments and other institutions the objectives and needs of education for public affairs<br />
and administration;<br />
• Encouraging curriculum development and innovation and providing a forum for publication and discussion<br />
of education scholarship, practices, and issues;<br />
• Undertaking surveys that provide members and the public with information on key educational issues;<br />
• Meeting with employers to promote internship and employment opportunities for students and graduates;<br />
• Undertaking joint educational projects with practitioner professional organizations; and<br />
• Collaborating with institutes and schools of public administration in other countries<br />
through conferences, consortia, and joint projects.<br />
NASPAA provides opportunities for international engagement for NASPAA members, placing a global emphasis<br />
on educational quality and quality assurance through a series of networked international initiatives, in particular<br />
the Network of Institutes and Schools of Public Administration in Central and Eastern Europe (NISPAcee), the<br />
Inter-American Network of Public Administration Education (INPAE), and the Georgian Institute of Public<br />
Affairs (GIPA). It is also involved locally; for instance, directing the Small Communities Outreach Project for<br />
Environmental Issues, which networks public affairs schools and local governments around environmental<br />
regulation policy issues, with support from the Environmental Protection Agency.<br />
NASPAA’s twofold mission is to ensure excellence in education and training for public service and to promote<br />
the ideal of public service. Consistent with NASPAA’s mission, JPAE is dedicated to advancing teaching and<br />
learning in public affairs, defined to include the fields of policy analysis, public administration, public<br />
management, and public policy. Published quarterly by NASPAA, the journal features commentaries,<br />
announcements, symposia, book reviews, and peer-reviewed scholarly articles on pedagogical, curricular, and<br />
accreditation issues pertaining to public affairs education.<br />
JPAE was founded in 1995 by a consortium from the University of Kansas and the University of Akron and was<br />
originally published as the Journal of Public Administration Education. H. George Frederickson was the<br />
journal’s founding editor. In addition to serving as NASPAA’s journal of record, JPAE is affiliated with the<br />
Section on Public Administration Education of the American Society for Public Administration.