Curricula Vitae

Updated: November, 2022

Professional Positions

Guest Scholar, Brookings Institution, Washington, DC (1972-74)

Legislative Assistant, Congressman Henry Reuss (WI-5), Washington, DC (1975-76)

Elected to the Wisconsin Legislature’s State Assembly (1976, 1978, 1980) and State Senate (1982, 1986)

Member, Milwaukee Metropolitan Sewerage Commission (1988-89)

Executive Director, Jewish Community Relations Council of Milwaukee (1990-97)

University of Wisconsin-Milwaukee:

  • 1997-2002: Assistant Professor of Governmental Affairs, School of Continuing Education
  • 2002-06: Associate Professor of Governmental Affairs, School of Continuing Education and Graduate Faculty, Political Science Department
  • 2006-14: Professor of Governmental Affairs, School of Continuing Education and Graduate Faculty, Political Science Department
  • 2015-18: Professor of Urban Planning, School of Architecture and Urban Planning and Graduate Faculty, Political Science Department
  • 2018-present: Professor Emeritus


Bachelor of Arts, University of Wisconsin-Madison, 1970

Master of Public Administration (MPA), Syracuse University, 1972

Ph.D. in Public Administration, Syracuse University, 1975

Authored Books

The First Presidential Communications Agency: FDR’s Office of Government Reports. Albany: State University of New York Press, 2005.

Institutionalizing Congress and the Presidency: The U.S. Bureau of Efficiency, 1916-1933. College Station: Texas A&M University Press, 2006.

Bureaus of Efficiency: Reforming Local Government in the Progressive Era. Milwaukee, WI: Marquette University Press, 2008.

Nixon’s Super-Secretaries: The Last Grand Presidential Reorganization Effort. College Station: Texas A&M University Press, 2010.

Congress vs. the Bureaucracy: Muzzling Agency Public Relations. Norman: University of Oklahoma Press, 2011.

Promoting the War Effort: Robert Horton and Federal Propaganda, 1938-1946. Baton Rouge: Louisiana State University Press, 2012. (For a talk on this book at the 2018 Book Festival at the Roosevelt Presidential Library: C-SPAN’s BookTV online.)

The Philosopher-Lobbyist: John Dewey and the People’s Lobby, 1928-1940. Albany: State University of New York Press, 2015.

A Presidential Civil Service: FDR’s Liaison Office for Personnel Management. Tuscaloosa: University of Alabama Press, 2016.

Get Things Moving! FDR, Wayne Coy, and the Office for Emergency Management, 1941-1943. Albany: State University of New York Press, 2018.

See America: The Politics and Administration of Federal Tourism Promotion, 1937-1973. Albany: State University of New York Press, 2020.

FDR’s Budgeteer and Manager-in-Chief: Harold D. Smith, 1939-1945. Albany: State University of New York Press, 2021.

Edited Books

Government Public Relations: A Reader (Boca Raton, FL: CRC Press, 2008).

Related publication: Instructor’s Manual for Government Public Relations: A Reader (Boca Raton, FL: Auerbach, 2008). Available online.

The Practice of Government Public Relations [1st edition], co-edited with Grant Neeley and Kendra Stewart (Boca Raton, FL: CRC Press/Taylor & Francis, 2012). American Society for Public Administration Series in Public Administration and Public Policy.

The Practice of Government Public Relations, 2nd edition, co-edited with Grant Neeley and Kendra Stewart (New York: Routledge, 2022). American Society for Public Administration Series in Public Administration and Public Policy.


  1. Government PR: Perspectives on the Pentagon,” Maxwell Review 9:2 (Spring 1973) 101-06. (Note: This is not a peer-review journal.)
  2. “Tradition be Damned! The Army Corps of Engineers is Changing,” co-authored with Daniel Mazmanian (lead author), Public Administration Review 35:2 (March-April 1975) 166-72.
  3. “President Nixon Sees a ‘Cover Up’: Public Relations in Federal Agencies,” Public Relations Review 23:4 (Winter 1997) 301-25.
  4. “Public Relations in Public Administration: A Disappearing Act in Public Administration Education,” Public Relations Review 24:4 (Winter 1998) 509-20.
  5. “Public Relations Is Public Administration,” The Public Manager 27:4 (Winter 1998-99) 49-52.
  6. “Reporters and Bureaucrats: Public Relations Counter-Strategies by Public Administrators in an Era of Media Disinterest in Government,” Public Relations Review 25:4 (Winter 1999) 451-63.
  7. “A Jewish ‘March of Dimes’? Organization Theory and the Future of Jewish Community Relations Councils,” Jewish Political Studies Review 12:1-2 (Spring 2000) 3-19.
  8. “When Congress Tried to Cut Pentagon Public Relations: A Lesson from History,” Public Relations Review 26:2 (Summer 2000) 131-54.
  9. “Governing the Holy Land: Public Administration in Ottoman Palestine, 1516-1918,” Digest of Middle East Studies 9:1 (Summer 2000) 1-25.
  10. “Bureaucrat Bashing in the Galactic Senate: George Lucas and Public Administration,” Public Voices 4:2 (2000) 23-30.
  11. “Public Information in Government Organizations: A Review and Curriculum Outline of External Relations in Public Administration,” Public Administration and Management 5:4 (2000) 183-214.
  12. “The Agency Spokesperson: Connecting Public Administration and the Media,” Public Administration Quarterly 25:1 (Spring 2001) 101-30.
  13. “Looking at the Politics-Administration Dichotomy from the Other Direction: Participant Observation by a State Senator,” International Journal of Public Administration 24:4 (April 2001) 363-84.
  14. “The Image of the Government Flack: Movie Depictions of Public Relations in Public Administration,” Public Relations Review 27:3 (Fall 2001) 297-315.
  15. “Strange But True Tales From Hollywood: The Bureaucrat as Movie Hero,” co-authored with Susan C Paddock, Public Administration and Management 6:4 (2001) 166-94.
  16. “Bureaucracy in the Hebrew Bible: A Neglected Source of Public Administration History,” Public Voices 5:1-2 (2002) 79-88.
  17. “The Federal Public Relations Administration: History’s Near Miss,” Public Relations Review 28:1 (February 2002) 87-98.
  18. “Intersectoral Differences in Public Affairs: The Duty of Public Reporting in Public Administration,” Journal of Public Affairs 2:2 (May 2002) 33-43.
  19. “Noncredit Certificates in Nonprofit Management: An Exploratory Study,” Public Administration and Management 7:3 (2002) 188-210.
  20. “Management History as Told by Popular Culture: The Screen Image of the Efficiency Expert,” Management Decision 40:9 (2002) 881-94.
  21. “Is There Anything New Under the Sun? Herbert Simon’s Contributions in the 1930s to Performance Measurement and Public Reporting of Performance Results,” Public Voices 6:2-3 (2003) 73-82.
  22. “The First Federal Public Information Service, 1920-1933: At the US Bureau of Efficiency!” Public Relations Review 29:4 (November 2003) 415-25.
  23. “A Public Relations Program Even Congress Could Love: Federal Information Centers,” Public Relations Review 30:1 (March 2004) 61-73.
  24. “What Does Hollywood Think Nonprofit CEOs Do All Day? Screen Depictions of NGO Management,” Public Organization Review 4:2 (June 2004) 157-76.
  25. “Is There Life Before the CPM [Certified Public Manager]? Pre-CPM and Related Noncredit Certificates in Public Administration,” Public Administration Quarterly 28:3 (Fall 2004) 308-34.
  26. “Public Reporting: A Neglected Aspect of Nonprofit Accountability,” Nonprofit Management & Leadership 15:2 (Winter 2004) 169-85.
  27. “When Government Used Publicity Against Itself: Toledo’s Commission of Publicity and Efficiency, 1916-1975,” Public Relations Review 31:1 (March 2005) 55-61. An extended version of the article is online.
  28. “The US Bureau of Efficiency: Not RIP in 1933?” Public Voices 8:1 (2005) 44-60.
  29. “Empirical Experiments in Public Reporting: Reconstructing the Results of Survey Research in 1941-42,” Public Administration Review 66:2 (March-April 2006) 252-62.
  30. “The History of Municipal Public Reporting,” International Journal of Public Administration 29:4-6 (April 2006) 453-76.
  31. “The Rise and Fall of the Institute for Government Public Information Research, 1978-1981,” Public Relations Review 32:2 (June 2006) 118-24.
  32. “Political-Administrative Relations in State Government: A Legislative Perspective,” International Journal of Public Administration 29:12 (2006) 1021-47.
  33. “When Politics Overwhelms Administration: Historical Proofs for Fesler’s Maxim Against State-based Federal Regions, 1934-1943,” Public Voices 9:2 (2007) 25-45.
  34. “The Astronaut and Foggy Bottom PR: Assistant Secretary of State for Public Affairs Michael Collins, 1969-1971,” Public Relations Review 33:2 (June 2007) 184-90. An extended version of the article is online.
  35. “Revisiting the Dartmouth Court Decision: Why the US has Private Nonprofit Agencies Instead of Public Non-Governmental Organizations (NGOs),” Public Organization Review 7:2 (June 2007) 113-42. An extended version of the article is online.
  36. “Clara M. Edmunds and the Library of the United States Information Service, 1934-1948,” Libraries & the Cultural Record 42:3 (2007) 213-30.
  37. “Déjà Vu All Over Again: Contemporary Traces of the ‘Budget Exhibit’,” co-authored with Daniel W. Williams (lead author), American Review of Public Administration 38:2 (June 2008) 203-24.
  38. “Public Affairs Enters the US President’s Subcabinet: Creating the First Assistant Secretary for Public Affairs (1944-1953) and Subsequent Developments,” Journal of Public Affairs 8:3 (August 2008) 185-94.
  39. “Congressional Controversy Over the Federal Prohibition Bureau’s Public Relations, 1922,” Public Relations Review 34:3 (September 2008) 276-78.
  40. “The Short Life of the Government Public Relations Association in the US, 1949-1958,” Public Relations Review 34:3 (September 2008) 279-81. An extended version of the article is online.
  41. “Flicks of Government Flacks: The Sequel,” Public Relations Review 35:2 (June 2009) 159-61. An extended version of the article is online.
  42. The Return of Public Relations to the Public Administration Curriculum?Journal of Public Affairs Education 15:4 (Fall 2009) 515-33.
  43. “A Case Study of Congressional Hostility to Agency Public Relations: The Federal Reserve and Senator Heflin, 1922,” Public Relations Review 35:3 (September 2009) 291-93.
  44. “Origins of the Epithet ‘Government by Public Relations’: Revisiting Bruce Catton’s War Lords of Washington, 1948,” Public Relations Review 35:4 (November 2009) 388-94.
  45. “Too Much Bureaucracy or Too Little? Congressional Treatment of Defense Department Legislative Liaison, 1950s-1990s,” Public Administration & Management 14:2 (2009) 323-61.
  46. “How a Bill Becomes a Law, Hollywood Style,” Public Voices 11:1 (2009) 66-88.
  47. “The Role of the YMCA in the Origins of U.S. Nonprofit Management Education,” Nonprofit Management & Leadership 20:3 (Spring 2010) 277-93.
  48. “Government Public Relations During Herbert Hoover’s Presidency,” Public Relations Review 36:1 (March 2010) 56-58.
  49. “Herman Beyle and James McCamy: Founders of the Study of Public Relations in Public Administration, 1928-1939,” Public Voices 11:2 (2014) 26-46.
  50. “History of US Public Administration in the Progressive Era: Efficient Government by and for Whom?” Journal of Management History 17:1 (2011) 88-101.
  51. “Historical Milestones in the Emergence of Nonprofit Public Relations in the US, 1900-1956,” Nonprofit and Voluntary Sector Quarterly 40:2 (April 2011) 318-35.
  52. “Creating the First Assistant Secretary for Congressional Relations (1941-1949) and Subsequent Developments: A Case Study of Thickening in the Federal Bureaucracy,” Public Voices 12:1 (2011) 27-45.
  53. “Do’s and Don’ts of Public Relations for Government Health Care Administration,” Journal of Health and Human Services Administration 35:3 (Winter 2012) 258-73.
  54. “Toward Generalizing about Congressional Control over Agency PR: The Failure of Spending Limits on Pentagon PR, 1951-1959,” Public Administration Quarterly 36:3 (Fall 2012) 341-79.
  55. “The President’s Listening Post: Nixon’s Failed Experiment in Government Public Relations,” Public Relations Review 38:1 (March 2012) 22-31.
  56. “Pop Culture as Civics Lesson: Exploring the Dearth of State Legislatures in Hollywood’s Public Sector,” Public Voices 12:2 (2012) 49-67.
  57. “A Progressive Era Idea for Reforming Government that Didn’t Make It: Recall of Judicial Decisions,” Public Voices 13:1 (2013) 58-78.
  58. “Defending a Controversial Agency: Edward C. Banfield as Farm Security Agency Public Relations Officer, 1941–1946,” co-authored with Kevin R. Kosar (lead author), Federal History 5 (2013) 121-38.
  59. “Glimpsing an Alternate Construction of American Public Administration: The Later Life of William Allen, Co-Founder of the New York Bureau of Municipal Research,” Administration & Society 45:5 (July 2013) 522-62.
  60. “Colluding to Create the American Society for Public Administration and the Consequent Collateral Damage,” Public Voices 14:1 (2014) 2-27.
  61. “Lo, the Poor Volunteer Manager: Hollywood’s Nonprofit Volunteer and Volunteer Manager,” co-authored with Jeffrey L. Brudney (lead author), Public Voices 14:1 (2014) 77-96.
  62. “Working for Goodwill: Journalist Lowell Mellett,” Traces of Indiana and Midwestern History (quarterly of the Indiana Historical Society) 27:4 (Fall 2015) 46-55. (Note: This is not a peer-review journal.) An extended version of the article is online.
  63. “Information is Power: Women as Information Providers to the President’s Budgeting Men; A History of the Bureau of the Budget Library, 1940-1970,” Public Voices 14:2 (2016) 87-106.
  64. “Trying to Professionalize Expert Knowledge,” Public Voices 15:1 (2017):
    • Part I: “The Short Life of the Municipal Administration Service, 1926-1933,” 15:1 (2017) 9-27.
    • Part II: “A Short History of Public Administration Service, 1933-2003,” 15:1 (2017) 28-45.
  65. “Guilt by Innuendo: GAO’s Political Attack on Agency Training Programs, 1940,” Journal of Public and Nonprofit Affairs 4:3 (Fall 2018) 306-28.
  66. “Public Reporting in Public Administration, circa 1939: The Annual Report as Fictional Radio Stories,” Public Voices 15:2 (2018) 107-25. (Updated links to the broadcast: audio part 1 & part 2)
  67. “Public Administration’s First Training and Development Arm: The Origins and Pioneering Programs of the National Institute of Public Affairs, 1934-1985,” Public Voices 16:1 (2019) 63-83.
  68. “Harold D. Smith: From Central Kansas to FDR’s White House,” Kansas History: A Journal of the Central Plains 43:3 (Autumn 2020) 172-93.
  69. The Managerial Apprenticeship of FDR’s Budget Director: Harold D. Smith and the Michigan Municipal League, 1928-1937,” Journal of Public and Nonprofit Affairs 7:1 (Spring 2021) 46-67.
  70. “Revitalizing Historiography in Public Administration,” Public Performance & Management Review 44:5 (October 2021) 1006-1030.
  71. Presidential Management and Budgeting from War to Peace: Truman’s 1st Budget Director, Harold D. Smith, 1945-1946,” Journal of Public and Nonprofit Affairs 8:1 (April 2022) 122-44.
  72. “Before Fake News: How Federal Agencies Wrestled with Responding to Rumors in World War II,” Public Voices 17:2 (2022) 1-21.
  73. “Fanning the Flames against Bureaucracy: The PR Campaign by Congress’s Conservative Coalition for the Administrative Procedure Act, 1943-1946,” Public Voices 18:1 (forthcoming, 2023).

Symposium Editor

“Is There a Role for Historical Fiction in Public Administration?” Public Voices 8:1 (2005) 3-7. Introduction to Symposium on Rewriting the History of Public Administration: What If…

“Panning for Gold: Finding a Few Nuggets of Positive Images of Government in American Pop Culture,” Public Voices 11:1 (2009) 1-7. Introduction to Symposium on Public Service in the Mind’s Eye: Positive Images of Public Servants in Movies, TV Shows and Editorial Cartoons.


  1. “Personnel Management in Wisconsin,” in Selma J. Mushkin (ed.), Proposition 13 and Its Consequences for Public Management (Washington, DC: Council for Applied Social Research, 1979) 101-05.
  2. “An Alum’s Perspective on Hate Speech and Academic Freedom,” in W. Lee Hansen (ed.), Academic Freedom on Trial: 100 Years of Sifting and Winnowing at the University of Wisconsin-Madison (Madison: University of Wisconsin Publications, 1998) 209-15.
  3. “E-Reporting: Using Managing-for-Results Data to Strengthen Democratic Accountability,” in John M. Kamensky and Al Morales (eds.), Managing for Results 2005 (Lanham, MD: Rowman & Littlefield, 2005), chap. 4. Available online as a monograph.
  4. “Globalization and Media Coverage of Public Administration,” in Ali Farazmand and Jack Pinkowski (eds.), Handbook of Globalization, Governance, and Public Administration (Boca Raton, FL: CRC Press, 2007), chap. 8.
  5. “Media Relations and External Communications during a Disaster,” in Jack Pinkowski (ed.), Disaster Management Handbook (Boca Raton, FL: CRC Press, 2008), chap. 19.
  6. “The State Legislature,” in Thomas M. Holbrook (ed.), Wisconsin Government and Politics, 9th ed. (Boston: McGraw-Hill Learning Solutions, 2008), chap. 8.
  7. “At the Intersection of Bureaucracy, Democracy and the Media: The Effective Agency Spokesperson,” in Ali Farazmand (ed.), Bureaucracy and Administration (Boca Raton, FL: CRC Press, 2009), chap. 21.
  8. “Government Public Relations: What is it Good for?”, in Mordecai Lee, Grant Neeley and Kendra Stewart (eds.), The Practice of Government Public Relations [1st ed.]. (New York: Routledge, 2012), chap. 2.
  9. “US Administrative History: Golem Government,” in B. Guy Peters and Jon Pierre (eds.), SAGE Handbook of Public Administration, 2nd ed. (London: Sage, 2012), chap. 13.
  10. “Propaganda for War” in Nancy Snow (ed.), Propaganda and American Democracy (Baton Rouge: Louisiana State University Press, 2014), chap. 4.
  11. “Government is Different: A History of Public Relations in American Public Administration,” in Burton St. John III, Margot Opdycke Lamme and Jacquie L’Etang (eds.), Pathways to Public Relations: Histories of Practice and Profession (London: Routledge, 2014), chap. 7.
  12. “E-Government and Public Relations: It’s the Message, Not the Medium,” in Aroon Manoharan (ed.), E-Government and Websites: A Public Solutions Handbook (New York: Routledge, 2015), chap. 1.
  13. “Government Public Relations in Canada and the United States,” co-authored with Fraser Likely and Jean Valin. In Tom Watson (ed.), North American Perspectives on the Development of Public Relations (London: Palgrave Macmillan/Springer, 2017), chap. 6.
  14. “The Practice of Public Affairs in Public Administration,” in Phil Harris and Craig S. Fleisher (eds.), SAGE Handbook of International Corporate and Public Affairs (Thousand Oaks, CA: Sage, 2017), chap. 12.
  15. “Government Public Relations: What is it Good for?” (revised version), in Mordecai Lee, Grant Neeley and Kendra Stewart (eds.), The Practice of Government Public Relations, 2nd ed. (New York: Routledge, 2022), chap. 2.

Encyclopedia Entries

Elgar Encyclopedia of Public Management (Cheltenham, UK: Edward Elgar, 2022): “U.S. – Public Management Concepts and Developments,” chap. 17, pp. 86-91.

Oxford Research Encyclopedia of Politics (Oxford University Press, 2019): “Historical Development of American Public Administration,” online.

Encyclopedia of Public Administration and Public Policy, 3rd ed. (Boca Raton, FL: CRC Press/Taylor & Francis, 2015):

  • “Accountability: Public Reporting,” pp. 44-48
  • “Media and Bureaucracy in the US,” pp. 374-78
  • “Nonprofit Organizations: Public Relations,” pp. 2277-83
  • “Public Relations in Public Administration,” pp. 2830-36

Encyclopedia of Milwaukee (online):

Book Reviews (selected)

Gary Wills, A Necessary Evil: A History of American Distrust of Government (New York: Simon & Schuster, 1999). In International Journal of Public Administration 25:7 (July 2002) 923-29.

Maan Abu Nowar, The Jordanian-Israel War 1948-1951: A History of the Hashemite Kingdom of Jordan (Reading, UK: Ithaca Press, 2002). In Digest of Middle East Studies 12:1 (Spring 2003) 75-78.

Paul C. Light, Sustaining Nonprofit Performance: The Case for Capacity Building and the Evidence to Support It (Washington, DC: Brookings Institution, 2004). In Stanford Social Innovation Review 3:1 (Spring 2005) 76-77.

Stephen Holmes and Cass R. Sunstein, The Cost of Rights: Why Liberty Depends on Taxes (New York: W. W. Norton, 2000). In Public Administration Quarterly 30:4 (Winter 2007) 479-82.

“Looking for Meaning in the Alabama Lectures’ Book Series: An Epitaph to an Old Friend of Public Administration After 65 Years” (essay), Public Administration Review 69:3 (May-June 2009) 531-42.

Johann N. Neem, Creating a Nation of Joiners: Democracy and Civil Society in Early National Massachusetts (Cambridge, MA: Harvard University Press, 2008). In Nonprofit and Voluntary Sector Quarterly 38:4 (August 2009) 721-24.

Note: For a more detailed list of publications, see ORCID: