UNIVERSITY OF SOUTHERN CALIFORNIA



UNIVERSITY OF SOUTHERN CALIFORNIA

School of Policy, Planning, and Development

USC State Capital Center; 1800 I Street; Sacramento, CA 95811-3004

PPD 546, Section 51406

Professional Practice of Public Administration

22-25 January & 19-22 February 2009 Chester A. Newland, Professor

Preliminary

Course Syllabus

This is a final semester course or the last requirement for students in the Master of Public Administration program and related fields of study at USC. It builds on other courses and cannot be taken earlier in the program.

The focus is on professional practice of public administration, with emphasis on practical accomplishment. That entails responsible ends and means for success and, therefore, a heavy orientation to applied management, networks, and standards of law. Linkages are examined among disciplined observation and inquiry, analysis, systems, and such rationalizing processes as performance management and evaluation. The course requires inquiry into individual, public, independent sector, and business responsibility and into ethical standards and institutions, particularly those of constitutionally empowered and accountable administration. This inquiry includes probes of comparative and international business, legal, and political standards. It also explores relationships of people, civic duty, and public service.

This Spring 2009 class coincides in time with beginnings in America of a new Congress and Presidential Administration. The United States and the world are in the midst of awesome challenges. California governments and social and economic governance are especially hard-hit. Impacting theories and practices of public-administration almost everywhere are aspects of the 2008-2009 global economic crisis; on-going terrorism, warfare, crime cartels, and other security challenges; environmental and natural resources problems; and health and social challenges. Responsible self governance, economic institutions, and constitutional politics and government are gravely impacted. USC’s leadership responsibilities stretch across these challenges—locally to globally. These are defining conditions of professional practice of public administration today.

Course Format

This class is scheduled at USC’s State Capital Center in Sacramento in an intensive-semester format. It is necessary to study in advance of the initial module of classes, and some work must be completed promptly after the second series. The general schedule is as follows:

5 – 21 January: Do course work before the classes begin. Study assignments broadly, speed read, and also prepare short papers that are explained below. You may confer with Chet Newland by phone (916-442-6911, ext. 24) or email newland@usc.edu.

22 – 25 January: Classes meet eight hours each day, Thursday through Sunday. The Thursday class will start at 9:00 am and end at 5:00 pm. Other days may begin earlier and/or continue later if students prefer to “bank time” to end class earlier on Sunday.

26 January – 18 February: Prepare for the second module of classes, including scheduled exam essays. Complete a 2 to 3 page outline of a practical term paper.

19-22 February: Classes meet each day, Thursday through Sunday. An essay exam, designed to

help you play to your strengths and to draw on earlier course work and professional experience, will be written as the first activity on Thursday.

23 February – 30 March: Completion of a final term paper and submission via a single email attachment to newland@usc.edu no later, please, than 30 March 2009. If you think that your emailed paper may lose format, you may also address a Postal Service copy to Chester A. Newland; University of Southern California; 1800 I Street; Sacramento, CA 95811-3004.

Required and Suggested Publications

Many books and other materials from earlier classes are useful for this capstone course. Also, this syllabus identifies required and suggested publications and web-site sources. These total a bit more than can be mastered, reflecting humbling realities of real-world practice of public administration. Students are not expected to read slowly all of the suggested sources. However, it is necessary to speed read and study all assignments reasonably, testing the limits and horizons of being human in a demandingly busy era. You may order required books from the USC Bookstore.

Five Required Books:

Phillip J. Cooper and Chester A. Newland, editors, Handbook of Public Law and Administration (San Francisco: Jossey-Bass, 1997).

International City/County Management Association (ICMA), Charldean Newell, editor, The Effective Local Government Manager, 3rd. ed. (Washington, DC: ICMA, 2004). Paperback. In local, state, national, and international public affairs, as well as in related private activities, this is a highly practical, informed book for management practitioners in the United States and abroad. It is designed by ICMA to serve as a flagship book in the professional practice of public administration.

Joan Magretta, What Management Is (New York: The Free Press, 2002).

Joseph S. Nye, Jr., The Powers to Lead (New York: Oxford University Press, 2008).

Fareed Zakaria, The Post-American World (New York: W. W. Norton, 2008).

Journal Articles to be accessed via electronic sites:

Chester A. Newland, “Public Administration Amid Turbulence: Facilitation of Enhanced Future Governance,” International Journal of Organization Theory and Behavior, Vol. 11, No. 3 (Fall 2008), pp. 326-353. This is posted on Blackboard for this class.

For the United States national government, access or . For California state government, access .

Utilize USC’s Library System electronic services to access journals. If you have professional memberships in organizations, such as the American Society for Public Administration (ASPA) for direct access to the Public Administration Review (PAR), take advantage of those.

If reasonably possible, please bring your PC to all class sessions to help access sources.

Suggested books (not required):

Daniel A. Bell, China’s New Confucianism, Politics and Everyday Life in a Changing Society (Princeton: Princeton University Press, 2008).

Richard N. Bolles, What Color is Your Parachute? Revised edition (Berkeley: Ten Speed Press, any recent printing). Revised Paperback. ISBN: 1580085415. This self-evaluation book, which has gone through several editions, is one of dozens that are commonly available at commercial bookstores. Most range from the “interestingly kooky” to the “marginally useful.” This is one of the more enduring ones near that spectrum. You may have read it in an earlier course.

Nicholas Carr, The Big Switch, Rewiring the World, from Edison to Google (New York: Norton, 2008).

Rajiv Chandrasekaran, Imperial Life in the Emerald City (New York: Alfred A. Knopf, 2007).

Phillip J. Cooper, Governing by Contract (Washington: CQ Press, 2003).

Noah Feldman, The Fall and Rise of the Islamic State (Princeton: Princeton University Press, 2008).

Stephen Goldsmith and William D. Eggers, Governing by Network (Washington, DC: Brookings Institution, 2004).

Alan Greenspan, The Age of Turbulence (New York: Penguin Press, 2007).

Donald F. Kettl, System under Stress: Homeland Security and American Politics (Washington: CQ Press, 2004).

Yong S. Lee, A Reasonable Public Servant (Armonk, NY: M.E. Sharpe, 2005). This book is commonly used in PPD 545.

Scott McClellan, What Happened, Inside the Bush Whitehouse and Washington’s Culture of Deception (New York: Public Affairs, 2008).

National Commission on Terrorist Attacks upon the United States, The 9/11 Commission Report (New York: W.W. Norton, 2004).

Barack Obama, The Audacity of Hope (New York: Crown Publishers, 2006).

Beryl Radin, Challenging the Performance Movement: Accountability, Complexity, and Democratic Values (Washington: Georgetown University Press, 2006).

Ahmed Rashid, Taliban (New Haven: Yale University Press, 2001).

Anne-Marie Slaughter, A New World Order (Princeton: Princeton University Press, 2004). This book is commonly used in PPD 540.

Nassim Nicholas Taleb, The Black Swan: The Impact of the Highly Improbable (New York: Random House, 2007).

Bob Woodward, The War Within, a Secret White House History, 2006-2008 (New York: Simon & Schuster, 2008).

Other Publications:

Some papers and articles will be distributed in class. Relevant publications and documents (governmental reports, etc.) from your earlier classes, professional practice, and other experiences may be used. You may recommend some.

Written Assignments

1. On 22 January 2009, you are to submit a one-page resume and two short papers. One paper is to be only one page (no more), and the other is to be two pages (no more). In one paper, succinctly summarize EITHER principal public administration challenges at the 2009 outset of the new U.S. Presidential Administration OR analyze 2009 California state and/or local government challenges. In a second paper, please identify and analyze a public administrator, a political official, a worker in an organization, or other individual who is an exemplar of excellence. This individual should be someone with whom you have worked or otherwise associated. You are to choose which paper should be only one page and which one should be two pages. Papers should be typed in 12-point font, doublespaced, with standard margins. Write professionally well! Please do not put a cover page on your papers, and do not put them into a folder or binder. Merely put your name on the first page of each and, with your short resume on top, paperclip all pages together (to facilitate placing them in alphabetical order for duplication and distribution to all members of the class). Please do not submit papers longer than requested.

2. On 19 February, the first day of the second series of classes, a closed-book essay exam will be written at the outset of the morning. You will select one subject from among six in Module One and one from among six in Module Two to write two essays. The subjects will be clearly identified during Module One, and they will contain no tricks or surprises. This exercise will be designed to facilitate your success, assuming that you study reasonably — to help you to integrate parts of what you have studied at USC in this class and in earlier courses and what you have learned from related experiences. You will write in longhand in an Essay Tablet provided by the professor.

3. Also for Module Two, prepare a 2 to 3 page outline or a first draft of a short term paper (to be 17 to 24 double-spaced pages, when submitted. Following the second series of classes, you are to revise and complete your term paper for submission no later than 30 March via a single email attachment (or you may hand-deliver a copy if that is convenient for you). The paper must be originally prepared by you for this course, and it must be based in significant measure on sources assigned in this class; it may also draw on what you have learned from other courses and from your professional work. The subject should center on professional practice. However, within that, you may choose to write a deeply thoughtful, methodologically disciplined paper that focuses on one of the following choices:

a. A personal assessment and strategic plan for your future professional development and practice (and/or a job search for prospective employment). If you did this in another USC course, do not repeat it in this class without securing permission to do so.

b. A specific challenge / problem / achievement related to professional practice where you work (and/or in your specialized professional discipline or field) that merits disciplined study.

c. An analysis of public administration challenges in 2009 and beyond in American National Government or in California (or in your other state of residence or in your home jurisdiction outside the USA), utilizing assigned publications in this course syllabus and additional sources.

d. An analysis of vital international and/or comparative governance issues in 2009 and beyond.

Expectations for professional-quality term papers will be explored during class sessions. These include professional excellence of composition.

Bases of Grades

After completion of the course, your exam and marked term paper will be returned to you, along with a written evaluation and course grade. Your first papers and class participation will be counted as 20 to 30 percent of the evaluation. The exam will be counted as 25 to 35 percent. The term paper will be graded on both contents and composition and will account for about 35 to 45 percent. The underlying standard will be the basic one of the field: search for reasonableness.

Tentative Class Schedule:

Series One

Thursday: Basic Frameworks of Professional Practice; Organizations.

A. Current Assessments of International and American National, State, and Local Contexts and Practices of Public Administration.

1. Analyze President Barack Obama’s Inaugural Address and commentaries following it.

Please access to determine changes posted by the Obama Administration and by congressional sources. Also, you may wish to search domestic and/or global news media and other sites for perspectives.

2. Class handouts: Newland, The Facilitative State and Global Governance Trends. Also,

see the Newland article, “Public Administration Amid Turbulence.”

B. Contemporary National and California Developments; Global Futures.

1. Workforce and Government Budget Trends.

a. Please access . Use the Alphabetical List of agencies to go to

the Government Accountability Office (GAO) to peruse critiques of the Acting Comptroller General and/or the former Comptroller General, David Walker, who resigned 12 March 2008. Also, at , study President Bush’s FY 2009 Budget and consider prospects for changes by the new Administration and Congress.

b. Please access . Surf that site to access California State Budget

developments in what has become an On-Going, Moving, Colossal Show. Will California remain a Mixed Tragedy-Comedy in 2009? Thereafter?

c. Access local government sites. How are counties and cities doing in 2009?

2. Analysis of students’ initial papers on 2009 public administration challenges. Resumes are also to be noted, along with introductions.

C. American and Global Contexts of Challenges:

1. Fareed Zakaria, The Post-American World, pp. 1 – 5.

2. The 2008 Economic Meltdown and 2009 Social, Economic, and Political Prospects.

D. Terrorism and Criminal Cartel Challenges, Homeland Security Administration, and Disciplines of Constitutional Democracy.

1. Handouts: Newland, “Fanatical Terrorism versus Disciplines of Constitutional

Democracy” & “Fundamentals of Terrorism and Its Target: Responsible Governance.”

2. Consider Illicit Drugs Cartels and other international and domestic crime challenges.

E. Frameworks of Public Law and Administration.

1. Review introductions to ALL parts of the Cooper/Newland book.

2. Principal jurisprudential frameworks.

3. Fundamental political-system values and constitutional principles.

4. Class handouts: old closed and open systems models; managerial frameworks.

Compare and contrast these with contemporary network developments.

Friday: Social, Economic, and Political Factors Impacting Professional Practices.

A. Politics of Self Interests and of Civic Responsibility; Trust and Mistrust of Government.

1. California Regional Challenges: Google SCAG and study the Southern California Association of Governments. Search ABAG, SACOG, etc.

2. Reflect upon 2009 Outcomes of 2008 Elections. Queries: Transformations and/or Demolition Politics and Market-Exchanges? Sacramento and Washington as Grand Political Shopping Malls? Funding of Elections as Media Feeding Frenzies? Impacts on Practices of Public Administration?

3. Professional Roles: Instrumental and/or Constitutive Responsibilities.

B. Contemporary Social, Economic, and Political Governance Concepts and Practices.

1. Contradictions and Paradoxes.

2. Place and Planet; Localization and Globalization.

3. Discipline and Disciplines. Fields.

4. Substantive and Procedural Orientations. Rationality ? Linearity ? Chaos!

5. Governance Networks.

C. Public-Sector Managerial Frameworks, Roles, and Competencies.

1. Classic Prescriptions and Present and Future Realities (class handout).

2. Chapter 1 in ICMA book, The Effective Local Government Manager.

3. C. A. Newland, “Building Futures of Local Government Politics and Administration,” copyrighted by ICMA in 2002. This will be distributed and noted at this point in class, and it may be discussed more during Module Two of classes.

D. Business Management and Public and Non-Profit Applications:

Joan Magretta, What Management Is. This book will be noted here and studied Saturday.

Saturday: Systems and Legal Frameworks. Exchange and Examples: Transactional

and Transformational Ideals and Practices.

A. Changing Contemporary Perspectives: An Overview

1. Newland, class handout: “Facilitative Governance Organizations and Networks:

Disaggregated & Offloaded Government & Aggregated Response to Onloaded Stress,” PAR, vol. 66, no. 3 (May/June 2006), pp. 470-473.

2. Radin, Challenging the Performance Movement, This non-required book will be noted.

B. Management Frameworks and Practices

1. Joan Magretta, What Management Is. All chapters will be studied at this point, and the contents will later be compared and contrasted with other materials.

2. U. S. National Government Trends & Bush Administration Priorities. Class handouts.

3. Expectations of OMB and the EOP generally in the Obama Administration: WHO’S

WHO?; WHAT’S WHAT? Especially see: or search that weekly publication via USC’s Library access.

C. Legal Frameworks and Transformational Behaviors?

In Cooper and Newland, Chapters 1, 2, 3, & 4.

D. Exemplars and . . . ? Representativeness and . . . ?

1. Public Administration’s greatest books?

a. Aesop’s Fables?

b. Shakespeare’s Plays?

c. The Classic 3E’s and three more E’s of PA: Experience, Examples, Empathy!

2. Analysis of Students’ Initial Papers on Exemplars. Examples of excellence and the opposite — from your experience. How do you know the differences? What accounts for them and for your ability to distinguish them?

3. Instances of misbehavior; public and official reactions: Presidents Nixon & Clinton.

Sunday: Popular, Classic, and Legal/Professional Perspectives.

A. Popular and Professional Perspectives.

1. Fareed Zakaria’s entire book is to be examined at this point.

2. Other current, non-required books, such as Nathaniel Carr’s The Big Switch may be

noted here and/or in Module Two.

3. Popular and professional journals and magazines.

B. Long-Term Currents in American Political Culture: Representativeness, as discussed by Ted Lowi in The End of the Republican Era, and Liberalism, as discussed in Lowi’s The End of Liberalism, will be noted. These are not required books, but educated people are expected to know these classical ideas, and they will be reviewed to help you think about basics.

C. Classic and Contemporary Views on Bureaucracy, on Inclusiveness, and on Open Systems.

1. American and International Perspectives.

2. Contemporary Developments.

D. Cultures of Accomplishment and Ethics — and of Corruption!

1. Chapters 5, 6, & 7 in Cooper and Newland.

2. Two classic concepts and practices of P.A. culture:

a. Expertise – and Elites’ Specializations!

b. Professionalism – and Elites’ Responsibilities!

3. A Rule of Law?

Chapters 1 and 8 in Cooper and Newland.

4. Ethical Conduct. Standards and Guidelines: Class Handouts for Module Two.

5. Cultures of corruption, classic and contemporary! Dark Networks.

E. Key subjects, examples, and authorities on professional practices of public administration: management, accountability, and more — responsibility.

Examine ICMA book, Chapters 5 & 6.

Tentative Class Schedule:

Series Two

Thursday: Examination and Examples

A. The course examination will be the first activity of the second series of classes, from 9:00 am to 11:20 am. That will be followed by a brief review of the exam topics.

B. Facilitative State Challenges: Facilitation of What ? How ? ... ? See Module One handouts.

C. Ethics, Exemplars, Scoundrels, and . . . ?

1. Contemporary Perspectives: See Module One handouts.

2. Fraudwasteandabuse and defrauderswastrelsandabusers! Examples?

3. Are examples best precepts? ...exemplars? ...scoundrels? Recall day-one exemplar papers.

4. The Dark Side: Again, reflect on drug cartels, gangs, corrupt and/or unethical politicians

and public employees, failed markets and those who corrupt economics, etc.

D. On being human: the search for reasonableness!

1. Is it enough to be a bit less than perfect? Is the expectation that one should be reasonable? ...all the time? Or is the standard “to try” to be reasonable? ...all the time? What if a public administrator “pulls off excellence with integrity” nine important times and fails in excellence once? ...fails a little once? ...fails in integrity once? ...just a little?

2. What are foundations of standards noted above?

a. Consider Plato’s Allegory of the Cave.

b. Consider “Disciplines of Constitutional Democracy” examined in Module One.

3. What is responsible citizenship? What is responsible residency, sans citizenship? What is responsible visitor behavior, sans residency? Is self governance possible? ...probable? How were these questions answered in the wake of the 11 September 2001 terrorists’ actions? How are they answered now in ordinary, day-to-day experience?

4. Are 2009 social, economic, and political/governmental challenges conducive to Transformational Change in America? Might the Obama Administration and American Institutions be capable of such change?

E. Frames of Reference.

Chapters 9, 10, 11, 12, 13, & 14 in Cooper and Newland.

Friday: Accountability/Management/Leadership: Facilitating Accomplishment; Human Capital and Diversity in Administration.

A. Accountability in Constitutional Government and in Responsible Public Management.

1. Responsible & Irresponsible Democracy: Constitutional Governance!

2.Note accountability institutions and processes among American governments: Local

Grand Juries; Internal Organization Accounting; External Accounting; Legislative Oversight; Inspectors General; Media; Elections; etc., etc. etc. Accountability is considered much further on Saturday (Chapters 21 through 30 of Cooper/Newland).

B. On Being an Effective Manager/Leader.

1. ICMA book, Chapters [1], 2, 3, 4, [5, 6], & 7. Compare with Magretta.

2. Joseph S. Nye, Jr. The Powers to Lead. This entire book is to be studied and compared to

Magretta, the ICMA book, etc.

C. Differences and Changes in Roles.

1. Reflect on leadership and multiculturalism — and gender — and generational differences. 2. Leadership Development, Facilitation, and Followership!

D. Human Resources Management: Human Capital?

1. Consider contemporary developments. Cooper and Newland, Chapters 16, 17, 18, & 19.

2. Public Service and/or Public Employment: Unionism. Class Handouts.

3. Other Human Resources Management Issues.

4. Dismantling Civil Service/Public Employment? Cooper and Newland, Chapter 20.

5. Contracting Out. Note Phillip Cooper’s recommended book, Governing by Contract.

6. Reconsider Magretta’s last chapter.

Saturday: Enterprise; Performance Management; Accountability; and WHY?

A. Enterprise in Public Administration and in Private-Sector Economics.

1. The New Public Management (NPM) Movement and Reinventing Government.

2. Entrepreneurial Incentives: Successes/Failures? Consider consequences in the 2008-2009

Financial Crisis.

3. Cultures of Entitlement and Dependency on Wall Street and elsewhere: Whither

Capitalist Economics? Alternatives?

B. Performance Management: Review from earlier study.

C. Accountability and Law in Constitutional Governance

In Cooper and Newland, Chapters 21, 22, 23, 24, 25, 26, 27, 28, 29, & 30.

D. Social Self Governance and Disciplines of Constitutional Democracy

1. Facilitative Public Administration: Facilitating What? How?

2. Cultural Challenges:

a. Entitlement and Dependency Values

b. Civic Duty and Self Responsibility

Sunday: Futures! Why, Where, Who, What, and When? Professional Public Administration, Accountability, and Responsibility. Prospects?

A. Term Paper outlines and drafts are to be reviewed in dyads or triads. As explained earlier

in this syllabus, papers may focus on varied aspects of public administration – and way beyond into self assessment, career competencies and options, organizational challenges, etc.

B. Historical and Current Developments and Future Prospects for Social, Economic, and Political

Governance.

1. The “Recent Waves” of Management Practices

a. Fads and Foolishness and/or Foundations and Fundamentals: Reframing,

Reengineering, Reinventing! . . . Reifying? Networking! Conjunction! Disaggregation!!! What will be new waves?

b. “Managing” today’s New Garrison State: asymmetry versus conventional

defense!

c. A Facilitative State or the Administrative State with Orwellian 21st Century

dimensions.

2. Reconsider the Class Handouts distributed in Module One: C. A. Newland, “Building

Futures of Local Government Politics and Administration,” copyrighted by ICMA and published in H. George Frederickson and John Nalbandian, The Future of Local Government Administration (Washington, DC: ICMA, 2002), pp. 231 - 245. Also reconsider C. A. Newland, “Public Administration Amid Turbulence,” Fall 2008.

3. California Dreaming? Nightmares! California Leading? Creating! 2009 Challenges!

C. WHY?

1. Governance Policies and Practices — Priorities in 2008-2009 and beyond.

Human Dignity and a Rule of Law? Shared Standards of Reasonableness?

Transactional Culture of Economic Self Interest and/or Transformational Culture of

Shared Civic Responsibility?

2. Terrorism: Duration? Objectives? Outcomes?

3. Economic System Failures and Alternatives

D. WHERE? HOW?

1. Place and Planet: Localization and Globalization Trends.

2. Interdependent Nation States; Unilateral Uses of Power; Facilitative Theory and Practices.

3. Disaggregation of Nation States and a New World Order? (Consider the recommended

book with that title by Anne-Marie Slaughter, the Dean at Princeton’s Woodrow Wilson School, discussed in the Book Review handout from Module One).

4. Challenges to ENLIGHTENMENT in America and Globally.

E. WHO, WHAT, AND WHEN?

1. In Cooper and Newland, Chapter 31.

2. In ICMA book, Chapter 8.

3. Reconsider the books by Joe Nye and Fareed Zakaria.

F. Ends-Oriented (Substantive) and Means-Based (Procedural) Standards — Disciplined Searches for Reasonableness.

1. In Society (Societies)? In Economics (Organizations and Markets)? In Politics and Governments? In Future Governance?

2. A universally binding Rule of Law? Warmaking! Peacekeeping! Social and Economic Self Governance? Government under Law.

Professor’s Resume

Chet Newland is a full-time teacher at USC, mostly at the University’s State Capital Center in Sacramento. He is the Duggan Distinguished Professor of Public Administration. He is past national president of the American Society for Public Administration (ASPA). He is a Fellow and past trustee of the National Academy of Public Administration (NAPA). He was editor in chief of the Public Administration Review, 1984-1990. He is an honorary member of the International City/County Management Association (ICMA); he is a member of ICMA’s Credentialing Advisory Board; and he is a member (2003 – 2009) of the general board of Cal-ICMA (the California subunit). He was twice director of the Federal Executive Institute, and he was the initial director of the Lyndon Baines Johnson Presidential Library. Internationally, he has worked in several places, including Bangladesh, Bahrain, Czech Republic, Greece, Hungary, Kuwait, Mexico, Moldova, Kazakhstan, Poland, and Taiwan.

You may contact Chet Newland most often at the Sacramento Center: University of Southern California ; 1800 I Street; Sacramento, CA 95811-3004. Phone: 916-442-6911, ext. 24; FAX 916-444-7712; and newland@usc.edu by email. Please feel welcome to contact him before or after class sessions. Inquire if clarifications are needed about assignments or other matters.

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A student requesting academic accommodations based on a disability is required to register with Disability Services and Programs (DSP) each semester. A letter of verification for approved accommodations can be obtained from DSP, Office of Student Affairs, STU 301; University of Southern California ; Los Angeles, CA 90089-0896. DSP’s phone number is 213-740-0776, and that office is open from 8:30 am to 5:00 pm Monday through Friday. Please be sure that the letter is delivered to me (the course professor) reasonably long before the start of intensive-semester classes.

*****

Please do not present gifts of any sort to USC faculty or staff.

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