MEMORIALUNIVERSITY

DEPARTMENTOFPOLITICALSCIENCEPOLITICALSCIENCE2600

INTRODUCTIONTOPUBLICPOLICYANDADMINISTRATION

FALL2015

Instructor: Dr. Christopher Dunn Office: SN2045

Phone No.: 864-8178 Email: cdunn@mun.ca

Lecture Slot: 19 - 2:00 PM -3:15 PM Lecture Slot: 13 (MW 2-3:15) Office Hours MW 1-2:00 or appt. This is an introductory course. Introductory courses tend to be “survey” courses, meaning that a range of matters associated with the field in question is covered. This particular one is meant to give students a flavour of theory and practice of how governments decide and implement public policy. Accordingly, it includes a review of the major currents of public policy and public administration theory, together with some public policy content. The course in particular examines various “modes of governance” (command and control, corporatism, governance and globalization) and considers which are appropriate descriptors of our current policy environment. I have structured the readings and assignments to encourage a critical perspective by students. There will be guest speakers at points in the course. REQUIRED TEXTS:

Howlett, Michael, Anthony Perl and M. Ramesh. 2009. Studying Public Policy. Toronto: Oxford University Press.

Ritzer, George and Paul Dean. 2015. Globalization: A Basic Text. New York: Wiley

Smith, Catherine F. 2013. Writing Public Policy. New York: Oxford UP RECOMMENDED TEXTS (NO NEED TO BUY, BUT USEFUL)

Miljan, Lidia. 2011. Public Policy in Canada. Don Mills, ON: Oxford

Denhardt, Robert P. 2015. Theories of Public Organization. seventh edition. Belmont, CA. Wadsworth

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MARKS AND ASSIGNMENTS

ASSIGNMENT DATE WEIGHT

Participation* Test Policy Proposal** Final Exam

Through Term October 14 November 13 TBA

25% 25% 25% 25%

*Participationincludesdoingon-timeoutlines,attendance,andin-classorin-kindinteractiononreadingsandlectures.Lateworkpenalized25%aday.Forinformationonhowtodooutlines,gotohttp://owl.english.purdue.edu/owl/resource/544/01/ andhttp://owl.english.purdue.edu/owl/resource/544/03/ These are an important part of the course, and will be very helpful to you. **The policy proposal mark will be split up into two components, together forming a total of 25%. A background paper is required, for 10%, due Oct. 30. The proposal paper will be 15%. Detailed guidelines will be handed out later in the course. You will be imagining that you are a provincial or federal public servant, or representative of a Non-Governmental Organization (NGO) or of a Voluntary Sector body. Particularly helpful in doing the background paper will be Smith’s Writing Public Policy. Consider chapters 2 (Actors, Roles, Communication Practices), 3, 4 (especially the ‘tasks’), 5 (especially the ‘tasks’), and 6 (especially the ‘tasks’). First assignment: Background Paper (Due October 28)

1. Define a policy problem (using inspiration from ch. 3) 2. Analyze the policy (using inspiration from ch. 4, especially tasks 1 and 2, problem

identification and specification of alternatives) 3. Do an analysis of the advantages and disadvantages of the various alternatives 4. Provide the relevant legislative history of the policy area (using inspiration from ch. 5) 5. Review in general what you would consider to be a good policy document in this particular

case Second Assignment: Policy Proposal or Cabinet Submission Paper

1. For this assignment use the template provided in the “The Cabinet Submission: Drafter’s Guide” which will be provided for you, and chapter 6 in the Smith book on doing a “position paper.” The former is the template used by the provincial cabinet, but if your policy problem involves a federal issue for the federal cabinet, this can still be used. If you are an NGO representative requesting action of the government(s), chapter 7 may be of use to you. Just remember that to be effective, you should be casting your arguments in such away as the public sector representatives are used to thinking (that is, in ways like in the Guide and ch. 6-7, Smith).

2. You should provide a respectable amount of academic research to substantiate the arguments

that you are making in the policy proposal. You can include this in the body of the proposal or as an appendix. Include as well a list of references in the paper at the end. Although in academic papers I prefer the Turabian/Chicago style, in the interests of style in this one, I will

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accept APA references, not MLA. (See Appendix A, at the end of the course outline, for the differences between the two.)

I. MAPPING THE TERRAIN: THE FEDERAL AND PROVINCIAL SECTORS

Dunn, Christopher. 2014. “The Public Sector in Newfoundland and Labrador.” in Alex Marland and Matthew Kerby, in First Among Unequals: The Premier, Politics and Policy in Newfoundland and Labrador. Montreal and Kingston: McGill-Queen’s University Press. F 1123 F57 2014

Graham, Andrew. 2014. Canadian Public-Sector Financial Management. Kingston and Montreal: McGill-Queen’s University Press. ch.1. HJ9921 .G73 2014

II. THEORIZING THE TERRAIN: PUBLIC POLICY SCHOOLS, DISCIPLINES,

POLICY STYLES, STAGES; AND PUBLIC ADMNISTRATION APPROACHES

A. OVERVIEWS OF THE PUBLIC ADMINISTRATION APPROACHES American overviews

Kettl, Donald. “Public Administation at the Millennium: the State of the Field.” http://courses.washington.edu/ppm504/Kettl_PubAdminMillenium.pdf An earlier version of this, in some ways more complete, was originally published: Donald F. Kettl, “Public Administration: The State of the Field,” in Ada W.

Finifter, Political Science: The State of the Discipline II (Washington, D.C.: The American Political Science Association, 1993), pp. 407-428. JA 73 P6582 1993 (2002: JC 11 P65 2002)

The Different Approaches in Public Administration: An Abbreviated Overview

I. Origins of Public Administration

Hamiltonianism and Madisonianism The Wilsonian Paradigm Marx, Weber and Freud

II. Scientific Management Frederick Taylor Luther Gulick and the Brownlow Committee

III. Challenges to the Hegemony of Public Administration

Power Theories Behaviouralism H.A. Simon’s “Proverbs” Graham Allison’s “The Essence of Decision”

Rationalist Theories and Critics

The rationalist model of decision making Incrementalist model of decision making “Garbage Can” approach to decision making Systems Theory

Human Relations Theory Chester Barnard Hawthorne Experiments McGregor: Theory X & Theory Y Argyris and Golembiewski The New Public Administration

The Modern Era New Public Management (NPM) Denhardt’s “New Public Service”

Canadian contributions Early Scientific Management effects and Counter-reactions The Whitehall Model and the Politicization Challenge A “Canadian Model” of Public Administration?

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Canadian Political Economy and Staples Theory Trebilcock et al.’s Governing Instrument Theory Aucoin’s “New Political Governance”

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Canadian Overviews:

Aucoin, Peter. 2002. “Beyond the ‘New’ in Public Management Reform in Canada: Catching the Next Wave?” In Christopher Dunn, ed. 2002. The Handbook of Canadian Public Administration. Don Mills, ON: Oxford University Press.

See also his Aucoin, . “New Political Governance in Westminster Systems: Impartial Public

Administration and Management Performance at Risk.” Governance. April 2012 25:2, 177-199. DOI: 10.1111/j.1468-0491.2012.01569.x JL 108 H353 2002

Dwivedi, O.P. & James Iain Gow, 1999. From Bureaucracy to Public Management: The Administrative Culture of the Government of Canada. Peterborough: Broadview. http://qe2a-proxy.mun.ca/login?url=http://site.ebrary.com/lib/memorial/ Doc?id=10173345

B. OVERVIEWS OF PUBLIC POLICY THEORY

Recommended: Howlett, Perl and Ramesh, 2009. Plus chap. 1, 2 of Howlett, Michael. 2011.

Designing Public Policies: Principles and Instruments, New York: Routledge. JF 1525 P6 H69 2011

Miljan, ch. 2. “Structuralist” and “Dynamic” theories of public policy Simeon, Richard. “Studying Public Policy.” CJPS (1976) Vol IX, no. 4, pp.548-

80: environment, power, process, institutions, and ideas Chilcote, Ronald H. 1994. Theories of Comparative Politics:The Search for a

Paradigm Reconsidered. Boulder: Westview. . Chapter 3 pp. 121-163 JF51.C44 1994

My approach - Different Policy Traditions:

A Sample of Varieties of Approaches and Analytic Frameworks in Public Policy I. Disciplinary Bases A. Philosophical

B. Psychological C. Historical D. Economics E. Welfare Economics F. Sociological; Social Construction

II. Individualistic, Class and Group-Related

A. Public Choice B. Elitism. C. Pluralism, Neo-Pluralism and Corporatism. D. Neo-Marxist E Political Economy Traditions

III. Systemic A. Systems Theory B. Policy Typologies C. Multi-level Governance and Veto Points D. Institutionalism and Statism E. Policy Change and Policy Learning

IV. Some Modern Schools

A. Globalization B. Deliberative Democracy C. Ideas and Paradigms D. Narrative Policy Analysis

V. The Policy Cycle, or “Stages” Paradigm:

A. Problem definition and Agenda-Setting Stage B. Policy Formulation Stage C. Decision-Making Stage D. Implementation Stage

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E. Evaluation Stage

III. PUBLIC POLICY THEORY: THE STAGES PARADIGM

Required: Howlett, chs. 1. 4, 5, 6, 8, 9, 10. Recommended:

For an abbreviated coverage of the stagist paradigm, see

Xun Wu, M. Ramesh, Michael Howlett and Scott A. Fritzen. 2010. The Public Policy Primer: Managing the Policy Process. New York: Routledge.

H 97 W9 2010

IV. GOVERNING INSTRUMENTS

Required: Howlett Perl and Ramesh, ch. 4, and ch. 8 Recommended:

Howlett, Michael. 2011. Designing Public Policies: Principles and Instruments, New

York: Routledge. JF 1525 P6 H69 2011 also: Trebilcock, M., Douglas G. Hartle, J. Robert S. Pritchard and Donald M. Dewees. 1982.

The Choice of Governing Instrument. Ottawa: Economic Council of Canada. JL 75 T742 1981

V. THEORIES OF PUBLIC ADMINISTRATION: A BASIC INTRODUCTION

Required:

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Robert B. Denhardt, Theories of Public Organization Seventh Edition (Belmont, CA: Wadsworth Thomson Learning, 2015) (all) JF 1351 D46 2015

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VI. THE CONTEXT OF PUBLIC POLICY

Canadian Political Economy:

Michael Howlett, Alex Netherton and M. Ramesh. 1999. The Political Economy of Canada: An Introduction. Don Mills, ON: Oxford University Press. HB 121. A2H68 1999

Chs. 1-6

Globalization: Required:

Ritzer, George. 2010. Globalization: A Basic Text. Chichester, West Sussex: Wiley-

Blackwell. Chs. 1, 2, 3, 6-12 JZ 1318 R577 2010 (2015 edition ordered) Miljan, ch. 3 Recommended:

Roberts, Alasdair. 2010. The Logic of Discipline: Global Capitalism and the Architecture

of Government. New York: Oxford University Press. HB 501 R57 2010 Payne, Richard J. Global Issues. Chs. 1, 7, 8, 10, 11 na JZ 1318 P39 2013

VII. THE CONTENT OF PUBLIC POLICY

A. Social Policy

Required: Miljan, ch. 7 Recommended:

Prince, Michael. 2015. “The provinces and social policy: Canada’s multiple welfare states,” in Christopher Dunn, ed. in Provinces: Canadian Provincial Politics. Toronto: University of Toronto Press.

McGilly, Frank. 1998. An Introduction to Canada’s Public Social Services. 2nd edition. Toronto: Oxford University Press. HV 105 M478 1998

Canada. Employment and Social Development Canada. 2013. “Snapshot of racialized Poverty in Canada”

http://www.hrsdc.gc.ca/eng/communities/reports/poverty_profile/snapshot.shtml Dunn, Christopher. 2010. “The Federal Spending Power.” In Christopher Dunn,

The Handbook of Canadian Public Administration. Don Mills: OUP. c. 24 Lightman, Ernie . Social Policy in Canada. 2003. Don Mills, ON: Oxford UP.

HN 103.5 L538 2003

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B. Health Policy

Required: Miljan, ch. 8 Recommended:

Fierlbeck, Katherine. 2015. “Health Policy in the Provinces.” In Christopher Dunn, ed. in Provinces: Canadian Provincial Politics. Toronto: University

of Toronto Press. See also her longer book 2011. Health Care in Canada: A Citizen's Guide to Policy and Politics. Toronto: University of Toronto Press.

Perri Six, (2002),"Can Policy Making be Evidence-Based?", Journal of Integrated Care, Vol. 10 Iss: 1 pp. 3-8

www.unece.org/stats/documents/2008/05/dissemination/wp.10.e.pdf

C. Aboriginal Policy

Required: Miljan, ch. 10 Recommended: Frideres, James F. 2011. First Nations in the Twenty-First Century (Don Mills,

ON: Oxford University Press). Ch. 1. E 78 C2 F72 2011

D. Economic Policy

Banting, Keith and John Myles. 2015. “Framing the New Inequality: The Politics of Income Redistribution in Canada. In Green, David A., W. Craig Riddell and France St-Hilaire. Income Inequality: The Canadian Story. Volume V, The Art of the State series, published by IRPP. See IRPP site: http://irpp.org/wp-content/uploads/2015/05/AOTS5-banting-myles.pdf

E. Environmental Policy

Required: Miljan, ch. 11

Recommended:

Muldoon, Paul, Alastair Lucas, Robert B. Gibson, Peter Pickfield and Julie

Williams. 2015. An Introduction to Environmental Law and Policy in Canada. Toronto: Emond Montgomery. KE 3619 I68 2015

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MacDowell, Laurel Sefton. 2012. An Environmental History of Canada. Vancouver: UBC Press. (Internet Resource)

Dwivedi, O.P. Patrick Kyba, Peter J. Stoett and Rebecca Thiessen. 2001.

Sustainable Development and Canada. Peterborough: Broadview Press. (On E-Reserve)

Boyd, David R. 2012. The Right to a Healthy Environment: Revitalizing Canada’s Constitution. Vancouver: UBC. Esp. chs. 1-3. KE 5110 B69 2012

Hessing, Melodie, Michael Howlett and Tracy Summerville. 2005. “Canadian Natural Resource and Environmental Policy: Issues and Approaches.” In Canadian Natural Resource and Environomental Policy, 2nd ed. Vancouver, BC: UBC Press. Excerpted at

http://www.ubcpress.ca/books/pdf/chapters/canadiannaturalresource/canadiannaturalresource.pdf

VIII. ARE THERE “BEST PRACTICES” FOR POLICY PROPOSALS, POLICY MAKING AND ANALYSIS?

Required: Wu, Xun, M. Ramesh, Michael Howlett, and Scott Fritzen, 2010. The Public Policy

Primer: Managing the Policy Process New York: Routledge, Chapters 1 and 2. Smith, Catherine F. 2012. Writing Public Policy: A Practical Guide to Communicating in

the Policy-Making Process. On order. Older edition found at JF1525.C59S64 2005

Recommended:

Bardach, Eugene. 2009. A Practical Guide for Policy Analysis: the Eightfold Guide to

More Effective Problem Solving. New York: Chatham House H 97 B37 2009 National Audit Office. 2001. Modern Policy-Making: Ensuring Policies Deliver Value

for Money. Report by the Comptroller and Auditor General HC 289 Session 2001-2002: 1 November 2001. www.nao.org.uk/publications/0102/modern_policy-making.aspx \

Hallsworth, Michael with Simon Parker and Jill Rutter. 2011. Policy Making in the Real

World: Evidence and Analysis. London: Institute for Government. http://www.instituteforgovernment.org.uk/publications/policy-making-real-world McConnell, Allan. 2010. Understanding Policy Success: Rethinking Public Policy. New

York: Palgrave Macmillan. JF 1525 P6 M66 2010

Plus there are several sites on the web you can search for this topic.

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DEPARTMENT OF POLITICAL SCIENCE PLAGIARISM GUIDE

"Plagiarism means taking material written by another and offering it as one's own... Copying others' work is the most complete failure possible," (Perrin, Writer's Guide and Index to English, Third edition). The material copied may consist of a few phrases or sentences, or an entire passage of paper written by someone else. The source may be a published book or article, or the work of another student. It applies equally to "research papers" and to "thought or opinion essays." Whatever its form (and the rules of scholarship do not generally recognize degrees) plagiarism constitutes two kinds of failure: (1) Failure to perform the basic tasks expected in any paper--original mental effort and expression. (2) Potentially, the moral failure of dishonesty. Although it is conceivable that a person might copy another's words without attribution out of ignorance of proper practices, this is not an acceptable excuse in university work. Objective evidence of plagiarism carries with it the presumption of dishonest motives. Complicity in plagiarism (e.g., knowingly allowing one's work to be copied or doing work to be submitted in another student's name) is considered equivalent to plagiarism. In short, it is better to try to do one's work, even if this results in an apparently poor product, than it is not to try at all, substituting someone else's efforts for one's own. Memorial University Calendar regulations (Procedures Governing Academic Academic Dishonesty - Undergraduate Students) specify that the penalty for plagiarism is at least a reduction of grade for the work (assignment) concerned, and in the case of repeat offenses may be probation, suspension or expulsion in addition to the grade reduction (General Regulation V). The Political Science Department will apply this regulation to its full extent and regards pla-giarism as a far more serious failing than non-completion of assigned work. Students are expected to familiarize themselves with the General Regulations. If there is any question as to what constitutes plagiarism and what constitutes proper attribution and documentation of facts, ideas, and words obtained from other sources, the student should consult his or her instructor as well as any standard manual on composition and style (for example, James D. Lester, Writing Research Papers, 5th edition, pp 77-81). Memorial University policies for identifying and dealing with plagiarism and other academic offences: http://www.mun.ca/regoff/calendar/sectionNo=REGS-0748 Web source describing what constitutes plagiarism, and related matters, can be found at: http://ec.hku.hk/plagiarism/introduction.htm Guidelines for citing web and government sources: Citing Canadian Government Publications: http://www.mta.ca/library/govcite.html

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Rules for Writeres 1. Verbs HAS to agree with their subjects. 2. Prepositions are not words to end sentences with. 3. And don’t start a sentence with a conjunction. 4. It is wrong to ever split an infinitive. 5. Avoid cliches like the plague. (They’re old hat) 6. Also, always avoid annoying alliteration. 7. Be more or less specific. 8. Parenthetical remarks (however relevant) are (usually) unnecessary. 9. Also too, never, ever use repetitive redundancies. 10. No sentence fragments. 11. Contractions aren’t necessary and shouldn’t be used. 12. Foreign words and phrases are not apropos. 13. Do not be redundant; do not use more words than necessary; it’s highly superfluous. 14. One should NEVER generalize. 15. Comparisons are as bad as cliches. 16. Don’t use no double negatives. 17. Eschew ampersands & abbreviations, etc. 18. One-word sentences? Eliminate. 19. Analogies in writing are like feathers on a snake. 20. The passive voice is to be ignored. 21. Eliminate commas, that are, not necessary. Parenthetical words however should be

enclosed in commas. 22. Never use a big word when a diminutive one would suffice. 23. Kill all exclamation points!! 24. Use words correctly, irregardless of how others use them. 25. Understatement is always the absolute best way to put forth earth shaking ideas. 26. Use the apostrophe in it’s proper place and omit it when its not needed. 27. Eliminate quotations. As Ralph Waldo Emerson said, “I hate quotations. Tell me what

you know.” 28. If you’ve heard it once, you’ve heard it a thousand times: Resist hyperbole; not one writer

in a million can use it correctly. 29. Puns are for children, not groan readers. 30. Go around the barn at high noon to avoid colloquialisms. 31. Even IF a mixed metaphor sings, it should be derailed. 32. Who needs rhetorical questions? 33. Exaggeration is a billion times worse than understatement. And finally... 34. Proofread carefully to see if you any words out.

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Useful Guides Memorial University Libraries Guides: http://www.library.mun.ca/guides/howto/index.php (last

four) Wide Range: http://www.library.mun.ca/internet/termpapers.php Owl (online Writing Lab) at Purdue: http://owl.english.purdue.edu/owl/resource/560/01/ Examples in this guide are taken from these books (which are available at the Information and

Research help Desk): Lipson, Charles. Cite Right: A Quick Guide to Citation Styles - MLA, APA, Chicago, the

Sciences, Professions, and More. Chicago: University of Chicago Press, 2006. Turbian, Kate. L. A Manual for Writers of Term papers, Theses and Dissertations. Edited by

John Grossman and Alice Bennett. 6th ed. Chicago: University of Chicago Press, 1996.

Elizabeth II Library Services

December 5, 2007 AWARDS FOR UNDERGRADUATES Scholarships, Bursaries, and Awards Administered By the Senate Committee on Undergraduate Scholarships, Bursaries and Awards for Which Undergraduate Students Already in Attendance at the University May Qualify http://www.mun.ca/regoff/calendar/sectionNo=SCHO-0110 Scholarships, Bursaries, and Awards Available for Undergraduate Students for Study Outside Newfoundland and Labrador http://www.mun.ca/regoff/calendar/sectionNo=SCHO-0745 (several for Harlow) Scholarships, Bursaries, and Awards Administered By Other Authorities http://www.mun.ca/regoff/calendar/sectionNo=SCHO-0772

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DUE DATES FOR OUTLINES OUTLINE IS DUE

READING

September 16

Donald Kettl. “Public Administration at the Millennium: the State of the Field.”

http://courses.washington.edu/ppm504/Kettl_PubAdminMillenium.pdf or

http://www.jstor.org/stable/3525809?seq=1#page_scan_tab_contents

September 23

Howlett, Perl, Ramesh, ch 2

September 30

Howlett, Perl, Ramesh, chs 4, 5

October 2 Howlett, Perl, Ramesh, chs. 6, 7

TBA One chapter of Ritzer/Paul book

My office is always open to you.

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Appendix A: The main differences between MLA and APA are as follows:

Type MLA Format APA Format

Date: The date follows the publisher in the citation and is not in parentheses.

The date follows the author and is in parentheses.

Author’s Name:

The author’s full name (first and last) is spelled out.

The author’s last name is spelled out and the first name is reduced to initials.

Capitalization: All major words in the title are capitalized and the title is underlined.

Only the first word of the title, the first word of a subtitle, and any proper nouns (like names) are capitalized. Everything else is lowercase. Also, the title is written in italics.

Source Page: The source page is called a “Works Cited”. The source page is called a “References”. In-Text Citations:

MLA uses the last name of the author and the page number.

APA uses the last name of the author and the date.

MLA does not use commas to separate the material, or p. pp. before the page numbers.

APA does use commas and, if a page is mentioned, uses p. and pp.

Differences between MLA and APA

Examples: MLA: (Burns 101) APA: (Burns, 1999, p. 4)

Here are two comparison examples:

MLA: Klaphake, Elizabeth. My Life as an English Professor. Bellevue, Nebraska: Bellevue University Press. 1999.

APA: Klaphake, E. (1999). My life as an English professor. Bellevue, Nebraska: Bellevue University Press.

Source: http://academictips.org/mla-format/general-differences-between-mla-and-apa/

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