POSC 1000 Introduction to Politics

Public Policy and Administration

Russell Alan Williams

Unit 8: Public Policy & Administration

Required Reading:Mintz, Chapter 16.

Outline:1. Introduction – Public Policy and Policymaking2. Policy Process – the “Stages”3. Theories of Policymaking4. Public Administration5. New Public Management

1) Introduction:“Public Policy”: Course of action or inaction chosen by governments to address perceived problems

Both

An “output” of politics – Can be a rational response to problems . . . or not . . .

A method of studying politics = Different way of seeing politics – less role for elections and voting

• Emphasizes actors/interest groups in specific policy “domains”

=Policy areas (like “health policy”)• Focus on officials and “Policy Entrepreneurs”: People

who have ability to push favored policy goals whenever they get opportunity

2) The Policy Process:“Policy Cycle”: Continuous cycle of stages in

policymaking within a policy domainPolicy is constantly being evaluated, reformulated and changed

= Central idea in public policy

Five distinct stages• Each has its own unique processes . . .

“Agenda Setting”: Process in which potential problems gain attention of policy makers

Defines key problems which require “solutions”Most important stage? Most problems never get on the agenda!

“Financial Crises” vs. social assistance

Actors? Wide array• Interest groups• Media • International Organizations • Governments • The public ??????

“Policy Formulation”: Developing and evaluating different policy options to respond to problems

Types of options = policy instruments

•E.g. Reducing the impact of climate change could be pursued by:

–Taxes on pollution–Subsidies for cleaner technology–Public information

Actors? Narrower range then “Agenda Setting”•Focus on on officials, powerful interest groups and experts

=“Policy Network”: Government and non-governmental actors that dominate policymaking in a particular domain

– In many areas “policy networks” are closed to only influential actors

“Decision Making”: Government officials choosing from a small number of identified policy instruments

Can include decisions not to act, and “non-decisions”

Criteria? Depends on theory of policymaking . . . .

Actors? Very limited! Dominated by government officials

•Maybe some role for most important interest groups and experts

–E.g. Grenfell College Autonomy

Grenfell College -------->

“Policy Implementation”: Taking measures to put policy into effect

Develop necessary rules & establish administrative structure

Actors? Again, limited . . . . Dominated by government officials and interest groups involved in implementation

•Often final details very different from what was identified in “Policy Formulation”

–E.g. the “Gun Registry”

“Policy Evaluation”: Determining the extent to which policy is achieving its goals

Actors? Depends on what impact the policy is having

• Can lead to changes in “policy implementation”– Make existing policy more effective = Bureaucrats

dominate

• Can lead to perception of new policy problems = “Agenda Setting”– Interest groups etc. upset with how policy impacts

them play key role

Policy Evaluation can be a highly political question . . . .

Stages result in the “Policy Cycle”:

Policymaking in a domain may be at any stageDoes not necessarily move from one stage to another

– E.g. Process may start or stop at “decision making”

Key: Little role for public outside of “agenda setting” . . . and picking our elected officials

3) Theories of Policymaking:Fundamental question:

Is policymaking rational?????

Does cycle create responses that solve problems?

Or,

Does cycle create policies that reflect existing interests and ideas?

Depends on which theory or model of “Decision Making” is correct . . . .

1) “Rational-Comprehensive Model”:Assumes policymakers:• Have clear goals• Look at all policy options to see which best

meets goals• Choose best option

E.g. “Cost-Benefit Analysis”: Economic technique that determines whether benefits of policy choice outweigh costs

3) Theories of Policymaking:

“Rational-Comprehensive Model” cont. . . .

Many see this as unrealistic . . . .

Decision makers have limited information (!)• Not all costs and benefits can be calculated

Governments rarely assess all possible options• E.g. Role of interest groups in “policy

network” focus attention on certain options over others

2) “Incremental Model”: Assumes policy cycle normally only results in small changes in existing policies

=Decision makers “muddling through” complex problems– Stick with what we know

=Correcting for minor problems with existing policies safer then big reform– Supports existing interest groups in policy

network

But . . . does this produce irrational decisions?• Sometimes a complete change might work better• What about serious problems/crises????

3) “Streams and Windows Model”:

Assumes most policymaking is incremental, but sometimes a “policy window” opens for more rational decision making

Suggests there are three streams in policymaking:• Problem stream = Issues that are seen to need attention• Policy stream = Ready and available proposals that

could deal with the problem• Politics stream = Current political situation

When all three streams “line up” big policy change is possible = a policy window

• E.g. Canadian defense spending

Decision making is not always rational nor incremental . . .

4) Public Administration:Key Concerns:

Public administration and civil service make up large share of modern societies:

Share of Public Employment to Total Employment (1985-1999)

0%

5%

10%

15%

20%

25%

30%

1985 1986 1987 1988 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999

Canada Germany Spain Finland France

Irlande Korea Portugal Turkey United States

Source: OECD Public Management Service, 2001. Copyright OECD 2001. All rights reserved.

Elected officials must manage large workforce and budget=Political controversies!• Is public administration efficient?

– How do we ensure that it is?• Do politicians have control over

bureaucracy?

Currently in a period of changeE.g. Transition to “new public management”

In Canada, bureaucracy is overseen by “head of government” – E.g. The Prime Minister in Canada . . . .

PM chooses ministers to oversee departments

Each has a ”Portfolio” = creates a “Cabinet”Each assisted by a -> • “Deputy Minister”: Executive head of a

government department– Appointed by PM to run “day to day”

operations of department

Principles of executive government:

“Cabinet Secrecy” & “Collective Responsibility”

“Ministerial Responsibility”: Each cabinet minister is responsible for the actions/failures of their department

Encourages diligence!Convention: Minister should resign for a major mistake

• However, Departments are very large . . . .

• E.g. HRDC “Billion Dollar Boondoggle”

Implication: Ministerial responsibility a “political” interpretation

Problems with Public Administration?

Assumes a professional, permanent, and non-partisan bureaucracy

Promotion is not always based on merit• E.g. Patronage = Politicized civil service

Ignores the risk that bureaucracy will dominate government

More expertise and experience than elected Ministers (?)Bureaucracy has own interests separate from governing

• Higher pay and bigger budgets!

= The “Yes Minister” problem . . . .

5) The New Public Management:Period of bureaucratic reform – why?

Traditional model: Produces bureaucratic self interest

• “Public Choice Theory”: Assumes that all political actors pursue rational self interest

Implication: Bureaucrats make public administration more expensive than it needs to be

Globalization makes high taxes to support large bureaucracy uncompetitive

“New Public Management”: Adopting modern business practices in government administration – embraced slowly in Canada

E.g. -Business plans for departments-Performance targets for public servants-Citizens redefined as “customers”

“Alternative Service Delivery”: New agencies established with autonomy from existing departments

Some designed to meet “consumer demand”• E.g. Service Canada - Financed through fees charged

for services

For next time:Unit Nine: Formal Institutions,

Constitutions and the “Rule of Law” (November 17 – Essays Due In Class! (40%)

Required Reading:• Mintz, Chapters 12 & 13.