LAST REVISED: 4/02/09
To get to online syllabus:
www.csus.edu/indiv/s/shulockn/#classes
Department of Public
Policy and Administration
PPA 297A&B:
Fall and Spring, 2008-09
Instructor:
Nancy Shulock, Ph.D.
Professor, Public Policy and Administration
Director, Institute for Higher Education Leadership & Policy
Tahoe Hall 3063
(916) 278-7249
Seminar meetings:
Fridays, 9:00 a.m. – 12 p.m.
Governor’s Office of Planning and Research, 2nd floor conference room
Course Objectives
This course is designed to complement your placement with
a combination of theory and practical knowledge to help you understand, and
prepare for, state-level public
The course covers four general sets of topics:
1. Public
2. The political environment of policymaking: We consider the political landscape that must be confronted in shaping and managing the policy agenda, and key features of the policy process in California that explain why and how policy change does (or doesn’t) occur.
3. Policy design and analysis: We
explore how policy problems are defined and solutions analyzed within the
complex political environment in which policy is shaped and implemented, and we
learn practical approaches to researching and analyzing policy issues.
4. Leadership and organizational effectiveness: We discuss what makes leaders more or less effective and consider the role of leadership and leadership strategies in promoting organizational effectiveness.
A focus of seminar across all four of these topics will be government reform. The need to change the way the State of California develops budgets, elects officials, enacts policies, and engages citizens in governing has emerged as perhaps the key policy issue this year. Regardless of your placement, you will undoubtedly be exposed to discussions about effective governance and proposed government reform initiatives. This theme will provide a basis for bringing your placement experiences into the seminar discussions in a way that can involve all fellows regardless of policy field in which they work.
An overriding goal of this course is to heighten your
appreciation for, and your commitment to, public
The learning objectives for the course are as follows:
1. Understand the opportunities and challenges facing public sector leaders as they seek to advance the public good through policy design and implementation;
2. Understand distinctive features of the
3. Learn some core concepts about policy design and policy analysis and be able to apply them to specific policy issues;
4. Develop the skills to analyze the effectiveness of an organization and its leadership in fulfilling its mission;
5. Enhance your commitment to public
6. Learn to communicate effectively for policy
audiences, with an emphasis on writing and visual presentation of analytical
information in policy briefs.
Seminar Format and Expectations
The seminar is a required component of the fellowship
program. You cannot succeed in the
fellowship program without succeeding in the seminar. Mentors are aware of the seminar and have been
advised to ensure that Friday mornings are free for fellows to attend the
seminar. You are expected to attend every
seminar. You may miss one class,
for a work-related purpose, without penalty, if you notify me first. If you miss more than one class (illness
aside), your course grade will be reduced, without exception. You are also expected to arrive on time. Excessive late arrival will result in a
reduced course grade.
This is a graduate seminar with graduate-level academic
content. It is not only an opportunity
to share experiences from your placement.
You are expected to do the reading and think about the key concepts
before class. We will use seminar time
largely to move beyond the readings –
applying and critiquing them. I consider
it fair and reasonable to call on anyone and expect them to be familiar with
the key concepts from the readings. A
significant part of your grade is based on class participation – reflecting
your ability to draw out the key concepts from the readings, to relate readings
to one another, and to your placement, and to be respectful of others’ ideas
and contributions.
In summary, here are my expectations for the successful
seminar participant:
◊ Do the reading each week in time to think about it and with time to write a thoughtful memo, on the weeks that you choose to write one.
◊ Come to seminar on time, prepared to critique and apply the readings and participate constructively in class discussion and group activities.
◊ Open your mind to big-picture thinking and to contrary points of view and be respectful of others’ views.
◊
Think about how the issues from seminar relate
to your organization, to your chosen case study topic, and to
◊ Work hard on your writing and pay attention to the comments I give you on written assignments.
Assignments
and grading
Late assignments will not be accepted – NO EXCEPTIONS. Weekly memos are due in my email inbox by
midnight on Thursday (12:00 am Friday).
You would be wise not to leave it until the last minute because
unforeseen email or Internet problems could cause you to miss the deadline and
receive no credit. Other assignments are
due as indicated in the syllabus.
Class
participation
Effective participation in class discussions is an important
component of performance. I will let you
know halfway through the year how you are doing in class participation, so
there are no surprises and so you can make adjustments. The class participation grade will reflect
the quality of your participation in class discussion and your contributions to
your in-class group activities. While I understand that different people
have different comfort levels with talking in class, I don’t believe that one
can be an effective public servant, and certainly not an effective public
leader, without the capacity to participate effectively in group discussions. My job is to make the seminar environment as
welcoming of everyone’s contributions as possible. Your responsibility is to contribute
constructively and appropriately. That
means for those who like to talk, be respectful about letting others have a
say. For the shy among you, find a way
to speak up and don’t blame the “loud-mouths” for keeping you quiet. About every other week we will save 15-20
minutes at the end of class for sharing experiences from your placement. I will assign two people each time to decide
together, before class, what issue or question you want to pose for discussion. For an example, see the
“Placement/Professional Discussion” question I am posing for Week 2 (December
12). Your effort to choose a thoughtful
topic and lead a short discussion will be reflected in your class participation
grade.
Weekly memos
in response to readings
You will submit a total of 8 1-page memos, in response to
the prompts on the syllabus – through Week 17.
You can choose which weeks to write a memo – keeping in mind that there
are 16 weeks from which to choose (no memo assignment for week 8). EVERYONE writes a 9th memo for
Week 18. They are to be written as memos
to me, using headings and bullets, as applicable, and should be concise and
easy to read. The “subject” line of the
memo heading must include the week and which number memo of yours it is (e.g.,
Week 5, Memo#3). Don’t be fooled that
writing “just” a one-page memo is easy. It’s harder than writing a longer one
because you have to be very careful, clear, and concise. I am looking for evidence that you have read,
absorbed, thought about, and applied the readings to the question at hand. You will be graded on content and
writing. Writing should be logical,
clear, concise, and have no grammatical, spelling, or typographical
errors. To avoid the myriad problems we
encountered last year – here are explicit rules about the memos:
·
You must address the current
weekly topic.
·
They must be in my
email inbox by midnight before the day of class.
·
You cannot write two
memos in one week.
·
You cannot write a
two-page memo and have it count as two memos.
·
You cannot write a memo
on weeks when there is no class (Spring Break, May 1, May 8) or when there are
no readings (Weeks 8, 19, 20). That
means you need to plan accordingly – you have 16 possible weeks to write 8
memos (plus the required 9th one in Week 18).
·
You may re-write one of the first eight memos in order to
improve your grade.
Writing
reflection
I spend a lot of time giving constructive feedback on your
writing because I want you all to be superb writers. Therefore, I want you to pay attention to the
feedback I give you and work to improve your writing. After you have submitted 4 memos, you will
submit a memo summarizing the areas I have identified as needing improvement
and how you are addressing them. You may
submit the writing reflection memo and your 5th memo on the same
week.
Policy/Politics
Case Study
There is one short-term group assignment that functions like a mid-term exam at the end of Part II of the course. Groups of 2-4 (allowing for student preferences) will each present in class on Week 8 for 15-20 minutes. Each group will use concepts from seminar presented up to that point to explain the political environment that shapes policymaking around their selected issue. Each group is to distribute a one-page handout to use in its presentation (can be front/back). This is intended to be an informal discussion to educate each other on the policy issues while reinforcing the concepts discussed in this portion of the course. It could also help you think about the topic to choose for the final group project.
Group Project
Fellows will self-select into six groups of three to
analyze a policy issue for your final project.
I will provide a list of possible topics – specific enough to get you
moving but broad enough to give you the flexibility to focus it to best match
your interests. The objective is to
prepare an analysis of the particular issue – using Stone’s Policy Paradox in Action (pp.384-414) as
a guide. Your group will (1) produce a
written policy brief (not written as an academic paper but as a readable policy
brief of perhaps 10-15 pages with visuals and graphics, (2) deliver a 20-30
minute oral presentation (weeks 19/20), and (3) prepare handouts (no more than
two pages (front/back allowed) to accompany the presentation. Groups will not use PowerPoint for these
presentations in order to have more time to work on the policy brief and
handout versions of the visual aids.
Your written and oral presentation will present the results
of your analysis in which you will roughly follow the model of Deborah Stone’s Policy Paradox in Action (pp.384-414). You will use (1) the tools of Policy Paradox to understand and make
sense of the political and policy dimensions of the various sides of the issue,
(2) the concepts from Moore about political management and the need to align
mission, political support, and organizational capacity around a policy
objective, (3) the research strategies of Bardach to help you define the issue
and identify the appropriate sources of information, and (4) any other concepts
from seminar that are relevant to use, particularly leadership issues as they
relate to key players in the issue area.
Other concepts likely to be useful include key features of California’s
political and governance contexts, the role of the media, framing as a
strategic tool, public accountability for results v inputs (i.e., how
discussions about program effectiveness are carried out), and public mood and
perceptions of government.
The final product should (1) provide a baseline of factual
information about the issue so that the reader can understand the analytical
part of your paper and presentation, (2) analyze the issue in order to explain different views on the problem
and on its possible resolution, and (3) take a position on what should be done
– based on your analysis. Following
Stone, your position can be clear about its value basis but must reflect a
systematic consideration of other viewpoints, in light of the problem you’ve
defined, the goals you set out, the criteria for judging the outcomes of
various approaches, and with the support of any data or information that you
can put forth to justify your position.
The use of data, and its visual presentation, will be important
components of the project and we will spend some time discussing strategies for
data presentation.
To help groups get and stay on course to complete the
assignment successfully, I will ask for periodic updates about the problem
definition, a list of written and personal sources, the set of
alternatives/solutions and goals/criteria that you expect to analyze, a list of
course concepts that you are planning to apply to your analysis, and progress
in visual aids to put into the policy brief.
I will evaluate projects on the basis of the following criteria:
· A clear and compelling definition of the issue or problem
· An insightful look at the issue/problem – the good project will “turn on a light” of understanding for the reader/listener
· An analytical approach to understanding various sides to the issue
· An analytical approach to supporting your preferred position
· Application of a broad range of concepts from the course, as specified above
· Logical organization and flow to the policy brief and the presentation
· Good incorporation of data and other visuals
· Proper spelling, grammar, and usage
Students will evaluate their own contribution as well as
their partners’ contributions. These
evaluations will figure into the grades that I assign.
The final course grade will be determined as follows:
Seminar participation 15%
Memos (10) –
includes writing reflection 50%
Policy/politics
case study 10%
Final project –
policy brief 15%
Final project –
oral presentation/handout 10%
Required
Required Books:
•
• Mark
Moore, Creating
Public Value: Strategic Management in Government,
· Deborah Stone, Policy Paradox: the art of political decision making, W.W. Norton & Company Revised edition 2002 ($29)
• Alfred Lansing, Endurance: Shackleton’s Incredible Voyage, Basic Books, 2nd edition (paperback) ($10)
·
Kenneth Ashworth, Caught
Between the Dog and the Fireplug, or How to Survive Public Service,
• Eugene
Bardach, A
Practical Guide For Policy Analysis: The Eightfold Path To More Effective
Problem Solving, CQ Press, Third Edition, 2008 ($23)
·
Margot Morrell and Stephanie Capparell, Shackleton’s
Way: leadership lessons from the great Antarctic explorer, Penguin
Books, 2002 (paperback) ($10)
Be sure
to consult the web version of the syllabus to be up to date with readings and
assignments. Note that memo topics have mostly not yet
been assigned after Week 8.
Any eight-month schedule of classes is subject to change. I will maintain an updated version of this syllabus on my website which you should consult on a weekly basis for possible changes to class meeting dates, scheduled topics, readings, and guests. I will indicate at the top the date of the most recent changes to the on-line syllabus.
Orientation
Session 1 – October 29: The
·
Public Policy Institute of
· PPIC, Redistricting and Legislative Partisanship, summary: pp. iii-vii
· Legislative Analyst’s Office, fiscal analysis of Proposition 11 on redistricting
·
· San Francisco Chronicle, September 12, 2008, “Prop. 11 is sham redistricting reform – vote no”
Session 2 – November 6:
·
The
·
Various newspaper articles on
Assignment: Pay attention to election results for Proposition 1A (high speed rail bond) and Proposition 5 (Nonviolent Drug Offenses, Sentencing…) and be prepared to discuss the outcomes and the politics around them.
Session 3 – November 12: The
·
Assignment: Pick a policy issue that you care about and come prepared to discuss how the demographic trends and governance dysfunctions that Peter Schrag writes about are affecting the policy debates or the resolution of the issue.
Session 4 – November 21: The
· Schrag, Chapters 3-5
Assignment: Come prepared to discuss whether or not you agree with Peter Schrag’s implication (which he has raised extensively in newspaper columns since the publication of the gook) that Californians don’t want effective governance.
Session 5 – November 25: Effective Writing for Policy Audiences
·
Friday Seminars (20 Weeks)
Week 1 (Dec. 5) What is Public Value?
Read
Memo Topic (choose one)
· How do you understand (at this early date) the public value provided by your department? Are there competing views among the public about the value provided? Are there opportunities to alter the mission that could increase public value?
·
What is your reaction to
Week 2 (Dec. 12) Public Service and Citizens
Read
· Stone, Policy Paradox, Preface, Intro, Chapter 1 (pp. ix-34)
·
Denhardt
and Denhardt, The
New Public Service: Serving Rather than Steering, Public Administration
Review (PAR), Nov/Dec 2000.
Memo Topic
Take a
policy area or issue of interest and explain how the polity conception of the citizen-government relationship differs
from the market conception (or, using
Denhardts’ language, how the new public
Placement/Professional Discussion
What has been the most unexpected aspect of your placement experience so far?
Week
3 (Dec. 19) Civic Engagement;
Introduction to Visual Presentation Principles
Read
The Center for Information &
Research on Civic Learning and Engagement, Millenials Talk Politics: A
Study of College Student Political Engagement, 2007
Memo Topic
How does civic engagement among today’s young people (or lack of engagement) relate to their attitudes about government? Is it a cause or an effect? What might be done to increase engagement, if you think that is warranted?
Guest
Mary
Kirlin, Professor of Public Policy and Administration,
SPRING SEMESTER
PART II. The Political Environment of Policymaking
Week 4 (January 9) Governance and Political Reform Issues in
Read
·
Center for Governmental Studies, Democracy
by Initiative: Shaping California’s Fourth Branch of Government, 2008, Executive Summary
·
Center for Governmental Studies, Termed
Out: Reforming California’s Legislative
Term Limits, October, 2007
·
California Clean Money Campaign website: http://www.caclean.org/
o Spend some time
reading about the problem, solution, etc. on this website
o Make sure you read
about AB 583 – recently signed into law.
Memo topic
What one or two political reforms (other
than budget reforms, which we discuss next week) do you think would have the
biggest impact on improving governance in
Choose topics for Week 8 policy case study presentation
Placement/Professional Discussion: Ariana, Gelmy
Week 5 (Jan 16) The
Read
·
Governor’s
State of the State Address, 2009
·
Legislative Analyst’s Office, Overview
of the Governor’s Budget, 2009-10
·
Legislative Analyst’s Office, “Rethinking
the State’s Budgetary Formulas” from 2008-09 Budget: Perspectives and
Issues, (pp. 155-157) – scroll down to selected three pages
·
LA
Times, Why the State Budget Never Adds Up (1-page)
·
PPIC, Budget Practices
and State Expenditures: Lessons for California. 2007 (through p.51)
· California Forward budget principles
Memo Topics (choose one)
· Discuss the likely impact of the Governor’s budget proposal on an issue area important to your department or agency.
·
Why do you think that
Week 6 (Jan 23) Building Support for a Policy Agenda – Who is Important?
Read
·
· Ashworth, Caught Between the Dog and the Fireplug, Forward, Preface, and pp.1-44.
Suggested
Memo Topic
Describe an issue
on which you have observed your mentor, or someone in your office, engage in
political management. What is the
issue? Why is political management (as
defined by
Placement/Professional Discussion: Meredith, Jesse
Option for topic: Identify one thing you have learned so far from your mentor.
Week 7 (Jan 30) Political Management – Building Support for Policies
Read
·
· Ashworth, pp.63-88.
Suggested
Memo Topic
Placement/Professional Discussion: Chuck, Jess K.
Week
8 (Feb 6) Policy Issue Case
Studies
Read
– No readings
Short Group
Presentations
·
Traffic
congestion/transportation infrastructure
·
K-12
Education funding
·
Public
safety/prison overcrowding and reform
·
Obesity
epidemic and obesity prevention efforts
·
Political
reform – elections (redistricting, terms limits, campaign finance)
·
Political
reform – budgeting (ballot initiatives that set formulas for revenues and
spending, two-thirds vote requirement,
PART III. Policy
Design and Analysis
Week 9 (Feb 13) Perspectives
on Policy Analysis
Read
· Bardach – Entire book
· Stone – Policy Paradox in Action (pp.384-414)
Suggested
Memo Topics
· Stone provides the example of the affirmative action policy controversy to show how to use the tools of her book to think about an issue, analyze and critique arguments for and against, and argue persuasively for a policy position. Bardach presents an eight-fold path that is primarily aimed at helping policy analysts develop recommendations for solving policy problems. Both are aimed at analysts, each presents a view of policy analysis, and both discuss the importance of defining problems and evaluating options in terms of criteria such as efficiency and equity. Do you find one approach more compelling, or potentially more useful, than the other? (I realize we have not yet read the main part of her book but we have read enough to give you a sense of how she understands policy analysis.)
· Describe a policy issue that you have been involved with and, using Bardach’s steps one, three, and four, define the problem, describe the alternatives that you have heard being discussed, and suggest the criteria that are either explicit or implicit in the discussions around the alternatives.
Placement/Professional Discussion: Heather, Tom
Week 10 (Feb 20) Criteria for Analyzing Public Policies
Read
Stone,
Part II: Goals (pp.35-135)
Suggested
Memo Topic
Drawing from Stone’s premise that there are usually competing claims as to what specific policy satisfies various goals, in this case the goal of equity: describe some public service that is provided through a public program with which you are familiar and discuss at least two competing views about what is the fairest way to distribute the service or the resources that fund the service. Two examples: is it most fair to distribute school funding so that each district gets the same amount per student, or is some other distribution more equitable? Is it most equitable to distribute First 5 grant funds to counties on the basis of which counties serve the neediest pre-school age children? In the example you pick, describe the arguments for different definitions of what is a fair distributions and take a position as to which is most fair.
Sign
up for final group topic – 3 people per group
Week 11 (Feb 27) SEMINAR WILL NOT MEET BUT MEMOS
CAN STILL BE SUBMITTED THURSDAY NIGHT
Understanding
the Policy Problem
Read
Stone, Part III: Problems (pp.131-257)
Suggested
Memo Topic
Stone tells us that problem definition is strategic because every description of a problematic situation is a portrayal from only one of many possible points of view. With reference to a policy issue with which you are familiar (or perhaps with the one you have tentatively chosen for your final project), describe at least two different portrayals of what the problem is and note what tools are used by those who put forth that definition (e.g., symbols/frames; numbers/data; cause-effect story).
Week
12 (March 6) The
Tools of Policy Design
Read
Stone,
Part IV: Solutions (pp.259-375)
Suggested
Memo Topic
Stone
tells us that policy responses to problems are not typically solutions or permanent fixes but are ongoing strategies or next moves: “Policy is more like an endless game of
Monopoly than a bicycle repair,” she writes. Using the topic of your final
group project (if you can), describe a bit of the progress of the monopoly
game. That is, describe some of the
policies that have been adopted in recent years – or at least proposed – to try
to move the pieces around the board (hopefully not to land in jail!). And describe how those policies have moved
the issue along, e.g., have they improved things, changed the nature of
understanding the problem, etc. In other
words, don’t just list bills or new policies but say something about them.
Placement/Professional Discussion: Jessica, Trevor
Week 13 (March 13) Applied
Policy Analysis
Read
Stone, Conclusion and re-read Policy Paradox
in Action (pp.376-414)
Suggested Memo Topic
Did the Stone book make you think any differently about the place of politics in the processes of making and analyzing policy? If much of analysis is, indeed, politically grounded, is it less valuable to the policy making process? Or, alternatively, do you find yourself disagreeing with her view that analysis is highly political?
PART IV. Leadership and Organizational Effectiveness
Week
14 (March 20) Leadership in
Practice
Read
Suggested Memo Topic
Discuss some aspect of Shackleton’s leadership that impressed you and that you think has implications for leadership as practiced in state public service.
Placement/Professional Discussion: Ashley, Melissa
Week 15 (March 27) Leading Organizational Change
Read
· Moore, Chapters 6, 7
·
Hal Rainey and James Thompson, “Leadership and the
Transformation of a Major Institution: Charles Rossotti and the IRS,” Public
Administration Review, July/August 2006
·
Short news article
on new UC President, Inside Higher Ed, April 3, 2008
Suggested Memo Topic
·
·
Final Project Updates
· Clear statement of the policy issue/problem from your perspective
· How will you justify or document that it is a problem – (not the actual data but the kinds of indicators of the problem, e.g., increase in # of uninsured children, increase in recidivism rate; CA college educated population versus other states, etc.)
· A sentence or two about alternative perspectives on, or definitions of, the problem
· A preliminary list of sources you intend to consult – documents, people
Guest: Cliff Allenby, retired former director of several state departments
Placement/Professional Discussion: Kathryn, Eric
SPRING BREAK – NO
CLASS ON APRIL 3rd
Week 16 (April 10) Perspectives on Leadership
Read
Morrell
and Capparell (entire)
Suggested
Memo Topic
What
lessons do you draw from the Morrell and Capparell book that you would want to
apply if and when you had an opportunity to lead a public organization?
Final
Project Updates
· What proposed or implemented actions/solutions/alternatives will you be discussing and analyzing?
· What goals/criteria will you be using to analyze the actions/solutions/alternatives? E.g., equity (in all its complicated facets), effectiveness in addressing the problem, cost, cost-effectiveness, political feasibility, …
Placement/Professional
Discussion: Lauretta, Grant
Week
17 (April 17) Leadership Strategies
Read
·
Robert
Behn, “Performance
Leadership: 11 Practices that can Ratchet up Performance,” May, 2004.
· John Tagg, Double Loop Learning in Higher Education, Change Magazine, July/August, 2007
· Donna Shalala, Are Large Public Organizations Manageable, Public Administration Review, July/August 1998, Vol. 58, No.4
·
· Three departments’ strategic plans
o
Department
of Public Health Strategic Plan
o
Department of Alcohol
and Drug Programs Strategic Plan
o
Office
of Emergency Services Strategic Plan
Suggested Memo Topic
Assess your organization’s approach to strategic planning and/or organizational effectiveness in light of the principles from the first three readings (and using the three state plans by comparison, if appropriate).
Placement/Professional Discussion: Lakenya, Nick
Week
18 (April 24) Public Service and You
Read
·
Ashworth,
pp. 45-62; 121-184
·
Required Memo Topic
Have
your own career goals changed over the course of your fellowship? If so, how and why? If not, why not and is that a good thing?
Final
Project Updates
· A rough visual depiction of the issue in its environment – even if you don’t end up using this, it will be a helpful exercise
· List of other visuals you might include – types of charts or graphs, pictures, cartoons…
May 1: Interviews for new Fellows (
Final Project
Updates
· List of courses concepts you think I’ll be able to recognize, when I read your final policy brief and listen to your presentation, as having been applied by your group in analyzing your issue (look broadly across the whole course – including leadership and organizational issues that we’ll be discussing during the last several weeks)
May 8: Interviews in LA – NO SEMINAR
Week
19 (May 15) Group Presentations
Week 20 (May 22) Group Presentations
Final Projects Due