PUAD 703
PUAD 703/GOVT 753 THIRD PARTY GOVERNANCE Fall 2012 M,W,F 7:00-10:00 Founders Hall 312 Office Hours Wednesday 4:00-6:00 Professor Lehn M. Benjamin Center for Nonprofit Management, Philanthropy and Policy Department of Public and International Affairs Arlington, Truland Building Room 217 (this will be changing in June) [email protected] 703-993-8240 COURSE DESCRIPTION Achieving public objectives in a democracy is rarely a simple task. In the U.S., concern over a too powerful central authority has meant that responsibility for achieving these objectives is shared between federal, state and local governments and often carried out in partnership with private actors. But in the past half century, conducting the “public’s business” has become even more complex, as governments at all levels have been called upon to address social and economic problems that go well beyond their capacity and legitimacy. At the same time, the complexity of the problems today often extend beyond national boundaries, requiring government to work with international agencies, networks of nonprofits and governmental units in other countries. Not surprisingly the archetypical model that has guided public administration for decades—where the authorization, financing and implementation of programs happens within a hierarchical government organization—has given way to a governance model characterized by dispersed networks of public and private actors working on problems more or less purposively, coherently and collaboratively. In this environment government’s role is often one of activating, orchestrating or simply setting the stage for others to act rather than implementing programs directly. These complex governance arrangements have profound implications for those managers trying to achieve public objectives while remaining attentive to democratic concerns like equity, accountability, and transparency. Questions shift from what program can address this problem to what tools (e.g., grants, contracts, tax credits and regulations) and networks can best achieve our public objectives. This course complements PUAD 502 by preparing you for working in a world of practice many describe as ‘third party governance’. By the end of the course you will: Understand the implications of relying on 3rd parties for achieving public objectives while attending to concerns such as equity and accountability. Examine the different tools the government has at its disposal to structure the action of third parities in achieving public objectives, including the features of the tool, historical use of tools in different problem domains, the strengths and limitations of each tool. Examine public problem solving networks and understand the strength of these networks for achieving public objectives, including the different roles played by various actors as well as their capacity and interests.
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
1
COURSE MATERIAL The required texts are available in the bookstore and the articles/chapters are available through blackboard (mymason.gmu.edu). Look for the folder labeled “Course Readings”. THOSE CASES NOT ON BLACKBOARD can be found on the Kennedy School of Government website (www.ksg.harvard.edu). You will need to pay for these cases. If you have trouble downloading the case contact customer care (1-888-640-4945). Required Texts: Salamon, Lester A (Ed). 2002. Tools of Government: A Guide to the New Governance. Oxford University Press. Erickson, David J. 2009. The Housing Policy Revolution: Networks and Neighborhoods. Washington D. C. Urban Institute Press
COURSE SCHEDULE May 20th. Session 1. Government to Governance. Course Introduction Koliba et al, Chapter 1. 2011. Governance Networks in Public Administration. Boca Raton, FL: CRC Press Kettl, Donald F. 2000. The Transformation of Governance: Globalization, Devolution and the Role of Government. Public Administration Review, 60(6): 488-497
May 22nd. Session 2. Government to Governance. Framework Readings: Tools of Government. Chapters 1 and 2 Mini-Analysis Due: Whether this is a story about a specific piece of regulation; a tax credit, a grant, or about collaboration between government, nonprofits and firms in a policy arena, almost every day in the news there are stories about shared governance. Find a story that picks up on some of the concepts in this week’s readings. The story might be in major newspapers like the NYT, the Washington Post, the LA Times, in news related magazines like the Economist, Time and Newsweek or even on websites of think tanks like the Urban Institute. Post your story to blackboard by noon (May 22nd) and come prepared to briefly summarize the story and talk about how it illustrates shared governance.
May 24th. Session 3. Government to Governance. Framework Readings: Tools of Government Chapter 18 and 20 Boyte, Harry. 2005. Reframing Democracy: Governance, Civic Agency and Politics. Public Administration Review, 65(5): 536-546. CASE: Self-Help Housing on the Texas-Mexico Border: The Complications of Good Fortune for a Small Nonprofit Organization. (KSG: 1478) May 27th. Session 4. NO CLASS. MEMORIAL DAY
May 29th. Session 5. Government to Governance. Framework Readings:
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
2
Erickson, David J. 2009. The Housing Policy Revolution: Networks and Neighborhoods. Washington D. C. Urban Institute Press
May 31st. Session 6. TAKE HOME EXAM DUE 10 PM
June 3rd. Session 7. Social Regulation Readings Tools of Government. Chapters 5. Social Regulation Rudder, Catherine E. 2008. Private Governance as Public Policy: A Paradigmatic Shift. The Journal of Politics. Vol. 70 (4): 899-913. June 5th. Session 8. Tax Credits, Deductions, Exemptions Readings: Tools, Chapter 13. Tax Expenditures De Vita, Carol J. and Eric C. Trombley. 2005. Who Gains from Charitable Tax Credit Program? The Arizona Model. Public Administration Review, 65(1): 57-63. June 7th. Session 9. Public Information Readings: Tools of Government. Chapter 7 CRS Report # RL32750. Public Relations and Propaganda: Restrictions on Executive Agency
June 10th. Session 10. Grants and Contracts Tools of Government. Chapters 10 and 11. Smith, Steven Rathgeb.2005. Chapter 15 in Herman & Associates, The Jossey-Bass Handbook of Nonprofit Leadership and Management. San Francisco: Jossey Bass
June 12th. Session 11. Public Problem Solving Networks. What are they and why they matter Readings Moynihan, Donald P. From Forest Fires to Hurricane Katrina: Case Studies of Incident Command Systems. IBM Center for the Business of Government. Kania, John and Mark Kramer. 2011. Collective Impact. Stanford Social Innovation Review. Winter. O’Leary, Rosemary et al. 2012. The Skill Set of a Successful Collaborator. Public Administration Review. December.
June 14th. Session 12. Public Problem Solving Networks. Mapping and Describing Reading: Milward, H. Brinton and Keith G. Provan. 2006. A Manager’s Guide to Choosing and Using Collaborative Networks. IBM Center for the Business of Government.
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
3
Milward, H. Brinton and Keith G. Provan. 1998. Measuring Network Structure. Public Administration, 76(summer): 387-407 CASE: Integrating Housing Services A&B (Electronic Reserve)
June 17th. Session 13. Public Problem Solving Networks. Managing Vangen, Siv and Chris Huxham. 2003. Nurturing Collaborative Relations: Building Trust in Interorganizational Collaboration. Journal of Applied Behavioral Science 39(5): 5-31. Krebs, Valdis and June Holley. 2005. Building Adaptive Communities through Network Weaving. The Nonprofit Quarterly Winter 66-72 Herranz, Joaquin. 2007. The Multisectoral Trilemma of Network Management. Journal of Public Administration Research and Theory, 18: 1-31 CASE: Trust as an Asset (Electronic Reserve)
June 19th. Session 14. Public Problem Solving Networks. Evaluating Provan, Keith & Milward, H.Brinton. 2001. Do Networks Really Work? A Framework for Evaluating Public Sector Organizational Networks. Public Administration Review, 61(4):414-431. Herranz, Joaquin. 2009. Multilevel Performance Indicators for Multisectoral Networks and Management. The American Review of Public Administration 40 (4): 455-460 CASE: 1673.0 The Challenge of Multi-Agency Collaboration: Launching a Large-Scale Youth Development Project in Hartford
June 21st. Session 15. Draft Network Presentations and Wrap Up
COURSE EXPECTATIONS AND EVALUATION You will be evaluated on their written assignments, in class presentations, case discussions and general participation. You will be asked to choose a broad public problem area (e.g., environment, health, emergency preparedness, housing, food & drugs) that will be the focus of the presentation and the two papers. The expectations are described briefly below. A. Participation (10%) This course is structured as a seminar. Participation will be a critical and an important part of how you will be evaluated. Effective participation depends on a variety of skills including: active listening, respect and openness to everyone’s ideas and contributions, concise questioning and purposeful discussion (see below for computer/cell phone policy). Students will be graded based on class participation and their preparation for case discussions and assigned analyses. B. Government to Governance Take Home Exam (20%). A take home exam will be posted on blackboard on May 30th by midnight. It is due June 1st by 10p.m. The take home exam will cover material in weeks 1-5. C. Tool Analysis Presentation (15%). You will be responsible for preparing a formal analysis of one tool’s application to a specific policy issue of your choosing. For example, you may be assigned to tax credits and you care about the environment so you decide to look at a tax credit for renewable energy. You will be
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
4
responsible for making a short presentation to the class. You will be expected to review public documents, popular press articles, and scholarly literature on the topic and present their assessment of this tool to the class. D. Tools Paper: (Tools 25%). Approximately 6 pages single spaced. Drawing on material covered in weeks 7-10 of the course, in addition to outside resources, you will write an analytical memo that examines the tools the federal government has used in this public problem domain, the strengths and weaknesses of the tools in this area. E. Network Paper (25%). Approximately 6 pages single spaced. Drawing on material covered in weeks 1114 of the course, in addition to outside resources, you will write an analytical memo that describes a network of organizations in their public problem area, assesses the strengths and weaknesses of this network based on the course readings and other scholarly literature on networks in that public problem domain, and offers preliminary recommendations to help an organization understand and work within this network effectively. F. Network Presentation (5%). On the last day of class you will present a preliminary analysis of your network to your colleagues for feedback, which can then be used in your final paper. COURSE COMMUNICATION Changes to the course schedule, reading assignments and other important information will be announced during class and/or sent to your GMU email address. Assignments will be posted to blackboard but we will also go over them in class. If you have questions or concerns about the course or the material, do not hesitate to talk to me. If you don’t understand something, ask me about it. You are welcome to come see me during my office hours. If you cannot make office hours, we can arrange for an individual appointment by phone or in person. Email is the best way to get in touch with me. If you do send an e-mail, include PUAD 703 in the subject header. I will make every attempt to get back to you within 2 days. CLASSROOM EXPECTATIONS In order to create an environment where everyone is engaged and able to learn, turn off your cell phones, computers and other electronic devices during class. Texting, checking your Facebook page and talking in the classroom is distracting and frustrating for others. If you must do this, leave the room or wait until the break. If you need to use your computer to take notes, contact me to make arrangements. ATTENDANCE You must let me know if they will miss a class. If you miss a class, it is YOUR responsibility to collect handouts, notes, new deadlines, etc. from classmates. LATE ASSIGNMENTS Late Assignments are strongly discouraged, because it is difficult for both students and instructors to keep up with new assignments while simultaneously working on prior ones. I recognize that at times outside circumstances can make it difficult for you to meet a given deadline. If you absolutely must turn in an assignment late, let me know and we will agree to a new deadline. If you turn in your assignment late I cannot guarantee that I will be able to give you either timely turn around or written comments. ACADEMIC INTEGRTIY All graded work is to be completed independently. You are expected to abide by the GMU Honor Code, which prohibits lying, cheating, stealing and plagiarizing (see http://academicintegrity.gmu.edu/honorcode/ for detailed information). Suspected cases of plagiarism may be evaluated using anti-plagiarism software.
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
5
Instructors are required to report all violations of the Honor Code to the GMU Honor Committee. Violations will likely result in a failing grade for the assignment and may result in a failing grade for the course, plus any additional penalties determined by the committee, including dismissal from the University. Please be sure that the work you submit to class is your own, and that you provide proper citations when referencing another person’s words or ideas. STUDENTS WITH DISABILITIES If you are a student with a disability and you need academic accommodations, please see me and contact the Office for Disability Services at 703.993.2474. All academic accommodations must be arranged through that office. DROP and WITHDRAWAL These dates differ for courses that meet less than the full semester. See the Schedule of Classes for those dates. The last day to drop the class is May 25, without penalty. June 1st, is the final day that you can drop the class.
Date 1. May 20 2. May 22 3. May 24 4. May 27 5. May 29 6. June 31 7. June 3 8. June 5 9. June 7 10. June 10 11. June 12 12. June 14 13. June 17 14. June 19 15. June 21 June 24
Summary of Class Schedule and Assignment Due Date Topic Assignment Due Introduction Government to Governance Government to Governance Governance: to Governance NO CLASS Government to Governance Take Home Exam Take Home Exam Due at 10 p.m. Tools: Regulations Tools: Tax Credits Tools. Public Information Tools: Grants Contracts Networks. Why they matter Paper Two Due Networks: Mapping Networks: Managing Networks: Evaluating and Assessing Wrap up and Preliminary Network Presentations e-mail papers by 10p.m. Paper Three Due
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
6
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
1
COURSE MATERIAL The required texts are available in the bookstore and the articles/chapters are available through blackboard (mymason.gmu.edu). Look for the folder labeled “Course Readings”. THOSE CASES NOT ON BLACKBOARD can be found on the Kennedy School of Government website (www.ksg.harvard.edu). You will need to pay for these cases. If you have trouble downloading the case contact customer care (1-888-640-4945). Required Texts: Salamon, Lester A (Ed). 2002. Tools of Government: A Guide to the New Governance. Oxford University Press. Erickson, David J. 2009. The Housing Policy Revolution: Networks and Neighborhoods. Washington D. C. Urban Institute Press
COURSE SCHEDULE May 20th. Session 1. Government to Governance. Course Introduction Koliba et al, Chapter 1. 2011. Governance Networks in Public Administration. Boca Raton, FL: CRC Press Kettl, Donald F. 2000. The Transformation of Governance: Globalization, Devolution and the Role of Government. Public Administration Review, 60(6): 488-497
May 22nd. Session 2. Government to Governance. Framework Readings: Tools of Government. Chapters 1 and 2 Mini-Analysis Due: Whether this is a story about a specific piece of regulation; a tax credit, a grant, or about collaboration between government, nonprofits and firms in a policy arena, almost every day in the news there are stories about shared governance. Find a story that picks up on some of the concepts in this week’s readings. The story might be in major newspapers like the NYT, the Washington Post, the LA Times, in news related magazines like the Economist, Time and Newsweek or even on websites of think tanks like the Urban Institute. Post your story to blackboard by noon (May 22nd) and come prepared to briefly summarize the story and talk about how it illustrates shared governance.
May 24th. Session 3. Government to Governance. Framework Readings: Tools of Government Chapter 18 and 20 Boyte, Harry. 2005. Reframing Democracy: Governance, Civic Agency and Politics. Public Administration Review, 65(5): 536-546. CASE: Self-Help Housing on the Texas-Mexico Border: The Complications of Good Fortune for a Small Nonprofit Organization. (KSG: 1478) May 27th. Session 4. NO CLASS. MEMORIAL DAY
May 29th. Session 5. Government to Governance. Framework Readings:
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
2
Erickson, David J. 2009. The Housing Policy Revolution: Networks and Neighborhoods. Washington D. C. Urban Institute Press
May 31st. Session 6. TAKE HOME EXAM DUE 10 PM
June 3rd. Session 7. Social Regulation Readings Tools of Government. Chapters 5. Social Regulation Rudder, Catherine E. 2008. Private Governance as Public Policy: A Paradigmatic Shift. The Journal of Politics. Vol. 70 (4): 899-913. June 5th. Session 8. Tax Credits, Deductions, Exemptions Readings: Tools, Chapter 13. Tax Expenditures De Vita, Carol J. and Eric C. Trombley. 2005. Who Gains from Charitable Tax Credit Program? The Arizona Model. Public Administration Review, 65(1): 57-63. June 7th. Session 9. Public Information Readings: Tools of Government. Chapter 7 CRS Report # RL32750. Public Relations and Propaganda: Restrictions on Executive Agency
June 10th. Session 10. Grants and Contracts Tools of Government. Chapters 10 and 11. Smith, Steven Rathgeb.2005. Chapter 15 in Herman & Associates, The Jossey-Bass Handbook of Nonprofit Leadership and Management. San Francisco: Jossey Bass
June 12th. Session 11. Public Problem Solving Networks. What are they and why they matter Readings Moynihan, Donald P. From Forest Fires to Hurricane Katrina: Case Studies of Incident Command Systems. IBM Center for the Business of Government. Kania, John and Mark Kramer. 2011. Collective Impact. Stanford Social Innovation Review. Winter. O’Leary, Rosemary et al. 2012. The Skill Set of a Successful Collaborator. Public Administration Review. December.
June 14th. Session 12. Public Problem Solving Networks. Mapping and Describing Reading: Milward, H. Brinton and Keith G. Provan. 2006. A Manager’s Guide to Choosing and Using Collaborative Networks. IBM Center for the Business of Government.
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
3
Milward, H. Brinton and Keith G. Provan. 1998. Measuring Network Structure. Public Administration, 76(summer): 387-407 CASE: Integrating Housing Services A&B (Electronic Reserve)
June 17th. Session 13. Public Problem Solving Networks. Managing Vangen, Siv and Chris Huxham. 2003. Nurturing Collaborative Relations: Building Trust in Interorganizational Collaboration. Journal of Applied Behavioral Science 39(5): 5-31. Krebs, Valdis and June Holley. 2005. Building Adaptive Communities through Network Weaving. The Nonprofit Quarterly Winter 66-72 Herranz, Joaquin. 2007. The Multisectoral Trilemma of Network Management. Journal of Public Administration Research and Theory, 18: 1-31 CASE: Trust as an Asset (Electronic Reserve)
June 19th. Session 14. Public Problem Solving Networks. Evaluating Provan, Keith & Milward, H.Brinton. 2001. Do Networks Really Work? A Framework for Evaluating Public Sector Organizational Networks. Public Administration Review, 61(4):414-431. Herranz, Joaquin. 2009. Multilevel Performance Indicators for Multisectoral Networks and Management. The American Review of Public Administration 40 (4): 455-460 CASE: 1673.0 The Challenge of Multi-Agency Collaboration: Launching a Large-Scale Youth Development Project in Hartford
June 21st. Session 15. Draft Network Presentations and Wrap Up
COURSE EXPECTATIONS AND EVALUATION You will be evaluated on their written assignments, in class presentations, case discussions and general participation. You will be asked to choose a broad public problem area (e.g., environment, health, emergency preparedness, housing, food & drugs) that will be the focus of the presentation and the two papers. The expectations are described briefly below. A. Participation (10%) This course is structured as a seminar. Participation will be a critical and an important part of how you will be evaluated. Effective participation depends on a variety of skills including: active listening, respect and openness to everyone’s ideas and contributions, concise questioning and purposeful discussion (see below for computer/cell phone policy). Students will be graded based on class participation and their preparation for case discussions and assigned analyses. B. Government to Governance Take Home Exam (20%). A take home exam will be posted on blackboard on May 30th by midnight. It is due June 1st by 10p.m. The take home exam will cover material in weeks 1-5. C. Tool Analysis Presentation (15%). You will be responsible for preparing a formal analysis of one tool’s application to a specific policy issue of your choosing. For example, you may be assigned to tax credits and you care about the environment so you decide to look at a tax credit for renewable energy. You will be
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
4
responsible for making a short presentation to the class. You will be expected to review public documents, popular press articles, and scholarly literature on the topic and present their assessment of this tool to the class. D. Tools Paper: (Tools 25%). Approximately 6 pages single spaced. Drawing on material covered in weeks 7-10 of the course, in addition to outside resources, you will write an analytical memo that examines the tools the federal government has used in this public problem domain, the strengths and weaknesses of the tools in this area. E. Network Paper (25%). Approximately 6 pages single spaced. Drawing on material covered in weeks 1114 of the course, in addition to outside resources, you will write an analytical memo that describes a network of organizations in their public problem area, assesses the strengths and weaknesses of this network based on the course readings and other scholarly literature on networks in that public problem domain, and offers preliminary recommendations to help an organization understand and work within this network effectively. F. Network Presentation (5%). On the last day of class you will present a preliminary analysis of your network to your colleagues for feedback, which can then be used in your final paper. COURSE COMMUNICATION Changes to the course schedule, reading assignments and other important information will be announced during class and/or sent to your GMU email address. Assignments will be posted to blackboard but we will also go over them in class. If you have questions or concerns about the course or the material, do not hesitate to talk to me. If you don’t understand something, ask me about it. You are welcome to come see me during my office hours. If you cannot make office hours, we can arrange for an individual appointment by phone or in person. Email is the best way to get in touch with me. If you do send an e-mail, include PUAD 703 in the subject header. I will make every attempt to get back to you within 2 days. CLASSROOM EXPECTATIONS In order to create an environment where everyone is engaged and able to learn, turn off your cell phones, computers and other electronic devices during class. Texting, checking your Facebook page and talking in the classroom is distracting and frustrating for others. If you must do this, leave the room or wait until the break. If you need to use your computer to take notes, contact me to make arrangements. ATTENDANCE You must let me know if they will miss a class. If you miss a class, it is YOUR responsibility to collect handouts, notes, new deadlines, etc. from classmates. LATE ASSIGNMENTS Late Assignments are strongly discouraged, because it is difficult for both students and instructors to keep up with new assignments while simultaneously working on prior ones. I recognize that at times outside circumstances can make it difficult for you to meet a given deadline. If you absolutely must turn in an assignment late, let me know and we will agree to a new deadline. If you turn in your assignment late I cannot guarantee that I will be able to give you either timely turn around or written comments. ACADEMIC INTEGRTIY All graded work is to be completed independently. You are expected to abide by the GMU Honor Code, which prohibits lying, cheating, stealing and plagiarizing (see http://academicintegrity.gmu.edu/honorcode/ for detailed information). Suspected cases of plagiarism may be evaluated using anti-plagiarism software.
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
5
Instructors are required to report all violations of the Honor Code to the GMU Honor Committee. Violations will likely result in a failing grade for the assignment and may result in a failing grade for the course, plus any additional penalties determined by the committee, including dismissal from the University. Please be sure that the work you submit to class is your own, and that you provide proper citations when referencing another person’s words or ideas. STUDENTS WITH DISABILITIES If you are a student with a disability and you need academic accommodations, please see me and contact the Office for Disability Services at 703.993.2474. All academic accommodations must be arranged through that office. DROP and WITHDRAWAL These dates differ for courses that meet less than the full semester. See the Schedule of Classes for those dates. The last day to drop the class is May 25, without penalty. June 1st, is the final day that you can drop the class.
Date 1. May 20 2. May 22 3. May 24 4. May 27 5. May 29 6. June 31 7. June 3 8. June 5 9. June 7 10. June 10 11. June 12 12. June 14 13. June 17 14. June 19 15. June 21 June 24
Summary of Class Schedule and Assignment Due Date Topic Assignment Due Introduction Government to Governance Government to Governance Governance: to Governance NO CLASS Government to Governance Take Home Exam Take Home Exam Due at 10 p.m. Tools: Regulations Tools: Tax Credits Tools. Public Information Tools: Grants Contracts Networks. Why they matter Paper Two Due Networks: Mapping Networks: Managing Networks: Evaluating and Assessing Wrap up and Preliminary Network Presentations e-mail papers by 10p.m. Paper Three Due
Syllabus subject to change. Benjamin, PUAD 703, Summer 2013
6
