School of Public Policy and Administration

York University School of Public Policy and Administration AP/PPAS 3190 6.00, Section A PUBLIC ADMINISTRATION 2011-2012

FALL TERM WINTER TERM Instructor: David Langille Dr. James C. Simeon, Asst Prof Office: 128 McLaughlin College 128 McLaughlin College Office hours: Arrange via email Arrange via email E-mail: [email protected] [email protected] Telephone: 647 280 7747 416 736-2100 X30396

Moodle Course website: www.moodle.york.ca/moodle/my/ Lecture: Fridays 2:30 PM - 5:30 PM Class location: 118 Winters College

Course description:

This course offers an examination of the theory and practice of public administration in Canada, but it will also draw on the experience of other industrialized states from the Global North, from time-to-time, such as the United States and United Kingdom, primarily, but also other States such as Australia, New Zealand, and France and Germany, for a comparative perspective.

The course is divided into three parts. The first part of the course will examine the discipline of public administration and it will consider a number of key terms, concepts and theories in public administration, beginning with the term “public administration” itself. The second part of the course will examine the emergence of the New Public Management (NPM) approach and the idea of “reinventing government” and its implications for the practice of public administration and the role of the public servant within the public service. The third part of the course will explore the key interplay of democracy, public policy, and public administration. This part of the course will explore the notions of democratic administration and administrative democracy and their implications for realizing a public service that works truly for the “public good” and in the “public’s interest.”

More specifically, the fall term explores the manner in which public administration has developed in Canada and several key components and concepts of modern public sector management and administration, including, those related to organizations and human resources and administrative law. An examination and analysis of key terms and concepts such as public responsibility and accountability, public finance and budgeting, and a representative and merit based public service will be highlighted during this term.

The winter term will examine contemporary public administration through an exploration of the emergence of NPM and the impact of new technologies and the forces of globalization on the delivery of public goods and services and the meaning of democratic administration and how it might be realized in practice. AP/PPAS 3190 6.00, Y Section A, 2011-2012, Public Administration School of Public Policy and Administration, York University © James C. Simeon 2

Course credit exclusions: AP/PPAS 3410 6.00, AP/POLS 3410 6.00, GL/POLS 3240 6.00. Cross listed to: AP/POLS 3190 6.00

Goals of the course: The course is designed to stimulate critical thinking on public administration. It seeks to provide the essential foundational knowledge on public administration required by civil service professionals who work within the broader public sector and, specifically, within government. In addition, it affords students an opportunity to become fully knowledgeable and conversant with a key issue or concern in public administration through their own in depth research and analysis. In the process, students will be able to develop and hone their research, analytical, and writing skills in the field of public policy and administration.

Learning outcomes: By the end of the course, students should be able to do the following, among other things:

1. Describe the key structures, organizations and processes within the public service of Canada. 2. Outline the conceptual and theoretical foundations of public management and administration and its evolution in Canada. 3. Explain the significance of the distinct approaches to management and administration, as expounded by a number of academically renowned theorists, and their continuing relevance to public administration today. 4. Describe and analyze how the public service in Canada formulates, adopts, implements and evaluates public policies. 5. State the basic elements found in the codes of conduct (the moral and ethical standards of behaviour) for public servants in various jurisdictions. 6. Explain the meaning of democratic administration and how it might be further developed and/or enhanced in the public sector. 7. Through the analysis of weekly case studies gain a fuller knowledge and appreciation of how public sector managers and administrators address a wide variety of issues in the public service workplace. 8. Develop and refine their problem-solving and decision-making skills through the analysis of weekly case studies in public administration. 9. Demonstrate, through an incremental and staged process, the ability to identify a key issue or concern in Canadian public administration, formulate a clear research question and based on reliable and verifiable factual evidence, gathered through their own research, present a thorough analysis and a coherent set of concise findings and conclusions in a research paper.

AP/PPAS 3190 6.00, Y Section A, 2011-2012, Public Administration School of Public Policy and Administration, York University © James C. Simeon 3

Required textbooks and course kit:

Johnson, David. 2009. Thinking Government: Public Administration and Politics in Canada. 3rd Edition, Toronto: University of Toronto Press.

Carroll, Barbara Wake, David Siegel, and Mark Sproule-Jones. eds. 2005. Classic Readings in Canadian Public Administration. Toronto: Oxford University Press.

AK/PPAS 3190 6.00, Section A, Fall/Winter 2011-2012, Case Studies Course Kit.

Other relevant books that are recommended:

Barker, Paul, ed. 2006. Public Administration in Canada: Brief Edition. Toronto: Thomson, Nelson.

Inwood, Gregory. 2012. Understanding Canadian Public Administration: An Introduction to Theory and Practice, 4th Edition. Toronto: Pearson.

Loxley, John. 2010. Public Service, Private Profits: The Political Economy of Public- Private Partnerships in Canada. Halifax: Fernwood.

Pal, Leslie A. 2006. Beyond Policy Analysis: Public Issue Management in Turbulent Times. 3rd edition. Toronto: Thomson Nelson.

Dwyer, John A. and Thomas R. Klassen. 2005. Flourishing in University and Beyond. Toronto. York University.

Additional suggested readings:

Peters, Guy B. and Donald J. Savoie. 2000. Governance in the Twenty-first Century: Revitalizing the Public Service. Montreal: McGill-Queen's University Press.

Savoie, Donald J. 2003. Breaking the Bargain: Public Servants, Ministers, and Parliament. Toronto: University of Toronto Press.

Shields, John and B. Mitchell Evans. 1998. Shrinking the State: Globalization and Public Administration “Reform.” Halifax: Fernwood Publishing.

Evaluation

Assignment Worth (%) due date Research Proposal 10 Oct. 7 Annotated Bibliography 10 Oct. 28 In-Class Quiz 1 10 Nov. 18 In-Class Quiz 2 10 Feb. 17 Research Paper 20 March 16 Final Exam 20 Exam Period Case Study Participation 20 Weekly

*Please Note

1. Late assignments will not be accepted. Late assignments will be assigned a grade of zero. It is strongly recommended that you submit assignments before the due date. Make-up tests will only be scheduled if documentation of emergency medical services is provided.

2. Assignments must be submitted in class. Assignments submitted via e-mail or fax will not be accepted.

Important dates

September 20th, 2011 is the last date you will be able to enroll in the course without instructor's permission. October 25th is the last date you will be able to enroll with the permission of the instructor. The last date to drop this course without receiving a final grade is February 10, 2012. For Y or full courses, fall and winter term courses, classes end on April 2th and the Final Examination period is April 4th to the 20th, 2012.

Writing and related resources

1. The Faculty of Liberal Arts and Professional Studies’ Writing Department offers resources to assist students with their written assignments that include individual tutoring and other practical instruction in all aspects of writing. The web address for the Writing Department is http://www.yorku.ca/laps/writ/index.html. .

2. The etutor is an online service for students in the Faculty of Liberal Arts and Professional Studies that allows students to submit their draft papers electronically to York University writing instructors for review and comments. The web address for the etutor is http://www.yorku.ca/laps/writ/etutor.html.

3. Students for whom English is not their first language can also obtain assistance at the Writing Department’s English as a Second Language Open Learning Centre. http://www.yorku.ca/eslolc/keele/default.asp

Academic Integrity

Cheating and plagiarism are extremely serious academic offenses that will result in severe sanctions. See http://www.yorku.ca/academicintegrity and specifically http://www.yorku.ca/academicintegrity/students/index.htm. All students are urged to visit York University’s Academic Integrity Web Site and to read the “Beware! Says Who? Avoiding Plagiarism” pamphlet, and to do the online Tutorial on Academic Integrity, if you have not already completed this online tutorial then visit http://www.yorku.ca/acadinte/files/beware-sayswho.pdf.

Religious Observance Accommodation

York University is committed to respecting the religious beliefs and practices of all members of the community, and making accommodations for observances of special significance to adherents. Should any of the dates specified in this syllabus for an in-class presentation or the due date for an assignment pose such a conflict for you, please let the Course Director know within the first three weeks of class.

For your information, please note that to arrange an alternative date or time for an examination scheduled in the formal examination periods (April), students must complete an Examination Accommodation Form, which can be obtained from Student Client Services, Student Services Centre or online at http://www.registrar.yorku.ca/pdf/exam_accommodation.pdf.

Students with Disabilities

The York University Senate has adopted a Policy Regarding Academic Accommodation for Students with Disabilities which provides that the University “shall make reasonable and appropriate accommodations and adaptations in order to promote the ability of students with disabilities to fulfill the academic requirements of their programs.” There are a number of different resources available to assist students with disabilities at York University. For further information you may wish to contact the Counseling & Disabilities Services at http://www.yorku.ca/cds/, Learning Disability Services, http://www.yorku.ca/cds/lds/index.html, and/or Physical, Sensory & Medical Disability Service (PSMDS) at http://www.yorku.ca/cds/psmds/index.html.

Students who feel that there are extenuating circumstances which may interfere with the successful completion of any course requirements are encouraged to discuss the matter with the Course Director as soon as possible to make appropriate arrangements.

Descriptions of Some of the Course Assignments

RESEARCH PAPER PROPOSAL (10% of the Course Grade)

The research paper proposal assignment is an outline for the research paper that is due in the winter term. As such, it can be conceived of as a map that provides direction for the research and writing of your research paper. The more detailed and developed the map, the less difficult it should be to write the research paper.

You may select any topic of interest related to public administration as found in our weekly assigned readings in our course outline and our case studies course kit. Our textbook, lectures to-date, the recommended web-sites that are included in our course outline and your own interests may provide suggestions. Aim to have a focussed topic, problem, issue, controversy, debate or dilemma that is central to your proposal. Avoid vague and general topics. For your proposal you should also indicate why what you have selected to explore is interesting and important. Please keep in mind that your research topic has to be directly relevant to some aspect of public administration per se and not another subject such as health policy, economic or environmental policy.

The proposal will require some library and web-based research and you must include a bibliography that includes at least four books (one of which can be our textbook) and five web-sites that you have consulted so far.

There is no one format that will be most appropriate for the proposal, rather the proposal should clearly communicate to a reader what you intend to become highly knowledgeable in during the next four months. The length of the proposal should be no less than four pages, in addition to the bibliography.

Students are encourage to discuss their areas of research interest and what topic they would like to do their research papers on with their Course Director well before this assignment is due.

The research paper proposal is due on October 7, 2011.

ANNOTATED BIBLIOGRAPHY (10% of the Course Grade)

An annotated bibliography is a document that lists the books and articles that you have consulted to-date in preparation for writing your research essay. For each item (book, article, etc.) there must be a 150 words (minimum) summary and evaluation – in your own words – of the contents of the book or article.

The annotated bibliography must include at least 5 academic books and at least 5 academic articles. The purpose of the annotation is to inform the reader of the content, relevance and quality of the sources cited. You will need to demonstrate that you have read AP/PPAS 3190 6.00, Y Section A, 2011-2012, Public Administration School of Public Policy and Administration, York University © James C. Simeon 7

– not every page, but at least the parts that might apply to your essay – the books and articles.

In order to locate books and articles you may wish to go to the York library home page - http://www.library.yorku.ca/homepage.htm - and have a librarian in real time assist you (see http://www.library.yorku.ca/ccm/Home/VirtualReference/askalibrarian.htm).

Books on public administration generally, but not invariably, may be found on the Scott Library shelves under the following call numbers: JF 1351, JF 1525, JF 1411, JL 75 and JF 1411. It is recommended that you select a book published since 2010. Some of the academic journals that might be helpful include:

Administration & Society (note that the title is Administration and Society in some search engines and databases) Canadian Public Administration International Journal of Public Administration Local Government Studies

It is suggested that you select articles written since 2007. The books that you annotate must be checked out from the Scott Library. Please be advised that you may be required in a meeting to demonstrate that you have read the articles and books listed in your bibliography.

The annotated bibliography is due on October 28, 2011.

RESEARCH PAPER GUIDELINES (20% of the Course Grade)

The research paper is the major assignment for our course. It must be at least 15 pages in length using double-spacing and 12 point font. If you believe that you may not be able to submit the essay by the due date (because of past incidents of technological difficulties, medical conditions, employer demands, etc.) you must submit it before March 16th. Late papers will not be accepted.

The research paper must be professional in all aspects. As such, it must have a cover page, title, table of contents, five or six sections (such as introduction, conclusions, etc.), bibliography and, if you wish, appendices. You are encouraged to use a few visual aids: graphs, charts, photos, diagrams, tables, etc. These must be clearly labeled and referenced. You must have page numbers. The research essay must be a holistic work that demonstrates considerable research, writing and thinking. Pages 63 to 92 of Dwyer and Klassen’s Flourishing in University and Beyond may be useful to consult.

Grades will be deducted for typos and other grammatical errors. You should have the paper read (edited) by others before submitting it.

You must cite the sources that you have used, using footnotes, endnotes or parenthesis in the text. One source that you must cite if you are writing about Canadian public administration is the journal titled, Canadian Public Administration. As well, you must cite AP/PPAS 3190 6.00, Y Section A, 2011-2012, Public Administration School of Public Policy and Administration, York University © James C. Simeon 8 appropriate information and ideas from our two textbooks, our lectures and, of course, from the books and articles included in your annotated bibliography. At least 50% of your citations must be from academic sources (books and articles) and no more than 75% of your sources should be web-available. Please see the information provided in the course outline on writing and related resources, and on library assistance in the annotated bibliography assignment guidelines.

The research essay is due on March 16, 2012.

CASE STUDY PARTICIPATION (20% of the Course Grade)

Given that the case study method is an integral component of this course, and the final exam will require analysis of a case study, it is critical that students participate actively in this process. You will be assigned a new case study for each class, and will be expected to read and analyze it in advance of the class and be ready to discuss it in your breakout group. After discussion, debate and analysis of the case study in the breakout session, the class will reconvene for a report back, discussion, analysis and evaluation of the assigned weekly case study.

Twenty percent of the course grade, then, will be based your participation in the breakout group sessions and the quality of your analysis and discussion of the case studies. That will be evaluated by having you submit a one or two page summary of your discussion in the breakout group and the ensuing discussion in class (be sure to distinguish between the two). These notes will be submitted at the end of class and returned to you the following week.

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Web Resources

Some of the web sites below may be of assistance in your research and of interest in exploring issues related to public administration. The web-sites can be accessed directly from the course outline posted on the Web. Canada School of Public Service: news and trends in executive learning, executive education and development programs and services and to documents The Innovation Journal: independent, peer-reviewed, Internet-based journal devoted to sharing ideas and discussing public sector administration innovation Index to Federal Royal Commissions: materials associated with the more than 200 federal Royal Commissions that have taken place since Confederation from the National Library of Canada Institute of Public Administration of Canada: national non-profit organization, concerned with the theory and practice of public management, with 17 regional groups across Canada Office of the Auditor General of Canada: publications, including searchable full text of the Reports of the Auditor General

Parliamentary Internet Parlementaire: access to the House of Commons, Senate and the Library of Parliament, including debates, committee proceedings, and status of legislation Privacy Commissioner of Canada: includes annual reports Privy Council Office: includes annual reports to the Prime Minister Public Service Commission of Canada - Research Directorate: labour market trends, public service demographics and managing human resources in the federal Public Service Public Service Commission of Canada Library: research on public service reform United Nations Online Network in Public Administration and Finance: forum for knowledge, experiences and best practices worldwide of sound public policies, effective public administration and efficient civil services There are also many web sites primarily related to public policy that might be useful for our course. Caledon Institute of Social Policy Canadian Centre for Policy Alternatives Canada West Foundation Canadian Council on Social Development (CCSD) Canadian Labour Congress Canadian Policy Research Networks (CPRN) CD Howe Institute Conference Board of Canada Fraser Institute International Labour Organization Institute for Research on Public Policy (IRPP) International Reform Monitor Organisation for Economic Development and Cooperation (OECD) Policy Research Initiative (PRI)

WEEKLY LECTURE SCHEDULE AND REQUIRED READINGS

The lectures in this course are not intended to summarize the required readings rather they build on the readings and introduce new ideas. Attendance in the lectures and participation in the weekly class breakout sessions are premised on students completing the assigned weekly readings and are important for reinforcing student comprehension and retention of course content. FALL TERM

Week 1- September 9 – Welcome to Public Administration: Course Introduction and Overview

PART I – History, Key Concepts and Major Issues

Week 2 – September 16 – What is Public Administration? Case Studies and the Case Study Method

Introduction and Chapter 1: “Thinking about Canadian Society and Government” in David Johnson, Thinking Government Chapter 1 – J. E. Hodgetts, “Challenge and Response: A Retrospective View of the Public Service of Canada,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

With Professor Simeon introducing “Case Study Analysis and Practice” – (In-Lecture Exercise).

Week 3 – September 23 - A Brief History of the Rise of Public Administration

Chapter 2: “Ideologies of Government and Public Service” in David Johnson

Chapter 2 – Royal Commission on Government Organization, “The Tasks of Management: A New Approach,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 4 – September 30 -- The Machinery of Government

Chapter 3: “Institutions of Governance” in David Johnson

Chapter 3 – H. L. Laframboise, “Administrative Reform in the Federal Public Service: Signs of a Saturation Psychosis,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 5 – October 7* – Relationships between the Senior Executives: Ministers and their Deputies

Chapter 4: “Ministers and Cabinet Decision-Making Systems” in David Johnson

Chapter 4 – Colin Campbell and George Szablowski, “What Central Agencies May and Ought to Do: Structure of Authority,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration *Research Proposal Due

Week 6 – October 8 – 14 – *Reading Week/Co-Curricular Week – (No Classes)

Week 7 – October 21 -- Organization and Management Theories

Chapter 5: “Organizational Design and Management Decision-Making” in David Johnson

Chapter 26 – Michael J. Prince and John Chenier, “The Rise and Fall of Policy Planning and Research Units: An Organizational Perspective,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 8 – October 28* – Public Finances and Financial Management

Chapter 6: “Financial Management” in David Johnson

Chapter 19 – Aaron Wildavsky, “A Budget for All Seasons? Why the Traditional Budget Lasts,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration *Annotated Bibliography Due

Week 9 – November 4 – Human Resource Management in the Public Sector

Chapter 7: “Human Resources Management” in David Johnson

Chapter 16 – Kathleen Archibald, “From Sex and the Public Service,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 10 – November 11 – Public Sector Management Reform

Chapter 10: “Issues in Management Reform” in David Johnson

Chapter 22 – Peter Aucoin and Herman Bakvis, “Organizational Differentiation and Integration: The Case of Regional Economic Development Policy in Canada,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration AP/PPAS 3190 6.00, Y Section A, 2011-2012, Public Administration School of Public Policy and Administration, York University © James C. Simeon 12

Week 11 – November 18* – Term Test *First In Class Quiz (2 hours)

Week 12 -- November 25 – Accountability: Responsibility, Responsiveness and Ethics

Chapter 9: “Accountability: Responsibility, Responsiveness and Ethics,” in David Johnson

Chapter 12 – Kenneth Kernaghan, “Changing Concepts of Power and Responsibility in the Canadian Public Service,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 13 – December 2 – The Challenge of Leadership

Chapter 10: “The Challenge of Leadership,” in David Johnson

Chapter 11 – Donald V. Smiley, “An Outsider’s Observations of Federal-Provincial Relations Among Consenting Adults,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Sessional Break – Seasonal Holidays, Christmas and the New Year York University is closed December 23th to January 2nd.

WINTER TERM

PART II - Reinventing Government? The New Public Management

(A more detailed weekly assigned reading list will be provided for the second term.)

Week 14 – January 6 – The Challenges Confronting the Public Sector

Chapter 18 – A. W. Johnson, “Efficiency in Government and Business,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 15 – January 13- The New Public Administration (NPM): An Introduction (1980-present)

Chapter 21 – Rodney Dobell and David Zussman, “An Evaluation System for Government: If Politics is Theatre Then Evaluation is (Mostly) Art,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 16 – January 20 - Blurring the Boundaries between “Public and Private”: Privatization, Deregulation and the “Third Sector”

Chapters 8 – G. Bruce Doern, “Regulatory Processes and Regulatory Agencies,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 17 – January 27 - Accountability and Performance (1)

Chapters 5 and 6 – Mitchell Sharp, “The Role of the Mandarins: The Case for a Non- Partisan Senior Public Service,” and Hugh D. Segal, “The Accountability of Public Servants: Our Government Would be Better if Senior Mandarins Were Less Secure,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 18 – February 3 - Accountability and Performance (2)

Chapter 7 and 9 – J. E. Hodgetts, “Structural Heretics: The Non-Departmental Forms,” and C. A. Ashley and R. G. H. Smails, “From Canadian Crown Corporations,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration Week 19 – February 10 - Ethics in the Public Service

Chapter 13 – Kenneth Kernaghan, “Codes of Ethics and Public Administration: Progress, Problems, and Prospects,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 20 – February 17* – Term Test *Second In Class Quiz

Week 21 – February 18th – 24th – Reading Week/Co-Curricular Week * No Classes

Part III – Democracy, Policy and Administration

Week 22 – March 2 - The Policy Process and Public Administration

Chapter 25 – E. L. Morton and Leslie A. Pal, “The Impact of the Charter of Rights on Public Administration,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 23 – March 9* – Variations in Public Administration

*No assigned readings – Research Essay Due Next Week

Week 24 - March 16* -- Democracy, Policy and Administration (1)

Chapters 23 and 24 - J. Stefan Dupre, “Reflections on the Workability of Executive Federalism,” and Albert Breton and Ronald Wintrobe, “Bureaucracy and State Intervention: Parkinson’s Law?” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration *Research Paper Due

Week 25 – March 23 – Democracy, Policy and Administration (2)

Chapter 28 – Kenneth Woodside, “The Political Economy of Policy Instruments: Tax Expenditures and Subsidies in Canada,” in Barbara Wake Carroll, et al. eds., Classic Readings in Canadian Public Administration

Week 26 – March 30 -- Review and Conclusions: Public Administration in the 21st Century

*Final exam to be held during the final exam period, April 4th to 20th.

AP/PPAS 3190 6.00, Y Section A, 2011-2012, Public Administration School of Public Policy and Administration, York University © James C. Simeon