LOCAL GOVERNMENT POLITICS AND POLICY
P.Ad. 5626/7626 -- Spring 2006
Tuesdays 7:00-9:45 -- NC 1314
Professor Wallis Office Hours 1-3 M & 3-5 Tu
Office: Suite 500, 1380 Lawrence Street 556-5991/
As a policy analyst or manager, one is often taught that policy should be developed and implemented on the basis of objective criteria that identify solutions that are efficient, effective, equitable, and accountable. In practice, policies are formulated and carried out in political charged arenas where various interest groups maneuver to maximize their advantage. In order to be effective as analysts and managers it is important to understand the politics of local government. The objective of this course is to help students learn to think and act more strategically about policy within a political context and to provide students with some tools to assist in this kind of thinking.
Course Organization
During the first three weeks of this course we will consider broadly the fundamental forces that shape local government policies, focusing in particular on the tension between elites, community interests, and free market forces. The rest of the course is organized around cases that fall into three policy areas: allocative—dealing with the delivery of basic public services; developmental—dealing with activities promoting private sector economic activities; and redistributive—concerning the welfare of disadvantaged segments of the population.
In analyzing issues emerging in these substantive policy areas, we will consider a variety of political relationships, ranging from: those among elected officials; between elected officials and public administrators or managers; between elected officials and the pluralistic constituencies they represent; and among elected officials from different levels of government (e.g., state and federal). In all cases we will be looking at the values that guide policy formulation and at the prioritization of resource allocation. We will be concerned with conflicts in values and priorities, and the manner in which such conflicts are resolved—both successfully and unsuccessfully.
Assignments
The objective of this course, as previously stated, is to help students learn to think and act strategically about the political context in which policy is formulated and executed. Because such thinking is an art more than a science, our class discussions will focus on the analysis of case studies based on actual situations. In discussing these cases you will be asked to assume the role of key participants. Study questions are provided in the course schedule to help focus your reading. You are expected to have a detailed command of the facts in each case. This requires close and careful reading. Your class participation grade will be based substantially on how you perform in role playing and analyzing case situations.
To help get you further into the situations describe in the cases, each student will be required to prepare one memo addressing a problem identified in a chosen case. For example, you might be asked to prepare a memo explaining how you feel city council should address a specific issue, or you might be required to write an op-ed piece for the mayor explaining his position on a specific policy. The list of topics based on cases assigned in the syllabus are included in this handout. By the second week of class you should have a first, second, and third choice of cases. The case that you will prepare for will be selected from one of your three choices. On the day that your case is to be discussed in class, you should be prepared to present your memo. Your written response should be handed in at the end of class. Your reading packet contains an article on how to structure a memo. Please refer to it when developing your memo for class
There will also be a research paper consisting of a case study developed by you describing a policy decision made by or affecting a Colorado local government. As an alternative to an individually developed case, you may also develop a case in a team. You must choose one of the specifically listed topics if you choose to do a team analysis. The best cases will be presented in class at the end of the semester. There is a separate hand-out describing specific requirements for this assignment as well as topics for team assignments. Finally, there will be a take home final that will require you to write two policy memos on hypothetical situations similar to those encountered in the cases discussed this semester. Again, you should refer to the reading in your class packet for guidance of writing an effective policy memo.
The text for this course, available at the Auraria Bookstore, is: The Politics of Urban America: A Reader by Dennis Judd & Paul Kantor, (Fourth Edition—do not purchase the third or second editions).
Most of the assigned case studies are from the Kennedy School of Government. These are available online as a download from Xanedu. Instructions for download are included in this packet. I will also be handing out in class some additional cases from The Electronic Hallway, which is a teaching case service maintained by the University of Washington.
Grading and Attendance Policy
Your class grade is based on the following:
- Class participation10%
- Memo prepared on an assigned case 10%
- Case study that you develop 40%
- Final Exam 40%
Since we meet only once a week, attendance and punctuality are essential. Absence from more than one class will be grounds for grade reduction unless previously excused. You are required to make up work for a missed class by submitting written answers to the study questions for that day's readings. These must be submitted at the beginning of the next class. Lateness of more than 15 minutes will be regarded as an absence unless previously excused. If you know that you will be later than this because of a work commitment, please let me know in advance. Also, try to let me know if you are going to miss a class. Please note the university policy on plagiarism (in this hand out).
COURSE SCHEDULE
Part One: INTRODUCTION
Jan. 171.Who determines city interests?
In this class we will develop an understanding of the use of stakeholder analysis.
Case: Boston Taxi Cabs
Discussion Questions
-Who are the principal stakeholders in this case? What values and interests do they represent?
-Which stakeholders are in conflicts, and what is the basis of their conflict?
-What role does local government play in setting up this conflict?
-What responsibility does it have for resolving the conflict?
-As an advisor to the mayor, how would you resolve the conflict, and what principles would you employ in making your recommendations (e.g., economic, political, ethical)?
Jan. 242. Evolution of Cities, Their Politics and Political Structures
In this class we will look at how political machines and reformers tried to address some of the pressing problems faced by American cities during their period of most rapid expansion.
Film excerpts: Richard A. Daley: The Last Boss
- What benefits did political machines provide?
-What were the political limitations or liabilities of machines?
Film excerpts: New York: The Power and the People (Part 4)
-What policies and procedures did the reformers try to enact to reduce or remove the influence of machines?
-How did the relationship of state powers to their cities affect enactment of reforms?
Required
Judd & Kantor, editors’ essay for Ch. 2 and articles number 4 & 5, editors’ essay for Ch. 3 and articles number 8 & 9
Study Questions
-How does a change in the economic base of a city affect demands for change in its politics and governance structure?
-Who are the Elites of cities under a mercantile economy vs. an industrial economy?
-The southwest US embraced reform earlier and more extensively than other regions of the country. Why?
Hand in selection of cases for in-class memo assignment
Jan. 313. DependentCities and Political Regimes
In this class we will examine some of the major theoretical perspectives developed to explain how city policies get made.
Required
Judd & Kantor, Chapter 1 editors’ essay and articles 1&2
Study Questions
-What factors (economic, social, etc.) determine city policies?
-What is the difference in the way business interests influence policies from Peterson’s perspective versus Stone’s?
-How are the interests of individual cities similar to and distinct from metropolitan interests?
Hand in one paragraph description of your research case study. Students doing the team cases analysis will meet with me after class.
Part Two: ALLOCATIVE POLICIES AND POLITICS
Feb. 74. Defining Your Constituency
In this class we consider how a member of city council defines his or her roles and responsibilities.
Case discussion
"The Politician as Outsider: Judy Nadler and the Santa Clara City Council" (Xanedu download)
Required
Mark Moore, "Realms of Obligation and Virtue for Public Officials" in Fleishman, et al., Public Duties: The Moral Obligation of Public Officials , pp. 3-31. [in reading packet.]
Study Questions
-What constituencies does Judy Nadler have to appeal to in her campaign against patronage? What values does she try to represent?
-How effective is she in utilizing the press and judiciary in advancing her position?
-In the final analysis, did her efforts make a difference in the quality of local decision making?
Feb. 145. Budget Politics
In this class we will look at some of the political dynamics associated with trying to deal with budget cuts and making the case that your department’s budget ought to be spared.
Discussion Cases
"Cutting Back in Lakewood City Government" Part A (in your reading packet).
“A Career Manager and the Budget Process (B)”(in your reading packet).
Required
Mark Moore, “Defining Mission and Goals in the Public Sector,” in Creating Public Value (pp.70-76).
Study Questions For Lakewood Case
-As Kirchoff, how would you evaluate Maune's strengths and weaknesses as acting city manager?
-What are the major problems Kirchoff faces as he assumes the position of city manager?
-If you were Kirchoff, how would you address each of these problems?
Study Questions For Career Manager Case
-Why is the Planning and development Division in Bend County, Oregon having difficulty in justifying its requested budget?
-How does it new manager, Laura Schwartz try to reframe how they think about their work/role in the county.
Feb. 216. Paying for Capital Improvements
In this class we look at how two basic mechanisms of the reform movement—initiative and referendum—operate in shaping policy
Discussion Case
"Citizens for Denver's Future" [In reading packet]
Required Reading
Judd & Kantor, article 14
Study Questions
-What are the advantages and disadvantages of using referenda to approve funding of capital improvements?
-If the participation of various interest groups is useful in gaining support for capital expenditures, how might the process of prioritizing such expenditures be designed to assure support other than recourse to referenda?
Hand in a list of information sources for your case study, including interviews, and a chronology of events.
Feb. 287. Customer Service Innovation at the Seattle Solid Waste Utility
Getting rid of solid waste is a basic problem faced by every city. Previously available solutions, such as incineration or dumping in the ocean, are no longer acceptable in many places because of environmental regulations, so innovative alternatives must be found. This case examines an innovative approach to solving this problem and the political hurdles it had to overcome.
Case Study
“Policy Dilemmas at the Seattle Solid Waste Utility” (in course packet)
Study Questions
-Which stakeholders were opposed to the landfill option and which were opposed to the incinerator?
-What were Diane Gale’s concerns in taking the position as director of the Solid Waste Division?
-What innovation did she propose, and what barriers did she face in implementing her innovation?
Part Three: DEVELOPMENTAL POLITICS AND POLICIES
Mar. 78. Who Determines the Shape and Limits of City Growth?
Regulating the use of land is one of the principal ways that cities try to determine their economic development. In this case we look at rival ideas regarding the future of San Francisco.
Discussion Case
"San Francisco Growth Management."
Required
The Growth Machine vs. the Anti-Growth Coalition, Vogel & Swanstrom [Reading packet.]
Westword article, “Building for the Future: Peter Park is in the Urban Planning Game for Good”[Reading packet].
Study Questions
-What are the coalitions for and against growth management in San Francisco? What values do they represent? Where does their political strength come from?
-Does the movement for growth management in cities like San Francisco and Boulder contradict Peterson basic thesis that cities are economic dependent and therefore must place a priority on developmental policies?
-How does this case relate to alternative theories, such as Stone’s regime theory (article 2 in Judd & Kantor)?
Mar. 149. Mayoral Leadership in Economic Development
In part, the strength of a mayor is defined in terms of powers accorded by statute or charter. But in practice a mayor’s strength is determined by his or her ability to formulate and execute a policy vision. In this class we look at how Henry Cisneros operated as mayor of San Antonio, and what this tells us about mayoral power.
Discussion Case
"Alamodome." (Xanedu)
Required
Judd & Kantor, articles 10 & 15
Study Questions
-Structurally the mayor of San Antonio should be a weak office, yet Cisneros managed to make it strong. What is the source of his power?
-Does his source of power make him particularly vulnerable to moral attack?
-What economic risks and rewards are created by the stadium project? Are they distributed equitably? Could this distribution be changed by altering the financing plan?
Mar. 21Spring Break/No Class
Mar. 2810. DIA and Intergovernmental Relations
The planning of airports and other major physical infrastructure must often be planned from a regional perspective. In this class we examine how the land for DIA was annexed by theDenver.
Discussion Case
"DenverInternationalAirport." Parts I & II (in reading packet.)
Required
Judd & Kantor, article 26 & 27
Study Questions
-In most metro areas airport projects are regarded as LULUs (Locally Undesirable Land Uses). To what extent did local governments regard the airport as a LULU?
-How did the historic relation of Denver with its suburbs affect initial perceptions of the proposal?
-What consideration brought them to the negotiating table?
-Are there any clear "Winners and Losers" in the deal made? If there are losers, who represented their interests at the bargaining table?
April 411. Joint Venturing/ Cities in the Intergovernmental System
Effective economic development benefits from establishing effective partnerships between cities and private sector interests, but making these partnerships work can be challenging.
Discussion Case
"Mayor Joseph Riley: The Politics of Preservation." (Xanedu)
Required
Judd & Kantor, articles 18 & 19
Read the article on the Kelo case at this web site <
Study Questions:
-What public powers does the developer, Gould, try to utilize in this joint venture? Could he have executed this project without those powers?
-What are the benefits to the city in joint venturing with Gould? What are its fiscal and political liabilities?
-Riley believes that he is very effective in building coalitions. What alternative strategy might he have employed in addressing the Preservation Society's initial protests?
Research case studies are due.
Part Four: REDISTRIBUTIVE POLITICS AND POLICIES
April 1112. Balancing Demands for Social Equity
Social equity programs are often unpopular and political divisive. How can a minority mayor serve the interests of the poor while addressing the interests of the city as a whole?
Discussion Case
“Harold Washington and the Guaranteed Home Equity Program." (Xanedu)
Required
Judd & Kantor, 25
Chicago: Power, Race and Reform, Barbara Ferman (in reading packet.)
Study Questions
-On what basis do critics describe the home equity program as "racist"?
-How does Mayor Washington convince black voters that the program is not racist?
-How does Mayor Washington’s approach to this issue seem to contrast with his approach to schools (review in relation to reading no. 21)?
April 1813. Dilemmas of Fair Share
The siting of LULUs and NIMBYs provide good examples of how state and federal governments impose requirements on local governments to address allocative and redistributive needs. In this class we look at a NIMBY siting controversy that illustrated the intergovernmental bind that local governments and nonprofits find themselves in.
DiscussionCase
“The Battle on Brimmer Street: Mental Health Siting Dispute in the State of Maine.”
Required
Judd & Kantor, articles 20 & 21
Study Questions
-Should PAHDC continue to pursue the Brimmer Street Site?
-If it decides to pursue the site, should it wrest some concession from the City of Brewer in return? If so, what kind of concession might it ask for?
-What does this case suggest about the balance between civil rights (of the mentally ill) and property rights? Which should take priority?
April 2514. Health Care/Presentation of selected student case studies
Delivering services, especially to the indigent, often taxes the financial capacities of local government. To overcome this limitation it is often desirable to form a collaboratives. In this class we look at some of the difficulties in establishing effective service delivery collaboratives.
Discussion Cases
"Providing Obstetrical Services for Indigent Women in MontgomeryCounty, Maryland." (Xanedu)
“Creating a Youth Services Collective in Savannah (A),”(in reading packet).
Required
Judd & Kantor, articles 23 & 24
Study Questions For MontgomeryCountyCase
-What were the central concerns of the obstetricians?
-What limits are imposed on the county as a consequence of relying on private-sector delivery of services?
-Should it seek a public-sector alternative or some hybrid?