PUBL 6311 Syllabus
Spring 2015
PUBL 6311 University of Houston
Public Administration and Implementation
Section 16608
Instructor: Carl Carlucci
E-mail: ccarlucci@uh.edu
Time: Wednesdays, 5:30 to 8:30 pm
Introduction
This is a graduate level seminar in public administration. It is a complement to PUBL
6310 Administrative Theory. The focus of this class is on the practice of public
administration with an emphasis on implementation of public policy. This is primarily a
reading and writing course. (If you want to understand the importance of writing in
public administration, see Why Advancement in Public Administration has Always Been
an Essay Contest.) Some of the classwork will take place on-line and by email, which is
how much of modern public administration is conducted.
The course readings will cover various theories of public administration and policy
implementation, as well as the use of policy tools and policy networks in
implementation.
The following topics will be explored in class discussions of the assigned readings and
current events, and in the production of written assignments.



Overview of Public Administration
Policy Tools and Policy Networks
Policy Implementation
Learning Outcomes

Students will understand the role of the theories of public administration as the
knowledge base in solving problems and in developing innovations in the
practice of public administration.

Students will understand how public administration includes both governance
and the public policy process, and while it uses many of the same tools, is
different from public management.

Students will understand the policy perspective in policy implementation and
how this contributes to the success of the public policy process.
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PUBL 6311 Syllabus
Spring 2015

Students will be able to lead and participate in policy implementation, to
articulate the role of public policy in the policy implementation process and to
communicate how different policy tools are needed in policy implementation.
Requirements for the Course
The requirements for this class are reading, writing and presenting. You are responsible
for doing the required readings, carefully and thoughtfully, producing written
commentaries and preparing yourself for the class discussions. You are expected to
participation in each class discussion and in any on-line exercises.
Class participation and preparation: For each class you are expected to formulate at
least two questions from the weekly readings (starting with class 2 assignments) in the
format of a briefing memo. These are not simply statements of your opinion or
position, but a critical view of a specific reading or portion of a reading. While for
practitioners an uncritical view may be acceptable, as students, scholars and leaders,
you need to do more than simply explain the claims or answers in the reading, you
need to be able to critically dissect or defend them. You will email these to the
instructor prior to 7 PM on the day prior to the class. All questions will be compiled and
presented to the class for evaluation and discussion. The best questions will be selected
by the class, presented by the student authors, with their answers. Points are awarded
for their presentations and also your participation. You can earn up to 30 points
towards your grade for having your questions selected and your presentation.
Smith, C. (2010) Writing Public Policy. See Writing Public Policy chapter 7, p. 126 for the
format and style of a briefing memo.
Semester Writing Project: The Topic-Chapter Matrix in Menzel and White lists 24 topics.
You will select three that form a coherent discussion of a topic you define based on your
interests and the area of public administration in which you want to specialize. The
topic will be a major theme in public administration. (Example: the topics Congressional
Redistricting, the Voting Rights Act, and landmark Supreme Court VRA cases could be
three topics that inform a position on the effectiveness of our government’s separation
of powers.) You will submit the selections and the topic in a memo to me by the fifth
week of class. I will select a fourth topic to add to your collection. This will account for
10 % of your grade.
You will have the remainder of the semester to read all of the associated articles,
identify the portions relevant to your topic, and produce a twenty page position paper
supporting your position. This will account for 30% of your grade. (See Writing Public
Policy p. 90).
Writing assignments: You will be required to produce three papers on implementation
topics. You will be expected to submit graduate-level quality papers on time using
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PUBL 6311 Syllabus
Spring 2015
Turnitin on Blackboard. Late papers will be dropped one letter grade. These should
take the form of a memo which should answer each of the following questions. (See
Writing Public Policy p. 25 or check for examples online. GOOGLE: memo format.)
--What is the policy, how was it developed and what are its goals?
--What is the anticipated implementation machinery?
--What kind of policy implementation theories and tools does it rely on?
--What data is available to study the implementation of this policy?
These papers will account for 30% of your grade. The length of each of these will vary
according to the topic and the level of analysis and discussion required. Be concise, use
topic headings, and clearly answer the questions.
“I have only made this letter longer because I have not had time to make it
shorter.” Blaise Pascal, 1657.
Required textbooks:
The State of Public Administration (2011). Editors: Menzel, Donald C. and Harvey L.
White, M.E, Sharpe.
Goldsmith, Stephen and William D. Eggers (2004) Governing By Network, Brookings
Institution Press. Available electronically through the UH Library.
Mahler, Julianne G. (2009) Organizational Learning at NASA, Georgetown University
Available electronically through the UH Library.
References
Shafritz, Jay M and Borick, Christopher P. (2010) “Why Advancement in Public
Administration Has Always Been an Essay Contest” in Cases in Public Policy and
Administration, NY: Longman. Pg.200. (Google the title for an on-line version.)
Smith, C. (2010) Writing Public Policy, A Practical Guide to Communicating in the Policy
Making Process, Oxford University Press
Kettl, Donald F (2002) The Transformation of Governance., John Hopkins University
Press. Available electronically via UH Library.
Alberts, D and Hayes, R. (2005) Power to the Edge, Department of Defense Command
and Control Research Center (Available in PDF or at no charge at www.dodccp.org)
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PUBL 6311 Syllabus
Spring 2015
Articles and chapter extracts can be found in the Blackboard folder labeled READINGS.
Weekly Readings (subject to change as necessary)
Part 1: Overview of Public Administration
Class 1- Jan. 21: Introduction and Overview
Lynn Jr., Laurence E. 2011. C. 1 Public Administration Theory – Whose Side Are You On?
In The State of Public Administration. ED. Menzel, Donald C. and Harvey L. White. NY:
M.E. Sharpe. 3-22.
Hulst, Merijn van et al. (2011) “Reflections on Theory in Action – Exemplary Practitioners
– A Review of Actors Who Make a Difference in Governing” PAR (2011).
Gonnerman, Jennifer. “The Knock at the Door” New York Magazine (2011).
The instructor will present a synopsis and questions based on these readings.
Class 2- Jan. 28: Administrative theory and the needs of the 21st century.
Bowman, James S. and Jonathan P. West. 2011. C. 2 The Profession of Public
Administration. In The State of Public Administration. ED. Menzel, Donald C. and Harvey
L. White. NY: M.E. Sharpe. 25 – 35.
Rosenbloom, David H. 2011. C 22 Public Administration’s Legal Dimensions. In The State
of Public Administration. ED. Menzel, Donald C. and Harvey L. White. NY: M.E. Sharpe.
386- 387.
Schultz, David. 2011. C. 27 The Crisis of Public Administration Theory in a Postglobal
World. In The State of Public Administration. ED. Menzel, Donald C. and Harvey L. White.
NY: M.E. Sharpe. 453 – 463.
Ferman, Barbara. 1990. C. 3 When Failure is Success: Implementation and Madisonian
Government. In Implementation and the Policy Process: Opening up the Black Box, ED
Palumbo, Dennis and Calista, Donald. NY, Greenwood Press. 39-50.
Class 3- Feb. 4: The Practice of Public Administration
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Spring 2015
Haynes, Wendy and Beth Gazley. 2011. C. 4 Professional Associations and Public
Administration – Making a Difference? In The State of Public Administration. ED. Menzel,
Donald C. and Harvey L. White. NY: M.E. Sharpe. 54 – 69.
Bretschneider, Stuart I. and Ines Mergel. 2011. C. 12 Technology and Public
Management Information Systems – Where We Have Been and Where We Are Going. In
The State of Public Administration. ED. Menzel, Donald C. and Harvey L. White. NY: M.E.
Sharpe. 187 – 203.
Perry, James L. and Neal D. Buckwalter. 2010. The Public Service of the Future. Public
Administration Review, Supplement to Vol. 70, S238 – S244.
Wright, Deil S. et al. 2011. C. 18 Historic Relevance Confronting Contemporary
Obsolescence? Federalism, Intergovernmental Relations, and Intergovernmental
Management. In The State of Public Administration. ED. Menzel, Donald C. and Harvey L.
White. NY: M.E. Sharpe. 297 - 315.
Lukensmeyer, Carolyn. J. 2010. Learning from the Past, Committing to the Future: A
Practitioner’s View of Our Democracy. Public Administration Review, Supplement to Vol.
70, S272 – S283.
Bowman, James S. et al. (2010) Achieving Competencies in Public Service – The
Professional Edge. NY: Sharpe. 43 & 44 [See Exhibit 2.1 Technical Expertise: Legal
Knowledge. Why is it important to adopt both broad and narrow perspectives on the
law?]
Part 2: Policy Tools and Networks
Class 4- Feb. 11: The Profession of Public Administration
Bowman, James S. et al. 2010. C. 3 – The Ethical Professional – Cultivating Scruples in
Achieving Competencies in Public Service – The Professional Edge. NY: Sharpe. 68 – 97.
Menzel, Donald C. 2011. C. 7 Ethics and Integrity in Public Service – Issues and
Challenges. In The State of Public Administration. ED. Menzel, Donald C. and Harvey L.
White. NY: M.E. Sharpe. 108 - 124.
Dubnick, Melvin J. and Kaifeng Yang. 2011. C. 11 The Pursuit of Accountability –
Promises, Problems, and Prospects. In The State of Public Administration. ED. Menzel,
Donald C. and Harvey L. White. NY: M.E. Sharpe. 171 – 186.
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PUBL 6311 Syllabus
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Class 5- Feb. 18: The New Public Administration (video lecture on your own, no class
meeting)
The New Synthesis Program, A New Synthesis of Public Administration: serving in the
21st century. London School of Economics (Sorry, but you will not see the speaker’s
slides.)
Watch the “guest lecture” video whenever you want, but at the latest prior to the end
of the regular class period. Prepare your summary and discussion questions and be
ready to submit these for the next class.
Speaker: Jocelyne Bourgon
Chair: Professor Eve Mitleton-Kelly
Recorded on 6 December 2011 in Hong Kong Theatre, Clement House
Crises, cascading failures, and unpredictable shocks characterize the world we live in.
Jocelyne Bourgon will map out an enabling framework for governing in the 21st century.
Jocelyne Bourgon has led ambitious public sector reforms as secretary to the Cabinet of
Canada. She is president of PGI (Public Governance International) and author of A New
Synthesis of Public Administration: serving in the 21st century, (2011) McGill-Queen’s
University Press.
Time 1:35
http://www.youtube.com/watch?v=H3A669FX-bU
For background see also: http://nsworld.org/content/welcome-ns-world
https://www.cscollege.gov.sg/knowledge/ethos/issue%2010%20oct%202011/pages/the
-new-sysnthesis.aspx
http://www.canadiangovernmentexecutive.ca/category/item/1398-the-new-synthesisproject-a-laboratory-for-master-practitioners.html
The memo outlining you proposed semester writing assignment is due by midnight
tonight.
Part 3: Policy Implementation
Class 6- Feb. 25: Policy Implementation Theory
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Lester, James P. and Joseph Stewart Jr. C. 7 Policy Implementation. In Public Policy An
Evolutionary Approach.
Sabatier, Paul and Daniel Mazmanian. 1980. The Implementation of Public Policy: A
Framework of Analysis. Policy Studies Journal. 8, 4, Special Number 2, 538-560.
Mazmanian, Daniel and Paul Sabatier. 1983. Variables involved in the Implementation
process, Extent to Which the implementation of the 1970 Clean Air Amendments Met
the Six Conditions of Effective Implementation, 1970-77, and Six conditions of effective
implementation. In Implementation and Public Policy with a New Post Script. Dallas, TX:
Scott, Foreman and Company.
Mead, Lawrence. 2004. C. 4 Implementing Work Requirements and C. 5 Local
Variations. Government Matters: Welfare Reform in Wisconsin, Princeton
University Press. ISBN 0-691-12380-2
Shumavon, Douglas H. and H. Kenneth Hibbeln. 1985. Administrative Discretion
and Public Policy Implementation. In Administrative Discretion and Public Policy
Implementation ED. Shumavon and Hibbeln. NY: Praeger. 1 – 10.
Durant, Robert. 2009. Getting Dirty-Minded: Implementing Presidential Policy Agendas
Administratively. Public Administration Review, 69, 4, 569-585.
Herd, Pamela et al. (2013) Shifting Administrative Burden to the State: The Case of
Medicaid Take-Up. Public Administration Review, Supplement to Vol. 73, S69 – S 81.
[Understand “administrative burden” and how it may affect implementation. Should it
be the individual’s responsibility or the state’s?]
Hill, Michael and Peter Hupe. 2006. Implementing Public Policy: Governance in Theory
and in Practice. Thousand Oaks: Sage Publications. C. 8 Governance and Managing
Implementation, 160 – 196.
Class 7- Mar. 4 : Implementation In Practice
Matland, Richard E. 1995. Synthesizing the Implementation Literature: The AmbiguityConflict Model of Policy Implementation, Journal of Public Administration Research and
Theory: J-PART, 5, 2, 145-174.
Carlucci, Carl (1990) C. 10 Acquisition: The Missing Link in the Implementation of
Technology. In Implementation and the Policy Process: Opening up the Black Box, ED
Palumbo, Dennis and Calista, Donald. NY, Greenwood Press. 149-160.
Traci Barker & Mark N. Frolick (2003) ERP Implementation Failure: A Case Study,
Information Systems Management, 20:4, 43-49 (UH Library on-line).
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PUBL 6311 Syllabus
Spring 2015
Katherine J. Klein and Andrew P. Knight (2005) Innovation Implementation: Overcoming
the Challenge, Current Directions in Psychological Science 14: 243 (UH Library on-line).
First policy implementation memo due
We will discuss you semester writing proposals and have individual evaluation
meetings.
Class 8- Mar. 11:
Mahler, Julianne G. with Maureen Hogan Casamayou. 2009. Organizational Learning at
NASA. D.C.: Georgetown University Press
Class 9- Mar. 25
Henderson, Alexander C. (2013) Examining Policy Implementation in Health Care. Rule
Abidance and Deviation in EMS. Public Administration Review, Vol. 73, Number 6, 799 –
809.
Howard, Joseph Y. and Sharon L. Wrobel. 2010. Implementing Change in an Urban
School District: A Case Study of the Reorganization of the Little Rock School District.
Public Administration Review. 934 – 941.
Salamon, Lester M. 2002. The Tools of Government: A Guide to the New Governance.
Oxford University Press. Focus on Introduction, Chapter 1.
Videc, Marie-Louise Bemelmans, et al. (1998) Carrots, Sticks, and Sermons – Policy
Instruments & Their Evaluation. New Brunswick: Transaction Publishers.
Class 10- April 1 (video lecture on your own, no class meeting)
If We Can Put a Man on the Moon -Getting Big Things Done in Government (2009)
How to Successfully Implement Public Policy, Bill Eggers 2/24/2010
Watch the “guest lecture” video whenever you want, but at the latest prior to the end
of the regular class period. Prepare your summary and discussion questions and be
ready to submit these for the next class.
http://www.youtube.com/watch?v=YjJ1apzpK1Y
Time 1:03
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Successfully implementing and seeing results from a big initiative is a tricky and convoluted
business in government, a situation which Bill Eggers imaginatively evaluated at a recent Policy
Exchange event. Whilst the United States managed to put a man on the moon not all such big
and bold initiatives come to fruition and many never make it. Eggers sought to ask why and in an
outline of the 'journey to success' he identified 'seven deadly traps' that can hinder the policy
process as well as suggesting tools and techniques to avoid these pitfalls. He argued that for a
policy to succeed it has to have an implementable design, that is - it has to work in the real world.
He drew on a number of examples, congestion charging in particular, to show that with the right
idea, design and final implementation big ideas can work and government can deliver.
Reference: Goldsmith, Stephen and William D. Eggers. 2004. Governing By Network –
The New Shape of the Public Sector. D.C.: Brookings Institution Press.
Second policy implementation memo due
Class 11- April 8
Office of Technology Assessment, Congress of the United States. September 1995.
Environmental Policy Tools: A User’s Guide. http://www.fas.org/ota/reports/9517.pdf
(Focus on Chapter 1 Summary, Chapters 3, and especially 4)
Anne Schneider and Helen Ingram. 1990 “Behavioral Assumptions of Policy Tools”
Journal of Politics, Vol. 52, No. 5
Anne Schneider and Helen Ingram. 1993. “Social Construction of Target Populations:
Implications for Politics and Policy” American Political Science Review, Vol. 87, No.2
Brandsen, et al. 2006. Soft Governance, Hard Consequences: the Ambiguous Status of
Unofficial Guidelines. Public Administration Review, 66, 4, 546-553
Class 12- April 15
Alberts, David and Hayes, Richard, 2005. Power to the Edge, DODCCRP
(www.dodccrp.org). Foreword xiii – xvii; Chapters 1 – 3; C.5 90 – 93; C. 8 125 –
128; C. 9 165-177; C. 10 179-187; C. 11 201 – 212; and C. 12.
Third policy implementation memo due
Class 13- April 22
Comfort, Louise K. et al. 2011. C. 16 Network Theory and Practice in Public
Administration – Designing Resilience for Metropolitan Regions. In The State of Public
Administration. ED. Menzel, Donald C. and Harvey L. White. NY: M.E. Sharpe. 257 – 271.
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PUBL 6311 Syllabus
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Bryson, Johnson M., Barbara C. Crosby, and Melissa Middleton Stone. 2006. The Design
and Implementation of Cross-Sector Collaborations: Propositions from the Literature.
Public Administration Review. 44 – 55.
Kania, John and Mark Kramer. 2011. Collective Impact. Leland Stanford Jr. University.
Class 14- April 29
Agranoff, Robert. 2011. C. 17 Collaborative Public Agencies in the Network Era. In The
State of Public Administration. ED. Menzel, Donald C. and Harvey L. White. NY: M.E.
Sharpe. 272 – 294.
Semester project due
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INFORMATION
GRADING
Final Grades: A = 100-95 (Excellent) A- = 94-90 B+ = 89-87 (Good) B = 86-84 B- = 83-80
(Poor) C+ = 79-77 C = 76-74 C- = 73-70 D+ = 69-67 D = 66-64 D- = 63-60 F = 59-0 (Failing)
ACADEMIC INTEGRITY
As commonly defined, presenting the words or works of others’ as your own is
plagiarism. Plagiarism is one of the worst academic sins, for the plagiarist destroys the
trust among colleagues without which research cannot be safely communicated.
Plagiarism is also a violation of the UH Academic Honesty Policy. If you are uncertain of
what constitute academic dishonesty, you should contact the professor prior to
submitting the assignment and/or check the UH Academic Honesty Policy from the
university website: www.uh.edu/provost/policies/uhhonesty_policy.html. Students are
expected to adhere to the UH Academic Honesty Policy. Cheating or plagiarism in course
assignments, exams, and the final paper will lead to a grade of F.
AMERICANS WITH DISABILITY ACT (ADA)
The Americans with Disabilities Act (ADA) is a federal anti-discrimination statute that
provides comprehensive civil rights protection for persons with disabilities. Among
other things, this legislation requires that all students with disabilities be guaranteed a
learning environment that provides for reasonable accommodation of their disabilities.
If you believe you need special accommodations and assistance due to a disability,
please contact the Center for Students with DisABILITIES (CSD Building 568, Room 110)
and the Learning Support Services (LSS, 321 Social Work Building), or call 713-743-5411
to make appropriate arrangements.
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