New York State Assembly Graduate Scholars
Seminar Outline: Winter/Spring 2016
State and Local Governance
Instructor Contact
Instructor
Janet Penksa, PhD
Phone
(518) 455-4074
E-mail
February23@outlook.com
Office Hours On Request
Seminar Information
Thursdays 12:00 pm – 1:30 pm
(Per schedule below. Upon occasion
Regular
seminars will be moved to alternative
Date/Time
dates and times based on the
legislative calendar.
Room
LOB104a
Semester
Winter/Spring 2016
Seminar Description
The seminar is designed to provide an introduction to the state legislature and the issues it
faces. Special attention will be paid to the governance process and how it relates to local
governments and the state’s budget and budget process, key to policy formation and
implementation. The seminar will also introduce the graduate scholars to the work and work
products expected of legislative staff in New York.
Scholars are expected to do the weekly readings and attend a series of 16 seminars. In
addition, scholars will be expected to attend a “Speaker’s Series” sponsored by the Intern
Office where senior state officials and policy makers will address all scholars and interns on
current events and selected topics.
A mandatory one week orientation covering legislative processes and procedures will be held
during the first week of the scholarship period. Scholars are expected to attend policy
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meetings (“Speaker’s Series) held by the Intern Office on certain Wednesday evenings.
Scholars will also be expected to write professional work products. These will be related to
the work of the office. Scholars will be asked to present their work to their colleagues. Over
the course of the legislative session, each scholar will also be asked to select a budget/policy
issue and lead ongoing class discussions as these issues are deliberated.
Senior legislative officials and Albany “insiders” will be frequently invited to class as guest
speakers. Many of these will be former graduate scholars who launched their careers from
this position.
Please note we will be flexible with the readings and seminar topics. There may be occasions
where current events or the availability of speakers would make it worthwhile to change the
schedule so that the seminars and readings coincide with events at hand.
Learning Objectives
Upon completion of the course, each student is expected to:

Understand how politics and legislative processes influence policy; how issues go from
conception to enactment of a law; how and why the budget is known as one of New
York’s most important policy statement; how governance differs from government and
how both interact during the legislative process and in policy formation; and state
financial and programmatic policy and implementation.

Demonstrate an understanding of the major work products expected of a professional
legislative staffer and the ability to prepare these work products.
Books and Readings:
The seminar series is intended to provide each scholar with the practical skills to succeed in
government. Weekly assignments will include current government publications and web
resources in addition to those on the reading list below. Many will be assigned as they
become available. Please note, it is not necessary to purchase Benjamin (2012), Gray
(2012), nor Rubin (2014); copies of select chapters will be provided by the Intern Office.
Required:
Pecorella, Robert F., Stonecash, Jeffrey M., editors (2012) Governing New York State, Sixth
Edition. SUNY Press.
Schneier, E. V., Murtaugh, J. B., & Pole, A. (2009) New York Politics: A Tale of Two States.
ME Sharpe.
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Smith, Catherine F. (2013) Writing Public Policy: A Practical Guide to Communicating in the
Policy Making Process, 3rd edition, Oxford University
Required Select Readings (to be provided by the Intern Office) from:
Benjamin, G. (2012). The Oxford Handbook of New York State Government and Politics.
Oxford University Press.
Gray, V., Hanson, R. L., & Kousser, T. (Eds.). (2012). Politics in the American States: A
Comparative Analysis. Sage.
Rubin, Irene S., (2014). The Politics of Public Budgeting, (7th ed.). CQ Press, Washington,
D.C.
Supplemental Resources:
Rosenthal, Alan. (2004) Heavy Lifting: The Job of the American Legislature. CQ Press.
Rubin, Irene S., (2014). The politics of public budgeting, (7th ed.). CQ Press, Washington,
D.C.
Smith, K. B., & Greenblatt, A. (2013). Governing States and Localities. CQ Press.
Ward, Robert B. (2006) New York State Government, 2nd Edition. Rockefeller Institute
Press.
Academic Honesty
Students are required to adhere to the academic creed of their university and will maintain the
highest standards of academic integrity.
Accommodations for Students with Disabilities
The Assembly is committed to full inclusion for all persons to its educational program and
services. Please inform the Intern Office of any special accommodations that may be
required.
Other Course Policies
Attendance: On-time attendance at all workshops, seminars, and speaker series scheduled
by the Intern Office or the Instructor is a mandatory component of each scholar’s employment
with the Assembly, unless excused by the Intern Office or the Instructor. If a scholar is
unexpectedly confronted with scheduling or any other kind of issue, an excuse from class
must be obtained by calling or emailing the Intern Office or the Instructor stating the reason
for the absence. Ill health or office scheduling issues are legitimate excuses from seminar
attendance.
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Late Assignments: Late assignments are not accepted without prior approval and with cause,
such as medical emergencies. A penalty will be assessed on all late assignments.
Class Etiquette: Arrive at class on time and turn off cell phones during class. Use of cell
phones, leaving class early, arriving late, talking during the seminar, text messaging,
emailing, and other non-class related use of electronic devices will affect the
evaluation of each scholar’s performance.
Reading Assignments: Assigned readings should be completed prior to class. Students are
also expected to read newspapers to keep abreast of current issues. Daily Media
recommended are the Albany Times Union and the state sections of other publications, for
example, the New York Times, the New York Post, the New York Daily News, and regional
newspapers, such as The Buffalo News. In addition, viewing Inside Albany at 8pm
weeknights on TWC is highly recommended and acquiring a free on-line subscription to
Governing magazine.
Written Assignments: It will be imperative that all written communications, whether as
part of on-line discussion forums or formal written assignments, be grammatically
correct and typo-free. Non-adherence to this policy will affect a student’s evaluation.
Assignments should be presented in MS-Word format, single-spaced, Times New Roman (12
point) font. Length and explicit directions for assignments will be discussed in class.
Evaluation and Grading
Assignments and grading are as follows. .
1. Class participation and issues presentation
2. Professional work (memos, etc.)
3. Research paper
25%
25%
50%
This will be a 10-page paper focusing on an analysis of a specific policy issue and
accompanying legislation.
Copyright
This course may contain copyright protected materials such as audio or video clips, images,
text materials, etc. These items are being used with regard to the Fair Use doctrine in order to
enhance the learning environment. Please do not copy, duplicate, download or distribute
these items. The use of these materials is strictly reserved for this online classroom
environment and your use only. All copyright materials are credited to the copyright holder.
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Seminar Schedule: Dates and topics may change in accordance with
changes to legislative schedule or availability of speakers
Dates
Topic
Required Readings*
(Expect additional readings to be assigned)
1/6
Introduction to the course/
Introduction to NYS
legislative and budget
processes.
Benjamin (2012), pp. 225-261, “The New York State
Legislature” and pp. 262-286, The Governor of New
York”
The Division of the Budget’s “Guide to the NYS Budget
Process” available at:
http://www.budget.ny.gov/citizen/process/process.html
The Governor’s 2016 Joint
State of the State and
Budget Presentation
The Governor’s Address
Pecorella, et al., Chapter 9, “The Policy Debate: The
Economy, Taxes and Public Program,”
1/14
Stonecash, "The Proposal and Disposal of Legislation
in the New York Legislature”
1/21
1/28
*New York State and Local
Government: Politics &
Conflict
*The NYS Budget: How to
understand the financial
plan and read budget bills
*2015 Budget Review
Schneier, et al., “Introduction,” “Chapter 1, The States
of New York”
Pecorella, et al., Chapter 9, “The Policy Debate: The
Economy, Taxes and Public Program,
Schneier, Chapter 8, “Taxing, Spending, and Public
Policy Priorities”
Obtain and review “Governor’s Budget Message,”
Assembly “Yellow Book” & Senate “White Book.”
All available on-line at:
www.budget.ny.gov
www.assembly.state.ny.us
www.senate.state.ny.us
2/4
Budget Review: Top issues
for 2015
Speaker from Ways and Means
Prior to this, scholars are expected to attend 2 budget
hearings, including the Local Assistance Hearing.
Select 1 agency hearing based on issue area to be
presented during later weeks as noted below).
Legislature’s Spring Break
Class: TBD
Scholar presentations. Over the course of the break
each scholar will be asked to continue his/her study on
policy/budget issue for continued discussion in
subsequent classes.
2/11
2/18
Pecorella, et al., Chapter 1, “Regional Political Conflict
in New York State,” Chapter 2, “Political Conflict and
“Intergovernmental Fiscal Relations”
Benjamin, pp. 599-634, “Health Care Politics and
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Policy in New York State”; pp. 635-661, “Public Safety
Policy in New York State”; pp. 735-766 “Economic
Development in New York State”;
Pecorella, Chapter 10, “State Education Aid in New
York in the Wake of Campaign for Fiscal Equity
Decision,” Chapter 11, “Health Policy in the Empire
State: Trying to Put The Brakes on Escalating Costs
While Maintaining Access” and Chapter 12, “Welfare
Policy in New York State”
*Governance & Legislating
*Advocacy, Lobbying and
Interest Groups: The
Powerful Role of NonGovernmental Actors and
Interest Groups
*Ethics
2/25
Pecorella, and Chapter 4, “Interest Groups and
Lobbying”
Schneier, Chapter 6, “Struggles for Power, Position,
and Access” and Chapter 7, “Making Public Policy”
Review NY Code - Article 1-A: LOBBYING ACT
http://codes.lp.findlaw.com/nycode/LEG/1-A
---AND
JOCOBE Guidelines to the NYS Lobbying Act
http://www.jcope.ny.gov/about/lob/Lobbying%20Guideli
nes%204_24_12revised2.pdf
Attendance at Budget Hearings Continued
The Federal-State-Local
Financial Relationship
Schneier, “Chapter 2, “New York in the Federal
System”
Research Brief, Office of the New York State
Comptroller (2013) Fiscal Stress Drivers and Local
Government Coping Strategies.
http://www.osc.state.ny.us/localgov/pubs/research/fisca
lstressdrivers.pdf
3/3
The Negotiation Process
3/10
Pecorella, et al. Overview: State Government
Institutions. Chapter 5, New York’s Governorship
“Restored” and Chapter 6, “The Legislature, Parties
and Resolving Conflict”
Obtain and review legislative budget resolutions
3/17
3/24
3/31
4/7
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Public Policy Issues & the
Budget
Scholar policy/budget issue presentations
No seminar. Budget closedown
Readings: Keith E. Hamm and Gary F. Moncrief,
Legislative Politics in the States, and Margaret
Ferguson, Governors and the Executive Branch, in
Gray, et al. Politics in the American States.
No seminar. Budget closedown & beginning of new
state fiscal year
*The Constitution & Courts
*Power & Leadership
Schneier, Chapter 4, “Power, Pluralism, Public
Opinion, and the Permanent Government” and
Chapter 5, “The Living Constitution”
Benjamin, pp. 357-383. “The Judiciary and Judicial
Reform”
Pecorella, Chapter 5, “New York’s Governorship
“Restored”” Chapter 6 “Struggles for Power, Position,
and Access” and Chapter 7, “New York’s Courts”
George E. Pataki v. New York State Assembly, et al.
and Sheldon Silver v. George E Pataki (2004).
Available at:
http://www.law.cornell.edu/nyctap/I04_0160.htm
4/14
Executive Implementation,
Agencies & Bureaucracy
Guest Speaker from Executive Agency
Readings to be provided in advance
4/21
Budget & Policy Oversight
NYS Comptroller Review of the Executive Budget (to
be posted)
*Municipal Home Rule &
Local Governance
Frug, G. E. (1979) City as a Legal Concept, The. Harv.
L. Rev., 93, 1057.
Available at:
http://duncankennedy.net/documents/Legal%20His
tory%20Other%20Articles/The%20City%20as%20
a%20Legal%20Concept.pdf
4/28
*Political Parties and The
Media
Benjamin, pp. 190-222, “Politics and the New Media in
the Empire State”
Pecorella, Chapter 3, Political Parties and Elections
5/12
Schneier, Chapter 3, “Political Parties and Elections”
5/19
5/26
6/9
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“What is a good
legislature?”
Professional
Development/Speakers
Professional
Development/Speakers
Keith E. Hamm and Gary F. Moncrief, “Legislative
Politics in the States,” and Margaret
Schneier, Chapter 9, New Directions for New York”