York University

Department of Political Science

POLS 6155.03


Fall 2002

Location:Verney Room, S674, Ross Building

Instructor:Ian Greene

Time:Fridays, 10 a.m. to noon.


The study of democratic administration is premised on a commitment to the progressive extension of people=s capacities to govern themselves collectively. However, many of the principles of public administration were developed prior to the democratization of the state, and one result has been public administration and public policy-making procedures that are unnecessarily hierarchical, inflexible, and inefficient.Citizen political apathy, cynicism and alienation from the state has recently been met with a neo-liberal response that has drastically altered the state public service through downsizing, out-sourcing, privatization, and Anew public management@ approaches that apply business administration tools to public administration.At the same time, there is increased citizen demand for participation in the policy-making process, a higher standard of public service ethics and accountability, and there have been some innovative responses from the state to address important public policy issues.If the challenges created by current dynamics are to be met successfully, it will be necessary to transcend the real factors that produce apathy and alienation from the state. This seminar addresses these issues through:

Can investigation of the bureaucratic impediments to increased democracy

Can examination of the promise and limits of recent attempts by governments to overcome such impediments

Can historical and comparative focus to better understand the possibilities of citizen empowerment and the way in which social and political contexts shape those possibilities.

The seminar will include readings on both the theory and practice of democratic administration.



Gregory Albo, David Langille and Leo Panitch, A Different kind of state? : popular power and democratic administration. Toronto : Oxford University Press, 1993. (JF 1525 D4 D53 1993)

Eleanor Glor, Ed., Policy innovation in the Saskatchewan public sector, 1971?82. North York, Ont. : Captus Press, 1997. ISBN:1895712947 (pbk).(JL 309.5 P64 P65 1997)

In addition, some readings, as indicated below, can be found either on the class web page, or on the internet.Other seminar readings are in a course kit which may be purchased at Copywell=s, which is on the east side of Keele Street, across from York University.A copy of the kit will be filed in the Donald Smiley Library, Political Science Department.


The requirements for this course consist of:

weekly seminar readings and participation (25%)

oral presentation of final paper(20%)

Draft outline for research paper (Oct. 18)(5%)

final research paper(50%)

In the first class, students will have the opportunity to sign up to help lead the discussion for one reading each week.In one of the last two classes, students will have an opportunity to present their final paper so that they may receive comments from the class.(At this point, only a ten minute summary of the final paper is needed.The purpose of the presentation is to obtain feedback that may help to improve the quality of the final product.)

Seminar Outline

Items in Course Kit are shown with an asterisk.

I.Sept. 13

Introductions/Course Outline

$*L. Sossin, ADemocratic Administration@ in Handbook of Public Administration in Canada (Toronto: Oxford, 2002), 77-99.

$*Carole Pateman, ARousseau, John Stuart Mill and G.D.H. Cole: a participatory theory of democracy,@ in Participation and Democratic Theory (Cambridge: Cam. Univ. Press, 1970), 22-44.

$Andrew Stark."What is the new public management?" (Book Review Essay). Journal of Public Administration Research and Theory, Jan 2002 v12 i1 p137 (15).[found through electronic journals, YUL web site, or link on class web page]

II.Sept. 20

Democratic Administration and Innovation

$*J. Frug, AAdministrative Democracy@ 40 University of Toronto L.J. (1990)

$G. Albo et al (eds.), A Different Kind of State? (1993) (Chs. 2, 5, 6 & 17)

$Glor, Section I (3-26) and Section III (101-185).

$Peter Gabor and Ian Greene, AFactors for Success in Participative Community Planning: Lessons from a Case Study in Child Welfare in the Province of Alberta,@ The Innovation Journal, Case Studies, 06/07/02 (http://www.innovation.cc).

III.Sept. 27

Democracy and Regulation

Today's class will be held at the site of an international conference about the reduction of "red tape" in government.We'll meet at the conference rooms of the Hilton Toronto, located at 145 Richmond St. W.There will be no cost for student participation in the Friday morning session.However, if there are any wishing to stay for lunch to hear the address of Ali?B. Haddou?Ruiz of the Federal Regulatory Improvement Commission, Mexico, they will have to pay a fee of $50 to cover the cost.(Students wishing to attend the entire conference can register at:http://www.smarttape.ca/)

Readings to prepare for this class:

$Albo et al., ch. 7.

$*Kenneth Kernaghan and David Siegel, Ch. 10, ARegulatory Agencies,@ Public Administration in Canada (Toronto: Nelson, 1995), 248-285.

$*AGovernance, Development and the Ecology of Administration@ in Rethinking Public Administration: An Overview (New York: United Nations, 1998), pp. 4-18

The conference agenda on Sept. 27 is as follows:

9:00 ? 9:15

"The Conference so Far: Thoughts, Comments, Provocations, Part II": 

Stefan Dupré, Prof. Emeritus, University of Toronto, Conference Co?Chair

9:15 ? 10:00

Keynote Speaker

John Morrall, Director, Office of Information and Regulatory Affairs, Office ofManagement and Budget, The White

House "Rethinking Who Does What: The Approach of the Federal Government of the United States".One "smart tape" approach to improve efficiency and effectiveness is to reduce the number of regulatory bodies. The benefits and challenges are examined. 

10:00 ? 10:30

Networking Break

10:30 ? 12:00 Concurrent Sessions

Session A: The Risk?Management Approach to Regulation

How can the use of risk management techniques improve government regulation?

David Cummins, Wharton School of Business, University of


Lawrie Savage, President, Lawrie Savage and Associates

Session B: Regulating Professions

Innovative approaches are being used to certify standards for a profession and toregulate the number of practitioners within a profession.

Calum Delaney, School of Health and Social Sciences, University of

Wales Institute at Cardiff 

David Thibaudeau, President, Canadian Association of Insurance

and Financial Advisors

Jan Robinson, CEO, College of Physiotherapists of Ontario 

Session C: Innovative Approaches to Regulating the Energy Sector 

The energy sector requires smart new approaches to regulation to address 21st century issues.

Klaas DeGroot, President and CEO, Enwin Powerlines Ltd. and Chair of the Electricity Distributors Association

Marie Rounding, President and CEO, Canadian Gas Association

Tom Adams, Executive Director, Energy Probe 

12:00 ? 13:30

Closing Keynote Speaker

Ali?B. Haddou?Ruiz, Federal Regulatory Improvement Commission, Mexico 

"The Next Step: Building a Community of Practitioners"

The accomplishments of this conference are reviewed and a proposal made to

establish further networking opportunities for smart tape practitioners.

IV.Oct. 4

The Democratic Deficit in Public Policy and Administration

$*M. Weber,ABureaucracy@ in H. Gerth and C. Mills, From Max Weber, ch.8.

$*K. Marx, ACritique of Hegel=s Doctrine of the State@ in Early Writings, pp.100-16 (<the executive=), in Fischer and Siriani, Critical Studies in Organization and Bureaucracy.

$*L. Sossin, ALaw and Intimacy in the Bureaucrat-Citizen Relationship.@ (Ottawa: Law Commission of Canada, 2000)

$*K. Ferguson, ASocial Structure and Bureaucratic Discourse,@ Ch. 2 in The Feminist Case Against Bureaucracy.

$*Caroline Andrew, AWomen and the Public Sector,@Handbook of Public Administration in Canada (Toronto: Oxford, 2002), 159-168.

$Albo et al., Ch. 3, 4 & 15.

$Excerpts from Ian Greene and David Shugarman, Honest Politics:Seeking Integrity in Canadian Public Life.Toronto:Lorimer, 1997, Ch. 1 & 2. [retrieve from class web page]

V.Oct. 11

The Politics of Discretion

$*L. Sossin, AThe Criminalization and Administration of the Homeless: Notes on the Possibilities and Limits of Bureaucratic Engagement@ 22 N.Y.U. Review of Law & Social Change (1996), 623-700.

$*C. Goodsell, The Case for Bureaucracy (1994), ch.5

$*APublic Administration and Ethics,@ in Gregory Inwood, Understanding Canadian Public Administration (Toronto: Prentice-Hall, 1999), Ch. 11.

$*Joel Bakan, AThe Significance of the APEC Affair,@ and Philip Stenning, ASomeone to Watch over Me: Government Supervision of the RCMP,@ in W. Wesley Pue, Ed., Pepper in Our Eyes: The APEC Affair (Vancouver: UBC Press, 2000), 77-116

$*AJudicial Discretion and Democracy,@ Excerpts from Ch. 1 of Ian Greene, Carl Baar, Peter McCormick, George Szablowski and Martin Thomas, Final Appeal (Toronto, Lorimer, 1998).

$L. Sossin,AThe Politics of Discretion: Towards a Critical Theory of Public Administration@ 36 Canadian Public Administration 364 (1993) [link on class web page]

VI.Oct. 18(outline due)

Democratic Administration, Public Administration and Democracy

Guest Speaker: Richard Phidd

$*Richard W. Phidd, ADemocratic Administration: Public Administration and Democracy,@ lecture notes prepared for Democratic Administration class.

$*H.T. Wilson, AThe Civil Service in Capatilist Democracies,@ and ABureaucratic Representation through Implementation Processes,@ Chapters II and VIII of Bureaucratic Representation: Civil Servants and the Future of Capitalist Democracies (Brill: Boston, 2001). 

$*Greg McElligott, AFront-Line Workers and Public Policy,@ and AState Workers and Democratic Administration,@ Chapters 7 & 8 in Beyond Service:State Workers, Public Policy, and the Prospects for Democratic Administration (Toronto: U of T Press, 2001).

$*ACanadian Administrative Culture Between Past and Present,@ Ch. 6 in O.P. Dwivedi and James Iain Gow, From Bureaucracy to Public Management: The Administrative Culture of the Government of Canada (Broadview, 1999).

VII.Oct. 25

Reinventing Government: The Marketization of the State?

$*D. Osborne & T. Gaebler, Reinventing Government (1992), preface and introduction. 

$*D. Savoie, Thatcher, Reagan, Mulroney: In Search of a New Bureaucracy, (1994) chs. 4-8.

$*J.C. McDavid and E.G. Clemens, AContracting out local government services:the B.C. experience,@ 38 Canadian Public Administration, 177-194.

$*D. Whorley, AThe Andersen-Comsoc affair: Partnerships and the public interest,@ 44 Canadian Public Administration, 320-345.

$*H. Arthurs, AMechanical Arts and Merchandise:Canadian Public Administration in the New Economy@ 42 McGill Law Journal (1997).

$Glor, Sections II and IV.

$Albo, Ch. 16.

$Ian Greene, "Lessons Learned from Two Decades of Program Evaluation in Canada," Deitmar Braunig and Peter Eichorn (Eds.), Evaluation and Accounting Standards in Public Management (Baden-Baden:Nomos Verlagsgesellschaft, 2002), 44-53. [link on class web page]

VIII.Nov. 1

Public Employees, Social Movements and Public Participation

Guest seminar leader:Leo Panitch

$* L. Panitch, AGlobalization and the State@ The Socialist Register, 1994, and Ch. 1 in the Albo text.

$*Eleanor Glor, AIdeas for enhancing employee empowerment in the Government of Canada, 30 Optimum (2001), 14-26.

$*S.R. Osmani, Participatory Governance, People=s Empowerment and Poverty Reduction (Geneva: United Nations Development Program (UNDP), 2000).

$*M. Flumain, ARedesigning Government around the Citizen: The Creation of Nunavut@ in S. Delacourt & D. Lenihan (eds.), Collaborative Government: Is There is a Canadian Way? (Toronto: Institute of Public Administration in Canada (IPAC), New Directions, No. 6, 1999)

$Albo, Ch 9-13, 18-20.

IX.Nov. 8

International Development and Democratic Administration

Today, the class will be held in the Senior Common Room, 140 McLaughlin College

$*J. Barker, APolitical Settings: An Approach to the Study of Popular Action@ (pp.27-56) and ALocal Action and Global Power: Shifting the Balance@ (pp.238-250) in J. Barker (ed.), Street-Level Democracy (Toronto: Between the Lines, 1999) 

$*J. Shields & B. Evans, Shrinking the State: Globalization and Public Administration AReform@ (1998) (Intro. & Ch.1)

$*B. Guy Peters, AGlobalization, Institutions and Governance,@ G. Guy Peters and Donald J. Savoie, Governance in the Twenty-first Century:Revitalizing the Public Service (Ottawa:Canadian Centre for Management Development:2000), 29-57.

$Chapter 6: Making State ?Institutions More Responsive to Poor People,@ World Development Report 2000/2001: Attacking Poverty, Ch. 6 (World Bank, 2001) (http://www.worldbank.org/poverty/wdrpoverty/report/ch6.pdf)

$Lorne Sossin, AHuman Development, Law & Democratic Administration@ (Rome: United Nations Office for Project Services (UNOPS), 2000 [link on class web page]

X.Nov. 15

Future Trends

$*M. Ogden,ATechnologies of Abstraction: Cyberdemocracy and the Changing Communications Landscape@ in L. Pal & C. Alexander (eds.), Digital Democracy: Policy & Politics in a Wired World (Toronto: Oxford, 1998), pp.63-86

$*John Langford, "Partnering for e-government:Challenges for public administrators," 44 Canadian Public Administration, 393-416. 

$*B. Barber: Strong Democracy: Participatory Politics for a New Age (Berkeley: University of California Press, 1984), ch. 7

$* David Held, ACosmopolitan Democracy and the New International Order,@ in David Held, Democracy and the Global Order (Sanford: Sanford Univ. Press, 1995) Ch. 12.

$*B. Guy Peters, AThe Future of Reform,@ in G. Guy Peters and Donald J. Savoie, Governance in the Twenty-first Century:Revitalizing the Public Service (Ottawa:Canadian Centre for Management Development:2000), 425-436. 

$*C. Fox & H. Miller, Ch. 6 in Postmodern Public Administration: Toward Discourse (Thousand Oaks, CA: Sage, 1995)

$Glor, Conclusion and Afterword.

$Albo, Ch. 8 & 14. 

XI.Nov. 22

Student Presentations (Papers)

XII.Nov. 29

Student Presentations (Papers)

Useful electronic sources of information:

http://faculty.maxwell.syr.edu/asroberts/foi/track/(Canadian access to information database)

http://www.canadiansocialresearch.net/ (Canadian social science resources)

http://www.tecsoc.org/govpol/govpol.htm (site on egovernment)

http://www.elections.ca/ (another site on egovernment)

http://www.elections.ca/ (Elections Canada; voting results of federal elections and by-elections; election income and expenses declarations)

http://www.ipaciapc.ca/ (Institute of Public Administration of Canada)

Other useful sources:

Evert Lindquist and Tammy Sica, Canadian Governments and the Search for Alternative Service Delivery and Financing: A Preliminary Survey (Institute of Public Administration of Canada and KPMG Centre for Government Foundation: 1996).JL 108 L55 1996.