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B X>$` ` *X, XX*       4    AerialSprayingOnlyWay...,stateofficialsays,SanFrancisco  Chronicle,March5,1981,8. X>$` ` *X, XX*       5    JerryScribner. 0 X>$` ` *X, XX*       6    StateProduce...BaninDixie[?]SanFranciscoChronicle,March5,  1981,8. D X>$` ` *X, XX*       7    JohnH.CulverandJohnC.Syer,PowerandPoliticsinCalifornia(N.Y.:  MacMillanPublishing,1988),68.>b$Large Circle0 (($      {!@@` ` *X, XX*   @ 8.XXdXXd8      1  Becausethecasethatfollowsisanalyzedindetailinthepracticesession,the  introductionissomewhatabbreviated.TheanalysismaybefoundinPractice:  AnatomyofCase1,supra.P Pd X>$` ` *X, XX*       8    MerlinFagan,personalinterview,March26,1996. X>$` ` *X, XX*       9    Ibid. = X>$` ` *X, XX*       10    DavidPerlman, WheretheDebateStarts...,SanFranciscoChronicle,  April22,1981,4. 4 X>$` ` *X, XX*       11    CarolPogash, ResidentsAdjust...,SanFranciscoChronicle,July11,  1981,5. X>$` ` *X, XX*       12    Ibid. X>$` ` *X, XX*       13    PatMinyard,personalinterview,March25,1996. X>$` ` *X, XX*       14    Ibid. J X>$` ` *X, XX*       15    LarryLiebertandSteveWiegand, BrownPutsBlameonReagan,San  FranciscoChronicle,July11,1981,1. X>$` ` *X, XX*       16    GregVanWassenhove,personalinterview,April16,1996. I X>$` ` *X, XX*       17    CarolPogash, SellingMalathionasasafepoison,SanFrancisco  Chronicle,March22,1981,B1. X>$` ` *X, XX*       18    Ibid. X>$` ` *X, XX*       19    Ibid.(w$     (2$ {!` ` [*X, XX*    8 Xdd8   S&RK<< c  d<J+':1.12 Unit&01  _X̡XXXd_X̡XX X̡_X̡XX X̡  _X̡XXXd(3?$ {!` ` [*X, XX*    8 Xdd8     0  . dbe:+W:1.5 ParaTitl1.5 Paragraph Title  XeXXXeXPXXXe        XeXXXP  XeXXXe ddWWWW'dxdVC+:1.6 Body Tex1.6 Body TextXeXXXe          XeXXXe  m SAZ0Arial Narrow Regularyv# Z&Times New RomanD yAZ.Arial Black Regularc:\Corel\Office7\Template\6x9 book.wpt X>$` ` *X, XX*       20    Ibid.EEEE'dxd '` ` *X, XX*     @jjCaliforniaPublicManagementCasebookef*OLE*WPC@@>>>>!>>x ;       - "-$ k k "--- "-% k k ----$    ----$ ----$   ----$     --%Serifa BT-"Systemn--  -%Serifa BT- . 2 R'Case4*# -7Serifa BT----7Serifa BT- . 2 _54-WPWin 6.0/OLE 1.0 Prefix Information MarkerCorelDraw.Graphic.78ࡱ>  Root Entry@ok@`=?8Ole CompObjvBOlePart  !" @ok@`=?CorelDRAW 7.0 GraphicCorelDraw.Graphic.7CorelDraw.Graphic.79qOOOO''v ;       - "-$ k k "-CorelDRAWR OlePres000DRAWBITMAPS 88STREAMSLISTRIFFJ CDR7vrsnLIST"doc mcfg * @ @?88 1guidJ]q.( orelDRAJ]q.( .00J]-Kq-K.-K( J]DzqDz.Dz( orelDRAJ]3q3.3( LIST|fnttfont#D@ AvantGarde Bk BTfontWSerifa BTfont @CommonBulletsLISTfiltLIST0filcfild$d @<LISTdfilcfildX$@<2ddLISTtfilcfildhP!$@<?W2f2fdLIST0filcfild$|!$f@<LISTfilcfild!$LIST0filcfild$<$ @<LIST0filcfild$ d@<LISTTotltoutld??d@<outlN$W)d??d@<outl("$d??d@<outl"$??f@<LISTAstlt)p#$4$$!$#<$P$$("$\%$x%$D88J@@@EWWW $WWWف&$$@B@B@B' -($c9 V? c5  ncd< .0H`x p`Q A88J@@@!,$J@;06$6$!("$x,$J@;06$6$!$("$,$J@;0d6$t6$6P!$("$0-$J@;0D6$T6$?|!$"$-$.$-$ .$-$ /$-$$$$0$2$81$Bullet1,$.$ 3$81$Bullet2,$.$3$81$Bullet3,$/$3$81$Special Bullet1x,$.$`4$81$Special Bullet2,$.$4$81$Special Bullet30-$.$81$Default Paragraph Textp#$P$$x%$&$$($<-$$0$@5$Default Artistic Textp#$P$$x%$&$$($5$Default Graphic4$$\%$$@5$#ELG@5$ $L@5$p#$P$$ $&$$($$@5$#P$$E&$$($5$4$$\%$HK@5$p#$P$$ $&$$($p@5$#P$$E&$$($5$4$$\%$İ$@5$p#$P$$ $&$$($|@5$#P$$E&$$($h5$4$$\%$@5$p#$P$$ $&$$($T@5$#P$$E&$$($4 5$4$$\%$@5$p#$P$$ $&$$($ !@5$#P$$E&$$($.5$4$$\%$@5$p#$P$$ $&$$($l/@5$#P$$E&$$($L=5$4$$\%$\!@5$p#$P$$ $&$$($8>@5$#P$$E&$$($L5$4$$\%$/@5$p#$P$$ $&$$($M@5$#P$$E&$$($dZ5$4$$\%$t>@5$p#$P$$ $&$$($P[@5$#P$$E&$$($h5$4$$\%$@M@5$p#$P$$ $&$$($i@5$#P$$E&$$($|w5$4$$\%$LISTuil LISTpageflgsLISTgobjLIST^layrflgsLISTFlgobloda99 (49U8 ddGridLIST`layrflgs LISTHlgobloda;; (4;U8 ddGuidesLIST`layrflgsLISTHlgobloda<< (4<dDesktopLIST`layrflgsLISTHlgobloda<< (4<%dLayer 1LISTpageflgs@LISTgobjLISTPlayrflgsLIST8lgobloda,, ,U8 ddLISTPlayrflgs LIST8lgobloda,, ,U8 ddLISTPlayrflgsLIST8lgobloda,, ,dLISTlayrflgs@LIST8lgobloda,, ,%dLISTgrp flgsusdnFLIST$lgoblodaLISTobj spndflgsusdn*LISTlgoblodapp4PTX\`hlp d..\!,FN("$LIST\trfltrfdPPP$?FQ<$("$LIST\trfltrfdPPP?B?(Q txsmp?B?(Q 8>CaseLISTobj flgsusdn,LISTlgoblodahh0HLPTXdh d..L\S3QN$LIST\trfltrfdPPP$ ?4o?eZnLISTobj flgsusdn-LISTlgoblodahh0HLPTXdhd..LTT_ LIST\trfltrfdPPP$?ܬ?summ(-- "-% k k ----$    ----$ ----$   ----$     --%Serifa BT-"Systemn--  -%Serifa BT- . 2 R'Case4*# -7Serifa BT----7Serifa BT- . 2 _54-STREAMSLISTDRAWPATTERNS 88STREAMSLISTSummaryInformation(Oh+'Oh+'0$ D P \ h tInst of Govt Studies CORELDRWInst of Govt Studies7@@@@LB٦@ UʦCDR7 METAFILEPICT'~'' ;       - "-$ k k "--- "-% k k ----$    ----$ ----$   ----$     --%Serifa BT-"Systemn--  -%Serifa BT- . 2 R'Case4*# -7Serifa BT----7Serifa BT- . 2 _54- ($` ` *X, XX*       2    ݛMaryPrice,personalinterview,March13,1996. X>$` ` *X, XX*       21    Ibid.& e37=CIQYag1.a.i.(1)(a)(i)1)a) X>$` ` *X, XX*       22    DavidPerlman,n31. X>$` ` *X, XX*       23    Ibid. X>$` ` *X, XX*       24    Ibid.<77Dp4:QuickFormat4XXX  XXX   K X>$` ` *X, XX*       25    RickCarol, StateisLosingtheWarAgainstTinyFruitfly,SanFrancisco  Chronicle,February9,1981,2.  ($` ` *X, XX*       3    ݛ HelmetUseLaws,InsuranceInstituteforHighwaySafety,August1995. X>$` ` *X, XX*       26    Ibid. J X>$` ` *X, XX*       27    EdSalzman, EscapeArtistBrownv.TheLockofPoliticalDeath,  CaliforniaJournal(December1983):19. F X>$` ` *X, XX*       28    SteveWiegand, SenateDefiesBrown,OrdersAttackbyAir,San  FranciscoChronicle,July9,1981,1.XY:81.8 EndNumb1.8 Endnote Refs4XXs44s        s44Iss4XX<==D:QuickFormat3-<XX<X   -<XX<X   <QQD7:QuickFormat6XXXIXfXXXX XXXIXfXXXX  Z X>$` ` *X, XX*       29    LarryHatfield, MediterraneanFruitfly:SagaofaMousethatRoared,  SanFranciscoChronicle,July12,1981,5. @ X>$` ` *X, XX*       30    RickCarol, DDayApproachesintheWaronFruitfly,SanFrancisco  Chronicle,April22,1981. > X>$` ` *X, XX*       31    Medfly:BrownsToughestDecision,editorial,SanFranciscoChronicle,  July8,1981,14. X>$` ` *X, XX*       32    AnnieWaterman,telephoneinterview,April9,1996.  X>$` ` *X, XX*       33    RachelCarson,SilentSpring(Boston:HoughtonMifflin,1962). X>$` ` *X, XX*       34    Medfly,n52. X>$` ` *X, XX*       35    Medfly. X>$` ` *X, XX*       36    Ibid. M X>$` ` *X, XX*       37    SteveWiegand, GovernorBrownRulesOutMedflyAerialSpraying,San  FranciscoChronicle,July9,1981,1. X>$` ` *X, XX*       38    Ibid. X>$` ` *X, XX*       39    LarryHatfield. E X>$` ` *X, XX*       40    EricBrazil, ThePoliticalStakesintheMedflyInfestation,California  Journal(April1981):137. X>$` ` *X, XX*       41    Ibid. X>$` ` *X, XX*       42    Ibid. X>$` ` *X, XX*       43    EdSalzman. X>$` ` *X, XX*       44    LarryLiebertandSteveWiegand. X>$` ` *X, XX*       45    Ibid. X>$` ` *X, XX*       46    MerlinFagan,personalinterview,March28,1996. X>$` ` *X, XX*       47    PatMinyard,personalinterview,March25,1996. w ($` ` *X, XX*       4    ݛAmericanBrotherhoodAimedTowardEducation(ABATE),whitepaper  claimingstudiesinsupportuse questionablemethodology[and]torturedlogic,undated.ZJ> :3.1 NoteTitlTitle for notesX0XXXeX0XX X0  ]X(XX X0]*(XPX    ($` ` *X, XX*       5    ݛItisessentialtograspthatthiscasedoesnotpresumetoresolvethemeritsof  themotorcyclehelmetissue(thoughthatmightbeaperfectlygoodsubjectforyetanotherresearchpaper).Thecaseisdesigned,instead,tohelpunderstandhowthemeasuremandatingtheirusepassed,andtolearnfromit.Accordingly,oneneednotdwellcriticallyontheaccuracyorreliabilityoftheresearchthatisalludedtoingeneralterms.Sufficeittosaytheconclusionswerecitedinthedebatesandchallengedbothdirectlyandintheirinterpretation. 9 ($` ` *X, XX*       6    ݛDeborahBelgum, FloydSeekingaPoliticalComeback,LosAngelesTimes,  March15,1996.  ($` ` *X, XX*       7    ݛDanWalters, IsGovernmentaBigNanny?SacramentoBee,June9,1991. ($` ` *X, XX*       8    ݛIbid. ($` ` *X, XX*       9    ݛDickFloyd,pressrelease,November28,1990. ($` ` *X, XX*       10    ݛIbid. 3 ($` ` *X, XX*       11    ݛBillStall, EasyRidersTurnSavvyLobbyists,LosAngelesTimes,March  7,1996.< S"+:1.14 Intro01  @@*+Xe XX,Xe+Xe X XXe +Xe X XXe   +Xe XX,Xe<JJ J:1.15 Intro02  XeXXXeXXe  XeXXXeXXe ($` ` *X, XX*       12    ݛSenateFloorAnalysis,April24,1991.<S":1.14 Intro04@*+X9 XXXd+X9 X X X9 +X9 X X X9 +X9 XXXd D ($` ` *X, XX*       13    ݛHerbertA.Sample, AssemblyAgainOKsMotorcycleHelmetBill,  SacramentoBee,April2,1991. < ($` ` *X, XX*       14    ݛBernardBauer, HelmetBillRodeBadDatatoWin,SanJoseMercury  News,May17,1991. ($` ` *X, XX*       15    ݛIbid. ($` ` *X, XX*       16    ݛIbid. ($` ` *X, XX*       17    ݛIbid. ($` ` *X, XX*       18    ݛIbid. ($` ` *X, XX*       19    ݛDickFloyd,pressrelease,May17,1991. ($` ` *X, XX*       20    ݛBernardBauer. ($` ` *X, XX*       21    ݛBillStall. ($` ` *X, XX*       22    ݛIbid.<JJ  G:1.15 Intro05  #6XIe##^##^XeX#, dd   JJJ883.3 EndnTxtEndnotes  ]X(XXXe]*(XPX  ]X(XXXe]*(XPX ($` ` *X, XX*       23    ݛIbid. h {!@@` ` *X, XX*   @ 8.XXdXXd8   X>@@` ` ` ` 6X, XX, X6   @ 8Xdd8     48    RefertoAnatomyofaCase5,supra,fordetaileddiscussion.()mailto:ksgcase@listbot.com. Level 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5Level 1Level 2Level 3Level 4Level 5(O$(http://www.igs.berkeley.edu:8880/publications/ U'` ` [*X, XX*     _@uuCaliforniaPublicManagementCasebook(hH  Z6Times New Roman Regular`e7.@&81.5 ParTitl1.5 Paragraph TitleX.XXXXg XXX.          X.X XXgX.XXX   {!` ` [*X, XX*    8 Xdd8   _  _ [[ 9 [LookingforHelpinTeachingwWithCcases?#9 91##[9P#&S%[  Thismaterialisprovidedtosupportclassroomuseofthenew_IGS_ԀPress @ 8 casebook#[%&S#&S%[ԀMakingGovernmentWork:CaliforniaCasesinPolitics,Policy,   andPublicManagement(4 O  5  http://www.igs.berkeley.edu:8880/publications/6O  7 #[%&S#&S%[).   Thismaterial,publishedinthefirstCaliforniaPublicManagement   Casebook#[%&Su#&S%[,isintendedtohelpthosewhoarenewtoteachingwithcases.   Usingtwocasesfromthefirstcollectionofcasesstudies,itguidestheinstructorthroughthetechniquesofteachingwithcases.ForthosewhowouldlikeacopyoftheCaliforniaPublicManagementCasebook,it (   remainsinprintandcanbepurchasedfrom_IGS_ԀPress.TheKennedySchoolofGovernmentalsoconductsanonlinecasediscussiongroupthatyoumightfindusefulat4 vO  5  ksgcase@listbot.com.6\Op  7 Ԁ#[%&S3#   _________"9[   99Introduction:TheoryandRationale#9 9! ##[9#Ԁ&S%[       ________  TEACHINGPOLITICS    @   TheCaliforniaPublicManagementCasebookisdesignedtohelp rj _peoplethink_Ԁandactpolitically.Butarentsound,wellconceivedpolicysolutionsmoreimportantthanpoliticalaction? RecognizingtheweaknessinherentintheArticlesofConfederation,theFramersoftheAmericanConstitutionweredeterminedtoseethatgovernmenthadenoughpowertoaccomplishitsvarioustasks.Butinordertoassemblethevotesneededforpassage,theyhadtomakesomeϐconcessionstothosefearfulofconcentratinggovernmentalpower.Thesolutionwastocreateinstitutionsthatwouldensure,inanenvironmentcharacterizedbybasichumandistrust,thatthosewhoholdgovernmentalpowerneverholdtoomuch. Soitiswithanyonewho,havingsecuredinstitutionalauthority,seekstoshapepublicpolicy.Beforetheycantakedefinitiveaction,theymustsecuretheapprovalofasufficientnumberofrival_powerholders_.Andϐsecuringthenecessarysupportforacourseofaction,giventhediverse_intereststhatmaneuverendlesslyforadvantageinCalifornia,is_Ԁseldomeasy. ' &   Themostdifficulthurdleforpolicymakersliesnotinmarshalingtherequisiteresearch,analysis,andrhetoricalskilltodemonstratethatapolicyproposalis sound,howeverdesirableandevenoccasionallypersuasivethatmaybein_amanagement_,scientific,orothercontextthoughttoberationallybased.Therealtestliesinsomehowmatchingstingilygivenpowerswithgenerouslyimposed,andoftenconflicting,responsibilities.Oursystemofpervasivelydividedgovernmentrequiresthosewhowouldaffectpublicpolicytomasterauniquesetofpoliticalskills.Whethertheycansuccessfullymoldtherequired_consensus_Ԁdependsonanumberofcomplexinterrelatedfactors.  LEADERSHIPCHALLENGES  H   Whiletheneedforoutstandingleadersisnotuniquetoourpoliticalsystem,theclusterofskillsaleadermustpossessmostdefinitelyis.Weexpectourleaderstosatisfytheirconstituentswithoutexceedingtheboundsofreasonableconduct,tostandfirmlybehindtheirprincipleswhileremainingopenmindedandwillingtocompromise,tobeattentivetothespecialconcernsofadiverseconstituencyyetcapableofunifiedactiononbehalfofthewholeforwhosewelfaretheyareimplicitlyaccountable.Citizenswhoconstantlycomplainofthefailureofpoliticalleadershipdonotappreciatetheburdensimposedbyapoliticalsystemthatfragmentsauthorityandrequiresleaderstoreconstituteitinordertoattainthecriticalmassneededforaction.Thosecitizensarealsounlikelytoappreciatetheneedtoimproveonthescantpreparationwenowgivepotentialleaders. Dividingpowernotonlymakesactionbypublicofficialsmoredifficult,itpresentsspecialchallengestocitizenswhoseektoshapepolicyoutcomes.Whiletheirparticipationishighlyregardedindemocratictheory,Americancitizens,liketheirleaders,mustbemorepoliticallyresourcefulthanthosewholivein_lessdemocraticsystems_.Despitethat,active,regular,andcompetentinvolvement_is_Ԁoftendenigrated.Andordinarycitizens,oftenperceivepoliticaladroitnessasunimportant,undesirable,and,_unlearnable_Ԁ"scoundrelsexcepted. Asaresult,theabilitytounderstandthecomplexprocessesofdefiningandprioritizingissues,balancinginterests,buildingcoalitions,securingcriticalacceptance,andsettingpolicydirectionoftenpassesbydefaulttoindividualswillingtolearnbytrialanderroratpublicexpense.Itmayaccruetopeoplewhoarecarriersofadefectivegenethatendowsthemwith '8%  politicalinstincts.Worse,itmaybecultivatedbytheverypredatorsthepublicsovigorouslydetests.Howcanweremedythissituation?@D D  CANPOLITICALSKILLSBETAUGHT?     Manysuccessfulpoliticiansseemtobelieve"notsurprisinglyinahighegoprofession"thattheyaresuccessfulbecausetheyareblessedwithsuperiorinstinct.Iftrue,thiswouldbedevastatingtotheideathatpoliticalskillscanbetaught.Happily,itseemsunlikelyinthefaceofnumerousexamplesofimprovementinpoliticalacumenovertimeastheresultofexperience,orlearnedbehavior.But_a_Ԁmysteryremains.Ifsuccessfulpoliticiansareneitherpredictablyrational,norgeneticallyendowed,whatguidesthem?Perhapsitisaccesstoasubconsciouslyintegrated,oratleastvagueandunelaborated,accumulationofexperience. Weareconvincedthattheskillsacquiredbypracticingpoliticianscanbetaughtintheclassroom.Thequestionishowbesttodothat.Therehavebeenlongstandingdebatesaboutwhetherthecasemethodofteachingoffersadvantagesovertraditionaltextandlecturetechniques.Wethinkitdepends.Ifonespurposeistoconveytheelementsofabodyofϐknowledgecharacterizedbydepth,coherence,andthecertaintyofscientificmethods,thecasemethodmaynotbepreferable.If,however,onesobjectiveisto_provide_Ԁsomeguidancetothosefacedwiththetaskofshapingpublicpolicyoutofamiasmaofmessy,slippery,andambiguouscircumstances"thestuffofbargainingandmaneuveringinarenasofshared h power"theanswerisdifferent.Thebestanalogyisthatofthephysicistattemptingtorideabicyclebyapplyingtherelevantprinciplesofphysics,butwithnoguidance,practice,orevenobservationofotherriders. _Thosepartial_Ԁtothecasemethodbelievethatbygrapplingwithcomplexdilemmasonpaper,wecanlearntorecognizeanddealwithsimilarsituationswhentheypresentthemselvesinreallife.Indeed,theycontenditistheprocess"theactualgrappling"thatilluminateswhat !P cannotbeconveyedthroughcontentalone.Eachincrementofimprovedunderstanding,howeverdifficulttoextract,canbeagemofgreatworth.Proponentsofthecasemethodimaginecircumstancesinwhichknowingalittlebitaboutalotofthingscanbemorevaluablethanlearningagreatdealaboutonething.Whiletheresultofthisexercisemayormaynotbe amorerationalsociety,findingacceptablewaystoaddressseemingly &`$ irreconcilablemattersisnottobetakenlightly.Perhapsthatiswhypoliticshasbeencalledtheartofthepossible. n    Wedonotsuggestthatwhatyoulearnfromthesecaseswillbe F  unshakeablytrueanduniversallyapplicable.Wehope,rathermodestly,toshedabitoflightonsomeareaswhereyoumightotherwisebegropingintotaldarkness.Outofthispoolofreflectedwisdomcomesatwilightinwhichthebestpublicdecisionsaremade.   @ BEYONDMANAGEMENT  V ( Ifpracticalpoliticscannotbelearnedbymasteringasetofpackagedprinciplesofpoliticalbehavior,thesamemaybesaidofmanagement.Manymanagementdilemmasinvolveasingledecisionmaker,alimitednumberofidentifiableactors,fewoptions,andahandfulofvaryingcircumstances.Butwhilethepolicyimplicationsofthedecisionmaybequitesweepingandwellworththeanalyticaleffort,whatisinterestingandusefulcannotalwaysbeconveyedthroughtheeyesofasingledecisionmakerorreducedtoasinglecrucialdecision.Highlevelelectedorappointedofficials,confrontedbyinstitutionalrivalsorpoliticalenemies,mayfocusonusingthepowertheyhaveeffectively;_legislators_,ontheotherhand,maybepreoccupiedwithcreatingthepowertheyneedbycreatingalliancesandbuildingcoalitions._Bothdynamics_Ԁrequireattention.Solutionsandstrategiesmaybesufficientlydifferent,evenifindegreeonly,astojustifydifferencesintreatment.Thus,theimportanceofalegislativestrategymightwellbebetterexplainedthroughadescriptionofthehighlevelofinteractivity,themultitudeofdecisionpoints,andthedifficultiesofcoordinationforthoseinvolved. Policymadethroughprescribedmultiactororcollectivebodies,fromlargelegislativebodiestosmallboards;_through_Ԁroughandtumblepowerinteractionsamongdiversepressuregroups;_and_Ԁthroughproceduresthatevolveadhocratherthanbyauthoritativeprescriptionisoftenregardedas !P fartoomessyandambiguoustogiverisetousefulmanagementlessons.Someofushaveamoreoptimisticview.Butwerecognizethatwearedealingwiththeantithesisofmanagement.   @ WHATPRACTITIONERSKNOW  &#  R0 &d$  Publicofficialsmustdealwithcircumstancesandchallengesthatvary considerably.Theycanbefactuallycomplicated,withtheoutcomesofproposedinterventionssouncertainthatevenexpertsinthefielddisagree.Circumstancesmayrequireapoliticiantoidentifywithvaluesthatneitherhenorhisalliesshare.Othercircumstancesmayrequirethecoordinatedconsentofanumberofkeyactors,someofwhommaybeunconvincedofthevirtuesofagivenobjectiveorcourseofaction.Anycombinationofthesefactorsmaybepresent.Thebadnewsisthattherearenouniversallyapplicableformulas;_the_Ԁgoodnewsisthatthereareclearlybetterandworsewaysofcomprehending,calculating,andresponding.Whatworkswellinonesetofcircumstancesmayworkwellinanotheriftheessentialcharacteristicsofthetwoaresufficientlysimilar._ Reliable_Ԁcomparison"sizing_things_Ԁupcorrectly"requiresskillsofproblemappraisal,resourceassessment,culturalandenvironmentalsensitivity,optionsearch,outcomeprediction,andevaluation.Towhatextentthisispredicatedonalogicofappropriateness"familiarfeeling,_dj_Ԁvu, beentheredonethatcircumstances"ratherthanalogicof   reason,Icannotsay._ The_Ԁdominantprocesses,thoughregardedasrelativelyconsistent,arenotperceivedbypractitionerstoinvolveadhoc_rationalappraisal_Ԁorthe  consciousapplicationofclearandunwaveringprinciples.Policymakersdonotacknowledgethepresenceofacomprehensiveandcontrollingsetofprescriptionstoassessorrespondtothediversechallengestheyface.Theyoftenseemunabletoexplainwhytheydowhattheydoinparticular h situationsoringeneral. Perhapstheyavoidthinkingaboutitbecausetheyarebusy;_perhaps_Ԁtheyregarditascounterproductive.Politicalpractitionersarenotparticularlycooperative;_they_Ԁaresuspiciousofattempts,usuallybyacademics,todemystifytheirspecialstatusandreplaceitwithabodyofknowledgethatnotonlyrevealstheirshortcomingsbutisexportable._ They_Ԁusethetacticofdemeaningacademicsas outoftouchwithwhattheydo.Theevidencetheyofferisthatacademicmethodologyistooslow,toonarrowlyfocused,toocontingent,andtoocomplicatedtobeofmuchpracticalusetopolicymakers.Whatmaybetrueinallofthisisthatthereareaspectsofpoliticalthoughtandbehaviorthatliebeyondthecapacityoftraditionalformsofteachingandunderstanding.  &#  ___ '8% _ԇ  STORIESWITHLESSONS   < Casesaremerelystorieswithalesson.Teachingbycaseisteachingbyexample,andteachingbyexampleis,andprobablyalwayshasbeen,ubiquitous.OnemightsingleoutHomericstorytelling,theSocraticandTalmudicacademies,theparablesoftheNewTestament,thedelightfulandcelebratedFablesofAesop,NativeAmericanlegends,andsoon.   Shakespearemustbeconsideredoneofthegreatestofcasewriters.Julius ~ CaesarandHenrytheFourthareprimeexamplesofcasesaboutpolitical V powerandstrategy.Eachofhismajorpersonae,thoughcomplex,is .  zoomedgiantsize,destinedtoriseorfallonthequalityofhisorhercharacter.Someareimpulsive,othersareindecisive;_some_Ԁreckless,othersclever;_some_Ԁinnocent,othersscheming;_some_Ԁloyal,otherstraitorous;_some_daring,otherscowardly;_some_Ԁdutiful,othersambitious.Whomcanyoutrust?Whenisrisktakingjustified? Moderncasewritingwasborninbottomlineinstitutions"graduateschoolsofbusiness.Concernedwiththereliabilityofmanagementconceptsdevelopedwithintowersofivory,theschoolsconcludeditwouldbeprudenttoaddresstheproblemssuccessfulbusinessmanagersactuallyconfrontedandseewhattheyactuallydid.Theyleftunansweredthequestionofwhethertheactiontakenwasthebestdecisionunderthecircumstances._ That_Ԁturnedouttobeaplus;_it_Ԁcausedstudentstobecomeinterested,engaged,andinvestedintheprocess.Wasitpossibletolearnasmuchfromanunsuccessfuloutcome?Toreducetheimaginedhazardsassociatedwithtakingaposition,participantshadtounderstandthesituation.Theyhadtoassumetheburdenofchoosing.Andtolearnhowtochoosewell,theyhadtoimaginethemselvesintheroleofkeyactorsfacedwithtoughchoices.Playingtheroleofmanagers,businessstudentslearnedthrough 6  doing"simulateddoing.Theprocessaffordedthebenefitsoftrialanderror !x withoutthepotentiallydireconsequences.   @ POWERFULLYENGAGING  #  F Insomecircumstances,thecasemethodcanteachmorepowerfullythantraditional,orevenvisuallyenhanced,textandlectureformat.Inreadingawelldevelopedcase,thestudentisinvitedtoselect,prioritize,andarrangetherelevantpiecesofinformationinordertoaccuratelyand '8% usefullyunderstandthedilemmadepicted.Oncedrawnin,oneimagines  anarrayofpossibleinterventions,subjectsthemtoriskbenefitevaluation,ϐsynthesizesaresponsebased,perhaps,onanoptimisticresourceassessment,andthendevelopsarealisticcopingstrategy.Thebestcasesarerich,dramatic,complex,human,andurgent.Theyseekidentity,cryoutforanalysis,andharborthinlyconcealedpromisesofreward. Carefullyselected,studiouslyresearched,wellwritten,courserelevantcasescanbehighlysuccessfulteachinginstruments.Insimulatingactualchallengesordilemmas,theycanreproduceanintensitythatcaptivatestheimagination,invitesspiritedexchange,andevokesreasonedanalysis.Goodcasesaretrulyselfenergizing.   @ REPERTORYOFRESPONSES    RK Thepowerofcaseteachingwasnotlostonthoseconcernedmorewiththepublicthantheprivatesector.HarvardsKennedySchoolofGovernmenthasdevelopedalargelibraryofcases,manyofthemexcellent.Amongotherthings,itseffortshavehelpedtodistinguishbetweenthechallengesofpublicandprivatesectormanagement.Publicmanagementcasescanhelpidentifythepoliticalskillsneededtoeffectivelyshapepolicyoutcomes.Thisisimportantto_thoseresponsible_Ԁformakingorinfluencingdecisions,oradvisingthoseresponsibleformakingorinfluencingdecisions._ Not_Ԁonlycancaseanalysisseparateinterventionsthatseemtoworkwellfromthosethatdonot,itcan,ideally,helpascertainthereasonsforthesuccessorfailureoftheapproachtaken.Wasthewrongtoolselected,orwasitpoorlyapplied?Techniquesandprinciplesderivedfromcasesareexperiencebased;_only_Ԁtheexperienceissimulated.Iftheconclusionissufficiently _generalizable_tobeusefulinthefuture,onemaystrive,ultimately,forarepertoryofresponsesandtheversatilitytodeploythem.  !x    @ PRACTICALSIMULATION  "( P Thereisyetanotherreasonthatcasesareimportant.Itisthattheysometimescanteachmoreefficientlyandaccessiblythanexperience_itself_. F%" Becausethisiscounterintuitive,someelaborationisnecessary.Intheabstract,closeobservationandemulation,asinanapprenticeship,wouldhavetheadvantageofprovidingtherequisiterealitywhilebeingmore '8% _efficientthanpersonaltrialanderror.Intherealworld,iftheproblemtobeaddressedisashortageofexemplaryleaders,theproposalwouldnotonlyimposeadditionallyonthetimeandattentionofthatalreadyoverburdenedgroup,itwouldseemtoconstituteaselflimitingformulaformeetingthedemandforagreaternumberofeffectivepublicleaders.Forexample,inCalifornia,asidefromtheLegislativeandExecutiveFellows(called AssociatesintheSenate),andofcoursestaffpositionsnowcharacterized_byeither_Ԁarareprofessionallongevityorahighrateofturnover,therearenotmanyapprenticeshipslotsavailablepriortoholdingstateoffice._ V  Term_Ԁlimitswillcompoundtheproblembyreducingtheapprenticeshipperiodofthoseholdingofficewhileperhapsdiminishingthenumberofdistinguishedleaderswhomakeapprenticeshipworthwhile.Thisisnottodenigratelearningbydoing.Itisrathertocallattentiontothemorepracticalalternativeofimagining_oneself_Ԁintheshoesofapublicofficialconfrontedbyareallifedilemma,proposingonesownresponses,subjectingthemtocriticalevaluation,andworkingtheproblemthroughtoastrategic_solution._   @ CHOOSINGSUBJECTSANDCIRCUMSTANCES  0 YX Ascasewritingandcaseteachingmatured,commentatorsandtheircommentsproliferated.Someobservationsseemeddirectedchieflytowardcreatingandrefininganagreedupondefinitionoftheartform.Othersseemedmorepracticallytargetedtowardthemainobjective"improvingtheusefulnessofcaseanalysisasauniquecommunicatorofthatwhichcannotreadilybecommunicatedmoredirectly.Inthequickdistillationthatfollows,Ihavetriedtodistinguish. Therequirementthatacaseforceadecision,forexample,becomes ^ troublesomewithrespecttocasesinvolvingdecisionsbylegislativebodies.Myguessisthatthedecisionforcingrequirementemanatedfromthoseinterestedmoreinmanagementissuesfacinghighleveladministratorsthaninthedisorderlypoliticsofpolicycreation. Inanyevent,itisgenerallyagreedthattheremustbeconflictabout #  something"thecharacteroftheproblem,theobjectivessought,theappropriatecourseofaction,the_tradeoffs_Ԁnecessary,theethicalconsiderations"sufficienttoevokeaninitiallyambivalentresponseworthyofdiscussion.Classically,asnotedabove,thecontroversymustforcea &`$ decision.Evenifadecisionhasalreadybeenmadeinreallife,thestory '8% canbeinterruptedatthepointofthedecision.Asequelmaybeprovided,orthestory,decision,andconsequencescanbetoldandanautopsyperformedtoseeiftherewereabetterway.Eithermethodcanbeadoptedwithsomeofthecasesinthisedition.   @ MORENITTYGRITTY   8 J_ Afteratopicisselected,researchbegins.Itusuallyconsistsoflibrary ~ workandinterviewstobetterunderstandthefacts,createamoreconsistentnarrative,andidentifykeyactorstobeinterviewed.Additionalinterviewsprovideadditionalflavor,color,perspective,andspecialinsights.Minoractorsshouldnotbeneglectediftheycanfillinorrefereefactualdisputes.Often,itiswisetointerviewtheleastcentralcharactersfirstsothebestpossiblequestionscanbeaskedofthosewhoaremostcritical.Goodinterviewerslistencarefully,takeaccuratenotes,andaskafewclarifyingquestions.Memos,charts,lists,andotherdocumentarymaterialmayprovehelpful. Writing"orreporting"thecaserequiresdistillingitdowntothe X essentialfacts,events,andpeople.However,extremecautionmustbeusedtoavoidpredigestion.Analysis,interpretation,andeditorializingareinappropriateinthetext.Balanceandneutralityarenecessarytoachievecredibility,toinviteinferences,andtoavoiddivertingattentionfromtheproblemtothequalityofthecase. Amongthosewhoregardthecaseasanevolvingartform,itisaxiomaticthatanentertainingstoryalonedoesnotmakeagoodcase.Asapracticalmatter,casesshouldfulfillanidentifiableteachingfunction.  Underlyingthespecialfactsofthecasethatmakeitinterestingshouldbea_generalizable_insight,apointorpointsthatcanbeextractedandapplied ^ elsewhere.Acaseshouldnotbesooverburdenedwithinformationthatdiscussionneverrisesabovetheparticulars.Whenthathappens,itbecomesdifficulttoseetherelevanceofthecasetoothersituations.Happilyforthecasewriterandreader,thereisaninverserelationshipbetweentheamountofspecificdetailandthedesiredlevelofabstraction.Brevityisavirtue. Agoodcasemovesswiftlyfromintroductiontobackgroundtonarrative.Theintroduction,usuallyoneparagraph,setsuptheproblemandϐintroducestheprotagonistatamomentofcrisisorinacomplexsituation.ϐBackgroundcanruntothreeorfourpages.Theentirecaseshouldbe_about '8% 15pagessinglespaced.Thenarrativeshouldbeginatthebeginning,tellwhathappenedinastraightforwardway,_flesh_Ԁoutthekeycharacters,andleadtoadenouement.  F     @ THESPHEREOFACTIONi InthisfirsteditionofCaliforniaPublicManagementCasebook,three   casesdealwiththeexecutivebranchofgovernmentandthemythssurroundingitsuchasthevirtuallyunlimitedpowerofthechiefexecutive,thedesirabilityofconstitutionallyspinningoffafunctiontoelevateitsimportance,thepossibilityofinsulatingthebureaucracyfrompolitics,andthenotionthatappointedentitiescannotrespondadequatelybecausetheyareparalyzedbydiversityordevoidofpublicaccountability. Threecasesdealwithcollectivepolicymakinginthelegislature.Theyaddresssuchissuesastheimportanceofpersonalityandmotivation,thepowerofformalorganizationandinformalcoalitions,andthebodysresponsivenesstoexternalforces. Onecaseisdevotedentirelytothebudgetprocess,with_particularfocus_ontheroleofstaffandthekeyplayersinthebudgetprocessknownasTheBigFive. Finally,threecasesdealwithlocalgovernmentsthatpossessverydifferentsocialandpoliticalcharacteristics.   WHYCALIFORNIACASES? h n   ThesimpleansweristhatCalifornia"large,important,unique,  dynamic,diverse,colorful,andpacesetting"deservesspecialattention.ThemorecomplexansweristhatCaliforniahasbeen,is,andwillcontinuetobeavaluablecrystalballintothechallengesthatwillconfrontournationandtheworld. Studentswhogetintellectualindigestionfromuncertaintyandrejectcomplexitymaybediscouragedbythecasemethod.Butthosewhoadaptto"andultimatelyacquire"itsuniqueskillsandtechniqueswillbebetterpreparedtolendtheirvoicetopublicdiscourseandtakealeadingroleinshapingpublicpolicy. __     h      p __Թ  SenatorBarryKeene(ret.)LecturerinPublicManagement '8% ProjectDirector#[%&SH #     ""___9[_   99    Practice:AnatomyofCase1  DiscussionandAnalysis#9 9s##[9Bs#&S%[ h` _ s__ @ ____________s  This_Ԁdiscussionisbasedon TheGovernorandtheMedfly.Please x p readCase1beforeproceeding. P H  Thereisnouniquelycorrectframeworkuponwhichtohangthevariouselementsofacase.Inseekingthebestapproachtoacase,itoftenhelpstotryalternateanalyses.Ifoneapproachdoesntwork,discarditandtryanother.Here,inthecaseofGovernorBrownandtheMedfly,theexternalenvironment(whence_comesthechiefdilemma_)andthepoliticalrelationshipsseemparamount.Bycontrast,Case5,thehelmetlawcase,begsforearlyconsiderationofthekeyplayers. ThisanatomyofCase1willinformallydissectthecaseandoffer   someanalyticalsuggestionsaboutwhatisimportantthatwehopewillallowthereadertoreconstructthecaseinamorecoherentform.Followingthisexercise,wehavelistedsomelessonsastudentmightdrawfromthecase.Afteryoureadeachcase,seeifyoucandescribethekeyfactsinthecase.Ifyouthinktheprincipleisnotoverstated,trytoenvisionothersituationsinwhichitmightbeuseful.Attheendofeachcase,weincludesomequestionsdesignedtostimulatediscussionofthekindcontemplatedbythetwopracticeanatomies. Inthisfirstanatomy,themainsegment"Reignof x АError"establishestheevolvingproblemandthereactionsofvarious XP stakeholders.Inthesequel"RainofTerror"thecaseisresolved.If 0( mostoftheclassknowswhathappened,itmaybebesttoreadanddiscussthetwopartstogether.Ifthesubjectmatterisnewtotheclass,itmightbemoreinterestingtodiscussthefirstandsecondpartsseparately.____   ASSESSINGTHERISK  h!` | Fromtheoutset,CaliforniafarmersandagribusinessleadersthoughtachemicalairdropwasessentialinthoseareaswhereMedflieswerefound.Theycitedtheflysrapidreproductiveandimmensedestructivecapabilities,whichwerewelldocumented.Opponentsarguedthecallforsprayingwasreckless,selfserving,andunnecessary;_that_Ԁitwasmoresensibleandlessriskytotryotheralternativesfirst.Inthefinalanalysis,evenpreviouslyskepticalexperts,exceptforsomevery_cau_ԅ (( !& B tiousscientistsinthepublichealthfield,recommendedsprayingfromtheair.Itwasincreasinglyacceptedbymostofthepublicandpress,_except_,understandably,thosewholivedintargetzones.Andeventhemostardentcriticsof therainofterrorreluctantlyassentedonpoliticaloreconomicgrounds. Havingpaintedhimselfintoacornerwithhisearlyheroics,thegovernorpaidtheultimatepoliticalprice.RuralDemocratsinthelegislaturefeltthemselvesunnecessarilyexposedandsoonjoinedthegovernorsdetractors.LeadershipDemocratsfearedlossoftheirlegislativemajorities.Evenmanyofthegovernorsenvironmentalandlaboralliesfeltmisledorabandoned.SmellingbloodandbuoyedbythegrowingsupportofDemocrats,Republicansandtheiragribusinessalliesralliedforthekill.   APREMATUREEVALUATION  f   Theresultwasasdisastrousfromapolicystandpointasitwaspolitically.Thepublichealthriskthathadostensiblyjustifiedthedelayinaerialsprayingintensifiedastheinfestationbecamemorewidespread.Thedelaysubjectedmanymorepeopletochemicalexposureonmanymoreoccasions.Italsojustifiedthegrowingbarrageofcriticismdirectednotagainstgovernmentpolicybutaimedattheinstitutionsthatmadeandmanagedthatpolicy.Ahaphazardapproachtomanagingpublicpolicywasincreasinglyviewedasendemictothe_Brown_Ԁadministration. Weretheunfortunateoutcomespoliticallypredestined?Perhaps.Butthereisacontraryviewthatmustbeconsideredbecauseitaffordssomehopeformoresuccessfulcrisismanagementbypublicleaders.   REIGNOFERROR  #   The_Brown_Ԁadministrationspolicyoptionswerefairlyclear"tryalimitedgroundstrategyoveraperiodoftimeorengageatonceinanalloutchemicalairattacktowipeoutwhatseemedlikerelativelyfewinsectsinaverysmallarea.Asthecasereveals,thealloutassaultwas '8% _notthemostplausiblepoliticalalternative,despiteappearances.Butweretheconsequencesofnottakingthefastkillalternativeadequatelyconsidered?Certainlynotbytherelativelyapoliticalexpertsincharge. Thisdoesnotmeanthattheearlydecisiontoforegoaerialsprayingdidnotleaveotheroptions.Thefailuretoconsidertheseoptionsmaybeseenasmerelyalapseincommunication,buttodosodenigratestheimportanceofunderstandingsbetweenleadersandtheled.Somestudentsofleadershipclaimitsmeasureliesnotinsolvingproblems,butinprovidingconstructivewaystothinkaboutthem.Oneoptionforthegovernorwastoexplainfullyandpreciselytothecontestinggroupsthebasisforthedecision"whathadbeendecidedandwhatwaslefttobedecided.Thiswasnotdone,possiblydeliberately.@  LEASTRESISTANCE,HIGHESTRISK     Inbettingthatthegroundstrategywouldwork,JerryBrownhadalottogain.Buthealsohadmoretolosethanherealized.Heleftenvironmentalistsandotherallieswiththeimpressionthatheregardedasunthinkableadecisiontorainchemicalsonareaspopulatedbytheelderly,theinfirm,children,andpregnantwomen,andthathewaspreparedtoacceptwhateveradversepoliticalconsequencesmightresultfromhisdecision. HisJuly9,1981,announcementthatsprayingwasoutofthequestionseemedintendedtoexploitthebeliefamonghispoliticalsupportersthathehadneverevenentertainedthepossibilityofspraying.Tohissupporters,his_decisionwasanactofgreatcouragetakenindefianceofpowerfulspecialinterestsandeven_Ԁhisownstaff.Whileitwasconsistentwithhispoliticaljudgmentand,apparently,hispersonalbeliefs,itwasnotnecessarilysoundpolicy.But,ifthegovernorandhisadvisorsdidnotreallybelievetheywerewinningthegroundwar,whywouldherisksomuchonastrategythatwasunlikelytopayoffandcouldhaveadversepoliticalimplications?Whateverhisreasons,environmentalistsandothersboughtintohisactofcourage. Uncertainofhiscommitment,especiallyafterhishistoricreversalonProposition13,theywerehappytohavehimputhisfeetinconcrete"ashefinallydidonJuly9,1981.Ironically,sowerehislongtime_oppo nents. &`$  Agribusinessleadersandtheirpoliticalallieswerequitewillingto beslappedinthefaceifitallowedBrowntopositionhimselfasagiantkillerbeforehissupporters.Itleftthemabletoclaimthatthegovernorhadviolatedacommitmentmadebyhisstaffin_CDFA_,andthathewasactingflakyinnotrecognizingthefailureofthegroundstrategy,theimpossibleeffortandcostrequiredtoevenmakeitcredible,andthelevelofthreattothestateslargestindustry.LeadershipontheTACaside,therewasnoindicationhehadsignaledtothegeneralagriculturalcommunityorpublicthataerialsprayingwasstillunderconsideration,evenifonlyasalastresort.    p  BEAMMEUP,GOVERNOR  H  ڔ Thisisthestuffofwhichpoliticalheroes,notpoliticalleaders,aremade.ForBrown,itwasafatalerrorthatlefthispartisandetractorsincontrol.Withlittleto_loseandmuch_Ԁtogain,theypredictedabiologicalandeconomiccatastropheasunboundedasitwasinevitable.Theirmessageofimpendingdisasterresonatedbeyondfarmersintothegeneralbusinesscommunity,intoacostconsciousconsumingpublic,andevenintoportionsofthelaborforcedependentonagricultureseconomicwellbeing.Oppositiongrewaspeopleassumed,unchallengedbythegovernororhisimagemakers,thatanairassaultonthemaraudingMedflyhadbeendiscardedinfavorofquestionablyeffectivemethodsofintegratedpestmanagement.Indeed,lowtechhandstrippingandimportationofsterilematesforthefliesseemedtofitthe GovernorMoonbeamimageforflightsoffancy.Brownspoliticalenemiesdevastatinglyportrayeditasyetanotherexampleofhissmallisbeautifulmanagerialflakiness. Worse,Brownsreputationforquirkinesswasbeingovertakenbysomethingevenmoredamagingtopublicfigures"alackofprinciple.Hisubiquitousappearancesontelevisionasa bornagaintaxcutterthedayafterProposition13passedconveyedtheimpressionhecouldreverseanypositionifpoliticalinterestsdictated.DuringtheMedflycrisis,hemighthaveopenlyacknowledged_to_Ԁenvironmentalinterests"preferablysoonerratherthanlater"thataftertryingeveryotherwaywithoutsuccess,hecouldsimplynotallowthelargestindustryinCaliforniatobecrippledbywidespread,rampantspeculationabouthealthrisks.Insodoing,hemighthavetaughtthepublicausefullesson '8% onthecomplexitiesofpublicdecisionmaking"andsurvivedpolitically.Instead,thedenialofresponsibilityforatoughchoice,andhisclaimtobeatthemercyofthefederalgovernmentandagribusiness,madehimseem,atbest,inconsistentand,atworst,cynicallyselfserving. Afteralengthyhiatus,JerryBrownspoliticalfortuneshaveexperiencedapartialresurgence.HeiscurrentlymayorofthecityofOakland.Oneofhisfirstactswastostrengthenthatofficebyamendingthecitycharter.Hashelearnedthatmakinglarge_promisespresumes_Ԁacommensuratepowerto_deliver?___  V Zss   ~%&S  ~ ~SOMEPOSSIBLELESSONS# ~  ~}##&S% ~^#     1.0 Postponingadecisionmustbeseenasadecision,anditscostsmustbe   takenintoaccount.Onesuch_costmaybeaccusations_Ԁofindecisiveness.Othersmayrelatetothecreationofstrategicadvantagesfortheoppositionasaresultofthedelayinacting.0  x x 9(  9(02  .0   Thetwintemptations"tosecurepolitical_supportthroughexcessive  L commitmentstoaparticularcauseandtheselfaggrandizingassuranceofsufficientpowertobringmatterstoafullandfavorableconclusion"shouldbe_Ԁavoided.Morethanjustcompetence,credibilityisatrisk.9(0ی  x x Ќ  9(  9(03  .0   Communicatingonespositioninawaythatmakesitappeartobe   unqualified,whenitmaynotbe,ishighlyriskyandrequiresaplausible,carefullyconsideredexitstrategy.9(0ی  x x Ќ  9(  9(04  .0   Onehastoassume_thatoftrepeatedpublicassertions_Ԁofmotive,   character,orposition,howeverinaccurateinreality,willcrystallizeintodefinitivepublicimpressionsifleftunchallenged.9(10ی  x x Ќ  9(  9(05  .0   Peoplewillinterpretthestatementsandactionsofpublicofficialsin * accordancewithpreexisting,divergentbeliefsaboutthetruthfulness,dependability,commitment,andcompetenceofthoseofficials.9(٧0ی  x x Ќ  9(  9(Q06  .0   Inevaluatingwhethertotakeaposition,or,particularly,tochangean  existingposition,oneshouldalwaysassumethatopponentswilltrytoexploitthevulnerabilitiesthatresult.9(Ql0ی  x x Ќ  9(  9(Ѫ07  .0   Itisunlikelyahighlevelofficialcanrefusetohonoracommitment : madebythoseoverwhomheorshehascontrol,especiallythepowertoremove.9(Ѫ0ی  x x Ќ  9(  9(,08  .0   Theperceptionthatapublicfiguredoesnotkeeppromisescanhave , seriouspoliticalconsequencesbecauseitraisesquestionsoftrustamongsupportersandprovidespoliticalammunitiontoopponents.9(,G0ی  x x Ќ  9(  9(09  .0   Empiricaldataandscientificprocessesoften_supersede_Ԁpolitical J! loyaltiesamongadministrators,especiallythosemosttechnicallyandethicallyqualifiedtoholdtheirpositions.Theverytalentsandskillsthatmakethemusefulalsomakethempoliticallylessdependable.9(֭0 ی  x x Ќ  9(  9(010  .0   Thereliabilityofinformationemanatingfrombelowcanbecompro $! misedbyadesiretopleasethoseaboveandactinaccordancewiththetonetheyset.Lowerleveladministratorsaresusceptibletoinformationprocessingpathologiesthatincludedenial,consistencystriving,and_group_Ԁthink.9(Я0 ی (t% x x Ќ  _9(  9(ޱ011  .0   Blameshifting,ortakingrefugeincircumstancesbeyondonescontrol,  maynotproveeffectivewhenthosetacticshavebeenpreviouslyemployedtoavoidresponsibilityorjustifyonesposition.9(]x0 ی  x x Ќ  9(  9(012  .0   Inpolitics,onemustneverappeartobetrying tofoolallofthepeople  L allofthetime,evenifthatisnottheirgoal.9( 0 ی  x x Ќ  9(  9(8013  .0   Thesurvivalofeffectiveleaders,amatterofgreatimportancetosociety,  farfromdemandingthecontinuouseffectiveprescriptionofsolutions,_mayinvolve_Ԁnomorethanproposingnewwaysofunderstandingdivisiveandtroublingproblems.Thereconfigureddilemmacansuggestasolution_thatisnovel_,wasoverlooked,orcanbeadaptedtofitthenewrelevance.9(8S0 ی  x x Ќ  9(  9(014  .0   Theheroicandriskyposturingdepictedintheliteratureofhistoryand ,  biographymayengagereaderspreciselybecauseofitsrarity,andthereforeisoflimitedutilityin_lessextraordinarycircumstances_.9(ȩ0ی  x x Ќ  N  4 NSOOSO  OS_m%19)%`|0x `..Em ` ` ` x` x7 ` x` x` `    & %%&, & % &PowersoftheChief:   TheGovernorandtheMedfly# & % &##&,% % &Ԭ# h` Ȭ@$ INTRODUCTION D O  1      ׈    +&,%XX,Xe%&,+/&,%6XIe%&,X/+&,%6XIe%&,+  The GovernorandtheMedflyconcernsitselfwithJerryBrowns  effortstoaddressthecomplexissuessurroundingapotentialnaturaldisasteraboutwhichlittleisreallyknown.KnowledgeisalsoscarceconcerningtherisksofhumaninjuryresultingfromtheonesolutiononwhichimmediatepotentialvictimsofaMediterraneanfruitflyinfestationagree"chemicalsprayingfromairplanes.Delayingadecisionintheinterestsofimprovingtheinformationavailablehasitsownsignificantrisks. Someanalystsclaimtherearethreeclassiccategoriesofthecomplexity  thatcreatesproblemsforpublicdecisionmakers.TheMedflycaserichlypresentsallthree.J  &,%%&,%&,  J̱  J̱P݌̌  &,%&,%%&,  Bb  Bb0   Lookforuncertainty.Aretheexpertsagreedaboutaneedfor   intervention?Abouttheeffectivenessoflimitedintervention?Whetheradversehealthimpactswilloccurifthereismoreextremeintervention?Bb݌  x x Ќ  Bb  Bbj0   Mapoutthevalueconflictsthatsurface"betweencityandcountry " people,betweenfarmersandfarmworkers,betweenagribusinessinterestsandenvironmentalists,betweenthechemicalindustryandfood P$H!  consumers,betweenthegovernorsofficeandhisadministrativeappointees,betweenhiscommitmentstofiscalconservatismandjobsandhiscommitmentstoanaturalenvironment,andbetweenthoselivingintheinfestedareasandthoseworriedabouttheinfestationspreadingtotheirareaofresidence.Bbj݌  x x Ќ  Bb  Bb0   IdentifythecomplexitiesofpowersharingamongDemocratsfromthe  L agriculturalrichSanJoaquinValley,essentialtomaintainingthatpartysmajorityinthelegislature,andtheirgovernor;betweenCaliforniaandsisterstatesseekingaselfservingboycott;andbetweenapoliticallyhostileReaganadministrationprotectingagribusinessallieswhileupstagingapoliticalfigurewithnationalpretensions.Bb8݌  x x Ќ   Themultiplelayersofcomplexitywouldseemtocryoutforapolicythatwouldclearlyemphasizethebestmanagementpractices,protectasmanyofthecompetingvaluesascouldbereconciled,andpressureothergovernmentalentitiestocooperate.Instead,asyoushallsee,thingsrapidlyflyoutofcontrol.Asyoureadthecase,keepinmindthevariousconsiderationsitalicized:Bb  Bb0   Inwhatwaysisthepolicyambiguous?Inwhatwaysdoesthatleaveit 4 availableasaninstrumentofpoliticalmanipulationbythestateadministration?Howdoesitinviteexploitationbytheoppositionforpoliticalpurposes?Bb݌  x x Ќ  Bb  Bbk0   Intermsofmotives,isthereanyevidencethatGovernorBrownreally   intendstoletpolicyconsiderationschangehisviewsonaerialspraying?Arentthematerialfactsknownfromthestart?Oristheobjectivetobuytimeinthehopesthatevolvingcircumstancescanclarifythenecessityforoneortheotherextremepositions?Bbk݌  x x Ќ  Bb  BbX0   Whatisthedepartmentalculturepromotedbythetopappointedofficials X atCDFA?Atwhosewilldotheyserve?Whattonedoesheset?Whydotheypreparetoresign?BbXs݌  x x Ќ  Bb  Bb0   Arecommunicationsbetweenthehighestlevelsintheadministrationand ! thosecommandingthefieldsopoorthattheformerreallythinktheyarewinningawarthatinfacttheyarelosing?Whatseveralpointsmakelessthanplausiblethecontentionofhischiefofstaffthattheyarewinningthewarontheground?Iftheytrulybelievetheyarewinningthegroundwar,whyisthereapleatothecitizenrytosupportthedesperateneedforaheavilyintensifiedgroundwarthatwillrequiretheir forbearance?Bb݌'$ x x Ќ  Bb  BbN0   Doesthegovernorhaveanythingtolosefromalienatingtheagricultural   interests?Ifhisadvisorsimagineaworstcasescenario,howcantheystillbelieveanescapevalveexists?Whattechniquemighthebeenvisioningthatworkedforhimbefore?Butwhatsettingor ,  environmentischangedfromwhenhewasregardedasfresh,open,  p imaginative,anddifferentthanmostpeopleinpolitics?Whatisthedownsideofhisstunningreversalwithin48hours? BbNi݌ ( x x Ќ  Update:ThenGovernorJerryBrowniscurrentlythemayorofOakland, x California.  0    %&, #&,%#Q%&,#QQ# W Q  THEGOVERNORANDTHEMEDFLY:  REIGNOFERRORORRAINOFTERROR?#Q  W##&,%Q#%&,    |  #&,%#X'DX%&, XXXX'DResearchandoriginalwritingby   SenateAssociateDennisRaglin#X'DXX Xn##&,%XX'DO#%&, p h   #&,%'#PARTONE:REIGNOFERROR?%&,    t9` X LxXX, X98 Thisisnotaneasydecision.But,IamnotgoingtostandbyandorderaerialsprayingaslongasIhavepeoplethattellmetheycandothejobontheground.That,tome,istheonlychoiceIcanfollow.Subjecting500,000people,includingpregnantwomen,infants,andchildrentosixormoreaerialapplicationsofatoxicpesticideisnotanacceptablealternativetoasafer,effectivegroundsprayoperation.  L L   3LJerryBrown  @@(LGovernorofCalifornia  2LJuly9,1981#&,%#  CERATITISC.CAPITATA  D<  Medfliesareanextremelydangerouspest.Thefemalelays500eggsatatime.Andshelaysthemjustbeneaththeskinof200differentvarietiesoffruit,almostundetectabletothehumaneye.Afterabriefgestationperiod,theeggshatchintomaggotsanddoenormousdamagetothefruitbeforedroppingtothegroundandturningintopupae.Whenadultfliesemerge,muchlikebutterfliesfromcocoons,theybecomesexuallymaturewithinafewdays,mate,andrepeattheprocessinotherfruit.Inwarmweather,newlifecycles,upto100timeslargerthanthepreviouscycle,canemergeevery26days.TheMedflycanestablishitselfandbuild