Becoming an Effective Policy Advocate: From Policy Practice to Social Justice

562 Pages·2007·4.81 MB·English

by  Bruce S. Jansson

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F I F T H E D I T I O N
B 
E P A
F P P  S J
B S. J
University of Southern California
Australia • Canada • Mexico • Singapore • Spain • United Kingdon • United States
To Jane Addams,
whose vision of a profession that prized social activism
stimulated me to write about policy practice
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C O N T E N T S
     B M  B  P
A   L 
1 Joining a Tradition of Social Reform 2
Diversity and Policy Advocacy 2
Advancing the Public Interest at Home and Abroad 8
Using an Ecological Perspective 9
What Policy Practitioners and Advocates Seek to Change 9
What Are Policy Practice and Policy Advocacy? 14
Challenges Encountered by Policy Advocates 15
Joining a Tradition of Policy Advocacy 20
Joining the Reform Tradition Within Social Work 23
Policy Devolution, Technology, Globalization, and Policy Advocacy 24
Becoming an Eff ective Policy Advocate 25
Developing a Vision 25 (cid:1) Seeking Opportunities for Policy
Advocacy 25 (cid:1) Taking Sensible Risks 26 (cid:1) Balancing Flexibility with
Planning 26 (cid:1) Being Appropriately Assertive 27 (cid:1) Developing Multiple
Skills 27 (cid:1) Being Persistent 28 (cid:1) Tolerating Uncertainty 28 (cid:1) Becoming
a Policy Advocate 28 (cid:1) Combining Pragmatism with Principles 29 (cid:1) Th e
Rewards of Policy Advocacy 29
Changing the Composition of Decision Makers 30
Getting Started 31
Becoming Leaders 32
CHAPTER SUMMARY: What You Can Now Do 36
NOTES 37
SUGGESTED READINGS 37
2 Articulating Four Rationales for Participating in Policy
Advocacy 39
Th e Ethical Rationale for Policy Advocacy 40
Benefi cence and Professional Practice 40 (cid:1) Policy-Sensitive and Policy-Related
Practice 41 (cid:1) Moving Toward Policy Advocacy 43 (cid:1) Policy Advocacy and
Powerless Groups 47 (cid:1) Policy Advocacy for Vulnerable Populations 51 (cid:1) Other
Ethical Principles in Policy Advocacy 54
Other Types of Ethical Reasoning 55
Toward an Eclectic Approach to Ethical Reasoning 56
Returning to Ideology 58
Th e Analytic Rationale for Policy Advocacy 61
Choosing Sides: Controversy and Research 63
Th e Political Rationale for Policy Advocacy 67
Interlocking Rationales for Policy Advocacy 70
CHAPTER SUMMARY: What You Can Now Do 73
NOTES 74
SUGGESTED READINGS 75
iii
iv Contents
     S C  D P-
A S 
3 Obtaining Skills and Competencies for Policy
Advocacy 78
A Policy Practice Framework 79
Th e Policy Context 79 (cid:1) Perspectives of Stakeholders and Policy Advocates 81
Patterns of Participation 83 (cid:1) Th e Six Tasks of Policy Practitioners 84
Four Skills Th at Policy Practitioners Need 86 (cid:1) Policy Competencies 87
Styles of Policy Practice 87
Applications of Policy Tasks and Skills 93
Building Agendas 93 (cid:1) Analyzing Problems 94 (cid:1) Writing Proposals 95
Enacting Policy 95 (cid:1) Implementing Policy 96 (cid:1) Assessing Policy 96
Analyzing Policy Practice 96
Ballot-Based Advocacy 102
Th e Variety of Policies 102
Overcoming Discomfort with Power 104
Social Policy’s Role in Ecological Frameworks 105
Policy Practice as a Unifying Th eme 106
CHAPTER SUMMARY: What You Can Now Do 106
NOTES 107
SUGGESTED READINGS 108
     T E  P   U S 
  G W 
4 Understanding the Ecology of Policy in Governmental,
Electoral, Community, and Agency Settings 110
Th e Players in Legislative and Governmental Settings 111
Elected Offi cials 112 (cid:1) Unelected Offi cials or Bureaucrats 119 (cid:1) Lobbyists
and Interest Groups 120 (cid:1) Connections Among Interest Groups, Legislators, and
Bureaucrats 121 (cid:1) Public Opinion 121 (cid:1) Advocacy Groups 121
Th e Electoral Process 122
Early Maneuvering 122 (cid:1) Running Campaigns 124
Th e Mindsets of Elected Offi cials 125
Th e Environment of Public Servants: Elected Offi cials 125 (cid:1) Shortcuts: Aides,
Lobbyists, and Priorities 126 (cid:1) Th e Calculus of Choice 126
Th e Mindsets of Nonelected Offi cials 128
Political Appointees 128 (cid:1) Civil Servants 128
Strategy in Legislative Settings 129
Advocating for Resources 129
Th e Law and Social Policy 130
Th e Political Economy of Social Agencies 133
Th e Political Economy of Programs and Social Work Units 137
Mapping Agencies’ Policies 138
Th e Players in Organizational Settings 142
Overlay 1: Th e Organizational Chart 143 (cid:1) Overlay 2: Budget
Priorities 144 (cid:1) Overlay 3: Boundary Spanners and Mission Enhancers 144
Overlay 4: Informal Relationships among Organizational Members 144
Th e Political Economy of Communities 145
Diff erent Layers of Government and Policy 146
Contents v
Maneuvering in a Multi-Layered Policy Ecology 147
CHAPTER SUMMARY: What You Can Now Do 153
NOTES 153
SUGGESTED READINGS 155
5 Expanding Policy Advocacy
Across National Borders 156
Social Problems in an Interdependent World 156
Why Globalization Sometimes Harms Vulnerable Populations
in the United States 157
Why an Economic Gap Developed Between Developing and Developed Nations 161
Why Globalization Sometimes Harms Vulnerable Persons
in Developing Nations 165
Another Vulnerable Population: Migrants Within and Between Nations 167
Globalization’s Impact on the Environment 170
Th reats to Public Health 172
Creating a Mono-Culture? 173
Th e Great Caveat: Globalization’s Positive Eff ects 173
Policy Advocacy for Populations Harmed by Globalization 174
Policy Options in the United States 174 (cid:1) Policy Options to Help Vulnerable
Populations Abroad 176
CHAPTER SUMMARY: What You Can Now Do 181
NOTES 181
     C  P  S T
B A  P A 
6 Committing to an Issue: Building Agendas 184
Taking the First Step 185
Why Agenda Building Is Needed 186
Legislatures 186 (cid:1) Agencies 188 (cid:1) Communities 189
Th ree Challenges in Agenda Building 189
Th e Diagnosing Stage 192 (cid:1) Th e Softening Stage 196 (cid:1) Th e
Activating Stage 200 (cid:1) Coupling 203 (cid:1) Framing and Finding
Titles 203 (cid:1) Negotiating and Bargaining 203 (cid:1) Assembling Early Sponsors
and Supporters 204 (cid:1) Routing 204 (cid:1) Media Coverage 204
Can Direct-Service Staff Help to Build Agendas? 205
Policy Advocacy for Powerless Populations and Unpopular Issues 206
Electoral Processes 207
Developing Links with Advocacy Groups 208
Using Multiple Skills in Agenda Building 209
CHAPTER SUMMARY: What You Can Now Do 214
NOTES 214
SUGGESTED READINGS 215
7 Analyzing Problems in the First Step
of Policy Analysis 216
Putting It All Together: A Six-Step Policy Analysis Framework 216
A Six-Step Policy Analysis Framework 216
Do Policy Advocates Have to Analyze Problems? 220
vi Contents
Using a Flowchart to Analyze Some Social Problems in Step 1 222
Five Cells in a Flowchart Format in Step 1 223 (cid:1) Illustrating a Flow Chart with
Welfare Reform 229
Analyzing the Causes of Social Problems in Step 1 234
Developing Interventions and Programs in Step 1 237
Developing Preventive Programs in Step 1 240
Measuring the Magnitude of Problems in Step 1 245
Locating Problems Spatially 247
Social Problems as Slippery Concepts 248
When Are Social Problems Real, and When Are Th ey Invented? 248 (cid:1) Many
Social Problems Defy Simple Solutions, But Many People Favor
Panaceas 249 (cid:1) Priorities Are Not Chosen Rationally 250 (cid:1) Solving One
Problem Can Create Others 250 (cid:1) Variations in Problems 251
Challenges for Policy Advocates 252
CHAPTER SUMMARY: What You Can Now Do 252
NOTES 255
SUGGESTED READINGS 257
8 Developing Policy Proposals in the Second, Th ird,
and Fourth Steps of Policy Analysis 258
Returning to the Six-Step Policy Analysis Framework 258
Intersecting Arenas and Stakeholders 258
Identifying Recurring Policy Issues and Policy Options in Steps 2, 3, and 4 260
Establishing a Mission in Steps 2, 3, and 4 261 (cid:1) Designing the Structure of Service
in Steps 2, 3, and 4 261 (cid:1) Planning the Extent of Devolution and the Resource Path
in Steps 2, 3, and 4 263 (cid:1) Defi ning Services in Steps 2, 3, and 4 271 (cid:1) Rationing
Scarce Resources in Steps 2, 3, and 4 274 (cid:1) Addressing Agency Network Issues in
Steps 2, 3, and 4 276 (cid:1) Addressing Community Factors in Steps 2, 3,
and 4 278 (cid:1) Guiding and Overseeing Policy Implementation in Steps 2, 3,
and 4 278 (cid:1) Assessing Implemented Policies in Steps 2, 3, and 4 279
An Overview of the Proposal to Fund Shelters for Battered Women 279
Th e Anatomy of Policy Proposals 280
Trade-Off s: Systematically Comparing Policy Options in Step 3 280
Identifying Options in Step 2 280 (cid:1) Selecting and Weighing Criteria in
Step 3 282 (cid:1) Creating a Decision-Making Matrix in Step 3 283 (cid:1) Qualitative
Rankings 285 (cid:1) Using Diff erent Policy Skills in Tandem in Steps 2, 3, and 4 287
CHAPTER SUMMARY: What You Can Now Do 292
NOTES 293
SUGGESTED READINGS 294
9 Presenting and Defending Policy Proposals 296
Ideology and Policy Positions 297
Proposals and Ideology 297
Electoral Politics and Proposals 299
Combative Persuasion 300
Adversarial Debates 300 (cid:1) Coercive Messages 304 (cid:1) Negotiations: Hardball
and Win-Win Options 306
Adversarial or Friendly Communication: Which Is Preferable? 307
Contents vii
Persuading Specifi c Audiences 309
Determining Objectives 309 (cid:1) Diagnosing Audiences 310
Strategies of Persuasion 311
Selecting a Medium 312 (cid:1) Using a Sequence of Presentations 313 (cid:1) Selecting
a Format 313 (cid:1) Developing an Eff ective Presentation Style 316 (cid:1) Tactics for
Specifi c Audiences 317 (cid:1) Other Tactical Choices 318
Assembling a Strategy 319
Th e Hostile Audience 319 (cid:1) Th e Sympathetic Audience with Some Hostile
Members 320 (cid:1) Th e Expert Audience 320 (cid:1) Interpersonal Discussions 320
Gaining Support for Grant Proposals 321
Writing an Imaginative Title 321 (cid:1) Giving a Compelling
Rationale 322 (cid:1) Drawing on Research Findings 322 (cid:1) Setting Clear
Objectives 322 (cid:1) Including an Evaluation Component 322 (cid:1) Demonstrating
Feasibility 322 (cid:1) Establishing Partnerships 323 (cid:1) Demonstrating
Support 323 (cid:1) Developing a Realistic Budget 323 (cid:1) Finding
Funders 323 (cid:1) Revising the Proposal 324
CHAPTER SUMMARY: What You Can Now Do 340
NOTES 340
SUGGESTED READINGS 341
     A  C 
10 Developing and Using Power 344
In Defense of Politics 345
Analytic and Political Approaches to Policy Advocacy 346
Th e Nature of Power 351
Person-to-Person Power 352
Power Resources that Stem from Policy Maneuvering 356
Substantive Power 356 (cid:1) Power in Decision-Making Procedures 358
Process Power 359 (cid:1) Shaping Contexts Including Use of the Internet 361
Successful Power Users 366
Power in Organizations 366
Discretion, Compliance, and Whistle-Blowing 366 (cid:1) Defi ning Zones of
Discretion 367 (cid:1) Issues of Compliance 368 (cid:1) Whistle-Blowing 368
Power Diff erentials 369
Ethical Issues 370
Developing and Using Power in Situations Where Advocates Are Disadvantaged as
Compared to More Powerful Players 372
Obtaining Power Resources 376
Building Personal Credibility 377 (cid:1) Networking 379
Power Challenges Encountered by Members of Vulnerable Populations 381
Developing Assertiveness 382
Can Direct-Service Staff Use Power Resources? 384
Returning to New Orleans 384
CHAPTER SUMMARY: What You Can Now Do 386
NOTES 386
SUGGESTED READINGS 388
viii Contents
11 Developing Political Strategy 390
Establishing Some Objectives 390
Determining a Position 391 (cid:1) Selecting the Extent of Policy
Changes 393 (cid:1) Selecting a Time Frame 393
Grounding Strategy in Current Realities 393
Th e Power Distribution 393 (cid:1) Identifying Contextual Factors 397 (cid:1) Past
Stances 397 (cid:1) Vested Interests 398 (cid:1) Cohesion of Likely Opponents and
Proponents 398 (cid:1) Situational Realities 399 (cid:1) Adapting Strategy to
the Setting 399 (cid:1) Developing Alternative Scenarios 400 (cid:1) Selecting a
Strategy 400 (cid:1) Revising the Strategy 401
Seven Recurring Steps in Strategy 401
Organizing a Team or Coalition 401 (cid:1) Establishing Policy
Goals 403 (cid:1) Specifying a Proposal’s Content and Getting Early Sponsors 403
Establishing a Style 403 (cid:1) Selecting Power Resources and Framing
Strategy 404 (cid:1) Implementing Strategy 405 (cid:1) Revising the Strategy 405
A Policy Advocacy Challenge: How to Block Ill-Advised Policy Proposals 405
CHAPTER SUMMARY: What You Can Now Do 409
NOTES 409
SUGGESTED READINGS 410
12 Putting Political Strategy Into Action 411
Strategy in Legislative Settings 412
Organizing Legislative Advocacy Projects 412
Organizing a Team or Coalition 412 (cid:1) Establishing Policy Goals in a Legislative
Context 414 (cid:1) Writing a Policy Brief: Specifying a Proposal’s Content and Getting
Early Sponsors 415 (cid:1) Establishing a Style 419 (cid:1) Selecting Power Resources
and Framing Strategy 419 (cid:1) Implementing Strategy 421 (cid:1) Revising the
Strategy 429
Strategy in Agency Settings 429
Organizing a Team or Coalition 429 (cid:1) Establishing Policy Goals
in the Organizational Context 429 (cid:1) Specifying a Proposal’s
Content 432 (cid:1) Establishing a Style 432 (cid:1) Selecting Power Resources and
Framing Strategy 433 (cid:1) Revising the Strategy 433
Developing Strategy in Community Settings 433
Establishing Policy Goals in the Community Context 433
Specifying a Proposal’s Content 434 (cid:1) Establishing a Style 434 (cid:1) Selecting
Power Resources and Framing Strategy 434 (cid:1) Revising the Strategy 435
A Primer on Task Groups 435
Policy Advocates’ Roles in Task Groups 436 (cid:1) What Successful Task
Groups Need 437 (cid:1) Th e Task Group’s Mission 437 (cid:1) Th e Task Group’s
Leadership 437 (cid:1) Th e Task Group’s Developmental Needs 437 (cid:1) Th e Task
Group’s Procedures 438 (cid:1) Th e Task Group’s Structure 438 (cid:1) Th e Task Group’s
Deliberative and Interactional Processes 438 (cid:1) Th e Task Group’s Staff and
Resources 439
Forming Coalitions 439
Establishing Networks 440
Addressing Dysfunctional Group Processes 440 (cid:1) An Advocacy Campaign in
Sacramento, California 442
CHAPTER SUMMARY: What You Can Now Do 445
NOTES 445