Driven to Drink
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Transcript of Driven to Drink
I’ll drink to that: the little known story of how public administration
solved America’s liquor problem
(and why that’s important even if you don’t drink)
Presentation Agenda
Last Call for Alcohol Policy Proposal
1920-30s to Prohibition Era
18th Amendment: Anti-Saloon League
21st Amendment: Total Alcohol Control
Q & A
Things to Think Abouttake a shot each time you identify one of the following
PUBLIC ADMINISTRATION CONCEPTShow many fit?
Network TheoryChurches as nodes
Group TheoryPluralism (Dahl)
Interest Groups (Lindbloom)
Scientific ManagementIt was the sign of the times
Policy ProcessAgenda setting to termination:
its all in there
Elite TheoryRockefeller and Hearst know what’s best for you(because the Anti-Saloon and government don’t)
Implementation / EvaluationGulick’s Total Alcohol Controlmodels, adaptive guidelines
Rosenbloom’s Three PA FociProhibition was a problem with lawlessnessRegulation, the solution, promotes lawfulness
Post-MPA:Move beyond the moralistic mirechannel Gulick, develop reasonable programsend the busted war on drugs
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LAST CALL FOR ALCOHOLExtending state liquor service hours from 02:00 to 04:00
1San Francisco Late Night Coalition
Encroaching residential uses displace city’s core nightlife areas.Nightlife contributes to city’s culture and culture is under threat.Extended serving hours enhance viability of late night uses.
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Develop Strategy, Attract SupportersFound a number of interested Board of Supervisors members. One sponsored economic impact study. Nightlife is a $5 billion business in San Francisco.
Engage Decision-makers, Adopt ResolutionBar, cabaret and nightclub operating hours stipulated by State law.Board passes symbolic measure urging Sacrament to devolve alcohol regulation – at least hours of operation – to local control.
Advance to Assembly: to DieFreshly-minted Assemblymen Leno proposes “home-rule” legislation.At committee hearing CHP officers, MADD members express concern.Fellow assembly members in Committee laugh at Leno.Walk out of chambers without so much a vote.
Policy Post-mortemwhy 04:00 was a bust
LIMITED COALITIONboutique issueno means to broaden Lacked call to action to compel mass engagement.
WHAT’S GOOD FOR SAN FRANCISCO…
BAR CLOSURE TIMES: NOT A PROBLEM
1
2
3Kingdon’s Policy Window
City-sponsored proposal for statewide lawNo broad stakeholder engagement No institutional support
Current system permissive enough to sustain orderMost simply comply with law and don’t feel change neededissue is not on policy agenda
StakeholdersFormal Players
LAW ENFORCEMENTLEGISLATORS
BUSINESS ELITE ORGANIZED CRIME
TEATOTLERS
ADMINISTRATORS
Interests and InfluencesProhibition meant different things depending on whom you asked
LEGITIMACY, POWER
U.S. a nation of laws state authority undermined when citizens do not comply
Congress, Executive, State Legislatures
INDUSTRY, BUSINESS ELITE
Demanded skilled laborers to runmodern machinery
ORGANIZED CRIME
SOCIAL ORDER
enforce lawsfight crime
model behaviorprofit off corruption
MORALITY
Eliminate the saloon from working class life. Prohibition
as panacea to social ills.
control trade, turfaccumulate extreme wealth
employ violencedefraud and delegitimize state
bootleggers, speakeasy operators, gangsters
TeetotalersSociety of Reformed Drunkards, Women’s Temperance, Anti-Saloon League
Francis Willard, Carrie Nation
• Smash the saloon
• Alcohol source of moral weakness, ills
• Promoted complete prohibition
Anti-Saloon LeaguePrototype for the Modern Political Pressure
Group
Engage ChurchesMobilize
network of Protestant churches
Pay Organizersto campaign
and draft model laws and
ordinances
Back Candidateswho supported
prohibition, regardless of
party
Enlist BusinessGarner support
of business, corporate elite
01
02
03
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Prohibition was offered as a panacea for real social and economic problems.
Elite TheoryCorporate and Business Interests
• Elite theory describes power relationships in society
• Small number of individuals hold disproportionate power
• Power derived from positions in business
• Many also members of policy think tanks or organizations where they wield influence
Concepts
James D. RockefellerWilliam Randolph Hearst
SCOFFLAWsomeone who flagrantly ignores edict and drinks illegally produced liquor
LAW AND ORDEROrganized Crime
bootleggers. producers. distributors. money launderers. tax evaders. speakeasy operators.
The Association Against the Prohibition Amendment (the AAPA) was dominate in bringing about Prohibition’s repeal.
AAPA was led, organized, and financed by some of America’s wealthiest and most conservative men.
Believed if liquor taxes were restored, their business and personal income taxes would be significantly reduced.
Corporate rich turned against prohibition due to growing fear that disrespect for prohibition was producing widespread disrespect for all law, including property law.
CLASSICAL THEORY
In many ways the classic theory was crude, presumptuous, incomplete, wrong in some of its conclusions, naive in its scientific methodology, parochial in its outlook. In
many ways it was the end of a movement, not the foundation for a science. Nevertheless, not only is the classical theory still today the formal working theory of large numbers of persons technically concerned with administrative-organizational
matters, both in the public and the private spheres, but I expect that it will be around a long, long, time (p. 37).
Classical theory views administration as a technical problem concerned basically with the division of labor and the specialization of function.
Waldo, Dwight. The Administrative State. New York: the Ronald Press Company, 1948.
Mutually Incompatible Values?David Rosenbloom
21
Political Approachprocedural due process: fairness, uniformity in process to protect against arbitrary and capricious acts of government; protection of substantive rights as embodied in Bill of Rights; and equity, interpreted as judicial fairness.
Legal Approach“business part of the government shall be carried out in a sound, businesslike
manner… with the utmost possible efficiency and at the least possible cost” in terms of money or energy.
(Wilson, 1887)
Managerial Approach
Efficiency, economy, effectiveness
controlling bureaucracy to make it responsive to constituents: representativeness, political responsiveness, accountability
The individual is seen as a unique individual with a unique set of circumstances entitled to his “day in court.”
Drugs ordered by their overall harm scoresCenter for Crime and Justice Studies (UK)
0
10
20
30
40
50
60
70
80
72
55 54
33
27 2623
20 1915
Alc
ohol
Her
oin
Cra
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ocai
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Met
ham
phet
amin
e
Coc
aine
Toba
cco
Am
phet
amin
e
Ca
nn
ab
is
GH
B
Ben
zos