Mentorship in Program Evaluation for Early-Career Public Administrators By Karine Levasseur and Andrea D. Rounce University of Manitoba A paper presented to the Canadian Association for Programs in Public Administration (CAPPA) Fourth Annual Research Conference in Public Management and Public Policy on May 25 - 26, 2015 at Glendon College, York University in Toronto, ON. Abstract Working with the Government of Manitoba, the authors attempt to bridge theory and practice in program evaluation for early career public servants employed by the provincial government. Tasked with completing an evaluation of a community-based program, the researchers have worked with four junior policy analysts to develop, manage, conduct, and report on the evaluation. The researchers acted as mentors to the analysts, providing direction and guidance, and the analysts have conducted the bulk of the evaluation. This case study provides an opportunity to learn about the challenges of and opportunities for building policy capacity. Introduction Policy capacity is defined by Bakvis (2000: 73) as the “intellectual dimension of governance that is the capacity of the system to think through the challenges it faces.” Thought to be an essential aspect of how governments operate — and essential to the prevention of policy failure — concerns have been raised in recent years that the policy capacity of governments across Canada has declined in part because of public sector reforms and a greater reliance on ideology to inform decisions (Savoie 2003: 1). While scholarly attention has increased in recent years, much of the policy capacity literature measures or assesses the stock of policy capacity that exists within governments and increasingly in non- governmental actors such as non-profit organizations (see, as examples, Baskoy, Evan and Shields 2011; Evans and Wellstead 2013; Howlet and Oliphant 2010; and, Wellstead and Stedman 2010). While measuring and assessing the stock of policy capacity is crucial to the identification of broad trends and the ability to discern strategic areas for intervention, there is an opportunity to critically assess how policy capacity can and should be nurtured. While there is some literature on this important aspect of policy capacity (see Bakvis 2000; Craft and Howlett 2012: 9 as examples), more research is needed. This paper contributes to our understanding of how policy capacity can be built through specific training opportunities for bureaucrats. To do so, the paper relies on a case study that involved the Government of Manitoba whereby the authors served as mentors to early career civil servants in the area of program evaluation. The paper begins with a discussion of the state of policy capacity and, more specifically a discussion on policy capacity building that is conceptually grounded within adult learning theory. It then outlines the case study, and ends with an assessment of lessons learned. Conceptual framework: Building policy capacity through adult learning theory 1 ¡ ¡
Policy capacity, as measured in the literature, is time specific. This means, in effect, that measurement of policy capacity is specific to that moment in time. Yet, this is despite the reality that policy capacity is fluid, and even fleeting in some situations. The sudden departure of numerous key staff members can lower the policy capacity within a department, division or branch considerably and vice versa. So, measures of policy capacity are snapshots of what capacity exists within a specific unit, department or government at a particular moment in time. Given this, how then can policy capacity be built knowing that it is fluid – what is here today may be gone tomorrow and what was missing today can be eventually replaced? Rebuilding capacity can occur at different scales. At the macro level, attempts to rebuild policy capacity may occur through large-scale initiatives that cut across all facets of government. In his review of rebuilding policy capacity at the federal level in Canada, Bakvis (2000) indicates that two such attempts occurred in the early- to mid-1990s: Policy Research Initiative (PRI) and a Deputy Minister Task Force known as Le Releve. The PRI sought to nurture relationships between government departments and the external community, which included the academic community, as a means to build policy capacity through shared research (Bakvis 2000: 90). While the PRI looked outwards to build policy capacity, La Releve looked inwards. Bakvis (2000: 88) notes that while La Releve was focused on human resources management, it “nonetheless [was] closely related to policy capacity in relation to the recruitment and renewal of policy expertise”. Policy capacity can also be built at the micro level too within a specific department, division or branch targeting specific staff members. This may be a more optimal approach given that governments may not afford large government-wide initiatives given the fiscal challenges stemming from the 2008 recessionary pressures. Policy capacity building at this level provides specific opportunities to learn the necessary skills, gain knowledge and apply their skills and knowledge. It is at this level of rebuilding policy capacity that out case study is focused. The framework to understand and assess opportunities to build policy capacity is rooted in adult learning theory. The study of how adults learn is better known as andragogy and is differentiated from its better known counterpart — pedagogy — the study of how children learn. While adult learning can be conceived differently, this paper defines adult learning as a process where Malcolm Knowles (1980: 25) suggests: “In its broadest sense, the term describes a process — the process of adult learning. In this sense it encompasses practically all experiences of mature men and women by which they acquire new knowledge, understanding, skills, attitude, interests or values. It is a process that is used by adults for their self-development, both alone and with others, and it is used by institutions of all kinds for the growth and development of their employees, members and clients.” As a process, adult learning is rooted in collaboration and equality between the teacher and the adult learner rather than command-and-control approaches. The five assumptions that make-up adult learning theory in the Knowles (1980: 44-45) tradition include the following: Assumption #1: Adults are self-directed While children are dependent for their learning, adult learners are independent, and as such they desire to engage in self-directed learning. Knowles (1984: 56) comments that “[a]dults have a self-concept of being responsible for their own decisions … They resent and resist situations in which they feel others are imposing their wills on them”. He further comments that this movement from dependency to self-direction is a normal aspect of the maturation process (1980: 43), but it is important for teachers to recognize that adults want to be actively involved in their learning and ensure that they create opportunities for self- 2 ¡ ¡
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