A presentation that examines a policy proposal to extend last call alcohol service hours in San Francisco from 02:00 to 04:00 and its failure to attract support and adoption in the state legislature (that regulates alcoholic beverages for the entire state). The discussion looks deeper into the roots of contemporary alcoholic beverage regulation from the perspective of the elites and illustrates how America's corporate business interests supplied the financial support to the Prohibitionists in the early 1900s and how this same group of interests backed repeal because of a fear of lawlessness. Luther Gulick, father of Public Administration's classical theory is credited with writing model laws and ordinances that became the basis of state alcoholic beverage regulation.

1. 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)

2. 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

3. Things to Think About
take a shot each time you identify one of the following
PUBLIC ADMINISTRATION CONCEPTS
how many fit?
Network Theory
Churches as nodes
Group Theory
Pluralism (Dahl)
Interest Groups (Lindbloom)
Scientific Management
It was the sign of the times
Policy Process
Agenda setting to termination:
its all in there
Elite Theory
Rockefeller and Hearst know what’s best for you
(because the Anti-Saloon and government don’t)
Implementation / Evaluation
Gulick’s Total Alcohol Control
models, adaptive guidelines
Rosenbloom’s Three PA Foci
Prohibition was a problem with lawlessness
Regulation, the solution, promotes lawfulness
Post-MPA:
Move beyond the moralistic mire
channel Gulick, develop reasonable programs
end the busted war on drugs
3
2
1
5
6
7
4
8

4. LAST CALL FOR ALCOHOL
Extending state liquor service hours from 02:00 to 04:00
1
San 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.
2
3
4
Develop Strategy, Attract Supporters
Found 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 Resolution
Bar, 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 Die
Freshly-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.

5. Policy Post-mortem
why 04:00 was a bust
LIMITED COALITION
boutique issue
no 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
3
Kingdon’s Policy Window
City-sponsored proposal for statewide law
No broad stakeholder engagement
No institutional support
Current system permissive enough to sustain order
Most simply comply with law and don’t feel change needed
issue is not on policy agenda

6. PREVENTING BY LAW THE MANUFACTURE AND SALE OF ALCOHOL, ESP. IN THE U.S. 1920 – 1933
PROHIBITION

7. Stakeholders
Formal Players
LAW ENFORCEMENTLEGISLATORS
BUSINESS ELITE ORGANIZED CRIME
TEATOTLERS
ADMINISTRATORS

8. Interests and Influences
Prohibition 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 run
modern machinery
ORGANIZED CRIME
SOCIAL ORDER
enforce laws
fight crime
model behavior
profit off corruption
MORALITY
Eliminate the saloon from
working class life. Prohibition
as panacea to social ills.
control trade, turf
accumulate extreme wealth
employ violence
defraud and delegitimize state
bootleggers, speakeasy operators, gangsters

9. Teetotalers
Society 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

11. Anti-Saloon League
Prototype for the Modern Political Pressure Group
Engage Churches
Mobilize network
of Protestant
churches
Pay Organizers
to campaign and
draft model laws
and ordinances
Back Candidates
who supported
prohibition,
regardless of party
Enlist Business
Garner support of
business,
corporate elite
01 02 03 04
Prohibition was offered as a panacea for real social and economic problems.

13. Elite Theory
Corporate 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. Rockefeller
William Randolph Hearst

14. American business
found it impossible to
run modern machines
with drink-befuddled
brains

15. SCOFFLAW
someone who flagrantly ignores edict and drinks illegally produced liquor
LAW AND ORDER
Organized Crime
bootleggers. producers. distributors. money launderers. tax evaders. speakeasy operators.

16. 15 million men out of work.

17. THE KEY IS
ALWAYS YOU!

18. 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.

19. TOTAL LIQUOR CONTROL
John D. Rockefeller, Raymond Fosdick, Luther Gulick

20. 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.

21. Mutually Incompatible Values?
David Rosenbloom
2
Political Approach
procedural 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.”

22. Drugs ordered by their overall harm scores
Center for Crime and Justice Studies (UK)
72
55 54
33
27 26
23
20 19
15
0
10
20
30
40
50
60
70
80
Alcohol
Heroin
CrackCocaine
Methamphetamine
Cocaine
Tobacco
Amphetamine
Cannabis
GHB
Benzos

23. A Challenge to My Fellow MPAers:

24. CHEERS,
CONGRATULATIONS,
and THANK YOU!