Governing Cross-Sector Collaboration E-Book

John Forrer

• Herausgeber: John Wiley & Sons
• Kategorie: Fachliteratur
• Serie: Bryson Series in Public and Nonprofit Management
• Sprache: Englisch

Seitenzahl: 627

Veröffentlichungsjahr: 2014

Beschreibung

A comprehensive guide to public sector collaboration with private and nonprofit organizations for better service delivery Governing Cross-Sector Collaboration tackles the issues inherent in partnerships with nongovernmental actors for public service delivery, highlighting the choices available and the accompanying challenges and opportunities that arise. Based on research, interviews with public, private and nonprofit sector leaders, and considerable analysis of organizations involved in public-private-nonprofit collaborations, the book provides insight into cross-sector collaboration at the global, federal, state, and local levels. Through an examination of the primary modes of cross-sector collaboration, including collaborative contracting, partnerships, networks, and independent public services providers, the book presents a clear case for how public managers can assess the trade-offs and use these options to improve public service delivery. Nonprofit organizations, businesses, and third-party contractors are increasingly partnering with government to deliver public services. Recognizing the types of collaborative approaches, and their potential to solve public policy problems is quickly becoming a major task for public managers, with new methods and techniques constantly emerging. Governing Cross-Sector Collaboration provides specific examples and a framework for public managers to make strategic choices about how to engage private and nonprofit actors in delivering public goods and services while ensuring the public interest. The book provides effective methods for choosing, designing, governing, and evaluating networks, partnerships, and independent public-services providers, with in-depth discussion encompassing: * Analysis and engagement of cross-sector organizations * Fostering democratic accountability in the public interest * Collaborative approaches (including contracts, networks and partnerships) and the issues associated with each type of arrangement * Leadership and organizational learning in cross-sector collaboration Included case studies illustrate effective application of the concepts and methods described, providing both practicing public and nonprofit managers and public policy/administration students with insight into these emerging strategic alliances. The first comprehensive guide to public governance collaborations, Governing Cross-Sector Collaboration is an important and timely contribution to the field of public management.

Leseprobe

Contents

Acknowledgments

Foreword

Introduction

Part One: Choosing Cross-Sector Collaboration

Chapter One: Dimensions of Cross-Sector Collaboration

The Dilemma for Public Managers

The Cross-Sector Collaboration Imperative

The Complicated Organizational Environment

Cross-Sector Collaboration: Definition and Sector Roles

Emerging Choices for Public Managers

Considering the Choices

Conclusion

Notes

Chapter Two: The Rationale for Cross-Sector Collaboration

Pragmatic Rationale

Private and Nonprofit Perspectives

Economic Rationale: Competitive Advantage

A Strategic Approach to CSC

From a Principal-Agent to a Principal-Principal Relationship

The Governance Consequences of CSC

The Loss-of-Control Problem

Hollowed-Out Government

Conclusion: Addressing the Governance Challenges in CSC

Notes

Chapter Three: Contracting and Collaborating

Contracting

Moving toward Collaboration

The Public Manager and Successful Contracting

Traditional Contracting Illustration

Collaborative Contracting Illustration

Assessing the Advantages and Disadvantage of Contracting

Global Implications

Conclusion

Notes

Chapter Four: Cross-Sector Partnerships and Public-Private Partnerships

Types of Cross-Sector Partnerships

Common Aspects of Cross-Sector Partnerships

Rationales for Cross-Sector Partnerships

Issues of Working in Partnerships

The Public Manager and Successful Partnerships

Public-Private Partnerships for Infrastructure

Collaborative Practices in Context

Assessing the Advantages and Disadvantages of Cross-Sector Partnerships

Conclusion

Note

Chapter Five: Network Governance

Definitions

How Networks Facilitate Collaboration

The Public Manager and Successful Networks

Advantages and Disadvantages of Networks

Overcoming Challenges to Good Network Governance

Going Global

Conclusion

Chapter Six: Independent Public-Services Providers: A New Potential Collaborator

Defining Public Enterprise Organizations

The Growth of Quasi-Governmental and Hybrid Organizations

IPSPs and the Challenging Governance Environment

The Public Manager and IPSPs

Advantages and Disadvantages for Public Managers Working With IPSPs

Going Global

Conclusion

Chapter Seven: Analyzing Cross-Sector Collaboration Options

Case Studies

Nature of the Public Task or Challenge

Resource Needs and Capacity

Identification and Allocation of Risks

Best Value for the Public’s Dollars

Measuring Performance and Ensuring Accountability

Conclusion

Notes

Part Two: Managing Cross-Sector Collaboration

Chapter Eight: The Need for a New Model of Public Administration

Historic Origins of the Bureaucratic Model in US Public Administration

Reforming the Bureaucratic State

Alternative Approaches to Reframing Public Administration

Conclusion

Note

Chapter Nine: Leadership Implications in Cross-Sector Collaboration

Heterarchies and Hierarchies

Leadership in Heterarchical Structures

Implications for Practice: How to Adapt Leadership to CSCs

Conclusion

Chapter Ten: Fostering Democratic Accountability

CSCs and Accountability

Fostering Democratic Accountability in CSCs

Specific Accountability Issues for CSCs

Conclusion

Notes

Chapter Eleven: Developing Government Capacity for Cross-Sector Collaboration

Government Skills for PPPs

Government Skills for Network Management

Government Skills for IPSPs

Government Learning and CSC

Building Government Capacity for Collaboration: A Learning Framework

Conclusion: A Systems Approach to Learning

Chapter Twelve: The Future of Cross-Sector Collaboration

Evolving Nature of the Governance Challenge

Contributions to New Public Governance

CSC and Public Value

Moving Forward with CSC

Conclusion

References

The Authors

More from Wiley

Index

End User License Agreement

List of Illustrations

Figure 1.1 Global Carbon Dioxide Emissions, 1850–2030

Figure 1.2 Federal Government Spending Versus Federal Executive Branch Civilian Employment and Total US Population, 1948–2009

Figure 1.3 Sector Roles and Intersections

Figure 1.4 Cross-Sector Collaborative Arrangements

Figure 2.1 Levels of Integration in Collaboration

Figure 3.1 Elements of Contracts

Figure 4.1 Elements of Cross-Sector Partnerships

Figure 4.2 Systems Model of Partnership Formation

Figure 5.1 Modes of Network Governance

Figure 5.2 Elements of Network Governance

Figure 6.1 Independent Public-Services Providers Profile

Figure 6.2 IPSPs and Their Approach

Figure 6.3 Elements of IPSP Engagement

Figure 9.1 Comparing Structures of Hierarchy to Heterarchy

Figure 11.1 Framework of Learning in Cross-Sector Collaboration

Figure 12.1 Governance Evolution

List of Tables

Table 1.1 Characteristics of Approaches to Delivery of Public Goods and Services

Table 1.2 Transition Through the Five Basic Options

Table 2.1 Dimensions of Integration in CSC

Table 3.1 Traditional Contracting Versus Collaborative Contracting

Table 3.2 The Assessment Method: COMPARE

Table 4.1 Characteristics of Different Types of Partnerships

Table 4.2 Issues to Consider Prior to a Partnership

Table 4.3 PPPs Worldwide

Table 4.4 Outstanding World Bank PPP Projects

Table 7.1 Organizational Capacity Needs for Major or Complex Projects or Programs

Table 7.2 Illustrative Allocation of Risk in a PPP Infrastructure Project

Table 7.3 Comparison of CBA, CEA, and VfM

Table 7.4 Criteria for Evaluating Performance Measures

Table 8.1 Leadership and Management Concepts for Governing Cross-Sector Collaborations

Table 9.1 Comparing Public and Nonprofit Leadership Perspectives

Table 10.1 Democratic Accountability, the Public Interest, and Cross-Sector Collaboration

Table 12.1 Advantages and Disadvantages to Public Sector Use of CSC

Pages

iii

iv

v

ix

x

xi

xii

xiii

xiv

xix

xv

xvi

xvii

xviii

xx

xxi

1

2

3

4

5

6

7

8

9

10

11

12

13

14

15

16

17

18

19

20

21

22

23

24

25

26

27

28

29

30

31

32

33

34

35

36

37

38

39

40

41

42

43

44

45

46

47

48

49

50

51

52

53

54

55

56

57

58

59

60

61

62

63

64

65

66

67

68

69

70

71

72

73

74

75

76

77

78

79

80

81

82

83

84

85

86

87

88

89

90

91

92

93

94

95

96

97

98

99

100

101

102

103

104

105

106

107

108

109

110

111

112

113

114

115

116

117

118

119

120

121

122

123

124

125

126

127

128

129

130

131

132

133

134

135

136

137

138

139

140

141

142

143

144

145

146

147

148

149

150

151

152

153

154

155

156

157

158

159

160

161

162

163

164

165

166

167

168

169

170

171

172

173

174

175

176

177

178

179

180

181

182

183

184

185

186

187

188

189

190

191

192

193

194

195

196

197

198

199

200

201

202

203

204

205

206

207

208

209

210

211

212

213

214

215

216

217

218

219

220

221

222

223

224

225

226

227

228

229

230

231

232

233

234

235

236

237

238

239

240

241

242

243

244

245

246

247

248

249

250

251

252

253

254

255

256

257

258

259

260

261

262

263

264

265

266

267

268

269

270

271

272

273

274

275

276

277

278

279

280

281

282

283

284

285

286

287

288

289

290

291

292

293

294

295

296

297

298

299

300

301

302

303

304

305

306

307

308

309

310

311

312

317

318

319

320

321

322

323

324

325

326

327

328

329

330

331

332

333

334

335

336

337

338

339

340

341

342

343

344

345

346

347

348

349

350

351

352

353

354

355

356

357

358

359

Guide

Cover

Table of Contents

Begin Reading

This book includes premium content that can be accessed from our Web site when you register at www.josseybass.com/go/Forrer using the password professional.

Governing Cross-Sector Collaboration

John J. Forrer

James Edwin Kee

Eric Boyer

Cover design by Wiley

Cover image: © iStock.com/alex-mit

Copyright © 2014 by John Wiley & Sons, Inc. All rights reserved.

Published by Jossey-Bass

A Wiley Brand

One Montgomery Street, Suite 1200, San Francisco, CA 94104-4594—www.josseybass.com

No part of this publication may be reproduced, stored in a retrieval system, or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, scanning, or otherwise, except as permitted under Section 107 or 108 of the 1976 United States Copyright Act, without either the prior written permission of the publisher, or authorization through payment of the appropriate per-copy fee to the Copyright Clearance Center, Inc., 222 Rosewood Drive, Danvers, MA 01923, 978-750-8400, fax [phone], or on the Web at www.copyright.com. Requests to the publisher for permission should be addressed to the Permissions Department, John Wiley & Sons, Inc., 111 River Street, Hoboken, NJ 07030, 201-748-6011, fax [phone], or online at www.wiley.com/go/permissions.

Limit of Liability/Disclaimer of Warranty: While the publisher and authors have used their best efforts in preparing this book, they make no representations or warranties with respect to the accuracy or completeness of the contents of this book and specifically disclaim any implied warranties of merchantability or fitness for a particular purpose. No warranty may be created or extended by sales representatives or written sales materials. The advice and strategies contained herein may not be suitable for your situation. You should consult with a professional where appropriate. Neither the publisher nor authors shall be liable for any loss of profit or any other commercial damages, including but not limited to special, incidental, consequential, or other damages. Readers should be aware that Internet Web sites offered as citations and/or sources for further information may have changed or disappeared between the time this was written and when it is read.

Jossey-Bass books and products are available through most bookstores. To contact Jossey-Bass directly call our Customer Care Department within the U.S. at 800-956-7739, outside the U.S. at 317-572-3986, or fax [phone].

Wiley publishes in a variety of print and electronic formats and by print-on-demand. Some material included with standard print versions of this book may not be included in e-books or in print-on-demand. If this book refers to media such as a CD or DVD that is not included in the version you purchased, you may download this material at http://booksupport.wiley.com. For more information about Wiley products, visit www.wiley.com.

Library of Congress Cataloging-in-Publication Data

Forrer, John J.

Governing cross-sector collaboration / John Forrer, James (Jed) Kee, Eric Boyer.

1 online resource. — (Bryson series in public and nonprofit management)

Includes index.

Description based on print version record and CIP data provided by publisher; resource not viewed.

ISBN 978-1-118-84593-6 (pdf) — ISBN 978-1-118-84592-9 (epub) — ISBN 978-1-118-75969-1 (paperback)

1. Public-private sector cooperation. 2. Public administration. I. Kee, James Edwin.

II. Boyer, Eric, 1977– III. Title.

HD3871

352.5’38—dc23

2014017142

The Jossey-Bass Nonprofit Sector Series

ACKNOWLEDGMENTS

This book is the product of more than a quarter-century worth of teaching, writing, and thinking about cross-sector collaboration. We are indebted to our many colleagues and students who have informed our thinking on this topic, and it would be impossible to name everyone. However, there are a few individuals we want to especially mention and thank.

Eric Boyer joined the effort as a coauthor during our early stages of discussions with Jossey-Bass. He assumed the lead on several chapters and provided important insights and made contributions on theory and practice throughout the book. He expresses his appreciation to his parents, Paul and Susan Boyer, for their support and love.

George Washington University (GW) professor Katherine E. Newcomer, director of the Trachtenberg School of Public Policy and Public Administration, has supported the project throughout this process; she read and provided valuable comments on several draft chapters and was a coauthor on two foundational articles in Public Administration Review. GW Professor Emeritus Michael Harmon sharpened our thinking on the question of democratic accountability. Mike Worth, GW professor of nonprofit management, offered comments on leading in the nonprofit sector relative to cross-sector collaboration. Georgia Tech Professor Gordon Kingsley provided useful feedback on issues surrounding organizational learning and cross-sector collaboration.

We have benefited from the assistance of several graduate assistants. At GW, Lydia Vollmann assisted with research on accountability and bureaucracies related to gender and communications issues. Samuel Clements assisted with research on network governance. Ridhima Kapur assisted with research on independent public-services providers. Satoru Yasutani, a visiting scholar from Japan, worked with us on numerous issues concerning public-private partnerships. Georgia Tech graduate student Arindam Das provided background research on collaboration. Patti Niles provided invaluable administrative support.

We also thank the many individuals who agreed to be interviewed for this effort and especially recognize Admiral Thad W. Allen, USN, Ret., Ron Carlee, Lori Kaplan, Pat Stillman, and Sue Russell. Terry Kee provided insights into organizational issues with independent public-services providers. We are very appreciative of several anonymous reviewers who examined the manuscript at various stages of its completion. They gave us valuable suggestions and advice as to both the content and organization of the book.

Professor John Bryson and Jossey-Bass editor Alison Hankey were strong supporters of the book and pushed us to broaden our topic to include all cross-sector collaborations. We appreciate the staff and editors of Jossey-Bass for their many suggestions and improvements of the manuscript.

Finally, we express appreciation to our spouses, Sharon Forrer and Suzanne Erlon Kee, who supported us with patience and love throughout the process. We dedicate this book to them.

Washington, DC

April 2014

John J. Forrer

James Edwin (Jed) Kee

FOREWORD

Society is indeed a complex system of interdependencies that we describe as different sectors—public, private, and nonprofit. As we live our lives, we are generally oblivious to the different sectors. We may, for example, have a notion that the government is somehow involved with trash collection, even though a private company collects it from our homes and takes the trash to wherever it goes. Yet we are mostly oblivious about how this simple service, which we take for granted, is managed and influenced by the different sectors: local, state, and federal governments; private haulers; public and private disposal providers; nonprofit environmental organizations; and others.

Nothing is simple. No aspect of modern society is the domain of any single sector. None.

Governing Cross-Sector Collaboration addresses the reality of today’s interconnected society. The delineation of the different collaborative approaches in this book is illustrative, not definitive. As the authors write, the five “choices” they discuss “can be viewed as evolutionary.” The authors do not claim “that these five options cover all possibilities”; they represent basic models. Thus, readers are encouraged to assess the different approaches critically and explore variations. Contracting, partnering, and networking will converge in unique and, it is hoped, creatively effective ways from one community to another. This book provides the valuable foundation on which creative cross-sector problem solving can occur.

While the book is targeted to public administration, it should be read across all disciplines, and not just the obvious ones of business administration and nonprofit management. Engineering, planning, health care, law, and a host of other professions are all part of and affected by our connected society. The leadership skills discussed in Governing Cross-Sector Collaboration are also not just for senior managers. Professionals at all levels of organizations are required to generate support from others, lead outside their formal roles, understand the wider system, and build trust—the four essential leadership skills that the authors discuss. In fact, collaboration occurs meaningfully and effectively only when people at all levels of our organizations understand, value, and nurture working together across organizational boundaries.

Consider my own field of city management. Local government does not exist solely for the purpose of providing services that cannot be efficiently or profitably provided by the private sector. Local governments serve a larger purpose. While the vision statements of cities vary, they essentially come down to the vision of creating great places where people can live, work, and play. Such places offer economic opportunity, excellent education, and safe and healthy environments. These societal characteristics cannot be provided by a single sector working in isolation. Can business in isolation provide economic opportunity? Can the board of education in isolation ensure that all students succeed? Can the police department in isolation make neighborhoods safe? And into what silo could community health possibly be placed?

It is not enough to be a good manager of the services that one’s organization provides. Organizational leaders across all sectors must be concerned with the boundary-spanning activities discussed in Governing Cross-Sector Collaboration. Not only must leaders themselves see the wider system, we must proactively work to help others see the wider system and the ways in which our futures are all inextricably connected.

Jed Kee confronted these issues early in his career as a public practitioner and has studied them extensively over the years as an academic. The result is a book that is not abstract but of practical utility. Kee’s perspective is also guided by his deep sense of shared responsibility for the public good. John Forrer brings a global business perspective to the project, and Eric Boyer brings the perspective of the current generation on public administration. The result is a book with actionable principles, illustrated by numerous examples from the field.

James Schwartz of the Arlington County Fire and Rescue Department was the incident commander for the initial response to the terrorist attack on the Pentagon on 9/11. He notes that in relation to emergency responses, people often ask, “Who is in charge?” Jim says that this is the wrong question. The real question is, “Who is in charge of what?” This is true for all that we do as a society. No one is or can be in charge of society or any major piece of it. Each sector and each organization has a role and a responsibility to the whole. Achieving effectiveness—livable communities where people can thrive and pursue their hopes and dreams—ultimately depends on the extent to which organizations can collaborate across sectors with a shared understanding of our connected relationships and connected future. Governing Cross-Sector Collaboration helps move us toward this goal.

Charlotte, North Carolina

May 2014

Ron Carlee, DPA

City Manager

INTRODUCTION

Today’s twenty-first-century public leaders and managers are increasingly involved in cross-sector collaborations (CSCs)—a transformation of public governance as important as the one that began over a century ago. In the late nineteenth and early twentieth century, the United States evolved from a nation of small governments, largely managed through patronage, to a large public sector, run by professional civil servants. This increase in professionalism led to the development of schools of public administration and public policy, the creation of the senior executive service at the federal level of government, and the development of a bureaucratic model of management and accountability that until recently has gone unchallenged. A similar public sector development also occurred internationally, especially in Western nations.

Beginning in the 1980s, however, the traditional public administration orthodoxy was challenged in the United States and abroad. The challenge came from a mix of political and academic actors who felt that the public sector that had evolved by the 1980s was inefficient, oversized, and unresponsive. They argued for more private sector involvement and innovation in the delivery of public goods and services and the unfettering of the public sector bureaucracy to become more flexible and innovative. The debate over the wisdom of this movement, often labeled the New Public Management, continues. The reality, however, is that the public enterprise of today increasingly relies on third parties (states, private firms, and nonprofit organizations) to deliver services to the American public (Salamon 2002).