Collaborative Public Management: New Strategies for Local Governments (American Governance and Public Policy series)

229 Pages·2004·1.08 MB·English

by  Robert Agranoff

Collaborative Public
Management
..........................9788$$ $$FM 01-07-0307:47:13 PS
AmericanGovernanceandPublicPolicyseries
SeriesEditor:BarryRabe,UniversityofMichigan
AfterDisaster:AgendaSetting,Public ImprovingGovernance:ANewLogicfor
Policy,andFocusingEvents EmpiricalResearch
ThomasBirkland LaurenceE.Lynn,Jr.,CarolynJ.
BudgetingEntitlements:ThePoliticsof Heinrich,andCarolynJ.Hill
FoodStamps Justice&Nature:KantianPhilosophy,
RonaldF.King EnvironmentalPolicy,andtheLaw
CollaborativePublicManagement:New JohnMartinGillroy
StrategiesforLocalGovernments LobbyingTogether:InterestGroupCoalitions
RobertAgranoffandMichaelMcGuire inLegislativePolitics
ConflictAmidConsensusinAmerican KevinW.Hula
TradePolicy PluralismbytheRules:Conflict
MarthaL.Gibson andCooperationinEnvironmental
ControllingTechnocracy:CitizenRationality Regulation
andtheNIMBYSyndrome EdwardP.Weber
GregoryE.McAvoy PolicyEntrepreneursandSchoolChoice
DamPolitics:RestoringAmerica’sRivers MichaelMintrom
WilliamR.Lowry ThePoliticalEconomyofSpecial-Purpose
ExpertAdviceforPolicyChoice:Analysis Government
andDiscourse KathrynA.Foster
DuncanMacRae,Jr.,andDale ThePoliticsofAutomobileInsuranceReform:
Whittington Ideas,Institutions,andPublicPolicyin
FederalismandEnvironmentalPolicy:Trust NorthAmerica
andthePoliticsofImplementation EdwardL.Lascher,Jr.
DeniseScheberle ThePoliticsofIdeasandtheSpreadof
FederalismintheForest:Nationalversus EnterpriseZones
StateNaturalResourcePolicy KarenMossberger
TomasM.Koontz ThePoliticsofUnfundedMandates:
FencedOff:TheSuburbanizationof WhitherFederalism?
AmericanPolitics PaulL.Posner
JulietF.Gainsborough PreservingPublicLandsfortheFuture:The
FromRevenueSharingtoDeficitSharing: PoliticsofIntergenerationalGoods
GeneralRevenueSharingandCities WilliamR.Lowry
BruceA.Wallin RethinkingHealthCarePolicy:TheNew
TheGovernmentTakethAway:ThePoliticsof PoliticsofStateRegulation
PainintheUnitedStatesandCanada RobertB.Hackey
LeslieA.PalandR.KentWeaver, TakingAim:TargetPopulationsandthe
Editors WarsonAIDSandDrugs
GreenPoliticsandGlobalTrade:NAFTAand MarkC.Donovan
theFutureofEnvironmentalPolitics TakingtheInitiative:LeadershipAgendas
JohnJ.Audley inCongressandthe‘‘Contractwith
HazardousWasteSitingandDemocratic America’’
Choice JohnB.Bader
DonMunton,Editor WelfarePolicymakingintheStates:TheDevil
HowGovernmentsPrivatize:ThePoliticsof inDevolution
DivestmentintheUnitedStatesandGermany PamelaWinston
MarkCassell
..........................9788$$ $$FM 01-07-0307:47:14 PS
Collaborative Public
Management
New Strategies for Local Governments
Robert Agranoff
and
Michael McGuire
GEORGETOWN UNIVERSITY PRESS / WASHINGTON, D.C.
..........................9788$$ $$FM 01-07-0307:47:14 PS
GeorgetownUniversityPress,Washington,D.C.
(cid:1)2003byGeorgetownUniversityPress.Allrightsreserved.
PrintedintheUnitedStatesofAmerica
10 9 8 7 6 5 4 3 2 1 2003
Thisvolumeisprintedonacid-freeoffsetbookpaper.
Portionsofthisbookhavebeenpublishedpreviously.Unlessnoted,theauthors
of each of the following journal articles are Robert Agranoff and Michael
McGuire.Partsofchapter3appearedas‘‘AmericanFederalismandtheSearchfor
Models of Management,’’ Public Administration Review 61 (November–December
2001):671–79(copyright2001byBlackwellScience,Ltd.;reprintedbypermission
ofBlackwellScience,Ltd.).Partsofchapter4havebeenpublishedin‘‘Expanding
IntergovernmentalManagement’sHiddenDimensions,’’AmericanReviewofPub-
licAdministration29,no.4(winter1999):352–69(copyright1999bySagePublica-
tions; reprinted by permission of Sage Publications, Inc.). Some of the data in
chapter 5 appeared in ‘‘Multinetwork Management: Collaboration and the Hol-
lowStateinLocalEconomicPolicy,’’JournalofPublicAdministrationResearchand
Theory 8 (January 1998): 67–91 (copyright 1998 by Transaction Publishers;
reprintedbypermissionofTransactionPublishers).Chapter6isbasedonMichael
McGuire’s ‘‘Collaborative Policy Making and Administration: The Operational
Demands of Local Economic Development,’’ Economic Development Quarterly 14,
no. 3 (2000): 276–91 (copyright 2000 by Sage Publications; reprinted by permis-
sionofSagePublications,Inc.).Portionsofchapter7haveappearedas‘‘BigQues-
tions in Public Network Management Research,’’ Journal of Public Administration
Research and Theory 11 (July 2001): 295–326 (copyright 2001 by Transaction Pub-
lishers;reprintedbypermissionofTransactionPublishers).
LibraryofCongressCataloging-in-PublicationData
Agranoff,Robert.
Collaborativepublicmanagement:newstrategiesfor
localgovernments/byRobertAgranoffandMichaelMcGuire.
p. cm.
Includesbibliographicalreferencesandindex.
ISBN0-87840-896-7(hardcover:alk.paper)
1.Localgovernment—UnitedStates. 2.Intergovernmental
cooperation—UnitedStates. 3.Public-privatesectorcooperation—
UnitedStates. I.McGuire,Michael,1964– . II. Title.
JS356 .A37 2003
352.14(cid:1)0973—dc21 2002014315
..........................9788$$ $$FM 01-07-0307:47:14 PS
CONTENTS
Preface vii
1 CollaborationattheCore 1
2 ManaginginanAgeofCollaboration 20
3 ModelsofCollaborative Management 43
4 Collaborative ActivityandStrategy 67
5 LinkagesinCollaborative Management 99
6 PolicyDesignandCollaborativeManagement 125
7 Jurisdiction-BasedManagement 152
8 TheFutureofPublicManagementandthe
ChallengeofCollaboration 175
Appendixes
A. SurveyDesignandAdministration 197
B. EconomicCharacteristicsoftheSampleCities 200
References 203
Index 215
v
..........................9788$$ CNTS 01-07-0307:58:30 PS

PREFACE
O
urconcerninthisbookiswiththeformidabletaskofdis-
sectingtheextentandnatureoftheprocesswherebypub-
licandnonpublicorganizationsworktogether.Theeraof
the manager’s cross-boundary interdependency challenge has
arrived, as has the world of working in the network of organiza-
tions. Public functions are no longer the exclusive domain of gov-
ernments. Many seemingly private domains, such as those of
business creation, are at the core of public-sector developmental
functions. The term ‘‘intergovernmental’’ has new meaning
beyond federal–state, state–local, and interlocal connotations, to
include quasi-governmental and myriad contractual, regulatory,
subventional, reciprocal, and other interactive relationships with
organizations outside the public sector. More needs to be known
about the core nature of collaborative management, the kinds of
collaborativeactivitiesthatexist,andwhatcanbediscoveredabout
theprocesses ofmanagingcollaboration.
This study attempts to go beyond the arguments about the
importance of interorganizational management by breaking it
down into its parts and sequences as well as to make suggestions
regarding how to manage the process. As such, the book can be
used as a research source by scholars, as well as a supplemental
text in many different areas, such as courses in intergovernmental
relations, managing networks, urban management, economic
development,andgeneralpublicmanagement.
Researching at the boundaries of governments and other orga-
nizations, career-long endeavors for the authors, requires a very
high level of tolerance for ambiguity. Some say it is a gift and oth-
ers say it is acquired; we don’t know, but we do know it is not for
everyone.Beingabletothink,talk,andwriteoutsidethehierarchy,
about transactions between formal entities, may be equivalent to
social psychologists looking at interpersonal interactions. The
studyofboundariesissometimesavoidedbecauseofalackofcon-
creteness. Clearly, in politics and administration, boundaries are
vii
..........................9788$$ PREF 01-07-0307:58:33 PS
viii / COLLABORATIVEPUBLICMANAGEMENT
harder tostudy than those withinan organization. Buttheir accel-
erating prominence means that they cannot be put aside as foci of
study.
Theempiricaldatabaseusedhereisbothquantitativeandqual-
itative, with a survey of cities and their collaborators’ interactions
in economic development. Though designed for this study by the
authors,itfollowsa1994economicdevelopmentsurveyconducted
by the International City/County Management Association
(ICMA), sampling respondents to that survey. For that assistance,
wethankBarbaraMooreandWoodyTalcoveofICMAforallowing
us to follow along their survey. The collaboration study itself was
initiallyfundedbytheAmeritechFoundationResearchProgramin
Management and Organizational Studies, Institute for Develop-
mental Strategies, Indiana University. For this support and for
their encouragement, we thank Charles Bonser and Daniel Knud-
sen of the institute. This large-scale study depended mightily on
theirbacking.
Portions of this book have appeared elsewhere in professional
journals,usuallywithdifferentdatadisplays,somewhatmorepre-
liminarydatainterpretations,andinmostcasesinattenuatedform
duetojournalspacelimitations.Thefullbibliographicinformation
for each of these journal articles is given on the copyright page.
Here, we simply give their titles. Parts of chapter 3 appeared as
‘‘American Federalism and the Search for Models of Manage-
ment.’’ Parts of chapter 4 have been published as ‘‘Expanding
Intergovernmental Management’s Hidden Dimensions.’’ Some of
the data in chapter 5 appeared in ‘‘Multinetwork Management:
Collaboration and the Hollow State in Local Economic Policy.’’
Chapter 6is basedon ‘‘CollaborativePolicy Makingand Adminis-
tration: The Operational Demands of Local Economic Develop-
ment.’’ Portions of chapter 7 have appeared as ‘‘Big Questions in
PublicNetworkManagementResearch.’’
This work on collaboration could not have been accomplished
without extensive collaboration. First and foremost are the prob-
lem-orientedjointlearningexperiencesofthetwoauthorsoverthe
years.Ourexchangeshavebeenonanequalplane,eachcontribut-
ing his strengths and filling in the weaknesses of the others.
Indeed, McGuire’s propensity to ‘‘crunch numbers’’ and in many
ways to represent the ‘‘new’’ and Agranoff’s ‘‘old’’ literature per-
spectivesandenjoymentof‘‘steppinginthemud’’inthefieldhave
..........................9788$$ PREF 01-07-0307:58:33 PS
Preface / ix
enriched our collaboration a great deal. But the real richness has
really come in the joint efforts of design, data collection, analysis,
interpretation, and writing. Together and regardless of age, we try
hard to develop the ‘‘dog tricks’’ necessary to experiment and
growinthismurkyfieldofstudy.
Many people have helped in the preparation of this study and
book.NoraWittstruck,AnnTillery,andDawnLenziewereinstru-
mental at various stages of data collection. We offer thanks to our
principal contacts in the field case studies: Paul Rasmussen in
Beloit, Susan Paddock in Cincinnati, Noreen Kuban in Garfield
Heights, Troy Feltman and Don Schurr in Ithaca, Gary Walton in
Salem,andTimCliftoninWoodstock.Threepeople,inadditionto
the anonymous reviewers for the various journal submissions and
forthisbook,readthemanuscriptindraftformandofferedhelpful
suggestionsatanearlystage:DaleKrane,LarryO’Toole,andBeryl
Radin. To the three go our profound thanks for tolerating a work
inprogress.Themanuscriptitselfandits manyversionswerepro-
duced by Monica Boyd at Indiana University and Dawn Lenzie at
theUniversityofNorthTexas,bothofwhomwereinvaluabletothe
finished product. We also give our thanks to Georgetown Univer-
sity Press editor Gail Grella and series editor Barry Rabe for their
supportandencouragementinbringingthisbooktotheirlist.
We would be remiss without acknowledging family support
and tolerance. The first author will never forget that Saturday, on
thefirsttriptoTexastoworkonthestudy,whentheMcGuireboys
were deeply disappointed as we left for the office to go to work.
Corey, for one, thought that ‘‘Bob’’ had come for the weekend to
play. Keenan, being the younger one, quickly followed suit and
looked equally peeved. There were many, many other such days
whenMichaelwentoffalonetocrunchnumbersandtowrite,leav-
ing his family to wonder how writing a book could possibly be
more important than playing baseball or watching a movie
together (which, of course, it is not). Most of all, we acknowledge
the patience and perseverance of our spouses, Susan Klein and
SharonMcGuire,whoweresupportiveinsomanyways.
..........................9788$$ PREF 01-07-0307:58:34 PS