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

229 Pages·2004·1.08 MB·English
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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

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Local governments do not stand alone -- they find themselves in new relationships not only with state and federal government, but often with a widening spectrum of other public and private organizations as well. The result of this re-forming of local governments calls for new collaborations and mana
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