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“Morris Bosin’s extensively researched Governance in the 21st Century is an amazing, in-depth analysis of the dynamical challenges facing all of us. He explores the new roles for leaders, the challenges of bound- ary management, and the need to develop new thinking. He uses the ideas of requisite variety, complexity, and reflexivity to integrate all the myriad of ideas into a framework for the governance processes to engage the future successfully. Congratulations on this fine work.” Richard N. Knowles, Ph.D. “Morris Bosin’s book, Governance in the 21st Century, is an important step forward in using ideas from systems theory and cybernetics to understand the governance process. I like that he uses the three ideas – requisite variety, complexity, and reflexivity. These ideas are now widely known in the systems and cybernetics community but are not yet well known among managers and public administrators. His explanation of these ideas along with examples from several government agencies is a very important contribution. Thank you for writing the book.” Stuart A. Umpleby, Professor Emeritus, Department of Management, George Washington University “Making the important distinction between administration and governance, Dr. Bosin examines and broadens the definition of governance and its role in today’s society. Combining three important concepts from cybernetics, law of requisite variety, complexity, and reflexivity, into an integrated approach allows for a new understanding of the requirements of governance. The case studies provide the needed examples of how this approach can be applied to real world scenarios. An excellent contribution to the study of governance.” Valarie C. Lamont, Ph.D. “Morris Bosin’s focus on requisite variety, complex adaptive systems, and reflexivity as applied to governmental actions would have been invalu- able to us at Commerce’s Office of Program Evaluation and at Al Gore’s National Performance Review – and today throughout the Government Accountability Office, especially GAO’s Duplication and Cost Savings reports. Wherever and whenever any governmental body reviews situa- tions perhaps needing intervention, considers taking action, or evaluates similar efforts at home or abroad, this book needs to be at hand – not only for in depth looks at requisite variety, complex adaptive systems, and reflexivity, but also for the overall perspectives provided.” Robert Knisely, Former Advisor on Vice President Gore’s ‘Reinventing Government’ Initiative Governance in the 21st Century In Governance in the 21st Century, Morris Bosin offers an integrated approach in addressing real world governance challenges. Divided into four broad parts, Bosin begins in Part 1 by introduc- ing the nature of governance, its use in the public and private sector, and at different levels in our society. Part 2 covers traditional and emerging approaches to governance and reviews the various epistemological roots that frame our understanding of governance approaches. Part 3 includes a detailed discussion of the three components of his proposed approach to an expanded view of governance – requisite variety, complexity, and reflexivity. Part 4 illustrates the application of this approach through the use of case studies targeted at selected Federal agencies as well as at specific societal issues including the FDA’s Drug Review Program, Bureau of Indian Education Program, U.S. Customs and Border Protection, COVID 19, and Police Department Strategies. Crossing traditional disciplinary lines, Bosin’s integrated approach will guide the academic community as well as practitioners toward a more holistic view of governance and offer generic solutions that can be adapted to any number of issues that portend transformational change for society. Morris Bosin is adjunct professor at the University of Maryland Global Campus and a part-time consultant working with various Federal agencies. He has also served in various managerial and executive positions in a number of Federal agencies during a 40 year career in government. Routledge Research in Public Administration and Public Policy Policy Making and Southern Distinctiveness John C. Morris, Martin K. Mayer, Robert C. Kenter & R. Bruce Anderson The Effects of Technology and Institutions on E-Participation A Cross-National Analysis Pragati Rawat & John C. Morris A Guidebook for City and County Managers Meeting Today’s Challenges James M. Bourey Modern Weights and Measures Regulation in the United States A Brief History Craig A. Leisy COVID-19 Pandemic, Public Policy, and Institutions in India Issues of Labour, Income, and Human Development Edited by Indranil De, Soumyadip Chattopadhyay, Hippu Salk Kristle Nathan, and Kingshuk Sarkar Governance in the 21st Century An Expanded View Morris Bosin Behavioural Public Policy in Australia How an Idea Became Practice Sarah Ball For more information about this series, please visit: www.routledge. com/Routledge-Research-in-Public-Administration-and-Public-Policy/ book-series/RRPAPP Governance in the 21st Century An Expanded View Morris Bosin First published 2023 by Routledge 605 Third Avenue, New York, NY 10158 and by Routledge 4 Park Square, Milton Park, Abingdon, Oxon, OX14 4RN Routledge is an imprint of the Taylor & Francis Group, an informa business © 2023 Morris Bosin The right of Morris Bosin to be identified as author of this work has been asserted in accordance with sections 77 and 78 of the Copyright, Designs and Patents Act 1988. All rights reserved. No part of this book may be reprinted or reproduced or utilised in any form or by any electronic, mechanical, or other means, now known or hereafter invented, including photocopying and recording, or in any information storage or retrieval system, without permission in writing from the publishers. Trademark notice: Product or corporate names may be trademarks or registered trademarks, and are used only for identification and explanation without intent to infringe. Library of Congress Cataloging-in-Publication Data A catalog record for this title has been requested ISBN: 978-1-032-21948-6 (hbk) ISBN: 978-1-032-22389-6 (pbk) ISBN: 978-1-003-27237-3 (ebk) DOI: 10.4324/9781003272373 Typeset in Times New Roman by KnowledgeWorks Global Ltd. Contents List of Figures ix List of Tables x PART 1 1 1 Purpose of Text 3 2 Governance Defined 8 PART 2 13 3 Epistemological Paradigms 15 4 The Range of Governance Approaches 23 PART 3 43 5 Requisite Variety 45 6 Complexity 58 7 Reflexivity 114 8 The Integrated Governance Concept 157 PART 4 161 9 U.S. Food and Drug Administration’s Drug Review Program 163 10 Indian Affairs – Bureau of Indian Education 171 viii Contents 11 U.S. Customs and Border Protection 178 12 Integrating the Governance Concepts – Crosscutting Challenges 200 Index 220 Figures 1.1 Integrating reflexivity, requisite variety, and complexity 6 2.1 Three perspectives on enhanced governance 9 2.2 Governance as management, learning, and reflection 11 4.1 Iron triangle 32 5.1 Three key steps in establishing requisite variety – scoping, modeling, strategizing 47 5.2 Additional considerations that impact the design of the regulatory model 50 6.1 Leadership roles in complex adaptive systems 107 7.1 Relationship among interpretive modes 148 7.2 The feedback loop connecting cognition, action, and outcome 153 11.1 Immigration as a Complex Adaptive System 186 11.2 Factors affecting immigration status in the United States 187 11.3 Two perspectives on the border wall issue 197