analytic and managerial challenges of collaborative governance john d. donahue june 22, 2009
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Analytic and Managerial Challenges of Collaborative GovernanceJohn D. Donahue
June 22, 2009
Sequence
Definitions and distinctions Spectrum of public-private delivery models Differentiate by allocation of discretion
Generic advantages and risks Examine selected examples Analytical and management imperatives
Mostly drawn from…
Donahue, The Warping of Government Work (Harvard University Press, 2008)
Donahue and Richard J. Zeckhauser, Leverage: Public Goals, Private Roles (in progress)
Context
Shift toward complicated public missions that invite or require private engagements
Relative erosion in governmental capacityFinancial and (especially)Personnel
Maturation of institutional and technological infrastructure
Mid-20th Century Model
Dominance of Central State Direct Governmental Action Elite Public Service
Diffusion of Governance
For-Profit Public Non-Profit
Supranational
Trans-National Corporations
Inter-Governmental
Organizations
Non-Governmental
Organizations
National
National Corporations
20th Century Model
x
National Non-Profits
Subnational
Local Businesses
State/Local Government
Local Groups
Purchased Services Relative to Employee Compensation, U.S. Government, All Levels, 1930-2005
0%
10%
20%
30%
40%
50%
60%
1930 1940 1950 1960 1970 1980 1990 2000Source: BEA, NIPA Table3.10.5
1/27/2006
SKILLS
PAY
government (then and now)
private economy (then)
private economy (now)
Mid-20th Century Model
Dominance of Central State Direct Governmental Action Elite Public Service
Emerging 21st-Century Model Erosion of Central State Relative to
Supranational and Sub-national Authority
Shift from Direct to Mediated Governmental Action
Greater Role for Private Agents (both for-profit and not-for-profit)
Chronic Public-Sector Talent Shortages
Narrow the Focus: Public-to-Private Diffusion
For-Profit Public Non-Profit
National Corporations
National Non-Profits
Local Businesses
20th Century Model
x
Local Non-Profits
Enlarged Role for Private Agents
Relative to Mid-20th Century Model Return to Historical Norm
Roman Tax AdministrationMercenariesBritish East India Company, other
hybrids
Rationales for Delegating Public Responsibilities to Private Agents
Limits to making government itself more “business-like”
“Extensive” versus “intensive” accountability
Rationales for Delegating Public Responsibilities to Private Agents
Resources Competence Information Legitimacy
Generic Risks of Delegating Public Responsibilities to Private Agents
Diluted Control Financial Exploitation Reputation Vulnerability Diminished Capacity
Architecture of Agency Relationships: Spectrum of Discretion Government Holds Most Discretion =
Outsourcing, Other Contractual or Quasi-Contractual Relationships
Private Players Hold Most Discretion = Philanthropy, Voluntarism, Corporate Social Responsibility
Shared Discretion = Collaborative Governance
“Collaborative Governance”
Not new, not rarebut under-analyzed relative to importance
Shared discretion as defining featuremiddle ground between contract and
philanthropy Broad potential for flexibility, precision Strategic complexity Multiple forms of failure
Forms of Discretion
Production DiscretionMain rationale for collaboration (rather
than direct delivery or contracting) Payoff Discretion and Preference
DiscretionCostly or risky (from government’s
perspective)Often entangled with production
discretion
x*
Point where benefits start to fall
Benefits
Production Discretion
Point of best balance between benefits and costs of discretion
Production Discretion Boosts Benefits (Up To a Point)
x*
Payoff Discretion
Production Discretion
Payoff Discretion as Unwelcome Fellow Traveler of Production Discretion
y*
Generic Challenge of Collaboration
Design delivery models and Select and motivate collaborators To maximize gains from production
discretion Net of losses from payoff/preference
discretion
Resource-Based Collaboration
Common motive, visible category Central Example: New York City
Parks PartnershipsAdditional Examples to Discuss if Time
and Interest: FDA and Pharmaceutical Industry under PDUFA; Statue of Liberty Foundation
Productivity-Based Collaboration
Strongest theoretical case for collaboration
Central Example: Charter School Movement
Secondary Examples to Discuss if Time and Interest: Vaccine development and production, Space Shuttle operations
Information-Based Collaboration
Central Examples:
Infrastructure Security
Job Training
Secondary examples to discuss if time and interest: Securities rating; Management-based regulation
Legitimacy-Based Collaboration
Central Example: US Hospital Accreditation
Secondary example to discuss if time and interest: Federal Student Loan debate
Public Managerial Tasks of Distributed Governance
Appraisal Analysis Assignment Architecture Assessment Adjustment
Note that these functions are:
Fundamentally analytical Complex and demanding, requiring
high-level talent for implementation, not just policy design
Indicators of the convergence of analytics and public management