Special issue blog series on strategic management of the transition to public sector co-creation
Jacob Torfing, Ewan Ferlie, Tina Jukić and Edoardo Ongaro
During the 1980s and early 1990s, we were consistently told that the public sector was ossified, incompetent and unimaginative, and squandered value produced by the hard-working and innovative private sector. Government was the problem, not the solution, and we should therefore have less state and more market. The neoliberal onslaught on the public sector had begun and public employees gradually developed an inferiority complex.
Involving people in policy-making is generally a good thing. Policy-makers themselves often pay at least lip-service to the importance of giving citizens a say. In the academic literature, participatory governance has been, with some exaggeration, almost universally hailed as a panacea to all ills in Western democracies. In particular, it is advocated as a way to remedy the alienation of voters from politicians who seem to be oblivious to the concerns of the common man and woman, with an ensuing decline in public trust in government. Representation by political parties is ridden with problems, so the argument goes, and in any case it is overly focused on the act of voting in elections – a one-off event once every few years which limits citizens’ ability to control the policy agenda. On the other hand, various forms of public participation are expected to educate citizens, help develop a civic culture, and boost the legitimacy of decision-making. Consequently, practices to ensure that citizens can provide direct input into policy-making are to be welcomed on both pragmatic and normative grounds. Continue reading How not to conduct a consultation – and why asking the public is not always such a great idea→
Complexity theorists talk about “networks of networks.” Engineers talk of “systems of systems.” My article in Policy & Politics is essentially about “collaborations of collaborations.”
Large-scale efforts to address multi-faceted problems that mobilize many independent stakeholders often take the form of compound collaborations. The collaborative Everglades Restoration Program in the U.S. includes over 80 restoration projects, each requiring collaboration. The Intergovernmental Panel on Climate Change is a complex effort aggregating the outputs of thousands of scientists collaborating in different tasks forces and working groups. And UNAIDS, the Stop TB Partnership, and the Roll Back Malaria Partnership–the subjects of my article–are international collaborations of national collaborations to halt the spread of major global diseases.
Our stock of knowledge about collaborative governance has grown significantly in the past decade. But we still know relatively little about the leadership and organizational challenges faced by large-scale Continue reading Compound Collaboration→
by David Sweeting, Associate Editor, Policy & Politics
A truly international edition of Policy & Politics is now available electronically and in print. Comprising authors based in Europe, the US, Australia, Hong Kong, and Brazil, the contributions in this Special Issue illuminate issues pertaining to collaboration and networks, all under the banner of ‘scale and scaling of interactive governance’. Edited by Chris Ansell and Jacob Torfing – both plenary speakers at the 2014 Policy & Politics conference – the contributions in the volume individually and collectively live up to the journal’s aim to advance knowledge in social and public policy.
by Tessa Coombes, guest blogger for P&P conference
In the afternoon plenary session on the first day of the Policy & Politics conference, Prof. Dr. Erik-Hans Klijn, Erasmus University Rotterdam, explored the tension between front stage (world of media and politics) and back stage (world of complex networks) using his own work to take us through the tensions that exist and how public managers can cope with those tensions. He reminded us that – modern governance is more about managing processes than anything else and there are no easy answers to complex governance problems.
Governance networks (back stage) were described as being characterised by complexity; complexity of decision-making and of resource dependency, with many different actors involved in activity where it takes time and dedication to achieve good performance. In this sense, it is managerial effort that makes the difference with modern governance more about management than politics and where hard work is needed because there are no easy solutions. Whilst this may well be true, I think there are many politicians out there who may just disagree with the comment about management!
In the world of politics and media (front stage), complexity comes from interaction and activity, with politicians reacting daily to events and constant media attention which is both short term and immediate. It’s a different world dominated by media logic, where branding and image are increasingly ‘centre-stage’ and used more frequently because people can relate to them.
These different worlds, operating together, generate a number of tensions:
complex multi-faced problems and solutions versus simple communications
connective leadership versus personalised strong profile
long-term oriented dedication versus short-term visibility
trust building versus conflict framing
Public managers therefore face huge challenges to combine ‘front’ and ‘back’ stage, where there is more focus on emotions, more use of branding and more network management. Erik-Hans concluded by emphasising that these tensions will remain and potentially increase, because the tendencies that fuel them will remain in place.
One of the interesting points I’ll take away from the discussion is definitely the one about branding, and how important this become in our society, but with a reminder that perhaps this should relate not just to ‘selling’ but also to identity, value processes and commitment.
Tessa Coombes has recently completed the MSc in Public Policy at Bristol University, is a former Bristol City Councillor and regularly blogs about policy, politics, and place.
by Tessa Coombes, guest blogger for P&P conference
Collaborative governance: why, when and how? That was the question posed by Prof Chris Ansell, University of California, in the opening presentation to the Policy & Politics Conference 2014. Chris described himself as a ‘nervous fan’ of collaborative governance when used as an alternative to a more adversarial system. He discussed the need to be careful that we don’t over sell the concept and don’t use it as a generic strategy to do everything – wise words indeed.
So, what do we mean by collaborative governance? The definition offered by Prof Ansell was as follows:
‘Collaborative governance is a governing arrangement where public or private stakeholders engage in a multi-lateral decision making process, that is formal, consensus-oriented and deliberative, that aims to directly make or implement policy or manage programmes or assets.’
We were then taken through a discussion about why, when and how we should use collaborative governance:
The ‘why’ question was about managing conflict more fruitfully, creating collaboration amongst stakeholders and looking at real issues or problems. A process of taking us away from adversarial politics and into a more engaged and cooperative approach to governance.
The ‘when’ question focused on three fairly obvious conditions, including when resources are available, when discretion exists to enable participation and when joint processes of negotiation are necessary. A further three conditions were identified as potentially more restrictive and included, where the trade off between risk and gains is worth it, where there is positive mutual interdependence amongst stakeholders and where the process for collaboration is fair, inclusive and unique.
The ‘how’ question was about a facilitated social learning process. This process is about leadership and stakeholders learning from each other through an iterative process. It involves five stages from face-to-face discussions and trust building, to gaining commitment and joint ownership of the process and finally to intermediate outcomes. One of the key points here is why stakeholders come to the table, often for very different reasons and potentially even when they are not committed to collaboration, but at least they do participate.
One of the interesting issues to come out of the examples used by Chris, was why do people engage and what motivates stakeholders to take part in collaboration? Which is where issues about trust building and face-to-face engagement help to break down traditional barriers and potentially reduce tensions between stakeholders. But it’s also where it becomes clear that different stakeholders enter the discussion with different levels of advantage or disadvantage. Some groups are very organised, others less so, some have resources to draw on, whilst others don’t. It’s also the case that some may engage for negative reasons and may not be fully committed to the idea of a collaborative process, coming to the table with more of a watching brief.
One of the questions from the audience focused on why stakeholders engage and how their involvement is perceived by others. This was a particular issue for environmental groups where they are often accused of ‘selling out’ by involvement and collaboration rather than the more usual route of adversarial politics. For environmental stakeholders and lobbyists this often requires a delicate balance of assessing risks against the potential benefits of participation.
Another important question was about the key role of the facilitator – should this be someone with local knowledge, but who may also have a particular position to defend, or should it be an independent professional mediator brought in as a neutral facilitator, or can you use both? A critical point as facilitation is clearly crucial to the success of collaborative processes.
A further question was raised about how you measure and define success if the goals are not agreed at the beginning. Success has to be seen as more than merely yielding a group of happy stakeholders at the end of the process.
For me the key lesson was about how we use collaborative governance, mostly as a productive approach to sorting out political conflict, rather than as an answer to everything. A measured approach that which starts with thinking about what collaboration can achieve and when best to use it.
Tessa Coombes has just completed the MSc in Public Policy at Bristol University, is a former Bristol City Councillor and regularly blogs about policy, politics, and place.