Public-Private Partnerships in Public Land Management
Total Page:16
File Type:pdf, Size:1020Kb
1 PLAYTIME PRESERVATION: PUBLIC-PRIVATE PARTNERSHIPS IN PUBLIC LAND MANAGEMENT A dissertation presented by Emily Mae Phillips Neal to The Department of Political Science In partial fulfillment of the requirements for the degree of Doctor of Philosophy in the field of Political Science Northeastern University Boston, Massachusetts January, 2010 2 PLAYTIME PRESERVATION: PUBLIC-PRIVATE PARTNERSHIPS IN PUBLIC LAND MANAGEMENT by Emily Mae Phillips Neal ABSTRACT OF DISSERTATION Submitted in partial fulfillment of the requirements for the degree of Doctor of Philosophy in Political Science in the Graduate School of Arts and Sciences of Northeastern University, January 2010 3 One of the enduring questions that have vexed public officials and private individuals in the United States as long as the country has existed concerns the way in which communities provide services to citizens, especially when those services are costly. What is the proper role of government in providing these services? A variety of this problem has plagued US parks officials and other managers of public land for as long as there has been land to manage. Should the government manage public land? If so, what activities should managers allow to take place there? How can the various uses of public parks be balanced against one another in a way that ensures the health and availability of this resource to future generations? Moreover, how can public managers finance these uses, given the declining availability of public funds? In recent years, public land managers have increasingly turned to the private sector to aid in the administration and management of public parks. The major aim of this study is to discover the conditions under which public-private partnerships for public land, public parks in particular, are effective in aiding in the provision of public recreation opportunities. This study considers partnerships between public land managers and the private sector in terms of their consistency with the broader aims of public land management. The effectiveness of public-private partnerships in managing public parks is assessed at the start-up, growth, and mature/institutionalized stages of partnership development. Partnership success is found to be contingent upon the availability of resources, both at the start-up and growth stages of development, the organizational environment in which the partnership operates, partner characteristics, the relationships between partners, and characteristics of the partnership organization. 4 ACKNOWLEDGEMENTS This dissertation has benefitted from the insights and guidance of many people, in particular, my dissertation committee. First, I would like to express my gratitude to my advisor, mentor, dissertation committee chair, and friend, Dr. Christopher J. Bosso. When I was a new graduate student in his ―Techniques of Policy Analysis‖ course, he instilled in me a passion for politics and public policy that has become a part of my life‘s pursuit. I started graduate school as a Master‘s student contemplating a Ph.D. Chris Bosso‘s excitement for and expertise in environmental policy was contagious – one semester of graduate school and I was hooked. Down the road, in his role as my dissertation committee chair, Chris guided me through the research and writing process, alternately cracking the whip and backing off as needed, for this sometimes-discouraged dissertation writer. On a more personal level, I should also thank Newton and Rosebud, the late housemates and cats of Chris Bosso and his wife, Marcia Goetch. Newton and Rosebud, 16-years-old at the time, provided me with comedic relief and love as I studied for my comprehensive exams while house-sitting for Chris and Marcia. Finally, Chris Bosso gave me some of the best advice I have ever received: ―If you can be happy that you got a Ph.D., even if you never use it professionally, you should go for it!‖ Well, here I am today, a professor in my own right, and I remain very, very glad that I earned this degree. I also wish to thank the other members of my dissertation committee, Dr. John H. Portz and Dr. Karl Haglund. Professor Portz was gracious enough to agree to serve as my second reader, later in the game than is usual. He brought his understanding of state and 5 local government as well as public policy and administration to bear on this dissertation. During the initial stages of the writing process, I kept finding myself lost in the woods of environmental politics. John Portz brought the larger perspective of state and local politics and public administration to the fore, which has only served to improve this piece of scholarship. Dr. Karl Haglund, of the Massachusetts Department of Conservation and Recreation served as my third reader and my connection to the practical side of public- private partnerships and their role in parks management. Through his insightful comments on dissertation chapters, Karl Haglund reminded me of one of the reasons why I study policy and politics – to develop a better understanding of what makes government work for people. I would like to extend a posthumous thank-you to the late Dr. David Soule, former assistant director of the Kitty and Michael Dukakis Center for Urban and Regional Policy at Northeastern University. Like Chris Bosso, David Soule was instrumental in cultivating my excitement for public policy and politics. I admired him as a scholar and as a person – David always advocated for good government and social justice. He initially agreed to serve as one of my dissertation committee members, but he eventually succumbed to the often-insurmountable force that is cancer. I still miss him. I would also like to thank the administrative staff in the Department of Political Science at Northeastern University. Barbara Chin, Janet-Louise Joseph, and Lyle Ring deserve special thanks for listening to me and putting up with my demands on their administrative skills. 6 I could not have completed this dissertation without the love and support of my fellow graduate students. In particular, I would like to thank Jason Devine, Pete Richardson, Chris Chanyasulkit, Allison Uzdella, and Kristen Hudak. You all were there for the good times, the bad times, and even for the beer times. Thanks especially to Chris, Allison, and Kristen who came to a summertime dissertation defense – despite busy schedules – and provided moral support. Thanks to the graduate students who went before me, particularly Dr. Rachel Ellett, who showed me that there is, indeed, light at the end of the tunnel. Lastly, I want to thank the newest crop of Political Science graduate students for helping me to realize it was time to go. I want to thank my parents, Mom, Dad, and Judy. The three of you taught me that learning is a life-long process. We are never ―done‖ – we can always do more, learn more, be more. Mom thank you for teaching me that we all are human beings, despite the fact that ideology can serve to divide us. It is through crucial conversation that we learn to appreciate and perhaps even understand one another. Thank you Dad, former journalist-turned-social activist. You taught me that the best questions are the tough questions and that one should always, always, be in search of answers. Thank you Judy for showing me that life requires balance. Sometimes our work makes great demands of us, but life is so much more than that. We are at our best when we are working together, for each other. Thanks to my wonderful brother and two wonderful sisters. David and Kate, you have reminded me, through the pursuit of your own dreams in the world of dance, that we should let nothing and no one diminish our passion, commitment, and focus. Olivia, you 7 have shown me that there are many paths to learning. Your steadfast determination and your success at school and other endeavors inspire me to be a better teacher, professor, and mentor. Thanks also go to my best friends Rita C. Economos, Elizabeth H. Burrows, and Rowena I. Davis. Since our days as undergraduates at Mount Holyoke College (and thank you, Mount Holyoke!), the three of you have been there, with love, support, and sometimes even with constructive criticism. Rita, I admire your ability to power through an academic experience that proved much less supportive than mine has been. Liz, your ability to be a first-rate scholar while simultaneously having a life is astonishing – always make time to take a hike! Rowena, I know of no one with a better understanding of the craft of writing than you. I wish my writing came close; it doesn‘t. Most of all, I want to thank James Mathew Crowley, sounding board, proof- reader, breakfast-maker, cat-claw-clipper, husband, and best friend. Jim, I love you. Thank you for supporting me emotionally and financially while I worked on this Ph.D. Thank you for toasting me when I was feeling triumphant and hugging me when I was feeling dejected. Thank you for making me laugh. Thank you for taking out the recycling. Thank you for being a fellow Star Trek nerd – there‘s no escapism like the future! And, just for you, as promised, I am totally thanking Star Trek in this dissertation. To the late Gene Roddenberry – thank you. ―Infinite diversity in infinite combination.‖ Indeed. 8 TABLE OF CONTENTS Abstract 2 Acknowledgements 4 Table of Contents 8 List of Tables and Figures 9 Chapter 1: Introduction 10 Chapter 2: Public-Private Partnerships Reviewed 42 Chapter 3: The Case of the Boston Harbor Islands National Recreation Area 88 Chapter 4: The Case of the Riverside Park Fund 124 Chapter 5: Comparing and Evaluating the Cases 165 Chapter 6: Conclusion 246 References 268 9 LIST OF TABLES AND FIGURES Tables Table 2.1: 67 Table 5.1: 185 Table 5.2: 200 Table 5.3: 214 Table 5.4: 226 Table 5.5: 241 Table 6.1: 256 Figures Figure 2.1: 72 10 Chapter 1 Introduction Glamis, California.