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Executing Government Transformation Case Studies of Implementation Challenges Executing Government Transformation Case Studies of Implementation Challenges Lyndon B. Johnson School of Public Affairs The University of Texas at Austin Policy Research Project Report 164 Lyndon B. Johnson School of Public Affairs Policy Research Project Report Number 164 Executing Government Transformation: Case Studies of Implementation Challenges Project directed by Kevin M. Bacon Robert H. Wilson A report by the Policy Research Project on Executing Government Transformation 2008 The LBJ School of Public Affairs publishes a wide range of public policy issue titles. For order information and book availability call 512-471-4218 or write to: Office of Communications, Lyndon B. Johnson School of Public Affairs, The University of Texas at Austin, Box Y, Austin, TX 78713-8925. Information is also available online at www.utexas.edu/lbj/pubs/. Library of Congress Control No.: 2008930859 ISBN: 978-089940-777-7 ©2008 by The University of Texas at Austin All rights reserved. No part of this publication or any corresponding electronic text and/or images may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying, recording, or any information storage and retrieval system, without permission in writing from the publisher. Printed in the U.S.A. Cover design by Doug Marshall LBJ School Communications Office Policy Research Project Participants Students Luke Brennan, B.A. (Political Science and History), Tufts University Greg Campion, Major, U. S. Army, B.S. (Economics), United States Military Academy, West Point, NY Lawrence Crockett, B.A. (Latino and Caribbean Studies and Government), Dartmouth College Tom Czerwinski , B.A. (History), Emory University Andrew Farmer, B.A. (Biology), Texas A&M University, College Station Fritz Fitzpatrick, B.A. (Government), Cornell University Lori Gabbert, B.A. (Government), The University of Texas at Austin Jennifer A. Gorenstein, B.A. (Philosophy), Indiana University, Bloomington Julia B. Harvey, B.A. (English), Boston University Ashlynn Holman, B.S. (Chemical Engineering), University of Missouri – Columbia Colleen N. Kajfosz, B.A. (English), The University of Texas at Austin Brian L. Larson, B.A. (Economics), Trinity University Jason Modglin, B.S. (Political Science), Southwestern University, Georgetown, Texas Raenetta L. Nance, B.S. (Political Science), Texas A&M University, College Station Sherry Penson, B.A. (Economics), The University of Texas at Austin Frederick J. Thomas, B.S. (General Engineering), Ecole Centrale, Lille, France Colleen Tran, B.A. (Government), The University of Texas at Austin Lisa Wilson, B.A. (History), B.S. (Communication Studies), The University of Texas at Austin Robert C. Young, B.S.E. (Civil Engineering), Master’s of Engineering Management, Duke University i Project Directors Kevin M. Bacon, M.S., Visiting Professor, Lyndon B. Johnson School of Public Affairs, The University of Texas at Austin, former Vice President, IBM Business Consulting Services Robert H. Wilson, Ph.D., Associate Dean for Academic Affairs and Research and Mike Hogg Professor in Urban Policy, Lyndon B. Johnson School of Public Affairs, The University of Texas at Austin ii Table of Contents List of Tables .................................................................................................................... vii List of Figures.................................................................................................................... ix List of Acronyms ............................................................................................................... xi Foreword........................................................................................................................... xv Acknowledgments........................................................................................................... xvii Chapter 1. Introduction ........................................................................................................1 What is Implementation? .........................................................................................1 Research Methods....................................................................................................4 Structure...................................................................................................................4 Conclusion ...............................................................................................................5 Chapter 2. Case Study: Human Resource Outsourcing in Texas and Florida .....................7 Executive Summary.................................................................................................7 Introduction..............................................................................................................9 About Human Resources Outsourcing.....................................................................9 Florida’s People First System ................................................................................13 Texas AccessHR ....................................................................................................21 Project Implementation: Lessons Learned.............................................................30 Wrap-Up and Advice for Future Policymakers .....................................................36 Chapter 3. Case Study: Public-Private Partnerships for Highway Construction in Texas 49 Executive Summary...............................................................................................49 An Idea for Change................................................................................................50 Design: TxDOT and Texas Road Building in Transformation..............................57 Commitment Point: Passage of HB 3588, 78th Texas Legislature, 2003..............63 Implementation Challenges ...................................................................................64 Results....................................................................................................................73 Re-evaluation: Recommendations for Improved Implementation........................74 Conclusion .............................................................................................................78 Chapter 4. Case Study: Shining Light on Sunset...............................................................87 Executive Summary...............................................................................................87 Why is Sunset Important?......................................................................................88 iii Origin of the Sunset Process..................................................................................88 Sunset Across the United States ............................................................................90 How the Sunset Process Works in Texas...............................................................94 The Texas Two-Step: Sunset I and II ....................................................................99 Success in Texas ..................................................................................................109 Lessons on Redesigning Government from the Texas Sunset Commission........113 Where is Sunset Going?.......................................................................................116 Chapter 5. Case Study: The Texas and California Performance Reviews.......................127 Executive Summary.............................................................................................127 Introduction to Performance Reviews .................................................................129 The Texas Performance Review ..........................................................................131 The California Performance Review ...................................................................140 Five Factor Framework Implications...................................................................156 Chapter 6. Case Study: Government Redesign: Survival of the Fittest? .........................179 Natural Selection in Business and Government...................................................179 Modern Government Reform Initiatives..............................................................181 Policy Lifecycle and the Reform Process—The Question of Evaluation............184 Framework to Execute a Reform Effort Successfully .........................................186 A Framework for Policy Design and Re-Evaluation ...........................................201 Conclusion: Activating the Federal Gene Pool....................................................202 Chapter 7. Conclusion......................................................................................................205 Overview..............................................................................................................205 Next Steps ............................................................................................................205 Lessons.................................................................................................................206 Appendix A. General Literature Review .........................................................................209 Appendix B. Human Resource Outsourcing Bibliography.............................................237 Appendix C. Human Resource Outsourcing Literature Review.....................................247 Appendix D. Public-Private Partnerships Bibliography .................................................265
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