THE NEW PUBLIC GOVERNANCE? ‘Stephen Osborne is to be congratulated for assembling an impressive array of contributors and producing a text which makes a major contribution to the debates about this emerging paradigm.’ Robert Pyper Glasgow Caledonian University, UK ‘This book showcases the best writing on “public governance”, bring- ing together new research in institutional analysis, policy dynamics, and government–society relationships. It provides a good balance of conceptual insights and empirical analysis grounded in the large changes evident in advanced countries in recent decades.’ Brian Head University of Queensland, Australia ‘This text, edited by Stephen Osborne, may do as much for critical insight to Europe’s public service delivery as the David Osborne and Ted Gaebler text on Reinventing Government did for the United States in the 1990s in refocusing the public sector for improvement.’ Dean F. Eitel DePaul University, USA Despite predictions that ‘new public management’ would establish itself as the new paradigm of Public Administration and Management, recent academic research has highlighted concerns about the intra-organizational focus and limitations of this approach. This book represents a comprehensive analysis of the state of the art of public management, examining and framing the debate in this important area. The New Public Governance? sets out to explore this emergent field of research and to present a framework with which to understand it. Divided into five parts, it examines: • Theoretical underpinnings of the concept of governance, especially compet- ing perspectives from Europe and the US • Governance of inter-organizational partnerships and contractual relationships • Governance of policy networks • Lessons learned and future directions Under the steely editorship of Stephen Osborne, and with contributions from leading academics including Owen Hughes, John M. Bryson, Don Kettl, Guy Peters and Carsten Greve, this book will be of particular interest to researchers and students of public administration, public management, public policy and public services management. Stephen P. Osborne is Professor of International Public Management and Director of the Centre for Public Services Research at the University of Edinburgh, UK. He is President of the International Research Society for Public Management (IRSPM) and Editor of Public Management Review (PMR). First published 2010 by Routledge 2 Park Square, Milton Park, Abingdon, Oxon OX14 4RN Simultaneously published in the USA and Canada by Routledge 270 Madison Ave, New York, NY 10016 Routledge is an imprint of the Taylor & Francis Group, an informa business This edition published in the Taylor & Francis e-Library, 2010. To purchase your own copy of this or any of Taylor & Francis or Routledge’s collection of thousands of eBooks please go to www.eBookstore.tandf.co.uk. © 2010 Stephen P. Osborne All rights reserved. No part of this book may be reprinted or reproduced or utilized 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. British Library Cataloguing in Publication Data A catalogue record for this book is available from the British Library Library of Congress Cataloging in Publication Data The new public governance? : emerging perspectives on the theory and practice of public governance / edited by Stephen P. Osborne. p. cm. Includes bibliographical references and index. 1. Public administration. 2. Public-private sector cooperation. 3. Organizational change. I. Osborne, Stephen P., 1953– JF1351.N44 2009 352.01–dc22 2009027964 ISBN 0-203-86168-X Master e-book ISBN ISBN10: 0-415-49462-1 (hbk) ISBN10: 0-415-49463-X (pbk) ISBN10: 0-203-86168-X (ebk) ISBN13: 978-0-415-49462-5 (hbk) ISBN13: 978-0-415-49463-2 (pbk) ISBN13: 978-0-203-86168-4 (ebk) IN LOVING MEMORY OF MY FATHER, FRANK OSBORNE CONTENTS List of tables x List of figures xi Contributors xiii 1 Introduction 1 The (New) Public Governance: a suitable case for treatment? STEPHEN P. OSBORNE PART I Theoretical perspectives on public governance 17 2 Global perspectives on governance 19 PATRICIA KENNETT 3 Meta-governance and public management 36 B. GUY PETERS 4 Innovations in governance 52 MARK MOORE AND JEAN HARTLEY 5 Governance and governability 72 JAN KOOIMAN 6 Does governance exist? 87 OWEN HUGHES 7 What endures? Public governance and the cycle of reform 105 LAURENCE E. LYNN, JR vii CONTENTS PART II Governance and interorganizational partnerships to deliver public services 125 8 Theory of organizational partnerships: partnership advantages, disadvantages and success factors 127 RONALD W. MCQUAID 9 Public–private partnerships and public governance challenges 149 CARSTEN GREVE AND GRAEME HODGE 10 Introducing the theory of collaborative advantage 163 SIV VANGEN AND CHRIS HUXHAM 11 Relationship marketing, relational capital and the governance of public services delivery 185 STEPHEN P. OSBORNE, KATE MCLAUGHLIN AND CELINE CHEW 12 Leading across frontiers: how visionary leaders integrate people, processes, structures and resources 200 BARBARA C. CROSBY, JOHN M. BRYSON AND MELISSA M. STONE 13 Public governance and the third sector: opportunities for co-production and innovation? 223 VICTOR PESTOFF AND TACO BRANDSEN PART III Governance of contractual relationships 237 14 Governance, contract management and public management 239 DONALD F. KETTL 15 Governance of outsourcing and contractual relationships 255 FEDERICA FARNETI, EMANUELE PADOVANI AND DAVID W. YOUNG 16 The governance of contracting relationships: “killing the golden goose” 270 A third-sector perspective STEVEN RATHGEB SMITH AND JUDITH SMYTH viii CONTENTS PART IV Governance of interorganizational networks 301 17 Trust in governance networks: looking for conditions for innovative solutions and outcomes 303 ERIK-HANS KLIJN 18 Implementation and managerial networking in the New Public Governance 322 LAURENCE J. O’TOOLE, JR, AND KENNETH J. MEIER 19 From new public management to networked community governance? Strategic local public service networks in England 337 STEVE MARTIN PART V Governance of policy networks 349 20 Policy networks: theory and practice 351 TOBIAS JUNG 21 Policy networks in practice: the debate on the future of Amsterdam Airport Schiphol 365 MENNO HUYS AND JOOP KOPPENJAN 22 Governance, networks and policy change: the case of cannabis in the United Kingdom 394 BEATRIZ ACEVEDO AND RICHARD COMMON 23 Conclusions 413 Public governance and public services delivery: a research agenda for the future STEPHEN P. OSBORNE Index 429 ix TABLES 1.1 Core elements of the NPG, in contrast to PA and the NPM 10 11.1 Commissioner–provider inter-relationships in public services provision (developed and adapted from the work of Ring and Van de Ven 1992: 490) 193 14.1 Presence of contractor personnel during US military operations 241 16.1 Impact of performance contracting on governance 283 16.2 Impact of external regulation on governance 288 16.3 Impact of competition on governance 292 22.1 Classification of illegal drugs in the United Kingdom, based on the Misuse of Drugs Act, 1971 400 22.2 Policy networks involved in the policy-making on cannabis in the United Kingdom 404 23.1 An exploratory model of the interaction of public policy implementation and public services delivery regimes and managerial practice 414 x FIGURES 2.1 Who gains? 30 2.2 Shift in voting power toward developing countries 30 10.1 Themes in collaboration practice 164 10.2 Aims in collaboration practice 165 10.3 The trust-building loop 168 10.4 Tensions in the management of culture 175 10.5 Examples of stances to giving knowledge (reprinted with permission from Blackwell Publishing from Huxham and Hibbert 2008) 179 10.6 Examples of stances to taking knowledge (reprinted with permission from Blackwell Publishing from Huxham and Hibbert 2008) 180 12.1 The triple three-dimensional view of power 202 12.2 A framework for understanding leadership in cross-sector collaborations 204 15.1 Public–private partnerships: the service delivery spectrum 257 15.2 The four governance models 257 15.3 A framework for assessing risk 262 15.4 Examples of outsourcing risk 263 15.5 Outsourcing risk and the Four-governance Model 264 21.1 Spatial situation Schiphol region 2006 370 21.2 The new Schiphol policy arena (at the centre) with actors from three different networks 373 21.3 Schiphol policy arena anno 1997 with Schiphol growth coalition (left) and environmental coalition (right) 377 21.4 Mismatch between calculated, legally embedded noise contours (dots) and actual noise pollution (grey area) around Schiphol, 2003–6 380 21.5 Schiphol policy arena anno 2006 with Schiphol growth coalition (left) and environmental coalition (right) 380 xi FIGURES 21.6 Schiphol policy arena anno 2008 with Schiphol growth coalition (left) and environmental coalition (right) 383 22.1 International agencies, governmental institutions and diverse actors involved in the debate about cannabis policy in the United Kingdom 402 xii CONTRIBUTORS Beatriz Acevedo is a researcher on international drugs policy at Anglia Ruskin University. Taco Brandsen is Associate Professor at Radboud University Nijmegen. John M. Bryson is McKnight Presidential Professor of Planning and Public Affairs at the University of Minnesota. Celine Chew is Lecturer in Marketing and Strategy at Cardiff University. Richard Common is a Senior Research Fellow at the . Barbara C. Crosby is Associate