Coproduction and Equity in Public Service Delivery

Public managers and researchers devote much attention to the benefits of coproduction, or the mixing of the productive efforts of public employees and citizens in public service design and delivery. One concern, however, is the distributional consequences of coproduction. This article proposes that disadvantaged citizens may be constrained by a lack of knowledge or other resources necessary to contribute to and benefit from the coproduction process. From this assumption, the authors develop the theoretical argument that if coproduction programs were designed to lift constraints on disadvantaged citizens, they might increase both efficiency and equity. This claim is tested using a field experiment on educational services. A coproduction program providing immigrant parents with knowledge and materials useful to their children's early educational development had a substantial positive impact on the educational outcomes of disadvantaged children, thereby diminishing inequity. Economically, the program was more efficient than later compensation of low‐performing children.     

Who Engages in the Coproduction of Local Public Services and Why? The Case of Atlanta,Georgia

With the resurgent interest in coproduction, questions arise around who joins with government in coproducing services and why. This article reports an exploratory study of these questions using data from Atlanta, Georgia. To guide the research, the article first proposes a set of hypotheses on involvement in coproduction based on theories of political participation, where psychological motivations and social factors dominate, and citizen‐initiated contacting, where perceived needs for public services are usually primary. The hypotheses are tested using survey data on the engagement of 797 neighborhood organization participants in various forms of local coproduction in Atlanta. The findings provide some support for both theories along with evidence for significant idiosyncratic variations suggested by neither theory. A concluding section considers implications of the findings for future research and for public management.     

Representative Bureaucracy: A Lever to Enhance Social Equity,Coproduction, and Democracy

Scholars and practitioners have long questioned whether the race, ethnicity, and gender of public bureaucrats matter to the efficacy and legitimacy of public services. Representative bureaucracy theory and research provide a growing body of empirical evidence that it does. This article examines some of the rich scholarly work that has been generated on representative bureaucracy and its implications for practice. A significant aspect of recent research focuses on the notion of symbolic representation, whereby the mere existence of a passively represented bureaucracy can itself improve outcomes by influencing the attitudes and behaviors of clients, regardless of bureaucratic actions or results. This article is intended to help both students and public managers understand the importance of representativeness in public organizations for a broad spectrum of practices and goals, from the coproduction of services to democratic rule.     

Networked Coproduction of Public Services in Virtual Communities: From a Government‐Centric to a Community Approach to Public Service Support

Research on and practical attention for the coproduction of public services is increasing. Coproduction is seen as a way to strengthen the quality and legitimacy of public service and reduce costs. Scholarship on coproduction of public services repeatedly ignores the role of the new media. This is surprising since many proponents highlight its potential for changing traditional, government‐centric approaches to delivering public services. This article shows that digital communities form an important addition to the government‐centric form of public service provision since they foster both an exchange of experiential information and social‐emotional support.     

Beyond Engagement and Participation: User and Community Coproduction of Public Services

In recent years, there has been a radical reinterpretation of the role of policy making and service delivery in the public domain. Policy making is no longer seen as a purely top-down process but rather as a negotiation among many interacting policy systems. Similarly, services are no longer simply delivered by professional and managerial staff in public agencies but are coproduced by users and their communities. This article presents a conceptual framework for understanding the emerging role of user and community coproduction and presents several case studies that illustrate how different forms of coproduction have played out in practice. Traditional conceptions of service planning and management are now outdated and need to be revised to account for coproduction as an integrating mechanism and an incentive for resource mobilization—a potential that is still greatly underestimated. However, coproduction in the context of multipurpose, multistakeholder networks raises important public governance issues that have implications for public services reform.     

Shared Services: Lessons from the Public and Private Sectors for the Nonprofit Sector

Shared services arrangements in the Australian third sector are becoming more common. Notably, however, there is a lack of information to guide nonprofit organisations through the development and engagement of shared structures. This article reviews the lessons that have been recorded from the public and private sectors with respect to the engagement of shared services arrangements. Additionally this article explores the different types of shared services structures that can be adopted. Overall, this article highlights the need for further research and analysis of issues relating to shared services arrangements in order to assist the increasing number of Australian nonprofit organisations engaging these collective arrangements and structures.     

Varieties of Participation in Public Services: The Who, When, and What of Coproduction

Despite an international resurgence of interest in coproduction, confusion about the concept remains. This article attempts to make sense of the disparate literature and clarify the concept of coproduction in public administration. Based on some definitional distinctions and considerations about who is involved in coproduction, when in the service cycle it occurs, and what is generated in the process, the article offers and develops a typology of coproduction that includes three levels (individual, group, collective) and four phases (commissioning, design, delivery, assessment). The levels, phases, and typology as a whole are illustrated with several examples. The article concludes with a discussion of implications for research and practice.     

Effective Practitioner–Scholar Relationships: Lessons from a Coproduction Partnership

This article presents a continuum of possible coproduction arrangements between scholars and practitioners and suggests that greater engagement is necessary to bridge the commonly cited problems that create the gap between research and practice. Reflections on an Australian case of a major public sector coproduction partnership, the highest degree of interaction on the continuum, are used to argue that successful engagement between practitioners and scholars is possible, while also recognizing the difficulties inherent in this process. The benefits and challenges of this partnership are presented, as well as critical factors that drive effective relationships. Lessons are drawn for the development of future coproduction partnerships, including the importance of recognizing that both scholars and practitioners are, in fact, researchers.     

Representative Bureaucracy and the Willingness to Coproduce: An Experimental Study

Relying on the theory of representative bureaucracy—specifically, the notion of symbolic representation—this article examines whether varying the number of female public officials overseeing a local recycling program influences citizens’ (especially women's) willingness to cooperate with the government by recycling, thus coproducing important policy outcomes. Using a survey experiment in which the first names of public officials are manipulated, the authors find a clear pattern of increasing willingness on the part of women to coproduce when female names are more represented in the agency responsible for recycling, particularly with respect to the more difficult task of composting food waste. Overall, men in the experiment were less willing to coproduce across all measures and less responsive to the gender balance of names. These findings have important implications for the theory of representative bureaucracy and for efforts to promote the coproduction of public services.     

Public Administration Scholarship and the Politics of Coproducing Academic–Practitioner Research

Developing greater cooperation between researchers and practitioners is a long‐standing concern in social science. Academics and practitioners working together to coproduce research offers a number of potential gains for public administration scholarship, but it also raises some dilemmas. The benefits include bringing local knowledge to bear on the field, making better informed policy, and putting research to better use. However, coproduction of research also involves managing ambiguous loyalties, reconciling different interests, and negotiating competing goals. The authors reflect on their experience of coproducing a research project in the United Kingdom and discuss the challenges that coproducers of research confront. They situate the discussion within a consideration of traditions of public administration scholarship and debates about the role of the academy to understand better the politics of their joint practice. Thinking about the politics of coproduction is timely and enables the authors to become more attuned to the benefits and constraints of this mode of research..     

Coproduction of Government Services and the New Information Technology: Investigating the Distributional Biases

This article investigates how communications advances affect citizens’ ability to participate in coproduction of government services. The authors analyze service requests made to the City of Boston during a one‐year period from 2010 to 2011 and, using geospatial analysis and negative binomial regression, investigate possible disparities by race, education, and income in making service requests. The findings reveal little concern that 311 systems (nonemergency call centers) may benefit one racial group over another; however, there is some indication that Hispanics may use these systems less as requests move from call centers to the Internet and smartphones. Consistent with prior research, the findings show that poorer neighborhoods are less likely to take advantage of 311 service, with the notable exception of smartphone utilization. The implications for citizen participation in coproduction and bridging the digital divide are discussed.     

Looking a Gift Horse in the Mouth: Challenges in Managing Philanthropic Support for Public Services

Collaborations between nonprofit and public sector organizations have become an increasingly important phenomenon in state and local public service delivery since the publication of the Winter Commission report in 1993 . This article focuses on one of the less studied types of public–nonprofit collaborations, those in which philanthropic support from nonprofit organizations supplements the resources and activities of public agencies. Drawing on the case of “nonprofit‐as‐supplement collaborations” that support park services in New York City, this article documents the benefits and drawbacks associated with such collaborations. While they can provide increased resources and encourage management innovations, they also can lead to inequities in the availability and quality of services, the preponderance of particularistic goals over the broader public interest, and the politicization of previously bureaucratic decision making. The authors offer two strategies for public managers to realize more effectively the benefits yet mitigate the shortcomings of these collaborations.     

Self‐interest in new wrapping: “Appeal to the public interest” as a topos in lobbying

This article explores public affairs and lobbying strategies that make public appeals beyond organizational self‐interest and instead focus on appeals to the public interest. While research has highlighted such appeals as a staple for lobbying campaigns, there is scant research exploring the communicative construction of this notion. Thus, this article uses the rhetorical concept of topos to explore how lobbyists attempt to fuse their private interests with a broader appeal to what is best for society. In particular, we discuss how different types of organizations have different rhetorical opportunities to ground their arguments. Finally, we discuss the democratic implications of appeals to the public interest as a standard lobbying strategy.     

Designing Public Participation: Managing Problem Settings and Social Equity

Researchers suggest that inequity and disparities in public participation in the policy‐making process will go hand in hand unless public managers and community leaders are attentive to these concerns when they are designing participation opportunities. Previous research has considered how the design of participatory opportunities can address inequity, but it has provided few insights into what is behind design choices. This article provides a theoretical framework that links public managers' and community leaders' perspectives on their own political efficacy and sources of their efficacy, yielding four types of “designers.” The research hypothesizes that these types have different narratives of social equity in participation that affect their design choices. Data from more than 100 public managers and community leaders provide preliminary support for these relationships. Findings suggest that inequitable public participation will persist unless designers consider what is behind their choices, focusing first on understanding the problem setting, or their narrative of equity in public participation.     

Creating Broader Research Impacts through Boundary Organizations

Climate science research documents and predicts changes in the physical environment. This information informs policy decisions and public programs through the design of human interventions that promote adaptive management. Since the early 2000s, federal funding has led to the creation of transdisciplinary regional climate workgroups to facilitate integrative knowledge coproduction and promote shared use of research results by scientific and nonscientific stakeholders. Labeled “boundary organizations,” these workgroups are tasked with facilitating partnerships between climate science researchers and practitioners with expertise in multiple physical and social science disciplines. When these organizations are successful, scientific findings and practitioner experiences are integrated to synergistically create usable knowledge about adaptive management that provides direct public value and creates broader societal impacts. This article explores the broader impacts provided by these boundary organizations through the establishment of regional research agendas and the communication of research results in ways that influence regional public policy and promote adaptive management.     

New Executives from Inside or Outside? The Effect of Executive Replacement on Organizational Change

This article investigates how executive succession influences the comprehensiveness of structural changes pursued by public organizations. Executive successions are important events for organizations that provide salient opportunities for introducing organizational change, yet little research has analyzed this relationship. The author argues that the less familiarity a new executive has with the organization and the field in which it works, the more likely it is that comprehensive organizational change will take place. Empirical results from quantitative analyses of executive succession events in Danish municipalities from 1984 to 2000 confirm this. Interestingly, the degree to which new practices are legitimized moderates the findings. Inside successors are more likely to conduct comprehensive structural changes after new practices receive normative and regulatory legitimacy. The article contributes to the literature on executive succession by highlighting how it is an antecedent to different types of organizational change. Contributions to practitioner and public management research are discussed.     

From Policy to Practice: From Ideas to Results,From Results to Trust

Few areas of public administration have been more discouraging, over a longer period of time, than the struggle to build public trust in government's work. However, new research suggests that public administrators can build trust by improving the results they produce for citizens. Practical, practicable steps can produce big improvements: improving government's focus on citizens' needs; engaging employees; focusing on fairness; and, especially, concentrating on the delivery of public services at the “retail” level. Citizens, research shows, can discriminate among levels of government, the administration of different programs in different functional areas, and the work of individual administrators. That provides strong hope for improving trust, in an era when too often government appears too untrustworthy.     

Leading Digital Technologies for Coproduction: the Case of “Visit Once” Administrative Service Reform in Zhejiang Province,China

Journal of Chinese Political Science - Research on coproduction of public services has grown significantly within the politics and public administration field during the last decade. The existing...     

The Contested Politics of Public Value

The emerging field of public values helpfully focuses on the norms and government policies that serve the public interest, but its analysis neglects the barriers to actually creating public value in contemporary America. Chief among these barriers are contending strains of public beliefs and opinions, the disproportionate influence of affluent individuals and business and professional associations, as well as governing structures predisposed toward inaction and drift. This article contrasts the expectations of the public values field with research on American politics to identify barriers to advancing the public interest under current conditions. Although public values scholars offer an analysis of American public life that is inadequate, they do raise challenging questions about how a public‐regarding agenda can be “designed in” to politics and policy. The article concludes by suggesting feasible reforms to improve the conditions for pursuing the public interest.     

Citizen (Dis)satisfaction: An Experimental Equivalence Framing Study

This article introduces the importance of equivalence framing for understanding how satisfaction measures affect citizens’ evaluation of public services. Does a 90 percent satisfaction rate have a different effect than a logically equivalent 10 percent dissatisfaction rate? Two experiments were conducted on citizens’ evaluations of hospital services in a large, nationally representative sample of Danish citizens. Both experiments found that exposing citizens to a patient dissatisfaction measure led to more negative views of public service than exposing them to a logically equivalent satisfaction metric. There is some support for part of the shift in evaluations being caused by a negativity bias: dissatisfaction has a larger negative impact than satisfaction has a positive impact. Both professional experience at a hospital and prior exposure to satisfaction rates reduced the negative response to dissatisfaction rates. The results call for further study of equivalence framing of performance information.

Practitioner Points

• The valence (positive/negative) of performance information can have substantial effects on citizens’ perception of public services—even if the underlying performance is exactly the same.
• Presenting citizens with a dissatisfaction rate of 10 percent induces a much more negative evaluation of public services than presenting them with a logically equivalent satisfaction rate of 90 percent.
• Policy makers must carefully consider how minor equivalent changes in the presentation of performance information can induce large shifts in citizens’ perceptions of public service performance.