Certifying a state forestry agency in Quebec: Complementarity and conflict around government responsibilities,indigenous rights,and certification of the state as forest manager

As voluntary third‐party certification systems become an increasingly accepted part of international frameworks for forest governance, some state forestry agencies are following the private sector in seeking certification of their forest management activities. We ask how the roles and responsibilities of state forest management agencies interact with the processes and mechanisms established by certification systems. To answer this question, we review existing research to propose a conceptual framework composed of eight issues of particular relevance to states: regulation, transnationalism, sovereignty disputes, partnerships and competition, mainstreaming, effectiveness, equity, and legitimacy and trust. We then use this framework to analyze experience in Quebec, Canada, where the state agency initially sought certification and then abandoned this plan after facing difficulties meeting the requirements pertaining to indigenous rights. Our framework helps to understand possible complementarities between state and non‐state systems, but also highlights challenges for reconciling state roles and responsibilities under certification.     

What Do We Know and Need to Know about the Environmental Outcomes of Collaborative Management?

Many tout the benefits of collaborative environmental management as an alternative to centralized planning and command and control regulation, but the excitement over collaborative processes has not been matched by evidence that these processes actually improve the environment. The most crucial question in collaborative environmental management remains unanswered and often unasked: To what extent does collaboration lead to improved environmental outcomes? We know much about why collaboration is occurring and how collaborative processes and outputs vary. The primary goal of future research on collaborative environmental management should be to demonstrate whether collaboration improves environmental conditions more than traditional processes and newer market-based processes. Collaboration is not a panacea; it is a choice that policy makers and public managers should make based on evidence about expected outcomes.     

Social process in grizzly bear management: lessons for collaborative governance and natural resource policy

In this study, we analyze a case of governance in natural resource management. Building on the limited body of literature on termination and using methods of problem orientation and social process mapping, we examine a stakeholder engagement process designed to address conflicts in grizzly bear management in Banff National Park, Alberta. Terminated in 2009 after several years of collaboration, this stakeholder engagement process explicitly used the policy sciences framework to cultivate dialogue, improve participants?? decision-making skills, and make consensus-based recommendations for grizzly bear management. Our analysis demonstrates the utility of undertaking social process mapping and problem orientation in order to understand a natural resource policy problem. We include recommendations to foster a social process that allows for clarification and advancement of the common interest in stakeholder groups, insights into how social process can contribute to policy termination, and reflections on the practical, collaborative use of the policy sciences to solve problems of governance. This analysis complements other articles on this case that examine stakeholder perspectives, initial outcomes, and decision process, collectively providing a thorough policy analysis.     

Trust and verification: balancing agency and stewardship theory in the governance of agencies

ABSTRACT

Many government services are delivered by (partially) autonomous agencies. Governments need effective measures for contracting, steering, and monitoring agencies and to balance control and trust. In the literature, control-based agency theory and trust-based stewardship theory have often been portrayed as alternative and competing approaches. In empirical studies in public administration, however, these approaches often find mixed and contradictory results. Against this background, this article analyzes how a combination of trust- and control-based approaches, explicitly founded on agency and stewardship theory, can help explain when participants find a given governance regime to be most satisfactory. A survey instrument is developed which, for the first time, fully measures the rich concept of stewardship theory in conjunction with agency theory. The analysis of the governance of Dutch agencies shows that government indeed combines governance solutions from both theoretical camps and illuminates under which conditions this combination is most satisfactory.     

Evidence in the Networked Governance of Regional Decarbonisation: A Critical Appraisal

This paper examines the use of evidence in collaborative policy making focusing on the challenges of implementing national decarbonisation policies in regional areas. Its case study of a staged policy intervention to promote the ‘transition to a low carbon economy’ in Victoria's coal‐dependent Latrobe Valley reveals the selective use of evidence to support policy directions that emerged from the interaction of policy knowledge and the political mood. The paper shows how local conditions can be manipulated to enable the production of evidence consistent with the policy objective, but also suggests that despite combining orchestrated evidence with customised forms of networked governance, it is not possible to suppress or deflect unresolved political disagreements.     

Collaborative Governance: Integrating Management,Politics, and Law

Scholars have engaged in an ongoing dialogue about the relationships among management, politics, and law in public administration. Collaborative governance presents new challenges to this dynamic. While scholars have made substantial contributions to our understanding of the design and practice of collaborative governance, others suggest that we lack theory for this emerging body of research. Law is often omitted as a variable. Scholarship generally does not explicitly include collaboration as a public value. This article addresses the dialogue on management, politics, and law with regard to collaborative governance. It provides an overview of the current legal framework for collaborative governance in the United States at the federal, state, and local levels of government and identifies gaps. The institutional analysis and development framework provides a body of theory that incorporates rules and law into research design. The article concludes that future research on collaborative governance should incorporate the legal framework as an important variable and collaboration as a public value.     

Collaborative Governance in the Reform of Western Australia's Alcohol and Other Drug Sector

Collaborative governance involves processes and structures for policy development and decision making with particular relevance for health and social services. We examined collaborative governance in the reform of Western Australia's alcohol and other drug sector, applying Emerson et al.'s (2012) integrative framework. A documentary review and group interviews with government, sector, and consumer representatives were involved. Contextual factors included increased service funding, and the development of a partnership approach. Drivers for collaboration involved leadership and financial incentives for policy implementation. Key stakeholders across government and the sector reported a mutually supportive and constructive relationship and increased capacity, and they shared an agenda for change. The integrative framework was a useful structure for the explication of collaborative governance, although financial arrangements were not addressed.     

Stewardship and health systems strengthening: An overview

The World Health Organization (WHO) introduced the concept of stewardship to clarify the practical components of governance in the health sector. For the WHO, stewardship concentrated on how government actors take responsibility for the health system and the wellbeing of the population, fulfill health system functions, assure equity, and coordinate interaction with government and society. This article overviews the contents of this special issue, which offers examples of how health stewards in a variety of countries have addressed issues of health security, primary care expansion, family planning, and quality of care. The contributors' articles draw lessons for policy, programs, and management useful for practitioners and scholars. Our overview identifies several themes emerging from the articles: the foundational role of legal frameworks for effective stewardship, the importance of institutional arrangements as enablers, the influence of regional and global entities on national stewardship, the connection between credible decision‐making structures and stewardship, and pathways to sustainable financing and domestic resource mobilization. The discussion concludes with highlighting several gaps in knowledge and practice related to health stewardship.     

Business as a Collaborative Partner: Understanding Firms’ Sociopolitical Support for Policy Formation

While many scholars have discussed the merits of collaborative governance, especially for addressing complicated modern policy challenges, the literature has paid less attention to how business can serve as an effective collaborative partner during the formation of mandatory policies and regulations. Drawing on scholarship in the management sciences and combining it with literature in public administration and public policy, the authors elaborate on four distinct types of business responses to proposed regulations based on degrees of political activity and social responsiveness: defensive, reactive, proactive, and anticipatory. They then characterize the reasons why proactive firms are more likely to be valuable collaborative partners with policy makers and public managers: their engagement may avoid costly stalemates that frequently hinder policy making and help develop cost‐effective, flexible policy approaches to complex social problems.     

Stewardship of quality of care in health systems: Core functions,common pitfalls,and potential solutions

National Ministries of Health in low‐ and middle‐income countries (LMICs) have a key role to play as stewards of the quality agenda in their health systems. This paper uses a previously developed six‐point framework for stewardship (strategy formulation, intersectoral collaboration, governance and accountability, health system design, policy and regulation, and intelligence generation) and identifies specific examples of activities in LMICs in each of these domains, pitfalls to avoid, and possible solutions to these pitfalls. Many LMICs now have quality strategies with clear vision statements. There are good examples of quality agencies and donor collaboration councils to coordinate activities across different sectors. There are multiple options for accountability, including public reporting, community accountability structures, results‐based payment, accreditation, and inspection. To improve health system design, available tools include decision support tools, task‐shifting models, supply chain management, and programs to train quality improvement staff. Policy options include legislation on disclosure of adverse events, and regulations to ensure skills of health care providers. Lastly, health information tools include patient registries, facility surveys, hospital discharge abstracts, standardized population and patient surveys, and dedicated agencies for reporting on quality. Policy‐makers can use this article to identify options for driving the quality agenda and address anticipated implementation barriers.     

Globalization and Governance Capacity: Explaining Divergence in National Forest Programs as Instances of “Next‐Generation” Regulation in Canada and Europe

New policy initiatives are increasingly embedded in novel governance strategies. These new modes of governance differ from existing policy mixes in that they are specifically designed to reduce the number of instances of counterproductive policy instrument use; to function effectively and meet public policy goals in an era of decreased national state capacity and autonomy; and rely much more heavily than existing instrument mixes have done on the involvement of private actors in both policy formulation and implementation. These instances of contemporary policy design require careful analysis in order to understand where and when such designs may be adopted and, more importantly, prove effective. This article examines efforts made in Europe and Canada to develop “next‐generation” forest policy strategies and finds considerable divergence in the new regulatory processes put into place in different countries. Following Knill and Lehmkuhl, this divergence is attributed to changing patterns of domestic actor capacities in the face of weak international regimes.     

Collaboration in the shadow of the wall: shifting power in the borderlands

Border security places a heavy burden on public and private land managers affecting rural livelihoods and limiting managers’ ability to collectively act to deal with environmental issues. In the southern Arizona borderlands, natural resource managers come together to solve complex environmental issues creating a diverse set of formal and informal institutional arrangements between state and nonstate actors. We explore the effects of the border on these collaborative institutions, as well as the managers’ views of the border, invoking theoretical work on power, institutions, literature from the burgeoning field of borderland studies, and recent work on collaboration and the common interest in civil society. In doing so, we seek to understand how a rural community that has taken center stage in national discourse copes with the border on a daily basis and how changing power differentials in the borderlands affect a governance network. This study informs our understanding of when and where collaboration occurs, as well as our conceptualization of the border and the effects of border policy and immigration on natural resource management.     

Understanding participant perspectives: Q‐methodology in national forest management

Many policy practitioners and theorists have argued that value‐free, objective solutions to policy problems do not exist. While participant values and subjective viewpoints influence policy problems, empirically determining participant perspectives and preferences has been a daunting task. This paper demonstrates how Q‐methodology, a technique for systematically revealing subjective perspectives, can contribute to better problem identification and definition; estimation and specification of policy option; and selection, implementation, and evaluation of policies. Two case studies in national forest management are reviewed and demonstrate how Q‐methodology can (1) identify important internal and external constituencies, (2) define participant viewpoints and perceptions, (3) provide sharper insight into participant‐preferred management directions, (4) identify criteria that are important to participants, (5) explicitly outline areas of consensus and conflict, and (6) develop a common view toward the policy. © 1999 by the Association for Public Policy Analysis and Management.     

Strengthening family planning stewardship with a total market approach: Mali,Uganda, and Kenya experiences

To improve overall market sustainability, governments and their donors are ramping up efforts to strengthen stewardship in developing country health markets. Key stewardship functions include generating intelligence that enable policymakers, ministerial leaders, and program managers to develop evidence‐based policies and strategies to improve the resource management, supply, and use of health products and services. The total market approach (TMA), an analytic and policy framework, generates market intelligence and improves evidence‐based decision‐making, and also strengthens other stewardship functions, such as building and sustaining partnerships, strengthening tools for implementation, aligning government policy with market interventions, and ensuring accountability/transparency. TMA evolved in response to the phase out of donor support for reproductive health (RH) and family planning (FP) programs and the need to improve coordination among public, private, nongovernmental organizations, and civil society to achieve greater equity, health impact, and market sustainability. To assess TMA's role in strengthening the stewardship of RH/FP markets, this article reviews three countries that applied TMA principles: Mali, Uganda, and Kenya. It identifies how TMA processes influenced stewardship functions and assesses to what degree these processes have contributed to concrete actions to improve market efficiency and sustainability.     

Collaborative environmental institutions: All talk and no action?

Many analysts view collaborative institutions that attempt to forge consensus and build cooperation among conflicting stakeholders as a potential remedy to the pathologies of conventional environmental policy. However, few analyses have demonstrated that collaborative institutions actually increase levels of cooperation, and critics accuse collaborative institutions of all talk and no action. This paper reports the use a quasi‐experimental design to compare the levels of consensus and cooperation in coastal watersheds with and without U.S. EPA's National Estuary Programs, one of the most prominent national examples of collaborative institutions in the environmental policy domain. Panel survey data from more than 800 respondents shows that while the level of consensus is higher in NEP estuaries, there is no difference between NEP and non‐NEP estuaries in the level of cooperation. © 2004 by the Association for Public Policy Analysis and Management.     

Collaborative Approaches to Regional Governance – Lessons from Victoria

Victoria's Regional Management Forums were established in 2005 to facilitate collaboration between Victorian Government departments and local government in each of Victoria's eight administrative regions. At the time they were established, Regional Management Forums were a pioneering experiment in collaborative governance. Seven years after their establishment, this paper examines the Regional Management Forums to consider how they have evolved, what role they now serve, and what lessons can be learned. This paper finds that Victoria's Regional Management Forums have been able to adapt to an evolving policy and governance context. While not without their challenges, Regional Management Forums have given rise to regional‐scale thinking and collaborative relationships.     

Interacting Capacities: The Indirect National Contribution to Subnational Service Provision

Different levels of government often interact on the ground, providing closely related services. While multilevel governance arrangements have been studied broadly, scarce literature has explored the contribution of national governments to achieving subnational policy goals. By reconceptualizing administrative decentralization as coexisting devolution (to subnational governments) and deconcentration (through field units), this research explores the indirect national contribution to subnational performance by delivering associated services. This article tests the following hypotheses: (1) there is a positive effect of national deconcentrated capacity on subnational policy outputs, and (2) under policy overlap, this contribution diminishes with increasing levels of subnational capacity. While Colombian schooling is decentralized, the national government indirectly contributes to education through a national agency that administers child protection services. Analyzing data for Colombian subnational governments over a decade reveals that national capacity boosts education provision while the least endowed regions benefit the most, thus providing evidence supporting both hypotheses.     

Streams and stages: Reconciling Kingdon and policy process theory

Use of metaphors is a staple feature of how we understand policy processes – none more so than the use of ‘policy stages’/'cycles’ and ‘multiple streams’. Yet even allowing for the necessary parsimony of metaphors, the former is often criticised for its lack of ‘real world’ engagement with agency, power, ideology, turbulence and complexity, while the latter focuses only on agenda‐setting but at times has been utilised, with limited results, to understand later stages of the policy process. This article seeks to explore and advance the opportunities for combining both and applying them to the policy‐formation and decision‐making stages of policy making. In doing so it examines possible three, four and five stream models. It argues that a five stream confluence model provides the highest analytical value because it retains the simplicity of metaphors (combining elements of two of the most prominent models in policy studies) while also helping capture some of the more complex and subtle aspects of policy processes, including policy styles and nested systems of governance.     

Diffusion of Corporate Risk‐Management Characteristics: Perspectives of Chief Audit Executives through a Survey Approach

This study examines how corporate risk‐management characteristics in Australian public universities have diffused under an environment of conflicting management cultures. The findings reveal that corporate risk‐management characteristics have diffused in a pluralist form to satisfy stakeholders of different management approaches across its governance levels as opposed to a unilateral form aligned to the corporate approach. The accepted practice of this adapted version challenges the existing notion that the adoption of corporate control processes in the public sector is problematic, and provides insights into the emergence of a hybrid control process to address the needs of multiple stakeholders. These findings have policy implications for defining a new hybrid governance‐control paradigm for the public sector as an alternative to the corporate‐influenced control paradigm, and provide avenues for further research to confirm the phenomenon with other corporate control processes, public‐sector entities, and if so its impact on effective governance.     

A Multiple Streams Analysis of Institutional Innovation in Forest Watershed Governance

Increasingly severe wildfires have focused attention on forested watershed vulnerabilities, causing significant changes to policies and governance. We utilized the Multiple Streams Approach (MSA) to understand institutional innovations of federal agency–large water provider partnerships in Colorado to protect watersheds through joint planning and funding. Ambiguous problem definition and focusing events were significant aspects of these partnerships. We interviewed individuals in the partnerships, with MSA ideas of how solutions to policy problems develop, and the role of policy entrepreneurs. We found that wildfires served as focusing events, creating space and time for learning, collaboration and new problem framing, increased political attention, and institutional innovation. In this study, windows of opportunity stayed open longer, policy entrepreneurs and agencies played larger roles in communication and coupling streams and the context of fast‐moving, unpredictable ecological crises changed responses to issues. Our findings also have implications for broader policy studies and environmental governance scholarship.