The Dynamics of Multi-organizational Partnerships: an Analysis of Changing Modes of Governance

Multi-organizational partnerships are now an important means of governing and managing public programmes. They typically involve business, community and not-for-profit agencies alongside government bodies. Partnerships are frequently contrasted with competitive markets and bureaucratic hierarchies. A more complex reality is revealed once partnerships as an organizational form are distinguished from networks as a mode of social co-ordination or governance. Data from studies of UK urban regeneration partnerships are used to develop a four-stage partnership life cycle: pre-partnership collaboration; partnership creation; partnership programme delivery; and partnership termination. A different mode of governance - network, market or hierarchy - predominates at each stage. Separating organizational form from mode of governance enables a richer understanding of multi-organizational activity and provides the basis from which theory and practice can be developed. The key challenge for partnerships lies in managing the interaction of different modes of governance, which at some points will generate competition and at other points collaboration.     

MAKING GOVERNANCE NETWORKS EFFECTIVE AND DEMOCRATIC THROUGH METAGOVERNANCE

In response to the growing discrepancy between the steadily rising steering ambitions and the increasing fragmentation of social and political life, governance networks are mushrooming. Governance through the formation of networks composed of public and private actors might help solve wicked problems and enhance democratic participation in public policy-making, but it may also create conflicts and deadlocks and make public governance less transparent and accountable. In order to ensure that governance networks contribute to an effective and democratic governing of society, careful metagovernance by politicians, public managers and other relevant actors is necessary. In this paper, we discuss how to assess the effective performance and democratic quality of governance networks. We also describe how different metagovernance tools can be used in the pursuit of effective and democratic network governance. Finally, we argue that public metagovernors must develop their strategic and collaborative competences in order to become able to metagovern governance networks.     

DO POLICY NETWORKS LEAD TO NETWORK GOVERNING?

This paper challenges a common understanding, implicit in many governance studies, that once policy networks are in place, the form of governing that follows is network governing. It is argued that policy networks may be understood as a way of organizing stakeholders and only under specific conditions may the governing mode in which the networks operate be termed network governing. Consequently, policy networks may subsist under other governing modes, for example, under a hierarchical mode. The present study uses actor‐centred case studies in the area of Danish employment policy. Employment policy in Denmark is municipally implemented and the study found that the local governing mode was determined mainly by the municipality’s approach to local co‐governing. Less important, but nevertheless significant, is the capacity and interest of key private actors. Thus it is argued that nationally mandated local policy networks are insufficient in themselves to assure network governing in all settings. The reasons hierarchical governing modes prevail over those of network governing are identified and discussed in terms of agency and structure.     

Regionalising the state: political topography of regulatory regionalism

In recent years new modes of regional governance such as peer review, policy networks, and multi-level governance, have emerged not only in the European Union but in other regions such as the Asia Pacific. This article explains the rise of these new modes of governance in terms of the framework of regulatory regionalism. It suggests that these new modes of governance constitute distinctive forms of regionalised governance within the state. Hence emerging practices of regional governance are not above the national state, but instantiated within it. Just as much as the national territorial state was consolidated over the nineteenth and much of the twentieth century, the twenty-first century is likely to see the consolidation of new forms and practices of regional governance in which the ‘regional’ becomes incorporated within the political space of the state.     

Conceptual Issues in Inter-Agency Collaboration

Inter-agency collaboration – or partnership as it now commonly termed – is central to New Labour's agenda, but the general support for a partnership approach conceals disputes about definitions and approaches. This article begins by examining the shift to more complex and ambitious partnerships in health, social care and regeneration, which require new modes of governance. The three main modes – market, hierarchy and network – are briefly described and contrasted, and located within the recent history of public service development. It is argued that they are best seen as overlain and co-existing, resulting in a hybrid mode of governance which is characterised by tension and contradiction. The article goes on to discuss the issues this raises for real partnerships in trying to understand the collaborative imperative and the barriers to its effective achievement. Although the network mode has its attractions, there are complex issues of membership, management and culture which need to be addressed. It is concluded that hierarchy, markets and networks will co-exist better where each acknowledges its own limits and the strengths of others.     

The "End Of History" 20 Years Later

Twenty years after the fall of the Berlin Wall and the triumphant celebrations of the West, a new chapter of history has opened featuring the rising powers of Asia, led by China. Though embracing free markets, China has looked to its Confucian traditions instead of liberal democracy as the best route to good governance. Will China manage to achieve high growth and a harmonious society through a strong state and long‐range planning that puts messy Western democracy and its short‐term mindset to shame? Or, in the end, will the weak rule of law and absence of political accountability in a one‐party state undermine its promise? Francis Fukuyama and Kishore Mahbubani, the Singaporean thinker who has become the apostle of non‐Western modernity, debate these issues. In this section we also republish a collective memoir by George H.W. Bush, Mikhail Gorbachev, Margaret Thatcher and François Mitterrand, recalling their fears and hopes two decades ago as they brought the Cold War to an end.     

Obama in Asia: West Looks East After the "End of History"

Twenty years after the fall of the Berlin Wall and the triumphant celebrations of the West, a new chapter of history has opened featuring the rising powers of Asia, led by China. Though embracing free markets, China has looked to its Confucian traditions instead of liberal democracy as the best route to good governance. Will China manage to achieve high growth and a harmonious society through a strong state and long‐range planning that puts messy Western democracy and its short‐term mindset to shame? Or, in the end, will the weak rule of law and absence of political accountability in a one‐party state undermine its promise? Francis Fukuyama and Kishore Mahbubani, the Singaporean thinker who has become the apostle of non‐Western modernity, debate these issues. In this section we also republish a collective memoir by George H.W. Bush, Mikhail Gorbachev, Margaret Thatcher and François Mitterrand, recalling their fears and hopes two decades ago as they brought the Cold War to an end.     

Recalling the Fall of the Berlin Wall

Twenty years after the fall of the Berlin Wall and the triumphant celebrations of the West, a new chapter of history has opened featuring the rising powers of Asia, led by China. Though embracing free markets, China has looked to its Confucian traditions instead of liberal democracy as the best route to good governance. Will China manage to achieve high growth and a harmonious society through a strong state and long‐range planning that puts messy Western democracy and its short‐term mindset to shame? Or, in the end, will the weak rule of law and absence of political accountability in a one‐party state undermine its promise? Francis Fukuyama and Kishore Mahbubani, the Singaporean thinker who has become the apostle of non‐Western modernity, debate these issues. In this section we also republish a collective memoir by George H.W. Bush, Mikhail Gorbachev, Margaret Thatcher and François Mitterrand, recalling their fears and hopes two decades ago as they brought the Cold War to an end.     

Network tasks and accountability: A configurational analysis of EU regulatory networks

Intergovernmental networks have become a prominent cooperative mechanism to deal with trans-boundary and interdependent problems. Yet, we still have limited knowledge of how these collaborative endeavours are governed, which is crucial to properly understanding how they function. This article empirically examines the structural governance configurations of rule-enforcing networks in the European Union. The article relies on data from 37 networks with rule-enforcing tasks and conducts a qualitative comparative analysis. We find three basic governance structure configurations used by rule-enforcing networks: first, a configuration with legal accountability, which is characterized by having a board of appeals; second, one with administrative accountability that, in addition to a board of appeals, has powerful executive boards and professional experts in the network plenary; and a third one with democratic accountability that incorporates legislative representatives in the network plenary. We argue that these results show how network tasks are related to accountability and governance.     

Transnational processes,development studies and changing social hierarchies in the world system: A Central American case study

Globalisation is bringing about changes in social hierarchies in the world capitalist system which traditional categories and frameworks in development studies and macro-sociologies are unable to capture. Under globalisation processes of uneven accumulation are unfolding in accordance with a social and not a national logic. The increasing subordination of the logic of geography to that of production and the rising disjuncture between the fortunes of social groups and of nation-states, among other processes, demand that we rethink development. The social configuration of space can no longer be conceived in the nation-state terms that development theories posit but rather as processes of uneven development denoted primarily by social group rather than territorial differentiation. Social polarisation, the fragmentation of national economies, and the select integration of social groups into transnational networks, suggest that development may be reconceived not as a national process, in which what 'develops' is a nation, but in terms of developed, underdeveloped and intermediate population groups occupying contradictory or unstable locations in a transnational environment. The shift to flexible accumulation worldwide and from an international to a global division of labour result in an increasing heterogeneity of labour markets in each locale. Labour market participation becomes a key determinant of new social hierarchies and of development conceived in social groups terms. Local and national labour markets are themselves increasingly transnationalised, part of a global labour market, in which differentiated participation determines social development. This article applies these propositions to a case study of Central America, examining the changing fortunes of one particular region under global capitalism and the lessons it offers for changing social hierarchies in the world capitalist system and for a renewal of the sociology of development.     

How can network leaders promote public value through soft metagovernance?

The aim of this article is to explore the opportunities and challenges of employing ‘soft’ metagovernance to promote public value in governance networks. Soft metagovernance can be defined as a form of relational leadership that is exercised through face‐to‐face contact. This involves making an emotional connection with people to exert influence through a collaborative endeavour, rather than employing bureaucratic authority. Drawing on a case study of a local social enterprise—The Bristol Pound—in the UK, this article examines how soft metagovernance can be used by non‐state actors as a form of leadership to create public value. Evidence reveals that relational forms of leadership are a powerful asset in helping leaders of networks to create public value. Moreover, if network leaders understand how soft metagovernance functions they can use it more purposefully to maximize public value creation and mitigate the risks of public value destruction in governance networks.     

Private Governance and the South: lessons from global forest politics

Abstract

Private governance beyond the state is emerging as a prominent debate in International Relations, focusing on the activities of private non-state actors and the influences of private rules and standards. However, the conceptual framework of governance has until recently been employed predominantly with reference to the oecd world. Despite this restricted view, a growing number of processes, organisations and institutions are beginning to affect developing countries and new institutional settings open up avenues of influence for actors from the South. In the context of a lively debate about global governance and the transformation of world politics, this article asks: what influences does private governance have on developing countries, their societies and their economies? What influence do southern actors have in and through private governance arrangements? I argue that we can assess the specific impacts of private governance, as well as potential avenues of influence for actors from the South, with regard to three functional pathways: governance through regulation, governance through learning and discourse, and governance through integration. Focusing in particular on private governance in the global forest arena, I argue that, while southern actors have not benefited so much economically from private certification schemes, they have been partially empowered through cognitive and integrative processes of governance.     

The Impact of Metagovernance on Local Governance Networks. Lessons from Danish Employment Policy

This article analyses the impact of metagovernance on the functioning of local governance networks. It does so by comparing the functioning of four local governance networks in the field of local employment policy in Denmark. Between 2007 and 2009, two of these networks were linked to jobcentres in which the municipality and a state agency shared responsibility for employment policy, while the other two were linked to jobcentres in which the municipality had full responsibility. We explore two types of metagovernance that the local governance networks were subject to: general, hands-off metagovernance consisting of the assignment of full responsibility to the municipality alone, or of shared responsibility to the municipality and the state jointly; and tailored and fine-tuned metagovernance directed towards only one or a few networks and their corresponding jobcentre(s). Our findings suggest that, as network governance becomes a mature phenomenon, the importance of metagovernance increases, particularly for strategic reasons. More specifically, we find that the functioning of local governance networks is only marginally affected by acts of general, hands-off metagovernance, such as the different organisational set-ups ascribed to the jobcentres. More influential are the hands-on network management tools, such as direct consultancy. Hands-on metagovernance instruments, however, are more costly for the metagovernor. Whichever tool is applied, the local actors' responsiveness to metagovernance is significant for the outcome.     

GOVERNANCE WITHOUT GOVERNMENT? THE CASE OF THE FOREST STEWARDSHIP COUNCIL

The relationship between state and non‐state actors has been the subject of extensive debate within the governance literature. During this time two influential but very different accounts of governance have emerged: a society‐centred account which talks of governance without government and a state‐centric perspective which maintains that governance largely occurs by and through governments. There are of course alternative and more nuanced positions on offer. These two have nevertheless served to frame the debate around governance by engendering a zero‐sum understanding of the relationship between state and non‐state actors which obscures the way in which the presence of non‐state actors can enhance the policy capacities of state actors and vice versa. The Forest Stewardship Council (FSC) has been lauded as an exemplar of governance without government and has indeed, on occasions, had to overcome the indifference or even outright hostility of governments. But the society‐centred account does not do justice to the range of very different and sometimes mutually beneficial relationships between the FSC and state actors.     

The Importance of Being Trusted: Transaction Costs and Policy Network Theory

Transaction cost economics is used to defend and develop policy network theory. Networks, like markets and hierarchies, are a form of governance structure. As one form of network, policy communities develop and survive because they reduce transaction costs that would otherwise threaten the exchange of resources between government and pressure groups. Policy communities alter outcomes and should be an important part of the explanation of public policy. Whilst of general relevance, the argument is illustrated with particular reference to the frequently hostile but ultimately successful negotiations between the British Medical Association and the Ministry of Health prior to the creation of the National Health Service in 1948.     

The circulation of public officials in a fragmented system: Urban governance networks in Paris

Fragmentation and specialization—two characteristics of governance—have increased the number and variety of actors involved in the governing process, which can influence policy outcomes and legitimacy. To date, studies on governance or policy networks usually focus on one policy field and one moment in time. In this article, we analyse the dynamic aspect, thus how governance networks change over time, and examine whether the fragmentation and specialization of the governance system is mirrored in the circulation of public officials. Our case is the urban governance system of the Paris region, which is characterized by high fragmentation along policy fields and territory. The data show that Paris is governed by three sub‐systems that largely correspond to the different territorial levels of governance, but also to different types of organizations. Generally, territorial fragmentation seems to be stronger than policy field fragmentation. This structure is quite stable across time.     

UNDERSTANDING LOCAL GOVERNANCE: INSTITUTIONAL FORMS OF COLLABORATION

The article discusses institutional forms of governance, understanding governance as hybrid forms of collaboration, involving government, market actors and/or civil society actors. By utilizing data from a study made of three Norwegian cities, six collaborative efforts are presented, and discussed in relation to analytical characteristics derived from both network theory and organizational theory. This analysis illustrates that these collaboration efforts can, on the one hand, be understood as something located between networks and organizations. On the other hand, one may argue they belong to none of the two theoretical categories, implying the need for new theories regarding collaboration. These observations are followed by some theoretical reflections about how democratic governments can influence collaborations, and ensure that the common will can actually become real.     

NETWORKS: REIFIED METAPHOR OR GOVERNANCE PANACEA?

This article will discuss the contribution of Rod Rhodes to the research on networks. I will focus on networks as a typology of state/society relations and as a particular form of governance. It is not only here that Rhodes has left his deepest mark; most research on networks still falls in one of the two sub‐fields. The typology of policy networks, which he developed with David Marsh more than 15 years ago, has become a classic and still forms a major reference point for studies on public policy‐making. Rhodes also pioneered the concept of network governance in the study of British politics to capture the profound changes in the Westminister model since the late 1970s. Regarding more recent developments, Rhodes has been among the first to discuss the reflexivity of networks, introducing some postmodernist thinking into public administration research. Finally, Rhodes has helped advance the ‘ethnographic turn’ in network studies.