Collaborative Behavior and the Performance of Government Agencies

ABSTRACT

While collaboration among individuals, work groups, and organizations is central for understanding the performance of public agencies, most studies have focused on collaboration between organizations or sectors. We develop a model that focuses on two types of collaborative behavior: between persons (both horizontal and vertical) and between work units. We empirically test our hypotheses using data on work collaboration and perceptions of public agency performance from the United States federal government. We introduce a method for estimating the impact of different types of collaborative behavior that also accounts for nonlinear effects and a dependent variable that takes ordered values. We find that intra-organizational collaborative behavior has a large impact on organizational performance and that horizontal collaborative behavior between workers has the greatest impact among the specific types.     

Performance Budgeting: The Perspective of State Agencies

Although performance‐based budgeting requirements are pervasive, what remains a challenge is how to gain the support from all stakeholders in the budget process that are essential to the integration of performance information with budgeting. This study examines the perspective and role of state agencies on performance budgeting. The finding indicates that for agencies to conduct performance‐informed budgeting, the focus needs to be on elevating managerial capacity to use performance information, and improving measurement quality. Moreover, it is crucial to recognize that performance budgeting is a collaborative process in which each participant plays a valuable role.     

Controlling Regulatory Agencies

This article describes the regulatory agencies in Norway as part of the population of state agencies by focusing on who controls and what is controlled and how. The authors analyze whether regulatory agencies are regulated and controlled to different degrees, by different external actors, and in different ways than other agencies, and on whether this control focuses on different aspects. They also examine whether the variation in regulation and control according to type of agency task is sustained if one controls for structural and cultural features. The empirical basis is a broad survey of Norwegian state agencies carried out in 2004, and the theoretical approaches embrace a task-specific, a structural-instrumental and a cultural-institutional perspective. The authors find that regulatory tasks represent a major activity for state agencies in Norway and that external control by both the executive and the legislative bodies of agencies is rather significant. Moreover, in contrast to what one would expect, given current regulatory orthodoxy, regulatory agencies are controlled to a larger extent than other agencies.     

Democratizing the Administrative State: Connecting Neighborhood Councils and City Agencies

Citizen participation in government decision making, especially at the local level, has received heightened attention with regard to its promise for improved governance. The overarching administrative ethos of the administrative state creates barriers to citizen participation in governance. Developing and nurturing citizen participation in the presence of the administrative state is a significant challenge. Drawing on the literary tradition of public engagement and learning, this article models a developmental strategy of participation that offers one avenue for achieving meaningful partnerships between city agencies and neighborhood councils in a metropolitan environment. We present a model of citizen participation that brings neighborhood councils and city agencies together in a collaborative partnership. This model is based on the literature on citizen participation, which focuses on the significance of interactive processes in building trust among participants and creating mutual understanding and agreement.     

Network Structure and Perceived Legitimacy in Collaborative Wildlife Management

The widespread supposition that collaborative management designs enhance legitimacy must be examined empirically, and the rich diversity of different collaborative arrangements should be better acknowledged in this endeavor. This study adopts a social network perspective and examines three state‐initiated and interest‐based collaborative management arenas in Swedish wildlife management: wildlife conservation committees (WCCs). Is there a link between social network structures in collaborative management arenas and the perceived legitimacy of output by policy stakeholders? This puzzle is addressed through social network analysis combined with survey data and interviews. The empirical results confirm the notion that collaborative arenas consisting of high network closure with many bridging ties across organizational boundaries enjoy a higher level of support among stakeholders directly involved in management, as members of the committees, than networks with a more sparse structure do. This type of well‐integrated network structure seemingly increases stakeholders’ understanding of other actors’ perspectives through deliberation. Contrary to what was expected, though, the empirical analysis did not verify the effect of linking, or outreaching ties between the committee members and the organizations that they represent, on the organizations’ support of WCC decisions. Given the rapid rise of collaborative designs in public administrations, the topic elaborated in this paper is urgent and further research is encouraged.     

New rôles of government in supporting manufacturing: the capabilities of support agencies in Ghana and Zimbabwe

This study examines the roles and capabilities of executive agencies in providing support services to manufacturing in Ghana and Zimbabwe. It asserts that the new roles of government during and after adjustment have not been clearly defined and are in fact more complex than running state‐owned productive enterprises. The basic shift is said to be from direct provision of goods and services to the provision of an enabling environment through support in areas such as training, information, finance, export and investment promotion and technology. Economic development is stimulated when there is a harmonious relationship between entrepreneurs and their institutional environment, much of which is provided by the state. This article concentrates upon the role of meso‐level agencies in changing incentives faced by entrepreneurs and shifting them out of unproductive activity and into productive entrepreneurship, and outlines some of the preliminary results from related research. There are several factors which influence the capabilities of agencies providing these services. Essentially they may be divided into internal and external factors. This allows the analysis to consider not only budgeting and incentive systems but also the impact of external pressures experienced by any given agency. Copyright © 1999 John Wiley & Sons, Ltd.     

The Differential Empowering Effects of Europeanization on the Autonomy of National Agencies

This article examines the influence of Europeanization on the relationship between ministries and agencies at the national level. The core argument is that the differentiated nature of the international environment (with policy development often transferred to the international level and policy implementation left at the national level) transforms national agencies into policy‐developing actors that shape policies without being directly influenced by their national political principals. The increasingly common involvement of national agencies in European policymaking processes thereby increases these agencies' policy‐development autonomy but does not change their role in policy implementation. We examine this argument by testing an innovative hypothesis—the differentiation hypothesis—on a combined data set of German and Dutch national agencies. Our empirical findings support the hypothesis in both countries, suggesting that similar effects can be expected in other contexts in which semiautonomous agencies are involved in transnational policymaking.     

Performance Contracts and Goal Attainment in Government Agencies

ABSTRACT

Public sector reforms introducing performance contracts provide a unique opportunity to investigate goals set for government agencies and factors affecting goal attainment. The article maps the set of goals contained in performance contracts for Danish government agencies in 2000, 2005, and 2008. Performance contracts are found to reflect the complex character of agency goals with performance goals ranging from project initiation to reducing case work time or increasing productivity. The article also analyzes factors affecting goal attainment. Agencies with a large percentage of goals focused on project initiation and production exhibit higher levels of goal attainment. Also, goal attainment improves as agencies and ministries gain experience with performance contracts.

For practitioners, it is relevant that contracts target a wide variety of goals and over time focus increasingly on results. Contracts serve to focus agency attention as three quarters of all demands are met. A crucial factor seems to be whether agencies are in control of formulating and meeting goals. Efforts to improve the contract regime may thus concentrate on enabling government departments to secure ambitious and relevant performance goals.     

政府部门谋位型腐败的经济学分析

分析了我国政府部门由职务变动引发的腐败问题。在我国市场经济尚未完全建立的现状之下,含有经济租金的一些政府部门职位成为一些人追逐的目标,加上目前我国政府部门的晋升制度还不够完善、政府组织的职位派生能力有限、政府组织与官员个人在实际工作能力和工作绩效方面存在着信息不对称、在补偿机制方面政府职位与经济福利待遇联系紧密等,为以谋取政府职务为目标的腐败行为提供了条件。谋位型腐败同时还成为引发谋利型腐败的一个重要根源。采用经济学研究方法,将谋位型腐败与谋利型腐败糅合在一个模型中加以分析,得出了如下一些结论:谋位型腐败发生的概率与参与同一职位竞争的人数负相关;工作能力弱的备选人相对于工作能力强的备选人更加倾向于采用行贿的手段谋取职务晋升;在两个备选人的工作能力和绩效相当的情况下,谋位型腐败发生的概率上升;谋位者个人、特别是握有人事安排决策权的部门负责人的腐败倾向性是谋位型腐败发生的关键因素;不同职位之间的经济收入差距越大,越易引发谋位型腐败。根据上述结论,提出了相应的政策建议。     

Does the Motivation for Market‐Based Reform Matter? The Case of Responsibility‐Centered Management

Organizational theorists have long examined the implications of market‐oriented policies for public agencies. Current research often aims to understand the effects of policies imposed on organizations by external stakeholder groups, but few studies have attempted to gain a better understanding of what mechanisms cause agencies to select into these strategies. The purpose of this article is to understand, first, which factors make an organization more likely to adopt a decentralized, market‐based budgeting system—termed “responsibility‐centered management (RCM)—and, second, whether this type of system has implications for organizational performance. Using data on doctorate‐granting public and private nonprofit four‐year universities in the United States, the authors find that mission, resource dependence, and state party control influence the take‐up of RCM. In terms of effects, RCM creates winners for graduation rates (white students) and degree production (science, technology, engineering, and math departments), which raises questions of equity across groups.     

The Varieties of Faith-Related Agencies

Although some recent literature suggests religious social service agencies can help governments reach important social program goals, the true social organization and services of the agencies remain in dispute. This article interviews officials in the wide class of "faith-related" agencies in two cities to consider two aspects of this issue: the ties or "coupling" of agencies to faith, and the impact of coupling on agency structure and service programming. The results suggest that many sampled agencies are loosely tied to faith in terms of resources, more tightly coupled in terms of authority, and moderately coupled with respect to culture; that certain aspects of service-delivery technology are heavily secularized in many agencies; that faith is more influential in such matters as the agencies' choices of services; and that the larger, potentially more secularized agencies that might be least likely to be characterized as faith based balance differing sets of resources and thereby can more fully deliver services that arguably express faith in action. Given this finding and that most agencies profess a focus on protecting the dignity and rights of clients rather than on individual responsibility or other themes that are stressed by some recent policy proposals, governments need to be extremely selective in funding agencies to promote those proposals' themes.     

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.     

Representation and Collaboration: Exploring the Role of Shared Identity in the Collaborative Process

Public managers must regularly engage and interact with stakeholders in the external environment to deliver meaningful policy outcomes. Examining the motivations behind such behavior is a critical component of understanding management in the modern era. Some studies suggest that actors with similar interests are more likely to form collaborative partnerships. Using an original mail survey of 150 American Indian education directors in public school districts, this article examines how shared identity and individual attitudes affect levels of interaction with Native American communities. Findings suggest that public school officials who share both a racial and a tribal/co‐ethnic identity with Native American nations in their service area have higher levels of interaction with these groups than public school officials who are either members of Native American nations outside their service area or non‐Indian. This research has broad implications for incorporating theories of representation and social construction into our understanding of collaboration.     

Board Diversity,Stakeholder Representation,and Collaborative Performance in Community Mediation Centers

Does board diversity or representativeness influence organizational performance? Though it is understudied in both the public and the nonprofit sectors, learning more about this critical subject can enhance organizational performance within highly collaborative settings. Community mediation centers, which rely on multiple public and private resources to meet their programmatic objectives, provide excellent case studies for analyzing the impact of different kinds of interorganizational linkages on organizational performance. A multitheoretic view incorporating agency, resource dependence, and stakeholder perspectives is employed through a national sample and a two‐stage analysis using a logic model to test the cumulative impact of board characteristics and interorganizational relationships on organizational outcomes. Organizations’ collaborative capacity depends on several kinds of boundary‐spanning activities, including network ties, revenue sources, and the number of stakeholder groups represented on the board.     

Internal versus External Social Capital and the Success of Community Initiatives: A Case of Self‐Organizing Collaborative Governance in Nepal

Most research examining the relationship between social capital and outcomes focuses on either internal social capital or external social capital. This article examines the impact of both internal and external social capital on the success of self‐organizing community initiatives. A study of community water projects in a developing country, Nepal, shows that communities that enjoy less internal conflict and more external partnerships are more likely to be successful in securing agency funds for their projects. Also, communities face trade‐offs between internal and external social capital. These dimensions of social capital are not perfect substitutes, and communities that maintain a strategic balance between the two maximize gains from a trade‐off. Moreover, such an optimal choice is dependent on the level of internal and external social capital that these communities hold.     

Collaborative Networking,Environmental Shocks,and Organizational Performance: Evidence From Hurricane Rita

An organization's external environment, such as an environmental shock, is of great concern to public management scholars because it influences the behavior and ability of public managers to improve organizational performance. In this study, we examine how collaborative networking with the purpose of preparing for a natural disaster moderates the negative impact of Hurricane Rita on school performance in Texas. Our data consists of survey responses from Texas superintendents who were surveyed shortly after Hurricane Rita about their pre-hurricane disaster preparedness including collaborative networking behavior. Using this dataset, we use a collaborative networking measure that incorporates both the frequency of contact with various groups and the intensity of those interactions. Findings reveal that collaborative networking to prepare for natural disasters moderates the negative impact of a natural disaster on organizational performance.     

Structure and Process: Examining the Interaction between Bureaucratic Organization and Analytical Requirements

Attempts by politicians to control bureaucratic decisions include both structural (how is the agency making the decision organized?) and procedural (what rules must they follow when making the decision?). But how do these two modes of influence interact? This article examines the interaction between bureaucratic structure and one procedural control, the requirement that agencies conduct an analysis of their decisions prior to their issuance. I look at this interaction in the context of two types of analysis, cost‐benefit analysis and environmental impact assessment. I interview 16 individuals in each field and draw from their experiences of conducting and reviewing more than a thousand analyses. The conduct of analysis is affected by where analysts are placed in agencies. In particular, independence of analysts has a trade‐off. The more independent analysts are, the more likely they can challenge preferred decisions in their agency. But independent analysts are brought into decisions later and their independence may limit their long‐term impacts on agency culture. Despite this trade‐off, analysts expressed a clear preference for independence. The interaction between different controls of bureaucratic behavior is a potentially fruitful line for further research.     

Escaping the International Governance Dilemma? Incorporated Transgovernmental Networks in the European Union

This article investigates the role of transgovernmental networks of national regulators in addressing collective action problems endemic to international cooperation. In contrast to recent work on transgovernmental actors, which emphasizes such networks as alternatives to more traditional international institutions, we examine the synergistic interaction between the two. Building on the broader premise that patterns of “dual delegation” above and below the nation‐state enhance the coordinating role of networks of national agencies in two‐level international governance, the article examines the formal incorporation of transgovernmental networks into European Union (EU) policymaking. The focus on authoritative rule‐making adds a crucial dimension to the landscape of EU governance innovations while connecting to the broader study of transgovernmental networks in international governance. The article develops an analytical framework that maps these incorporated networks across different sectors in terms of function, emergence, and effectiveness. Two case studies of data privacy and energy market regulation are presented to apply and illustrate the insights of this mapping.     

How Creating Semiautonomous Agencies Affects Staff Satisfaction

Abstract

Structural reforms such as the creation of autonomous agencies are a widely heralded solution for a multitude of problems in the public sector. These reforms have effects on public employees. This article shows how the structural disaggregation of ministries into autonomous agencies affects staff satisfaction with the organization. The article discusses three cases, where Dutch public organizations were either disaggregated from a ministry or reaggregated to the ministry. These structural reforms constitute a quasiexperimental setting where effects on agency staff and parent ministry staff are compared. In one case, creating the agency led to a decrease in staff satisfaction with the organization as compared to the staff that remained within the ministry. A second case showed that these negative effects linger and can last for more than eight years. An inverse organizational change—reaggregation—caused inverse effects: increasing satisfaction with the organization.     

The regulatory state and the UK Labour Government's re‐regulation of provision in the English National Health Service

Following its election in 1997, the UK Labour Government embarked upon a 10 year program of reform of the National Health Service (NHS). By 2005, Labour had doubled the NHS budget and dramatically transformed the shape of the Service. In England, a basic characteristic of the NHS is the organizational split between provider and commissioning agencies. In this article I argue that Labour's re‐regulation of NHS provision is a coherent representation of the influence of the “regulatory state” in restructuring arrangements between government, market, and society. The article offers an account of the regulatory state based on a discussion of five key theses: The Audit Society, Regulation Inside Government, The New Regulatory State, The British Regulatory State, and Regulatory Capitalism. The article unfolds Labour's program of reform across themes common to these accounts: the division of labor between state and society, the division of labor within the state, the formalization of previously informal controls, and the development of meta‐regulatory techniques of enforced self‐regulation. It concludes that the key themes of the regulatory state are at work in Labour's transformation of NHS provision and it offers a discussion of the implications for both scholars of regulation and the UK and European health policy literature.