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SummaryGovernance Networks in the Public Sector
Klijn, E.K. & Koppenjan, J.
2016
ISBN: 978-0-415-70701-5
,Chapter 1: Governance networks in the public sector; an introduction
An example for a complex governance process is:
- Organizing integrated healthcare and social services for older people, which requires close
cooperation between various health, welfare, social and housing organizations that may be
public, private, or non-profit, financed by, for instance, government or insurance companies.
This problem is ‘’wicked’’ because (1) the problem deals with various actors on different
levels and (2) they go across social, private and public domains.
In this section, we seek to clarify what is actually meant by government, governance and
governance networks.
Government: The traditional Public Administration Model
Government refers to public problem solving, policymaking, and service delivery according
to the TPAM that dominated the PA practice in many countries all over the world for a large
part of the twentieth century. It akes to the well known bureaucracy that we’ve been studying
for years.
What is governance?
1. Governance as good governance or as corporate governance
In this view, governance refers to the priniciples of a properly functioning public
administration. Such an administration is characterized by the fair treatment of
citizens and an unambiguous organization that adheres to the basic principles of the
rule of law.
2. Governance as New Public Management (or market governance)
Under this definition, the role of governments is to steer, rather than to row. The
implementation of policies and delivery of services are done by private
organizations and they use mechanisms such as benchmarking etcetera.
3. Governance as multi-level governance or inter-governmental relations
This literature focuses on specific types of networks in which public actores from
various governmental levels have prominent positions.
4. Governance as network governance (or as self-steering)
Governance takes place within networks of public and non-public actors, and the
interaction between these groups make processes complex and difficult to
manage. The focus here is on the complex interaction process in a network of
public, private and societal actors, including individuals etcetera.
Although these conceptualizations of governance are different, they share some elements. All
of them (1) emphasize the process of governing rather than the structure of government, (2)
acknowledge the limits of governmental power and (3) that governments are dealing with
complexities which shifts from government to governance.
Four misunderstandings about governance
1. Governance is everywhere
Still much policies are done in an old fashioned setting, such as tax collection.
2. Governance is NPM
Governance tends to emphasize the horizontal relationships between governmental
organizations and other organizations while via NPM governments should give out clear goals
and leave the implementation to others.
3. Governance is a-political or technocratic
,Governance makes choices about policies possible which leaves it open for political
decisions.
4. Governance is composed of self-governance networks
Self-governing networks get blocked or steered because of perceptions and interest.
Defining governance networks and network governance
Altough governance networks are conceptualized in a variety of ways, most definitions have
certain common characteristics:
Networks are characterized by complex policy problems that cannot be solved by one
actor alone, but require the collective actions of several actors
Networks have relatively high interdependencies between actors because resources
necessary to solve problems are owned by different actors
These interdependencies cause a high degree of strategic complexity and an
unpredictable course of interactions as actions of one actor affect the interests and
strategies of other actors.
Networks have complex interactions because each of the actors is autonomous and has
its own perception of problems, solutions and strategies.
Network interactions show some durability over time.
We define governance networks as more or less stable patterns of social relations between
mutually dependent actors, which cluster around a policy problem, a policy programme,
and/or a set of resources and which emerge, are sustained and are changed through a series
of interactions.
Governance network processes are all the interaction processes within governance networks
addressing a specific problem, policy, programme or public service.
Network governance we define as the set of conscious steering attempts or strategies of actors
within governance networks aimed at influencing interaction processes and/or the characterics
of these networks.
Network management we define as all the deliberate strategies aimed at facilitating and
guiding the interactions and or changing the features of the network with the intent to further
the collaboration within the network processes.
We distinguish three major types of complexity that characterize governance networks:
substantive, strategic and institutional complexity:
1. Substansive complexity; it is caused by uncertanity and lack of consensus over the nature of
problems, their causes and solutions.
2. Strategic complexity; springs from the strategic choices actors make with regards to
problems, policies and services. It concerns the fundamentally erratic and unpredictable
nature of interaction processes within governance networks. This complexity is not easy to
reduce and can never be eliminated completely.
3. Institutional complexity; interaction in governance networks is characterized by clashes
between divergent institutional regimes and displays institutional complexity.
, Chapter 2: An intellectual history of networks
We distinguish three traditions of research, each focusing on a different type of network.
1) Research on policy networks:
This tradition is rooted in political science. It focuses on the questions of which actors
participate in public policymaking and which actors have power.
‘’Which actors are involved in decision making?’’
2) Research on inter-organizational service delivery and policy implementation:
Focuses on resource interdependencies and networks as vehicles for service delivery and
implementation. It uses an organizational perspective, emphasizing coordination,
performance, organizational structure and strategies.
‘’How can complex integrated services be coordinated?’’
3) Research on collaborative governance and intergovernmental relationships:
Stems from the public administration tradition and focuses on the governance problems of
complex policy problems that evolve in a fragmented institutional context. Focuses also on
implementation networks around policy implementations.
Tradition 1: Policy networks: policymaking in networks
This tradition has focused on the influence of interest groups on decision making, the process
of agenda building, and the opportunities that occur in these processes.
Inside this approach there was a longstanding argument between the pluralis and elitists
concepts.
The pluralists stated that the set or actors varied with each decision process and that the
policital arenas were relatively open: many organized groups could gain entrance if they
wanted. The political process is a market place.
The elitists in turn stated that power was in the hands of a small elite that held the important
positions. Consequently, other groups were systematically excluded from the decision-making
process.
Social Network Theory: In the social network theory, the structure of a social system is
conceptualized and measured as patterns of relations between actors. This can be deduced by
examining ties between various actors (gaat over netwerken).
Parrallel to, and partly influenced by the rise of research on agenda building, the concept of
subsystems or subgovernments was developed (1960s – 1970s). These subgovernments
referred to the pattern of interactions, or actors, involved in making decisions in a special area
of public policy.
Subgovernments can be opened to outsiders if:
Subgovernment participants themselves disagree fundamentally on some points;
The preseident or other high administrative officials and members of congres
sintervene and mobilize resources to achieve changes;
New policy issues attract the attention of outsiders, and these issues are placed within
the subgovernment by outsiders or by members of the subgovernments themselves.
Subsystem = compromised of actors seeking to influence the authorative allocation of values.
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