Robert Agranoff - Managing Within Networks: Adding Value to Public Organizations

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Managing within Networks

Public Management and Change Series
Beryl A. Radin, Series Editor

Editorial Board
Robert Agranoff
Michael Barzelay
Ann OM. Bowman
H. George Frederickson
William Gormley
Rosemary OLeary
Norma Riccucci
David H. Rosenbloom

Titles in the Series

Challenging the Performance Movement: Accountability, Complexity, and Democratic Values, Beryl A. Radin

Charitable Choice at Work: Evaluating Faith-Based Job Programs in the States, Sheila Suess Kennedy and Wolfgang Bielefeld

The Greening of the U.S. Military: Environmental Policy, National Security, and Organizational Change, Robert F. Durant

How Management Matters: Street-Level Bureaucrats and Welfare Reform, Norma M. Riccucci

Managing within Networks: Adding Value to Public Organizations, Robert Agranoff

Measuring the Performance of the Hollow State, David G. Frederickson and H. George Frederickson

Revisiting Waldos Administrative State: Constancy and Change in Public Administration, David H. Rosenbloom and Howard E. McCurdy

Managing within Networks

Adding Value to Public Organizations

Robert Agranoff

As of January 1, 2007, 13-digit ISBN numbers will replace the current 10-digit system.
Paperback: 978-1-58901-154-0
Cloth: 1-58901-154-6

Georgetown University Press, Washington, D.C.
2007 by Georgetown University Press. All rights reserved. No part of this book may be reproduced or utilized in any form or by any means, electronic or mechanical, including photocopying and recording, or by any information storage and retrieval system, without permission in writing from the publisher.

Portions of chapter 6 first appeared in the grant report Leveraging Networks: A Guide for Public Managers Working across Organizations, Washington, D.C.: IBM Center for the Business of Government, 2003. Reprinted in Collaboration: Using Networks and Partnerships, Lanham, MD: Rowman & Littlefield, 2004.

Library of Congress Cataloging-in-Publication Data

Agranoff, Robert.

Managing within networks: adding value to public organizations/Robert Agranoff.
p. cm. (Public management and change series)
Includes bibliographical references and index.
ISBN-13: 978-1-58901-154-0 (alk. paper)
ISBN-10: 1-58901-154-6 (alk. paper)
1. Public administrationUnited States. 2. Interorganizational relationsUnited States. I. Title.

JK421.A56 2007

351.73dc22 2006031171

This book is printed on acid-free paper meeting the requirements of the American National Standard for Permanence in Paper for Printed Library Materials.

14 13 12 11 10 09 08 07 9 8 7 6 5 4 3 2
First printing

Printed in the United States of America

CONTENTS

Chapter One
PUBLIC NETWORKS

Chapter Two
NETWORKS IN PUBLIC MANAGEMENT

Chapter Three
TOWARD A NETWORK TYPOLOGY: METHODOLOGY OF THE STUDY

Chapter Four
INFORMATIONAL AND DEVELOPMENTAL NETWORKS

Chapter Five
OUTREACH AND ACTION NETWORKS

Chapter Six
COLLABORARCHY: A DIFFERENT KIND OF MANAGEMENT?

Chapter Seven
NETWORKS AS KNOWLEDGE MANAGERS

Chapter Eight
DO NETWORKS PERFORM? ADDING VALUE AND ACCOUNTING FOR COSTS

Chapter Nine
NETWORKS AT THE BOUNDARIES OF THE STATE

Chapter Ten
MANAGING IN PUBLIC NETWORKS

Appendix A
A DETAILED LOOK AT THE FOURTEEN PMNS

Appendix B
THE SEQUENCE OF C ODING FOR THE TYPOLOGY

TABLES AND FIGURES

TABLES

FIGURES

PREFACE

THE TERM NETWORK is widely used these days, and we can ordinarily decipher from the context what type of network is meant. We sometimes use a modifier, like broadcast network or network of friends, because in this age of the network there are so many different kinds of networks. Those of us studying the emergent entities that involve public organizations, both governmental and nongovernmental, note that their operatives increasingly engage in cross-organization networks. As a result, these networks deserve to be profiled and understood in the same way that bureaucratic and nonprofit voluntary organizations have been. That is the mission of this work.

I call these networks public management networks (PMNs) because they primarily involve officials at the administrator/specialist level in federal government, state government, metropolitan-level government, local government, and nongovernmental organizations (for-profit and nonprofit). These officials exchange information, manage knowledge, and address problems of mutual concern. These public entities come together to deal with problems that they cannot solve alone. They use the network or PMN form of organized entity because it provides the flexibility and stability needed while partners home organizations, where they spend the majority of their time, remain largely intact and do most of the work. It is important to look into these networks since more and more public organizations are choosing the network form for collaboration.

As the title suggests, the distinguishing feature of this volume is the focused look inside the PMN. Many works talk about the importance of networks; considerably fewer look at how they operate and are managed, the results that their work accrues, or the impact on the public organizations from which they are drawn. Using an inductive qualitative methodology, I look deeply into the fourteen PMNs we study here and provide additional academic and practical information. Whereas there were multiple data sources, the primary onethe basis for most tables and illustrative quoteswas confidential discussions with network participants. The aim is to broaden understanding in order to improve action.

The book is designed for a broad audience of students, practitioners, and academic researchers. For many students, it can provide an introduction to these emergent entities, how they work at the boundaries of organizations, and how nettlesome public problems are approached. The book would be useful in a wide range of courses, including political science, public administration, public policy, urban studies, and intergovernmental relations. To practitioners in transportation, community development, environmental protection, economic development, information systems, communications, and numerous other public policy fields, the book can serve as a guide to their work in PMNs. It will aid them in their understanding of what to expect in practice. For the academic research community, the book develops insights into the internal workings of these organized entities. It is dedicated to the idea that scholars must go beyond theoretical assertions about the importance of networks, and investigate their functioning and results as well.

As one of the first attempts to look at the internal workings of networks, there were some aspects of network management that had to be set aside. Some examples include a full treatment of network power, more extensive process treatment of how agreements are reached, key social network interaction flows, and operational rules of networks that may be analytical parallels of trust. These exclusions will no doubt disappoint some network researchers, inasmuch as these arenas are topics that have been explored elsewhere. The decision to focus on decision type, structure, knowledge management, value-adding, and the role of networks vis--vis government precluded other important arenas. Moreover, the grounded theory methodology, adapted and focused by topics within the core literature as in the social sciences, allows only limited emergence of some topics from the data.

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