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Collaboration Across Boundaries:Ten Compelling Ideas
Rosemary O’LearyEdwin O. Stene Distinguished Professor
School of Public Affairs and AdministrationUniversity of Kansas
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#1 Think DaVinciLateral thinking
Creativity that stems from taking knowledge from one context or discipline and applying it to another
DaVinci: art, science, engineering, mathematics, medicine, architecture
Human arm bird’s wing flying machine
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New survey results: 1400 local government managers
97% use collaboration as management and leadership strategy
Why? 86% = “right thing to do”
Why? 84% = leverage resources
Why? Better performance outcomes (e.g., economic benefits, economies of scale)
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Why Collaborate?
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Policy and Service Areas of Collaboration
Infrastructure26%
Economic development14%
Fire/emergency management14%
Public safety13%
Housing11%
Information 6%
Substance abuse5%
Environment5%
Education5%
Social services2%
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What Makes Collaboration Work?
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Positive Results of Collaboration
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Negative Results of Collaboration
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Challenges to Collaboration
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#2 Collaboration
“101 Definitions of Collaboration”
Collaboration means working across boundaries and in multi-organizational arrangements to solve problems that cannot be solved – or easily solved – by single organizations or jurisdictions.
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Three Types of Collaboration Most Often Mentioned in Literature
Interorganizational
Group of Individuals
Public Participation
(From a review of over 200 articles)
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Example: Interorganizational
Metropolitan Alliance of Community Centers (MACC) Coalition of 13 human service organizations in Minneapolis-St.PaulCompetitors collaborated for fundingShared resources in finance, human resources, technology
(Source: www.e-parc.org and www.maxwell.syr.edu/parc/eparc)
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Example: Group of Individuals(also includes work place teams)
Young Professionals Network for the Arts
Purpose: Develop the next generation of civic arts leaders
Bring together volunteer oriented young professionals to build arts above ground and below ground infrastructure in central Florida
(Source: www.e-parc.org and www.maxwell.syr.edu/parc/eparc)
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Example: Public Participation
Collaborative budgeting in Menlo Park, California (“Your City/Your Decision”)Phase One: SurveyPhase Two: Community workshops. Findings: Community preference for combined approach of cost reductions, taxes, and fee increases (not reduction or service elimination).
(Source: www.cacities.org)
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Collaborative Public Management: What is it?
Collaborative public management is a concept that describes the process of facilitating and operating in multiorganizational arrangements to solve problems that cannot be solved or easily solved by single organizations.
Agranoff and McGuire
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Networks
Structures of interdependence, involving multiple nodes – agencies and organizations – with multiple linkages
Can be formal or informal
Public goods or services planned, designed, produced and delivered
Public, private, non-profit(O’Toole 1997; McGuire 2003; Agranoff 2004)
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#3 Why the Growth of Collaborative Public Management?
Many public challenges are larger than one organization or jurisdictionNew approaches to addressing public issuesDoing more with lessTechnology is flattening hierarchyChanging views of leadership and managementGreater role for public
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#4 Major Challenges
All networks/collaborations are not created equal
Motivation to collaborate varies
Collaboration not always wise
Trend toward short-term “couplings”
Calls for new management and leadership strategies and skills
Paradox: Collaboration can yield conflict
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The complexity of managing organizational networks
Networks are interorganizational and interpersonal
Multiple members
Members bring both disparate and common missions
Each network organization has a different organization culture
Each network organization has a
different method of operation
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The complexity of managing organizational networks
Network organizations usually have different stakeholder groups and different funders
Network members have different degrees of power
Often multiple issues
Multiple forums for decision-making
Variety of governance structures available to networks
Conflict within network and with the public
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Example
Center for Disease Control national response to pandemic flu epidemic working with county health professionals, federal agencies, industry, consumer advocates, state governments, minority groups
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#5 Management Paradox
Those who work in networks must work both with autonomy and interdependence.
Members and networks have both common and diverse goals
Members work with both a smaller number and a greater variety of groups
Members need to be both participative and authoritative
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Management Paradox
Members need to see both the forest and the trees
Members must balance advocacy and inquiry
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Example
State of Arizona – Wilderness Working Groups develop land management strategies for each local area. Bring together environmental advocates, ranchers and farmers, industry officials, and government representatives.
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#6 Some Factors Affecting the Success of Collaborations
Context
Purpose and Mission
Member Selection and Capacity Building
Motivation and Commitment of the Collaborators
Structure and Governance
Power
Accountability
Communication
Perceived Legitimacy
Trust
Information Technology
Personal Attributes of Collaborators
Other?
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#7 Importance of the Individual
Frederickson (2007): While organizations and established jurisdictions do formally collaborate, it is always in the form of managers and officials.
Effective collaboration is “deeply dependent” upon the skills of officials and managers.
Organizations may appear to collaborate, but in fact it is the individuals representing organizations who collaborate.
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#8 The Leadership Challenge
More than 90% of global executives surveyed last year by the Center for Creative Leadership said collaboration is vital for leadership success.
But less than half of those same executives said the leaders in their organizations were actually good at it.
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#9 “Leading When You Are Not In Charge”
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Solutions Often Transcend the Position of Any Single Participant
Salamon (2005) “. . . [S]hifts the emphasis from management skills and the control of large bureaucratic organizations to enablement skills, the skills required to engage partners arrayed horizontally in networks, to bring multiple stakeholders together for a common end in a situation of interdependence.”
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#10 Skills Needed to Collaborate Across BoundariesFacilitation
Collaborative problem solving
Conflict management
Negotiation
Individual Attributes
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Skillset of Collaborator (ICMA)
Individual Attributes Interpersonal Skills Strategic Leadership Skills
Group Process Skills Technical Skills0
200
400
600
800
1000
1200
1400
1600
1800
2000
Tim
es m
entio
ned
by R
espo
nden
ts
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Individual Attributes
Open m
inded
Unselfish
Patien
ce
Trustw
orthy
Self C
onfident &
risk-o
riented
Flexib
le
Honest
Persist
ent &
diligen
t
Goal orie
nted
Empath
etic
Respectf
ul
Diplomatic
Decisiv
e
Self A
ware
Frien
dly
Sense
of Humor
0
20
40
60
80
100
120
140
160
Num
ber o
f Res
pond
ents
who
Men
tione
d Ea
ch C
once
pt
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Interpersonal Skills
Effective Communication Listening Interpersonal Ability0
50
100
150
200
250
300
Num
ber o
f Res
pond
ents
who
Men
tione
d Ea
ch C
once
pt
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Example
Conference of State Bank Supervisors in Mortgage Policy working with 50+ state agencies/regulators to come to ONE nationwide, voluntary policy on how to license loan originators
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Top 10 Greatest Hits
#1 Think DaVinci
#2 101 Definitions of collaboration
#3 Why we collaborate
#4 Major challenges
#5 Management paradox
#6 Factors affecting collaborations
#7 Importance of the individual
#8 The shifting leadership challenge
#9 Leading when you are not in charge
#10 “New” skills
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Contact information:
Rosemary O’Leary
Edwin O. Stene Distinguished Professor
School of Public Affairs & Administration
University of [email protected]
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Backup Slide
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Collaboration vs. Cooperation
-----------------------------------------------------Cooperation……….…… Coordination…….……... Collaboration………….... Service Integration
(Selden, Sowa and Sandfort 2002; Keast, Brown, and Mandell 2007)