Strategies for intergovernmental management: Implementing programs in interorganizational networks

International Journal of Public Administration

Volumn 11, Issue 4, 1988, Pages 417-441

  O'Toole, Laurence J ^a  

^a AUBURN UNIVERSITY   (United States)

Author keywords

[No Author keywords available]

Indexed keywords

EID: 84934452760     PISSN: 01900692     EISSN: 15324265     Source Type: Journal    
DOI: 10.1080/01900698808524596     Document Type: Article

References (43)

1. Hjern, Benny and Porter, David 0. “Implementation Structures: A New Unit for Administrative Analysis.” Organization Studies 2 (July 1981): 211–37.
2. Hjern, Benny. “Implementation Research — The Link Gone Missing.” Journal of Public Policy 2 (August 1982): 301–308.
3. For example, Barrett, Sue, and Fudge, Colin, eds. Policy and Action, Methuen, London, 1981; Elmore, Richard F. “Backward Mapping: Implementation Research and Policy Decisions.” Political Science Quarterly 94 (Winter 1979-80): 601-616; Hanf, Kenneth, and Scharpf, Fritz, eds. Interorganizational Policy Making, Sage, London, 1978; Hjern, Benny, and Hull, Chris. “Small Firm Employment Creation: An Assistance Structure Explanation” in Hanf, Kenneth, and Toonen, Theo A.J., eds. Policy Implementation in Federal and Unitary Systems, Martinus Nijhoff, The Hague. Cf. Sabatier, Paul A. “Top-Down and Bottom-Up Approaches to Implementation Research: A Critical Analysis and Suggested Synthesis.” Journal of Public Policy 6 (February 1986): 21–48.
4. See, for instance, Agranoff, Robert J. Intergovernmental Management: Human Services ProblemSolving in Six Metropolitan Areas, SUNY Press, Albany, 1986; Kettl, Donald F. “The Fourth Face of Federalism.” Public Administration Review 41 (May/June 1981): 366-71; Kettl. Government by Proxy, CQ Press, Washington, D.C., forthcoming 1987; Mulford, Charles L. Interorganizational Relations: Implications for Community Development, Human Services Press, New York, 1984, 91.
5. Cf. Agranoff. Intergovernmental Management; Conlan, Timothy J. “Federalism and Competing Values in the Reagan Administration.” Publius 16 (Winter 1986): 29–47; and O'Toole, Laurence J., Jr., ed. American Intergovernmental Relations, CQ Press, Washington, D.C., 1985.
6. Wright, Deil S. “Managing the Intergovernmental Scene: The Changing Dramas of Federalism, Intergovernmental Relations, and Intergovernmental Management” in Eddy, William B. Handbook of Organizational Management, Marcel Dekker, New York, 1983, 442–49.
7. See, for labor market policy, Aldrich, Howard. “Resource Dependence and Interorganizational Relations: Local Employment Service Offices and Social Service Sector Organizations.” Administration and Society 7 (February 1976): 419-54; Hanf, Kenneth, Benny Hjern, and David O. Porter. “Local Networks of Manpower Training in the Federal Republic of Germany and Sweden” in Hanf and Scharpf, eds. In ter organizational Policy Making; and O'Toole, Laurence J., Jr. “Interorganizational Co-operation and the Implementation of Labour Market Training Policies: Sweden and the Federal Republic of Germany.” Organization Studies 4 (April 1983): 129-50; for transportation, Mandell, Myrna. “Application of Network Analysis to the Implementation of a Complex Project.” Human Relations 37 (August 1984): 659-79; for youth services, Elmore, Richard F. “Forward and Backward Mapping: Reversible Logic in the Analysis of Public Policy” in Hanf and Toonen, eds. Policy Implementation; Van de Ven, Andrew H., and Walker, Gordon. “The Oynamics of Interorganizational Coordination.” Administrative Science Quarterly 29 (December 1984): 598-621; for law enforcement, Ostrom, Elinor, Parks, Roger B., and Whitaker, Gordon P. Patterns of Metropolitan Policing, Boston, Ballinger Books, 1978; and for community development, Mulford. Interorganizational Relations.
8. Aldrich, Howard, and Whetten, David A. “Organization-sets, Action-sets, and Networks: Making the Most of Simplicity” in Nystrom, Paul C., and Starbuck, William H., eds. Handbook of Organizational Design, vol. 1, Oxford University Press, Oxford, 1981.
9. For a discussion of these literatures see O'Toole, Laurence J., Jr. “Policy Recommendations for MultiActor Implementation: An Assessment of the Field.” Journal of Public Policy 6 (May 1986): 181–210.
10. Examples are Aldrich and Whetten. “Organizationsets”; Galaskiewicz, Joseph. “Interorganizational Relations.” Annual Review of Sociology 11 (1985): 281–3 0 4; Hanf and Toonen, eds. Policy Implementation; and Mulford, Interorganizational Relations. Work is continuing through a network of U.S. and European social scientists, Scholars Interested in MultiOrganizational Policy Analysis (SIMOPA), to clarify and analyze the research approaches that have been developed to study multi-organizational settings.
11. Dyadic analyses have reached a fairly high level of sophistication and have included some longitudinal (as well as cross-sectional studies (e.g., Van de Ven and Walker. “Dynamics”). On the distinctions among concepts see Aldrich and Whetten. “Organization-sets.”
12. Ibid.; Benson, Kenneth. “The Interorganizational Network as a Political Economy.” Administrative Science Quarterly 20 (June 1975): 229–48; Galaskiewicz. “Interorganizational Relations.” Empirical work on mandated structures includes Aldrich. “Resource Dependence”; Hall, Richard H., Clark, John P., Giordano, Peggy C., Johnson, Paul V., Van Roekel, Martha. “Patterns of Interorganizational Relationships.” Administrative Science Quarterly 22 (September 1977): 457–74; Schmidt, Stuart M., and Thomas A. Kochan. “Interorganizational Relationships: Patterns and Motivations.” Administrative Science Quarterly 22 (June 1977): 220-34; and Molnar, Joseph J., and Rogers, David L. “Interorganizational Coordination in Environmental Management: Process, Strategy, and Objective” In Mann, Dean E., ed. Environmental Policy Implementation, D.C. Heath, Lexington, Mass., 1982.
13. Pressman, Jeffrey L., and Wildavsky, Aaron. Implementation 3d ed. Berkeley, University of California, 1984.
14. Goggin, Malcolm L. “The “Too Few Cases/Too Many Variables Problem in Implementation Research.” Western Political Quarterly 34 (June 1986); 328–47. On the value of cases, see Yin, Robert K. “Studying the Implementation of Public Programs” in Williams, Walter, et al. Studying Implementation: Methodological and Administrative Issues, chatham House, Chatham, N.J., 1982; and Agranoff. Intergovernmental Management.
15. See Sabatier. “Top-Down and Bottom-Up“; also Lester, James P., Bowman, Ann, Goggin, Malcolm L., and O'Toole, Laurence J., Jr. “Public Policy Implementation: Evolution of the Field and Agenda for Future Research.” Policy Studies Review, forthcoming 1987.
16. These points are documented in some detail in O'Toole. “Policy Recommendations.”
17. See Molnar, Joseph J. “Qualitative and Quantitative Methods in Interorganizational Research” in Mulford. Interorganizational Relations, 199–203.
18. Cook, Karen S. “Exchange and Power in Networks of Interorganizational Relations.” Sociological Quarterly 18 (March 1977): 62-82; Cook, Emerson, Richard M., Gillmore, Mary R., and Yamagishi, Toshio. “The Distribution of Power in Exchange Networks: Theory and Experimental Results.” American Journal of Sociology 89 (September 1983): 295–305. For an effort to reformulate the concepts and the theory in a potentially-productive fashion, see Willer David. “Power and Centrality.” in Burger, J., and Zelditch, M., eds. Sociological Theories in Progress 3, University of Pittsburgh Press, forthcoming.
19. Mulford. Interorganizational Relations, 159.
20. Hjern and Porter. “Implementation Structures”; Mandell, Myrna. “Intergovernmental Management in Interorganizational Networks: A Revised Perspective.” International Journal of Public Administration, this issue.
21. Agranoff and Lindsay, Valerie. “Intergovernmental Management: Perspectives from Human Service Problem Solving at the Local Level.” Public Administration Review 43 (May/June 1983): 227-37; Gage, Robert W. “Federal Regional Councils: Networking Organizations for Policy Management in the Intergovernmental System.” Public Administration Review 44 (March/April 1984): 1 34–45; Mandell. “Application”; and O, roole, Laurence J., Jr. and Montjoy, Robert S. “Interorganizational Policy Implementation: A Theoretical Perspective.” Public Administration Review 44 (November/December 1984): 491–503.
22. Agranoff. Intergovernmental Management; Peterson, Paul E., Rabe, Barry G., and Wong, Kenneth K. When Federalism Works, Brookings, Washington, D.C., 1986; and Mazmanian, Daniel, and Sabatier, Paul. Implementation and Public Policy, Glenview, 111., Scott, Foresman, 1983.
23. E.g., Derthick, Martha. The Influence of Federal Grants, Harvard University Press, Cambridge, 1970.
24. See Hjern. “Implementation Research”; Mandell. “Application”; and Sabatier. “Top-Down and Bottom-Up.”
25. See, e.g., O'Toole and Montjoy. “Interorganizational Policy Implementation.”
26. E.g., Pfeffer, Jeffrey, and Salancik, Gerald R. The External Control of Organizations, Harper & Row, New York, 1978.
27. The term is taken from Collard, David. Altruism and Economy, Robertson, Oxford, 1978.
28. This framework is taken largely from O'Toole and Montjoy. “Interorganizatlonal Policy Implementation.”
29. Agranoff. Intergovernmental Management; cf. Benson, “Interorganizational Network”; and Benson and Weitzel, Carla J. “Social Structure and Social Praxis in Interorganizational Policy Analysis” in Hanf and Toonen, eds. Policy Implementation.
30. The references are, respectively, Friend, J.K., Power, J.M., and Yewlett, C.J.L. Public Planning: The Inter-Corporate Dimension, Tavistock, London, 1 974; Bardach, Eugene. The Implementation Game, MIT Press, Cambridge, 1977; O'Toole. “Interorganizational Cooperation”; and Mandell. “Application.”
31. See Hall, et al. “Patterns”; cf. Aldrich. “Resource Dependence.”
32. McFarland, Andrew S. “Interest Group Theory and Policy Implementation Studies.” Paper prepared for annual meeting of the Midwest Political Science Association, Chicago, April 10, 1987.
33. O'Toole. “Interorganizational Co-operation.”
34. Pressman and Wildavsky. Implementation. See also, e.g., Kelman, Steven. “Using Implementation Research to Solve Implementation Problems: The Case of Energy Emergency Assistance.” Journal of Policy Analysis and Management 4 (Fall 1984): 75–91
35. Bowen, Elinor. “The Pressman-Wildavsky Paradox: Four Addenda on Why Models Based on Probability Theory Can Predict Implementation Success and Suggest Useful Tactical Advice for Implementers.” Journal of Public Policy 2 (February 1982): 1–21.
36. O'Toole and Montjoy. “Interorganizational Policy Implementation.” The typolocy was first sketched in Thompson, James D. Organizations in Action. McGraw-Hill, New York, 1967.
37. O'Toole and Montjoy. “Interorganizational Policy Implementation.”
38. Lowi, Theodore. “American Business and Public Policy, Case Studies and Political Theory.” World Politics 16 (July 1964): 677-715; Peterson, Rabe, and Wong. When Federalism Works.
39. (39) O'Toole. “Interorganizational Co-operation.”
40. There are many examples to document this generalization. See, for instance, Agranoff. Intergovernmental Management.
41. O'Toole. “Interorganizational Co-operation”:146.
42. Durant, Robert F. “EPA, TVA, and Pollution Control: Implications for a Theory of Regulatory Policy Implementation. “Public Administration Review 4 4 (July/August 1984): 305–315.
43. The term is from Scharpf, Fritz W., Reissert, Bernd, and Schnabel, Fritz. “Policy Effectiveness and Conflict Avoidance in Interorganizational Policy Formation” in Hanf and Scharpf, eds. Interorganizational Policy Making. See also Agranoff. Intergovernmental Management: 180; and O'Toole. “Interorganizational Co-operation”: 141.