Participation and Political Influence in Complex Governance Systems

Public policy generally emerges from interactions among actors embedded within complex governance systems, composed of multiple actors and forums (issue‐based arenas where stakeholders repeatedly interact to resolve collective action problems). Such systems allow actors multiple forums wherein they can influence policy decisions. But actors do not value the decisions made in each forum equally, and it remains unclear how actors allocate resources across forums. This article links actor strategy to their influence within the forums the actors identify as most important (their primary forum). There is theoretical ambiguity about how actors invest their limited resources across the forums that affect their interests to maximize primary forum influence. Do they concentrate all their effort within the primary forum or participate more broadly? To answer this question, we offer two competing theories. First, broad participation may allow actors to develop political capital necessary to influence other actors and thus influence primary forum policies. The second approach notes the opportunity costs of broad participation—actors have fewer resources to invest in their primary forum. An analysis of stakeholder participation in the Sacramento–San Joaquin River Delta and Tampa Bay Watershed governance systems demonstrates that broader participation is associated with greater primary forum influence.     

Collaborative Networks for Effective Ecosystem‐Based Management: A Set of Working Hypotheses

Ecosystem‐based management (EBM) represents a comprehensive approach to better govern the environment that also illustrates the collaborative trend in policy and public administration. The need for stakeholder involvement and collaboration is strongly articulated, yet how and for what purposes collaboration would be effective remains largely untested. We address this gap by developing and evaluating a set of hypotheses specifying how certain patterns of collaborations among actors affect their joint ability to accomplish EBM. Content analyses of management plans drawn from five EBM planning processes in Sweden are combined with analyses of the collaborative networks through which these plans have been developed. Our results indicate that system thinking and the ability to integrate across different management phases are favored by collaborations between different kinds of actors, and by project leaders being centrally located in the networks. We also find that dense substructures of collaboration increase the level of specificity in the plans in regards to explicating constraints on human activities. Having many collaborative ties does however not enhance the overall level of specificity. Our results also show that different network characteristics can give rise to similar EBM outcomes. This observed equifinality suggests there is no single blueprint for well‐performing collaborative networks.     

Ideology,Power, and the Structure of Policy Networks

This article investigates the role of power and ideology in the endogenous formation of policy networks. According to the Advocacy Coalition Framework (ACF), shared ideology (conceptualized as a system of policy‐relevant beliefs and values) is the primary driver of collaboration within policy subsystems. On the other hand, Resource Dependency Theory suggests that power‐seeking is an important rationale behind network structure, and that collaborative ties are formed primarily on the basis of perceived influence. Hypotheses are tested using a new method of egocentric network correlation, based on survey data of policy networks in five regional planning subsystems in California (N = 506). Results suggest that ideology is an important force behind network cohesion: Not only do policy elites systematically avoid networking with ideologically dissimilar actors but collaborative ties are also systematically formed among actors with shared beliefs. Power‐seeking does not operate on a network‐wide scale but may drive network formation among coalitions of ideologically similar agents.     

The Impact of Forum Interdependence and Network Structure on Actor Performance in Complex Governance Systems

One of the main assumptions of the Ecology of Games Framework (EGF) is that governance processes are heavily affected by the interactions among policy actors that take place in multiple decision‐making forums, which often function interdependently. In this article, we use data collected in the Tampa Bay and California Delta water governance systems to examine how “biophysical interdependence”—the extent to which forums deal with interconnected policy problems—impacts the costs that actors face when they participate in forums, which in turn can affect their performance in them. Furthermore, we examine how the individual information exchange networks that actors have (i.e., their ego‐networks) can mediate the previous relationship. We find that actors with networks that have more closure are better able to mitigate the costs associated with participating in biophysically interdependent forums, thus leading to better in‐forum performance. Our findings shed new light on the relationship between structure and function in complex ecologies of games.     

Participation in Multiple Decision Making Water Governance Forums in Brazil Enhances Actors’ Perceived Level of Influence

The Ecology of Games Framework (EGF) draws attention to the intertwined nature of different forums in a given policy setting and how this affects governance outcomes. In this article, we associate the EGF with the literature on power asymmetries, in order to investigate hypotheses of actors’ perceived level of influence in a forum. Focusing on the Paraíba do Sul river basin committee in Brazil, we specifically explore actors’ participation in multiple forums, time spent participating in the basin committee, and actors’ degree of involvement in the committee as factors that might explain actors’ level of perceived influence in the forum. The findings suggest participation in multiple forums is a key driver of perceived influence and thus highlight a way to challenge traditional power asymmetries. More research, however, is needed to determine to what extent perceived influence is affecting decision‐making processes and governance outcomes in the Paraíba do Sul river basin committee.     

Organisational responses to climate change: do collaborative forums make a difference?

Innovative and effective responses to climate change require that we move beyond reliance on government to include organisations spanning different sectors, such as not‐for‐profit, private, and community groups. Interactions among these organisations in collaborative networks—or “forums”—may provide important mechanisms to successfully address climate change impacts. This paper investigates the relationships between organisational participation and involvement in forums and responses to climate change. Survey data show that people from many organisations are participating in forums and using these meeting points to discuss climate change, even when forums are intended to serve other purposes. The data suggest that participation in any type of forum is related to organisational responses to climate change. Attributes such as type of organisation and knowledge of climate change issues were also found to be related to organisational responses to climate change but these became less important when climate change was discussed in forums. The results of the research suggest that a practical way to increase the volume and variety of organisational responses to climate change may be to encourage participation in forums and/or to influence existing networks to incorporate more discussions of climate change issues.     

Collaboration and Culture: Organizational Culture and the Dynamics of Collaborative Policy Networks

This paper presents a theory of the role of culture in collaborative policy networks. It builds on the literature that analyzes the factors related to the formation, maintenance, and dissolution of collaborative arrangements by demonstrating the importance of hitherto undertheorized cultural factors. Cultural theory indicates that actors with different cultural viewpoints have distinct and predictable biases in terms of their expectations of collaboration and their preferences concerning how collaborative policy networks are structured. These biases, in turn, shape how collaborative partners are chosen and how collaborative relationships are maintained over time. The theory is illustrated with a case study of the rise and dissolution of a coalition within a housing policy network in Los Angeles. The case illustrates that cultural differences can impede collaboration even when organizations share similar policy goals.     

Processing Complexity in Networks: A Study of Informal Collaboration and its Effect on Organizational Success

Do organizations with more collaborative partners perform better than organizations with fewer partners? And is this relationship conditional on the ability of those partners to provide nonredundant resources from their network of contact with other actors? This article answers these questions with data describing the participation of governmental and nongovernmental organizations in the Cooperative Funding Initiative (CFI), a program sponsored by the one of the five water management districts in Florida. Results show a positive relationship between the inclusion of more partners in a project and the chances of getting funded, but also that once the project becomes too inclusive; those chances decrease if the partners fill more structural holes (e.g., provide more nonredundant resources). In other words, organizations perform better by adding more partners as long as this addition does not result in excessive complexity. These results are valuable for the growing community of policy scholars seeking to understand the specific conditions under which collaborative behavior positively affects organizational performance.     

Threats to Common‐Pool Resources and the Importance of Forums: On the Emergence of Cooperation in CPR Problem Settings

This paper focuses on cooperation among organizations in a common‐pool resource (CPR) problem situation. Cooperation is particularly challenging in settings where resource degradation is produced by a variety of different sectors and parts of the population; and where the problem, as well as public responsibilities, transcend borders and jurisdictions. Focusing on transboundary water quality management in the Rhine catchment area, we ask: What drives two actors in a CPR problem situation to cooperate with each other? We argue that the degree of threat to a CPR is an important driver for collective action, and focus on actors’ exposure to and perception of a threat to a CPR. Furthermore, we rely on applications of the ecology of games framework (EGF), taking into account the larger institutional context of CPR management. This allows us to test whether actors’ participation in forums, such as regional and international water body associations, helps to overcome the CPR problem by further enhancing interactions among actors. Based on survey data and applying advanced network statistics (exponential random graph models [ERGM]), we conclude that although problem exposure is one factor that enhances joint cooperation, participation in forums plays an even bigger role for cooperation in a CPR problem setting. Our study contributes to research on cooperation in CPR problem settings, highlights the need to more systematically include the effects that CPR problems have on actors when analyzing CPR problem settings, and stresses the function of forums as triggers for cooperation in CPR problem situations.     

Cross-Coalition Coordination in Collaborative Environmental Governance Processes

Collaborative governance processes seek to engage diverse policy actors in the development and implementation of consensus-oriented policy and management actions. Whether this is achieved, however, largely depends on the degree to which actors with different beliefs coordinate their actions to achieve common policy goals—a behavior known as cross-coalition coordination. Drawing on the Advocacy Coalition Framework and collaborative governance literatures, this study analyzes cross-coalition coordination in three collaborative environmental governance processes that seek to manage water in the Colorado River Basin. Through comparative analysis, it highlights the complex relationship among the institutional design of a collaborative governance process, how and why actors choose to engage in cross-coalition coordination, and the consequent policy outputs they produce. The findings advance policy scholars’ nascent understanding of cross-coalition coordination and its potential to affect policymaking dynamics.     

Why Are Cross‐Sectoral Forums Important to Actors? Forum Contributions to Cooperation,Learning, and Resource Distribution

Actors within an ecology of games in a polycentric governance system have to choose from a large number of forums they could participate in. This article analyzes why given types of forums are important to actors, as compared to other forums. It shows that functions of an ecology of games, such as cooperation, learning, and resource distribution, influence the importance that actors attribute to forums. The empirical analysis focuses on cross‐sectoral forums, a particular type of forum that is specialized in coordination among actors from different societal sectors, such as government, private interest, or science. Analysis of survey data from eight cross‐sectoral forums in Swiss habitat and land use governance and their 159 members shows that cross‐sectoral forums are comparatively important to actors that perceive their forum to contribute to learning and resource distribution.     

Scientific Credibility,Disagreement, and Error Costs in 17 Biotechnology Policy Subsystems

One of the original objectives of the advocacy coalition framework (ACF) was to shed light on the role of science in policymaking. The ACF depicts subsystem scientists as political actors just like any other. Unfortunately, science has never become a major theme of research within the framework and, as a consequence, its role in policymaking remains under‐theorized, leaving ample room for interpretation. This article seeks to explore the validity of three propositions about the role of science in policy. The first two are derived from the ACF: (i) the capacity of scientists to provide credible advice is affected by the harshness of the political debates dividing the policy subsystem; and (ii) agreement among scientists is just as common as among other groupings of policy actors. The third is derived from an “error costs” argument: (iii) Disagreements among scientists are even more pronounced than disagreements among other policy actors. Using the results of a survey of policy actors in 17 biotechnology subsystems, this article finds support for the first and third propositions. Indeed, scientists' participation in political divisions might even be underestimated by the ACF. The article concludes with attempts to clarify the role of scientists within the ACF, including discussions of ambiguity regarding the role of professional forums and of scientists in between‐coalition learning within policy subsystems.     

The Emergence of Inter-Municipal Collaboration: Evidence from Metropolitan Planning in Portugal

Inter-organizational collaboration as a means for policy coordination has come to be seen as a solution to difficult and complex urban challenges. In Portugal, where metropolitan governance structures are highly fragmented, critics highlight the need for better coordination between municipalities—a situation typical in many countries. We seek to understand the forces behind the emergence of inter-municipal collaboration around land use and mobility issues, using a case study method. Based on nine cases from Portugal's two largest metropolitan areas, we test a model of inter-municipal collaboration, attempting to identify the factors and conditions which contribute to the emergence of collaborative relationships. The analysis suggests several points of validation as well as propositions for extending and refining the model. We find that collaboration is facilitated by a combination of positive incentives, ambiguity and flexibility in the institutional system, an external catalyst, existing inter-organizational networks, and specific organizational characteristics. The existence of any one of these factors is not enough. A combination of several factors, possible but apparently uncommon in Portugal, is necessary. This research suggests that the Portuguese planning system may be most likely to achieve metropolitan policy coordination through a metropolitan association that can incentivize collaborative projects.     

Multiplex Network Analysis for Complex Governance Systems Using Surveys and Online Behavior

Text analysis, web scraping, and other computational techniques enable policy network researchers to efficiently obtain objective measures of network connections. However, the extent to which these observational methods differ from traditional survey instrument‐based measures remains an open question. Focusing on a large regional policy network of 221 organizations, this study compares a measure of collaboration generated via survey instrument to two different measures based upon internet hyperlinks and Twitter interactions between network actors. We address two questions: (1) To what extent do objective network measures based upon observed online interactions and subjective measures based upon self‐reported relationships reveal the same inter‐organizational partnerships and structural network dynamics? and (2) How useful are online network measures for supplementing survey‐based network measures? We find a significant, but substantively small, correlation between survey‐based measures and online interactions. Thus, online network measures may complement survey‐based measures, but likely reflect different aspects of the overall policy network. We conclude by discussing the potential for multiplex measures of policy networks that draw upon multiple measures to more fully understand policy network landscapes. These results bridge and help to contextualize prior work on policy network measures and virtual policy networks within the broader context of complex governance systems.     

Bridging and Bonding Capital in Two‐Mode Collaboration Networks

Public management and policy scholars have empirically demonstrated that in complex policy arenas, governments depend on the collaboration of policy actors outside their direct control to produce needed goods and services. Government‐sponsored shared‐cost programs are one of the premier mechanisms to foster such cooperation, yet little is known about the inner patterns of participation in such programs and whether they are conditional on specific resource needs that partners may have. In this article, I study the participation of organizations in projects seeking funds from the Cooperative Funding Initiative, a program sponsored by the Southwest Florida Water Management District that finances projects dealing with the management of water resources. Through the estimation of a series of Exponential Random Graph Models in the networks that form when organizations participate in projects (two‐mode networks), I show that centralization around popular organizations results in greater bridging network capital, which facilitates the flow of nonoverlapping information from project to project. I analyze the implications of these findings and discuss how the formation of these bridging structures may enhance the capacity of the program to find innovative solutions to the problems the projects are designed to deal with.     

Balancing Costs and Benefits of Collaboration in an Ecology of Games

The growth of collaborative approaches to governance has resulted in increasingly complex policy and management landscapes, where actors are presented with ever‐increasing numbers of decision‐making venues they can participate in and actors they can collaborate with. Given that actors face constraints on their capacity to manage actor and venue relationships in such polycentric governance systems, we assume the marginal benefit of yet another relationship should begin to diminish at some level of engagement. Furthermore, we hypothesize that such capacity limitations are not static, but decrease as actors learn, develop skills, and formulate strategies for how to navigate complex polycentric systems more effectively. Drawing on the Ecology of Games framework, this article investigates two Swedish collaborative governance initiatives where a multitude of actors came together to address a range of different, but interrelated, policy issues and management tasks. The empirical findings suggest that actors’ capacities to successfully navigate polycentric governance arrangements increase as they gain experience and develop their networking skills. Our findings imply there is a need to balance increased complexity in polycentric systems with increased capacity, otherwise the overall effect of an ever‐increasing number of venues and actors could be collaborative fatigue and decreased abilities to address diverse governance challenges.     

Collective Action Problem Characteristics and Partner Uncertainty as Drivers of Social Tie Formation in Collaborative Networks

The effectiveness of collaboration is often explained by the alignment of social networks with collective-action problem characteristics, yet previous research on social tie formation has focused almost exclusively on actor and relational attributes. We theorize that collective-action problem characteristics together with actor and relational attributes explain social tie formation and that the relative effect of these factors varies with uncertainty about collaboration partners. The study tests seven hypotheses associated with these factors by estimating multilevel network models of collaboration and task engagement among managers responding to a major wildfire in Sweden. The combination of actors and tasks in a single model captured key characteristics of the collective action problem (task engagements and task interdependencies), and disentangled the relative effects of these factors from actor and relational attributes. Results suggest that social tie formation can be explained both by actors’ task engagements, and actor attributes associated with leadership, professionalization, and experience. Further, the effect of task engagements decreases in organizational relationships where collaborative uncertainty is high. Since the alignment of social ties with problem characteristics is supposedly positively associated with collaborative effectiveness, this finding suggests that risk-aversion is a more deep-rooted driver of tie formation than the pursuit of collective performance.     

Hegemony,liberalism and global order: what space for would‐be great powers?

This article, and the four that follow, consider some of the ways in which China, Russia, India and Brazil have responded both to US hegemony and to the changing character of international society. This article sets out some of the major analytical questions that emerge when thinking about the foreign policy options of these countries and some of the principal conceptual and theoretical categories within which those questions may be usefully framed. The first section examines the reasons for taking these countries as a group. The second section provides a brief overview of two of the most common theoretical perspectives from which the systemic pressures on these countries have been understood. The third considers their actual and potential strategies and options under five headings: their status as regional powers; their behaviour within and towards international institutions; their relations with the United States; collaboration among them and evidence for the possible emergence of balancing behaviour; and the links between economic development and foreign policy.     

Spaces of power for action: Governance of the Everglades Restudy process (1992–2000)

This analysis of the collaborative environmental governance regime of the Florida Everglades Restudy process (1992–2000) identifies the benefits of including multiple, complementary ad hoc organizations focused on different types of knowledge (science, policy, and local) and the importance of powerful key actors to developing a multi-purpose water management plan in the politicized space of a highly contested watershed. The multiple complementary organizations enabled participation by a wide range of stakeholder groups in the collaborative environmental governance regime, which consisted of a cooperative network of specialized spaces of power for action. Actors who inhabited organizations of multiple knowledge spaces and served in a leadership role proved to be particularly powerful in shaping the process. Through this analysis that considers the roles of both actors and institutions in shaping the Restudy's policy-making process, this case contributes to understandings of how collaborative environmental governance can be deployed to achieve an agreed policy outcome for contested common-pool resources.     

Building a Conceptual Approach to Collective Learning: Lessons for Public Policy Scholars

In public policy processes, collective learning among policy actors is important in shaping how these processes unfold and the types of policy outcomes that may result. Despite a widespread interest in learning by policy scholars, researchers face a number of conceptual and theoretical challenges in studying learning across different collective settings within policy processes. In this article, we offer a theoretically grounded approach to defining and understanding collective‐level learning. In defining learning, we first draw out the connection between learning processes and learning products, both cognitive and behavioral. In examining learning processes, we further explore the relationship between individual and collective learning. Then we identify and define the key characteristics of collective settings that will likely influence learning processes. We conclude by offering recommendations for policy scholars to apply this approach in studies of learning across diverse policy contexts.