PARTNERSHIPS IN URBAN GOVERNANCE

PARTNERSHIPS IN URBAN GOVERNANCE

Also by Jon J>ierre BUREAUCRACY IN THE MODERN STATE CHALLENGES TO LOCAL GOVERNMENT (editor with Desmond S. King) URBAN AND REGIONAL POLICY

Partnerships in Urban Governance European and American Experiences Edited by Jon Pierre Professor of Political Science Department of Government University of Strathclyde palgrave

* Selection, editorial matter and chapters 1, 7 and 11 Jon Pierre 1998 Chapters 2-6 and 8-10 Macmillan Press ltd 1998 Softcover reprint of the hardcover 1 st edition 1998 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No paragraph of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, 90 Tottenham Court Road, london W1P OlP. Any person who does any unauthorised act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The author has asserted his right to be identified as the author of this work in accordance with the Copyright, Designs and Patents Act 1988. Published by PAlGRAVE Houndmills, 8asingstoke, Hampshire RG21 6XS and 175 Fifth Avenue, New York, N. Y. 10010 Companies and representatives throughout the world PAlGRAVE is the new global academic imprint of St. Martin's Press llc Scholarly and Reference Division and Palgrave Publishers ltd (formerly Macmillan Press ltd). Outside North America ISBN 978-1-349-14410-5 ISBN 978-1-349-14408-2 (ebook) DOI 10.1007/978-1-349-14408-2 In North America ISBN 978-0-333-68939-4 This book is printed on paper suitable for recycling and made from fully managed and sustained forest sources. A catalogue record for this book is available from the British Library. Library of Congress Catalog Card Number: 97-49943 10 9 8 7 6 5 4 07 06 05 04 03 02 01

Contents Acknowledgements Notes on the Contributors vii ix 1 Public-Private Partnerships and Urban Governance: Introduction Jon Pierre 1 2 'With a Little Help From Our Friends': Public-Private Partnerships as Institutions and Instruments 11 B. Guy Peters 3 Public-Private Partnerships and Urban Governance 34 Gerry Stoker 4 Public-Private Partnerships as Historical Chameleons: The Case of the United States 52 Robert A. Beauregard 5 Public-Private Partnerships in the UK 71 Alan Harding 6 Local-to-Local Partnerships among Swedish Municipalities: Why and How Neighbours Join to Alleviate Resource Constraints 93 Lennart J. Lundqvist 7 Local Industrial Partnerships: Exploring the Logics of Public-Private Partnerships 112 Jon Pierre 8 Bridging Multiple Worlds: Central, Regional and Local Partners in Rural Development 140 Beryl A. Radin 9 Commentary: Public-Private Partnerships in the United States from a European Perspective 163 Michael Keating v

vi 10 11 Index Partnerships in Urban Governance The Ecology of Public-Private Partnerships: Europe H. V. Savitch Conclusions Jon Pierre 175 187 200

Acknow ledgements This volume largely grew out of a discussion I have had over several years with Professor Lois R. Wise at the School of Public and Environmental Affairs, Indiana University, concerning public-private partnerships in local government and our understanding of their roles in urban governance. We saw an opportunity to organize a conference focused on public-private partnerships in two different areas which reflect our respective areas of expertise: local economic development and human resource management. The conference was held at the Hindasgarden in the forest east of the city of Gothenburg, Sweden, 27-30 August 1994. The conference was generously sponsored by the Ministry of Public Administration; the Swedish Association of Local Governments; the Association of County Councils; the Center for Research on the Public Sector (CEFOS); and Local Government Research in Western Sweden (KFi), both at the University of Gothenburg. The meeting had two fundamental purposes. One was to facilitate academic exchange over the issue of public-private partnerships in different areas of local government. The other purpose was to have practitioners from central and local government meet with academics, supposedly to the benefit of both parties. The result was a number of extremely interesting (formal and informal) discussions, involving practitioners like Soren Haggroth (Ministry of Public Administration), 10han Carlstrom and Tommy Rosen (Swedish Association of Local Governments), and Catharina Blom and Bengt Mollstedt (the Association of County Councils). This volume presents the conference papers addressing the role of partnerships in local economic development. Most of the papers focused on partnerships in human resource management were published in other contexts. Needless to say I am very much indebted to the contributors to the volume for taking the time and effort to engage in this project. This applies especially to Alan Harding, Michael Keating and Hank Savitch who generously offered to write chapters without getting the perquisites of the conference and the excellent Swedish cuisine provided by the Hindasgarden. vii

viii Patnerships in Urban Governance I also very much appreciate the help from Cynthia Jackson for commenting on earlier drafts of the introductory and concluding chapters, and Anthony R. Zito for retrieving material on public-private partnerships which is not available in Europe. JON PIERRE Glasgow

Notes on the Contributors Robert A. Beauregard is Professor in the Milano Graduate School of Management and Urban Policy at the New School for Social Research in New York City. He received his PhD in city and regional planning from Cornell University and has taught at Rutgers University and the University of Pittsburgh and was the Perloff Visiting Professor at the Graduate School of Architecture and Planning at UCLA in 1994. He writes in the areas of urban political economy, planning theory and urban development. His most recent book is Voices of Decline: The Postwar Fate of us Cities (1993). Alan Harding is Professor of Urban Policy and Politics at the European Institute for Urban Affairs, Liverpool John Moores University. He is co-author of Urbanisation and the Functions of Cities in the European Community (1993) and co-editor of European Cities Towards 2000: Profiles, Policies and Prospects (1994). Michael Keating is Professor of Political Science at the University of Western Ontario. He has previously taught at University of Strathclyde, North Staffordshire Polytechnic, and University of Essex. He has held visiting posts at Virginia Polytechnic Institute and State University; Institut d'etudes Politiques de Paris, University of Santiago de Compostela, European University Institute and the Norwegian Nobel Institute. He is author of 11 books and editor of four books, most of which are on urban and regional politics and minority nationalism. He has also published numerous articles in academic journals. His latest book, which will also be published in French and Spanish, is Nations against the State: The New Politics of Nationalism in Quebec, Catalonia and Scotland (1996). Lennart J. Lundqvist is the Chair and Professor of Environmental Policy and Administration at the Department of Political Science, University of Gothenburg, Sweden. He is presently engaged in a comparative research project on the politics and policy of the environment in the Nordic countries. Apart from numerous articles in international journals and chapters in internationally edited volumes, he is the author of The Hare and the Tortoise: Clean Air Policies in the United States and Sweden (1980), Housing Policy and Equality: A ix

x Partnerships in Urban Governance Comparative Study of Tenure Conversions and their Effects (1986), Dislodging the Welfare State: Housing and Privatization in Four European Nations (1992), and Policy, Organization, Tenure: A Comparative History of Housing in Small Welfare States (1992). He is co-editor (with Jon Pierre) of Kommunal forvaltningspolitik [The Politics of Urban Administration] (1995). B. Guy Peters is Maurice Falk Professor of American Government and Chair of the Department of Political Science at the University of Pittsburgh. He previously taught at Emory University, Tulasne University and the University of Delaware. He has also had Fulbright Fellowships at the University of Strathclyde (Scotland) and at the Hochschule St Gallen (Switzerland), a Hallsworth Fellowship at the University of Manchester, and has been a Fellow at the Canadian Centre for Management Development. He has also held visiting positions in Norway, Sweden, Mexico and the Netherlands. Professor Peters has published a number of books including: The Politics of Bureaucracy (1994), The Politics of Taxation: A Comparative Perspective (1991), Rethinking European Politics (1991), Administrative Ideas and Administrative Reform (1996), The Future of Governing (1996), Policy Dynamics (1983, with Brian Hogwood), The Pathology of Public Policy (1985, with Brian Hogwood), and Can Government Go Bankrupt? (1978, with Richard Rose). He has also edited Organizing Governance, Governing Organizations (1983, with Colin Campbell), Advising West European Governments (1993, with Anthony Barker), Governance in a Changing Environment (1995, with Donald Savoie), and Learning from Experience: Learning and Administrative Reform in Eight Countries (1996, with Johan P. Olsen). He is co-editor of Governance and the editor of International Library of Comparative Public Policy. Jon Pierre is Professor of Politics at the University of Strathclyde (1995-) and adjunct professor at the University of Pittsburgh. He was previously acting professor at the University of Gothenburg, Sweden (1992-95). He has published extensively in areas such as urban politics, urban political economy, public administration, and public policy. He is the author of Partikongresser och Regeringspolitik [Party Congresses and Public Policy] (1986), Kommunerna, Naringslivet och Naringspolitiken [Local Government, Private Business, and Local Industrial Policy] (1992), and Den Lokala Staten [The Local State] (1994). He is editor of Challenges to Local Government (1990, co-editor: Desmond S. King), Bureaucracy in the Modern State (1995),

Notes on the Contributors xi Urban and Regional Policy (1995) and Kommunal Forvaltningspolitik [The Politics of Urban Administration] (1995). He has published in journals such as European Journal of Political Research, Governance, International Political Science Review, Policy and Politics, Regional and Federal Studies, and Urban Affairs Review. Beryl A. Radin is the Chair and Professor of Public Administration and Policy at Rockefeller College at the State University of New York at Albany. Before joining the Albany faculty in 1994, she was Professor of Public Administration at the Washington Public Affairs Center of the University of Southern California's School of Public Administration from 1978 to 1994. She has been a visiting fellow at the Federalism Research Centre and the Public Policy Program at the Australian National University and the recipient of a Senior Fulbright Lectureship to India, based at the Indian Institute of Public Administration in New Delhi. Her work has focused on intergovernmental policy issues in a number of sectors - rural development, education and human services in particular. She has written several books and a number of articles on federalism, intergovernmental relations and public policy. Hank Savitch is Professor of Urban and Public Affairs, School of Economics and Public Affairs, College of Business and Public Administration, University of Louisville, Louisville, Kentucky. He has authored three books on various aspects of urban affairs, including neighbourhood politics, national urban policy and comparative urban development. His book Post Industrial Cities (1989) was nominated for the best volume on urban politics, American Political Science Association. He has co-edited Big Cities in Transition (1991) and Regional Politics (1995). He also serves as co-editor of the Journal of Urban Affairs. His articles have appeared or are scheduled for appearance in Polity, The Journal of the American Planning Association, Economic Development Quarterly, Urban Affairs Quarterly, National Civic Review and the International Journal of Urban and Regional Research. He has researched, taught and lectured widely. He has been a Fulbright Scholar (France), a visiting Scholar at the London School of Economics and Political Science, the Institute for Urban Planning in Warsaw and the Institute for Cultural Research in Moscow. He was also a Guest Scholar at the Woodrow Wilson Center for International Scholars (Washington, DC), has assisted former mayor of New York City, David Dinkins, served as a consultant to the US Mayors' Urban Summit, and has worked on numerous federal projects.

xii Partnerships in Urban Governance Gerry Stoker is Professor at the University of Strathclyde. He is also Programme Director of the five-year ESRC Local Governance Research Programme. He has lectured in Applied Social Sciences and Public Administration at Leicester Polytechnic, at Inlogov (University of Birmingham), and at the Department of Government, University of Essex. He was Visiting Professor, CULMA, at Wayne State University, 1990-91. He is author or editor of more than ten books. He was a member of the Commission for Local Democracy.