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PUBLICS, POLICY AND PUBLIC SERVICES
Citizens and clients as co-producers of public services 3 March 2013 Professor John Alford
Defining co-production
Type of
involvement
Performed by
Government organisation alone
Govt organisation and external party jointly
External party alone
Governance (deciding what to do)
Govt decision Joint decision Private decision
Planning/ design Govt planning or design Joint planning/design Private planning or design
Production (doing it)
Production by govt organisation Co-production
‘Nudged’ production/ self-service
Private production/ self-service
Defining co-production
Co-production by citizens and/or clients is their participation in producing the public services they ‘consume’. n.b. not the same as participation in decision-making about the
service - not about ‘deciding what to do’, but rather about ‘doing it’.
can be conscious or unconscious, can include coercion (but typically includes a voluntary element).
Potential external providers/co-producers
Other government organisations: within national, state or local govt (joined-up government).
Other divisions/branches within your government organisation (breaking down silos).
Businesses/voluntary agencies (contractors or partners). Citizens co-producing: volunteers. Clients co-producing: customers, beneficiaries or obligatees (individuals and organisations). Acquaintances/associates/friends/neighbours/relatives/etc of any of
the above.
Roles, not categories
Means of eliciting contributions from external providers
Monetary incentives.
Legal authority/public power (regulation, enforcement, etc).
Convenience (simplicity, information, advice).
Persuasion (publicity, education, etc).
Identification with organisational purposes.
Identifying the co-producers: ‘backward mapping’
Clarify mission (in outcome terms).
Draw ‘causal map’ (core process, then co-productive contributors)
Identify key points in web to be influenced, and people associated with those points.
Determine how to influence those people (e.g. money, power, persuasion, convenience, etc)
Weigh up impact vs cost of influence methods.
Draw causal map (1) The core production process
Fire hosed with water
Fire truck speeds to
fire
Despatcher sends fire
truck
000 called House catches fire
Fire put
out
Fire brigade
© John Alford 2012
Draw causal map (2) Co-productive contributions
Fire hosed with water
Fire truck speeds to
fire
Despatcher sends fire
truck
000 called House catches fire
Smoke alarms
installed
Property
owner/
occupant
Neighbour
Fire brigade
Road
authority
Water
corporation Equipment
suppliers
Hydrant maintained
Streets accessible
Truck ready to go
Telecoms functioning
Maintenance
contractors
Fire put
out
© John Alford 2012
Purpose framed in output terms: To put out fires quickly and efficiently.
Purpose framed in outcome terms: To minimise the damage to life, limb and property arising from fires.
© John Alford 2012
Focusing on outcomes
Minimise
damage to
life, limb &
property
Fire service outcomes Further co-productive contributions
Fire put out
Fire hosed with water
Fire truck speeds to
fire
Despatcher sends fire
truck
000 called House catches fire
House less likely to catch fire in first
place
Smoke alarms
installed
Fire occurs but has less impact
on house
Timely evacuation from burning
house
Fire response plan already formulated
House built to resist fire
Fire prevention measures
already present
Neighbour
Fire brigade
Road
authority
Water
corporation Equipment
suppliers
Hydrant maintained
Streets accessible
Truck ready to go
Telecoms functioning
Maintenance
contractors
Building Stds
regulator
Property
owner/
occupant
© John Alford 2012
An exercise: Indigenous child nutrition
Children eat healthy food
Improved child nutrition
Healthy food purchased by parents/carers
Healthy food stocked and
displayed by stores
Food transported
Food grown/ manufactured
Healthy food purchased by parents/carers
Indigenous child nutrition: causal map
Children eat healthy food
Improved child nutrition
Healthy food purchased by parents/carers
Healthy food stocked and
displayed by stores
Food transported
Food grown/ manufactured
Health depts & Indigenous
health services
Food well stored/ protected en route
Freight time/ cost reduced
Freight companies
Carers have enough money
to buy food
Families taught budgeting skills
Income management
Centrelink
Healthy food prepared by
parents/carers
Schools
Doctors & nurses
Children’s knowledge of healthy eating
Education and support
for new mothers
Increased breast-feeding
Better baseline nutrition from
infancy
Pricing and display of products to encourage purchasing of healthy
food
Store owners/ managers
Adequate storage space and
refrigeration in housing
Indigenous health
services Carers Health
depts
Carers have knowledge of child nutrition and food
storage/ preparation
Housing depts & housing contractors Prioritising stocking
decisions toward healthier options
Whether/when to use co-production Circumstance Examples Use co-production?
Inter-dependency: where our organisation’s work is interdependent with that of external party/parties (i.e. we can’t do it without their contribution).
Education. Health care. Programs for the unemployed.
Yes (issue is not whether to use it but how best to use it)
Substitutability: where the task could be done by either our own organisation’s staff or by external party/parties.
Meals on Wheels Fire-fighting. Friends of the National Park
It depends: should be done when the benefits of doing so outweigh the costs.
Benefits and costs of co-production Type Benefits Costs
Service Better service (effectiveness, responsiveness, quality, etc)
Purchase price or analogous payment.
Relationship Benefits of sociality/collegiality.
Costs of: Deciding what to co-produce. Choosing/recruiting co-producers. Ascertaining whether the work is being
done as expected. Acting to induce good performance.
Strategic Potential agreement on purposes with stakeholders. Risk allocation.
Adverse positioning in stakeholder environment Loss of core competences