Collaborative Approaches to Solving Public Issues:Lessons from the Oregon Model

Laurel Singer, DirectorNational Policy Consensus CenterPortland State University, Oregon

Key Themes:

1. Powerful drivers call for a new approach to addressing public issues.2. Collaborative Governance is an approach for the 21st Century that brings together government with its stakeholders to make decisions and solve problems.3. Over 25 years, Oregon has evolved a system t0 promote & support collaborative governance with significant success.4. Several key elements helped to make a systemic shift in the face of skepticism and challenge.

Drivers of ChangeThe traditional structure of government:

•Agencies run programs to address a legislatively-defined need

•A budget is authorized to operate the program or project

•Managers are accountable to operate the program within the prescribed budget and authorization

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Driver: Growing Awareness we Face “Wicked” Problems: Highly Complex and Uncertain, Cross Jurisdictions, & Require Multi-Sector Involvement

Driver: We Live in a “Power-shared” World

•No single agency has the resources and authority to address significant public issues.

•Decision-making needs to be coordinated across geographic, organizational boundaries, and jurisdictions.

•Opposing forces are less likely to accept decisions they don’t like.

Driver: Court Appeals Create Unstable Solutions-Desire for Durable Solutions

Driver: Environmental Degradation Seen As Government Failure & Pressure to Address Issues of Sustainability.

Driver: Public Demands Smaller Government and Economic Downturn Means Less Public Funds.

These Drivers Create Pressure for New Approaches to Addressing Public Issues for the

Realities of the 21st Century

Collaborative Governance Defined:

Approaches to bring together multiple stakeholders representing various sectors, often across jurisdictional and/or organizational boundaries in a structured process for addressing societal/community needs.

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The Spectrum Of Public Process

Characteristics of Collaborative Governance Approaches

•Multi-Sector – Interests Represented

•Inclusive & Transparent

•Consensus Seeking

•Neutral Forum

•Impartial Facilitation

•Leaders serve as Conveners

•Voluntary involvement: one can decide to cooperate or not

The Evolution of the Oregon’s Spectrum for Collaborative Governance

The First Collaborative Program started “Downstream” as an Alternative Approach to Litigation when Conflict has Occurred

Oregon ConsensusConflict Resolution

1990

UpstreamDownstream

Used when differences exist to avoid a worse outcomeNeutral forum essentialRelies on impartial, skilled facilitator or mediatorConsensus SeekingAgency leaders and legislators can serve to set incentives

Conflict Resolution & Agreement Seeking

West Eugene Collaborative

Problem:

Decades of debate and conflict over traffic congestion in West Eugene, Eugene City Council votes down a proposed West Eugene Parkway (2005)

West Eugene Collaborative (WEC)

•OC convened 27 stakeholders•Met for two years • Hundreds of hours of volunteer time

•Achieved consensus on recommendations for transportation, land use, and natural resources solutions

•Eugene city council voted unanimously to implement the WEC recommendations.

10 years later, Collaboration Moves “Midstream”as New Tool for Sustainable, Place-Based Solutions

Oregon ConsensusConflict Resolution

1990

Oregon SolutionsProject Implementation

2001

UpstreamDownstream

Solution requires integration of resources from multiple sectors

Leverages convening authority of Governor who gives special designation & appoints local conveners

Culminates in a “Declaration of Cooperation” of participant commitments

Relies on neutral, facilitative project manager

Collaborative Implementation Of Community Solutions

Co-Conveners: Local County Commissioner and Renowned Business Leader

Chose a new site, annexed it into the urban growth boundary in a streamlined process, and designed & built the nation’s first, public K-12 LEED platinum, net zero building.Over 22 organizations formally pledged commitments in a Declaration of Cooperation& Over 125 individuals and organizations provided funding and volunteer servicesRaised approximately $40 million in local, state, and federal funds

Rebuilding Vernonia School

Collaboration Moves ‘Upstream” as Way to Proactively Advance Public Goals

Oregon ConsensusConflict Resolution

1990

Oregon SolutionsProject Implementation

2001

Regional SolutionsCenters for Economic

Development2011

Upstream Downstream

Promoting Regional Economic Development & Prosperity

Co-location of multiple state agency in neutral location fosters intergovernmental coordination and collaboration

Streamline permitting and regulations,especially when multiple agencies are involved

Governor’s commitment can help leverage resources among the public, private and civic centers

11 Regional Advisory Teams Identify Priorities Supported by 6 Regional Centers

Industrial Lands in Eastern OregonHelped the community of Arlington acquire and re-zone a 300-acre site to convert it to industrial use.Required a change to the state wide land use policy and plan.Typically takes 18 months, was achieved in 7 weeks.The site is expected to create up to 350 new jobs.

New Electronic Engagement Tools Activate & Accumulate Individual Citizen Action for Collective Action & Impact

Oregon ConsensusConflict Resolution

1990

Oregon SolutionsProject Implementation

2001

Regional SolutionsEconomic Development

2011Oregon Kitchen Table for Civic Engagement 2013

UpstreamDownstream

Engaging Oregonians in Improving Their Communities

On-line mechanism to empower Oregonians from every corner of the state to collectively impact policies and public projects. Current applications include:Consultations to Decision MakersCrowd Funding for Public ProjectsMicro-Lending to Individuals

Gateway Green •Goal for new bicycle park in an undeveloped section of green space within a low income neighborhood.

•Kitchen Table created an on-line mechanism for potential users to support the project by contributing to the cost for developing the park design plan through a crowd funding campaign.

•The partnership between the Friends of Gateway Green, Oregon Solutions and Oregon’s Kitchen Table resulted in 512 Oregonians donating over $123,000 (out of a $100,000 goal).

Together, these mechanisms form an infrastructure to support collaborative governance in various ways up and down stream

Oregon ConsensusConflict Resolution

1990

Oregon SolutionsProject Implementation

2001

Regional SolutionsEconomic Development

2011Oregon Kitchen Table for Civic Engagement 2013

UpstreamDownstream

Still evolving & refining as a system: new applications, program integration & shift toward upstream interventions

What Difference has Collaborative Governance Made In Oregon?

Consider the Response to the Decline Of Spotted Owls & Its Potential Listing As an Endangered Species (Late 1980’s)

In The Aftermath

• Although logging has declined, the spotted owl population has continued to dwindle

• Spotted owl now faces competition from the aggressive, non native barred owl

• Forest health continues to suffer• Rural communities struggling economically and to retain young

people• Tension and polarization between urban and rural communities

continue to exist

Contrast with the Recent Response to the Declining Sage Grouse Population & Its Potential Listing As Endangered Species (2013)

Oregon is a Leader of Western States Collaboration and is One Of Several States To Submit A Completed Prevention Plan To Federal Regulatory Agency

The Greater Sage-Grouse Does Not Require Protection Under the

Endangered species Act”

The US Fish and Wildlife Department has determinedProtections were considered adequate

“Because of an unprecedented effort by dozens of partners across the 11 Western States,

October, 2015

Between the 1990 listing of the Spotted Owl and the 2015 non-listing of the Sage Grouse,

What Contributes to a Systemic Breakthrough?

Lessons from Oregon’s Experience

Key: Desperation and High Stakes

Key: Reasonably Functional Government

Key: Experienced & Empowered Citizenry

Key: Leadership With Vision, Willing Serve as Champions“You Can’t Use Collaboration to Build the System for Collaboration”

Key: Investments to Seed Programs & Mechanisms for Sustainable Funding

Key: Training for Agency Leaders & Staff, Service Providers, & the Public

Key: Institutional Neutral Forum in which to Locate Services

Key: Engage Leaders - Convening, Advising, Training

Key: Support First Follower’s (Lesson’s from the Dancing Guy You Tube)

Key: Build Early Success through Case Selection to Create Momentum

Key: Accept Skepticism –Participants at Least Willing to Try

Key: Being Persistent– Change Takes Time

In Summary:1. The structure of government, nature of wicked problems & need for durable, sustainable solutions are drivers for a new approach to addressing public issues.2. Collaborative Governance is an approach for the 21st Century that fosters shared responsibility, collective agreement & action, & leveraging of resources.3. Oregon evolved a spectrum of mechanisms t0 promote & support collaborative governance with significant success.4. Key to systemic shift is using desperation and legislative stability as a foundation for leaders to champion a new approach, investments in training and programing, establishing a neutral forum, assuring early success, and persist in the face of skepticism and challenge.

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