IMPROVING COLLABORATION BY FEDERAL
AGENCIES:
AN ESSENTIAL PRIORITY FOR THE
NEXT ADMINISTRATION
!
by
Thomas H. Stanton
August 2008
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One of a Series of Issue Papers on!
!
Presidential Management Capacity to Respond to 21st Century Challenges
Sponsored by NAPA’s Standing Panel on Executive Organization and
Management
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!
!
This is one of a series of issue papers prepared under the auspices of The National Academy of Public
Administration’s Standing Panel on Executive Organization and Management. They are intended to inform
Presidential candidates and Congress about the management capacity of the Executive Office of the
President and the challenges facing it.
A list of the papers that have been completed as of this date can be found after this title page. The papers
represent the views of the author(s), not necessarily those of the Academy or any of its panels.
!
List of Issue Papers on
Presidential Management Capacity to Respond to 21st Century Challenges
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Broad Governance Issues
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Institutional Management Capacity of the Executive Office of the President
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Management Tools Used by the Executive Office of the President
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;
Table of Contents
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Appendices
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Executive Summary
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[
IMPROVING COLLABORATION BY FEDERAL
AGENCIES: AN ESSENTIAL PRIORITY FOR THE
NEXT ADMINISTRATION
Introduction
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The Need to Solve Problems Beyond Organizational Boundaries
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_=
.About the Author
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Acknowledgements
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_]
Appendix A
Acronyms Used in This Report
DBTQ!!!
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_E
Appendix B
The Director of National Intelligence – Enhanced Personnel
Management
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