John, Lau a
A icle
Re hinking digi al go e nance - How collabo a i e
inno a ion s a egies ad ance he de elopmen o digi al
inno a ions in public o ganisa ions
Junio Managemen Science (JUMS)
P o ided in Coope a ion wi h:
Junio Managemen Science e. V.
Sugges ed Ci a ion: John, Lau a (2022) : Re hinking digi al go e nance - How collabo a i e inno a ion
s a egies ad ance he de elopmen o digi al inno a ions in public o ganisa ions, Junio
Managemen Science (JUMS), ISSN 2942-1861, Junio Managemen Science e. V., Planegg, Vol. 7, Iss.
5, pp. 1400-1418,
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Volume 7, Issue 5, Decembe 2022
JUNIOR
MANAGEMENT
SCIENCE
Pauline Tilla Ri s ieg,Con incing In es o s: A S udy o
Pe sonal, Adap ed S o y elling and S a egic
Beha io in En ep eneu ial Fund aising
Ma c A. Richly,Big D a a Analy ics Capabili ies: A Sys ema ic
Li e a u e Re iew on Necessa y Skills o Succeed in
Big Da a Analy ics
Je e Fabian, Auswi kungen de in e nen Re ision au die
Quali ä de Rechnungslegung –Eine k i ische
Analyse
Jonas F anz Bue kne ,Unde s anding he Impac o Fu u e
Social Sel -Concep s on Newcome Adjus men
Cosima F iedle,How Can Fai ness Tools Impac he
Unde s anding o Fai ness and he P ocesses Wi hin
a Machine Lea ning De elopmen Team?
Samuel Hamme ,Eine da enschu z ech liche Be ach ung
de neuen elek onischen Pa ien enak en in
Deu schland nach Ein üh ung de DSGVO
Ch is ian S öh ,The E ec o Mic o-En ep eneu ship
on Mig a ion Plans o Young Adul s in Ru al Sub-
Saha an A ica and he Media ing Role o Subjec i e
and Economic Well-Being
Daniel Schach sieck,Ba le o Reali ies –a Quali a i e-
Empi ical Analysis o he Use o Augmen ed and
Vi ual Reali y in Sales
Maximilian Janussek,Blessing o Cu se? The In luence o
Neob oke s on he In es men Beha io o Young
In es o s
Lau a John, Re hinking Digi al Go e nance –How
Collabo a i e Inno a ion S a egies Ad ance he
De elopmen o Digi al Inno a ions in Public
O ganisa ions
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Publishedby Junio Ma nagemen S cience e.V.
Re hinking Digi al Go e nance – How Collabo a i e Inno a ion S a egies Ad ance he
De elopmen o Digi al Inno a ions in Public O ganisa ions
Lau a John
Wes älische Wilhelms-Uni e si ä Müns e
Abs ac
Digi al inno a ions bea he po en ial o inc ease he e iciency and anspa ency o go e nmen s and c ea e mo e accessible
and use -cen ic public se ices. Howe e , public o ganisa ions a e acing se e al challenges in he de elopmen o digi al
inno a ions and he unique democ a ic equi emen s imply ha digi al se ices canno simply be p ocu ed om p i a e con-
ac o s. Hence, a new s a egy called collabo a i e inno a ion appea s o be a possible solu ion, bu ew ins i u ional designs
ha e been ound o sus ain collabo a i e inno a ion in he p esen go e nance sys em. The e o e, his hesis in es iga es he
unexplo ed phenomenon o inno a ion ellowship p og ammes by conduc ing a diagnos ic case s udy abou Tech4Ge many
wi h a ocus on he esea ch ques ion: How does he ellowship p og amme Tech4Ge many con ibu e o he de elopmen o
digi al inno a ions in Ge man public sec o o ganisa ions? In e iews wi h pa icipan s o Tech4Ge many e ealed ha el-
lowship p og ammes a e a sui able ins i u ional design o collabo a i e inno a ion as hey c ea e an a ac i e se ing o ech
expe s and p o ide public employees a unique oom o expe ience agile and use -cen ic app oaches. In pa icula , mu ual
lea ning is s imula ed, and he implemen a ion esis ance educed.
Keywo ds: Collabo a i e inno a ion; Fellowship p og ammes; Public inno a ion; Digi al ans o ma ion.
1. In oduc ion
The in e es in public inno a ion has in ensi ied among
public adminis a ion schola s. The public sec o is acing
new challenges such as ageing socie y, skilled labou sho -
age and a ious ‘wicked’ p oblems, hence a g owing num-
be o schola s ag ee ha inno a ion is cen al o he pub-
lic o ganisa ion’s capaci y o deal wi h hose challenges (De-
V ies, Bekke s, & Tumme s,2016;Ha ley, Sø ensen, & To -
ing,2013;Lindsay e al.,2017). Pa icula ly, he eme gence
o ad anced echnologies like obo ic p ocess au oma ion, a -
i icial in elligence (AI), o machine lea ning o e he po en-
ial o inc ease he e iciency, anspa ency, and e ec i eness
o go e nmen s (Gil-Ga cia, Dawes, & Pa do,2018). Fu he -
mo e, digi al inno a ions can po en ially be a esponse o is-
ing ci izen expec a ions owa ds as e , mo e accessible, and
use -cen ic public se ice deli e y (Me gel,2019). Howe e ,
public o ganisa ions a e encoun e ing se e al challenges in
he de elopmen o digi al inno a ions. I has been well-
ehea sed in he pe inen li e a u e ha adi ional o gan-
isa ional cha ac e is ics o public o ganisa ions such as hie -
a chy, silo s uc u es, and ed ape a e se e e ba ie s o pub-
lic inno a ion (Bomme ,2010;Damanpou ,1991;DeV ies,
Tumme s, & Bekke s,2018;Rainey,2014). Mo eo e , he po-
li ical en i onmen and mul i ude o s akeholde s end o in-
c ease he complexi y o public se ices and public o ganisa-
ions ha e a compa a i ely small inno a ion budge as well as
long- e m inancial planning ho izons (Bo ins,2001;Cina ,
T o , & Simms,2019). O pa icula ele ance o digi al in-
no a ions is he lack o pe sonnel wi h he equi ed echnical
skills and a de icien usage o mode n wo king me hods like
design hinking and agile p ojec managemen (Coglianese,
2020;Me gel,2016).
A he same ime, i has been shown ha public employ-
ees a e no in insically less inno a i e and he e a e also
dis inc i e d i e s o inno a ion in he public sec o , such as
he poli ical and no ma i e p essu e o imp o emen (Ha -
ley e al.,2013;Sø ensen & To ing,2011). Mo eo e , i
is acknowledged ha he unique ules and p ocedu es in
he public sec o usually se e a democ a ic pu pose, o in-
s ance, equal oppo uni ies (Neumann, Ma , Hi z-Gampe ,
Schmid hube , & S ü me ,2019). The e o e, digi al inno a-
ions a e only jus i iable when hey c ea e public alue and
i is emphasised ha p ac ices and solu ions om he p i-
a e sec o canno simply be ans e ed o he public sec-
DOI: h ps://doi.o g/10.5282/jums/ 7i5pp1400-1418
L. John /Junio Managemen Science 7(5) (2022) 1400-1418 1401
o (Hea ley,2005). Addi ionally, schola s poin o he isk
o an o e eliance on ex e nal in o ma ion echnology (IT)
p o ide s as p i a e con ac o s “may no be su icien ly sen-
si i e o he pa icula demands on go e nmen o explain-
abili y, due p ocess, o a oidance o bias” (Coglianese,2020,
p. 49). Gi en his ension be ween po en ial bene i s and
isks, i is a key ques ion in he esea ch o public inno a-
ion how o de elop digi al inno a ions wi hin public sec o
o ganisa ions.
In ecen yea s, a new s a egy o spu public inno a ion
has been de eloped which is e med collabo a i e inno a-
ion and can be de ined as “mul i-ac o collabo a ion ha
[...]may os e inno a ion by b inging oge he public and
p i a e ac o s wi h ele an inno a ion asse s, acili a ing
knowledge sha ing and ans o ma i e lea ning, and build-
ing join owne ship o new inno a i e isions and p ac ices”
(Sø ensen & To ing,2012, p. 1). This new esea ch ield
combines heo e ical knowledge abou collabo a i e go e -
nance (Ansell & Gash,2008) wi h indings and heo ies o
inno a ion (Bo ins,2001;Chesb ough,2003;G eenhalgh,
Robe , Mac a lane, Ba e, & Ky iakidou,2004;Moo e & Ha -
ley,2008). As such, collabo a ion is no new o he public
adminis a ion li e a u e bu is closely ela ed o he concep s
o co-p oduc ion (Ve schue e, B andsen, & Pes o ,2012)
and co-c ea ion (Voo be g, Bekke s, & Tumme s,2015).
Howe e , co-p oduc ion has p ima ily been used o encou -
age use pa icipa ion in public se ice deli e y (Fledde us,
B andsen, & Honingh,2014) and has only ecen ly been ex-
ended o he ques ion o public sec o inno a ion. He e,
he wo k o Sø ensen and To ing (2011) and To ing (2016)
a e equen ly e e ed o as he key heo e ical ounda ion
(DeV ies e al.,2018).
The eme gence o collabo a i e inno a ion can be embed-
ded in he wide pa adigm shi owa ds he New Public Go -
e nance (NPG) model (Osbo ne,2006). Hence, i can be
dis inguished om hie a chical inno a ion s a egies which
ha e been p edominan in he T adi ional Public Adminis-
a ion (TPA) pa adigm and compe i i e inno a ion s a egies
ha eme ged in he New Public Managemen (NPM) e a
(Ha ley e al.,2013;Hea ley,2005;To ing,2019). As hie -
a chical and compe i i e s a egies inhe e some limi a ions,
collabo a i e inno a ion has been sugges ed as one possible
app oach o public o ganisa ions o mi iga e he eme ging
challenges (Ha ley e al.,2013;To ing,2019). A g ow-
ing numbe o s udies ound empi ical e idence o a posi-
i e impac o mul i-ac o collabo a ion (McGann, Wells, &
Blomkamp,2021;Neumann e al.,2019). A he same ime,
ecen li e a u e is conce ned wi h he challenges and limi a-
ions o collabo a i e inno a ion (Agge & Sø ensen,2018;
To ing, Sø ensen, & Røiseland,2019;Weg ich,2019).
Howe e , he ques ion o how collabo a i e inno a ion
can be suppo ed and sus ained in he p esen go e nance
sys em has no ye been esol ed since he e is no his o y o
adi ion o sys ema ically opening up public bu eauc acies
o ci izens and hi d sec o o ganisa ions (Bomme ,2010;
Ha ley e al.,2013;To ing,2019). Mos ly, collabo a i e in-
no a ion appea s ei he in o m o one- ime p ojec s (see o
ins ance Neumann e al.,2019 and Lindsay e al.,2017) o
in ins i u ionalised and pe manen inno a ion labs (Gascó,
2017;McGann, Blomkamp, & Lewis,2018;Whiche & C ick,
2019). The o me induces he p oblem ha lea ning e ec s
abou he collabo a i e p ocess i sel canno be sus ained and
he scope is ela i ely limi ed (To ing,2016). The la e
aces he challenge ha inno a ions a e again de eloped in
a sepa a e se ing ou side he public o ganisa ion and o en
cons ic ed o he de elopmen o ideas, hus acing chal-
lenges in eaching he implemen a ion s age (McGann e al.,
2021). A e y new phenomenon ha has no been co e ed by
he pee - e iewed li e a u e so- a a e inno a ion ellowship
p og ammes. He eby, ci izens wi h ele an skills and expe -
ise spend a sho - e m s ay in he ede al go e nmen o col-
labo a i ely c ea e inno a i e solu ions o speci ic p oblems
oge he wi h he go e nmen employees. Me gel (2016,
p. 520) men ioned hese inno a ion ellowship p og ammes
as “inno a i e HR policies” in he con ex o agile inno a ion
managemen in public o ganisa ions, ye he e is a c ucial
esea ch gap since his new p ac ice has nei he been sys-
ema ically analysed no connec ed wi h he exis ing scien-
i ic knowledge abou collabo a i e inno a ion. As a g ow-
ing numbe o schola s emphasize he un apped po en ial o
collabo a i e inno a ion (Ha ley e al.,2013) and ellow-
ship p og ammes migh be a sui able app oach o o e come
he ou lined ba ie s, i is o high scien i ic impo ance o
analyse he mechanisms, po en ials, and limi a ions o his
new p ac ice. This hesis aims o ill ha gap by conduc -
ing a diagnos ic case s udy abou Tech4Ge many, a ellow-
ship p og amme ha b ings ci izens wi h ele an echnical
skills in o he Ge man na ional minis ies o h ee mon hs o
de elop digi al inno a ions o p e ailing p oblems. To sys-
ema ically in es iga e he new phenomenon o inno a ion
ellowship p og ammes, he ollowing esea ch ques ion will
be answe ed in he cou se o his esea ch:
How does he ellowship p og amme Tech4Ge many
con ibu e o he de elopmen o digi al inno a-
ions in Ge man public sec o o ganisa ions?
F om he main esea ch ques ion, h ee sub-ques ions a e
de i ed o guide he analysis o his case s udy in alignmen
wi h he exis ing knowledge abou collabo a i e inno a ion.
Each sub-ques ion in es iga es one phase o he inno a ion
cycle. The eby, i is aimed o de elop an in-dep h unde -
s anding o he ellowship p og amme by analysing whe he
he heo e ical mechanisms o collabo a i e inno a ion a e
obse able. I is asked:
(1) In wha ways does he ellowship p og amme Tech4-
Ge many enable he collabo a ion o empowe ed ac-
o s o con ibu e o he gene a ion o inno a i e ideas?
(2) To wha ex en does he ellowship p og amme Tech4-
Ge many s imula e mu ual and ans o ma i e lea n-
ing o con ibu e o he de elopmen o digi al inno a-
ions?
(3) To wha ex en does he ellowship p og amme Tech4-
Ge many s imula e he c ea ion o join owne ship o
L. John /Junio Managemen Science 7(5) (2022) 1400-14181402
he inno a ion among he in ol ed ac o s o acili a e
he implemen a ion o digi al inno a ions?
By answe ing he p oposed esea ch ques ions, he s udy
adds o he exis ing schola ship in se e al ways. Fi s ly, since
ellowship p og ammes a e eme ging as a hi d space be-
ween one- ime p ojec s and inno a ion labs, his heo y-
guided case s udy p o ides highly ele an scien i ic insigh s
o he ques ion o how collabo a i e inno a ion can be ini i-
a ed and sus ained in public o ganisa ions. Secondly, by con-
nec ing he heo ised mechanisms o collabo a i e inno a-
ion wi h empi ical obse a ions o a so- a unexplo ed o m
o collabo a ion, he s udy adds o he exis ing knowledge
abou he causal ela ionship be ween collabo a ion and in-
no a ion. Las ly, he s udy p o ides empi ical indings abou
digi al inno a ions which ha e only ecen ly begun o ecei e
a en ion om public adminis a ion esea che s (DeV ies e
al.,2016).
The e o e, he s udy is also o high social ele ance. The
digi al ans o ma ion is one o he mos pe asi e ans o -
ma ions o he public sec o (Dunlea y, Ma ge s, Bas ow, &
Tinkle ,2006). Go e nmen s inc easingly use new o ms o
da a analysis and eme ging echnologies ha no longe solely
au oma e exis ing p ocesses bu ins ead induce en i ely new
o ms o go e ning socie ies and unning public o ganisa-
ions (Gil-Ga cia e al.,2018;Pee e s & Schuilenbu g,2020).
This de elopmen comes wi h a se e e ension be ween he
po en ial bene i s o digi al inno a ions and a ious iden i-
ied isks (Wi z, Weye e , & Geye ,2019). One conce n is
ha public employees ely on echnology wi hou ha ing in-
sigh s and con ol abou how he algo i hms p oduce hei
esul s (Pee e s & Schuilenbu g,2020). Thus, i is called o
new ways o deal wi h digi al inno a ions and o s eng hen
he unde s anding o new echnologies among he employ-
ees (Wi z e al.,2019). Since collabo a ion in o m o el-
lowship p og ammes may be one app oach o inc ease he
in-house capaci y o public o ganisa ions o de elop, imple-
men and o e see new echnologies in line wi h democ a ic
p inciples (Coglianese,2020), his hesis en ails socially im-
po an indings and p o ides ele an p ac ical implica ions
o policy and go e nance ega ding new digi al inno a ion
s a egies.
To answe he p oposed esea ch ques ions, he hesis is
s uc u ed in o i e majo sec ions. The nex chap e p o ides
he heo e ical ounda ion o he case s udy. He e, he con-
cep and mechanisms o collabo a i e inno a ion a e g an-
ula ly elabo a ed o de elop he analy ical amewo k ha
will guide his s udy. Subsequen ly, he me hodology will be
ou lined, including a desc ip ion o he in es iga ed case. In
he ou h chap e , he case Tech4Ge many will be analysed
by applying he analy ical amewo k o he empi ical e i-
dence. He ea e , a c i ical discussion o he esul s and he
limi a ions o he esea ch is p esen ed o answe he h ee
p oposed sub-ques ions. Finally, he hesis concludes wi h an
answe o he o e all esea ch ques ion and p ac ical impli-
ca ions as well as sugges ions o u u e esea ch.
2. Theo e ical ounda ion
This chap e p o ides he heo e ical ounda ion o he
esea ch. I s a s wi h concep ualising digi al public sec o
inno a ion, ollowed by an elabo a ion o he concep o col-
labo a i e inno a ion. Subsequen ly, he e olu ion o inno-
a ion s a egies in he public sec o is ou lined. The ou h
sec ion explains he heo e ical mechanisms o collabo a i e
inno a ion, complemen ed by a desc ip ion o he key limi a-
ions and challenges o collabo a i e inno a ion. The chap e
concludes wi h connec ing collabo a i e inno a ion and dig-
i al inno a ions and a summa y o he de eloped analy ical
amewo k.
2.1. Digi al public sec o inno a ion: a de ini ion
Digi al inno a ion is a social cons uc ha has di e -
en meanings in di e en con ex s. Since he e is no one
commonly used de ini ion in he public adminis a ion li e -
a u e, his sec ion cla i ies how digi al inno a ion is concep-
ualised in he s udy. On he mos gene al le el, inno a ion
can be unde s ood as “an idea, p ac ice, o objec ha is pe -
cei ed as new by an indi idual o o he uni o adop ion”
(Roge s,2003, p. 12). Based on a sys ema ic li e a u e e-
iew o s udies abou public sec o inno a ion, DeV ies e al.
(2016, p. 152) de ine h ee ace s as necessa y and su icien
condi ions o public sec o inno a ion: he pe cei ed no -
el y, he i s adop ion o an idea by a gi en o ganisa ion,
and a discon inui y wi h he pas . Toge he , hese dimen-
sions di e en ia e inno a ion om e o m, change, o new
ideas (Sø ensen & To ing,2011, p. 849).
As his de ini ion s ill includes a wide ange o di e en
inno a ion o ms, DeV ies e al. (2016) dis inguish ou ypes
o public sec o inno a ion: adminis a i e o echnologi-
cal p ocess inno a ion, p oduc o se ice inno a ion, go e -
nance inno a ion, and concep ual inno a ion. This s udy in-
es iga es digi al inno a ion, hus he ocus lies on echnolog-
ical p ocess inno a ion ha is de ined as he “c ea ion o use
o new echnologies, in oduced in an o ganiza ion o ende
se ices o use s and ci izens” (DeV ies e al.,2016, p. 153).
Simul aneously, li e a u e om he p i a e sec o e e s o
digi al inno a ion as “inno a ing p oduc s, p ocesses, o busi-
ness models using digi al echnology pla o ms as a mean
o end wi hin and ac oss o ganiza ions” (Ci iello, Rich e , &
Schwabe,2018, p. 565). Taken oge he he ou lined dimen-
sions, his s udy de ines digi al public sec o inno a ion as
he i s adop ion o a echnology ha is pe cei ed as new by
he gi en public o ganisa ion and p oduces a signi ican change
in he speci ic con ex .
Impo an ly, he p esen ed de ini ion does no include
any hing abou whe he he inno a ion p oduces good o bad
consequences (Hea ley,2005). E en hough he e m has a
posi i e conno a ion and he goal in mos cases is o c ea e
an imp o emen , he isk o ailu e is usually e y high and
he pe cep ion o whe he an inno a ion is an imp o emen
o debasemen is a subjec i e alua ion (McI o ,2020;To -
ing,2019). The e o e, c i ical inno a ion heo ies poin o a
“p o-inno a ion bias” (Godin & Vinck,2017, p. 8) as se e al
L. John /Junio Managemen Science 7(5) (2022) 1400-1418 1403
schola s and p ac i ione s end o assume ha inno a ion is
always he solu ion and always leads o imp o emen . Since
he s udy does no aim o e alua e whe he he collabo a-
i ely de eloped digi al inno a ions a e an imp o emen , his
deba e will no be u he elabo a ed. Howe e , he c i ical
iew will be conside ed in he discussion o he esul s.
2.2. The concep o collabo a i e inno a ion as a new s a -
egy o he public sec o
The concep o collabo a i e inno a ion p esen s he key
heo e ical ounda ion o his s udy. A i s co e, he s a -
egy is cha ac e ised by he ea u e ha “ he p i a e and hi d
sec o and ci izens a e in eg a ed in o he inno a ion cycle
(idea gene a ion, selec ion, implemen a ion and di usion)
om he ea lies s age onwa ds” (Bomme ,2010, p. 16).
This de ini ion emphasises ha collabo a i e inno a ion does
no e e o he ou pu bu o he p ocess ha (po en ially)
leads o inno a ion. The eby, inno a ions a e de eloped in
a complex, nonlinea , and i e a i e p ocess (Egge s & Singh,
2009). Hence, o e eal he mechanisms o collabo a i e in-
no a ion, ou analy ical phases o he so-called inno a ion
cycle can be depic ed (Figu e 1). The i s s age, he gene a-
ion o ideas, ypically s a s wi h he iden i ica ion and anal-
ysis o he p oblem, ollowed by he cla i ica ion o he goal.
Then, a se o possible solu ions and c ea i e ideas is de el-
oped. Subsequen ly, he selec ion o ideas e ol es a ound he
decision o which ideas should be u he pu sued by design-
ing, es ing, and edesigning p o o ypes. The implemen a ion
o new ideas e e s o he con e sion o ideas in o conc e e
p oduc s, p ocedu es, p ac ices, o se ices (Egge s & Singh,
2009).1
Secondly, he collabo a i e elemen emains o be cla i-
ied. To ing (2016, p. 64) de ines collabo a ion as “a empo-
al p ocess h ough which a plu ali y o ac o s wo k oge he
in an o ganized way o ans o m p oblems and oppo uni ies
in o join solu ions ha es on p o isional ag eemen s ha
a e o med despi e he pe sis ence o a ious o ms o dis-
sen .” In he con ex o public inno a ion, hose ac o s can on
he one hand include poli icians, public manage s and go -
e nmen employees, and on he o he hand p i a e compa-
nies, ci il socie y o ganisa ions, and ci izens (Lopes & Fa ias,
2020). In sum, collabo a i e inno a ion in he public sec o
can be concep ualised as a empo al p ocess in which nons a e
ac o s a e in eg a ed in o he inno a ion cycle om he i s
s age onwa ds whe eby he in ol ed g oups - public and ex e -
nal ac o s - engage in collabo a i e ac i i ies o join ly de elop
and implemen public inno a ion.
2.3. The e olu ion o inno a ion s a egies in he public sec-
o
In o de o illus a e how he s a egy o collabo a i e in-
no a ion may help o spu inno a ion in he public sec o ,
i is con as ed wi h hie a chical and compe i i e inno a ion
1Due o he limi ed scope o his s udy, he dissemina ion phase will no
be analysed.
s a egies in he ollowing. He eby, i is acknowledged ha
he ou lined s a egies a e no mu ually exclusi e bu co-exis
and migh de elop hyb id o ms o inno a ion app oaches
(Weg ich,2019).
Hie a chical s a egies end o a ou in-house inno a ion
ini ia ed in a op-down app oach by public manage s o lead-
e s (Ha ley e al.,2013). Beyond he al eady men ioned
o ganisa ional ba ie s, his app oach seldomly p oduces in-
no a i e ideas ha b eak wi h he pas because public lead-
e s ha e ew incen i es o change, ca y he whole espon-
sibili y o possible ailu e and solely ely on hei own ideas
which limi s he scope o de eloped solu ions and ends o
c ea e g oup- hinking and blind spo s (Cina e al.,2019;Eg-
ge s & Singh,2009;Weg ich,2019). Compe i i e s a egies
a e s ongly cha ac e ised by he adop ion o mode n busi-
ness p ac ices in he public sec o du ing he NPM e a and
aim o coun e ac he de iciencies o TPA s a egies wi h he
“c ea ion o quasi ma ke s and he adop ion o new o ms
o s a egic leade ship and pe o mance managemen ” (Ha -
ley e al.,2013, p. 824). E en hough he new managemen
p ac ices can enhance public inno a ion in some dimensions,
new ba ie s like a endency owa ds s anda disa ion, con-
ol and a eluc ance o sha e knowledge can be induced by
he s ong ocus on compe i ion and pe o mance (To ing,
2019). The e o e, collabo a i e inno a ion has been sug-
ges ed as one possible app oach o public o ganisa ions o
mi iga e he challenges and limi a ions o hie a chical and
compe i i e s a egies by including empowe ed ac o s wi h
di e se knowledge, skills and pe cep ions in a collabo a i e
p ocess (Ha ley e al.,2013;To ing,2019).
Impo an ly, his new s a egy “ equi es a e o mula ion
o he adi ional oles o public and p i a e ac o s” which
esembles a wide end in he shi owa ds NPG (Ha ley e
al.,2013, p. 827). Whe eas ci izens ha e been mainly pe -
cei ed as passi e clien s in he TPA model and as cus ome s in
line wi h he ma ke o ien a ion o he NPM e a, hey a e e-
qui ed o ake on an ac i e ole as co-c ea o s in he collabo-
a i e inno a ion s a egy (Ha ley e al.,2013). A he same
ime, he ole o public manage s shi s om p o iding s an-
da dised public se ices as p o essional bu eauc a s (TPA) o
unning public o ganisa ions like a business in he ole o
manage s (NPM) o aking he ole o media o s in he NPG
model (Hea ley,2005;Sicilia, Gua ini, Sancio, And eani, &
Ru ini,2016). In he con ex o collabo a i e inno a ion,
his includes encou aging and empowe ing di e en ac o s
and cons uc i ely managing in e dependencies (Sø ensen &
To ing,2015). Concluding, he oles and key cha ac e is ics
o he ou lined inno a ion s a egies a e summa ised in Table
1.
2.4. F om collabo a ion o inno a ion: he unde lying mech-
anisms
Based on he p e iously ou lined concep ualisa ion, To -
ing (2016) heo ised he causal ela ionship be ween collab-
o a ion and public inno a ion by connec ing in e disciplina y
heo e ical building blocks wi h empi ical indings. He eby,
i mus be no ed ha i is no a ully de eloped heo y o

L. John /Junio Managemen Science 7(5) (2022) 1400-14181404
Figu e 1: The cycle o inno a ion
Sou ce: Sø ensen and To ing (2011, p. 851)
Table 1: The e olu ion o inno a ion s a egies
Hie a chical inno a ion Compe i i e inno a ion Collabo a i e inno a ion
Rela ed T adi ional Public New Public Managemen New Public Go e nance
Pa adigm Adminis a ion
O ganisa ional Hie a chy, con ol, Ma ke o ien a ion, Mul i-ac o ne wo ks,
alues bu eauc acy ocus on pe o mance, in e -o ganisa ional
con ac ing in/ou ela ionships
In-house inno a ion by Inno a ion h ough Inno a ion h ough
Inno a ion public manage s compe i ion be ween collabo a ion o
( op-down) ac o s di e se ac o s
Role o public P o ide s Manage s Media o s
manage s
Role o Clien s Cus ome s Co-c ea o s
popula ion
Sou ce: Adap ed om Hea ley (2005) and Sicilia e al. (2016)
collabo a i e inno a ion. None heless, i p o ides a solid
and sui able ounda ion o his s udy as i allows sc u inis-
ing ellowship p og ammes as a new o m o collabo a ion
in he ligh o he exis ing schola ship. The key p oposi-
ion is ha collabo a i e inno a ion be ween ac o s wi h di-
e se expe iences, skills, and knowledge posi i ely in luences
all phases o he inno a ion cycle h ough h ee unde lying
mechanisms: empowe ed ac o s, mu ual and ans o ma i e
lea ning, and join owne ship (To ing,2016). The ollowing
sec ions ou line each o hese causal ela ionships o de elop
he analy ical amewo k o his heo y-guided case s udy.
2.4.1. Collabo a ion o empowe ed ac o s
The i s heo e ical mechanism p oposes ha collabo-
a ion has a posi i e e ec on he i s phase o he inno-
a ion cycle, he idea gene a ion, when empowe ed ac o s
- ha a e a ec ed and ele an ac o s - engage in collabo-
a i e p oblem-sol ing by exchanging di e en expe iences
and challenging p e ailing opinions (To ing,2016). The “a -
ec ed ac o s” a e social o poli ical ac o s who a e di ec ly
impac ed by he bene i s o incon eniences induced by he
inno a ion and can he e o e p o ide a comp ehensi e un-
de s anding o he p oblem and i s -hand expe iences wi h
he ci cums ances (To ing,2016, p. 131). “Rele an ac o s”
L. John /Junio Managemen Science 7(5) (2022) 1400-1418 1405
a e ac o s wi h knowledge, skills and ideas ha a e essen-
ial o de eloping and implemen ing an inno a ion (To -
ing,2016, p. 132). Depending on he p oblem o be sol ed,
he o m o expe ise can di e . In he con ex o digi al
inno a ions, he e is a s ong demand o echnical skills,
agile p ojec managemen , design hinking, in e disciplina y
p oblem-sol ing and building (so wa e) p o o ypes (Me gel,
2016). To empowe hese ac o s o collabo a e, he heo y
sugges s including a hi d g oup in he collabo a ion, he
“bounda y spanne s”, who a e capable o ansla ing and con-
nec ing he di e se knowledge o a ec ed and ele an ac-
o s in o de o le e age po en ial syne gies (To ing,2016,
p. 133). Impo an ly, collabo a ion does no occu inad e -
en ly. I mus be ini ia ed, acili a ed, and o ganised in a
way ha enables he ac o s o p oduce he desi ed ou come
(Agge & Sø ensen,2018;Ansell & Gash,2008). Hence, em-
powe men equi es clea g ound- ules including he de ini-
ion o oles, esponsibili ies, and p ocedu es o p e en con-
lic s and p o ide oom o c ea i e hinking and cons uc i e
discussions (Sø ensen & To ing,2017). Also, i is essen ial
ha all in ol ed ac o s de elop a sha ed unde s anding o he
goal o p e en misunde s andings (Neumann e al.,2019).
Concluding, he i s heo e ical a gumen p oposes ha col-
labo a i e inno a ion allows public o ganisa ions o include
a ec ed and ele an ac o s in o he inno a ion cycle. Tha
in u n is posi i ely ela ed o he likelihood o inno a ion
as he empowe ed collabo a ion be ween bo h is expec ed o
c ea e a g oup ha is mos capable o de eloping an inno-
a i e solu ion ha mee s he equi emen s o he speci ic
con ex (Bomme ,2010;McGann e al.,2021).
2.4.2. Mu ual and ans o ma i e lea ning
The second causal ela ionship p oposes ha collabo a-
ion s imula es lea ning p ocesses h ough which he ac o s
acqui e new skills and expand o e ise hei knowledge, and
hese lea ning p ocesses can spu he de elopmen o inno-
a ions (To ing,2016;Voo be g, Bekke s, Timeus, Tonu is ,
& Tumme s,2017). The i s dimension o he mechanism is
g ounded in he assump ion ha he collabo a i e inno a ion
s a egy encou ages lea ning when empowe ed ac o s wi h
di e se knowledge and opinions engage in i e a i e ounds o
he ou lined inno a ion cycle and “pa icipa e in a join and
c oss-disciplina y assessmen o he con en , easibili y, and
po en ial gains and isks o compe ing ideas” (To ing,2016,
p. 65). The second dimension o he mechanism is based on
cons uc i is lea ning heo ies which heo ise ha lea ning
om and wi h di e se ac o s has a posi i e e ec on he de-
elopmen o inno a ions (Sø ensen & To ing,2011;Voo -
be g e al.,2017). To elabo a e on his ela ionship, i can be
dis inguished be ween mu ual and ans o ma i e lea ning.
Mu ual lea ning e e s o a con inuous dialogue and mu-
ual exchange o expe iences and ideas ha s imula e col-
lec i e, c ea i e, and expe imen al p oblem-sol ing (Lind-
say e al.,2017;To ing,2016). He eby, i is assumed ha
one indi idual usually does no ha e all he needed knowl-
edge and abili ies o sol e a complex p oblem (Ansell & To -
ing,2015). Thus, e e y ac o has some ele an expe ise
and h ough he ci cula ion o ha knowledge, collabo a-
ion con ibu es o o e coming in o ma ion asymme ies be-
ween public agencies and public se ice use s (McGann e
al.,2021). Fu he , lea ning heo ies emphasize ha collab-
o a ion b oadens he epe oi e o solu ions h ough he com-
munica i e sea ch o new ways o doing hings and can spu
inno a ion h ough inspi a ion and imi a ion (McGann e al.,
2021;To ing,2016). Hence, his ype o lea ning has an
ins umen al ocus ha acili a es he acquisi ion o p ac i-
cal skills and knowledge o p oduce he desi ed inno a ion
(Lindsay e al.,2017;To ing,2016).
T ans o ma i e lea ning goes one s ep u he as he ac o s
no only ge o know new app oaches bu also new ways o
hinking and e aming he p oblem (Voo be g e al.,2017).
Whe eas indi idually acqui ed knowledge and skills a e o en
con inuous wi h o me assump ions, mindse s, and habi s,
collec i e lea ning o social ac o s can dis up bounded o ms
o hinking h ough c i ical and collec i e e lec ion (Neu-
mann e al.,2019;To ing,2016). Fu he mo e, exchanges
o ac o s who a e di e en in e ms o hei cogni ion and
cul u e a e likely o p e en g oup- hinking and blind spo s
ha a e o en a p oblem in closed ci cles (Weg ich,2019).
Since inno a ion equi es by de ini ion a dis up ion o old
ways o doing hings, ans o ma i e lea ning is expec ed o
posi i ely in luence public inno a ion as i enables c ea i e
ways o unde s anding a complex p oblem and explo ing new
oppo uni ies ha b eak wi h he pas (Agge & Sø ensen,
2018;To ing,2016). Concluding, i is heo ised ha mul i-
ac o collabo a ion s imula es mu ual as well as ans o ma-
i e lea ning and he e o e inc eases he likelihood o public
inno a ion.
2.4.3. Join owne ship o inno a ions
The hi d p oposi ion s a es ha collabo a i e inno a ion
has a posi i e e ec on inno a ion because i can c ea e a
“join owne ship” o new ideas ha educes he implemen-
a ion esis ance (Sø ensen & To ing,2011, p. 852). Join
owne ship is unde s ood as he shi o he decision-making
au ho i y om he public agency o he collec i e o he in-
ol ed ac o s (Ansell & Gash,2008). Mo eo e , i implies
a o m o commi men since owne ship c ea es a sha ed e-
sponsibili y o he p ojec (Ansell & Gash,2008;Neumann
e al.,2019). The heo e ical mechanism is based on soci-
ological planning heo ies s a ing ha no su icien ly aking
he s akeholde dynamics in o accoun can lead o implemen-
a ion ailu es because he in ol ed ac o s de elop a se e e
esis ance when hey do no ha e owne ship o he plans and
new de elopmen s (Cina e al.,2019;Sø ensen & To ing,
2011). Gi en he unce ain and des uc i e cha ac e o in-
no a ion, his isk is pa icula ly high o inno a ions as he
implemen a ion phase bea s po en ial con lic s, powe s ug-
gles, and ailu es (Weg ich,2019). Hence, enabling an ac i e
exchange be ween he a ec ed public s akeholde s and he
ac o s esponsible o de eloping an inno a ion can p o ide
he go e nmen employees wi h he oppo uni y o ac i ely
con ol and shape he ou come which inc eases he chances
o a success ul implemen a ion (McGann e al.,2021). In
L. John /Junio Managemen Science 7(5) (2022) 1400-14181406
sum, he heo y p oposes ha h ough he c ea ion o join
owne ship o he inno a ion among he in ol ed ac o s, col-
labo a ion enhances he implemen a ion s age o he inno a-
ion cycle and is he e o e posi i ely ela ed o he likelihood
o public inno a ion.
2.5. Limi a ions and challenges o collabo a i e inno a ion
The co e alue o collabo a i e inno a ion is he in e ac-
i e engagemen o ac o s wi h highly di e se skills, knowl-
edge, and pe cep ions. A he same ime, his cha ac e is ic
c ea es se e e challenges as collabo a ion in such a cons el-
la ion aces he isk o losing he capaci y o cons uc i ely
wo k oge he . Hence, he exis ing knowledge in his aspec
is p esen ed in he ollowing o c i ically in es iga e inno a-
ion ellowship p og ammes.
Acco ding o Weg ich (2019), he collabo a i e inno a-
ion s a egy inhe i s wo key limi a ions. Fi s , a di e gen
unde s anding du ing a collabo a i e p ocess is likely o pe -
sis when he commi men owa ds he goal o he inno a-
ion p ojec is supe icial o weak. As a consequence, he
di e se ac o s may ha e di e en in e p e a ions o he ob-
jec i es which migh lead o misunde s andings and con lic s.
In s ong con as , he second limi a ion is ha collabo a ion
migh lead o oo much alignmen o he in ol ed ac o s, ul-
ima ely inducing he isk “ ha one pa icula wo ld iew
and app oach o doing hings becomes dominan ” (Weg ich,
2019, p. 17). In his case, he p e iously ou lined mecha-
nisms would no wo k p ope ly, and he bene i s o collab-
o a ion disappea . Fu he mo e, se e al s udies e eal he
po en ial p oblem ha he p ocess can be manipula ed by in-
luen ial in e es s (Ansell & Gash,2008), and collabo a ion
ends o ha e high ansac ion cos s in e ms o ime and e-
sou ces (Ha ley e al.,2013).
Las ly, he no ion o collabo a i e go e nance i sel is no
undispu ed. McI o (2020) poin s o some dange s and un-
in ended consequences o he no ma i e and poli ical s akes
in collabo a i e go e nance. He ou lines how collabo a ion
policies can se e as an ideological jus i ica ion o go e n-
men ac ions and ha he ou come o collabo a ion in e ms
o i s success is likely o be pe cei ed qui e di e en ly by
public manage s and poli icians han by ci ic g oups o ci -
izens. Mo eo e , “in e es g oup plu alism can oo easily
slide in o co po a is models o go e nance” and in ha case
a he se e business alue han public alue (McI o ,2020,
p. 512). In conclusion, hese limi a ions illus a e ha collab-
o a i e inno a ion is no a sui able s a egy o all con ex s
and social ac o s will no necessa ily collabo a e cons uc-
i ely.
2.6. Connec ing he collabo a i e inno a ion s a egy wi h
digi al inno a ions
The ou lined heo e ical ounda ion o collabo a i e inno-
a ion is applicable o many di e en ypes o public sec o
inno a ion. Thus, he speci ic a angemen “should be de e -
mined by he p oblem o challenge a hand” (To ing,2019,
p. 4). The challenge in es iga ed in his s udy is he lacking
capaci y o public o ganisa ions o de elop and implemen
digi al inno a ions. The e o e, he ques ion emains why his
s a egy may be sui able o he unique se ing o digi al pub-
lic sec o inno a ions. The i s eason is ha go e nmen s
need pe sonnel wi h echnological skills o c ea e and de-
elop digi al solu ions (Coglianese,2020;Wi z e al.,2019).
Pa icula ly, because he NPM e a incen i ised ou sou cing o
digi al public se ice deli e y, echnical skills like coding and
use -cen ic web design a e mos ly no a ailable among ci il
se an s (Dunlea y e al.,2006;Wi z e al.,2019). The e-
o e, he inclusion o empowe ed ac o s, in his case empow-
e ed by echnical skills, is a p e equisi e o c ea ing digi al
inno a ions.
Secondly, he de elopmen o digi al inno a ions equi es
e y di e en wo king me hods han wha is adi ionally es-
ablished in public o ganisa ions. Especially, design hink-
ing and agile p ojec managemen a e c ucial in so wa e de-
elopmen and digi al inno a ion p ojec s (Me gel,2016).
Simul aneously, p i a e ac o s a e p esumably no con e -
san wi h he unique o ganisa ional s uc u e, p ocesses, and
equi emen s o a public o ganisa ion (Coglianese,2020).
Thus, he p ocess o mu ual and ans o ma i e lea ning is
expec ed o ha e a posi i e in luence on digi al inno a ions
as he di e se ac o s migh help each o he o acqui e he nec-
essa y skills o he success ul de elopmen o digi al inno a-
ions in he speci ic se ing o public o ganisa ions. Las ly,
esis ance owa ds ans o ma i e change is expec ed o be
pa icula ly s ong in he case o new echnologies because
he a ec ed go e nmen employees migh no ully unde -
s and hei unc ionali y and possible consequences (Wi z e
al.,2019). The e o e, c ea ing join owne ship by including
hem in he inno a ion p ocess has he po en ial ad an age,
compa ed o ou sou cing i o ex e nal IT-p o ide s, ha he
public employees may be o e ed an oppo uni y o unde -
s and he new echnologies and hei po en ial isks and ben-
e i s.
2.7. Analy ical F amewo k
Concluding, he heo ised mechanisms o collabo a i e
inno a ion se e as he analy ical amewo k o his s udy
as summa ised in Figu e 2. Thus, i allows connec ing he
exis ing knowledge abou collabo a i e inno a ion wi h he
so- a unexplo ed phenomenon o inno a ion ellowship p o-
g ammes. In all, i is expec ed ha he h ee ou lined mech-
anisms po en ially explain how he in es iga ed ellowship
p og amme con ibu es o he de elopmen o digi al inno-
a ions in public o ganisa ions.
3. Me hodology
This sec ion cla i ies and jus i ies he chosen me hods o
answe ing he be o emen ioned esea ch ques ion. I s a s
wi h elabo a ing on he esea ch design o his s udy, ol-
lowed by a jus i ica ion o he case selec ion and a desc ip ion
o he case. He ea e , he uni o analysis and uni s o obse -
a ion a e speci ied. Las ly, he da a collec ion me hod and
da a analysis a e desc ibed.
L. John /Junio Managemen Science 7(5) (2022) 1400-1418 1407
Figu e 2: Analy ical amewo k: Mechanisms o collabo a i e inno a ion
Sou ce: Own ep esen a ion, based on To ing (2016)
3.1. Resea ch design
In line wi h he main esea ch ques ion ha aims o un-
co e he unde lying mechanisms o how Tech4Ge many
con ibu es o he de elopmen o digi al inno a ions, his
s udy is designed as an explana o y single-case s udy (Swan-
son & Hol on,2005;Yin,2003). This esea ch design a ises
di ec ly om he p oposed ques ion because he hesis in-
es iga es one unique case, Tech4Ge many, and “[ ]he case
s udy me hod is mos likely o be app op ia e o ‘how’ and
‘why’ ques ions” (Yin,2003, p. 22). Mo eo e , since he ob-
jec i e o his s udy is no o analyse one speci ic a iable
bu o de elop a comp ehensi e unde s anding o he causal
mechanisms, a case s udy is “uniquely p edisposed o aking
in o accoun a b oad and di e se se o explana o y ac o s”
(Bla e & Ha e land,2012, p. 5). Fu he , his case s udy
ollows a diagnos ic app oach. Gene ally, his ype o applied
esea ch is “conce ned wi h using he knowledge acqui ed
h ough esea ch o con ibu e di ec ly o he unde s anding
o esolu ion o a con empo a y issue” (Ri chie,2003, p. 24).
As ou lined in he in oduc ion, ellowship p og ammes a e
a so- a unexplo ed o m o collabo a i e inno a ion. A
he same ime, he heo y and schola ship abou collabo a-
i e inno a ion a e well es ablished. The e o e, a diagnos ic
case s udy is he mos sui able esea ch design because i
allows he esea che o de elop an in-dep h unde s anding
o a unique phenomenon by connec ing he empi ical ob-
se a ions wi h he heo e ical concep s and exis ing knowl-
edge (Bla e & Ha e land,2012;Swanson & Hol on,2005).
Hence, he s udy will be heo e ically-guided by he analy i-
cal amewo k ha was deduc i ely de i ed om he heo y
o collabo a i e inno a ion in chap e 2 (see Figu e 2).
Gi en he uniqueness o he case and he ou lined diag-
nos ic case s udy design, his s udy does no a emp o gene -
alise i s indings o a wide popula ion. Howe e , he gene -
a ed knowledge may be ans e able o o he cases, namely
o he ellowship p og ammes (Lewis & Ri chie,2003). In
ega d o he in e nal alidi y, mul iple sou ces (con ac s,
p ojec epo s, and semi-s uc u ed in e iews) a e collec ed
and iangula ed o ensu e ha he indings con o m wi h
eali y (Lewis & Ri chie,2003; an Thiel,2007). Fu he -
mo e, iangula ion mi iga es he subjec i i y in he esea ch
p ocess and he e o e s eng hens he o e all eliabili y ( an
Thiel,2007).
3.2. Case selec ion
As ou lined abo e, he case is no assumed o be s a is-
ically ep esen a i e o a wide popula ion bu was chosen
o “in insic” easons (Swanson & Hol on,2005, p. 330).
The selec ion o his pa icula case is jus i ied by h ee a -
gumen s. Fi s , he case is e y “in o ma ion- ich” (Pa on,
1990, p. 169) and scien i ically ele an because i applies he
s a egy o collabo a i e inno a ion in an unexplo ed o m.
The analysis o his case is he e o e p edes ined o ill he
iden i ied esea ch gap. Secondly, Tech4Ge many is he only
ellowship p og amme o i s kind in e ms o he o gani-
sa ion in p ojec g oups ha ac i ely wo k oge he o a
sho e m o h ee mon hs and i s explici ocus on digi al
inno a ions. E en hough he e a e compa able ellowship
p og ammes in o he coun ies, o ins ance, he P esiden-
ial Fellowship P og amme in he USA (Obama Whi e House
A chi es,2021) and he No. 10 Inno a ion Fellowship P o-
g amme in G ea B i ain (HM Go e nmen ,2021), hey ake
place o e a longe pe iod and a e no o ganised in unchang-
ing g oups o ci izens and public employees. The p ojec
cha ac e is ic o Tech4Ge many he e o e p o ides an espe-
cially bounded and clea se ing o in es iga e he collabo-
a i e p ocess (Swanson & Hol on,2005). Addi ionally, he
accessibili y o Tech4Ge many is e y high as ele an docu-
men s and names o o me pa icipan s a e p o ided online
( an Thiel,2007). Las ly, Ge many o e s a s iking se ing
because i anks compa a i ely low, on place 21 in he Eu-
opean Union, in e ms o he p o ision o digi al public se -
ices (Eu opean Commission,2020). Hence, i is pa icula ly
in e es ing o analyse how Ge man public employees expe i-
ence he collabo a ion wi h ech expe s om he ci il socie y
and he po en ial clash o cul u es.
L. John /Junio Managemen Science 7(5) (2022) 1400-14181414
i al inno a ions p ojec s ha a e app oached om an agile
and use -cen ic pe spec i e (Digi allo se 2,2021;Fellow 2,
2021;Fellow 3,2021). Hence, he impac o Tech4Ge many
was summa ised wi h he wo ds: “Cons an d ipping wea s
away he s one” (Digi allo se 2,2021, l.358).
5. Discussion
5.1. Resul s
The p esen ed indings se e o answe he sub-ques ions
o his s udy. Rega ding he ways he ellowship p og amme
enables he collabo a ion o empowe ed ac o s, i became
clea ha Tech4Ge many mee s he ole o a bounda y
spanne by b inging oge he he Digi allo sen in hei po-
si ion as a ec ed ac o s and Fellows whose echnical and
me hodological skills make hem ele an ac o s. The e o e,
Tech4Ge many p o ides a space whe e bo h g oups can col-
labo a i ely wo k oge he on a conc e e digi al inno a ion
by de ining he basic s uc u e, ules and esponsibili ies. Be-
yond ha , he wo kshops and onboa ding week acili a e he
collabo a ion by linking and ansla ing he di e se knowl-
edge and ocabula y. Wha mus be no ed is ha he ac i e
collabo a ion be ween he a ec ed and ele an ac o s only
akes place one day a week, whe eas he es o he ime
he in e ac ion can a he be desc ibed as mu ual suppo .
Fu he mo e, Tech4Ge many does no ope a e as a bounda y
spanne h oughou he whole collabo a ion bu is a ailable
upon eques , o ins ance in cases o con lic .
The indings o he second sub-ques ion a e mixed, indi-
ca ing ha mu ual and ans o ma i e lea ning was expe i-
enced in some cases bu highly depends on he indi idual mo-
i a ion, p e ious knowledge, and ex en o which he ac o
was ac i ely in ol ed. He eby, i s ands ou ha he Digi al-
lo sen did no lea n new echnical skills which mus be no ed
as a limi a ion as his s udy in es iga es he de elopmen o
digi al inno a ions. On he o he hand, he public employ-
ees clea ly acqui ed new me hodological compe encies and
changed he way hey app oach digi al inno a ion p ojec s
owa ds use -cen ic and agile hinking. Since i is widely
acknowledged ha hese app oaches a e c ucial o digi al
inno a ion p ojec s (Me gel,2016), i is concluded ha he
ac o s o e all lea ned ele an skills o he de elopmen o
digi al inno a ions in he speci ic con ex o public o ganisa-
ions.
Conce ning he hi d sub-ques ion, i was ound ha he
ac i ely in ol ed ac o s e iden ly c ea ed join owne ship as
hey sha ed he esponsibili y and decision-making au ho -
i y. The e o e, he collabo a i e inno a ion con ibu es o a
low le el o implemen a ion esis ance among he in ol ed
public employees. Simila o ans o ma i e lea ning, his e -
ec seems o depend on he deg ee o in ol emen and ge s
weake he ewe con ac poin s a public employee had wi h
he Tech4Ge many p ojec . A he same ime, he shee p es-
ence o Tech4Ge many helped o educe he implemen a ion
esis ance o decision-make s by illus a ing po en ial bene-
i s and inc easing he poli ical a en ion.
All in all, he esul s show ha he heo e ical mecha-
nisms o collabo a i e inno a ion apply o a e y la ge ex en
and he heo y o To ing (2016) p o ides ele an p opo-
si ions o explain how a ellowship p og amme con ibu es
o he de elopmen o digi al inno a ions in public o ganisa-
ions. A he same ime, i appea s ha e en i all mecha-
nisms apply, he de eloped p o o ypes we e no necessa ily
ans o med in o digi al inno a ions. Hence, he e a e mos
likely ele an an eceden s a ec ing he implemen a ion o
collabo a i ely de eloped digi al inno a ions beyond he p o-
posed mechanism o join owne ship among he in ol ed ac-
o s. The indings o his s udy indica e he o ganisa ional
design and suppo o decision-make s as impo an ac o s.
The e o e, a possible explana ion o an unsuccess ul imple-
men a ion is a hie a chical decision-making s uc u e in he
public o ganisa ion. Al hough he public employees who a e
a ec ed by he inno a ion in hei daily wo k a e included
in he collabo a ion p ocess and ad oca e he implemen a-
ion o he de eloped p o o ype, poli ical leade s o public
manage s wi h he decision-making au ho i y o de e mine
he con inua ion o he digi al inno a ion p ojec can s ill im-
pede he implemen a ion. Consequen ly, he o ganisa ional
design and pa icula ly he decision-making s uc u e o he
public o ganisa ion should be conside ed in he analysis o
collabo a i e inno a ion p ojec s.
5.2. Limi a ions o he esea ch
Wi h ega d o he limi a ions o he hesis, his single-
case s udy does no allow gene alising he indings o o he
ellowship p og amme bu only p o ides ans e able indica-
ions and s a ing poin s o u he s udies. Addi ionally, he
small sample size implies ha i was no possible o empi i-
cally alida e he ex en o which he heo e ical mechanisms
apply in his case. Since no all pa icipan s ha e been in e -
iewed, some pe spec i es migh be missing, and no conclu-
sion can be d awn abou he o e all impac o Tech4Ge many.
Pa icula ly, i s ands ou ha all in e iewees gene ally had
a posi i e a i ude owa ds he ellowship. Thus, he selec-
ion p ocess migh ha e induced a bias as no all pe sons
eplied o he in e iew eques and i may be ha ad oca es
o Tech4Ge many we e mo e willing o sha e hei expe ience
han scep ics. Mo eo e , since all pa icipan s a e publicly
named on he websi e o Tech4Ge many, hey migh ha e an
in insic mo i a ion o p esen he p og amme in a posi i e
ligh .
Beyond ha , he excep ional ci cums ances du ing he
Co id-19 pandemic in e ha he expe iences o he espon-
den s who pa icipa ed in 2020 migh di e in compa ison o
o he yea s and con ain elemen s ha a e no ep esen a i e
o he ellowship p og amme. Howe e , i was ound ha
he key indings coincide be ween he pa icipan s o 2019
and 2020 which mi iga es his limi a ion. Las ly, all in e -
iews ha e been conduc ed in Ge man so he ansla ed quo-
a ions may ha e di e en conno a ions and hus can lose
some o hei meaning.

L. John /Junio Managemen Science 7(5) (2022) 1400-1418 1415
Table 5: Limi a ions and challenges: Key indings
Key inding
Numbe o esponding in e iewees
who con i med key inding*
Fellows Digi allo sen
Con lic s o misunde s andings occu 3/3 1/3
The limi ed ime capaci ies o he Digi allo sen and/o 3/3 2/2
insu icien IT-equipmen impai he collabo a ion
Ex e nal ba ie s impede he implemen a ion 2/2 2/2
The Co id-19 pandemic impai ed he collabo a ion 2/2 1/1
Tech4Ge many has a posi i e impac on he 3/3 3/3
de elopmen o digi al inno a ions, bu
he scope is limi ed
* In he illus a ion x/y, y indica es he numbe o in e iewees who ga e a ele an esponse o he a ibu e and x indica es
he numbe o in e iewees who con i med he key inding. A inding coun s as con i med i any indica ion ha he a ibu e
applies was made.
6. Conclusion
While i is known ha collabo a i e inno a ion adhe es
key ad an ages compa ed o hie a chical and compe i i e in-
no a ion s a egies, no se ing in which collabo a i e inno-
a ion can be suppo ed and sus ained in he p esen go -
e nance sys em had been ound ye . The e o e, his s udy
aimed o analyse he so- a unexplo ed concep o inno a ion
ellowship p og ammes by answe ing he esea ch ques ion
o how he ellowship p og amme Tech4Ge many con ibu es
o he de elopmen o digi al inno a ions in Ge man public
o ganisa ions. The co e inding o his s udy is ha he sci-
en i ic phenomenon o ellowship p og ammes quali ies as
a o m o collabo a i e inno a ion as he heo e ical mech-
anisms a e obse able o a la ge ex en . The e o e, ellow-
ship p og ammes can be desc ibed as a hi d space be ween
one- ime collabo a ion p ojec s and inno a ion labs. In he-
o e ical e ms, a ellowship p og amme hus con ibu es o
he de elopmen o digi al inno a ions by p o iding a new
ins i u ional design o collabo a i e inno a ion. Hence, his
s udy ills he iden i ied esea ch gap by con ibu ing impo -
an indings o he discussion on sui able ways o in eg a e
collabo a i e inno a ion in he cu en go e nance sys em.
P ecisely, ellowship p og ammes enable collabo a i e in-
no a ion by lowe ing he ansac ion cos s o he public o -
ganisa ions, c ea ing a se ing ha a ac s digi al inno a ion
expe s and p o iding he basic s uc u e and ules o con-
s uc i e collabo a ion. Impo an ly, he new ins i u ional de-
sign simul aneously p o ides a unique oom in which pub-
lic employees can expe ience new ways o wo king, pa ic-
ula ly agile and use -cen ic app oaches ha a e c ucial in
digi al inno a ion p ojec s. Expe iencing new me hods in a
eal p ojec s imula es mu ual and ans o ma i e lea ning,
hus implying a posi i e impac on he de elopmen o digi-
al inno a ions beyond he single p ojec . Howe e , he ind-
ings in his aspec a e mixed, indica ing ha he expe ience
o lea ning depends on indi idual cha ac e is ics and he de-
g ee o in ol emen in he collabo a ion. In addi ion o ha ,
ellowship p og ammes c ea e join owne ship o he de el-
oped p o o ype, leading o suppo o he implemen a ion
o he digi al inno a ion among he in ol ed public employ-
ees. As cu en esea ch ound ha eaching he implemen a-
ion s age is a key challenge in sepa a ed ins i u ional designs
such as inno a ion labs (McGann e al.,2021), his inding
emphasises he ele ance o he embeddedness o inno a ion
ellowship p og ammes wi hin he public o ganisa ion.
The ou lined mechanisms s ongly di e en ia e he col-
labo a ion o public employees wi h digi al expe s om
con ac ing-ou he de elopmen o digi al inno a ions o ex-
e nal IT-p o ide s. The s udy he e o e aligns wi h he wide
heo e ical pa adigm shi owa ds New Public Go e nance.
Pa icula ly, he esul s illus a e how ins alling an in e me-
dia e ins ance like he managemen eam o Tech4Ge many
helps o o e come o me ba ie s o collabo a i e o ms o
go e nance. By ini ia ing he i s s ep owa ds opening-up
public o ganisa ions o in e disciplina y and c oss-sec ional
expe ise and allowing he public o ganisa ions o expe -
imen wi h agile and use -cen ic app oaches in a secu e
se ing, ellowship p og ammes hence con ibu e an im-
po an building block o he esea ch abou new o ms o
go e nance in he digi al age. Addi ionally, he unique in-
s i u ional design poin s o he heo e ical impo ance o
o e coming simpli ied discussions abou con ac ing-in o
L. John /Junio Managemen Science 7(5) (2022) 1400-14181416
con ac ing-ou digi al public se ices, ins ead looking be-
yond es ablished o ganisa ional o ms.
Ha ing sys ema ically analysed he ellowship p og amme
in he ligh o he exis ing schola ship o collabo a i e inno a-
ion, his s udy se s he ini ial g oundwo k o u u e esea ch
on he scien i ic phenomenon o inno a ion ellowship p o-
g ammes and p o ides p omising s a ing poin s o u he
s udies. Fi s , quan i a i e s udies a e needed o measu e
he impac o ellowship p og ammes. He e, an in e up ed
ime se ies design based on a ques ionnai e answe ed by all
pa icipan s in he beginning and a he end o each p ojec
appea s o be a aluable esea ch design. Gi en he bounded
se ing o Tech4Ge many, he case also p o ides oppo uni-
ies o di e en da a collec ion me hods, o ins ance ocus
g oups o obse a ions o beha iou . This would allow o
u he in es iga e he be o e ou lined heo e ical implica-
ions, pa icula ly he analysis o addi ional an eceden s like
he o ganisa ional design and decision-making hie a chy.
Mo eo e , a s udy ha e alua es he long- e m impac and
he deg ee o imp o emen h ough he de eloped digi al
inno a ions is ecommended. Beyond ha , case s udies
o di e en ellowship p og ammes and especially c oss-
coun y compa a i e s udies would inc ease he alidi y o
hese indings and would allow o analyse which ins i u ional
design o ellowship p og ammes p o ides he bes se ing
o collabo a i e inno a ion.
In addi ion o he implica ions o esea ch, he s udy p o-
ides ecommenda ions o p ac i ione s in poli ics, public
adminis a ion, and go e nance. Conce ning he speci ic se -
ing o Tech4Ge many, he indings clea ly sugges ha he
Digi allo sen should be g an ed mo e ime o ac i ely collab-
o a e wi h he Fellows and hus need o be eed om some
o hei daily esponsibili ies. This would inc ease he posi-
i e e ec o mu ual and ans o ma i e lea ning and he e-
o e also he long- e m impac on he de elopmen o digi al
inno a ions. Pa icula a en ion should also be paid o in-
cluding public employees in he collabo a ion who a e scep-
ical abou digi al inno a ions and mode n wo king me h-
ods. E en hough his migh inc ease he ansac ion cos s
o he collabo a i e p ojec s, i is essen ial o es ablish a cul-
u al change and ul ima ely each he goal o Tech4Ge many
o “expedi e he digi alisa ion o Ge many and he eby lea n
om and wi h each o he ” (Tech4Ge many,2021c, p. 1).
F om a wide pe spec i e, ellowship p og ammes ap-
pea o be a sui able al e na i e o supplemen o inno a-
ion labs and one- ime collabo a ion p ojec s as hey no only
c ea e digi al inno a ion p o o ypes bu may also inc ease
he in-house capaci y o public o ganisa ions o de elop and
o e see digi al se ices and p oduc s. Hence, i is ecom-
mended o es ablish mo e ellowship p og ammes, o in-
s ance on he ede al s a e le el. This seems o be ealis-
ic as his s udy shows ha expe s om he digi al econ-
omy a e gene ally willing o con ibu e hei echnical knowl-
edge o a us ul ela ionship wi h he public en i ies and
he numbe o applica ions by a exceeds he numbe o
p ojec s ha Tech4Ge many can implemen (An on & Hup-
pe h,2020a). Beyond he unique concep o ellowship
p og ammes, his s udy e ealed he impo ance o ac i ely
le e aging he knowledge and expe iences om ou side he
public sec o wi hou ully ou sou cing digi al se ices o IT-
p o ide s. The e o e, i is ecommended o o e all wo k o-
wa ds a s onge emphasis on collabo a i e in e ac ions be-
ween digi al expe s and public employees since opening-up
public o ganisa ions o new o ms o collabo a ion bea s he
po en ial o de elop digi al inno a ions in line wi h demo-
c a ic p inciples.
L. John /Junio Managemen Science 7(5) (2022) 1400-1418 1417
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