3.4.2. Discretionary factors as strategic options
The most important discretionary factor in the initiation phase seems to be the choice between a top-down and a bottom-
up approach. A top-down approach is closely tied to the ability of generating political support, but it requires proposing a
solution that can be set up within the prevailing public sector organisations. Bottom-up approaches may deliver more non-
conventional solutions, but are faced with greater difficulties to ensure political support and embedding, in particular in this
early phase.
In the emergence phase, the extent to which private sector agents are allowed to acquire a leading position seems to be an
important discretionary factor. The cases studied range from being driven by the private sector to full control by the public
sector, allowing for targeted contributions of private sector agents only. It is difficult to assess whether a dominant role of
the private sector is more likely to deliver radically different solutions, whereas initiatives that are led by the public sector
are better compatible with the prevailing system and can be integrated more easily. Outsiders have nevertheless the
potential to come up with non-conventional solutions. Much depends also on the level of capabilities in the public sector,
implying that private sector organisations are likely to acquire a more prominent role if the public sector organisations lack
the necessary capabilities and skills to manage ServPPINs.