Nursing shared governance models have always focused on nurses controlling their professional practice. It’s a theme that flows consistently through shared governance research and marketing literature. For example, one hospital noted that "unlike participatory management environments, [shared governance structures] ensure that the practicing nurse has not only the right but the power to make practice decisions" (Morristown Memorial Hospital abstract, 1991). The message was even reflected in the name of the hospital’s program, E.N.A.C.T. – Empowering Nurses with Authority in the Clinical Track.
A practice focus is evident in the current online representations of health systems’ shared governance models. This practice focus is evident in the following examples:
1. Seton Healthcare Network in Central Texas www.seton.net/Employment7/Nursing/SharedGovernance.asp states that their shared governance model empowers frontline staff nurses to actively participate on policy-making bodies that determine the professional nursing practice environment. A 65-member nursing congress defines, promotes, and evaluates nursing practice and assures consistent nursing practice, standardization, and redesign across the network. All nurses are eligible to participate. Four of Seton’s hospitals have acquired the award of Magnet through the American Nurses Credentialing Center.
2. Overlake Hospital Medical Center in Bellevue, WA www.overlakehospital.org/ccc/shared.htm created a Nursing Congress in 1984 to allow nurses to participate in patient care and practice decisions. However, the name was changed to the Clinical Care Congress in 2000 to encompass all multidisciplinary staff members in decision-making.
3. Barnes-Jewish Hospital in St. Louis, MO www.barnesjewish.org/groups/default.asp?NavID=637 uses shared governance councils to give staff nurses a formal mechanism for participation in nearly all decisions regarding care of patients.
4. Hartford Hospital in Hartford, CT www.harthosp.org/nursing/workplace/governance.html implemented a nursing shared governance council structure to empower caregivers closest to the patients in decision making. Most councils at Hartford Hospital are chaired by a practicing nurse.
Advocates from shared governance hospitals say that their nurses control practice. But do they? Although few solid statistics support this claim, there is some evidence that nurses working in these institutions at least believe that they control their practice. The "Index of Professional Nursing Governance" [PDF file] (IPNG) (Hess, 1994; 1998b) is an 86-item survey instrument that measures nurses’ perceptions about who governs the professional environment, including control over practice. During the IPNG’s initial development, nurses in two out of three shared governance hospitals self-reported significantly greater control than colleagues working in more traditionally governed hospitals. However, one shared governance hospital scored no differently than traditional hospitals. Remember, structures and labels may not be all that they appear. Subsequent hospital research (Anderson, 1997; George, Burke, & Rodgers, 1997; Lee, Yang, Lee, & Wu, 2001; Lee, Yang, Wu, & Lee, 2001) and repeated hospital evaluations of shared governance with the IPNG have consistently revealed that nurses in shared governance hospitals do have greater control over decisions affecting their practice.
Of course, nurses cannot effectively practice without the right resources...
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The same control over practice may characterize some U.S. Magnet hospitals that have put in place formal structures for empowering nurses, such as shared governance programs. A recent comparative analysis by Kramer and Schmalenburg (2003), who interviewed 279 nurses at 14 Magnet hospitals, found the highest staff nurse ownership of practice issues and outcomes occurred where there were visible, viable, and recognized structures devoted to nursing control over practice.
Of course, nurses cannot effectively practice without the right resources – an appropriate amount and mix of caregivers, supplies, and supporting systems. To control practice, nurses must also have some influence over these resources.
...one of the most distinguishing characteristics of a shared governance environment is that nurses feel that they have access to the information necessary to make effective governance decisions.
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In shared governance, as in nursing, the primary resources for practice are the providers themselves. Thus, to control practice, nurses must have influence over themselves as a professional group. The importance of this emerged in the 11-hospital study that validated the IPNG as a measure of governance (Hess, 1994; 1998b). The most important factor in differentiating shared governance hospitals from traditional organizations was nurses’ ability to exercise control over personnel in such areas as hiring, transferring, promoting, and firing personnel; performance appraisals and disciplinary actions; salaries and benefits; and the creation of new positions. Other significant areas that set shared governance hospitals apart were nurses’ involvement in staffing, supplies, and budgets. This finding was consistent with an earlier follow-up to the initial Magnet hospital study, which found that in these enlightened work environments staff nurses had extended their influence into personnel and finance (Kramer, 1990). The IPNG study also found that along with practice and resources, nurses in shared governance participate in setting goals and negotiating conflict. However, one of the most distinguishing characteristics of a shared governance environment is that nurses feel that they have access to the information necessary to make effective governance decisions.
Implementation and Issues: Bumps in the Road
The implementation of shared governance is not easy.
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The implementation of shared governance is not easy. It can be riddled with conceptual ambiguity and resistance from the old bureaucratic guard and new professionals struggling to establish their skills. Not everyone will share the enthusiasm for this wonderful innovation. Some will refuse to participate outright. But for those who maintain confidence and keep their eyes on the vision, a rich 25-year plus tradition can help anticipate issues that might arise during implementation by remembering the following insights.
1. Shared governance is a journey, not a destination. Organizations pursuing shared governance move incrementally from past orientations where the few rule to an orientation where many learn to make consensual decisions. Organizations that implement shared governance are in a constant process of revitalization and renewal. There's always more power to share and more members to bring along on the journey.
2. The journey can be long and steep. Expect a sharp learning curve. Shared governance can be a consciousness-raising event that allows organizational members to thrive. However, attempts to elicit participation without allowing opportunities to acquire prerequisite skills can leave some people frustrated and others apathetic. Beginners in shared governance need initial and then ongoing education. For example, staff nurses will need management skills, such as how to delegate and how participate in and run meetings. Managers and staff need to learn how to share authority over key areas, such as scheduling, that may have been the exclusive domain of administration (McMahon, 1992). And when the learning curve is past, maintenance will be necessary to keep everyone's expertise current. Even those who are not directly involved in the model need to be educated and informed, because shared governance affects everyone.
3. Not every environment is conducive to shared governance. First of all, organizations must be ready. At the very least, the leadership group needs to be willing and able to shift roles and power. For specific areas in which staff nurses need to be adept and predisposed to share authority, readers can refer to Susan Reeves' 1991 study (unpublished) at Dartmouth Hitchcock Medical Center in Lebanon, NH, presented in Table 1. Reeves work draws on the situational leadership model by Paul Hersey and Ken Blanchard (1996).
Second, some organizations have inherent restrictions that may prohibit or limit implementation in every area. It is helpful to know these constraints beforehand to avoid unrealistic expectations. For instance, union or government restrictions may prohibit management from fully implementing a model. Howell, Frederick, and Ollinger (2001) examined the highly bureaucratic structure of a Veterans Administration (VA) hospital in North Carolina. They found that in spite of a shared governance model, nurses in this hospital did not have any more control over personnel, access to information, or the ability to set organizational and divisional goals than those in traditional organizations. The researchers attributed this lack of expected control to external constraints imposed by outside government agencies and legislation. However, the VA hospitals have been able to achieve shared governance in other geographical areas.
Finally, committees must have legitimate organizational authority congruent with responsibility and accountability to carry out their decisions. Loading an agenda with fluffy items or delegating historically irresolvable problems without appropriate resources are sure ways to damage the credibility of a shared governance model. Nurses who devote their time to participating in a model deserve relevant professional issues for their consideration. The point of shared governance is moving committees beyond simply making recommendations to empowering them to carry out their decisions.
4. Although not everyone might make the journey, it should be open to all. Because shared governance demands energy and attention from its participants, some nurses may decide to follow, but not participate. Others, including managers, may choose to leave. For those who stay the course, models eventually encompass everyone in the organization, including patients. Shared governance models that include only nurses can become exclusionary and eventually ineffectual by focusing on the goals of a single profession, instead of the organization as a whole. Furthermore, for practitioners to have control over practice they need the participation of others in the organization who provide support.
5. Is the journey worth the price? Most nurse researchers have concluded that shared governance is good by its association with a sparkling array of projected outcomes and correlations. Researchers have studied nursing shared governance for its relationship to professional collaboration and collegiality; retention; autonomy and empowerment; morale and both nurse and patient satisfaction; values and organizational culture; quality and patient outcomes; and versatility, competency, and productivity. Unfortunately, many of the relationships reported are inconsistent and flawed. Small studies, inadequate methodology, the use of variables isolated from any unifying theory, and the lack of a clear measure of governance as an independent variable have muddied many research findings. Potential questions for future researchers are presented in Table 2.
...the cost-effectiveness of nursing shared governance is an important question that has yet to be settled.
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In the current financial climate, the cost-effectiveness of nursing shared governance is an important question that has yet to be settled. Shared governance has been associated with savings from reduced turnover (Pinkerton, 1988), restructuring (Jenkins, 1988), and indirect revenue generation of $500,000 (Ethridge, 1987). DeBaca, Jones, and Tornabeni (1993) declared shared governance a "winner," when they calculated net savings in the reduction of management staff positions, the elimination of registry nurses, and a reduction in recruitment and orientation costs. On the other hand, Pruett (1989) suggested a financial liability between the level of implementation noting increased paid man hours per unit of service; shared governance nurses tend to spend more time with patients, reducing efficiency.
Studies agree on one thing – shared governance costs money in terms of time and energy. Some believe that the cost can be simply quantified, for example one nurse executive quickly stated that shared governance cost her agency what the agency would spend on committees anyway. Others, however, are eager for research findings that will provide firmer documentation for the financial benefits associated with shared governance. In a worsening nursing shortage, money invested in shared governance can be a sound investment. Current estimates for replacing a staff nurse run from $50,000 (Cohen & Sherrod, 2003) to as high as $64,000 for a critical care or labor and delivery nurse (Health Care Advisory Board, 2000). As research strengthens the connection between shared governance and work satisfaction, the savings from a single retained nurse in a small hospital could provide a substantial reason for underwriting a program.
Table 1.- Excerpts from 1991 Readiness Study by Susan Reeves, RN, MS, Vice President, Dartmouth-Hitchcock Medical Center, Lebanon, NH |
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In this study Reeves identified the following staff nurse skills considered critical in successful professional governance models:
- Demonstrates ability to engage in decision making about patient management issues.
(Examples: Is a vocal advocate for patients with family and other health care providers; does not shy away from controversy over patient management issues; has an adequate knowledge base to participate in decision making regarding treatment.)
- Demonstrates ability to engage in the development of standards of practice.
(Examples: Knows what current standards are for patient population served; is aware of current nursing/health care research in specialty area; has worked on committees to set standards of practice for the unit.)
- Demonstrates ability to engage in quality assurance (QA) monitoring.
(Examples: Is active on unit-based QA committee; is knowledgeable about nursing department QA program; can state desired outcome measures for patient population served on the unit.)
- Demonstrates expert conflict resolution skills.
(Examples: Rarely requests/needs intervention by managers to solve conflicts; manages intra- and inter-departmental conflicts in a constructive way; has acquired formal skills in conflict management via continuing education.)
- Demonstrates expert negotiation skills.
(Examples: Is able to negotiate requests for scheduling with peers; is able to negotiate with patients in the setting of patient goals; has acquired negotiation techniques in formal continuing education programs; is able to identify situation where negotiation is an alternative to win-lose situations.)
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Table 2 – Questions Awaiting the Right Researchers |
- Does shared governance ward off union activity?
- Is there any association between shared governance and improvement in patient outcomes?
- Can nurses’ perceptions of control and power in shared governance organizations be correlated with acquisition and control of scarce organizational resources? Do their perceptions of their power correlate with the perceptions of other organizational members?
- Are there certain shared governance implementation designs that produce consistent outcomes in similar and different organizational environments?
- What theoretical models and conceptual frameworks should guide the investigation of shared governance?
- Is shared governance different when other professionals beyond nurses are involved?
- Is care more cost-effective in environments where nurses participate in shared governance?
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