Public–Private Partnerships in the Preservation of Presidential Records

• Date: 01 February 2021
• Published date: 01 February 2021
• DOI: 10.1177/0095399720941306
• Subject Matter: Articles

https://doi.org/10.1177/0095399720941306

Administration & Society

2021, Vol. 53(2) 167 –192

© The Author(s) 2020

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DOI: 10.1177/0095399720941306

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Article

Public–Private

Partnerships in the

Preservation of

Presidential Records

Daniel Boden1 and Patrick C. Exmeyer2

Abstract

The National Archives and Records Administration, in partnership with

private support foundations, administers 13 individual presidential libraries

comprising the Presidential Library System. These privately constructed,

publicly supported archives not only preserve official presidential records

but through their museum displays offer visitors a glimpse into the life and

times of specific presidents. Utilizing legislation, archival documents, and

elite interviews to characterize governance and administration structures

of these relationships, this study outlines the nature of current public–

private partnerships within the Presidential Library System, as well as the

potential departure from existing frameworks for future partnerships absent

formalized guidance procedures.

Keywords

public–private partnerships, collaborative governance, administrative history

Introduction

Every former U.S. president has at least one museum, monument, or memo-

rial honoring his memory. Importantly, sites dedicated to the memory of a

former president have been created and preserved by both public and private

1The University of Toledo, OH, USA

2The University of Louisiana Monroe, USA

Corresponding Author:

Daniel Boden, University of Toledo, 3067 Snyder Memorial, 2801W. Bancroft Street, Toledo,

OH 43606, USA.

Email: daniel.boden@utoledo.edu

941306AASXXX10.1177/0095399720941306Administration & SocietyBoden and Exmeyer

research-article2020

168 Administration & Society 53(2)

actors. While some presidential tribute sites are overseen solely by federal,

state, or local government agencies, many are administered through public–

private partnerships (PPPs) between governmental and nongovernmental

organizations (Clotworthy, 2008). In the United States, the preservation of

cultural and historical sites is often seen as beyond the proper scope of gov-

ernment action. This approach contrasts to other nations, as nongovernmental

organizations operate most historical sites in the United States, thus under-

scoring the significant cultural roles which nongovernmental organizations

play in preserving history (Bratich et al., 2003). Starting in the late 19th and

continuing into the 20th century, the federal government became more

involved in creating sites of collective memory, many of which are main-

tained cooperatively with nongovernmental partners. Despite the historical

legacy of these arrangements, questions concerning the nature, extent, and

ethical dynamics of such partnerships remain largely unanswered.

Currently, the National Archives and Records Administration (NARA)1

administers 13 presidential libraries (see Table 1) in supportive partnerships

with private foundations created by former presidents,2 each reflecting a dis-

tinct relationship (Cochrane, 1998). The PPPs between NARA and its presi-

dential foundation partners in the Presidential Library System (PLS) are

some of the oldest continuing PPPs in the U.S. federal government (NARA,

2009b). Once a presidential library is constructed and turned over to the fed-

eral government, existing partnerships need not continue. However, most

presidential support foundations have maintained close relationships with

NARA (Fawcett, 2006), as NARA recognizes activities of PPPs as integral to

the success of each presidential library (NARA, 2009a).

Critically, former presidents are not required to construct a facility to

house their records.3 By choosing to do so, however, former presidents obli-

gate NARA to cooperate with their support foundation regardless of the

nature and structure of the cooperative relationship. The variation of relation-

ships stems from the fact that NARA must react to the mission and interests

of the individual foundations. Although these partnerships are considered

vital for the continued success of the PLS, concerns remain that such partner-

ships “. . . are little understood and are largely ignored—or avoided—in writ-

ings about presidential libraries” (Fawcett, 2006; Hackman, 2006, p. 8).

Without sufficient understanding of relationship dynamics between NARA

and presidential support foundations, little information exists to understand

how future PPPs within the PLS may manifest.

Examining PPPs in the PLS affords the opportunity to carefully analyze

such voluntary partnerships extending beyond the initial mandated period.

This study explores these distinct relationships by addressing lingering ques-

tions concerning existing PPPs within the PLS. First, the study seeks to