Government as orchestrator: Ecosystem transformation at scale and speed

Abstract

Grand challenges are ecosystem challenges: success depends on aligning a multilateral set of public and private sector actors whose interdependent contributions determine whether a mission is achieved. This study examines how government can orchestrate ecosystem alignment by leveraging distinctive capabilities to deliver solutions at scale with urgency. Using an ecosystem-as-structure analytic approach, it draws on Operation Warp Speed, the U.S. government COVID-19 vaccine initiative, to surface mechanisms and dynamics of ecosystem transformation. The analysis introducescoordinative fiatas a mode of coordination distinct from hierarchy, coercion, or market signals; considers the choices involved in designing a purpose-built orchestrating entity; links orchestration of the external ecosystem to reconfiguration of the orchestrator's own internal ecosystem; and identifiesorchestration capacityas a key constraint on ecosystem strategy. Grand challenges are ecosystem challenges: success depends on aligning a multilateral set of public and private sector actors whose interdependent contributions determine whether a mission is achieved. The Operation Warp Speed COVID-19 vaccine initiative demonstrates how government can drive alignment at speed and scale to address such challenges. The analysis highlights four lessons for leaders: (i) the use ofcoordinative fiatto align independent actors without relying on hierarchy or coercion; (ii) thedesignof orchestrating entities; (iii) linking transformation of external ecosystems to the transformation ofinternalecosystems; and (iv) strategizingorchestration capacityas a key constraint on scope. While the discussion is anchored in the public sector, it holds clear implications for private-sector initiatives as well.