Which scholars explained the roles of the public and private sectors by comparing it to maneuvering a boat?

E.S Savas explained the roles of the public and private sectors by comparing it to maneuvering a boat. In his quotation he stated ‘the job of the government is to sheer not to row the boats’, which means the work of the government is to provide services not just formally doing its job.  

The government is not good at delivering services to its citizens in every sector. While favoring the private sector he explained that, the private sector must to lead the entire service sector such as health, education and etc for better delivering of services.

well considering i can't see the graph, it's probably prices

the article must be ratified by three-fourths (38) of states within a proscribed deadline.

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