Conceptual Issues in Inter-Agency Collaboration

Inter-agency collaboration – or partnership as it now commonly termed – is central to New Labour's agenda, but the general support for a partnership approach conceals disputes about definitions and approaches. This article begins by examining the shift to more complex and ambitious partnerships in health, social care and regeneration, which require new modes of governance. The three main modes – market, hierarchy and network – are briefly described and contrasted, and located within the recent history of public service development. It is argued that they are best seen as overlain and co-existing, resulting in a hybrid mode of governance which is characterised by tension and contradiction. The article goes on to discuss the issues this raises for real partnerships in trying to understand the collaborative imperative and the barriers to its effective achievement. Although the network mode has its attractions, there are complex issues of membership, management and culture which need to be addressed. It is concluded that hierarchy, markets and networks will co-exist better where each acknowledges its own limits and the strengths of others.     

The Public Governance of Collaborative Spaces: Discourse, Design and Democracy

This article investigates the relationship between democratic practices and the design of institutions operating in collaborative spaces, those policy and spatial domains where multiple public, private and non-profit actors join together to shape, make and implement public policy. Partnerships are organizational manifestations of institutional design for collaboration. They offer flexibility and stakeholder engagement, but are loosely coupled to representative democratic systems. A multi-method research strategy examines the impact of discourses of managerialism, consociationalism and participation on the design of partnerships in two UK localities. Analysing objective measures of democratic performance in partnerships and interpreting the discursive transition from earlier practices in representative democratic institutions we find that institutional designs for collaboration reflect different settlements between discourses, captured in the distinction between club, agency and polity-forming partnership types. The results show how the governance of collaborative spaces is mediated through a dominant set of discursively defined institutional practices.     

PUBLIC–NONPROFIT PARTNERSHIP PERFORMANCE IN A DISASTER CONTEXT: THE CASE OF HAITI

During disasters, partnerships between public and nonprofit organizations are vital to provide fast relief to affected communities. In this article, we develop a process model to support a performance evaluation of such intersectoral partnerships. The model includes input factors, organizational structures, outputs and the long‐term outcomes of public–nonprofit partnerships. These factors derive from theory and a systematic literature review of emergency, public, nonprofit, and network research. To adapt the model to a disaster context, we conducted a case study that examines public and nonprofit organizations that partnered during the 2010 Haiti earthquake. The case study results show that communication, trust, and experience are the most important partnership inputs; the most prevalent governance structure of public–nonprofit partnerships is a lead organization network. Time and quality measures should be considered to assess partnership outputs, and community, network, and organizational actor perspectives must be taken into account when evaluating partnership outcomes.     

PERFORMING GOVERNANCE: A PARTNERSHIP BOARD DRAMATURGY

This paper explores the governance of complex public sector partnerships through a detailed case study of a Joint Commissioning Partnership Board (JCPB) in the South East of England. It argues that a theoretical and empirical focus on the instrumental roles of boards has resulted in an under‐appreciation of their symbolic purposes, especially in the context of the governance of inter‐organizational relationships. The paper considers the performative dimension of partnership governance, highlighting the role of the symbolic in institutional enactment. Following a brief overview of governance in public sector partnerships, the case study site for the empirical research is introduced. The instrumental and symbolic roles of management boards are considered from a new institutionalist perspective and a dramaturgical analysis of institutional enactment undertaken to explore interplays of the symbolic and instrumental in strategy formation. Some implications for our understanding of the symbolic in partnership governance are discussed.     

An Empirical Examination of Partnership Frequency and Design within International Nongovernmental Organizations (INGOs)

Despite the increase in public and nonprofit partnerships, there is little understanding of the organizational factors associated with partnership frequency and design. Through negative binomial and multinomial logistic regressions, this study analyzes data from interviews with 149 leaders of international nongovernmental organizations (INGOs), to first examine partnership frequency, and to then examine the formation of different partnerships structures: principal-based partnerships, agent-based partnerships, and shared power-based partnerships. The findings suggest that improving results and increasing funding are the primary goals of partnership adoption, and that the most management intensive forms of partnerships are only adopted when INGOs have sufficient organizational capacity.     

Governing International Migration through Partnership

Partnerships in international migration governance promise a cooperative approach between countries of origin, transit and destination. The literature has generally conceptualised migration partnerships as a policy instrument. This article suggests that understanding the broader transformations taking place in international migration governance under the rubric of partnership demands a novel analysis. Using a governmentality perspective, I interpret migration partnerships as an instance of neoliberal rule. Focusing on the convergence of international migration governance between the international realm and the European and North American region in particular, I demonstrate that the partnership approach frames international migration governance so as to enlist governments, migrants and particular experts in governing international migration, and invokes specific technologies of neoliberal governing which contribute to producing responsible, self-disciplined partners who can be trusted to govern themselves according to the norms established by the partnership discourse. The partnership approach is not a mere policy instrument; it goes beyond the European region and has become an essential element of the governance of international migration.     

The governance of urban regeneration: a critique of the 'governing without government' thesis

This paper offers a critique of the concept of governance as networks. Using the complementary concept of regime governance, it argues that networks are not the primary mode of governance in the politics of urban regeneration in the UK. Drawing on primary and secondary material, it is argued that Central Government is becoming more influential in the local policy arena. In the 'mix' of market, hierarchy and network, hierarchy is more pervasive than network. It is therefore argued that partnerships should be treated as a distinct mode of governance. These conclusions demonstrate that despite the fashion for copying urban policies from the USA, local politics in the UK remain very different. Ironically, the transfer of policies developed in the USA has tended to entrench divergent practices and outcomes. The UK does not, therefore, appear to be moving toward the US model of regime politics. It is concluded that the partnership and network/regime models of governance should be subjected to rigorous comparative studies.     

Exploring Collaboration,Its Antecedents,and Perceived Outcomes in Service Partnerships of Community-Based Organizations in South Florida

This article examines the temporal sequence of inter-organizational collaboration by investigating what factors contribute to collaboration and which collaboration practices influence collaborative outcomes in service partnerships formed by community-based organizations (CBOs) in South Florida. The article uses structural equation modeling to test the service partnership model. Findings indicate that development of service partnerships are mostly affected by environmental factors related to solving social problems (p < 0.001) which accounts for 37% of variance in inter-organizational collaboration. In addition, cognitive and resource reciprocity, indicators used to measure inter-organizational collaboration, had statistically significant influence (p < 0.001) on perceived collaboration outcomes. These findings shed light on how CBOs transfer theirs social mission in collaborative actions to alleviate social problems. Implications of this study can help service partnerships in identifying best practices and areas for improvement which are needed to build capacity at the inter-organizational level.     

Being Strategic in Partnership – Interpreting Local Knowledge of Modern Local Government

Broad and international literature exists on networked governance which has both described and informed recent transformations in local government. Reforms in the UK have led to the development of strategic partnerships to join up services and solve wicked issues. In Scotland, these are referred to as Community Planning Partnerships. Evidence from numerous studies has highlighted the partial nature of this transformation, particularly around community engagement, with some of the pioneers of this work now questioning earlier assumptions. This article presents an interpretive policy analysis of strategic partnership in Scotland to add three themes to this literature. First, to demonstrate the historical contingency of ‘joined-up government’; second, to explore the practices and meanings used by policy actors to understand ‘strategic’ and ‘partnerships’. Finally, the article problematises strategic partnership working, suggesting that in and of itself it creates effective barriers to community empowerment and even engagement.     

Progrssive Regrimes, Partnerships and the Involvement of Local Communities: A Framework for Evaluation

This paper examines the nature of community involvement in urban politics as it is played out through regeneration partnerships. At a theoretical level, it explores the potential for a community dimension to local governance, that is, a strategic influence for communities within local power structures. It is argued that the nature of involvement can be explicated by considering three concepts: power (as expressed by urban regime theory), participation and partnership. The paper explores these three broad themes and then focuses on the particular issues pertaining to community involvement in partnership working. Building on this frame-work, the paper develops a model – a 'wheel of involvement'– for analysing the effectiveness of community involvement in regeneration partnerships. This model enables the effectiveness of involvement to be 'quantified by the use of a simple questionnaire survey. It provides a tool for academic researchers and practitioners concerned with evaluating partnerships to begin to explore the quality and level of community involvement in the process of urban renewal. The results of an analysis of two regeneration partnerships are presented as an illustration of the efficacy of the evaluative technique.     

How do professionals perceive the governance of public–private partnerships? Evidence from Canada,the Netherlands and Denmark

In public–private partnerships (PPPs), the collaboration between public and private actors can be complicated. With partners coming from different institutional backgrounds and with different interests, governing these partnerships is important to ensure the projects' progress. There is, however, little knowledge about the perceptions of professionals regarding the governance of PPPs. This study aims to exlore professionals' viewpoints about governing PPPs, and to explain potential differences using four theoretical governance paradigms. Using Q methodology, the preferences of 119 public and private professionals in Canada, the Netherlands and Denmark are explored. Results show four different viewpoints regarding the governance of PPPs. Experience, country and the public–private distinction seem to influence these viewpoints. Knowledge of these differences can inform efforts to govern PPPs and contribute to more successful partnerships.     

Understanding Multi-Sectoral Regeneration Partnerships as a Form of Local Governance

'Partnership has become a central feature of a new model of local governance, both creating and reflecting changing relationships between the three spheres of the state, the 'market' and civil society'. As such, this article sets out to examine the essence of partnership as a form of local governance, located specifically within the context of community regeneration strategies. Drawing attention to the fact that there are many models of partnership, it will outline three conceptual lenses for analysing partnership arrangements - power, trust and democratic implications. It will conclude that a richer understanding of the process may gleaned by applying each lens to the different models of partnership that may exist.     

Collaborative Sociological Practice: the Case of Nine Urban Biotopes

This paper examines the socially engaged art project Nine Urban Biotopes (9UB), an international exchange between European and South African cultural organisations. Two artist residencies offer case studies of collaborative arts and research practice. The ways that these case studies are read as ‘failures’ and ‘successes’ illustrate the complexities of North-South collaborations. This project, the partnership that sustained it and the residencies that were central to it, exemplify, in modest ways, how public sociology can be realised in modest ways in a global context. This paper shows, with examples, that whilst partnership and collaboration are emphasised in institutional and policy discourse, in practice these arrangements are filled with tension and unequal power relations between partners. An evaluative methodology premised on sociological practice allows the tensions that are inherent in partnership and collaboration to be recognised and productively interrogated. It also allows us to reimagine what ‘success’ and ‘failure’ looks like in research partnerships by working with the antagonisms that are integral to collaboration.     

GOVERNING INFORMATION: A THREE DIMENSIONAL ANALYSIS OF ENVIRONMENTAL ASSESSMENT

This article examines the institutional, political and regulatory dimensions of environmental assessment (EA) processes. While EA is most often conceptualized as a regulatory instrument, this article contends that viewing EA in this narrow fashion obscures the broader implications and significance of EA as a distinct form of governance. When conceived as a mode of governance, EA varies considerably in terms of the key governance characteristics emphasized in this symposium. The empirical evidence rests upon three cases studies looking at very different multi‐level governance contexts: the Tamar Valley Pulp Mill in Australia, the Whites Point Quarry in Canada, and the Byströe Canal Project in the Ukraine. The case study analysis identifies large variations in the institutional, political and regulatory form that EAs take, indicating that approaches identifying EA as a form of ‘New Governance’ are overly simplistic. The analysis also points to the multi‐directional influence of different governance dimensions. The insights derived from the use of the three dimensional framework validate its value as an analytical tool.     

The Virtual Value Chain and E-Government Partnership: Non-Monetary Agreements in the IRS E-File Program

Abstract

Electronic government (e-government) models generally espouse the principle of partnership with the private sector. What is not always clear is what is meant by partnership, though, and how public organizations should organize and manage such relationships to support e-government initiatives. The paper relies on a conceptual framework of the virtual value chain to understand how a new form of collaboration emerged in the Internal Revenue Service (IRS) e-file program in 1999 and what dimensions helped to make it a success. As part of a larger, multi-nation study of public–private partnerships in e-government, this paper examines IRS e-file program, one of the largest, longest-standing (dating back to 1986), and most successful US e-government programs with tens of millions of users each year.

The IRS e-file program experienced dramatic changes in its long-standing partnership with the tax preparation and related software development industries in 1999 and 2000. It is possible, using the concept of the virtual value chain, to understand how the IRS rethought its relationship with its private-sector partners. A combination of conditions in the market place, in US society, within the IRS, and among the private-sector partners helped to make this new model of collaboration quite successful. The paper concludes by examining how the dimensions of partnership in the IRS e-file case and the concept of the virtual value chain might enable other public organizations to reconceptualize their e-government partnership arrangements with the private sector using a new model of collaboration.     

The politics of partnerships: a study of police and housing collaboration to tackle anti-social behaviour on Australian public housing estates

This paper draws on the findings from a research project on partnership arrangements between the police and housing departments on three Australian public housing estates to tackle problems associated with illicit drug activity and anti-social behaviour (ASB). The analysis focused on the setting up of the partnerships and the interactions that followed from these institutional arrangements. The assumption that informs the paper is that when studying partnerships there is a need for a more critically framed analysis. The temptation to posit "a successful model" of what partnership entails and then to judge practices in relation to this model is considerable, but it inevitably falls into the trap of constructing a narrative of partnership success or failure in terms of individual agency (that is, the degree of commitment from individuals). The analysis undertaken in this paper has therefore sought to fathom a more complex set of organizational processes. Rather than confine the discussion to issues of success and failure, the study foregrounds the subjective accounts of individuals who work within partnership and the constraints they encounter. The paper therefore makes explicit the cultural tensions within and across agencies, contestation as to the extent of the policy "problem," and the divergent perspectives on the appropriate modes of intervention.     

Management information bulletins and social services managers

Partnership and participation have co-evolved as key instruments of New Labour's agenda for the ‘modernisation’ and ‘democratic renewal‘ of British local government. It is often assumed that partnerships are more inclusive than bureaucratic or market-based approaches to policy-making and service delivery. This article argues that partnership working does not in itself deliver enhanced public participation; indeed, it may be particularly difficult to secure citizen involvement in a partnership context. The article explores the relationship between partnership and participation in a wide range of local initiatives, exemplifying difficulties as well as synergies. The article concludes that public participation needs to be designed-in to local partnerships, not assumed-in. A series of principles for the design of more participative local partnerships is proposed.     

New Unionism? Teacher Unions,Social Partnership and School Governance in England and Wales

Abstract

In the post-war period teacher unions in England and Wales have experienced considerable turbulence regarding their participation in the structures of system governance. Participation in governance had traditionally been conducted through the processes of collective bargaining until the abolition of national negotiating rights in 1987. After an extended period of exclusion from governance networks this situation was reversed in 2003 following the establishment of a ‘social partnership’ between employers and education unions. This article draws on data from the Economic and Social Research Council funded project ‘Workforce remodelling, teacher trade unions and school-based industrial relations’ to assess the significance of the social partnership for system governance. It combines empirical data from England and Wales with research frameworks drawing on teacher union research in the USA to contrast social partnership with collective bargaining and to assess whether social partnership working represented a genuinely new approach to governance and, in turn, a form of ‘new unionism’.     

UNDERSTANDING LOCAL GOVERNANCE: INSTITUTIONAL FORMS OF COLLABORATION

The article discusses institutional forms of governance, understanding governance as hybrid forms of collaboration, involving government, market actors and/or civil society actors. By utilizing data from a study made of three Norwegian cities, six collaborative efforts are presented, and discussed in relation to analytical characteristics derived from both network theory and organizational theory. This analysis illustrates that these collaboration efforts can, on the one hand, be understood as something located between networks and organizations. On the other hand, one may argue they belong to none of the two theoretical categories, implying the need for new theories regarding collaboration. These observations are followed by some theoretical reflections about how democratic governments can influence collaborations, and ensure that the common will can actually become real.     

Public–Private Partnerships in Urban Regeneration: Democratic Legitimacy and its Relation with Performance and Trust

Public-private entities set up specifically to manage and implement urban regeneration projects have been observed across several nations. In these urban regeneration partnerships, public and private partners often work together to improve languishing neighbourhoods. One of the core ideas driving the establishment of these partnerships is that, in order to more effectively tackle the challenging regeneration process, these organisations should function at arm's length from the political institutions that oversee them.

A specific question concerning these partnerships is how representative mechanisms work and how the partnership process is linked to traditional representative bodies or in other ways is connected to principles of democratic legitimacy. This paper explores the so-called democratic legitimacy of urban regeneration companies, as a form of public–private partnership, in more detail. It makes a distinction between three types of democratic legitimacy: accountability, voice, and due deliberation. Using material from a survey among managers of urban regeneration companies (URCs) in The Netherlands, this paper examines the impact of these three forms of democratic legitimacy on outcomes and trust of these URCs.

The results show a fairly strong correlation between some criteria of democratic legitimacy, especially due deliberation on the one hand and performance and trust on the other hand.