Community Studies Lecture 8: Community-Based Partnerships

Community studies lecture 8: Community-based partnerships

In a recent OECD report Turok What is partnership? claimed that: Partnership has been as adopted by Ireland’s local partnerships enjoy a many institutions in Ireland as a way of reputation for innovation in local doing things. governance and energetic action on The definition used in a recent report unemployment and poverty is: Partnerships are successful, and they a formal organisational framework for are also a good example of the policy making and implementation, integrative or consensus approach to which mobilises a coalition of interests social action outlined in he previous and the commitment of a range of lecture. partners, around a common agenda and multidimensional action programme, to So – where did they come from? combat social exclusion and promote social inclusion Walsh et al (1996: 11) point out that the development of local partnership There are a number of types of structures in Ireland is the consequence partnership in Ireland. The PPF, at one of a number of trends: level, is defined as a partnership document; there are also local  an extended concept of social development partnerships; urban partnership (social corporatism) renewal partnerships and County and  a stronger local dimension in City Enterprise Boards. In all there are public policy over 100 local partnership bodies in Ireland and perhaps a further 200  new directions in policies to tackle associated bodies. social exclusion According to a recent OECD report,  an enhanced role of the community local partnerships have, since 1992: and voluntary sector

 helped over 13,000 long-term The Sligo partnership unemployed people set up Sligo LEADER Partnership is one of businesses 38 partnerships in Ireland located  helped 23,500 unemployed people within ‘designated areas of find jobs disadvantage’ – 18 of which are ‘rural’. It was established in 1996  assisted 17,000 with funding for under the EU funded Local education Development Programme, itself part of  established 1,400 community, Operational Programme for Local Urban and Rural Development (1995- environmental and infrastructural 99). projects Partnerships have been seen to be The aim of the is programme is: successful in Ireland, and have been to bring together the community, state held up, particularly by the EU and the agencies and social partners in a local OECD is an example to other area, to explore and develop ways of countries, for example in Eastern and tackling the problems related to Central Europe. unemployment, low income and associated forms of disadvantage

Community studies lecture 8: Community-based partnerships

Sequence of events 1990 state partners NESC report Strategies for the 90s government bodies such as NWHB, FÁS, VEC, Sligo Co. Council 1991 LEADER programme established social partners early 1990s employers, unions & unemployed Development of Community Development Fund (Programme) Key approaches 1991  piloting 12 Partnerships established around the  coordination and brokerage country, bringing together community, state and social partners to pilot the  policy development LDP, in an effort to find new ways of tackling unemployment Areas of operation 1994  enterprise creation and Government and EU agreed to extend development LDP as part of Operational Programme  services to the unemployed for Local Urban and Rural  education and training Development  community development 1994-96 process of consultation around the  childcare support country to set up partnerships Partnership issues 1999-2000 funding under OP expires – further The partnership process has been funding announced in 2000 budget popular amongst those concerned with social development, but has had its The Sligo LEADER partnership is critics. Issues that need to be taken into funded through an EU Global Grant consideration in relation to the administered through ADM (Area partnership approach are discussed Development Management Ltd) below: Who are the partners? Commitment & understanding In all there are 29 directors The key to successful working representing social partners, state partnerships. Commitment must be agencies and community organisations. given by leaders to this strategy for The organisation operates under the social development, together with principles of partnership and collective understanding and acceptance of both decision-making aspects of partnership, the concept level and the practical level. community partners Partnerships require all levels of gov- representatives of local community & ernment, business and community to voluntary groups and organisations work together, not only towards who represent, work with or on behalf sustainable development but also to of those affected by unemployment shape policy and programmes to be and/or other forms of social more relevant to the people for whom disadvantage they are intended. If the political will is

Community studies lecture 8: Community-based partnerships absent, the partnership will not work to ernment departments, public servants its full potential. on the ground and also local community and business people who will be involved in implementation. Attitudinal change Failure to establish clarity of purpose It is necessary for attitudes to change at the outset will cause problems if, at from ‘traditional’ ways of thinking and a later date, people begin to interpret working. Local people become the the policy and guidelines to suit subjects rather than the objects of themselves rather than to suit the development. Political leaders, public programme and policy objectives. servants, business, and the community and voluntary sectors must look The ethos upon which the policy is towards the potential of working based and what it intends to achieve together, through dialogue and must be explicit and clear, while cooperation, in order to face the maintaining a degree of flexibility. The challenges that exist. information offered should be as concise and easily accessible as Unless attitudes change and actors are possible to all individuals. Explicit willing to learn from each other and guidelines need to be promulgated at realise that each sector has something all levels. to offer to the process, then commitment to the partnership process Impact on existing resources & will be half-hearted and ultimately power structures affect its success. Funding for area-based partnerships, while considerable, is small in This issue remains a challenge and has comparison to other more traditionally given rise to tensions between elected based programs (such as FÁS). politicians and community activists, Partnerships do provide a way to between statutory agencies and local leverage resources held by other Government. Each sector comes to the departments and agencies. partnership table with its own agenda and it is necessary to work through this Evaluation of the initial partnership phase so that the outcome of pilot programme in Ireland suggested sustainable development is achieved that most community resources were through negotiation and consensus. still controlled by the main delivery agencies. There was a lack of strategic Clear policy direction & program commitment to serious reorganisation information and redirection of statutory agency It is difficult to implement a policy if provision. understanding and knowledge is limited. The policy must be clear and This will not happen without a unambiguous, outlining what is rethinking of procedures in relation to intended to be achieved in the long and resource allocation at a national policy short term and how this should be level. This point was reiterated in the done. This requires clear program recent (2000) OECD report. guidelines and, if necessary, training, The lack of flexibility in the budgets of in order for successful implementation agencies determines to a large extent, at a local level. This information the level of innovative project work should be available to political leaders that can be undertaken at a local at all levels of Government, gov- partnership level. In Ireland most

Community studies lecture 8: Community-based partnerships projects undertaken by the pilot area- you devolve control over provision of based companies were funded from local services to local communities, the within their own budgets, rather than more difficult it may be to coordinate by changes in provision by the main provision at a broader level: leading to delivery agencies. It is clear that local new forms of wasteful duplication. partnerships still have a way to go before they impact on centralised Community ownership power structures and processes. For community development policy and - particularly - partnerships to be It is not only centralised power effective, local people must be structures that may be threatened by involved and consulted right from the partnership approaches. They also outset: they must have ownership of provide a challenge to existing local the process. The local community has power structures, particularly where the local knowledge and expertise and forms of clientilist politics may be in must live with the policies once operation. In Ireland elected local implemented. The community must not councillors have been specifically only be consulted but also encouraged excluded from the boards of to actively participate in the partnership companies. This is, partnership structures. unsurprisingly, highly contentious: for example those involved in the Tallaght Local communities are often in the best Partnership said that they found this position to resolve conflicts, determine undemocratic. priorities and target programs. In addition to participation, they should Integration & co-ordination be represented on local partnership There frequent calls for greater co- structures. ordination and integration of It is vital that not just business interests government programmes – not least in be represented, but those of other the area of children’s services. As groups: with active encouragement and governments change they each try to facilitation where necessary. In Ireland stamp their own identity and policies there is evidence that women have on top of, rather than in place of, what been heavily underrepresented within already exists. many of the partnership structures. The US General Accounting Office If people are excluded from the identified over 800 Federal programs process, the initiative will not have the that applied in rural areas over the full commitment of all the local 1983-1992 period. In Ireland, the people. There are always individuals number of programmes for local who will not get involved - however, development are too numerous to the opportunity must be there for all to count and structures are still being participate if they wish. established on top of each other. A partnership approach can help Capacity building people to make some sense of this There are those that may be multiplicity of systems and provide a marginalised or excluded from active response to the constant call for participation within communities: in integration and coordination of particular young people, women, services (eg a ‘one-stop-shop’). But, it people with disabilities, Travellers, can also result in relinquishing of those from identifiable minority groups central policy goals. Also, the more or the unemployed. Such individuals

Community studies lecture 8: Community-based partnerships and groups are typically excluded from team work, self-reliance, participation in traditional organisational experience, a shared development processes. vision, entrepreneurial spirit, positive Partnership is about maximising local attitudes and actions. Partnership participation in community programs have the capacity to identify development. It is unfair to expect and develop leaders from outside those historically excluded from the conventional social groups (eg development process, especially at a amongst women and young people). political level, to automatically have However, there is evidence that the skills, knowledge and confidence to traditional hierarchical and patriarchal operate on an equal footing with patterns may be difficult to alter. Government representatives and public Resourcing servants. Understanding partnership involves Most individuals would find this a understanding power; the ability of daunting task, especially the more different interests to achieve what they disadvantaged groups that should be want. Power will depend on who has particularly encouraged to get the information and who controls the involved. There may be problems with decision-making, especially money. ‘weaker regions’, areas that lack the The issues listed above point to a critical mass of individuals with necessary practical element of requisite skills, experiences and con- partnership: adequate resourcing. This tacts. There is evidence that these sorts term does not only mean the funding of regions have lost out under existing that is given to any one group to arrangements. implement its strategic plan - it also As Varley and Ruddy suggest, after means resourcing at a national level in study of the FOCUS group in terms of staffing and support Connemara: structures; information resourcing those community groups that make it to through newsletters, booklets, and the table and can hope to gain most seminars; resourcing of capacity from partnerships would appear likely building; and education and training to be those that have some track record resourcing; provided to all sectors of achievement already or that are involved in partnership at both a prepared to accept the disciplines national and regional level. To bring imposed by demands for accelerated about attitudinal change and capacity building and for delivering commitment, all sectors, both public quickly on potential. and private must be given the Individuals and groups may thus need opportunity to equip themselves to to be resourced in terms of meet the challenge.. information, training and support so they build their capacity to participate Long term in partnership structures and ultimately The phrase 'long term' refers to various in their own development. Such elements of local development policy: capacity building or animation should long-term planning be included as a key action in any effective community development development process. means planning for a period of 5-10 Crucial elements in this process are years, incorporating both long-term leadership and management skills, and more immediate objectives. including skills and attributes related to

Community studies lecture 8: Community-based partnerships long-term funding communities on the ground. In this funding for the long-term is vital if way, transparency can be maintained; sustainable development and self- policies be better moulded to the needs reliance is going to be achieved. There of the people; individuals feel more are no ‘quick-fix’ solutions to the ownership and support for the policy problems that face disadvantaged and programs; and communication areas. Local partnerships that attempt barriers between government to address these issues must at least be representatives and the electorate be given the security that the work they reduced. are doing will not end after two years when they have only begun to see results. Governments potentially change at least every four years and, in an effort to be seen to be doing something different, may sometimes alter the Perry Share funding and structural arrangements. November 2000 Further, the partnership process is a long and arduous task - results are not going to be seen overnight. This also goes against the rhythms of political life: governments want to be able to show tangible results when election time comes again. It needs to be recognised that the process engaged at a local and national level, of communication, co-operation and negotiation, is as important as the outcomes Partnerships need time to perform; and while ongoing evaluation is crucial, the criteria and performance indicators need to reflect the nature of the processes.

Mechanisms for feedback One of the great values of local partnerships, is the amount of knowledge that is generated by dialogue and projects. It is vital that this information and knowledge is not wasted, but is brought to the attention of policy makers in order to influence future policy and developments. Communication must be a two-way channel or in the form of a feedback loop whereby relevant information is fed from the ground to policy level and in turn information back to the