MULTI-AGENCY COLLABORATION IN LOCAL GOVERNANCE: PARTNERSHIP OR PRAGMATISM? AN EXPLORATORY CASE STUDY JACINTA MARY CUNNEEN BA Public Administration, MA, MA (Sociology) Doctor of Philosophy UNIVERSITY OF LIMERICK Supervisor Dr. Bríd Quinn Submitted to the University of Limerick 2012 Table of Contents Abstract........................................................................................................................i Declaration..................................................................................................................ii Acknowledgements....................................................................................................iii List of Tables ............................................................................................................. iv Chapter 1 Background to the Study......................................................................... 1 Introduction .............................................................................................................. 1 The Purpose of the Study ......................................................................................... 1 Scope of the Research and Contribution to Knowledge........................................... 7 Timescale.................................................................................................................. 9 Outline of the Thesis ................................................................................................ 9 Conclusion.............................................................................................................. 11 Chapter 2 The Paradigm Shift: Government to Governance.............................. 12 Introduction ............................................................................................................ 12 The State................................................................................................................. 13 Governance............................................................................................................. 27 Structural/Institutional Change............................................................................... 30 Process Change....................................................................................................... 34 Innovative and Sustainable Services ...................................................................... 38 Conclusion.............................................................................................................. 40 The Evolving Governance Paradigm in Ireland: The National Perspective .......... 41 The Evolving Governance Paradigm in Ireland: The Local Perspective ............... 43 Conclusion.............................................................................................................. 46 Chapter 3 Multi-Agency Partnership as a Governance Mechanism................... 48 Introduction ............................................................................................................ 48 Towards a Definition of Partnership ...................................................................... 48 Rationale for Multi-Agency Partnership ................................................................ 51 Benefits of Multi-Agency Partnership (Collaborative Advantage)........................ 52 Barriers to Multi-Agency Partnership .................................................................... 54 Determinants of Successful Partnership................................................................. 55 Multi-Agency Partnership: The Irish Context........................................................ 69 Multi-Agency Partnership in Local Government in Ireland................................... 72 Perceptions of Partnership Governance.................................................................. 73 Issues in Multi-Agency Partnership in the Irish Context ....................................... 74 Conclusion.............................................................................................................. 77 Chapter 4 Methodology ...........................................................................................79 Introduction ............................................................................................................79 The Research Design..............................................................................................82 Epistemological Stance...........................................................................................83 Operationalising the Key Concepts ........................................................................86 Research Questions.................................................................................................87 Hypothesis 1: Governance......................................................................................88 Hypothesis 2: Public Policy Implementation and Service Delivery.......................88 The Role of the Evaluator.....................................................................................102 Conclusion............................................................................................................107 Chapter 5 Case Study ............................................................................................108 Introduction ..........................................................................................................108 The Case: The Limerick City Community Safety Partnership.............................108 Aims of the Partnership ........................................................................................109 Limerick City Council and Community Safety Policy.........................................110 The Partnership, National Policy and Community Safety....................................110 Limerick City Council..........................................................................................110 An Garda Síochána...............................................................................................111 The Health Service Executive ..............................................................................111 Other Key Associated Agencies...........................................................................112 Significance of the Partnership as a Case Study...................................................112 Development of the Limerick City Community Coordinator Scheme.................115 Elaborating the Critical Elements of the Research Design...................................119 Case Study Research Methods: Phase One ..........................................................120 The Outcome from Phase One of the Case Study ................................................126 Case Study Research Methods: Phase Two..........................................................126 The Outcome from Phase Two of the Research...................................................133 The Case Study Research Methods: Phase Three ................................................134 The Outcome from Phase Three of the Research.................................................138 Limitations of the Research Design......................................................................139 Conclusion............................................................................................................145 Chapter 6 Research Findings................................................................................147 Introduction ..........................................................................................................147 Hypothesis 1: Governance....................................................................................147 Hypothesis 2: Public Policy Implementation and Service Delivery.....................147 Findings for Hypothesis 1: Governance ...............................................................148 Findings from Monitoring the Partnership 2006-2010.........................................148 Findings for Hypothesis 2: Public Policy Implementation and Service Delivery 157 Findings from Monitoring and Evaluating the Scheme 2006–2010 .................... 157 Conclusion............................................................................................................ 203 Chapter 7 Discussion of Findings ........................................................................ 205 Introduction .......................................................................................................... 205 Hypothesis 1: Governance.................................................................................... 206 Hypothesis 2: Policy Implementation and Service Delivery................................ 207 Structural/Institutional Change............................................................................. 207 Process Change..................................................................................................... 212 Innovative and Sustainable Practices ................................................................... 222 Hypothesis 2: Public Policy Implementation and Service Delivery .................... 228 Monitoring the Scheme: Operational Management 2006–2010 .......................... 229 Outcomes and Impact of the Scheme 2006–2010 ................................................ 237 Conclusion............................................................................................................ 245 Chapter 8 Summary and Conclusions ...............................................................