CO-GOVERNANCE

WITHIN NETWORKS
AND THE
NON-PROFIT
FOR-PROFIT DIVIDE
A cross-cultural perspective on
the evolution of domiciliary
elderly care
Ingo Bode
Ingo Bode
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Abstract
Throughout the western world, (social) care
systems have been affected by a quasi-
market agenda. Simultaneously, the literature
on governance suggests tendencies towards
more networking and a stronger involvement
of third-sector organizations have (again)
changed the rules of the game. Looking at
elderly care in three different European
jurisdictions (Germany, France, England) this
article argues that inter-agency collaboration
as such is nothing new in this eld so that
viewing (co-)governance as a substitute for
hierarchical government or market govern-
ance does not make sense here. Rather, there
is a new non-prot for-prot divide chang-
ing the architecture of those networks that
had emerged in the pre-market era on the
basis of a domain consensus between
welfare bureaucracies, professionals and
civic actors. Nowadays, there is cross-
country disorganization of this consensus
irrespective of enduring national traditions
of third-sector involvement. The result is
nervous network governance fraught with
volatility and tensions. Co-governance per-
sists but is less consistent than in previous
times.
Key words
Comparative policy analysis, home care
services, network governance, non-profit
organization studies, welfare markets
Vol. 8 Issue 4 2006 551 566
Public Management Review ISSN 1471-9037 print/ISSN 1471-9045 online
2006 Taylor & Francis
http://www.tandf.co.uk/journals
DOI: 10.1080/14719030601022932
INTRODUCTION
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NETWORKS AND CO-GOVERNANCE IN THE SOCIAL (CARE) SECTOR
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552 Public Management Review
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Bode: Co-governance within networks and the non-prot for-prot divide 553
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554 Public Management Review
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DOMICILIARY ELDERLY CARE IN THREE COUNTRIES, PAST AND PRESENT
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Bode: Co-governance within networks and the non-prot for-prot divide 555
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:olc :csc:vcc l:gc ucsu:c oi uto:ou, i: :u::i:g t|ci: sc:viccs louc c:c
:ovisio: ws i: i:ou cou:c|c:sivc t t|c tiuc Yct t|c:c ws clc: iuulsc
tow:cs |:occ: covc:gc oi :cccs io: |ouc c:c l, t|c c:c oi t|c 1-0s, t|c
cc:t:cs wc:c c:titlcc to ccitio:l :csou:ccs ic out oi t|c u|lic |clt| c:c i:su::cc
|ucgct I|is ws w|c: t|c coui: co:sc:sus i: Gc:u: |ouc c:c :ctwo:|s :cc|cc
its c|
l: 1--o, lo:gtc:u c:c i:su::cc sc|cuc ws cst|lis|cc, togct|c: wit| oo.
o.|. ..o!o.c io: couicili:, clcc:l, c:c I|c cui:ist:tivc |ocics oi t|c i:su::cc
;w|ic| :c i:ccc:cc:t su|u:its oi t|c qusiu|lic |clt| c:c iu:cs, co:cuct t|c
sscssuc:t oi cliu:ts :c :c suoscc to :ovicc t|c lttc: wit| |sic i:io:utio: o:
c:c icilitics ;lt|oug| t|c, ::cl, u:gc to co so, lc:cci:ics u, co:tct
uu:icil cvicc cc:t:c, |ut i: u:, lccs t|c:c is :o sou:c s,stcu oi cou:sclli:g
Dsc:s c: ot io: cs| otio: t|:oug| w|ic| t|c, :cccivc uo:t|l, llow:cc, uscc
to :ccouc:sc :ivtc :ovicc:s oi c:c t|c:wisc t|c, :c c:titlcc, t|:oug| |i:c oi
vouc|c:, to c|gc oi sc:viccs t|c :ovicc: oi w|ic| t|c, c|oosc i:ou ::gc oi
gc:cics wit| ciiic:c:t l|cls ;io::ot, iit||scc, :o::ot, :c :ovicc:s
couctc io: clic:ts w|o :c :ciu|u:scc |, t|c i:su::cc io: liuitcc :uu|c: oi
sc:vicc |ou:s :c w|o u, :ivtcl, u:c|sc ccitio:l sc:viccs l: t|c :st ,c:s itc:
t|c lo:gtc:u c:c i:su::cc ws cst|lis|cc, couicili:, c:c :ovisio: ws u:|ccl,
cx:ci:g lowcvc:, t|c i:su::ccs |ucgcts |vc :ccc:tl, |cc: ccc:csi:g s
ucsu:cc c: i:il clcc:l, c:so: Also, t|c u:gc:s oi t|c i:su::cc iu:cs scc| to sct
tig|t tiuci:ucs o: sc:uulousl, cc:cc uoculcs oi c:c w|c: t|c, :cgotitc ovc:
iccs io: sc:viccs wit| ssocitio:s oi :ovicc:s
I|c :cssu:c o: :iccs ;s :ciu|u:scc |, t|c i:su::cc, |s lcc to :til cc
:oicssio:liztio: i: t|c sccto: :c to uo:c I,lo:istic o:g:iztio: oi l|ou:
Qulit, issucs :c ui:l, |:clcc t|:oug| wiccucs|cc s,stcu oi cxtc::l ;qusi
u|lic, co:t:ol :o::ot o:g:iztio:s ctivc i: t|c |ouc c:c s,stcu |vc to coc
wit| u:|ct co:citio:s w|ic| :cw:c tiuc svi:g :c cisssio:tc sc:vicc cclivc:,
I|is lso lics to io::ot gc:cics, w|ic| :c uostl, sull |usi:csscs sct u |,
:oicssio:ls wit| io:uc: c:cc: i: u|lic o: :o::ot o:g:iztio:s I|is u, |c
w|, io::ot c:t:c:c:cu:s |vc i: souc lccs c|ustcc t|ci: :cticcs to w|t
t:citio:l :o::ot :ovicc:s co:sicc: to |c t|ci: sccil sscts, io: i:st:cc, t|c
o:g:iztio: oi si:itul suo:t lvi:g sic t|t, iit||scc :o::ot gc:cics t:,
|:c to |:i:g t|ci: t:citio:l :cuttio: to |c:, :gui:g t|t it is t|ci: vc:, t:citio:
556 Public Management Review
t|t u|cs t|cu t:ustwo:t|, :ovicc:s lt |s, |owcvc:, |ccouc uo:c ciicult io:
t|cu to i:volvc volu:tcc:s to coulcuc:t t|ci: :oicssio:l sc:viccs, w|ic| uc:s t|t
o:c oi t|ci: couctitivc cv:tgcs is c:c:gc:cc I|us, w|ilc u:|ctiztio: is
cu|ccccc i: t|c :cu:|ct s,stcu cultu:c, it cocs |vc : iuct
lt csccill, iiccts t|c .c.| ..!o.c i: t|c |ouc c:c s,stcu : t|c o:c |:c,
:uuc:ous :o::ot :ovicc:s |vc t:icc to |uilc lli:ccs i: o:cc: to c|icvc
cco:ouics oi sclc wit|out lowc:i:g qulit, st:c:cs As t|c, :c oitc: o: gooc tc:us
wit| locl |ositls, t|c, scc| to ccvclo sc:vicc c|i: i:ou |ositl t:ctuc:t
t|:oug| |ouc c:c to coulcuc:t:, sc:viccs : t|c ot|c: |:c, u:, :ovicc:s :c
:cluct:t to coll|o:tc wit| ot|c: clcuc:ts oi t|c c:c s,stcu, s t|is u, |c vicwcc
wstc oi :ccious tiuc o: |cli:g |:c to couctito:s sc u:gcuc:t is oo:l,
ccvclocc si:cc sou:c s,stcu oi :cic::ls is uissi:g I|c:c :c ciicultics i:
cst|lis|i:g gtc|ccc:s w|o c: gt|c: :cli|lc i:io:utio: |out vil|lc :ovicc:s
Also, t|c uutul c|ustuc:t |ctwcc: :u:si:g o: t|c o:c |:c, :c c:so:l c:c o:
coulcuc:t:, sc:viccs o: t|c ot|c: |:c, is |, u:, co:sicc:cc i:suicic:t
oulcuc:t:, sc:viccs :c o:g:izcc sc:tcl, cit|c: |, isoltcc volu:t:, gc:cics
o: |, sull |usi:csscs, wit|out :, :ticul: st|c i: clcc:l, c:c
As :cg:cs .cc..o.., locl :c :tio:l :ou:c t|lcs :c |clc w|c:c
:c:csc:ttivcs oi u|lic ut|o:itics :c :ovicc:s ciscuss ;|ut co :ot scttlc o:,
i:i:st:uctu:l issucs l: cvc:,c, :cticc, t|c:c is :o iocl o:g:iztio: cccici:g o:
t|c ccvclouc:t oi sc:viccs lu|lic |ocics |:cl, iccl ccou:t|lc io: t|c coo:ci:tio:
oi t|c ovc:ll i:i:st:uctu:c, lct lo:c t|c suc:visio: oi t|osc :ts oi t|c |ouc c:c
s,stcu :ot covc:cc |, lo:gtc:u c:c i:su::cc lt is t:uc t|t t|c, icc :cvc:c:ci:g
cc|tc ovc: qulit, issucs, s wcll s :cssu:c to iu:ovc w|t is oitc: :cg:ccc s
colc|looccc sc:vicc i:cust:, I|c uu|:cll o:g:iztio:s oi t|c :ovicc:s ;i:cluci:g
t|c couuc:cil o:cs, :c vigo:ousl, lo||,i:g io: :cgultio:s t|t iuosc :cw qulit,
st:c:cs o: :ovicc:s :c u:c|sc:s lvi:g sic t|t, t|c:c c: to |c clc: liuits
to t|c cst|lis|uc:t oi cooc:tivc :ctwo:|s i: t|c cu::c:t Gc:u: |ouc c:c
s,stcu
France
tucics i: t|c ccvclouc:t oi clcc:l, c:c i: t.o.. lso oi:t t |ot| c:cci:g
i:stitutio:liztio: :c i:guc:tcc o:g:iztio: oi couicili:, :ovisio: ;l:oss:c
. o! !00+, ou: ccs outcs !00., kiv:c !00o, listo:icll,, t|c:c ws clc:c:
sc:tio: |ctwcc: t|c sttc :c volu:t:, gc:cics t|: i: Gc:u:, lowcvc:, gooc
ccl oi socil sc:vicc :ovisio: :cui:cc u:cc: t|c :cso:si|ilit, oi u|licl, su|sicizcc
:o::ot gc:cics, i:cluci:g c:c io: t|c clcc:l, Volu:t:, o:g:iztio:s |ccuc
cccl, i:volvcc i: t|c :ovisio: oi c:so:l c:c ;o.1. . oo...,, w|ilc :uccicl
|cl ws ;:c co:ti:ucs to |c, :oviccc |, i:ccc:cc:t o: uu:icil :u:scs :c iu:ccc
|, :tio:l |clt| i:su::cc
Bode: Co-governance within networks and the non-prot for-prot divide 557
ouc ssocitio:s :ovici:g c:so:l c:c sct u c:c icilitics cu:i:g t|c 1-.0s,
wit| t|c |cl oi volu:tcc:s livi:g i: t|ci: :cig||ou:|ooc As co:scquc:cc, t|c,
|ccuc cligi|lc io: iu:cs i:ou u|lic |ocics :c socil i:su::cc Wit| licc:cc
i:ou t|ci: cou:t,s ut|o:it,, volu:t:, gc:cics :oviccc :uu|c: oi sc:vicc
|ou:s ui:l, to usc:s wit| lowc: i:coucs l: souc lccs, uu:icilitics iou:ccc
t|ci: ow: gc:cics, |ut vc:, oitc: co:cluccc g:ccuc:ts wit| volu:t:,
o:g:iztio:s u:ctcc to cclivc: |sic couicili:, sc:viccs lttc::s oi locl
co:o:tisu ccvclocc, t|t is, s,u|iotic :cltio:s|is |ctwcc: u|lic :c
volu:t:, gc:cics |scc o: g:ccuc:ts |ctwcc: :ot|lcs :c locl olitici:s
vc: t|c iollowi:g cccccs, c:so:l c:c :ovicc:s tc:ccc to st:c:gt|c: t|c :olc
oi ic stii :c to co:cc:t:tc t|c :ticitio: oi volu:tcc:s o: cui:ist:tivc
iu:ctio:s I|is ws lso |ccusc t|c :uu|c: oi vil|lc volu:tcc:s ws ccc:csi:g
ouc oi t|cu c:ctcc i:tcg:tcc sc:vicc cc:t:cs oiic:i:g |ot| :u:si:g :c c:so:l
c:c, uoccl lso uscc |, uu:icil :ovicc:s Alt|oug| t|c sc:vicc i:i:st:uctu:c
:cui:cc tc|, :c cic :ot iull, ucct t|c g:owi:g ccu:c, l::cc sw t|c
c:cci:g cuc:gc:cc oi cooc:tivc :ctwo:|s |scc o: locl coui: co:sc:sus
|ctwcc: t|c volu:t:, sccto: :c u|lic ut|o:itics I|is co:sc:sus lso cu|:ccc
t|c issuc oi :oicssio:liztio: At t|c :tio:l lcvcl, :o::ot :ovicc:s ;:c t|ci:
uu|:cll o:g:iztio:s, wc:c lo||,i:g io: :cw t:i:i:g olicics :c |ig|c: sl:ics
i: t|c c:so:l c:c sccto: I|c sttc i:t:ocuccc :cw cilous :c oiic:cc to
:ciu|u:sc :ovicc:s io: i:c:cscc wgcs
l:ou t|c 1--0s o:w:cs, |owcvc:, u|lic olicics |vc lso c:cou:gcc t|c
culo,uc:t oi u:s|illcc c:c wo:|c:s i: :ivtc |ousc|olcs t|:oug| gc:c:ous
cxcutio:s i:ou txcs :c ,:oll co:t:i|utio:s to socil sccu:it, W|ilc :u:si:g
:cui:s |ig|l, :cgultcc, c:so:l c:c |s |ccouc i:c:csi:gl, |scc o: csc|,csc
:cc:uituc:ts l: t|is w,, o.|. .o.co!. ws i:t:ocuccc i:to t|c sccto: lc:so:l
c:c :ovicc:s wc:c :ow coucti:g wit| o:g:iztio:s lcsi:g :ivtc culo,ccs to
i:il clcc:l, colc, wit| :cgio:l socil sc:vicc cc:tuc:ts tc:ci:g to ot :|it::il,
io: csc|,csc culo,uc:t i:stcc oi io: :oicssio:l sc:viccs
I|is |s slig|tl, c|:gcc wit| t|c cst|lis|uc:t oi lo:gtc:u c:c |c:ct sc|cuc
i: !00! I|c socil sc:vicc cc:tuc:ts oi t|c cou:tics :ow g::t cvc:, i:il clcc:l,
c:so: : c:u:|cc llow:cc w|ic| is uc:t to covc: ll :cqui:cc sc:viccs I|is is
|scc o: : sscssuc:t oi :ccc :c :cuiscc o: t|c co:citio: t|t t|c c:so:s sttc oi
|clt| cx|i|its cc:ti: ccg:cc oi i:ilt, lig|i:couc c::c:s |vc to , usc: iccs
lowcvc:, t|c Govc::uc:t :ccc:tl, lu:c|cc l: c:cou:gi:g t|c couuc:cil
:ovisio: oi c:so:l c:c sc:viccs l:ovicc:s :c cou:tics u, :ow ot out oi t|c
iu:ci:g :cgiuc |scc o: cui:istc:cc :iccs, wit| i:tc:sicc couctitio: s :csult
I|c |ouc c:c u:|ct is lso suoscc to |c iucllcc |, sc|cuc t|:oug| w|ic|
culo,c:s u, g::t :ciu:ccc vouc|c:s to t|ci: wo:|c:s I|oug| t|c i:volvcuc:t oi
:ivtc :us |s t|us i: :cui:cc : cxcctio:, t|i:gs u, c|:gc i: t|c :c: iutu:c
I|c tc:cc:c, tow:cs uo:c u:|ct govc:::cc c:sists, s cocs t|c sc:tio:
|ctwcc: :u:si:g :c c:so:l c:c
558 Public Management Review
Ioc,, two ccvclouc:ts c: |c si:glcc out w|ic| |vc :ot|lc iucts o: t|c
.c.| ..!o.c utc:ilizi:g i: t|c l:c:c| |ouc c:c sccto: li:st, w|ilc t|c
i:volvcuc:t oi c:so:l c:c :ovicc:s oitc: still :cui:s cu|ccccc i: :ccxisti:g
:t:c:s|is, t|c:c is cvicc:cc t|t souc cou:tics |vc c|osc: oc: couctitio:
|ctwcc: :ovicc:s Agi:st t|is |c|g:ou:c, :o::ot :ovicc:s i:vcst uuc| c:c:g,
i: t|c u:|cti:g oi t|ci: sc:viccs I|c, cc:css :cw t:gct g:ous ;colc wit| |ig|c:
i:coucs, :c t|c i:to ccou:t t|t :ciu|u:scc c:c sc:viccs co :ot covc: t|c iull ::gc
oi cxisti:g :cccs \:, gc:cics :c scc|i:g to co:quc: :cw u:|ct scguc:ts t|:oug|
t|c oc:i:g oi sc:vicc s|os :c t|:oug| :tio:ll, oc:ti:g cllcc:t:cs w|ic| ci:cct
cviccscc|i:g clic:ts to sc:vicc :ovicc:s |clo:gi:g to ssocitio:l lli:ccs I|csc
i:vcstuc:ts :c :clizcc t|:oug| |oi:t vc:tu:cs wit| |:|s :c i:su::cc cou:ics
loo|i:g io: c:osssclli:g oo:tu:itics As :csult oi ll t|is, o:g:iztio:l c:c:gics :c
wit|c:w: i:ou vc:ticl o: |o:izo:tl cooc:tio: wit|i: t|c c:c s,stcu
cco:c, t|c:c :c :cw ccvclouc:ts i: .cc..o.. l: :cctio: to t|c :isc oi
:ivtc c:c culo,ccs, t|c uu|:cll o:g:iztio:s oi t|c :o::ot :ovicc:s |c
ccvclocc co:ccts io: t|c iu:t|c: :oicssio:liztio: oi clcc:l, c:c :c :u: cuig:s
io: :cw sttuto:, :cgultio:s, i:cluci:g c:u:|cc c:titlcuc:ts I|ci: voicc ws |c:c
to souc cxtc:t I|c c:c llow:cc sc|cuc i:t:ocuccc i: !00! :ivilcgcs :oicssio:l
sc:viccs ovc: csc|,csc culo,uc:t :c t|c lttc: |s ccc:cscc i: :uu|c:s Also,
t|c gtc|ccc: :olc oi t|c :cviousl, uc:tio:cc i:tcg:tcc sc:vicc cc:t:cs is
st:c:gt|c:cc t|:oug| t|c i:|cctio: oi ccitio:l u|lic uo:c,, w|ic| is uscc io:
culo,i:g ccitio:l qulicc stii l: :uu|c: oi :cgio:s, uo:covc:, :cw lcc
gc:cics |vc |cc: c:ctcc t|t ccl wit| i:i:st:uctu:l issucs, :ovici:g cou:sclli:g
:c i:volvi:g volu:t:, o:g:iztio:s i: t|ci: u:gcuc:t ouctiucs, t|csc gc:cics
:c lso :cso:si|lc io: :cccs sscssuc:ts Alt|oug| t|c:c still is co:cc:: ovc:
i:suicic:t coo:ci:tio: |ctwcc: t|c ciiic:c:t clcuc:ts oi t|c clcc:l, c:c s,stcu,
:ow t|c c:ivi:g visio: is to gc:c:lizc st:tcg, oi uultist|c|olcc: govc:::cc
I|csc :c :cw iuulscs io: :ctwo:|i:g t|t go |c,o:c u:|ct govc:::cc
England
I|c ostw: socil ;c:c, sccto: i: i!o1 ;t|t ciiic:s i: :uu|c: oi w,s i:ou ot|c:
:ts oi t|c Dl, is s|cc |, t|c cc:t:l :olc oi u|lic ut|o:itics lowcvc:, i: socil
sc:viccs, lt|oug| t|c u|lic :c volu:t:, sccto:s |vc :cui:cc wc|l, coulcc,
ttc::s oi co:sc:sul cooc:tio: cic cuc:gc i: u:, lccs ouc sc|ol:s |vc
cvc: l|cllcc t|is cul s,stcu ;I,lo: !00! 0, |scc o: cogovc:::cc :c
:cgotitcc u|lic olicics
I|is co:gu:tio: lso cuc:gcc i: t|c cou:sc oi t|c |isto:, oi couicili:, c:c ;scc
\c:s . o! !00!, llcoc| !00! 1!! !1, ouslc:c: . o! !00+, :cttc: . o!
!00., I|c :cso:si|ilit, io: :ovici:g c:c sc:viccs ws ccvolvcc to locl Aut|o:itics
i: t|c ltc 1-o0s louc c:c t|c: co:sistcc oi :u:si:g, gu::tccc |, t|c locl :l,
Bode: Co-governance within networks and the non-prot for-prot divide 559
:c ;souc, c:so:l c:c o:g:izcc |, locl Aut|o:itics ;ui:l, io: lowi:couc c::c:s,
W|c:cs :uuc:ous locl Aut|o:itics |c t|ci: ow: i:|ousc :ovicc:s, gooc ccl oi
c:so:l c:c ws :oviccc |, u|licl, iu:ccc volu:t:, gc:cics At t|is stgc, wcli:c
:oicssio:lisu|ccuc :t oi t|c co:o:tc icc:tit, oi ocil c:vicc Dc:tuc:ts, ,ct it
lso sct t|c i:uc oi ctio: io: t|c volu:t:, gc:cics i:volvcc : t|c w|olc, t|c
volu:t:, sccto: :cui:cc couuittcc to l, ctio: u:til t|c c:l, 1--0s :c its u|o:
uissio: ws to c:ggc u|licl, wit| c:c olicics, i:cluci:g qulit, issucs Duc to t|c
:io:itics oi locl Aut|o:itics ;w|ic| |c :cic:c:cc io: :csicc:til sc:viccs,, t|c |ouc
c:c sul, ws i: u:, lccs i:suicic:tl, cou:c|c:sivc cu:i:g t|c :st cccccs oi t|c
ostw: c:ioc Yct iuzz, coui: co:sc:sus cxistcc t|t :u:si:g :c |sic c:so:l
c:c sc:viccs wc:c to |c iu:ccc |, gc:c:l txtio: :c |ct u:cc: t|c co:t:ol oi u|lic
gtc|ccc:s, wit| t|c volu:t:, sccto: i:volvcc s |u:io: :t:c: :c c: s,, t|c:,
t|t u|licsccto:lcc s,stcu oi cooc:tio: cxistcc u to t|c 1-0s
Wit| t|c ouuu:it, :c Act c:ctcc i: 1--0, l:gc :ts oi t|c sc:vicc clc
wc:c ccvolvcc to i:ccc:cc:t :ovicc:s, wit| o:l, ui:o: :oo:tio: coui:g i:ou
t|c volu:t:, sccto: lu|lic |ocics :cui:cc :cso:si|lc io: sc:vicc sul,, i: so i: s
t|c, wc:c to u:c|sc couicili:, c:c c|gcs o: |c|li oi cligi|lc usc:s A o!!,
.1.1 oo.o.|. cuc:gcc, wit| u|lic ut|o:itics i:viti:g io: tc:cc:s :c csc
u:gc:s u:c|si:g sclcctcc |its oi sc:viccs Alt|oug| ctul co:t:ct olicics v:,
c:oss loclitics, :cvious :t:c:s|is |ctwcc: u|lic :c :o:u|lic cto:s |vc i: t|c
uc:w|ilc oitc: |cc: suc:scccc |, qusicouuc:cil :cltio:s Volu:t:, gc:cics
i:volvcc i: t|c co:t:ct |usi:css souctiucs icc |:s| s|iits i: t|ci: sc:vicc o:tiolios
lo: u:, oi t|cu, u:gc:il s|ills :c uic:occo:ouic cxccllc:cc |vc |ccouc
:io:it, l, co:t:st, volu:tcc:s tu:: out to |c uo:c :cc:ious ssct s u:, :c
:cluct:t to suo:t i:il clcc:l, colc i: t|ci: |oucs
I|c u:|ct :tio:lc lso lics to u|lic gc:cics :cso:si|lc io: t|c u:gcuc:t
oi t|c c:c s,stcu lu|licsccto: u:gc:s w|o co :ot :cscct givc: |c:c|u:|s ;cg
cc:ti: :uu|c: oi i:il colc |ci:g :cic::cc i:ou |ositls to |ouc c:c sc:viccs,
u, |c cco:ouicll, u:is|cc |, t|ci: |ic::c|, Wcli:c :oicssio:lisu |s couc
u:cc: ttc| I|is iiccts :ot o:l, u|lic csc u:gc:s, |ut lso :uuc:ous sulic:s,
givc: t|t t|c |ul| oi sc:viccs |vc go:c ovc: to i:ccc:cc:t :ovicc:s culo,i:g
:t|c: lows|illcc stii w|ilc t|c :cuit oi t|c :l |s i:c:csi:gl, |cc: co::cc to
vc:, |sic :u:si:g \o:covc:, usc: iccs |vc :isc: u:|ccl, I|c |ou:s oi c:so:l c:c
sc:viccs iu:ccc |, locl ut|o:itics |vc t:ilcc, |ut t|c :uu|c: oi |ousc|olcs
:cccivi:g |ouc c:c |s ciui:is|cc A: i:c:csi:g :uu|c: oi t|c i:il clcc:l, ccc:c
o: : u::cgultcc c:c u:|ct
As io: .c.| ..!o.c, |o:izo:tl :c vc:ticl coo:ci:tio: |ctwcc: t|c :tics
i:volvcc i: |ouc c:c is gc:c:ll, oo: Alt|oug| i:i:st:uctu:l issucs :c cclt wit|
|, locl t:tcgic l:t:c:s|i lo:cs :c t occsio:l uccti:gs |ctwcc: locl
Aut|o:it, u:gc:s :c :c:csc:ttivcs oi :ovicc:s, t|c io:ul :cltio:s |ctwcc:
u:c|sc: :c :ovicc:s co |:cl, go |c,o:c t|c uc:c |usi:css oi co:t:cti:g Also,
t|c:c :c icw ;cg ssocitio:l, li:|s |ctwcc: |ouc c:c :ovicc:s :c t|c |ositl
560 Public Management Review
sccto: ;li|c i: Gc:u:,, W|ilc uc:gc:s :c wiccs:cc, i:tc:gc:c, cooc:tio:
:cui:s cxcctio:l
lowcvc:, t|c volu:t:, sccto: |s :ot givc: u its uissio: oi :io:itizi:g socil
:cccs ovc: cco:ouic co:cc::s Alt|oug| i:volvcc i: uo:c |usi:cssli|c sc:vicc
cclivc:,, its co:t:i|utio: to .cc..o.. is uost vigo:ous i: its :olc oi lo||,i:g io:
|cttc: u:|ct :cgultio: lts cxc:tisc |s :o||l, co:t:i|utcc to t|c ict t|t t|c
qulit, issuc |s i:vccc t|c socil olic, gc:c i: :ccc:t ,c:s i:cc !00+, ll
c:so:l c:c :ovicc:s |vc |cc: i:scctcc |, :c |vc :cccivcc cvicc i:ou :tio:l
qu:go lu:t|c:uo:c, t|c:c :c ciio:ts to cst|lis| cou:c|c:sivc csc u:gcuc:t io:
t|osc :cccivi:g u|licl, iu:ccc c:c li|cwisc, si:glc sscssuc:t :occcu:cs |vc |cc:
i:t:ocuccc Io t|is, cc t|c uccti:gs oi t|c :cviousl, uc:tio:cc l:t:c:s|i
lo:cs, w|ic| llow t|c voiccs oi scvc:l st|c|olcc:s to |c |c:c t lcst to souc
cxtc:t I|c:c is still uo:c to l:glis| |ouc c:c :ctwo:|s t|: uc:c u:|ct
govc:::cc
CHANGING NETWORKS, CHANGING CO-GOVERNANCE
I|is succi:ct :cvicw oi cvolutio:s i: t|c |ouc c:c sccto:s oi Gc:u:,, l::cc :c
l:gl:c :oviccs us wit| :uu|c: oi |sic i:sig|ts li:st oi ll, cou:cc to w|t |s
|ccouc wiccs:cc u:cc:st:ci:g i: t|c litc:tu:c o: i:tc::u :cltio:s i: t|c
ui:st:cu cco:ou, w|ic| :c t|oug|t to cvolvc tow:cs uo:c coll|o:tivc
ctio: t|c clcc:l, c:c sccto: |s ccvclocc i: t|c oositc ci:cctio: l: t|is clc,
:ctwo:|s :cccccc u:|ct :cltio:s I|c :ovisio: oi c:c sc:viccs ws :cvc:
uo:ool, oi t|c u|lic sccto:, |ut ws uo:c o: lcss s|:cc wit| t|c t|i:c sccto:,
t|:oug| :citc:tcc cxc|:gcs c:cti:g i:tc:ccc:cc:c,, :c t|:oug| uutul c|ustuc:t
:t|c: t|: |ic::c|icl govc:::cc o: u:|ct couctitio: :otwit|st:ci:g t|c ltc:t
;:c still cxisti:g, st:i:s |ctwcc: :oicssio:s o: |ctwcc: ciiic:c:t l,c:s oi t|c c:c
s,stcu, t|c:c ws .c.., to stic| to coui: co:sc:sus t|t cu|:ccs t|c
:tio:lcs oi wcli:c |u:cuc:cics, :oicssio:lisu :c civic ctio:
I|c :cw t|i:g |out :ctwo:|s i: |ouc c:c is, i:ou t|c 1--0s o:w:cs, t|c .o.c
c |. o.|. .o.co!. i:to :ccxisti:g :ctwo:|s llcc:l, c:c s,stcus :owc,s
cou:isc, t v:ious lcvcls, u:gcuc:t st:tcgics st:cssi:g io::oto:ic:ttio:,
i: t|c sc:sc oi uxiuizi:g ucsu:|lc oututs c: i:vcstcc ;uo:ct:,, i:ut A .
c..c c.c 1..1. |s cuc:gcc s :csult I|us, t|c cvolutio: oi t|csc s,stcus,
i::cscctivc oi :tio:l :ticul:itics, is i:cictivc oi .oc.o.c oi :ctwo:|s :t|c:
t|: oi : ovc:ll tc:cc:c, i:ou |ic::c|icl ;o: u:|ct, govc:::cc to :ctwo:|
govc:::cc
I|is t::sio:utio: is coulcx i: :tu:c, t|oug| Acco:ci:g to t|c :ctwo:|
:::tivc ccvclocc i: t|c o:g:iztio:l stucics litc:tu:c, u:|ctiztio: cocs :ot
cxclucc i:tc:o:g:iztio:l coll|o:tio: Io : cxtc:t, t|is ssc:tio: is co::ucc |,
t|c cvicc:cc lcsiccs uc:gc:s :c ciio:ts to |uilc sc:vicc c|i:s ;ui:l, i: Gc:u:,,,
Bode: Co-governance within networks and the non-prot for-prot divide 561
t|c:c is coll|o:tio: |ctwcc: coucti:g gc:cics i: clcs li|c lo||,i:g io: o: t|c
:cgotitio: oi u:|ct :cgultio:s Yct t|c co:sicc:|lc ts| coulcxit,, :c t|c |ig|
iuo:t:cc oi ;i:tc:,:oicssio:l wo:| i: t|c sccto:, co :ot iul, uo:c c:coussi:g
:c co:cil i:tc:gc:c, cxc|:gc
kt|c:, i: ll cou:t:ics u:cc: stuc,, t|c ou:is|i:g |usi:css cultu:c |s sct :cwliuits
to .!o.. .c..co!., t|oug| t|c lttc: co:ti:ucs to |vc : iuct, s s|ow: |,
succcssiul i:ititivcs st:c:gt|c:i:g qulit, i:scctio: :c csc u:gcuc:t \o:covc:,
.!o.. /o..oo..o... |vc :till, :csig:cc i:ou t|c coui: co:sc:sus s u|lic
u:gc:s i:c:csi:gl, :::gc t|ci: :cltio: wit| :ovicc:s cco:ci:g to ;qusi,
io::ot :tio:lc Io |c su:c, st:c:cizcc :csou:cc lloctio: |scc o: :o:utivc
:ulcs c:sists ,ct u|lic u:gc:s c: lcss co:cc::cc wit| vc:ii,i:g w|ct|c: t|csc
:ulcs :c licc i: cuc co:sicc:tio: oi i:civicul ci:cuust:ccs As :cg:cs ....
c...o.c, it is o|vious t|t volu:t:, gc:cics :ow go u:|ct, s t|c, :c cclo,i:g
uuc| c:c:g, io: ccvcloi:g |usi:css tools :c io: wi::i:g :cw custouc:s I|is, i: ll
:o||ilit,, :occccs t t|c cxc:sc oi t|c cultivtio: oi t|ci: ssocitio:l iou:ctio:s
i:cluci:g t|c i:volvcuc:t oi volu:tcc:s wit| t|c lttc: |ccoui:g cvc: uo:c ciicult
givc: t|c c:osio: oi t:citio:l ttc::s oi l, ctio: i: t|c socil c:c sccto:
lvi:g sic t|t, .cc..o.. w|ic| is cc:cc |c:c s co:sc:sul :cgultio: s|:cc
|, u|lic, civic :c :oicssio:l cto:s c:sists, t|oug| lcss vigo:ousl, I|i:csccto:
o:g:iztio:s still :ticitc i: coui: co:sc:sus |uilci:g, cg i: Gc:u:, w|c:c
t|c co:citio:s oi sc:vicc :ovisio: :c :till, su||cct to collcctivc |:gi:i:g :c
w|c:c :ou:c t|lcs :ovicc io: uutul c|ustuc:t w|c: it coucs to t|c ccli|c:tio: oi
qulit, st:c:cs iuil: ciio:ts occu: i: l::cc w|c:c :ovicc: ssocitio:s :c
i:volvcc i: ciscussio:s |out |ow iu:t|c: to :oicssio:lizc t|c sccto: \o:covc:,
t|i:csccto: o:g:iztio:s still t::sltc c:ccivcc :cccs i:to oliticl ctio:,
:ticul:l, i: l:gl:c I|c, t::scc:c u:|ct io:ccs |, |vi:g t|ci: civic voicc
|c:c i: t|c u|lic s|c:c lowcvc:, t|is i:c:csi:gl, :occccs t|:oug| t|c gc:c, oi
uu|:cll st:uctu:cs c:wi:g o: t|c :cuttio: oi volu:t:, o:g:iztio:s s couuo:
cusc gc:cics I|c gc:cics i:vcstuc:t i: civic ctio: c:s to |c i:c:csi:gl,
cccoulcc i:ou t|c cvc:,c, c:c |usi:css
:c |s to ccou:t io: ....o!o.o! o..o.c, t|oug| Gc:u:, |s uo:c o: lcss
iollowcc t|c i:tc::tio:l tc:cc:c, tow:cs uo:c u:|ctizcc u|lic u:gcuc:t oi
socil sc:viccs ;lo:|c: :c Wollu:: !000, lowcvc:, Gc:u: ostco:o:tisu
c:s s co:gu:tio: :o:c to :ocucc :cw :o::ot lli:ccs o: t|c g:owi:g
qusiu:|cts I|c lo:gst:ci:g t:citio: oi i:tc:ucci:, o:g:iztio:s |ci:g g::tcc
qusiu|lic sttus :oviccs : vc:uc to i:tc:o:g:iztio:l coo:ci:tio: |ot|
wit|i: :c |ctwcc: ssocitio:l ill:s lt lso lcvcs souc :oou io: i:stitutio:lizcc
cogovc:::cc to c:sist : t|c ot|c: |:c, t|c cou:tivcl, st:o:g :cli:cc o:
i:civicul |ousc|olcs s i:ccc:cc:t ;u:|ct, cto:s, s :clizcc i: t|c usc oi t|c qusi
vouc|c: s,stcu, gocs |c| to t|c iuil,|scc t:citio: i: t|c Gc:u: c:c sccto:
;scc liuli:gc: !00., :c :coxicll, oc:s t|c coo: to uo:c u:|cto:ic:tcc
|c|viou: |, t|c c:ccio: o: t|ci: :cltivcs
562 Public Management Review
l: l::cc, t|c cu|sis o: u|lic :cso:si|ilit, io: socil wcli:c :ovisio: cxc:ts
cc:ti: :cssu:c to c:su:c u:iio:u st:c:cs u:cc: sttuto:, co:t:ol As olc :c o:cs
;!00. .+, :ig|tl, :guc, t|c iccologicl u:cc:i::i:gs oi t|c :l\ cc|tc co :ot
:c :ccctivc tc::i: i: l:c:c| u|lic cui:ist:tio: I|is is w|, :cgultio:s t|t
1. o.c iul, uo:c couctitivc :ovicc: l:cscc suc| s scl cv:tgcs io:
culo,i:g stii i: :ivtc |ousc|olcs |vc c:cc outsicc :, s,stcutic qusi
u:|ct gc:c kt|c:, govc::uc:ts |vc .o!o.co!, soug|t to cst|lis| uo:c
:oicssio:lizcc :c ;:ccc:tl,, uo:c i:tcg:tcc i:i:st:uctu:c oi c:c sc:viccs Also, t|c
st:o:g t:citio: oi clic:tclistic govc:::cc ;Guci: 1--, still ivou:s :ticul:istic
locl g:ccuc:ts, wit| u:cvc: ttc::s oi c:c :ovisio: ovc: t|c l:c:c| tc::ito:, s
co:scquc:cc
o:cc::i:g l:gl:c, t|c t:citio: oi l:itis| li|c:lisu |s clc:l, ivou:cc t|c
:oliic:tio: oi u:|ct o:ic:ttio:s wit|i: u|lic govc:::cc lowcvc:, u:, |vc
:gucc t|t u|lic i:tc:vc:tio:isu |s :cui:cc vitl i: sitc oi |ci:g t::sio:ucc
i:to t|c stcc:i:g oi co:tcxts ;l:|c !00+, W|ilc t|c u:|ct coct:i:c |s |cc:
:ul, cst|lis|cc wit|i: t|c l:glis| socil wcli:c sccto: ;lc:csio:c !00.,, t|is |s
:ccc:tl, |cc: ccou:icc |, two ot|c: tc:cc:cics |ig|c: cstccu io:
i:ccc:cc:t :c oitc: volu:t:,sccto:|scc sc:vicc :ovicc:s, :c st:o:g;c:,
couuituc:t to qulit, co:t:ol A uo:c u:|ct|scc st,lc oi govc:::cc t|c: gocs
lo:g wit| t|c tc:sio:lcc :cvitliztio: oi two iu:t|c: l:itis| t:citio:s t|c
iostc:i:g oi u|lic wcll|ci:g t|:oug| c|:it|lc i:ititivc, :c t|c u|itio: oi t|c
cc:t:l sttc to co:t:ol |sic st:uctu:cs oi t|c socil c:c s,stcu I|c ovc:ll :csult
is t|t cogovc:::cc l,s :olc, |ut :t|c: s coulcuc:t to t|c stcc:i:g
:occss, givc: t|t cvc:,c, |usi:css is vc:, uuc| su||cct to u|lic co:t:ol :c
u:|ct govc:::cc
:otwit|st:ci:g t|csc cultu:l ciiic:c:ccs, t|c:c is c:osscou:t:, t::sio:utio: oi
|ouc c:c :ctwo:|s W|ilc |ouc c:c :ctwo:|s co:ti:uc to |c |scc o: scvc:l
ovc:li:g :tio:lcs, t|ci: :c|itcctu:c is c|:gi:g i:ou ;qusi,co:o:tist
i:ucwo:| tow:cs loosc couli:g u:cc: u:|ct :cssu:c I|c i:vsio: oi t|c u:|ct
:tio:lc is ciso:g:izi:g t|osc :ctwo:| :cltio:s t|t wc:c :cviousl, |scc o:
;tc:ttivc, coui: co:sc:sus Acco:ci:gl,, i: ou: c,s, cogovc:::cc c::ot |c
u:cc:stooc s uocc oi coo:ci:tio: t|t sul:ts |ic::c|icl govc::uc:t o:
u:c u:|ct coo:ci:tio: kt|c:, it |s |cc: iu:cuc:tl to t|c |uilci:g oi uixcc
c:c s,stcus |cio:c |ci:g cxoscc to :cw :o::ot io::ot civicc :c it tu::s
out to |c lcss co:sistc:t t|: i: :cvious tiucs I|c ovc:ll :csult is ..co .c.|
c..o.., i:ug|t wit| voltilit, :c c:u:c:t tc:sio:s ;scc lso locc !00o,
Agi:st t|is |c|g:ou:c, it is |:c to iugi:c t|t, o: l:gc: sclc, clic:ts o: t|ci:
:cltivcs :c cuowc:cc t:ul, to :ticitc i: t|c vc:, .c.c1o..c oi c:c sc:viccs
Dcli|c:tio:s wit|i: t|c t|i:csccto: o:g:iztio:s i:volvcc u, :ccct t|c co:cc::s oi
usc:s, w|ic| u, t|c: |c voiccc i: c:cou:tc:s wit| u|lic ut|o:itics lowcvc:,
u:|ct :cssu:cs :c t|c ovc:ll wc|c:i:g oi co:sc:sus |uilci:g sct clc: liuits to
ccuoc:tic clcc:l, c:c
Bode: Co-governance within networks and the non-prot for-prot divide 563
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A:|cic:, l l :c ci|cl, W ccs ;1--0, 1|. 1|..1 :..c. cco.o.. :o1.. c :ct.co.o.o.c, lc:li: s
:cw Yo:| Dc G:u,tc:
A:tto:c:, A, llcoc|, :c iil, ;!00!, lttc::s oi ocil :c i: livc l:cust:il ocictics lxli:i:g
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t..o.o.c, :cw Yo:| lluwc: Acccuicllc:uu lu|lis|c:s
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locc, l ;!00+, I|c Qulit, oi :o::ot lulo,uc:t lttc::s :c D,:uics oi Wo:| :g:istio: i: t|c
Gc:u: I|i:c ccto: i: tcc|c: :c A Ziuuc: ;ccs, :.o., M. c. :c.c o.o.o.c .|..!.
c. :c..o! o1 to/co. Mo.|. i..o.c :cw Yo:| lluwc: Acccuicllc:uu l:css
;!00o, Diso:g:iscc Wcli:c \ixcs Volu:t:, Agc:cics :c :cw Govc:::cc kcgiucs i: Wcstc::
lu:oc, jco.o! c io.c.o :c..o! tc!.., 1- + !+o .-
;!00o|, :cw \o:l lco:ouics oi Wcli:c I|c sc oi Douicili:, llcc:l, :c i: Gc:u:,, l::cc :c
l:iti:, io.c.o :c..... + .! ++
locc, l, lvc:s, A :c c|ulz, A D ;!00o, ocil l:tc::iscs : l,|:icistio: lc usti:|lc i:
\ :,ssc:s ;cc, :c..o! i..... i... Mo.|., to/!.. tc!.... o1 cco., lo:co: koutlccgc
lo:|c:, l :c Wollu::, l ;!000, I|c kisc :c lll oi ocil c:vicc kcgiuc \:|ctistio: oi Gc:u:
ocil c:viccs i: listo:icl lc:scctivc i: l Wollu:: :c l c|:octc: ;ccs, cco.. to/!.. :..c.
r.c. . i..o. o1 c..o, Alcc:s|ot As|gtc
lo:gtti, l :c lostc:, l G ;!00!, I|c :ctwo:| l:cigu i: :g:istio:l kcsc:c| A kcvicw :c
I,olog,, jco.o! c Moo.. !- o --1 101!
l::csc:, I, v: cc Do:|, W :c luttc:s, l ;!00., G:ii:s o: |uclco:s l,|:icit, s lc:u:c:t
:c l:cvit|lc |:ctc:istic oi t|c I|i:c ccto:, i..o.co! jco.o! c to/!.. +1...o.c ! - 10
+- oo
l:ow:, l :c ullis, ;!00o, Icu l:ocuctio: :c lolic, io: t|c :c oi lcc: lcolc l:o|lcus wit|
I|co:, :c lvicc:cc, tc!.., :o1.. ! 1 .. 0
|:istc:sc:, I :c lcg:cic, l ;!00!, A I::sio:utivc lc:scctivc o: Acui:ist:tivc kcio:us i:
I |:istc:sc: :c l lcg:cic ;ccs, :. to/!.. Moo.. 1|. 1.oc.o.c c i1.o o1 t.o....
Alcc:s|ot As|gtc
l:|c, ;!00+, c|o. P.!o.., c|o. :o. :. .....c . :c..o! tc!..,, lo:co: gc
olc, A :c o:cs, G ;!00., kcs|i:g t|c ttc Acui:ist:tivc kcio:u :c :cw lu|lic \:gcuc:t i:
l::cc, cc..o.. 1 + .o
ouslc::c:, A, Wittc:|c:g, k :c lic|:c, l ;!00+, lo:gIc:u :c io: lcc: lcolc i: t|c D:itcc
li:gcou t:uctu:c :c |llc:gcs i: \ l:, D |llis, l lc:::ccz :c A :cttc: ;ccs, tc
1.. co.. Mo.|. r.co... o1 :..1 Alcc:s|ot As|gtc
ou: ccs outcs ;!00., t. ..c. o.. 1..1o. .oc. oo t...1. 1. !o r. o/!.o. :o.. 1. ..c. 1.
o1...o.c . 1. o.o.. i...., l:is ou::l icicl
Dvics, ;!00., locl Govc:::cc :c t|c Dilcctics oi lic::c|,, \:|ct :c :ctwo:|, tc!.., :o1.. !.
!+ !11 !.
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564 Public Management Review
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Bode: Co-governance within networks and the non-prot for-prot divide 565
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566 Public Management Review