Public service integration:

an exploration of

reciprocal interdependence

and organisational culture

Madhulata Ambelal Patel

Volume 1

A multiple exploratory case study

This research programme was carried out in collaboration with

a Local Service Board as part of the University of South Wales Knowledge, Economy Skills Scholarships (KESS) project

June 2015

Public service integration: an exploration of reciprocal interdependence and organisational culture
Contents
Page
Note from author and Acknowledgement / 9
Abstract / 10
Chapter 1
Introduction / 12
1.1 / Background to PhD study / 12
1.1.1 / Collaborative research / 14
1.1.2 / Advisory group and PhD study’s author / 15
1.2 / PhD study definitions of public service integration, reciprocal interdependence and organisational culture / 16
1.3 / Multiple case study design / 18
1.3.1 / The case studies / 18
1.4 / Current gaps in knowledge / 21
1.5 / Original contribution to knowledge / 22
1.6 / Aim and objectives / 23
1.7 / Dissemination of findings / 24
1.8 / Outline of chapters / 24
1.9 / Summary of chapter one / 26
Chapter 2
Context and rationale for reciprocal interdependence: a review of the literature / 27
2.1 / Introduction / 27
2.1.1 / Search strategy / 27
Page
2.2 / Section 1: The context of United Kingdom (UK) public service integration / 32
2.2.1 / The ‘public’ / 32
2.2.2 / Public services and human need / 32
2.2.3 / Social issues / 34
2.2.4 / ‘Fuzzy’ distinctions: the public, private and third sector / 37
2.2.5 / Summary of section 1 / 46
2.3 / Section 2: Politics and public policy / 47
2.3.1 / Political influence on public policy / 47
2.3.2 / Policy rationale for public service integration / 50
2.3.3 / Organisational culture and leadership / 53
2.3.4 / Public service integration and innovation / 58
2.3.5 / Public governance / 60
2.3.6 / Performance management / 62
2.3.7 / Divergent policies on public services – England and Wales / 64
2.3.8 / Netherlands public services / 68
2.3.9 / Summary of section 2 / 71
2.4 / Section 3: Theories on reciprocity and interdependence / 72
2.4.1 / Introduction / 72
2.4.2 / Theory of reciprocal interdependence / 75
2.4.3 / Social interdependence theory / 78
2.4.4 / Contingency theory / 80
2.4.5 / Resource dependence theory / 82
2.4.6 / Network theory / 83
2.4.7 / Summary of section 3 / 87
2.5 / Section 4: Public service integration, reciprocity and interdependence / 88
2.5.1 / Introduction / 88
Page
2.5.2 / Exploration of reciprocity and interdependence amongst forms of service integration / 92
2.5.3 / Enablers and barriers to public service integration / 105
2.5.4 / Summary of section 4 / 109
2.5.5 / Conclusion / 109
2.6 / Summary of chapter two / 112
Chapter 3 113
Multiple case study design and research methods
3.1 / Introduction / 113
3.2 / The study aim / 118
3.2.1 / Rationale for multiple case study design / 118
3.3 / The case studies / 120
3.3.1 / Rationale for selection of case studies / 120
3.4 / Identification of relevant data for collection / 123
3.4.1 / Theoretical framework / 123
3.4.2 / Data collection / 128
3.5 / Data analysis / 143
3.5.1 / Thematic analysis of in-depth and semi-structured interviews / 143
3.5.2 / Triangulation of all data / 148
3.6 / Ethics / 149
3.6.1 / Ethical approval / 149
3.6.2 / Ethics and research within organisations / 149
3.7 / Conclusion / 153
3.8 / Summary of chapter three / 153
Page
Chapter 4
Public service integration, reciprocity and interdependence – multiple case study findings / 154
4.1 / Introduction / 154
4.2 / Case study one - FP / 157
4.2.1 / Outline of study setting / 157
4.2.2 / Sources of data / 158
4.2.3 / Features of innovative public service integration and implications for reciprocity and interdependence / 159
4.2.4 / Stakeholders’ experiences of reciprocity and interdependence / 165
4.2.4.1 / The third sector / 165
4.2.4.2 / Middle managers / 175
4.2.4.3 / Cultural themes and factors that challenged and supported reciprocity and interdependence / 182
4.2.4.4 / FP – lessons learnt / 183
4.2.5 / Summary of within-case analysis / 185
4.3 / Case study two - VP / 189
4.3.1 / Outline of study setting / 189
4.3.2 / Sources of data / 189
4.3.2.1 / In-depth and semi-structured interviews in the Netherlands / 190
4.3.3 / Features of innovative public service integration and implications for reciprocity and interdependence / 192
4.3.4 / Stakeholders’ experiences of reciprocity and interdependence / 198
4.3.4.1 / The public sector / 198
4.3.4.2 / Innovation / 206
4.3.4.3 / Cultural themes and factors that challenged and supported reciprocity and interdependence
/ 211
Page
4.3.4.4 / VP – lessons learnt / 212
4.3.5 / Summary of within-case analysis / 213
4.4 / Case study three - WP / 217
4.4.1 / Outline of study setting / 217
4.4.2 / Sources of data / 217
4.4.3 / Features of innovative public service integration and implications for reciprocity and interdependence / 218
4.4.4 / Stakeholders’ experiences of reciprocity and interdependence / 223
4.4.4.1 / The private sector / 224
4.4.4.2 / Delegation / 231
4.4.4.3 / Cultural themes and factors that challenged and supported reciprocity and interdependence / 234
4.4.4.4 / WP – lessons learnt / 235
4.4.5 / Summary of within-case analysis / 238
4.5 / Cross-case conclusions / 241
4.6 / Summary of chapter four / 259
Chapter 5
Discussion – How does an understanding of interdependence and reciprocal relationships
contribute towards integration of the public, private and third sector when developing public services? / 260
5.1 / Introduction / 260
5.2 / Contemporary government policy on public services / 263
5.3 / Implications for theory / 265
Page
5.4 / Understanding interdependence and reciprocal relationships between the public, private and third sector / 270
5.4.1 / Implications for policy and practice / 270
5.4.1.1 / Recognition of interdependence to promote respect for all sectors / 270
5.4.1.2 / Reciprocal relationships: negotiation of reciprocity during early relationships / 281
5.4.2 / Public service integration and new relationships: proposed checklist to support integrated working / 290
5.5 / Further research / 303
5.6 / Conclusion / 305
5.7 / Summary of chapter five / 307
Chapter 6
Conclusion and recommendations
6.1 Conclusion / 308
6.2 Recommendations / 315
List of tables
Table 1 / Search strategy: key words and alternate terms / 29
Table 2 / Key aspects of theories on reciprocity and interdependence / 74
Table 3 / Enablers and barriers to public service integration / 106
Table 4 / Stages within multiple case study / 115
Table 5 / Research methods used to meet PhD study’s aim and objectives / 130
Page
Table 6 / PhD study’s use of Braun and Clarke’s (2006) six stage process for thematic analysis of interviews / 145
Table 7 / PhD study risk assessment / 152
Table 8 / Summary of data collection across three case studies / 154
Table 9 / Summary of key features across three case studies / 242
Table 10 / Cross-case summary of supporting and challenging
cultural themes and factors / 252
Table 11 / Cross-case summary of lessons learnt / 256
Table 12 / Leadership characteristics identified for public service integration and innovation / 274
Table 13 / Additional enablers and barriers to public service integration / 301
List of figures
Figure 1 / Timeline for theories on reciprocity and interdependence / 28
Figure 2 / Themes that emerged from the PhD study’s search strategy / 30
Figure 3 / Reciprocity and interdependence between organisations / 91
Figure 4 / Public service integration, reciprocity and interdependence / 93
Figure 5 / Extract from mind maps that informed thinking and questioning across all data collection methods / 126
Figure 6 / Extract from pictograms that informed thinking and questioning across all data collection methods / 126
Figure 7 / Exploration of key concepts via topic guide / 128
Figure 8 / Questionnaire development process / 138
Page
Figure 9 / Core concepts deriving from reciprocal interdependence / 140
Figure 10 / Thematic maps produced in relation to motivators for programme development in each case study / 147
Figure 11 / Features of innovation and integration: FP / 160
Figure 12 / Summary of within-case analysis of interdependence and reciprocity between organisations: FP case study / 188
Figure 13 / Features of innovation and integration: VP / 193
Figure 14 / Summary of within-case analysis of interdependence and reciprocity between organisations: VP case study / 216
Figure 15 / Features of innovation and integration: WP / 219
Figure 16 / Summary of within-case analysis of interdependence and reciprocity between organisations: WP case study / 240
Figure 17 / Stakeholders’ experiences of reciprocity and interdependence / 243
Figure 18 / Understanding interdependence and reciprocal relationships between the public, private and third sector / 262
Figure 19 / Public service integration and new integrated relationships (Citizens, public sector, private sector and third sector) – checklist to support new working relationships / 293
Note from author
This multiple exploratory case study was submitted as a PhD study thesis on 3 June 2015 and my PhD viva was held on 15 October 2015. The examiners’ recommendation was that I resubmit for the lower award of Master of Philosophy (MPhil) and be re-examined within a 12 month period. I decided that I would not re-submit for an MPhil and therefore this document represents my thesis as submitted for the purposes of my PhD viva.
As a practitioner who has worked for 22 years delivering public services I believe that my research offers some interesting insights and ideas as regards how the public, private and third (voluntary) sector can work together more effectively to deliver person centred outcomes for individuals accessing public services. This document comprises Volume 1 which communicates findings from a multiple exploratory case study whilst Volume 2 can be accessed separately and this contains the appendices to this PhD study.
I hope that my work will help to inform your thinking on public service integration. You are very welcome to dip in and out of this document and derive anything that you find useful (remembering to reference the document if you use it as part of your work). You will find an outline of each chapter on pp.24-25. I wish you well in your own research journey whatever that may be.
Madhulata Patel
Acknowledgement
I would like to thank the following who made an invaluable contribution to the development of this PhD study:
Knowledge, Economy and Skills Scholarships (KESS) and a Local Service Board.
The individuals who were willing to be interviewed for the purpose of this PhD study. Their honesty and insight have provided important lessons for the future.
The advisory group members for their commitment and advice:
Marilia Angove, Research Fellow, University of South Wales
Professor Tony Beddow, visiting professor
Sue Browne, Torfaen County Borough Council
Professor Joyce Kenkre, University of South Wales
Jeff Lewis, independent advisor
Dr Carolyn Wallace, University of South Wales
A special thank you and appreciation goes to Dr Carolyn Wallace for encouraging me to embark on this PhD study. I am grateful for Carolyn’s ongoing support and faith in my ability to complete this journey.
Abstract
There is public and government support for integrated public services which are currently delivered by the public, private and third (voluntary) sector to meet cross cutting and interdependent public needs. Yet there are challenges as some citizens report dissatisfaction with their experience of public services. Some policy makers regard organisational culture (as a system of shared beliefs and values that guide behaviour) as key to achieving successful public service integration. Reciprocal interdependence is based on the idea that a relationship is mutually beneficial to organisations seeking to achieve public service integration including the sharing of risks.
This PhD study, “Public service integration: an exploration of reciprocal interdependence and organisational culture” intends to consider where interdependence (as shared goals) and reciprocal relationships (as the giving of benefits with the expectation of the same in the return), feature in achieving effective public service integration. This is done through a literature review and a multiple case study that explores relationships between stakeholders from the public, private and third sector when they work together to deliver integrated and innovative public services.
The multiple case study has used a theoretical framework on reciprocal interdependence (Thompson 1967; Alter and Hage, 1993; Thompson, 2003) to explore three innovative case studies; two in Wales and one in the Netherlands. Data was collected from in-depth and semi-structured interviews, documentary analysis, a survey, the observation of meetings and a physical artefact (produced item).
This PhD study concludes that an understanding and implementation of interdependence can facilitate equality and mutual respect between each sector and organisation, based on the realisation that each are needed. This interdependent work enables sectors to pool their unique contributions which are especially critical during these austere times. Public service integration is strengthened by reciprocal relationships because an understanding of reciprocity between the public, private and third sector requires each sector to understand what they will be expected to give and gain to contribute towards a shared goal. Reciprocal relationships encourage sectors to engage in up front conversations where all parties are willing to acknowledge differences that may not always sit comfortably with each other. However, these differences have to be understood and negotiated to achieve public service integration. Improved working relationships can support increased efficiencies in the development of public services. This is as a result of collective commitment to share risks as well as benefits and a mutual respect that values everyone’s contribution within and across sectors and organisations.