Co-governance and trust in government

ANZSOG and the NSW Government commissioned the Social Policy Research Centre at UNSW to undertake a major program of research over 2 years on co-governance – a mechanism by which government increases public participation in policymaking and, in various ways, shares decision-making power with communities.

Co-governance emerges from an urgent need to address a range of persistent, ‘wicked’ problems that traditional policymaking processes have failed to resolve. The premise is that through better collaboration, governments and the affected communities can arrive at better policy solutions.

In this context, trust is the key enabler. The research highlights how trust between the partners – and especially trust in the collaboration by communities that have been overlooked and harmed by government policy – is both a precondition and a product of improved processes.

The project provides an evidence base and practical guidance for developing co-governance arrangements that build and sustain trust and enable better policy outcomes.

This research is primarily aimed at public sector leaders and policymakers, especially those working in areas like co-governance, devolution of decision-making, community engagement and place-based initiatives.

The findings offer these practitioners an evidence-based framework and real examples to inform their work. By drawing lessons from multiple cases, the project provides guidance for officials on when co-governance is appropriate, how to set it up, and how to make it successful, while noting that co-governance arrangements are heavily shaped by local needs and circumstances.

Ultimately, the research is intended to help government agencies work better together with communities, building trust and delivering more responsive, accountable services.

This study was conducted in three parts.

1.  A scoping review was undertaken to identify methods to operationalise and implement co-governance, and identify outcomes reported from co-governance. The review identified 4 key stages of co-governance, which provided the analytical framework for the study.

2. Three case studies were used to test the findings of the review. Each case explored what co-governance meant to participants as well as the key stages identified in the review to identify how to initiate, develop and implement co-governance arrangements from different perspectives. This provided an opportunity to observe whether there is a universal understanding and process of co-governance, or if the process was unique to each case.

3. Cross-case analysis examined the similarities and differences between the cases to answer the research questions. This analysis was supplemented by feedback received from presenting interim findings at the NSW Government Conference (2023), the Sydney Policy Lab Policy Bites Seminar (2024), conference presentations (at the Australian Institute of Family Studies), and workshop discussions between the research team and the funders. The insights from the case studies and supplemental data were used to develop a guide both government and community stakeholders can consider when approaching co-governance.

1. Trust is both a prerequisite and a product of collaboration

“Trust is both a prerequisite for and a product of co-governance… When trust is established in co-governance processes, it strengthens accountability, as stakeholders become more willing to engage, monitor, and hold decision-makers responsible.” (Final report, p. 54)

Effective co-governance depends on trust, which must be actively cultivated through meaningful power-sharing, respectful engagement, and fair and equitable governance. The recognition of cultural authority and lived experience is especially important when the relationship between government and affected communities is marked by historical injustice.

2. There is no single model for co-governance, but there are principles

“The case studies demonstrated that co-governance involves collective decision-making, formal arrangements, and deliberative processes that include government and community… [but also] that what co-governance looks like and how it functions can vary significantly depending on the context and stakeholders involved. Although there are common features, they may differ in implementation and according to context, requiring flexibility and adaptation.” (Final report, p. 8)

Co-governance depends on context. It is shaped by the identities, histories, and needs of stakeholders. But there are common principles necessary for co-governance, including shared goals, power sharing, and representation, and common practical enablers of co-governance in practice. The principles provide a framework within which co-governance arrangements can evolve over time to meet stakeholders’ needs – “This process of co-governance… is iterative and continuously changing and responding to changes in context.” (Final report – p. v)

3. Building capability enables collaboration

“Co-governance may require individuals and organisations to have certain capabilities for the co-governance group to function. The first consideration is therefore to identify what capabilities are required when establishing the group and identify how these needs will be met. This may include representation, delegation of decision-making, knowledge and information, and resources to attend.” (Final report, p. 42)

Sustainable co-governance requires developing the capabilities of participants. Partners bring different capabilities, resources, and knowledge to co-governance arrangements. But power sharing may require support for communities to participate fully and as equals. Co-governance entails a commitment to mapping and addressing capability gaps and needs, as well as support for succession planning and building organisational memory.

4. Co-governance is not a quick fix

“Co-governance is not a ‘quick fix’ and may take months to establish. This may be quicker where relationships and buy-in already exists, and longer where the initiative is new.” (Final report, p. 15)

Co-governance takes time to build and mature. It can take months or years to establish relationships, align goals, and embed collaborative processes. Early “quick wins” can build momentum, but sustaining co-governance requires patience and dedication. It is worth taking the time, because a rushed process might be self-defeating, and lead to lower levels of trust.

“Collaborative governance has the potential to improve policy decision making and can also lead to broader positive outcomes including increased levels of trust. However, there is always a risk involved… and if the process is unsuccessful this can lead to lower levels of trust.” (Scoping study, p. 6)

Download a handy infographic guide to the iterative process of co-governance developed by our researchers here.