Literature selection
Included here after screening for relevance and rigour were 25 papers classified as case studies from searches from the second stage of our realist synthesis. For the new systematic search, the Social Policy and Practice database search identified 2144 papers, or 1092 after deduplication against our existing literature library for this project (please see additional file 1 for the full details of this search strategy). Abstracts were then screened for relevance and 104 remained. At this point, papers were most frequently excluded due to not being related to inter-organisational collaborations, or for not being case studies. After full text screening, 48 papers were considered eligible for the review, but, after screening for relevance and rigour, only 13 of these were included. All those removed were due to being insufficiently descriptive (lacking relevance). The searches on the websites of the King’s Fund, the National Institute for Care Excellence, the Nuffield Trust and Health Foundation, and NHS Employers resulted in an additional 11 papers. Nine of these were included after two were removed for lack of relevance. Three further studies were identified through citation tracking and a final paper was identified in a department newsletter after the search was completed. As a result, 51 papers were included in total in this theory refinement portion of this realist synthesis (Fig. 4).
Literature characteristics
Papers in the literature covered a wide range of partnership types, including integrated care initiatives (such as Sustainability and Transformation Partnerships (STPs) and Accountable Care Organisations (ACOs)) (n = 22), mergers (n = 7), joint commissioning (n = 6), vanguards (n = 4), primary care networks/partnerships (n = 4), (n = buddying (n = 2), provider chains (n = 1), alliances (n = 1), health boards (n = 1), networks (n = 1), quality improvement collaboratives (n = 1) and mixed partnership types (n = 1).
Table 1
Characteristics of included literature.
Study
|
Country
|
Partnership type
|
Sector
|
Methods and sample
|
Adedoyin et al. (2016)
|
USA
|
Merger
|
Social work programmes
|
Journaling to report personal experiences and retrospective descriptions of the merger process
|
Allen et al. (2016)
|
England
|
Joint commissioning
|
Healthcare
|
Case study with 42 interviews & documentary analysis
|
Ball et al. (2010)
|
Scotland
|
Community health partnership/integrated care
|
Health and social care
|
More than 30 interviews with professionals, public, and voluntary sector; use of Partnership Assessment Tool (33)
|
Care Quality Commission (2017)
|
England
|
Sustainability Transformation Partnership/Accountable Care Organisation
|
Health and social care
|
Evaluation, based on inspection reports based on visits to 25 independent sector adult social care providers and a four-day visit to the organisation
|
Cereste, Doherty and Travers, (2003)
|
UK
|
Merger
|
Hospitals and mental health/community trusts
|
Focus group, and questionnaire answered by 457 trusts (mostly chief executives, finance directors, etc.)
|
Community Network (2020d)
|
England
|
Provider alliance/ Integrated care
|
Health and social care
|
Summary report from a wider project – case studies (methods unknown)
|
Community Network (2020e)
|
England
|
Provider alliance/ Integrated care
|
Health and social care
|
Summary report from a wider project – case studies (methods unknown)
|
Community Network (2020b)
|
England
|
Provider alliance/ Integrated care
|
Health and social care
|
Summary report from a wider project – case studies (methods unknown)
|
Community Network (2020a)
|
England
|
Provider alliance/ Integrated care
|
Health and social care
|
Summary report from a wider project – case studies (methods unknown)
|
Community Network (2020c)
|
England
|
Provider alliance/ Integrated care
|
Health and social care
|
Summary report from a wider project – case studies (methods unknown)
|
Cortvriend (2004)
|
England
|
Primary care trust
|
Acute care, primary care
|
Focus groups, with 31 participants taking part across five such groups, each containing 4–8 participants
|
Crump and Edwards (2014)
|
England
|
Provider chains
|
Acute care
|
Interviews (non-NHS, n = 11; and NHS, n = 5)
|
Dickinson and Glasby (2013)
|
England
|
Integrated care
|
Health and social care
|
Five case study sites, using documentary analysis, interviews, and focus groups.
|
Dickinson, Peck and Davidson (2007)
|
England
|
Merger
|
Health and social care
|
Case study, 23 semi-structured interviews with range of people, from service users to CEOs
|
Erens et al. (2017)
|
England
|
Integrated care
|
Health and social care
|
Case studies of 25 Integrated Care Pioneers, involving documentary analysis, qualitative interviews, and surveys
|
Findlay (2019)
|
Scotland
|
Health boards
|
Health and social care
|
Literature, documentary analysis, non-participant observation, and semi-structured interviews with 44 participants
|
Forbes, Evans and Scott (2010)
|
England and Scotland
|
Integrated care
|
Health and social care
|
Four case studies, two in England and two in Scotland; semi-structured interviews were used (n = 16)
|
Foundation Trust Network (2014)
|
England
|
Buddying
|
Acute care
|
Twelve trusts as case studies, involved in buddying; using surveys, desk research, structured interviews and documentary analysis
|
Fowler Davis, Hinde and Ariss (2020)
|
England
|
NHS Vanguards
|
Health and social care
|
Service evaluation with embedded team; qualitative in-depth interviews
|
Fulop et al. (2002)
|
England
|
Merger
|
Health and social care
|
Nine trusts (cross-sectional) and four trusts (case studies); using in-depth interviews and documentary analysis
|
Gannon-Leary, Baines and Wilson (2006)
|
England
|
Partnerships (mixed)
|
Health and social care and voluntary sector
|
Evaluation and literature review; narrative ‘experiential’ methodology
|
Gulliver (1999)
|
England
|
Joint commissioning, mental health
|
Health and social care
|
Evaluation; narrative ‘experiential’ methodology
|
Gulliver, Peck and Towell (2001)
|
England
|
Joint commissioning, mental health
|
Health and social care
|
Evaluation of a mental health service; utilising interviews with service users & staff, postal surveys, focus groups, observations, and documentary analyses
|
Hearld, Alexander and Shi, (2015)
|
USA
|
Alliances
|
Health and social care
|
Case study of 16 alliances; quantitative data from surveys and qualitative interviews
|
Henderson et al. (2020)
|
USA
|
Primary care network
|
Health and social care
|
Evaluations of six primary care clinics and community-based organisations; qualitative methods comprising 54 interviews and 10 focus groups, with review of 80 documents
|
Idel (2003)
|
Israel
|
Merger
|
Acute care
|
Prospective study with quantitative methods; using a questionnaire; n = 128 participants
|
Jones (2020)
|
England
|
Primary care network
|
Primary care
|
Report of experiences; narrative ‘experiential’ methodology
|
Kershaw et al. (2018)
|
England
|
Sustainability and Transformation Partnership
|
Health and social care
|
Case study of five STPs in London; phase 1 (small scale interviews with leaders), phase 2 (26 semi-structured interviews with leaders and stakeholders) and groups discussions.
|
Lalani et al.(2018)
|
England
|
Quality improvement collaborative
|
Acute care
|
Evaluation with researcher-in-residence model, based on two sites, comprising 15 semi-structured interviews
|
Leach et al. (2019)
|
England
|
Buddying
|
Health and social care
|
Evaluation; using quantitative performance data and mixed methods staff survey
|
Lewis (2005)
|
Australia
|
Primary care partnership
|
Primary care
|
Case study of two PCPs; using a network research methodology including both surveys and interviews with 37 people
|
Lim (2014)
|
UK
|
Merger
|
Health and social care
|
Quantitative analysis of merger data from nine hospitals relating to staff job satisfaction
|
Maniatopoulos et al. (2020)
|
UK
|
Vanguards (eleven different cases)
|
Health and social care
|
Comparative case studies including 66 semi-structured qualitative interviews across nine vanguards, as well as documentary analysis of included
|
Mervyn, Amoo and Malby (2019)
|
England
|
Network
|
Health and social care
|
Exploratory case study employing 12 initial semi-structured interviews, a literature review, and then an additional 21 interviews with another sample
|
Murray, D’Aunno and Lewis (2018)
|
USA
|
Accountable care organisation
|
Health and social care
|
Longitudinal case studies from 2012 to 2017 with two ACOs, including 115 semi-structured interviews and observational data based on 7 site visits
|
Naylor, Alderwick and Honeyman (2015)
|
England
|
Integrated care
|
Health and social care
|
Five case study sites with acute hospital providers that have moved towards integrated care, utilising 39 in-depth interviews and site visits
|
NHS Employers (2017)
|
England
|
Vanguards
|
Health and social care
|
In-depth case studies on three vanguards including semi-structured interviews (n = 13), focus groups (n = 3), and documentary evidence
|
NHS Providers (2019)
|
England
|
Integrated care
|
Health and social care
|
A briefing by a policy organisation that uses interviews (unknown number)
|
NHS Providers (2018)
|
England
|
Integrated care
|
Health and social care
|
Case studies from three health and social care partnerships in England, in the format of a series of organisational reports
|
NHS Providers and NHS Clinical Commissioners (2018)
|
England
|
Joint commissioning
|
Health and social care
|
Policy report drawing on a literature review and in-depth semi-structured interviews with clinical commissioning (n = 9), national thought (n = 5) and provider leaders (n = 10)
|
Peck, Towell and Gulliver (2001)
|
England
|
Joint commissioning
|
Health and social care
|
Case study of a combined Trust; using annual semi-structured interviews with managers, postal surveys with (n = 169 in 1999 and n = 143 in 2000), and exploratory workgroups
|
Pickup (2004)
|
England
|
Integrated care/joint commissioning, mental health
|
Adult services
|
Case study in the format of an ‘experiential report’
|
Round et al. (2018)
|
England
|
Integrated care
|
Primary, acute, community, mental health and social care
|
Programme evaluation design; using documentary analysis, 31 stakeholder semi-structured interviews, focus groups, and observational data
|
Shaw (2002)
|
England
|
Mergers
|
Health and social care, integrated Trust
|
Case study of merger of two trusts; using qualitative methods and semi-structured interviews with 42 people. Documentary analysis was also used
|
Smith et al. (2020)
|
England
|
Primary care networks
|
Primary care
|
Qualitative cross-comparative case study across four sites using: rapid evidence assessment, a workshop with academics and policy experts, interviews with stakeholders, observations, survey, documentary analysis
|
Southby and Gamsu (2018)
|
England
|
Integrated care, primary care networks
|
Primary care and voluntary and community sectors
|
Case study design comprising four cases, each with a GP and VCS organisation; using 18 semi-structured interviews with GPs, practice managers, practice nurses, and senior managers, and a focus group of 14 participants
|
Southwark and Lambeth Integrated Care (2016)
|
England
|
Integrated care
|
Health and social care
|
Report regarding organisational experience of an integrated care programme; using evaluative as well as anecdotal evidence
|
Starling (2018)
|
England
|
Vanguards
|
Health and social care
|
Case studies, interviewing 45 middle-to-senior clinical and non-clinical leaders and evaluators across eight vanguard sites
|
Steininger et al. (2016)
|
Austria
|
Hospital merger
|
Acute care
|
Qualitative case study of the merge of IT systems; involving interviews with 40 stakeholders
|
The King’s Fund (2005)
|
England
|
Joint commissioning
|
Community care
|
Report as part of an evaluation; observation and interviews were used (unclear quantities)
|
Timmins (2019)
|
England
|
Integrated care
|
Health and social care
|
Analysis of leaders’ experiences with integrated care and collaboration in a report format; based on interviews with 16 chairs and leads
|
Theoretical findings
Data extraction
A custom data extraction form was created which recorded the study, partnership type, primary driver (as best deduced from the study), CMOCs which fit into prior theory, and novel CMOCs (which could be novel in context, mechanism, or outcome), which did not fit wholesale into the prior theory. This type of custom form is typical in a realist synthesis (82). Additionally, we attempted to extract whether studies were reporting on externally mandated forms of partnering or voluntary forms, but it was not always possible to determine this information, unfortunately, due to inconsistent reporting of this by authors.
CMOC Coding and establishment of CMOC chains, refinement of mechanisms
Extraction of CMOCs from included studies resulted in 338 CMOCs being identified, many of which were functionally identical and analogous to ‘demi-regularities’. The full list of these can be viewed in additional file 2. As such, there are too many CMOCs to explore here in detail, and the majority of them have been explained in our prior paper (18). As previously mentioned, coding of CMOCs was performed according to which mechanism the context configures. The below ‘initial mechanisms’ were used as preliminary deductive codes; however, these were updated as CMOCs with other mechanisms were identified in the literature (Table 2). By the end of the process, it was clear that new CMOCs were not being identified. In terms of frequency, those most identified were CMOCs with trust or confidence as the mechanism, then ‘perception of progress’, faith, interpersonal communication and information sharing, task complexity, cultural assimilation, conflict, clarity and sharedness of vision. For the sake of brevity and due to the complexity of inter-organisational collaboration, every CMOC and the contextual factor will not be explored here, but they can be found in additional file 2 along with the full table of CMOCs identified in each respective paper.
Table 2
Mechanisms present in prior phase of realist synthesis (left) vs. refined theory (right), an explanation of these mechanisms, and which outcome these mechanisms typically produce.
Initial mechanisms
|
Refined mechanisms and their type
|
Explanation
|
Most frequent outcome
|
Task achievement and performance
|
Effectiveness through collaboration: enabling innovation, reduced duplication of effort, sharing of best practices, increased access to resource, reduced gaps in services, increased influence over others
|
The ‘ultimate outcomes’ that usually underlie actual improvements to key metrics of organisational performance
|
n/a
|
Synergy and collaborative inertia
|
Changes towards collaborative behaviour from competitive behaviour (behaviour)
|
A move from competitive organisational behaviours to collaborative ones
|
Collaborative effectiveness
|
n/a
|
Risk threshold (cognitive process)
|
How much risk an organisation is willing to take on with a collaborator
|
Collaborative behaviour
|
Faith
|
Faith (cognitive process)
|
A belief in the collaborative endeavour as a positive force and therefore a motivation to work on its goals
|
Collaborative behaviour
|
Perception of progress
|
Perception of progress (mindset)
|
Whether actors perceive advancement towards the goals of the collaboration
|
Faith
|
Conflict
|
Conflict (mindset)
|
The perception by organisational actors that they are in opposition to collaborators in some way
|
Trust
|
n/a
|
Approach to conflict resolution and accountability (cognitive processes)
|
Processes and attitudes in place that lessen the severity of conflict
|
Conflict
|
Trust
|
Trust (cognitive process)
|
“A psychological state comprising the intention to accept vulnerability based upon positive expectations of the intentions or behaviour of another” (83).
|
Risk threshold
|
Confidence
|
Confidence (cognitive process)
|
A belief that a collaborator will behave collaboratively due to contractual or other obligation
|
Risk threshold
|
Initial trust
|
Initial trust (cognitive process)
|
Trust that manifests as a result of pre-existing contextual factors
|
Trust
|
Power
|
n/a (now a contextual factor)
|
Whether one organisation has more influence on proceedings than another
|
Trust
|
Leadership
|
n/a (now a contextual factor)
|
The set of behaviours and attitudes that key organisational leaders possess
|
Trust
|
Cultural integration
|
Cultural assimilation (cognitive process)
|
How well actors between organisations are aligning in terms of attitudes and behaviours
|
Trust
|
Interpersonal communication/ coordination
|
Interpersonal communication & information sharing (behaviour)
|
The behaviour of communicating and sharing information
|
Trust
|
Perception of task complexity
|
Perception of task complexity/initial faith (cognitive process)
|
How complex actors perceive the collaborative endeavour to be
|
Faith
|
n/a
|
Clarity and sharedness of vision (cognitive process)
|
How well-defined and to what extent the vision between partners is agreed-upon
|
Trust
|
n/a
|
Perceived legitimacy of collaboration (cognitive process)
|
How actors perceive the collaboration in terms of its authenticity
|
Initial faith
|
Refining the CMOCs of collaborative functioning
This refinement of our realist synthesis gave greater insight into how CMOCs are situated in the timeline of development of collaborations, which is how we have oriented this analysis. Additionally, it has given further insight into atemporal elements, or those that can occur at any time, and how these affect process.
Mechanisms specific to early stages of collaboration
Our initial CMOCs (18) identified that, essential to establishing ‘initial faith’ i.e. whether engaging in collaboration is feasible, and worth the risk and effort, are factors such as financial constraints, the regulatory environment and its favourability to collaboration, and organisational size (which may affect the perceived difficulty of the task). A further contextual factor identified in this refinement stage was the reputation of the specific form of collaboration being considered; for example, some papers referred to negative perceptions due to collaborations being associated with privatisation of the NHS (58). This lowered actors’ desire to engage with this form of collaboration in the first place (their initial faith in the endeavour).
Related to the level of initial faith is that of initial trust. Initial trust was put forward in phase 2 of our realist synthesis as likely to come into play in the ‘Connecting’ phase of collaboration, during which organisations seek partners and establish initial relationships. Contextual elements identified as essential to determining this initial level of trust are the history of collaborating or competing between the organisations (58, 63, 74, 75), their organisational reputations (67), and at a later stage, the strength of legal agreements (69). These factors have been found to serve as glue where trust is lacking, or to simply act as an initial reassurance when relying on a partner (43, 67). Furthermore, this refinement stage identified also that a context of a known history of health system failures in the region can also lower initial trust (70), evidenced by NHS Providers (2018) who put forward that “a legacy of challenges led to a break-down in trust and dialogue and an entrenchment of organisational ‘fortress mentalities’ (70). As trust and risk are intricately linked, this level of initial trust is essential to setting the degree of risk an organisation is willing to take on with its partner, which can affect the aims and outcomes a partnership seeks to accomplish (65, 67).
Middle stage of collaboration
During the ‘mid-life’ of a collaboration, a multitude of factors come into play which can help rapidly increase the level of trust, buffering against potential conflicts that may occur. Chief among these are ‘quick wins’ with a partner, which also help to increase faith (49, 67). These small successes serve to rapidly bolster trust and can be increased further through factors such as seconding staff (71, 72), and having open, honest, stable, and empathetic leadership (70, 81). Alongside these quick wins are longer-term battles, such as the need to ensure effective interpersonal communication between key organisational actors, managing conflict (46, 51, 65, 66), and either creating a new culture or helping build bridges between existing ones (30, 39, 75).
With respect to ensuring appropriate communication between collaborators, a number of contextual elements are key. Geographical proximity is one element that is difficult to mitigate as it increases time spent building relationships significantly (48) and was most often cited as improving communication, but can also be unhelpful if conflict is already occurring (55, 76). Additionally, having a larger size and/or number of organisations involved can make communicating more difficult due to the increased number of involved actors and moving parts (50). IT system compatibility (45, 75), joint appointments (66), and having regular collaboration-wide meetings can also work to increase trust as an outcome through the mechanism of interpersonal communication (44, 60). When cultures are mismatched or not mutually understood, conflict can occur, which thereby reduces trust (71). Improving cultural assimilation by configuring the context is also possible, which can go on to enhance trust - mutual cultural understanding can be fostered by ensuring a shared vision of the collaboration is in place (39), by having a cross-organisational ‘inspirational leader’ who also engages in role-modelling behaviours (44), by supporting staff through the transition (56), and by making joint teams of staff to work on shared goals, improving sense of collegiality (38, 40). It was evident in the literature that certain passive elements, such as the pre-existing degree of cultural distance and whether or not the collaboration is perceived as forced upon staff, can also significantly change the difficulty of cultural assimilation (81).
Atemporal elements impacting collaboration
Conflicts between organisations can occur as a result of deteriorations in trust, as a result of ‘acute events’ such as failures on specific tasks, from accumulating tensions caused by cultural distance, for example (18, 65). Conflicts directly cause a loss of faith in the collaboration and trust between partners (18). As such, there is a reciprocal relationship between conflict and trust, and conflict and faith (Fig. 4). This is supported by excerpts such as: “Conflict, for example, due to competition between partners, increases the difficulty in predicting the partner’s behaviour and increases the uncertainty in the decision to trust” (67). Reductions in faith can also lead to intra-organisational conflict (18). We also found that conflict can be modulated when it occurs by the approach to conflict resolution, now a mechanism in itself in this refined theory, which can dampen the impact of conflict on trust or faith.
This refinement stage further identifies that use of external, impartial deal brokers and committees can lessen the impact of conflict on trust by moving the locus of that trust to the third party rather than the partner (51), along with having robust governance structures which are not imbalanced in either direction in terms of power (66). Likewise, conflict itself can be mitigated by leaders bringing a constructive approach to conflicts, by proactively attempting to reduce power imbalances, and by avoiding or managing any senses of takeovers in the case of mergers or other more integrative collaboration types (67). While conflict interacts with both trust and faith, so too does the degree to which the collaborative vision is shared and its clarity. The clarity of vision is more keenly interlinked with faith, which is supported by quotes such as “most sources concur that a clear vision and/or mission statement should include attainable goals and that lack of clarity about vision can be a serious barrier to engagement” (51), and engagement can be considered similar to our concept of faith. However, the sharedness of the vision works through the mechanism of trust, as sharedness relates directly to the inter-organisational perception of each organisation. The clarity and sharedness of vision are affected by patient and public engagement, which helps keep the focus on improving care quality rather than secondary objectives, having inclusive decision-making processes, and stable leadership. In many cases, significant leadership turnover meant starting over with trust building exercises, due to large changes in vision occurring (41, 54).
As a final look into the role of faith, a key mechanism which links into faith as an outcome is ‘the perception of progress’. The perception of progress is interwoven with faith - but is not entirely the same concept (as one can have faith without much perception of progress). The perception of progress is essential for ensuring that momentum is maintained and there’s no stall into what is termed ‘collaborative inertia’, a situation in which there is insufficient faith to maximise work on the collaboration (44). Having an increased perception of progress increases faith, and a lesser perception of forward momentum reduces it. This is supported by quotes from healthcare leaders such as the following: “So it is harder and less dynamic at the start, until you get a drumbeat going. Then it becomes easier because the peer group start doing it for you” (81). Affecting this perception of progress are contextual factors such as appropriate degrees of ambition (overambition can lead to disappointment) (73, 77), implementation of ‘quick wins’, having effective planning, which ensures staff are working on the most appropriate projects at the right time (42), and, importantly, having effective evaluation processes which ensure staff are aware of the progress being made (77, 84). Also tied into faith as a precursor mechanism is the perceived legitimacy of collaboration, which often affects a collaboration from the outset. Impacting this mechanism is stakeholder involvement, which can serve to increase its legitimacy in the eyes of staff, whether a partnership is voluntary or not, and whether staff perceive the collaboration as a threat professionally (56).
These various review findings suggest a web of contextual elements operating through many mechanisms, to produce many outcomes, forming causal chains (Fig. 5). Some of these can be altered to be more beneficial to implementers (e.g., keeping ambitions realistic), and some cannot (e.g. geographical proximity). While these elements discussed are those which underlie the functioning of the partnership, the review also identifies mechanisms which underlie material improvements to organisational performance.
Refining CMOCs driving partnership performance
As trust and faith are maximised, work on managing conflicts, building collaborative structures, and establishing relationships decreases. As a result, time and effort are freed up to create the conditions for collaborative ‘synergy’, which in our refined theory, refers to a willingness to engage in collaborative behaviour rather than competitive behaviour (Fig. 4). Once risk tolerance and faith are maximised, partners can strike out to work on risky innovations together, share best practices, pool resources, bid for contracts together, increase market power, reduce duplication of effort, and better focus on inequalities in the health system. These are the mechanisms through which ‘ultimate outcomes’ of collaboration (i.e. performance improvements) are realised - occurring as a result of an accumulation of skill, knowledge, and resources being brought to bear against problems encountered by the partnership. However, these benefits seldom come to fruition due to the sheer amount of work and goodwill that is required to rise above the quagmire of the daily functioning of the partnership, explaining why many collaborations are not successful. Studies capture contexts where “too much was being expected too soon… as they were still working out how to function operationally before they could accomplish goals such as decreasing workload and improving care”(75).
Achievement of this synergistic state is extremely difficult as many collaborative endeavours are ‘set up for failure’ due to initial contextual conditions being configured in such an unfavourable manner that it becomes insurmountably difficult to build the relationships required (12). These difficult contextual conditions can include a regulatory environment that still revolves around competition rather than collaboration (66), mandated partnerships and integrated care initiatives that do not allow for building of relationships, brought into place in conditions of pre-existing histories of competition and ‘bad blood’ (70), and a lack of financial support or consideration provided for collaborative endeavours to be implemented properly (58). As outlined by our theory, these common contextual factors serve to undermine initial trust in partners and initial faith in the process and increase task complexity to a degree that makes them very difficult to overcome. One quote from an included study of buddying arrangements in the UK reflected this clearly: “Interviewees repeatedly said how difficult it would have been if their buddying arrangement had been imposed, and indeed those arrangements seen to be imposed by regulatory bodies appear to be have been the least successful” (48).
There are also implications for cross-sector initiatives, such as Integrated Care Systems or ACOs. In addition to many of these being mandated, cross-sector working brings additional challenges by requiring cross-sector working between many from differing professional backgrounds. These professional differences manifest in a greater degree of cultural divide – a barrier which was referenced by many of the included case studies (65, 67). Likewise, in cross-sector arrangements, the number of partners and size of the involved organisations is likely to be greater, which further increases the difficulty of communicating effectively and clearly, and results in much higher task complexity. These are all concerns which require great tact to mitigate.
Refinements by collaboration type and collaborative functioning
Our initial rough realist theory suggested that partnerships can be characterised along a spectrum of integration from full integration (i.e. mergers) to more informal endeavours involving fewer people (i.e. buddying, clinical networks) (27). Such differences between partnership types are also reflected in our findings as changes to contextual elements (i.e. whether they are mandated or not) can affect the task complexity, perceived legitimacy, faith, and initial trust. Our review identifies how it is possible to trace how these impact on implementation. For example, a voluntary buddying arrangement is likely to be relatively simple to implement, as it is unlikely to be perceived as threatening by staff, does not involve many organisations, and, while not supported by formal legal agreements, is likely to involve partner self-selection. This arrangement is likely to start with a high degree of initial trust between partners and initial faith in the process.
On the other hand, Integrated Care Systems - which are now mandated to come into force in 2021 - involve a significant number of large organisations coming together in a cross-sector manner, including local councils, primary and social care, and acute care (1). This drastically increases task complexity by being cross-sector and having many involved organisations. Additional challenges include that it is likely such a move may be perceived as a threat by staff, reducing faith by reducing its legitimacy in their eyes. It is also likely to increase difficulty of effective communication by having both great breadth and depth of organisations involved, making trust building more difficult, and there may be reduced initial trust from outset by being set in a local context of pre-existing competitive attitudes. In addition to that, being given a rapid timeline while having to overcome prior differences and conflicts poses an additional challenge which requires a strict patient-centred focus shared across the system to overcome.
Our programme theory suggests that formalisation through contracts may be one means of enabling collaborative behaviour in such a situation where initial trust is likely to be low or complexity very high. The following section explores further how trust may be replaced by confidence as a primary driver for collaborative behaviour in mandated or integrative collaboration types.
Trust versus confidence in integrative and mandated partnership types
In phase 2 of our realist synthesis, we identified a common CMOC which suggested that the formalisation of an arrangement through contracting facilitated trust relationships by having potential to act as a buffer where trust may otherwise be lacking (18). However, we also found evidence that with either mandated or otherwise more integrative types of partnerships, trust may be less necessary for collaborative behaviour to occur (mandated). This was the case when collaboration would be mandated, or where there was too great a complexity to manage (i.e. with more integrative collaboration types). Instead, there may be a move towards a sense of confidence that partner will act collaboratively as a result of contractual obligation, rather than a trust that they will do so. However, we also maintained that increased trust would still be helpful, even in integrative collaboration types, but that it may not be the primary determinant of collaborative behaviour. That role would instead shift to confidence (18).
Our updated review sought to further understand the relationship between confidence, formalisation, risk tolerance, and trust. While difficult to identify relevant information, our included literature identifies an inherent mistrust taking place in organisations involved in mandated partnerships, with perceptions of ‘taken over’, atmospheres of ‘them and us’, and domination of powerful partners resulting in a lack of trust and partnership strength (47). Next to this lack of trust in mandated collaborations, formalisation was seen by sources as a means for risk management. Use of controls and contracts “to minimise uncertainties of behaviour by partners” had value in instances where trust was low (67). Another source put forward the notion that formalisation through contract is “primarily about managing risk, trying to situate the risk with the organisation/s most able to mitigate it, and giving them the power to do so.” (70). As such, we have added the concept of confidence, built through formalisation, to our programme theory diagram, as a determinant of risk tolerance (Fig. 6). Greater confidence (context) will thereby increase risk tolerance (mechanism) for engaging in collaborative behaviour (outcome) (Fig. 6).
However, while some sources were espousing formalisation as a means for improving trust, it was evident that other sources were warning that over-formalisation could undermine the trust-building process, as “[the] contribution [of contracts] is less in subsequent phases once trust grows, not least because early contracts cannot anticipate every eventuality” (67). This sentiment is echoed by quotes such that “although a lot of the joint commissioning processes described to us were formalised and structural, people often recognised that joint working is essentially relational (based on informal conversations and interactions)” (43). Other sources not included in our systematic search indicate that when contracts are in place to uphold risk-sharing, benevolent actions are not attributed to free actions by the partner, but rather to the mere existence of the contract (85). This suggests that non-binding agreements, such as memoranda of understanding commonly used in the NHS, may be more appropriate for building that relational trust (85).
These findings indicate that voluntary collaborations should be careful not to rely on structural means of obligating collaborative behaviour where they should be focused on building relationships. MoUs, while generally non-binding, increase trust between collaborators and thereby reduce perception of risk taken on when engaging in collaborative behaviour (61). We hypothesise that these non-binding contracts may be most appropriate as a tool to increase risk tolerance for less integrative or voluntary arrangements, where there is a risk of misattribution to obligation rather than genuine collaboration with the use of binding contracts (6). As Casey (2008, p. 77) puts forward “there is a need for a balance between power sharing and control, between processes and results, between continuity and change and between interpersonal trust and formalized procedures.”
The notion that more integrative or mandated partnership types may require a more contractual governance structure, whereas less integrative or voluntary partnerships may rely on a more relational structure, is supported by other findings in the literature (86). This is exemplified by the finding that “the strongest effect measured in the model is the overall effect of relational norms on project performance (including the mediating effect of partners' trust and partners' contribution)” (86). Likewise, they identified that project complexity affects the uncertainty about the partnership project, requiring greater structural and relational governance to properly overcome. This understanding underlies our programme theory which suggests that in more integrative or mandated collaborations, formalisation through contracts reduces risk to engage in collaborative behaviour by making the collaborative behaviour obligatory. However, in more voluntary or less integrative types of collaboration, having binding formalisation can lead to misattribution of altruistic behaviour to the existence of the contract, undermining trust.
A novel means of depicting CMOC chains: ‘causal webs’
Our review findings suggest that CMOCs formed chains of generative causality as a result of the Outcome of one CMOC becoming the Context for another. For example, a larger organisational size (context) leads to greater task complexity (mechanism), which affects people’s faith in the process (outcome) (45). However, further down the chain, faith is a context in which collaborative behaviour (mechanism) occurs, leading to improved synergy (outcome). As such, the ‘chains of causality’ emerged naturally from the linkages between CMOCs. As there is no common standard for how to depict CMOC chains in realist syntheses, we found that it was appropriate to depict our findings in the ‘causal web’ shown in Fig. 5. Elements that only serve as contexts are represented in blue boxes, and mechanisms/outcomes as ellipses. As such, in the figure, it should be easy to follow the aforementioned example of CMOC chain in the figure from organisational size (context 1) through to synergy (outcome 2). This mode of representation draws similarities with the concept of a ‘context map’ put forward by Renger et al. (2015) for use with realistic evaluations, however, our approach expands it by including both mechanism and outcome in the web with their own means of representation. Yet, it is important to note that the diagram does not depict how specific contexts alter the mechanisms, only which mechanisms are attached to which contextual factors, and which outcomes to which mechanisms (87). Instead, Fig. 7, updated from our version in phase 2 based on present refinements, depicts some of the how of the workings of the CMOCs we identified.