LT-21-04-Power-in-Big-Local-partnerships.pdf

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 1/78 - Power in Big Local partnerships

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 2/78 - About this report This report is about p…

About this report This report is about power and the practice of decision making in Big Local: a resident-led, place-based programme. It is based on ethnographic research with Big Local areas. The work forms part of the Local Trust research strategy 2021-26, and was commissioned to help Local Trust support Big Local areas to understand how power works at the partnership level and develop resident-led practice. Dr Dawn Lyon, Dr Carin Tun�ker, Keira Pratt-Boyden and Professor Dimitrios Theodossopoulos Local Trust is registered in England and Wales, charity number 1147511, company number 07833396. localtrust.org.uk This work is licensed under the Creative Commons Attribution-NonCommercial-ShareAlike 4.0 International License. To view a copy of this license, visit http:// creativecommons.org/licenses/by-ncsa/4.0/

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 3/78 - Contents

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 4/78 - 1. Executive summary

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 5/78 - What counts as a decision? Culture, powe…

What counts as a decision? Culture, power and processes

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 6/78 - Membership, recruitment and diversity

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 7/78 - Spaces of communication and decision mak…

Spaces of communication and decision making

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 8/78 - Conclusions and recommendations

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 9/78 - 2. Acknowledgements

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 10/78 - 3. Introduction

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 11/78 - Colin McPherson

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 12/78 - Researching power through virtual ethnog…

Researching power through virtual ethnography

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 13/78 - 4. What counts as a decision? Culture, p…

4. What counts as a decision? Culture, power and processes

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 14/78 - In our everyday lives, we make decisions…

In our everyday lives, we make decisions continuously.These decisions could be as simple as deciding whether to go left or right, choosing what to wear that day or what to have for dinner. Some are complex and have extensive consequences, such as deciding to move house or change our work. We think about and consider some decisions, perhaps discussing them with family, friends or colleagues before making them. We make others without even thinking about them first. In our research, members of the different partnerships mentioned a difference between small and big decisions and how the decisions size affects the level of discussion and communication medium used.The size also affected whether everyones involvement in the partnership was considered necessary to take the decision. Most partnership members thought smaller decisions were acceptable to take in smaller groups, or even by one person, mainly to minimise time. However, we noted there were hidden levels of decision making, and sometimes long lead-ins to a significant decision shaped how the final decision was made, reflecting who holds power in the partnership.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 15/78 - Decision-making processes

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 16/78 - Sample decision process: funding a new p…

Sample decision process: funding a new project

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 17/78 - Example 1

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 18/78 - Table 1: Decision-making types

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 19/78 - The grey space between formal and inform…

The grey space between formal and informal decisions

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 20/78 - This idea of transparency and accountabi…

This idea of transparency and accountability also has a significant impact on how power operates in Big Local partnerships, and indeed in any organisation. West and Sanders (2003) criticise the tendency in global businesses and institutions to make `transparency claims, that is, to suggest that power operates in the open and is visible.They suggest that often practices around transparency in fact obscure power. For example, in the Big Local context we noted that in Area E (see appendix B for details of areas), they employ an external minute taker to record all meetings and display these on the website. In Area A and B, they record Zoom meetings so there is a permanent record of decisions made. And Area D hits the record button as soon as members go to a vote. All of these transparency practices lead to an understanding by partnership members that only recorded and minuted discussions are real decisions, thereby obscuring the (un-recorded) processes that lead to the formal votes.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 21/78 - For effective decision making it was nec…

For effective decision making it was necessary to have a good strong hand before you play the cards. You have to know, or have a good inclination as to whether other people on the board were before you made an arse of yourself and bought in a fresh project that people just tore apart, and then you couldnt bring it back because it looks like youre having two bites of the cherry. [...] Decisions werent made in the room; they were made before. You had to take into account peoples input but decisions are usually made before."

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 22/78 - 5. Partnership rules and agendas

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 23/78 - Rules and regulations: In mind and on th…

Rules and regulations: In mind and on the page

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 24/78 - Terry McNamara

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 25/78 - Table 2: The role of rules and the scope…

Table 2: The role of rules and the scope of possible action Beliefs and understandings Actions

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 26/78 - Developing specific rules and regulation…

Developing specific rules and regulations to support decision making in Big Local partnerships often occurs through assumptions about the right way to operate. Local areas may rely on the existing knowledge of individuals who offer what appears to be relevant expertise from other settings � an instance of `knowledge as power. In the following example, a partnership member with a professional background in public service developed terms of reference and members valued his knowledge, although some considered the approach to be heavy.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 27/78 - Whose agenda? Organising meetings and ag…

Whose agenda? Organising meetings and agreeing topics for discussion

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 28/78 - Any other business is their chance to br…

Any other business is their chance to bring up any issues that are close to their hearts. Anything that theyd like us to do. Any comments theyve got on what were doing. And theyre not [...] backward in coming forward to offer their opinions. If they think were doing something wrong we will hear that they think were doing something wrong. Which is � in my job � absolutely wonderful. I may tut and roll my eyes and go `oh back to the drawing board, but that sort of feedback � well that feedback is just invaluable because I know what direction then to take for things Im doing."

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 29/78 - Despite everyone having an opportunity t…

Despite everyone having an opportunity to add items, not all topics are given the same importance. Chairs and workers have the power to shape the tone of discussion and thereby direct decision making. Some members emphasise their `strong commitment to transparency while others recognise the power of their role: "But the chair would have influence over the things that they want to be highlighted and raised" (resident member). In the first example below, we might interpret the first example of a worker below as a case of `providing leadership for others (Pearce, 2013) in a way that is transparent and accountable. In the second example, resident members of the steering group have organised to defend residents ideas against the potential criticism of agencies.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 30/78 - Overall, those who chair meetings have a…

Overall, those who chair meetings have a difficult role.They appear to feel a tension between making space available for discussion and sustaining focus.They are aware that meetings "could get derailed quite easily" (Big Local worker), and some have experiences (including outside Big Local) "where people have tried to run off with their own agenda" (resident member) and set priorities that do not meet all the communitys needs. Formal documents and agreements can help to keep discussion and activity on course: "So weve got a plan, we know what we want, this is in the plan, were doing it because the plan was agreed." (Big Local worker).

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 31/78 - However, compared to the perceived slown…

However, compared to the perceived slowness of council processes, with "so much bureaucracy to wade through", some interviewees appreciate the possibility of making decisions promptly and with good outcomes. In the following example, rules include a quorum for making decisions outside meetings that allow them to act swiftly while remaining accountable.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 32/78 - 6. Membership, recruitment and diversity

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 33/78 - Intersectionality: How race, gender, dis…

Intersectionality: How race, gender, disability and class impact decision making

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 34/78 - In our research, we noted that partnersh…

In our research, we noted that partnerships often spoke about diversity as something to be proud of or aspire to. However, even if the will is there, partnerships face the same obstacles in broader society. Having representation from a wide range of people in a partnership can help to question the taken-for-granted norms of who should occupy which roles. Intentional representation around the decision-making table (virtual or not) enables participation. Diversity can mean different things, but it meant having multiple perspectives at the table for the research participants to whom we spoke. As one resident member reflected, "we dont want the same faces" in the partnership. Other members echoed that having a good mix of individuals led to a balanced perspective, as a Big Local resident from a BAME background describes below:

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 35/78 - Thats the way it goes: On not accepting …

Thats the way it goes: On not accepting the status quo about ethnicity

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 36/78 - Occasionally, some members from a BAME b…

Occasionally, some members from a BAME background in partnerships found themselves called upon to comment on specific issues that reflected their personal experiences and characteristics. One resident member remarked that during meetings when there is something related to "Muslim or Arabic content... my background or culture, I need to tell them whats acceptable and whats not, or how to approach [it]". Our observations reflected this, when during one meeting, the (white) chair called upon two of the members who were from a BAME background (who had been predominantly silent throughout

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 37/78 - Vignette on race

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 38/78 - We heard one example where a person who …

We heard one example where a person who had experiences of racism (outside Big Local) found it difficult to participate and resigned. Reflecting on this, other members commented that this particular individual had brought their hurt, issues, and negative experiences to meetings and this had become a struggle for everyone.These comments and difficult experiences reflect the knowledge of the impact of racist microaggression and structural violence on individuals; the pervasive, repeated and daily experiences of racism (including verbal, visual or non-apparent), which contribute to stress and negative mental health outcomes (for example, Solorzano et al., 2000, and Embrick et al., 2017).

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 39/78 - On these estates you do have a high leve…

On these estates you do have a high level of mental health [problems]. [...] Its about accountability. They dont want anyone looking too closely because theyre paranoid with the[ir] mental health, theyre terrified of getting their children taken away. They just live with a lot of maybes, and ifs and buts, you know."

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 40/78 - Recruitment of partnership members

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 41/78 - contrast, others noted more dropouts and…

contrast, others noted more dropouts and less recruitment during COVID-19 (they mentioned higher physical and mental health problems during this time, which acted as barriers to participation) and the extra struggles of those with caring responsibilities.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 42/78 - confident, speaks with a sense of author…

confident, speaks with a sense of authority or passion", people that "genuinely care" and are "empathetic" with "emotional intelligence" as valuable members.These characteristics had to be balanced with others. But as one participant remarked, they must understand emotion and "not let their views impact the running of what were doing". Some members felt that Big Local encouraged certain types of people and kinds of working: "I heard on the grapevine that a Big Local was being set up and theyre interested in getting people from agencies as well, to try and help the procedures". Another resident member felt that he was a successful candidate because of his professional experience, commitment to his community, and the fact that he "wont get bullied or pushed around". Members did not value aggressive ways of communication, including rigid thinking, and laying down the law, nor those who were perceived to use the partnership for their own agendas, such as putting money into their own businesses or gaining political power.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 43/78 - 7. Participation in decision making: voi…

7. Participation in decision making: voice, power and inequality

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 44/78 - Dominant voices and not hearing others

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 45/78 - In talking about meetings we either witn…

In talking about meetings we either witnessed for ourselves or heard about second-hand, interviewees referred to what they assumed to be common knowledge or shared understandings of how people should operate at community meetings. These understandings are guides to making sense of what is going on around them and are helpful for us all. But at times, the versions of the world we believe in can blind us to other, perhaps more troubling dynamics. In some of the accounts people shared with us, there was a view that dominance and powerlessness could be explained by confidence, personality or "just the natural selection" or depending on peoples personal confidence.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 46/78 - This revealing moment arose in an interv…

This revealing moment arose in an interview when Carin was talking with a partnership worker.The worker refers to the "innate behaviour" of the professional who has learnt the rules of the game about conducting themselves at meetings. In sociologist Pierre Bourdieus terms, they have cultivated their `habitus, so they feel at ease.The speaker then draws a contrast, with some awkwardness and stereotyping, between steering group members with this kind of professional experience and ease and those without. Carin anticipates that the latter group, those without the ease of the professional, will have less of a voice at the meeting. Still, the interviewee surprises her by stating that they can also dominate.Then the interviewee judges that they do not do so appropriately.This is an uncomfortable revelation.They think they do not deliver their opinions "in the right way all the time" and are without "finesse".

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 47/78 - Quieter or silenced voices?

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 48/78 - Gender was not widely remarked upon exce…

Gender was not widely remarked upon except in terms of the proportion of men and women at meetings (see section five), which contrasted with our own observations. Although in some partnership meetings, women were at the helm and lively and active participants, in others they played a back-seat role, often remaining silent, or quiet, or only contributing after more dominant members had spoken or taking part in the final votes. In one case, the two women present in a meeting only spoke when the (male) manager had left the Zoom meeting.Their actions could have partly been due to the men holding manager and chair roles and therefore having more to contribute initially. However, our observations suggest that the two womens confidence improved and interactions opened up after the manager left, when there was no obvious leadership but space for reflection.These micro-level everyday encounters really matter for how participation is realised or inhibited. Gendered responses, such as men being more vocal in meetings, are commonplace in wider society and it is important to consider that this is likely to be the case in Big Local partnerships, too.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 49/78 - Yemi Alade

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 50/78 - Taking part and listening out for others

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 51/78 - Big Local reps and workers play a very i…

Big Local reps and workers play a very important role in the decisionmaking process and endeavour to help partnerships "find common voices, or one voice, to be able to engage with that kind of more strategic debate" (Big Local rep). We found through our research that Big Local reps mostly hold power, but choose not to use it unless necessary, or if called upon by residents. Reps level of involvement also varied in the different partnerships.They work with members to think through the consequences of proposals and prepare for meetings, drawing on their experience of project delivery since "we dont want them to take a terrible decision". Crucially, they place emphasis on giving people "all the information they need" rather than seeking to influence them. However, this is also complex, especially if the protection mentioned in the quote below means avoiding exploring certain ideas. That said, the relationships between Big Local reps, workers and residents are important opportunities for learning and collaboration. In contrast, the second quotation below recognises that autonomy and capacity building can also emerge from an apparent absence of such leadership in a genuinely resident-led moment.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 52/78 - 8. Spaces of communication and decision …

8. Spaces of communication and decision making

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 53/78 - You cant share pizza on Zoom: Organisati…

You cant share pizza on Zoom: Organisational culture in pandemic times

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 54/78 - On the importance of just popping by: In…

On the importance of just popping by: Informal space and atmosphere

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 55/78 - [At the community hub] ...wed have a lis…

[At the community hub] ...wed have a list of things that we need to do in that day, and by five oclock [...] we probably only done about two of them, because the idea of that is people come in informally, sit down, they have a cuppa, we chat to people, and then theyd go. Somebody else would come [...]. What we have done is weve been talking to people � thats important. So, that was brilliant for that because people would just wander in and sit down, grab a cuppa, grab a biscuit, grab a cake, or even sometimes go and get a butty, have their lunch with them, and thats exactly what we wanted that hub to be."

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 56/78 - Navigating online spaces

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 57/78 - How does Zoom affect participation?

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 58/78 - Denis Malachov

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 59/78 - I thought Id been a part of a team befor…

I thought Id been a part of a team before, but it wasnt like this. This is a really harmonious team, and thats one of the biggest positives from this lockdown situation is that while it forced us away from going to the office, or to our community space, to the hub, it put us all in the same box virtually and in that sense we got to know each other professionally so well that we really know each others skills. And we really know how and where to rely on each other. And yeah, Im grateful for that experience really."

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 60/78 - Connecting with the community during the…

Connecting with the community during the pandemic

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 61/78 - So [anonymous] in our steering group [is…

So [anonymous] in our steering group [is a] member that doesnt have a phone, so I cant phone her, shes not in our WhatsApp group and her emails are hit and miss. So, shes quite an interesting person to engage with. Like I say, she comes from a very different viewpoint most of the time. And she will � so she may not vote in a Zoom call but shell always follow it up with an email to me and say [...] `thank you for that and just to say I do agree with it or Im not sure thats a good idea. Mostly shell only email me if shes agreeing."

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 62/78 - 9. Conclusions: Practising power differe…

9. Conclusions: Practising power differently

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 63/78 - 10. Recommendations: Challenging barrier…

10. Recommendations: Challenging barriers, enabling participation

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 64/78 - Awareness of intersectionality

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 65/78 - � Be sensitive about the spaces where me…

� Be sensitive about the spaces where meetings are held (for instance, a pub might be inappropriate for Muslims or people with disabilities participating through Zoom).

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 66/78 - 11. References

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 67/78 - Garcia-Lorenzo, L. (2004).`(Re)producing…

Garcia-Lorenzo, L. (2004).`(Re)producing the organization through narratives: The case of a multinational, Intervention Research 1(1): pp. 43-60.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 68/78 - Sibley, S. (2005).`After legal conscious…

Sibley, S. (2005).`After legal consciousness, Annual Review of Law and Social Science 1: pp.323-68. Sol�rzano, D., Ceja, M. and Yosso, T. (2000).`Critical race theory, racial microaggressions, and campus racial climate: The experiences of African American college students, Journal of Negro Education 69(1/2): pp. 60�73. Villanueva, I., Stefano, M., Gelles, L., Osiria, P., Benson, S. (2019).`A race reimagined, intersectional approach to academic mentoring: Exploring the perspectives and responses of women in science and engineering research, Contemporary Educational Psychology, 59: pp. 1-17. Wenger, E. (1998). Modes of belonging. Communities of practice: learning, meaning, and identity. Cambridge, UK: Cambridge University Press. Williams, R. (1977). Marxism and literature. Oxford: Oxford University Press.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 69/78 - Appendix A: Power, participation and int…

Appendix A: Power, participation and intersectionality

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 70/78 - An insight from social theory is that po…

An insight from social theory is that power is inseparable from knowledge, as theorised by the French philosopher Michel Foucault (1980).Those who hold more power than others succeed in reproducing it � in a way that looks effortless and natural � because they have knowledge that others may not possess. In the context of decision-making, such as in community meetings, relevant knowledge includes information about the wider world, experiences of bureaucratic procedures, legal or financial expertise, or simply command of a technical or expert language (such as the language conventionally used in board meetings). Thereby, knowledge reproduces power, intentionally or unintentionally. At the same time, power provides access to knowledge, and through practice, confidence to exercise power knowledgeably.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 71/78 - relations might foster a better culture …

relations might foster a better culture of inclusion and one that limits the power of individuals or small groups. Power with is jointly developed power, which she calls `coactive rather than coercive.This form of power "nurtures cooperation and capacity to act but also impacts and generates change" (Pearce, 2013, pp. 641-46).

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 72/78 - Appendix B: Methodology

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 73/78 - Recruitment and selection of areas and I…

Recruitment and selection of areas and Interviewees

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 74/78 - Table B.2: Age, gender and ethnicity of …

Table B.2: Age, gender and ethnicity of participants

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 75/78 - the relatively small sample of participa…

the relatively small sample of participants. Additionally, we recognise that our very presence in meetings and observations may have affected the atmosphere, tone and process. We also recognise that those who come forth to be interviewed might be the more vocal and confident members of partnerships. We have not had the opportunity to discuss those members who have recently or historically left the groups. Furthermore, we are applying a critical lens to practices that perhaps partnerships take for granted and that have not questioned or considered before. Subsequently, our findings may come across as criticisms. We aim to encourage reflection rather than to criticise.Throughout the research, we have been humbled by the fantastic, dedicated and life-changing work that all the partnerships carry out. Individuals go above and beyond to make their communities better and to support one another. Each partnership takes much care and attention to ensure that they promote diversity and inclusion and that everyone has a say in decisions. We have found that this is done differently across the board and that there are opportunities to (re)-consider practices and try other ways of allowing voices to be heard.

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 76/78 - Published by Local Trust and the Univers…

Published by Local Trust and the University of Kent, April 2021. Contact details Dr Dawn Lyon, Principal Investigator: D.M.Lyon@kent.ac.uk Dr Carin Tun�ker, Lead Researcher: C.Tunaker@kent.ac.uk https://research.kent.ac.uk/cer/ https://localtrust.org.uk

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 77/78 - Power in Big Local partnerships 75

LT-21-04-Power-in-Big-Local-partnerships.pdf - page 78/78 - About Local Trust