Recognition of the interrelated causes of deprivation, social exclusion and academic underachievement has given rise to an intensifying call for partnership working and multi-agency approaches to education, both at supranational and national European levels (Edwards and Downes, 2013). In the process, partnership working has produced new challenges, dynamics and opportunities, many of which are reproduced across national contexts.
‘Killoch Homework and Cookery Club’ (KHCC) in the West of Scotland brought together public and third sector agencies (from within and beyond the education sector) to deliver community education for adults and children. This research project investigated the street-level dynamics of the partnership, posing the questions:
How do multi-agency working practices at KHCC compare with those documented in the extant international literature? How might these practices challenge or augment current theoretical understandings of street-level multi-agency working and inform future implementation of education partnerships in Scotland and elsewhere?
It was found that initially, partners at KHCC employed novel multi-agency practices, particularly in relation to the conception and management of risk. For three years, KHCC operated (stably and successfully) according to three principles of ‘informal solidarity’: i) the collectivization of risk; ii) an understanding of partnership as a constellation of personal, trusting relationships; and iii) the importance of a ‘social lubricant’ figure who informally cultivated a culture of responsive collaboration. Risk and uncertainty were accepted and adopted as organizing principles of community education work, rather than an unwelcome phenomenon to be managed and mitigated.
However, as the project became more established it fell under greater scrutiny from city agencies and a creeping discomfort and altered conceptualisation of risk developed. Following intervention from strategic actors, partnership working practices at KHCC underwent transformation, shifting from ‘informal solidarity’ to a phase of ‘structure and distrust’ characterized by rationalized, instrumental risk management processes.
Habermas’ theory of lifeworld colonization (1987) was used as a framework for understanding this transformation. KHCC brought the communicative realm of community, family and personal connection into contact with the rationalism and managerialism of formal education and large-scale state agencies. Frequently, the habits, languages and organizing principles of these two ‘worlds’ feel alien or are at odds with each other. Community education must sit on this very boundary and negotiate processes and outcomes that will be positively received from each side. Thus, partnerships become a helpful, yet highly complex and potentially contentious, tool for organizing intervention.
Learning from KHCC suggests that attention to risk narratives and the possibility for lifeworld colonization are crucial for understanding education partnerships. This rich case study offers refinements to Habermasian theory which help account for the complexity of community education partnerships, conceived as occupying a liminal space at the borderlands of the system and lifeworlds. Crucially, it renders visible the lifeworld of education partnerships themselves, which are not barren of agency, but populated by street-level bureaucrats (Lipsky, 1980), capable of producing and promulgating (potentially competing) discourses of risk. This offers new tools for understanding and anticipating impediments to the implementation and success of education partnerships in the many European states where they are now a priority. Thus, this paper makes a strong and novel contribution to theoretical understandings of partnerships in community education while also advocating for greater attention to risk discourses when considering their implementation and evaluation.