Running Head: INVOLVING SERVICE USERS AS CO-PRODUCERS IN COMMUNITY DEVELOPMENT How can service users best be involved in provision and production of a community-based development program? A preliminary literature review in co- production and community development

This literature review is a first exploration into methods to involve services users into the provision and production process of the community-based development programs “The Peaceable Neighborhood”. The research explores the research areas of “co-production” and “community development”. The term co-production can be used to focus on the processes involved with service user participation and the paradigm of community development provides a closer look at the identity of the community based interventions. This research shows that, still, lot is unknown about the methods to involve the target population. However, this research concludes with some recommendations for the program. INVOLVING SERVICE USERS AS CO-PRODUCERS IN COMMUNITY DEVELOPMENT 2 Introduction In the past few years participation has become a well-known concept in the public sector (Pestoff, 2014). Previously, public services, like health promotion and social care, were developed by knowledge and research from scientist and professionals (Lindsey, Stadjuhar & McGuinness, 2000). However, in recent years studies have shown that the role of the target population in developing methods is of vital importance (o.a. Brandsen & Pestoff, 2006). If the target audience plays no part in the provision and production process of public services, chances are that the interventions do not suit the needs of the target audience. Furthermore, there may not be enough funds or means to perform the services (Mansuri & Rao, 2004). Participation should eliminate the fore mentioned problems and bring about other beneficial effects, such as community and citizen empowerment (e.g. Perkins, Brown & Taylor, 1996) and a better founded democracy (e.g. Verschuere, Brandsen & Pestoff, 2012). Despite the increased focus on citizen participation in recent years, a lot is still unknown about the methods to involve the target population in the provision and production of public services. This is mainly because research into the subject is still relatively new and so far does not show many significant outcomes (Verschuere et al., 2013). On top of that interventions still struggle to involve participants and give them a proper place in the provision and production (Mansuri & Rao, 2004). This lack of scientific research makes that little guidance exists for interventions to incorporate their service users as co-producers. Nonetheless, there are a lot of interventions trying to work with service users as a part of their intervention. One example of such an intervention is “The Peaceable Neighborhood”. This is an intervention that pursues the development of social skills and democratic citizenship of youth by influencing their environment (Horjus, Van Dijken & De Winter, 2012). In earlier versions of the intervention service users did not play a significant role in the provision and production of the service. However, the intervention now involves active participation of it users. This article is a first exploration into methods to involve services users into interventions. This will be done by conducting a preliminary literature review. The research will focus on research that involves co-production of public services to get a clear image of the process involved with service user participation. In addition, the research will also focus on community development which provides a closer look at the identity of the community based interventions and the implications this entails for involving service users. Both areas of research will be combined to develop a first outline of guidelines to use as a development strategy for The Peaceable Neighborhood. INVOLVING SERVICE USERS AS CO-PRODUCERS IN COMMUNITY DEVELOPMENT 3 The Peaceable Neighborhood The Peaceable Neighborhood is a community-based youth development program which aims to promote democratic citizenship and social skills of youth (Horjus, Van Dijken & De Winter, 2012). The program is an extension of the Peaceable School, a primary school program which aims to teach children to become democratic citizens. In the program children are taught to be open to differences between people and solve possible conflicts by constructive conversation. They also learn to handle responsibilities and to contribute actively to the public interest (Pauw, 2012). To reach these goals, the Peaceable Method suggests that not only the children get lessons but that the whole environment should convey these values. When children are located in an environment of social cohesion; i.e. an environment in which they are respected, heard and actively invited to participate, they will feel more connected to their environment and be more open to learning social skills and democratic values (www.vreedzameschool.nl). Research indicates that the approach of the Peaceable School is successful. After having experienced the Peaceable School program, children are more calm and responsible, have more respect for their peers, are better at keeping their appointments and have fewer conflicts with others. In addition, there is a significant difference in the school climate and student behavior according to teachers and school management (Pauw, 2012). The Peaceable Neighborhood wants to extend this success and values from the schools into the neighborhood in the hopes of utilizing the skills the children developed in a bigger environment (De Winter, Horjus, & Van Dijken, 2010). Using the same approach in different life domains (school, leisure, sports and home) will make it clear to children what they can expect and what is expected from them. In 2008 the first Peaceable Neighborhood started in Utrecht, the Netherlands. The first results of the research of Horjus, Van Dijken & De Winter (2012) indicate that practices of the Peaceable Neighborhood are promising: when certain features of the Peaceable Neighborhood were present, children show more of their ‘Peaceable’ skills. Furthermore, parents thought the neighborhood was significantly safer and were convinced of the benefits of The Peaceable Neighborhood. The uniform educational approach initiated by the program, helped professionals to communicate positively with children and each other. However, the program did not reach the parents, resulting in scarce participation of parents in the execution and management of the program. This result initiated a new version of The Peaceable Neighborhood with a focus on increasing the engagement of parents and other citizens. As of September 2013, a pilot on four primary schools in two neighborhoods in the Netherlands have started. In these schools, parent groups were founded in which parents INVOLVING SERVICE USERS AS CO-PRODUCERS IN COMMUNITY DEVELOPMENT 4 organize activities that are in line with the vision and values of the Peaceable Neighborhood. The parents in these groups are supported by someone from the school and a professional from the Peaceable Neighborhood. The idea is that these professionals will take the lead in the beginning but will gradually become less involved so that the parent group will become selfsufficient. Co-production Co-production is the process in which service users become part of the provisionand production process of public services (Brandsen & Pestoff, 2006). Elinor Ostrom originally developed the term co-production to describe the relationship between the “regular producer” (e.g. professionals, health worker) and their service users (Pestoff, 2012). At present, the term represents not only the relationship between regular producer and service users but also the relationship between government and citizens (Brudney & England, 1983; Osborne & Strokosch, 2013). Co-production is seen as a method to achieve a more equal relationship based on cooperation (Brandsen & Pestoff, 2006). This process of co-production may be viewed as a step towards a civil society which is based on citizen participation (Verschuere et al., 2012). In the beginning, co-operation of the client was also considered as co-production (Alford, 1998). However, at present consensus has shifted more towards the view that service users should be involved in a more systematic and profound way (Pestoff, 2014). Despite this shift there is still much heterogeneity in use of the term. This can be explained by the fact that the term is still vague about the way in which service users should participate in the provision and production. Because of this there are many different ways in which involvement of service users can be viewed as co-production. This makes the subject a research topic in many different fields (Verschuere et al., 2012). This study defines user and community co-production as: “the provision of services through regular, long-term relationships between professionalized service providers (in any sector) and service users and or other members of the community, where all parties make substantial resource contributions. ” (Bovaird (2007, pp. 847). In addition, this article also focuses on active participation of service users. Within the Peaceable Neighborhood service users take up an important independent role in organizing activities. It is clear that this does not involve passive form of participation. Community development Community development is defined as a “process of voluntary cooperation and selfhelp/mutual aid among residents of a locale aimed at the improved physical, social and INVOLVING SERVICE USERS AS CO-PRODUCERS IN COMMUNITY DEVELOPMENT 5 economical conditions” (Chavis & Florin, 1990, as cited in Lindsey, Stajduhar, McGuinness, 2001, pp. 829). These cooperations between community members can be organized by community members themselves, but more frequently are initiated and channeled by community development projects (Mansuri & Rao, 2004). Within these community development projects, two varieties exist: community-based and community-driven development. Community-based development aims to actively involve service users in their design and management. Community-driven developme