Lessons from a Black Swan: professionals in local co-production prior to and during Covid-19
Authors: Uster Anna 
Published: May 2024

Purpose

This study examines co-production during the Covid-19 crisis, characterized as a Black Swan event, with a specific emphasis on local professionals’ preparedness and response.

Design/methodology/approach

A qualitative approach combining deductive and inductive approaches was employed to gather data from professional coordinators of co-production processes in Israeli local governments. The study utilizes professionalism theory as a framework to examine such key elements as professional knowledge, autonomy, status and legitimacy. Additionally, open coding is used to investigate emerging themes.

Findings

The findings reveal that, despite preventive efforts by the central government, local professionals were unprepared to address the crisis. Traditional top-down approaches failed during the crisis, emphasizing the need for peer learning and collaboration among various stakeholders. Professionals' de facto autonomy, driven by quick decision-making and creative problem-solving, elevated their legitimacy and status. Inter- and intra-organizational collaboration was essential to maintain performance through co-producing public services. Finally, multicultural awareness proved vital; neglecting this may have severe consequences in routine times but especially during crises.

Research limitations/implications

Using qualitative research, this study emphasizes the importance of understanding context in interpreting thoughts and actions. However, our approach has limitations. We collected data at a single point in time, which may not capture changes over time. Additionally, we relied on self-reporting from 19 public professionals in local municipalities, each managing the coproduction-based center within the respective municipality. However, this setup, where a single coordinator represents the entire co-production function of the municipality, has its limitations as only one voice is heard.

Practical implications

By shedding light on the multifaceted aspects of co-production, policymakers and professionals could learn about such substantial factors as professionals’ autonomy, inter-organizational collaborations and sensitivity to cultural nuances, which should be established first and foremost in routine times to prepare for crisis. In our case study, governmental preventive measures were inapplicable to crises, and experience of prior crises did not necessarily bestow an ability to prepare accordingly. This is where the role of the street-level professionals becomes significant: these are the actors who experience the crisis on the ground and may provide a quick and effective response. Their ability to take the reins, to be innovative and to generate knowledge while exerting their own professional consideration, proved extremely important.

Originality/value

This research contributes to our understanding of public service professionals’ effective leveraging of the contributions of co-producers in times of crisis. It shifts focus from top-down policy preparedness and implementation to the development of appropriate organizational structures and active and routine stakeholder engagement, thereby enhancing preparedness for crises.