Do networks really work? A framework for evaluating public-sector organizational networks

Provan and Milward start with the question: Do networks for community-based, publicly funded health services deliver what they promise? How do we evaluate network effectiveness? In principle, community-based networks would seem to be logical mechanisms for providing public services that cannot or should not be centralised. Community-based networks in the health sector typically bring together a collection of programmes and services that span a range of cooperating but autonomous (frequently private or non-governmental) organisations. However, there is still a lack of comparative network data, and the authors state that in practice it is premature to conclude that networks are effective mechanisms for addressing complex policy problems. They then propose a framework for network evaluation that focuses on three different levels of analysis: community, network and organisational participant level.

• Evaluation at the community level: At this level, networks must be evaluated against the service contribution they make to the communities they are supposed to benefit, using criteria such as improved access, utilisation, responsiveness, integration, and cost effectiveness. Since the network's end users are frequently not a politically powerful interest group, Provan and Milward suggest that evaluation at community level should include consultation with representative consumer advocacy groups or local officials.
  
• Evaluation at the network level: To operate effectively, the collaborating organisations must recognise the need to act as part of a network. The simplest way of evaluating whether this is happening is to map the ebb and flow of organisations to and from the network, as compared to the maturity of the network. Newly established networks should be attracting new members who can offer new services, while mature networks should have a relatively stable core group of agents with a broad range of loose or informal ties. Frequently, a network will require a principal agent, or network administrative organisation, in order to manage the evolution of the network.
  
• Evaluation at the organisational participant level: This level considers the benefits that accrue to the organisational members of the network. Do the individual agencies feel that they stand to gain from participating in the network? The answer to this will mostly depend on four primary criteria: client outcomes and integration of services; legitimacy and status; resource acquisition and fundraising; and cost.

(ODI bibs)