Changing images of the State: overloaded, hollowed-out, congested

Three conceptualisations of the UK's state are identified: the overloaded state of the 1960s/1970s; the hollowed-out state of the 1980s/early 1990s; the congested state of the late 1990s. In this latter period the creation of collaborative institutions has become a core strategy in all areas of UK public policy. This rich web of linkages arose in response to the problems inherent in the fragmentation arising from hollowing-out. The resulting partnerships bring together public, private, voluntary and community sector actors. They operate between and around the core institutions of democratic government. These tertiary (partnership) structures have complex accountability relationships with primary (elected) and secondary (appointed) public bodies, as well as with other actors. The example of Northshire shows how inter-linked strategic and specific partnership boards create an alternative, collaborative governance structure for a locality which is largely outside democratic processes. This development has fundamental implications for our appreciation of the institutional framework of UK government, as well as for the debate about and practice of democratic renewal.