The Government–NGO Partnerships in Service Delivery: Strategic Roles and Challenges under Uncertainty for Equitable Performance

Issa Mahmod Smirat

Issa Mahmod Smirat Business Administration, College of Finance & Management, Hebron University, West Bank, Palestine https://orcid.org/0000-0001-7188-5406

Keywords: Palestinian authority, partnership challenge, performance, service delivery, state–NGO partnerships, uncertainty

Abstract

This study examines the dynamics and challenges of Government–NGO partnerships in service provision within Palestine. In the context of limited resources, NGOs have emerged as critical actors in health, education, humanitarian relief, and other essential sectors, complementing governmental efforts. Using a qualitative Delphi method, conducted in three iterative rounds between June and August 2023 with 44 experts from government, NGOs, academia, and the private sector, the study identified 75 challenges to effective collaboration. These were categorized into six themes: structural misalignments, procedural differences, unclear roles and responsibilities, deficits in trust and communication, power asymmetries, and weak legislative frameworks. Trust deficits (91%), lack of coordination mechanisms (88%), and misaligned objectives (72%) emerged as the most critical barriers. The findings highlight the need to establish formal coordination platforms, clarify roles, enact supportive legislation, and balance power relations. Addressing these gaps is essential to foster sustainable, strategic partnerships.

References

Abiddin, N. Z., Ibrahim, I., & Abdul Aziz, S. A. (2022). Non-governmental organizations (NGOs) and their part towards sustainable community development. Sustainability, 14(8), Article e4386. https://doi.org/10.3390/su14084386

Adzakor, W. K. (2024). The roles of non-state actors in Africa’s development: A case study of non-governmental organisations in Ghana. Africa Journal of Public Sector Development and Governance, 7(1), 176–194.

Alashqar, Y. (2018). The politics of social structures in the Palestinian case: From national resistance to depoliticization and liberalization. Social Sciences, 7(4), Article e69. https://doi.org/10.3390/socsci7040069

Al-Haq. (2021, March 2). NGO law by Decree No. 7 of 2021 threatens civil society in Palestine. https://www.alhaq.org/advocacy/17959.html

Al-Hasan, M., Lutfi, A., Mowafi, O., Abdeldayem, B., Eskandarany, A., & Alshira’h, A. F. (2024). The governance of non-governmental organizations: Critical lens for laws and regulations. Journal of Open Innovation: Technology, Market, and Complexity, 10(2), Article e100299. https://doi.org/10.1016/j.joitmc.2024.100299

Ali, Q. F., Kuppusamy, S., & Raja, A. R. N. (2021). Palestinian local government: Issues of legal and institutional frameworks. Issues of State and Municipal Administration, 6, 146–171.

AMAN Transperancy Palestine. (2025). The reform process of the nineteenth Palestinian government: Third quarter monitoring report (October 1, 2024–December 31, 2024). https://www.aman-palestine.org/cached_uploads/download/2025/03/22/monitor3rdeng-1742630243.pdf

Anheier, H. K. (2023). Comparative research on nonprofit organizations and sectors: Looking back and looking forward. VOLUNTAS: International Journal of Voluntary and Nonprofit Organizations, 34(6), 1115–1121. https://doi.org/10.1007/s11266-023-00608-5

Ansell, C., & Gash, A. (2008). Collaborative governance in theory and practice. Journal of Public Administration Research and Theory, 18(4), 543–571. https://doi.org/10.1093/jopart/mum032

Banks, N., & Hulme, D. (2012). The role of NGOs and civil society in development and poverty reduction (Working Paper No. 171). Brooks World Poverty Institute. https://hummedia.manchester.ac.uk/institutes/gdi/publications/workingpapers/bwpi/bwpi-wp-17112.pdf

Banks, N., Hulme, D., & Edwards, M. (2015). NGOs, states, and donors revisited: Still too close for comfort? World Development, 66, 707–718. https://doi.org/10.1016/j.worlddev.2014.09.028

Barney, J. (1991). Firm resources and sustained competitive advantage. Journal of Management, 17(1), 99–120. https://doi.org/10.1177/014920639101700108

Berkvens, L., & Verschuere, B. (2025). The impact of institutionalised civil society participation in local policymaking in times of democratic innovation: The case of Flanders (Belgium). Journal of European Social Policy. Advance online publication. https://doi.org/10.1177/09589287251390168

Bolton, D., Landells, T., & Habib, M. (2023). Collaborating and competing in development agendas: State–civil society tensions in achieving SDGs. In D. Crowther & S. Seifi (Eds.), The complexities of sustainability (pp. 77–120). World Scientific.

Brinkerhoff, D. W., & Brinkerhoff, J. M. (2011). Public–private partnerships: Perspectives on purposes, publicness, and good governance. Public Administration and Development, 31(1), 2–14. https://doi.org/10.1002/pad.584

Camps, S., & Marques, P. (2014). Exploring how social capital facilitates innovation: The role of innovation enablers. Technological Forecasting and Social Change, 88, 325–348. https://doi.org/10.1016/j.techfore.2013.10.008

Chan, N. W., Roy, R., Lai, C. H., & Tan, M. L. (2018). Social capital as a vital resource in flood disaster recovery in Malaysia. International Journal of Water Resources Development, 35, 619–637. https://doi.org/10.1080/07900627.2018.1467312

Chaudhry, S. (2022). The assault on civil society: Explaining state crackdown on NGOs. International Organization, 76(3), 549–590. https://doi.org/10.1017/S0020818321000473

Coston, J. M. (1998). A model and typology of government–NGO relationships. Nonprofit and Voluntary Sector Quarterly, 27(3), 358–382. https://doi.org/10.1177/0899764098273006

DCAF. (2025, December 25). Decree No. 11 of 2012 Concerning the Establishment of the Commission for the Affairs of Civil Society Organisations. https://security-legislation.ps/latest-laws/decree-no-11-of-2012-concerning-the-establishment-of-the-commission-for-the-affairs-of-civil-society-organisations/

Dilnawaz, A. A., & Pasaribu, D. H. (2025). The role of non-governmental organizations (NGOs) in regional development: Contributions, collaborations, and challenges. Kampret Journal, 4(3), 123–130.

DiMaggio, P. J., & Powell, W. W. (1983). The iron cage revisited: Institutional isomorphism and collective rationality in organizational fields. American Sociological Review, 48(2), 147–160.

Dodin, M. (2016). Evaluating the impact of the charitable societies law and NGOs No. 1 for the year 2000 and its executive regulations on the performance of associations (ISBN 978-9950-374-57-7). https://mas.ps/cached_uploads/download/migrated_files/20160603111428-2-1640017091.pdf

Doshmangir, L., Sanadghol, A., Kakemam, E., & Majdzadeh, R. (2025). The involvement of non-governmental organisations in achieving health system goals based on the WHO six building blocks: A scoping review on global evidence. PLOS ONE, 20(1), Article e0315592. https://doi.org/10.1371/journal.pone.0315592

Edelman Trust Barometer. (2023). In MEA, trusted institutions percent. https://www.edelman.ae/sites/g/files/aatuss386/files/2023-05/2023%20Edelman%20Trust%20Barometer%20Global%20Report%20Region_MEA.pdf

Freeman, R. E. (2010). Strategic management: A stakeholder approach. Cambridge University Press.

Gacula, M. (2025). The role of public participation in enhancing good governance within local government (Publication no. 32258995) [Master’s thesis, University of Johannesburg]. ProQuest Dissertations & Theses

Ghogal, I., Khater, T., & Zegrier, A. (2024). Strategies for achieving financial stability in Palestine in light of current challenges: A theoretical and practical analysis. Journal of Business And Finance Economy, 9(2), 837–850.

Graham, B., Regehr, G., & Wright, J. G. (2003). Delphi as a method to establish consensus for diagnostic criteria. Journal of Clinical Epidemiology, 56(12), 1150–1156. https://doi.org/10.1016/S0895-4356(03)00211-7

Hammami, R. (2000). Palestinian NGOs since Oslo: From NGO politics to social movements? Middle East Report, 214, 16–48. https://doi.org/10.2307/1520188

Hsu, C.-C., & Sandford, B. A. (2007). The Delphi technique: Making sense of consensus. Practical Assessment, Research, and Evaluation, 12(1), Article e10. https://doi.org/10.7275/pdz9-th90

Karampini, E. (2023). The role of NGOs in conflict management. International Journal of Non-Profit Sector Empowerment, 2(1), Article e34182. https://doi.org/10.12681/npse.34182

Lægreid, P., & Rykkja, L. H. (2022). Accountability and inter-organizational collaboration within the state. Public Management Review, 24(5), 683–703. https://doi.org/10.1080/14719037.2021.1963822

Laraswati, D., Krott, M., Soraya, E., Rahayu, S., Fisher, M. R., Giessen, L., & Maryudi, A. (2022). Nongovernmental organizations as interest groups and their roles in policy processes: Insights from Indonesian forest and environmental governance. Forest and Society, 6(2), 570–589. https://doi.org/10.24259/fs.v6i2.19125

Lewis, D., & Kanji, N. (2009). Non-governmental organizations and development. Routledge.

Lewis, D., Kanji, N., & Themudo, N. S. (2020). Non-governmental organizations and development. Routledge.

Linstone, H. A., & Turoff, M. (2002). The Delphi method: Techniques and applications. Addison-Wesley.

Meckling, W. H., & Jensen, M. C. (1976). Theory of the firm: Managerial behavior, agency costs and ownership structure. Journal of Financial Economics, 3(4), 305–360.

Morrar, R., & Gallouj, F. (2016). The growth of the service sector in Palestine: The productivity challenge. Journal of Innovation Economics & Management, 19(1), 179–204.

Murphy, D. F., & Stott, L. (2021). Partnerships for the sustainable development goals (SDGs). Sustainability, 13, Article e658. https://doi.org/10.3390/su13020658

NGO Development Center. (n.d.). Palestinian NGO code of conduct. https://www.ndc.ps/programs/projects/palestinian-ngo-code-conduct

Okoli, C., & Pawlowski, S. D. (2004). The Delphi method as a research tool: An example, design considerations and applications. Information & Management, 42(1), 15–29. https://doi.org/10.1016/j.im.2003.11.002

Pfeffer, J., & Salancik, G. R. (1978). The external control of organizations: A resource dependence perspective. Harper & Row.

PNGO. (2021, March 21). Position paper by civil society organizations regarding the amendment of charitable associations and civil society organizations law. https://en.pngoportal.org/p/3305

Putnam, R. D. (2000). Bowling alone: The collapse and revival of American community. Simon & Schuster.

Roman, M., & Fellnhofer, K. (2022). Facilitating the participation of civil society in regional planning: Implementing quadruple helix model in Finnish regions. Land Use Policy, 112, Article e105864. https://doi.org/10.1016/j.landusepol.2021.105864

Sekayi, D., & Kennedy, A. (2017). Qualitative Delphi method: A four-round process with a worked example. The Qualitative Report, 22(10), 2755–2763.

Shaheen, L., & Salim, M. (2012). Rapid urbanization and the challenge of sustainable urban development in the Palestinian cities. International Journal of Social, Behavioral, Educational, Economic, Business and Industrial Engineering, 7(3), 643–651.

Shakoor, A., Farooq, C. I. T., Khan, A. K., Anjum, K. M., & Imran, A. (2024). Role of NGOs in shaping social development. International Journal of Contemporary Issues in Social Sciences, 3(1), 831–838.

Skulmoski, G. J., Hartman, F. T., & Krahn, J. (2007). The Delphi method for graduate research. Journal of Information Technology Education: Research, 6(1), 1–21.

State and Administrative Control Bureau. (2018). Review of the Palestinian government preparedness for the sustainable development goals: Final report. https://www.saacb.ps/BruRpts/PalestinianSDGs.pdf

Tadem, E. C., & Tadem, T. S. E. (2023). Reclaiming public services: Giving back ownership and control of water services to the public sector. In T. S. E. Tadem & M. E. L. Atienza (Eds.), A better Metro Manila? Towards responsible local governance, decentralization and equitable development (pp. 291–323). Springer Nature.

Tian, F., & Chuang, J. (2022). Depoliticizing China’s grassroots NGOs: State and civil society as an institutional field of power. The China Quarterly, 250, 509–530. https://doi.org/10.1017/S0305741022000157

Toepler, S., Zimmer, A., Levy, K., & Fröhlich, C. (2023). Beyond the partnership paradigm: Toward an extended typology of government/nonprofit relationship patterns. Nonprofit and Voluntary Sector Quarterly, 52(1_suppl), 160S–186S. https://doi.org/10.1177/08997640221112890

Tsegaye, L. (2023). The role of NGOs in empowering community in local development programs and the challenges faced: The case of faith-based NGOs in Addis Ababa [Master’s thesis. St. Mary’s University]. St. Mary’s University Institutional Repository. http://repository.smuc.edu.et/handle/123456789/7737

Uprety, U. (2024). Capacity building factors contributing to the governance of Nepali civil society organizations [Master’s thesis, Kathmandu University School of Education]. Digital Repository. https://elibrary.ku.edu.np/handle/20.500.14301/391

Waddell, S. (1998, November 5–7). Tri-sector coproduction collaborations: A new type of development organization [Paper presentation]. Conference session at ARNOVA, Washington.

Wasserman, S., & Faust, K. (1994). Social network analysis: Methods and applications. Cambridge University Press.

World Bank. (2025). Public expenditure review of the Palestinian Authority: Policy priorities amid a spiraling fiscal crisis. https://documents1.worldbank.org/curated/en/099061125101529564/pdf/P500604-64aeba13-ba2a-4b7d-a07b-5f7ecd93cb39.pdf

Zaher, N. A. (2022). Analysis of indicators to measure Palestinian civil society according to the CIVICUS approach. Neuro Quantology, 20(7), 3194–3206.