When formal integration fails to produce collaboration: governance dynamics in Brazil’s one-stop service centers

What the paper says

Purpose This study aims to analyze the collaborative dynamics of the integrated public service delivery model in Minas Gerais, Brazil, examining how interorganizational relationships, governance arrangements and coordination mechanisms shape collaborative performance in a hybrid, multilevel context. Design/methodology/approach A qualitative case study was conducted using document analysis and semi-structured interviews with key actors involved in the management and operation of the Unidades de Atendimento Integrado system. The data were analyzed through thematic content analysis and interpreted using Ferolla and Passador (2014) framework, which evaluates collaboration across three dimensions: participation, representativeness and publicization. Findings Findings show that, despite the existence of formal coordination mechanisms and hybrid governance structures, collaborative performance remains limited. Excessive centralization, rigid standardization, fragmented accountability chains and the absence of deliberative and participatory processes undermine horizontal collaboration and restrict frontline autonomy. As a result, the collaborative potential of integrated service centers is only partially realized. Research limitations/implications Although limited to a single case, the findings identify mechanisms that are likely to appear in similar integrated service models, especially those operating in multilevel governance settings. Future studies may compare alternative models across regions or countries. Practical implications The results underscore the need for clearer accountability structures, shared performance indicators, strengthened interorganizational coordination routines and expanded discretion for frontline managers. Establishing participatory channels and reducing excessive centralization can enhance collaborative performance and improve service outcomes. Social implications Strengthening collaboration in integrated citizen service centers can improve accessibility, reduce bureaucratic barriers, enhance responsiveness and build public trust in state institutions. Originality/value This study advances the literature on collaborative governance by examining an underrepresented territorial context and demonstrating that formal integration and hybrid governance arrangements do not guarantee effective collaboration. It highlights the enabling conditions – shared authority, mutual trust and participatory structures – required for integrated service delivery to generate collaborative capacity and public value.