The Partnership Playbook: The five levels of community partnership

Kellie Kieren<kierenke@msu.edu>, Michigan State University Extension - May 28, 2026

Updated from an original article written by Bonnie Zoia.

Partnerships come in many shapes and sizes. This framework helps organizations decide what level of collaboration is the right fit for their work.

four hands putting together a 3D puzzle. — Photo generated by AI using Microsoft CoPilot.

Many local communities and organizations work together to share information, services or provide support. There are many reasons for doing so, including:

Added resources
More perspectives
Additional programming
Reputation building
Networking

Partnerships naturally bring a mix of benefits, challenges and shared responsibilities. To determine the best connection for a community or organization, it is important to understand the level of purpose, structure and process of the partnership, as well as the vision, context and needs of the parties involved.

The Collaboration Framework created by the National Network for Collaboration is an easy-to-understand guide to help a community or organization determine what level of partnership is best for them. Each level serves a unique purpose, dependent on the situation and circumstances. The goal should not be to reach the highest or most complex level but rather to determine the level that best aligns with the group’s purpose. The following chart is from The Collaboration Framework.

Community Linkages - Choices and Decisions
Levels	Purpose	Structure	Process
Networking	* Dialog and common understanding * Clearinghouse for information * Create base of support	* Loose/flexible link * Roles loosely defined * Community action is primary link among members		* Low key leadership * Minimal decision making * Little conflict * Informal communication
Cooperation or Alliance	* Match needs and provide coordination * Limit duplication of services * Ensure tasks are done	* Central body of people as communication hub * Semi-formal links * Roles somewhat defined * Links are advisory * Group leverages/raises money		* Facilitative leaders * Complex decision making * Some conflict * Formal communications within the central group
Coordination or Partnership	* Share resources to address common issues * Merge resource base to create something new	* Central body of people consists of decision makers * Roles defined * Links formalized * Group develops new resources and joint budget		* Autonomous leadership but focus in on issue * Group decision making in central and subgroups * Communication is frequent and clear
Coalition	* Share ideas and be willing to pull resources from existing systems * Develop commitment for a minimum of three years	* All members involved in decision making * Roles and time defined * Links formal with written agreement * Group develops new resources and joint budget		* Shared leadership * Decision making formal with all members * Communication is common and prioritized
Collaboration	* Accomplish shared vision and impact benchmarks * Build interdependent system to address issues and opportunities	* Consensus used in shared decision making * Roles, time and evaluation formalized * Links are formal and written in work assignments		* Leadership high, trust level high, productivity high * Ideas and decisions equally shared * Highly developed communication

Source: Community Based Collaborations- Wellness Multiplied 1994, Teresa Hogue, Oregon Center for Community Leadership. Used with permission.

If we set aside the formal language, these levels can be understood more simply by looking at how people are working together:

Networking. Partners are connected through communication, sharing information and staying aware of each other’s work. In short: “We know each other exists. We might share an event or program flyer.”
Cooperation. Partners begin to support one another by sharing information, making referrals and coordinating efforts to better meet community needs. In other words: “We plan our programs so we're not stepping on each other's toes and help by sharing resources or information."
Coordination. Partners stay connected while maintaining their own leadership but work together through shared resources and group decision making. In essence: “We align our schedules or share space to make things easier.”
Coalition. Partners make a longer-term commitment, with shared leadership, clearer roles and a focus on creating new ideas together. To rephrase: "We work together regularly toward a shared issue or initiative."
Collaboration. Partners work as a team by sharing decision making, responsibility and ownership to achieve a common mission. In other terms: “We design and run something together, and it belongs to all of us.”

Partnerships ebb and flow as they grow. They often move through different levels along the way. Growth and change are worth paying attention to, but they do not have to be a source of stress.

Mississippi State University Extension created A Collaboration Framework for Use in Extension resource to help better understand how the levels of collaboration show up in Extension’s work with community partners.

To learn more about community partnerships, check out the Michigan State University Extension Partnership Playbook Series.

MSU Extension offers a variety of community capacity building workshops, including conflict resolution, personality assessment and facilitation.

This article was published by Michigan State University Extension. For more information, visit https://extension.msu.edu. To have a digest of information delivered straight to your email inbox, visit https://extension.msu.edu/newsletters. To contact an expert in your area, visit https://extension.msu.edu/experts, or call 888-MSUE4MI (888-678-3464).

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