The consortium model illustrated in Box 8.11(e) aims to create equal municipal-NGO and municipal-private contractual relationships. In theory, this approach empowers the NGO to have an equal say in the decision-making over the methods, programme and activities undertaken. The consortium approach may be a precondition of the tender, specifying the contractual relationship between the parties (and in all likelihood their roles). The contract type will be the same as that for the whole consortium (e.g., BOT, concession, lease, management or service contracts).
In practice, however, the NGO becomes part of a private entity. Although it has different goals and values, from the perspective of sceptical consumers or other civil society organisations, its contractual relationship implicates it in the goals of the larger entity and it can be associated with the profit orientation of that entity (see Box 8.13). Inevitably, being a smaller (non-funding) party in the consortium - and the one directly looking out for poor communities - its concerns can be ignored or overlooked by the larger group.
Yet there are distinct benefits. By having a place at the table, the NGO may be able to influence the process and decision- making. Like the separate contract model, the status of the NGO is dependent on the initial contractual requirements laid down by the municipal-client and contract; and the ongoing monitoring of these requirements ensure that the NGO is able to perform the role prescribed. In order to make such an arrangement sustainable, it is important for the partners to agree and establish the criteria on which the relationship is based - especially the areas which the NGO deems non- negotiable (e.g., community participation).