Collaboration in government isn’t a tech problem – it’s a human one

For years, collaboration has been one of the most persistent challenges in UK government.

Despite shared missions and cross-cutting priorities, departments still struggle to work beyond organisational boundaries. Systems do not join up, funding rarely aligns, and good ideas often fail to scale.

But during at a recent discussion at the Think Women in Digital Government event, it emerged that the real barrier isn’t technology – it’s how organisations are structured, incentivised and led.

Dena Habashi-Ayub, platform owner at HMRC, described what effective collaboration looks like in practice: “Aligned to shared goals, shared outcomes… focused on user needs and psychologically safe environments.”

Yet departments remain structured around their own objectives, budgets and accountability lines. As a result, collaboration becomes an additional effort rather than the default way of working.

“We are very department-centric. If we have shared goals… it makes it a lot easier,” Habashi-Ayub explained.

The biggest barrier is still “who owns this?”

For Amanda Payne, client success and strategy director at GAIN, one question continues to derail collaboration more than any other: “Who owns this?”

In cross-government work, ownership is rarely clear. Funding may sit in one department, while the benefits are realised elsewhere. That creates friction at the exact moment collaboration needs to move from idea to delivery.

“Who’s paying for it? Do they own it? Do we have to go on this journey if we don’t own it?” she said.

This tension often explains why collaboration works well in early stages – discovery, design, workshops – but breaks down when it comes to implementation.

Debbie Wilson, head of data at Ordnance Survey, pointed to a familiar pattern: collaboration thrives at the start, then falters.

“We kick off something… it’s a really brilliant idea… and then it fizzles,” she said.

“Translating it into delivery is where it gets hard,” she said, noting that only a fraction of collaborative initiatives make it through to implementation.

“If you have a clear idea of who’s going to lead… you actually do collaborate around shared vision, shared goals, shared outcomes.”

Communities help, but they’re not enough on their own

Across the panel, there was strong support for communities of practice and cross-government networks. Habashi-Ayub described them as “powerful enablers” that build trust, share knowledge and accelerate collaboration.

But they also come with limitations. Often, participation is voluntary and sits alongside day jobs. Without formal recognition or support, their impact can be uneven.

“We need to make it part of the strategic capability of organisations,” she said, rather than an “add-on”.

Wilson echoed this, noting that communities succeed when they have clear purpose – and struggle when they do not.

While much of the discussion focused on systems and structures, several speakers returned to the fundamental idea that collaboration is about people.

“Collaboration is based on culture. It really is about people working well together,” said Wilson.

That includes trust, openness and the ability to have difficult conversations—especially during periods of change.

Habashi-Ayub emphasised the importance of “psychologically safe environments” where teams can express concerns and work through challenges together. Without that, collaboration risks becoming superficial or forced.

Leadership and permission to act

There was also a challenge to assumptions about central control. Verity Prime executive director at the National Audit Office (NAO) suggested that the “centre” is often less powerful than perceived, and that waiting for permission can slow progress.

“What can you just do and get on with?” she asked.

Instead of relying on central direction, she encouraged teams to take ownership where possible, supported by strong leadership and clear outcomes.

“Encourage people to disagree… rather than racing to the easiest answer.”

An interesting point raised by the panel was that silos are not always dysfunctional. In many cases, teams collaborate effectively within their own domains. The problem is that there is little incentive to go beyond them.

Said Payne: “You’re working effectively in your silo… there’s no incentive to change.”

Breaking that mindset requires both leadership challenge and practical mechanisms—whether through shared goals, joint funding or cross-team engagement.

Looking ahead, the stakes for collaboration are only increasing. Prime pointed to the implications for data, AI and digital services: “You can totally see where something’s been built in a silo… and how much more work that creates later.”

Without shared foundations, future systems risk compounding fragmentation rather than resolving it.

“There’s almost a responsibility… to think differently so that it actually works across silos,” she said.

Practical steps to improve collaboration

The panel highlighted several ways organisations can move from intention to action:

1. Align around shared outcomes, not structures: Focus on the problem you are solving, not departmental boundaries. Shared goals make collaboration easier and more meaningful.

2. Address ownership and funding early: Clarify who is accountable and how work will be funded before moving into delivery. Unresolved ownership is a common failure point.

3. Move beyond informal collaboration: Communities and networks are valuable—but need formal backing, time and recognition to deliver sustained impact.

4. Invest in relationships, not just processes: Create opportunities for teams to connect as people, not just roles. Trust is essential for effective collaboration.

5. Create psychologically safe environments: Encourage openness about concerns, risks and disagreements. Collaboration requires honesty, not just alignment.

6. Build incentives to work across silos: Ensure that success is measured collectively where appropriate – not just at departmental level.

7. Strengthen leadership behaviours: Leaders should model collaboration, support shared accountability and enable cross-team working.

8. Focus on delivery, not just ideas: Many collaborations fail at the implementation stage. Plan for how initiatives will be sustained beyond early phases.

9. Start where you have agency: Do not wait for central direction. Identify what can be done locally and build momentum from there.

10. Design for interoperability from the outset: Avoid creating new silos in data and systems. Shared standards and foundations will enable future collaboration.