In a new series of blogs, we will be reviewing the current and historical work of City-REDI.
In the next blog of the series, Charlotte Hoole talks about her report on soft spaces of government and the covid-19 economic recovery.
How did places respond when formal systems were under unprecedented strain?
Research by Charlotte Hoole, Abigail Taylor and Anne Green provides important insights into how sub‑regional economic recovery partnerships emerged during Covid‑19 – and why informal, flexible governance arrangements played such a critical role.
Published in European Urban and Regional Studies, the paper examines Covid‑19 economic recovery planning in the West Midlands and North East of England, offering timely lessons for future place‑based economic development and resilience building.
Soft spaces of governance: responding at pace
The research is grounded in the concept of ‘soft spaces’ of governance that are informal, voluntary and non‑statutory partnerships that sit alongside formal governance structures such as local authorities and combined authorities.
Soft spaces are characterised by openness, collaboration and flexibility. While they have often been discussed in the context of long‑term economic development or spatial planning, this paper explores their role during a crisis, when speed of decision‑making and cross‑sector coordination are essential.
Drawing on 30 in‑depth interviews with local government, business, university and other stakeholders, the authors show how soft spaces became central to sub‑regional Covid‑19 economic recovery efforts.
What made these soft spaces effective?
Building on existing literature, the authors test four commonly cited features of soft spaces and identify an additional, missing dimension that proved crucial during the pandemic.
- Voluntarism
The urgency and scale of Covid‑19 created a shared sense of purpose that drew organisations together voluntarily. Existing tensions – political, institutional or personal – were often set aside as partners focused on immediate economic and social challenges.
The crisis acted as a catalyst for cooperation, accelerating partnership working that might otherwise have taken years to develop.
- Informality
Pre‑existing relationships and informal networks played a key role in enabling fast and open collaboration. Trust between individuals allowed recovery groups to bypass bureaucratic barriers and exchange intelligence in real time.
However, the findings also highlight risks: informality can unintentionally privilege established actors and make it harder for marginal or less well‑connected voices to engage.
- Complementarity
Rather than replacing formal governance, soft spaces complemented it. They provided spaces for experimentation, problem‑solving and data sharing that informed decision‑making within statutory structures.
Universities acted as key knowledge brokers, supplying economic intelligence, forecasting and analysis to support sub‑regional recovery planning – reinforcing their role as anchor institutions in local economies.
- Effectiveness
Soft spaces enabled quicker, more pragmatic responses during the crisis. Interviewees consistently emphasised the importance of acting at pace rather than pursuing perfect policy design in a highly uncertain environment.
This flexibility allowed partners to adapt quickly, shift priorities and engage with central government using a stronger, unified voice.
- Agency: the missing ingredient
A key contribution of the paper is the identification of agency as a fifth core feature of soft spaces.
The research shows that individuals mattered greatly. Those with strong interpersonal skills, deep knowledge of place and established networks were critical in convening partners, maintaining trust and sustaining collaboration under pressure.
This emphasis on agency raises important questions for future governance: what happens when key individuals move on, and how can accountability and legitimacy be maintained in informal spaces?
Implications for City‑REDI research and policy
For City‑REDI, the findings strongly resonate with ongoing work on place‑based economic development, resilience and multi‑level governance.
The Covid‑19 experience suggests that soft spaces can add significant value in times of crisis by enabling:
Faster, more integrated responses
Better use of local economic intelligence
Stronger links between policy, evidence and practice
Collaboration across traditional sectoral and institutional boundaries
However, the research also cautions that soft spaces are not a panacea. Their informality raises challenges around inclusivity, accountability and long‑term sustainability – particularly in a context of fiscal constraint and ongoing governance reform.
Looking ahead
As places continue to face economic shocks, climate risks and long‑term structural change, this research highlights the importance of nurturing the relationships, capacities and individuals that underpin effective collaboration.
For policymakers and practitioners, the lesson is clear: future recovery and resilience strategies should not rely solely on formal structures, but actively recognise and support the soft spaces that enable places to respond creatively and collectively when it matters most.
Read the full report.
This blog was written by Dr Charlotte Hoole, Research Fellow, City-REDI, University of Birmingham.
Disclaimer:
The views expressed in this analysis post are those of the authors and not necessarily those of City-REDI or the University of Birmingham.