Finally, we hypothesize that if the program is intended to respond to emerging problems (a dummy variable where d 5 1 if it is to solve the emerged problems), there may be an immediate need for problem-solving capacities which go beyond the single locality. Thus, collaborations are likely to emerge. On the other hand, if the program is preventive in nature or in anticipation of some unforeseen problems, administrators may have substantial time to ‘‘grope along’’ (see Behn 1988) on their own, thus making collaboration less likely. We coded this variable by examining historical records, content analysis of official records, and interviews with relevant stakeholders.