Case Study

Fredensborg MunicipalityFlow-based collaboration: together we create clarity in complexity

Fredensborg Municipality and Implement Consulting Group


Jesper Johannes Krøyer Lind

When a company wishes to build new premises, expand or develop a space, this is a complex undertaking that involves several municipal authorities in various fields of expertise and requires a number of different permits. Fredensborg Municipality wishes to optimise these complex procedures and has thus created a “flow-based collaboration” to benefit both companies and employees.

Municipalities and companies are to work closely together when a company wishes to build new premises, or extend or convert its space. In order for the company to be able to begin work on this, several authorities with different areas of expertise are to be involved in processing the case, and the company is to obtain several different permits.

The entire procedure is complex – it requires extensive collaboration, as it is dependent on all sub-components of the case. But the process goes smoothly when the municipality and the company undertake to work together, and when they check each other’s expectations and have a clear plan, both parties can fulfil their roles in an optimum manner.

Better dialogue on complex business cases to improve solutions and smoothness of the process

Fredensborg Municipality wishes to promote a smooth and effective collaboration on complex business cases and provide companies with a higher level of service. The municipality has experience of such cases from its Centre for Urban Development, Environment and Business. Here, the municipality has found how dialogue and coordination with applicants and between the different experts in the administration are key to complex cases.  

Based on their experience with the collaboration, the municipality strives to achieve a culture based on clearly defined roles and responsibilities for those involved in processing cases. In collaboration with Implement, the municipality has therefore created “flow-based work culture” based on matching of expectations, collaboration and coordination between different experts.

The clear frameworks create security and clarity in case processing and enable improved processes and deliveries that are more satisfactory for both companies and employees.


“Management is a key part of the change process that’s under way. We are giving a clear mandate to the case managers responsible for coordinating complex cases across areas of expertise. The specialist team leaders also have a new role in the collaboration and prioritisation across specialist areas, ensuring that the specialist case managers get the support they need. The method has definitely strengthened our collaboration across the Centre.”

Ulla Catrine Brinch, Centre Manager.

Flow-based work process that provides an overview

Fredensborg Municipality completed their project in collaboration with Implement to develop a collective flow-based work process. The municipality has produced a manual for complex business cases that provides an overview of the case processing procedure that the municipality can communicate to companies and employees. The overview also encompasses associated relevant templates and guidelines.

Through the project, Fredensborg Municipality has established a common language regarding how complex cases are carried out in the municipality. A language in which collaborative culture and task performance is based on common templates, hereunder matching expectations among companies and employees regarding the procedure, roles and which tasks the individual parties are highlighting.

The new flow-based collaboration has created clarity for everyone throughout the process – before, during and after. It ensures that cases are thoroughly screened, that employees pose the relevant questions to the company and receive relevant answers at kick-off meetings, and that employees use the correct expertise at the right moment during case processing.

Key products
  • Handbook with process, management meetings, roles and responsibilities
  • Templates for all steps in the process
  • Guidelines and tools for timetables, dialogue meetings, status meetings etc.
  • New and transformed role-based management and follow-up

How can your organisation create processes with impact in complex authority cases regarding technical and environmental issues through change of culture?

Implement and Fredensborg Municipality have carried out the project in four phases: mobilisation, design, practical embedding and consolidation.

In the four phases, the main focus was on involving managers and employees. It was important that the solutions were workable and therefore that they were designed and tested among those who work with the tasks. The actual training in the new process was hands on, with cases and templates that the employees themselves had designed, which ensured ownership and a sense of security in the employee group. The managers followed the training continuously and took part themselves in integrated processes, including designing rules of conduct and process steps.

Core change and effect

The project:
  • Made rules of conduct for how we work and cooperate with the company visible
  • Provided specific tools for checking expectations
  • Devised a clear process for the company and employees – who does what and when
  • Defined clear roles at the company and municipality – AUDI model
  • Defined new leadership roles in the cross-prioritisation of complex cases