Bringing resilience together: On the co-evolutionary capacities of boundary organizations during the COVID-19 pandemic in Rotterdam

For a city to maintain its vitality during a crisis like the COVID-19 pandemic, social resilience is pivotal. It is a manifestation of adaptive and transformative capacities in a city, through a multitude of interactions between initiatives and organizations, including local government. Resilience can take many forms: coping, adaptive, transformative; community-based, organizational, and institutional. Due to this hybridity and multiplicity, it remains to be seen how all forms of resilience interact and mutually benefit from one another in a city under crisis. Building further in the relational and dynamic dimensions of resilience, we conceptualize these mutual influences as co-evolution and hypothesise that for mutually beneficial co-evolution a city requires boundary organizations, i.e., organizations that facilitate collaboration and information-flow between differently organized societal domains. In our study of the activities of boundary organizations in the Dutch city Rotterdam during the COVID-19 pandemic, we found that boundary organizations were indeed supportive in building social and especially community resilience, but mainly coping and adaptive. Evidence for co-evolutions between various forms of resilience and institutional transformative resilience remained limited. Transformative potential seemed to get lost in procedural translations, was jeopardized by recentralization policies, and seemed only possible on the currents of already ongoing change.