Social capital: A shared understanding of (public) interest and the presence of trustworthy relationships among involved actors are important for the co-creation of policies, as they enable stakeholders and policy makers to overcome barriers to collective action. However, participatory governance is predominantly based on an administrative representation model, meaning that there is a central role for the representatives of school boards. Legally, they are one of the components of the quality triangle already mentioned in Chapter 3. In the Decree on Inspection and Support of 1991, the learning plans of education providers are positioned as an important link in the chain from attainment targets to class practice.