Partnership is ubiquitous in international development discourse, but it is unclear whether development relationships have become less hierarchical. This study looks beyond the usual North-South inter-organizational partnerships, to examine within-organizational dynamics. It examines participation in the context of two South Korean non-governmental organizations (NGOs) in Cambodia. Findings based on qualitative interviews with Korean leaders and local Cambodian managers show shortfalls yet overall improvements in participation, with a shift from a managerialist to a more praxis approach. The study shows that examining within-organizational power relations provides an important window into the real nature of participation, empowerment and partnership in development cooperation practices. K E Y W O R D S capacity building, development partnership, Korean aid, NGOs, participation 1 | INTRODUCTION 'Partnership' entered the international development discourse in the 1970s and became mainstream with the World Bank's Partnership for Development (Kamel et al., 1998) and the 2005 Paris Declaration. Partnership is understood to entail trust, respect and reciprocity, transparency, and accountability (Schaaf, 2015), and to be vital for efficient and effective development. The term refers to the funding and capacity building relationships between international and local non-governmental organizations (NGOs), or to the contracting relationships between entities, such as NGOs and the government or the private sector. Partnership, therefore, is one type of 'management of relationships' or