Differences among municipalities (in size, location etc.) impact equal access to welfare services, making inter-municipal collaboration crucial. This study examines a digital transformation initiative between a smaller and a larger municipality, analyzing how institutional entrepreneurs (IEs) ensure equitable collaboration. Based on thematic analysis of 53 structured interviews, findings show that IEs drive equitable DT by emphasizing complementary strengths, a shared vision, and mutual benefits. Unlike previous research suggesting collaboration is most intensive early on, our study highlights the ongoing importance of discourse and shared framing. While financial concerns emerged, strong national support and a commitment to equal welfare mitigated risks. Over time, IEs shifted from assertive leadership to shared responsibility, fostering long-term collaboration and sustainability. This research contributes to IS literature by providing empirical insights into IEs and inter-organizational collaboration in public sector, offering valuable guidance for policymakers and practitioners implementing similar initiatives.