<strong>Approaches</strong> <strong>to</strong> <strong>Improv<strong>in</strong>g</strong> <strong>the</strong> <strong>Delivery</strong> <strong>of</strong> <strong>Social</strong> <strong>Services</strong> <strong>in</strong> <strong>Difficult</strong> Environments<strong>the</strong> National Solidarity Programme <strong>in</strong> Afghanistan shows 29 , it is possible <strong>to</strong>scale up <strong>the</strong>se approaches and <strong>in</strong>tegrate <strong>the</strong>m <strong>in</strong><strong>to</strong> government plann<strong>in</strong>gprocesses. Sec<strong>to</strong>rs <strong>the</strong>mselves can also be entry po<strong>in</strong>ts. Educationreform, for example, is frequently seen as a key <strong>to</strong> social cohesion <strong>in</strong>countries emerg<strong>in</strong>g from conflict, and HIV and AIDS has been a focus <strong>of</strong><strong>in</strong>ternational and national resource mobilisation <strong>in</strong> Burma.Box 1: Entry po<strong>in</strong>ts for build<strong>in</strong>g political willCentral government commitment <strong>to</strong> reform <strong>in</strong> Nigeria – <strong>the</strong> election <strong>of</strong> President Obasanjo<strong>in</strong> 2003 set <strong>the</strong> scene for political commitment <strong>to</strong> reform. A report by <strong>the</strong> OPSRrecommends that leadership from <strong>the</strong> <strong>to</strong>p needs <strong>to</strong> be matched by service delivery<strong>in</strong>terventions that are highly visible <strong>to</strong> <strong>the</strong> public, can be turned around quickly, and arecapable <strong>of</strong> replication. Options <strong>in</strong>clude strategic services that are <strong>of</strong> concern <strong>to</strong> allNigerians (such as <strong>the</strong> police), targeted <strong>in</strong>terventions <strong>in</strong> <strong>the</strong> health sec<strong>to</strong>r, and s<strong>in</strong>gleservice functions such as passports.Quick impact projects as a demonstration <strong>of</strong> political will <strong>in</strong> Afghanistan - The World Bankimplemented a $45 million dollar programme <strong>in</strong> 2002 <strong>in</strong> order <strong>to</strong> move money down <strong>to</strong> <strong>the</strong>community level for <strong>the</strong> reconstruction <strong>of</strong> basic <strong>in</strong>frastructure and <strong>the</strong> creation <strong>of</strong>livelihoods opportunities (road build<strong>in</strong>g <strong>in</strong> this case). Community empowerment andparticipation were explicit goals <strong>of</strong> <strong>the</strong> design.32. Streng<strong>the</strong>n capacity <strong>of</strong> state 30 policy mak<strong>in</strong>g functions: where <strong>the</strong>re issome state will<strong>in</strong>gness, efforts <strong>to</strong> build policy mak<strong>in</strong>g and implementationcapacity are best directed at <strong>the</strong> state and state structures because this iswhere ultimate responsibility for pro-poor service delivery lies. Support for<strong>the</strong> state can occur at central plann<strong>in</strong>g and f<strong>in</strong>anc<strong>in</strong>g levels, at <strong>the</strong> sec<strong>to</strong>rallevel, or at decentralised levels <strong>of</strong> government (or a comb<strong>in</strong>ation <strong>of</strong> <strong>the</strong>three). Decisions as <strong>to</strong> where <strong>to</strong> engage will depend very much onanalysis <strong>of</strong> capacity and will at <strong>the</strong> different levels. <strong>Approaches</strong> <strong>to</strong> build<strong>in</strong>gstate capacity <strong>in</strong>clude provid<strong>in</strong>g long-term technical assistance, support<strong>in</strong>gelements <strong>of</strong> recurrent expenditure, and f<strong>in</strong>anc<strong>in</strong>g community recoverythrough decentralised structures. Engagement <strong>in</strong> capacity build<strong>in</strong>grequires a long-term commitment from <strong>the</strong> <strong>in</strong>ternational community. Policybased <strong>in</strong>terventions aimed at support<strong>in</strong>g <strong>the</strong> public sec<strong>to</strong>r <strong>in</strong> difficultenvironments pose several challenges for <strong>the</strong> <strong>in</strong>ternational community.Some <strong>of</strong> <strong>the</strong> key lessons, based on an analysis <strong>of</strong> post conflict<strong>in</strong>terventions, but with potential applicability across o<strong>the</strong>r environmentswith weak capacity 31 , are summarised <strong>in</strong> box 2 below.29 http://www.acted.org/article/articleview/586/1/20/30 The state is unders<strong>to</strong>od <strong>in</strong> its widest, most generic sense <strong>to</strong> be <strong>the</strong> system <strong>of</strong> social control capable <strong>of</strong>ma<strong>in</strong>ta<strong>in</strong><strong>in</strong>g a monopoly <strong>of</strong> violence over a def<strong>in</strong>ed terri<strong>to</strong>ry with <strong>in</strong>ternational recognition.31 Macrae, J. (2001).This work<strong>in</strong>g paper is <strong>in</strong>tended <strong>to</strong> stimulate public discussion. It is not necessarily DFID orUK Government policy16
<strong>Approaches</strong> <strong>to</strong> <strong>Improv<strong>in</strong>g</strong> <strong>the</strong> <strong>Delivery</strong> <strong>of</strong> <strong>Social</strong> <strong>Services</strong> <strong>in</strong> <strong>Difficult</strong> EnvironmentsBox 2: Lessons for <strong>the</strong> <strong>in</strong>ternational community <strong>in</strong> support<strong>in</strong>g public policy capacity<strong>in</strong> countries emerg<strong>in</strong>g from conflict• In resource-poor environments, <strong>in</strong> <strong>the</strong> short <strong>to</strong> medium term, <strong>the</strong> state is unlikely <strong>to</strong>be able <strong>to</strong> assume responsibility for recurrent costs associated with service delivery• Donor coord<strong>in</strong>ation and alignment beh<strong>in</strong>d <strong>the</strong> government are crucial, but are likely<strong>to</strong> be highly problematic (both because <strong>of</strong> <strong>the</strong> limitations <strong>of</strong> government, and <strong>the</strong>conflict between political <strong>in</strong>terests <strong>of</strong> <strong>in</strong>ternational agencies).• Service delivery cannot be res<strong>to</strong>red through <strong>the</strong> provision <strong>of</strong> <strong>in</strong>frastructure alone –human resource development and attention <strong>to</strong> equitable distribution <strong>of</strong> resources isalso essential.• There are trade-<strong>of</strong>fs between meet<strong>in</strong>g immediate needs and plann<strong>in</strong>g forsusta<strong>in</strong>ability – with regards <strong>to</strong> f<strong>in</strong>anc<strong>in</strong>g, for example, difficult decisions have <strong>to</strong> bemade about whe<strong>the</strong>r <strong>to</strong> channel funds through government or <strong>to</strong> bypassgovernment structures for <strong>the</strong> sake <strong>of</strong> efficiency and effectiveness.33. Use non-state mechanisms for policy coord<strong>in</strong>ation: <strong>in</strong> environmentswhere <strong>the</strong>re is unwill<strong>in</strong>gness on <strong>the</strong> part <strong>of</strong> government, or where capacityis so weak as <strong>to</strong> make a sec<strong>to</strong>r or sub-sec<strong>to</strong>r dysfunctional, <strong>the</strong>n it may benecessary <strong>to</strong> consider alternative mechanisms for co-ord<strong>in</strong>at<strong>in</strong>g policy, atleast <strong>in</strong> <strong>the</strong> short <strong>to</strong> medium term. Mechanisms may be necessary at <strong>the</strong>central level, at <strong>the</strong> sec<strong>to</strong>ral or<strong>the</strong>matic level, and/or at <strong>the</strong>sub-sec<strong>to</strong>ral level. Box 3gives some <strong>in</strong>dication <strong>of</strong> <strong>the</strong>possible types <strong>of</strong>arrangements that may beappropriate depend<strong>in</strong>g oncontextual analysis. Theseexamples come fromSomalia 32 , where <strong>the</strong>re is norecognised government and avirtual absence <strong>of</strong> statestructures; Myanmar 33 , whichsome fund<strong>in</strong>g agencies do notrecognise as a legitimategovernment; and Nepal 34 ,where <strong>the</strong> state is conflictaffected and <strong>the</strong> legitimacy <strong>of</strong><strong>the</strong> government is <strong>in</strong>ternallycontested. The first twoexamples highlight <strong>the</strong>contribution that UnitedNations agencies can play <strong>to</strong>coord<strong>in</strong>ate activities <strong>in</strong> difficultenvironments. This isBox 3: Non-state mechanisms for policycoord<strong>in</strong>ationSomalia Aid Coord<strong>in</strong>ation Body: a voluntary bodythat <strong>in</strong>cludes donor, NGO and UN bodies asmembers. Designed <strong>to</strong> facilitate <strong>in</strong>formationshar<strong>in</strong>g and coord<strong>in</strong>ate programm<strong>in</strong>g and policyformulation and ‘avoid <strong>the</strong> mistakes <strong>of</strong> large-scale,<strong>to</strong>p down aid programmes. provid<strong>in</strong>g unsusta<strong>in</strong>ablesocial services until a crisis ends’.Jo<strong>in</strong>t programme on HIV/Aids control <strong>in</strong> Myanmar:<strong>in</strong>cludes UN organisations, donors, NGOs and <strong>the</strong>government. Objective is <strong>to</strong> maximize cost effectiveuse <strong>of</strong> fund<strong>in</strong>g and resources, <strong>in</strong>clud<strong>in</strong>g m<strong>in</strong>imis<strong>in</strong>gduplication <strong>in</strong> geographic and sec<strong>to</strong>ral coverageand report<strong>in</strong>g mechanisms.Nepal Rural Water Supply and Sanitation FundDevelopment Board: World Bank formed <strong>the</strong> FundBoard <strong>in</strong> response <strong>to</strong> <strong>the</strong> perceived failure <strong>of</strong> <strong>the</strong>Nepalese Government <strong>to</strong> deliver susta<strong>in</strong>ableservices. The Bank also felt that political<strong>in</strong>terference <strong>in</strong> project selection was lead<strong>in</strong>g <strong>to</strong>major dis<strong>to</strong>rtions <strong>in</strong> coverage. Fund Board’s majorobjective is <strong>to</strong> support <strong>the</strong> construction <strong>of</strong> watersupply schemes for rural beneficiaries throughlocal support organisations (NGOs and privatesec<strong>to</strong>r firms).because <strong>of</strong> <strong>the</strong> broad acceptance <strong>of</strong> <strong>the</strong> UN as a universal, neutral,politically <strong>in</strong>dependent ac<strong>to</strong>r. The third example shows <strong>the</strong> potential <strong>of</strong>social funds, one <strong>of</strong> <strong>the</strong> World Bank’s preferred <strong>in</strong>struments, <strong>in</strong>32 http://www.sacb.<strong>in</strong>fo/33 Fonsberg, B.C (May 2004).34 Armon, J., Berry, C. Duncan, D. (June 2004).This work<strong>in</strong>g paper is <strong>in</strong>tended <strong>to</strong> stimulate public discussion. It is not necessarily DFID orUK Government policy17