International support to post-conflict transition [electronic resource] : rethinking policy, changing practice

2012·2.3 MB·English

by  Organisation for Economic Co-operation and Development. Development Assistance Committee

DACGuidelinesandReferenceSeries
International Support
to Post-Conflict Transition
RETHINKINGPOLICY,CHANGINGPRACTICE
OECD
Copyrightedmaterial
Copyrightedmaterial
DACGuidelinesandReferenceSeries
International Support
to Post-Conflict
Transition
RETHINKINGPOLICY,CHANGINGPRACTICE
OECD
ThisworkispublishedontheresponsibilityoftheSecretary-GeneraloftheOECD.
Theopinionsexpressedandargumentsemployedhereindonotnecessarilyreflect
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boundariesandtothenameofanyterritory,cityorarea.
Pleasecitethispublicationas:
OECD(2012),InternationalSupporttoPost-ConflictTYansition:RethinkingPolicy,ChangingPractice,
DACGuidelinesandReferenceSeries,OECDPublishing.
http://dx.doi.org/10.1787/9789264168336-en
ISBN978-92-64-16831-2(print)
ISBN978-92-64-16833-6(PDF)
Series:DACGuidelinesandReferenceSeries
ISSN1990-0996(print)
ISSN1990-0988(online)
Photocredits:Cover©KonstantinInozemtsev/istockphoto.com.
CorrigendatoOECDpublicationsmaybefoundonlineat:www.oecd.org/publishing/corrigenda.
©OECD2012
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FOREWORD
Foreword
^^ECDmembercountriesprovidedUSD46.7billioninofficialdevelopment
assistancetofragilestatesin2009.Thisisasignificantinvestment,butwestill
struggletoworkwithourpartnersinwaysthatsupporttransformativeresults
infragilestates.Thefactthatnolow-incomefragilestatehasyetachieveda
singleMillenniumDevelopmentGoal(MDG)isastarkreminderbothofthe
needsthatdriveallsidestofocusonfragility,andofthedauntingchallenges
thatremain.
Evidenceshowsthateffectivesupporttotransitionrequirescollective
andparallelengagementbydifferentpolicycommunities.Despitedecades
ofexperience,wehavestillnotbeenabletobuildaresponsethateffectively
linkshumanitariananddevelopmentassistance,andthatreconcilesdifferent
principlesandoperationalmodalitiesinawaythatsupportstransitionsfrom
conflicttopeace.Achangeinbothpolicyandpracticeisneeded.
FromAfghanistantoHaiti,andmostrecentlyintheHornofAfrica,we
havewitnessedtheresultsofdevelopmentapproachesthatarenotdesignedto
meetthechallengesoffragilestatesinatimelyandflexiblemanner.Weknow
thatinmanyofthesecountries,unrealisticexpectationsaboutcapacitiesand
ownershipfrequentlycausedelaysindevelopmentassistance.Intheabsence
ofbetterdevelopmentfunding,humanitarianactorshavebeenlefttofillthe
void;yethumanitarianinstrumentsareneitherdesignednorwell-equippedto
promotepeacebuildingandstatebuilding.This,inturn,hasanegativeimpact
ontheprospectsofasuccessfultransition.
Ifweknowallthis,whyhassolittlechanged?Someoftheproblemmight
havetodowithcurrentapproachestomanagingrisks.Transitionsarehigh-risk
teahnnevdirfriosorknstmhoeefntniosnttfeoerrnndgaeatigvoiennlagolpicmneotnmhtmesuiennviceotsnyttme—extnsotus—tawnbeoditgahhctfitoohrnet,hryeiestckomsuoonrftereionefgstaetgnhietnmghsaiennlnvtoehtse,
firstplace.Thequestion,therefore,isnotwhethertoengage,buthowtoengage
inwaysthatarecontext-specificanddonotcomeatanunacceptablecost.
TheFourthHigh-LevelForumonAidEffectivenessinBusan(2011)was
awatershedmomentforinternationaldevelopmentco-operation.Morethan
40fragilestatesanddevelopmentpartnerscametogethertoendorseaNew
INTERNATIONALSUPPORTTOPOST-CONFLICTTRANSITION:RETHINKINGPOLICY,CHANGINGPRACTICE©OECD2012 3
FOREWORD
DealforEngagementinFragileStates,whichgivesclarityonprioritiesinthese
difficultcontextsbysettingoutaroadmapforbetteruseofbothinternational
anddomesticresources.Builtonasetofagreedpeacebuildingandstatebuild-
ingobjectives,theNewDealalsorecognisestheneedforfocussedapproaches
thatsupportcountry-ledtransitionsoutoffragility,andforacceptingtherisks
ofengagementwithfragilecountries.DevelopedbytheDACInternational
NetworkonConflictandFragility(INCAF),InternationalSupporttoPost-Conflict
Transitionprovidestheguidancethatdevelopmentpartnersneedtomakegood
onthecommitmentstheymadeatBusan.
Toensurethatdevelopmentresourcesareusedtosupporttheessential
objectivesofpeacebuildingandstatebuilding,weneedtobridgethedividebe-
tweenpolicyandpracticetodelivermorerapid,flexibleandrisk-tolerantsup-
port.Andbecausethevastlydiversecontextsfromonecountrytoanothercan
turnblueprintapproachesintorecipesfordisaster,wecannotaffordtotake
a“one-size-fits-all”approach.Withthesechallengesinmind,thisguidance
callsforsupportfocussedonpeacebuildingandstatebuildingtoenabledonors
todeliverbetterresultstothosewhoneeditmost.Thesuggestionsraisedin
thisimportantpublicationmeritin-depthdiscussionbyallconcerneddevel-
opmentpartnersandwillnodoubtcontributetoshapingthediscussionabout
howtoimprovedeliveryinpost-conflicttransitions.
(fm
GunillaCarlsson
Chair,OECDDevelopment MinisterforInternational
AssistanceCommittee DevelopmentCo-operation,
MinistryforForeignAffairs,Sweden
4 INTERNATIONALSUPPORTTOPOST-CONFLICTTRANSITION:RETHINKINGPOLICY,CHANGINGPRACTICE©OECD2012
ACKNOWLEDGEMENTS
Acknowledgements
Thi,publicationhasbeenpreparedattherequestoftheOECDDevelopment
AssistanceCommittee(DAC)andtheUNSecretary-General.Theprocessof
developingandpreparingtheguidancewasledbyAsbjornWee(OECD-DAC
Secretariat)undertheoverallguidanceofHenrikHammargren(Sweden,
ChairoftheDACInternationalNetworkonConflictandFragilityTaskTeam
onFinancingandAidArchitecture)andAlexandraTrzeciak-Duval(OECD-
DACSecretariat).RahulChandran,SarahCliffe,JamesDarcy,ChristianLotz,
StephanMassing,LeighMitchell,NicolaPontara,SanjanaQuazi,NigelRoberts,
RachelScott,JakeSherman,MariskavanBeijnum,BrianJ.Williams,Ronald
Wormgoor,VanessaWyethandGeorginaYatescontributedtotheanalysis
andkeypolicyrecommendations.
Thepublicationhascomeastheresultofacollaborativeeffortbetween
membersoftheDACInternationalNetworkonConflictandFragility(INCAF).
TheINCAFCo-chairs,KoenDavidse(Netherlands),TobiasNussbaum(Canada)
andJordanRyan(UnitedNationsDevelopmentProgramme,UNDP)facilitated
theprocessbyorganisinghigh-levelconsultationswithmultilateralactors
inNewYork,andwereinstrumentalingettingthedocumentapproved.Col-
leaguesandTaskTeammembersfromthefollowingcountriesandorganisa-
tionsprovidedvaluablecommentsandcontributionsthroughouttheprepa-
rationprocess,including:Australia(JaneChandler,MatKimberley,Lyndal
Manson,ArthiPathel,NatashaSmith),Belgium(MartinusDesmet,XavierRou-
ha),Canada(MichaelKoros,HeXiang),Denmark(MetteStrandGjerloff,Tania
Schimmell),Finland(SatuLassila),France(FrancoisGaulme,ValerieMaugy,
MathieuRobin),Germany(SabineBrickenkamp,SophieKraume,HenningPlate,
ChristineToetzke),Ireland(CiaraO’Brien),Japan(AiImai,MotoyukiIshize,
RyutaroMurotani),Netherlands(KoenDavidse,RonaldWormgoor),Norway
(TomEdvardEriksen,ElisabethSchwabeHansen),Portugal(ManuelaFerreira),
Sweden(KarinAndersson,JohanFrisell,UlricaReuterwall),Switzerland(Sego-
leneAdam),UnitedKingdom(MarcusLenzen,RebeccaDale,GeorginaYates,
BellaBird,SueLane,KateWhyte),UnitedStates(NanceKyloh,NeilLevine,
RachelLocke,GaryWinter),EuropeanCommission(FedericoBirocchi,Oliver
Blake,BronteFlecker,AgataNieboj,CorradoScognamillo,DorotheeStarck),In-
ternationalMonetaryFund(DominiqueDesruelle,BhaswarMukhopadhyay),
INTERNATIONALSUPPORTTOPOST-CONFLICTTRANSITION:RETHINKINGPOLICY,CHANGINGPRACTICE©OECD2012 5
ACKNOWLEDGEMENTS
OECD(SaraFyson,DonataGarrasi,ErwinvanVeen),UNDP(PeterBatchelor,
BrunoLemarquis,ChristianLotz,StanNkwainJenniferWorrell),UNOffice
fortheCo-ordinationofHumanitarianAffairs(OCHA)(MichaelJensen,Steve
O’Malley,SanjanaQuazi),UNPeacebuildingSupportOffice(PBSO)(BrianJ.Wil-
liams,KristinaKoch-Avan,CalumGardner)andtheWorldBank(AlastairMck-
echnie,NicolaPontara,GregEllis,SteveNdegwa,FarisHadad-Zervos).
Inaddition,thedevelopmentofthisguidancebenefittedfromfrequentin-
teractionandfeedbackfrommembersoftheUNDevelopmentGroup(UNDG)
ExecutiveCommitteeonHumanitarianAffairs(ECHA)WorkingGroupon
Transition,including:SandraAviles,AnjaBilleBahncke,DeniseBrown,Isabel
Candela,SofiaCarrondo,LisaDoughten,HenrietteKeijzersandNalineeNip-
pita,RachelDoreWeeks,BettinaWollandGeorgeZachariah.Severalroundsof
consultationswerealsoorganisedtosolicitfeedbackandfurthersharpenthe
recommendations,includingahigh-levelconsultationwithheadsofUNagen-
ciesandprogrammes,withtheWorldBank,withmemberstheInter-agency
SteeringCommittee,andwiththeEuropeanCommission.Valuablefeedback
ontheoperationalaspectsoftheguidancewasprovidedbyGiovanniBosco,
JeanneBriggs,NickCrawford,FionaDavies,PhilipDive,StefDeutekom,Lise
Grande,MathewLeslie,DanielLopez-Acuna,JamesC.Lovelace,JonasMfoua-
tie,AdrianMorris,JoannaNickollsandOliverUlich.
JamesEberleinandFionaHallprovidedinvaluableeditorialassistance
andStephanieCoicandIsabelHubercontributedtothepreparationofthis
publication.
6 INTERNATIONALSUPPORTTOPOST-CONFLICTTRANSITION:RETHINKINGPOLICY,CHANGINGPRACTICE©OECD2012
TABLEOFCONTENTS
TableofContents
Abbreviationsandacronyms 9
Executivesummary 11
Introduction 15
1.Theneedforchangeinacontextofrisk 17
Whatarethechallengesduringtransition? 18
WWhhaytisartehethientreirsnkastfioornadloncoormsmiunntirtanysintoitomneceotnitnexgttsh?esechallenges?..2129
Recommendations:Strategiesfordealingwithrisk 27
2.Coherentplanningandprioritisation 31
Whataretheprioritiesfortransitionsupport? 32
Whatislimitingeffectiveplanningandclearprioritisation? 35
Recommendations:Helpinggovernmentsprioritisetheirdevelopment...39
3.Gettingthemixofaidinstrumentsright 45
Whyisamixofaidinstrumentsrequired? 46
Whatcategoriesofaidandassociatedinstrumentsareavailable?....46
Guidingprinciplesforchoosingtherightmix 51
Recommendations:Puttingtogetheraneffectivefinancingstrategy 57
4.Awayforward:transitioncompacts 65
Canmutualaccountabilityworkintransition? 66
Thefourelementsofatransitioncompact 67
Lessonsfromrecentexperienceswithcompacts 71
Recommendations:Makingtransitioncompactshappen 75
AnnexA.KeyelementsofareformagendatoimplementtheDACGuidance
onTransitionFinancing 81
Bibliography 83
INTERNATIONALSUPPORTTOPOST-CONFLICTTRANSITION:RETHINKINGPOLICY,CHANGINGPRACTICE©OECD2012 7
TABLEOFCONTENTS
Tables
3.1. Effectivenesscriteriaforchoosingaidinstrumentsduringtransition.54
3.2. Optionsforamoreefficientdivisionoflabouracrossdifferentglobal
transitionfundingmechanisms 61
4.1 Transitioncompacts:roles,benefits,contributionsandactions 79
Figures
1.1. Conceptualframeworkforunderstandingrisks 25
2.1. Broadcategoriesoftransitionpriorities 34
4.1. Elementsoftransitioncompacts 68
Boxes
1.1. Whatdowemeanbytransitionandtransitionfinancing? 18
1.2. Challengesandopportunitiesofdifferentprinciplesforengagement..23
1.3. Pooledfunds,fiduciaryrisksandthelimitsofeffectiveness 29
2.1. Internationalagreementsontransitionobjectivesandpriorities 33
2.2. Internationalplanningtoolsandtheirusefulnessduringtransition...37
2.3. TransitionplanninginTimor-Leste,2008-11 41
2.4. SierraLeone:DonoralignmentwiththeAgendaforChange 42
3.1. Usingpooledfundsintransitionsituations:Secretsofsuccess 49
43..23..Understandingbudgetaid 52
3.3. Dualaccountability:GEMAPinLiberia 55
3.4. Casestudy:SequencingaidinAfghanistan 56
3.5. PracticaloptionstoimproveUN-WorldBankrelationships 62
4.1. Aidinformationmanagementsystemsintransition 69
4.2 Learningfromthe“firstgeneration”ofcompacts 74
Managingtransitioncompacts 77
8 INTERNATIONALSUPPORTTOPOST-CONFLICTTRANSITION:RETHINKINGPOLICY.CHANGINGPRACTICE©OECD2012