How can the international community support development in countries where the government does not share the objective of poverty reduction? This document by the Organisation for Economic Co-operation and Development (OECD) addresses the issue of “difficult partnerships”. It suggests that in these circumstances, the normal Development Assistance Committee (DAC) partnership model does not work effectively. It recommends a new approach that has specific objectives and involves a range of measures that are tailored to the nature of difficult partnerships and to the country context.
A development partnership involves political commitments to poverty reduction as well as financial and technical engagement by all partners. The capability of a developing country government to make such a political commitment depends on its political system – in particular, how responsive the system is to the interests of poor people – and how well authority is consolidated within the state. A lack of political commitment is most often exacerbated by weak capacity in the government to develop and implement policy as well as the institutional weaknesses of non-state actors.
The problems of limited political and institutional capability are not restricted to a small group of countries. In less severe cases, partnership difficulties may merit special attention and dialogue within the context of a normal development relationship in which donor support continues to be provided through government to a country-led programme. In more severe cases, development agencies may decide that they must restrict the level or type of assistance they provide through the government.
Although withdrawing entirely may at first seem appealing, it has the potential to worsen the situation. It potentially leaves large numbers of the poor without prospect of escaping poverty.
- Even under difficult conditions there are change agents who are worthy of support, including parliamentarians, judges, the media, professional associations, and trade unions.
- Political leadership matters, as does consistent and patient support for leadership that shows commitment in difficult circumstances.
- Development agencies can contribute to building the capacity of civil society, as well as to creating an enabling environment for its advocacy role, including through moral and diplomatic support for the fundamental freedoms.
- The private sector can play an important role as a potential part of the change agenda.
- The international community should not overlook those measures that work primarily over the medium term, such as training future leaders or supporting small and medium business entrepreneurs and associations.
- All policy instruments need to be taken into account to encourage greater coherence of relations with countries in difficult partnerships.
Work to date points to some key principles for action:
- Remain engaged.
- Improve analysis of country issues and context; adopt specific strategies to address problems of difficult partnership; promote change that will nurture the political environment that leads to more responsive and capable government.
- Maintain services for poor people whilst working pragmatically with organisations inside or outside government that have commitment and capability.
- Assess the case for aid against the “without aid” risks for both the international community and for poor people.
- Intensify co-ordination but make it economical; address coherence issues across government. Support locally-owned peer pressure mechanisms; consider the role of neighbouring countries and key regional leaders.
