How can a Whole-of-Government Approach (WGA) be implemented by development practitioners to address the specific needs of fragile states? This study from the OECD assesses the mechanisms and processes that contribute to effective WGAs in fragile states. Drawing on recent field-level case studies, the paper assesses the appropriateness of the Principles for Good International Engagement in Fragile States and makes recommendations for putting them into practice.
A WGA is defined as a strategy in which a government actively uses its own formal and/or informal networks to co-ordinate policy interventions across agencies, with the goal of increasing their overall effectiveness. In recent years, the rationale for such an approach has become increasingly clear, as development and military actors have realised the limitations of traditional diplomatic and military interventions applied in isolation. Greater coherence between security and development policies is thus a key to establishing an effective WGA to fragile states. A clear benefit of a WGA is that it can contribute to the overall objective of long-term development and stability in fragile states at a lower overall fiscal cost.
The development and successful implementation of WGAs to fragile states face a number of challenges, which include:
- shifting political interests and priorities and a bias towards (post-)conflict states
- the constitutional and political context of donor governments
- differing and often conflicting rationales for engaging in fragile states
- strong disincentives to working in close partnership across government departments
- human and financial resource constraints
- institutional, budgetary and functional walls between government departments
The Principles for Good International Engagement in Fragile States need to be mainstreamed in OECD member governments. This should be accompanied by efforts to develop the policy instruments and mechanisms required to operationalise these into assistance programmes:
- The effectiveness of joined-up approaches may be improved by the creation of an overall framework, consisting of: 1) a clear, shared understanding of what fragile states are; 2) a joint policy statement on collaborative working in fragile states; and 3) a commitment to establish an effective dialogue between key actors.
- It is important to engage with a wide range of actors including ministries of economic affairs and trade.
- The activities of different actors need to be linked to a set of broader, joint objectives, defined on the basis of joint analyses or assessments.
- An overall framework could provide much needed guidance on the development of (joint) country strategies.
- There is a need for clear political guidance and leadership to develop an effective WGA. Foreign affairs departments may be best positioned to take up this lead co-ordinating role.
- Existing and new incentives for joined-up working should be identified. A joint policy statement by the key ministers could serve as such an incentive.
- Joint budget lines or pooled funding could foster integrated planning. However, it is critical to avoid creating parallel structures.
- Where possible, the information management systems of different actors should be integrated.
