Fragmentation or Pluralism? The organisation of development cooperation revisited

Veranstaltungsart
Conference

Ort/Datum
Bonn, 10.10.2013

Veranstalter

German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE)


1. Conference theme

International development cooperation is characterised by a diversification of goals, approaches and a proliferation of actor constellations. While these fundamental changes of the development cooperation landscape have been reflected in the aid- and development-effectiveness processes, the international development community – and especially aid-receiving countries – continues to struggle with their implications.

Critics have long argued that this proliferation of actors and approaches has led to a fragmented development cooperation landscape in many aid-dependent countries. This carries important unintended consequences in terms of higher transaction costs for those on both sides of aid relations; conflicting concepts and policies; efficiency losses; and neglected sectors and countries. Proponents point towards the potential of a diverse development landscape for mutual learning, innovation and competitive selection among the different providers of development assistance. Fragmentation also frequently goes hand in hand with donors’ needs for individual visibility, coupled with an endeavour to retain full control over the aid-allocation process, which further perpetuates fragmentation. Managing such opportunities and risks is the challenge on the ground. The Busan Building Block on Managing Diversity and Reducing Fragmentation is but one example of the latest approach for coming to terms with the challenge.

The purpose of this conference was to explore fragmentation and pluralism of development cooperation, both at the theoretical and practical levels. Bringing together a diverse group of presenters and participants from the academic and policy communities, the conference exploreed the issues of fragmentation and pluralism from a variety of perspectives, focusing in particular on concepts; measurements; the political economy of development cooperation causing the emergence and persistence of fragmentation; actors; modalities and instruments; and practical experiences in the attempt to overcome fragmentation and/or to manage diversity.

2. Conference panels

a. Concepts, definitions, measurement

This session developed a common understanding of the phenomenon of fragmentation: its theoretical foundations and empirical reality. How can we define and measure fragmentation? What are the analytical challenges in researching fragmentation? Is the OECD’s fragmentation indicator a suitable base for rationalisation? Does operating with a concentration and fragmentation ratio make sense? What is unavoidable fragmentation? Would more aid to a sector justify more fragmentation? What are explanatory variables for increases or decreases in fragmentation? What rationales and/or political economy factors are at play on both side of the development cooperation relationship? Is there an overall incentive of aid providers to maintain a “non-system”?

b. Actors

This session explored the implications of fragmentation for different sets of actors within international development, such as for bilaterals, multilaterals, emerging actors and private actors. Is South-South cooperation leading to more fragmentation? Do partner countries take advantage of the diversity, or use it rather as a lever to interact with one another? Are there common but differentiated responsibilities for reducing fragmentation? What would prevent actors with declining aid shares in sectors from using delegated cooperation or silent partnerships more? How could aid providers better synchronise their programme cycles among themselves and with the partner government?

c. Aid modalities and instruments

This session explored the interlinkage between fragmentation and different aid modalities and instruments. Are joint arrangements such as division of labour, joint planning, joint programming, joint monitoring and evaluation etc. adequate responses to the challenge of fragmentation? How do general budget support, sector budget support, programme-based approaches and pooling affect fragmentation? What are the links between fragmentation and development effectiveness? Does more fragmentation lead to more aid being tied? Are there inherent trade-offs within the aid harmonisation agenda?

d. Tackling fragmentation

The final session explored ways of tackling the negative externalities of fragmentation. With what instruments do donors address fragmentation? What is the assessment on some of the practical approaches towards tackling fragmentation, such as the country compacts proposed in the framework of the Busan Building Block on Managing Diversity and Reducing Fragmentation; the EU’s division of labour; and the United Nations’ “Delivering as One” concept? What could be elements of innovative approaches towards overcoming fragmentation? How much integration and/or harmonisation is helpful? What are the implications of collective action theory for managing diversity? What incentives / disincentives are there for overcoming fragmentation? What do country experiences show?

The German Development Institute / Deutsches Institut für Entwicklungspolitik (DIE) talked to Suzanne Steensen, Senior Policy Analyst and Manager, Development Architecture and Global Governance at the OECD, about the opportunities and challenges associated with the fragmentation of development cooperation.


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Veranstaltungsinformation

Datum
10.10.2013

Further Informations

German Development Institute /
Deutsches Institut für Entwicklungspolitik (DIE)
Tulpenfeld 6
53113 Bonn

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