Service delivery

Service delivery in conflict and fragile contexts

It has been estimated that 500 million people live in fragile or conflict affected environments. These countries generally experience long-term, complex difficulties so it is not possible to wait until conflict or fragility has passed before addressing problems with basic service delivery. Historically governments have been bypassed in these environments, and services have been delivered by non-state actors. However, there is a growing consensus that service delivery can improve the legitimacy of weak governments and help to build capacity in fragile states. Several donors therefore argue that the state should play an important role in service delivery from as early as possible. By improving state capacity and legitimacy, good service delivery can play a conflict mitigating role by reducing tension and grievances over services between conflicting groups. 

The effective provision of services in conflict affected or fragile contexts is an under-researched area. As a result the resources listed below are primarily donor reports rather than academic articles.

Berry, C., Forder, A., Sultan, S. and Moreno-Torres, M., 2004, 'Approaches to Improving the Delivery of Social Services in Difficult Environments', Poverty Reduction in Difficult Environemnts Team, Working paper 3, UK Department for International Development (DFID), London
What are the challenges faced by external actors in supporting service delivery in difficult environments (SDDE)? This working paper from the UK Department of International Development asks what type of approaches, and under what conditions, improve human development outcomes and build pro-poor government-led systems in fragile states. It argues that the international community should emphasise service delivery as a key entry point to further development in countries that are unable and/or unwilling to reduce poverty.
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Page Contents:

• Links between services and conflict
• Donor guidance
• Local capacity building
• Sector specific literature
• Case studies

Links between services and conflict

If services are improved in a way that promotes equality and inclusiveness, service delivery interventions in conflict environments can act as a tool for peace-building. Service delivery can strengthen the representation of excluded people, for example through user groups. Reducing inequalities in access to basic services reduces potential causes for violent conflict between groups.

Vaux, T. and Visman, E., 2005, ‘Service Delivery in Countries Emerging from Conflict’, Centre for International Co-operation and Security (CICS), Department of Peace Studies, University of Bradford, report prepared for UK Department for International Development (DFID)
What is the role of service delivery in promoting social and political pro-poor change? How does it contribute to the avoidance of future conflict? How does it strengthen institutions in countries emerging from conflict? This report, by Bradford University, examines service delivery in Mozambique, Uganda, Cambodia and East Timor. It looks at the relationship between service delivery and violent conflict, showing how it changes. It tries to determine appropriate and sustainable service delivery systems.
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Donor guidance

Some of the most repeated advice to donors supporting service delivery in fragile states is to coordinate their interventions, take a long-term approach, build local capacity, foster local involvement and target marginalised groups.

Commins, S., 2006, ‘Synthesis Paper on Good Practice: The Challenge for Donors’, OECD Fragile States Group, Workstream on Service Delivery, OECD, Paris
Fragile states usually fail to deliver basic services. At the same time, state fragility can be reduced by programmes to improve service delivery systems. This draft synthesis paper from the Organisation for Economic Co-operation and Development (OECD) argues that the linkages between fragility and services - notably around relationships of accountability - create the opportunity for donors to address both service delivery and governance through integrated or linked approaches. Such approaches must take into account the dynamic nature of fragile states. Donors thus need to constantly study the specific country context.
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Carlson, C. et al, ‘Improving the Delivery of Health and Education Services in Difficult Environments: Lessons from Case Studies’, DFID Health Systems Resource Centre, London
How can service delivery interventions be improved in difficult environments? This report by the United Kingdom Government's Department for International Development (DFID) analyses the situation in a range of so-called 'difficult environments'. It argues that, while it is commonly acknowledged that poverty alleviation requires more aid, better trade and progress on debt relief, there is little information on the most effective aid instruments and channels in supporting pro-poor basic social services. It makes recommendations for changes in the way aid is delivered.
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A major difficulty for donors working in these environments is how to balance short-term needs to provide services quickly and efficiently to poor and marginalised groups, with longer-term aims to reform local public institutions so that they are capable of effectively delivering basic services to all of their citizens.

Commins, S., 2005, ‘Service Delivery in LICUS Contexts: Balancing Short-term Provision with Longer-term Institutional Goals’, Discussion Note, World Bank, Washington, D.C. 
How can international development organisations balance short-term provision of services with longer-term institutional goals? This informal discussion note from the World Bank analyses service delivery in Low Income Countries Under Stress (LICUS). It looks at how to deliver services quickly to vulnerable groups, while engaging in the long-term task of rebuilding public institutions. There must be a thorough analysis of the specific country context and the creation of linkages between public institutions and aspects of service delivery from the start.
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Local capacity building

It is critical that communities in conflict-affected environments are engaged in service delivery project design and management in a meaningful way. This is vital for ensuring local ownership of projects and can help to build local capacity.

Slaymaker, T., Christiansen, K. and Hemming, I., 2005, ‘Community-Based Approaches and Service Delivery: Issues and Options in Difficult Environments and Partnerships’, Overseas Development Institute, London
What are the challenges in implementing community-based approaches (CBAs) in difficult environments? How do they relate to wider service delivery (SD) objectives? This paper for the Department for International Development UK (DFID) analyses the different objectives between CBA and SD, and the challenges of linking these objectives in aid dependant post-conflict states. CBA can contribute to broader SD objectives, but there needs to be more clarity about its limits, and more realism about what is achievable within the operational context. Donors need to rethink relating externally-funded activities to national systems in difficult environments in order to develop the structures that support CBAs.
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Dijkzeul, D., 2005, ‘Models for Service Delivery in Conflict-affected Environments: Drawing Lessons from the Experience of the Ushirika/GBV Partnership Programmes in the Eastern Democratic Republic of Congo’, International Rescue Committee, London 
How can service delivery be effective in conflict-affected environments? This report for the International Rescue Committee (IRC), UK analyses the Ushirika/GBV partnership programmes in the eastern part of the Democratic Republic of the Congo. It compares the IRC approach with five other organisations working in the country.
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Sector specific literature

Whilst several issues relating to service provision in difficult environments are relevant across all services, there are some inherent differences between each of the sectors. The following documents address particular issues of concern in attempting to provide basic services in health, education, and water and sanitation in fragile contexts.

HLF on Health MDGs, 2005, ‘Health Service Delivery in Post-Conflict States’, High Level Forum on Health MDGs, 14-15 November, Paris 
What are principles to adopt and the approaches to avoid when investing in the development of health services in post-conflict environments? This background paper for the High Level Forum on Health MDGs outlines problems and opportunities for the international community. The key to successful post-conflict health work is to understand the health sector, and the specific context within which health services are being delivered.
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Rose, P. and Greeley, M., 2006, ‘Education in Fragile States: Capturing Lessons and Identifying Good Practice’, Centre for International Education, Brighton, Prepared for the DAC Fragile States Group Service Delivery Workstream, Sub-team for Education Services
Poor access to education and gender inequalities are common in states experiencing conflict or emerging from conflict. This paper, prepared for the OECD Development Assistance Committee (DAC) Fragile States Group, looks at how development assistance in fragile states can enhance access to education for the poor and vulnerable, improve governance and increase aid effectiveness. It recommends strengthening the evidence base, principles, monitoring and evaluation and co-ordination of work in this area.
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Lindemann, S., 2006, ‘Addressing the Need for Water Service Delivery in Fragile States: The Case of German Involvement in Yemen’, paper presented at the Berlin Conference on the Human Dimensions of Global Environmental Change ‘Resource Policies, Effectiveness, Efficiency and Equity’, 17-18th November, Berlin
Fragile states are often unable to provide water services to the majority of their people, especially the poor. So, how can international agencies work effectively in these environments to provide the infrastructure for safe drinking water? This study from Deutsche Gesellschaft für Technische Zusammenar-beit (GTZ) analyses the effectiveness of German donor involvement in the water sector of Yemen. Its success lies in the combination of support to sectoral reform at the national and regional level, and decentralised and commercialised services at the local level. 
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Case studies

Federal Ministry for Economic Co-operation and Development, 2006, ‘Observations on Service Delivery in Fragile States and Situations – The German Perspective’, Special 145, Federal Ministry for Economic Cooperation and Development, Germany
How can donors co-operate effectively with fragile states to secure basic services whilst improving governance? This paper from the German Federal Ministry for Economic Development and Co-operation (BMZ) assesses the state of service delivery in Eritrea, Cote d’Ivoire, Nepal, Guatemala and Yemen. It suggests that development agencies need to stay engaged even under poor conditions. When partnerships with the state are difficult, donors can co-operate with civil society and the private sector, while making contacts within the government to begin the process of state building.
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Berry, C. and Igboemeka, n.d. ‘Service Provision in Difficult Environments: Issues Arising from DFID Support to Health Sector Interventions in Burma, Afghanistan and Nepal’, Department for International Development, London
What are the key ways in which the international community can overcome “difficult partnerships” with states? How can the design and implementation of sectoral policies have the maximum positive impact on poor people? What forms and channels of aid exist to allow the involvement of the international community without aggravating social and political divisions? This DFID paper uses three DFID-funded health sector interventions to answer these questions.
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Berry, C. et al., 2004, ‘Service Delivery in Difficult Environments: The Case of Nepal’, Nepal Country Office and Policy Division, Department for International Development, London
What are the challenges for service delivery in difficult environments? What lessons can be learnt from the conflict areas of Nepal? How effective are different strategies for delivering services to the poor and the vulnerable? This collaborative report from the DFID Nepal Office, Asia Policy Regional Policy Unit and DFID Policy Division (PD) describes the different approaches development agencies have used to support service delivery in Nepal and highlights key areas for future support.
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Moreno-Torres, M., 2005, ‘Service Delivery in a Difficult Environment: The Child-friendly Community Initiative in Sudan’, Department for International Development, London
The UNICEF-sponsored Child-Friendly Community Initiative (CFCI) represents an integrated, multi-sectoral and community-driven approach for the delivery of basic services to poor and vulnerable people in Sudan. What are the main achievements of CFCI? How does it differ from other donor interventions aiming to enhance service delivery? Compiled for the Department for International Development, this case study examines the effectiveness of the CFCI approach in Sudan and attempts to draw lessons for donors on service delivery in other fragile states.
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