Power and Fragility: Governance Programming in Fragile Contexts: A Programme Resource
Power and Fragility: Governance Programming in Fragile Contexts: A Programme Resource
Power and Fragility: Governance Programming in Fragile Contexts: A Programme Resource
GOVERNANCE PROGRAMMING
IN FRAGILE CONTEXTS
A programme resource
Introduction Power analysis
The research combined two types of analysis
This guide is based on work by the Institute of to provide a deeper and more useful analysis of
Development Studies (IDS) to bring together power power in fragile or hybrid states (states displaying
and political economy analysis, and other research, elements of both authoritarian and democratic
undertaken in four countries in order to draw governance):
broader lessons for Oxfam for work on governance
Political economy analysis, which considers how
and citizenship in fragile contexts. The guide is
economic, social, and cultural systems interact
written for Oxfam Country Directors and Programme
with the political system to affect peoples lives on
Managers and aims to provide practical support
the ground and the competing rules of the game in
in the design and management of governance
formal and informal institutions.
programmes. It may also be of interest to staff in
other INGOs, and the wider development world. Power analysis, which draws on John Gaventas three
categories of power: visible, hidden, and invisible
(http://www.powercube.net).
Methodology
IDSs research was conducted in 2011 and Visible power refers here to who is seen to win
focused on Yemen, Angola, Myanmar, and and lose in [public] arenas, and may come with a
Rwanda. The research methodology included: particular formal role, for example being a prime
minister or other government minister, and thus
An assessment of Oxfams work in these
being able to control certain decisions or resources.
countries, based on interviews with staff and
partners. Hidden power may be used by vested interests to
Power and political economy analysis control decisions or resources backstage; here
conducted around each country context. power may come from being an influential relative
Other desk research, including a review of or powerful civil servant close to the prime minister
recent academic literature. or other power-holder, or from holding business
interests. Further, the exercise of power may also
The research was viewed as a starting point
to identify entry points to governance work be invisible even to those over whom power is
in fragile contexts, and provide guidance exercised: women may not participate in meetings or
for Oxfams work. It was not considered put themselves forward for formal elected roles even
exhaustive or definitive, and Oxfam continues if they are legally entitled to because of
to develop its work and thinking in this area. their own and others deeply-held assumptions
about how they should behave.
Working to create
accountable
governance
structures in fragile
contexts such as
Afghanistan poses
many challenges.
Photo: Reuters
2
Background: Citizens
Power analysis can also throw light on the
power within and relationship between the state and particular groups
4
Oxfam staff
discussing gender
equality with men
from the Wandian
Village Committee,
Afghanistan.
Photo: Zafer/Oxfam
citizen participation
are excluded from decision-making. Socio-
cultural norms prevent women from having real
influence, particularly at sub-national level,
Research in the four countries studied revealed a
even if they are in political office. In Myanmar,
number of possible entry points and approaches
the 2008 Constitution states that women have
for programme work, as discussed below. There is, the right to stand for election to the Peoples
however, significant diversity between different Assembly, and the National Strategic Plan
fragile contexts and hybrid states depending on the for the Advancement of Women 2012-2021
degree of authoritarianism of the government, and the identifies womens participation in public life
particular relationship between state and society. The as a priority but in reality women are very
situation in such states can also change rapidly and often unable to realise these rights.
in unexpected ways. It is therefore vital that plans are The limitations of formal power in achieving
made, and approaches chosen, that are appropriate to female empowerment and the implementation
the specific analysis of the country context and that gap it points to between policy and reality
these are reviewed and revised as necessary. therefore need to be recognised, as does
the potential of alternative empowerment
Indirect approaches may be more strategies which aim to capture informal power.
effective in fragile contexts
Governance work can be approached directly
through programmes overtly designed to influence The approach taken will affect how the state
governance structures, or indirectly by incorporating responds to the work; the risks to those involved
governance into other programming, including work in the programme, including Oxfam staff, partners,
on livelihoods, infrastructure, or humanitarian aid. and beneficiaries; and the effectiveness of the
Palestinian youth
in the Gaza Strip.
More than half of
the population in
the Gaza Strip are
under the age of
18. Conflict means
these boys face a
bleak future, as well
as frustration and
dwindling hopes.
Photo: Karl
Schembri/Oxfam
6
Power may rest and which are excluded from governance, either by
with armed actors.
Photo: Simon formal legal restrictions or by political culture and
Rawles/Oxfam social practice. This will help Oxfam identify which
groups (women, youth, ethnic groups etc) are best
able to influence governance arrangements, what
they can bring to Oxfams approach in a particular
country, and how Oxfam can work with them.
War-damaged
buildings in Kuito,
Angola: the country
is recovering from
many years of
conflict.
Photo: Andy Hall/
Oxfam
9
The Parwan
Provincial
Peace Hearings,
Afghanistan,
August 2012. The
event allowed
ACSONP, the Oxfam-
supported network
of Afghan CSOs, to
engage with
power-holders.
Photo: Oxfam
Qualitative data may include stories, personal 5. Build in periodic points in the programme
experiences, and word-of-mouth information. cycle to reflect on the assumptions in the
theory of change and revisit the power
Quantitative data may be collected by participatory
analysis.
methods where groups are able to generate numbers
through estimating, calculating, measuring, 6. Document experiences and reflections as
comparing, valuing and scoring, even if hard much as possible, and involve more than one
statistics are not available. It may be necessary to person from Oxfam in institutional relationships
undertake remote monitoring where it is not possible in order to ensure continuity and capture
learning.
to access sensitive areas, relying on information
collected through second-hand sources. 7. Develop mechanisms to encourage staff to
spot windows of political opportunity.
8. Incentivise flexibility and responsiveness
in programming, as well in developing strong
relationships with partners and others.
10
Summary of key points
Hybrid and fragile contexts differ significantly, and Relationships with partners
different change models may be appropriate to each Prioritise building trust and strong relationships with
context. It is therefore not possible to recommend partners, whether CSOs, citizens groups, elements
a particular model of governance work in fragile of the government or more unusual partners, as a
contexts, but some broad conclusions are drawn strategic approach for working between informal
about the principles underpinning such work. and formal politics and types of power. There is a lot
Changing context of potential for non-conventional methods, such as
Working on governance in fragile contexts requires art, drama, music, film, etc, to be used as a way of
recognition that the situation may be in continual opening discussion about sensitive issues.
flux, requiring constant checking of assumptions
underlying programme strategy, planning, and Identify and respond to windows of
implementation and making changes to planned opportunity
work as necessary. Political transitions may offer opportunities for
change, but these windows are often short. Staff
Power analysis should be encouraged to use their knowledge and
Rigorous political economy and power analysis is understanding to identify such opportunities. This
vital to allow Oxfam to understand where power requires Oxfam to provide appropriate support to
lies and how change can happen. Diverse sources country programmes.
of information, including taking the pulse on the
ground, are essential to inform the analysis: citizens Direct versus indirect approaches
themselves are an important source of information. Building citizen capabilities around more neutral
entry topics, such as livelihoods, can allow people to
Levels of governance develop citizenship skills even in repressive contexts
It is important to understand how power operates at and enable citizens to take advantage of spaces for
all levels of governance, from local to national, and participation as they open up.
across various institutions and spaces. Addressing
each type of power and level of governance will Promote democratic principles
require different approaches and strategies. Oxfam can promote democratic principles (including
Targeting all levels of governance at once (either gender equity) through its governance work. It should
directly or through strategic alliances with others), be alert to the danger that it can inadvertently
rather than focusing on one, is more likely to bring reinforce an anti-democratic political culture
about sustainable change. Building safe spaces through its own ways of working, and actively aim to
for engagement is important in developing citizen address this.
capabilities in transition contexts. Oxfam can use its
convening power to create spaces between formal
and informal power-holders.
11
Within and Without the State
Funded by the UK Department for International Development (DFID), Within and Without the State
(WWS) works in three focus countries: South Sudan, Occupied Palestinian Territories/Israel, and
Afghanistan. DFID funding is allowing these country programmes to develop new programming which
will strengthen civil society and governance structures, promote dialogue between citizens and
power-holders, and ultimately support more poor men and women to claim their rights.
WWS also has a strong emphasis on capturing knowledge and learning. Learning both from the
pilot projects, and from the experience of a wider group of country programmes working in conflict
and fragile contexts, will be documented and shared across Oxfam and with other development
practitioners and policy-makers externally.
For more information contact Amanda Buttinger, WWS Programme Coordinator, abuttinger@oxfam.org.uk;
or Louie Fooks, Global Learning and Communications Officer: lfooks@oxfam.org.uk
This guide was written by Louie Fooks based on Oxfam-funded research undertaken by the Institute
of Development Studies, University of Brighton, as part of WWSs learning and communication
programme. Additional material organised by Claire Walkey, Conflict and Fragility Intern.
Resources
Oxfam resources Oxfam GB October 2012
This publication is copyright but the text may be used free of
These can be downloaded at
charge for the purposes of advocacy, campaigning, education,
http://policy-practice.oxfam.org.uk/publications
and research, provided that the source is acknowledged in full.
Programming in Fragile and Conflict-affected Countries: The copyright holder requests that all such use be registered
A learning companion (2011) with them for impact assessment purposes. For copying in any
Programming in Fragile and Conflict-affected Countries: other circumstances, or for re-use in other publications, or for
Programme policy guidelines (2011) translation or adaptation, permission must be secured and a
fee may be charged. E-mail policyandpractice@oxfam.org.uk.
Right to Be Heard, Framework (2012)
Published by Oxfam GB for Oxfam International under
Within and Without the State: Strengthening civil society in ISBN 978-1-78077-207-3 in October 2012.
conflict-affected and fragile settings (2011)
Oxfam GB, Oxfam House, John Smith Drive, Cowley, Oxford,
Programming on Right to Be Heard, a learning companion (2012) OX4 2JY, UK.
Rough Guide to Power Analysis Front cover picture: Ahlan, (age 9), moves through the streets of
A two-page guide to power analysis, including references to Al Ghorfa, Yemen. Photo: Abbie Trayler-Smith/Oxfam
further useful resources.
Country information correct as of August 2012.
Powerhouse http://powerhousenetwork.ning.com/
An online community enabling practitioners to discuss, debate
and explore the many dimensions of power; exchange tools and
resources; and work with others to develop strategies for change. 12