SWAps | Sector Wide Approaches
What is a SWAp?
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In recent years, development partner agencies have become interested in developing different approaches in aid relationships. This guideline has been developed to provide NZAID staff with some information on the principles and processes of one of these – the sector-wide approach.
In 2006, NZAID was working with nine partner countries in the development or implementation of sector-wide approaches. As the name suggests, a SWAp does not represent a clearly defined activity. Instead, a sector-wide approach represents two inter-linked concepts:
- It is ‘sector-wide’, in that planning and activity is at the whole of sector level, and the many aspects of a sector are taken into consideration (planning, capacity of personnel, institutional strength, stakeholder consultation, implementation processes, monitoring, financing, and so on).
- It is an ‘approach’, in that it represents a way of working. While the details will vary in every country context, this approach emphasises: partner country ownership and leadership; the use of partner country systems and processes (alignment); development partnerships in support of short-, medium- and long-term goals (harmonisation), and; the achievement of tangible development outcomes and impacts.
The general intention is that a sector-wide approach should involve as many of the contributing development partners as is feasible or practicable. At the simplest level, greater harmonisation and alignment should result in a reduced administrative burden for the partner country. More broadly, partner country leadership should result in greater ownership and, crucially, better sustainability. Overall, the logic of the sector-wide approach is that an aggregation of government and development partner resources, directed by a locally appropriate sector plan, should result in more substantial and sustainable positive impacts, across the whole sector.
Given the diverse nature of SWAps, this guideline does not set out to provide a definitive ‘do-it-yourself’ manual. Instead, the guideline will hopefully provide some useful knowledge of SWAps and ‘issues to consider’ in developing or becoming involved with a SWAp. There are a number of links to documents that NZAID has developed, as well as links to some useful resource materials.
Definition of a SWAp
There is no simple or universally agreed definition of the term ‘sector-wide approach’. In the NZAID Education Policy, the following definition has been adopted:
A sector-wide approach is a way of providing development assistance that strengthens national ownership, and helps build nationally managed systems, with the support of development partners and lenders.
In other words, in a sector-wide approach development partners agree to take proactive steps in support of a partner country’s policies, strategies and systems. As an approach, the relationship between development partners and the partner country is dynamic and long-term.
The aim of a sector-wide approach is to support partner country leadership in sector policy and planning, underpinned by sound governance and financial systems. The relationship will be guided by an agreed sector policy and expenditure programme, and managed using the partner country’s systems and procedures.
As it is by definition an ‘approach’, a SWAp does not represent an aid delivery instrument or modality. Instead, the way development partner resources are disbursed (‘modality’) is merely a practical sub-set of the philosophy (the ‘approach’). Sector-wide approaches often involve substantial technical assistance, in-country training, and scholarships. A sector-wide approach may involve a range of different modalities including earmarked budget allocations, sector budget support, development partner projects supportive of the sector strategy, and government projects.
So what’s a sector?
A ‘sector’ encompasses a wide range of thematically linked activities, involving government, non-government and private participation.
It is not easy to define the ‘boundaries’ of a sector. In education, for example, the sector stretches from early childhood education, through primary, secondary and tertiary education, technical and vocational education (TVET), to adult education. The education sector includes formal education (degree or qualification bearing), non-formal education (non-degree bearing, such as on-the-job training), and informal education (teaching by parents, radio and television).
An important point is that the scope of a given sector can be far broader than that covered by the mandate of a single government ministry. For instance, ministries of education are typically involved with funding and/or overseeing the implementation of primary and secondary education. Some education ministries have no – or limited – responsibility for early childhood education, or for TVET or for non-formal education. These related sectoral areas may be coordinated by other ministries, or may be managed outside of government altogether, with activities run by churches, community groups and/or the private sector.
In the context of a sector-wide relationship, the nature and scope of development partner involvement can also vary. One SWAp may include, for instance, the whole education system, another SWAp may be focused on the primary education sub-sector. Alternatively, some sector-wide relationships may be designed around a single district or province of a partner country – this is the case in some geographically large, high population countries such as India.
Irrespective of the scope (i.e. whole of sector, or primary education only), most SWAps are designed around a single sector. That is why people refer to an ‘education SWAp’ or a ‘health SWAp’. A ‘multi-sectoral’ sector-wide approach (i.e. an education and health SWAp) is far more complicated, requiring the involvement of a vast range of disparate stakeholders, with many varied and competing priorities.
That does not mean that in a single sector SWAp the relationship is with just one line ministry. For instance, in designing and implementing a sector-wide programme in education, a range of Ministries tend to be involved, including Finance, Foreign Affairs, Public Works, Human Resource Development, Outer Island/Regional Development and of course Education. Within Pacific Island countries, the scale of government is such that a sector-wide approach can involve all of the main Ministries.
Given the important role non-government and private organisations can play in the provision of social services, development partners and the partner government must ensure that all representative stakeholders are active participants in sector planning, and in the review of progress.