Setting the stage: mapping sector and governance actors

OVERVIEW

What is it?

Tool 4 includes a graphic to visualise actors in a given sector and a matrix to interpret aspects of sector governance.

What can it be used for?

The tool enables visualisation and understanding of the power/influence dynamics of a sector (e.g. who decides priorities, how resources are distributed, how authority is exercised), which helps in identifying the core public, private and civil society organisations which have a significant role with regard to governance.

When can it be used?

The tool is relevant at all phases of an intervention, but particularly when capacity development support (or any intervention focusing on change) is in the initial design stage. It can also contribute to dialogue on broad governance and accountability and is closely linked to Tool 7 and Tool 8.

Who can use it?

• EU staff and stakeholders

What are its strengths?

• Combined with Tool, this is a very useful instrument for understanding the nature and dynamics of political and societal processes. This information is critical for deciding on possible support to the home-grown governance agenda based on capacity development support rather than technical assistance.

What are its limitations?

• Complex tool which requires a good knowledge of context, actors and relations inside the sector and to external factors.
• If informal components of governance are ignored or underestimated, the strategy built upon the matrix and its outputs will not be relevant.

PRACTICAL APPLICATION

Key elements

The tool provides information about the context, actors and governance, and accountability relations through a three-step approach:

Step 1: Assess the context of sector governance. During this preliminary phase, organisations which have – or should have – a significant role in the given sector are identified and analysed through a series of assessments: role in the governance structure, (political) power, policymaking capacity, etc. All institutions operating in a sector should be considered: political system/government, core public agencies, front-line service providers, non-state actors, checks and balance (Watchdog) organisation, donors and international organisations.

Step 2: Map the actors in terms of their interest, power and incentives. Information is organised into a system graphic which allows actors to be visualised in the sector context. Arrows connecting the different entities represent relationships between actors in terms of governance (actors in charge or duty bearers) and accountability (beneficiaries or rights holders).

Step 3: Assess governance and accountability relations. The quality and consistency of relations between actors is assessed via a matrix to determine the governance mechanism and its implicit and explicit rules. This, in turn, enables identification of key drivers of change and estimation of sector capacity needs.

Requirements

Data/information. Preliminary knowledge of the context is very useful. The starting point is often a literature review, followed by workshop/brainstorming to collect further information. The information is then analysed and structured. Tool 4 is closely linked to Tool 5. Information gathered in one of the tools should feed into the other.

Time. The tool has been designed to be a flexible instrument which can provide relevant information in a short time. With the support of a specialist with a deep understanding of the context, and a facilitator helping to organise larger meetings (workshop, brainstorming), this analysis can be conducted in two to four weeks and be combined with Tool 5.

Skills. Good analytical and facilitation skills. The literature review can be performed in house; specific competencies may be required to map actors, define relevant roles and ensure a fruitful exchange. A mixture of local and international consultants may have added value, provided this support is properly coordinated by the EU Delegation.

Facilities and materials. If a participatory workshop/meeting takes place: appropriate venue, flipcharts, cards, markers, etc., will be needed.

Financial costs and sources. If external expertise is required, funds should be made available to cover the costs associated with fees (for approximately two to four weeks), travel expenses and logistics. These funds may come from the project itself or through other EC instruments such as a framework contract or a technical cooperation facility.

Tips and tricks
Governance should be systematically approached from two perspectives: effective supply on the governance side and demand for accountability from non-state actors and via a checks and balances system. It is thus important not only to undertake an in-depth insight analysis of the actors and their roles, but also to identify consistent variation in terms of power and incentives.

RESOURCES

Where to find it

The European Commission (EC), 2010. EuropeAid. Tools and Methods Series. Reference Document N. 6 Toolkit for Capacity Development

Complementary guides, methodologies and tools

The European Commission (EC), 2008. Tools and Methods Series. Reference Document Nº4, Analysing and Addressing Governance in Sector Operations.

Overseas Development Institute (ODI), 2006. Governance Questionnaire (GTZ). Mapping Political Context: A Toolkit for Civil Society Organisations. Pages 21-23.

The International Bank for Reconstruction and Development / The World Bank, 2007. Political Mapping Procedure and Micro-Political Mapping Procedure. Tools for Institutional, Political, and Social Analysis of Policy Reforms. Pages 135-140 and 166-167.