Submission to the future of UK aid and development assistance inquiry
CEO of the FCDO-funded African Cities Research Consortium
Global Development Institute, The University of Manchester
From paternalism to partnerships
This submission focused on the question: “what needs to change to realise the goal of moving from paternalistic models and relationships to partnerships?” This is a question I have been researching and practically engaged with for over 30 years. I am currently the CEO of the FCDO-funded African Cities Research Consortium (ACRC), which has successfully established an approach that exemplifies the positive potential of locally led development.
The realisation of the goal of moving from paternalistic models and relationships to genuine partnerships requires fundamental changes in approach, structure, funding modalities and knowledge creation, driven by mutual respect and equity. In his 2024 UN address, Prime Minister Keir Starmer pledged to “change how the UK does things. Moving from the paternalism of the past towards partnership for the future. Listening a lot more – speaking a bit less … working together in a spirit of equal respect”. This builds on the earlier recognition in the FCDO’s 2023 policy paper that “we need an offer based on partnership and mutual respect, giving leaders, communities and individuals a voice in shaping the solutions they want to see, rather than accepting the ones we think they need”.
Closer to ACRC’s work, the Independent Commission for Aid Impact’s (ICAI’s) last review of UK aid for sustainable cities found that the “UK also has a good track record of supporting the incorporation of citizen voice into planning”. However, it also pointed out that the “ability of embassies and high commissions to deliver demand-driven and context-specific programming is also variable, given the overall shortage of specialist urban and infrastructure advisers”. ICAI also recognised the African Cities Research Consortium as a positive example of the leadership and involvement of African researchers and civil society organisations, as well our efforts to engage with city reformers and officials.
In my own career, I’ve seen many examples of the injustices, missed opportunities and inefficiencies of “business as usual” development practices and research. As CEO of the African Cities Research Consortium, I have had the opportunity to run a large programme in a different way. I believe these experiences provide useful practical examples for the Committee to consider. I propose the following five key recommendations to help maximise the effectiveness of future UK development policy and programming:
Issue-based programming “is a distinctive approach to international development programming, focused on addressing locally defined issues that provide a rallying point for domestic stakeholders to mobilise and drive change”. This approach recognises that aid-financed interventions need to be low cost, well designed and locally led, which aligns closely to our design and implementation of ACRC.
The foundation phase of ACRC was focused on situational analysis – examining events, challenges and opportunities in 12 African cities using a framework that had an emphasis on both politics and urban systems. Underpinning this was a recognition that urban programming by agencies such as DFID had often failed because of misunderstandings around the particular nature of interests within cities. It also spoke to the siloed nature of many development interventions, where one set of activities could exacerbate problems in other systems or sectors.
We are currently 18 months into the implementation phase. This is focused on interventions (via co-produced action research processes) to address the local priority issues that emerge from the analysis in five cities. Urban stakeholders have been engaged throughout the programme. Specific attention has been given to organisations of low-income residents and workers, and local government (both politicians and officials), ensuring a breadth of views on potential issues to tackle.
The focus on interventions to problems and issues that are both locally prioritised and underpinned by detailed situational analysis has provided an effective basis for action that produces a wide range of benefits.
There is growing recognition that projects fail when local knowledge is not sufficiently incorporated. This can be seen in many different examples within communities. For instance, a water point being placed in a community next to the leaders’ house, which ends up being controlled for their benefit once the project finishes.
Outcomes need to prioritise those who are most disadvantaged. That is most likely to be achieved when disadvantaged people are themselves involved in decision making. Improving representation of marginalised communities is important as a goal in itself and helps to make development assistance more effective in reaching those most in need.
The external nature of aid-funded programmes raises questions about prioritisation and preference, but it also brings into play the possibilities of ideas and learning. ACRC city teams are led by community-focused urban reformers – local individuals who have been pushing forward the frontier of policy, programming and practice in African cities for many years. Their deeply embedded perspectives, historical knowledge and extensive networks within city administrations helps to ensure the programme gains traction in the short term, while supporting a broader inclusive reform culture in the longer term. Our ongoing work in Harare around climate resilience and informality provides a useful demonstration of the significance of this expertise in securing tangible reforms.
Cities are embedded in contested political processes, and new challenges frequently emerge. People who are embedded in the politics of their own public domain as a result of their previous efforts are much better placed to navigate and influence complex shifts in opportunities. Their perspectives and insights have proved invaluable to ACRC and to FCDO colleagues. Urban reform experts are now sharing their combined insights into the processes influencing policy and programming outcomes with FCDO staff (and others), bringing nuanced, practical and effective approaches to creating change.
Political settlements analysis was a key element of ACRC’s initial situational research, particularly to understand the balance of power and interests between the national and city level. The ongoing contribution of political analysts during the implementation phase of work has enabled city teams to more effectively navigate challenges across the national to neighbourhood spectrum, and the political contestation that is a part of everyday life.
At a programme level, we have recognised the experience of ACRC city managers and offered a significant amount of discretion to adapt their interventions according to the changing nature of the urban context. This has enabled them to take advantage of opportunities to press forwards with reform and avoid overcommitting to initiatives that lose traction. A focus on learning and adaptation has also enabled us to maintain accountability while reducing the reporting burden for city teams. A recent ODI analysis also concluded that working politically can deliver greater value at lower cost.
Work that focuses on both catalysing and nurturing reform coalitions has significant potential to boost FCDO’s impact. Such coalitions are aggregations of relevant agencies, who come together to address areas of interest and advance common objectives in terms of urban reform. Typically, the coalitions that we are working with are task-focused and include the professional staff of local authorities, NGOs, academics, organised communities and some private sector agencies. We have explicitly sought to draw together residents’ and workers’ organisations with those of higher social status. This can strengthen the voice of disadvantaged groups and improve the relevance of interventions designed by professionals.
Ongoing work we are supporting around the Mukuru Special Planning Area in Nairobi demonstrates the potential of reform coalitions and also the long-term dedication needed to realise change. Academics have proved to be invaluable members of such coalitions. Experiences from the Urban Action Lab (University of Makerere, Uganda) and the Urban Informality Forum in Harare demonstrate how to strengthen cross-stakeholder dialogues and transformational planning in politically contested locations.
We’ve found that a deep understanding and engagement with the politics of ACRC cities, combined with a flexible approach to programming, provides an effective, impactful approach. Our ambition is to catalyse large-scale, self-funded African initiatives building out from the knowledge and experience of African reform expertise, rather than donor-funded implementation projects.
This approach is designed to be more cost-effective and sustainable than traditional large-scale donor-delivered projects and may provide a model for other FCDO programming. We recognise that domestic financing remains a critical constraint, particularly for city authorities, so are assisting with revenue-raising initiatives, such as property tax in Accra.
A role for UK expertise
Complex reforms – from providing basic services to the equitable incorporation of informal workers – are inherently political. They require local knowledge, credibility and legitimacy. But our experience also shows that sensitive and strategic support from UK-based organisations can play a useful role in nurturing alternatives, legitimising ideas, advancing new and more effective development options, and ultimately in realising locally held global ambitions for a better world.
External messages may have a status because of the significance of the individual sharing the knowledge. Such outside validation may even help to reduce the risk officials face when adopting new ideas. So, when used strategically, external contributions may be significant. But local experts need to adapt this work to the local context and build reform coalitions to support new initiatives.