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Reconstructing infrastructure for resilient essential services during and following protracted conflict: A conceptual framework

Published online by Cambridge University Press:  18 June 2020

Alexander H. Hay ,
Bryan Karney  and
Nick Martyn
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Abstract

The rehabilitation of essential services infrastructure following hostilities, whether during a conflict or post-conflict, is a complex undertaking. This is made more complicated in protracted conflicts due to the continuing cycle of damage and expedient repair amid changing demands. The rehabilitation paradigm that was developed for the successful post-World War II rehabilitation of Germany and Japan has been less successful since. There are a myriad of conflicting interests that impede its application, yet the issue consistently comes down to a lack of systems-level understanding of the current situation on the ground and a lack of alignment between what is delivered and the actual local need. This article proposes a novel conceptual framework to address this, affording a greater “system of systems” understanding of the local essential services and how they can be restored to reflect the changed needs of the local population that has itself been changed by the conflict. The recommendations draw on heuristic practice and commercially available tools to provide a practicable approach to restoring infrastructure function in order to enable essential services that are resilient to temporary returns to violence and support the overall rehabilitation of the affected community.

Keywords

essential servicespost-conflictcitiesresilience capacityreconstructionrehabilitationcritical infrastructure
Type
Humanitarian Needs
Information
International Review of the Red Cross , Volume 101 , Issue 912: Protracted conflict , December 2019 , pp. 1001 - 1029
Copyright
Copyright © icrc 2020

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References

1 “Alignment. Donors base their overall support on partner countries’ development strategies, institutions and procedures.” Organisation for Economic Cooperation and Development, The Paris Declaration on Aid Effectiveness and the Accra Agenda for Action, Paris, 2008, pp. 3 ff, available at: www.oecd.org/dac/effectiveness/34428351.pdf (all internet references were accessed in May 2020).

2 C. Leigh Anderson, Evaluating Donor-Level Results Measurement Systems, EPAR Request No. 300, Evans School of Public Affairs, University of Washington, 21 August 2015;Homi Kharas, “Measuring Aid Effectiveness Effectively: A Quality of Official Development Assistance Index”, Brookings, 27 July 2011, available at: www.brookings.edu/opinions/measuring-aid-effectiveness-effectively-a-quality-of-official-development-assistance-index/; Stephen Knack, Halsey F. Rogers and Nicholas Eubank, Aid Quality and Donor Rankings, Policy Research Working Paper 5290, World Bank, Washington, DC, 2010.

3 This approach often results in reconstruction of the infrastructure to its de jure laydown ante bellum rather than its de facto laydown and condition ante bellum, but it remains attractive due to its apparent simplicity. Best illustrated by the declaration following the Cairo Conference on Palestine: Reconstructing Gaza, 12 October 2014. The term “laydown” refers to the spatial arrangement of the infrastructure as it can be used, observed and measured.

4 There is a wealth of critical commentary on approaches to post-conflict rehabilitation, particularly in the Journal of Humanitarian Assistance (available at: https://sites.tufts.edu/jha/), though the most notable approaches are those of the World Bank and UN Habitat, and regional and national views (typically those of the primary donor countries). The Organization for Security and Cooperation in Europe continues to develop its position, policy and approach (see: www.osce.org/cpc/77284), while focus organizations have also contributed, such as ICARDA with agriculture advice (see: www.icarda.org/impact/impact-stories/post-conflict-rehabilitation).

5 The study into post-conflict infrastructure rehabilitation was the core of a doctoral research project by Alexander Hay, supervised by Bryan Karney. The aim of the research was to determine how infrastructure rehabilitation in conflict areas can deliver better outcomes for the local population. Drawing upon available literature and observations of conflicts across Africa, the Middle East and Central Asia since World War II, as well as field experience of reconstruction in conflict areas, an hypothesis was developed and tested in the Gaza Strip. Alexander H. Hay, “Post-Conflict Infrastructure Rehabilitation”, University of Toronto, ProQuest Publication No. 13882374, 2019.

6 See the section on “The Growing Role of Stand-Off Recognition”, below.

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8 The Marshall Plan, named after then US Secretary of State George C. Marshall, was approved by Congress and signed into law by President Harry S. Truman in 1948 as the European Recovery Plan to aid the economic recovery of Western Europe. The United States had a similar [rehabilitation paradigm] aid program for Asia and Japan, though not part of the Marshall Plan.

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13 World Bank, above note 7.

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33 The question of whose definition of “financial normalcy” should be used is not explored in this article.

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35 Absorptive capacity is the capacity of an organization to “identify, assimilate, transform, and use external knowledge, research and practice”. “Absorptive Capacity: Definition and Explanation”, Oxford Review, available at: www.oxford-review.com/oxford-review-encyclopaedia-terms/encyclopaedia-absorptive-capacity/. In post-conflict reconstruction, the term refers to the ability of the local population to accept, adopt and use tools and reconstruction to their own benefit.

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40 For a definition of the term “laydown”, see above note 3.

41 The three “d”s of critical infrastructure protection are deception, duplication and dispersion of function. Deception is where the function of an asset is disguised, often by making all buildings identical so that one cannot distinguish between pump house, office, storage and dosing plant in a water distribution network. Duplication refers to installing multiple assets for the same critical function so that operations are unaffected by the loss of any single asset. Dispersion is the physical separation of assets in a system so that damage to one asset does not cause collateral damage to another. It is an effective way of limiting the harm of an attack and making the response more manageable.

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46 Ushahidi, meaning “testimony” in Swahili, is a not-for-profit company that was established to map the violence following the 2007 Kenya elections using real-time crowd-sourced data. It has since provided real-time crowd-sourced reporting in many humanitarian missions, in election monitoring, and during natural crises. See the Ushahidi website, available at: www.ushahidi.com/impact-report/history. Ushahidi was also used by Al Jazeera to collect eyewitness reports during the 2008–09 conflict in the Gaza Strip. See Usahidi, “Usahidi – 1 Year Later”, available at: www.ushahidi.com/blog/2009/01/08/ushahidi-1-year-later.

47 Through the advent of artificial intelligence and the accuracies that are now being achieved through remote sensing, it is increasingly possible to provide reliable estimates of damage arising from lateral forces, such as seismic, blast and flooding, that have caused some deformation or translation of the structure, although such measurements do depend on there being a reliable baseline model against which to assess change.

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68 This refers to the RiskOutLook application, which uses graph theory to represent the functions, assets and relationships of the operation in question. When used in conjunction with GeoLogik, it provides a way of applying any natural or human threat to the system, applied at a point or across an area, in order to assess the direct and indirect impact to the operation and the community.

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71 “Sustainability” here encompasses what is socially, economically, environmentally and operationally sustainable, as may be relevant and practicable for the situation.