Abstract

The Sustainable Development Goals (SDGs) emphasise the importance of partnerships in achieving targets like Universal Health Coverage. But how can partnerships between non-state and state actors be established, and what development and political ramifications might they have, within protracted conflict situations? In Myanmar’s Kayah State and Kayin State, decades-long conflict resulted in parallel health systems operating under Ethnic Armed Organisations. In recent years, non-state and state health workers in both areas have forged partnerships to implement an Expanded Programme on Immunisation (EPI). These endeavours demonstrate that partnerships are permeated with power relations and development programmes can become the site of political struggles in contested states. Linking national development plans with the SDGs can enhance non-state actors’ positions in contexts where state and international actors have limited implementation capacity. Comparing Kayah State and Kayin State EPI activities demonstrates the importance of recognising political dynamics of partnerships in conflict situations. In Kayah State, when non-state actors were not recognised as leaders of development in their areas, EPI activities had negative impacts, fuelling local grievances. Conversely, in Kayin State, when state and international actors acknowledged political sensitivities and empowered non-state actors, EPI activities built a ‘working encounter’ with positive development and peacebuilding outcomes.

摘要

可持续发展目标 (SDG) 强调伙伴关系在实现全民健康覆盖等目标方面的重要性。但是，在旷日持久的冲突局势中，如何建立非国家行为者和国家行为者之间的伙伴关系，以及它们可能会产生哪些发展和政治后果？在缅甸的克耶邦和克伦邦，长达数十年的冲突导致在民族武装组织下运作的平行卫生系统。近年来，这两个领域的非国家和国家卫生工作者建立了伙伴关系，以实施扩大免疫计划 (EPI)。这些努力表明，伙伴关系充满了权力关系，发展计划可能成为有争议国家政治斗争的场所。在国家和国际行动者实施能力有限的情况下，将国家发展计划与可持续发展目标联系起来可以提高非国家行动者的地位。比较克耶邦和克伦邦的 EPI 活动表明了识别冲突局势中伙伴关系的政治动态的重要性。在克耶邦，当非国家行为者不被承认为他们所在地区的发展领导者时，EPI 活动产生了负面影响，加剧了当地的不满。相反，在克伦邦，当国家和国际行为者承认政治敏感性并赋予非国家行为者权力时，EPI 活动建立了具有积极发展和建设和平成果的“工作接触”。比较克耶邦和克伦邦的 EPI 活动表明了识别冲突局势中伙伴关系的政治动态的重要性。在克耶邦，当非国家行为者不被承认为他们所在地区的发展领导者时，EPI 活动产生了负面影响，加剧了当地的不满。相反，在克伦邦，当国家和国际行为者承认政治敏感性并赋予非国家行为者权力时，EPI 活动建立了具有积极发展和建设和平成果的“工作接触”。比较克耶邦和克伦邦的 EPI 活动表明了识别冲突局势中伙伴关系的政治动态的重要性。在克耶邦，当非国家行为者不被承认为他们所在地区的发展领导者时，EPI 活动产生了负面影响，加剧了当地的不满。相反，在克伦邦，当国家和国际行为者承认政治敏感性并赋予非国家行为者权力时，EPI 活动建立了具有积极发展和建设和平成果的“工作接触”。