The Influence of International Bureaucracies on Non-State Actors at Regional Levels.

Background Understanding the influence of international bureaucracies (IBs) requires multidisciplinary approaches and empirical observations (Ege, Bauer and Wagner 2019). Young key populations, defined as those aged from 15 to 24 and identified as men having sex with men, transgender, sex workers and people who inject drugs, are at disproportionate risk of HIV infection in Asia-Pacific (HIV and AIDS Data Hub 2019). The Regional Support Team for Asia and the Pacific (RST-AP) of the Joint United Nations Programme on HIV/AIDS (UNAIDS) is a regional Secretariat mandated to end the HIV epidemic by 2030. Aiming to achieve the UNAIDS 2019 Targets and Priorities, RST-AP has facilitated conjoint work from regional UN agencies (Cosponsors). Although Nay (2011) demonstrated the global influence of UNAIDS headquarters on policy dissemination, little research has focused on roles and effects of regional bureaucracies on non-state actors. This study aims to empirically assess the influence of RST-AP on Cosponsors in achieving the UNAIDS 2019 Targets and Priorities of HIV prevention among young people. Methods A case-study of RST-AP was conducted from April to August 2018 in Bangkok, Thailand. We reviewed theories of bureaucratic influence to identify an analytical framework for exploring RST-AP’s relationships with and influence on key stakeholders. Our framework combined Biermann’s (2009) typology with stakeholder analyses (Freeman 1984; Ackermann and Eden 2011). Data was collected from document research, office observations and 20 semi-structured interviews. All data used in thematic analyses were fully de-identified to protect the anonymity and confidentiality of interviewees. Results Among 14 UN agencies identified as key stakeholders, less than a third (4 of 14) actively participated in platforms designated for HIV prevention among young people. RST-AP acted as a strong knowledge producer with limited influence in setting norms among and building capacity of Cosponsors. While RST-AP possessed experienced staff, active leadership and high relevance of HIV prevention to facilitate its influence, it was constrained by complex issues of young key populations, limited competence, reduced resource, strict internal procedures and siloed cultures. Conclusion This case study establishes how a regional office of IBs can exert autonomous influence on non-state actors in policy governance. While previous studies have focused on how IBs exert influence at a global level (Biermann 2009; Nay 2011; Weinlich 2014), this study emphasises the crucial role of regional offices in promoting partnerships and facilitating context-specific advocacy in different countries. We identify complexity and diversity in the regional UN system, which has been regarded as homogenous and apolitical between UN Headquarters and country offices. Moreover, political dynamics among sub-regional UN agencies may affect the extent of regional bureaucracies’ influence on policy implementation. In summary, this study contributes to the knowledge of IBs’ influence over a specific region and underpins the importance of the regional context for future research involving IBs.