In many complex settings, formal state institutions have limited reach or capacity and are unable to deliver basic services. In these contexts, non-state actors - such as non-state armed groups (NSAGs), civil society organisations (CSOs), political groups, traditional leaders - often compete, collaborate, or co-exist with the state in providing protection and basic services to the population, creating systems of hybrid governance. 

Drawing on global case studies and existing literature, this report offers guidance for UNDP and other development actors working in environments of hybrid governance. It outlines key working definitions and discusses common challenges, including legal complexities, political tensions, and ethical dilemmas, along with opportunities for how engagement with non-state actors, when contextually informed, can contribute to more resilient, accountable, and responsive governance systems. The report was developed through a partnership between UNDP and the UN University Centre for Policy Research (UNU-CPR).