European Initiative for Democracy and Human Rights (EIDHR)

Transcription

1 DG RELEX/B/1-27 September 2004 DRAFT European Initiative for Democracy and Human Rights (EIDHR) Programming for 2005 and 2006

2 TABLE OF CONTENTS SUMMARY INTRODUCTION...4 History and background of the EIDHR...4 The EIDHR embedded in a wider policy framework... 4 The added value of the EIDHR DEMOCRACY AND HUMAN RIGHTS IN THE WORLD AND EUROPEAN UNION POLICY International context European Union policy Operational conclusions for EU policy PAST SUPPORT, LESSONS LEARNED AND CONCLUSIONS EIDHR Financial support during the period 2002 to Lessons learned Conclusions THE RESPONSE STRATEGY Overall objectives Thematic focus through campaigns Campaign 1: Promoting justice and dignity Campaign 2: Fostering a culture of human rights Campaign 3: Promoting the democratic process Campaign 4: Advancing equality, tolerance and peace Geographic focus of the campaigns Mechanisms of implementation and operational guiding principles Lessons learned applied MULTI-ANNUAL INDICATIVE PROGRAMME Budgets and allocations for 2005 and Instruments for project selection ANNEX I...33 NB: The structure of this programming document follows the Common Framework and Procedure for the Programming of Thematic and Horizontal Budget lines established jointly by DGs RELEX, DEV and EuropeAid.

3 EIDHR PROGRAMMING SUMMARY The European Initiative for Democracy and Human Rights (EIDHR) is the financial instrument which underpins and complements the European Union s human rights and democratisation policy. It provides financial support predominantly to civil society and non-governmental organisations, and to some degree to relevant international organisations, for activities in third countries aimed at promoting and defending human rights and fundamental freedoms, supporting the processes of democratisation and preventing conflicts and dealing with their consequences. The present document establishes the programming of the EIDHR for the budgetary years 2005 and It is based on a global, operational budget for these two years of 207 million, in line with the Commission proposed draft EU budget for In the light of continued serious human rights and democratisation problems encountered in many parts of the world and the limited availability of funds under the EIDHR to address those problems, the programming aims to maximise the effectiveness, impact and visibility of EIDHR-sponsored operations through a more concentrated and better targeted approach. To achieve this, EIDHR support will be delivered in the future through a set of four thematic campaigns directed at the global level and at the level of selected regions and countries. Each campaign comprises a limited number of well-defined, inter-related thematic objectives to be pursued, in line with the EIDHR s legal base and corresponding to the most pressing needs for human rights and democratisation support. In principle, all countries selected will be targeted by two of the four campaigns. In , greater emphasis will be placed on strengthening democratisation processes and the regions covered by the European Neighbourhood Policy.

4 EIDHR PROGRAMMING INTRODUCTION History and background of the EIDHR In 1994, the European Parliament created Chapter B7-7 1 of the budget of the European Community, the European Initiative for Democracy and the Protection of Human Rights (EIDHR). The EIDHR brought together all budget headings that previously dealt specifically with various democratisation and human rights issues. The legal basis for activities under the EIDHR is provided by Council Regulations (EC) No 975/1999 (developing countries) and No 976/1999 (other third countries). 2 Both regulations expire on 31 December 2004, and the Commission put forward, last year, a proposal for the extension of their legal duration until the end of The legislative process in this respect is ongoing and expected to be successfully concluded by December of this year, so as to ensure the unimpeded continuation of EIDHR operations for the period covered by this programming exercise. In budgetary terms, the EIDHR benefits traditionally from an allocation of some 100 million per year. In policy terms, the Council regulations stipulate that the European Community should, consistent with the European Union s foreign policy as a whole, provide technical and financial aid for operations aimed at: promoting and defending the human rights and fundamental freedoms proclaimed in the Universal Declaration of Human Rights and other international instruments concerning the development and consolidation of democracy and the rule of law, supporting the processes of democratisation, and supporting measures to promote respect for human rights and democratisation by preventing conflict and dealing with its consequences, in close collaboration with the relevant competent bodies. Each of these general objectives comprises a series of specific thematic objectives, giving EIDHR the potential to cover a wide scope of operations. The EIDHR embedded in a wider policy framework In May 2001, the European Commission adopted a landmark Communication on The European Union s role in promoting human rights and democratisation in third countries. 4 This Communication identified those areas where the Commission could act more effectively to implement the European Union s policy in the fields of human rights and democratisation: Since the 2004 budget, Chapter Council Regulation (EC) No 975/1999 of 29 April 1999 laying down the requirements for the implementation of development cooperation operations which contribute to the general objective of developing and consolidating democracy and the rule of law and to that of respecting human rights and fundamental freedoms, OJ L 120, , p.1; Council Regulation (EC) No 976/1999 of 29 April 1999 laying down the requirements for the implementation of Community operations other than those of development cooperation, which, within the framework of Community cooperation policy, contribute to the general objective of developing and consolidating democracy and the rule of law and to that of respecting human rights and fundamental freedoms in third countries, OJ L 120, , p. 8 COM (2003) 639 COM (2001) 252 final

5 EIDHR PROGRAMMING through promoting coherent and consistent policies in support of human rights and democratisation; through placing higher priority on human rights and democratisation in the EU s relations with third countries and by taking a more pro-active approach, in particular by using the opportunities offered by political dialogue, trade and external assistance; by adopting a more strategic approach to the European Initiative for Democracy and Human Rights, matching programmes and projects in the field with EU commitments on human rights and democratisation. The policy approach laid down in the Communication places the EIDHR in the wider framework of the EU s policy on human rights and democratisation in the world. Consequently, the EIDHR is not merely a financing instrument, but also a policy instrument which underpins and complements the EU s Common Foreign and Security Policy in the fields of human rights, democratisation and conflict prevention. As such, it must be put to use as effectively as possible, in the interest of the Union and, above all, of civil society in third countries. The added value of the EIDHR The EIDHR is uniquely placed to promote the founding values of the European Union and serves as a conduit for those values by channelling financial and moral support to civil society working on human rights and democratisation in third countries. The EIDHR can frequently provide the only effective basis for such support. In this context, the EIDHR has one particular strength, which makes it specific and different from other, in particular geographic cooperation programmes: (1) EIDHR funding is awarded overwhelmingly to non-governmental, civil society-based organisations active in the field of protecting/promoting human rights and democracy and (2) no prior consent or involvement of any authorities of the country of intervention is needed. Thus, the EIDHR allows human rights and democratisation concerns in third countries to be addressed by supporting relevant civil society stakeholders directly. This provides for the necessary independence to develop and implement civil society projects, whilst building on the instrument s inherent ability to tackle problems at grassroots level. It also provides for measures which may be politically sensitive in some instances and allows EIDHR funds to be used as seed money for positive change. It is for these reasons in particular that the EIDHR is in effect complementary to cooperation programmes carried out with governments (CARDS, TACIS, MEDA, ALA, EDF, etc.) However, complementarity also exists in as much as, overwhelmingly, the EIDHR addresses highly specific human rights, democratisation and conflict prevention issues and lends support to small-scale projects not covered by other programmes. Not least, the EIDHR ensures a fair measure of high political visibility for the European Union in the sensitive human rights and democratisation policy field. This is particularly true when it comes to global thematic issues consistently embraced by the Initiative, such as the international criminal justice system and support for the International Criminal Court, or the abolition of the death penalty, or election observation.

6 EIDHR PROGRAMMING DEMOCRACY AND HUMAN RIGHTS IN THE WORLD AND EUROPEAN UNION POLICY 2.1. International context While it is true that, in many respects, the protection of human rights has significantly improved over the last decade, with democratisation taking root in many parts of the world and international legal instruments achieving high levels of ratification, the gap between aspirational standards and the reality for millions of individuals is undeniably wide. It is against this backdrop that the focus is shifting from standard-setting to implementation. Now that the normative framework for human rights and fundamental democratic freedoms is largely completed, the challenge for the international community lies in putting the words into practice, in monitoring, enforcing and building worldwide respect for these norms. This challenge has become particularly apparent in connection with current debates on the need to ensure protection of human rights and fundamental freedoms in the context of the fight against terrorism European Union policy The European Union is based on and defined by its commitment to the principles of democracy, liberty, the rule of law and respect for human rights and fundamental freedoms, as the foundation and prerequisite for peace, stability and prosperity in any society. The Union seeks to uphold the universality and indivisibility of human rights - civil, political economic, social and cultural - as reaffirmed by the 1993 World Conference on Human Rights in Vienna. The proclamation of the EU Charter of Fundamental Rights, now incorporated into the draft EU Constitution, has further consolidated the EU s commitment to the promotion and protection of human rights. Guided by this set of values and mindful of their interrelation with international stability and economic and sustainable development, the Union implements this policy through increased mainstreaming of human rights and democratisation issues throughout EU policies, on the one hand, and a wide array of policy instruments, on the other: (1) the adoption by the Council of EU Common Positions, e.g. on the International Criminal Court or individual countries, EU Guidelines regarding the death penalty, torture, human rights dialogues, children and armed conflict or human rights defenders, Council Conclusions and Statements, along with frequent Troika Demarches, on cases of individual concern; (2) the adoption by the European Parliament of relevant Reports and Resolutions, or the holding of hearings and dispatch of special missions; (3) the implementation of EIDHR-funded activities by the Commission and adoption of specialised communications or policy tools, such as the Communications on EU Election Assistance and Observation, 5 on Conflict Prevention 6 and on Reinvigorating EU Actions in Human Rights and Democratisation with Mediterranean Partners 7 or the Handbook on Promoting Good Governance in EC Development and Cooperation. 8 Dedicated regular human rights dialogues exist with China and Iran. Moreover, human rights and democratisation forms an integral part of the political dialogues the EU holds with most countries around the world, including countries such as North Korea or Turkmenistan. Respect for human rights and democracy form an essential element of all partnership, trade and cooperation agreements as well as of stabilisation and/or association agreements COM (2000) 191 COM (2001) 211 COM (2003) 294

7 EIDHR PROGRAMMING concluded by the EU, and is increasingly the focus of institutionalised dialogue under these agreements. The EU is also particularly active in international and regional forums dealing with human rights and democratisation. Defined by a strong commitment to multilateralism and support for the human rights mechanisms of the United Nations, EU actions play a pivotal role in the UN Commission on Human Rights and in the UN General Assembly Third Committee, including through a wide range of country and thematic initiatives. Similarly, the EU is an active player in the Human Dimension activities of the OSCE/ODIHR and in the Council of Europe Operational conclusions for EU policy The 2001 Commission Communication on the European Union s role in promoting human rights and democratisation in third countries established an ambitious set of proposals for improving the EU s approach to human rights and democratisation questions. As a consequence, the Council has reaffirmed its commitment to: coherence and consistency between Community action and the Common Foreign and Security Policy (CFSP), and to development policy, through close cooperation and coordination between its competent bodies and with the Commission; mainstreaming of human rights and democratisation policy into EU policies and actions; openness of the EU s human rights and democratisation policy through a strengthened dialogue with the European Parliament and Civil Society; regular identification and review of priority actions in the implementation of its human rights and democratisation policy. For a more detailed analysis of recent developments in EU human rights and democratisation policy, reference is made to the Commission Staff Working Document of 30 July 2004, 9 on the implementation of the above mentioned Commission Communication. 3. PAST SUPPORT, LESSONS LEARNED AND CONCLUSIONS Acting on the wide policy objectives laid down in the EIDHR s legal basis (cf. point 1.1), in its 2001 Communication, the Commission recommended a prioritised and long-term approach for EIDHR interventions, seeking to enhance the EIDHR s impact and effectiveness. It thus selected four thematic priorities of intervention: (1) support to strengthen democratisation, good governance and the rule of law; (2) activities in support of the abolition of the death penalty; (3) support for the fight against torture and impunity; (4) combating racism, xenophobia and discrimination against minorities and indigenous peoples. As a consequence, the multi-annual EIDHR programming for the period , with subsequent annual updates, was structured around these thematic priorities. The respective calls for proposals followed a similar thematic structure EIDHR Financial support during the period 2002 to 2004 The following tables give an overview of the EIDHR financial support provided under the EIDHR for the reference period Table 1 shows the global programmed allocations and effective commitments by thematic priorities and sub-themes and percentages, whereas Table 2 lists the annual effective commitments. Table 3 compares the annual appropriations with effective commitments by budget line and Table 4 shows the use 9 SEC (2004) 1041: Implementation of the Commission Communication on the EU s role in Promoting Human Rights and Democratisation in Third Countries COM(2001)252 final

8 EIDHR PROGRAMMING of EIDHR appropriations in 2002 and Further tables are contained in Annex I, analysing annual commitments by implementation instrument and giving an overview of programmed micro-project allocations by country. TABLE 1: COMPARISON OF PROGRAMMED ALLOCATIONS AND COMMITMENTS ( ) THEMATIC PRIORITY AND SUB- THEME Programmed allocation (in ) % of total programmed allocations Effective allocation (in ) % of total effective allocations DEMOCRATISATION, GOVERNANCE, RULE OF LAW Strengthening Civil Society Human Rights Education and Awarenessraising Freedom of Expression and independent media Elections Rule of Law Governance Conflict prevention and resolution ABOLITION OF DEATH PENALTY TORTURE, IMPUNITY AND INTERNATIONAL JUSTICE Torture International Justice RACISM, MINORITIES AND INDIGENOUS PEOPLES Racism Minorities Indigenous Peoples CONTINGENCIES TOTAL Source: EuropeAid

9 EIDHR PROGRAMMING TABLE 2: ANNUAL COMMITMENTS BY THEMATIC PRIORITY ( ) THEMATIC PRIORITY AND SUB-THEME Allocation 2002 (in ) Allocation 2003 (in ) Allocation 2004 anticipated (in ) Total allocation (in ) DEMOCRATISATION, GOVERNANCE, RULE OF LAW Strengthening Civil Society Human Rights Education and Awareness-raising Freedom of Expression and independent media Elections (EU/EOMs and Assistance) Rule of Law Governance Conflict prevention and resolution ABOLITION OF DEATH PENALTY No Call for Proposals TORTURE, IMPUNITY AND INTERNATIONAL JUSTICE Torture No Call for Proposals International Justice RACISM, MINORITIES AND INDIGENOUS PEOPLES Racism No Call for Proposals Minorities No Call for Proposals Indigenous Peoples No Call for Proposals CONTINGENCIES Total Source: EuropeAid 10 Amount for the pilot project to establish a conflict prevention network, under budget line , which is implemented under a different legal basis and therefore not subject to programming under the present document.

10 EIDHR PROGRAMMING TABLE 3: APPROPRIATIONS AND COMMITMENTS BY BUDGET LINE ( ) Budget line Old New (2004 budget) Appropriations (in ) Commitments (in ) % Appropriations (in )) Commitments (in ) % Appropriations (in ) B n.a. n.a. - n.a. n.a B B Total annual operational appropriations/ commitments (commitments AWP 2004: ) Total operational appropriations Total operational commitments Source: EuropeAid (99.6% of operational appropriations) TABLE 4: USE OF EIDHR CREDITS IN 2002 AND 2003 (IN ) Budget Line B7-7 Commitment credits allocated Commitment Credits used (including workflow) % Payment credits allocated Payment Credits used (including workflow) Source: EuropeAid %

11 EIDHR PROGRAMMING Lessons learned Implementation of the EIDHR has repeatedly been the subject of scrutiny, analysis and evaluation, particularly in 2000 and 2001, including by the Court of Auditors. 11 Pertinent recommendations were taken into account both in the 2001 Commission Communication and the subsequent EIDHR programming for During the programming period itself, the most relevant and representative scrutiny of the EIDHR stems from an Extended Impact Assessment carried out in 2003, 12 and from five regional EIDHR conferences held with local, civil society-based beneficiaries and implementing partners, over the last year. 13 Moreover, a sample of representative projects funded under the EIDHR was evaluated, with largely positive results. 14 In the context of the above-mentioned Extended Impact Assessment, a specific consultation of EIDHR beneficiary organisations took place in June Asked about their views on the relevance, effectiveness and impact of the EIDHR, the survey of stakeholders in third countries produced a generally positive assessment. A large majority of the 66 respondents considered that the general objectives of the EIDHR were highly relevant to the human rights and democracy needs in their country. In terms of the impact of EIDHR on the protection and promotion of human rights and democracy, over 80% of respondents considered that the impact was either good or very good. A similar number found that activities financed under the EIDHR had made an effective or very effective contribution to strengthening the capacity of civil society organisations. However, the results in respect of promoting gender equality were less clear-cut, with a sizeable minority of 39% indicating that the EIDHR has been less effective in this area. Also, although most respondents found that the Commission had been clear or very clear in communicating its aims in terms of achieving an impact, almost a quarter suggested that the clarity of specific objectives in this respect could be improved. 45% of the responding stakeholders felt that the EIDHR should continue to operate without any changes, whereas 55% of the replies advocated some changes but otherwise also favoured a continuation of the instrument. With regard to overall strategy, the respondents indicated that the EIDHR should be more flexible and faster in responding to the changing needs of civil society in recipient countries. A number of comments concerned the perceived need for more action at a regional level, and for the Commission to encourage networking Report on the implementation of the European Initiative for Democracy and Human Rights in 2000, SEC (2001) 801; Evaluation of voter education in the context of EU electoral support, Final Report, September 2001, Particip GmbH; Synthesis report on EC activities in the field of human rights, democracy and good governance, Reference Report, August 2001, Particip GmbH; Synthesis report on EC activities in the field of human rights, democracy and good governance, Synthesis Note, August 2001, Particip GmbH; Evaluation of the micro-projects facility operating under the European Initiative for Democracy and Human Rights, Final Report, October 2001, Eva-EU Association; European Initiative for Democracy and Human Rights, Compendium 2000; European Initiative for Democracy and Human Rights, Macro-projects, Compendium 2001; European Initiative for Democracy and Human Rights, Micro-projects, Compendium 2001; Information document: European Commission actions relating to project funding aimed at promoting the setting up of the International Criminal Court, EuropeAid Office for Cooperation; Thematic evaluation of the integration of gender in EC development cooperation with third countries, Final Report, March 2003, Particip GmbH; all documents are available at Court of Auditors, Special Report No 12/2000 on the management by the Commission of European Union support for the development of human rights and democracy in third countries, together with the Commission replies (2000/C 230/01), OJ C 230, , p. 1 SEC(2003)1170: EIA carried out in preparation for the Commission s proposal on the extension of Regulations (EC) Nos 975/1999 and 976/1999 (cf. footnote 2) In Dakar/Senegal for Western Africa; in Cape Town for Southern Africa; in Guatemala City for Latin America; in Almaty/Kazakhstan for Central Asia and in Kigali/Rwanda for Central Africa, in 2003 and Moscow School of Political Studies, Human Rights Masters Programmes, Torture Rehabilitation Centres, The Euro-Mediterranean Human Rights Network; the relevant documentation is available at and

12 EIDHR PROGRAMMING and complementarity between civil society organisations which receive funding under the EIDHR. Some respondents suggested that the EIDHR takes insufficient account of the development of projects over time and that a longer-term commitment would increase the impact of activities. Many comments centred on the need for improved programming and implementation procedures. Concerning selection procedures, respondents suggested that a wider range of beneficiary organisations from third country civil society should be supported, and that the speed of decision-making by the Commission and the length of time required to prepare projects was a disadvantage to many NGOs in third countries. Many respondents referred to negative aspects of administrative and procedural management, with problems encountered in the signature of contracts and the disbursement of funds, all of which could jeopardise local partners. Others complained of administrative procedures being overwhelming and in need of simplification. Several respondents requested that criteria for measuring the impact of a project should be included in the guidelines for calls for proposals. The results of the survey correspond in many ways to the experiences of the Commission in implementing the EIDHR programming In particular, the calls for proposals have produced serious imbalances in the distribution of implementing partners according to their origin; more than two-thirds of the implementing partners of selected proposals came from the North and less than a third form the South. 15 Moreover, strict compliance with the concept of exclusive focus countries 16 has led to difficulties in identifying projects in almost half of the focus countries targeted through calls for proposals for macroprojects. This situation was aggravated in 2003, with the new Financial Regulation excluding the broad use of targeted projects by declaring them the strict exception to the general rule of project identification through calls for proposals. Based upon an assessment of all relevant information and feedback on the programming exercise , the following critical issues should be addressed and, as far as possible, remedial measures introduced in the EIDHR programming for the period : greater clarity, transparency and coherence of the thematic programming objectives; enhanced support for networking and complementarity between funding beneficiaries at regional level; improved promotion of gender equality; more consistency and coherence regarding the levels of intervention, i.e. global, regional, country levels; greater flexibility as to the scope of geographic coverage; enhanced flexibilities allowing unforeseen situations and changing needs to be addressed in a timely manner; significantly enhanced participation of Southern NGOs and civil society-based organisations as programme implementing partners; simplification of administrative procedures and requirements and acceleration of implementation-related decision-making To a large extent this is due to limited management and absorption capacities of southern NGOs, the complexity and investment in preparing a macro-project proposal with low chances of success (on average one out of eight submitted proposals), the political situation and low level of civil society development in a number of targeted countries, and possibly communication deficiencies. Under the programming only a focus country may be the target of EIDHR-supported projects (macro- or micro-projects), and their number is limited to 32 countries.

13 EIDHR PROGRAMMING Conclusions Overall, certainly in comparison to preceding exercises, EIDHR programming and implementation has been rather successful, in terms of ensuring both relevance and impact. The strategic clarifications resulting from the above-mentioned 2001 Commission Communication on The European Union s role in promoting human rights and democratisation in third countries had a positive effect. Improved thematic coherence, coupled with geographic concentration on a limited number of focus countries, albeit with other drawbacks, and increased efficiency in project selection and project administration, produced tangible gains in the effectiveness of EIDHR operations. It is now necessary to build upon these achievements to further improve the EIDHR s pertinence, its impact and administrative handling. In particular, enhanced clarity about programming objectives is required, as is more flexibility in terms of geographic targeting and the instruments to be used. In addition, apart from a number of specific instances and actions, the EIDHR s overall visibility remains relatively low and its success and relevance are not always fully perceived or appreciated. Therefore, in future, the EIDHR s objectives, operational functioning and its complementarity with other instruments need to be more clearly defined and communicated and better visibility for EIDHR achieved. This need for improved communication about EIDHR applies within the Commission to inter-service cooperation, to relations with Member States and the European Parliament and certainly to the EIDHR s audience in the outside world, particularly at the level of potential beneficiaries and implementing partners. Finally, an objective, genuine difficulty persists in ascertaining how to measure more precisely the effective impact of EIDHR operations by applying relevant performance and impact indicators. Available evaluations of the EIDHR confirm the difficulty of assessing the wider impact of activities generally aimed at promoting human rights and democratisation. As was the case for previous programming exercises, also the present programming document cannot provide for detailed indicators. Instead, DG RELEX and EuropeAid, in cooperation with DG DEV, will jointly seek to define preliminary indicators in the context of the establishment of the EIDHR Annual Work Programme, taking into account the conclusions of an EIDHR funded study on the Development of Performance Indicators for Use by the European Initiative for Human Rights and Democracy. 4. THE RESPONSE STRATEGY 4.1. Overall objectives The programming of the EIDHR for the years 2005 and 2006 sets out to maximise the effectiveness, impact and visibility of the actions undertaken in support of the protection and promotion of human rights and democratisation in third countries. To achieve this, thematically more concentrated and geographically wider, but better targeted use of the limited funds available is required, together with more differentiated use of implementing instruments. This implies making careful and deliberate choices as to the thematic and geographic priorities among a range of competing, legitimate and worthwhile targets for support. The response strategy seeks to attain effectiveness, impact and visibility through five key lines of action: enhancing the clarity and coherence of the thematic programming objectives by grouping various specific objectives into four thematic campaigns; providing more flexibility through a mix of wider geographic coverage and diversified use of implementing instruments;

14 EIDHR PROGRAMMING increasing efficiency in programme implementation and administrative handling of the EIDHR; improving communication and information on the EIDHR at all levels; ensuring complementarity and synergy with EU policies and other Community funding programmes, as well as with relevant activities of the Member States and other donors. These key lines of action lie behind the response strategy outlined below. In addition, efforts to increase efficiency, improve communication and ensure complementarity must be part of an ongoing strategy to continually underpin the Commission s approach to maximising the effectiveness, impact and visibility of EIDHR operations Thematic focus through campaigns The need for greater clarity and coherence of the thematic programming objectives will be achieved through the definition and implementation of four thematic campaigns, as set out below. Each campaign will bundle a limited number of interrelated specific human rights and/or democratisation priorities, providing a unifying identity. Through these campaigns, interventions will be targeted at a global level, at the level of seven defined regions and at a country level within these regions. Under each campaign a coherent and comprehensive project package will be selected and established, covering in principle the three levels of intervention, so as to maximise the impact. Each region and the countries eligible within the region will be the focus of two of the four thematic campaigns, considered particularly relevant in terms of addressing specific human rights and democratisation concerns and where the EIDHR can bring its added value to bear. Exceptionally, certain regions and individual countries might be targeted by additional campaigns, to take account of particularly important supplementary concerns. Campaign 1: Promoting justice and dignity The campaign will advance the global public good of the international criminal justice system and work for the universal abolition of the death penalty. It will also reinforce the work of international mechanisms which monitor and report on respect for human rights and related treaty obligations. The overall objectives of the campaign are: the effective functioning of the International Criminal Court and other international criminal tribunals, including their interaction with national justice systems; the progressively restrictive use of the death penalty and its eventual universal abolition; the reinforcement of the work of international human rights mechanisms. The international criminal justice system is a key vehicle for combating impunity for crimes of genocide, war crimes, crimes against humanity and other serious violations of international humanitarian law. Campaign 1 will support the effective functioning of international criminal ad hoc tribunals (such as the UN International Criminal Tribunal for the former Yugoslavia), the UN International Criminal Tribunal for Rwanda, the Special Court for Sierra Leone, and the Extraordinary Chambers in the Courts of Cambodia) by raising public awareness of the activities of the tribunals, building bridges between the jurisdiction of the tribunals and national judicial systems and providing technical assistance. Following the successful establishment of the International Criminal Court (ICC), support for the ICC will now concentrate on promoting universal adherence to the Rome Statute and

15 EIDHR PROGRAMMING enhancing public perception of the court s role. Activities in support of the ICC should match the emerging needs of the Court as a fully operational body of the international criminal justice system. In this respect, particular attention should be paid to securing implementation of the complementarity principle, whereby national jurisdictions have primary competence to investigate and prosecute crimes under the Rome Statute of the ICC. On a country level, activities focusing on the implementation of the Rome Statute into national legislation may be supported in selected cases. International justice has led the way in underlining the incompatibility of the death penalty with human rights and human dignity by declining to provide for the possibility of that punishment, even in response to the most atrocious crimes. As a reflection of the EU s longstanding commitment to the abolition of the death penalty, Campaign 1 will support activities promoting the restrictive use and abolition of the death penalty. This will include projects to raise awareness among the public and key opinion-makers on the principal arguments against the death penalty, monitoring of the conditions of implementation of the death penalty and the application of minimum international standards. The campaign may also promote the signature, ratification and implementation of the Second Optional Protocol to the International Covenant on Civil and Political Rights (ICCPR) and legal reform to limit or abolish the death penalty. In cases of particular concern, specialised legal assistance can be funded (e.g. amicus curiae briefs). The human rights themes pursued under the four campaigns relate directly or indirectly to the fulfilment of a wide range of obligations set out in international human rights instruments. It is imperative that activities in support of international mechanisms designed to monitor and report on such obligations continue to be eligible for funding. Campaign 1 accordingly also encompasses support relating to UN human rights Treaty Bodies, in particular awareness-raising with respect to the role of Treaty Bodies, input to those bodies and implementation of Treaty Body recommendations. Moreover, support may be granted for activities relating to UN special mechanisms, including Special Rapporteurs, focusing on facilitating the input of civil society actors into the work of the mechanisms and follow-up to concerns raised in their reports. In cases of particular concern, ad hoc support may additionally be extended to legal assistance and the preparation and submission of legal arguments (e.g. amicus curiae briefs). Geographic focus: global and regional projects will be the principal vehicles for the campaign, in the light of the emphasis placed on advancing a limited range of international instruments, the existence of a robust network of NGOs and other stakeholders operating in the areas concerned and the fact that similar techniques can be applied across a range of countries to further the campaign goals (cf. point 4.3). The following indicators apply to the campaign: o support provided to at least three projects at global level; o support provided to at least three regional projects; o support provided to at least three country-specific projects. Campaign 2: Fostering a culture of human rights Through its focus on human rights education, training, monitoring and awarenessraising, Campaign 2 will seek to empower individuals and civil society to enhance respect for human rights and prevent human rights violations, especially as they relate to the rights of marginalised or vulnerable groups, as well as torture. In its support for the rehabilitation of torture victims, the campaign acknowledges that offering assistance to those who have suffered human rights violations is a critical element in the process of acquiring and disseminating knowledge on human rights.

16 EIDHR PROGRAMMING The overall objectives of the campaign target: strengthening civil society organisations in advocacy of the rights of vulnerable groups and the furtherance of related international instruments; reducing the occurrence of torture, effectively implementing international instruments against torture and providing support for the rehabilitation of victims of torture; enhancing education, training, monitoring and awareness-raising on human rights and democratisation issues. As a guiding principle, human rights education and awareness-raising will aim in particular at reaching remote areas and being readily understood by the most disadvantaged members of society. Specific target groups for training and advocacy may include NGOs, local and national decision-makers, judicial, legal, prison and police officials, NGOs, the media and the general public. A multiplier effect will be encouraged by establishing regional civil rights networks and links between different organisations involved in advocacy or awarenessraising, and by promoting institutional sustainability whereby trained individuals themselves become human rights trainers in their own right ( training the trainers ). Human rights education, training, monitoring and awareness-raising under this campaign comprises three distinct strands: (i) Advancing the rights of marginalised or vulnerable groups: the campaign will promote advocacy, awareness-raising and training in the field of children s rights relating to the signature, ratification and implementation of the relevant international instruments and commitments, including the Convention on the Rights of the Child and its Optional Protocols, and the Plan of Action agreed at the UN Special Session on Children in May The campaign will provide support to initiatives aimed at promoting the rights of women, including their right to equal treatment and physical integrity, notably through awarenessraising and education-orientated projects. In this respect, projects to combat female genital mutilation will also be eligible for support. In the light of the significant range of international instruments and commitments designed to tackle trafficking in children and women, the campaign will encourage the incorporation of this issue in awareness-raising and advocacy programmes. The campaign will, furthermore, promote the rights of human rights defenders. It will improve the protection of, and raise awareness about, the situation of those who work, at personal risk, to advance human rights through non-violent means. As a group which is particularly vulnerable to torture, human rights defenders will also benefit form the activities set out in (i) above. (ii)torture prevention and rehabilitation: training for prevention will focus on key personnel such as police, prison and legal officials and will, inter alia, instil comprehensive knowledge of the relevant international and national provisions and ensure that procedures and practices relating to detainees comply fully with human rights norms. Support for monitoring and awareness-raising activities will include the tracking of the supply of torture instruments, research into, and denunciation of, torture practices, promotion of the signature, ratification and implementation of the Optional Protocol to the UN Convention against Torture and public awareness-raising. Support for rehabilitation activities for torture victims including psychotherapy, medical care, social rehabilitation and institutional strengthening of rehabilitation centres will form part of this campaign, in rehabilitation centres both in Europe and abroad. (Iii) Programmes of higher education and training for professionals active in the field of human rights and for those whose professional activity has an impact on human rights. Supporting the European Masters Degree in Human Rights and Democratisation (EMA), and regional Masters Degree in Human Rights and Democratisation in South-East Europe, the Mediterranean, Africa, Asia and Latin America will be particularly relevant in that respect. Networking and cooperation should be strengthened between the different Masters degrees supported under the EIDHR (through regular meetings, exchange of staff and students, joint publications, harmonisation of the academic content of the courses) while overall academic

17 EIDHR PROGRAMMING coherence should be ensured through the European Masters Programme based in Venice, which inspired the regional Masters Programmes. A further specific element of Campaign 2 is support for the human rights dialogues in which the EU is currently engaged with China and Iran. The dialogues provide a forum for a non-confrontational exchange of views and a vital opportunity to foster a culture of human rights in the two countries, including through the transfer of experience in the ratification and implementation of international human rights instruments. Geographic focus: the campaign will support projects at global and regional level, as well as in selected countries, as shown in the table in point 4.3. The following indicators apply to the campaign: o support provided to at least one project at global level involving several regions selected for regional support; o support provided to at least two regional projects; o support provided to at least ten individual country projects; o at least twenty-five countries eligible for individual support have been involved in projects at global, regional or country level. Campaign 3: Promoting the democratic process The campaign will promote the development of participatory democracy as well as foster an informed pluralistic discourse within civil society on democratisation and fundamental rights, including through the development of the freedom of association and the freedom of expression. The overall objectives of the campaign aim at: underpinning and developing democratic electoral processes; strengthening the basis for civil society dialogue and democratic discourse. The conduct of regular, fair and transparent elections at all levels of a political system constitutes an essential building block for democracy and societal participation in governance. In the case of emerging democracies or democracies under threat, election observation is a pertinent, useful tool to underpin democratic electoral processes, and thus democracy building or stabilisation as such. The European Union has developed and established a model of election observation which is internationally recognised as a credible and effective tool of support for democratisation in third countries. Therefore, within this campaign, EU Election Observation Missions (EU/EOM) will continue to be deployed and funded under the EIDHR. EU/EOMs follow a distinct decision-making and implementation process, as set out in the Commission Communication on EU Election Assistance and Observation, of 11 April The Commission will thus continue to identify countries as priorities for observation missions on the basis of the criteria laid down in this Communication and the related Council Conclusions. 18 Therefore, the country selection used in the table under point 4.3. for the application of this campaign does not apply to EU/EOM priority setting COM(2000)191 Council Conclusions on Elections Assistance and Observation, 31 May 2001, 9990/01

18 EIDHR PROGRAMMING Beyond the actual observation missions, the strengthening of democratic electoral processes also requires a stronger emphasis on proper pre-election conditions, along with follow-up on the recommendations made on conclusion of EU/EOMs accomplished. In this respect, the relevant geographic Community financial instruments already address some of the issues. However, in strict respect of the principle of complementarity, there is additional scope for pertinent EIDHR intervention, particularly at the level of civil society. Campaign 3 may therefore support civic and voter education, public awareness-raising programmes, capacity building for domestic observers and for the media in their reporting about electoral processes, as well as enhancing the capacity of regional organisations for electoral observation. In the post-election period EU/EOM-recommended support funded under EIDHR may include, exceptionally, projects with National Election Commissions and Parliaments. In a second chapter, the campaign will promote key fundamental rights, which are an essential feature of any genuine democracy. It will promote freedom of association, including the free formation of labour unions, and raise public awareness about the role of this freedom in the democratic process. Support will be provided to activities aimed at bringing legislation into line with international human rights and labour standards, raising awareness among decision-makers, and establishing networks of information. Campaign 3 will promote freedom of expression with particular emphasis on the rapidly developing media environment. This will include support for activities to foster independent press and broadcasting, including through the elimination of legal and technical obstacles to the freedom of the press, notably undue censorship, awareness-raising among journalists, efforts to professionalize the media to render them more independent, the promotion of adequate communication/media legislation as well as unimpeded access to the internet. Activities may aim at the establishment of viable community media which reach local people and enable marginalised sections of society to gain a voice. There is also a need to assist and encourage independent media organisations which are committed to raising professional standards and to developing professional skills in a self-regulating environment. Campaign 3 will, moreover, promote more generally efforts to enhance the ability of civil society stakeholders to engage in democratic governance and policy dialogue. In particular, equal participation of women in political processes and decision-making will be supported. Geographic focus: the campaign is essentially country-focused with complementary global and regional support, in line with the selection in the table in point 4.3. The following indicators apply to the campaign: o support provided to at least two projects at global level, involving all regions selected for regional support; o support provided to at least three regional projects; o support provided to at least ten individual country projects; o at least three projects funded which aim to address pre- or post-election concerns; o at least ten countries eligible for individual support have received support for projects addressing the same issues at global, regional and country level. Campaign 4: Advancing equality, tolerance and peace Focusing on political, civil and cultural rights, the campaign embraces the issues of racial discrimination and xenophobia, the rights of minorities and indigenous peoples. The campaign underscores the critical influence of these issues in the field of conflict prevention and post-conflict reconciliation.