Ministry of Foreign Affairs MENA

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1 Ministry of Foreign Affairs MENA File no.: External Grant Committee Meeting 2 December 2014 Agenda Item no.: 2 1. Title: Danish-Arab Partnership Programme 2. Partners: Danish NGO s, MENA NGO s, multilateral organisations, media institutions, special interest organisations, educational institutions, independent institutions, municipalities, central government authorities and agencies, etc. 3. Amount: million DKK 4. Duration: Presentation to the programme Committee: 21 September Previous Grants: Danish Arab Partnership Programme (DAPP) 2013 (240 mio. DKK) and 2014 (255 mio.) 7. Strategies and policy priorities: Strategic Framework for the Danish Arab Partnership Programme 8. Danish National Budget account code: / Desk officer: Pernille Mortensen 10. Head of Department: Jens-Otto Horslund 11. Summary: The DAPP has since 2003 supported development of democratic, prosperous and stable communities in the Middle East and North Africa (MENA-region) while also enhancing dialogue, cooperation and mutual understanding between Danish and Arab partners. It focuses on four thematic areas: 1) Human Rights, Human Freedoms and Good Governance; 2) Women s Economic Empowerment and Gender Equality; 3) Knowledge-based Societies; and 4) Economic Growth and Job Creation. DAPP operates with seven focus countries (Egypt, Jordan, Libya, Morocco, Syria, Tunisia and Yemen), but is a regional initiative building on synergies between countries and engagements. The initiative is designed to support political reforms in highly politicised, complex and volatile contexts and accordingly relies on a multi-modality approach with a high degree of flexibility. In order to meet the dialogue objectives, the DAPP has a varied range of partners. 1

2 Programme document Danish Arab Partnership Programme 2015/2016 December 2014 Final Version 1

3 List of Contents List of Contents... 2 Programme summary... 4 Abbreviations Introduction The DAPP Strategic context Background The current context of DAPP Strategic considerations Building on lessons learned Presentation of the programme Programme Rationale, Theory of Change and Programme Objectives Programme rationale Theory of Change and Programme Objectives Assumptions at country-level Thematic focus areas Programme implementation strategy Relevance vis-à-vis strategic and immediate objectives Applying HRBA Risk Assessment Relying on on-going consultations Implementation modalities Strategic Partnerships Project and programme support Secondments to International Institutions Geographical focus: Regional and Country Specific Interventions Overview of management set-up at programme level MENA Department Technical Advisory Offices and embassies Financial Management Monitoring and Evaluation Monitoring Measuring results

4 4.3 Reviews Country-specific reviews Evaluations The programme budget Annexes Partners brief description Results Framework Budget at output level Risk Management Framework Summary of appraisal List of supplementary material Developments Engagements DAPP Development Engagements under Implementation Criteria for selection of Strategic Partners

5 Programme summary Journal nr Danish Ministry of Foreign Affairs Department MENA Date: November 2014 Title Country/Region Implementing Partners Danish-Arab Partnership Programme (DAPP) Middle East and North Africa (MENA) Danish NGOs, MENA NGOs, multilateral organisations, media institutions, special interest organisations, educational institutions, independent institutions, municipalities, central government authorities and agencies, etc. Implementation Period 2015/2016 Budget Strategic Objectives DKK million annually 1) To promote reform and democratisation processes in the Middle East and North Africa. 2) To improve dialogue, understanding and cooperation between Denmark and the MENA-Region. Thematic Area I: Thematic Area II: Thematic Area III: Thematic Area IV: Human Rights, Human Freedoms and Good Governance Women s Empowerment and Gender Equality Knowledge-Based Societies Economic Growth and Job Creation 4

6 Abbreviations Abbreviation Definition AMG Aid Management Guidelines (Danida) CSO Civil Society Organisations DAPP Danish Arab Partnership Programme DEDI Danish Egyptian Dialogue Institute DKK Danish Krone EU European Union HRBA Human Rights Based Approach KVA Quality Assurance Department, MFA MENA Middle East and North Africa MFA Ministry of Foreign Affairs NGO Non-Governmental Organisation SFD Strategic Framework Document SNE Seconded National Experts TAO Technical Advisory Offices UN United Nations UNDP United Nations Development Programme USD United States Dollar 5

7 0. Introduction The Danish Arab Partnership Programme (DAPP) has since 2003 been a central pillar in Denmark s comprehensive foreign policy vis-à-vis the MENA-region. DAPP supports processes of political reform and democratisation, while it also enhances dialogue between Denmark and the Arab world. It focuses on four thematic areas, namely human rights and democracy; women s empowerment and gender equality; independent knowledge creation; and economic growth and job creation. From the outset, the DAPP has been characterized by reciprocity, mutual respect and partnerships with a long-term perspective and a flexible framework able to respond to the volatile political context in the region. DAPP is based on the Strategic Framework Document (SFD) for the period which outlines the overall strategic approach, objectives and rationale of the programme and its four thematic focus areas, risk-management considerations and core indicators. The SFD was the result of a thorough process, including discussions in the Council for Development Policy in March 2013 prior to approval by the Foreign Affairs Committee in April DAPP is part of the Global-frame under the Danish Finance Act, which comprises engagements that are not directly aimed at poverty-reduction. As such, DAPP is a political instrument, playing a central role in Danish foreign policy vis-a-vis the MENA-region. DAPP combines the focus on democracy and reform with a focus on dialogue at different levels, not least between Arab and Danish partners, including activities in Denmark. The DAPP operates in a highly political and volatile environment, which demands a high degree of flexibility and consciously taking risk in programme management from planning through implementation to monitoring and evaluation. The Programme Document, which covers the remaining two years of the current SFD, is the result of an iterative process seeking to the extent possible a gradual compliance with the Danida Aid Management Guidelines (AMG). It is a step-wise process, which requires flexibility and political ear to ensure the best possible approach. A new Strategic Framework Document for the DAPP will be prepared for a five-year period (from 2017, exact duration will be determined upon completion of the evaluation) and the next phases of programme implementation will mainstream the program further to the AMGs, while accommodating the particular political focus and history of the DAPP. An evaluation of the DAPP has been initiated and will be carried out in The findings of the evaluation will inform the next SFD. The Programme Document covers 2015/2016. However, due to DAPP s one-year grant-cycle, the concrete development engagements presented in the Programme Document cover only The Programme Document is a revised version of the DAPP Implementation Document recommended for approval by the External Grant Committee in December The Programme Document will be adjusted further in the fall 2015 to present planned development engagements for 2016 as well as reflect lessons-learned and recommendations from the DAPP evaluation. Mandatory annexes as well as supporting documentation with details of the concrete interventions are attached. 6

8 1. The DAPP Strategic context The present chapter serves to contextualise the proposed Thematic Focus Areas and Development Engagements. It contains a presentation of the background of DAPP and a brief account of the current context situation in the MENA-region. It presents a number of additional strategic considerations which have guided the formulation of the Programme Document. Finally, it visits the lessons learned from recent reviews, studies and the media evaluation of DAPP. 1.1 Background In recognition of the fact, that a close and trustful relationship with Europe's neighbours south of the Mediterranean was of vital importance for Europe as a whole and Denmark, the DAPP was launched in 2003 as a foreign policy initiative. The UNDP Arab Human Development Report from 2002 was used to inform the formulation of the programme, and it was decided that the DAPP should have a long term perspective and a double strategic purpose: to support reform processes, and to enhance dialogue and cooperation between Denmark and the MENA-region. The cooperating partners have since the start been Arab and Danish Civil Society Organisations, media organisations, political parties, parliaments and reformactors within State Administration and legislative bodies, multilateral organisations and labour market organisations. After the initial phase, DAPP has up until 2011 had an annual budget of approximately 100 million DKK. The DAPP was significantly expanded after the Arab uprisings in also referred to as The Arab Spring. The budget was raised to 275 million DKK annually, and the DAPP strengthened its support to democratic transition, including contribution to economic development and job creation in Tunisia and Egypt. The DAPP focus countries initially limited to three Jordan, Morocco and Yemen were expanded to seven countries by adding Egypt, Tunisia, Syria and Libya. In 2013 the DAPP marked the 10 years anniversary of the initiative. During its first decade, the DAPP has supported more than 200 Danish and 600 Arab civil society organisations to strengthen efforts to promote reform and democratisation as well as partnerships and mutual understanding and dialogue between Denmark and the Middle East and North Africa. DAPP has aimed to enhance coordination between international partners and in particular to strengthen and align with the initiatives and programmes of the EU in the region as part of the EU neighbourhood programme. One of the means that DAPP applies to promote this is to second Danish national experts to the EU delegations in the region. Another way is through support to trust funds to encourage multilateral organisations such as the UN and the World Bank Group to play a stronger strategic role in underpinning sustainable and democratic developments in the region. DAPP underwent a technical review in The review confirmed the overall conclusions of a previous 2009 review that DAPP has been successful and its relevance indisputable. The review concluded that DAPP has provided a flexible framework able to respond quickly to major developments in the MENA-region in critical moments of transition. The rapidly changing and difficult context continue to require a flexible and agile management set-up to ensure the full potential of the DAPP as a foreign policy instrument. The review recommended that DAPP continued efforts to reduce the number of interventions as well as clarify the concepts of reform and dialogue. The review as well as the evaluation to be carried out during 2015 will inform the next DAPP Strategic Framework Document. 7

9 1.2 The current context of DAPP The context in the MENA region has continued to change rapidly since the SFD was approved. The recent advance of ISIL across the territory of Syria and Iraq is impacting immensely on the situation in the entire MENA region generating instability, refugee flows and feeding into the security driven agenda in several countries. The SFD states that the four countries Egypt, Tunisia, Libya and Yemen were undergoing democratic transitions after the former political leaders had been replaced. Today, only Tunisia continues the original democratic transition with successful Parliamentary elections in October 2014 as a case in point. The focus on stability and security in Jordan and Morocco seem to have taken off steam from popular demands for political reform in the short run, however, in the longer run peaceful transition depends on the two countries ability to gradually expand the reform agenda. The ongoing violent conflict in Syria, Yemen and Libya currently poses a threat to regional stability as well as international security. There is a risk that these countries may turn into safe havens for violent extremists. This is considered an imminent concern to Europe and globally, including Denmark and Danish security interests. In addition comes the foreign fighter s aspect, where Danish and other European nationals participate in these conflicts on the side of the extremists. A key word to describe the developments in the region is polarization. In Syria, we see a deeply polarized population which is increasingly divided along sectarian lines. The Syrian crisis has also increased regional polarization and competition. Millions of Syrian refugees have led to intense pressures on the economy and social fabric in Lebanon and Jordan. The battle-field has moved into an already unstable Iraq where the exclusion of the Sunni-minority from the political processes and the advance of ISIL have enhanced instability. Deep ideological divides have also characterized some of the main developments in the past year e.g. in Egypt where the space for dissenting voices is shrinking. Polarization is also played out along tribal and ethnic lines across the region. This is very much the case in both Yemen and Libya, where centrifugal dynamics have weakened central government and led to a deteriorating security situation with dire implication for the transition processes in both countries. Social and economic divides are aggravated by deteriorating living conditions and employment opportunities among growing young populations. This demographic could have boosted the economies of the region, but is in the midst of political and security turmoil instead potentially attracting unemployed youth to extremism. Finally, polarization of course has territorial aspects across the region, as illustrated by the conflict between Israel and Palestine. The worrying trends of polarization should not deter our attention from the positive dynamics that could also be observed. The Arab uprisings in 2011 mobilized an entire generation of young people and created a hope for freedom and dignity among large sections of the population. New NGOs and civil society organization mushroomed and have together with academics, media and a number of civil servants called for a pluralist democracy. They represent the "drivers of change" for reform and democratization. The uprisings have also led some Islamist movements to establish political parties and to participate in electoral processes. However, the changes in the political landscape have created deep mistrust. One of the conditions for developing a democratic and pluralistic society is therefore currently to build the basis for mutual trust between the opposing political factions. We have witnessed an increased political awareness among the populations in the region, especially among the youth, who have also been a key driving force 8

10 behind the uprisings. In this picture the Tunisian case might play an important role in demonstrating that a democratic and pluralistic political model may constitute the best platform for social cohesion and further development. 1.3 Strategic considerations While the SFD continues to provide valuable guidance in terms of the overall principles and approaches applied under the DAPP, the regional developments have resulted in a need to adjust the programme intervention areas to adapt to the changed political and security environment in the region. This has also affected the Theory of Change as original assumptions have changed and new risks to the programme implementation have emerged. 1.4 Building on lessons learned From its outset, the DAPP s flexible approach has proven its relevance during the popular uprisings and DAPP has managed to continue its support to political reform throughout the region, where numerous DAPP-beneficiaries have been and continue to be central players and drivers of change in ongoing reform processes. The identification and selection of DAPP Development Engagements proposed for 2015 is influenced by, inter alia, the accumulated experiences and lessons learnt over the years since the start of the DAPP in A number of reviews, studies and the media evaluation have assessed DAPP in recent years. Main findings and recommendations from these have contributed to the formulation of the present Programme Document and the on-going learning within the programme. Table 1: Overview of reviews, studies, evaluations, assessments Review / study / evaluation /assement DAPP synthesis analysis summarising lessonslearned from DAPP pilot period from , May 2006 Review of the Arab Initiative, Danish synthesis report, July 2009 Comparative study of DAPP and similar initiatives, 2009 Beretning til Statsrevisorerne om Det Arabiske Initiativ, Office of the Auditor General, 2009 Dialoguing Partnerships. An Analysis of the Dialogue Assumptions of the Danish Partnership for Dialogue and Reform, and Building Intercultural Bridges: Lessons from the Danish-Arab Partnership Programme DIIS Dansk-arabiske partnerskaber i Mellemøsten og Nordafrika. Resultater af Partnerskab for Dialog og Reform March 2011 Main findings Maintain broad range of partners and continue focusing on the three challenges identified in the UNDP Arab Human Development (2002) report as the framework for the DAPP, namely human rights, human freedoms and good governance; women s empowerment and gender equality; and knowledge-based societies. This decision was confirmed by the Danish Parliament (ref. V80 from 2005/2006). Ability to involve partner organisations and focus on professional partnerships. Best practices identified: Long-term commitment; relatively clear-cut design not overloaded with too many policy goals; and modesty of the approach at various levels. The DAPP has, under very difficult circumstances, proven able to demonstrate results, which supports the DAPP s objective to create a foundation for strengthened dialogue, understanding and cooperation as well as support existing local reform-processes in the MENA-region. While too early to conclude on long-term effects of DAPP, the report recommended DAPP to strengthen its M&E tools. Mutual prejudices are generally dismantled in the partnerships and social capital is built between Denmark and the Arab world. The relevance of dialogue and partnership was confirmed. Report presenting results of the DAPP from the period

11 Notat til Statsrevisorerne om beretning om Det Arabiske Initiativ, Office of the Auditor General, 2011 Evaluation of media cooperation under the Danish Arab Partnership Programme ( ), February 2013 Review of the Danish Arab Partnership Programme (DAPP), Ministry of Foreign Affairs Denmark, July The report concluded that the MFA had improved the ability of DAPP to perform results-based management as well as work to improve documenting and measuring intermediate and long-term results. Despite extremely fluid and complex circumstances, the media interventions have achieved notable successes, in some cases exceeding expectations. Need to clarify the dialogue concept, including how progress is measured. The relevance of the DAPP is indisputable and the programme has contributed to a significant development in the MENA-region at critical stages of the transition process. The partnership approach of the DAPP has been a key factor in the success of the programme. There has been a streamlining of the programme and increased harmonisation with AMG. The review recommended that DAPP seeks increased clarity of the reform concept; The number of engagements be reduced to allow for focus; Monitoring & evaluation be enhanced; The use of DAPP as a political instrument be enhanced. 2. Presentation of the programme The present chapter contains a presentation of the DAPP, including 1) programme rationale, initial Theory of Change and programme objectives; 2) thematic focus areas; 3) implementation strategy; 4) implementation modalities; and 5) the geographical focus in relation to regional and country specific interventions. For 2015/2016, this Programme Document is the main operational document to be applied for the engagements under DAPP. This Programme Document will be underpinned by separate grant documents (through contracts with third parties). 2.1 Programme Rationale, Theory of Change and Programme Objectives Programme rationale The Middle East and North Africa is geographically one of Europe s closest neighbours. A democratic, just and prosperous Middle East and North Africa will improve stability on Europe s borders, contributing to create a bulwark against cross-border crime, contribute to a decline in refugee flows to Europe, increase business opportunities, and strengthen the mutually beneficial exchange of culture, ideas and people. Democratic societies are less vulnerable to conflict and more prone to develop sustainable economies. The EU, including Denmark, thus has a clear self-interest in promoting stability in the region and in supporting demands for dignity, freedom and improvements in living standards across the MENA-region. This includes creating a bulwark against radicalisation and violent extremism, which not only constitutes a security risk that goes beyond the borders of the MENA countries, but also threatens the very values that Denmark seeks to preserve and promote. To contribute to this development in the MENA-region, all of Denmark s foreign policy instruments, including classic diplomacy (bilateral as well as multilateral), humanitarian aid, stabilisation efforts, commercial diplomacy and development assistance, are brought into play in a comprehensive approach. Accordingly, the DAPP is one of the key instruments in Denmark s comprehensive foreign policy towards the MENA region. In collaboration with the other instruments, the DAPP is hence carefully designed to 10

12 support local drivers of change, which can contribute to reform and democratisation, and support an enhanced dialogue, understanding and cooperation between Denmark and the MENA-region. With DAPP, Denmark hopes to strengthen Danish insight into the region, establish a network of contacts and dialogue with key opinion makers, combined with enhanced dialogue initiatives in Denmark, as a platform to move away from stereotyping and for an effective Danish foreign policy in and increased cooperation with the MENA region. However fragile the situation is in the MENA it is more relevant than ever that Denmark continues its strong political engagement with a broad range of partners throughout the MENA region. More systematic change is not expected in the short term, however it is in Denmark s interest to support democratic and reform oriented forces and thereby create the foundation for a long term transition process Theory of Change and Programme Objectives An initial Theory of Change is presented in the section below. The efforts of developing a more thorough Theory of Change for the DAPP are on-going and will be further unfolded during 2015 as part of introducing the newly designed monitoring & evaluation system (Strengthening M&E Framework for the Danish Arab Partnership Programme, October 2014) as well as in the process of preparing the new DAPP SFD. The DAPP operates with two overall strategic objectives for which there are separate, yet complementary rationales: 1) to promote reform and democratisation; and 2) to improve dialogue, understanding and cooperation between Denmark and the MENA region. The underlying hypothesis for the reform and democratization objective is that if Denmark can support changes within the areas of reform and democratization processes, then Denmark will contribute to laying the ground for future more systemic reform and possible democratic transition processes. Moreover, through the support for Human Rights defenders and Civil Society Organizations, Denmark contributes to building important capacity within these organizations and thereby strengthening their ability to create democratic change. This assumption, however, needs to be carefully revised in light of unfolding events on the ground in the region as the situation may dramatically change, reducing the space for democratic reforms. The underlying hypothesis for the dialogue objective is that if Denmark supports non-governmental contacts and interrelation in the shape of DAPP partnerships, then it can help to promote mutual understanding, dismantle stereotypes and combat prejudices and give Denmark the ability to engage constructively with the MENA-region as well as the ability to achieve its foreign policy objectives. Another key assumption is that partnerships built on a sense of mutual understanding and common needs can enhance mutual benefits and learning, for instance increased opportunities for business development as well as sharing practical experiences as an example how Danish shelters have been able to draw on experiences from their work with MENA partners when accommodating Arab women living in Denmark. In the DAPP SFD, it is outlined that the DAPP operates with the dialogue concept at three different levels: direct Danish-Arab dialogue; interregional dialogue; dialogue at national level, including ideologically and/or religious different actors. 11

13 In order to contribute to the two strategic objectives, the DAPP has identified four intermediate objectives or thematic areas. The basic assumption is that the four thematic areas separately and in unison are fundamental pillars to contribute to driving progress related to the long-term strategic objectives. For instance, the assumption is that fundamental human freedom is a prerequisite for broad-based sustainable reforms because people have the ability to freely express their needs and aspirations in relation to reform priorities set by the government. Additionally, it is an assumption that a knowledge-based society is a key element in promoting qualitative national dialogue and removing stereotypes, thus enhancing a qualitative debate about key reform initiatives. Along the same lines, it is another assumption that job creation will unleash potential of youth, through decent livelihoods, to more actively demand societal change and more transparent governance while also lifting pressure from hard-pressed infant democratic governments from marginalised unemployed youth. The four thematic areas are underpinned by 12 immediate objectives. The immediate objectives are founded on basic assumptions as to how to contribute to progress within the four thematic areas. For instance, it is a basic assumption that gender equality can only be achieved if women are able to participate actively in society. Another assumption is that independent and qualitative investigative journalism is a prerequisite for media to play a watchdog function vis-à-vis government institution, enhancing the accountability of government. Furthermore, it is assumed that access to decent jobs for both men and women will contribute to strengthening basic human freedom as well as women s empowerment. 12

14 These immediate objectives drive the selection of Development Engagements and implementation modalities. As such, each Development Engagement contributes to one or more of the immediate objectives. Horizontal linkages and synergies between all three levels of programme objectives are sought where feasible. For instance, labour market reform will enhance women s access to the job market and thus increase the ability for women to participate actively in society. Also, increased media and press freedom can contribute to enhance basic human rights by focusing on and documenting human rights abuses or spark public debate on key rights areas Assumptions at country-level As described in the context paragraph, the Middle East and North Africa region is faced with severe challenges, however attention should not be deterred from the positive developments and trends that can also be observed. Tunisia, cradle of the Arab uprisings, is the current flagship in that regard. In 2014, Tunisia achieved a democratic milestone as the National Constituent Assembly (NCA) adopted Tunisia s new constitution. That marked a significant achievement and reflected remarkable progress in developing a new political framework. Thereby Tunisia demonstrated its potential to achieve a successful democratic transition and act as an example of peaceful transformation for the Arab region and beyond. Though the Tunisian transition process is also fragile, we have seen an unprecedented will to compromise despite pervasive distrust and conflicting interests. A successful implementation of the Constitution will require a strong engagement of civil society and the inclusion and participation of the huge generation of youth. Also in the other DAPP focus countries it is assumed, that there within the four thematic areas of DAPP will be a room for supporting specific reform areas. In addition, it will be possible to maintain and continue to support civil society organizations and other actors that, in the medium or long term, can be drivers of more systematic political reforms. Given that the political space for civil society organizations and the media and academia - in countries such as Egypt and Libya and to some extent Jordan is under pressure, much effort of DAPP 2015 will focus on defending the status quo, or limiting further restrictions in the policy space. Thus, though any reform effort will attempt to involve duty bearers as well as rights holders, the latter might be the main partner of cooperation in a number of projects and programmes. 13

15 In a number of DAPP countries, affected by conflict (Syria, Libya and Yemen), Denmark will continue its current engagement, while regularly assessing the situation. In Yemen, interventions targeting key reform areas such as support to key deliverables in the transition roadmap as well as reform actors at grassroots level will be maintained. In Libya, current interventions will continue where possible to maintain achievements, but in light of the current situation no new intervention areas are planned. The intervention in Syria is included in the Syria programme for In Egypt, engagements will seek to support drivers of change, e.g. NGO s, combatting torture and enhance women s empowerment as well as promote creation of jobs for Egypt s young people. In Jordan and Morocco that presently are stable, it is important that not least DAPP youth programmes as well as efforts to support women s political and economic participation, seek to underpin immediate reform potential and present alternatives for youth to extremist ideologies. Concurrently, DAPP will contribute to maintaining and further developing Danish insight into the MENA region in order to understand the challenges and opportunities as well as promote and strengthen Danish- Arab contacts and cooperation. This assumption is supported by a draft dialogue study of DAPP (yet to be released), which points to Denmark s ability as a small state through these contacts to be a first mover in an international context to provide support to reform drivers at a critical time. Furthermore, it is important that Danish partners establish a network, which includes ideologically and/or religiously diverse drivers of change. Hence, Denmark will continue to strengthen partnerships with a broad range of reform actors across the DAPP focus countries, taking into consideration the country-specific contextual developments. Denmark will continue to rely on close dialogue with implementing partners about possibilities and challenges and endeavour to adjust interventions accordingly. The regional approach of the DAPP is assumed to foster the creation of broad networks where knowledge and lessons learned are exchanged not only between a specific MENA country and Denmark but also across the MENA-region, hence strengthening intraregional and intra-religious dialogue. A concrete example is MS/Action Aid Denmark s work to train groups of Jordanian and Syrian youth to become activists in their local community while also building bridges between Jordanian and Syrian communities. Another example is Danmission s work to bring together religious leaders from different religious communities in the region. For an overview of risks related to implementation and possibilities for obtaining results, please refer to section below as well as DAPP risk matrix in annex Thematic focus areas As described in the SFD, the thematic focus of the DAPP is framed by the 2002 UNDP Arab Human Development Report, which identified three key challenges for human development in the region. These, correspond to the thematic focus areas, namely the enhancement of: 1) Human Rights, Human Freedoms and Good Governance; 2) Women s Empowerment and Gender Equality; and 3) Knowledge-based Societies. In November 2011, assistance to halt the economic downturn and to spur economic growth and employment was added as a fourth corner stone in meeting one of the overriding DAPP development objectives of promoting democratization and reforms. Hence the fourth challenge identified is 4) Economic Growth and Job Creation. 14

16 For each of the four thematic areas, there are a number of specific Development Engagements with corresponding immediate objectives. The DAPP covers 7 countries in the MENA-region, mostly through regional initiatives by strategic partners, but also with country specific projects in Yemen, Tunisia, Egypt, Morocco and Syria (the latter not covered in the programme document). For thematic area four, economic growth and job creation, country-specific interventions will be limited to Tunisia and Egypt in line with the SFD. The matrix below provides an overview of the DAPP, its thematic focus areas, immediate objectives, main partners and geographical focus. In addition to these partnerships and projects, a number of Danish national experts are seconded to the EU, the European Endowment for Democracy (EED) and the World Bank; and Technical Advisory Offices (TAO) are established and maintained in Jordan, Yemen and Tunisia to support programme implementation and enhance dialogue. A detailed overview of the Development Engagements in 2015 under the four thematic areas is included in Annex 8. Table 2: Programme overview Thematic focus area Interventions & Immediate objectives 1 Human Rights, Democratisation: To strengthen Human Freedoms & processes of democratic transition Good Governance 2 Women s Empowerment and Gender Equality 3 Knowledge-based Societies 4 Economic Growth & Job Creation Human Rights & Combatting Torture: To strengthen human rights and combat torture Youth participation: To strengthen young people s participation in public life Gender Friendly Legislation: To promote changes in legislation in favour of gender equality Women s Participation: To increase women s participation in social, political and economic life Fighting Violence against Women: To combat and prevent violence against women Media & Press Freedom: To strengthen quality and independent media Independent Quality Academia: To strengthen critical and independent academia Interreligious & Intercultural Dialogue: To strengthen knowledgebased intellectual and interreligious dialogue Job Creation: To create jobs and lower unemployment Implementing partners EED World Bank UNDP The Danish Prison and Probation Service /Moroccan Ministry of Justice VNG International Dignity EMHRN DIHR MS AADK DUF KVINFO Women s Council in Denmark with LOKK and Danner IMS Funding modality (to be set-up) Danmission ILO Danish Knowledge Geographical focus Regional Yemen Tunisia Morocco Regional Regional Regional Regional Regional Regional Regional Egypt Tunisia 15

17 Innovative Entrepreneurship: To promote micro- and small enterprises and entrepreneurs Centre for Agriculture & Tunisian Ministry of Agriculture AfDB Tunisia 2.3 Programme implementation strategy A common denominator for the principles which ensures the appropriateness of the programme implementation strategy is the on-going learning process. It is based on continuous updated knowledge on the situation in the MENA-region and critical joint reflections by Danish and MENA partners. Four main principles guide the selection of the Development Engagements: 1) relevance; 2) HRBA considerations; 3) risk assessment; and 4) on-going consultations. The Development Engagements are implemented through three distinct implementation modalities: strategic partnership agreements; project and programme support; and secondments Relevance vis-à-vis strategic and immediate objectives First of all, the selection of development engagements is guided by a need to ensure continued relevance between concrete Development Engagements and the strategic and the intermediate objectives. With regard to Development Engagements designed under the partnership modality, the selection is based on an iterative and consultative processes, which systematically analyses the overall reform dynamics and potentials in each country. Relevant focus areas and partners are identified based on their comparative advantages and reform and/or dialogue potential; and reviews of previous activities are undertaken. The final identification and formulation of concrete areas of collaboration is conducted jointly by Arab and Danish partners based on mutual interest and competence. To the extent possible, a regional approach is applied to promote synergies and exchanges of lessons learned between countries. With regard to Development Engagements designed under the project and programme support modality to democratisation transition processes, commitments are based on requests, assessed with regard to relevance and quality by embassies and TAOs; and are committed in dialogue with other international partners to ensure synergy and appropriate division of work. These are often pledges made based on political and/or strategic considerations and there are not necessarily any immediate linkages between the various Development Engagements. The rationale behind the concrete interventions in 2015 is in particular 1) a continued commitment to support the national transition process in Yemen, 2) a commitment to support (local governance and) constitution drafting in Tunisia, 3) continued support to Morocco s prison systems introducing alternatives to imprisonment, and 4) a commitment to enable the EU and the European Endowment for Democracy to enhance efforts in the MENA-region to promote more just and democratic societies. With regard to project and programme support related to economic growth and employment, three key criteria are decisive: 1. Focus on tangible results in selected countries: Given the economic and political realities in Egypt and Tunisia, results should be visible in the communities. Development Engagements are 16

18 therefore assessed and selected based on, among other aspects, their ability to deliver results in a challenging environment; 2. Foreign partnerships: Bringing Danish and other international perspectives and practices to implementing institutions in Tunisia and Egypt and their efforts to support growth and job creation; 3. Market driven interventions: Job creation necessitates a profound understanding of, and link to, markets. DAPP support sectors and value chains with clear market potential and realistic strategies to meet the market demands. Finally, with regard to Development Engagements designed under the secondments modality, a number of Danish national experts will continue to be seconded to key EU delegations and units of the European Union (Commission + External Action Service) and the European Endowment for Democracy (EED). The specific selection of where to focus this active multilateral engagement is based on an evaluation of where they may best contribute to European efforts to strengthen reform and democratisation in the MENA-region. A guidance note stipulating the principles for secondments lays the foundation for the specific decisions about secondments Applying HRBA As outlined in the SFD, Development Engagements will as far as feasible be based on a human rights-based approach (HRBA) to development cooperation. This tallies well with DAPP s decade long overall focus on human rights and democracy. The application of the relevant Danida guidelines on HRBA will be strengthened in the next DAPP SFD and programme documents. Several Development Engagements place overriding focus on strengthening of the capacities of rights-holders to actively participate in policy dialogue (to make their claims) and/or of duty-bearers to meet their obligations and demonstrate accountability towards political commitments, plans and rights-holders. The programme will to the extent possible support initiatives that address participation, accountability, non-discrimination and transparency. For instance, the DAPP will support investigative journalism as well as efforts to enhance women s political and economic participation. Partners will continue to be supported in actively engaging in national and regional initiatives related to international human rights conventions and processes, as these are seen as important vehicles for a HRBA. In particular, the SFD highlights promotion of women s empowerment and gender equality and the active participation of women and young people as well as outreach in all aspects of social life as basic principles in the DAPP, albeit all Development Engagements will, to the extent possible, integrate considerations of how to best implement the HRBA principles in practice in general and gender equality, youth and outreach in particular Risk Assessment DAPP is affected by the political development as well as security-related conditions in the MENA-region. However, it should be noted that risks differ considerably due to very varied political, socio-economic and security dynamics in the seven focus countries. Across the region, although with varying degree of likelihood, there is a risk that constitutional, legal and political reforms stall with a risk that DAPP interventions are stalled or even undermined. Similarly, the signs of increasing restricted space for NGO s to operate pose a direct challenge for DAPP partners space to operate. This requires a flexible approach and ability to swiftly adjust programme interventions in dialogue with partners. Economic decline and 17

19 widespread unemployment, especially among youth, is another risk factor across the region. This includes women s economic empowerment. DAPP efforts to promote growth and employment will attempt to mitigate these risks, but are largely dependent on political will to implement economic reforms. Syria and Libya are in a state of regular conflict and collapsed government systems, which severely limits engagements in those countries. Yemen continues its bumpy road to democratic transition, but political instability and widespread violent struggle for power and access to resources seriously threatens to undermine any progress in the transition roadmap. Egypt is politically fairly stable, but increasingly suffers from terror attacks in several parts of the country. Jordan and Morocco are both politically stable, but face serious security challenges from spill-over from regional conflict, which both threatens the security situation in the two countries, and risks undermining the appetite for democratic reforms. A contextual risk matrix, which covers the overall potential adverse outcomes that may arise in the MENAregion and hence could impact the broader risks at programme and institutional level, is enclosed as annex 4. More detailed programme/project and institutional risks are dealt with in each of the 11 strategic partnership rolling plans as well as in the background documents for project and programme support to direct democratization assistance and economic growth and job creation Relying on on-going consultations The DAPP team engages biannually in systematic direct consultations with the 11 strategic partners involved in the DAPP. In these consultations actual results, challenges and potentials of on-going activities, as well as ideas for new or continued Development Engagements are discussed. The consultations are carried out bilaterally and via broader meetings focusing on a thematic area, a specific challenge or a focus country. It is a deliberate choice to maintain a direct and on-going policy dialogue with the implementing partners, as an active lessons learned exercise, since it provides in-depth knowledge of the situation on the ground and a solid platform for decisions on programme adjustments. The systematic and on-going consultations with Danish partners are complemented by consultations with local MENA partners and international partners carried out by embassy staff, the Technical Advisory Offices (TAO) and/or by members of the DAPP-team during frequent visits to focus countries in the region. In addition, regular consultations are held with key financial partners, for instance a Nordic MENA meeting in February Implementation modalities The DAPP includes three different modalities for implementation: 1) Strategic partnerships between professionals/technical organizations and institutions in Denmark and the MENA region in order to strengthen Danish-Arab dialogue and work jointly to promote a reform agenda; 2) Project and programme support - Direct democratisation assistance to countries in transition and Support to economic growth and job creation to countries in transition; 3) Secondment of experts to international organisations in the MENA region Strategic Partnerships The overall characteristics of the DAPP have since its outset been reciprocity, mutual respect, partnerships and flexibility and the strategic partnerships between professionals on issues of mutual interest have been a cornerstone of the programme. It has been a key consideration that the main Arab partners under the 18

20 DAPP should not be abandoned abruptly. To the extent possible partnerships should be phased out based on mutual agreement between the partners. The partnership modality consists of professional partnerships between Danish and Arab organizations and/or institutions. The partnership modality is meant to encourage dialogue and networking while at the same time enhancing partnerships between professionals collaborating on activities related to reform processes. Whereas the DAPP has historically involved a very wide group of Danish partners, it was in 2013 decided that the programme will in the future focus on a limited number of strategic partners with a longer term perspective. 11 organisations (see annex 1) were selected as strategic partners in February The partnerships have been selected based on their relevance vis-à-vis the overall thematic focus areas, their administrative capacity, their contextual knowledge of the MENA-region and the strength and reciprocity of their partnerships with local partners in the MENA-region (see annex 9 for selection criteria). The purpose is to facilitate the possibility for Danish organisations to enter into more robust longer-term agreements with their MENA partners to implement DAPP-funded activities. This possibility will mainly be provided to organizations that have demonstrated technical and administrative capacity to implement DAPP partnership initiatives during a considerable period of time in close collaboration with local Arab partners. For many DAPP strategic partnerships, one of the objectives is to involve a broad group of Danish partners in the programme. Strategic partners may be NGOs, CSOs, media institutions, special interest organizations, educational institutions and independent institutions. Three of the strategic partnerships will comprise so-called minipools to enable other civil society organisations to receive support for minor projects. As recommended by the 2014 mid-term review, a review of the mini-pools will be conducted in Two additional Development Engagements are being formulated separately, namely continued support to Danish-Egyptian Dialogue Institute (DEDI) and a new Academic Partnership engagement Project and programme support The modality of project and programme support is applied for the two specific areas: Democratisation Assistance and Support to Economic Growth and Job Creation. Direct Direct Democratisation Assistance Direct Democratisation Assistance aims at promoting democratic transition processes and was introduced following the Arab uprisings in It is a flexible instrument to enable constructive, timely and relevant contributions to these transitions. It has allowed Denmark to be a fast mover in supporting urgent priorities in the transition countries, e.g. support to preparation of elections through the United Nations in Tunisia and election monitoring in Egypt. Denmark was also a first mover in supporting the National Dialogue process in Yemen and to the development of political parties in Libya. The modality targets first and foremost Egypt, Syria, Tunisia and Yemen and to a lesser extent Libya. The modality is not based on strategic partnerships and is often implemented as part of a joint donor engagement. The assistance is usually provided in close coordination with local stakeholders at the country level. Stand-alone bilateral activities may be supported. Before a commitment is made, the relevance and 19