Consultation on Civil Society Organisations in Development - Glossary - March 2012
List of terms Accra Agenda for Action Agenda for Change Busan partnership for Effective Development Cooperation Alignment Budget support Capacity development Civil Society Organisation 'Communication' (of the European Commission) Cotonou Agreement CSO mapping studies Democratic ownership Development Development effectiveness Domestic accountability Enabling environment for CSOs European Consensus on Development Geographic instruments Human Rights Istanbul Principles Legitimacy Multiannual Financial Framework Non State Actors (NSA) Paris Declaration on Aid effectiveness Policy Dialogue Right of Initiative Structured Dialogue Thematic instruments and programmes This glossary accompanies the paper for the consultation on Civil Society Organisations in development and builds on the glossary for the Structured Dialogue (April 2010). Like the issues paper, this glossary does not represent an official position of the European Commission. Notwithstanding national and regional particularities, this glossary can serve as a basis for consultation. For information about the consultation process and to download the Consultation Paper, please refer to the Civil Society page of the DEVCO website: http://ec.europa.eu/europeaid/who/partners/civil-society/index_en.htm For more information, please contact: DEVCO-CSO-CONSULTATION@ec.europa.eu 2
Accra Agenda for Action The Accra Agenda for Action (AAA) 1 is the outcome document of the third High Level Forum (HLF-3) on Aid Effectiveness which took place in Accra, Ghana, in September 2008. The objective of this HLF was to assess progress on the commitments and targets of the Paris Declaration. However, the HLF-3 introduced new issues into the debate such as for instance democratic space, division of labour, South/South co-operation, and recognized Civil Society Organisations as development actors in their own right. Agenda for Change In October 2011 the Commission presented its 'Agenda for Change' 2 setting out a more strategic EU approach to reducing poverty, including a more targeted allocation of funding. It proposes that EU development aid spending should target countries that are in the greatest need of external support and where it can really make a difference. It also proposes that EU assistance should focus on two priority areas: 1) human rights, democracy and other key elements of good governance, and 2) inclusive and sustainable growth for human development. The main principles of the Agenda for Change will be progressively reflected in the remainder of the current programming cycles and then in future EU programming. In spring 2012, the Commission will ask EU Development Ministers to endorse the Agenda for Change. Busan partnership for Effective Development Cooperation The Busan Partnership for Effective Development Cooperation 3 was adopted at the end of the 4 th High-Level Forum on Aid Effectiveness (HLF-4) in Busan, South Korea, in December 2011. It was the result of a year-long process of consultation, involving governmental, civil society, private and other actors. Building further on the Paris Declaration and the Accra Agenda for Action, the document set out principles, commitments and actions that offer a foundation for effective cooperation in support of international development. The document for the first time embraced traditional as well as emerging donors and South-South and triangular cooperation. It also marked a shift from aid effectiveness to the more inclusive concept of development effectiveness. Alignment Alignment 4 is one of the five principles of the Paris Declaration. It refers to donors commitment to base their overall support on recipient countries' national development strategies, institutions, and procedures rather than imposing their own priorities or putting parallel systems in place. Budget support Budget support is the transfer of financial resources of an external funding agency to the National Treasury of a partner country, subject to the respect by the latter of agreed conditions for payment. The financial resources thus received are integrated into the global resources of the partner country and consequently used in accordance with the public financial management system of the partner country. For the EU, budget support involves policy dialogue, financial transfers to the national treasury account of the partner country, performance assessment and capacity-building, based on partnership and mutual accountability. Budget support is an important instrument in EU's comprehensive development policy towards partner countries. In October 2011 the European 3
Commission published a Communication outlining a proposal for the future approach to EU budget support to Third Countries. 5 Capacity development Despite its increasing use in development, capacity development remains a complex and moving concept revolving around the notion of change and transformation at different levels. Generally, it can be described as the process whereby people, organizations and society as a whole unleash, strengthen, create, adapt and maintain capacity over time. 6 It can help them translate ambitions into concrete plans and outcomes. However, the outcomes produced by capacity building are often long term and not easily attributable to one intervention or intervener. In Accra donors pledged to increase the capacity of all development actors, including CSOs and to work towards ensuring that CSO contributions to development reach their full potential (reiterated in Busan). The ability of CSOs to enhance their contribution to development is often challenged by various capacity constraints ranging from management and leadership challenges to problems in constituency building, representativeness (internal governance issues), fundraising and communication. It is often argued that a shift is needed towards a transparent market in which actual local demand and supply of quality capacity development services better match. Such a market would be open and accessible to local capacity developers including southern CSOs. Civil Society Organisation For the purposes of the consultation paper, Civil Society Organisations (CSOs) 7 include a wide range of formal and informal organizations created voluntarily by citizens, which can vary in structure, governance and scope. Their aim is to promote an issue or an interest, either general or specific. In a broad sense, CSOs include all non-market and non-state organizations and structures in which people organize themselves to pursue shared objectives and ideals. In the development field, there is a tendency to think primarily in terms of Non Governmental Organisations (NGOs) whose missions are typically explicitly and uniquely developmental in character. However, Civil Society Organisations a broader spectrum of organizations, also including associations, community-based organizations, foundations, environmental groups, independent research institutes, trade unions, faith-based organizations, and the not-for-profit media. Professional organisations are also included such as cooperatives, trade unions, chambers of commerce and business associations. CSOs operate at four different levels 8 : 1 st level: Grass-roots organisations and community- based organisations. They consist of informal groupings or ad-hoc organisations working in the immediate local context. 2 nd level: Organisations legally registered (e.g. NGOs and associations), working for the benefit of the populations or in service delivery, sometimes in collaboration with grass-roots organizations. 3 rd level: Geographic or thematic networks, including national associations, federations and thematic networks mandated to defend a common interest. 4
4 th level: This is the highest level of CSO networking. It is made up of platforms or common dialogue fora for umbrella organisations and networks of the third level. 'Communication' (of the European Commission) A 'Communication' is a policy proposal of the European Commission. Upon publication Communications are sent to the Council and the European Parliament. They are also forwarded directly by the Commission to national parliaments. Cotonou Agreement The Cotonou Agreement is a treaty between the European Union and the African, Caribbean and Pacific Group of States ('ACP countries'), which replaces the Lomé Convention. It was signed in June 2000 in Cotonou, Benin, by 79 ACP countries and the then 15 Member States of the European Union. It entered into force in 2003 (revised in 2005 and 2010) and is the most recent agreement in the history of ACP-EU Development Cooperation. CSO mapping studies Gaining a sound understanding of local CSOs is a first step for a meaningful engagement with CSOs. CSO mapping studies 9 are a tool for gaining better understanding of the diverse (local) CSOs, including their roles, capacity (constraints), legitimacy, interests and dynamics. It may also include an analysis of their relationship with the state and other forces at play and their enabling environment. This will include the legal, institutional and political economy framework in which they operate. CSO mapping studies can be general or focused on a specific sector. CSO mapping studies may help donors in the identification of CSO interlocutors. Thorough understanding of local CSOs enables donors to reassess their mechanisms and instruments for supporting CSOs to play their various roles and thus to plan and program more effectively. Democratic ownership Although there is no clear definition of democratic ownership, it is often understood as the broad participation of CSOs (in their varied forms), parliaments, the private sector and other stakeholders in defining, implementing and monitoring development strategies at different levels in policy sectors. 10 As a result, the ownership of a country s development policies and strategies should belong not only to the national government but also by a variety of stakeholders. Democratic ownership thus goes beyond mere country or 'government' ownership. Moreover, it requires the existence of well-functioning democratic processes. In the Busan Partnership for Effective Development Cooperation, Governments, international Institutions including the EU and Civil Society committed to 'operationalizing' this principle. Development Development 11 is the process through which societal changes are achieved to ensure people lead lives of dignity and are able to meet their daily needs and to reach their highest potential through addressing societal challenges such as poverty, injustices and imbalance of power. Development is a process of societal and economic change requiring human organisation, resource mobilisation, service provision, understanding and claiming of human rights. Governments and donors have international legal obligations to work with other stakeholders, including CSOs to make maximum efforts and progress on the reduction of poverty and inequalities. 5
Development effectiveness Development effectiveness 12 is promoting sustainable positive change, within a democratic framework, that addresses the causes as well as the symptoms of poverty, inequality and marginalisation, through the diversity and complementarity of instruments, policies and actors. The HLF-4 in Busan marked a shift from 'aid effectiveness' to 'development effectiveness': from a technical focus on aid management tools and disbursement procedures (agreed upon by Donors and Developing Countries in Paris and Accra) to a broad based recognition of the variety of inputs and actors that contribute to development, on the basis of shared principles and differential commitments. Domestic accountability Accountability is about being required to justify decisions and (in)actions. Domestic accountability refers to the obligation of partner governments to be accountable towards their own citizens in a broad sense. Two important aspects of domestic accountability are "answerability" - the ability of citizens to force power-holders to explain their actions 13 - and 'enforceability' 14 - their ability to impose sanctions for poor performance. Domestic accountability has a supply and demand side. Moreover, domestic accountability requires that citizens have access to information about the commitments the state has made and whether it has met them ('transparency'). 15 Domestic accountability is an effective way of combating corruption, clientelism and waste. By analysing budget and proposals, monitoring and tracking public revenues and expenditures, CSOs can contribute to ensuring that public resources are used to maximize impact on poverty reduction and equitable growth. The recent Communication on the future of EU Budget Support to Third Countries 16 (2011) called for systematic support to domestic accountability, with particularly focus on CSOs' role in oversight functions and participation in budget processes. Enabling environment for CSOs The ability of CSOs 17 to exist and perform their role in society depends on the existence of an 'enabling environment' that guarantees their participation in the development processes. Enabling environment refers to a functioning democratic legal and judicial system that ensures - in law but also in practice - the right to organise, to secure funding, to freedom of expression and information, and the right to participate in public affairs with the aim of effectively and freely contributing to the public sphere. The rights of CSOs to operate and function freely can be defended on the basis of governments obligations to protect and promote the rights of expression, peaceful assembly and association, amongst others, as guaranteed under the International Covenant on Civil and Political Rights and other multilateral and regional treaties. However, ensuring an enabling environment requires a collective effort of all actors, including Governments, Donors, International Organizations, the media and citizens themselves. In Accra and again in Busan donors and developing countries committed to working with CSOs to provide an enabling environment consistent with agreed international rights, which maximises their contributions to development. European Consensus on Development The European Consensus on Development was agreed by the Heads of Member States, the European Parliament and the European Commission in December 2005, after external 6
consultation. It defines a common European approach to development cooperation, reaffirming that development is a central goal in itself, and that sustainable development includes good governance, human rights and political, economic, social and environmental aspects. It states the primary and overarching objective of EU development cooperation to be the eradication of poverty through sustainable development and pursuit of the Millennium Development Goals. The Consensus recognized the vital role of civil society, including economic and social partners, of partner countries in particular play as promoters of democracy, social justice and human rights. Geographic instruments Geographic instruments, i.e. the European Development Fund, the Development Cooperation Instrument (DCI), the Instrument for Pre-accession countries (IPA), the European Neighbourhood and Partnership Instrument (ENPI), provide the major mechanism for partnerships with recipient country governments and focus on the development priorities for the country or region. Geographical programmes on support to civil society aim towards setting up a new partnership founded on the exchange of responsibilities between the state and civil society in good governance and in the fight against poverty. They intend to strengthen the internal governance of organisations, their operational and strategic capacities, and their abilities to work as part of a network, communicate, and also participate in dialogue on public policy guidelines. Human Rights All human rights 18 are universal in nature, valid for everyone, everywhere. Human rights are typically divided between civil and political rights on the one hand and economic, social and cultural rights on the other. These rights are enshrined in the Universal Declaration of Human Rights, the International Covenant on Civil and Political Rights, the International Covenant on Economic, Social and Cultural Rights, and other conventions and treaties. Respect for human rights is one of the foundations of the European Union. 19 While the significance of national and regional particularities and various historical, cultural and religious backgrounds must be borne in mind, it is the duty of States, regardless of their political, economic and cultural systems, to promote and protect all human rights and fundamental freedoms. Istanbul Principles The Istanbul Principles 20 were agreed at the first Global Assembly of the Open Forum for CSO Development Effectiveness 21 in Istanbul in September 2010. They are a set of eight principles which provide guidance for civil society development practice. They include: 1) respect and promote human rights and social justice; 2) embody gender equality and equity whilst promoting women's and girls' rights; 3) focus on people's empowerment, democratic ownership and participation; 4) promote environmental sustainability; 5) practice transparency and accountability; 6) pursue equitable partnerships and solidarity; 7) create and share knowledge and commit to mutual learning; and 8) commit to realizing positive sustainable change. The principles were developed also in response to the call to CSOs to articulate their own statement on development effectiveness in Accra. The Principles have become a globally acknowledged reference (for example in Busan) for effective development work of CSOs and form part of the 'Siem Reap CSO Consensus on the International Framework for CSO Development Effectiveness'. This consensus was the outcome of the Open Forum consultation process with thousands of CSOs from across the globe. 7
Legitimacy Legitimacy 22 refers to perceptions by key stakeholders that the existence, activities and impacts of stakeholders (including CSOs) are justifiable and appropriate in terms of central social values and institutions. Legitimacy is grounded in the perceptions of stakeholders in the larger environment in which the organisation is embedded. Multiannual Financial Framework In June 2011, the European Commission presented its proposal for the multi-annual budget for 2014-2020, "A Budget for Europe 2020". Legislative proposals for the different areas, including external relations, covered by this budget were published by the European Commission in the following months. The proposals will be discussed by the Council and European Parliament during 2012-2013. The budget proposals for its external instruments will support the Commission's new approach - the "Agenda for Change"- to focus EU aid in fewer sectors supporting democracy, human rights and good governance and creating inclusive and sustainable growth. There are legislative proposals for nine geographic and thematic instruments accompanied by a common implementing regulation. 23 Non State Actors (NSA) In line with the Cotonou Agreement the term Non State Actor (NSA) 24 is used by the EC to describe a range of organisations that bring together the principal, existing or emerging, structures of society outside the government and public administration. NSAs are created voluntarily by citizens, their aim being to promote an issue or an interest, either general or specific. They are independent of the State and can be profit or non-profit-making organisations. NSA therefore is a broad concept that includes CSOs in all its forms according to national characteristics, as well as private sector and economic partners, (including trade unions) 25. In EU documents, the term NSA is often used as synonymous to CSO. Paris Declaration on Aid effectiveness The Paris Declaration on Aid Effectiveness was agreed in March 2005 at the Second High Level Forum in Paris 26. It was a landmark achievement for setting out an agreement between donors and recipient governments on five principles and shared commitments to improve aid effectiveness. The Paris Declaration established these commitments for both donor and recipient countries actions between 2005 and 2010. The underlying intention was, and remains, to reform the delivery and management of aid in order to improve its effectiveness. The reforms are intended to increase the impact of aid [ ] in reducing poverty and inequality, increasing growth, building capacity and accelerating the achievement of the Millennium Development Goals. Policy Dialogue Policy dialogue includes the 'structured communication' between CSOs and different levels of government. This can take the form of round tables, workshops, specialized committees, working groups, etc. Policy dialogue can result in more effective public policy making and implementation. CSOs can contribute specific knowledge and expertise to government decision making processes, provide a voice to marginalized groups and hold governments accountable. Policy dialogue can 8
therefore be considered a key mechanism for translating "democratic ownership" into practice. The Accra Agenda for Action explicitly recognised the need for open and inclusive dialogue on development policies. Donors committed to supporting efforts to increase the capacity of CSOs and other actors to take an active role in dialogue on development policy. Right of Initiative The term refers to the notion of CSO as development actors in their own right, whose scope and roles in development is distinct from that of governments and donors, and who constitute an essential feature of democracy, seeking to express peoples organized action in the public sphere for public benefit and change. The perception of CSOs is that the new aid effectiveness agenda fails to recognise CSOs as development actors in their own right, whose objectives and activities are not necessary defined in the terms of their relationship with government, and whose role is often to play a challenge function with respect to government. Structured Dialogue In March 2010 the European Commission launched the 'Structured Dialogue on the involvement of CSOs and Local Authorities (LAs) in EC development cooperation' 27. Over 700 representatives of CSOs and LAs from the EU and 60 partner countries as well as representatives from the Member States, the European Parliament and the European External Action Service including EU Delegations participated in the process. 28 The 14-month multistakeholder dialogue process addressed the following three issues: i. the roles, value added and complementarity of CSOs and LAs in EU external cooperation; ii. how to reconcile the aid effectiveness agenda and the right of initiative of CSOs; and iii. alternative aid delivery mechanisms. The Structured Dialogue which concluded with a Final Conference in Budapest, Hungary, in May 2011, produced recommendations for CSOs, LAs, the EU, and also for partner governments). The outcomes of the Structured Dialogue process have fed into the Agenda for Change and other policy (proposal) documents of the European Commission. Thematic instruments and programmes In addition to the geographic instruments, the EC has the possibility of using its various thematic 29 instruments or programmes to support particular areas of work. These include, amongst others, the European Instrument for Democracy and Human Rights (EIDHR) and the Non State Actors and Local Authorities thematic programme. Thematic instruments and programmes are implemented using a horizontal approach, coherent with and complementary to the national and regional cooperation programmes (geographic approach). They correspond to a need to address a specific issue worldwide and aim at promoting EU common values around the world (fight against death penalty, promotion and protection of Human Rights, gender equality, sustainable development, fight against global warming etc.). Contrary to the geographical programmes, actions funded under thematic programmes do not result from a direct negotiation between a Partner State and the EC but they are proposed by CSOs or managed jointly with international institutions. Their intervention logic is "actor oriented". 9
1 URL: http://www.oecd.org/dataoecd/58/16/41202012.pdf 2 URL: http://ec.europa.eu/europeaid/news/agenda_for_change_en.htm 3 URL: http://www.aideffectiveness.org/busanhlf4/images/stories/hlf4/outcome_document_-_final_en.pdf 4 URL: http://www.oecd.org/dataoecd/11/41/34428351.pdf 5 URL: http://eur-lex.europa.eu/lexuriserv/lexuriserv.do?uri=com:2011:0638:fin:en:pdf 6 URL: http://lencd.org/document/perspectives-note-capacity-development-and-civil-society-organizations 7 Civil Society and Aid effectiveness. Concept paper. Final Sept. 17, 2007. Consult the Advisory Group s extranet site (http://web.acdi-cida.gc.ca/cs) for the most recent version of this document at any time. Advisory Group on Civil Society and Aid Effectiveness. 8 Capitalisation study of EC funded NSA support programmes under the 9th EDF (http://ec.europa.eu/europeaid/what/civilsociety/documents/final_rep_capit_study_en.pdf). Both studies were commissioned by AIDCO/E/4 9 For more information, consult The participation of NSAs in poverty reduction strategies, sector approaches and monitoring of policy implementation by INTRAC. Draft January 2009, as well as the Capitalisation study of EC funded NSA support programmes under the 9th EDF (http://ec.europa.eu/europeaid/what/civil-society/documents/final_rep_capit_study_en.pdf). Both studies were commissioned by AIDCO/E/4 10 Alliance 2015 (2008) Fostering Democratic Ownership: Towards Greater Impact on Poverty. URL: http://www.alliance2015.org/fileadmin/user_upload/alliance2015_report_fostering_democratic_ownership_low-res.pdf 11 Open Forum for Aid effectiveness. Outreach Kit. September 2009. Written by Costanza de Toma with the contribution of Rose Wanjiru. 12 Ibid. 13 Supporting domestic accountability: Exploring conceptual dimensions and operational challenges', discussion paper no. 93 (2009), ECDPM. P. 2-3. 14 URL: http://www.oecd.org/dataoecd/45/26/42811639.pdf 15 OECD DAC Network on Governance (GovNet) (2009) 'Aid and Domestic Accountability'. URL: http://www.oecd.org/dataoecd/45/26/42811639.pdf 16 URL: http://eur-lex.europa.eu/lexuriserv/lexuriserv.do?uri=com:2011:0638:fin:en:pdf 17 Civil Society and Aid effectiveness. Issues paper. Final Sept. 17, 2007. Consult the Advisory Group s extranet site (http://web.acdi-cida.gc.ca/cs) for the most recent version of this document at any time. Advisory Group on Civil Society and Aid Effectiveness. 18 Handbook on promoting good governance in EC Development and Co-operation: http://ec.europa.eu/europeaid/what/governance/documents/handbook_2004.pdf 19 URL: http://eur-lex.europa.eu/lexuriserv/lexuriserv.do?uri=oj:c:2007:306:0010:0041:en:pdf 20 URL: http://www.cso-effectiveness.org/-8-istanbul-development,067-.html 21 The Open Forum for CSO Development Effectiveness is a global process set up by and for CSOs worldwide, to create a shared framework of principles that defines effective CSO development practice, elaborates the minimum standards for an enabling environment and promotes CSOs role in the international development cooperation system. 22 L. David Brown and Jagadanada, January 2007, at Open Forum for Aid effectiveness. Outreach Kit. September 2009. Written by Costanza de Toma with the contribution of Rose Wanjiru 23 URL: http://ec.europa.eu/europeaid/how/finance/mff/financial_framework_news_en.htm 24 COM (2002) 598 final p. 5. 25 Eligibility criteria for NSA, access to funding under EDF, ACP-CE 2154/1/02 REV 1 26 The Paris Declaration is available online at www.oecd.org/dac/effectiveness 27 URL: https://webgate.ec.europa.eu/fpfis/mwikis/aidco/index.php/structured_dialogue 28 URL: https://webgate.ec.europa.eu/fpfis/mwikis/aidco/index.php/structured_dialogue 29 The European Instrument for Democracy and Human Rights (EIDHR); the Instrument for Stability; and the Non State Actors and Local Authorities Instrument (NSALA); Investing in People; Migration and Asylum; Environment and Natural Resources & Food Security. 10