Monitoring the principles for good international engagement in fragile states and situations [electronic resource] : fragile states principles monitoring survey, global report

2010·3.1 MB·English

by  Organisation for Economic Co-operation and Development

m
OECD
Monitoringthe PrinciplesforGood International
Engagementin Fragile Statesand Situations
FragileStatesPrinciples MonitoringSurvey:Global Report
MonitoringthePrinciplesforGoodInternationalEngagement
inFragileStatesandSituations
FragileStatesPrinciplesMmonitoringSurvey:GlobalReport
OECD
FragileStatesPrinciplesMonitoringSurvey:GlobalReport
ORGANISATIONFORECONOMICCO-OPERATIONANDDEVELOPMENT
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tohelpgovernmentsrespondtonewdevelopmentsandconcerns,suchascorporategovernance,theinformation
economyandthechallengesofanageingpopulation.TheOrganisationprovidesasettingwheregovernmentscan
comparepolicyexperiences,seekanswerstocommonproblems,identifygoodpracticeandworktoco-ordinate
domesticandinternationalpolicies.
TheOECDmembercountriesare:Australia,Austria,Belgium,Canada,theCzechRepublic,Denmark,Finland,
FNreanwceZ,ealGaenrdm,aNnoyr,waGyr,eePcoela,ndH,unPogratruyg,al,IctehleanSdl,ovIarkelRaenpdu,blItiacly,,SJpaapiann,,SwKoerdeean,,LSuwixtezmebrolaunrdg,,TuMrekxeiy,cot,hetUhneitNeedthKeirnlagnddosm,
andtheUnitedStates.TheCommissionoftheEuropeanCommunitiestakespartintheworkoftheOECD.
OECDPublishingdisseminateswidelytheresultsoftheOrganisation'sstatisticsgatheringandresearchon
economic,socialandenvironmentalissues,aswellastheconventions,guidelinesandstandardsagreedbyits
members.
ThisworkispublishedontheresponsibilityoftheSecretary-GeneraloftheOECD.Theopinions
expressedandargumentsemployedhereindonotnecessarilyreflecttheofficialviewsofthe
Organisationorofthegovernmentsofitsmembercountries.
©OECD2010
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[email protected]'exploitationdudroitdecopie(CFC)[email protected].
MonitoringthePrinciplesforGoodInternationalEngagementinFragileStatesandSituations
Foreword
WhenworldleaderscometogetherinSeptember2010toreviewprogresstowardstheMillenniumDevelopmentGoals(MDGs),they
willbeconfrontedbyaharshreality:manyfragilestatesarefallingbehind.Thisisdespitehard,oftendangerousworkontheground,
backedbythe38%oftotalofficialdevelopmentassistancethatisallocatedtofragilestates(2008).Muchremainstobedoneto
understandthetrajectoriesofthesecountries,identifypriorityareasforactionandtakestockofthecollectiveimpactofthecombined
engagementbydiplomats,aidandsecurityactors.
Thekeytomakingprogress,accordingtoOECDministers,istorecognisethatfragilesituationsrequiredifferentresponsesthan
AmEfongrgheaangsietsmatbealnne,tstiihnteuFarCtaeigonintlsre.alTSotAafgtrueiiscdaanencRdeopSmuipbtllueiacxt,ioitnnhsteeirnDvee2nm0to0ico6rn.astAiitnctthRheeepsTuehbilcriodcunHotifrgihtehseL,eCvteholenygFoao,drouHpamitteio,dnStAiheierdrOaEEfLfCeeDcotniPevreiannncedispsTleiinsmoAfrco-crLrGeas,otosedix-Icndoteeurncntiardtieiedosnta-ol
monitortheimplementationofthesePrinciplesintheircountriesthroughaninnovativeprocessofmulti-stakeholderconsultation.
Thisreportbringstogethertheresultsofthisexercise,conductedin2009.Theseviewsfromthegroundmakevitalreadingfor
pinarJtanneuragroyv2e0r1nm0e:ntthse,idsosnuoerssidaenndtifciiveidlisnoctiheety.natInioHnaailti,cofnosruletxaatmipolnes,-thaecyerttaakienodnisacnonandedcetdbeutrwgeenecnythinetehleitwesaaknedoofrtdhienaerayrctihtqizueankse;
g“bouosdinreaspsidmordeeslp”onisnevciaepwacoiftyitswuhneinquietcstormeensgthtosasencdurwietyakbnuetssaevsul-neraarbeilailtlytthoenmaotrurealredliesvaasntterass;waendetmhbearnkeeodnt“orerbeutihlidnikngHabiatic’ks
better".InAfghanistan,theassessmentthatinternationalengagementisoverlydominatedbyshort-termsecurityobjectivesatthe
expenseofamoreneeds-basedapproachsendsoutapowerfulcallforbehaviourchange.
ThefindingsandrecommendationsinthisGlobalReporthavebeendevelopedandagreedin-countrybyadiverserangeofstake-
holdersthroughatransparentconsultationprocessmarkedbyastrongspiritofmutualaccountability.Thegovernmentsofthe
sixcountriesunderreview,alongwiththedonorsontheground,haveshownanenormoussenseofresponsibilitybyagreeingto
discussopenlythequalityofinternationalengagementandwhatisrequiredfromnationalcounterparts.Thishonestapproachwill
helpensurethatwerecogniseourshortcomings,andalsobuildonourachievements,whicharesignificant.Althoughmanyhurdles
remain,SierraLeoneandTimor-Leste,forexample,arenowinabettersituationthantheyweretenyearsago.
Thistimelyscorecardfromthegroundwillnotonlyinformnationalandinternationalstakeholdersworkingtomakethesix
countriesmoreresilient,butwillalsomakeanimportantcontributiontotheongoingdialoguebetweendonors,partnercountries,
policycommunitiesandNGOsonhowtoimprovedevelopmenteffectivenessincountriesthatareinasituationoffragility.
ChairoftheDevelopmentAssistanceCommittee MinisterofPlanning,DemocraticRepublicofCongo
OrganisationforEconomicCo-operationandDevelopment ChairoftheFragileStatesMonitoringSurvey
FragileStatesPrinciplesMonitoringSurvey:GlobalReport 3
Acknowledgments
ThisreportwaspreparedbytheDevelopmentCo-operationDirectorateoftheOECD.TheauthorsareAlexDuncan,GarethWilliams
(ThePolicyPractice)andJuanadeCatheu(OECD).
Theauthorsacknowledgewiththanksthecontributionsofalargeteamacrossthesixcountriessun/eyedanddonorheadquarters.
Leadersinthesixcountriessetthesceneandthetoneforthenationalconsultations:
•PresidentJoseRamos-Horta,Timor-Leste
•PrimeMinisterJean-MaxBellerive,Haiti
•PrimeMinisterKayRalaXananaGusmao,Timor-Leste
•MinisterSamuraKamara,MinisterofFinanceandEconomicDevelopment,SierraLeone
•MinisterOlivierKamitatuEtsu,MinisterofPlanning,DemocraticRepublicofCongo(DRC)
•MinisterSylvainMaliko,MinisterofEconomy,PlanningandInternationalCo-operation,CentralAfricanRepublic(CAR)
•DeputyMinisterMustafaMastoor,DeputyMinisterofFinance,Afghanistan
•MinisterEmiliaPires,MinisterofFinance,Timor-Leste.
MinisterOlivierKamitatuEtsuhasassumedthechairmanshipoftheSurvey.
NationalCo-ordinatorsandInternationalFocalPointsmadethecountryconsultationshappen,bringingtogetherawidespectrumof
stakeholdersandensuringatransparentprocess:
NationalCo-ordinators
Afghanistan: HamidJalil,AidManagementDirector,MinistryofFinance
CAR: BendedBokia,Director,MinistryofEconomy,PlanningandInternationalCo-operation
DRC: BenjaminBongeandTheoKanene,Directors,MinistryofPlanning
Haiti: YvesRobertJean,DirectorGeneral,MinistryofPlanning
SierraLeone: KawusuKebbay,NationalDirector,DevelopmentAssistanceCo-ordinationOffice,MinistryofFinanceandEconomic
Development
Timor-Leste: HelderdaCosta,CoordinatoroftheAidEffectivenessandNationalPrioritiesSecretariat,MinistryofFinance.
InternationalFocalPoints
Afghanistan: MarkWard,SpecialAdviser,UnitedNationsAssistanceMissioninAfghanistan(UNAMA)
CAR: AmbassadorJean-PierreVidon,AmbassadorofFrancetoCAR
Anne-MarieCluckers,CountryDirector,UnitedNationsDevelopmentProgram(UNDP),CAR
KamalElKheshen,VicePresident,AfricanDevelopmentBank
DRC: RossMountain,DeputySpecialRepresentativeoftheSecretaryGeneral,UNResidentCo-ordinator,Humanitarian
Co-ordinator,UnitedNationsMissioninDRC(MONUC)/UNDP
Haiti: RobertsWaddle,EmbassyofCanada,Haiti
SierraLeone: DominicO’Neill,HeadoftheUKDepartmentforInternationalDevelopment,SierraLeone
MichaelvonderSchulenburg,ExecutiveRepresentativeoftheSecretaryGeneral,NationalIntegratedPeacebuilding
OfficeinSierraLeone(UNIPSIL)
Timor-Leste: Homa-ZahraFotouhi,SeniorOperationsOfficer,WorldBank
JemalSharah,Counsellor,AustralianAgencyforInternationalDevelopment.
Allthenationalandinternationalstakeholderswhocontributedtomakingthenationalconsultationsaconstructivedialogueare
gratefullyacknowledged,andinparticularthemayors,prefectsandcivilsocietyleaderswhocamefromtheprovinces,sometimes
travellingfordays.
4 MonitoringthePrinciplesforGoodInternationalEngagementinFragileStatesandSituations
TheauthorsoftheCountryReports-thefoundationsottheGlobalReport-arePierre-AntoineBraud(BridgingInternational);
AmberDavidson;FrangoiseJacob(Altai);PhilipLancasterandCharlotteVaillant(ITAD).
OthervaluableassistancewasprovidedbyAlexStevens;AlanWhaitesandAnjaDeBeerinAfghanistan;GibertAho,Stephan
Massing,MedjomoCoulibaly,ArmandKasumbuBorrey,MichelNourredineKassa,FatimaKekoandSebastianSilva-LeanderinDRC;
MamadouBah,LuizdaCosta,JeanCouturier,AmbassadorFrancescoGosettidiSturmeck,SylvieProulxandJean-RobertSimonise
inHaiti;PerBjalkander,EllieCockburn,BenDickinson,PhilipDive,MargareteJacobandAlainLempereurinSierraLeone;AliGillies,
LeighMitchell,AmbassadorJuanCarlosReyandFlorentinoSarmentoinTimor-Leste;VincentAlexandre,PatrickBerckmans,
FrangoisGaulme,AlainLempereurandAlexandraTrzeciak-DuvalinCAR.
JaneAlexander(DFID),LauraBailey(WorldBank),FrancoisGaulme(France)andArveOfstad(Norway)providedvaluableinputsinto
themethodologyfortheSurvey.MariaZandt(OECD)contributedthequantitativedataandinvaluableresearchassistance.FionaHall
andChristelleThomasprovidededitorialassistance.JuriaChuahdesignedandtypesettheSurveyreports.
HeatherBaser,PerBjalkander(UNIPSIL),AnaPaulaFernandes(Portugal),MargareteJacob(OECD),TheoKanene(DRC),Michael
Koros(Canada),RachelLocke(UnitedStates),StephanMassing(OECD),MarjolaineNicod(OECD),MasumiOwa(Japan),Roberts
Waddle(Canada),AsbjornWee(OECD),RoryKeane(OECD)andClaudiaPragua(Germany)providedcommentsonearlierdraftsof
theGlobalReport.Theauthorsremainresponsibleforanyerrorandomission.
FragileStatesPrinciplesMonitoringSurvey:GlobalReport
l 67
Tableofcontents
(kaftaoai jj
Executivesummary 9
Ititmriiriion
PartOne:Findingsfromthecountryconsultations,principlebyprinciple 18
Principle1:Takecontextasthestartingpoint 18
Principle2:Donoharm 20
Principle3:Focusonstatebuildingasthecentralobjective 22
Principle4:Prioritiseprevention 28
Principle5:Recognisethelinksbetweenpoitical,securityanddevelopmentobjectives 28
Principle6:Promotenon-discriminationasabasisforinclusiveandstablesocieties 29
Principle7:Alignwithlocalprioritiesindifferentwavsindifferentcontexts 30
Principle8:Agreeonpracticalco-ordinationmechanisms 33
Principle9:Actfast...butstayengaged 35
Principle10:Avoidpocketsofexclusion .38
PartTwo:Recnmmenriatinn.s 40
Annexes
AnnexA.ThePrinciplesforGoodInternationalEngagementinFragileStatesandSituations 44
AnnexB.IndicatorsfromtheCountryReports 46
AnnexC.Statisticalannex 48
AnnexD.ExecutivesummaryoftheAfghanistancountryreport 55
AnnexE.ExecutivesummaryoftheCentralAfricanRepubliccountryreport 59
AnnexF.ExecutivesummaryoftheDemocraticRepublicofCongocountryreport £3
AnnexG.ExecutivesummaryoftheHaiticountryreport 67
AnnexH.ExecutivesummaryoftheSierraLeonecountryreport Zfl
AnnexLExecutivesummaryoftheDemocraticRepublicofTimor-Lestecountryreport 74
Bibliography 78
Glossaryofkeyterms 80
Boxes
Box1.Amixed-methods,multi-stakeholderdialogue 1
Box2.Sixcountries,sixdifferentcontexts 1
6I MonitoringthePrinciplesforGoodInternationalEngagementinFragileStatesandSituations
445
Tables
Table1.Developmentindicatorsinthesixcountriesunderreview(2006) 1
Table2.Indicatorsofstatecapacity,legitimacyandaccountabilityinthesixcountries(2008) 1
Table3.Domesticrevenueraisingvariesgreatlybetweencountries(taxrevenueaspercentageofGDPin43countriesin 23
situationsoffragility)
Table4.Co-ordinatedtechnicalassistance(2008) 24
Table5.Useofcountrysystemsforaiddeliverystilllimitedinfragilestates(2008) 31
Table6,Aidconcentration/fragmentation(basedondisbursementsofcountryprogrammableaidin2008) 33
TableCl,LikelihoodofmeetingtheMDGsin2015 48
TableC2.ODAexcludingdebtrelief(USD2007prices) 48
TableC3.Countryprogrammableaid,2004-08(USD2007prices) 48
TableC4.Countryprogrammableaidprojections,2008-11(USD2008prices) 49
TableC5.PrioritycountriesforEuropeandonors(fragilestates) 50
TableC6,Inwardforeigndirectinvestmenttofragilestates2000-08 50
TableC7.Exportsandimportsoffragilestates(2008and2009estimates) 51
TableC8.Easeofdoingbusiness2010(June2008-May2009) 51
TableC9.Governmentrevenuesoffragilestates2005-10(%GDP) 51
TableCl0.Peacekeepingexpenditures(2000-08) 51
TableCl1.Troopcontributingcountries(UNandNATO,2009) 52
Figures
Figure1.Fragilestatesareoff-trackformostoftheMDGs 1
Figure2.Corruptionperceptions(2009) 21
Figure3.Resourcesspentoninternationalpeacekeepingsometimes80percentofaidflows 26
Figure4.Parallelprojectimplementationunitsstillthenormalmodeofaiddeliveryinseveralcountries(2008) 31
Figure5,SierraLeone:developmentaidremainssteady,sevenyearsafterthewarwasdeclaredover(2000-08) 36
Figure6.Timor-Leste:peacekeepinghasbeenstop-and-go,restartingafterthecrisisinApril2006,andaidisfollowinga 36
downwardtrend(2000-08)
Figure7.DRC:whilehumanitarianassistanceandpeacekeepingremainsteady,developmentaidisvolatile,albeitwithan 36
upwardtrend(2000-08)
Figure8.DRC:whilehumanitarianassistanceandpeacekeepingremainsteady,developmentaidisvolatile,albeitwithan 36
upwardtrend(2000-08)
Figure9.AiddisbursementsareunpredictableinDRCandSierraLeone(2008) 37
Figure10,Largedisparitiesinaidprovisionnotrelatedtopovertylevels 40
FigureCl.Aidconcentration/fragmentationfor43fragilestates(2008) 49
FigureC2.ODApercapitainfragilestates,2008 49
Figure03,Aideffectivenessislowerinfragilestatesthaninmorestableenvironments(2008) 50
FragileStatesPrinciplesMonitoringSurvey:GlobalReport 7
Acronymsandabbreviations
ANDS AfghanistanNationalDevelopmentStrategy
BINUCA UnitedNationsIntegratedPeacebuildingOfficeintheCentralAfricanRepublic
BONUCA UnitedNationsOfficeintheCentralAfricanRepublic
CAR CentralAfricanRepublic
CPA Countryprogrammableaid
CPIA CountryPolicyandInstitutionalAssessment
DAC TheOECD'sDevelopmentAssistanceCommittee
DAD DevelopmentAssistanceDatabase
DRC DemocraticRepublicofCongo
FDLR LiberationForcesofRwanda
GAVI GlobalAllianceforVaccinesandImmunisation
GDP Grossdomesticproduct
INCAF InternationalNetworkonConflictandFragility
IMF InternationalMonetaryFund
MDGs MillenniumDevelopmentGoals
MICOPAX MissionfortheconsolidationofpeaceinCentralAfricanRepublic
MINURCATUnitedNationsMissionintheCentralAfricanRepublicandChad
MONUC UnitedNationsMissioninDRCongo
NATO NorthAtlanticTreatyOrganization
ODA OfficialDevelopmentAssistance
OECD OrganisationforEconomicCo-operationandDevelopment
PFM Publicfinancialmanagement
PIU Projectimplementationunit
PRSP PovertyReductionStrategyPaper
PRT ProvincialReconstructionTeam(Afghanistan)
SWAP Sector-wideapproach
UN UnitedNations
UNDP UnitedNationsDevelopmentProgramme
UNAMSIL UnitedNationsMissioninSierraLeone
UNIOSIL UnitedNationsIntegratedOfficeinSierraLeone
UNMIT UnitedNationsIntegratedMissioninTimor-Leste
USAID UnitedStatesAgencyforInternationalDevelopment
MonitoringthePrinciplesforGoodInternationalEngagementinFragileStatesandSituations
.
Executivesummary
Fragilestatespresentacuteandpersistentchallengesfortheircitizensandfortheinternationalcommunity.Mostareofftargetfor
meetingtheMillenniumDevelopmentGoals.Manylacksecurityandpoliticalstability.Allsufferfromadegreeofsocialunrestand
division.Internationalactorsareactivelyinvolvedinthesecountriesacrosstheagendasofdevelopment,security,diplomacy,trade,
migrationandbeyond.Aidtofragilestatesrepresents30%ofallOfficialDevelopmentAssistanceandUNpeacekeepingmissionsare
atahistoricpeakwith116000personnelcurrentlydeployed(eighttimesmoreBlueHelmetsthanin1999).
Briesckasu-seanofdwbheactauisseatofsttahkeem-ulltiifptilnegcchlaolseletnogeasbeinllcioonunpteeorpeldeionutfroagfilpeovsetrattye,s,stiatbiilsisviintagletnotirgeetsuhba-rrdegiinofnosrmaatnidonmaonnagwihnagtgwloorbkasl
andwhatdoesnot.TheFragileStatesPrinciplesMonitoringSurveyprovidesevidencefromthegroundbyreviewingprogress
inimplementingthePrinciplesforGoodInternationalEngagementinFragileStatesandSituationsinsixcountries:Afghanistan,
theCentralAfricanRepublic(CAR),theDemocraticRepublicofCongo(DRC),Haiti,SierraLeoneandTimor-Leste.Theobjectivesof
thebaselineSurveyaretwo-fold:
(i)Process:tocatalysedialogueamongnationalandinternationalstakeholdersandfosterconsensusaroundsharedgoals
andkeypriorities;
(ii)Output:tohighlightareasthatareimportantfromafieldperspectivebutarenotalwaysgivenadequateattention,and
tomonitorthequalityofinternationalengagementovertime.ThepresentReportformsabaselineagainstwhichprogresswill
bemonitoredin2011
1.Findings1
PROGRESSONIMPLEMENTINGTHE10FRAGILESTATESPRINCIPLES
GOODOVERALL Parsinacbiaplseis6:foPrrionmcoltuesivneona-nddiscrimination
stablesocieties
MODERATE Pporliintciicpall,es5e:cRuerictoygnainsdedtehveellionpkmbeenttwoebejnectives
AND Pdirfifnecriepnltew7a:yAlsiginndwiiftfherleonctalcopnritoerxittsiesin
IMPROVING Pmreicnhciapnlies8m:sAgbreeteweoennprianctteircnaalticoon-aolradcitnoartsion
Plroinngciepnloeu9g:hActotgfaisvte..s.ucbcutessstaaycehnagnacgeed
MIXED* Principle1:Takecontextasastartingpoint
Principle2:Donoharm
MODERATE** tPhreincceinptlrea3l:oFbojceuctsivoenstatebuildingas
Principle4:Prioritiseprevention
WEAK Principle10:Avoidpocketsofexclusion
*MMIOXEDDE:RAwThEe:nwthheenretchoerdreiscogrododisinneistohmeregcoooudntnroiresbbaudtiwnemaokstincootuhnetrrises
t1isheTmhisecxaelqdeu:awlwhiefeiancka;titimoisnosdgegoriovadetneinhoserromemiexaeredc;obuamntosrdeiedersoanatnetdhaenlidamsiistmeepdsrsoimvnieonntgth;esrgsio.notdh.eIdmipflfeermeennttaCtoiuonntriysRmeopdoerrtas,tefowlhleowninigtiasnmeiixtehdermgeotohdodnosrabpapdroiancmhos(tseceouBnotxrie1)s.anIdmpalcecmoerndtiantgiotno
FragileStatesPrinciplesMonitoringSurvey:GlobalReport