Study of Identification of areas of governance for
multicountry PALOP cooperation (10th EDF)
Final Report
November 2007
English Version
Specific contract 2007/141730
Mr. J.M.G.M. de Lucena
Mrs. G. Fernandes
This report was prepared with the financial support of the European Commission. The
opinions expressed are those of the authors and not necessarily those of the European
Commission.
Table of Contents
A BR E VI AT IO N S ................................................................................................................................. 3
1
EX E C UT I VE S UM M AR Y ( BR IE F) ................................................................................................... 6
2
B A CK G RO U N D AN D S CO P E ......................................................................................................... 8
3
MET H O DO LO G Y AN D WO RK P ER FO R M ED ............................................................................... 1 2
4
CO L LE CT E D CO N T RI B UT I O N S- P A LO P AN D T IMO R L EST E ...................................................... 1 5
4 .1 A N G O L A ............................................................................................................................... 1 5
4 .1 .1
G o ver na nc e C o n tex t ................................................................................................ 1 5
4 .1 .2
Abo u t t he Co n tr ib u tor s ........................................................................................... 1 8
4 .1 .3
Reta in ed s ug g es tio n s .............................................................................................. 1 8
4 .2 R E P U B L I C O F C A P E V E R D E ...................................................................................................... 2 2
4 .2 .1
G o ver na nc e C o n tex t ................................................................................................ 2 2
4 .2 .2
Abo u t t he Co n tr ib u tor s ........................................................................................... 2 5
4 .2 .3
Reta in ed s ug g es tio n s .............................................................................................. 2 6
4 .3 R E P U B L I C O F G U I N E A -B I S S A U ................................................................................................. 3 0
4 .3 .1
G o ver na nc e c o n tex t ................................................................................................ 3 0
4 .3 .2
Abo u t t he Co n tr ib u tor s ........................................................................................... 3 4
4 .3 .3
Reta in ed s ug g es tio n s .............................................................................................. 3 5
4 .4 M O Z A M B I Q U E ....................................................................................................................... 3 8
4 .4 .1
G o ver na nc e c o n tex t ................................................................................................ 3 8
4 .4 .2
Abo u t t he Co n tr ib u tor s ........................................................................................... 4 0
4 .4 .3
Reta in ed s ug g es tio n s .............................................................................................. 4 1
4 .5 S Ã O T O M É E P R Í N C I P E ........................................................................................................... 4 4
4 .5 .1
G o ver na nc e c o n tex t ................................................................................................ 4 4
4 .5 .2
Abo u t t he Co n tr ib u tor s ........................................................................................... 4 7
4 .5 .3
Reta in ed s ug g es tio n s .............................................................................................. 4 8
4 .6 E A S T T I M O R .......................................................................................................................... 5 1
5
4 .6 .1
G o ver na nc e c o n tex t ................................................................................................ 5 1
4 .6 .2
Abo u t t he Co n tr ib u tor s ........................................................................................... 5 7
4 .6 .3
Reta in ed s ug g es tio n s .............................................................................................. 5 7
CO L LE CT E D CO N T RI B UT I O N S- E C AN D O T H ER IN ST IT UT IO N S .............................................. 6 1
5 .1 T E C H N I C A L F R A M E W O R K ....................................................................................................... 6 3
5 .2 A S S E S S E D C O N V E R G E N C E S (P A LO P A N D E A S T T I M O R ) ............................................................. 6 7
5 .3 C O M P L E M E N T A R Y P E R S P E C T I V E S ............................................................................................. 7 2
5 .3 .1
Le s so n s l ea r n ed a nd co nt in ui ty (RI P P AL O P ) ......................................................... 7 2
5 .3 .2
In no va ti ve a s pec t s a n d a dd i tio na l sy ner g ies .......................................................... 7 6
5 .4 A S S U M P T I O N S , C O N S T R A I N T S A N D R I S K S ................................................................................. 7 8
Study of Identification of areas of governance for multicountry PALOP cooperation.
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6
PRO PO S A L O F CO N T EN T S ( AR E AS O F C O O P ER AT IO N / P RO H E CT S) ....................................... 8 0
6 .1 C R I T E R I A F O R S E L E C T I O N A N D O R G A N I S A T I O N ........................................................................ 8 0
6 .2 P R O J E C T S A N D T H E I R C O M P O N E N T S ........................................................................................ 8 1
6 .3 O W N E R S H I P A N D S U S T A I N A B I L I T Y .......................................................................................... 8 8
7
RE CO MM EN D AT IO N S ................................................................................................................ 9 0
8
CO M M EN T S T O T H E D R A FT V ERS IO N ...................................................................................... 9 2
9
A FT E RW O RD .............................................................................................................................. 9 3
AN N EX ES ......................................................................................................................................... 9 4
A N N E X A – I N D E X O F I N C E P T I O N R E P O R T .................................................................................... 9 5
A N N E X B - S C H E D U L E O F W O R K S ( A S P E R F O R M E D ) ........................................................................ 9 6
A N N E X C – L I S O F E N T I T I E S A N D T H E I R R E P R E S E N T A T I V E S ( F I E L D M I S S I O N ) ................................... 9 7
A n nex C1 - A ng o la ............................................................................................................ 9 7
A n nex C2 – C a pe Ver de ..................................................................................................... 9 9
A n nex C3 – G ui nea - Bis sa u .............................................................................................. 1 0 1
A n nex C4 – M o z a mbi q ue ................................................................................................. 1 0 3
A n nex C5 – S ã o T o mé e Pr í nc i pe ..................................................................................... 1 0 6
A N N E X D – G O O D G O V E R N A N C E R E F E R E N C E G R I D ..................................................................... 1 0 8
A N N E X E – I N T R I D U C T O R Y N O T E ( P O R T U G U E S E V E R S I O N O N L Y ) ................................................. 1 0 9
A N N E X F – C O N V E R G E N C E A N A L Y S I S : T 1 ................................................................................... 1 1 1
A N N E X G – C O N V E R G E N C E A N A L Y S I S : T 2 .................................................................................. 1 1 3
A N N E X H – C O N V E R G E N C E A N A L Y S I S : T 4 .................................................................................. 1 1 5
A N N E X I – P R O J E C T F I C H E S ....................................................................................................... 1 2 2
Su ppor t t o Co n soli da tio n of De m o cr a cy a n d t he R ule o f La w ......................................... 1 2 3
Su ppor t t o I m pr ove m e nt o n t h e Q ua l i t y a n d Pr o x i mi ty of P ubli c Ser v ice s ...................... 1 3 0
Su ppo r t t o Re i n fo r c e me n t o f E co no mi c G o ver na nc e a n d Pr i va te sec t o r
Dev elop m en t ......................................................................................................... 1 3 7
Su ppor t t o Co n soli da tio n a n d Su s ta i na bi lit y o f t he Co oper a tio n Pa r t ner s hip s ................ 1 4 4
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ABREVIATIONS
ACE
Electoral Knowledge Network
ACP
Africa, Caribbean and Pacific
AIDCO
EC Agency for cooperation
ANA
Angola National Assembly
ANMP
National Municipalities Union of Portugal
APRM
African Peer Review Mechanism
AU
African Union
A/V
Audiovisual
BCEAO
Bank of the Central African States
BIRD
International Bank for Reconstruction and Development
CEMAC
Economic Community of Central Africa
CFA
Central African Financial Cooperation
CPLP
Community for Portuguese Speaking Countries
CSP
Country Strategic Paper
CAON-FED
National Authorised Officer for Guinea-Bissau
CNE
National Electoral Commission
CEAC
Economic Commission for Africa
CCIA
Chamber of Commerce, Industry and Agriculture
DG DEV
Directorate-General for Development
DGPIP
Directorate General for Public Investment Programme
EC
European Commission
EDF
European Development Fund
EMB
Electoral Management Bodies
ETDF
East Timor Defence Force
EU
European Union
ECOWAS
Economic Community of West African States
FALANTIL
National Liberation Forces for Timor Leste
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FONG
Platform of Non-Governmental Organisations (São Tome & Príncipe)
GDP
Gross Domestic Product
HNSM
Health National System for Guinea-Bissau
IFGEF
Training Institute for Management and Economics
INAG-
National Institute of Administration and Management (Cape Verde)
ICT
Information Communication Technologies
LDC
Less Developed Countries
LEGIS-PALOP
Website for the RIP PALOP Justice Projects
MDG
Millennium Development Goals
MoU
Memorandum of Understanding
NAO
National Authorizing Officer
NDLIS
National Directorate for Labour Issues Services
NDP
National Development Plan
NEPAD
New Partnership for Africa’s Development
NGOs
Non- Gouvernemental Organisations
NIP
National Indicative Programme
NSAs
Non-State Actors
ODA
Official Development Assistance
OECD
Organisation for Economic Cooperation and Development
ODAMOZ
Official Development Assistance to Mozambique Database
ORP
Observatory for Reduction of Poverty
PALOP
African Countries Speaking Portuguese
PAICV
Political Party for the Independence of Cape Verde
PARPA II
Mozambique National Plan for the Reduction of Absolute Poverty 20062009
PGR-
Prosecutors’ General Office
PLACON
Platform of NGOs for Guinea-Bissau
PNTL
National Police of Timor Leste
PRADET
Programme for Psychosocial Recovery and Development in East Timor
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RAO
Regional Authorizing Officer
RIP
Regional Indicative Plan
RIU
Rapid Intervention Unit
RPU
Reserve Police Unit
SADC
Southern African Development Community
SMEs
Small and Medium-sized Enterprises
TCF
Technical Cooperation Facility
ToR
Terms of Reference
UCCLA
Union of Luso-Afro-American-Asian Capitals
UN
United Nations
UNICEF
United Nations Children Fund
UNDP
UN Development Programme
UNTAET
United Nations Transitional Administration for East Timor
WAEMU
West African Economic and Monetary Union
WB
World Bank
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1 Executive Summary (brief)
This document provides final reporting on the results of a study aimed at supporting the
determination of the material content of the cooperation framework among the EU and a
group of six ACP Countries, within the scope of the 10th EDF (2009/2013 period).
The multi-Country cooperation sought will follow the steps of the still ongoing RIP PALOP
II and shall thus reflect lessons learned from its implementation. The single focus of this new
cooperation Initiative will be Good Governance.
The nature of the instrument and its financial boundaries were agreed in due time by means
of political dialogue among all key-Partners involved, which are the European Union, the
PALOP-Portuguese Speaking African Countries (Angola, Cape Verde, Guinea-Bissau and
São Tomé e Príncipe) and Timor Leste.
The study was commissioned by the EC from a consortium led by BERENSCHOT, following
a call for offers within the scope of the EC Framework Contract mechanism. For Projects
identification purposes the prospective areas of cooperation should be chosen in accordance
with the general layout of the EU governance programmes, that is: the new 9 clusters approach
recently devised by the EC.
An Inception Report (detailing the briefing and the desk study stages of the assignment) was
prepared and delivered in due time to the EC.
In August and September 2007 two Experts were assigned to visiting all the 5 PALOP
Countries and collecting as much relevant information as possible from these, by means of
fact-finding and exploratory interviews held with Entities and Services specially designated
for that purpose.
A total of 80 meetings took place in the overall account, these involving 52 State Actors, 26
Non-State Actors and 13 Donors and other international Entities. Convergence and
contextual analysis techniques were combined in order to identify a limited number of
Projects of a common interest for all the 5 PALOP and Timor Leste.
As a consequence of their work Experts recommend that the new cooperation Initiative will
provide an umbrella for:
a) The integral funding of 4 main projects responding to prospective areas of
cooperation (reflecting a high or considerable degree of convergence of needs and
priorities among the targeted Countries).
b) A financial contribution for a basket fund aimed at supporting the start-up and the
running costs for the 4 initial years of operation of the IFGEF (former Macroeconomic
Institute), initially planned under the RIP PALOP II
c) A TCF (Technical Cooperation Facility), intended to foster ownership and also to
secure full continuity and reinforced synergies with regard to the RIP PALOP
experience
d) An overall financial reserve
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Experts recommend that the following four projects will be retained, each one of them
targeting one large domain where consensus on needs and priorities in the six-countries
universe seems to be established beyond a reasonable doubt:
1.
2.
3.
4.
Support to consolidation of Democracy and the rule of Law
Support to improvement on the quality and proximity of Public Services
Support to reinforcement of economic governance and private sector development
Support to consolidation and sustainability of the cooperation partnerships
The suggested TCF would comprise the following possible components:
a) Technical assistance to start-up and to coordination and management of the Initiative
(at least during its first 2-years period) ;
b) Diffusion and ownership reinforcement of Good Practices and replication of PilotActions achieved through the RIP PALOP II.
c) Coodination activities, including attendance of Steering Committees meetings and
training of Project Management staff
d) Evaluation and Audit contracts
Other recommendations concern, inter alia, the following aspects:
•
•
•
The need for gathering additional information on Timor Leste, as access to relevant
sources was so far limited
The need for finding appropriate management solutions, to cope with expected
administrative difficulties along the implementation process, which might enlarge
the geometry of the partnership
The need for a next programming step in order to secure internal (EC) and external
(inter-Donors) coherence, substantial inter-Partners consensus, clear synergies and
ownership-based sustainability
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2 Background and Scope
This document provides final reporting on the results of a study aimed at supporting the
determination of the material content pertaining to the cooperation framework among the
EU and a group of six ACP Countries, within the scope of the 10th EDF. According to the
relevant ToR areas of cooperation must be identified in order that a limited number of projects
may also be devised.
The nature of that cooperation instrument and its financial boundaries were agreed in due
time by means of political dialogue among all Partners involved, which are the European
Union, the PALOP-Portuguese Speaking African Countries (Angola, Cape Verde, GuineaBissau and São Tomé e Príncipe) and Timor Leste. The multi-Country cooperation sought
will follow the steps of the still ongoing RIP PALOP II and thus reflect lessons learned from
its implementation.
The new Cooperation Initiative will be implemented under the traditional Projects approach,
having Good Governance as its single focal area. Management will draw resources from one
financial envelope to be established out of specially assigned PALOP&Timor Leste Cooperation
budget lines existing in all of the six Countries’ NIPs concerned.
The five PALOP Countries although dissimilar among themselves on geographical and
demographical grounds, share a strong identity based on history, culture and also on a
common institutional heritage. As a consequence and notwithstanding the fact that
independence of all the PALOP dates now to more than 30 years, similar characteristics and
patterns of performance can be found among all those Countries.
Those similarities regard at least the following relevant aspects of a political and societal
nature: structure and organisational culture of central Administration, legal system and
Justice Administration, careers and qualifications of Civil Servants, management of public
finances. The role and weight of the public sector as a part of the overall Economy and
Society, although the object of ongoing major changes throughout the PALOP universe is
also a commonly addressable issue.
Timor Leste is an ACP (although not African) Country having also Portuguese as an official
language for historical reasons. With a post-colonial trajectory where well-known dramatic
incidents delayed independence until a very recent time, this nation shares with the PALOP
a number of cultural and institutional characteristics and also some severe institutional
weaknesses.
In spite of considerable differences among themselves (on geographical extension,
demography and economic performance grounds) all six Countries evidence low standards
of life, with parts of their populations living below the poverty line according to commonly
accepted indicators.
Communication in the Portuguese language is possible and used among the PALOP,
facilitating a continuing (mutual and bilateral) dialogue and mutual cooperation, with
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particular expression at international fora and on approaching Donors and International
Organisations.
In parallel with individual membership in sub-continental African political and economic
Organisations all PALOP (and Timor Leste) are full-status members of CPLP, the 8
Portuguese speaking Countries (the former plus Portugal and Brazil) , an international
Organisation representing and advocating common interests.
The EDF (European Development Fund) is the main financial instrument for development
cooperation among the EU and the ACP Countries, within the wider scope of the 2000
Cotonu Agreement (revised in 2005).
The EDF has so far funded two PALOP-targeted regional Programmes (RIP PALOP I, signed
in 1992, with a 25M€ allocation from 7th EDF; RIP PALOP II, signed in 1997, with a 30M€
allocation from 8th EDF which was later partially transferred to the 9th EDF).
The ongoing RIP PALOP II provided the umbrella for two multi-year and multi-country
projects which directly address Governance issues (Justice I&II and Public Administration); a
first Statistics project also converged to that common purpose. Very soon and still under the
9th EDF, the remaining four RIP PALOP II projects will be launched: 3 social sectors-oriented
(Health; Employment and Training; Culture) and a second Statistics one.
As there is no geographical continuity among the PALOP Countries the regional scope of the
programme is of a conventional nature, with the NAOs acting as Chef de File for each
particular project and one of them (Mozambique) doubling as the PALOP RAO.
Similarly to its precedents the 10th EDF (2008-2013) will fund initiatives of a geographical,
sectoral or thematic nature, in line with a new partnership concept involving both parts (EU
and ACP) in mutually accountable joint or common action.
A number of Timor Leste’s already ascertained needs and priorities may be addressed by
means of common or joint initiatives with the PALOP, on the grounds that a synergetic
performance will be facilitated, among other aspects, by exploring the existing linguistic and
cultural affinities. There was already room, in the recent past, for a modest but symbolic
participation of Timor Leste in the RIP PALOP II Justice Project.
In the programming for 10th EDF, within the scope of the political dialogue between the EC
and its ACP Partners, there was room for a renewed collective approach to the PALOP
development gaps, in close association this time with matching needs concerning Timor
Leste. Learning from recent experience, common problems and weaknesses will thus be
addressed, in the path towards the mutually shared long-term goals of sustainable
development and poverty eradication.
The envisaged financial envelope amounts globally to 30-35 M€, to be drawn out of the six
NIP concerned, where partial amounts are already assigned under dedicated budget sublines. Considering the specificity of the particular multi-country cooperation envisaged
(outside a formal regional status), specific management guidelines are likely to be issued.
These will probably be supported, at political level, by a MoU between the EC and the ACP
Partners concerned which shall apply in lieu of a regional programme convention.
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The EU and other major international Actors in the world-wide arena of development
cooperation have insistently approached for many years (at least from the 90’s decade
onwards), under different perspectives and timings but with comparable and converging
aims, the subject of Governance. This exercise often takes place under a broad understanding
of the concept: encompassing effective and efficient management of Government and other
State Institutions with respect for human rights, fundamental freedoms and rule of law, in
the context also of a representative democracy.
In recent years a major framework for cooperation aimed at fostering sustainable
development has been unanimously accepted: the MDG (Millennium Development Goals).
In parallel a broad consensus has progressively been reached about certain matters that
should be targeted for priority action in the process of achieving reasonable standards of
Governance, these as a prerequisite for reaching the MDGs: fighting corruption and organised
crime, securing non-discrimination and gender equality, supporting citizens’ participation
and the role of civil society, protecting natural resources and also providing a political,
economic and social climate friendly to private sector initiatives.
Notwithstanding the considerable amount of materials, originated from a variety of sources,
aimed at providing theoretical and practical approaches to the subject of Governance/Good
Governance elementary research evidences the fact that there is not, to date, a stabilised or
unanimously agreed definition of the concept. In fact it became more and more difficult, in
recent years, to separate the primitive idea of (Good) Governance from other parallel or
partially overlapping concepts also intrinsically associated to Civilization and Citizenship
ultimate goals and aspirations.
A more or less elastic concept of (Good) Governance, when applied to State Administration,
will consequently allow for including or not within its conceptual border other important
ideas or principles universally endorsed such as: Human Rights, Fundamental freedoms,
Democratic culture, Rule of law, Conflict prevention and security, Transparency and
accountability (anti-corruption/anti-fraud included), Equity and non-discrimination, Civil
society and participation, Protection of natural resources and (as an umbrella-frame in itself)
Sustainable development.
Effectiveness (meeting the needs of the Citizens) and efficiency (managing public resources
in the best possible way) seems to be the uncompressible core of the concept of Good
Governance. However a sustained tendency regards the expansion of the original conceptual
borders (central Government, including autonomous systems like the Judiciary) to the local
level of Administration too, by devising and implementing appropriate Decentralization or
De-concentration policies and practices.
Reform of the State (Public Administration/Civil Service, at different levels) is the generic
framework for a variety of actions and instruments aimed at enhancing the required
institutional, social and human capabilities so that the ultimate public service objectives may
be progressively met. The concept of Economic Governance allows, in addition, for
addressing several areas of interaction between the public and private spheres of Economy.
More recent tendencies seem to place an emphasis on the understanding that (Good)
Governance should be regarded as a process, with a long-term perspective and also that it
should be approached from a contextual point of view, refusing therefore any static or tailorStudy of Identification of areas of governance for multicountry PALOP cooperation.
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made definitions. Such an approach is often associated with the idea that (Good) Governance
should be much more the object of systematic mainstreaming as against traditional thematic
or vertical approaches.
An increasing amount of EU-issued informative material illustrates several aspects of
dealing with the Good Governance issues within the scope of development cooperation. Those
and other sources also provide guidance towards practical approaches on the
implementation of the new cooperation policy issued out of the 2005 EU/Africa Partnership.
A structured concept of Good Governance was recently used by the EC in order to provide a
technical framework in the programming process of the 10th EDF. An assessment grid
(instrumentally updating the 2004 guidelines of the EC Handbook on Good Governance) has
allowed for establishing Governance Profiles and for drafting Governance Commitments.
According to the specific methodology devised a 9 clusters bracket was established and
systematically applied as a guideline for benchmarking (from the EC side) and engagement
(from the ACP side).
A key-aspect and a distinctive feature of the EU-ACP dialogue for the period covered by the
10th EDF is indeed cooperative action aimed at promoting, fostering or stabilizing Good
Governance in the ACP Countries. As a focal or non-focal area Good Governance is to be
mainstreamed by means of cooperative Actions aimed at promoting or enhancing
institutional reform and capacity building, including those in line with the adoption of sector
based or budget support cooperation modalities.
The only focal area for the new Cooperation Initiative addressed by this study will thus be
Good Governance, on the reasonable assumption that it will be possible to identify and agree
on sub-areas of a common concern by the targeted 6 Countries. That is: providing common
solutions to common problems. Projects (of a restricted number, for management reasons)
embodying this innovative arrangement shall typically provide the framework for
strengthening institutional capacities, along with training and interchange activities.
In accordance with one of key-principles postulated by the new EU/Africa Strategic
Partnership (Africa led/Africa owned approaches) and in line also with the relevant clauses of
the 2005-revised Cotonu Agreement, cooperation projects are to be identified as a result of
extensive consultation among the relevant ACP Actors and the European Commission. The
main part of the study concerned in this document consisted of a direct field assessment
allowing for the collection and organisation of technical inputs (needs and priorities as put
forward by local key-Representatives). These will provide the pillars for building up the new
EU*PALOP&Timor Leste Cooperation Initiative.
Good Governance eligibility criterion for any Project or its components that will be put forward
as a result of this study will regard its pertinence with relation to the 9 clusters bracket which
was used in the 10th EDF programming process referred to above. On the other hand
retained Projects/components must also meet the multi-country synergy criterion, that is: joint
or common action yielding to better performance, as compared to mere bilateral
arrangements or to a loose multi-lateral cooperation.
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3 Methodology and Work Performed
The study concerned in this Report was commissioned by the EC from a consortium led by
the Dutch company BERENSCHOT, following a call for offers within the scope of the
Framework Contract (Beneficiaries-Lot 7) mechanism. The contractual procedure was
requested by the EC Delegation to Mozambique (Country in charge of the overall RIP
PALOP II coordination), in close coordination with the central EC Services, namely DG
Development and AIDCO.
The relevant ToR elucidate or stipulate, among other items, the following important aspects:
A – Context
-
EC-PALOP cooperation (now including Timor Leste) will continue under the 10th EDF,
with Governance as a single focal area, including local administration/municipalities;
Good Governance, in its political, economic and social dimensions, is a natural focal
sector for a PALOP multi-country development strategy and should thus become the
raison d’être of the PALOP cooperation, as the group shares a heritage that includes in
particular public administration and justice models.
B - Scope/Purpose
-
The objective of the assignment is the elaboration of a study aimed at identifying areas for
PALOP cooperation in the Governance area, where such a process may bring added value.
A limited number of projects is to be identified by the Experts; Project Identification Fiches
are to be used by these, in accordance with EDF rules and procedures.
For projects identification purposes areas of cooperation should be chosen in
accordance with the general layout of the EU governance programmes (that is: the new 9
clusters approach), especially within the following categories:
• Political/democratic governance (cluster 1)
• Government effectiveness (cluster 4)
• Economic governance (cluster 5)
• Social governance (cluster 7)
• Quality of partnership (cluster 9)
C – Performance
-
-
Study was to be performed by the combination of the following consecutive major
steps (main Activities), during a period of 75 or fewer calendar days:
a) Briefing and desk survey
b) Data-collecting field mission (PALOP only)
c) Proposal-building and a 2-stage presentation
Reporting on a) above would be a first in-between Activity; Reporting on b) and c)
above (draft and final versions) will correspond to other two functional Activities.
Study would be conducted by the Consultant/Contractor, under the overall
orientation and supervision of the EC, in accordance with the Workplan/Schedule of
Activities (updated version: Annex B).
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In accordance with the methodological detail devised and put forward by the winning
bidder:
-
-
-
-
The study mobilized a number of Agents, from both ACP Countries and Europe:
A - PALOP
- Agents representing Entities and Services directly approached for the
purpose of listening to the PALOP Partners
- Officials at the EC Delegations/Representation Offices
- Officials at the NAO support Offices
B - Timor Leste
- EC Representative to Dili
- Other relevant Actors (as suggested)
C - Europe
- Timor Leste Ambassador to Brussels and his Representative
- EC Officials from DG Development
- EC Officials from AIDCO
- CPLP Executive Office
- The Experts Team
Study was performed by a team of two independent Experts (one of which acting in
the capacity of Team Leader), experienced in Governance, in EC cooperation and in
the PALOP institutional environment. An estimated total workload of 53 working
days was pre-determined for each, which included the preparation of the whole
assignment and all reporting duties.
Study’s expected results can be listed as:
a) Outcomes: conclusive debates on semi-final and final outputs;
b) Main Outputs: Areas of cooperation identified + Project Fiches submitted
c) Instrumental Outputs: Reports (Inception +Draft Final +Final) delivered
The Inception Report concerned the Briefing and the Desk Survey. The Final Report
provided the framework for the description (and justification) of the areas of
cooperation identified and for the (pre) identification of Projects and submission of
the relevant Project Fiches concerned, these in a simplified version.
Experts had initial briefings with EC central Services at Brussels (DGDEV and AIDCO) on
August the 2nd and 3rd. On this last day an interview with the Timor-Leste acting
Ambassador to the EC also took place.
A considerable amount of information (on the 10th EDF, the RIP PALOPII and the Countries
concerned by the assignment), disclosed by the EC and obtained by the Experts from other
sources, was the object of a Desk Study in the period between the 6th and the 10th of August.
A meeting with the CPLP Executive Secretary was also held at that time.
An Inception Report (detailing all work performed in the period between August the 2nd
and August the 15th) was prepared and delivered to the EC. At the same time the field portion
of the assignment was prepared.
From the 19th of August to the 28th of September the Experts were assigned to a mission that
consisted in visiting all the 5 PALOP Countries and collecting as much relevant information
as possible from these, by means of fact-finding and exploratory interviews held with
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13
Entities and Services specially designated for that purpose. Selection of these dialogue points
(State and non-State Actors) took place locally, under the best criteria and combined effort of
the relevant EC Delegations and NAO Support Offices, who also mediated or otherwise
facilitated the organisation of visits.
A total of 80 meetings took place in the overall account, as per the table immediately below.
State Actors
Angola
Cape Verde
Guinea-Bissau
Mozambique
S.Tomé e Príncipe
Timor Leste
ANG
RCV
RGB
MOZ
STP
RTL
10
10
9
10
12
1
52
Non-State
Actors
8
7
3
5
3
0
26
EC + Other
Donors
6
4
1
2
0
0
13
Total
Meetings
12
16
14
20
17
1
80
Information issued from those local Actors was duly assessed by the Experts
(ideas/suggestions Actors for common or joint 6-Countries cooperative action focused on Good
Governance, under the time-frame and financial framework of the 10th EDF) and later
organised with the purpose of discovering and weighting inter-Countries domains of
convergence (coincidence, affinity or proximity among, at least, 2 Countries). Previous
tendencies of convergence pertaining to the five PALOP and Timor Leste issued from analysis
of available documentation (9th EDF in general; 10th EDF Governance Profiles and Governance
Commitments) were also assessed and the object of table-display under a short-sentence
formulation. The last document was not however available for Timor Leste.
The Experts have furthermore identified a number of important potential contributions with
relevance to the purpose of the study, by examining many different sources of information
provided by the EC and other reliable Actors in the scene of international development
cooperation (including: UNDP, CPLP, UCCLA, and EU national Cooperation Agencies). As a
consequence transferable good practices, ongoing innovative experiments and other features
also with a synergetic potential (including those concerned with the implementation of the
RIP PALOP) were the object of due consideration for possible blending with Countriesissued material.
Highly convergent intentions of cooperation within the PALOP&Timor Leste universe
combined, when appropriate, with the additional synergy-generation opportunities as
ascertained by the Experts have provided the basis for the envisaged multi-country areas of
cooperation and the Projects concerned, as described in Section 6 below. Project formulation
was however limited to the component-level of description as no further details would be
compatible with the amount of issues and the diversity of perspectives assessed, the clear
need for further inter-Actors dialogue and also with the time-frame for performance of the
study and submission of the results concerned.
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4 Collected Contributions-PALOP and Timor Leste
4.1 Angola
4.1.1 Governance Context
Angola’s Constitution and ordinary law provide a generic framework for democratic
Governance. The following are important aspects to consider under that particular
perspective:
-
both Parliament (ANA-Assembleia Nacional de Angola) and the General Prosecutor’s
Office (PGR-Procuradoria Geral da República) have created specialized units intended to
secure the observance of Human Rights, which is also concerned with a platform of 24
NGOs; the habeas corpus procedure as such does not exist but hierarchical appeals and
formal procedural claims may be submitted to Courts instead; outside major Cities no
Barristers can usually be found but the creation and installation of Paralegal
professionals at local level is being considered; domestic violence is considered to be a
problem and an action plan against it has been devised;
-
fundamental freedoms are legally guaranteed; although some legal restrictions apply,
freedom of expression of the press and other media is a fact: alleged scandals are
exposed and the Government is often the subject of severe criticism; a new regulatory
law is being prepared and will cover the recognition of the journalism profession; NGOs
can be established (although registration procedures may be cumbersome), federated
among themselves and freely operate (although a number of restrictions apply on
practical grounds- eg: call for street demonstrations); independent press faces a
feasibility problem (meagre publicity market; high printing costs; limited demand),
which can be a threat to plurality of opinion;
-
many political parties are active, although few of these are represented in Parliament;
1992 parliamentary elections are reported to have been transparent but no other electoral
act has occurred since; new elections are expected (although not yet confirmed) in the
near future: 2008-parliamentary and 2009-presidential;
-
formal separation of powers exists, although Government accountability remains to be
improved by reinforcement of institutional capacities concerning both Parliament (EC
funded project to be launched soon) and Auditors Court; the Ombudsman (intended to
provide free, fast and informal service to the Citizens), although in the process of
installation is already the object of a strong and growing demand for action, probably on
account of the prestige of its leading figure, a former Minister of Justice; pilot-projects on
community participation are being successfully conducted (including one within the
capital city limits (1 million inhabitants/200 persons forum); the Auditors Court is
planning to expand its supervisory duties towards some areas of State financial
management currently out of its control such as the aid and cooperation funding.
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Rule of law applies all over the territory as according to the Constitution although rural and
remote urban areas may not be properly covered by judicial services. Access to Justice is
furthermore conditioned by the cost of juridical assistance. Judicial power is independent in
organic terms and manages its own human resources directly. Alternative dispute-resolution
mechanisms are being considered so that Ordinary Courts may be relieved from the
substantial burden consisting of minor litigation. It is expected that Mediation and
Arbitration bodies will be available concerning the family and Labours jurisdictions.
The General Prosecutor’s Office has been recently assigned new competences, namely the
prosecution of crimes committed by high ranking State Officials and supervision over
criminal investigations conducted by the Police.
In Angola the Ministry of Internal Affairs rules over the following Entities: National Police
(patrol and crime investigation); Migration and Foreigners Service; Prisons Service; Civil
Protection Service. A Police Academy will be soon established. Cooperation between
Angola’s Police and their counterparts in European and African countries is quite intense.
Prison conditions are appalling in urban areas, on account of an excessive number of
detainees or convicted felons.
Angola adopted the UN Convention on Corruption; however this phenomenon exists and,
consequently, State Institutions have expressed concern about that fact and for the need of
transparency. Although public decision-making and public services availability should
follow well established and reasonably transparent mechanisms, informal connections still
play an important role in the procedures concerned. Separation between public and private
interests is often not clear; excessive bureaucracy and low level of Public Servants salaries
often facilitates bribery practices and omission of legal obligations.
A special anti-corruption Unit although stipulated by law has not yet been set-up, the
competences concerned remaining with the General Prosecutor’s Office.
Angola is a country with a large territorial extension, with Government Administration
deployed on four different levels: Central, Provincial (18), Municipal (164) and Communal.
An overall de-concentration strategy is in progress; shortage of skilled personnel at local
level seems however to be a serious obstacle to the achievement of such a goal.
Decentralization is also sought by means of transferring competences from central
Government to local elected Municipalities (41 of these were recently selected for a pilotproject).
Proximity to the Citizen is sought by means of setting-up and operating one stop shops where
a number of public and private services are available.
Government acts and expenditures are subject to dual external control: Parliament and Court
of Auditors. Although supervision capabilities by both Bodies are being performed there is
room for improvement of the technical capabilities concerned.
Improvement of Public Financial Management is one of the aims of a National Plan for the
2009/2013 period.
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Private sector and direct foreign investment have an overall friendly regulatory environment
as according to the 1992 Constitution, although bureaucracy and corruption may place
undesirable strains on investment and business creation.
Macroeconomic stability has been reasonably achieved and economic growth has progressed
in recent years at a double digit rate (more than 20% expected for 2007), which is largely
based on the exploitation of oil and gas resources. Such a reality tends however to hide an
uneven distribution of income, on regional and social grounds.
Insufficient environmental protection has been reported in certain geographical areas,
namely in connection with illegal hunting.
No traces of ethnic problems or signs of structured societal unrest were found. No threats of
terrorism appear to be present; criminality however seems to be on the rise, specifically in
urban areas. According to the Internal Affairs Ministry internal security problems concern
mainly: Juvenile delinquency, small arms and light weapons in the possession of civilians
and illegal immigration; furthermore natural catastrophes pose serious management
problems to the Authorities in charge.
Health and human development indicators still rank low in the international context but are
improving. Social Governance suffers from generic limitation of public resources, these
including skilled personnel and proper funding. It is not obvious that Gender and other
cross-cutting issues are actually fully observed in practical terms. Reducing illiteracy and
adult education are the object of ongoing campaigns. A project run between 1995 and 2005
allowed for the training of Basic Education Trainers.
As far as regional integration is concerned Angola is an active member of SADC and CEAC.
Angola is also a member of the lusophone CPLP network and often participates in peacekeeping missions.
Political dialogue between Angola and the EC seems to proceed on satisfactory terms and
has recently allowed, among other aspects, for the signature of a Governance Commitment
within the scope of the programming for the 10th EDF. Ownership associated to cooperation
seems to progress at a reasonable pace in several areas.
The NIP for the 10th EDF has 3 focal areas: Governance and support to economic and
institutional reforms; Human and social development; Agro-rural development and food
security. As for Governance 3 areas will be covered: Modernization of Public Administration;
De-concentration and local power/participation; Enlargement of the judicial system;
Accountability and transparency (Parliament and Court of Auditors; electoral education);
Cross-cutting engagements. Inter-PALOP within the NIP provisions concern the following
aspects: Efficiency of Public Administration; common actions for reinforcement of capacities
(quality of service to the Citizen); sharing of experiences and knowledge.
The relevance of Civil Society is formally recognized by the Government and many of its
Actors hold public prestige by performing important civic or social work. Legal regulation of
the NGOs activity is under preparation. An ongoing EC-funded programme is aimed at
funding activities of NSAs.
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4.1.2 About the Contributors
In accordance to the Consultant’s suggestion the NAO Office pre-selected a number of
Entities to be approached by the Experts for data-collection purposes. The EC Delegation to
Angola was kept informed about the programme of visits and had the opportunity of
suggesting the participation of some of the NSA in the consultation process.
Contacts to be held were only fully confirmed as the Experts’ work progressed. Some of the
originally planned interviews could not take place due to lack of confirmation (eg:
Parliament), no reasonable alternatives to these being feasible due to time constraints.
Furthermore the city traffic congestion in Luanda prevented having more than 4 meetings a
day.
The final list of contributing Entities and of the Representatives with whom interviews were
held can be found in Annex C (Angola section).
The Representatives of the Entities that accepted to cooperate by making themselves
available for interviewing had not had, with few exceptions, occasion to prepare themselves
for a full debate on the issues raised by the Experts (or the information concerned didn’t
reach them enough in advance) but the outputs of most meetings were nevertheless relevant
in general terms.
The aim of cooperation and the openness for disclosure of information was the rule
regarding all the working encounters held in Angola. The Director of the NAO’s Office was
present at all meetings and paved the way for the technical dialogues held by introducing
the Experts and also explaining the purpose of the meetings.
Interviews were held at high Executive level (Directors, Senior Advisors or equivalent posts
immediately below cabinet Minister). It is reasonable thus to assume that all the facts
reported or suggestions released to Experts by their hosts do reflect the full and updated
perspective of the Entity concerned.
A total of 12 meetings took place in Angola. These concerned 10 State and 6 non-State
Entities, the former including the NAO Office. Meetings were also held with the EC
Delegation to Angola, including one with the simultaneous participation of Representatives
from 5 other Donors.
Orientation meetings with the NAO Office and the EC Delegation were held at the beginning
(local briefings) and at the end (local joint debriefing) of the field mission to Angola.
Documentation and source-references (including press reviews) were collected and the
object of analysis whenever relevant for the purposes of the study.
4.1.3 Retained suggestions
At the beginning of each meeting the Experts made a short presentation of their assignment
(context, expected results, methodology and schedule of work) and also stated their
expectations about contributions to be collected. Opening address always included a
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preliminary clarification about the eligibility of any possible Project Ideas put forward by the
Entity: a) fitting within the concept of Good Governance, as according to the 10th EDF
programming new 9 clusters bracket approach; b) added-value by being the object of a 6Countries joint/common cooperation as against a bilateral cooperation issue.
Recorded contributions in Angola, after minor terminology adjustments or complementary
mentions (both aimed at rendering inter-Country aggregation and comparative analysis
possible) are recorded in the following Table:
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Ministry of Planning
Ministry of Justice
EC Delegation to Angola
Ministry of Health
Project idea (title)
NIL
1-Reorganization/modernization of Registry & Notary Offices
2-Support to the establishment of Juvenile Courts
4-Development of conflict-mediations instances (Family and Labour)
5-Enhancement on fighting of illegal immigration
6-Support to fight drugs trafficking
7-Support to ongoing reform of legal codes
8-Enabling access to Justice by all Citizens (judiciary assistance)
9-Public awareness-raising on Citizens' righst and duties
NIL
1-Interchanges among Public Health Schools
2-Exchange of good practices on professional careers
3-Cooperation within the scope of the High Institute for Nursing
4-Fostering of Health technology transfer
5-Set-up of virtual libraries on Health issues
6-Networks for information sharing on Health issues
Court of Auditors
Ministry of Finance
General Prosecutor's Office
7-Observatory on Health human resources
8-Design of Health de-concentration standard-measures
1-Interchange and training
2-Procurement & distribution of common thematic libraries
3-Acces to legal databases
1-Co-funding of a common Institute for Education on Finance and Economy
1-Strengthening of technical libraries and information sources
2-Skills upgrading on criminal case building
3-Interchange of practices among the several Prosecutor's Offices
(*) see decoding in Table on Section 4.2.
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Ministry of Education
Ministry of Internal Affairs
Ombudsman
Donors Community
Non State Actors
Project idea (title)
1-Strengthening of the Schools Inspectorate
2-Improvement of Education information systems (statistics)
3-Supporting post-graduation scholarships
1-Support to prevention of juvenile delinquency
2-Support to collection of civilian-held small arms & light weapons
3-Improvement of Prisons' conditions
4-Reinforcement of Civil Protection (disaster preparedeness)
5-Enhancing control of illegal immigration
1-Support to decentralisation of services
2-Skills upgrading for Ombudsman personnel
3-Public awareness-raising on Citizens' rights
NIL
1-Strengthening of capacity-building for the NGOs
2-Translation and publishing of informative literature
3-Technical support to project identification at local level
4-Training for Local Authorities on dialogue with NGOs
5-Setting-up of thematic Observatories
6-Interchange of transferable good practices among NSA
4
3
3
3
1
2
3
1
6
(*) see decoding in Table on Section 4.2.
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4.2 Republic of Cape Verde
4.2.1
Governance Context
Political and democratic Governance in Cape Verde is healthy, in all relevant perspectives:
respect for Human Rights, guarantee of fundamental freedoms (including pluralism of
media), representative role of political parties (bipartisan model prevailing); currently one of
main political parties holds Executive power at central level while its opponent rules on the
majority of elected local Administration bodies.
In accordance with a Freedom House release dating October 2006, Cape Verde ranks in first
place among all African countries on the subject of population freedom; from the same source it
also ranks in second place regarding the political rights criterion.
Media is a dynamic sector with communitarian local radios expanding as they play an
important social and civic role. Although no publicity on these is allowed by law sponsoring
is legally accepted. Broadcasting covers the whole territory (24 hours a day) with the
exception of a few blind spots only. Internet currently allows for a full coverage of the worldwide Capverdian diaspora.
Legal framework for the operation of TV is currently under review, in order to allow for the
strengthening of private operation, which is possible as from 2007 (a regulatory independent
body will be installed and the concept of public service TV will be further clarified). State TV
however operates under severe technological and material constraints; although its signal
covers about 80% of the territory emission operates 6 hours a day only.
Press is present with a few titles but no daily newspaper exists; circulation of printed copies
does not seem to be effective and public demand seems also to be rather low.
There is a Journalists’ professional association with about 200 members, since 1990, but
weaknesses exist in such areas as specialized qualification and regulatory matters.
Legislative and presidential elections took place in 2006; next round is scheduled for 2011.
Municipal elections will be held in March 2008. Thanks to a newly created data-base and to a
full digitalization of procedures, a new electoral census will be performed until the end of
2007 (electoral population estimated at 220000 persons).
Elected Municipal Governments exist since the 90’s decade. In the whole country 17
Municipalities already exist and 5 others are being installed (as a result of territorial
administration re-design). Local Administration is assigned 6% of total State income, this
figure being expected to rise to 10% in the near future as a consequence of the ongoing
decentralisation process.
Parliament operates with 73 elected members, issued from 3 political parties (46 of those
from the ruling PAICV). Although no major problems were assessed capacity-building
efforts are in progress concerning several areas of parliamentary activity. An innovative
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experiment is being carried out in order to reinforce the democratic culture by means of
getting the younger generations familiarized with parliamentary work.
The Court of Auditors shows a considerable dynamic under a new leadership. More than 170
Entities totally or partially funded by public resources are subject to the Court’s supervision
(ex-ante and ex-post controls). NGOs, Foundations and enterprises with a certain amount of
public equity will also be the subject of supervision in accordance with legislation that is
being prepared. Continuing follow-up of budgetary performance and pre-closure accounting
audits regarding all Agencies under supervision is furthermore planned.
As far as the Judiciary system is concerned a Strategic Development Plan for the 2006-2011
period is being put forward. Advances on certain problematic or key-development areas are
in progress, namely: registry and notary Offices modernization; extra-judicial resolution of
conflicts. An unified Citizen ID card project is also in progress. There has been a positive
evaluation of the ongoing proximity experiment intended to provide the Citizens with generic
information on legislation as well as with free legal counselling by means of the so-called
Maisons du Droit (Citizen Law Houses).
One important concern of Cape Verdian judicial and law enforcement Agents is the subject
of improving information on legality and transparency of financial fluxes in and out of the
country, as Cape Verde is reportedly being used as a platform for money laundering
purposes.
Corruption does not seem to be an important problem to deal with; however new legislation
on public procurement is in preparation, in conjunction with modernisation of the public
accounts system.
The quest for generic Government effectiveness is an ongoing process, successful in many
areas. Important improvements took place thanks to the strong investment in ICT, dating
back now more than 10 years. Decentralization policy (central Government sharing with
elected Municipalities a number of competences, including in the Health and Education
areas) will be accompanied by a de-concentration effort aimed at providing a more
integrated response of central Governance in each of the 10 Isles. The experiment consisting
of providing Municipalities with Casas do Cidadão (Citizen’s Houses) is also to be further
implemented.
In spite of ongoing attention some further effort seems to be required concerning Civil
Protection. Although some recent progress was achieved on Statistics (National Accounts;
Enterprises Accounts) further improvements are reported to be required, namely at Sector
level (statistical data production at source).
Development of local Administration is a specific concern, to which a number of ongoing or
planned actions are likely to contribute: establishment of Municipal cells of territorial
management; establishment of compulsory Municipality Development Master Plans;
provision for systematic land property identification and registration; provision of technical
expertise in selected domains (at INAG, the national Administration School, a Municipal
Staff Training Unit was recently established).
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Since 2006 a Local Finance Law governs financial management of Municipalities and has
allowed for both municipal own sources of income and for direct access to credit by those
bodies.
Cape Verde will cease its condition of LDC and enter in the group of the Developing
Countries in January 2008. Overall economic growth for 2007 is estimated to range in the 6%7% interval; inflation will probably remain steady between 4% and 5%, with the national
currency being indexed to the Euro; external currency reserves are increasing and the
internal debt is diminishing (although external debt is increasing on account of the fast
growing trend of imports).
Economy is strongly based in services (75% of GDP) with external aid still accounting for
approximately 13% of GDP. Tourism-related services and real estate investment hold an
important and growing weight on the overall economic figures.
Important improvements on inter-Islands mobility are planned, specifically using seaways.
New international connections (to and from Angola and São Tomé e Príncipe, namely) will
also pave the way for development of domestic and international commerce, to be followed
by the strengthening of industry and agriculture.
Institutional and political environment favour the development of the private sector.
Privatisation of public held assets is an ongoing process; a number of independent
Regulatory Agencies were recently established by the Government.
Existing enterprises and new investments face however a number of constraints, including
high costs of utilities like electrical power and water as well as the geographical
discontinuity of the Country itself.
In Cape Verde two separate Chambers of Commerce co-exist, operating under a
geographical competence logic. Both were the active Agent of a Matching Fund provided by
the World Bank which is intended to stimulate Business modernisation for the micro and
small scale enterprises.
Some environmental problems have been assessed, with some emphasis placed on the
excessive collection of inert materials at sea-shore fronts. Excessive demand for water is
originating a growing salinity in natural underground water reservoirs. A national-level
Policy for Environmental Protection has been devised and put forward, with Municipal
Environment Plans now compulsory.
The national Strategy for Reducing Poverty, which integrates promotion of Good Governance as
one of its key-axes, is currently under review. Although Poverty still reflects the standard of
living of about 36% of the Cape Verdian resident population the Human Development
Indicator places Cape Verde in the third place in Africa (last figure available from UNDPJanuary 2006: 0,722). Life expectancy is of 70,7 years of age; cell phone possession statistics
provide the figure of 2,5 per 1000 inhabitants (West Africa average: 1 per 1000 inhabitants).
ICT is being steadily made available to Schools, starting with Elementary degrees.
Cape Verde follows a policy of multiple alliances and affiliations, on a regional and bilateral
basis. A strong reinforcement of the political and economic links between Cape Verde and
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the EU (a special partnership status) has allegedly been the object of talks by the Cape
Verdian Government and the EC but no substantial progress has been assessed on this
strand.
Political dialogue between Cape Verde and the EC seems to proceed otherwise on
satisfactory terms and has recently allowed, among other aspects, for the signature of a
Governance Commitment within the scope of the programming for the 10th EDF. Ownership
associate to cooperation seems to progress at a reasonable pace in several areas.
Besides the EU other important cooperation Partners are present in Cape Verde, including
the UNDP as well as the French, Austrian and Portuguese Cooperation Agencies.
The relevance of Civil Society is recognized by the Government and many of its Actors hold
public prestige by performing important civic or social work. The legislation framework
governing the role and action of NGOs is still the old and unsatisfactory in many aspects
Law of Associations; A specific legislation for the NGOs is however in preparation. As from
2007 specific legislation covers the operation of Micro-finances and rules on the Operators
concerned. Civil Society is largely represented by the umbrella Organisation PLACON,
gathering about 200 NGOs and also 60 local Communitarian Associations. This platform has
been supported by the Government and Donors and regularly provides import services to
Members, including qualification opportunities and a central logistics facility (technical
advice, library, access to internet, meeting rooms, accommodations at Praia).
4.2.2
About the Contributors
In accordance with the Consultant’s preliminary suggestion the EC Delegation to Cape
Verde selected a number of local (State and non-State) Entities or Services to be approached
by the Experts for data-collection aimed interviewing.
A list of the relevant contacts and times was handed to the Experts on the first working day
at Cape Verde and frequently updated during the duration of the visit, thanks to the
permanent attention of the Institutional Support Officer (also acting Head of EC
Representation Office for the duration of the field mission). The final list of contributing
Entities and of the Representatives with whom interviews were held can be found in Annex
C (Cape Verde section).
Not all the representatives of the Entities concerned had the occasion to prepare themselves
for a full debate on the issues raised by the Experts but the outputs of most meetings were
nevertheless relevant in general terms.
The aim of cooperation and the openness for dialogue was the rule regarding all the working
encounters held. At some of the meetings the EC Institutional Support Officer was present,
which was helpful in the process of filtering needs, priorities and criteria for determining
future cooperation. The Experts held two meetings with the Director of the NAO Office in
which several aspects of the envisaged future cooperation were the object of exploratory
analysis aimed at enlightening programming contents and mechanisms, as seen from the
PALOP perspective.
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As a rule Experts met with first line Executive Officers or Senior Advisors (in one case, even
with the cabinet Minister himself). The Experts thus assume that all the facts reported or the
suggestions released by their hosts do reflect the full and updated perspective of the Entity
concerned or, at least, a very reasonable approach to it.
A total of 16 meetings took place in Cape Verde. These concerned 10 State (including the
NAO Office), 7 non-State Entities and 4 Donors, including the EC (2 meetings).
Not all meetings originally scheduled could actually be carried on due to agenda matching
difficulties considering the limited time available. Nevertheless the 21 different
Entities/Services that could be approached and involved in the mission have disclosed
information that may be altogether considered relevant for the purposes of the study.
Orientation meetings with the NAO Office and the EC Delegation were held at the beginning
(local briefing) and at the end (local debriefing) of the field mission to Cape Verde.
Documentation and source-references (including press reviews) were collected and the
object of analysis whenever relevant for the purposes of the study.
4.2.3
Retained suggestions
At the beginning of each meeting the Experts made a short presentation of their assignment
(context, expected results, methodology and schedule of works) and also stated their
expectations about contributions to be collected. Opening address always included
preliminary clarification about the eligibility of any possible Project Ideas put forward by the
Entity: a)fitting within the concept of Good Governance, as according to the 10th EDF
programming new 9 clusters bracket approach; b)added-value by being the object of a 6Countries joint/common cooperation as against a bilateral cooperation issue.
Recorded contributions in Cape Verde, after minor terminology adjustments or
complementary mentions (both aimed to render inter-Country aggregation and comparative
analysis possible) are recorded in the following Table:
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Delegation of EC
Project idea (title)
1-Development of economic regulation instances
2-reinforcement of an entrepreneurial culture
Justice Ministry
3-Improving protection of Natural resources (especially the beaches)
1-Improving the judicial systems (in wide terms)
2-Improvement of Public Administration/Local Administration
3-Support to Regulatory Agencies
4-Support University education and scientific research
5-Enhancing the advance of ICTs on Public Administration
1-Improving protection of intellectual and industrial proprietary rights
2-Combatting money laundering
3-Improvements on research and action regarding domestic violence
4-Improvement of guarantees on Citizens' private data protection
5-Skills upgrading of Justice personnel (including E-learning options)
6-Capacity building on criminal investigation
7-Research and education on the subject of Citizenry and Justice
Portuguese Cooperation
Auditors Court
NIL
1-Technical Assistance (implementing performance period-supervision)
NAO's Office
Austrian Cooperation
National Electoral Commission
2-Technical Assistance (setting-up procedures manuals)
3-Publications on duties& obligations for public-awareness
1-Support to independent media (decentralisation-related)
2-Interchanges on de-centralisation
3-Interchanges among Parliaments
4-Interchanges on Territorial Management
1-Use in common of electoral kits and equipment
2-Technical Assistance on the electoral process (Experts pool )
3-Publication of Civic Education materials
1
4
3
4
5
6
3
1
1
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Project idea (title)
National Statistics Institute
1-Statistical production capacity building at Sector level
2-Interchanges and support to bilateral South-South cooperation
French Cooperation
1-Strengthening of law-enforcement capabilities
2-Setting-up of a Financial Information Unit for crime prevention
3-Reinforcement of control over Municipal management
Ministry of Decentralisation, Housing
1-Exchange of Good Practices (Local Power)
and Territorial Management
2-Skills upgrading of Technical Staff (Municipal level)
3-Technical assistance on territorial management
4-Providing systematic land registration and referentiation
5-Strengthening of Civil Protection capacities
General Directorate for Local Administr. 1-Enhancing use of ICT in municipal management
2-Interchanges (Central level+Municipalities Associations)
3-Technical assistance for preparation of Municipal Master Plans
4-Skills upgrading at municipal level on social affairs and NSA
1-Lusophone common Observatory of Press
Social Communication Actors
2-Technical assistance (regulatory power ; public service)
3-Retrieving and preserving of old TV images archives
4-Life-long training for Journalists
5-Preparation in common of basic legislation for the sector
6-Exchange of media contents among the Countries
7-Supporting investigation journalism
8-Supporting co-productions of media contents
8
1
2
13
1
1
Study of Identification of areas of governance for multicountry PALOP cooperation.
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Platform of NGOs
Economic Regulation Agency
National Parliament
Chamber of Commerce
1
4
3
Project idea (title)
1-Capacity-building (complementing volunteer work)
2-Preparing and adopting an Ethics and Conduct Code
1-Technical assistance on price-setting
2-Improvement of public-awareness on economic regulation
1-Support to image caption & diffusion of parliamentary work
2-Reinforcement of capacities of Specialized Parliamentary Commissions
3-Support to preservation of A/V parliamentary work files
4-Support to enhancing the activity of the Lusophone Parliaments Forum
1-Reinforcement of the existing Matching Fund incentives mechanism
2
(*) see decoding in Table on Section 4.2.
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4.3 Republic of Guinea-Bissau
4.3.1
Governance context
Political and democratic Governance has been demonstrated in Guinea-Bissau’s
commitment to create the conditions necessary for stability already shown with the
realization of the political transition of the past three years aimed at re-establishing
constitutional rules.
During this period, free and transparent legislative elections were successfully held in March and
April 2004. The constitutional Government, operating since May 2004, with the support of
bilateral and multilateral partners, held presidential elections within a reasonable timeframe, in
the third quarter of 2005. The investiture of the newly elected President of the Republic
organized on October 1st brought to a close the transition process begun following the September
14th, 2003 coup d’état. Moreover, the Government’s programme envisions the holding of local
elections to complete the cycle of democratic consultations and to consolidate the democratic
process through broad civil participation by the population from the outset.
An electoral census should take place in January or February 2008. No specific dates have
yet been set, but the next legislative election is due in 2008, and the next presidential election
is due in 2010.
Lack of lawyers in the country in the exercise of their functions led to a workload of Lawyers
Bar Association by ensuring officious defence and providing legal advice to the Government
without any retribution.
The independent media has suffered a backlash due to the number of senior professionals
that left the country and the majority of the remaining media professionals not having
specific training to fulfil their job.
Currently, media in Guinea Bissau comprises 1 TV and 1 radio station state-owned, 6
newspapers and 15 community radios.
The rule of law is gradually improving after the instability of President Yala’s period.
Nevertheless, fragility of governance led to deficient functioning of institutions and is still
posing significant problems.
The security services face some accusations of human rights violations and are also known
for some degree of ineffectiveness and corruption.
The judiciary is made up of a Supreme Court and lower Courts, and is intended to be
independent of the other branches of State Administration.
Since the ousting of President Yala, efforts have been made to restore the judiciary’s
independence; for instance, judges that had been ousted by the former President have been
reinstated.
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More important are the major physical and human limitations that the court system faces: a
lack of trained and skilled judges, and a lack of financial and physical resources. The courts
only exist in 4 out of the 8 Regions and the Criminal Police is exclusively operating in Bissau.
Guinea-Bissau is a major stakeholder in sub-regional component; however the judiciary
structures are not in line with the integration process of the West African Economic and
Monetary Union (WAEMU).
The control of the borders is still being supervised by the Armed Forces, which should be a
responsibility of the Police Force, possibly a special Unit for border control.
A total lack of resources and means concerning criminal investigation prevails. Police have
very limited means at their disposal in order to exercise their duties, including (as for the
Criminal Police) only one functioning vehicle, a handful of rusty weapons and no prison to
hold suspects.
Justice agents do not have the means to prevent and to fight new criminal technologies. The
main weaknesses recognised in the justice sector are the difficulties in combating organised
crime, narco-trafficking and corruption.
Guinea-Bissau is facing an urgent need to build its first prison and to establish a forensic
laboratory.
The obsolescence of legal codes is a problem that needs to be solved in the immediate future.
The judiciary courts have serious difficulties, in particular outside of Bissau, where their
functionality is limited. The extra-judicial conflict mediation mechanisms are still in the
embryonic stage.
Moreover, the civil identification system has serious insufficiencies, namely the length of
time to deliver the identity card, cases of bribery to access it in an acceptable timeframe and
the security configuration of issuing it.
There is corruption and some problems of impunity also exist, especially where crimes
occurred in a political context.
The lack of organisation and discipline in the public sector, corruption of Ccivil Sservants
and the need to modernise the Public Administration streamlines bureaucracy at all levels,
by engendering an appropriate environment for corruption.
In addition, the unfriendly climate for doing business additionally contributes to fostering
corruption.
Emerging highly organised crime is a prime concern to the international community, in
particular on drug trafficking issues, if one takes into account its limited infrastructure or
properly functioning institutions, and the unguarded coastline with huge empty areas.
Bureaucracy is a handicap to the Government effectiveness in the country, with a severe lack of
human and financial resources, graft, and openness to bribery adding to this ineffectiveness. The
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time-consuming administrative services, the limited access to decentralization of the
administrative services contributes to inefficient public services delivery.
The State reform started in 1986 but has been interrupted because of the country’s high level
of instability which did not permit it to focus on initiatives to search for ways and means to
tackle the challenges of the country’s development.
Public sector is a heavy burden in Guinea-Bissau, and the public service counts 18 civil
servants to 1000 inhabitants, and the nomination for the available positions are subjective
and not in conformity to job requirements.
It lacks a unified database of all civil servants which poses difficulties for cross-checking
information among ministries in order to remove ghost workers from the payroll.
A professional joint training component between public administration and justice sector is
foreseen. Furthermore, the continuation of the demobilization and social reinsertion of the
former combatants in order to restructure the armed forces based on the country’s actual
needs and financial capacity, in order to eliminate hotbeds of tension likely to reignite
violence is a main priority.
The absence of financial means to reduce the civil servants and the wage bill as a percentage
of tax revenues is critical to which salaries far exceed revenues.
It is necessary to strengthen revenue administration and improve expenditure management, to
be followed by the preparation and implementation of comprehensive public sector reform.
The development of the private sector should be accompanied by a strengthening of the
capacities of the judiciary to foster the respect of business rights and provide rules for
litigation arising out of commercial and industrial operations and labour relationships.
Although the country has comparative advantages at the sub-regional level based on the
production and export of several products other than cashew nuts, the weak private
investment in these sectors and products, due to weak savings and the absence of an
environment favourable to business and investment, limits the possibilities for development
of these sectors and the impact they can have on economic growth, the creation of
employment opportunities and improvement of the country’s external competitiveness.
After the economic liberalization in the context of the 1980s, the private sector played an
ever-greater role in the national economy. The strengthening of the basic organizations
highlights this dynamic, which makes the private sector the engine of economic growth,
despite the still weak volume of private investment.
The Government’s policy will be to support and develop the private sector by creating an
environment conducive to recover from the losses it incurred during the 1998-99 conflict. In
this context, the strategy will be based on: the revision of the investment code, making it
more simple and flexible in line with government commitments under WAEMU; build
capacity at the Directorate General of the Public Investment Programme (DGPIP) by
establishing a support and monitoring system for businesses; promote and diversify SMEs
and develop a lending programme for them; adopt a tax incentive and tax policy system that
Study of Identification of areas of governance for multicountry PALOP cooperation.
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helps small enterprises and fosters foreign direct investment; review the labour code; and
improve the policy for property registration.
The CCIA (Chamber of Commerce, Industry and Agriculture) aggregates 5000 enterprises
and 16 entities which represent private commercial interests.
The adjustment of banking policy is necessary to meet the needs of private investment (the
bank loans for credit borrowers are from 29% to 32%).
An agency to promote private investment is under preparation being the responsibility of the
CCIA. One of the objectives is to minimise the time taken to set up an enterprise (currently takes
up to 232 days) by establishing a “unique window” for a 24 hour enterprise creation.
The weak economic growth resulting from the implementation of inadequate
macroeconomic and sectoral policies in the past is another major determinant of the high
poverty rate in Guinea-Bissau. The economic policies implemented over the last three
decades were not sufficient to drive economic growth and reduce poverty. In order to
address the situation, corrective measures have been taken over the past years but were not
sufficient to reverse the trend of weak performance.
Guinea-Bissau’s economy, which continues to be affected by considerable structural
constraints marked by weak diversification, weak mobilization of internal resources, a lack
of dynamism in the private sector and weak development of human capital, will require a
profound restructuring to create a favourable context to boost economic development.
Financial intermediation was limited, and the banking system comprised just one
commercial bank until end-2005, when two and lately four banks were established.
The infrastructures supporting economic activities are poorly developed. There are high
transaction costs due to insufficient and mediocre transportation systems and port, with
silting problems and a lack of equipment.
Telecommunications are poorly developed despite the new dynamic generated by the
introduction of mobile telephony. Difficulties with the supply of electricity are among the
greatest obstacles to economic and social development.
Social Governance: the precarious situation was aggravated during the conflicts.
Access to healthcare infrastructures are still weak, and have a weak network of health
centres, which causes an overload on the HNSM (the only structure that serves the entire
nation, and which lacks a lot of equipment and supplies). The 4 regional hospitals are in the
same situation regarding needs.
The functioning of services is affected by the lack of qualified human resources, a shortage of
drugs and weaknesses in the implementation of advanced strategies. In addition, demoralization
of the profession is rampant due to the precarious working conditions and low pay.
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Access to water and to basic sanitation is very low and only 54.6% of the population have
access to drinking water (piped, public faucet or fountain, protected well or cistern), while
45.5% use unprotected water from wells and rivers, etc.
With respect to sanitation, approximately 35% of households nationally have no toilets, and
there is heavy use of poorly conceived latrines/pits, which represent a serious danger to
public health. There is no organized system for urban waste removal and treatment.
The Education sector is characterized by poor performance and a lack of human, material
and financial resources. The financial resources allocated to education in the Government
Budget declined sharply from 15 percent in 1987 to 10 percent in 1995.
Regional integration plays an important role in Guinea-Bissau, which joined the West African
Monetary Union as from January 1997 and enhances sub-regional cooperation, in particular
within the Economic Community of West African States (ECOWAS). On 1st of May 1997,
Guinea-Bissau adopted as its currency the CFA franc following its membership into the BCEAO.
Its closest friendships are with the other Portuguese-speaking African countries (member of
CPLP, PALOP).
Political dialogue still needs to be formalised, however improvements have been made.
Civil society is represented by 160 organizations (NGOs and networks of Federations) in
different areas and interests that are members of the PLACON umbrella.
The NGOs and grassroots organizations, in addition to being essential, dynamic components
of civil society, and despite some weaknesses deriving from its youth and the insufficiencies
of the expansion process underway, have been key partners of the government in the key
sectors of basic intervention and poverty reduction for the poorest of the poor.
The freedom of association seems to be protected in law and in practice, and there is
evidence of a proliferation of groups devoted to defending human rights in various areas,
and their freedom to publicize issues and campaign in the media.
The main obstacle to NGOs and the freedom of association seems to be the lack of human
and financial resources for the operation of many associations.
4.3.2
About the Contributors
According to the Consultant’s suggestion the CAON-FED Office pre-selected a number of
Entities to be approached by the Experts for data-collection purposes.
In the absence of a representative of the EC Delegation owing to illness, the CAON-FED Office
arranged for both meetings with State Entities and non-State ones. Lists of contacts to be held
were sent by email beforehand to the Experts and updated during the duration of the visit.
The Experts arrived one day late to Bissau because of flight delays, an unrestrained situation
which did not hamper the field work programme in Bissau.
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A short briefing and debriefing was held in the Delegation of EC to the head of sector.
The final list of contributing Entities and of the Representatives with whom interviews were
held can be found in Annex C (Republic of Guinea-Bissau section).
The short time elapsed between the preparation of the mission and the arrival of the Experts
did not allow for providing comprehensive information about the purposes of the meetings;
some of the representatives of the Entities concerned had not had the occasion to prepare
themselves for a full debate on the issues raised by the Experts but the outputs of most
meetings were nevertheless relevant in general terms.
The aim of cooperation and the openness for disclosure of information was the rule
regarding all the working encounters held at Republic of Guinea-Bissau. At some meetings
with State Entities a Representative of the CAON-FED Office was present as an observer.
A total of 14 meetings took place in Republic of Guinea-Bissau. These concerned 8 State and
3 non-State Entities, one meeting held with the CAON-FED Office, and 2 meetings with the
EC Delegation.
All scheduled meetings were performed, except two (Court of Auditors and Counsel of
Superior Magistrates) and the 13 Entities approached have disclosed information that may
be considered relevant for the purposes of the study.
Orientation meetings with the CAON-FED Office were held at the beginning (local briefing),
but not at the end of the field mission to Republic of Guinea Bissau. Documentation and
source-references (including press reviews) were collected and the object of analysis
whenever relevant for the purposes of the study.
4.3.3
Retained suggestions
At the beginning of each meeting the Experts made a short presentation of their assignment
(context, expected results, methodology and schedule of work) and also stated their
expectations about contributions to be collected. Opening address always included
preliminary clarification about the eligibility of any possible Project Ideas put forward by the
Entity: a) fitting within the concept of Good Governance, as according to the 10th EDF
programming new 9 clusters bracket approach; b)added-value by being the object of a 6Countries joint/common cooperation as against a bilateral cooperation issue.
Recorded contributions in Republic of Guinea-Bissau, after minor terminology adjustments
or complementary mentions (both aimed to render inter-Country aggregation and
comparative analysis possible) are recorded in the following Table:
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Delegation of the EC
NAO's Office
General Prosecutor's Office (GPO)
PLACON (Platform of NGOs)
Secretary of State for Social Communic.
Lawyers Bar Association
Project idea (title)
NIL
NIL
1-Enhancement of fighting against drugs trafficking
2-Training of Magistrates (on the new modalities of crimes)
3-Digital connection between the GPO and the Criminal Police
1-Setting-up an Electoral Observatory
2-Capacity building for civil society platforms
3-ICT-supported networking of NGOs
1Qualification of the new generation of media professionals
2-Motivation and re-integration of former media professionals
3-Supporting co-production of audio-visual programmes
1-Free legal aid to socially disadvanteged persons
2-Reinforcement of legal libraries
3-Establishement of Juvenile Correctional Facilities
4-Dissemination of past and new legislation (paper & radio)
Ministry for State Reform and Labour
5-Publication of a juridical journal
1-Setting-up Training Centers for market-oriented professions
Chamber of Comm., Ind. and Agric.
2-Setting-up of Employment Centres
3-Qualification of personnel in connection with de-centralisation
1-Setting-up One-stop-shops for enterprise-related formalities
2-Advice to enterprises on quality and standardisation issues
3-Advice on business & enterprise innovation
4-Joint accounting services for small-scale enterprises
5-Overseas digital booth on investment (for the diaspora)
5
1
7
3
7
2
2
(*) see decoding in Table on Section 4.2.
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Project idea (title)
Ministry of Econ., Planning & Reg.Dev. NIL
National Parliament
1-Setting-up of a Parliament multimedia center
National Electoral Commission
Ministry of Finance
Ministry of Justice
4
2
4
1
2-Training on Parliament-related issues
1-Programmes of civic education
2-Interchanges on electoral subjects
3-Improvements on electoral legislation
4-Adoption of ICT tools in the electoral process
1-Training of trainers for State Reform
1-Enhancing fight against organised crime and narco-traffick
2-Enhance fight against corruption
3-Accelerating ongoing reform of legal codes
4-Improvements on the penitentiary system
5-Promoting Extra-judicial settlement of conflicts at local level
1
(*) see decoding in Table on Section 4.2.
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4.4 Mozambique
4.4.1
Governance context
Political and democratic Governance does not seem to be a problem in Mozambique, in
general terms:
-
-
there are no signs of formal discrimination or other breaches of Human Rights. Appeal
instances exist;
fundamental freedoms are granted, including pluralism of media and free access to
internet;
several political parties are active, although only two of these are represented in
Parliament; 2004 parliamentary elections are reported to have been transparent; 3
electoral acts will take place soon: 2007-Provincial/2008-Municipal/2009-parliamentary
and presidential
formal separation of powers exists, although it is openly recognized that Government
accountability remains to be improved; this is to be achieved by reinforcement of
Parliament and Administrative High Court institutional capacities.
Rule of law applies all over Mozambique although rural and remote urban areas are not
properly covered by judicial services. Access to Justice is furthermore conditioned by the cost
of juridical assistance. Judicial power is independent in organic terms and manages its own
human resources directly. Alternative dispute-resolution mechanisms are being considered
but further action remains to be taken if Ordinary Courts are to be relieved from the
substantial burden consisting of minor litigation.
Corruption exists at several levels and under different forms, impacting economic Agents
and the common Citizen; the phenomenon is frequently reported by the media, with
Education, Health, Justice and Law Enforcement being particular areas of incidence.
Although public decision-making and the supplying of services by the State Administration
are to follow well established and transparent mechanisms, informal connections still play an
important role in the procedures concerned. Separation of public and private interests is
often not clear; excessive bureaucracy and low level of Public Servants salaries facilitates
bribery practices and omission of legal obligations. A special anti-corruption Unit was
recently created within the General Prosecutor’s Office but it apparently lacks resources and
the legal framework concerned seems to be somehow controversial.
The geographical extension of Mozambique is vast, with Government Administration
deployed on three main levels: Central, 11 Provinces and 128 Districts (soon to become 140).
An overall de-concentration strategy has been recently decided with the aim of securing
improved proximity to the Citizen; shortage of skilled personnel at local level seems
however to be a serious obstacle to the achievement of such a goal, which is a part of the
2006/2011 Public Sector Reform. Decentralization is also sought with elected Municipalities
to progressively cover the territory, but only a limited number of those exist for the moment;
Citizens’ participation at Municipal level is secured by means of local Consultative Councils.
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About 50% of State Expenses and 75% of public investment are currently covered by external
aid. These and other financial resources managed by the Government are subject to dual
external control: Parliament and Administrative High Court (in its cumulative capacity of
Court of Auditors). Although supervision duties by both Bodies are being performed there is
room for improvement of the technical capabilities concerned.
Private sector has an overall friendly regulatory environment, although bureaucracy and
corruption may place undesirable strains on investment and business creation. Other claims
from Business concern difficulties with access to credit, registry formalities and labour
regulations (legislation review is however in progress).
Macroeconomic stability has been reasonably achieved, including inflation control; overall
economic growth tends however to hide uneven distribution of income, on regional and
social grounds.
Agriculture follows a mere subsistence pattern and is clearly sub-funded. Insufficient
environmental protection has been reported in certain geographical areas, specifically in
connection with forest exploitation. Physical communications infrastructures and basic
services networks need to be further improved, especially in rural areas; proper maintenance
of existing social and economic equipment is often disregarded.
No traces of ethnic problems or signs of structured societal unrest were found, although the
political dialogue may appear to be tense at times, as reported by the media. No threats of
terrorism appear to be present; criminality however seems to be on the rise, specifically in
urban areas, where armed violence and gang operation tend to be a reality. The Police seems
not be prepared for handling this changing pattern of criminality, having also to face
allegations of corruption by the common Citizen and the media.
Health and human development indicators still rank low in the international context but are
steadily improving. Social Governance suffers from generic limitation of public resources,
these including skilled personnel and proper funding. However many Donors provide
project-related or sector-oriented financial support that alleviates those constrains. It is not
obvious that Gender and other cross-cutting issues are actually fully observed in practical
terms. Fighting poverty is the aim of the 2006/2009 PARPA II Programme; however a
number of other Government instruments also share identical goals and coherence among all
may not have been secured.
Regional integration is a fact, Mozambique being a full status member of SADC, with
practical consequences on trade and cooperation grounds. This PALOP country is also a
member of AU, NEPAD and CPLP. Bilateral relations between Mozambique and the South
African Republic are particularly strong and concern both trade and cross-border migration.
Mozambique is starting a hopeful involvement in the APRM system; a full national report is
due in July 2008.
Political dialogue between Mozambique and the EC seems to proceed on satisfactory terms
and has recently allowed, among other aspects, for the signature of a Governance
Commitment within the scope of the programming for the 10th EDF. Ownership associate to
cooperation seems to progress at a reasonable pace in several areas.
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One important step towards the sustainability of the overall cooperation effort was the
gathering of main Donor Partners on the so-called G-19 platform, with Government and
important segments of Civil Society as counterparts (this latter namely by means of the G-20
platform of NSA). Basket funding operations tend to be adopted as an interesting modality for
inter-Partners effective cooperation over common purposes; budget support is also
progressing as against more traditional project-based approaches. Quality of partnership is
likely to be improved in such areas as: Human Rights culture, access to Justice, the fight
against corruption, Parliamentary activity, decentralization and Citizen’s participation.
The relevance of Civil Society is recognized by the Government and many of its Actors hold
public prestige by performing important civic or social work. Legitimate interests are
represented by Business and Professional Organisations, like CTA (Employers Unions
Federation) and the Chamber of Barristers. NSA freely federate themselves in 2nd level
Organisations (G-20 platform being one of these) but claims were recorded about some of
existing NGO’s not being entirely genuine ones or holding an excessive proximity with
ruling powers.
4.4.2
About the Contributors
According to the Consultant’s suggestion the NAO Office and the EC Delegation to
Mozambique pre-selected a number of Entities to be approached by the Experts for datacollection purposes.
The NAO Office arranged for meetings with State Entities and the EC Delegation did the
same with non-State ones. Lists of contacts to be held were handed to the Experts on the first
working day at Mozambique and updated during the duration of the visit.
The final list of contributing Entities and of the Representatives with whom interviews were
held can be found in Annex C (Mozambique section).
The short time elapsed between the preparation of the mission and the arrival of the Experts
did not allow for providing comprehensive information about the purposes of the meetings;
the representatives of the Entities concerned had not had, with few exceptions, the occasion
to prepare themselves for a full debate on the issues raised by the Experts but the outputs of
most meetings were nevertheless relevant in general terms.
The aim of cooperation and the openness for disclosure of information was the rule
regarding all the working encounters held in Mozambique. At most meetings with State
Entities a Representative of the NAO Office or the EC was present as an observer.
On the other hand a high disparity existed as far as the position of the Representatives
within the Entities is concerned. In fact the Experts held meetings at very different
hierarchical levels: from one Cabinet Minister and the President of a High Court to Advisors
and junior Officials, with Directors and Division or Unit Heads in between. The Experts
cannot thus certify that all the facts reported or the suggestions released by their hosts do
reflect the full and updated perspective of the Entity concerned, as opposed to the personal
views of their Representatives.
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A total of 20 meetings took place in Mozambique. These concerned 10 State and 5 non-State
Mozambican Entities, the former including the NAO Office. Meetings were also held with
the EC Delegation to Mozambique and with UNDP Representatives, the latter by suggestion
of the EC Delegation.
All scheduled meetings were performed and 16 of the 17 Entities approached have disclosed
information that may be considered relevant for the purposes of the study. In one case the
interview could not proceed beyond mutual presentation as the Representatives of the State
Entity concerned alleged lack of mandate and thus suggested an adjournment of the meeting
(which could not be re-scheduled however on account of time constraints).
Orientation meetings with the NAO Office and the EC Delegation were held at the beginning
(local briefing) and at the end (local debriefing) of the field mission to Mozambique.
Documentation and source-references (including press reviews) were collected and the
object of analysis whenever relevant for the purposes of the study.
4.4.3
Retained suggestions
At the beginning of each meeting the Experts made a short presentation of their assignment
(context, expected results, methodology and schedule of work) and also stated their
expectations about contributions to be collected. Opening address always included
preliminary clarification about the eligibility of any possible Project Ideas put forward by the
Entity: a) fitting within the concept of Good Governance, as according to the 10th EDF
programming new 9 clusters bracket approach; b)added-value by being the object of a 6Countries joint/common cooperation as against a bilateral cooperation issue.
Recorded contributions in Mozambique, after minor terminology adjustments or
complementary mentions (both aimed to render inter-Country aggregation and comparative
analysis possible) are recorded in the following Table:
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9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
EC cooperation with PALOP & Timor Leste * Governance-10th EDF * Field Mission County by Country assessed Project Ideas
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Ministry of State Administration
Ministry of Health
Administrative H.Court&Auditors Court
Ministry of Internal Affairs
National Institute of Statistics
National Parliament
Ministry of Justice
COUNTRY: Mozambique (page 1 of 2 )
Project idea (title)
1-Citizens' one stop shop (State Services at local level)
2-Capacity-building for de-concentration and decentralization
3-Digitalized territorial planning (system design)
1-Skills upgrading of Health Personnel
1-Skills upgrading for senior Officials
2-Upgrading of Documentation Centers
3-Study tours&technical exchanges (among PALOP&TL)
1-Upgrading of civil registration system (IDCs;passports; dBases)
2-Setting-up a single Lusophone Police Academy for Senior Officers
1-Skills upgrading for Statistics personnel
2-Creation of a PALOP&TL Statistics School
1-Skills upgrading (Members of Parliament and Advisors)
2-Public awareness of Parliament's role and activities
3-Support to parliamentarian networks
1-Initial training for Magistrates (temporary need)
1-Skills upgrading for Court Officers
3-Promotion of 2008 as Human Rights Year
Public Attorney/ Prosecutors' Office (PO) 1-Skills upgrading for senior Officials
2-Technical cooperation networks among P.Os of PALOP&TL
3-Development of systems for extra-judicial resolution of conflicts
4-Upgrading of documental assets (juridical libraries)
1-Offices for free legal assistance to the Citizen
Lawyers' Bar Association
2-Attorney avalability during pre-judicial detention period
3-Training centre for trainee Barristers
4-Dissemination of Information on Citizenry rights
1
3
7
8
1
6
2
2
3
(*) see decodification in previous Table
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9.3.
9.2.
9.1.
8.3.
8.2.
7.0
8.1.
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
EC cooperation with PALOP & Timor Leste * Governance-10th EDF * Field Mission County by Country assessed Project Ideas
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
ETICA (national NGO)
MISA-Media Independence of Southern Africa
COUNTRY: Mozambique (page 2 of 2 )
Project idea (title)
1-Reinforcement of Citizenry (public awareness strategies)
2-Improvement on the quality of the electoral process
3-International conference on fighting corruption
1-Supporting development of local radios
2-Supporting production and distribution of newspapers
3-Development of specific ITC techniques for radio and other media
4-Capacity-building on monitoring Good Governance
CIP-Centre for Public Integrity (national NGO) 1-Capacity-building for the quality of Partnership
2-Improving transparency on management of natural resources
3- In-depth development of de-centralization processes
4-Reinforcement of the legal framework on fighting corruption
1-Technical assistance to (and networking of) Electoral Committees
EC Delegation to Mozambique
2-Networking of NGO/NSA and their plarforms
3-Strengthening of Parliaments role and mutual cooperation
4-Exploitation of good practices on the electoral process (UNDP)
5-Exploitation of good prcatices on Donors coordination (ODAMOZ)
6-Networking of Auditors Courts
NAO's Office
4
2
3
1
1
7-Supporting decentralisation and local Administrations
8-Follow-up of progress on the 2005 Paris declaration goals
9-Support to monitoring of the progress towards the MDG
10-Secure compatibility with NIPs and Entities' strategic planning
1-Secure continuity regarding RIP PALOP II results
2-Secure compatibility with Mozambique Governance Commitments
1
(*) see decoding table in Section 4.2.
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4.5 São Tomé e Príncipe
4.5.1
Governance context
Political and democratic Governance currently is not seen as a major problem in São Tome e
Principe. The one-party system which had prevailed since independence was abandoned in
1990 when a new constitution (amended later in 2003) providing for a multiparty one was
adopted following a referendum. Executive power is constitutionally divided between
President and Prime Minister.
The Human Rights situation is perceived to be acceptable and fundamental freedoms are
guaranteed; however it is still missing the ratification of the main international conventions,
partly due to the lack of institutional and human capacities.
An overall census is foreseen for 2008 but the means/mechanisms to proceed with it are
weak. The technical electoral Office works in precarious conditions and the entire cycle of the
electoral process needs improvement and support, in particular for the training component.
The National Assembly, in spite of ongoing progress regarding redefinition of the role of
parliamentary Commissions and strengthened procedures for control of public assets,
accounts, and State budget, is still in need of training and interchange programmes and
other initiatives aimed to inject a certain degree of dynamism to its role.
Rule of law applies to all the territory with main incidence in urban areas however and the
information displayed to provide Citizens access to the justice system (legal aid) is still
limited.
Obsolete laws and other outdated juridical instruments, originated from colonial times
undermine institutional work; a reform of updated legislation is in progress but under a
slow pace.
Remuneration policies for the Justice system personnel do not currently reflect their job
specifications and an adaptation of remuneration policies needs to be established.
Several specific courts of Law (Maritime, Labour, Family and Juvenile) are in the process of
being established.
A Centre of Arbitration and an Arbitral Court are in place, specifically for enterprise
litigation purposes.
The Registry and Notary systems do not meet expectations or needs and the security
mechanisms of the civil registration system to deliver Citizen identification cards and
passports are permeable. It can have the consequence of delivering fake documents that may
in turn contributes to a current increase of criminality within the Region.
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Summing up: there are disperse and limited means of implementation of the policies that
should contribute to overcome the still inefficient judiciary system.
There is evidence of corruption at public and private level but a number of cases have been
exposed to the public; however the prevailing bureaucracy in the public Institutions and the
length of handling cases of corruption plus the unfriendly environment to business creates
an appropriate climate to the increase of it. However, the adoption of anti-corruption legal
texts is a positive sign in fighting against it.
Emerging organised crime is also concern of the Authorities, in particular the one related
with drugs trafficking, which represents a real threat because of the difficulties in patrolling
the maritime boarders.
Bureaucracy is a handicap of the Government effectiveness in the country, which
undermines the level of access to Government Agencies: inefficient and time-consuming
administrative services; slow level of decentralization of administrative services; waiting
time to receive a reply, requested document or correspondence.
There is a lack of availability of qualified professionals at the appropriate posts.
The strength of the private sector in the country is limited, not only because of the tiny
dimension of the market but also because of a still not business-friendly overall climate.
The main difficulty relates to the reduction in bureaucracy: barriers preventing foreign
investors from making more substantial investments; a non-existent set up to settle
contentious matters; lack of supervision over macroeconomic management mechanisms to
ensure that the inflation rate is favourable to growth, that the monetary control avoids
depreciation of the national currency and also external debt sustainability. It was suggested
that organized professional, economic and financial cooperation activities with other
countries in the sub region be put forward; that an agreement with CEMAC will be achieved;
that a Unique window towards the Government will be provided serve the private sector.
In spite of the progress made in a series of macroeconomic policies and adjustment
measures, the external vulnerability of the economy continues to be a concern. The burden of
the public external debt is high and per capita income is very low, in addition to which,
structural problems continue to pose problems for economic growth and private investment.
In the short and medium terms, São Tomé e Príncipe will continue to depend on external
assistance and financial support for its external account deficits, which are clearly manifested
in the wide gap between imports and exports.
With respect to the hydrocarbons (oil, natural gas, etc.) to date, negotiations have already
been conducted culminating in the demarcation of maritime borders with neighbouring
countries, namely Gabon and Equatorial Guinea. In addition, the STP Government has
already had negotiations with Nigeria concerning the problems related to oil exploration in
areas considered to be common, and joint exploration is under way. A National Oil Agency
has been established and it is fully operational. A series of legal texts have been approved,
but still needed to be ratified.
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Social Governance issues are of great preoccupation in a country where geographic
dispersion, lack of awareness, and insufficient means of transportation are factors impeding
better operation of the education system. Although some school transportation does exist,
there are still areas where vehicles not accessible to all students.
Another extremely important factor is the need to achieve gender equality. As the incidence
of poverty is greater in rural than in urban areas, there is an evident one-way migratory flow
from rural areas to the capital—another important factor to be overcome, as it correlates with
increasing numbers of street children, higher levels of unemployment, prostitution and
criminal activity.
A national strategy for the equality and equity of gender was published in 2005 which led to
the creation of the Directorate of Gender. It will become fully operational by the end of the
year.
The Observatory of Poverty Reduction (Observatório da Redução da Pobreza,-ORP) has been
created in direct consultation with the Minister in charge of Planning and Finance; one of the
capabilities is to ensure the implementation of the ENRP’s (National Strategy of Reduction
Poverty) Plan of Action and the accomplishment of the defined goals.
Regional integration: São Tome e Príncipe has seen recently its relationship with Nigeria
grow significantly as a result of their mutual oil interests.
São Tome e Príncipe’s has good partnerships with Western donor countries and institutions
as part of its economic reform programme.
Its closest partnerships are with the other Portuguese-speaking African countries (member of
CPLP, PALOP, UCCLA) and with Portugal itself, the main trading partner. Currently, São
Tome e Príncipe is pondering the idea of becoming a member of the ECOWAS.
Political dialogue has increased in São Tome e Príncipe and a Donor’s meeting aimed to
revise the situation in São Tome e Príncipe took place in May 2006. It had also the objective
to ensure better coordination among Donors and the Government to avoid dispersed aid
funds and not to duplicate actions.
Civil society is represented by 85 organisations, covering different areas and interests, those
being members of a Federation –FONG. This Organisation has the direct responsibility to
centralise the collection of all funds donated by the international community and to manage
and allocate these upon presentation of projects by its different Members.
FONG works together with the Government institutions and a document of strategy on
communication among NGOs, partners and Government is in place. It is also about to
establish a dialogue platform with the Government.Civil society has been consulted during
the 10th EDF exercise.
The promotion of information and participation, degree of radio and television coverage, the
pluralism of media, freedom of the press are guaranteed by law.
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However, in São Tome e Príncipe financial difficulties can put at risk the pluralism of the
media. The lack of local printing facilities for the production and distribution of written press
may contribute to the disappearance of the still remaining newspapers.
4.5.2
About the Contributors
According to the Consultant’s suggestion local NAO Office had pre-selected a number of
Entities for data-collecting interviewing by the Experts. Other Contributors were added to
the original list as the field work progressed. The final list of contributing Entities and of the
individuals with whom interviews were held can be found in Annex C (São Tomé e Príncipe
section).
Although sought and expected no direct contact was possible with the EC Delegation
covering São Tomé e Príncipe, which is based at Libreville (Gabon). No specific contribution
was received from this source, either during or after the field mission.
Probably on account of short notice the Representatives of the Entities selected for
interviewing did not seem to have had the occasion to prepare themselves for a full debate
on the issues raised by the Experts. The outputs of most meetings were nevertheless relevant
in general terms, although some of the suggestions put forward may hardly be considered
on a multi-Country cooperation perspective.
With few exceptions meetings took place at high hierarchical levels of the Entities concerned,
usually with the first line Executive Officers. Experts had the opportunity to meet personally
HE the Minister of State Finances and Planning (who also holds the post of Vice Prime
Minister). On an informal basis the Experts paid their respects to the Venerable President of
the High Court of Justice, who also contributed with her own views regarding sector gaps
and priorities.
Officials were friendly, cooperative and apparently driven by a genuine motivation towards
a fast and in-depth improvement of current conditions, which appear to be critical in almost
all the sectors covered by this field mission to São Tomé e Príncipe.
A total of 17 meetings were successfully conducted with the participation of 12 State and 3
non-State different Entities, the former including the NAO Office where a briefing and a short
debriefing took place.
Some documentation and source-references (including press reviews) was collected and the
object of analysis. At some of meetings a Representative of the NAO Office was present as an
observer.
The Experts were requested to provide radio and TV statements about the purposes of the
field mission and the study concerned, which they did by providing contextual information
about the EU/ACP cooperation and the 10th EDF.
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4.5.3
Retained suggestions
At the beginning of each meeting the Experts made a short presentation of their assignment
(context, expected results, methodology and schedule of work) and also stated their
expectations about contributions to be collected. Opening address always included
preliminary clarification about the eligibility of any possible Project Ideas put forward by the
Entity: a)fitting within the concept of Good Governance, as according to the 10th EDF
programming new 9 clusters bracket approach; b)added-value by being the object of a 6Countries joint/common cooperation as against a bilateral cooperation issue.
Recorded contributions at São Tomé e Príncipe, after minor terminology adjustments or
complementary mentions (both aimed to render inter-Country aggregation and comparative
analysis possible) are recorded in the following Table:
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9.3.
9.2.
9.1.
8.3.
8.2.
7.0
8.1.
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
Project idea (title)
National Authorizing Officer's Office
1-Improvement on the prevention of delinquency (training for the Police)
2-Improvement on the preparation of the electoral process
3-Reinforcement of Immigration Control systems
4-Rationalization and modernization of Public Administration
Journalists Trade Union
1- Exchange of Good Practices (regulatory matters; deontology)
Chamber of Comm. Ind. Agr. and Serv. 1-One stop shop for business affairs and enterprise creation
2-Supporting operations of the PALOP&TL network of Chambers of Commerce
Min. Nat.Res.& Envir. (Gen.-Dir. Envir.) 1-Practical implementation of legal frameworks on Environment (regulations)
2-Management of urban solid waste - determination of common strategies
3- Environmental education-common awareness-raising programmes
4-Managment of Natural Parks-design of sustainable models
Ministry of State Administration
1-Skills upgrading of local Officials and office personnel
2-Supporting activities of the existing Public Administration Schools network
3-Replication of training programmes issued from selected pilot initiatives
4-Creation and operation of a Public Administration- PALOP+TL dedicated web-site
5-Improvement of quality on the Public Services for the Citizens
6-Creation of a common Observatory of Public Administration
7-Creation of an Observatory on the fight against corruption
National Oil Agency
National Police
Civil Protection Service
2
2
1
5
2
6
3
4
2
1
2
1-Improvement of the whole electoral process
2-Modernization of the legal framework for private sector operation
3-Reinforcement of mechanisms for upgrading transparency and fighting corruption
4-Support to capacity-building of NGOs
5-Support to independent media
1-Qualification of Police Experts (creation or upgrading of Special Units )
2-Supply or reinforcement of Scientific Police equipment
1-Combined training of key-personnel on Civil Protection subjects
2-Combined expert missions on Civil Protection subjects
1
(*) see decoding in Table on Section 4.2.
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9.3.
9.2.
9.1.
8.3.
8.2.
7.0
8.1.
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
Contributor (Entity/Service)
Ministry of Justice and Parliam. Affairs
National Parliament
Electoral Technical Office
Press
FONG-Federation of NGOs
Nat. Instit. Prom. Gender Equality& Equity
Project idea (title)
1-Supporting ongoing reforms of older legal codes
2-Further skills upgrading of Justice personnel (a)
3-Reorganization/modernization of Registry & Notary Offices
4-Setting-up systems for issuance of secure ID cards
1-Capacity-building in selected areas (including applied ICTs)
2-Child&Youth Parliament
3-Creation of a PALOP&TL Training Centre for Parliaments
1-Exchange of Good Practices for Electoral Processes
2-Training of Electoral Agents
1-Specialised Capacity-Building (included ITCs)
2-Lusophone Network for the Media
3-Exceptional Support (to protect the plurality of information)
1-Enhancing transparency of public affairs and crime-fighting
2-Strengthening of protection of natural resources (a)
3-Strengthening of protection of vulnerable persons (b)
4-Capacity upgrading of NGOs (including Resource Centers )
1-Training of Mediators and Trainers
2-Research (common interest subjects)
3-Publication of awareness-raising materials
4-Networks on Gender-related subjects
3
3
4
1
1
1
1
5
1
(*) see decoding in Table on Section 4.2.
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4.6 East Timor
4.6.1
Governance context
Political and democratic Governance in East Timor lays out a vision of a democratic country
that has acceded to all seven core international human rights treaties, providing additional
legal guarantees of human rights and civil liberties.
Elections are overseen by an electoral supervision body, as stipulated in the Constitution.
The supervisory body is the National Electoral Commission (CNE), a 13 member body to be
constituted each time there is an election. Members of the CNE are appointed by the
president, Parliament, Government and the Judiciary. A permanent technical body, the
technical secretariat for the Administration of elections, undertakes the organisation and
administration of elections.
The office of Provedor de Justiça for human rights and justice was established in March 2006,
and two deputies have been appointed for human rights and anti-corruption issues. The
Provedor functions as ombudsman and Human Rights Commission. The Provedor is
appointed by and answers to the Parliament.
The legal framework and accreditation standards for the private lawyers remain to be
created and the 30 existent private lawyers in the country are working for law firms or legal
aid organizations with no legal framework either for private lawyers or a bar association.
Legal aid organizations provide public defence services because of the limited number of
public lawyers, and additionally legal aid organizations provide mediation services, which
parties in civil cases often use, given the costs and duration of court cases.
A draft advocate statute which would create a bar association and regulatory framework for
lawyers was produced by lawyers and is still under consideration by a parliamentary
committee.
The Government’s own initiatives to provide information, coupled with an independent and
free press has been solid and the Council of Ministers produced press releases in both
Portuguese and Tetum after meetings.
The Official Gazette, Journal of the Republic, is a key means of disseminating information,
particularly on new legislation. To date Government and most line ministries have websites,
encouraging a better informed public.
To date Timor-Leste has enjoyed freedom of media, and according to Freedom House’s
report in 2005 is among 39 percent of countries out of 194 surveyed with a free press.
However, the penal Code criminalizes defamation, which encountered opposition from the
media, including the Timor-Leste Journalist Association.
Since 1999, Timor-Leste has developed 4 daily newspapers, several weeklies, an independent
national television and radio broadcaster, and community radio stations in most districts
Study of Identification of areas of governance for multicountry PALOP cooperation.
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(which play an important role as an accountability mechanism). However, the quality of
reporting is weak and serious investigative journalism still does not exist. The media are
financially frail and susceptible to criticism due to the legacy of suppression of the media
during the Indonesian era.
Timor-Leste’s National Development Plan (NDP) states that rule of law should be respected
and Constitution clearly provides the separation of powers (in practice it resides with the
Executive and is relatively weak or remains to be created).
The Constitution of Timor-Leste identifies Portuguese and Tetum as the official languages of
the country. It is necessary to ensure the transition from a legal system in Indonesian to a
civil right system in Portuguese and Tetum. This implies the reintroduction of Portuguese
and the introduction of Tetum as effective working languages in the administration of
justice.
It also establishes the independence of the courts of judiciary and a framework for
safeguarding this independence; in addition to courts and a Prosecution Service, the
Superior Council for the Judiciary and the Superior Council for public Prosecution exist as
independent bodies.
The President appoints both the Prosecutor General and the president of the Supreme Court.
As stipulated by the Constitution, the Prosecutor General has been making annual reports to
Parliament. The Ministry of Justice sets overall policy direction for the sector, runs the
judicial Training Centre, has responsibilities for legislative research and drafting, and
administers the prison and defence services.
The Courts envisioned by the Constitution include the Supreme Court of Justice and other
judicial courts, the High Administrative, Tax and Audit Court and Military Courts. It also
provides for the establishment of Maritime Courts and Arbitration Courts. Some district
courts have been established but function sporadically due to logistical difficulties.
Additionally, the courts have developed considerable backlogs. The Timorese Courts are
currently operated by international Judges, Prosecutors and public defenders; 20 legal
professionals from lusophone countries have been recruited to fill the vacancies left by
unqualified Timorese legal professionals. In fact, the system is likely to remain dependent on
international court personnel.
The Ministry of Justice is leading a computerisation process in the sector, with support from
UNDP, which aims to allow a greater articulation between the various bodies, namely
Courts, Prosecution, prison facilities and defence. The issues of regular power supplies being
backed up by generators and new developments of wireless technology should also be
explored for a successful implementation of the computerised system.
Building the capacity of the police services is far from being complete and requires support
to a series of areas of intervention.
PNTL (National Policie of East Timor) has put into place several units, whose primary
objectives are to monitor internal security, including criminal activity and border insurgence
relative to people smuggling and arms trafficking. These units have the ability to monitor
and gather intelligence and are linked to other agencies for the broader national security.
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The five specialist units within the PNTL have been developed and comprise Border patrol
and security; Rapid Intervention Unit (RIU) dealing with anti-social behaviour, crowd
control and disbursement of riots; Reserve Police Unit (RPU) which monitors internal
security activities, in particular in the border regions of the country and reacts to armed
and/or criminal activities; and Maritime Unit that ensures effective maintenance of sea
borders, search and rescue, the management of fisheries legislation, and the management of
the environment of the coastline and rivers, and the Immigration services.
Illegal detentions remain a significant problem and the effectiveness of justice is hampered
by the fact that laws and proceedings are not translated into languages understood by all
courts (eg: Timorese legal professionals of whom the majority were trained in Indonesia).
The National Directorate of Prison Services and Social Reinsertion is about to approve its
Organic law. The regime of execution of penalties, the statute of the prison guards, their
respective code of conduct and the internal regulations for prison facilities are currently
being drafted.
The first stage in illegal detentions has been keeping suspects in preventive detention
beyond the 72 hour limit within which the suspect must appear before a judge. Police
adherence to this regulation has improved, but its progress has been undermined by the
slowleness of the prosecution and courts in bringing detainees to court.
Corruption has been addressed as an important issue and the Office of the Inspector General
has been active in promoting transparency and anti-corruption measures through
dissemination of information. The recorded allegations of misuse of public funds and
corruption covered irregularities of recruitment and in procurement processes and
mismanagement of public funds.
The definition of corruption in the new Penal Code is not consistent with the UN Convention
Against Corruption (eg Definition of criminal corruption), however, the signature by the
Government of the UN Convention Against Corruption in 2003 is a public statement of
commitment to combat corruption.
As an emerging oil economy, Timor Leste’s support for the Extractive Industries
Transparency Initiative is a very positive sign. The Government was already following the
transparency principles before the initiative was itself established.
The quest for generic Government effectiveness is a recent and ongoing process; however in
2004 the Civil Service Statue and its accompanying codes of ethics and disciplinary
procedures set the framework for a responsible public service.
At present, reports of absenteeism and failure to comply with standard attendance, working
hours and punctuality are fairly widespread. Moreover the administration is highly
centralised, with many decisions sent to Ministerial or Prime Minister level.
The United Nations Transitional Administration for East Timor (UNTAET) labour code
attempted to install what were considered to be minimum internationally accepted
standards for hours of work, holiday and sick leave and maternity benefits. However, the
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Labour division does not have the capacity to be able to develop a range of policy options
that Government can consider in the area of labour and employment, as well as to prepare
draft laws once a choice has been made. There is also the question of how a social security
scheme would be managed, involving key stakeholders.
The economy is strongly based on oil revenues and over the next two decades stands to gain
tens of billions of dollars in oil and gas revenues from the Timor Sea. However, the revenues
from current oil and gas fields are expected to last for only a few decades. Therefore, East
Timor has adopted a strong regulatory framework to ensure transparent and sustainable use
of oil/gas revenues through the national budget approved by Parliament. Yet weaknesses in
national capacity make the system vulnerable in the face of the departures of international
advisors. The Government acknowledges this vulnerability and collaborates with donors
partners to create a multi-donor five year planning and financial management capacity
building programme.
The institutional and political environment is not entirely friendly to favour the development
of private sector. Moreover, the heavy reliance on external advisors to draft the legislation,
since there are not enough Timorese trained in drafting legislation may ensure appropriate
technical inputs, but poses a risk in that draft laws are not compatible with each other or
with existing laws, and are not adapted to Timorese institutions. For instance, the
development of private sector regulation, encompassing laws for companies, cooperatives,
investment, bankruptcy, payments, and insurance, has been spread across different
ministries, and as such may pose challenges for harmonization and implementation.
East Timor cannot afford the risks of additional costs of impediments to trade facilitation and
private sector development. Efficient border management can facilitate trade and improve
the collection of taxes and duties while reducing administrative cost and delay.
Furthermore, it is necessary and vital to the security and prosperity of East Timor to involve
the private sector in the development and implementation of border management and
cooperation. The government and the private sector are key partners and both need each
other for assessing security risks and developing appropriate technology to provide advance
information on goods and passengers and securely facilitate their movement.
For the promotion of economic growth, it will be important to foster a client-friendly and
corruption-free relationship between Government and business, including areas of
procurement, registration and licensing, customs taxes, and dispute settlement.
It is relatively difficult to start a business in East Timor due to costs and required capital
which is several times higher than the average in the region.
Social Governance in Timor Leste needs to be improved, in particular with the poor that are
at risk from malnutrition, with attendant health risks, lack of access to education, lack of
access to health care, weakness in labour negotiation, lack of equitable access to law.
The situation is more precarious in rural areas, where poor families have more family
members, are headed by someone who has not completed primary education, have a lower
standard of literacy, and are without electricity, safe water and improved sanitation.
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In 2002 United Nations Transitional Administration for East Timor (UNTAET) Regulation
No. 2002/5 instituted a Labour Code whose Section 8.1 established MTRC ( Ministry for
Labour and Community Reinsertion) as an arm of Government with three divisions; Labour,
National Directorate for Social services and Solidarity (DSS), and Vocational Training and
Employment. The Labour Code further provided that DSS comprise several Sections, with
associated functions, targeting children, women, persons with a disability, elderly persons
and refugees.
The work of the National Directorate for Labour Issues Services (NDLIS) has primarily
focussed on monitoring and inspection of compliance with the labour code; assisting in
labour dispute resolution through negotiation and conciliation, and conducting workshops
on mediation and resolution of industrial disputes. It has also begun talks with key
stakeholders, including Government, trade unions and employers associations, on the
development of a social security system for East Timor.
According to data presented in the National Development Plan, two-thirds of the female
population is illiterate and 20 percent of children enrolled in school rarely attend classes.
Girls are likely to be withdrawn from school at an early stage to assist in subsistence farming
and household chores. Women also have poor health and their access to health services is
low.
Domestic violence affects women in East Timor in a disproportionate manner. A preliminary
report by PRADET Timor Lorosae and UNICEF in 2002 indicates that 61 percent of all
documented cases of child abuse are girls. There is an urgent need for action against
domestic violence, especially that directed towards women. Actions required include
improved access to justice, protection and support for women victims, law reform and mass
community education on women’s rights.
The patriarchal social system is strongly implemented and mostly gives older men the power
of decision making. Customary law, related to issues such as land inheritance, is
discriminatory towards women. This hinders women’s access to and control over assets.
Natural disasters and civil emergencies pose a risk to the country, those being deliberately
accidental (as terrorist attacks) or a result of negligence or poor planning. At sea, coastal
marine pollution poses a major threat to Timor-Leste’s pristine coral reefs and fishing
grounds, and could seriously undermine East Timor fledgling diving tourism industry.
A legal framework to address the risks of both natural disasters and civil emergencies has
been drafted and a National Disaster Risk Management Plan has been prepared under the
authority of the Minister of Interior, based on Decreto do Governo no 3/2004 de 5 Maio, Artigo 9
Direcção Nacional de Proteção Civil. However, the Plan is still to be supported by a Disaster
Management Act to bring the measures advocated under this Plan into force.
Internal Security and demobilization programmes have played a significant role in laying the
foundations for peace and security in the country. These various programmes addressed the
concerns of such groups as FALINTIL fighters, former Timorese militia, ex-TNI, clandestine
supporters of FALINTIL and FALINTIL widows and orphans.
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The demobilization programmes of the FALINTIL Reinsertion, which was designed to
provide exclusive assistance to FALINTIL fighters and their families who either chose to go
back to civilian life or were not selected to enter the East Timor Defence Force (ETDF), was
focused by being of sustainable packages that include income generating activities
complemented by vocational training.
Support to veterans has the objective to develop policies and programmes that respond to
the needs of legitimate veterans to ensure that this group does not become a source of future
disaffection and instability.
Land and Maritime Border Security of East Timor’s borders are vital and pose important
security challenges for the Government especially in relation to its duty to protect its citizens.
The land borders themselves, including Oecussi’s, are comparatively long – totaling about
269 km, and are rough and difficult to police from either side. Smuggling – and perhaps
concomitant corruption, could become a significant issue, given the extensive use of
subsidies for many basic consumer goods and oil/gas products in Indonesia. There are likely
to be considerable temptations for people to buy goods at subsidized prices in West Timor
and sell them in East Timor.
Currently, a border pass agreement is being negotiated between the two counties.
Yet another aspect of border security of concern to the Government is the importance of
restricting the movement of former anti-independence militia from West Timor into East
Timor, including into the Oecussi special region.
It is also important to consider that border management and security cannot be carried out in
isolation from the population. The communities are the eyes and ears of authorities.
Therefore, it is essential to establish lines of communication and consultation with them.
Political dialogue between East Timor and the EC seems to proceed in satisfactory terms and
once the EC delegation is established in the country it will consolidate the cooperation
between both parties.
Civil Society organisations in East Timor have yet to assume a strong watchdog role, with the
exception of several organisations (HAK association, Fokupers the judicial system
monitoring programme, Rede Feto…), have performed well in its systematic monitoring
role.
The role of civil society in improving governance in East Timor could be strengthened
further through closer links between non-governmental organisations and the media.
The Decree Law on Non-profit Corporate Bodies was published in mid-2005. It provides an
essential framework for the creation and registration of civil society organisations, in
particular foundations and associations. However, further consultation was needed to
promulgate the law and the requirement that foundations possess no less than USD 50,000 in
assets to be recognised may be unrealistic, particularly for district-specific foundations.
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4.6.2
About the Contributors
In spite of several attempts to establish contact with the representative of EC in East Timor
and other sources in the field the direct contributions collected were minimal.
The experts relied mainly on the Good Governance profile and three documents delivered by
the EC representative in East Timor and, additionally, on the documents and sourcereferences collected by them, including internet consultations.
The interpretation of the collected data was the object of analysis whenever relevant for the
purposes of the study.
4.6.3
Retained suggestions
Information in East Timor was obtained on the basis of desk research and can be
summarised as follows:
Elections:
ƒ New voter registration cards
ƒ CNE more resources: election staff and training required
ƒ CNE enlarged for national elections and commission memebers could be given a
sabbatical year from their normal jobs
ƒ Continous Legal advice
Media:
Lack of both financial and human resources
Technical training required
ƒ
ƒ
Justice:
ƒ Lack of uniformity in procedures and weak case management practices
ƒ Insufficient support services including interpreters, translators, and record keeping
ƒ Lack of awarness of the population about duties of the government, the judicial process,
and the rights that are protected by the judicial system and the Constitution
ƒ Transition from a Bahasa-based Indonesian legal system to a Tétum and Portuguese
based national, civil law system
ƒ Inadequate number of qualified judges, prosecutors, public defenders and court clerks
ƒ Limited facilities and equipment
ƒ Limited knowlodge about the law
ƒ Lack of proper communication between the various institutional components in the
justice system.
Police:
Lacking Professional delivery of police services
Introduction of standardized operational and administrative procedures and systems
Training and skills development for the managerial, operational and administrative staff
of PNTL
ƒ Further development of specialized services within PNTL
ƒ
ƒ
ƒ
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ƒ
Improving communications systems within the Ministry of Interior and PNTL.
Private Sector:
ƒ Lack of dynamism
ƒ Legislation needs to be improved to boost investment
ƒ Promote friendly business environment
ƒ Government incentives very low
ƒ Further development of Labour Code
Civil Society:
Strenghtening capacity building
Decree law not in Conformity with the reality of the country
Financial means limited
Organisation of NGOs need improvement
Low understanding of their duties/role
ƒ
ƒ
ƒ
ƒ
ƒ
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
EC cooperation with PALOP & Timor Leste * Governance-10th EDF * Field Mission County by Country assessed Project Ideas
Governance cluster/Key-issue CODES (*)
Inputs from documental research
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Strengt. Institut. of Gover.TL WB April 2006
Right, Equality and Justice - April 2006
Strengt. Institut. of Gover.TL WB April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Social, Civil and Heritage Protect. April 2006
Right, Equality and Justice - April 2006
COUNTRY: Timor Leste
Items
New Voter Registration Cards
Trainning for election staff
Continous legal advice
Tecnical training for media (investigation journalism)
Improving uniformity in procedures
Strengthening management practices
Reinforcement of support services (translators, record keeping)
Awareness raising for the citizens on their rights and duties
Qualification for judges,prosecutors,public defenders,court clerks
Improving computerised information justice institutions
Introduction of standardised operational and admist. procedures
Training for managerial, operational administrative of PNTL staff
Development of specialised services of the PNTL
Improving communisation systems within MoI and PNTL
Adequate legal framework to boost investment
Security, Peacebuilding and Recon. April 2006 Promote friendly business environment
Strengt. Institut. of Gover.TL WB April 2006 Enhancing government incentives
Social, Civil and Heritage Protect. April 2006
Social, Civil and Heritage Protect. April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
1
1
1
3
9
4
1
Further development of Labour Code
Reinforcement of Civil Protection
Support to capacity building of NGOs
Promote the organisation of NGOs
Divulgate the role and duties of NGOs
Prevention and combat of domestic violence
3
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1.1.
1.2.
1.3.
1.4.
2.0.
3.0.
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
EC cooperation with PALOP & Timor Leste * Governance-10th EDF * Field Mission County by Country assessed Project Ideas
Governance cluster/Key-issue CODES (*)
Inputs from documental research
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Strengt. Institut. of Gover.TL WB April 2006
Right, Equality and Justice - April 2006
Strengt. Institut. of Gover.TL WB April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Right, Equality and Justice - April 2006
Social, Civil and Heritage Protect. April 2006
Right, Equality and Justice - April 2006
COUNTRY: Timor Leste
Items
New Voter Registration Cards
Trainning for election staff
Continous legal advice
Tecnical training for media (investigation journalism)
Improving uniformity in procedures
Strengthening management practices
Reinforcement of support services (translators, record keeping)
Awareness raising for the citizens on their rights and duties
Qualification for judges,prosecutors,public defenders,court clerks
Improving computerised information justice institutions
Introduction of standardised operational and admist. procedures
Training for managerial, operational administrative of PNTL staff
Development of specialised services of the PNTL
Improving communisation systems within MoI and PNTL
Adequate legal framework to boost investment
Security, Peacebuilding and Recon. April 2006 Promote friendly business environment
Strengt. Institut. of Gover.TL WB April 2006 Enhancing government incentives
Social, Civil and Heritage Protect. April 2006
Social, Civil and Heritage Protect. April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
Strengt. Institut. of Gover.TL WB April 2006
1
1
1
3
9
4
1
Further development of Labour Code
Reinforcement of Civil Protection
Support to capacity building of NGOs
Promote the organisation of NGOs
Divulgate the role and duties of NGOs
Prevention and combat of domestic violence
3
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5 Collected Contributions-EC and Other Institutions
Main suggestions and requests described in section 4 above were collected from State and nonState Actors, each one of them playing an important role within a specific area of concern.
Besides those typically sectoral (and also national) perspectives other important contributions
could as well be seized from dialogues held during the performance of the study.
Contacts of the Experts with the EC were fruitful and helped to place some of the raised
issues in context by properly interpreting and combining Country/CSP/NIP perspectives with
the ACP/EDF wider ones. Important exchanges of views took place with EC Representatives
both in Brussels central Offices (DGDEV and AIDCO) and at the local Offices (namely at
Maputo, Luanda and Praia).
Among others the following generic issues were the object of examination in meetings held
with the EC and were retained by the Experts for further analysis concerning the
determination of areas of cooperation and the Projects concerned:
•
•
•
•
•
•
•
•
•
Quality of partnership
Inter-Donors coordination
Role of Parliaments and of Courts of Auditors
Role of Civil Society and of NSAs
Role of the independent media
Decentralization/De-concentration
Electoral process
Justice and Law enforcement
Cross-cutting issues (gender in particular)
In a meeting held in Mozambique with UNDP Representatives it was acknowledged by the
Experts that a modern and comprehensive system for supporting the overall electoral cycle
exists and may be easily adapted to Portuguese language and to the PALOP&TL reality.
Although no in-depth analysis had taken place it was assessed that the CPLP (umbrellaOrganisation for the five PALOP, East Timor , Portugal and Brazil) provides the coordination
framework (often logistical too) for a number of Portuguese language thematic networks
and fora, with a variable degree of formalisation however. Among these the ones concerning
the Parliaments and the Courts of Auditors should be mentioned.
From the Portuguese Cooperation Office the Experts learned about the ongoing cooperation
between Portuguese law Enforcement Agencies and a number of their sister Organisations in
the PALOP and East Timor.
It also came to the attention of the Experts that both the UCCLA (network of the capital cities
of Portuguese-speaking Countries) and the ANMP (Union of Portuguese Municipalities) are
promoting (or intending to) a number of interesting initiatives targeted at the PALOP that
may converge with some of the cooperation issues concerned by this study. The same is
apparently taking place within the scope of Civil Protection but no details were available.
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In meetings held with NAO Offices, especially in Cape Verde, the following methodological
aspects were brought to discussion as far as this study is concerned:
•
•
Need for a flexible approach on Project identification at present stage of works;
more involvement from the ACP Partners would be advisable, which could include
some cross-checking of needs and priorities assessed between the NAO Offices and
the Entities and Services approached by the Experts;
The detailed design (Activities, Times and Costs) of the Projects issued from the
areas of cooperation determined should therefore take place at a next stage of the
ongoing programming process.
At all meetings held at both the EC and the NAO Offices the subject of coordination and
management of the overall Initiative was brought to discussion, as a critical aspect in the
feasibility of this new cooperation instrument irrespective of its material content. In fact
some severe constraints could be anticipated as a consequence of the non-regional nature (in
light of the Cotonu Agreement and the 10th EDF management provisions) of this multiCountry Initiative, as no single budget will be available and no RAO with formal decisional
capacity and authorization powers is likely to be appointed.
Adding to those expected difficulties the recent RIP PALOP II experience (specifically with
regard to budgeting estimates management), the need for an innovative coordination and
management model was clearly put forward, in order to avoid the otherwise highly predictable
pitfalls (annoying delays; friction among Actors; low efficiency and effectiveness).
Other aspects deserving proper attention from all Actors involved in the programming of the
new Initiative, which were the object of mention or debate in the meetings held at both EC
and NAO Offices, are:
•
•
•
Securing complementary approaches and synergies on certain project Components or
Activities on a cross-contribution condition with regard to some of the targeted Countries.
That is, providing a clear distinction and the appropriate dialogue between: i) the
elementary Actions funded by the new Initiative (these to be performed jointly or under
a common frame with the other participating Countries); and ii) parallel Actions, focused
on the same or similar areas or group-targets but conducted exclusively at Country level
(under the EC/NIP concerned or even funded by other Donors’ resources);
Securing continuity and synergy generated by the proper combination of the
Projects/Components/Activities/Actions to be funded and performed within the
scope of the new Initiative (in the 2009/2010- 2013/2014 time-frame) and all those
similarly aimed: i) that have been conducted in the recent past (eg: RIP PALOP II; EC
bilateral cooperation; funding by other cooperation Partners); and ii) that will be
conducted in the in-between future (that is: before 2009/2010)
Addressing and agreeing in due time the subject of the full (in principle by rule) or
partial (in principle by exception) participation of all six Countries in all planned
Activities, in association with the fact that every project must be funded by a mix of
resources to be withdrawn from the six NIP-budgets where the overall financial
envelope was distributed.
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5.1 Technical framework
The study concerned in this report is aimed to elucidate the nature and the material content
of a Cooperation Initiative focused on (Good) Governance and simultaneously targeted to a
group of Countries.
A substantial part of the study consisted of a field mission aimed at assessing all relevant
suggestions and requests in line with that purpose, by direct consultation with local keyActors. Before initiating the mission the Experts had therefore to set-up clear boundaries
allowing for practical decisions on what should (and should not) be accepted as a positive
contribution from all legitimate parties concerned. The preliminary questions placed were
therefore:
•
•
•
Which areas of cooperation should be targeted, within the overall concept of (Good)
Governance?
What categories of ideas/proposals were to be accepted in order to provide a list of
eligible subjects leading the determination of a structure of Projects?
How should cooperation be devised within the pre-designated group of six
Countries?
Next questions would logically be, in a moment when all contributions would be collected
and organised:
•
•
•
How to render compatible/comparable the inputs seized?
How to determine more/less interesting areas of cooperation?
How to build Projects out of selected areas of cooperation?
In the Inception Report that closed the preliminary stages of action (initial briefing; desk
study) some space was devoted to the discussion of the concept(s) of (Good) Governance. No
need was felt to further proceed with that line of research as the EC provided in due time
clear guidance on the instrumental framework to be used for the purposes of this study. That
tool is the 9-Clusters grid (displayed in Annex D, used in Annexes F, G and H) that has
recently supported the political dialogue EC/ACP aiming towards the programming of the
10th EDF and which ultimately led, for each one of the six Countries concerned by the new
Initiative, to the Governance Profile and the Governance Commitments documents.
During the field mission no questions were raised about the use of the grid for the purpose of
determining the scope of contributions sought by the Experts. It was furthermore assessed
that most of needs and priorities expressed by local contributing Actors fell within (at least)
one of the 9 clusters/topics, often in more than one simultaneously.
Most of the suggestions and requests collected during the field mission concerned clusters 1
(Political and democratic governance), 2 (Rule of law) and 3 (Control of corruption) and
cluster 4 (Government effectiveness). It was not always possible to avoid partial overlapping
in the classification of each individual contribution, according the logic of the grid (namely
clusters 1 & 2 and clusters 3 & 2). Dialogue on subjects concerning cluster 4 concerned often
the decentralization/de-concentration issue.
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Economic governance (cluster 5) also gathered a number of contributions, focused both on
the need of strengthening the private sector but also on the environmental protection issue,
in connection with management of natural resources. Quality of partnership (cluster 9)
obtained important contributions under its Non-State Actors strand/topic.
Social governance (cluster 7) gathered lesser attention from contributing Actors and the EC
delegations. In fact the strictly governance (instrumental) issues that concern the so-called
Social Sectors can be better understood (and dealt with) if examined in the light of
Government effectiveness (cluster 4). On the other hand:
•
•
the core social issues (Education, Health, Employment) are, traditionally, the object of
substantial support from a variety of sources, including EC bilateral cooperation and
a multitude of other Donors;
those issues usually also demand a national/local type of approach hardly
compatible with a multi-Country cooperation Initiative under which more
standardized solutions have to be devised and applied.
The Internal and external security (cluster 6) and the International and regional context
(cluster 8) deserved none or limited attention from the contributing Actors selected for
interviewing. In fact only the Migration topic was raised, in the sense of needs and priorities
put forward and in the perspective of cluster 2 (Rule of law) mainly.
As for the nature of eligible cooperative actions to be undertaken the Experts decided not to
exclude any possibility, that is: all suggestions would be accepted as long as the two basic
framework guidelines were respected, these being:
•
•
ideas indisputably fitting within the scope of one (or more) of the 17 secondary
Topics and 9 main Clusters in the Governance grid;
ideas fitted for implementation at group level, (that is the 6-Countries, altogether),
with the consequent exclusion of those visibly responding to needs and priorities of
one single Country only
As as preliminary assessment, typical modalities of Action for a multi-Country cooperation
would be the following:
•
•
•
•
•
Training (joint or common courses)
Interchanges (visits) and exchange of materials
Networking (including digital era facilities)
Design & experimentation of methodologies or tools for use in common
Edition of Publications, A/V materials or software for use in common
Other acceptable options would also be, with proper justification:
•
•
Technical assistance for the direct benefit of a certain Country (provided by Experts
to the Countries), as long as concerning an issue of common interest;
Supply to the Countries of certain equipment, materials, consumables or services, as
long as on an equitable basis (even if needs would differ from Country to Country)
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The performance of the field mission confirmed this preliminary assessment as all types of
action listed above were identified (and duly justified in most cases) in the
suggestions/requests collected by the Experts. Ideas discarded on grounds of coherence of
criteria or material impossibility concerned namely: hiring of extra personnel, acquisition of
vehicles, construction or expansion of buildings. Suggestions formulated in general terms
and vague concepts were not considered for convergence analysis.
Cooperation among the six Countries was devised as being based on estimated affinities on
needs and priorities, these having been theoretically conveyed to the Experts, to a large
extent, through the suggestions and requests collected during (or immediately after) the
meetings held with the local Contributors, during the field mission. The EC, the NAO Offices
and other Entities also contributed to the determination by the Experts of the prospective
areas of cooperation and the Projects concerned. A documentary analysis of the 10th EDFrelated Governance Profiles and Governance Commitments concerning the six Countries
provided a third source of indicative information for the purpose of establishing the results
of this study.
The Experts waited for any direct and fresh inputs from East Timor until the very start of
report writing but those were not available in spite of reiterated requests. Needs and
priorities pertaining this Country were thus exclusively assessed and listed out of desk work
and the Experts’ best interpretation based on the more recent materials available.
Projects to be performed within the scope of the new Cooperation Initiative should concern
common solutions for common problems. In practical terms a Joint or Common Activities should
be devised, in accordance with the following understanding:
•
•
A Joint Activity will be simultaneously performed with the (synchronic) participation
of all Countries (eg: one training course, based in one Country, with the participation
of Trainees from all Countries; one seminar for the exchange of Good Practices,
gathering Participants from all Countries; one survey to be conducted by means of
one inter-Countries mixed team of Experts);
A Common Activity will concern all the Countries but may be developed on each
Country separately, under asynchrony as a rule (eg: the same training course
conducted on each of the Countries with local Trainees only; Technical assistance, on
a subject of common interest, delivered in each Country, in accordance also with any
local particularities or needs; one common-interest publication edited with one core
text but also with Country-related variations).
It should be noted, at this stage, that the issue of the compulsory (or not) participation of all
Countries in all Activities (or its elementary Actions) will have probably to be debated in due
time by all those concerned. Notwithstanding and learning from experience it does not seem
that one single and rigid rule should always apply on this matter, as long as the principles of
shared and equitable benefits and of inter-Countries solidarity will apply to the overall
Initiative and to each one of its Projects.
The second batch of questions raised above will now be addressed by means of a summary
description of the tools used by the Experts for the purposes of data collection and data
processing.
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A preliminary remark must be made regarding the methodology used concerning the
approach to local Contributors in the field mission stage. On account, among other aspects, of
time-constraints the selection of the local Entities or Services where an interview by the
Experts would take place was performed on an entirely de-centralized basis (although the
Experts have provided an indicative master-list of potential targets), that is: in each Country
the identification of those Organisations and the setting-up of the schedule for the meetings
was performed by the EC Delegation, the NAO Office or both. As a predictable consequence
there was a considerable variety of Contributors among all five Countries visited. Regarded
from its positive side such a fact has allowed for a wide perspective of interests and views
throughout the overall PALOP current reality; seen from another angle however the absence
of a total matching among the selected Contributors did not facilitate the quest for
convergence on needs and priorities in order that an indisputable set of areas of cooperation
could be built.
Experts designed four tools aimed at collecting raw information: two concerning already
existing data (T1 and T2) and the other two regarding the new inputs resulting from
interviews to be held during the field mission stage (T3 and T4).
T1 and T2 were used to record information seized from: EU/Countries cooperation items
targeted within the scope of the 9th EDF; Weaknesses listed in the Governance Profiles prepared
by the EC; key-items (positive action) laid in the Governance Commitments prepared and
signed by the Governments of the six Countries. T1 provided an overall reading, assembling
the 3 sources of information; Government Commitments were recorded at cluster level only.
T2 provided a more detailed focus on the newest and strongest inputs available: the
Governance Commitments, detailed now by item.
The analysis of the recorded entries, by the combination of the T1 and T2 tools, allowed for
the determination of certain areas of convergence and their hierarchical organisation as well
(see section 5.2).
T3 was employed to record (after a preliminary exclusion of any non-eligible items) the
suggestions and requests collected in one given Country, in the interviews held with all
Contributors met by the Experts; those were synthesised into short sentences, in order to
render possible the insertion in the table and listed by order of succession.
T4 was applied in the subsequent performance of Primary inter-Countries convergence
assessment. This was achieved by comparing each entry with similar statements from other
Contributors, after all items from all Countries were aggregated (by default according to
clusters & topics numerical order).
As reported above the ideas submitted by the Contributors to the Experts (T3 and T4 tools)
went through a first line of processing, consisting of rejection of all those non-eligible. The
eligibility judgement concerned chiefly the common interest criterion, that is: eligible ideas
should be able to be translated into Joint or Common prospective Actions/Activities/Projects.
From this baseline onwards the Convergence criteria applied to T4 tool, with a minimum of 2
scores (mention by Actors in 2 different Countries) and a theoretical maximum of 6 scores
(recorded in all 6 Countries; in practical terms 5 of these only as information issued from
Timor Leste was almost non-existent). Higher Convergence is mentioned when at least 3
Countries coincide on a specific suggestion/request (or on a very similar one).
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The results obtained out of the T4 tool are discussed below (section 5.2. of this report).
Secondary (inter-Countries) convergence assessment is furthermore discussed in the same
section, through the analytical combination of those with data processed out of the T1 and T2
tools.
Experts are aware of the fact that the Convergence technique has a limited potential in the
context of this study and that a considerable degree of subjectivity was also impossible to
remove in this case. However no other technique with a higher degree of rigor and
transparency could be identified or devised.
Besides the strict Convergence Analysis other important aspects were taken into account in
the process of determining the areas of cooperation specified in the ToR for this study (and the
Projects concerned), these being:
•
•
Lessons learned from the past, especially from the RIP PALOP (see 5.3.1.)
Other relevant contributions suggesting innovative approaches or the generation of
additional synergies (see 5.3.2.).
5.2 Assessed convergences (PALOP and East Timor)
As explained above the quest for convergence among Good Governance-related needs and
priorities of the 6 targeted Countries was performed under a combined 2-levels procedure:
a) Primary:
Based on recent (August/September, 2007) suggestions and requests recorded by the
Experts at interviews (PALOP) or obtained from documentary sources (EastTimor)
b) Secondary:
Resulting from the combination of the assessment mentioned immediately above with
the one concerned with the desk study stage of this assignment (August, 2007).
Documentation examined at that moment regarded, although for the PALOP group only:
the 9th EDF cooperation domains; the 10th EDF: Good Governance reports (weaknesses
assessed); CSP-Country Strategic Papers ; Governance Commitments.
In all circumstances the basic frame for data organisation and display is the 9-Clusters grid
(see the original template in Annex D, used in the overall programming of the 10th EDF for
addressing the Good Governance issue within the scope of the political dialogue EU/ACP. For
practical purposes (instant reading; cross referencing) a simple and intuitive code was used
and can be found in the table immediately below.
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EC cooperation with PALOP & Timor Leste * Governance-10th EDF* Areas of cooperation and Projects Identification study
Clusters and Key-issues codification for cross-reference purposes
Governance Cluster (10th EDF)
1.Political&Democratic Governance
2.Political Governance-rule of law
3.Control of corruption
4.Government effectiveness
5.Economic Governance
6.Internal and external security
7.Social Governance
8.International and regional context
9.Quality of partnership
Key issues on Governance Profile Asssessment Grid
CODE
1.1.
1.2
1.3
1.4
2.0
3.0
4.1.
4.2.
5.1.
5.2.
6.1.
6.2.
7.0.
8.1.
8.2.
8.3.
9.1.
9.2.
9.3.
Human rights
Fundamental freedoms
Electoral process
Principles of constitutional democracy
Judicial and law enforcement system
NA
Institutional capacity
Public finance management
Private sector/market friendly policies
Management of natural resources
Internal stability/conflict prevention
External threats and global security
NA
Regional integration
Involvement in regional peer review mechanisms (APRM)
Migration
Political dialogue
Programming dialogue
Non-State Actors
Primary-level convergence analysis was performed in accordance with the following
methodological details:
•
•
•
•
•
•
Country by Country records can be examined in Sections 4.1.1. to 4.1.6. above, by
directly reading from the Tables concerned: T3-Angola, T3-Cape Verde, T3-Guinea
Bissau, T3-Mozambique, T3-São Tomé e Príncipe and T3- East Timor
Tables T3 for each PALOP record sentences as close as reasonably possible to the
original statements delivered at interviews; These contributions were listed in
accordance with the chronological sequence of the meetings held in each Country;
every contribution is systematically assigned to one or more key-issues of the Clusters
grid
Contributions considered by the Experts as not eligible for the purposes of this study
were not recorded in the T3 tables (eg: subject not strongly related to Good
Governance; subject concerning a typical local circumstance, unlikely thus to become
the object of a common or joint approach by the 6 Countries)
Data pertaining to East Timor was seized from documentation made available to the
Experts during the briefing & desk study phase; The items concerned were also
displayed in one T3 table
An all-countries combined record of all eligible contributions, organised by sequence
of Clusters (and its Key-issues when applicable), is displayed in Table T4 which can
be found in Annex H hereinafter
Similar or mutually complementary contributions were merged into one new
sentence when recording on the T4 table; additional exclusions at this stage regarded
mainly generic formulas (eg: modernizing Public Administration); A total of 248 original
entries (T3) could thus be converted into a new total of 115 items (T4)
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•
•
Each individual contribution in the T4 table is always referred to one main key-issue
(dark square mark); additional references to other clusters or key-issues were also
recorded when applicable (grey square mark)
All conclusions on convergence and the extracted relevance concerned were drawn
out of the T4 tool (T3 tables are intermediary tools in this process); nevertheless the
following table elucidates the distribution by Country of the originally seized
contributions.
93
1
ANG
RCV
RGB
MOZ
STP
RTL
Total Contributors
52
64
39
57
51
23
Total Items
9.2.
9.1.
8.3.
COUNTRY
6
2
2
1
2
3
40 12
56 16
34 14
48 20
47 17
23 NA
2
5
2
5 16 286
248 Key issue level compilation
23
9
248 Cluster-level compilation
2
4
Total References
24
2
9.3.
9 34 17 33 47 8 48 3 19 7 10
1
5
8.2.
7.0
2
4
7
7
2
3
8.1.
6.2.
6.1.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1
3
1
11
1
2
3
6
1
3
4
4
5
1
6 12
1 1
9 7
19
3 11 1 4
9 8 4 8 2
5 6 3 7
1 3
9
5.2.
5 5
2 12
5
1 7
5
1
1.3.
1.2.
1.1.
Governance key-issues within clusters used in 10th EDF
51
26
10 24
4
47 8
4
5
6
8
2 3
7
Governance cluster in use in the 10th EDF
286
The following findings and conclusions may be extracted from the available information
(Annex H):
I.
A total of 115 contributions (that is: prospective themes for future multi-Country
cooperative action) were retained by the Experts; those were the object of a total of 172
independent mentions (references), all the 6 Countries considered; the overall
convergence rate is therefore 1,5;
II. The following table summarises the following numerical expression of convergence
extractable from T4
Governance key-issues within clusters used in 10th EDF
1.1. 1.2. 1.3. 1.4. 2.0. 3.0. 4.1 4.2. 5.1. 5.2. 6.1. 6.2. 7.0. 8.1. 8.2. 8.3. 9.1. 9.2. 9.3.
8 24 15 23 33 4 23 0
70
1
6
5
5
0 13 0
0
0
23
11
5
0
33 4
13
4
5
6
8
2 3
7
Governance cluster in use in the 10th EDF
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2
9 172
13
9
172
69
III. Interpreting the table immediately above allows for the following conclusions:
ƒ
ƒ
ƒ
ƒ
ƒ
Political and democratic governance is the major concern under a single cluster
perspective (41% of total references).
Associating clusters 1 and 2 (that is the whole Political governance universe) will
increase the level of concern to 61% of the total recorded references (cluster 8
obtained no references).
Associating the 2nd highest ranking cluster (Rule of law, weighting in itself 20%) with
the particular aspect of Corruption (cluster 3) will lead to 22% of total incidences.
Governance effectiveness (cluster 4) accounts for 14% of total references.
All other clusters obtain a relative incidence in the total of recorded items below the
2-digit mark.
IV. Another look at the T4 tool allows for some further conclusions on the subject of
assessed inter-Countries convergences, as reflected in the next table
70 2
30 1
9
2 1
1
5
5
2
1
4
3
1
4 11 4 16
8 7
2
1 1
1
2
2
3
1
2
*
*
11
1
1
1
5
1
Intensity of convergence
9.1.
*
9.3.
8.3.
*
9.2.
8.2.
7.0
*
8.1.
*
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance key-issues within clusters used in 10th EDF
0
1
2
3
4
5
6
NO MENTION
1 Country only
2 Countries
3 Countries
4 Countries
5 Countries
6 Countries
Nr of contributions recorded (all 6 Countries)
V. Immediate interpretation of figures displayed immediately above leads to the following
conclusions:
•
•
•
•
•
Out of a total of 115 contributing items 70 reflect no convergence
A first level of convergence exists regarding 30 of the 115 items examined
A considerable level of convergence applies to 9 all of the items listed
A high level of convergence regards 2 of all items displayed
A very high level of convergence concerns 1 item of all those recorded
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VI. Further examination of the same table also allows for the following understanding:
•
•
•
Strongest convergence pertains to cluster 2
High and Considerable levels of convergence concern clusters 1, 4, 6, 9
Cluster 5 and 7 deserve some degree of convergence also
VII. Experts believe that a somehow different distribution of the domains of convergence
might result if all the Contributors were invited to re-formulate their suggestions and
requests, in light of the overall results that are now available; under such circumstances
a higher degree of convergence would probably be obtained with regard to the
prospective areas of cooperation
The secondary-level convergence analysis suggested by the Experts will allow for combining the
conclusions listed above with additional information seized from the T1 and T2 tables
displayed in Annexes F and G in this report.
Table T1 (Annex F) provides an overall picture of converging perspectives among the PALOP
concerning both historical information (9th EDF) and recent analysis and intentions that regard
the coming 10th EDF. Analysis is provided at aggregate cluster-level only but provides a combined
inter-Country overview and the possibility of examining, side by side, findings pertaining to 4
different sources: 9th EDF domains of cooperation and 10th EDF background (CSP stated policies;
Governance Profile assessment of weaknesses; Governance Commitments agreed).
A summary analysis of convergence allows for the following comments:
•
•
•
CSP contributions were not conclusive, at least at the desk-study stage
The 9th EDF sole area of convergence concerns key-issue 5.1.
Assessed weaknesses in Governance Profiles recommends cooperative action focused
on clusters 2 and 4
Commitments agreed regard clusters 2 and 3 and also the key-issue 5.2
Overall convergence pertains to both clusters 2 and 4
•
•
The criteria used for determination of positive convergence were:
•
•
•
•
For the 9th EDF: at least 4 Countries
For the Governance Profile assessed weaknesses: all 6 Countries
For the Governance Commitments: all 5 Countries with available data
For the aggregation criterion: met by at least 2 of the 3 lower criteria
The T2 tool (Annex G) provides a more detailed view of the 10th EDF background, through
the assessment of itemized commitments duly referred to Clusters key-issues (PALOP only
as no equivalent information was available for East Timor). Higher convergence (criterion: at
least 4 Countries) can be found with relation to the following domains of Good Governance:
•
•
•
•
Electoral process (key-issue 1.3.)
Control of corruption (cluster 3.)
Public finance management (key-issue 4.2.)
Political dialogue (key-issue 9.1)
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The additional contributions brought to convergence analysis through the information
recorded in the T1 and T2 tools provide the basis for the following conclusions:
1. Cluster 2 and 4 are strongly confirmed as being in the core of the needs and
priorities that may be addressed by the new initiative;
2. Clusters 1, 3 and 9 emerge as areas that should also be considered
3. Cluster 5 would have also shown as convergent, under a less demanding
combination of criteria.
5.3 Complementary perspectives
5.3.1
Lessons learned and continuity (RIP PALOP)
The RIP PALOP instrument, that has supported the development cooperation between the
EU and the PALOP group of ACP Countries for many years (7th to 9th EDF), provided a
diversified field for experimentation on multi-Country cooperation. A number of important
successes and also a few set-backs were recorded during the preparation, implementation
and evaluation stages of the 1st and 2nd editions of that regional programme, which was
structured as a set of Projects, of a sectoral or thematic scope.
Projects aimed to respond to previously assessed common needs and priorities of the PALOP
taking advantage of the synergies generated by the institutional, cultural and linguistic
mutual affinities. More recent experience concerns the RIP PALOP II, which convention was
signed in 1997 and concerns the following projects (besides 4 instrumental facilities):
a) concluded
- Statistics 1 (2003-2007)
- Justice 1 (2003-2006)
b) ongoing
- Public Administration (2003-2008)
- Justice 2 (2006-2008)
c) about to start (estimated period: 2008-2009)
- Statistics 2
- Health
- Employment and Training
- Culture
By the time this report is being prepared any inputs under the label of lessons learned can only
be extracted from the projects listed under a) and b) above. For methodological reasons those
will be listed under two separate titles, as displayed below: Strengths - good practices; and
Weaknesses - mistakes or shortcomings. Assessment of the topics concerned was directly
performed by the Experts thus reflecting their own opinion only.
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A-Strengths (positive inputs; good practices to explore)
−
Joint actions, where face-to-face interaction existed among persons from different
nationalities; this was the case of training courses, workshops/seminars and mixed taskforces; Participants reported that there was a lot to be learned by comparing experiences
and enlarging perspectives;
−
Informal networking and spontaneous bilateral cooperation beyond the boundaries of
the RIP PALOP or as a (non planned) consequence of the Project (eg: South-South
bilateral agreements for technical assistance);
−
Use of certain innovative methodologies or tools, including:
•
•
•
•
•
•
Video-conference for intensive training
Blended-learning (traditional + eLearning)
Web-site as a virtual library
Web-site as a communication media
Edition of selected training manuals under book-format
Tandem teaching and mixed (inter-Countries) teams of Trainers
−
Solid Project/Programme back-up through rear technical assistance, on a permanent
basis;
−
Solid Project anchoring in each Country by means of a permanent/semi-permanent
structure of duly selected Focal Points;
−
Discipline and standardization in the technical and administrative back-up of Project
preparation, performance and report (eg: training dossiers; systematic files; templates);
−
The positive achievements resulting from the previous overall RIP PALOP coordination
experience, namely the temporary instrumental projects that were set-up for the purpose
of launching the RIP PALOP II
−
Direct involvement of higher levels of decision in each Country in the coordination
processes (Steering Committees; selection of Participants in joint actions);
−
Transparency and public disclosure of outputs and results of the Projects (eg: use of web;
media-friendly attitude);
−
Additional funding (beyond EDF allocations) from EU countries whenever a special
interest may exist.
B-Weaknesses (negative inputs; mistakes/shortcomings to avoid)
−
Excessive time elapsed between Project identification and Project start-up;
−
Projects exclusively targeted to State Actors, with exclusion of civil society and private
sector;
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−
Insufficient visibility of the Programme and of each of the Projects, at Country level;
−
Problems with the selection and mobilization of Participants for joint actions (delays; bad
profiles; misinformation; absence at short or no notice);
−
Travelling and logistical pitfalls regarding joint actions (high costs; inadequate travelling
schedules; ill-equipped facilities);
−
Insufficient or sub-optimal exploitation of innovative methodologies and tools
(preference for more traditional approaches);
−
Insufficient attention devoted to cross-cutting issues;
−
Practical difficulties in achieving inter-Projects synergies both at overall PALOP level and
inter-Donors coordination at Country level;
−
Lack of flexibility on programming and budgeting models adopted with regard to the
evolution of needs and priorities during the period of performance;
−
Coordination and management recurrent problems and shortcomings (with impact on
effectiveness, efficiency and sustainability):
•
•
•
Financial flows (delays)
Appointment/hiring of staff (discontinuities)
Procedures (long chains; low dynamics; heavy burdens)
Some of the ongoing RIP PALOP II Projects are bearers of a high potential for multiplication
of outcomes and results (eg: replication of training courses; diffusion of new methodologies
or techniques), which is an interesting feature under the perspective of ownership. This is
certainly the case of the Public Administration Project and, to some extent too, the Justice
Projects, as these have provided, among other achievements:
•
•
Training and certification of PALOP Trainers in certain key-areas;
Support to the establishment or strengthening of Training Centres
The Public Administration Project developed pilot training courses in 21 different areas. Local
Trainers were certified and training manuals were prepared for each one of those areas.
However the first round of in-Country replication could not take place so far concerning 15
pilot-courses on account of time and budget constraints. Should it became impossible to
replicate those actions within the scope of RIP PALOP II continuity could be secured in all
those courses directly concerning Good Governance, namely the following:
•
•
•
•
•
Municipal management
Law making
Evaluation, planning and management of the territory
De-bureaucratisation and administrative procedures
Public budgeting techniques
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The Justice projects trained local Trainers and also provided training manuals for the
following professions: Magistrates, Court Officers, Notaries and Registry Officers, Prison
Wardens, Prison Security Officers, Prison Social Officers. No in-Country replication was
however planned or took place to the best knowledge of the Experts. In the meantime new
important areas of concern have emerged, where the training of Trainers may also be
relevant, this being the case in the Criminal Investigation professions. Some provision for
continuity could probably be appropriate under this subject.
The Justice Projects supplied video-conference equipment to Judiciary Training Centres in
Angola, Cape Verde, Guinea-Bissau and São Tomé e Príncipe (Mozambique already had
one). Those facilities are not likely to be used, to their full capacity, by the Judiciary
personnel alone. Mediating Inter-Services/Inter-Sectors cooperation at Country-level could
probably be a specific concern of the new Initiative, as far as the active promotion of
innovative/low-cost training solutions is concerned.
One of the components of the Justice Projects was organising and putting into operation via
internet a database of the PALOP legislation and jurisprudence. An international restricted
call for offers aimed at the provision of the technical services concerned (database over the
existing LEGIS-PALOP web-site) is in progress at time of report-writing. The winning Bidder
is expected to deliver the main outcome by or before June 2009. Post-project maintenance
(data updating) and other management options are to be suggested by the services provider
but the sustainability of the whole operation is not guaranteed at this stage. Supporting the
continuity of this important instrument could also be the object of a specific provision within
the scope of the new Initiative.
The Statistics 1 Project has allowed for important advances in methodological and
instrumental aspects of statistical data collection and analytical support, under a common
PALOP approach, namely via the adoption of ICT tools. However time and budgetary
restrictions did not allow for the entire deployment of certain lines of work of the utmost
importance in view to the modernization of those Countries’ statistical backbones. Neither is
there a full guarantee that all these aspects may be the object of further or conclusive
attention through the performance of the Satistics 2 Project (which remains to be approved at
this time). Continuity of past efforts is therefore advisable in such areas as: nomenclature
standardisation; conjuncture indicators; social indicators; environment indicators).
Besides all the aspects mentioned immediately above, consideration should also be taken of
the consensual agreement already existing between the EC and the NAOs which regards the
ex-Macroeconomic Institute. That pre-engagement concerns the transference, from the
framework of RIP PALOP II to the new Initiative, of a financial provision intended to
partially support the establishment and operation of the (now called) IFGEF-Training
Institute for Financial and Economic Management, which is to be based in Angola. Other
Donors will also be involved in this basket funding operation, for which purpose a convention
will reportedly be signed in the very near future between all the 5 PALOP (East Timor is not
a founding member however and this question should probably need to be examined in the
future).
The issue of continuity (that is: contributing to the overall sustainability of RIP PALOP II and
maximizing any possible synergies between that programme and the new Initiative) cannot
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however be entirely dealt with at this stage, on account of the fact that 4 projects are still due
to start: Statistics 2, Health, Employment and Training and Culture. In due time all relevant
contributions concerning the (intermediary and final) results of these will consequently have
to be assessed and duly reflected in the preparation and implementation works of the
PALOP&TL Cooperation Initiative.
That particular responsibility, along with the need for further advancing of programming
regarding the Projects and the TCF suggested in this report, directly links to the subject of
the ongoing process of contracting long-term technical assistance services regarding the RIP
PALOP II coordination and programme-level management. In fact the ToR concerned
specify a specific contribution for the smooth inter-programmes transition within the wider
scope of advice and support to the RAO.
5.3.2
Innovative aspects and additional synergies
The PALOP&TL Cooperation Initiative represents, as currently understood, an innovative
approach to a multi-country partnership operation embracing the area of (Good)
Governance. In fact:
(i)
(ii)
it encompasses a balanced blend of knowledge acquired from direct recent
experience with an extensive and open process of consultation among the relevant
Actors;
it has further allowed for examining a number of potential third parties
contributions (transferable good practices or co-ordinated actions) which may
provide interesting opportunities for innovation and further synergy generation.
With the aim of achieving better results and impacts under the combined perspectives of
relevance, efficiency, sustainability and ownership a number of possibilities may be explored
by conveying to the new Initiative, from reliable Organisations or in association with these,
models, inputs or operational capabilities as explained below. Some of the domains
identified for this purpose are: electoral process, inter-Donors coordination, development of
municipal administration, private sector development and also the overall PALOP& East
Timor networking.
A-The entire Electoral cycle process grasps this innovative aspect that can be achieved
through a series of actions.
The establishment of a network for the lusophone management bodies illustrates one of the
features to offer a common framework to optimize the use of current experiences and new
ones.
It should include support to civil society in electoral areas, support to an independent media
for entire elections process coverage, support network for parliaments, provide technical
assistance to all parties and promote institutional development of the EMB.
The support to the entire electoral cycle (including legal framework, planning and
implementation, training, voter registration, electoral campaign, voting operations/
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verification of results and post-elections issues) can be supported by developing existing
tools (eg ACE- The Electoral Knowledge Network and Knowpolitics –International
Knowledge network of Women in Politics) and new ones.
The existing tools and networks can be seen as advantageous instruments of transferable
know-how on elections related issues, of which some are currently available in French,
Spanish, and English but not yet in Portuguese.
It can also contribute to a sustainable electoral management for a shared stakeholders’
community and also can contribute to avoiding the cost of support for every time elections
are held.
After concerted dialogue with Partners the following issues should eventually be addressed:
(i)
(ii)
(iii)
(iv)
Definition of the collaboration procedures between EC and a possible implementing
partner (eg UNDP) and other institutions related to the subject
Detailed definition of the methodologies to be adopted under the implementing
partner and/or other networks
Design of the overall institutional framework for the networks/tools, with special
emphasis on the need to harmonize existing approaches, procedures and
methodologies;
Fine-tuning for an integrated capacity-building.
The election related innovative approach should be a concept to encompass integrated policy
and capacity building by exchanging the vulnerabilities and specificities of each country and
adaptation of bundling tools.
B - In line with the Official Development Assistance to Mozambique Database (ODAMOZ)
seen as a positive experience for Mozambique, it can be tackled as an innovative aspect
under this initiative for the PALOP+TL.
The ODAMOZ provides a concept which can be easily transferable to any other developing
country and it represents an important cooperation toolset developed to capture information
using certain criteria. It has become a central electronic tool for donor coordination and
harmonisation as well as a monitoring tool for Aid Effectiveness.
The ODAMOZ can be seen as a benefit sharing to a better coordination on aid effectiveness
and also a way to avoid overlapping financial allocation resources and duplication of
programmes/projects.
C - União das Cidades Capitais Luso-Afro-Américo-Asiáticas (UCCLA-Union of Luso-AfroAmerican-Asian Capitals) has been developing cooperation at the local/municipal level.
The proposed cooperation is mainly on inter-municipal level and working with
groups involving local authorities and civil society.
thematic
It functions as specialised sub-networks for the identification of common problems,
dissemination of good practices in priority areas where good governance plays a central role.
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It can be seen as an innovative approach by covering all continents and by having an
incidence on the local development and good governance areas.
D - Complementary synergies can be encountered in the work developed by the Community
of Portuguese speaking countries (CPLP) acting as a multilateral forum being mutual
cooperation, one of the areas of intervention in an array of subjects among its members.
Some of the overreaching synergies and links found were in thematic areas of cooperation as
environment, chambers of commerce, gender issues and civil society. These have been
established and experiences of good practices have been exchanged, however synergies in
the framework of this initiative should be reinforced by broadening scopes of projects, and
increases in efficiency by establishment a formal structure of cooperation among all
participative countries.
E-The World Bank has promoted an initiative called matching grant which is basically a fund
basket attributed through the Cape Verdian Chambers of Commerce and with the approval
of the Government towards the micro-small-medium enterprises.
It has the objective to support micro, small and medium enterprises to increase the transfer
of modern technologies, in particular concerning modern management and production
techniques, quality systems and market trainings.
The matching grant is a financing instrument that attributes 50% of the total agreed amount
for micro-small and medium size enterprise operating only in the local market.
The matching grant can be a complementary synergy which congregates the 6 Countries as a
financing instrument for an efficient and rational use of funds that responds to the needs of
the private sector (micro-small-medium size enterprises).
5.4 Assumptions, constraints and risks
Main assumptions at current programming stage can be listed as:
•
•
•
No major changes will occur concerning the framework of cooperation between the EU
and the group of six Countries concerned by the new Initiative or among those
Countries themselves
A final agreement concerning the structure of the contents of the overall Initiative
(including the precise determination of the Projects and of its basic components) will
be reached in due time considering the 10th EDF implementation schedule and the
applying regulations
Coordination and management principles, mechanisms and basic tools applying to the
new Initiative will be agreed among all parties involved within a timeframe
compatible with the completion of its final programming and its timely
implementation.
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•
•
•
•
•
Implementation of all projects and related actions within the scope of the new
Initiative may and will be implemented with a reasonable degree of simultaneity so
that relevant inter-project synergies may be obtained
Adequate linkage between the RIP PALOP II and this Initiative will be secured,
namely by means of a timely availability of reports and of any relevant material
outputs of the former, namely those concerning ongoing and new projects
10th EDF financial resources allocated to the Initiative will be available, for all practical
purposes, by or before the start-up of implementation
Should that be the case, coordination with co-Donors and any other Agencies that may
become associate Partners in the overall implementation process, will take place under
a transparent, cooperative and smooth pattern of operation
All Projects will be implemented within a reasonable delay with regard to current
identification stage, in order to avoid major mismatching between established
objectives and actual needs and priorities (as opposed to those initially targeted)
Assessed risks concern mainly, besides any force majeure circumstances, the non observance
of one or more of the Assumptions listed above.
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6 Proposal of Contents
(Areas of Cooperation/Prohects)
6.1 Criteria for selection and organisation
The determination of the prospective areas of cooperation on which the content of the new
Initiative is to be built should be based, from a technical point of view, on the combination of
different contributions:
•
•
•
The convergence analysis provided within the scope of this study of which the results
are presented in Section 5.2.
The lessons learned from past experiences of cooperation between EU and the ACP
countries, especially (see Section 5.3.1.):
- Complementarity and continuity regarding the RIP PALOP II
- Cross-cutting issues on EU development cooperation
The assessment of value-added innovative and synergetic approaches, inspired by
good practices or potential opportunities originated in other development
cooperation Players (see Section 5.3.2.)
Experts worked on an overall proposal aimed at combining all the previous guidelines and
criteria, under what they believe to be a balanced perspective. A different understanding,
namely of a political nature, of structural and conjuncture factors may however provide
different solutions for the same reality. On the other hand the societal and economic
dynamics, in all the Countries concerned by the new Initiative, will require that the Experts’
suggestions (and the background data) will be validated if the implementation of the Project
will take place beyond a reasonable delay.
Areas of cooperation should indeed concern the following clusters: 1, 2, 3, 4, 5, 6 and 9 of the
9 brackets Governance grid. Partial overlapping of clusters 1&2 and 2&3 are inevitable; cluster
4 encompasses also a number of important subjects that were referred to by the Experts to
clusters 2, 5 and 6, among others.
Certain subjects emerging during the field mission or the desk study although not supported by
strong convergence indicators were nevertheless retained for inclusion within the elected
areas of cooperation. Judgement on this matter was based on the notion of its outstanding
relevance on account of contextual reasons in association to the fact that the interviews held
did not concern the same Entities in all Countries.
The main areas of cooperation selected by the Experts were the following:
¾ Consolidation of democracy and rule of law in a wide sense, including: the electoral
process, the judiciary systems, the law enforcement systems, the control of
Governments by independent bodies and the fight against organised crime and
corruption
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¾ Effectiveness and efficiency of State Administration, at central and local levels,
which will include: the decentralisation and de-concentration efforts, Citizen-friendly
facilities, Citizens’ participation, and also improving the response of Administration
in certain areas of poor quality of service to the Citizen or the Enterprise
¾ Development of private sector and of a business-friendly environment, comprising:
promotion and support of competitive business, stimuli to the creation of micro and
small scale enterprises, support of reliable Business representation bodies,
development of the economy regulatory capability of the States
¾ Quality and sustainability of cooperation-aimed partnerships, in a wide sense of
the concept, which will encompass: supporting the role of civil society and the
plurality of Actors and voices, fostering the observance of the EU/ACP agreed crosscutting issues, developing the sustainability of partnerships, including ownershipfostering mechanisms
¾ (previous engagement concerning) The ex-Macroeconomic Institute
¾ Instrumental aspects, which will concern: guarantee of continuity with regard to the
RIP PALOP II as well as the adjective strands of the new Initiative (coordination,
overall management, evaluation and audit).
Considering, among other aspects, that the ToR for this study prescribe the identification of a
limited number of Projects the Experts recommend that each one of the first 4 areas of
cooperation elected will be assigned one multi-components Project.
The ex-Macroeconomic Institute would be the object of a financial contribution for the basket
fund concerned. The Instrumental aspects listed above would be funded by means of a TCFTechnical Cooperation Facility, as was the case in the RIP PALOP II.
During the performance of the study it became clear that no detailed identification of
Projects would be materially possible or even reasonable at this stage of affairs. Therefore 4
Project Fiches were indeed prepared as according to the ToR (see Appendix) but they reflect a
pre-identification approach, that is: although Objectives, Purposes, Expected Results and a
number of other technical items were displayed no Activities, times and costs were included.
Section 5.2 below provides a reasonable description of the envisaged Projects and their main
Components, these being (in practical terms) the suggested sub-areas of cooperation.
6.2 Projects and their components
In accordance with criteria and contextual factors explained above the Cooperation Initiative
should provide the financial and overall management umbrella for:
-
the integral funding of 4 main projects responding to prospective areas of
cooperation (high degree of convergence among the targeted Countries)
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-
a financial contribution for a basket fund aimed at supporting the start-up and the
running costs for the 4 initial years of operation of the IFGEF (former Macroeconomic
Institute), initially planned for the RIP PALOP IIa TCF (Technical Cooperation
Facility), intended to foster ownership and also to secure full continuity and
reinforced synergies with regard to the RIP PALOP experience -an overall financial
reserve.
Following the prescriptions of the ToR for this study projects are to be submitted through
project fiches (model supplied by AIDCO after the first briefing in Brussels). Although it was
not feasible to provide at this stage programming details beyond the project-component level,
four project fiches can be found as Annex I to this report.
Suggested Project Components (see summary presentation below) reflect the plural nature of
the cooperation areas identified and also the synergetic inputs yielding from the further
contributions assessed.
Experts recommend that the following four projects will be retained, each one of them
targeting one large domain where consensus on needs and priorities in the six-countries
universe seems to be established beyond a reasonable doubt:
Pr1-Support to consolidation of Democracy and the Rule of Law
• Clusters 1,2, 3 and 6 of the Good Governance 9-brackets grill
• Suggested EDF funding: 10M€ or 30% of the overall envelope
Pr2-Support to improvement on the quality and proximity of Public Services
• Cluster 4 of the Good Governance 9-brackets grill
• Suggested EDF funding: 7M€ or 20% of the overall envelope
Pr3-Support to reinforcement of economic governance and private sector development
• Cluster 5 of the Good Governance 9-brackets grill
• Suggested EDF funding: 6M€ or 20% of the overall envelope
Pr4- Support to consolidation and sustainability of the cooperation partnerships
• Clusters 1, 7, 8 and 9 of the Good Governance 9-brackets grill
• Suggested EDF funding: 5M€ or 15% of the overall envelope
The suggested allocations of EDF funding to the four projects referred to above is merely
indicative and intends to reflect the comparative dimension of those as according to the
Experts’ best judgement of pertinence.
The EDF contribution for the basket funding pertaining to the IFGEF (ex-Macroeconomic
Institute) project would respect the previous financial RIP PALOP II pre-engagement (2M€).
Experts further recommend that the TCF will be allocated with 3M€ or 10% of the overall
Initiative’s envelope.
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As for the Project Components the following summary description was considered the
appropriate mention for this stage of programming:
I-Overview of Projects/Components
Pr1-Support to consolidation of Democracy and the Rule of Law
A. Support to the improvement of electoral systems and procedures
B. Support to strengthening and the modernisation of the judiciary systems
C. Support to the prevention of unlawful acts and to the modernisation of law
enforcement systems
D. Support to the reinforcement of overseeing and supervision functions of the
Parliaments and the Courts of Auditors
E. Support to the reinforcement of the fight against corruption and organised crime
Pr2-Support to improvement on the quality and proximity of Public Services
A. Support to de-concentration and proximity to the Citizen
B. Support to consolidation of local elected power and local participation instances
C. Support to cooperation and capacity reinforcement for prevention and response to
calamities and disasters
D. Support to modernisation of the Registry and Notary Offices
E. Support to modernization and security reinforcement of civil identification documents
Pr3-Support to reinforcement of economic governance and private sector development
A. Support to competitive market operation and to the creation of micro-enterprises
B. Support to capacity-building of the Chambers of Commerce and the
Business/Employers Unions, with an impact on services rendered to Members
C. Support to modernisation of economies and to the regulatory function of the States.
Pr4- Support to consolidation and sustainability of the cooperation partnerships
A. Support to NGOs aimed at democratic dialogue and communitarian service
B. Support to strengthening of independent and plural media
C. Mainstreaming of cross-cutting issues pertaining to development cooperation
(Gender, Environmental protection)
D. Evaluation and development of the quality of partnerships (including the APRM and
the MDGs).
II-Further explanation of contents (suggested items)
Pr1*Comp A-Support to the improvement to the of electoral systems and procedures
Translation into Portuguese of electoral support materials, including the UNDP
packages; technical assistance and training for the implementation of innovative
electoral procedures and tools; support of interchange of electoral staff and to
permanent networking of independent Electoral Committees; exchange or sharing of
electoral materials; design of common-use civic education programmes.
Pr1*Comp B-Support to strengthening and the modernisation of the judiciary systems
Initial training for Magistrates (under new pattern) at existing Judiciary Schools;
Continuing/life-long training for Judiciary personnel, on specialized/emerging areas
(preferably by means of video-conferences and e-learning programmes);
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Refreshment/updating for Judiciary personnel (on the job training); support to
installation and start-up of new Judiciary Training Centers and to functional
networking of these ; Supply of juridical libraries (classic and digital) to the General
Prosecutor’s Offices, the Judiciary Training Centers and the Higher Judicial Courts;
support of digital networking and technical interchanges among General Prosecutor’s
Offices; support to start-up and operation of the legislation & jurisprudence databases
delivered by the RIP PALOP II project; Technical assistance to further advances in the
modernisation of Legal Codes; Technical assistance for the modernisation of the
Penitentiary systems.
Pr1*Comp C-Support to the prevention of unlawful acts and to the modernisation of
law enforcement systems
Initial and continuing/life-long training of senior Police personnel (technical and civic
subjects) within a cooperative inter-Countries framework; support to interchange and
networking activities among the Police Forces, namely on a thematic basis; Technical
assistance to the establishment and start-up of specialized crime prevention and
repression Police Units concerned with emerging or acute problem-areas (eg: drugs
trafficking, illegal immigration and trafficking of human beings, juvenile delinquency,
domestic violence, organized and violent crime, terrorism, economical criminality);
supply of light/medium sized equipment within the scope of the Scientific Police
(laboratories) and also in connection with technical assistance to the establishment or
strengthening of the Special Police Units referred to above; support to the acquisition or
reinforcement of digital information and communication systems for use by the Police,
within a cooperative inter-Countries framework; Support to retrieving of small arms
and light weapons illegally held by civilians.
Pr1*Comp D-Support to the reinforcement of overseeing and supervision functions of
Parliaments and Courts of Auditors
Initial and continuing/life long training of Accountant Experts, Auditors, Specialized
Advisors and other senior personnel for the Courts of Auditors; Initial and
continuing/life long training of Parliamentary Advisors and Experts providing
technical support of elected Members; Interchanges and support to networking of both
Parliaments and Courts of Auditors; Supply of thematic libraries (classic and digital) to
both Parliaments and Courts of Auditors; Support to the publication and diffusion of
awareness-raising materials concerning the role, status and achievements of
Parliaments and of the Courts of Auditors; interchanges of a technical nature among
Experts (Parliaments and Courts of Auditors, separately); Support to networking
among Parliaments and among Courts of Auditors.
Pr1*Comp E-Support to reinforcement of fight against corruption and organised crime
Training (if required) and technical assistance in the process of setting-up or reinforcing
Departments/Units (within the Judiciary or Law-enforcement systems) in charge of
fighting corruption; support to technical interchanges and to the exchange of
transferable good practices (among General Prosecutor’s Offices, independent AntiCorruption bodies or the Criminal Investigation Police forces) in prevention and
combat of corruption; Support to the establishment of an international network of
Judiciary and Law-enforcement Agencies aimed at the combat of multi-country
organised crime, namely money laundering operations; Technical assistance for the
establishment of strengthening of Financial Information Units (under the Judiciary or
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Law-enforcement systems) aimed at preventing or dissuading money laundering and
other economic criminality.
Pr2*Comp A- Support to de-concentration and proximity to the Citizen
Technical assistance to promote, enhance or replicate de-concentration experiments,
including setting-up or strengthening regional or sub-regional antennas of central
Governments ; Training of Trainers (and of local Experts or Technicians in selected keyareas), in line with needs emerging from de-concentration processes; Interchanges
aimed at the exchange of ACP good practices on de-concentration; Technical assistance
for setting-up, strengthening/diversifying or expanding networks of one stop shops
intended to provide local single interfaces between the Citizen and central
Government.
Pr2*Comp B- Support to consolidation of local elected power and local participation
instances
Technical assistance to promote, enhance, accelerate or modernize territorial
decentralization (transfer of powers to elected local Administration); technical
assistance to set up or reinforce local participative structures; Training of Trainers (and
of local Experts or Technicians in selected key-areas) in line with needs emerging from
decentralization or Citizens’ participation processes; Interchanges aimed at the
exchange of ACP good practices on decentralization and Citizens’ participation.
Pr2*Comp C- Support to cooperation and capacity reinforcement for prevention of and
response to calamities and disasters
Technical assistance and training for setting-up plans and standard procedures to deal
with catastrophes and major civil emergencies; Support to enhancing or modernizing
the Command and Communications systems concerning Civil Protection and
emergency response (including Search & Rescue facilities); Technical assistance for
setting-up and testing plans for inter-Countries cooperation and mutual assistance in
case of natural or man-made calamities (including staff interchanges and training on
common doctrine); Support to publication and distribution of classic training and A/V
materials (including translation into Portuguese); Support to public-awareness on Civil
Protection subjects and on the promotion of a culture of prevention among the
population and special-risk pre-determined targets.
Pr2*Comp D- Support to modernisation of the Registry and Notary Offices
Technical assistance, thematic interchanges and exchange of transferable good practices
concerning de-bureaucratization, rationalization, de-materialization and otherwise
modernization of Registry and Notary systems; Technical assistance and training
aimed at the full and accelerated implementation in each Country of the new systems
devised, including linkage to any existing or planned one-stop-shops for the Citizen or
the Enterprise; Contributions to the supply of equipment allowing for the
implementation of digital solutions.
Pr2*Comp E- Support to modernization and security reinforcement of civil
identification documents
Technical assistance, thematic interchanges and exchange of transferable good practices
concerning the assess by Citizens to legitimate (secure and fraud-proof) basic ID
documentation, namely ID cards and passports; Technical assistance and training aimed at
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the full and accelerated implementation in each Country of the new systems devised,
including connection to/setting-up databases of civil identification (in accordance with
applicable constitutional rights); Supply of any equipment required for enhancing security
of ongoing procedures or speeding-up these.
Pr3*Comp A- Support to competitive market operation and to the creation of microenterprises
Establishment and management through the Chambers of Commerce or
Business/Employers Unions of Matching Funds aimed at providing incentives to
modernization and enhancement of competitive operation by existing small-scale
enterprises in selected sectors; Establishment and management through the Chambers
of Commerce or Business/Employers Unions of Matching Funds aimed at providing
incentives to the creation and start-up of micro-enterprises anchored on sound business
plans;
Pr3*Comp B-Support to capacity-building of the Chambers of Commerce and the
Business/Employers Unions, with an impact on services rendered to Members
Skills reinforcement training and thematic interchanges of Senior Experts/Advisors
hired by the Chambers of Commerce or Business/Employers Unions; Technical
assistance to these Entities in setting-up or strengthening Technical Units intended to
support modernization of the enterprises and the entrepreneurial activity or the
provision of value-added services to Members (eg: accounting; quality control; safety at
work); Technical assistance and interchanges of staff from the same Entities aimed at
the establishment and operation of Incubation Centres or other technical or logistic
facilities intended to facilitate the creation and start-up of competitive enterprises;
Support to the upgrading or modernization of those Entities’ Information and
Documentation Units, including the publication and distribution of Enterprise-related
informative materials, under both classic and digital supports.
Pr3*Comp C-Support to modernisation of economies and to the regulatory function of
the States
Technical assistance, advanced training and special-issue interchanges regarding settingup or development of economy regulation independent Agencies with a mono-sector
or multi-sectors competence; Technical assistance intended to complement or to
accelerate the ongoing modernization of the statistical sub-systems supporting
macroeconomic decisions (eg: standardized nomenclature; sectoral or thematic
indicators); Studies and technical assistance intended to prepare or accelerate
privatization of State-owned Enterprises or State-operated Departments providing
services with a potential market value, according to Government strategies for the
reinforcement of private sector; Exchange of transferable good practices on the subjects
of Economy Regulation and of Privatization.
Pr4*Comp A- Support to NGOs aimed at democratic dialogue and communitarian
service
Technical assistance and training, targeted at federations or platforms of NGOs/NSAs,
aimed at the reinforcement of capabilities with an impact on the overall role of Civil
Society, including dialogue with Governments; Technical assistance (including
temporary hiring of local Experts) and supply of documentation and office equipment
with the aim of providing technical and logistical support to member ONGs/NSAs;
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Support to edition and distribution of thematic or periodic publications, with
awareness-raising or capacity-reinforcement purposes; International interchanges and
seminars aiming to foster networking and exchange of good practices among affinityrelated Organisations
Pr4*Comp B- Support to strengthening of independent and plural media
Specialized training and thematic interchanges for Journalists and other media
professionals; Technical assistance to representative Organisations in the establishment
or improvement of Ethic and Good Practice Codes and on certification of professional
aptitudes; Support to the establishment of thematic media networks (eg: investigative
journalism; photo-journalism); Support to the establishment and operation of a
PALOP&TL Observatory of Media; Support to promotion of PALOP&TL coproductions of audio-visual materials addressing civic and good governance subjects;
support to the acquisition and management (through bona fide national NGOs) of
duplication equipments (and their consumables) with the aim to contribute to the
survival of independent and plural press under adverse economic contexts.
Pr4*Comp C-Mainstreaming of cross-cutting issues pertaining to development
cooperation (Gender, Environmental protection)
Training of Trainers, Facilitators, Focal Points and other Diffusion Agents on Gender
and on Environment Protection, with the aim of actively promoting mainstreaming of
those cross-cutting issues as according to development cooperation principles and
standing policies; Support to studies and monographic essays on the same subjects, as
well as to the translation into Portuguese of booklets and A/V materials on those
themes; Support of edition and distribution of publications resulting from the materials
listed immediately above; Support to award-granting (including prize-money) for
excellence or outstanding performances on the Gender and Environment Protection,
according to duly publicized contests.
Pr4*Comp D- Evaluation and development of the quality of partnerships (including
the APRM and the MDGs)
Technical assistance and training aimed at the sustainable improvement of procedures
& tools for monitoring and evaluating quality of partnerships; Support to the
preparation (or adaptation) and operation of Donors’ dynamic databases for each
Country concerned by the new Initiative; Technical assistance and interchanges aiming
to set-up/start-up or strengthen/expand the APRM mechanism in all African
Countries concerned by the new Initiative; Technical assistance, interchanges and
research aimed at improving the monitoring of progress towards the MDGs.
The suggested TCF would comprise the following possible components:
a) Technical assistance to start-up and to coordination and management of the
Initiative (at least during its first 2-years period) ;
b) Diffusion and ownership reinforcement of Good Practices and replication of PilotActions achieved through the RIP PALOP II. Among other features the following
actions should be funded:
• Diffusion of manuals concerning selected training courses issued from all past
Projects
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•
Replication of certain pilot-courses performed within the scope of the former
Public Administration Project
• Continuity to any relevant thematic web-sites, internet fora and newsletters
created in past Projects
• Updating and access-granting concerning the legislation and jurisprudence
databases originated in the former Justice Project
• Setting-up and diffusion of a database of PALOP Experts having graduated on the
several training courses delivered or otherwise participated in past Projects
activities
• Setting-up of centrally managed thematic PALOP&TL Experts Pools, with the
aim of fostering South-South technical cooperation
• Promoting the systematic use of the video-conference equipments supplied to
the PALOP within the scope of the Justice Project
c) Coodination activities, including attendance of Steering Committees meetings and
training of Project Management staff
d) Evaluation and Audit contracts.
6.3 Ownership and sustainability
Ownership of results (and of the process leading to it) was considered to be one of the most
relevant factors for generating long lasting benefits beyond the period of EC direct support
(that is: sustainability), with regard to this new multi-country cooperation initiative.
Ownership builds sustainability and therefore meeting in the future those inseparable
criteria of success were key concerns at this stage of programming (identification of areas of
multi-Country cooperation and pre-identification of the projects concerned).
All 6 countries contemplated by the new Initiative have been involved in the study
concerned in this report, although East Timor to a very limited extent only for circumstantial
reasons. During a 5 weeks field mission Experts had the opportunity to meet Representatives
of more than 90 Entities (State, non-State, Donors) in all the five PALOP and debating with
those persons how better to respond to needs and priorities that may be addressed at multiCountry level.
Even when requested to attend the meetings at short notice all local Representatives were
cooperative and have disclosed the intention of becoming actively involved in future
cooperation activities of the Initiative, for which content many important contributions have
been collected from the relevant sources (beneficiary Organisations). In-depth involvement,
at this stage, of the NAO Offices and the EC Delegations is a further guarantee that future
implementation work will also take place under a very cooperative dialogue and therefore in
line with best ownership expectations.
Notwithstanding, as achieving ownership and sustainability always implicates a trade-off
between quality (what is required) and opportunity (at the right moment) outputs, the next
formulation steps should allow that the right balance between multi-Country ownership and
project time-conformity be achieved.
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The coordination and management framework will have to be carefully devised and put into
operation in order to enhance ownership but to also avoid shortcomings and pitfalls (eg:
excessive dependence on external Consultants; use of highly constraining administrative and
financial models and procedures).
Sustainability (long-lasting and self-feeding effects) is also to be achieved through the proper
dissemination and acquisition of the multipliable final outputs (eg. replication of training
courses; distribution of publications; access to media or internet facilities) and the
empowerment that can be extracted from these results. No such goals may be entirely met,
however, should visibility not be given the required attention, during and after the
performance period.
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7 Recommendations
Considering the nature of this report and the stage of programming that it concerns, the
following Recommendations may help to focus on priority or otherwise urgent action to
undertake:
1. That a formal decision will be made, in the near future, with regard to the findings,
conclusions, proposals and assumptions integrating this Final Report, and the study it
concerns, in the sense of: the confirmation of the factual elements recorded, the
validation of the methodology and criteria used and the acceptance of the results
2. That a consensus between EU and ACP Partners may thus be reached, within a short
delay, on what concerns the structure and mutual balance of Projects/Components and
other strands of the new Initiative, in the sense that further advances on programming
may proceed anchored on a clear and comprehensive material framework
3. That efforts will continue (and hopefully may also succeed) in order to obtain additional
information concerning the participation of East Timor.
4. That an urgent clarification may be made regarding the adoption of feasible coordination
and management mechanisms, in line with the particular nature of the new multiCountry cooperation instrument, having in mind the lessons learned from the RIP
PALOP II experience and any existing windows of opportunity for the adoption of
innovative solutions
5. That the next steps of programming work (namely the Activity-level detail) will take
place taking in due account, among others, the following important aspects:
•
Clear distinction between the Activities/Actions funded by the new Initiative (on a 6Countries common/joint mode of operation) and any convergent or parallel ones,
funded by the NIPs concerned or by other Donors within the same time-frame;
• The complementary links that may exist, regarding similarly aimed
Activities/Actions, over successive time-frames (considering that no Project-level
implementation may probably occur before late 2009/early 2010)
• Overall visibility of the Initiative, at all stages of its preparation and implementation, as
a pre-requisite for ownership and sustainability
6. That the continuity and other synergy-related aspects of the transition (or positive
interaction) between the RIP PALOP II and the new Initiative be taken in due account, in
accordance with at least the following aspects:
•
Those areas or items that directly concern Good Governance (as according to the 9
brackets grill) should be the object of specific attention, specifically by providing
immediate linkage with new Actions or by hosting unfinished parts of the RIP
PALOP II;
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•
•
The adhesion of East Timor to the former group of Countries should be carefully
prepared as there was no previous formal involvement of this (except at symbolic
level) and also because communication and coordination are difficult;
Considering that coordination and management models and procedures will be
considerably different (between RIP PALOP II and the new Initiative), access to all
files and materials pertaining to RIP PALOP II must be secured in due time
7. That bearing in mind especially 5- and also 4- above, the RIP PALOP II RAO and its
Technical Assistance may be associated in due time to the further programming
developments
8. That any other Players, whose contributions may be considered as having a positive
input to the structuring of the new Initiative or its contents determination, may also be
associated to the next stages of preparation.
9. That, bearing in mind the special role played by the Portuguese Cooperation as a cofunding source of the RIP PALOP II, the Authorities concerned be invited to inform
whether the prospect of a renewed financial contribution is likely to be considered
10. That the new Initiative will adopt the following designation in Portuguese language:
Iniciativa de Cooperação PALOP&TL para a Boa Governação (acronym for practical
purposes: IC PALOPTL BG).
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8 Comments to the Draft Version
A draft version of the Final Report was circulated among the NAO Offices and the EC, with
the purpose of gathering comments and suggestions for possible improvements. That
document was thus put for discussion (on both en and pt versions) on the meeting held in
Brussels on October the 23rd. A corrigendum of the en version was distributed during the
meeting along with a note warning about a number of technical gaps in the pt version.
The Mozambique and Cape Verde Heads of the NAO Offices expressed the view that the
Report had met the demands of the ToR.
The EC Representatives and the Head of the Angola NAO Office suggested that the final
version of the report should disclose some additional information on the current status of the
ex-Macroeconomic Institute.
The EC Delegation to Mozambique made some remarks on the methodology and on the
conclusions and recommendations of the study and informed that a more comprehensive
comment would make the object of a written note.
All Participants were invited to submit any possible comments to the Experts within a short
delay so that a final version may be ready for presentation on November the 6th, before a
Ministers’ meeting that will held in Lisbon. Deadline for submission was set for November
the 1st.
The PALOP and the EC central Offices did not provide any comments, excepted for the UTA
(Angolan NAO Office), about a detail on the text of the report.
A Note from the EC Delegation to Mozambique was received by the Experts on the
afternoon of November the 2nd. All factual remarks that followed the basic logic and
structure of the report could be explained or accommodated for amendment within the
calendar constrains. Major alterations suggested, pertaining to the interpretation of the
Consultant’s ToR or the selected methodology could however not be handled.
A final version of the Report was thus prepared for distribution on November the 6th and it
includes as many improvements as the Experts could provide, from their own initiative and
also by accommodating all remarks that also concerned factual subjects, namely unwanted
omissions and errors that were detected in the draft versions.
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9 Afterword
This study was performed under a number of constraints, including the need to operate
within a tight time-schedule and the fact that no factual information or opinions could be
obtained by directly approaching the sources in East Timor, one of the six targeted
Countries.
Nevertheless the Experts believe that the information collected and processed was reliable,
up to date and globally relevant and that it could therefore be used for the purpose of
providing a reasonable response to the core issue under scrutiny: determination of areas of
cooperation and the projects concerned, within the scope of a new multi-Country
Cooperation Initiative under the 10th EDF.
The Experts performed their job in accordance with state of the art methodologies and good
practices and to the best of their capabilities. They hope that no major (although unwanted)
mistakes or omissions may have occurred. All interpretations and judgements of a technical
nature remain their sole and indeclinable responsibility as bona fide neutral professionals
committed to the observance of strict deontological standards.
Near the end of the mission that was assigned to them the Experts wish to thank all Entities,
Services and Individuals that contributed to the success of their work. A special word of
appreciation goes to the Representatives of the more than 90 Organisations participating in
the meetings and interviews held during the field assessment that took place in the five
PALOP in August and September 2007, without whose contributions this report would not
have been feasible.
The Experts’ appreciation goes as well to the key-staff from NAOs Offices and the EC
Delegations and Headquarters, who assisted at all steps of the mission including the
management of local meetings agenda and furthermore contributed to documentation and
good advice.
Experts wish and hope that the new Initiative under the 10th EDF may contribute to the
purpose of achieving development goals in the six Countries concerned by it in an effective
and sustainable manner.
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ANNEXES
List
A-Index of Inception Report
B-Schedule of works (as performed)
C-List of Entities and their Representatives (field mission)
C1-Angola
C2-Cape Verde
C3-Guinea Bissau
C4-Mozambique
C5-São Tomé e Príncipe
D-Good Governance reference grid
E-Introductory note (Portuguese Version Only)
F-Convergence analysis: T1
G-Convergence analysis: T2
H-Convergence analysis: T4
I- Project Fiches
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ANNEX A – INDEX OF INCEPTION REPORT
STUDY OF IDENTIFICATION
Areas of Governance for multi-country PALOP cooperation
(in the context of the 10th EDF)
Summary of contents:
Abbreviations
1. Background
1.1. The issue of (Good) Governance
1.2. EC cooperation with the PALOP and Timor Leste
1.3. The 10th EDF programming
2. Identification study: methodology and expected results
2.1. Scope and rationale
2.2. Activities and workplan
2.3. Key Actors and resources
2.4. Outputs and outcomes
3. Findings and assumptions (to date)
3.1. Sources and inputs
3.2. On the PALOP (+Timor Leste) Governance based Initiative
3.3. On the ACP Partners
3.3.1. Country by Country relevant facts
3.3.2. Common perspectives to highlight
3.4. On CPLP and Brazil
4. Subsequent action
4.1. Framework and schedule
4.2. Assumptions, risks and quality
5. Concluding statements, suggestions and requests
5.1. Overall coherence and feasibility
5.2. The cooperation framework
5.3. Listening to the Partners
Closure Note
Index of Annexes:
A - ToR for the study
B - Wokplan/Schedule of Activities (revised)
C - Lists of Participants (quick-up briefing; Timor Leste Embassy and CPLP meetings)
D - List of main documents (desk study)
E - Standard explanatory paragraph (for NIPs)
F - Country notes (key findings)
G - Matrix for GG conceptual framework
H - PALOP Entities/Services to contact (indicative list)
I - Field stage programme/schedule
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ANNEX B - SCHEDULE OF WORKS (AS PERFORMED)
Date
Flight details
Activity
Sunday 19 August
TP 279 Lisbon-Maputo
Departure: 23:00 hrs
Arrival: Monday 20 August,
10:45 hrs
Flight from
Portugal to
Mozambique
Monday 20 (half day) –
Monday 27 August
Friday 24 August
Monday 27 August
Saturday 1 September
Monday 3 – Friday 7
September
Friday 7 September
Monday 10 – Friday 14
September
Saturday 15 September
Monday 17 September
Tuesday 18 – Friday 21
September
Saturday 25 September
Mission 1
TP 285 Maputo – Lisbon
Departure: 10:45 hrs
Arrival: 20:50
TP 276 Maputo – Lisbon
Departure: 19:40 hrs
Arrival: Tuesday 28 August,
05:45 hrs
TP 225 Lisbon – St Tome
Departure: 00:40 hrs
Arrival: 05.40 hrs
DT 501 TAAG
Departure: 16:00 hrs
Arrival: 18:50 hrs
TP 252 TAP
Departure: 09:15 hrs
Arrival: 16:54 hrs
TP 6007
Departure: 14:20 hrs
Arrival: 16:40 hrs
Cabo Verde Airlines
VR 8002
Departure: 14:20 hrs
Arrival: 18:55 hrs
Monday 24 – Thursday 2
September
Friday 28 September
TP 204
Departure: 14:35 hrs
Arrival: 19:40 hrs
Location
# of
working days
Mozambique
5,5 (TL)
4,5 (KE2)
S. Tomé e
Principe
4 (TL)
4 (KE2)
Mission 3
Angola
5 (TL)
5 (KE2)
Flight from
Angola to
Portugal
Flight from
Portugal to Cape
Vert
Mission 4
Cape Vert
4 (TL)
4 (KE2)
Guinea
Bissau
4 (TL)
4 (KE2)
Flight from
Mozambique to
Portugal (KE2)
Flight from
Mozambique to
Portugal (TL)
Flight from
Portugal to S.
Tomé e Principe
Mission 2
Flight from St.
Tome to Angola
Flight from Cape
Vert to Guinea
Bissau
Mission 5
Flight from
Guinea Bissau to
Portugal
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ANNEX C – LIS OF ENTITIES AND THEIR REPRESENTATIVES (FIELD MISSION)
Annex C1 - Angola
Study for identification of areas of governance for multicountry PALOP cooperation in the context of the 10th EDF
Field Mission stage
Date
September, 10
Entity/Unit
MP-Ministry of Planning
MJ-Ministry of Justice
DEC-Delegation of EC to Angola
MS-Ministry of Health
September, 11
TC-Auditors Court
PGR-General Prosecutor's Office
September, 12
MEETINGS held with Experts
MF-Ministry of Finance
ME-Ministry of Education
Name
HE Carlos-Alberto LOPES
Pedro KIALA
Carlos ELOY
Francisco LUMEKA
Josias RODRIGUES
Carlos ELOY
François THIOLIER
Paula-Cristina FERNANDES
Augusto ROSA-NETO
Daniel ANTÓNIO
António COSTA
Carlos ELOY
Gilberto MAGALHÃES
Eva ALMEIDA
Antónia LUQUESSA
Carlos ELOY
António FELISMINO
João CUNHA-CAETANO
Carlos ELOY
Rosa BAPTISTA
Joana MATEUS
Carlos ELOY
Maria-Imaculada CURADO
Cornélio MANCUNDO
Carlos ELOY
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
Participants Lists - ANGOLA
Post, Category or Title
Vice Minister
Head, Prospective Dept/National Directorate Studies&Planning
Director
Expert, Interchange Office
Expert, Interchange Office
Director
Acting Head of Delegation
Expert, Institutional Support
Director, International Interchange Office
Director, Studies, Planning and Stratistics Office
Director, Health Human Resources Office
Director
General-Accountant
Head of 4thDivision, Directorate of Technical Services
Head of 5thDivision, Directorate of Technical Services
Director
Associate General Prosecutor
Associate General Prosecutor
Director, Office of the NAO
National Director, Advisor to the Minister
Expert, International Economic Relations Office
Director, Office of the NAO
Director, International Interchange Office
Head, Department of Bilateral Cooperation
Director, Office of the NAO
Phone contact
222 397178
222 397178
222 444765
222 336045
222 336045
222 327276
222 393038
222 393038
222 372625
222 372625
222 372625
222 327276
222 371903
222 371903
222 371903
222 327276
222 395902
222 395902
222 327276
222 396843
222 396843
222 327276
222 324 353
222 320408
222 327276
97
Date
September, 13
Entity/Unit
MI-Ministry of Internal Affairs
PJ-Ombudsman Office
September, 13
Cooperation Partners (Donor Community)
September, 14
Non-State Actors
ADRA-Angolana
Jubileu 2000 Angola
Mãos Livres
CCDH-Coordination Council for Human Rights
SJA-Angola Journalists Trade Union
DW-Development Workshop
PAANE-Programme for Support of NSA
EC Delegation to Angola
UTA-Office of the NAO
UTA-Office of the NAO
Joint debriefing
UTA-Office of the NAO
UTA-Office of the NAO
EC Delegation to Angola
Name
Post, Category or Title
Phone contact
Sebastião CANBINDA
Carlos BURITY
José DEMBI
André TUNGA
Carlos VILAÇA
Carlos ELOY
Paulo TJIPILICA
Carlos ELOY
Acting General-Inspector
Director, Office for Studies, Information and Analysis
Head, Department of Treaties and Agreements
Expert, Office for International Interchange
Expert, General Inspectorate
Director
Ombudsman
Director
222 323338
222 323338
222 323338
222 323338
222 323338
222 327276
222 371071
222 327276
Michel LEVEQUE
Ricardo VILLA
Dimitri VOGELAAR
Anna WALTERS
Chris PORTER
François THIOLLIER
Paula-Cristina FERNANDES
Asa KARLSSON
José FORTES
Cooperation Counsellor
2nd Secretary, Italian Embassy
2nd Secretary, Netherlands Embassy
DFID Representative
WB Task Team
Acting Head of Delegation
Expert (Institutional Support)
Young Expert
Vice-Director
222 391741
222 331245
222 310686
222 334582
222 394677
222 393038
222 393038
222 393038
222 327276
Domingos MAJOR
João GREGÓRIO
Salvador FREIRE
Guilherme NEVES
Teixeira CÂNDIDO
João GIL
Marie-Concette TIRZI
Paula-Cristina FERNANDES
Carlos ELOY
José FORTES
Assistant to Management
Associate Coordinator, Debt Group
General Secretary
Representative
Spokesperson
Project Coordinator
Coordinator
Expert (Institutional Support)
Director
Vice-Director
912 914899
222 448837
925 811728
923 385633
923 310455
923 672718
926 777455
222 393038
222 444765
222 327276
Carlos ELOY
José FORTES
Paula-Cristina FERNANDES
Director
Vice-Director
Expert (Institutional Support)
222 444765
222 327276
222 393038
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Annex C2 – Cape Verde
Study for identification of areas of governance for multicountry PALOP cooperation in the context of the 10th EDF
Field Mission stage
Date
September, 18
September, 19
MEETINGS held with Experts
Entity/Unit
Name
Participants Lists - CAPE VERDE
Post, Category or Title
Phone contact
DEC-Delegation of EC
Sèverine ARNAL
Programme Officer, Delegation of EC
2621392
SON-NAO Office
José-Luís MONTEIRO
NAO Office Coordinator
2607957
Sèverine ARNAL
Programme Officer, Delegation of EC
2621392
MJ-Ministry of Justice
Zsuzsanna FORTES
Director, Studies and Legislation Off.(& FP Justice Project,PIR PALOP)
2623227
PC-Portuguese Cooperation
António MACHADO
Cooperation Officer
2626128
TC-Auditors Court
José DELGADO
President
2623559
Carla BETTENCOURT
Director, Administration&Finance Office
2626488
CA-Austrian Cooperation
Eva KOHL
Cooperation Officer
2624608
CNE-National Elections Commission
Bartolomeu VARELA
past President-Commissioner
2624320
Francisco-David LIMA
past Commissioner
2624324
Francisco RODRIGUES
Director, External Coordination (& FP, Statistics Project, PIR PALOP)
2613827
Joseph BRITES
Director, National Accounts Unit
2613827
René SYLVA
Director, Social and Demographic Statistics
2613827
Angela CARDOSO
Director, Administration & Finance Office
2613827
Didier NIEVADOWSKI
Cooperation Officer
2613409
INE-National Statistics Institute
CF-French Cooperation
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Date
September, 20
September, 21
September, 21
Entity/Unit
Name
Post, Category or Title
Phone contact
Walter SÁ
General Secretary
2623634
Arlinda NEVES
Environment Expert
2623634
MDHT-Ministry for Decentralisation,
HE Ramiro AZEVEDO
Minister
2621807
Housing and Territory Management
Sèverine ARNAL
Programme Officer, Delegation of EC
2621392
DGAL-General Directorate for Local
Salomão FURTADO
Director-General
2621807
Administration
Sèverine ARNAL
Programme Officer, Delegation of EC
2621392
Social Communication Actors
Eugénio MARTINS
Director-General, Social Communication
2610515
Augusta TEIXEIRA
Head of Cabinet, Minister in charge of Social Communication
2610515
Marcos OLIVEIRA
CEO, National TV
2605201
Paulo LIMA
President, Journalists Association
2627887
José-Augusto SANCHES
CEO, INFORPRESS (news Agency)
2624423
Verónica SANCHES
Director, local radio Vos di Santa Kruz
2694402
Fernanda ALMEIDA
Representative, DIA (NGO)
2694402
P*ONG-Platform of NGOs
Avelino LOPES
President
2617428
ARE-Economic Regulation Agency
Renato LIMA
President of the Executive Board
2600430
Francisco TAVARES
Member of the Executive Board
2600430
Sèverine ARNAL
Programme Officer, Delegation of EC
2621392
Aristide LIMA
President
2608033
Eutrópio CRUZ
Secretary-General
2608033
Sèverine ARNAL
Programme Officer, Delegation of EC
2621392
CCISS-Chamber of Commerce
Rosário DA LUZ
Secretary-General
2615352
SON&DCE-NAO Office & Del EC
José-Luís MONTEIRO
NAO Office Coordinator
2607957
Sèverine ARNAL
Programme Officer, Delegation of EC
2621392
ANMC-Municipalities Union
AN-National Parliament
Study of Identification of areas of governance for multicountry PALOP cooperation.
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Annex C3 – Guinea-Bissau
Study for identification of areas of governance for multicountry PALOP cooperation in the context of the 10th EDF
Field Mission stage
Date
September, 26
MEETINGS held with Experts
Entity/Unit
Name
Participants Lists - GUINEA-BISSAU
Post, Category or Title
Phone contact
DEC-Delegation of EC to Guinea-Bissau
Karl RAWERT
Head of Section, Economy, Trade and Regional Integration
6624518
CAON-NAO Office
Armando SILVA
Local Technical Assistant, NAO's Office
6651060
PGR-General Prosecutor's Office
Fernando RIBEIRO
General Prosecutor
206525
Cipriano NOGUEIRA
Assistante General Prosecutor and acting Vice-General Prosecutor
206525
Mário BATICÃO
Assistante General Prosecutor (ic anti-corruption&economic crimes)
206525
Maurício ALVES
Media Advisor
206525
Armando SILVA
Local Technical Assistant, NAO's Office
6651060
Jamel HANDEM
Executive Secretary
206710
Iria CALLE
Coordinator, Advise and Support Unit
206710
João MANÉ
Responsible for Democracy and Electoral Assistance
206710
HE João DE BARROS
State Secretary
7205300
Mamadu DJALO
Head of State Secretary's Cabinet
7205300
Adriano FERREIRA
Principal Technical Advisor
7205300
OA-Chamber of Barristers
Armando MANGO
President
212729
MRAFPT-Ministry of State Reform,
HE Pedro MILACO
Minister
7238191
PLACON-Platform of NGOs
SECS-Secratary of State for Soc. Comm.
Civil Service and Labour
Study of Identification of areas of governance for multicountry PALOP cooperation.
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7238191
101
Date
September, 27
Entity/Unit
Post, Category or Title
Phone contact
Saliu BIA
Secretary-General
6766834
José TAVARES
Administration Director
201602
Manuel DJAU
Financial Director
201602
Daniel ESTEVES
Director
201602
Fátima DE BARROS
President, AMAE-Association of Women in Business
7201587
Mamadu JAMANCA
President, ANIEGB-Asssociation of Importers&Exporters
7201628
Alanso TATY
President, QNCOCPA-Platform of Farmers' Associations
224403
Mamoudo TAKI
President, ACMG-Association of Mauritanian Traders
201602
Armando PEREIRA
Executive Secretary
6856818
José JASSI
Deputy Executive Secretary
7203605
Júlio CÁ
Media Officer
6217219
HE Abubacar DAHABA
Minister
205041
Baima CONDÉ
Ministre's Head of Cabinet
205041
Orlando SILVA
Secretary General
720008
Fernando DIAS
President's Head of Cabinet
720008
Roberto LAWRENCE
Principal Advisor
720008
HE Issufo SANHÁ
Minister
6654715
Carlos ANDRADE
Principal Technical Counsellor
6654715
Armando SILVA
Local Technical Assistant, NAO's Office
6651060
MJ-Ministry of Justice
HE Carmelita PIRES
Minister
212620
DEC-Delegation of EC to Guinea-Bissau
Karl RAWERT
Head of Section, Economy, Trade and Regional Integration
6624518
CCIA-Chamber of Commerce, Industry
and Agriculture
CNE-National Electoral Board
MEPDR-Ministry of Economy, Planning
and Regional Development
ANP-Parliament
MF-Ministry of Finances
September, 28
Name
Study of Identification of areas of governance for multicountry PALOP cooperation.
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Annex C4 – Mozambique
Study for identification of areas of governance for multicountry PALOP cooperation in the context of the 10th EDF
Field Mission stage
Date
August, 20
August, 21
Entity/Unit
MEETINGS held with Experts
Name
Participants Lists - MOZAMBIQUE
Post, Category or Title
Phone contact
Alexandre ZANDAMELA
Director (Ambassador Status)
82 6123490
Absalão SITOE
Expert
82 0799150
Eugénio COME
GON Expert (1st Secretary status)
21 493712
Michelle NOORMAHOMED
Expert
21 493712
Raúl GIGUEIRA
Expert
21 493712
Victor VELHO
Expert
21 493712
ECDM-EC Delegation to Mozambique
Inês ALVES-TEIXEIRA
Advisor, EC Cooperation Coordination (liaison to study)
21 481000
MAE-Ministry for State Administration
Egino LONGANANE
Director, Planning & Institutional Development Directorate
82 3117460
Plácido PEREIRA
Director, Local Administration National Directorate
82 7777070
Candida MOIANE
Head, Planning&Cooperation Department
82 4113970
Eugénio COME
GON Expert (1st Secretary status)
21 493712
Maurício CUMBE
Expert, Follow-up&Evaluation Department
82 8839680
Luís TOBELA
Expert, International&Regional Organizations Department
82 5622756
Raul GIGUEIRA
GON Expert
21 493712
Fabio BARGIACHI (*)
Senior Electoral Assistance Specialist (Brussels Office)
António REIS (*)
Senior Electoral Advisor
GON-NAO Office
MPD-Ministry for Planning and
Development
UNDP
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
32.2.5054623
82 7302393
103
Date
August, 22
Entity/Unit
MS-Ministry of Health
TA-Administrative High Court
MI-Ministry for Internal Affairs
ECDM-EC Delegation to Mozambique
August, 23
INE-National Statistics Institute
AR-National Parliament
MJ-Ministry of Justice
PGR-Public Attorney/Prosecutor' Office
Name
Post, Category or Title
Phone contact
Dalmásia COSSA
Michelle NOORMAHOMED
António PALE
Luís HERCULANO
Alzira PAZ
João MARTINS
Victor VELHO
Joaquim BULE
Fernando ROGERIO
Isac MASSAMBY
Claudio SALINAS
Juridical Adviser to the Minister
GON Expert
President (Supreme Court Judge status)
Secretary-General
Head, Cooperation Department
Advisor
GON Expert
Expert, International Relations Office
Expert, International Relations Office
GON Expert (Counsellor status)
First Secretary, Economic Affairs&Governance
82 8878990
21 493712
21 492743
21 492743
21 492743
21 492743
21 493712
82 3032660
82 3129730
21 493712
21 481023
Inês ALVES-TEIXEIRA
Advisor, EC Cooperation Coordination (liaison to study)
21481000
Fotini ANTONOPOULU
Expert, Good Governance
21 481000
Firmino ALBERTO
Head, Prices and Conjuncture Department
21 492114
Marta CHOTIQUE
Head, Planning and Coordination Department
21 492114
Adriano MATZIMBE
Head, Services Statistics Unit
21 492114
Leonete MABEJAIA
Head, Training and Social Action Unit
21 492114
Absalão SITOE
GON Expert
21 493712
Ibraimo C.S. MABOTA
Director, Public&International Relations Division
82 3152290
Acácio BELEZA
Head, Inter-Parliamentary Cooperation Department
21 225100
Ribeiro C. JUNOT
Desk for EC Cooperation
21 225100
HE Esperança MACHAVELA
Justice Minister
21 492339
Angelo SITOLE
Permanent Secretary
21 301850
Isac MASSAMBY
GON Expert (Counsellor status)
21 493712
Inês ALVES-TEIXEIRA
Expert, Cooperation (liaison to study)
21 418000
Germano ZIOTE
Assistant General Prosecutor
21 490051
Henrique CARIOIO
Head, Administration&Finance Department
21 490051
Saleimane SEIFO
Head, Human Resources Unit
21 490051
Rosário MAKAVACA
GON Expert
21 493712
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Date
August, 24
Entity/Unit
OAM-Mozambique Barristers Chamber
GON-NAO Office
ECDM-EC Delegation to Mozambique
August, 27
Name
Post, Category or Title
Phone contact
Carlos CALUIO
President
21 431634
Jose M. CALDEIRA
Vice President
21 431634
Alexandre ZANDAMELA
Director (Ambassador Status)
82 6123490
Absalão SITOE
Expert
82 0799150
Eugénio COME
Expert (1st Secretary status)
21 493712
Isac MASSAMBY
Expert (Counsellor status)
21 493712
Michelle NOORMAHOMED
Expert
21 493712
Raúl GIGUEIRA
Expert
21 493712
Inês ALVES-PEREIRA
Advisor, EC Cooperation Coordination (liaison to study)
21 481000
Fotini ANTONOPOULU
Expert, Good Governance
21 481000
Imelda SOUSA
Expert, Cooperation
21 481000
ETICA (NGO)
Salomão MOYANA
President
82 9104870
MISA (NGO)
Tomás V. MARIO
President
21 302833
Palmira VELASCO
Vice President
21 302833
Ericino DE SALEMA
Research&Information Officer
21 302833
Célia C. BANZE
Projects Officer
21 302833
CIP-Center for Public Integrity (NGO)
Marcelo Mosse
Executive Coordinator
82 3003329
G-20 NGOs platform
Benedito Ngomane
Communication&Information Officer
82 8085850
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Annex C5 – São Tomé e Príncipe
Study for identification of areas of governance for multicountry PALOP cooperation in the context of the 10th EDF
Field Mission stage
Date
September, 3
Entity/Unit
Name
Post, Category or Title
Phone contact
Technical Assistant
224143
Amílcar AFONSO
Senior Administrator, seconded to GON
224143
Francisco FERNANDES
Director, Cooperation Directorate
221077
Elisa BARROS
Senior Administrator and Focxal Point to CPLP
221077
Amílcar AFONSO
Senior Administrator, seconded to GON
224143
SJ-Journalists Trade Union
Ambrósio QUARESMA
President, Executive Board
907743
CCIAS-Chamber of Commerce, I.A.S.
Abílio HENRIQUES
President, Executive Board
222723
António QUINTAS-AGUIAR
Vice-President, Executive Board
222733
Arlindo CARVALHO
Director-General (General Directorate for Environment)
222395
Amílcar AFONSO
Senior Administrator, seconded to GON
224143
Danilson COUTO
Director, Minister Cabinet
226103
MRNA-Ministry of Nat. Res. and Environment
MAPREAT-Ministry of State Administration
September, 5
Participants Lists - SÃO TOMÉ E PRÍNCIPE
Carlos TRIGUEIROS
GON-NAO Office
MNECC-Ministry of Foreign Affairs and Cooper.
September, 4
MEETINGS held with Experts
Elísio CAMBÉ
Coordinator, Office for Decentralization/Local Admn.
226103
Ernestina MENEZES
Director, Public Administration Unit
226103
ANP-National Oil Agency
Afonso VARELA
Director of Legal Services
226933
PN-National Police
Gilberto ANDRADE
Chief Commanding Officer
243001
Agostinho BAÍA
General Inspector
243001
Hélder MARTINS
Director, Administration Services
243001
Amílcar AFONSO
Senior Administrator, seconded to GON
224143
SPC-Civil Protection Service
José LEAL
Chief Commanding Officer
224212
MJAP-Ministry of Justice and Parliam. Affairs
Kótia MENEZES
Director, Minister Cabinet
222055
Leonel PINHEIRO
Focal Point, RIP PALOP II-Justice Project
904075
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Date
September, 5
Entity/Unit
AN-National Parliament
Post, Category or Title
Phone contact
Romão PEREIRA-COUTO
Secretary-General
222986
Raúl ARAGÃO
Advisor to the Secretary-General
222986
Maria Odete AGUIAR
President, Executive Council
905004
Maria Céu CARVALHO
Permanent Secretary
226754
GTE-Electoral Technical Office
Joaquim LEITE
Director
224116
Clementino BARROS-GLÓRIA
Head, Administration Office
225056
Press
Juvenal Rodrigues
Director, Correio da Semana
na
Manuel BARROS
Director, Vitrina
na
Aquiles PEQUENO
Director, Transparência
na
Octávio SOARES
Director, Tropical
na
Jorge do Ó
Vice-President, Journalists Union
na
FONG-Federation of NGOs
September, 7
Name
INPIEG-Instit.Prom. Gender-related Equal.Equit
MFP-Plan and State Finances Ministry
GON-NAO Office
Lurdes VIEGAS SANTOS
Executive Director
227889
Amílcar AFONSO
Senior Administrator, seconded to GON
224143
HE Maria TEBUS TORRES
Vice-Prime Minister and Plan and States Finances Minister
225792
Agostinho BERNARDO
Director, Minister's Office
225792
Filipe MONIZ
Director, Planning Office
225792
Valdemiro AFONSO
Advisor
225792
Amílcar AFONSO
Senior Administrator, seconded to GON
224143
Carlos TRIGUEIROS
Technical Assistant
224143
Amílcar AFONSO
Senior Administrator, seconded to GON
224143
Study of Identification of areas of governance for multicountry PALOP cooperation.
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ANNEX D – GOOD GOVERNANCE REFERENCE GRID
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108
ANNEX E – INTRIDUCTORY NOTE (PORTUGUESE VERSION ONLY)
Cooperação entre a CE e PALOP & Timor Governação no 10º FED
Estudo relativo a áreas de cooperação e respectiva identificação de Projectos
ENTREVISTAS - NOTA EXPLICATIVA SUMÁRIA
No quadro da programação do 10ºFED (acções a desenvolver entre 2008 e 2013 nos Países
ACP) a Comissão Europeia contratou a um consórcio de consultoria liderado pela empresa
BERENSCHOT um estudo que tem por objectivo a identificação de áreas de cooperação com
os PALOP e Timor Leste, no âmbito dos desígnios de Boa Governação subjacentes ao
Acordo de Cotonu. Possíveis Projectos com tal enquadramento deverão ser também desde já
assinalados.
Em linha de continuidade e recolhendo ensinamentos da execução dos Programas PIR
PALOP (I e II) um número limitado de Projectos deverá ser agora identificado, no quadro do
diálogo entre a Comissão Europeia e aqueles seus Parceiros. De acordo, designadamente,
com o espírito do Consenso Europeu para o Desenvolvimento (2006) e da Parceria Estratégica EUÁfrica (2007) os novos projectos deverão ser objecto de concertação que garanta o princípio
da condução e apropriação por parte dos Parceiros ACP (neste caso PALOP e Timor Leste).
Os Peritos designados pelo Consultor vão assim deslocar-se aos PALOP para consultas
técnicas no sentido de ser assegurada a atempada programação de um conjunto estruturado
de Projectos que obedeça ao princípio de soluções comuns para problemas comuns, Acções
essas cuja implementação será facilitada pelo uso da Língua portuguesa como instrumento
de trabalho. O volume total de recursos do FED a mobilizar ascenderá previsivelmente a
30M-35M Euros, valores estes já adicionados aos PIN de cada um dos 6 países para utilização
conjunta.
O processo de identificação de áreas de problema e de possíveis Projectos que lhes possam
corresponder respeitará a matriz de enquadramento do conceito de Boa Governação
utilizada na oportuna definição dos Perfis de Governação de cada País e deverá ser coerente,
também, com os Programas de Governação (ou Compromissos de Governação) anexos aos
Documentos de Estratégia do País (CSP-Country Strategic Papers). Para tal efeito e a título
meramente indicativo, foi preparada uma ficha-memória (em anexo) que apoiará a condução
de reuniões de trabalho entre Representantes de diversas Entidades e Serviços dos PALOP e
os Peritos.
Por imperativo de cumprimento de prazos globais de programação do 10º FED o estudo em
curso deverá estar concluído no final de Setembro de 2007, pelo que a Equipa Técnica
designada (José Lucena e Graça Fernandes) muito agradece a disponibilidade e o
empenhamento de todos os Agentes nomeados para a participação no diálogo respeitante à
identificação das áreas de problema/cooperação e possíveis Projectos a estas associáveis. Os
correspondentes trabalhos terão de decorrer, impreterivelmente, durante o período de
presença dos Peritos em cada um dos Países.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
109
A versão final da carteira de projectos será objecto de apresentação, debate e aprovação no
próximo Encontro entre a Comissão Europeia e os Ordenadores Nacionais prevista para o
mês de Outubro em Bruxelas. Determinados aspectos regulamentares e de ordem prática
respeitantes à gestão desta Iniciativa para a Boa Governação PALOP+Timor Leste serão
estabelecidos através de um Memorando de Entendimento a celebrar oportunamente.
Agosto de 2007
Study of Identification of areas of governance for multicountry PALOP cooperation.
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110
ANNEX F – CONVERGENCE ANALYSIS: T1
C cooperation with PALOP & Timor Leste * Governance-10th EDF * Convergence analysis (findings-EC sources) *
Table 1: Overall assessment
1.Political&Democratic
Human rights
..
Governance
Fundamental freedoms
..
Electoral process
Principles of constitutional
democracy
Judicial and law enforcement
system
..
2.Political Governance-rule of
law
3.Control of corruption
4.Government effectiveness
5.Economic Governance
6.Internal and external
security
g
F
Public finance management
Private sector/market friendly
policies
Management of natural
resources
Internal stability/conflict
prevention
External threats and global
security
8.International and regional
Regional integration
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
g
g
g
Highly convergent
Commitments
..
..
NA
NA
Weaknesses
..
Institutional capacity
7.Social Governance
9th EDF
CONV
RTL
STP
MOZ
RGB
RCV
ANG
RTL
Commitments
STP
MOZ
RGB
RCV
ANG
RTL
Weaknesses
STP
MOZ
RGB
RCV
ANG
RTL
CSP
STP
MOZ
RGB
Key issues in Clusters
RCV
Governance Clusters (10th
EDF)
ANG
9th EDF
..
..
..
..
..
..
c
..
..
111
0.Governance in general
..
Migration
..
Political dialogue
..
Programming dialogue
..
Non-State Actors
..
a
b
F
b
F
F,e F,f
Highly convergent
Involvement in APRM
Commitments
CONV
RTL
STP
MOZ
RGB
RCV
ANG
Commitments
RTL
STP
MOZ
RGB
RCV
ANG
RTL
STP
MOZ
RGB
RCV
ANG
RTL
STP
MOZ
RGB
Weaknesses
Weaknesses
9.Quality of partnership
CSP
9th EDF
context
Key issues in Clusters
RCV
Governance Clusters (10th
EDF)
ANG
9th EDF
h
i
j
k
d
F-Focal area ; a-cross cutting issue ; b-NSA support only ; c-Gender issues ; d-important pillar ; e-one of three ; f-one of two ; g-Prisional systems in special
h-at least 4 in common ; i-all 6 in common ; j-all 5 in common ; k-at least 2 out of 3 previous criteria
Study of Identification of areas of governance for multicountry PALOP cooperation.
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112
ANNEX G – CONVERGENCE ANALYSIS: T2
EC cooperation with PALOP & Timor Leste * Governance-10th EDF * Convergence analysis (findings-EC sources) *
Table 2: Similar Commitments-itemized
1.Political&Democratic
Governance
2.Political Governance-rule of law
3.Control of corruption
RTL
STP
MOZ
RGB
Human rights
Fighting domestic violence
..
Fundamental freedoms
Encouragement of independent media
..
Electoral process
Principles of constitutional
democracy
Improvement of electoral procedures & civic education
..
NIL
..
Reform of legal codes & basic legislation
..
Judicial and law enforcement
system
NA
Institutional capacity
4.Government effectiveness
Public finance management
5.Economic Governance
Specified Items
RCV
Key issues in Clusters
Governance Clusters (10th EDF)
ANG
Commitments-10th EDF
Private sector/market friendly
policies
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
Increment of Legal Courts network
..
Capacity building of specialized Law Enforcement services
..
Improvements to the Penitentiary system
Adoption of ratification of UN or AU anti-corruption
Conventions
..
..
Adoption of anti-corruption strategies
Adoption of new legislation on public procurement
..
Reform of Central Administration
Promotion of decentralization and improvement of local
Administration
..
Strengthening of financial management systems
..
..
Reinforcement of external Control Bodies
..
Privatisation of public assets
..
Establishment of one stop shops for creation of enterprises
113
RTL
STP
MOZ
RGB
Specified Items
RCV
Key issues in Clusters
Governance Clusters (10th EDF)
ANG
Commitments-10th EDF
Creation of mechanisms for extra-judicial conflict settlement
6.Internal and external security
7.Social Governance
8.International and regional
context
9.Quality of partnership
Management of natural
resources
Internal stability/conflict
prevention
External threats and global
security
NA
Reform of labour legislation
Promotion of (other measures) for a more Business-friendly
environment
Adoption of mechanisms for preservation of environmental
quality
..
NIL
..
Reinforcement of borders control
..
Improvement of efficiency and quality of Education
..
Improvement of efficiency and quality of Health care services
..
Regional integration
Negotiation of EPAs with EU
..
Involvement in APRM
..
Migration
Participation in APRM initiatives
Fight against illegal immigration and trafficking of human
beings
..
Political dialogue
Strengthening of political dialogue
..
Programming dialogue
NIL
..
Non-State Actors
Reform of legislation on the role of NSA
..
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114
ANNEX H – CONVERGENCE ANALYSIS: T4
EC cooperation with PALOP & Timor Leste * Governance-10th EDF *
Field Mission Assessed needs and priorities-6 Countries convergence analysis
Table 4
Preventing and combatting domestic violence
X
X
Improvement of the penitentiary systems
X
X
Establishment or development of the Ombudsman
X
Legal aid to Citizens*Access to Justice by all
X
X
Common
RTL
X
2
X
4
Cod.
Nr
Refs
1.1.
8
1.2.
24
2
1
X
X
3
X
1
X
1
Support to communitarian radios
Support to paper press
X
Support to media regulation and fostering basic sector legislation
X
Qualification and skills upgrading for Journalists
X
Enhancing investigative journalism
X
Establishment of an Observatory of Press
X
X
X
X
3
X
2
X
X
Exchange of A/V contents for the media
X
Recovering & preserving historical TV archives
X
Co-production of A/V contents for the media
X
X
4
X
2
1
Setting-up a lusophone media network
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
STP
X
Awareness-raising of Citizens' rights and duties
Protection of Citizens' private data
MOZ
RGB
RCV
Assessed similar ideas (re-formulated sentences when appropriate)
ANG
9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
X
1
2
1
X
2
115
2
Improvement of electoral legislation
X
1
Improvement in the preparation of the electoral process (inluding
ICT tools)
X
Establishment of an Electoral Observatory
Organising a pool of Electoral Experts
X
3
X
X
2
Exploitation of existing good practices on the electoral process (eg:
UNDP's)
X
X
X
Skills-upgrading of parliamentary Staff
X
X
1
X
2
X
3
X
X
X
X
X
X
Supporting the Youth Parliament experiments
X
Awareness-raising of the role and operation of the Courts of
Auditors
X
Technical assistance to capacity-building of the Courts of Auditors
1
X
1
2
X
X
X
23
2
Establishment of a lusophone parliamentary training centre
Enhancing the lusophone parliamentary network
1.4.
3
X
Capacity-building and modernisation of Parliaments (including ICT
tools)
Establishment of parliamentary multimedia centres
15
1
Capacity-building for monitoring Governance performance
X
1.3.
1
X
Awareness-raising of parliamentary activity
Nr
Refs
1
X
Exchange or pooling of electoral materials
Cod.
1
X
Interchanges on electoral subjects & networking of Electoral
Committees
Skills upgrading of senior Auditors Courts staff
X
X
Training of electoral Agents
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
Common
X
Publication of civic education materials (including electoral-related)
RTL
X
Assessed similar ideas (re-formulated sentences when appropriate)
STP
RGB
MOZ
RCV
ANG
9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
2
2
1
X
2
116
Common
RTL
STP
Upgrading of Documentation Centres of the Courts of Auditors
X
X
2
Technical interchanges among senior staff of the Courts of Auditors
X
X
2
Support to prevention of juvenile delinquency
X
X
2
Reinforcement of immigration control
X
X
2
Accelerating reform of Legal Codes
X
X
2
Modernisation of registry and notary Offices
X
X
2
Establishment of Juvenile Courts
X
Development of extra-judicial conflict resolution instances
Prevention and prosecution of money-laundering
X
X
Nr
Refs
2.0.
33
1
X
2
X
1
Initial training for Magistrates(temporary)
Skills upgrading for Justice personnel
Cod.
1
Establishment of Juvenile Correctional facility
X
X
X
Interchanges for P.Os. Senior staff
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
MOZ
RGB
RCV
Assessed similar ideas (re-formulated sentences when appropriate)
ANG
9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
X
1
X
X
X
5
1
Capacity-building on criminal investigation
X
1
Setting-up or improving Financial Information Units
X
1
Improving fight against drugs trafficking
X
Upgrading of juridical libraries ( at P.O.s and other)
X
Digital real-time connection between the P.O. and the Criminal
Police
X
1
X
2
1
Qualification of Police Specialists (for Special Police Units)
X
Reinforcement of laboratories/supply of equipment for Scientific
Police
X
X
2
1
117
Setting-up a lusophone (common) Police Academy for senior
Officers
X
Improvements in the issuance of secure ID cards and passports
X
X
X
Common
X
1
Networking among P.Os.on anti-corruption subjects
X
1
X
1
X
3
Strengthening of the lusophone Public Administration Schools
network
X
1
Establishment of the PALOP Observatory of Public Administration
X
1
Establishmenrt of the lusophone Public Administration web-site
X
1
X
X
Reinforcement of ICT systems and tools in Public Administration
X
Training of Trainers for State Reform
X
Improving and expanding the network of one-stop-shops for the
Citizen
Skills upgrading for Statistics personnel
X
Establishment of a lusophone (common) Statistics School
3.0.
4
4.1.
23
1
X
Skills upgrading of Local Administration personnel
Nr
Refs
3
Reinforcement of the legal framework on combatting corruption
Establishment of an Observatory on combatting corruption
Cod.
1
Improving digital communications on fighting corruption
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
RTL
STP
MOZ
RGB
RCV
Assessed similar ideas (re-formulated sentences when appropriate)
ANG
9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
1
1
X
1
X
2
X
1
Fostering South-South coperation in Statistics
X
1
Interchanges on de-centralisation
X
1
118
Common
RTL
STP
MOZ
Interchanges on territorial management
X
1
Capacity-building on territorial management (including adoption of
ICT tools)
X
1
Improving local planning (Municipal Master Plans)
X
1
Implementing digitalised territorial surveys
X
X
X
1
Setting-up Employment Centres
X
1
Setting-up of one Institute for macroeconomic advanced studies (cofunding)
X
Nr
Refs
5.1.
6
5.2.
5
1
X
1
Fostering an entrepreneurial culture
X
Modernisation of the legal framework concerning the private sector
X
1
X
2
Networking of Chambers of Commerce
X
Setting-up or expanding a network of one-stop-shops for the
Enterprise
X
Launching (common) environmental education programmes
X
1
Determination of a common strategy for urban solid waste
management
X
1
Determination of a common strategy for natural parks management
X
1
Enhancing protection of endangered natural resources (beaches;
forests)
Cod.
2
Setting-up (market-oriented) Centres for Professional Training
Skils upgrading for Health personnel
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
RGB
RCV
Assessed similar ideas (re-formulated sentences when appropriate)
ANG
9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
X
X
1
X
2
2
119
Strengthening Civil Protection capabilities (disaster preparedeness)
Combined training for Civil Protection personnel
X
3
X
1
Collection of small arms and light weapons illegally held by civilians X
Support to Universities and scientific research
X
1
Funding post-graduation scholarships
X
1
Improvements to the Schools Inspectorate systems
X
1
Interchanges among Public Health Schools and among Nursing
Schools
X
2
Networking for Health information sharing
X
1
Setting-up virtual Health libraries
X
1
Exchange of good practices on Health professional careers
X
1
Setting-up an Observatory of Health human resources
X
1
X
X
1
Publication in common of awareness-raising materials on Gender
Issues
X
1
Networking and interchanges on Gender Issues
X
1
Exploiting good practices on inter-Donros coordination (eg:
ODAMOZ tool)
X
1
Follow-up of progress of the 2005 Paris Declaration goals
X
1
Support to monitoring progress towards the MDG
X
1
Capacity-building for the quality of partnerships
X
1
X
Nr
Refs
6.1.
5
7.0.
13
9.2.
4
9.3
9
1
Training of Trainers and Mediators on Gender Issues
Capacity-building for NGOs and their platforms & federations
Cod.
1
Reform or improvement of Labour Codes
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
Common
RTL
STP
X
MOZ
X
RGB
RCV
Assessed similar ideas (re-formulated sentences when appropriate)
ANG
9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
X
X
3
120
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
Common
RTL
STP
MOZ
RGB
Interchange of good practices among NGO/NSA and their
platforms
X
Translation and publication of literature pertaining to NGOs action
X
1
Providing technical support to NGOs at local level
X
1
Setting-up thematic Observatories concerned with specific targets
X
1
Setting-up shared resources centres and logistics facilities for smaller
NGOs
(*) see decoding in Table on Section 4.2.
RCV
Assessed similar ideas (re-formulated sentences when appropriate)
ANG
9.3.
9.2.
9.1.
8.3.
8.2.
8.1.
7.0
6.2.
6.1.
5.2.
5.1.
4.2.
4.1.
3.0.
2.0.
1.4.
1.3.
1.2.
1.1.
Governance cluster/Key-issue CODES (*)
X
Cod.
Nr
Refs
2
X
1
172
172
121
ANNEX I – PROJECT FICHES
1. Support to Consolidation of Democracy and the
Rule of Law
2. Support to Improvement on the Quality and
Proximity of Public Services
3. Support to Reinforcement of Economic
Governance and Private sector Development
4. Support to Consolidation and Sustainability of
the Cooperation Partnerships
Study of Identification of areas of governance for multicountry PALOP cooperation.
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122
Fiche 1
EUROPEAN COMMISSION
IDENTIFICATION FICHE for PROJECT APPROACH
A – PROJECT DATA
1. Title and CRIS
reference1
Support to Consolidation of Democracy and the Rule of Law
2. Country (or region)
PALOP + Timor-Leste
3. DAC code & sector
4. Total EC amount (+ % of indicative programme)
10 M€ (or 30 % of overall budget)
5. Beneficiary contribution (if any)
M€
6. Other contributions (if any)
M€
7. Legal basis (delete as
appropriate)
8. Budget Line (for EDF
only, mention if EDF A
or B Envelope)
ACP-EC Partnership Agreement (10th EDF)
EDF – A Envelope (PALOP&TL specific NIP contributions)
9. Method of
implementation
Decentralised management or
10. Pilot/innovative project
Yes X
Joint management with an international organisation
B – PROVISIONAL TIMETABLE
1. Presentation of identification fiche at oQSG
MM/YY
2. Presentation of FP / TAPS at oQSG
MM/YY
3. Launch of inter-service consultation
MM/YY
4. Presentation to MS Committee
MM/YY
Date:
Signed: (Head of Delegation or Head of Unit)
Task manager:
Geographical co-ordinator:
C – FINDINGS AT THE END OF THE IDENTIFICATION STAGE (LENGTH: MAX 8 PAGES)
1
Creation of a CRIS project number, link with the focal sector of NIP/CSP, introduction of the relevant DAC
codes, upload of the identification fiche in CRIS. Please ensure that the latest version is uploaded once approved.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
123
1. Summary description
Objective: providing continuity and enlarging the ongoing cooperation between the EU and
the PALOP group of countries and also extending it to Timor Leste, with focus on Good
Governance
Purpose: To contribute to sustainable improvements to effectiveness and efficiency of State
Institutions, under the perspective of reinforcement of democratic governance and the rule of
law.
Expected results:
A. Electoral systems and procedures improved and higher levels of civic education attained.
B. Judiciary systems strengthened and modernised.
C. Law enforcement institutions modernised and prevention of unlawful acts improved.
D. Overseeing and supervision capabilities of Parliaments and Courts of Auditors
strengthened.
E. Institutional fight against corruption and organised crime reinforced.
In accordance with the Terms of Reference for the Study of Identification of Areas of
Governance for Multicountry Palop Cooperation in the Context of the 10th EDF the devised
areas of cooperation were identified and a number of projects was also pre-identified,
included this one. For this purpose a desk study and a field mission were successfully
carried out so that the required information could be gathered and processed.
The project which is the object of this pre-identification fiche is in line with some of the
provisions or recommendations prescribed by the Paris Declaration in Aid Effectiveness (eg:
Indicators #1 and#4; probably also #3)
2. Consistency with EC policy, programming framework and aid effectiveness agenda
This project is one of the mutually linked components of a multi-country Initiative aimed at
fostering cooperation between the EU and a group of six ACP countries, which was the
object of previous political dialogue between the EU and the six countries concerned.
The information collected for the specific purposes of identifying areas of cooperation and
pre-identifying associated projects included the assessment of the CSP/NIPs concerned.
Furthermore important inputs were also seized from the Governance Profile and Government
Commitments established for each of the six Countries concerned.
Good Governance (including the issue of Human Rights) is the single focus area of the new
Initiative that provides the programming umbrella for this project. Gender equality and
environmental sustainability are important issues which will deserve specific attention in
one of the other projects that will be developed under the same programmatic framework of
operation.
Within the scope of political dialogue between the EU and its ACP Partners and considering
both the nature of the issues commonly addressed by the new Initiative and the need for
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
124
continuity of the RIP PALOP II it was agreed that a “project approach” would be used,
instead of the SPSP and/or GBS instruments.
This project is in line with the principles of the 2005 Paris Declaration in Aid Effectiveness in
the sense that a strong coordination is advocated with other EC-funded programmes and
projects and also with other Donors’ initiatives, including combined operations (eg: basket
funding) whenever possible.
3. Consistency with Partner Government(s) policies and strategies
The areas of cooperation concerning this project are consistent with National Poverty
Reduction Strategies and also with all relevant sector policies. Consistency is guaranteed
through project preparation and implementation methodologies that shall/will involve a
great deal of consultation among relevant Entities in the ACP Partner countries and the EC
Head Offices and local Delegations. A preliminary study, of which the main workload was
devoted to visiting the Countries for the purpose of seizing from the very sources
programming information (needs and priorities; good practices and pitfalls) has led to the
pre-identification of a number of projects, including this one.
4. Problem analysis
This project addresses weaknesses pertaining to the full and durable implementation of
democracy and rule of law.
The applicable Problem tree and Objectives tree can be displayed as follows:
Limited or otherwise unsatisfactory response from State Instittutions in
democratic governance and rule of law
Low efficiency of the
electoral systems
Gaps in the legal
framework
Poor response of the
law enforcement
systems
Shortcomings in the
judiciary systems
Skills shortages
Organisational
weaknesses
Equipment needs
Insufficient control of
corruption and
organised crime
Performance gaps in
the institutional control
systems
Lack of international
coordination
Manpower shortage
Insufficient public
awareness
poor institutional
coordination
Improved and recognised response from State Instittutions in the
domains of democratic governance and rule of law
Access & response
improvements of the
judiciary systems
Improved efficiency of
the electoral systems
Provision of proper
regulation
Qualification initiatives
Expertise inputs
Improved response of
the law enforcement
systems
Re-equipment
(including ICTs)
Improvements on role
and efficiency of
institutional control
systems
Improved response to
corruption and
organised criime
Interchange and
networking
Hiring of skilled staff
Awareness-rasing
initiatives
Stengthening of
coordination
Key stakeholders:
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
125
•
•
•
•
Electoral bodies
Entities from Judicial, Law-enforcement and Penitentiary systems
Parliaments and Court of Auditors
Citizens in general
5. Stakeholders analysis
Electoral bodies can be independent structures or Government departments. Political parties
are also relevant Stakeholders.
The Judicial system includes the Courts of law, the Office of the General Prosecutor, the self
ruled Magistrates’ Councils and other independent judicial structures.
The Law enforcement system includes both the uniformed and the criminal investigation
branches of the national or local Police Forces. Uniformed units include the ordinary civic
patrol service as well as the special units such as: borders, customs, immigration, maritime,
road, forestry, etc… The so-called Scientific Police is also targeted by the project.
Citizens should be considered as stakeholders both as electors and also as potential users of
the services provided by the justice and law enforcement systems.
This project is not specifically oriented towards the gender or the vulnerable people issues;
however it will take those aspects into due consideration under a mainstreaming
implementation perspective.
ACP Partners have been and will further be involved in all stages of project preparation and
implementation. The consultation process is a continuing process, irrespective of the fact that
pre-identification of this project was in itself achieved by means of processing suggestions
and ideas directly seized in the Countries (interviewing of representative Entities; debates
with the NAO Offices and the EC Delegations). Ownership is therefore expected to be
achieved with a high degree of success.
6. Strategy analysis, lessons learned and link with complementary actions
This project is part of a wider multi-country cooperation initiative, with a single focus on Good
Governance which was agreed in the context of the EC/ACP political dialogue pertaining to
10th EDF programming.
This modality of cooperation is fully compatible with the NIPs-based bilateral cooperation
for each of the Countries involved not only because subsequent fine-tuning programming
(identification of Activities/Times/Resources) will avoid overlapping or double funding but
also because (and mainly) it will deliver joint or common actions to be developed within the
scope of a 6-Countries (common solutions for common problems), not single-Country oriented
outputs.
The project was designed and shall be implemented taking into consideration: i) past
experience in implementation of the RIP PALOP (I and II editions); ii) results and lessons
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
126
learned from any other (past or ongoing) projects financed by the EC or by other Donors,
which may also reveal interesting degrees of affinity.
7. Proposed project description
The overall objective, purpose and expected results referred to in section 1. are organised in a
strict hierarchical line. The logical links between the identified problems and proposed
objectives are demonstrated in section 5. above.
Project elementary Activities will be determined at a next programming stage. However the
following main project Components have been identified as the lines of action that may
provide the proper response to the highly converging needs and priorities assessed within
the targeted 6-Countries universe.
A.
Support to the improvement of electoral systems and procedures
B.
Support to strengthening and modernisation of the judiciary systems
C.
Support to the prevention of unlawful acts and to the modernisation of law
enforcement systems
D.
Support to the reinforcement of overseeing and supervision functions of the
Parliaments and the Courts of Auditors
E.
Support to the reinforcement of the fight against corruption and organised crime.
8. Resource and cost implications (includes proposal for scope of ECOFIN analysis)
An indicative allocation of 10 million Euro (or circa 30% of overall Initiative budgetary
envelope under the EDF funding) will apply to the period of 2009-2013 and is to be
distributed among the five components listed above.
It should not be excluded that any matching funds from other Donors or the ACP Partners
may also be allocated to the project.
At this stage it would be premature to describe and detail the resources required for the
implementation of this project, of which the Activity-level content will only be determined at
a subsequent phase.
9. Implementation issues
The issue of implementation (modalities; coordination structures; management procedures)
will probably be the object of a decision at overall Initiative level. That decision should take
into consideration the following aspects:
- Practical lessons learnt from the RIP PALOP II coordination and management
- Commitments issued out of the 2005 Paris Declaration on Aid Effectiveness
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
127
- The 10th EDF financial framework and the applying standard procedures
Considering the effectiveness and efficiency however it seems advisable to minimise, in any
devisable circumstance, the use of the budget estimation mechanism. Local involvement and
ownership should notwithstanding be granted an important role as far as coordination and
management is concerned.
Project monitoring and project evaluation mechanisms, including the determination of
performance indicators and of alignment with other Donors’ procedures are to be described
at the next identification stage.
10. Assumptions and risks
Basic assumptions can be listed as:
•
•
•
•
•
•
•
No major changes will occur concerning the framework of cooperation between
the EU and the group of six countries concerned by the new Initiative or among
those countries themselves.
A final agreement concerning the structure of the contents of the overall
Initiative (including the precise determination of the projects and of its basic
components) will be reached in due time considering the 10th EDF
implementation schedule.
Coordination and management principles, mechanisms and basic tools applying
to the new Initiative will be agreed among all parties involved within a
timeframe compatible with the completion of its final programming and its
timely implementation.
Implementation of all projects and related actions within the scope of the new
Initiative may and will be implemented with a reasonable degree of simultaneity
so that relevant inter-project synergies may be obtained.
Adequate linkage between the RIP PALOP II and this project will be secured,
namely by means of a timely availability of reports and of any relevant material
outputs of the former.
10th EDF financial resources will be available in practical terms by or before
project implementation start date.
Project will be implemented within a reasonable delay with regard to preidentification stage, in order to avoid major mismatching between project goals
and actual needs and priorities (as opposed to those initially targeted).
Assessed risks concern mainly the non observance of one or more of the assumptions
listed above.
11. Sustainability
Sustainability was one of the key concerns at the preliminary programming stage of the new
Initiative (identification of areas of cooperation and pre-identification of projects, including
this one). Effective Ownership was considered as one of more important factors allowing for
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
128
the generation of benefits beyond the period of the EC direct support to project
implementation.
12. Next steps, work-plan and time schedule for the formulation phase
Specification of Activities, Work plan, Time schedule, Executive responsibilities and
allocation of Resources will be the object of a next programming stage as it could not be
realistically performed at the overall pre-identification phase.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
129
Fiche 2
EUROPEAN COMMISSION
IDENTIFICATION FICHE for PROJECT APPROACH
A – PROJECT DATA
1. Title and CRIS
reference2
Support to Improvement on the Quality and Proximity of Public
Services
2. Country (or region)
PALOP + Timor-Leste
3. DAC code & sector
4. Total EC amount (+ % of indicative programme)
7 M€ (or 20 % of overall budget)
5. Beneficiary contribution (if any)
M€
6. Other contributions (if any)
M€
7. Legal basis (delete as
appropriate)
ACP-EC Partnership Agreement (10th EDF)
8. Budget Line (for EDF
only, mention if EDF A
or B Envelope)
EDF – A Envelope (PALOP&TL specific NIP contributions)
9. Method of
implementation
Decentralised management or
10. Pilot/innovative project
Yes X
Joint management with an international organisation
B – PROVISIONAL TIMETABLE
1. Presentation of identification fiche at oQSG
MM/YY
2. Presentation of FP / TAPS at oQSG
MM/YY
3. Launch of inter-service consultation
MM/YY
4. Presentation to MS Committee
MM/YY
Date:
Signed: (Head of Delegation or Head of Unit)
Task manager:
Geographical co-ordinator:
C – FINDINGS AT THE END OF THE IDENTIFICATION STAGE (LENGTH: MAX 8 PAGES)
2
Creation of a CRIS project number, link with the focal sector of NIP/CSP, introduction of the relevant DAC
codes, upload of the identification fiche in CRIS. Please ensure that the latest version is uploaded once approved.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
130
1. Summary description
Objective: providing continuity and enlarging the ongoing cooperation between the EU and
the PALOP group of countries and also extending it to Timor Leste, with focus on Good
Governance
Purpose: To contribute to achieving improvements on Government Effectiveness by
promoting and supporting quality of public services and also proximity towards the citizens.
Expected results:
A. De-concentration process improved and proximity of public services towards the citizens
attained.
B. Implemented elected local power strengthened and participation of Citizens at local level
enhanced.
C. Capacity for disaster-prevention reinforced and response preparedness regarding
disasters and calamities improved.
D. Registry and notary Offices modernised.
E. Issuance of civil identification documents modernised and the security system concerned
reinforced.
In accordance with the Terms of Reference for the Study of Identification of Areas of Governance
for Multicountry Palop Cooperation in the Context of the 10th EDF the devised areas of
cooperation were identified and a number of projects was also pre-identified, included this
one. For this purpose a desk study and a field mission were successfully carried out so that
the required information could be gathered and processed.
The project which is the object of this pre-identification fiche is in line with some of the
provisions or recommendations prescribed by the Paris Declaration in Aid Effectiveness (eg:
Indicators #1 and#4; probably also #3)
2. Consistency with EC policy, programming framework and aid effectiveness agenda
This project is one of the mutually linked components of a multi-country Initiative aimed at
fostering cooperation between the EU and a group of six ACP countries, which was the
object of previous political dialogue between the EU and the six countries concerned.
The information collected for the specific purposes of identifying areas of cooperation and
pre-identifying associated projects included the assessment of the CSP/NIPs concerned;
Governance Commitments. Furthermore important inputs were also seized from the
Governance Profile and Government Commitments established for each of the six Countries
concerned.
Good Governance (including the issue of Human Rights) is the single focus area of the new
Initiative that provides the programming umbrella for this project. Gender equality and
environmental sustainability are important issues which will deserve specific attention in
one of the other projects that will be developed under the same programmatic framework of
operation.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
131
Within the scope of political dialogue between the EU and its ACP Partners and considering
both the nature of the issues commonly addressed by the new Initiative and the need for
continuity of the RIP PALOP II it was agreed that a “project approach” would be used,
instead of the SPSP and/or GBS instruments.
This project is in line with the principles of the 2005 Paris Declaration in Aid Effectiveness in
the sense that a strong coordination is advocated with other EC-funded programmes and
projects and also with other Donors’ initiatives, including combined operations (eg: basket
funding) whenever possible.
3. Consistency with Partner Government(s) policies and strategies
The areas of cooperation concerning this project are consistent with National Poverty
Reduction Strategies and also with all relevant sector policies. Consistency is guaranteed
through project preparation and implementation methodologies that shall/will involve a
great deal of consultation among relevant Entities in the ACP Partner countries and the EC
Head Offices and local Delegations. A preliminary study, of which the main workload was
devoted to visiting the Countries for the purpose of seizing from the very sources
programming information (needs and priorities; good practices and pitfalls) has led to the
pre-identification of a number of projects, including this one.
4. Problem analysis
This project addresses weaknesses pertaining to government effectiveness in the delivery of
the quality of public services and proximity towards the citizens.
The applicable Problem tree and Objectives tree can be displayed as follows:
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
132
Limited perfomance on Government Effectiveness of quality of
public services and proximity towards citizens
Level of
implementation of
local power very low
Limited progress on
de-concentration
process
Low levels of
prevention of
disaters/calamities
and response
prepardness
Inadequate human
resources and tools
for registry and notary
offices
Proximity towards
citizens very low
Poor coordination and
implementation
measures
Coordination and
logistics shortages
Poor equipment and skills
Inadequate methods
of issuance of civil
ident. documents and
poor security system
Recognised improvements on Government Effectiveness of quality of
public services and proximity towards citizens
Level of
implementation of
local power improved
Progress on deconcentration process
improved
Prevention of
disasters/calamities
and reponse
prepardness
improved
Human resources and
tools for registry and
notary offices
adequated
Higher levels of
proximity towards
citizens
Good levels of
coordination on
implemetation
measures
Better coordination
and adequate material
means provided
Better equipment and
skills avaiable
Methods of issuance
of civil ident.
documents adequated
and securiy system
improved
Key stakeholders:
•
•
•
•
•
Central Government Departments operating at local and intermediate levels
Elected local Administration; local instances of participation
Emergency response Services, at central, intermediate and local levels.
Entities concerned with civil identification
Registry and Notary Offices.
5. Stakeholders analysis
Central Government, Regional and Sub-regional Departments, Local Entities are directly
involved in the process of de-concentration. The engagement of the State and public
institutions promotes the structures and processes for the provision of public services.
Elected Local Administration and Local Participatory Instances are part of the system
aimed at delivering public services to the public, under acceptable standards of quality and
proximity.
Emergency Response Agencies and all other Services /Units concerned with the prevention
of (and response to) civil calamities and disasters will directly benefit from modernisation
measures that may contribute to capacity-strengthening, including international cooperation
State departments and judiciary system Entities, including the National Directorates of
Registers and Notaries will benefit from setting up a Citizens’ databases and other
innovative measures and for response-upgrading
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
133
State departments and judiciary system entities, including the National Directorates for
Civil Identification will benefit from setting up a Citizens’ databases and other innovative
measures and for response-upgrading
Citizens/General Public are the ultimate stakeholders of this project, being the main
beneficiaries and potential users of the services provided by all the components of this
project.
This project is not specifically oriented towards the gender or the vulnerable people issues;
however it will take those aspects into due consideration under a mainstreaming
implementation perspective.
ACP Partners have been and will further be involved in all stages of project preparation and
implementation. The consultation process is a continuing process, irrespective of the fact that
pre-identification of this project was in itself achieved by means of processing suggestions
and ideas directly seized in the Countries (interviewing of representative Entities; debates
with the NAO Offices and the EC Delegations). Ownership is therefore expected to be
achieved with a high degree of success.
6. Strategy analysis, lessons learned and link with complementary actions
This project is part of a wider multi-country cooperation initiative, with a single focus on Good
Governance, which was agreed in the context of the EC/ACP political dialogue pertaining to
10th EDF programming.
This modality of cooperation is fully compatible with the NIPs-based bilateral cooperation
for each of the Countries involved not only because subsequent fine-tuning programming
(identification of Activities/Times/Resources) will avoid overlapping or double funding but
also because (and mainly) it will deliver joint or common actions to be developed within the
scope of a 6-Countries (common solutions for common problems), not single-Country oriented
outputs.
The project was designed and shall be implemented taking into consideration: i) past
experience in implementation of the RIP PALOP (I and II editions); ii) results and lessons
learned from any other (past or ongoing) projects financed by the EC or by other Donors,
which may also reveal interesting degrees of affinity.
7. Proposed project description
The overall objective, purpose and expected results referred to in section 1. are organised in a
strict hierarchical line. The logical links between the identified problems and proposed
objectives are demonstrated in section 4. above.
Project elementary Activities will be determined at a next programming stage. However the
following main project Components have been identified as the lines of action that may
provide the proper response to the highly converging needs and priorities assessed within
the targeted 6-Countries universe.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
134
A.
B.
C.
D.
E.
Support to promoting de-concentration model and enable proximity towards the
citizens.
Support to bringing the local elected administration and participation of local
instances and the citizens closer together.
Support the reinforcement of capacity-building and prevention of calamities and
disasters.
Support the modernisation of the registry and notary Offices.
Support the modernisation and security reinforcement of civil identification
documents.
8. Resource and cost implications (includes proposal for scope of ECOFIN analysis)
An indicative allocation of 7 million Euro (or circa 20% of overall Initiative budgetary
envelope under the EDF funding) will apply to the period of 2009-2013 and is to be
distributed among the five components listed above.
It should not be excluded that any matching funds from other Donors or the ACP Partners
may also be allocated to the project.
At this stage it would be premature to describe and detail the resources required for the
implementation of this project, of which the Activity-level content will only be determined at
a subsequent phase.
9. Implementation issues
The issue of implementation (modalities; coordination structures; management procedures)
will probably be the object of a decision at overall Initiative level. That decision should take
into consideration the following aspects:
- Practical lessons learnt from the RIP PALOP II coordination and management
- Commitments issued out of the 2005 Paris Declaration on Aid Effectiveness
- The 10th EDF financial framework and the applying standard procedures
Considering the effectiveness and efficiency however it seems advisable to minimise, in any
devisable circumstance, the use of the budget estimation mechanism. Local involvement and
ownership should notwithstanding be granted an important role as far as coordination and
management is concerned.
Project monitoring and project evaluation mechanisms, including the determination of
performance indicators and of alignment with other Donors’ procedures are to be described
at the next identification stage.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
135
10. Assumptions and risks
Basic assumptions can be listed as:
•
No major changes will occur concerning the framework of cooperation between
the EU and the group of six countries concerned by the new Initiative or among
those countries themselves.
• A final agreement concerning the structure of the contents of the overall
Initiative (including the precise determination of the projects and of its basic
components) will be reached in due time considering the 10th EDF
implementation schedule.
• Coordination and management principles, mechanisms and basic tools applying
to the new Initiative will be agreed among all parties involved within a
timeframe compatible with the completion of its final programming and its
timely implementation.
• Implementation of all projects and related actions within the scope of the new
Initiative may and will be implemented with a reasonable degree of simultaneity
so that relevant inter-project synergies may be obtained.
• Adequate linkage between the RIP PALOP II and this project will be secured,
namely by means of a timely availability of reports and of any relevant material
outputs of the former.
• 10th EDF financial resources will be available in practical terms by or before
project implementation start date.
• Project will be implemented within a reasonable delay with regard to preidentification stage, in order to avoid major mismatching between project goals
and actual needs and priorities (as opposed to those initially targeted).
Assessed risks concern mainly the non observance of one or more of the
assumptions listed above.
11. Sustainability
Sustainability was one of the key concerns at the preliminary programming stage of the new
Initiative (identification of areas of cooperation and pre-identification of projects, including
this one). Effective Ownership was considered as one of more important factors allowing for
the generation of benefits beyond the period of the EC direct support to project
implementation.
12. Next steps, work-plan and time schedule for the formulation phase
Specification of Activities, Work plan, Time schedule, Executive responsibilities and
allocation of Resources will be the object of a next programming stage as it could not be
realistically performed at the overall pre-identification phase.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
136
Fiche 3
EUROPEAN COMMISSION
IDENTIFICATION FICHE for PROJECT APPROACH
A – PROJECT DATA
1. Title
and
CRIS Support to Reinforcement of Economic Governance and Private
3
reference
sector Development
2. Country (or region)
PALOP + Timor-Leste
3. DAC code & sector
4. Total EC amount (+ % of indicative programme)
6 M€ (or 20 % of overall budget)
5. Beneficiary contribution (if any)
M€
6. Other contributions (if any)
M€
7. Legal basis (delete as ACP-EC Partnership Agreement (10th EDF)
appropriate)
8. Budget Line (for EDF
only, mention if EDF A EDF – A Envelope (PALOP&TL specific NIP contributions)
or B Envelope)
9. Method
of Decentralised management or
implementation
Joint management with an international organisation
10. Pilot/innovative project Yes X
B – PROVISIONAL TIMETABLE
1.
2.
3.
4.
Presentation of identification fiche at oQSG
Presentation of FP / TAPS at oQSG
Launch of inter-service consultation
Presentation to MS Committee
MM/YY
MM/YY
MM/YY
MM/YY
Date:
Signed: (Head of Delegation or Head of Unit)
Task manager:
Geographical co-ordinator:
3
Creation of a CRIS project number, link with the focal sector of NIP/CSP, introduction of the relevant DAC
codes, upload of the identification fiche in CRIS. Please ensure that the latest version is uploaded once approved.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
137
C – FINDINGS AT THE END OF THE IDENTIFICATION STAGE (LENGTH: MAX 8 PAGES)
1. Summary description
Objective: providing continuity and enlarging the ongoing cooperation between the EU and
the PALOP group of countries and also extending it to Timor Leste, with focus on Good
Governance
Purpose: To contribute to achieving improvements to economic governance with an
emphasis on promoting sustained development of competitive private sectors, convivial
with the market regulatory functions of the States
Expected results:
A. Existing enterprises becoming more competitive as a result of modernisation measures
B. New enterprises starting-up and entering into business, based on sound investment
decisions
C. Chambers of Commerce and Business or Employers Unions with reinforced capabilities
and offering better or innovative services to their Members and to prospective Investors
D. State Agencies providing interface with the Private Sector activities with notable
improvements achieved in the quality of services rendered, in the perspective of Business
competitiveness and market development
E. Economy regulation independent Entities established or reinforced and duly recognized
as important players in the overall market
In accordance with the Terms of Reference for the Study of Identification of Areas of Governance
for Multicountry Palop Cooperation in the Context of the 10th EDF the devised areas of
cooperation were identified and a number of projects was also pre-identified, included this
one. For this purpose a desk study and a field mission were successfully carried out so that
the required information could be gathered and processed.
The project which is the object of this pre-identification fiche is in line with some of the
provisions or recommendations prescribed by the Paris Declaration in Aid Effectiveness (eg:
Indicators #1 and#4; probably also #3)
2. Consistency with EC policy, programming framework and aid effectiveness agenda
This project is one of the mutually linked components of a multi-country Initiative aimed at
fostering cooperation between the EU and a group of six ACP countries, which was the
object of previous political dialogue between the EU and the six countries concerned.
The information collected for the specific purposes of identifying areas of cooperation and
pre-identifying associated projects included the assessment of the CSP/NIPs concerned;
Governance Commitments. Furthermore important inputs were also seized from the
Governance Profile and Government Commitments established for each of the six Countries
concerned.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
138
Good Governance (including the issue of Human Rights) is the single focus area of the new
Initiative that provides the programming umbrella for this project. Gender equality and
environmental sustainability are important issues which will deserve specific attention in
one of the other projects that will be developed under the same programmatic framework of
operation.
Within the scope of political dialogue between the EU and its ACP Partners and considering
both the nature of the issues commonly addressed by the new Initiative and the need for
continuity of the RIP PALOP II it was agreed that a “project approach” would be used,
instead of the SPSP and/or GBS instruments.
This project is in line with the principles of the 2005 Paris Declaration in Aid Effectiveness in
the sense that a strong coordination is advocated with other EC-funded programmes and
projects and also with other Donors’ initiatives, including combined operations (eg: basket
funding) whenever possible.
3. Consistency with Partner Government(s) policies and strategies
The areas of cooperation concerning this project are consistent with National Poverty
Reduction Strategies and also with all relevant sector policies. Consistency is guaranteed
through project preparation and implementation methodologies that shall/will involve a
great deal of consultation among relevant Entities in the ACP Partner countries and the EC
Head Offices and local Delegations. A preliminary study, of which the main workload was
devoted to visiting the Countries for the purpose of seizing from the very sources
programming information (needs and priorities; good practices and pitfalls) has led to the
pre-identification of a number of projects, including this one.
4. Problem analysis
This project addresses weaknesses pertaining to economic governance in general and to the
development of a competitive private sector
The applicable Problem tree and Objectives tree can be displayed as follows:
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
139
Role, dimension and competitive nature of private sector below
expectations and needs
Existing enterprises
with old and low
competitive market
approaches
Gaps in the legal
framework
Insufficient quantity
and quality of new
enterprises
Limited role and
capacity of Chambers
of Commerce
Limited role and
response capability of
Economy Regulation
Agencies
Inadequete response by
Enterprise-related State
Agencies
Skills shortages
Organisational
weaknesses
Insufficient public
awareness
poor institutional
coordination
Improved role and size of a moderne and competitive private sector
Revamping of existing
enterprises
Starting-up of new and
solid business
initiatives
Limited role and
capacity of Chambers
of Commerce
Limited role and
response capability of
Economy Regulation
Agencies
Inadequete response by
Enterprise-related State
Agencies
Provision of BusinessQualification initiatives
friendly regulation
Expertise inputs
Public-awareness
initiatives
Stengthening of
coordination
Key stakeholders:
•
•
•
•
•
Existing private enterprises
Prospective entrepreneurs
Chambers of Commerce and Business or Employers Unions
State Agencies interfacing with the private sector
Economy regulation independent Entities
5. Stakeholders analysis
Enterprises (existing and to be created) are concerned by means of the establishment or
reinforcement of a business-friendly environment that may comprise any incentive measures
aimed at stimulating modernisation or new investments, according to overall economic
criteria.
Private sector representative bodies may be concerned by the project through a number of
different mechanisms, including public-private partnerships or contractual relationships
aimed at supporting or facilitating development of the private sector (information, technical
assistance, training opportunities, management of incentive measures).
State Agencies may benefit from modernisation measures aimed at rendering more effective
or efficient the services rendered to the enterprises (less time-consuming, faster, transparent
or less expensive procedures).
Existing prospective Independent Regulatory Entities may obtain support either to their
own establishment or to improvements in performance and quality of service (technical
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
140
assistance, access to economic information), along with public-awareness and other required
affirmation measures.
This project is not specifically oriented towards the gender or the vulnerable people issues;
however it will take those aspects into due consideration under a mainstreaming
implementation perspective.
ACP Partners have been and will further be involved in all stages of project preparation and
implementation. The consultation process is a continuing process, irrespective of the fact that
pre-identification of this project was in itself achieved by means of processing suggestions
and ideas directly seized in the Countries (interviewing of representative Entities; debates
with the NAO Offices and the EC Delegations). Ownership is therefore expected to be
achieved with a high degree of success.
6. Strategy analysis, lessons learned and link with complementary actions
This project is part of a wider multi-country cooperation initiative, with a single focus on Good
Governance which was agreed in the context of the EC/ACP political dialogue pertaining to
10th EDF programming.
This modality of cooperation is fully compatible with the NIPs-based bilateral cooperation
for each of the Countries involved not only because subsequent fine-tuning programming
(identification of Activities/Times/Resources) will avoid overlapping or double funding but
also because (and mainly) it will deliver joint or common actions to be developed within the
scope of a 6-Countries (common solutions for common problems), not single-Country oriented
outputs.
The project was designed and shall be implemented taking into consideration: i) past
experience in implementation of the RIP PALOP (I and II editions); ii) results and lessons
learned from any other (past or ongoing) projects financed by the EC or by other Donors,
which may also reveal interesting degrees of affinity.
7. Proposed project description
The overall objective, purpose and expected results referred to in section 1. are organised in a
strict hierarchical line. The logical links between the identified problems and proposed
objectives are demonstrated in section 4. above.
Project elementary Activities will be determined at a next programming stage. However the
following main project Components have been identified as the lines of action that may
provide the proper response to the highly converging needs and priorities assessed within
the targeted 6-Countries universe.
A.
B.
C.
Support to competitive market operation and to the creation of micro-enterprises
Support to capacity-building of the Chambers of Commerce and the
Business/Employers Unions, with an impact on services rendered to Members
Support to modernisation of economies and to the regulatory function of the States.
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8. Resource and cost implications (includes proposal for scope of ECOFIN analysis)
An indicative allocation of 6 million Euro (or circa 20% of overall Initiative budgetary
envelope under the EDF funding) will apply to the period of 2009-2013 and is to be
distributed among the five components listed above.
It should not be excluded that any matching funds from other Donors or the ACP Partners
may also be allocated to the project.
At this stage it would be premature to describe and detail the resources required for the
implementation of this project, of which the Activity-level content will only be determined at
a subsequent phase.
9. Implementation issues
The issue of implementation (modalities; coordination structures; management procedures)
will probably be the object of a decision at overall Initiative level. That decision should take
into consideration the following aspects:
- Practical lessons learnt from the RIP PALOP II coordination and management
- Commitments issued out of the 2005 Paris Declaration on Aid Effectiveness
- The 10th EDF financial framework and the applying standard procedures
Considering the effectiveness and efficiency however it seems advisable to minimise, in any
devisable circumstance, the use of the budget estimation mechanism. Local involvement and
ownership should notwithstanding be granted an important role as far as coordination and
management is concerned.
Project monitoring and project evaluation mechanisms, including the determination of
performance indicators and of alignment with other Donors’ procedures are to be described
at the next identification stage.
10. Assumptions and risks
Basic assumptions can be listed as:
•
•
•
No major changes will occur concerning the framework of cooperation between
the EU and the group of six countries concerned by the new Initiative or among
those countries themselves.
A final agreement concerning the structure of the contents of the overall
Initiative (including the precise determination of the projects and of its basic
components) will be reached in due time considering the 10th EDF
implementation schedule.
Coordination and management principles, mechanisms and basic tools applying
to the new Initiative will be agreed among all parties involved within a
Study of Identification of areas of governance for multicountry PALOP cooperation.
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142
•
•
•
•
timeframe compatible with the completion of its final programming and its
timely implementation.
Implementation of all projects and related actions within the scope of the new
Initiative may and will be implemented with a reasonable degree of simultaneity
so that relevant inter-project synergies may be obtained.
Adequate linkage between the RIP PALOP II and this project will be secured,
namely by means of a timely availability of reports and of any relevant material
outputs of the former.
10th EDF financial resources will be available in practical terms by or before
project implementation start date.
Project will be implemented within a reasonable delay with regard to preidentification stage, in order to avoid major mismatching between project goals
and actual needs and priorities (as opposed to those initially targeted).
Assessed risks concern mainly the non observance of one or more of the assumptions listed
above.
11. Sustainability
Sustainability was one of the key concerns at the preliminary programming stage of the new
Initiative (identification of areas of cooperation and pre-identification of projects, including
this one). Effective Ownership was considered as one of more important factors allowing for
the generation of benefits beyond the period of the EC direct support to project
implementation.
12. Next steps, work-plan and time schedule for the formulation phase
Specification of Activities, Work plan, Time schedule, Executive responsibilities and
allocation of Resources will be the object of a next programming stage as it could not be
realistically performed at the overall pre-identification phase.
Study of Identification of areas of governance for multicountry PALOP cooperation.
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143
Fiche 4
EUROPEAN COMMISSION
IDENTIFICATION FICHE for PROJECT APPROACH
A – PROJECT DATA
Support to Consolidation and Sustainability of the Cooperation
1. Title and CRIS
Partnerships
reference4
2. Country (or region)
PALOP + Timor-Leste
3. DAC code & sector
4. Total EC amount (+ % of indicative programme)
5 M€ (or 15 % of overall budget)
5. Beneficiary contribution (if any)
M€
6. Other contributions (if any)
M€
th
7. Legal basis (delete as
ACP-EC Partnership Agreement (10 EDF)
appropriate)
8. Budget Line (for EDF
only, mention if EDF A EDF – A Envelope (PALOP&TL specific NIP contributions)
or B Envelope)
9. Method of
Decentralised management or
implementation
Joint management with an international organisation
10. Pilot/innovative project Yes X
B – PROVISIONAL TIMETABLE
1.
2.
3.
4.
Presentation of identification fiche at oQSG
Presentation of FP / TAPS at oQSG
Launch of inter-service consultation
Presentation to MS Committee
MM/YY
MM/YY
MM/YY
MM/YY
Date:
Signed: (Head of Delegation or Head of Unit)
Task manager:
Geographical co-ordinator:
4
Creation of a CRIS project number, link with the focal sector of NIP/CSP, introduction of the relevant DAC
codes, upload of the identification fiche in CRIS. Please ensure that the latest version is uploaded once approved.
Study of Identification of areas of governance for multicountry PALOP cooperation.
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144
C – FINDINGS AT THE END OF THE IDENTIFICATION STAGE (LENGTH: MAX 8 PAGES)
1. Summary description
Objective: providing continuity and enlarging the ongoing cooperation between the EU and
the PALOP group of countries and also extending it to Timor Leste, focused on Good
Governance
Purpose: To contribute to improving the internal coherence and sustainability of the
cooperation partnership by enhancing the diversity and quality of its various components
Expected results:
A.
NGOs concerned with democratic dialogue and communitarian service with increased
capabilities and an overall reinforced role in Society.
B.
Independent and plural media delivering information of a better quality to enlarged
audiences, under improved conditions of technical and financial sustainability.
C.
Gender, environmental protection and other development cooperation cross-cutting
issues duly addressed by means of special-focus dissemination actions or as part of thematic
projects.
D. APRM and other innovative mechanisms, aimed at strengthening cooperation and
fostering ownership, adopted, experimented, divulged and evaluated.
In accordance with the Terms of Reference for the Study of Identification of Areas of Governance
for Multicountry Palop Cooperation in the Context of the 10th EDF the devised areas of
cooperation were identified and a number of projects was also pre-identified, included this
one. For this purpose a desk study and a field mission were successfully carried out so that
the required information could be gathered and processed.
The project which is the object of this pre-identification fiche is in line with some of the
provisions or recommendations prescribed by the Paris Declaration in Aid Effectiveness (eg:
Indicators #1 and#4; probably also #3)
2. Consistency with EC policy, programming framework and aid effectiveness agenda
This project is one of the mutually linked components of a multi-country Initiative aimed at
fostering cooperation between the EU and a group of six ACP countries, which was the
object of previous political dialogue between the EU and the six countries concerned.
The information collected for the specific purposes of identifying areas of cooperation and
pre-identifying associated projects included the assessment of the CSP/NIPs concerned;
Governance Commitments. Furthermore important inputs were also seized from the
Governance Profile and Government Commitments established for each of the six Countries
concerned.
Good Governance (including the issue of Human Rights) is the single focus area of the new
Initiative that provides the programming umbrella for this project. Gender equality and
environmental sustainability (as consensual cross-cutting issues) will nevertheless deserve
Study of Identification of areas of governance for multicountry PALOP cooperation.
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145
specific and detailed attention within this particular project, under an overall Initiative
perspective.
Within the scope of political dialogue between the EU and its ACP Partners and considering
both the nature of the issues commonly addressed by the new Initiative and the need for
continuity of the RIP PALOP II it was agreed that a “project approach” would be used,
instead of the SPSP and/or GBS instruments.
This project is in line with the principles of the 2005 Paris Declaration in Aid Effectiveness in
the sense that a strong coordination is advocated with other EC-funded programmes and
projects and also with other Donors’ initiatives, including combined operations (eg: basket
funding) whenever possible.
3. Consistency with Partner Government(s) policies and strategies
The areas of cooperation concerning this project are consistent with National Poverty
Reduction Strategies and also with all relevant sector policies. Consistency is guaranteed
through project preparation and implementation methodologies that shall/will involve a
great deal of consultation among relevant Entities in the ACP Partner countries and the EC
Head Offices and local Delegations. A preliminary study, of which the main workload was
devoted to visiting the Countries for the purpose of seizing from the very sources
programming information (needs and priorities; good practices and pitfalls) has led to the
pre-identification of a number of projects, including this one.
4. Problem analysis
This project addresses weaknesses pertaining to the continuing and satisfactory
implementation of the EU/ACP cooperation partnership, according to all applying
principles, orientations and standing procedures.
The applicable Problem tree and Objectives tree can be displayed as follows:
Insufficient role and
operational capacities
of NSAs
Independent and
plural media under
development strains
Gaps in regulatory
framework
Skills & organisative
weaknesses
Ill-addressed Cotonu
agreed cross-cutting
isues
Equipment or logistics
shortages
Limited progresses on
APRM and MDGs
ownership issues
Coordination or
mangement gaps
Recognised improvements the overall coherence and sustainability
characteristics of the cooperation partnership
Improved role of NSAs
based on reinforced
capacities
Improved
sustainability of
independent media
Regulations created or
improved
Skills and organisation
levels improved
Cotonu agreed crosscutting isues duly
addressed
More or better
resources povided and
used
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
Advances on APRM
and MDGs ownership
issues
Better performance on
coordination and
management
146
Key stakeholders:
•
•
•
•
NGOs/NSAs and their consortia, federations or platforms
Independent media
State and non-State Entities concerned with Gender, Environmental protection and
other cross-cutting issues
State and non-State Entities actively involved in management of external aid and
development cooperation
5. Stakeholders analysis
NGOs/NSAs and their 2nd level representative bodies will benefit from support to capacitybuilding under several possible strands
Independent media will have (direct or indirect) access to a number of capacity-building
actions which may appeal to cooperative or combined action
State/non-State Agencies aimed at the promotion of cross-cutting issues will benefit from
technical or financial support regarding structured diffusion of the thematic subjects
concerned
State/non-State Agencies concerned with the coordination or management of external aid
or development cooperation will be supported (technically or financially) in order to perform
or enhance their research, experimentation and mainstreaming activities pertaining to the
improvement of the quality of partnership.
This project is partially oriented towards the gender and the environment protection issues;
whenever applicable it will also take into due consideration any aspects concerned with
vulnerable groups disparities
ACP Partners have been and will further be involved in all stages of project preparation and
implementation. The consultation process is a continuing process, irrespective of the fact that
pre-identification of this project was in itself achieved by means of processing suggestions
and ideas directly seized in the Countries (interviewing of representative Entities; debates
with the NAO Offices and the EC Delegations). Ownership is therefore expected to be
achieved with a high degree of success.
6. Strategy analysis, lessons learned and link with complementary actions
This project is part of a wider multi-country cooperation initiative, with a single focus on Good
Governance which was agreed in the context of the EC/ACP political dialogue pertaining to
10th EDF programming.
This modality of cooperation is fully compatible with the NIPs-based bilateral cooperation
for each of the Countries involved not only because subsequent fine-tuning programming
(identification of Activities/Times/Resources) will avoid overlapping or double funding but
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
147
also because (and mainly) it will deliver joint or common actions to be developed within the
scope of a 6-Countries (common solutions for common problems), not single-Country oriented
outputs.
The project was designed and shall be implemented taking into consideration: i) past
experience in implementation of the RIP PALOP (I and II editions); ii) results and lessons
learned from any other (past or ongoing) projects financed by the EC or by other Donors,
which may also reveal interesting degrees of affinity.
7. Proposed project description
The overall objective, purpose and expected results referred to in section 1. are organised in a
strict hierarchical line. The logical links between the identified problems and proposed
objectives are demonstrated in section 4. above.
Project elementary Activities will be determined at a next programming stage. However the
following main project Components have been identified as the lines of action that may
provide the proper response to the highly converging needs and priorities assessed within
the targeted 6-Countries universe.
A.
B.
C.
D.
Support to NGOs aimed at democratic dialogue and communitarian service
Support to strengthening of independent and plural media
Mainstreaming of cross-cutting issues pertaining to development cooperation (Gender,
Environmental protection)
Evaluation and development of the quality of partnerships (including the APRM).
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148
8. Resource and cost implications (includes proposal for scope of ECOFIN analysis)
An indicative allocation of 5 million Euro (or circa 15% of overall Initiative budgetary
envelope under the EDF funding) will apply to the period of 2009-2013 and is to be
distributed among the five components listed above.
It should not be excluded that any matching funds from other Donors or the ACP Partners
may also be allocated to the project.
At this stage it would be premature to describe and detail the resources required for the
implementation of this project, of which the Activity-level content will only be determined at
a subsequent phase.
9. Implementation issues
The issue of implementation (modalities; coordination structures; management procedures)
will probably be the object of a decision at overall Initiative level. That decision should take
into consideration the following aspects:
- Practical lessons learnt from the RIP PALOP II coordination and management
- Commitments issued out of the 2005 Paris Declaration on Aid Effectiveness
- The 10th EDF financial framework and the applying standard procedures
Considering the effectiveness and efficiency however it seems advisable to minimise, in any
devisable circumstance, the use of the budget estimation mechanism. Local involvement and
ownership should notwithstanding be granted an important role as far as coordination and
management is concerned.
Project monitoring and project evaluation mechanisms, including the determination of
performance indicators and of alignment with other Donors’ procedures are to be described
at the next identification stage.
10. Assumptions and risks
Basic assumptions can be listed as:
•
•
•
No major changes will occur concerning the framework of cooperation between the
EU and the group of six countries concerned by the new Initiative or among those
countries themselves.
A final agreement concerning the structure of the contents of the overall Initiative
(including the precise determination of the projects and of its basic components) will
be reached in due time considering the 10th EDF implementation schedule.
Coordination and management principles, mechanisms and basic tools applying to
the new Initiative will be agreed among all parties involved within a timeframe
compatible with the completion of its final programming and its timely
implementation.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
149
•
•
•
•
Implementation of all projects and related actions within the scope of the new
Initiative may and will be implemented with a reasonable degree of simultaneity so
that relevant inter-project synergies may be obtained.
Adequate linkage between the RIP PALOP II and this project will be secured, namely
by means of a timely availability of reports and of any relevant material outputs of
the former.
10th EDF financial resources will be available in practical terms by or before project
implementation start date.
Project will be implemented within a reasonable delay with regard to preidentification stage, in order to avoid major mismatching between project goals and
actual needs and priorities (as opposed to those initially targeted).
Assessed risks concern mainly the non observance of one or more of the assumptions listed
above.
11. Sustainability
Sustainability was one of the key concerns at the preliminary programming stage of the new
Initiative (identification of areas of cooperation and pre-identification of projects, including
this one). Effective Ownership was considered as one of more important factors allowing for
the generation of benefits beyond the period of the EC direct support to project
implementation.
12. Next steps, work-plan and time schedule for the formulation phase
Specification of Activities, Work plan, Time schedule, Executive responsibilities and
allocation of Resources will be the object of a next programming stage as it could not be
realistically performed at the overall pre-identification phase.
Study of Identification of areas of governance for multicountry PALOP cooperation.
Final Report
150