DESA/DPADM ESCWA/ECRI ARADO

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1 DESA/DPADM ESCWA/ECRI ARADO CAPACITY DEVELOPMENT WORKSHOP ON IMPLEMENTING THE CITIZEN ENGAGEMENT SELF-ASSESSMENT QUESTIONNAIRE (CESAQ) IN THE MIDDLE EAST AND NORTH AFRICA (MENA) REGION Start Date: 18 December 2014 End Date: 19 December 2014 Venue: Fairmont Hotel, Heliopolis, Cairo Thematic focus: Citizen Engagement and Managing Development URL: 1

2 Disclaimers The designations employed and the presentation of the material in this publication do not imply the expression of any opinion whatsoever on the part of the Secretariat of the United Nations concerning the legal status of any country, territory, city or area or of its authorities or concerning the delimitation of its frontiers or boundaries. The term country as used in the text of this publication also refers, as appropriate, to territories and areas. Since there is no established convention for the designation of developed and developing countries or areas in the United Nations system, this distinction is made for statistical and analytical purposes only and does not necessarily express a judgment about the stage reached by a particular country or region in the development process. Mention of the name of any company, organization, product or website does not imply endorsement on the part of the United Nations. Table of Contents Background and context of the issues discussed... 3 Objectives and organization... 4 Organizers and target audience... 4 Accomplishments... 5 Workshop proceedings... 6 Opening Session... 6 Session Session II... 7 Session III... 7 Session IV Session V Closing Session Statistical data on the Workshop participants

3 Background and context of the issues discussed The Division for Public Administration and Development Management of the Department of Economic and Social Affairs (DESA/DPADM) has developed the Arabic version of the Citizen Engagement Self-Assessment Questionnaire (CESAQ) in response to a call for action from the United Nations Committee of Experts on Public Administration (CEPA). In its 2012 report to the United Nations Economic and Social Council, CEPA noted that the needs in the Arab region were daunting, particularly in light of the transition after the 2011 uprisings. It, therefore, emphasized the need for the United Nations Secretariat to provide sustained support to countries in the region. There is no blue print on how citizen engagement should look in the Arab world. Nonetheless, what is needed is a common understanding of the concept of citizen engagement and how this relates to good governance. It is also critical to understand the requirements in terms of setting policy regulatory and organizational frameworks, and developing appropriate channels/modalities for engaging citizens. Building relevant capacities is another key factor which should be considered both within the public sector and civil society. In view of this, DESA/DPADM has been collaborating with the Emerging and Conflict-Related Issues Division of the United Nations Economic and Social Commission for Western Asia (ESCWA/ECRI) since 2012 to customize CESAQ based on the needs of the Arab region. CESAQ is aimed at helping governments to assess whether they have in place measures aimed at engaging citizens more directly in the national planning, programme management, as well as their functioning. These measures can progressively assist governments to promote the engagement of citizens in policy design, implementation, monitoring and evaluation to better address sustainable development challenges. In particular, CESAQ is designed to assist leaders in the public sector to assess regulatory, organizational frameworks and channels/modalities for engaging citizens. Conducting the citizen engagement self-assessment entails addressing the following topics: Participatory Governance Access to Information/Freedom of Information and provision of information to the public Data Protection (Privacy) Multi-stakeholder Process Public Consultation Public participation in decision-making Channels and modalities employed by a government in order to engage citizens in development management Assessment of citizen awareness and capacity for engagement For further background information regarding the organization of this Workshop, please refer to Annex 1. 3

4 Objectives and organization The objectives of the Capacity Development Workshop on Implementing the Citizen Engagement Self-assessment Questionnaire (CESAQ) in the Middle East and North Africa (MENA) region included: Providing guidance to participants on the implementation and roll out of the CESAQ tool while identifying its requirements in a controlled examination environment. Finalizing the tool for deployment in the MENA region. After presenting CESAQ, the Workshop allowed participants to complete the questionnaire, discuss findings in groups and in plenary. The Workshop consisted of five separate sessions, in addition to an opening and a closing session. Briefly, the sessions conducted were as follows: General presentation on CESAQ during the Session on risks of public administration systems and application of governance (part one), ARADO 14th Annual Conference Opening Ceremony: Introduction and welcoming remarks Session I Session II Session III Session IV Session V CESAQ detailed presentation followed by Q&A Coordination among participants and preparation for day 2 practice session Practice session on CESAQ (individual and group work) Discussion in plenary on CESAQ exercise Recommendations and way forward Closing Session: Closing remarks For further information on the Workshop agenda, please refer to Annex 2. Organizers and target audience The Capacity Development Workshop on Implementing CESAQ in the MENA Region was organized by the Department of Economic and Social Affairs (DESA), Division for Public Administration and Development Management (DPADM) of the United Nations in cooperation with the United Nations Economic and Social Commission for Western Asia (ESCWA), Emerging Conflict related Issues (ECRI) and the Arab Administrative Development Organization (ARADO). This event was organized in conjunction with ARADO League of 4

5 Arab States 14 th Annual General Conference. The Workshop target audience included senior government officials from the MENA region, officials from international and civil society organizations as well as academia. A total of 26 participants plus three United Nations staff members from DESA, ESCWA and UNDP Iraq, took part in the Workshop (statistical data on the number, gender and geographical representation of the participants is included at the end of the report). For further information on the Workshop participants, please refer to Annex 3. Accomplishments The Workshop enhanced participants awareness and understanding in the field of citizen engagement for development management. This was attained through presentations, exchange of information, and reflection on CESAQ as a practical participatory exercise, showing the importance of gathering various stakeholders around a table to provide inputs in order to improve policy instruments after provision of adequate information. Additionally, participants completed CESAQ reflecting on the measures in place in their respective countries aimed at engaging citizens more directly in the national planning, programme management, as well as their functioning. CESAQ was analyzed and tested during the second day of the Workshop and participants provided important inputs for its finalization. Furthermore, capacity development and training requirements on tracking progress on participatory governance and citizen engagement in development management in the Arab region, particularly for countries in transition, were discussed and identified. Participants also indicated that the application and implementation of CESAQ may require the following: Identification of focal points to assist in the collection of data to ensure accuracy and completeness of the questionnaire, and in the implementation of CESAQ as a tracking tool. Development of similar questionnaires for civil society organizations (CSOs) and the private sector. Agreement of governments to implement the questionnaire. Publicity/awareness in order to attract attention on the questionnaire. Ensure that the questionnaire helps assessing the readiness of citizen engagement in a country as a process, not as an ad hoc exercise. Training civil servants on how to fill the questionnaire (electronically and in person). Introducing techniques to build indicators that can be used by transition countries. Creating a roadmap or guidelines on citizen engagement showing also how to involve CSOs, private sector, etc. Organizing capacity development activities, including self-assessment exercises, specifically devoted to enhance citizen participation in development management. Ensuring the involvement of youth and women as focus groups. Development of a citizen engagement report based on CESAQ results. 5

6 In addition to the abovementioned achievements, DESA/DPADM and ESCWA/ECRI underscored their commitment to continue collaborating, based on cost-sharing arrangements, to promote capacity development activities specifically devoted to enhance participatory governance in the region covered by ESCWA. Workshop proceedings DAY ONE: Thursday, 18 December 2014 Opening Session The Director-General of ARADO, Dr. Refaat Al Faouri s opening speech welcomed participants and reminded them that: The State can provide for its citizens needs but it cannot think on their behalf Leaders should aim at serving citizens, not being their rulers Citizens should have a vital role in the social cycle Public commitments should be translated into reality through policies, projects, etc. Ms. Atsuko Okuda, Chief of the Governance and Statebuilding Section, ESCWA/ECRI, greeted participants and thanked ARADO for hosting and co-organizing the meeting and welcomed the collaboration with DESA. Ms. Valentina Resta, Senior Governance and Public Administration Officer, DESA/DPADM (hereinafter DESA facilitator) greeted participants and welcomed the partnership with ARADO and ESCWA in the organization of the Workshop. After providing an overview of citizen engagement as assessed through the questionnaire, she briefed participants on CESAQ development process. Session 1 The in-depth presentation on CESAQ and the rationale for its implementation was followed by a question and answer session and discussion to clarify concepts related to citizen engagement. In particular the session highlighted that successful citizen engagement requires that: Citizens should not feel alienated from legislative processes; otherwise they might even work against them. Public authorities should provide feedback after an engagement exercise an example was provided by participants whereby citizens were engaged through reporting complaints to a committee of rules and regulations; the latter committee did not provide feedback or referred the matter to other entities. Citizens should be empowered through engagement; they should not feel that their inputs are used for experimentation only. 6

7 Session II The aim of this session was to allow participants to coordinate their preparation for the practice session scheduled for the second day of the Workshop. The Arabic version of CESAQ was shared with participants for them to reflect on how to complete the questionnaire. Participants asked clarification on: The process and activities needed after the questionnaire is administered Those questions of CESAQ which are divided into two sub-questions Whether the questionnaire is fit for all Arab countries since some questions seem not applicable for certain contexts How would one rate the citizens awareness Whether it would be possible to customize CESAQ for each national context Some discrepancies between the English and Arabic versions of CESAQ The session concluded with clarification provided by DESA facilitator. Regarding the language discrepancies, ESCWA staff member, who had previously worked on the translation, was notified and a revised version was sent before the end of the Workshop. DAY TWO: Friday, 19 December 2014 Session III At the beginning of the practice session DESA facilitator provided some additional clarification on the process and expectations from CESAQ exercise. Among other things, she mentioned that the aim of this questionnaire is not collecting information from participating countries for ranking purposes. The results of the self-assessment therefore do not intend to show which country scores the highest. Rather CESAQ aims to provide information assisting governments to 7

8 conduct a self-assessment on the measures aimed at engaging citizens in the national planning, programme management, as well as their functioning. Subsequently, participants were requested to first complete the questionnaire individually, also discussing in a group if there were more than one participant from the same country, and then discussing feedback in plenary. To assist participants to complete CESAQ, DESA facilitator distributed fact sheets containing information on regulatory and organizational frameworks for citizen engagement for Member States in the MENA region. The information contained in the fact sheets was the result of research conducted by DESA/DPADM since After completing the questionnaire, participants requested clarification on: The target group for CESAQ as they felt that the questionnaire seemed to address individuals with a specific knowledge and education level. The expected practical use of CESAQ. DESA facilitator clarified that the target group of CESAQ consists of senior officials in the public sector including ministries such as planning, interior, public information, and so on. CESAQ is designed to assist them in taking stock of progress in terms of regulation, preparation, organization, and evaluation of citizen engagement activities at the national level. She reiterated that the questionnaire is not meant to rank countries but is a tool that individual countries can use as benchmarking for monitoring progress on regulatory and organizational frameworks for citizen engagement. Areas with low scores will need attention, and a dialogue will need to be built around the findings to better understand each context. The exercise should not just focus on mathematical scores. 8

9 Subsequently, each group of participants was asked to discuss and provide feedback on: Value of CESAQ as a tool to selfassess citizen engagement measures and institutional arrangements. Possible need for further refining CESAQ. Requirements for CESAQ to be rolled out in MENA countries. Support needed by International Organizations. Working groups were to produce a set of agreed recommendations, to answer the aforementioned questions, and appoint a speaker to report back in plenary. The adjacent image contains an example of the results of this exercise for one of the three groups of participants captured on a flip chart. Feedback form group work: Group one (composed by participants from Sudan) The group recognized the existing agreement among the public and private sectors and civil society institutions regarding the importance of citizen engagement in public decision-making. However, perceptions around such participation differ among sectors of the society. For instance, the public sector and its representatives see that citizens are to some extent able to participate in decision making and policy making, while civil society organizations may see that their participation is not yet producing the expected results. The group stated that CESAQ is an efficient tool for raising awareness for citizen engagement. Citizens are at the center, so there is a need for implementing a system that is not top-down, and decisions should be owned by citizens who have participated in the decision making process. The questionnaire measures the gaps in governments performance towards citizen engagement. The rapporteur (see adjacent picture capturing the reporting back from this group) suggested adding a 9

10 blank space allowing respondents to insert comments, and addressing the remaining discrepancies between the English and Arabic versions due to some translation inaccuracies. With regards to CESAQ implementation, the group recommended that public institutions should be selected to complete CESAQ. These should include the ministry of planning, and other concerned institutions, and there should be a workshop for evaluating and analyzing the questionnaire at the national level. It further stated that civil society s duty should be that of raising awareness about citizen participation and its benefits and positive outcomes, as well as the importance of completing CESAQ. The role of the media was also underscored in this regard. The group concluded that Member States need the assistance of the United Nations for organizing workshops and raising awareness and for assisting in the implementation of CESAQ to achieve enhancements in the citizen engagement regulatory framework. Group two (composed by participants from Iraq) The group reported that there was general consensus among group members while discussing the topics proposed by DESA facilitator (see picture below capturing the reporting back from this group). The group recommended that CESAQ should include detailed guidelines on each section. This would help respondents understand the meaning and aim of each question and ensure that they answer them effectively. The methodology adopted during the Workshop was also recommended for replication during CESAQ implementation by the individual countries. This is to say that answering the questionnaire should be done through group sessions led by a facilitator whose role is that to explain questions without adding his/her own input. Respondents should then complete the questionnaire individually. The group also highlighted the importance to identify an institution which is qualified to carry out the process of CESAQ implementation, as well as the research, analysis of results, and to produce the final report. Moreover, rapporteurs emphasized that it is critical to select the authorized public officials who should complete the questionnaire. Respondents should include different concerned sectors with citizen participation. The questionnaire should be completed 10

11 using a reiterative process -i.e. the same group should complete it in every cycle in order to get the most accurate answers (as certain attitudes change from time to time due to cultural or personal reasons). There should also be group discussions and meetings to agree on follow-up actions and further required support. The group concluded by emphasizing the need for support by the United Nations during the rollout of CESAQ. This should include capacity-building support in organizing workshops aimed at sensitizing all target groups on the importance of completing and implementing CESAQ, and providing details on how to analyze its results. Group three (composed by participants from Palestine, Jordan and Tunisia) The group reported that CESAQ is an important and fairly comprehensive tool that will effectively support and encourage further action regarding citizen engagement. The rapporteur for the group (see picture below capturing the reporting back from this group) also affirmed that CESAQ can, in the long term, inspire enhancement of legislative provisions. The differences between group members perspectives, after completing CESAQ, were based on personal backgrounds and experiences, and some misinterpretations of the text due to some Arabic language inaccuracies. The group noted that the questionnaire needs fine-tuning language-wise in terms of statements that need rephrasing in Arabic to avoid misinterpretations. It also expressed agreement with group two that the questionnaire needs detailed guidelines for each section in order to avoid misunderstandings. The group recommended the expansion of CESAQ section C to include questions about the implementation of laws. In addition to knowing whether legal instruments exist and what their quality is, it is very important assessing whether they are being enforced. This was recommended based on the selectiveness, common in many regions including MENA, regarding the prioritization of laws to be enforced. The group also underlined the need for the private sector and civil society organizations and NGOs to participate in completing CESAQ. In the absence of their participation, the results could only be representative of the government s self-assessment. With regard to implementing CESAQ in the Arab region, the group reminded that the questionnaire needs to be approved first before it is circulated for completion. The ownership and coordination of CESAQ implementation should rest within the planning body of the government (i.e. ministry of planning). The rapporteur noted that conducting a self-assessment would be instrumental to compel institutions to implement the plans that they have envisaged. 11

12 As for the support needed from the United Nations, the group recommended assistance to organize workshops for teams selected to complete CESAQ, in addition to cooperation with the government. Session IV This session included a plenary discussion aimed at exchanging views based on the practice session on CESAQ. Participants agreed that CESAQ is a very comprehensive self- assessment and helpful tool to track enhancement of citizen engagement which can progressively assist governments to enhance governance. The following points also emerged from this discussion: There is a need for promoting the understanding that citizen engagement matters. Both the planning sector and the very same citizens need this awareness. Governments need to have ownership of CESAQ process although international organizations may be requested to support this exercise through capacity building. The national institution which leads CESAQ exercise needs to be independent and unbiased. A committee that includes the government and other sectors could be established to ensure transparency and trust in the process. Both executive and legislative authorities should be engaged in discussing citizen engagement self-assessment. Therefore, CESAQ should be completed by all concerned institutions. It is critical to select the sample of respondents taking into consideration the issue of transparency and efficiency. The questionnaire provides an assessment in a specific moment. Facts may change over time; therefore there is a need to repeat the exercise from time to time and monitor trends. 12

13 The government self-assessment should be accompanied by an assessment carried out by CSO to complete, compare and validate results aimed at assessing how the public sector promotes citizen engagement. The government is not one single unified entity; instead, there may be different perceptions among different agencies. Similarly, civil society institutions will hold different perceptions as well. The questionnaire should therefore, create dynamism within communities through participation and dialogue around participation and governance. The results of the self-assessment should not be the end of the exercise, but rather means for additional activities. Mechanisms are needed to support action, based on the results in order to attain progress. However, it is critical ensuring that the results reflect the reality. CESAQ exercise could be included as part of larger existing projects in order to ensure its continuity. Session V After having examined CESAQ individually and in groups, participants, made several recommendations and proposals regarding the implementation of the self-assessment questionnaire. The discussion emphasized that CESAQ should allow achieving the objective to assess whether public policies foster citizen engagement. This in turns has positive results in terms of enhanced governance. In particular, participants agreed on the need for: Government buy-in. It was noted that the national ministerial commission for development planning (or equivalent body) needs to approve the coordination of CESAQ implementation by planning bodies. Partnership between different government agencies, with a focal point/coordination function possibly assigned to the ministry of planning. Dialogue within government. It was emphasized that such dialogue is critical in order to create participatory government at all levels of government in a country, i.e. reaching the sub-national levels in the most remote areas. Dialogue between government and the other sectors of the society. Participants recommended holding national workshops to include civil society. The latter needs to 13

14 be sensitized to participate in CESAQ implementation to ensure transparency and accountability. Participants agreed that combating corruption is a joint effort among governments, civil society and the private sector. Therefore, participation can enhance trust within societies. Leadership is critical in terms of different sectors (private, public, civil society, NGOs, international organizations). Particularly the youth should be included in CESAQ processes as they are the leaders of the future. Assistance by the United Nations in the implementation of CESAQ through workshops which should have wide media coverage. The United Nations may be asked for further capacity building assistance, as required depending on the specific context. This is to ensure that CESAQ implementation becomes part of a longer term project instead of a once-off exercise. Questionnaires, as part of CESAQ, targeting the private sector and civil society to support evidence-based dialogue to constructively reach progress on public engagement. Closing Session The two-day Workshop ended with closing remarks by: from ARADO, ESCWA and DESA Dr. Basman Al-Faisal, Counselor, ARADO, who thanked all participants for their professional participation. He stated that all had learnt during the two-day Workshop and were eager to continue learning. He expressed satisfaction for the professionalism, organization and patience in which the workshop was conducted. Both DESA and ESCWA were complimented in this regard. He proposed the development of a citizen engagement report based on CESAQ results. He finally stated that ARADO would benefit from co-organizing more of these events, and 14

15 reaffirmed the organization s readiness to cooperate with other institutions to achieve development and progress in the Arab world. Ms. Atsuko Okuda, Chief, ESCWA/ECRI who mentioned to be impressed by the level of commitment demonstrated by participants throughout the Workshop. Considering that government officials were the majority of participants, this was illustrative of the fact that governments care about citizen engagement. Also the interest taken in civil society participation appeared to be promising. She asked participants how they could individually help to implement CESAQ. She also stated that ESCWA/ECRI was ready to continue collaboration with DESA/DPADM. Ms. Valentina Resta, Senior Governance and Public Administration Officer, DESA/DPADM, who thanked ARADO and ESCWA, as co-organizers of the Workshop, for the impressive support provided before and during the event. Interpreters were also thanked for their critical role to ensure correct understanding among English and Arabic speakers. She expressed satisfaction for the progress made by the infant CESAQ towards being an energetic youth. She also emphasized the need for all participants to become CESAQ champions in their own country and expressed gratitude for ARADO s willingness to further collaborate on citizen engagement in the MENA region. Statistical data on the Workshop participants Total N. of participants Male 12 (+ 1 UN staff + 5 International/Reg. Orgs Reps) =18 Female 6 (+ 2 UN staff + 3 International/Reg. Orgs Reps) =11 Total 18 (+ 3 UN Staff + 8 Internat./Reg. Orgs Reps.) =29 Percentage 66.67% 33.33% 100 % Geographic Representation of Participants (18 excluding regional and international organizations): Latin Asia and Africa N. America America and Europe Pacific Caribbean Male 10 (55.56%) 2 (11.11%) 0 (0%) 0 (0%) 0 (0%) Female 5 (27.78%) 1 (5.56%) 0 (0%) 0 (0%) 0 (0%) Annexes: 1. Aide-memoire 2. Agenda 3. List of Participants 15