1. IDENTIFICATION Title/Number

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1 ANNEX 3 of the Commission Decision on the Annual Action Programme in favour of the Pacific Region Action Fiche for Strengthening Non-State Actor Engagement in Regional Policy Development and Implementation 1. IDENTIFICATION Title/Number Total cost Aid method / Method of implementation Strengthening Non-State Actor Engagement in Regional Policy Development and Implementation CRIS number: FED/2013/ Total estimated cost: EUR 4 million Total amount of EDF (European Development Fund) contribution: EUR 4 million Project approach Joint Management with the Pacific Islands Forum Secretariat DAC-code Sector Democratic participation and civil society 2. RATIONALE 2.1. Sector context The highest level of broad regional-level policy decisions and endorsement in the Pacific is made by the Pacific Islands Forum, an inter-governmental body comprising the 14 Pacific Island Countries (all included in the Pacific Group of Africa Caribbean and Pacific States: PACP), Australia and New Zealand. The Forum is served by the Pacific Islands Forum Secretariat (PIFS), which services the Forum Leaders annual meeting and facilitates and monitors the implementation of their decisions. The development of a number of regional sector policies is facilitated through regional inter-governmental organisations who are members of the Council of Regional Organisations of the Pacific (CROP). There are 9 CROP agencies in the region and their coordination with each other as a collective regional architecture is mandated by Leaders under the CROP Charter. PIFS, in support of the CROP Working Group and Pacific Partnerships to implement the Pacific Plan, already engages relevant Non-State Actors (NSAs) in the development of some regional policies (e.g. CROP Marine Sector Working Group in the development of the Pacific Oceanscape Framework). The latest review of the CROP Charter also provided an opportunity to more formally acknowledge the efforts of NSAs in regional policy issues. In 2009, Forum Leaders agreed to support governance in the region through the development of a strategy to support participatory democracy and consultative decision-making (including NSAs, youth, women and disabled persons) and electoral processes. More recently, Leaders directed PIFS 1 to determine practical means of 1 Pacific Islands Forum Leaders Meeting Communique 2011, paragraph 36 1

2 ensuring that civil society perspectives be reflected in Forum policy formulation. In line with these intentions, private sector s representatives already have an established presence in some regional dialogues (especially trade). However, despite some promising initiatives, PIFS lacks a comprehensive policy for NSAs engagement, and there is limited formal NSAs access to, or engagement in, the processes of regional policy setting. NSAs are involved in some sectoral regional policy implementation but do not necessarily have the opportunity to provide input to its formulation or revision. As identified at the occasion of four regional consultations held between December 2012 and January during the formulation of this program, civil society and private sector have clearly acknowledged the lack of an enabling environment for engagement mainly attributable to (i) limited awareness and capacity for engagement, and (ii) inadequate provision of opportunities for them to formally engage: i. Limited NSAs capacity Regional NSAs in the Pacific have varying structures, strength of governance, and sustainable capacity. They can be grouped into four key types: international NSAs active in the Pacific; regional and sub-regional NSAs networks service members; regional informal networks, initiatives and coalitions that are issue based; and research institute, universities and think tanks. The NSAs tend to have the least capacity for and access to policy engagement - even though they are often best connected to the range of regional experiences that policy-setting should carefully consider. The United Nations Development Programme (UNDP) Integrated Report on Capacity Assessment of Civil Society Organisations (CSOs) in the Pacific highlighted issues around legitimacy and accountability of Pacific Region Non-Governmental Organisations (NGOs) as limiting factors, and raised the challenge of building partnerships across a wide range of stakeholders and issues. It underlined the need to address the lack of capacity in management, governance and financial/human resources given the uncertainty and significant changes regional NGOs are currently facing notably with shifts in donor priorities and traditional funding sources. ii. Limited opportunities for engagement in regional policy setting processes The recent review of the CROP Charter also identified that regional NSAs comprise a significant regional capacity for implementation of regional priorities. However, they do not necessarily receive the commensurate recognition in feeding back into the regional policy and decision making processes. NSAs reported a lack of inclusion in policy development and planning processes; and, even where NSAs were invited to contribute to planning dialogue, a lack of inclusion in the full policy development process (including implementation, monitoring and reporting, and capturing lessons for future design). To address the issues above, this programme will seek to strengthen the capacity of NSAs to engage in meaningful policy dialogue and implementation at regional level. In parallel, it will support PIFS in its attempt to strengthen its policies, to engage effectively with NSAs. 2 Two consultations were held by PIFS with regional civil society (Pacific Regional NGO Alliance PRNGOs ) and two consultations with the regional private sector organisation (Pacific Islands Private Sector Organization PIPSO ); side meeting were also held with pacific disability forum, the pacific youth forum and the pacific association of NGOs the country umbrella civil society. 2

3 2.2. Lessons learnt A review of past experience from a range of recent programs and dialogues aimed at NSAs inclusion has shown that merely inviting NSAs to participate in policy meetings is not sufficient. A key lesson learnt is that many NSAs lack resources and capacity to analyse and provide evidence to policy makers in support of the positions they wish to advocate. As a result, their inputs are not highly influential. Conversely, where NSAs have significant data to contribute to regional policy development, they are often not provided adequate opportunity to provide input to the policy development discussion because their capacity to articulate and negotiate in such fora is limited or perceived as threatening. At country level, a review of the Australian Civil Society Support Programme (ACSSP) underlined the lack of capacity of organisations and communities to support more self-reliant and self-directed development. It also revealed serious gaps of communication and coordination within the donor community Complementary actions This programme to support NSAs policy engagement will complement other ongoing policy-related interventions, most notably: - The Ratification and Implementation of International Human Rights Instruments and the Rome Statute project, which engages governments and non-state actors in its activities; - The Aid for Trade, the Pacific Island Countries Trade Agreement (PICTA) and Economic Partnership Agreement (EPA) components of the Pacific Integration Technical Assistance Programme (PITAP), which will engage NSAs in the area of trade policies and framework development; and - Efforts of the PIFS to more effectively engage NSAs in processes and partnerships underpinning the Pacific Plan implementation and reporting. Synergies and complementarities will also be sought with the future Support Programme to the Regional Authorising Officer 3 (RAO), and specific initiatives in support to the NSAs at national level funded by various agencies Donor coordination The Pacific Island Countries / Development Partners (PIC Partners) mechanism provides a platform of dialogue at the regional level between member governments, development partners, and NSAs, and facilitates the coordination of development assistance and alignment to regional priorities. It also provides a good platform for dialogue on ways to improve aid effectiveness and development practices across all stakeholders. Development coordination is a core function of the PIFS, enhanced significantly over the last three years by the Cairns (Forum) Compact on development coordination. Evidence collected through this mechanism suggests that there is little coordinated/harmonised donor engagement with NSAs in the Pacific at present. To 3 Which aims at enhancing PIFS capacities for the management of the EDF, but also the linkages with PACP countries 3

4 address this issue, the programme will reinforce the dialogue between NSAs, PIFS and the donor community and improve development effectiveness efforts which include NSAs as key stakeholders both at regional and national levels. 3. DESCRIPTION 3.1. Objectives The overall objective of this programme is to promote good governance in the Pacific and ensure that NSAs perspectives are reflected in effective regional policy development processes and dialogues. The project purpose is to build capacity and ability of NSAs to participate effectively in regional policy making processes and implementation. Policy areas covered will depend from the agenda of the Pacific Islands Leaders, PIFS priority areas and from what will be brought to the Leaders' attention by NSAs. Policy issues that are expected to emerge in the coming years are gender equality, climate change adaptation, sustainable economic development (particularly related to the development of agriculture, tourism, and fisheries as productive sectors, and education, infrastructure, transport and energy as supporting sectors), disabilityinclusiveness, aid effectiveness. The gender equality agenda in the region will be given a priority Expected results and main activities This programme will seek to achieve its purpose by implementing a series of activities and support mechanisms that provide NSAs more opportunities for meaningful and sustained policy engagement. The programme will be articulated around three main result areas: Result Area 1- Strengthened and institutionalised arrangements for PIFS-NSAs collaboration in regional policy development and implementation To increase opportunities for NSAs engagement, existing PIFS policies and processes need to be improved and expanded on. Activities will indicatively include: - The development of a PIFS-NSAs Engagement Strategy to coordinate, consolidate and mainstream NSAs engagement across the PIFS. This strategy will clearly articulate a PIFS position on NSAs engagement; institutionalize a systematic approach to consultation with NSAs; determine the rules of engagement and codes of conduct for both PIFS and NSAs; and consider how PIFS could support coherent regional partnership arrangements for NSAs modelled after the CROP arrangements; - In this context, a thematic mapping of relevant regional NSAs on key policy engagement and capacities issues will be carried out, building on early work undertaken in the UNDP capacity assessment of CSOs. This will help in the establishment of a representative consultative group of NSAs that will provide policy advice to PIFS as appropriate. The mapping study will also provide guidance with regards to priority interventions under result areas 2 and 3; - PIFS will establish an internal working group for following up on implementation of the Strategy, with the assistance of a dedicated team. 4

5 Result area 2 Enhanced NSAs awareness to engage, influence and monitor regional policy development To ensure NSAs can fully benefit from increased opportunities for engagement with PIF and regional partners, their understanding of policy making processes (including impact assessment; policy implementation; and monitoring) will be deepened. This will be achieved through inter alia: - The development of a regional awareness exchange mechanism. Following a demand driven approach, activities under this mechanism will enhance NSAs ability to monitor, assess and engage in policy formulation. They will include the development of informative tools and materials on regional policy structures, training on evidence based approaches to policy engagement, on impact assessment of policy as well as on advocacy. Activities will also include the organisation of peer to peer mechanisms, mentoring programmes, cross regional (South-South cooperation) learning and exchanges, and training of trainers; - The set-up of web-based platforms to facilitate the exchange of information and improve the communications, awareness on regional policy issues. This will involve the facilitation of virtual seminars/policy debates to raise the awareness of NSAs, tertiary students and the general public on current policy issues affecting the region; - The organisation of regional NSAs consultative fora to consider specific policy issues facing the region, facilitate the exchange of information, and provide sound evidence based policy advice to PIFS and its membership. These fora will be a space to sustain dialogue, forge partnerships and provide policy makers with NSAs policy positions. Relevant existing policy bodies that could be engaged with these fora include for example the Pacific Plan Action Committee, the Forum Economic Ministers (FEMM) meeting and the Forum Trade Ministers meeting etc; - The establishment of a regular dialogue between NSAs, PIFS and Development Partners will seek to strengthen coordination among the donor community and NSAs in regional policy arrangements. PIFS will coordinate such meetings, in line with the current PIC Partners and Forum Compact arrangements. Result area 3 Strengthened institutional capacities of NSAs to effectively participate in regional policy dialogue - In order to enable NSAs to translate their policy engagement into concrete mechanisms and actions, the programme will seek to reinforce the linkages of NSAs to their constituencies, their internal governance and coordination structures. To this end, a Grants Facility will be established for NSAs that demonstrate a strong interest in improving their engagement in policy making processes and their policy monitoring and evaluation capacities. Actions eligible for support by the grant facility will include, but not limited to research, advocacy and awareness raising activities, intra and cross regional knowledge sharing and learning, capacity development actions. The facility will target regional NSAs and their national affiliates as appropriate. It will support NSAs to improve their governance and internal information flows, to engage in social accountability activities and to develop advocacy techniques. It will also facilitate information gathering and analysis, as well as the development of policy engagement partnerships between 5

6 CSOs, private sector and think tanks. Capacity-building activities will be supported to respond to specific needs in selected policy areas identified on an annual basis, aligned with Directives from the annual Forum Leaders' Meeting and the PIF policy priorities Risks and assumptions The main risk is that despite the progress achieved by the Busan Partnership for Effective Development Cooperation, some PIF s member governments may still be hesitant to engage with the most active and vocal NSAs in the region. To minimise this risk, the PIFS-NSAs engagement strategy will be developed in a broad and all inclusive manner. The structured and sustained dialogue between the NSAs and governments, proposed under the three result areas will contribute to a better understanding between all actors involved. The other risk lies with the complexity to provide support to a wide range of NSAs (NGOs, CSOs, research institutions, private sector, etc.) which may have diverse objectives and governance structures. The mapping exercise proposed under the PIFS Engagement Strategy, the reinforcement of governance mechanisms of regional NSAs and the limited number of policies covered in line with priorities raised in the annual Leaders' Meeting and the PIF policy priorities will help mitigate the risk Cross-cutting issues Improving good governance in the region will be a direct outcome of the project, with continued efforts in place to better coordinate and mainstream engagements between PIFS and NSAs. In addition, PIFS work in service of the FRSC (Forum Regional Security Council) mandate to dialogue with civil society organizations demonstrates its commitment to address governance and human rights. The Gender Declaration from the 2012 Forum Leaders Meeting reflected the regions commitment to improving its efforts to bring about gender equality and reduce gender based violence. Climate Change and environmental sustainability are priority areas for the region will benefit from the programme. In supporting the capacity building of NSAs, the programme supports them to fulfil their roles in promoting these issues. PIFS role in supporting CROP Working Group arrangements and Pacific Partnerships seeks to engage relevant NSAs in the development of regional policies and their implementation Stakeholders The main beneficiaries of the programme will be regional NSAs operating across 14 Forum island countries and Timor Leste, and indirectly the communities and groups they represent. These regional NSAs include: a) Organisations that are secretariats to a network of national NSAs (such as PRNGO and PIPSO). PRNGO brings together Regional CSOs 4 working in a cross section 4 These regional CSOs all service their individual networks of national CSOs. Some of these nationals CSOs belong to more than one network. 6

7 of issues at both regional and national level. PIPSO provides secretariat services to its membership of National Private Sector Organizations (chambers of commerce or private sector associations); b) Organisations operational in more than one Pacific Island country. This category includes partners/affiliates operating within the countries concerned; Pacific country-based think tanks and research institutions that address policy issues across the region; and informal networks of NSAs. The PIFS will benefit from the programme through its efforts to consolidate and institutionalize NSAs engagement across the secretariat; to provide space and support to enhance dialogue; and to strengthen the provision of evidence based policy advice to Leaders. Development partners and CROP agencies will be involved at the coordination level, particularly through the Programme Steering Committee. 4. IMPLEMENTATION ISSUES 4.1. Financing agreement In order to implement this action, it is not foreseen to conclude a financing agreement with the RAO, referred to in Article 17 of Annex IV to the Cotonou Agreement Indicative operational implementation period The indicative operational implementation period of this action, during which the activities described in sections 3.2. and 4.3. will be carried out, is 60 months, subject to modifications to be agreed by the responsible authorising officer in the relevant agreements Implementation components and modules Joint management with an international organisation This action, with the objective of promoting good governance in the Pacific and ensure that NSAs perspectives are reflected in effective regional policy development processes and dialogues, will be implemented in joint management with Pacific Island Forum's Secretariat (PIFS). This implementation is justified because the international institution has the exclusive mandate to develop regional policies and enhance relationships between non-state actors and regional and national institutions. Joint management with this international organisation, in accordance with Article 29 of the Financial Regulation of the 10 th EDF, is possible because the project is elaborated jointly between the organisation and the Commission. The international organisation will be entrusted with the contractual and financial management of the Action through a Contribution Agreement. The international organisation will be entrusted with the following budget implementation tasks: launching calls for tenders and for proposals; definition of eligibility, selection and award criteria; evaluation of tenders and proposals; award of grants and contracts; acting as contracting authority concluding and managing contracts, carrying out payments, and recovering moneys due. A Programme Steering Committee made up of representatives from NSAs, development partners, CROP agencies, and PIFS along with the EU as observer, will provide oversight and strategic guidance to the programme. NSAs will be given a 7

8 central role in these arrangements to ensure maximum ownership in all programme components. The PIFS NSA Working Group will provide PIFS internal oversight and guidance. A dedicated team, consisting of a NSA Programme Manager and a Grants Facility Officer will be appointed for the day-to-day management and monitoring of the programme, and will be housed under the Pacific Plan division of the Strategic Partnerships and Coordination Programme of the PIFS. The change of method of implementation constitutes a substantial change except where the Commission "re-centralises" or reduces the level of budget-implementation tasks previously entrusted to the international organisation Scope of geographical eligibility for procurement in direct centralised and decentralised management Subject to the following, the geographical eligibility in terms of place of establishment for participating in procurement procedures and in terms of origin of supplies and materials purchased as established in Article 20 of Annex IV to Cotonou Agreement shall apply. The geographical eligibility is extended to Australia, New Zealand, Japan, South Korea, Singapore and the United States of America in accordance with Article 22 of Annex IV to Cotonou Agreement on the basis of the geographical location of the ACP region concerned. This is justified by the need to avoid excessive increases in the cost of performance of the contract and transport difficulties or delays due to delivery times or other similar problems Indicative Budget The total budget foreseen is EUR 4 million, broken down as follows: Module Amount in EUR Contribution Agreement with PIFS 4,000,000 TOTAL 4,000, Performance monitoring Technical and financial monitoring of the programme will be carried out by PIFS throughout the duration of the programme. Activities will be monitored against a set of indicators such as: number of policy/strategy papers with explicit reference to NSAs (or developed with the participation of NSAs) on key thematic policy areas; number and type of NSAs with increased activities on policy/advocacy; competencies developed in specific fields of intervention; partnerships developed with other stakeholders; quality of result-oriented policy dialogues involving NSAs. 8

9 4.7 Evaluation and audit Independent monitoring, mid-term and final evaluations may be carried out by external evaluators. Financial verifications will be implemented on an annual basis and conducted by an external audit firm in accordance with PIFS' own procedures. The Commission may commission separate audits as and when required. 4.8 Communication and visibility The institutionalization of the PIFS Engagement Strategy will be the flagship initiative for this programme as it will sustain the EU s visibility past the duration of the programme. Communication and visibility will be in built to all programme activities. The programme will work closely with the PIFS Public Affairs Unit to ensure its alignment with EU rules and procedures for communications, including the expected EU visibility strategy for the region, as well as the PIFS Communication Strategy. 9