Silviase/jgov_v1.4_full_ann huggingface dataset:
## THE “THREE PS”: PROMOTING EXPANDED CITIZEN PARTICIPATION AND UNDERSTANDING

To achieve a more effective and efficient implementation of Japan’s ODA, it is necessary to utilize the technology and know-how rooted in Japan’s experience and to promote assistance incorporating broad participation by Japanese citizens from all walks of life. These will contribute towards gaining citizens’ understanding of and support for ODA projects, promote the “visibility of Japanese aid,” and revitalize Japanese society through the medium of international cooperation. In addition, by participating in ODA projects, people in Japan can come to understand the various challenges confronting those living in developing countries. Direct interaction with them will help Japanese citizens enhance their understanding of the international community.

The activities of NGOs, in particular, are extremely important from the standpoint of providing finely tuned assistance that addresses the multifaceted needs of developing countries and regions and in conducting prompt and flexible emergency humanitarian assistance. The Japanese government has been working to deepen its partnerships with NGOs through dialogue, collaboration, and support.

Since 1996 and 1998, respectively, the Ministry of Foreign Affairs (MOFA) and the Japan International Cooperation Agency (JICA) have maintained forums for regular consultations with NGOs in an effort to promote dialogue and enhance cooperation with these organizations. The Japanese government has utilized these forums to ensure that the views of NGOs are reflected in government policies concerning support for NGOs as well as in overall ODA policies. Moreover, meetings between MOfA and NGOs have been held since 1994 to discuss specific topics, such as “the MOfA/NGO Open Regular Dialogue on GII/IDI (Global Issues Initiative on Population and AIDS/Okinawa Infectious Diseases Initiative).” In addition, the Japanese government and NGOs have collaborated closely at the field level, particularly in East Timor and Kosovo. In November 2001, for instance, “the strategic conference on assistance policy toward Timor-Leste” was held in Denpasar, Indonesia, where representatives from MOfA, the UN, and the private sector, including NGOs, met to discuss aid implementation that transcended public- and private-sector frameworks.

As relationships with NGOs deepen through dialogue and collaboration, however, instances of a lack of agreement and conflicts of opinion have also emerged, as demonstrated by the problem concerning the attendance of NGOs at the International Conference on the Reconstruction of Afghanistan in Tokyo in January 2002. Convinced of the need to overcome such problem and strengthen its partnerships with NGOs, MOfA is taking measures to achieve greater mutual understanding including reviewing the format of its regular meetings with NGOs.
There is still much more that the Japanese government can do to help citizens better understand and play a more active role in international assistance activities. The government’s past efforts and future course may be discussed by using three key themes labeled the “three P’s,” namely, (1) Partnership, or the establishment of new partnerships between the public and private sectors; (2) Participation, or the encouragement of wide-ranging participation by citizens from all walks of life; and (3) Public-Private Interaction, or the promotion of interaction between the public and private sectors.

Chart 4. Relationship Between MOfA and Local Governments
eration and reflected in ODA projects and policies. Summaries of the deliberations of the Second Consultative Committee on ODA Reform, convened in May 2001, have been posted on the Ministry of Foreign Affairs website, and wide-ranging efforts have been made to solicit views on ODA reform. Upon publication of the committee’s interim report, issued in August 2001, four town meetings were held (in Tokyo, Kobe, Sendai, and

# TOPIC II. LISTENING TO THE PEOPLE'S VOICE — ODA TOWN MEETINGS ARE HELD —

In August and September 2001, the Ministry of Foreign Affairs organized ODA town meetings in four cities: Tokyo, Kobe, Sendai, and Fukuoka. The meetings were held to introduce the conclusions of the interim report by The Second Consultative Committee on ODA Reform and to hear citizens' candid views on ODA and ODA reforms before proceeding with the compilation of the final report.

Each meeting was attended by a broad range of participants, with television celebrities and newscasters, NGO members, journalists, and scholars serving as moderators and panelists. MOFA officials and members of The Second Consultative Committee on ODA Reform were also in attendance. Around 200 people attended the meetings in Tokyo, Kobe, and Sendai, and over 100 came to the discussion in Fukuoka. The first half of each meeting featured a panel discussion, while the second half was opened to questions from the floor. All four meetings were marked by a lively debate among the participants.

Among the comments most frequently expressed by those in attendance and also solicited via e-mail supported (1) the continuation of the town meetings on a regular basis, (2) active efforts to help fight poverty and HIV/AIDS and other infectious diseases, (3) the provision of assistance that drew upon Japan's own experiences, and (4) greater cooperation with NGOs. Not infrequently, criticism was heard as well, with people (1) complaining that the interim report by The Second Consultative Committee on ODA Reform was too vague, (2) objecting to a perceived lack of transparency in the use of ODA, and (3) questioning the propriety of the huge sums of aid money devoted to China.

Questionnaires conducted at the town meetings provided a breakdown of the people in attendance. While most were either students or were in their twenties, a broad range of age groups was represented, from those in their teens to people over 70, indicating the widespread interest in ODA among Japanese citizens. Most of the responses were favorable, with participants stating that they “learned a great deal from the town meeting” or found it “very interesting,” and the majority of responses obtained at each meeting expressed the view that “Japan’s ODA is making a positive contribution” to the world.

Such views will be very useful in the government’s preparation of future ODA policies and offered food for thought in the preparation of the Final Report of the Second Consultative Committee on ODA Reform issued in March 2002. Active efforts will be made in the future to hold more ODA town meetings as forums for dialogue with the people of Japan.
Fukuoka), where citizens in attendance received a summary of the interim report and engaged in direct debate concerning ODA.

It is particularly important to raise young people’s awareness of the significance of ODA. The promotion of development education has therefore become a vital task. The Japanese government, JICA, and JBIC have made an

# TOPIC I2. THE SPREAD OF DEVELOPMENT EDUCATION — THE EXAMPLE OF THE JOCV —

Why does Japan offer assistance to other countries? What kind of international cooperation should it provide? An effective way of getting people to share an awareness of the issues with ODA and to promote a deeper understanding of the program is to offer opportunities for contact with developing-country issues in the classroom. As efforts of this sort to familiarize students with development issues expand, the JOCV is coming to play a larger role in development education.

The activities of the JOCV are widely covered in textbooks for varying subjects that were introduced in 2002. Virtually all the social studies textbooks refer to the JOCV as a means by which Japan fulfills its role in the world and as part of the country's ODA program. One English textbook includes an assignment requiring students to prepare a speech about the JOCV.

In addition, former volunteers are dispatched as lecturers to schools, local government offices, and prefectural international-exchange groups under the “Instructor of Development Education” program. In fiscal year 2001 the program received over 1,200 requests for speakers, who addressed a total of approximately 130,000 people. The program has provided an excellent opportunity for many people to learn about the situation in developing countries and to think about international cooperation. At a junior high school in Kanagawa Prefecture, for example, a former JOCV member who had been engaged in community-development activities in Thailand related her experiences using games and audiovisual materials. This was very well received, prompting many students to express an interest in getting involved in international cooperation, such as by making a donation.

The interim report (issued in December 2001) of the Committee for International Cooperation in Education—set up by the Minister of Education, Culture, Sports, Science, and Technology—pointed out that the participation of teachers in JOCV and other international assistance programs, moreover, has had the effect of directly improving the quality of education in Japan. Participants in these activities acquire better communication skills, a better understanding of other cultures, and a greater capacity for conceptualization, as well as a renewed appreciation of the strengths of Japanese education, and they bring back the benefits of their experiences when they return to the classroom in Japan.

Exploring issues that face developing countries, understanding one's own links to other countries, and thinking about the contribution each individual can make in the school setting can help address the need for greater citizen participation in international cooperation activities.
effort to provide information for this purpose, conducting development education seminars in various locations, conducting classes at schools, and distributing textbooks, reference materials, and informational videos. In particular, Development Education Teaching Materials have been distributed to elementary and secondary schools throughout Japan; in fiscal year 2001 a more complete Teaching Material Kit for Development Education, containing Photo Language Quiz Cards, Teacher’s Manual, and a video was provided to 3,000 elementary schools and junior high schools, respectively.

The most effective way for citizens to develop a greater awareness and understanding of the roles and importance of ODA is by seeing ODA in action with their own eyes. The Monitoring Group of Citizens on Japan’s ODA introduced in fiscal year 1999 was created with this in mind. Under this system, citizens from each prefecture who apply and are selected to serve as ODA monitors are dispatched to observe projects in developing countries. This provides an opportunity for citizens to experience life at ODA project sites firsthand. JBIC is expected to present lectures on the handling of yen loans and offer opportunities for site monitoring, as well as workshops on concrete ways to promote cooperation in order to strengthen collaboration with NGOs, local governments, and other groups.

The Japanese government has made considerable efforts to disclose more information about its ODA projects, but in light of the demand for greater transparency and efficient implementation, it is striving for further interaction with private citizens.
One of the key pillars of the “Ten Reform Principles to Ensure an Open Foreign Ministry” announced by Foreign Minister Kawaguchi in mid-February 2002 was to make Japan’s ODA more efficient and more transparent. ODA reform, of course, is not something that has just begun. The Japanese government has been making ongoing efforts to achieve greater efficiency and effectiveness in the implementation of its ODA and also to enhance its ODA evaluation mechanisms. The government has redoubled its efforts to improve the transparency of its development assistance so as to secure the understanding and support of the Japanese public, particularly in recent years. ODA reform will be advanced further under the “Ten Reform Principles.” Below are explanations of some recent moves in this connection as well as future directions for the reform process.

### SECTION I. FINAL REPORT OF THE SECOND CONSULTATIVE COMMITTEE ON ODA REFORM

In May 2001 the Second Consultative Committee on ODA Reform was established as an advisory panel reporting to the foreign minister. The purpose of the committee, chaired by Toshio Watanabe, dean of the Faculty of International Development, Takushoku University, was to make recommendations on the future directions of Japan’s ODA within the context of changing

# Promoting ODA Reform

conditions both within Japan and internationally—including the severe economic and financial situation, the lowering of public support for ODA, and the changing needs of developing countries in an age of rapid globalization.

In August 2001 the committee issued an interim report suggesting the basic directions for ODA reform. Upon issuing this report, it held four ODA town meetings in different locations around the country so that the committee members could listen directly to what members of the public had to say about ODA and make use of this input in their further deliberations. The committee subsequently continued its discussions in September, supplemented by consultations with outside experts.

Based on this process, the committee completed its work, and Chairman Watanabe submitted the final report to Foreign Minister Yoriko Kawaguchi on March 29, 2002. The proposal of the final report can be summed up in three terms, namely, “public participation,” “transparency,” and “efficiency.” In its thrust, the report matches the direction of the foreign minister’s “Ten Reform Principles.” Taking public participation as its central concept, the report offers concrete proposals for ODA reform built on three major pillars: (1) ODA totally utilizing the mind, intellect and vitality of the Japanese people; (2) prioritized and effective ODA with a strategy; and (3) drastic improvement of the ODA implementing system.

Foreign Minister Kawaguchi declared that
# Chart 5. Highlights of the Final Report of the Second Consultative Committee on ODA Reform

What is currently required of Japan’s ODA

• To introduce concrete measures to positively draw out the potential eagerness and ability of the Japanese people and to develop these traits

• To further enhance the transparency of ODA and ensure accountability to the Japanese people

The central concept of this final report is public participation. Its proposal consists of the following three recommendations:

I. ODA Totally Utilizing the Mind, Intellect and Vitality of the Japanese People

Finding and Fostering of Development Personnel

• Strive to improve development education in compulsory school education

• Create human resources development programs for undergraduate and graduate students

Effective Utilization of Existing Human Resources and Technology

• Establish a “Human Resources Development Centre for International Cooperation” (provisional name)

• Expand a quota for public recruitment and entrustment contracts of specialists dispatched by the Japan International Cooperation Agency (JICA)

• Proceed with personnel exchanges with NGOs and enterprises

• Assign those people experienced in specific sectors, countries and regions to related sections of the Ministry of Foreign Affairs and ODA implementing agencies

## Collaboration with NGOs

• Enforce support for NGOs and have NGOs make further efforts to secure their eligibility and augment transparency

• Build a mechanism for collaborating with NGOs familiar with local situations in formulating ODA policies

## Securing Transparency

• Further promote disclosure of information at each stage, from selection to implementation, ex-post evaluation and follow-up on projects

• Reinforce evaluation by a third party at each stage (Emphasize the judgment of the “Board on Comprehensive ODA Strategy” regarding the priority of ODA projects; introduce a thorough third-party audit system, including audit with no prior notice, regarding bidding procedures; and further utilize external knowledgeable people in ex-post evaluation)

• Hold ODA Town Meetings on a regular basis in various parts of the country

II. PRIORITIZED AND EFFECTIVE ODA WITH A STRATEGY

Establishment of a “Board on Comprehensive ODA Strategy”

• Establish a permanent “Board on Comprehensive ODA Strategy” which is composed of representatives with various backgrounds
- The Board as the commanding authority of Japan’s ODA, consulted by the Minister for Foreign Affairs, will discuss basic ODA policies such as country assistance programs and the significance and the degree of priority of major ODA projects and will make proposals to the Minister

## Prioritizing Country Assistance Programs

• The “Board on Comprehensive ODA Strategy” will narrow down the priority areas of aid

## Promotion of International Collaboration

• Formulate “sector/issues-specific aid principles” by holding policy dialogues with international organizations and donor countries and assessing the needs of ODA recipient countries

## I II DRASTIC IMPROVEMENT OF THE ODA IMPLEMENTATION SYSTEM

## Securing Consistency

• Reinforce links between grant aid, technical cooperation, and loans

## Speedy and Flexible Response

• Response to urgent needs such as conflict prevention and peace building

- Seek closer collaboration with NGOs in order to implement minute assistance that meets a variety of needs on the ground

• Promote transfer of authority and business to local field offices

## Ceaseless Review

- Seek further improvement of ODA evaluation (in particular, promote evaluation of technical cooperation that includes JICA experts and reinforce functions to feed back results of evaluation to policy planning and improvement of aid methods)

• Make an overall review of long established schemes, including a review of the debt-relief scheme

### I V. Conclusion: Goals of Japan's ODA

Effective utilization of ODA as a diplomatic tool is expected to remain significant for Japan’s national interest.

Japan’s ODA is currently at a turning point. The greatest concern of this committee has been how to incorporate the Japanese people’s participation in ODA.

• We have envisioned specific frameworks for absorbing valuable knowledge and opinions of the people from various backgrounds and areas

• For effective utilization of limited financial resources, we emphasized the importance of formulating country assistance programs that identify priority sectors of ODA into which financial and human resources can be channelled

• We also proposed measures to find, foster and utilize those people eager to participate in international cooperation

(The full text of the Final Report of the Second Consultative Committee on ODA Reform appears in Part IV.)
the recommendations in the committee’s final report would be implemented right away where possible. In particular, she decided on the prompt launching of “the Board on Comprehensive ODA Strategy” and affirmed the importance of adopting a system of third-party auditing for the sake of achieving enhanced transparency.

The Ministry of Foreign Affairs will hold the first meeting of “the Board on Comprehensive ODA Strategy” in May 2002. The “Advisory Board for the Reform of the Ministry of Foreign Affairs” has also taken the committee’s final report as the basis for its deliberations concerning ODA reform.

### SECTION 2. IMPROVING ODA EFFICIENCY AND TRANSPARENCY

In the light of Japan’s severe economic and financial situation, improving the efficiency and transparency of ODA is extremely important in order to gain the understanding and broad support of the Japanese public. Providing information on the results and current status of ODA projects widely to citizens and eliciting their views and criticism will, in turn, lead to a more effective and efficient implementation of Japan’s assistance. The following discussion will address four aspects of the effort to improve ODA efficiency and transparency: (1) assistance policies, (2) project implementation, (3) evaluation, and (4) coordination and collaboration within the government.

## (I) Improving Efficiency and Transparency in Assistance Policies

In order to make its assistance policies more transparent, the government has clarified Japan’s philosophy and policies and has worked to provide a policy framework for ODA. In 1992, based on nearly 40 years of achievements, experiences, and lessons, the Japanese government adopted the ODA Charter, which set forth Japan’s basic ODA philosophy $ ^{18} $ and principles $ ^{19} $ (the English translation of the ODA Charter is printed in Part IV).

In 1999 the Japanese government established the “Medium-Term Policy on ODA” as a concrete demonstration of the basic orientation expressed in the ODA Charter and as a source of policy guidelines to be achieved over five years (the English translation of the Medium-Term Policy is printed in Part IV). The Medium-Term Policy on ODA is based on the discussions that took place in various development-related UN summit meetings in the 1990s and clarifies the specific tasks that Japan’s ODA seeks to accomplish. It also systematically summarizes priority issues and sectors like poverty alleviation, social development, and global issues; region-specific assistance themes; and methods and points to consider in providing assistance.

Since 2000, based on the Medium-Term Policy on ODA, the Japanese government has formulated a series of “country assistance programs” that identify assistance goals and priority