Communication from the Commission to the Council, the European Parliament and the Economic and Social Committee - Participation of non-state actors in EC development policy
Date: 2002-11-07
Institutions: European Commission
Subjects: EU policy, company constituted under civil law, cooperation policy, development policy, non-governmental organisation

COMMISSION OF THE EUROPEAN COMMUNITIES

Brussels, 07.11.2002
COM(2002) 598 final

COMMUNICATION FROM THE COMMISSION TO THE COUNCIL,
THE EUROPEAN PARLIAMENT AND THE ECONOMIC AND SOCIAL
COMMITTEE

PARTICIPATION OF NON-STATE ACTORS IN EC DEVELOPMENT POLICY

TABLE OF CONTENTS

1.

1.1.

1.2.

1.3.

Current situation........................................................................................................... 4

Introduction.................................................................................................................. 4

Definitions.................................................................................................................... 5

Practices by instrument and by region ......................................................................... 7

1.3.1. Humanitarian aid.......................................................................................................... 7

1.3.2.

Thematic budget lines .................................................................................................. 8

1.3.3. Geographical instruments .......................................................................................... 11

2.

2.1.

2.2.

2.3.

3.

3.1.

3.2.

4.

EC expectations regarding NSA involvement in the development process............... 14

NSAs in EC development policy including trade ...................................................... 14

Dialogue, consultation and other forms of involvement............................................ 16

Types of NSA interventions....................................................................................... 17

Improving the quality of the participatory approach.................................................. 17

Respective roles of EC Delegations and Headquarters.............................................. 17

Respective roles of Northern and Southern NSAs..................................................... 18

Conclusion ................................................................................................................. 19

ANNEXES ............................................................................................................................... 22

2

ACP
ALA
ANDEAN COMMUNITY
ASEM
CARDS
CBO
CSP
EC
ECHO

EDF
EIDHR

EPAs
EPRD

ESC
FPA
HoD
ILO
MEDA

MERCOSUR
MIP
NGO
NSA
PCA
RSP
RRM
SAN JOSE GROUP

TACIS

TDCAT

UNDP
UNICEF
WHO
WTO

Glossary

Africa, Caribbean and Pacific
Asia and Latin America
Bolivia, Colombia, Ecuador, Perú, Venezuela
Asia-Europe Meeting
EC Assistance Programme to the Western Balkans
Community Based Organisation
Country Strategy Paper
European Community
Humanitarian Aid Office of the European
Community
European Development Fund
European Initiative for Democracy and Human
Rights
Economic Partnership Agreements
European Programme for Reconstruction and
Development (South Africa)
Economic and Social Committee
Framework Partnership Agreement (ECHO)
Head of Delegation
International Labour Organisation
EC Assistance Programme for Morocco, Algeria,
Tunisia (Maghreb), Egypt, Israel, Jordan, the
Palestinian Authority, Lebanon, Syria (Mashrek),
Turkey, Cyprus, Malta, Libya currently has observer
Status
Argentina, Brazil, Paraguay, Uruguay
Multi-annual Indicative Programmes (South Africa)
Non-governmental organisation
Non-state actor
Partnership and Co-operation Agreement
Regional Strategy Paper
Rapid Reaction Mechanism
Costa Rica, El Salvador, Guatemala, Honduras,
Nicaragua, Panamá
EC Assistance Programme for Armenia, Azerbaijan,
Belarus, Georgia, Kazakhstan, Kyrgyzstan,
Moldova, Mongolia, Russia, Tajikistan,
Turkmenistan, Ukraine, Uzbekistan
Trade and Development Co-operation Agreement
(South Africa)
United Nations Development Programme
United Nations Children's Fund
World Health Organisation
World Trade Organisation

3

1.

CURRENT SITUATION

1.1.

Introduction

The  joint  Council/Commission  Policy  Statement  on  the  EC's  Development  Policy
(20.11.2000)  is  based  on  the  recognition  that  ownership  of  strategies  by  the  partner
countries  is  the  key  to  the  success  of  development  policies.  The  most  wide-ranging
participation  of  all  segments  of  society  must  be  encouraged.  Partnership,  ownership  of
development  processes  by  the  population,  participation  of  economic  and  social
stakeholders and the representation of civil society, are all principles shared by donors.

The Community is moving in this direction. Implementation of the Cotonou Agreement
is  leading  to  the  progressive  involvement  of  ACP  Non-State  Actors  (NSAs)  across  the
development  process.  In  Latin  America,  the  political  dialogue  at  regional,  sub-regional
and  sometimes  at  national  levels  includes  a  parallel  dialogue  with  NSAs.  Growing
consultation  as  well  as  support  for  NSAs  is  included  in  political  summits  and
recommendations  as  well  as  in  agreements.  Implementation  in  various  fields  is  largely
carried  out  by  civil  society.  Under  the  MEDA  programme,  NSAs  receive  support  to
improve their structures and reinforce their operations and governments are encouraged
to  dialogue  with  civil  society.  In  addition,  the  implementation  of  local  development
projects within the framework of social funds is, in a number of cases, attributed to civil
society organisations in MEDA countries.

The  participatory  approach  must  be  implemented  whilst  respecting  both  the  particular
situation in each partner country and the central role of the  Government  complemented
by  the  decentralised  local  authorities,  the  business  sector  and  the  other  NSAs.  In  this
context, EC policy aims at further strengthening and involving NSAs in the development
process.  More  extensive  deconcentration  of  project  management  to  the  Commission’s
Delegations is  under  way.  The  ongoing  rationalisation  of  development  aid  instruments,
which aims at facilitating sound management and coherence of development programmes
also provides an opportunity to clarify the EC's approach to working with NSAs.

This  Communication  on  the  EC's  approach  to  dialogue  with,  and  programme
implementation by NSAs is intended to contribute to the broad policy discussion with all
the  stakeholders.  The  aim  is  to  clarify  expectations  and  inform  the  debate  with  partner
countries. This  paper  focuses  on  the  strengthening  of  NSA  organisations  in  developing
countries  and  does  not  deal  with  other  levels  of  dialogue  (Porto  Alegre,  Johannesburg,
etc).

This  paper  is  consistent  with  and  complements  the  principles  presented  in  the  White
Paper  on  European  Governance,1  which  states  that  “The  organisations  which  make  up
civil society mobilise people and support, for instance, those suffering from exclusion or
discrimination…Non-Governmental organisations play an important role at global  level
in  development  policy.  They  often  act  as  an  early  warning  system  for  the  direction  of
political  debate…  The  Commission  will  improve  the  dialogue  with  governmental  and
non-governmental  actors  in  third  countries  when  developing  policy  proposals  with  an
international dimension”.

1

European Governance White Paper, COM (2001) 428 final

4

                                                
1.2.

Definitions

Giving  key  practical  rather  than  theoretical  definitions  will  help  to  clarify  both  the
concept of a participatory approach and the contents of this paper.

(cid:1)  State  actors  –  Those  actors  in  the  development  process  who  are  part  of  the  public
administration and directly linked to it (regional, national and local authorities) as well
as Parliaments who are the legitimate representatives of societies.

(cid:1)  Non-state  actors  -  The  term  NSA  is  used  to  describe  a  range  of  organisations  that
bring together the principal, existing or emerging, structures of the society outside the
government and public administration. NSAs are created voluntarily by citizens, their
aim  being  to  promote  an  issue  or  an  interest,  either  general  or  specific.  They  are
independent  of  the  state  and  can  be  profit  or  non-profit-making  organisations.  The
following  are  examples  of  NSAs:  Non-Governmental  Organisations/Community
Based  Organisations  (NGO/CBO)  and  their  representative  platforms  in  different
sectors,  social  partners  (trade  unions,  employers  associations),  private  sector
associations  and  business  organisations,  associations  of  churches  and  confessional
movements, universities, cultural associations, media.

(cid:1)  NSAs as profit/non-profit-making - NSAs as defined above have an important role
to play in the development process. This Communication deals with support to build
the  capacities  of  NSAs  in  terms  of  their  internal  structure  and  organisation,
constituency  building  through  broadening  networks,  development  of  leadership
qualities and analytical and advocacy skills, sustainable fund raising mechanisms, etc.
The  NSAs  are  non-profit-making  organisations  in  this  framework.  The  business
sector, acting as profit-making, is covered by this Communication only with regard to
its  participation  in  the  development  dialogue  and  policy  implementation.  Financial
support to the business sector acting as profit-making is provided through different ad
hoc instruments.

(cid:1)  NSAs' roles – NSAs are either operational or advocates. The tradition so far in EC co-
operation  with  NSAs  is  to  support  them  when  they  come  to  provide  services  in
sensitive fields and implement projects to cover the basic needs of vulnerable groups
in socially or  geographically  isolated  areas.  In  most  developing  countries,  NSAs  are
also  increasingly  becoming  advocates,  by  taking  part  in  consultation  processes  with
external donors and in policy discussions and by contributing to the definition of their
countries' strategies, thereby advancing ownership of the development process as well
as  deepening  of  democracy  and  increasing  accountability  of  both  the  state  and  the
business  sector.  NSAs  often  constitute 
in
public/private partnerships including those partnerships on research and technological
development.

the  decisive  operational  element 

(cid:1)  NSAs  as  humanitarian  aid  implementers  or  development  partners  –  Another
distinction between NSAs comes from the different nature of their action, either in the
field  of  humanitarian  aid  (assistance  to  catastrophe  victims  in  order  to  address  the
needs  resulting  from  these  situations)  or  in  the  field  of  development  (longer-term
assistance  to  address  structural  needs).  This  distinction  involves  basic  differences  in
the NSAs’ expected role.  In line with the Commission’s Communication on Linking

5

Relief  Rehabilitation  and  Development,2  increased  co-ordination  with  all  players
including international  and local NGOs and other civil society  groups would help to
improve the international response to crises and post-crises situations.

(cid:1)  Development co-operation process from the NSA perspective – In accordance with
EC  development  orientations,  NSAs  ought  to  be  permanently  and  systematically
involved across the definition of country strategies and the programming process.

– 

– 

– 

– 

The relevant authorities are expected to take the initiative to involve NSAs
in  the  preparation  of  the  National  Development  Strategy,  or  the  Poverty
Reduction Strategy where appropriate

The relevant authorities and the EC should involve the NSAs in preparing
the  EC  response  strategy,  which  is  based  on  the  National  Development
Strategy as well as on the EC co-operation objectives.

NSAs should be encouraged to participate in the consultation on sectoral
strategies once the priority focal sectors have been agreed

NSAs should be involved in implementing co-operation programs through
different mechanisms

– 

NSAs should be invited to participate in EC co-operation reviews.

(cid:1)  Country Strategy Papers – The programming model that is now being applied to all
geographical  regions  is  based  on  Country  Strategy  Papers  (CSPs),  which  are  the
instrument  for  guiding,  managing  and  reviewing  EC  assistance  programmes.  The
purpose of CSPs is to provide a framework for EU assistance  programmes  based  on
EU/EC objectives, the Partner Country Government policy agenda, an analysis of the
partner country’s situation, and the activities of other major partners. The CSP points
to where Community assistance will be directed and how it integrates with what other
donors  are  doing.  CSPs  thus  contribute  to  better  planning  of  co-operation  activities,
improved  donor  co-ordination/complementarity,  and  greater  overall  coherence  of
external assistance policy with other EU policies.

(cid:1)  Types of NSAs interventions - NSAs can either carry out projects that aim explicitly
to implement the CSPs and/or fit in with the sectoral and geographical priorities set by
the  Commission 
forward
initiatives/proposals for financing (“NSA own initiative”).

(“implementing  partners”),  or 

can  put 

they 

(cid:1)  Sectors of intervention – Projects and programmes involving NSAs are implemented
in a variety of sectors ranging from agriculture and rural development, human rights
and governance, to micro-finance, gender equality, health, education, culture, research
and  scientific  capacity  building,  environment  and  employment  generation.  All  these
programmes  have  a  capacity  building  dimension,  and  they  may  benefit  the  various
target groups. Many programmes also provide direct support for NSA organisations as
such, with a view to structuring civil society.

2

COM(2001) 153 of 23 April 2001

6

                                                
(cid:1)  Northern and Southern NSAs - NSAs from the EU are gradually changing their role
in  the  development  process,  in  particular  by  making  efforts  in  supporting  and
identifying  suitable  NSA  partners  in  developing  countries  as  well  as  in  building
capacities  amongst  them.  This  process  reflects  the  mutual  interests  of  both  the
Northern and the Southern NSAs and is to be encouraged.

1.3.

Practices by instrument and by region

1.3.1. Humanitarian aid

The  Humanitarian  Aid  Regulation  (1257/96)  establishes  the  entities  which  can  benefit
from Community funding to implement Humanitarian aid operations. Three categories of
partners are covered: NGOs, international organisations (i.e. UN Agencies, International
Red Cross organisations)  and  specialised organisations of  Member  States.  In  respect  to
NGOs, the Regulation requires to be non-profit autonomous organisations in a Member
State  of  the  Community  under  the  law  in  force  in  that  Member  State  and  to  have
headquarters in a Member State of the Community or in the third countries in receipt of
Community  aid.  Exceptionally,  the  headquarters  may  be  in  a  third  donor  country.  For
NGOs  to  work  on  a  long-term  basis  with  ECHO,  they  have  to  sign  a  Framework
Partnership Agreement (FPA), which is an instrument for selecting NGOs on the basis of
an in-depth analysis of their mandate and their impartiality in the allocation of aid, their
operational,  administrative  and  financial  capacities  as  well  as  their  specialisation  and
experience in the field of humanitarian emergencies.

Although  NGOs  from  third  countries  not  established  in  the  European  Union  are  not
eligible  for  direct  funding  from  ECHO,  they  play  an  important  role  as  ‘’local
implementing  partners’’  of  European  NGOs  for  humanitarian  operations  financed  by
ECHO. Their knowledge of the field is an advantage for successful operations as it can
help  to  provide  a  more  efficient  link  with  rehabilitation  and  development  once  the
humanitarian  emergency  is  gone  and  ECHO  funding  is  withdrawn.  NGOs  from  third
countries are invited to play a more important role when it comes to identifying needs in
the field and  increasing  the  responsibility  of  both  NGOs  and  other  partners,  and  of  the
EU in its capacity as active donor vis-à-vis the beneficiaries.

Humanitarian  aid  can  be  implemented  either  at  the  request  of  international  and  non-
governmental  organisations,  an  EU  Member  State  or  the  beneficiary  country,  or  at  the
initiative of the Commission. This bears out the dialogue that is taking place between the
Commission and civil society in the context of humanitarian aid. NGOs that have signed
a FPA  are  also  invited to engage  in  a  permanent  dialogue  with  ECHO  through  various
mechanisms such as thematic working groups, annual meetings between the Commission
and  the  partners  signatories  of  FPA  (210  on  12  July  2002)  and  strategic  meetings
between  a  delegation  of  partner  NGOs  and  ECHO  at  the  end  of  the  year  in  order  to
discuss and exchange information on the respective priorities for the following years.

The  amounts  of  humanitarian  aid  committed  to  NSAs  over  the  last  three  years  can  be
summarised  as  follows  (in  million  euro  and  as  a  percentage  of  the  annual  amount
committed for operational contracts):

7

Total NSA

ECHO-financed Humanitarian Aid Contracts
2001
2000
1999
€ 357 m (64,5%)
€ 379 m (69,6%)
€ 486 m (66%)

Average per year
€ 407 m (66,7%)

Total budget

€ 735 m

€ 545 m

€ 554 m

€ 611 m

e

1.3.2.

Thematic budget lines3

Background

The  Commission  is  discussing  the  principle  of  a  rationalisation  of  thematic/horizontal
budget-lines.  An  in-depth  dialogue  on  this  issue  with  the  different  stakeholders  is
ongoing.  A  process  of  harmonisation  and  simplification  of  decision  procedures  and
implementation  modalities  for  all  thematic  budget  lines  has  been  launched.  Measures
have already been taken to improve the focus and management of a number of horizontal
and thematic programmes in the last few years, in particular Food Security, the European
Initiative for Democracy and Human Rights (EIDHR) and NGO Co-financing. NSAs can
also qualify as partners in research projects to the extent that they satisfy the criteria to be
eligible for research and technological development community funds.

Since 1976, the Commission has been co-financing development  activities proposed by
NGOs  under  the  budget-line  B7-6000.  This  budget  line  is  historically  based  on  the
involvement  of  European  civil  society  in  the  dialogue  with  the  Commission  on  EC
development  policy.  Over  time  increased  priority  was  given  to  activities  initiated  by
partner  organisations  in  the  developing  countries.  The  implementation  guidelines  for
2002-2003 make this a precondition. Since 1992, the Commission has  used  budget-line
to  providing  funding  for  capacity  building  activities  and  mobilising
B7-6002 
decentralised  actors  in  the  developing  countries.  The  objective  is  to  promote  a  real
change  by  reinforcing  the  role  of  those  actors  in  the  implementation  of  development
programmes.  At  present,  the  Co-financing  and  Decentralised  co-operation  budget  lines
(B76000  &  B76002)  are  the  subject  for  consultation  with  the  liaison  structure  between
the EU and the European NGOs and other important European NSA networks.

The  main  Human  Rights  NGOs  based  in  Brussels  were  consulted  on  the  draft
programming  document  of  the  European  Initiative  for  Democracy  and  Human  Rights
(EIDHR) for 2002-2004; civil society in third countries has in general been consulted via
the  Commission  Delegations.  Following  the  approval  of  the  programming  document,  a
series  of  missions  were  embarked  upon  in  countries  identified  as  "focus  countries"  for
EIDHR  2002-2004,  and  local  human  rights  NGOs  were  systematically  consulted.  In

3

Food  Security  (B7-20),  Human  Rights  and  Democracy  (B7-70),  NGO  co-financing  (B7-6000),
Decentralised  co-operation  (B7-6002),  ,  Environment  in  the  developing  countries  and  tropical
forests  (B7-6200),  Aid  for  poverty  related  diseases  (HIV/AIDS,  malaria  and  tuberculosis)  (B7-
6211), Contribution to GHF (B7-6212), Integrating gender issues into development co-operation
(B7-622),  Capacity  building  for  information  and  communication  technologies  and  sustainable
energy (B7-623), Integration of children’ rights into development co-operation (B7-624), Disabled
people  in  education,  health  care  (B7–625),  North-South  co-operation  schemes  in  the  campaign
against drug abuse (B7-6310), Aid for population and reproductive health care (B7-6312), Aid for
basic education in developing countries (B7-6313), Community participation in action concerning
anti-personnel  mines  (B7-661),  the  Rehabilitation  and  Refugees  instruments  and  the  Rapid
Reaction Mechanism

8

                                                
addition,  a  series  of  regional  workshops  are  being  organised  within  the  framework  of
EIDHR  with  the  aim  of  continuing  a  field-level  dialogue  between  the  Commission
services  and  human  rights  groups  on  the  EC’s  role  in  promoting  human  rights  and
democratisation  in  third  countries,  and  on  the  implementation  of  EIDHR.  The  first
workshops were held in June 2002 for the Mashrak-Gulf region and the Maghreb; other
workshops will be held in Latin America, the Middle East and Africa in the second half
of 2002 and in 2003.

The European Community contributes to the sustainable improvement of food security in
the  developing  countries  through  various  activities  such  as  financial  and  technical
assistance designed to implement food aid and food security programmes as well as rapid
alert  systems  and  storage  programmes.  Some  of  these  activities  support  civil  society
organisations directly, for example, awareness building, technical assistance and training
for  groups  of  women,  producers  associations,  etc.,  and  support  for  the  food  aid  local
structures. For each programme, two types of aid are planned: direct or indirect. Direct
aid is managed by the government of the beneficiary country who can agree to co-operate
with  local  entities  in  the  framework  of  a  pre-established  national  support  strategy.
Indirect aid is provided in the framework of a contract signed between the Commission
and an implementing organisation, especially the UN and NGOs. NGOs’ capacity in the
areas of food aid and food security is important.

The Rapid Reaction Mechanism (RRM) is designed to allow the EC to respond urgently
to  the  countries  experiencing  civil  emergencies  and  natural  disasters.  Its  purpose  is  to
support  short-term  measures  aimed  at  safeguarding  or  re-establishing  the  conditions
under  which  the  partner  countries  of  the  EC  can  pursue  their  long-term  development
goals. The RRM does not finance humanitarian assistance, which is where the European
Community Humanitarian Aid Office (ECHO) takes the lead. Civil society organisations
are key actors in conflict prevention. They are often present on the ground in situations
where official state structures are absent. They can also function as grass roots mediators
and  as  reliable  and  neutral  observers  in  situations  where  there  is  no  international
presence.  Services  carried  out  by  specialist  NGOs  such  as  conciliation,  pure  mediation
(so-called Track II diplomacy) have sometimes proved decisive in a crisis situation. Key
civil society organisations in this context include women’s associations, private business
and religious/cultural bodies.

Evaluation reports on individual thematic budget lines are available on the Commission’s
website4.  They  cover  in  particular  the  NGO  co-financing  and  the  decentralised  co-
operation  budget  lines.  The  NSAs  role  is  also  examined  in  the  context  of  other  budget
lines  recently  evaluated,  such  as  Food  Security,  Human  Rights  and  Democracy,  north-
south co-operation in the  fight against  drugs abuse,  aid for poverty-related  diseases, …
The reports  conclusions  underline  the  need  of  both  promoting  participatory  approaches
and strengthening the dialogue between all actors involved in the development process.
They also suggest different strategies for capacity building.

4

http://europa.eu.int/comm/europeaid/evaluation/index.htm

9

                                                
Quantitative analysis

The amounts committed to NSAs under the main thematic Budget Lines during the last
three years can be approximately estimated and summarised as follows (in million euro
and as a percentage of the annual Budget Line amount committed).

Co-financing (B7-6000) and Decentralised co-operation (B7-6002) budget lines provide
support  for  “NSA  own  initiative”-type  funding.  Both  Budget  lines  are  100%
implemented by NSAs. The amounts below include capacity building initiatives:

Co-financing NGO’s
Decentralised co-
operation
Total budget lines

Co-financing NGOs and Decentralised co-operation
1999
€ 200 m
€ 4 m

2001
€ 197 m
€ 5 m

2000
€ 200 m
€ 2,6 m

Average per year
€ 199 m
€ 3,9 m

€ 204 m

€ 202,6 m

€ 202 m

€ 202,9 m

For  Food  Aid  and  Food  Security,  the  figures  reported  correspond  to  the  Food  Aid
delivered  through  EuronAid  (European  network  of  32  NGOs  delivering  Food  Aid)  as
well as the allocation for food security, some of which, further to Calls for proposals, is
implemented through NGOs. NGOs  are therefore considered as acting as implementing
partners. In terms of capacity building, there is a provision in each contract for NGOs to
build capacity within their Southern NGO partners.

Total NSA
Total budget line

Food Aid and Food Security
1999
€ 96 m (19%) € 108 m (24%)
€ 505 m

€ 458 m

2000

2001
€ 136 m (30%)
€ 454 m

Average per year
€ 113 m (24%)
€ 472 m

Under the EIDHR, NSAs act as implementing partners. Capacity building projects (focus
on training issues) are included in the figures below.

European Initiative for human Rights and Democracy

Total NSA
Total budget line

2000

1999
€ 79 m (84%) € 75 m (76%)
€ 94 m

€ 99 m

2001
€ 82 m (75%)
€ 110 m

Average per year
€ 79 m (78%)
€ 101 m

The  other  main  thematic  budget  lines  considered  in  this  paper  are  related  to:  uprooted
people in Asian and Latin American countries, rehabilitation and reconstruction in Asia,
Latin America, Mediterranean (Near and Middle East), Eastern Europe/Central Asia, and
East Timor, rehabilitation and reconstruction for developing countries in particular ACP,
fight against HIV/Aids and reproductive healthcare, fight against HIV/Aids, malaria and
tuberculosis,  gender  integration  in  development,  north-south  co-operation  in  the  fight
against  drugs,  environment  and  tropical  forests,  actions  covering  anti-personnel  mines.
Even if all these budget lines include  a capacity building dimension, this is particularly
visible in the Environment and tropical forests, which is the only one in which NSAs act
both as implementing partners or at their own initiative.

10

Other thematic budget lines
1999
€ 118,7 m (77%)
€ 96,2 81%)

2000
2001
€ 75,7 m(41%)
€ 85,5 m (55%)
€ 73,1 m (85.5%) € 61,2 m (81%)

Average per year
€ 93 m (56%)
€ 77 m (83%)

€ 22,5 m (19%)

€ 12,4 m (14.5%) € 14,5 m (19%)

€ 16 m (17%)

Total NSA
(1) 

NSA
implemen-ting
partners

(2) 

NSA own
initiative (part
of Environment
and tropical
forests)

Total budget lines

€ 155 m

€ 155 m

€ 186 m

€ 165 m

The Rapid Reaction Mechanism has been operational since 2001. Of the 36 operational
projects  so  far  committed  under  the  RRM  (to  June  2002),  26  have  been  contracted  to
NSAs. However, in 6 cases of those 26, the NSAs involved were in fact working directly
with the local administration to improve delivery of public functions. For example, NSAs
have been funded in Afghanistan to support the local administration and in FYROM to
provide technical oversight of the EC input into a programme of public works (electricity
supply). In financial terms, out of a total of €20m committed during 2001 on operational
projects,  €16m  was  contracted  to  non-state  actors  (€1m  of  which  where  NSA's  are
directly working with local administrations to improve public functions)

As an order of magnitude the totals are estimated as follows:

TOTAL THEMATIC BUDGET LINES
1999

2000

2001

Average per
year

Total committed to NSAs

€ 497,7 m (52%) € 471,1 m

€ 511,7 m (53%) € 493 m (52%)

(1) 

(2) 

NSA Implementing partners
(Food Security, EIDHR, RRM,
other thematic budget lines)

€ 271,2 m
(54,5%)

NSAs own initiative (Co-
financing, decentralised co-
operation, part of environment
and tropical forests)

€ 226,5 m
(45,5%)

(51,5%)
€ 256,1 m
(54%)

€ 295,2 m (58%) € 274 m (56%)

€ 215 m (46%) € 216,5 m (42%) € 219 m (44%)

Total commitments Budget lines

€ 958 m

€ 914,6 m

€ 972 m

€ 948,2 m

1.3.3. Geographical instruments

The  joint  Council/Commission  Policy  Statement  on  the  EC's  Development  Policy
encourages the widest-ranging participation of all segments of society in the development
process. The Cotonou Agreement with the ACP States makes the participatory approach
at all levels of co-operation a legally binding, well structured obligation, which  aims to
encourage the dialogue between the national authorities and the NSAs in the country. In
the  other  regions,  the  political  frameworks  of  co-operation  provide  for  a  participatory
approach  mainly  in  implementation  of  projects  and  programmes.  Growing  support  for
civil  society  is  discernible  and  initiatives  to  further  involve  NSAs  in  dialogues  and
consultations are being undertaken in all regions.

(1) 

The  Cotonou  Partnership  Agreement  recognises  the  complementary  role  of,
and the potential for,  contributions  by  NSAs  to  the  development  process.  NSAs
will, where appropriate, be kept informed of and involved in consultation on co-
operation strategies. They will  be provided  with financial resources, involved  in
the implementation of co-operation projects  and programs and be provided with

11

capacity building support in critical areas in order  to reinforce their capabilities.
Consultation  during  the  first  phase  of  the  programming  process  has  been  in
general satisfactory  but should improve in view of  the  review  process.  Analysis
so far shows that in most countries (48 out of 55) the NSAs have been consulted
and  CSPs  have  been  adapted  accordingly  in  more  than  50%  of  the  cases  (30
countries  out  of  55).  In  many  countries  (32  out  of  55)  amounts  have  been
earmarked for  NSA  capacity  building  and  networking.  These  amounts  represent
some  5%  of  the  programmable  resources  allocated  (€  166  million  out  of  €  3,5
billion).

NSAs  have traditionally been  privileged partners of the EU' s co-operation with
South  Africa.  Prior  to  1994,  a  specific  budget  line  in  support  of  the  victims  of
apartheid  concentrated  on  funding  local  NGOs  and  CBOs.  After  the  end  of  the
apartheid, the South African government made consultation and co-operation with
civil society a political priority. The EU' s Trade, Development and Co-operation
Agreement  with  South  Africa  (TDCA)  states  that  dialogue  and  partnership
between  public  authorities  and  non-governmental  development  partners  and
actors  will  be  promoted.  NGO  and  community  based  organisations  are  amongst
the co-operation partners eligible for financial and technical assistance. Any other
body  could  be  made  eligible  if  so  designated  by  both  Parties.  Multi-annual
Indicative  Programmes  both  for  1997-1999  and  for  2000-2002  provide  that  "an
indicative allocation of 25% of the resources available under the EPRD will be set
aside  to  decentralised  co-operation",  either  as  direct  grants  or  partnership
programmes  in  which  government  departments  and  NSA  participate.  Although
there  is  no  particular  provision  in  the  TDCA  for  NSA  consultation  during  the
programming  phase,  the  Cotonou  Agreement,  to  which  South  Africa  is  a
signatory,  now  applies.  As  a  result,  NSAs  are  currently  being  involved  in  the
preparation of the new MIP (2003-2006).

Under the MEDA programme,NSA are particularly involved at the regional level
through  the  EuroMediterranean  Civil  Forum  and  several  sectoral  fora.  MEDA
projects specifically dedicated to the reinforcement of civil society mainly consist
of  capacity  building,  which  may  lead  to  reinforcing  the  dialogue  between  the
NSAs and the government of the partner country and to encouraging information
sharing  and durable links between network partners,  and participation in project
implementation.  In  the  framework  of  the  social  funds,  or  projects  dealing  with
local development in the region, NSAs are involved in their implementation and
often in their planning.

The  proposal  for  a  new  ALA  Regulation5  includes  different  NSA  amongst  the
entities directly  eligible  for Community  co-operation.  This  was  already  the  case
with  the previous  ALA Regulation (443/92), which mentioned that recipients  of
aid  and  partners  in  co-operation  may  include  other  entities  in  addition  to  States
and regions. The new Regulation proposal  also points out that co-operation  will
support the development of closer relations between ALA partners and the EU, so
as  to  enable  mutually  beneficial  exchanges,  notably  between  economic,  social,
cultural, educational and scientific entities. The current regional, subregional and
country strategy papers have a strong civil society component.

(2) 

(3) 

(4) 

5

COM(2002) 340 of 2 July 2002

12

                                                
In Latin America, a political dialogue has been institutionalised between the EU
and the Rio Group, which brings together the whole of Latin America. A political
dialogue equally exists at the three sub-regional levels with the San Jose Group,
as well as with Mexico, with the Andean Community and  with Mercosur  which
include a parallel dialogue with civil society. Growing support to civil society can
be  perceived  in  the  new  generation  of  Agreements.  The  Association  Agreement
initialled  in  June  2002  with  Chile  and  the  Agreement  under  negotiation  with
Mercosur include provisions for dialogue and co-operation with civil society.

The Agreements in force between the EC and the Asian countries do not contain a
legal  obligation  to  consult  civil  society.  However,  dialogue  has  taken  place
through formal structures such as the EU-India forum and the ASEM forum.

EC assistance to the Western Balkans, which contributes to the stabilisation and
association  process,  is  focused  on  building  up  an  institutional,  legislative,
economic and social framework and promoting a market  economy. The political
situation in some areas can make it necessary to supply the assistance directly to
recipients  other  than  the  State.  The  State,  entities  under  UN  jurisdiction  and
administration, federal, regional and local bodies, public and semi-public bodies,
the  social  partners,  organisations  providing  support  for  business,  co-operatives,
mutual  societies,  associations,  foundations  and  NGOs  are  all  eligible  for
Community assistance. Three  instruments  provide  support to  civil society  in the
Western Balkans: the CARDS national  programmes (focusing on social aspects,
democracy  and  stabilisation),  CARDS  regional  programs  and  the  European
Initiative  on  Democracy  and  Human  Rights  (EIDHR).  One  of  the  priorities  for
CARDS  regional  funds  is  to  support  democratic  stabilisation  and  civil  society,
including  minority  rights,  media  and  good  governance.  As  a  complement  to  the
CARDS  national  programmes  and  the  EIDHR,  non-governmental  activities  in  the
fields  of  human  rights,  fundamental  freedoms  and  sustainable  development  will
be promoted.

Partnership  and  Co-operation  Agreements (PCAs) are  the  basis  for  co-operation
with the 13 countries of Eastern Europe and Central Asia6 which benefit from
the TACIS programme. TACIS aims to promote transition to a market economy
and to reinforcing democracy and the rule of law in the partner countries. Support
for  civil  society  is  part  of  the  broader  area  “Support  for  institutional,  legal  and
administrative  reform”.  Projects  and  measures  are  included  in  financing
memoranda agreed between the Commission and the partner country, based on a
dialogue  addressing  the  joint  interests  of  both  parties.  There  is  no  specific
provision  for  involving  NSA  in  the  preparation  of  the  indicative  and  action
programmes.  “Support  for  civil  society''  has  been  selected  as  a  priority  in  the
majority of the CSPs.

(5) 

(6) 

6

Armenia,  Azerbaijan,  Belarus,  Georgia,  Kazakhstan,  Kyrgyzstan,  Moldova,  Mongolia,  Russia,
Tajikistan,  Turkmenistan,  Ukraine,  Uzbekistan.  PCAs  are  in  force  in  9  of  them  (not  Belarus,
Mongolia, Tajikistan or Turkmenistan)

13

                                                
The  amounts  committed to NSAs by  the  geographical  instruments  during  the  last  three
years can be approximately estimated and summarised as follows (in million euro and as
a percentage of the annual amounts committed):

Geographical instruments
1999

2000

2001

Annual Average

ACP (including South Africa)
Total committed to NSA
(1) 

as implementing
partners
as “own initiatives”

(2) 
Total committed
MEDA
Total committed to NSA
(1) 

as implementing
partners
as “own initiatives”

(2) 
Total committed
Latin America
Total committed to NSA
(1) 

as implementing
partners
as “own initiatives”

(2) 
Total committed
Asia
Total committed to NSAs
as implementing
(1) 
partners
as “own initiatives”

(2) 
Total committed
Western Balkans (CARDS)
Total committed to NSA
(1) 

as implementing
partners
as “own initiatives”

(2) 
Total committed
Eastern Europe and Central
Asia (TACIS)
Total committed to NSA
(1) 

as implementing
partners
as “own initiatives”

(2) 
Total committed
Grand Total committed to
NSAs
(1) 

as implementing
partners
as “own initiatives”

(2) 

Grand Total committed

€ 66.6 m (4.3%)
€ 151 m (100%) € 66.6 m (100%)

€ 135.4 m (5%)
€ 135.4 m (100%)

€ 188.6 m (7%) € 151 m (4%)
€ 188.6 m
(100%)
-
€ 2,692 m

-
€ 3,757 m

-
€ 1,554 m

-
€ 2,667.6 m

€ 7.75 m (0.7%) € 57.7 m (5.5%) € 52 m (5.7%)
€ 27.7 m (48%)
€ 7 m (90%)

-

€ 39.2 m (3.9%)
€ 11.6 m (30%)

€ 0.75 m (10%) € 30 m (52%)
€ 1037.9 m

€ 1047.7 m

€ 52 m (100%)
€ 909.1 m

€ 27.6 m (70%)
€ 998.2 m

€ 41.8 m (20%) € 68.8 m 24.8%) € 92.6 m (30.8%) € 67.7 m (25.8%)
€ 67.7 m (100%)
€ 41.8 m (100%) € 68.8 m (100%) € 92.6 m (100%)

-
€ 208.5 m

-
€ 277.9 m

-
€ 300.2 m

-
€ 262.2 m

€ 85 m (24.3%) € 95 m (19.8%) € 110 m (27%)
€ 50 m (58.8%) € 55 m (57.9%) € 60 m (54.5%)

€ 97 m (23.5%)
€ 55 m (56.7%)

€ 35 m (41.2%) € 40 m (42.1%) € 50 m (45.5%)
€ 348.8 m

€ 480.9 m

€ 407.6 m

€ 42 m (43.3%)
€ 412.4 m

€ 55 m (14.6%) € 103 m (12%)
€ 55 m (100%)

€ 102 m (12.4%)
€ 103 m (100%) € 102 m (100%)

€ 87 m (12.7%)
€ 87 m (100%)

-
€ 376.1 m

-
€ 859.7 m

-
€ 822.1 m

-
€ 685.9 m

€ 43.7 m (11%) € 65.6 m 14.6%) € 42.4 m (10.4%) € 50.6 m (12.1%)

-

€ 14 m (21.3%) € 3 m (7%)

€ 5.7 m (11.3%)

€ 43.7 m (100%) € 51.6 m 78.7%) € 39.4 m (93%)
€ 397.1 m
€ 421.8 m
(8.3%)
€ 342.4 m
(81.2%)
€ 79.4 m
(18.8%)
€ 5,060.4 m

€ 448.5 m
€ 541.1 m
(7.8%)
€ 419.5 m
(77.5%)
€ 121.6 m
(22.5%)
€ 6,871.7 m

€ 4,400.8 m

€ 44.9 m (88.7%)
€ 417.8 m
€ 476.1m (8.7%)

€ 407.8 m
€ 465.6 m
(10.58%)
€ 324.2 m (69.6%) € 362 m (76%)

€ 141.4 m (30.4%) € 114.1 m (24%)

€ 5,444.3 m

2.

EC  EXPECTATIONS  REGARDING  NSA  INVOLVEMENT  IN  THE  DEVELOPMENT
PROCESS

2.1.

NSAs in EC development policy including trade

In  practice,  NSAs  are  gradually  becoming  one  of  the  key  partners  in  EC  development
policy.  Broad  dialogue  between  institutions  and  citizens  provides  the  possibility  for
valuable  input  into  the  design  and  implementation  of  poverty  reduction  strategies  and
policies  centred  on  the  Millennium  Development  Goals,  and  it  also  helps  to  promote

14

good  governance, democratisation  and  respect  for  human  rights.  The  relevance  and  the
viability  of  co-operation  policies  and  programmes  are  enhanced  in  the  key  areas  of
conflict prevention and resolution, human rights and trade and development.

As regards trade policy in particular, since 1998, the Commission has held meetings in
Brussels with NSAs, including representatives of networks of NGOs specialising in trade
and development issues. The process is reviewed regularly. It has developed and matured
into an important ongoing feature of the Commission’s work programme, and has been
particularly valuable in the run-up to World Trade Organisation ministerials, notably in
Doha  (November  2001).  The  participating  organisations  are  able  to  raise  awareness  of
relevant  issues  within  Europe,  as  well  as  with  their  contacts  in  development  countries.
This ensures a mechanism for flagging concerns and for maintaining a two-way flow of
information. The process tracks developments in negotiations on the Doha Development
Agenda closely and is flexible, extending to cover other trade negotiations as appropriate
(ANNEX 1 Involvement of NSAs in EPA preparation – ACP countries). NSAs may be
part of  the policy  dialogue  between  the  EU  and  a  third  country  in  being  consulted  and
kept informed on the broad orientations of the co-operation including, when possible, on
the negotiation of new agreements.

The  EC  promotes  the  participation  of  NSAs  in  the  decision-making  process  at  country
level  according  to  democratic  principles,  as  well  as  in  the  preparation  of  both  the
National  Development  Strategy  by  partner  governments  and  the  EC's  Country  Strategy
Papers.  EC  objectives  in  promoting  participatory  approaches  are  to  contribute  to  the
ownership of the development strategies by all beneficiaries, to progressively consolidate
accountable, sound and democratic institutions, to assist in the exercise of citizenship and
to  facilitate  public-private  partnerships.  This  will  in  turn  result  in  greater  viability  of
development strategies.

These  objectives  are  pursued  in  close  co-ordination  with  other  donors,  particularly  the
Member  States.  The  EU  will  intensify  its  efforts  to  sensitise  the  relevant  authorities  in
order  to  promote  and  facilitate  contacts  at  the  most  appropriate  level  between  different
types  of  actors  in  the  development  process.  Dialogue  will  be  promoted  between  the
relevant authorities and the more relevant NSAs. This dialogue enables NSAs to express
their  needs  and  views  and,  consequently,  facilitate  their  inclusion  in  the  development
process.

In  this  context,  the  EC  expects  NSAs  to  be  involved  in  five  different  stages  of  the
development  process:  the  preparation  of  the  National  Development  Strategy;  the
preparation of the Community Response Strategy; the policy dialogue once the sectors of
intervention have been agreed upon; the implementation and the review process. To this
end  NSAs  should  be  provided  with  both  financial  resources  and  capacity  building
support in critical areas in order to reinforce their own capacities.

For NSAs to be involved  in  the policy dialogue  and  to  have  access  to  funding,  the  EC
expects them to operate in a transparent and accountable manner. The eligibility criteria
for access to funding should be adapted and developed on a country by country basis. In
general,  the  EC  can  support  NSAs  who  share  the  objectives  of  promoting  poverty
reduction, good governance and sustainable development, and who are able to prove their
capabilities  in  working  in  key  development  areas:  addressing  the  needs  of  vulnerable
social groups including gender specific needs, environmental concerns, human rights and
democracy, promoting good governance, enhancing economic and social development as

15

well as promoting and strengthening social and political dialogue. A clear organisational
transparency  and
structure,  which  reflects 
accountability,  as  well  as  independence  from  state  and  administrations  are  also  basic
conditions for access to funding.

the  basic  principles  of  democracy, 

The  EU,  preferably  in  co-operation  with  the  government  of  the  partner  country,  will
provide support to increase the NSAs' capacities to play a constructive role in the policy
dialogue.  This  can  improve  the  quality  of  policy  formulation  and  facilitate  the
progressive involvement of NSAs in the development process.

Special attention will also be given to small and grass roots organisations, which have the
capacity  to  reach  and  represent  vulnerable  and  isolated  groups  of  the  population.  The
contribution of grassroots organisations in the policy debate and strategy implementation
is important to reduce poverty and attain development goals closer to the population and
the  places  where  needs  emerge.  Facilitating  dialogue  on  a  decentralised  basis  between
local  authorities  and  grassroots  organisations  is  equally  important  where  direct
consultation  of  NSAs  at  the  level  of  central  government  is  not  feasible.  In  many
developing countries, a highly centralised government and the focus of activity in urban
areas  impedes  an  inclusive  participatory  approach,  since  many  groups  and  areas  are
isolated from the consultation and the decision making process. This is true especially in
countries  that  cover  a  large  geographical  area.  Overall  the  move  in  many  developing
countries  towards  more  decentralised  systems  of  governance  will  increase  the  need  for
participation by beneficiaries in the setting of priorities and the monitoring of budgetary
execution.

Northern  NSAs  present  in  the  country  can  play  an  important  role  in  this  respect.  They
can provide assistance for facilitating and promoting the initiation or consolidation of in-
country dialogue processes and helping key organisations to participate in the dialogue,
in  the  programming  exercise  and  in  the  drawing  up  of  programmes  involving  the
allocation  of  resources  to  NSAs.  These  activities  should  be  furthered  in  terms  of
transferring  know-how  to  rural  and  marginalised  populations  advancing  not  only  an
''inclusive  participatory  approach''  but  also  ownership  of  the  development  process  at
large.

Finally  it  is  also  necessary  to  elaborate  for  the  follow-up  of  NSA  interventions
performance indicators as a basis for a common control mechanism.

2.2.

Dialogue, consultation and other forms of involvement

Consultation on CSPs will be systematically  encouraged  following  a  flexible  and  tailor
made  approach.  A  good  example  is  NSA  involvement  in  the  preparation  of  the  EC
response strategy for both Cameroon and Uganda (ANNEX 1). It must be kept in mind,
however, that there is room for improvement and that further efforts will be made during
the  implementing  and  the  review  phases  to  consolidate  NSAs'  involvement  in  the
development process in these countries.

Initiatives to involve NSAs at supranational level have been undertaken in Latin America
(Rio  Declaration  follow-up,  Madrid  Summit  preparation,  San  José  Dialogue,  EU-
Mercosur Forum on Business Dialogue).

16

Non State Actors were invited to regional seminars on the preparation of ACP-EU EPAs
negotiations  in  2001.  The  aim  is  to  organise  joint  (ACP-EC)  consultation  across  the
negotiating process, with the support of the ESC and NGO platforms.

Detailed information on these initiatives is provided in ANNEX 1.

2.3.

Types of NSA interventions

There  is  a  basic  distinction  between  NSAs  carrying  out  projects  that  aim  explicitly  to
implement the CSPs and/or fit in with sectoral and geographical priorities set out by the
Commission (NSA as “implementing partners”), and NSAs own initiatives/proposals that
the Commission may decide to support (NSA own initiatives). These two different types
of relationships between NSAs and the EC will continue and a balance has to be achieved
between  both  types  of  support.  In  the  second  case  in  particular,  NSAs  operate  on  the
basis  of  their  autonomy  and  right  of  initiative  in  the  framework  of  the  procedures  that
apply  for  each  instrument.  When  they  act  as  implementing  partners,  NSAs  commit
themselves to deliver, in accordance with the contract they have signed.

EC  co-operation  instruments  are  increasingly  being  managed  in  a  way  that  supports
NSAs  in  the  developing  countries  and  allows  them  to  access  funding  either
independently or in close partnership with Northern NSAs.

ANNEX  2  provides  examples  of  interesting  cases  in  which  the  NSAs  are  involved  in
implementing projects (contractors, sub-contractors or other), in all geographical regions.
Some examples of programmes where NSAs operate on their own initiative are provided
in ANNEX 3.

3.

IMPROVING THE QUALITY OF THE PARTICIPATORY APPROACH

3.1.

Respective roles of EC Delegations and Headquarters

The  deconcentration  process,  which  started  in  2001  and  will  be  extended  to  all
Delegations before the end of 2003, will help to improve the quality of the participatory
approach  in  EC  development  policy.  Deconcentration  will  lead  to  a  gradual  transfer  of
resources and responsibilities to the EC Delegations. Good co-ordination between the EC
Delegations  and  Headquarters  is  crucial.  Where  conditions  allow,  the  deconcentration
process  will  be  accompanied  by  decentralisation  to  the  authorities  in  the  partner
countries.

The Head of Delegation will play an increasingly important role in the selection process
of  co-financing  projects  presented  as  NSAs  own  initiatives.  In  this  context,  the  HoD
should ensure that there is an acceptable degree of consistency between these initiatives
and the whole co-operation strategy as well as the existing or planned EC programmes in
the country concerned. For other instruments, the HoD will have crucial responsibilities
in  managing  NSAs’  access  to  funding.  In  the  framework  of  the  Cotonou  Agreement,
most ACP Governments in agreement with the EC have undertaken to provide support to
NSAs by reserving an EDF amount for  this purpose  in  the Country  Strategy Papers.  In
the implementation process of these innovative provisions, the ACP national authorities,
the EC Delegations and the NSA representatives are expected to identify jointly the types
of  actors  and  the  types  of  activities  to  be  supported.  As  far  as  the  management  of  the
funds  and  the  funding  decisions  of  non-state  actors’  activities  are  concerned,  the  HoD

17

should be the main person responsible, as a result of the continuous dialogue between the
parties on the rolling programme.

The lack of political will on the part of  the national  governments to involve NSAs  and
the  poor  structuring  and  capacity  of  NSAs  are  two  important  issues  that  the  Head  of
Delegation  often  faces  in  a  number  of  countries,  which  are  not  necessarily  the  poorest
ones.  Enhanced  co-ordination  with  the  Member  States  is  an  effective  way  of
strengthening  political  dialogue  with  national  authorities  on  this  issue  and  to  facilitate
and  support  NSAs'  capacity  to  make  use  of  all  the  opportunities  offered  in  the
development  process.  Country  Strategy  Paper  consultations  can  prove  a  useful  tool  for
defining  from  the  outset,  policy  towards  NSAs  and  giving  NSAs  the  opportunity  to
emerge,  to  present  their  ideas,  to  promote  debate  in  the  society  and  to  add  to  the
consolidation of democratic systems.

The Head of Delegation will play a central role in promoting and facilitating the dialogue
between NSAs and the relevant authorities. The Head of Delegation as mentioned above
should ensure close co-operation with EU Member States and international agencies and
organisations  already  involved  with  relevant  NSAs  (e.g.  World  Trade  Organisation,
World Bank, UNDP, WHO, ILO, UNICEF, European NGOs, International Chambers of
Commerce,  International  local  government  associations  etc).  The  role  of  Headquarter
will  be  to  provide  support  to  Delegations  by  disseminating  good  practices  and
approaches and by ensuring policy consistency and coherence in the process.

3.2.

Respective roles of Northern and Southern NSAs

NSAs in developing countries are not always able to capitalise on the opportunities that
exist to participate in  the development  process.  They  may have  a  fragile  organisational
structure,  be  inexperienced  or  they  may  be  operating  in  a  difficult  environment.
Improving NSA capacity to participate in dialogue with donors and national and regional
authorities  in  recipient  countries  should  lead  to  a  better  responsiveness  to  needs  as
expressed at the local level.

Strengthening  Southern  civil society, which is  a long  and time-consuming process, is a
priority.  The  best  entry  point  seems  to  be  facilitating  “bottom-up”  and  “inclusive”
processes  leading  to  the  creation  of  national  structures  or  platforms,  representing  the
interests  and  aspirations  of  various  categories  of  actors.  These  structures,  with  the
appropriate  support,  are  often  the  basis  for  gradual  build-up  of  networks  at  different
levels.  Information  and  awareness  raising  are  the  preconditions  for  any  successful
capacity building strategy for NSAs. Experience shows that these strategies should focus
on internal structure and organisation, constituency building (broadening networks), the
development of leadership  qualities, the development of  analytical and  advocacy  skills,
and  sustainable  fund  raising  mechanisms,  etc.  The  “NSAs  capacity  building  agenda”
must be discussed with the NSAs themselves, with others donors and  with the relevant
authorities,  in  order  to  build  local  capacity  building  strategies  that  are  coherent  and
adapted to the country.

Capacity building support should also  be  directed  to  help  NSAs  to  develop  capacity  to
participate  in  dialogue  on  global  processes,  conventions  and  conferences,  within  such
fora or in parallel meetings.

18

Involving local communities and using their knowledge is also particularly relevant in a
context  of  risk  reduction  and  disaster  preparedness,  or  in  order  to  address  the  needs  of
marginalised groups such as indigenous peoples.

Encouraging  dialogue  between  Southern  and  Northern  NSAs  as  well  as  South-South
exchanges is essential. This is becoming a key feature of development policy. Dialogue
centred  on  mutual  interests,  concerns  and  needs  should  increasingly  be  supported  and
facilitated.  The  full  range  of  EU  NSAs  (humanitarian  and  development  NGOs,  social
partners, research establishments, cultural associations, media) can play a crucial role in
awareness  raising  on  development  issues  in  Europe,  in  supporting  and  identifying
suitable NSA partners in the South, as well as in building capacity amongst them.

Northern NSAs have acquired a lot of experience and have progressed essentially on an
organisational and networking level to open up and reach out to all civil society actors.
Therefore, they can provide their know-how to other actors as this is crucial for attaining
ownership and a participatory approach in all areas such as the social and entrepreneurial
sectors (with  economic  and  social  partners),  academia,  media  etc.  The  Northern  NSAs'
role in the South is progressively moving from implementing projects  towards capacity
building by assisting their partners in the developing countries to become active, credible
and  well  structured.  Three  programmes  to  support  the  FONGS  (“Fédération  des
Organisations  Non  Gouvernementales  du  Sénégal”)  between  1991  and  2001  financed
under  Budget  Line  B7-6000  can  be  considered  as  an  example  of  this  trend  (detailed
information is provided in Annex 2).

The challenge that Northern partners are expected to address is to build on this progress
and develop closer partnerships with their local counterparts, and move away gradually
from direct intervention at operational level. The challenge for donors is to support this
development.

4.

CONCLUSION

Non State Actors are increasingly being involved in EC development policy throughout
the various co-operation programmes and policy dialogues with partner countries. As an
order of magnitude it can be estimated that every  year some €1.4 billions out of the €7
billions of EC yearly official development assistance (20%) is being managed by or with
NSAs.  Initiatives  have  been  taken  in  all  regions  to  develop  dialogue  between  EU  and
partner country civil societies, as well as with the authorities and the Commission.

Implementation  of  the  principle  of  NSA  participation  in  the  development  process  will
evolve  over  time  as  a  result  of  lessons  learnt.  It  will  require  experimentation,
identification  of  best  practices,  flexibility  and  institutional  innovation.  This  means
adopting country specific approaches and taking account of varying political conditions,
levels of organisation of these actors and existing traditions or mechanisms for dialogue.
It  means  accepting  that  adequate  information  flows,  sensitisation,  support  for  the
structuring of NSAs in platforms, fora, or associations at different levels - which may not
be present at the outset - are longer-term objectives for the genuine involvement of these
actors. It also means putting in place the human and financial resources needed to ensure
proper  support  and  follow-up  for  the  dialogue  process  at  the  level  of  partner  country
governments, NSAs and Delegations.

19

It also  calls  for  appropriate  monitoring  systems based  on  realistic  and  relatively  simple
indicators  to  check  the  quality  of  the  process  of  participation  and  its  added  value  for
policy formulation and implementation. These activities are covered by evaluations and
completion  reports,  as  part  of  the  already  established  feed  back  system.  The  challenge
will be to build upon existing organisations, mechanisms and capacities, while promoting
more  structured  forms  of  dialogue  over  time.  The  “rolling”  nature  of  the  new
programming system of EC assistance may facilitate the gradual integration of NSAs into
the process.

Differences  between  regions  are  expected  in  relation  to  NSA  involvement  in  the
development  process  due  both  to  different  legal  provisions  in  the  co-operation  and
partnership  agreements  and  to  social,  political  and  historical  contexts.  However,  the
Policy Statement  on  EC  Development  Policy  provides  for  the  involvement  of  NSAs  in
the  development  process.  As  a  consequence,  an  adequate  level  of  consultation  and
participation  is  to  be  ensured  in  all  partner  countries.  Certain  standards  should  be  met,
these being:

(cid:1)  Promotion  of  NSA  involvement  in  the  preparation  of  the  National  Development
Strategy  or  Poverty  Reduction  Strategy  Papers  by  the  authorities,  which  is  the  best
entry  point  and  the  opportunity  to  enhance  dialogue  between  the  Government  and
NSAs. This may also apply to development strategies or plans at regional, provincial,
communal or any other decentralised or sectoral level with the relevant authorities.

(cid:1)  NSAs  should  be  consulted  more  systematically  on  CSPs  and  throughout  the
programming process as part of the discussions on the EC response strategy with the
relevant national authorities.

(cid:1)  NSA  involvement  should  include  discussions  on  trade  policies  and  economic  co-

operation.

(cid:1)  Having  all  areas  of  interest  represented  in  consultations  is  crucial.  A  balanced
representation has to be found between social and economic partners, and associations
or NGOs representing different groups or areas of concern.

(cid:1)  Clear and comprehensive information is to be provided to NSAs in good time so as to
allow them to prepare their participation in consultations as well as their reactions and
proposals. NSAs views should be duly taken into account and discussed. Appropriate
information should be provided on the outcome of consultation and dialogue.

(cid:1)  The EC will continue to encourage NSAs to participate in the implementation of co-
operation projects and programmes. In general, the EC will support NSAs that share
the objectives  of promoting  poverty reduction,  good  governance and democracy and
sustainable  development,  and  who  are  able  to  prove  their  capabilities  of  working  in
key development areas.

(cid:1)  Capacity  building  is  essential  to  enable  NSAs  to  play  a  constructive  role  in  the
development  process.  The  EC  encourages  the  Northern  NSAs  to  continue  providing
their  know-how  to  other  development  actors  and  to  moving  from  implementing
projects towards capacity building by assisting their partners in developing countries.

20

(cid:1)  Enhanced co-ordination with the Member States and other donors is an effective way
of  strengthening  political  dialogue  with  national  authorities  and  facilitating  and
supporting  NSAs'  capacity  to  use  all  the  opportunities  offered  in  the  development
process.

(cid:1)  The EC intends to keep the two existing types of relations with NSAs: implementing
partners  and  NSAs'  own  initiative.  The  dialogue  on  implementation  will  therefore
continue. NSAs do not simply implement the activities formulated on the initiative of
the Commission but decide themselves about engaging in implementation activities or
winning  jobs  announced  or  tendered.  When  financing  proposals  formulated  in
applications at NSAs initiative, the Commission has its own criteria for selection and
its own administrative responsibility in these decisions. In the context of this dialogue
on  implementation,  the  Commission  intends  to  discuss  with  NSAs  the  mechanisms
and tools to carry out systematically monitoring and evaluations at all levels.

(cid:1)  The Commission will prepare guidelines for EC Delegations on NSA involvement in
the  development  process.  Another  set  of  guidelines  for  the  EC  Delegations  in  ACP
countries on implementing Cotonou Agreement provisions relating to Non-State Actor
access to EDF funding is also being prepared, fully reflecting the spirit of the Cotonou
Partnership  Agreement.  These  two  sets  of  guidelines  develop  and  complement  the
Commission  Services’  “Programming  guidelines  No.  6  -  The  new  actors  in  the
partnership” for ACP countries.

21

ANNEXES

Table of Contents

ANNEX 1: Examples of dialogue, consultation and other forms of involvement

ANNEX 2: Cases in which NSAs are involved, as implementing partners
(contractors, sub-contractors or other), in projects in all geographical regions

ANNEX 3: Cases in which NSAs operate on their own initiative

22

ANNEX 1 –
examples of dialogue, consultation and other forms of involvement

Cameroon

The  Cotonou  Agreement  provisions  on  NSA  involvement  in  co-operation  apply  to  the
programming  exercise  for  the  9th  EDF.  However,  NSA  involvement  in  Cameroon  had
started  beforehand,  through  two  projects  financed  under  the  8th  EDF  amounting  €  21,9
million,  these  being  urban  social  development/decentralised  co-operation  programs,
which were redirected in a second phase towards support for NSA organisations. These
interventions,  based  on  the  experience  gained  from  micro-realisations  programmes
financed under the 7th EDF, provided the opportunity to try innovative capacity building
approaches.  In  addition,  by  developing  specific  communication  supports  (civil  society
press  releases,  monthly  bulletin,  Website,  press  contact  network),  the  information  was
improved and the journalists started playing an increasingly important role. The follow-
up of these interventions requires attention which is time-consuming for the Delegation,
which needs to assign the appropriate human resources to it.

The process of NSA involvement in the 9th EDF programming exercise formally started
in February 2001. Selection of NSAs to participate in the programming discussions was
based  on  the  participatory  process  initiated  by  the  Government  of  Cameroon  in  the
framework of the HIPC Initiative. Following a request from the authorities, a fact-finding
mission  was  launched  to  identify  the  more  representative  and  reliable  NSAs.  Four
information  and  discussion  seminars  were  held.  The  mission  concluded  that,  although
NSAs were very interested in being actively involved in the co-operation process, it was
particularly  difficult 
identify  well-structured  representative  NSAs,  against  a
background  of  a  multiplicity  of  actors  with  very  different  objectives  and  levels  of
capacity. These conclusions were taken into account when the CSP was drafted in March
2001. € 9 million (out of a global allocation of € 159 million) will be provided for actions
aimed at structuring civil society and promoting legitimate and representative bodies as
well  as  for  specific  actions  aimed  at  consolidating  a  participatory  mechanism  for  the
Poverty Reduction Strategy implementation and follow-up.

to 

In July 2001, the final version of the CSP was distributed to the representatives of NSAs
(22 NGOs eligible in the framework of HIPC, international NGOs, platforms of NGOs,
and  representatives  of  various  confessions)  and  to  representatives  of  decentralised
authorities. An informative meeting was subsequently held with the participation of the
EC  and  the  services  of  the  National  Authorising  Officer.  The  Commissioner  for
Development  signed  the  CSP  for  Cameroon  in  Yaoundé  17  July  2001.  He  met  NSA
representatives.

Uganda

In  Uganda  consultation  with  non-state  actors  took  place  both  during  the  ACP-EU
negotiation  process  and  during  the  programming  exercise.  Both  community-based
organisations and non-governmental organisations were  consulted. The private sector is
directly involved in other sectors.

A NSA Steering Committee was formed in November 2001 at the initiative of local non-
state  actor  representatives  in  order  to  ensure  regular  information  dissemination  and
systematic dialogue.

23

A  mapping  study  was  commissioned  by  the  Delegation  as  phase-one  of  a  two-phase
study. The second phase includes a feasibility study on which a financing proposal for a
Support to Civil Society Programme will be based.

NSA Evaluation of consultation process (ACP)

The EC approach to involving NSAs in  the preparation of  the  Cameroon  and  Ugandan
CSPs have been assessed by the NSAs themselves. A European NGO platform supported
the preparation of reports on the involvement of NSAs in CSPs and the NIPs processes in
Cameroon, Uganda and three more pilot countries. The reports drafted by ACP NSAs in
a  joint  ACP-EU  civil  society  initiative,  aimed  at  reviewing  the  participation  in  the
programming  process.  The  reports  show  that  attempts  have  been  made  by  all  parties
concerned  to  involve  NSA  in  the  programming  process.  However  they  also  highlight
several  factors  that  have  hampered  effective  engagement  with  civil  society  in  the
programming  process.  These  mainly  relate  to:  a)  the  short  period  set  aside  for
consultation; b) the quality and timing of information sent to NSAs about the process; c)
the  limited  range  of  NSAs  involved  in  the  process;  d)  the  lack  of  institutional
mechanisms  to  facilitate  this  consultation  process;  and  e)  insufficient  reporting  back  to
NSAs on the results of the consultations. The reports make recommendations to the EC,
to Governments and to the NSAs themselves.

Latin America: Regional and Sub-Regional level

Regional level

(cid:1)  In  its  Communication  on  the  follow-up  to  the  first  Summit  between  Latin  America,
the  Caribbean  and  the  European  Union  7,  the  Commission  proposed  to  step  up  its
action to implement the Rio Declaration through existing co-operation instruments, in
particular to promoting human rights (including with local organisations and NGO’s),
supporting  democracy  (including  support  for  the  media),  protecting  economic  and
social  rights,  promoting  information  society  (through  a  specific  programme  @lis  to
provide, namely civil society with modern tools of communication).

(cid:1)  A number of thematic and sectoral events were organised to prepare contributions and
positions  for  the  Madrid  Summit  in  May  2002.  In  particular,  several  distinct  fora
brought  together  different  components  of  both  Latin  American  and  European  civil
society  namely,  business, civil  society organisations in  general, social  and economic
committees, some specific universities and institutes (on social equity), and Episcopal
conferences.

Sub-regional level

(cid:1)  Central America represents an area where support for the participation of NGOs has
a number of specific characteristics, due to the context in which our co-operation was
provided  in  the  1980s  and  1990s  in  response  to  internal  scenarios  of  conflicts  and
population  refugees.  The  link  between  the  organisations  of  civil  society  and
institutions was sought , in particular in the field of pacification, of reintegration and
democratic consolidation as from 1984, the starting date of the San José Dialogue. In

7

COM (2000) 670 – 31.10.2000

24

                                                
general, the EC sought to involve civil society organisations or their participation  in
monitoring  sectoral  programmes  designed  to  implement  priorities  of  the  political
dialogue  (San  Joséawareness  raising  and  dialogue  with  the  government).  In  Central
America, dialogue was led from the end of the  1980s with the organisations of  civil
society, in particular with thematic networks and universities. Dialogue was led on an
ad hoc basis accross the various programmes and sectoral strategies implemented by
the Commission. This dialogue had very positive results.

(cid:1)  In  the  South  cone,  at  present,  consultations  are  already  taking  place  on  an  ad-  hoc
basis. The Commission held a first conference with civil society organisations on EU-
Mercosur  /  EU-Chile  negotiations  in  Brussels  on  12  October  2000.  In  addition,  in
November  2000  the  Commission  participated  in  a  conference  on  EU-Chile
negotiations  with  civil  society  organisations  .  The  Commission  organised  a  second
conference with civil  society organisations  on EU-Mercosur  / EU-Chile negotiations
in  Brussels  on  12  February  2002  .  In  addition,  the  Commission/DG  RELEX  also
created  a  web  site  in  August  2000  dedicated  specifically  to  EU-Mercosur  and  EU-
Chile negotiations, where civil society organisations can obtain much information and
many documents tracing the course of negotiations.

The  EU-Mercosur  Forum  on  Business  Dialogue  (MEBF),  which  is  made  up  of
European  and  Mercosur  business  representatives  is  producing  good  results.  Two
plenary meetings took place in 1999, followed by a number of other meetings. At the
3rd  Plenary  Meeting  on  15-16  May  2002,  just  before  the  Madrid  Summit,  a  list  of
the  Commission,  was  adopted.
Trade  Facilitation  Measures,  supported  by 
Furthermore,  the  dialogue  with  the  EU  Working  Unions  and  with  the  Forum
Consultivo Económico y Social of Mercosur is also giving good results. This will lead
to funding a project on the social dimension of Mercosur.

Involvement of NSAs in EPA preparation (ACP countries)

EPAs  will  take  a  comprehensive  approach  which  provide  an  opportunity  for  ACP
countries  to  re-orient  themselves  towards  deeper  integration  into  the  world  economy.
This  clearly  needs  the  involvement  of  all  actors  concerned,  notably  business
representatives,  social  partners,  and  civil  society  at  large.  It  will  also  be  important  to
involve representatives  from parliaments  and  provincial  authorities  in  this  process.  The
EC has already started this consultation process and has met with civil society in Brussels
and in ACP countries. However, as negotiations startthis process will be intensified. The
Commission will share information, notably on studies and  impact  assessments  that we
plan  to  carry  out.  The  different  groupings  concerned  will  also  be  consulted  during  the
negotiation  process.  For  this  the  EC  will  also  rely  on  non-state  actor  forums,  business
organisations and parliamentary groups.

An important instrument for this process is the Sustainability Impact Assessment (SIA)
which the Commission plans to launch in September 2002 and which will accompany the
negotiations.  The  SIA  will  provide  help  for  both  EU  and  ACP  negotiators  to  fully
understand the economic, social and environmental impact of the different scenarios that
crop  up  during  the  negotiations.  One  key  component  will  be  the  involvement  of  civil
society  and  the  business  community  through  special  meetings  in  the  EU  and  in  ACP
regions,  through  the  establishment  of  an  SIA  steering  group  with  representatives  from
business,  universities  and  international  institutions,  and  through  a  specific  ACP-SIA
web-page.

25

The main activities so far involving NSAs can be summarised as follows:

(cid:1)  Institutions such as the EP, the ACP-EU Joint Parliamentary  Assembly  and the ESC
have organised workshops / special sessions in ACP countries. For example, the ESC
organised  regional  workshops  for  economic  and  social  partners  on  trade  and
development, including EPAs. The latest one took place in February 2002 in Nairobi.

(cid:1)  Civil Society Dialogue: The Commission organised a well-attended meeting on EPAs
on 4 July 2002, as part of its Civil Society Dialogue process. The topic was suggested
by  a  network  of  non-governmental  development  organisations  in  the  EU,  and  the
meeting  discussed  issues  such  as  the  content  of  EPA  negotiations,  the  development
dimension, WTO compatibility. It was agreed that the meeting represented a first step
in a regular consultation process throughout EPA negotiations.

(cid:1)  EPA  workshops:  a  number  of  EPA  workshops  have  been  organised  by  research
institutes,  Commonwealth  and  Francophonie,  Member  States,  etc.  The  EC  has
contributed and participated in these workshops.

26

ANNEX 2 – EC Grant cases in which NSAs are involved, as implementing
partners (contractors, sub-contractors or other), in projects in all geographical
regions

The table below summarises examples of projects by region and by instrument.

Region/
country
CARDS/TACIS
Moldova

Bosnia and Herze
MEDA
 Algeria
 Algeria
ACP:
Malawi
Zimbabwe
Rwanda

Liberia
RDC
A-LA Regulation
ASIA:
Bangladesh
Bangladesh
India
India
Regional
Regional
Regional
LATIN AMERICA:
Peru
Paraguay
Uruguay
Uruguay
Panama
Paraguay
El Salvador
THEMATIC
EIHRD
NGO co-financing
NGO co-financing
Decentralised Co-
operation
Food Security
Food Security
Food Security
RRM

RRM
RRM

In M€

Title

0.2

10.5

5.0
50.0

7.4
6.0
7.2

52.0
24.0

58.3
28.7
11.0
30.0
40.0
3.5
7.0

12.0
10.0
10.5
6.7
9.8
8.2
9.2

0.7
0.2
1.5
0.5

2.8
6.8
2.8
12.8

4.9
2

Tacis –LIEN programme: Promotion and development of sustainable health
and social care for children affected by neurological and psychiatric
disability
IEDHR – Women in Public Life

Programme d’appui aux associations algériennes de développement 
Projet de développement socio-économique local dans le nord-est

Civic and Voter Education PHASE II
Decentralised Co-operation programme
Soutien à l’Etat de Droit et aux initiatives de promotion des droits de la
personne et de la reconciliation nationale
Programme de réhabilitation
Programme d’appui transitoire au secteur de la santé (PATS)

BRAC Education Programme.
BRAC – Challenging the frontiers of Poverty Reduction
PESLE - Programme for enrichment of School level Education
EIECP - EU - India Economic Cross Cultural Programme
ASIA - LINK PROGRAMME
ASEF - ASIA EUROPE FOUNDATION
AUNP - EU ASEAN UNIVERSITY NETWORK PROGRAMME

Lutte contre la pauvreté dans les quartiers défavorisés
AMAR
Creacion de una escuela de Artes y Oficios
Programma de Apoyo Integral a los sectores Sociales
Promoción de la Igualdad de Oportunidades en Panamá 
Red de Centros de Iniciativas y Desarrollo para la Mujer de Paraguay 
Prévention sociale de la violence et de la délinquance juvénile au Salvador 

Programme de renforcement des ONG nationales des
Appui financier aux activités du GADEC Sénégal
ACTION DE LA FONGS de 1991 à 2001 Sénégal
Renforcement des capacités de Collectivités locales – Afrique de l’Ouest

Relief Society of Tigray, REST, Ethiopia
AKAMASOA, Madagascar
Sécurité Alimentaire; Euronaid, - Soudan
Former Yougoslav Republic of Macedonia (FYROM) - housing and
reconstruction programme, and confidence-building package
Afghanistan – public broadcasting
Democratic Republic of Congo–support for the peace process in the DRC

27

More detailed information is provided below on a selected number of programs:

CARDS: Western Balkans

EIDHR Micro-project 7700-MICRO-00-04: contract signed in November 2001: Women
in Public Life  - EC  contribution:  €10,520.00  of  Total  Budget  €10,985.00  -  The  project
aims to strengthen relations among women MPs or counsellors with "ordinary" women in
economically  less  developed municipalities in  Bosnia  and  Herzegovina:  Bileca,  Gornji,
Donji Vakuf, Jajce, Bugojno, Stolac and Konjic. The activities centre on 8 workshops for
which common interests and aims should be  identified  and  those should  be  covered  by
the media. The intended result is to bring common people closer to politics and actors in
politics and to communicate this to the whole population.

The  strength  of  the  project  lies  in  its  participatory  approach  at  different  levels.  The
interaction between federal, regional and local actors fosters the knowledge of, about and
confidence  in,  the  various  structures  of  the  BiH  administration.  The  project  operates
countrywide  and  targets  women  from  municipalities  in  both  the  Federation  and  the
Republika Srpska part of Bosnia and Herzegovina. By meeting other women in decision-
making  capacities,  the  target  group  is  given  a  “best  practice”  example  of  female
involvement in politics.

A questionnaire has been distributed to around 200 women in order to collect information
about their knowledge on women in politics, past experience in co-operation with them,
plus  their  needs  and  desires  to  establish  regular  contacts.  This  will  give  important
background information to help determine which topics to cover in the workshops. Two
seminars  were  held  in  January  2002,  in  Republika  Srpska  -  Bileca  and  Berkovici.  The
interest of the women was impressive despite the obstacles made by the mayor of Bileca
municipality.  In  order  to  present  the  project  and  identify  people  that  are  ready  to
cooperate,  Forma  F  had  to  visit  the  target  areas  several  times.  Activities  are  usually
prepared  in  co-operation  with  local  NGOs,  municipal  board  members  and  counsellors,
mayors or the president of the municipal assembly (in the case of Bileca). Co-ordination
groups have been established in both towns in order to coordinate future meetings of the
women involved in the project. Forma F attended the meeting of one of the co-ordination
groups  in  Trebinje  as  a  follow-up  to  the  previous  project  also  funded  by  the  EC.  This
group  discussed  the  problems  of  legal  regulations  related  to  the  start-up  of  private
business.  In  some  municipalities  the  difficulties  faced  included  encouraging  women  to
participate and the different obstacles put in the way by the local authorities. Both points
clearly show the need for further improvements in this field.

(cid:1)  MEDA

Under the MEDA programme, civil society is associated in two different, complementary
ways.  First,  direct  support  for  capacity  building  and  dialogue,  support  to  the  structural
and operational reinforcement of civil society organizations, encouraging governments to
dialogue  with  civil  society  and  associate  them  to  the  decision  making  process.  These
bilateral  MEDA  financing  complements  the  direct  support  to  NGOs  and  other  civil
society organisations through specific budget lines. The second approach is to confine the
implementation  of local development projects within  the framework  to social  funds  for
NGOs and civil society organisations. Examples of both approaches are provided by two
programs in Algeria.

28

First approach: Algeria - Program of support for Algerian development associations
(5M euros)

Non-governmental  associations  in  Algeria  have  significantly  increased  in  number.
However, the associations suffer from structural weaknesses not only  financial  but also
institutional such as the lack of clear mandates, strategies and mechanisms for exchange
of  information  and  co-operation  between  themselves.  The  objective  of  the  project  is  to
reinforce the  support  structures of  NSAs by focusing on training  members  of  NGOs  in
the areas of management and communication. The project provides for meetings between
associations designed to increase synergies and improve the visibility and impact of their
activities  on  Algerian  society.  A  fund  was  also  established  to  meet  the  needs  and
priorities of associations when they implement their own development projects.

large 

Second approach: The project on local socio-economic development in the Northeast
of Algeria (50M euros) focuses on  the  promotion  of  participatory working  methods  by
involving  civil  society  at 
(community-based  organisations,  professional
associations,  community  or  neighbourhood  associations).  The  specific  objective  of  this
project  is  to  support  an  autonomous  process  of  local  sustainable  development  in  50
communities  spread  across  6  Wilayate  in  the  Northeast  of  Algeria  by  favouring
productive local initiatives, thus offering disadvantage populations the prospect of better
standards  of  living.  The  project  provides  for  the  elaboration  and  implementation  of
strategies  and  local  development  plans  through  a  participatory  process  involving
populations from these communities and their associations.

(cid:1)  ACP

Zimbabwe: 7005/000 - Decentralised Co-operation Programme - contribution: 7.2M€
- The Zimbabwe Decentralised Co-operation Programme (ZDCP) is the result of a four-
year consultation process with non-state actors (NSA). It enhances government policy to
support  administrative  decentralisation  by  involving  civil  society  in  the  process  of
poverty  alleviation.  The  programme  encourages  the  fostering  of  a  public-private
partnership between local authorities, non-state actors (NSAs) and the private sector so as
to  increase  the  efficiency  and  effectiveness  of  service  delivery  to  rural  and  urban
communities.  The  programme’s  overall  objective  is  poverty  alleviation  through
enhancement of self-reliance of local communities and its purpose is to improve service
delivery  to  local  communities.  Local  projects  will  be  implemented  in  5  communities
classified  as  disadvantaged  in  the  1995  Poverty  Assessment  Report.  Projects  will  be
undertaken  in  the  following  focal  areas:  economic  empowerment,  food  security,
education and health.

The  innovative  aspect  of  the  programme  is  twofold:  first,  its  methodological  approach
emphasises  capacity  building  among  all  participating  actors  and  the  promotion  of
environmental  and  gender  awareness;  second,  relevance  and  coherence  are  ensured  by
linking  local  level  experience  into  policy  initiatives  and  advocacy  at  national  and
regional  level.  The  programme  thus  consists  of  two  components,  a  Local  Development
Fund  operating  at  district/urban  level  and  a  Regional/National  Development  Fund
operating at regional and national level.

The  overall  responsibility  of  ZDCP  lies  with  the  Tripartite  Steering  Committee  which
includes a representative of the National Authorising Officer (NAO), a representative of
the  Delegation  of  the  European  Commission  and  three  representatives  of  the  NSAs’

29

National  Forum  which  is  responsible  for  overseeing  the  implementation  of  the
programme. The Forum ensures programming coherence and management efficiency and
is assisted by a technical facilitation unit (TFU).

(cid:1)  ASIA

Bangladesh  -  BRAC  -  Challenging  the  Frontiers  of  Poverty  Reduction  -  EC
contribution:  28.7  M€  out  of  total  programme  cost:  62.782.643€  -  The  purpose  of  the
project  is  to  develop  sustainable  livelihood  models  for  the  very  poor.  Such  models  are
designed  to  enable  very  poor  rural  households  to  overcome  socio-economic  exclusion
and  to  escape  from  deep  poverty.  Proven  livelihood  models  will  be  debated  and
promoted to support replication.

The BRAC-CFPR programme is a 4-year programme that seeks to build the capacity of
very  poor  rural  households  to  engage  in  livelihood  practices  and  activities  that  will
enable approximately 400.000 participants to emerge from extreme poverty. To build this
capacity  a  comprehensive  and  integrated  programme  of  inputs  and  activities  will  be
developed, specifically designed to meet the conditions of the very poor, and organised
into  4  components:  1)  Special  Investment  Programme,  2)  Employment  and  Enterprise
Development  Training,  3)  Social  Development  and  Advocacy;  and  4)  Essential  Health
Care  Services.  Support  and  activities  will  focus  among  other  things,  on  :  awareness
raising  and  confidence  building,  training,  asset  transfers  and  allowances,  improving
access  to  essential  health  care,  supporting  the  formation  and  development  of
organisations  that  can  represent  the  interests  and  opinions  of  the  very  poor,  social  and
legal  aid  action,  and  policy  dialogue/awareness/advocacy.  More  fundamentally,  the
BRAC-CFPR  programme  seeks  to  develop  new  ways  of  ensuring  that  the  interests  of
poor  people  are  taken  into  account  in  resource  allocation  decisions  and  local  socio-
political processes that affect their livelihoods.

(cid:1)  LATIN AMERICA

la 

Igualdad  de  Oportunidades  en  Panamá »
Panama:  « Promoción  de 
(PROIGUALDAD)  EC  contribution:  9.800.000  €  -  The  objective  of  the  project  is  to
improve the situation of women and all social groups and increase their participation in
the political, economic and social development of the Panamanian society with regard to
equal opportunities for men and women. This project aims to achieve more harmonious
and  equal  development  of  society.  With  the  support  of  31  institutions,  26%  from  the
public  sector  and  74%  from  civil  society,  PROIGUALDAD  is  expected  to  strengthen
urban and rural women’s associations who participate in this program to ensure that they
will have the capacity to continue in promoting equal opportunities once the project will
be completed. This project marks an important step with regard to the institutionalisation
of  the  gender  perspective  in  the  public  sector  and  its  integration  in  the  educational
system,  through  human  resources  training  and  the  development  of  methodologies  to
increase equal opportunities.

Chile: Until 1989 EC co-operation in Chile  was exclusively  channelled  through  NGOs
whose  central  objective  was  to  contribute  to  the  restoration  of  democracy,  mainly
through  the  support  of  civil  society  organisations.  Altogether  from  1993  to  2000  NGO
interventions  accounted  for  35%  of  EC  financial  commitments-  mainly  in  the  social
fields.  Democratisation  and  human  rights  was  also  an  important  intervention  area
accounting  for  7%  of  the  funds  committed.  There  are  still  a  few  on-going  projects  to

30

strengthen civil society in Chile. Funding was committed to a project in 2000 to develop
local participative management (210.000 Euros).

(cid:1)  EIDHR (European Initiative for Democracy and Human Rights)

Egypt, Palestinian Authority, Jordan, Lebanon, Morocco, Tunisia - 785.600Euros -.

The  program  helps  to  underpin  democracy,  the  rule  of  law  and  the  respect  of  human
rights in Southern and Eastern Mediterranean countries through:

– 

– 

– 

– 

– 

– 

strengthening the capacity of organisations that uphold human rights in Southern
and Eastern Mediterranean countries;

development of local synergies between associations;

development of regional synergies between associations of the various countries
concerned

establishment  and/or  strengthening  of  dialogue  and  co-operation  between
Human Rights NGOs and local authorities;

operationalisation  and  promotion  of 
Declaration in the area of human rights;

implementation  of 

the  Barcelona

operationalisation and promotion of the implementation of human rights clauses
contained in the Euro-Mediterranean agreements concluded or to be concluded.

The  target  groups  are  NGOs,  judges,  Policemen,  Parliamentarians  of  the  South
Mediterranean  countries.  The  responsible  agencies  for  implementation  are:  Egyptian
Organisation  for  Human  Rights,  Palestinian  Center  for  Human  Rights,  Palestinian
Society for the Protection of Human Rights and Environment

(cid:1)  ''Co-Financing NGOs'' B7-6000

B7-6000:  FNGOS  action  from  1991  to  2001,  Senegal  EC  contribution  1.5  Meuros
over 3 programmes

Established  in  1976,  the  Federation  of  Non-Governmental  Organisations  of  Senegal
brings  together  thirty  farmers  organisations  spread  over  10  regions  throughout  the
country and had some 50.000 members in 2001. More than ten  years ago, a consortium
of partners from the North supported FNGOS with institutional capacity building in order
to  strengthen  the  capacities  of  farmer  leaders.  Three  consecutive  programs  have  been
implemented and to date the total financial support from the northern partners amounts to
approximately 6.5 Meuros. The EC contribution is approximately 1.5 Meuros.

Over the last 10 years, FNGOS has undertaken lobbying activities on agricultural policy
with  positive  results.  FNGOS  has  also  influenced  certain  national,  regional  and  local
rural  development  programmes.  Many  of  FNGOS  leaders  have  drawn  attention  at
international level to the fragile agriculture of West Africans and their limited means to
meet the liberal evolution. FNGOS along with other producers organisations from West
Africa have created ROPPA and lobbied the Heads of States and Ministers of Agriculture
of UEMOA member countries.

31

Since  1999,  FONGS  has  tested  basic  economic  support:  creation  of  400  microcredit
organisations  which  provide  about  1  M€  small  short-term  credits  to  15.000  people
(mainly women), counselling for 300 family businesses, and help in setting up some 50
small experimental units of milk processing, seeds, fruits and vegetables.

(cid:1)  ''Decentralised Cooperation budget line'' B7-6002

Strengthening the capacities of local authorities in West and Central Africa through
national and regional associations of local authorities (500.000 €) 2001-2003

The Association of Management of the Program for Municipalities Development in West
and  Central  Africa  (PDM)  brings  together  national  associations  of  local  authorities,
municipalities  and  community  organisations  and  non-governmental  organisations
involved in the local and municipal development initiatives in West and Central Africa,
the  aim  being  to  enable  big  cities  to  better  assume  their  responsibilities  by  increasing
their management capacities and expertise.

Two  main  types  of  activity  have  been  undertaken:  reinforcement  of  Local  Authorities
capacities and training of Municipalities personnel from 1998-2001.

The good results obtained led to exploring training activities and the implementation of a
capacity building program for national associations of local authorities. The program also
aims  to  strengthen  the  structuring  of  the  African  Municipal  movement  at  sub-regional
and  continental  level  with  concrete  actions  of  personnel  training.  The  Canadian
International  Development  Agency,  the  World  Bank,  the  French  Ministry  of  Foreign
Affairs,  the  region  of  Ile-de-France,  the  Canadian  Federation  of  Municipalities  are
participating in this project.

(cid:1)  Food Security Program

Food Security Project in Sudan managed by a European NGO (2.9 M euros)

This  project  provides  a  flexible  response  to  the  actual  needs  of  internally  displaced
persons (IDP)  in the  region.  The project initially  focused  on  providing  food  and  inputs
for farmers in  order to  avoid  begging.  The  concept of the project  is  food  production  at
different levels.

(cid:1)  Rapid Reaction Mechanism

Afghanistan

A  first  programme  for  Afghanistan  was  adopted  on  13  December  2001.  This  Decision
amounted to €4.9m. The main part of the programme focused on support for the Afghan
Interim Authority. Part of the program will focused also on activities undertaken by non-
state  actors.  A  contract  was  signed  between  the  Commission  and  the  UNDP  on  20
December 2001 for a contribution of €2.5m to the UNDP Trust Fund. In addition, the
Commission financed : (i) a mine clearing task force which started operations in early
January 2002, in close co-operation with the UN Mine Action Programme in Afghanistan
(MAPA);  (ii)  public  broadcasting  through  the  implementing  partner  Baltic  Media
Centre  and  Radio  Afghanistan.  On  25  February  2002,  “Good  Morning  Afghanistan”
started  its  daily  broadcasts.  The  programme  addresses  critical  issues  which  are  of
importance to the population in the fast changing environment where accurate and up to

32

date  information  is  at  a  premium.  Funding  has  already  been  secured  for  follow-up
support to the programme under the EC Asia budget; (iii) assessment teams consisting
of  five  experts  covering  urban  recovery,  food  security,  governance,  education  and
gender.  This  exercise  enhanced  the  knowledge  of  the  Commission  of  the  situation  in
Afghanistan  and  assisted  preparation  of  a  Commission  strategy  towards  reconstruction.
In  addition,  these  experts  have  participated  in  several  missions  of  the  World  Bank  and
UNDP as part of the Comprehensive Needs Assessment agreed at the Tokyo Conference
of  January  2002;  (iv)  the  creation  of  a  legal  framework  for  Pakistani  civil  society,
which  will  enable  civil  society  to  operate  and  implement  its  activities.  Since  future
Commission  support  for  Pakistan  will  partly  be  channelled  through  civil  society,  this
action will underpin future EC-support to Pakistan in the context of a regional approach
to the Afghan  crisis. The  need  for  a  regional  approach  to  the  Afghan  conflict  was  also
reflected  in  the  sending  of  three  assessment  missions  to  Central-Asia,  focussing  on
border management, communication and reintegration of former combatants

Democratic Republic of Congo

the  Inter-Congolese  Dialogue 

At the beginning of 2002 the Commission funded a package of €2.037m support of the
peace process in the Democratic  Republic of Congo. The first component was quick
supplementary  financing  for 
the  Masire
facilitation.  This  contribution  from  the  RRM  tied  in  with  previous  and  planned
contributions from the EDF. The second component for grass roots initiatives consisted
of (i) preparation for the Disarmament, Demobilisation, Reintegration, Repatriation and
Resettlement  (DDRRR)  programme  for  the  reintegration  of  child  soldiers.  This
involved the setting-up of reception centres for demobilised child soldiers to reintegrate
them into society and will be followed up by EDF; (ii) support for the grass roots media
with the aim of raising awareness and commitment among the population for the peace
process.  Rapid  Reaction  Mechanism  funds  enabled  journalists  from  independent  radio
stations to disseminate objective information on the Dialogue.

through 

33

ANNEX 3 - cases in which NSAs operate on their own initiative

To illustrate NSAs operating on their own initiative where no official EU cooperation
exists :

B7-6000  :  Primary  Health  Care  project  in  Wa  State,  Burma  -  EC  contribution:
1.000.000€

Information  is  scarce  on  the  situation  in  Wa  State,  and  there  are  no  other  existing
development  programmes.  The  only  foreign  aid  is  in  drug  control  in  the  remote
mountainous  area  of  Burma  bordering  Laos,  Thailand  and  PR  China.  The  fundamental
issue  is  that  the  hill  tribes  lack  the  knowledge  and  expertise  to  grow  other  crops  than
opium  and  fear  the  devastating  effect  on  their  livelihood  that  change  would  involve.
Therefore temporary food support and primary health programmes are essential to create
the  conditions  for  capacity  building  to  help  this  isolated  and  ethnically  diverse
population.

Within  5  years,  the  project  initiated  by  Health  Unlimited  (UK),  will  cover  168.000
people  who  are  the  most  marginalised  in  Pangsang  district  and  Menmor  county  of  the
northern Wa area, better accessed from the Chinese Yunnan province. It aims to provide
a permanent training base, develop training materials, train managers and health workers,
vaccinate  children  under  2  years  old,  equip  local  « hospitals »  and  clinics,  implement
malaria control campaigns, and investigate appropriate approaches to the management of
HIV.  The  proposal  has  been  welcomed  by  the  Wa  authorities  who  do  not  have  the
expertise or the financial resources to carry out the program.

HU will work with both government and community structures.

Plans  to  train  local  staff  and  traditional  health  workers  will  ensure  that  approaches  are
compatible  with  the  community  structures,  and  that  traditional  power  systems  and
administrative systems in the villages are respected.

By  making  the  most  of  this  period  of  relative  peace,  and  by  co-financing  Health
Unlimited’s  proposal,  the  EC  will  be  helping  the  to  build  up  social  services  and
infrastructure in a region of the world where official EU co-operation is impossible.

To illustrate ‘’NGO own initiative’’ implementation where State Actors do not operate:

B7-6000: Basic Health Care for displaced populations in Chiapas province, Mexico
EC contribution: 449.875€ over 3 years starting in May 1999

When NAFTA came into force in 1994, the province of Chiapas erupted in violence, a
revolt  that  still  epitomises  the  struggle  of  the  Indian  populations  towards  self-
determination.  Last  year, the political  dialogue faltered  again upon  the voting of  a new
law on the rights and local cultures by the Mexican Parliament, thereby undermining the
spirit  of  reconciliation  enshrined  in  the  1997  ‘’ San  Andrés  Agreement’’.  The  Chiapas
province  is  again  a  ‘’no-go  area ’’  patrolled  by  opposing  factions,  the  Government
military and the EZLN (Zapatista National Liberation Army), where communal divisions
and tensions are rife, life is precarious and the State systems are all but defunct.

34

In  this  context,  a  European  NGO  drew  on  EC  co-financing  to  improve  the  health
situation  of  the  displaced  tsotsil  ethnic  group  in  7  encampments  in  the  Municipe  of
Chenalhó,  i.e.  12.5000  persons  at  the  beginning  of  the  project  in  1999.  In  fact,  the
displaced beneficiaries have changed several times since the beginning of the project, as
the  conflict  has  evolved,  and  the  NGO  has  adapted  its  response  by  spreading  the
operation  accordingly.  The  indirect  beneficiaries  are  rated  at  about  30.000  persons
(displaced or local) as the community clinics are opened to both types of population. At
the end of 2001, 65 ‘’promotors’’ were active in 8 sanitary outposts, and 12 more, who
are elected by their community, were operating in the free communes of Abeja. They are
all  in  permanent  training  under  the  supervision  of  medical  doctors,  dispensing  basic
health care and being trained in recovering related operating costs (pharmacy).

By  liaising  with  the  SSA  (the  remnant  of  the  official  Health  Ministry),  the  IRCC
(International  Red  Cross),  local  medical  doctors  (Church,  etc..)  and  EAPSEC  (a  local
NGO), the European NGO has started a broad-based capacity building project in an area
that State Actors have long since deserted.

To  illustrate  ‘’NGO  own  initiative’’  involvement  in  capacity  building  and/or  NSA
structuring in the South :

B7-6000:  Financial  support  for  G.A.D.E.C.  activities  in  Senegal  EC  contribution:
201,219 Euros

G.A.D.E.C. was established in 1987 by intellectual farmers and technicians with the aim
of  promoting  local  sustainable  development  with  three  specific  objectives:  institutional
capacity  strengthening,  redefinition  of  the  G.A.D.E.C.  vision,  and  management  and
technical  capacity  building.  In  order  to  attain  the  first  objective  the  employees  of
G.A.D.E.C. had their salaries regularised along with training and detailed description of
posts.  For  the  second  objective,  following  a  number  of  workshops  a  document  with
guidelines was produced to serve as the basis for future activities. For the third objective
training  and  workshops  focused  on  the  management  of  natural  resources,  forestry  code
and local administration.

G.A.D.E.C. is in a region that covers  almost  one  third  of Senegal but  it  is  far from the
city centres and more economically favoured regions. It is important for the population
concerned to defend their interests, particularly where the decentralised policy of Senegal
entrusts more important responsibilities to communities.

Co-financing  has  made  for  a  real  improvement  in  institutional  capacities  and
development in relation to the target group. The project set out to bolster the production
capacity of Farmers organisations.

35