Communication from the Commission to the Council, the European Parliament, the European Economic and Social committee and the Committee of the Regions - The Thematic Programme “Non-state Actors and Local Authorities in Development”
Date: 2006-01-25
Institutions: European Commission
Subjects: EU programme, EU relations, company constituted under civil law, cooperation policy, development policy, non-governmental organisation

COMMISSION OF THE EUROPEAN COMMUNITIES 

Brussels, 25.1.2006 
COM(2006) 19 final 

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

The Thematic Programme “Non-state Actors and Local Authorities in Development” 

EN 

   EN 

 
 
 
  
TABLE OF CONTENTS 

1. 

2. 

2.1. 

2.2. 

2.3. 

2.4. 

3. 

Introduction .................................................................................................................. 3 

Context ......................................................................................................................... 3 

Analysis of the theme................................................................................................... 3 

Established policy framework...................................................................................... 5 

Past experience/lessons learned ................................................................................... 6 

The rationale for the thematic approach....................................................................... 6 

The thematic programme ............................................................................................. 8 

3.1. 

Scope ............................................................................................................................ 8 

3.1.1.  Eligible actors............................................................................................................... 8 

3.1.2.  Eligible types of interventions ..................................................................................... 8 

3.1.3.  Geographic coverage.................................................................................................... 9 

3.2. 

3.3. 

3.4. 

Programming principles ............................................................................................... 9 

Objectives................................................................................................................... 10 

Priorities ..................................................................................................................... 11 

ANNEX- Summary of past experience...................................................................... 12 

EN 

2 

   EN 

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

The Thematic Programme “Non-state Actors and Local Authorities in 
Development” 

1. 

INTRODUCTION 

To rationalise and simplify the current legislative framework governing external actions 
of the Community, the European Commission has proposed a new set of six instruments 
under the Financial Perspectives 2007 to 2013. Three instruments (for humanitarian aid, 
stability  and  macro-financial  assistance)  are  horizontal in order to respond to particular 
needs  and  circumstances.  Three  instruments  (pre-accession  assistance;  support  for  the 
European  neighbourhood  and  partnership  policy  (ENPI)  and  development/economic 
cooperation  (DCECI))  are  designed  to  implement  particular  policies  and  cover  specific 
geographical areas. In future, these instruments will form the legal basis for Community 
expenditure  on  external  cooperation  programmes  including  appropriate  thematic 
programmes and will replace the existing thematic regulations. 

Under  these  proposals,  thematic  programmes  provide  a  distinctive  value-added  and 
complement  geographical  programmes,  which  remain  the  primary  framework  for 
Community cooperation with third countries1. 

The Commission has committed itself to discussions with the European Parliament and 
the  Council  on  the  scope,  objectives  and  priorities  of  each  thematic  programme  on  the 
basis  of  formal  communications  to  both  institutions.  The  result  of  this  process  will 
provide  the  political  orientations  for  subsequent  programming,  notably  the  thematic 
strategy papers to be drawn up in accordance with the above instruments.  

The Commission held an in-depth public consultation in order to ensure the involvement 
of  a  wide  range  of  stakeholders  in  defining  the  main  features  of  the  programme.  The 
programme is based on the outcome of this consultation (see DG Dev Europa website for 
a full report on the public consultation). 

2. 

CONTEXT 

2.1. 

Analysis of the theme 

Ownership and participation are core principles of the EU development policy as stated 
in  the  “European  consensus  on  development”2.  In  order  to  effectively  apply  these 

1 

2 

Communication from the Commission to the Council and the European Parliament on “External 
Actions  through  Thematic  Programmes  under  the  Future  Financial  Perspectives  2007-2013”  - 
COM(2005) 324, 3.8.2005. 
Council of the European Union, document No 14820/05, 22 November 2005. 

EN 

3 

   EN 

 
                                                 
principles,  the  Commission  has  an  important  role  to  play  in  facilitating  and  promoting 
dialogue  between  state  and  non-state  actors  on  development  priorities  and  strategies  in 
partner countries.  

Support  for  in-country  capacity  development  processes  in  all  their  dimensions  and  at 
different  levels  is  crucial  in  this  context.  Partner  governments  are  demonstrating  a 
growing commitment to promoting participatory approaches. They increasingly involve 
their own civil societies in both preparing and implementing development strategies and 
facilitate their access to funding. However, in some cases, either the country context or 
the  central  government’s  attitude  render  stakeholders’  participation  only  partial,  very 
limited or, in extreme situations, even impossible.  

This  programme  is  intended  to  be  the  successor  of  both  the  current  NGO  co-financing 
and  decentralised  cooperation  programmes.  It  is  “actor-oriented”  instead  of  “sector-
oriented”.  It  will  support  stakeholders’  “right  of  initiative”,  by  providing  financial 
resources  for  their  “own  initiatives”,  when  geographical  programmes  are  not  the 
appropriate  instrument.  It  will  complement  the  support  that  other  “sectoral”  thematic 
programmes can provide to the same actors, in particular the programme on Democracy 
and human rights.  

This  Communication  provides  political  orientations  for  an  actor-oriented  thematic 
programme  that  should  be  manageable,  subsidiary  to  geographic  programmes  and 
complementary  to  the  other  thematic  programmes.  These  orientations  differentiate 
between actors, taking account of their respective value-added with regard to the scope of 
the  programme  and  actors’  respective  characteristics,  needs  and  constraints  (capacities, 
potential, specific areas of interest, financial resources) in order to establish how best to 
involve  them  in  EC  development  policy.  The  actor-oriented  approach  recognises  civil 
society organisations as key actors of aid delivery and as important players associated to 
the policy-making process. Therefore, this programme will allow civil society to exercise 
its  own  right  of  initiative,  to  develop  innovative  approaches  and  to  bring  specific 
dynamic to the process.  

Non-state actors’ added value lies in their independence from the state, in their proximity 
to  and  understanding  of  defined  constituencies  and  their  capacity  to  articulate  their 
specific interests, in the knowledge and experience they bring and their ability to bridge a 
critical ‘gap’ between strategic goals and their practical realisation.  

Amongst  non-state  actors,  specific  contributions  from  different  types  of  organisations 
could  be  highlighted.  NGOs  bring  citizens'  and  grassroots  voices  to  policy  debates  and 
efficiently  contribute  to  development  activities.  Employers’  and  workers’  organisations 
have a pivotal role to play in promoting social dialogue and thus contributing to decent 
work  for  all  and  equitable  growth.  Independent  political  foundations  can  contribute  in 
fostering  democratic  principles  and  links  between  citizens  and  political  representatives. 
Universities can enhance civil society analytical skills and research capacities, as well as 
North-South and South-South networking.  

Local  authorities  should  preferably  be  supported  in  the  framework  of  geographical 
programmes  through  decentralisation  processes.  However,  they  are  much  closer  to  the 
citizens than other public institutions and can facilitate citizens' immediate involvement 

EN 

4 

   EN 

 
in the development process, facilitate interaction between citizens and the state and build 
bridges between EU and partner countries’ citizens.  

The main elements of this proposal can be summarised as follows:  

–  All  civil  society  organisations  and  local  authorities,  from  the  EU  and  partner 

countries, are, in principle, eligible for funding under this thematic programme.  

–  The  bulk  of  the  financial  allocations  will  be  allocated  to  supporting  interventions  in 
the field carried out in developing countries. However, the programme will also pay 
appropriate attention to interventions which promote awareness raising and education 
for  development.  Activities  which  facilitate  coordination  between  stakeholders’ 
networks will also be eligible for funding.  

–  The  different  types  of  interventions  will  be  implemented  in  developing  countries 

covered by the DCECI and in all countries covered by the ENPI.  

–  EU  Member  States  and  acceding  countries  are  eligible  for  awareness  raising  and 
education  for  development  interventions  and  for  coordination  between  networks  of 
EU stakeholders.  

–  Specific priorities for action and more detail on the specific scope of the programme 
will be set out in a multi-annual programming document (thematic strategy paper).  

2.2. 

Established policy framework  

Involving  non-state  actors  and  local  authorities  in  the  development  process,  including 
through dialogue and financial support, is a well established principle of EC development 
policy, reflected in a number of Commission policy documents and other EU institutions’ 
conclusions, resolutions and opinions 3.  

“The European Consensus on Development” 

“The EU supports the broad participation of all stakeholders in  countries’ development 
and  encourages  all  parts  of  society  to  take  part.  Civil  society,  including  economic  and 
social  partners  such  as  trade  unions,  employers’  organisations  and  the  private  sector, 
NGOs  and  other  non-state  actors  of  partner  countries  in  particular  play  a  vital  role  as 
promoters  of  democracy,  social  justice  and  human  rights.  The  EU  will  enhance  its 
support for building capacity of non-state actors in order to strengthen their voice in the 
development  process  and  to  advance  political,  social  and  economic  dialogue.  The 
important role of European civil society will be recognised as well; to that end, the EU 
will pay particular attention to development education and raising awareness among EU 
citizens.” 

This  approach  is  reflected  in  partnership  and  cooperation  agreements  as  well.  The 
"Partnership"  dimension  of  ACP-EC  cooperation  has  facilitated  the  emergence,  the 

3 

“The  European  Consensus  on  Development”  (Council  of  the  EU  –  14820/05,  22.11.2005); 
“Participation  of  Non-State  Actors  in  EC  Development  Policy”  -  COM(2002)  598,  7.11.2002; 
Council  conclusions  of  19  May  2003,  European  Parliament  resolution  of  4  September  2003, 
European Economic and Social Committee opinion of 16 July 2003. 

EN 

5 

   EN 

 
                                                 
the  formalisation  of  participatory  approaches 

progressive  consolidation  and 
to 
development.  Participation  is  explicitly  included  among  the  principles  of  ACP-EU 
cooperation  and  includes  a  broad  range  of  stakeholders.  The  recent  revision  of  the 
Cotonou Agreement provided the opportunity to further strengthen this approach, firstly 
by facilitating access to funding on the basis of the programming dialogue and secondly 
by  extending  this  approach  to  local  authorities4.  There  is  also  a  general  trend  in  EC 
cooperation  with  other  geographical  groupings,  such  as  Asia,  Latin  America  and 
Neighbouring  countries,  towards  increased  participation  by  civil  society  organisations 
including their involvement in policy dialogues5. Civil society participation is therefore 
an integral part of the EC’s normal way of working.  

The  European  Neighbourhood  Policy  aims  at  building  a  privileged  partnership  with 
neighbouring countries, bringing them closer to the Union and offering them a stake in 
the  Community’s  internal  market  together  with  support  for  dialogue,  reform  and  social 
and  economic  development.  Whilst  it  has  a  clear  integration  focus,  it  usually  includes 
significant  development  aspects.  Poverty  reduction  and  social  development  objectives 
will  help  to  build  more  prosperous,  equitable  and  thus  stable  societies  in  what  are 
predominately  developing  countries.  The  instruments  that  may  provide  technical  and 
financial  assistance  to  support this  policy  will  include,  where  appropriate,  development 
best  practice  to  promote  effective  management  and  implementation.  Participatory 
approaches are undoubtedly part of this “development best practice”.  

2.3. 

Past experience/lessons learned 

Co-financing  of  NGOs  from  the  EU  and  Decentralised  Cooperation  programmes  have 
progressively consolidated development policy instruments which are actor oriented and 
support  actors’  right  of  initiative.  Past  experience  (see  Annex)  and  evaluations  and 
discussions  with  the  different  parties  involved  reveal  that  the  potential  of  the  strategic 
partnership between the EC and stakeholders other than central governments appears to 
be under-utilised. This does not seem to be linked to the policy framework, but is mainly 
due to requirements of the Financial Regulations, frequent changes in the implementing 
rules and conditions. At the same time, the number of proposals presented for financing 
has  grown  significantly  without  being  matched  by  similar  growth  in  the  Commission 
human  resources  to  deal  with  these  issues.  The  Commission  is  currently  engaged  in 
exploring  new  approaches  to  selection  procedures,  with  a  view  to  reducing  the 
administrative  burden,  better  focussing  the  calls  for  proposals  and  facilitating  access  to 
funding for small NGOs. The establishment of a segmented and actor-oriented approach 
shall contribute to an innovative and simpler approach to the co-financing of these actors. 

2.4. 

The rationale for the thematic approach  

In  addition  to  supporting  non-state  actors  across  the  range  of  humanitarian  aid  and 
development cooperation programmes (both geographic and thematic), an actor-oriented 
thematic programme with an appropriate level of financial resources is necessary: 

4 
5 

Revised Cotonou Agreement, Articles 4, 6, 58 and Annex IV, Articles 4 and 15.  
See  in  particular  Article  43  of  the  political  dialogue  and  cooperation  agreements  with  Central 
American countries and the Andean Community. 

EN 

6 

   EN 

 
                                                 
–  Where  cooperation  via  geographical  programmes  is  restricted,  such  as  in  difficult 
partnerships6,  the  programme  will  enable  the  EC  to  remain  engaged,  to  directly 
support  populations,  to  facilitate  aid  implementation  and  access  to  basic  services,  to 
enhance democratisation processes and to facilitate peace-building processes in such 
situations.  This  should  complement  progress  made  by  public  institutions  in  these 
areas.  

–  Where there is working cooperation and effective partnership, operations financed by 
the  programme  will  supplement  and  improve  country-  or  region-based  cooperation 
programmes, by supporting stakeholders introducing new schemes and approaches, to 
better  integrate  cross-cutting  priorities  in  a  holistic  way,  to  facilitate  grassroots  or  a 
specific  group’s  participation,  to  foster  gender  equality,  to  build  capacities  in  new 
areas such as fair trade, environmental advocacy etc.  

–  The  programme  will  help  build  confidence  between  state  and  non-state  actors,  for 
instance regarding policy discussion, basic services delivery, etc., in order to facilitate 
their  progressive  integration  into  geographic  programmes  where  this  is  not  yet  the 
case. 

–  The  programme  will  help  to  raise  public  awareness  of  development  issues  and 
promote  education  for  development  in  the  EU,  to  anchor  development  policy  in 
European  societies,  to  mobilise  greater  public  support  in  the  EU  for  action  against 
poverty  and  for  fairer  relations  between  developed  and  developing  countries,  and  to 
change  attitudes  in  the  EU  to  the  issues  and  difficulties  facing  developing  countries 
and their peoples and to promote social dimension of globalisation.  

–  The  programme  will  support  measures  to  strengthen  coordination  and  interaction 
between  stakeholders  and  with  EU  institutions,  in  order  to  facilitate  networking  and 
interaction.  

–  The programme will be able to back stakeholders’ initiatives to support the in-country 
capacity development process for participating in policy debates and delivering basic 
services  (health,  education,  work,  security,  including  conflict  prevention,  disaster 
preparedness,  etc.)  at  local  level  where  geographical  programmes  cannot  be  used  or 
when  innovative  approaches  are  necessary.  Its  ability  to  involve  a  broad  range  of 
public  and  non-public  actors  from  both  the  EU  and  partner  countries  is  part  of  the 
value-added of the programme.  

–  Across  the  board,  the  programme  will  support  stakeholders’  right  of  initiative,  in 
subsidiarity  to  geographical  programmes,  by  funding  their  “own  initiatives”,  rather 
than  defining  in  detail  the  activities  to  be  supported  as  “implementing  partners”. 
However, it is important that the programme helps to maintain sufficient consistency 

6 

Situations of difficult partnership are defined as those where for one of the following reasons the 
usual  cooperation  instruments  cannot  be  fully  used  to  support  initiatives  undertaken  by 
stakeholders other than central governments: (1) countries where cooperation has been suspended, 
(2)  countries  where  the  authorities  are  not  committed  to  objectives  of  poverty  reduction  and  to 
other basic principles of development policy, including good governance and participation of civil 
society and decentralized authorities, (3) countries where the dialogue on participatory approaches 
to development is very limited.  

EN 

7 

   EN 

 
                                                 
with  other  development  operations  supported  by  the  EC  and  partner  countries’ 
development  strategies  backed  by  the  geographical  programmes.  Complementarity 
between  this  thematic  programme  and  other  EC-financed  programmes  should  be 
maximised7.  

3. 

THE THEMATIC PROGRAMME 

3.1. 

Scope 

This  communication  provides  the  general  political  orientations  on  the  scope  of  the 
programme. The multi-annual thematic strategy paper8 will refine these orientations and 
identify  priorities  at  different  levels  (countries,  types  of  intervention,  and  actor-related 
issues, such as levels of co-financing and conditions for public actors eligibility) in order 
to focus the programme. 

This  programme  will  primarily  target  interventions  in  the  field  and  will  be  primarily 
implemented in developing countries and regions where geographic programmes do not 
provide for any support or financial allocation for non-state actors and local authorities 
due  to  weak  political  commitment,  or  in  sub-regions  out  of  reach  of  the  country 
programme, or in situations of difficult partnerships, fragile states, post-conflict, political 
instability etc. 

3.1.1.  Eligible actors 

A wide range of non-profit making actors from the EU and from partner countries will be 
eligible  for  funding  under  the  programme.  They  are  expected  to  be  able  to  mobilize 
citizens  for  development,  to  address  the  needs  of  the  population,  to  operate  in  a 
transparent and accountable manner and to prove their specific competencies.  

All  types  of  non-state  actors,  including  NGOs,  trade  unions,  environmental  advocacy 
groups, universities and political foundations etc may receive financial support under the 
programme. In  addition, local authorities may receive  financial  support  for activities in 
specific contexts, where their added value can be established, and where these activities 
cannot be carried out under the geographic programmes.  

This  very  broad  actor-oriented  approach  will  be  refined  in  the  multi-annual  Thematic 
Strategy  Paper.  More  precise  eligibility  criteria  for  the  different  actors  may  be  defined 
according  to  their  respective  added  value,  capacities  and  specific  needs  and  constraints 
(including  at  financial  level)  to  implement  the  priorities  established  in  the  thematic 
strategy  paper.  According  to  the  priorities  for  intervention,  either  the  thematic  strategy 
paper or its implementing documents may specify the modalities for access to funding by 
the different actors (percentage of co-financing, type of actions, etc). It will be taken into 
account  that  actors  may  also  be  eligible  for  funding  under  other  EC-financed 
programmes.  

7 

8 

For the purposes of this document, consistency should be understood as meaning that an operation 
does  not  reduce  the  effectiveness  or  impact  of  another  (in  the  same  or  another  area); 
complementarity refers to a division of labour based on each actor’s added value. 
Relevant DCECI and ENPI Articles. 

EN 

8 

   EN 

 
                                                 
3.1.2.  Eligible types of interventions 

The  thematic  programme  will  respect  the  right  of  initiative  of  the  eligible  actors  by 
providing them with financial assistance to implement three types of interventions: 

–  the bulk of the financial allocations will support interventions in developing countries 
and  regions  that  (1)  strengthen  participatory  development  (2)  support  capacity 
development  processes  of  the  actors  concerned  at  country  or  regional  level  (3) 
promote mutual understanding processes. This type of intervention will include, where 
appropriate, actions aimed at facilitating citizens’ active engagement in development 
processes and at strengthening their capacity to take action; 

–  awareness raising and education for development in the EU and acceding countries;  

–  coordination and communication  between civil society and local authority  networks, 
within  their  organisations  and  between  different  types  of  stakeholders  active  in  the 
European public debate on development.  

The multi annual Thematic Strategy Paper will define more detailed priorities for action 
in these different areas taking into account geographic programmes but without providing 
a very rigid framework, in order to respect actors’ right of initiative by supporting their 
own initiatives.  

All  these  types  of  actions  may  be  implemented  in  one  or  in  more  than  one  country,  at 
regional  level  or  across  regions.  All  of  them  may  be  financed  through  support  to 
individual projects.  

3.1.3.  Geographic coverage 

In  line  with  the  “European  consensus  on  development”,  interventions  in  all  developing 
countries,  as  defined  in  the  list  of  Official  Development  Assistance  (ODA)  recipients, 
will be eligible for funding under this thematic programme9. Those countries are covered 
by the DCECI and the ENPI.  

The  general  criteria  for  countries’  eligibility  will  be  further  refined  in  the  multi-annual 
thematic  strategy  paper.  This  may  include  criteria  to  identify  priority  countries  and 
regions.  

EU member states and acceding countries will only be included in the geographical scope 
of  the  thematic  programme  for  interventions  in  the  areas  of  awareness  raising  and 
education for development and for coordination activities.  

3.2. 

Programming principles 

Four-year  (2007-2010)  and,  subsequently,  three-year  (2011-2013)  Thematic  Strategy 
Papers  (programming  documents)  will  be  decided  by  the  Commission  following  the 

9 

The  list  of  Official  Development  Assistance  (ODA)  recipients  is  due  to  be  decided  by  the 
OECD/DAC  in  April  2006.  Council  of  the  European  Union,  document  No  14820/05,  22 
November 2005. 

EN 

9 

   EN 

 
                                                 
Comitology procedures. These will define in more detail the criteria for selecting priority 
countries and regions, together with priorities for action. The most relevant stakeholders 
will be involved as appropriate in the different phases of the programming cycle.  

On  the  basis  of  this  multi-annual  programming,  the  Commission  shall  produce  annual 
action programmes which establish priority actions to be supported, specific objectives, 
anticipated results as well as indicative amounts.  

As  for  the  mid-term  review,  an  external  evaluation  of  the  operations  during  the  first 
three-year period (2007-2009) will be carried out to provide input to the preparations for 
the second Thematic Strategy Paper (2011-2013). The reports will be transmitted to and 
discussed with Member States and the European Parliament. 

The  programme  shall  be  implemented  in  accordance  with  the  2000  Reform  of  the 
Management  of  External  Assistance  which  foresees,  inter  alia,  deconcentration  of 
management  responsibilities  to  the  delegations  where  appropriate.  Furthermore  as 
regards  NGOs,  the  Commission  will  adopt  a  Commission-wide  NGO  definition  and 
create an NGO knowledge database, allowing Commission services at headquarters and 
delegations  easy  access  to  quantitative  and  qualitative  information  on  any  given  NGO 
partner of the Community. 

In order to ensure geographical coherence between the various programming exercises, 
the Thematic Strategy Paper will analyse the support provided to interventions of similar 
scope under geographic and thematic programmes, but also under other relevant budget 
lines managed by the EC. The same analysis should be carried out, as far as possible, for 
interventions  supported  by  Member  States  and  other  donors.  Country  and  Regional 
Strategy  Papers  in  focus  countries  and  regions  should  take  this  into  consideration  and 
provide a comprehensive picture of all financial instruments and programmes.  

3.3. 

Objectives  

The programme is primarily a development policy instrument. Both its general objectives 
and those of each eligible type of action are consistent with the new declaration on EU 
development  policy,  “The  European  Consensus  on  Development”10.  The  primary  and 
overarching  objective  is  the  eradication  of  poverty  in  the  context  of  sustainable 
development,  including  pursuit  of  the  Millennium  Development  Goals  (MDGs).  Other 
major  objectives  (as  defined  in  the  European  consensus)  include  good  governance  and 
human  rights  which  are  cross-cutting  issues  to  be  mainstreamed  in  interventions  in 
partner  countries.  The  different  types  of  interventions  should  contribute  to  these 
objectives as follows: 

–  Interventions  in  partner  countries  and  regions  will  promote  an  inclusive  and 
empowered society. The objectives will be to (1) favour populations out of reach of 
mainstream  services  and  resources  and  excluded  from  policy  making  processes, 
(2) strengthen  the  capacity  of  civil  society  organisations  in  partner  countries,  with  a 
view  to  facilitating  their  participation  in  defining  and  implementing  sustainable 
development strategies, (3) facilitate interaction between state and non-state actors in 

10 

Council of the European Union, document No 14820/05, 22 November 2005. 

EN 

10 

   EN 

 
                                                 
different  contexts.  Attention  will  be  paid  to  identifying  and  targeting  actors  from 
particularly  marginalized  and  vulnerable  groups.  Interventions  may  also  include 
activities aimed at strengthening citizens’ capacity to take action, defend their rights 
and take part in the political debate at local, national and international levels.  

–  Awareness  raising  and  education  for  development  activities  in  the  EU  and  acceding 
countries  aim  at  increasing  the  level  of  consciousness  of  the  European  population 
regarding  development  issues.  They  mobilise  active  public  support  in  Europe  for 
poverty  reduction  and  sustainable  development  strategies  in  partner  countries,  for 
fairer  relations  between  developed  and  developing  countries,  and  reinforce  civil 
society role as a factor of progress and transformation.  

–  Coordination activities between civil society networks, within their organisations and 
with  EU  institutions,  aim  at  achieving  more  efficient  cooperation,  by  fostering 
synergies  and  ensuring  a  structured  dialogue.  Coordination  will  help  to  increase  the 
credibility, visibility and influence of stakeholders.  

3.4. 

Priorities  

The following general priorities for the thematic programme to achieve its objectives can 
be identified:  

–  Facilitating stakeholders’ participation in situations which are not favourable such as 
difficult  partnerships,  unstable  situations,  conflict,  no  status  for  civil  society  actors, 
poor governance, etc. 

–  Strengthening  capacity  development  processes  and  encouraging  more  participatory 

development in partner countries and regions. 

–  Promoting  cross-border  and  regional 

initiatives 

to  complement  geographical 

programmes and promote links and alliances between stakeholders. 

–  Fostering quality partnerships between different stakeholders from the EU and partner 

countries. 

–  Supporting  initiatives  that  strengthen  capacity  building  of  employers  and  workers 
organizations,  promote  the  establishment  of  mechanisms  and  structures  of  social 
dialogue  and  advocate  greater  freedom  of  social  partners  in  situations  which  are  not 
favourable. 

–  Facilitating citizens’ active engagement through awareness raising and education  for 

development, advocacy and campaigns. 

–  Fostering coherence for development in the area of education, and by giving children 

and youth access to education for development. 

–  Reinforcing  structures  for  dialogue  and  information  sharing  between  stakeholders 
organisations,  by  promoting  networking  and  exchanges  of  best  practices  and  North-
South and South-South relationships.  

EN 

11 

   EN 

 
ANNEX - SUMMARY OF PAST EXPERIENCE 

ANNEX 

Different types of stakeholders (non-state actors and local authorities) other than central 
governments  both  from  the  EU  and  partner  countries  are  eligible  for  funding  under 
thematic and geographic programmes. They are expected to be able to mobilize citizens 
for development, to address the needs of the population, to operate in a transparent and 
accountable  manner  and  to  prove  their  specific  competencies.  These  actors  implement 
their  own  initiatives,  but  also  act  as  “implementing  partners”  for  pre-defined  thematic 
and geographic priorities. 

Civil society organisations and networks from the EU, particularly development NGOs, 
have been involved for years in regular policy dialogue and consultation within the EU. 
Their  initiatives  and  interventions,  funded  by  the  EC,  have  shown  NGOs’  added  value 
both in the EU and in partner countries, by contributing to development policy objectives 
and  supporting  capacity  development  processes.  Supporting  NGOs  has  brought 
innovative  approaches  and  partnerships  in  civil  society  to  the  development  process. 
Compared to public institutions, NGOs are in a better position to reach and give voice to 
the grassroots. Their capacity to work and effectively deliver even in the most difficult 
environments,  as  well  as  their  ability  to  mobilise  EU  constituencies  in  support  of 
development policy issues, are also part of their contribution to the development process. 
The  European  Parliament  has  underscored  the  specific  and  irreplaceable  role  and  the 
utility and effectiveness of NGOs’ development activities, stressing their crucial work in 
favour  of  disadvantaged  groups  in  the  developing  countries,  the  need  to  maintain  their 
freedom  of  action,  and  the  essential  role  they  play  in  promoting  human  rights  and 
grassroots democratisation11. 

More  recently,  economic  and  social  partners  and  interest  groups  have  emerged  in  the 
process,  very  actively  and  constructively  supported  by  the  European  Economic  and 
Social Committee and by local and regional authorities from the EU, with the progressive 
involvement  of  the  Committee  of  the  Regions,  plus  other  actors,  such  as  political 
foundations and universities, and their respective networks. Although their access to EC 
funding  and  involvement  in  programme  implementation  have  been  limited  so  far,  they 
advocate  specific  and  differentiated  issues  that  are  relevant  to  the  development  agenda 
and  participate  in  development  policy  dialogues  and  consultations  both  in  the  EU  and 
partner countries.  

In  addition  to  geographical  programmes  and  humanitarian  assistance,  different  actors 
have  access  to  a  number  of  thematic  budget  lines  (EIDHR,  food  security,  environment 
and tropical forests, anti-personnel mines, gender, and health) and to the Rapid Reaction 
Mechanism.  Among  these  various  instruments,  the  NGO  co-financing  budget  line, 
created  in  1976,  best  symbolises  the  partnership  between  the  EU  and  NGOs  on 
development  cooperation.  Its  size  has  gradually  increased,  from  EUR 2.5  million  to 
EUR 200 million a year. Since 1979, 10% of the total allocation has supported awareness 
raising and development education interventions.  

11 

Resolution  of  14 May 1992  on  the  role  of  NGOs  in  development  cooperation  (OJ  C  150, 
15.6.1992). 

EN 

12 

   EN 

 
                                                 
Since 1998, the legal basis for the NGO cofinancing budget line is Council Regulation 
(EC)  No  1658/98.  It  fosters  quality  partnerships  for  development  objectives  between 
NGOs  from  the  EU  and  civil  society  organizations  in  developing  countries,  so  that  the 
budget  line  preserves  the  right  of  initiative  in  developing  countries  and  allows  active 
participation by European citizens in the development process. Under the Regulation, the 
budget line cofinances with European NGOs: (i) operations aimed at meeting the basic 
needs of the poorest sections of the population in developing countries, (ii) schemes to 
raise  European  public  awareness  of  development  issues  in  developing  countries,  in 
particular  relations  between  developing  and  developed  countries,  (iii)  measures  to 
strengthen  cooperation  and  coordination  between  NGOs  in  the  Member  States  and 
between  such  NGOs  and  Community  institutions.  The  Commission  evaluated  the 
instrument after three years, i.e., in mid-200112. 

Since the EU’s enlargement to ten new member states on 1 May 2004, NGOs from new 
Member States have had access to funding under the budget line. In addition, awareness 
raising  and  development  education  interventions  in  and  involving  NGOs  from  the  new 
Member States have become a strategic priority in this field. NGOs from new Member 
States  have  encountered  certain  difficulties  in  obtaining  financial  support  for  their 
initiatives,  mainly  for  reasons  linked  to  their  sometimes  limited  management  capacity 
and knowledge of procedures. With a view to strengthening cooperation and supporting 
information-sharing  among  EU  NGOs,  projects  such  as  TRIALOG  and  DEEEP  have 
been set up.  

The  Decentralised  Cooperation  budget  line  aims  at  similar  objectives.  Following  the 
conclusions of 2003 external evaluation13, carried out before the relevant legal basis was 
extended14,  it  was  decided  that  operations  and  initiatives  supported  under  this  heading 
would  be  targeted  on  situations  of  difficult  partnerships  and  that  Delegations  would 
manage  these  activities,  through  calls  for  proposals  adjusted  to  the  situation  of  the 
country  concerned.  In  order  to  ensure  flexibility,  priority  was  given  to  supporting 
decentralised  cooperation  actors’  own  initiatives.  Compared  to  NGO  cofinancing,  the 
decentralised  cooperation  budget  line  involves  much  less  financial  resources  (around 
EUR 6 million a year), is not limited to NGOs from the EU, but open to all types of civil 
society  organisations  and  local  authorities from both partner countries and the EU, and 
provides financial support to interventions in the field. Finally, its focus is on situations 
involving  difficult  partnership,  when  other  instruments  cannot  be  used,  and  the 
management is the responsibility of EC Delegations in selected countries.  

In the light of past experience, the different evaluations and discussions with the different 
parties  involved,  the  potential  of  the  strategic  partnership  between  the  EC  and 
stakeholders other than central governments appears to be under-utilised. In this context:  

12 

13 

14 

Report 12/2000 – ref. 951568. 
http://europa.eu.int/comm/europeaid/evaluation/reports/other/951568_en.pdf (English version)  
http://europa.eu.int/comm/europeaid/evaluation/reports/other/951568_fr.pdf (French version) 
Communication  from  the  Commission  to  the  Council  and  the  European  Parliament:  Overall 
assessment of the operations financed by the Community  under the Regulation on decentralized 
cooperation - COM(2003) 412, 11.7.2003. 
Regulation (EC) No 1659/98 on decentralised cooperation, amended and extended by Regulations 
(EC) No 955/2002 and (EC) No 625/2004 of the European Parliament and of the Council.  

EN 

13 

   EN 

 
                                                 
–  Project  cycle  management  is  considered  to  be  heavily  dominated  by  the  selection 
process (which has become increasingly complex, particularly with the introduction of 
calls for proposals) and has neglected project monitoring, which has been reduced to 
monitoring contract and budget issues.  

–  The selection process has been primarily conceived to rationalise the workload created 
by  the  huge  amount  of  proposals  received  every  year  as  well  as  to  ensure  equal 
treatment and transparency. Strategic policy considerations have not completely been 
integrated  in  this  process.  The  process  is  mainly  based  on  the  analysis  made  of  the 
proposals  by  independent  experts,  without  giving  enough  importance  to  the  overall 
policy priorities decided by the Commission. 

–  Timeframes  in  the  decision-making  process,  from  the  call  for  proposals  to  the 
financial  decision, are  considered to be too long, which jeopardizes the relevance of 
the initiative and generates frustration amongst applicants. More generally, the timing, 
stability and predictability of the calls for proposals should be improved. 

–  The  formal  requirements  currently  applied  in  calls  for  proposals  represent  a 

substantial administrative burden for the applicants and for Commission staff. 

–  The  different  abilities,  needs,  constraints  and  sizes  of  various  types  of  actor  should 
ideally  be  reflected in  the conception of strategies and the selection process (e.g. by 
using local languages for calls for proposals or for information, and putting in place 
different kinds and sizes of funding mechanisms according to the capacity and needs 
of each type of stakeholder). 

–  Evaluation  reports  presented  by  grant  beneficiaries  should  not  only  describe  the 
activities  carried  out  but  also  show  clearly  what  effects  the  intervention  has  had  on 
targeted populations and beneficiaries. 

–  The  role  of  the  Delegations  is  considered  to  be  too  low-key.  They  should  play  the 
most  important  part  in  the  selection  process  and  be  in  charge  not  just  of  project 
monitoring but of raising the awareness of the local population and providing it with 
information. 

–  Some modifications of existing rules may be necessary to ensure better involvement 
of  actors  from  new  Member  States.  They  may  encounter  certain  difficulties  in 
obtaining  financial  support  for  their  initiatives,  mainly  for  reasons  linked  to  their 
sometimes limited management capacity and knowledge of procedures. 

The  Commission  is  currently  engaged  in  exploring  new  approaches  to  selection 
procedures, with a view to both reducing the administrative burden and facilitating access 
to funding for small NGOs. 

EN 

14 

   EN