Presentation of conceptual framework in line with PPCM chapter, and key lessons by clara molera
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The document details a policy dialogue seminar focused on decentralization, particularly in Cambodia, outlining the international context, commitments to aid effectiveness, and the challenges faced in local governance. It emphasizes the importance of policy dialogue in fostering accountability, sector reform, and cooperation among various actors, while identifying the complexities and risks involved in conducting these dialogues. The report concludes with lessons learned on the nature and execution of effective policy dialogue, emphasizing the necessity for a nuanced approach and robust mechanisms for coordination and assessment.
Presentation of conceptual framework in line with PPCM chapter, and key lessons by clara molera
- 1. Policy dialogue on decentralisation Advanced seminar on decentralisation DEVCO, 3rd of July 2012,
- 2. PLAN OF THE SESSION PART I – SETTING THE SCENE & FRAMING THE SUBJECT PART II – THE CASE OF POLICY DIALGUE ON DECENTRALISATION IN CAMBODIA PART III– WRAPPING-UP AND GENERIC LESSONS
- 3. INTERNATIONAL ENVIRONMENT: 37 recipient countries with 24 donors or more 3 Source: OECD DAC - Towards Better Division of Labour: Concentration and Fragmentation of Aid, December 2007
- 4. INTERNATIONAL ENVIRONMENT EU POSITION AND COMPARATIVE ADVANTAGE 27 Member States + Commission • Together : 56% of ODA in 2009 (€48,2 Mds) • USA : 24% (€20.6 Mds) Commission alone: • 2nd donor (13%) • Active in 150 countries EU Comparative advantage & roles: • Big financial provider • Political player 4 • Development agency
- 5. INTERNATIONAL ENVIRONMENT COMMITMENTS ON AID EFFECTIVENESS Dili Declara>on on fragile states Korea HLF (2010) (29 Nov. – 1 Dec. 2011) Accra Agenda for Ac>on Paris (2008) Declara>on on Bogota Aid Statement Rome HLF on Effec>veness on SSC Harmonisa>on (2005) (2010) Monterrey (2003) Consensus 5 (2002) 5 5 5
- 6. INTERNATIONAL COMMITMENTS: LINKING AID EFFECTIVESS AND POLICY DIALOGUE PD is part of the coopera>on package & of sector approaches Move to reform-‐driven coopera/on; From tangible inputs to intangible results more difficult to showcase The func>ons of Policy dialogue evolve over >me: Paris Declara;on focuses PD on mutual accountability Accra & Busan: from gvt to country ownership & domes;c accountability Impact on ‘how’ to conduct PD: Mul; actor process: Whose ownership counts? Focus on partner’s reforms and public policies
- 7. THE EU CONTEXT, DIALOGUES AND INSTITUTIONS: NEED FOR COORDINATION EU Institutions Haut COMMISSION représentant DG DEVCO European External Action LINE DGS (Regio, Service - EEAS Elarg, Env.,…) ECHO Délégations UE 7 27 Etats Pays tiers Membres
- 8. THE EU CONTEXT: POLICY OR POLITICAL DIALGOUE? A DIALOGUE DE SOURDS Image dialogue de sourds
- 9. DEFINING THE SCOPE OF POLICY DIALOGUE FOR THE PURPOSE OF THE SESSION
- 10. COMMON ASSUMPTIONS ON POLICY DIALOGUE ‘PD is just a maaer of par>cipa>ng to some mee>ngs’ ‘PD is a donor-‐government maaer. The rest is a domes>c issue’ ‘Financial leverage triggers meaningful policy dialogue’ ‘Budget Support triggers & enhances policy dialogue’ Successful PD means making the other party adopt your views
- 11. PART II- POLICY DIALOGUE ON DECENTRALIZATION IN CAMBODIA
- 12. COUNTRY ASSESSMENT: COUNTRY CHALLENGES & GOVERNMENT RESPONSE POLITICAL INSTITUTIONS: Decades of internal conflict, transi;on and cons;tu;onal monarchy Weak separa;on of powers, party compe;;on and State-‐Ci;zen rela;on Centralised State with 4 Gvt layers (Commune: only directly elected) 12 ECONOMY: Growth but aid dependency (EU: largest DP in country & decentraliza;on) PUBLIC SECTOR (PFM, PAR/CSR): Underdeveloped public sector PFM: off budget revenues and expenditures (clientelism) GOVERNMENT RESPONSE AND PRIORITY REFORMS PFM, PAR and Decentraliza+on (D&D) Objec;ves of D&D: local development and democra;c governance
- 13. ASSESSMENT OF DECENTRALISATION: A HISTORICAL PERSPECTIVE TO POLICY DIALOGUE Joint Institution building mission Policy Upstream Project dialogues for SWAP experimentation policy dialogue and PD 1ST PEACE NATIONAL 2ND ORGANIC ORGANIC Policy & STRATEGY 1991 LAW LAW 3 year ac;on 2005 2001 2008 plan Commune elections National coordinating body (NSCS) Commune & Sanghak Fund Districts & Provinces Reform of coordinating body
- 14. ASSESSMENT OF DECENTRALISATION: THE VIABILITY OF THE REFORM How is the assessment conducted The findings: major weaknesses/risks (7 key areas of assessment) Macroeconomic performance Macroeconomic framework -‐ fiscal policies, off budget expenditures/ -‐ Balanced framework revenues, -‐ Decentralisa;on budget vs. expenditure -‐ Economic performance ceilings Public finance Management Public Finance Management -‐ Revenue collec;on -‐resistances on accountability side (FMIS roll -‐ Alloca;on out) -‐ Spending Cross reform coordina>on -‐ PFM: fiscal decentralisa;on/FMIS roll out at Decentralisa>on policy SN level (transversal) -‐ Public administra;on reform: statute/wages -‐ Legisla;ve reform on Civil society -‐ Budget -‐ Policy coordina;on and dialogue Intra-‐reform inconsistencies -‐ M&E -‐Func;onal assignment, fiscal decentralisa;on, -‐ Ins;tu;onal capaci;es par;cipa;on, sector coordina;on & M&E
- 15. ASSESSMENT OF DECENTRALISATION: CONSOLIDATING CENTRAL POWER OR BUILDING ACCOUNTABILITY FROM BELOW? Decentralisation means navigating in UNCLEAR WATERS 15 WHAT IMPLICATIONS FOR THE PROCESS & THE CONTENT OF POLICY DIALOGUE?
- 16. POLICY DIALOGUE PROCESS: FRAMEWORK & ACTORS Council of Development Coopera>on Cambodia Development (CDC) Coopera>on Forum (CDCF) Chair : PM Chair : Hun Sen, PM Mee>ng : 18 months Sector coordina>on framework -‐ NCDD Chair : Ministry of Interior Government-‐ Donor Coordina>ng Members : 10 Ministries, 3 SG, CDC Commiaee (GDCC) Chair : MEF (vice chair CDC) Lead DP : WB Mee>ng : twice a year Ressources Plannin Structures Func>on g s TWG PAR TWG PFM TWG D&D: quarter mee>ngs DP Group NCDD-‐S 19 TWG WB/UNICEF Chair + 6 IA Joint Monitoring Indicators POLICY UNIT IP3 UNIT DPs Group Lead: WB/Co-‐Lead: UNICEF EU Division of Labor Sida : Lead Ad hoc Bilateral dialogues: PiUs + 14 project steering commilees + app. 3 missions/month) Addi>onal joint Steering commiaee for IP3?
- 17. CONTENT OF POLICY DIALGOUE: CONTINUOUS THROUGHOUT THE PROGRAM CYCLE COUNTRY & SECTOR ASSESSMENT DESIGN IMPLEMENTATION SHORT TERM OBJECTIVE: PD OBJECTIVES -‐AGREE ON OBJECTIVES, RESULTS 1) MUTUAL & DOMESTIC HISTORICAL OVERVIEW ACCOUNTABILITY -‐CHOICE OF AID MODALITY 2) RISK MGT -‐IDENTIFY RISKS 3) CAPITALISATION & CD SCOPE/TOOLS: 7 KEY AREAS & ELIGIBILITY CRITERIA POLICY VIABILITY (7 KEY AREAS) LONG TERM OBJECTIVE: CONTENT: POLICY AGREE ON THE AREAS FOR DIALOGUE PERFORMANCE DURING IMPLEMENTATION TOOL: TOOLS: MATRIX OF INDICATORS MATRIX OF INDICATORS POLITICAL ECONOMY SCOPE: 7 AREAS OF ASSESSMENT M&E SYSTEMS (INTRA & CROSS REFORM)
- 18. THE CONTENT OF DIALOGUE: Walking the talk from joint appraisal mission to policy indicators Findings and main risks (menu of issues) Aide memoire recommenda>ons Macroeconomic framework (fiscal policy, Mainstreaming gender off budget flows, affordability) Capacity development for elected decision Public Finance Management (FMIS) makers (systems and skills) Cross Reform Coordina>on Technical assistance (cost & skills transfer) PFM (fiscal decentralisa;on, FMIS at SN level), PAR (Statute, wage reform), Civil society Address budget inaccuracies & ownership Reform coordina>on/inconsistencies Policy implementa;on (internal func;onal assignments, fiscal decentralisa;on, coordina;on) sector coordina;on framework NEGOTIATION PROCESS! THE CHALLENGE IS TO ACT JOINTLY ON THE FINDINGS OF ASSESSMENTS (quid trade-‐off quality vs joint policy dialogue?)
- 19. PART III- WRAPPING UP AND GENERIC LESSONS FROM EXPERIENCE
- 20. WHAT LESSONS FOR POLICY DIALOGUE? REALITY CHECK OF COMMON ASSUMPTIONS ‘PD is just a maaer of par>cipa>ng to some mee>ngs’ Underes;mates complexity, transac;on costs and needed exper;se ‘PD is only a donor-‐government maaer. The rest is a domes>c issue’ DP talk to only a few people: No risk management and mixed results ‘Financial leverage triggers meaningful policy dialogue’ Missed opportuni;es (e.g. added value in middle income countries) ‘Budget Support triggers & enhances policy dialogue’ BS becomes an end in itself, mixed results (CoA), missed opportuni;es Successful PD means making the other party adopt your views DPs Overshadow and undermine domes;c processes
- 21. WHAT LESSONS FOR POLICY DIALOGUE? WHAT IS POLICY DIALOGUE? Enabling framework: poli;cal will, actor’s credibility, policy framework (in place/under formula;on); Parallel formal/informal dialogue linked to policy making: • Domes/c policy dialogue on na+onal or sector policy • Country-‐ Donor Policy dialogue • Intra-‐donor policy dialogue Poli>cal dimension (choice of interlocutors; intra and cross sector trade-‐offs…)
- 22. WHAT LESSONS FOR POLICY DIALOGUE? HOW TO CONDUCT POLICY DIALOGUE? Policy dialogue is an “Art” rather than a science…. Principles for PD & so9 skills THINK OUT OF THE BOX AND LOGFRAMES! (no predictable) … but “to comprehend the art we must master the techniques” • Knowledge of context/sector (technical knowledge and PEA) • Process: framework and actors (mul;-‐actor dialogue) • Content: process & content issues (regulatory, policy, planning) And we must mobilise the means to ensure credibility & added value
- 23. WHAT LESSONS FOR POLICY DIALOGUE? Process: act as a facilitator and broker (network approach) Map the forums, transac;on costs and func;onal links, Trust within the framework (formal/informal measures) Credibility (tailored to capaci;es, con;nuity, access to influen;al level) Process condi;ons for meaningful mul;-‐actor & mul;-‐level policy dialogue Content: Decentralisa;on (poli;cal, administra;ve, fiscal); Cross-‐sector dialogue & coordina;on (PFM, PAR, Sectors) Seek a balance between development/managerial issues Make strategic use of indicators (poli;cal economy): Large matrix against « islands of excellency » approach Monitoring systems (evidence-‐based dialogue) Balance between process and result indicators
- 24. WHAT LESSONS FOR POLICY DIALOGUE? Means and credibility Credibility comes from the ability to generate good ideas (internal/external capacities and capabilities); Coordination between policy and political dialogues; Donor coordination, harmonisation and political economy; Rigorous approach to assessments of conditionality and performance orientation; Promote evidence based dialogue.
- 25. WHAT LESSONS FOR POLICY DIALOGUE “Not everything that counts can be counted, and not everything that can be counted counts”, Einstein
- 26. THANK YOU FOR YOUR ATTENTION!
- 27. QUESTIONS FOR DEBATE • What are in your views and experience the difference between policy and poli;cal dialogue and how to coordinate? • Process: What can donors do when policy coordina;on and dialogue is not taking place at domes;c sector level first? Can the play facilitator/ broker role and how? • Content: how can one evolve and address cross sector issues?