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1
Ireland as an EU Donor
Coherence & coordination: Yesbut
What about complementarity?
James MackieECDPM
Maastricht, The Netherlandswww.ecdpm.org
2
Objectives
Consider Irish White Paper debate from two angles:
• What is debate at EU level ?– To help situate Irish debate
• Role Ireland might play on EU scene– Try to bring in some fresh ideas
3
Starting point for policy formulation
• How does Ireland compare?
• Ireland’s strengths as a donor … its handicaps … assets … weaknesses?
• In what international fora does Ireland have influence? … EU … the like-minded group … UN …
development banks …?
4
EU FrameworkThe ‘acquis’:• 50 years cooperation experience • The ‘3Cs’ of the Maastricht Treaty• Reform of EC External Assistance
– Good progress has been made
• Growing consensus on policy• Strong joint effort on ODA levels• Common commitment to UN …
“…effective multilateralism”
5
EU Framework
Current debates and issues
• Exploring the Policy Mix concept
• New additions to EU framework:– Financial Perspectives 2007-2013– Draft Constitution (?)
• An EU all-Africa policy
• Review of DPS
6
Joint EC Development Policy Statement, Nov 2000
Main features:
• Primary objective: poverty eradication
• 6 focal sectors for EC aid
• Cross-cutting issues – limited success
Key improvements required:
• New thinking: MDGs, DDA, policy mix…
• Ownership levels, status …
7
New Development Policy Statement
Broad agreement emerging:
• Primary aim: poverty eradication
• MDGs as a framework
• To cover all developing countries
• Differentiated approach LDCs/LICs/MICs
• Country ownership
• Policy coherence
8
New Development Policy Statement
Open questions:
• Statement for EC or EU?
• Focal sectors or looser themes?
• EC comparative advantage?
• Complementarity at EU level– One way or 2-way complementarity– Implications for Member States
9
Comparative advantages of EC
Possibly use 3 categories:
• Objective characteristics of EC as a donor→ Volume of aid, global reach, grants, range of instruments, EC own experience and competence
• Points dependent on political will of MS→ EC focal point for coordination/collective action
• Relative and subjective characteristics→ EU political neutrality, European values
10
Complementary Policies?
?National MS Policy
StatementsEuropean Policy
Statement
At present Member State policies tend to say: “… Europe is an opportunity …
… work to ensure EC aid is more efficient …”
Should MS policies not also be adjusted to match EC policy ?
BestRole for
MS?
BestRole for
EU
But…
11
Ireland & Complementarity?
What is Ireland best at?0.4%
ODA/GNI & going
upPopular interest in
aid
Strong onHIV / AIDS
ActiveNGO
movement
Targetcountries
for aid
Public support forgrowing aid
budget
Politically neutral image
Reputation as a good
broker in EU Council
Positive DAC Peer
Review
12
How does Ireland compare with other EU Member States?
On ODA Levels (2003):
> €5b pa : D, F, UK
€1 - 5b pa: NL, I, S, E, B, DK
€0.5 - €1b pa: FIN, A, IRL
< €0.5b pa: P, GR, L + 10 new MS
13
How does Ireland compare?
On ODA / GNI ratios (2003):
> 0.7% : DK, NL, S, L
0.35 - 0.69%: IRL, FIN, F, B
0.25 - 0.34%: A, D, P, E, UK
< 0.25%: GR, I
14
How does Ireland compare?
On Concentration of Aid:N° of countries targeted in Africa:• >15 F, D, UK• 10-15 B, DK, F, D, NL, E, S• <10 FIN, IRL, L, P
…though according to the DAC Peer Review (2003) there are ‘signs of dispersion’ in Irish aid…
15
How does Ireland compare?Volume of ODA - Ireland is 12th MS in EU
On Sectoral Concentration:• Health: 7th
• Relief Food Aid: 7th
• Food Aid: 8th
• Programme Assistance 9th
• Water & Sanitation 10th
• Education: 11th
16
Policy statements: Sweden“Shared Responsibility: Sweden’s Policy
for Global Development” May, 2003
• 2 underlying perspectives:– A rights perspective– The perspectives of the poor
• Strong emphasis on policy coherence– ‘Holistic view … embrace all areas of policy &
political decision making…’
• ODA target: 1% of GNI
17
Sweden (contd.)
8 Central components of the policy– Respect for Human Rights– Democracy & good governance– Gender equality– Sustainable use of natural resources– Economic growth– Social development & social security– Conflict management & human security– Global public goods
18
Policy statements: FinlandDevelopment Policy – Govt. Resolution
February 2004
• Coherence:“Development policy refers to coherent activity in all
sectors of international cooperation and national policy that have an impact on the status of developing countries …”
• ODA/GNI target – 0,44% by 2007 – 0,7% by 2010
19
Finland (contd.)Main principles:• Values & goals of the MDGs• National commitment & policy coherence• Rights-based approach• Sustainable development• Comprehensive financing for development• Partnerships for development• Respect for integrity & responsibility of
partners• Long-term commitment & transparency
20
On the European Union
Sweden‘…offers great scope for learning … opportunities
for influencing policy … quality & effectiveness should be strengthened …’
Finland‘ … membership has increased Finland’s
influence …coherence, effectiveness of aid & improved quality [is] key for presidencies’
But neither mention complementarity …
21
Complementarity
• In 2000 DPS – 6 focal areas fixed for EC• MS reluctant to take up debate
– Except on large scale funding projects
• Yet all agree harmonisation important– But argue coordination best done in country …
not in EU
• But also using EU frame seems obvious
• Urgency: with new MS … will get worse
22
In sum Ireland is:
• Medium but upcoming donor in EU group• Already strong on ODA/GNI ratio• More targeted than some
– By country and by sector
• Strong focus on HIV/AIDS• Policies in line with others • Good collaboration with others • Irish EU Presidency went well
23
Could Ireland provide leadership on complementarity in the EU?
Why Ireland ? → respected medium scale donor
→ targeted programme
Larger donors will not take lead
How ? → alliance with other similar MS? … Finland … Austria … Poland … ?
Someone has to take the first step
24
Steps to complementarity
Dialogue with other MS on:• Distribution of target countries
– Choice of target countries– Avoid over-concentration
• Focal sectors– Sectors for specialisation– Eg. focus on HIV/AIDS ?– Own programmes … but also:– Offer specialist support to others
25
Conclusions
• Policy orientations: growing consensus
• Ireland should not work on its own
• Some good models (eg. S, FIN, …)
• Ideas on Coherence & how to achieve it
& should try to break new ground
• Ireland may be a smaller donor but …
… does not exclude showing leadership
26
Thank you for your attention…James Mackie
For more information on ECDPM’s work on ACP-EU relations:
www.ecdpm.org