Setting the context: GBS vs Rwanda Setting the context: GBS vs Rwanda Civil society back groundCivil society back ground

Gaspard AHOBAMUTEZE,Independent consultant Cabinet VALEO,RWANDA

Presentation prepared for the Southern Voices for Change in the

International Aid System WorkshopLondon, 14-16 November 2005

 

This presentation covers 2 main partiesThis presentation covers 2 main parties Increasing of GBS Support ( Rwanda) Increasing of GBS Support ( Rwanda)Current condition of Civil Society (Rwanda)Current condition of Civil Society (Rwanda)

• The objective is to set up issues of Civil Society within a context of an aid system that is increasingly in form of Budget Support and de-emphasizing project aid 

• This presentation attempts to give response to following questions :1. What budget support is?2. How GBS is organized in Rwanda ?3. Whether and to what extend donors have increased GBS in

Rwanda ?4. Which are advantages and disadvantages in Rwanda context ?5. Why may feel SCOs marginalized as a result ?6. What is Rwanda SCOs background ?7. Which are its strengths, weaknesses and constraints in general view?8. Roles of SCOS vis-à-vis governmentalization of aid ?9. How partenership can be organised to strengthen SCOs ?10. Capacity of LSCOs in that growing of governmentalization of aid ?

2

GBS definitionGBS definition

• programme aid can be divided into food aid and financial programme aid.

• Financial programme aid includes both budget support and balance of payments support (such as debt relief and import support).

• Budget support in turn can be divided into sector budget support and general budget support (GBS).

• Components of GBS Finance Dialogue/conditions/TA and capacity building Harmonisation and alignment

3

General Definition of Budget Support and GBSGeneral Definition of Budget Support and GBS

Programme Aid

Financial Programme Aid Food Programme Aid

Budget Support* Balance of PaymentsSupport

General BudgetSupport (GBS)

Sector BudgetSupport

Debt Relief Import Support

* Referred to as direct budget support in the Evaluation Framework.

GBS study Rwanda case

CAUSALITY MAP

Effects of PGBS on Planning and Budgeting Effects of PGBS on Planning and Budgeting Systems and Public Expenditure PerformanceSystems and Public Expenditure Performance

• PGBS inputs (increased and regular funding) and immediate effects on aid management systems better budget financing (volume, fungibility, predictability/ timeliness)

• PGBS inputs (funding, policy, dialogue, conditionality and TA/CB) and focus on key policy and PE issues more resources for government priorities (priority programs etc.) including service delivery

• PGBS inputs and immediate effects on aid management systems Govt. empowered to strengthen (planning and budgeting) systems

• Improved fungibility and predictability in external funding plus empowered Govt. to strengthen systems increased allocative and operational efficiency of PFM systems

• More resources available for Govt. priorities including service

6

Effects of GBS on policy-making, policies and service deliveryEffects of GBS on policy-making, policies and service delivery

• Increased ownership/Government empowered Scope for more accountable policy making processes, strengthened intra-government incentives and enhanced democratic accountability, and for better public expenditure (PE, covered in other group/matrix) Policies (service delivery and growth-related) more accountable and effective in being pro-poor, improved justice and respect for human rights (HR), thereby enhancing people’s confidence in government.

• Assuming more resources are flowing to service delivery agencies (from better PE and budgetary process), and sector policies address market failures, this results into more and more responsive/pro-poor, accountable services being delivered.

7

Effects of PGBS on macroeconomic performance and growthEffects of PGBS on macroeconomic performance and growth

• PGBS funding More external resources available for Gov’t budget; more external resources ‘on budget’ and more regularity of aid funding better budget financing (fungibility, predictability) which, together with improved PFM) Improved fiscal discipline

• Policy dialogue/conditionality, TA/CB focused on key (macro) policy issues and H&A (behind agreed macro policies) Improved fiscal discipline

• Improved fiscal discipline Macroeconomic variables favorable to private investment and economic activity which, together with private sector friendly policies conducive environment for real private sector-led growth

8

ON/OFF BUDGET ISSUEON/OFF BUDGET ISSUE

9

Donor On budget*Belgium 75 % is on budget CIDA 100 % off budgetDFID GBS on budget: remainder declared but well

integrated into budget processEU 100% on budget but issues of how integrated

into development budget Germany All registered but do not appear in GoR

budgets. GTZ provides monthly statements to EFU.

IMF

JICA On budget (?)Netherlands 100% off budget because of nature of portfolio

Sida 64% on budget; 36% off budgetUSAID Aid is all noted in agreement with MOF and

should be on budget but often does not get into Development Budget and some information seems to get caught at CEPEX level.

World Bank On budget

Source : draft report on baseline on aid coordination

GBS as % of ODAGBS as % of ODA

Year Amount of ODA in Current US$

million

Amount of GBS curent US$ Million

GBS as % of ODA

1999 373.19 55.94 15.02000 322.02 57.90 18.02001 298.52 105.21 35.22002 355.04 108.13 30.52003 331.56 60.88 18.42004 n.a. 190.31 n.a.

Source: OECD/DAC for ODA, Country Report estimates for GBS (Annex 3, Table 3.3).

Shifts toward non-project aid by GBS donorsShifts toward non-project aid by GBS donors

United Kingdom (DFID)Average non-project aid throughout period 76%Average non-project aid up to 1998 80%Average non-project aid up to 1998 excluding 66%Average non-project aid after 1998 76%Average non-project aid 1999-2001 77%Average non-project aid 2002-04 75%European CommissionAverage non-project aid throughout period 32%Average non-project aid 1999-2002 38%Average non-project aid 2002-04 45%Sweden (SIDA)Average non-project aid throughout 1994- 58%Average non-project aid since 2002 67%World BankAverage non-project aid throughout period 53%Average non-project aid, 1994-1998 (pre-BS 45%Average budget support from 1999: 59%Source: GBS Donor Questionnaires and meetings

GBS Advantages & disadvantagesGBS Advantages & disadvantages

Focuses attention on PFM systems

Increases govt control over resource allocation and supports govt systemsincreasing govt confidence

SCOs resource can be more reduced by aid governmentalization

As consequency, risk of decreasing of improved democratic accountabilty

ADVANTAGES DISADVANTAGES

Why may feel SCOs marginalized as a result ?Why may feel SCOs marginalized as a result ?

This can be analyzed as understanding problem or difficulty of adaptation on the change in aid modalities.

We will present in our part 2 the current SCOs situation

This workshop will attempt to deep on that?

Rwanda Rwanda Civil society back groundCivil society back ground

• Recognition of an emergency face:

The first attempt to put in place a civil society body was in 1993 in stormy political period: Rwanda was facing war and pressure from newly created political parties. The initiative was undermined by the 1994 genocide

In 1996, another attempt was lunched but faced problems due to genocide aftermaths. People had no consensus on society vision; there was suspicion and tensions among people, even within organizations

After on, workshops were hold on civil society. CCOAIB and other umbrella organizations organized a workshop on civil society, Government and donors partnership(2001)

14

In 2003, The civil society Commission at the President office organized another workshop on Government and civil society partnership. Unfortunately, no action point from the two workshop was taken forward.

Since 2001, Christian Aid and Trocaire jointly tried to bring together their respective partners in order to discuss what civil society was and what should be its role in Rwanda. The initiative gave birth to an INGOs’ and a LNGOs’ task forces on PRSP. Only the INGOs one could work up to March 2004..

From July 2004, putting into place of a civil society forum but according to many actors, it is not representative of the whole civil society community

Civil Society today is weak and under reconstruction “Visible” organized part of SC is mostly town based especially in

Kigali capital

15

Rwanda Rwanda Civil society back groundCivil society back ground

Strength and opportunitiesStrength and opportunities

Civil Society concept not includes public power (Civil society institutions don’t include public services)

There are few networks but they lack of willingness or capacity to play the expected important role

 

Weaknesses and constraintsWeaknesses and constraintsin general viewin general view

Civil Society concept not well defined - Tendency to consider CS as NGOs while churches, other

form of worship, Universities, schools centres, ,medias …

- Inadequate coordination among CSOs so difficult for them to effectively participate in national programme

Lack of capacity (human, financial , material resources, ) Weak organisational structuring then not functional Lack of relevant policy governing the relationships

between Government and SC, Lethargic SC Lack of legal status for many SC organizations

Weaknesses and constraints in general viewWeaknesses and constraints in general view

The Government has always been considered as very strong, paternalist by the population. According to history, citizens expected so much from their governments, though they became much dependent from them. Participation was and is today limited.

Lack of a Long Term strategic vision SC as unified partner by sector of intervention is not there Weak representativeness of actual plate forme ( less NGOS embeded in

the community) Lack of acceptable speaker as SC ( lack of capacity in national

intermediate SCOs Lack of holistic developpement

‘‘Weaknesses and constraintsWeaknesses and constraints

Task force of LSCOs exists but not functional because of financial depending on project support and not program support

No strategic thinking: programs elaborated according to available financing not in the spirit of real community problems ( lack of vision, synergy and analytical capacity)

Superficial answer to pro poor problems: LSCOs address issues seen by theirs own eyes but not those seen by poor eyes

No clear linkage/ interrelation o f LSCOs activities with PRSP: many LSCOs live in isolation

Lack of mutual information sharing GoR & SC because no consultation framework and no concerted action framework

Who is accountable to whom? Gvrnt to SC or inverse SC activities not integrated in PRSP APR

‘ ‘Role of C S Org. against a backdrop of the Role of C S Org. against a backdrop of the growing “governmentalization” of Aidgrowing “governmentalization” of Aid

To convince International Development Partners ( IDP) to:

Reinforce LCSO in order to be a fully-fledged partner in government system because sometimes Government willing is less

Shift from project support to programmes support (Support LSCOs strategic plan including institutional support) with the focus of empowerment community using CSOs and Government structures in decentralisation to facilitate poor people in changing their environment and economic status

Help CSOs networks in participating in official clusters ( Rural development, Education, Governance, economics infrastructures, …) and have enough representatives

Support LSCOs in the process of legal status recovery : shifting from temporally district authorization to legal personality (Support LSCOs in advocacy of obtaining that legal status)

Instead of à CSOs coordination body, there might a liaison one Donors to supportCSOs in acquiring relevant staff/advocacy desk

( institutional support)

‘‘‘‘Role of C S Org. against a backdrop of the Role of C S Org. against a backdrop of the growing “governmentalization” of Aid growing “governmentalization” of Aid

Deep restructuring of actual SCos in their :

Mode of service delivery Advocacy Research /education Representativeness

To organize grassroots based organizations by embarking them in human rights

As mostly best organized SCOs are town based ( Rwanda case), these should play a role of grassroots based organization capacity building in advocacy. Actually, grassroots organizations take the former for donors instead of feeling themselves as constituents

Role of C S Org. against a backdrop of the growing Role of C S Org. against a backdrop of the growing “governmentalization” of Aid“governmentalization” of Aid

GoR is willing to open up and work with CSOs legal statements, SCOs are enthusiastic to participate in national GoR programmes in terms of services delivering. Dialogue is needed to shed light on some of the unclear areas governing this relationship lack commitment for “ sortir coquille”

Advocacy and participation: CSOs have to develop technical capacity and expertise so that they can be able to discuss some the current issues with confidence

Advocacy on participation statute: need to develop a national participation statute or law to clarify the criteria for participation, who participates in what and at what level and when?

Role of C S Org. against a backdrop of the growing Role of C S Org. against a backdrop of the growing “governmentalization” of Aid as ““governmentalization” of Aid as “service deliverersservice deliverers””

In the context of SWAPs and Budget Support, CSOs have to play a bridging role between state and citizens (joint planning of policy implementation so can provide useful contributions on the basis of their closeness to “grassroots”

”It is in services delivery that the majority of CSOs engage with policy processes”

“It is in contact with service delivery that the vast majority of poor people have contact with ‘ policy’ and ‘politics’”

It is at the level of decentralisation that CSOs can cause to be wary, can demonstrate that the state is not the only provider of essential services

To find relevant ways of participating in policy development To play the role of watchdog

Role of C S Org. against a backdrop of the growing Role of C S Org. against a backdrop of the growing “governmentalization” of Aid in ““governmentalization” of Aid in “PRS dimensionPRS dimension””

Source of table : Robrech Renard and Nadia Molenaers

Ownership Effectiveness Accountability

Civil society

-Representativeness- Autonomy vis à vis the state- Embeddedness- Proximity to the poor

-Ability to assess micro and macro needs of the poor

-Capacity to evaluate government policy-Negociating

Role of C S Org. against a backdrop of the growing Role of C S Org. against a backdrop of the growing “governmentalization” of Aid as ““governmentalization” of Aid as “invited contributors to policy invited contributors to policy

formulationformulation””

Advocacy to have seats at the table in both cross-sectoral processes and in sectoral planning fora and be able to participate in official delegations at international negotiations

To be involved in many sectors with government and other Gvt official bodies in the formulation of specific policies at level district But their influence can be affected by following challenges:

1. the overall dynamics of the process which may lie outside their control, including relationship between ministries, and ministries and donors,

2. Internal CSOs Weaknesses such as their lack of capacity to grasp technical issues, lack understanding of government procedures and ability to interact within environment that may seem intimidating;

3. Lack of SCOs capacity and appropriate time to prepare, consult constituencies for consistently and effectively attending meetings or workshop

Possible role sco in PRSPPossible role sco in PRSP

POObbb

Vision 2020

Needs/Poverty data

Monitoring

PRSP1

Finance Planning Policy

= Medium term of Vision 2020

Priority sectors

Local Government

Advocacy / dialogue

Resurch Education

Service delivery

Outputs/outcomes

- Rural - Human development transformation - Economic infrastructures - Agriculture - Good Governance growth -

Civil society

Role of C S Org. against a backdrop of the growing Role of C S Org. against a backdrop of the growing “governmentalization” of Aid as ““governmentalization” of Aid as “pressuriserspressurisers””

To exert pressure on Grnt in terms both policy formulation and implementation, mainly campaigning and lobbying

To create and keep an updated data base of Information related to policy formulation, implementation and evaluation

Guidelines for partnershipGuidelines for partnership Grnt Grnt

   Before engaging in partnership CSOs should:

Make an adequate analysis of the national Grnt agenda To clearrly understand the roles to be played by both

SCOs/ GovernmentClarify their inputs into the partnership  Assess their own capacity to fulfil such roles

When working together with government, SCOs should:

Actively engage in policy formulation etc… Actively participate in programme design,

implementation and evaluationEstablish their legitimacy through expertise and fulfilling

commitments Generate facts through their presence on the ground

Guidelines for partnershipGuidelines for partnership: values and principles: values and principles

   Transparency / accountability Mutual respect / trust Respect of law Complementarity Other considerations

To build partnership through strong LSCOs networks than can relate with Government

CSOs should share information amongst themselves ( and with government) and build their mutual capacity for partnership etc…

At donors sideAt donors side   

Leave paternalism attitude / overhand on programmes Set up benchmarks that Government must respect in its

relation with Civil society

Pressure on Gvrnts to establish fair and transparent framework for the operation of CSOs

Institutional and financial support to SCOs in order to be able to take up their role in development

With reguard to GovernementWith reguard to Governement

Grvs should more open up space and guarantee freedom of expression ( respect of law /putting in place relevant laws)

Grvs to financially support CSOs according Cotonou agreement

Grvs to make information available accessible to whom may need to use it.

« What you do for me without me is against me« What you do for me without me is against me  » »I.Gandhi I.Gandhi

MURAKOZEMURAKOZE