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8/7/2019 beyond aid for development
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Overseas Development Institute
ODI is the UK’s leading independent
think tank on international develop-
ment and humanitarian issues.
ODI Project Briefngs provide aocused and specialised summary o
a project, a country study or regional
analysis.
This and other ODI Project Briengs
are available rom www.odi.org.uk
Project Briefng
T he prospects or developing countriesare shaped by a wide range o issues,some o which – such as politics – are,primarily, domestic, while others have
important cross-border dimensions. Theseinclude aid, but go ar beyond it. These ‘BeyondAid’ issues include trade, migration, investment,environmental issues, security and technology.In the context o globalisation, it is these issues,rather than aid alone, that will shape the develop-ment prospects or many countries. The Beyond
Aid agenda is about making sure that policies onthese issues – which go beyond the remit o aidagencies alone – deliver or development.
There are two aspects to the agenda. Thefrst concerns eorts by developing countries toengage more eectively with these broader issuesby putting in place appropriate, country-specifcpolicies and institutions. The second aspectconcerns eorts by powerul countries to ensurethat their policies on Beyond Aid issues support,or at least do not undermine, progress towardsthe Millennium Development Goals (MDGs),achieving win-wins between development and
other issues. This aspect o the agenda – a major ocus or the Center or Global Development’sCommitment to Development Index – is parto what is reerred to as Policy Coherence or Development (PCD). With support rom both theOrganisation or Economic Co-operation andDevelopment (OECD) and the UK Departmentor International Development (DFID), this Paper ocuses on the PCD angle, while emphasisingthat progress on the Beyond Aid agenda requiresaction by both developing and developed coun-tries, at global as well as national levels.
Policy coherence or development
Governments in the developed world areincreasingly aware o the importance o theBeyond Aid agenda and PCD. Eorts are beingmade – and in some cases resisted – on PCD
and development-riendly policies on a number o issues with important cross-border dimen-sions (see Table 1).
However, examples o incoherence are alltoo easy to nd. Policies on agricultural tradeare, perhaps, the most glaring. The provision bythe EU and the US o subsidies to their armers,while developing countries are encouraged toexport agricultural produce to world markets,makes little economic sense. On migration, too,incoherence is apparent. While the resulting
remittances are welcomed by developingcountries, policies promoting the migration o skilled health proessionals to the developedworld may reduce the impact o aid spent onhealth systems in those developing countries.
Governments in the developed world, aselsewhere, pursue many objectives. With elec-tions won by the political parties that appealto domestic constituencies and interests, andwith the interests o developing countriespoorly represented, it is not surprising thatdomestic objectives take priority over eectivepolicies or development.
Deending and promoting national interestsand reducing global poverty may, particularlyin the short term, appear to be in tension. Butin a world where the impacts o events thattake place in developing countries are elt ar beyond their borders, neglecting developmentmay undermine the pursuit o other objectives.As the 2008 OECD Development CooperationReport puts it, ‘all countries have a commoninterest in developing countries achievingsustainable and broad-based development’(OECD, 2008a: 28). Progress towards policiesthat are more coherent and supportive o devel-
opment is an important part o this process, inaddition to being part o the commitment bygovernments to MDG8, the building o a globaldevelopment partnership. The remainder o thisBrieng Paper explores the progress made onPCD by governments in the developed world.
Key points
• OECD-DAC members have
a mixed record on progress
towards Policy Coherence
or Development (PCD)
• PCD requires action on
three ronts: political
commitment; policy
coordination; and
monitoring, analysis and
reporting
• More action is needed
to gather evidence,
particularly rom
developing countries, to
make the case or PCD
‘Beyond Aid’ or sustainable developmentAlan Hudson and Linnea Jonsson
Project Briefng No 22 • May 2009
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Project Briefng
The three phases o PCDProgress towards policy coherence – policies that sup-port, rather than undermine, each other – can be con-ceptualised as a three-phase cycle, with each phaseo the cycle supported by a building block (see Figure
1). All building blocks must be in place or a country tomake good progress towards policy coherence.
Phase one involves setting policy objectives and
determining which objective takes priority i thereare incompatibilities between policies. The buildingblock is political commitment, backed by policiesthat translate commitment into action.
Phase two involves working out how policies, or their implementation, can be modied to maximisesynergies and minimise incoherence. The buildingblock is policy coordination mechanisms to resolveconficts or inconsistencies between policies, andnavigate the complex politics o policy processes.
Phase three involves: monitoring, to collectevidence about the impact o policies; analysisto make sense o the data collected; and report-
ing back to parliament and the public. This phaseprovides the evidence base or accountability andor well-inormed policy-making and politics. Thebuilding block is eective systems or monitoring,analysis and reporting.
I progress around the policy coherence cycle is tolead to progress on PCD, development needs to begiven sucient weight at each phase o the cycle:political commitment and policies must give weightto development objectives; policy coordination musttake account o development interests; and monitor-ing, analysis and reporting must relate to develop-ment impacts and progress towards development
goals. Whether or not sucient weight is given todevelopment is largely a question o politics.
Governments in the developed world have madesome progress in putting in place the building blocksor PCD, with some countries – particularly in NorthernEurope – making very good progress (OECD, 2008b).For many countries, however, progress on PCD hasbeen mixed. Political commitments may have beenmade and policy coordination mechanisms estab-lished, or example, but with less progress made onmonitoring, analysis and reporting.
PCD in practice: Phase oneProgress on PCD starts with building block one:political commitment that is translated into clear,prioritised and coherent policies. All Memberso the OECD Development Assistance Committee(OECD-DAC) are in principle and on paper commit-ted to development, but some Members – includingItaly, Greece, Japan and Portugal – had not made acommitment to PCD at the time o their most recentOECD-DAC Peer Review.
More promisingly, the European Union (EU),the Netherlands and Sweden have given PCD acentral place in a cross-governmental approach to
international development. In the Netherlands, a2003 policy statement on ‘mutual interests, mutualresponsibilities’ stressed that eective develop-ment cooperation requires an integrated and coher-ent policy ramework covering diplomacy, politicaldialogue, security, trade, market access and aid.
Table 1: Examples o PCD in practice
Cross-border issue Aim Challenges Mechanisms and ora
Trade (including agricultural trade)
Enable developingcountries tobenet rom trade
Powerul agriculturalinterests; agriculturalsubsidies; tradebarriers
WTO ‘DevelopmentRound’; aid or trade
Migration
To enabledevelopingcountries tobenet rommigration
Political sensitivitiesabout immigration;diculty o reconcilinginterests o origin anddestination countriesand rights o migrants
Codes o conduct or therecruitment o health-workers and teachers;partnership agreements;dual citizenship
Investment
Enable developingcountries tobenet rominvestment
Balancing the need or developing countriesto attract internationalinvestmentand regulate it
appropriately
Corporate SocialResponsibility; UnitedNations Global Compact;OECD Guidelines or Multinational Enterprises;
Investment treaties
Environmentalissues, including climate change
Limit, and enabledevelopingcountries to adaptto, environmentalchange
Dependence on ossiluels; unsustainableconsumption practices
Burden-sharing betweendeveloped and developingcountries in internationalclimate changenegotiations; regulation o international timber trade
Security
Enable developingcountries toavoid confict andinsecurity
Shiting priorities;understanding thedevelopment-securitynexus; regulatinginternational armstrade
Donors’ approaches toworking in ‘ragile states’;EU code o conduct onstrategic (arms) exports;International Arms TradeTreaty
Technology
Enable developingcountries to make
use o appropriatetechnologies
Lack o incentivesor rms to invest
in research anddevelopment inrelation to productsdestined or developingcountry markets
Bilateral and internationalregimes or intellectual
property rights, includingin relation to genericmedicines; regulationo genetically-modiedorganisms; support or research and development
Figure 1: The policy coherence cycle
1. Setting and prioritising objectives
Building block: political
commitment and policy
3. Monitoring, analysis 2. Coordinating policy
and reporting and its implementation
Building block: systems or Building block: policy
monitoring, analysis and reporting coordination mechanisms
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Project Briefng
o PCD requires that the OECD, its Members, andothers, spend more time on the analysis o issuesthrough a PCD lens and less time on the promotiono PCD in general. The OECD Synthesis Report on PCD
suggests, or example, assessing the extent to whichthe lessons about PCD (see Box 1) have been appliedto a particular issue such as migration.
More ambitiously, a ocus on particular issuesmight make it possible to speciy results chains thatset out the links rom policy processes, to policyoutcomes, to policy impacts. This would provide abasis or establishing indicators along the resultschain, to better monitor progress and move beyonda ocus on policy inputs. Looking at specic issuescould also allow better analysis o the politicaleconomy or governance dynamics o, or instance,policy-making in particular developed countries.
This could include such issues as climate change,the recruitment o doctors and nurses rom develop-ing countries, or the regulation o tax havens.
The PCD agenda would also beneft rom a greater ocus on feld-level perspectives. Indeed, it is notpossible to generate the evidence needed to inormpolicy without such perspectives. While it is difcultto trace the impacts o one policy rom a particular
developed country to a single developing country, amappings approach that analyses how a number o Beyond Aid issues play out in the context o a spe-cifc developing country is a promising way orward.
Bringing together both aspects o the Beyond Aidagenda – PCD and the engagement o developingcountries with cross-border issues – can generatethe evidence to inorm policy processes in develop-ing and developed countries. This could drive aster progress towards PCD and policies that are more‘development-riendly’, in practice as well as onpaper. Ultimately, such an approach could do muchto advance the Beyond Aid agenda and ensure thatBeyond Aid issues deliver or development.
Box 1: Lessons or OECD members
Phase one: Setting and prioritising objectives – requires political commitment and policy statements
Lesson 1: Educate and engage the public, working with civil society, research organisations and partner countries, to raise awareness and build support or PCD, on a long-term basis.Lesson 2: Make public commitments to PCD, endorsed at the highest political level, with clear links made topoverty reduction and internationally-agreed development goals.Lesson 3: Publish clearly prioritised and time-bound action agendas or making progress on PCD.
Phase two: Coordinating policy and its implementation – requires policy coordination mechanismsLesson 4: Ensure that inormal working practices support eective communication between Ministries.Lesson 5: Establish ormal mechanisms at suciently high levels o government or inter-ministerialcoordination and policy arbitration, ensuring that mandates and responsibilities are clear, and involving ullyMinistries beyond development and oreign aairs.Lesson 6: Encourage and mandate the development agency to play a pro-active role in discussions aboutpolicy coordination.
Phase three: Monitoring, analysis and reporting – requires eective systemsLesson 7: Make use o eld-level resources and international partnerships to monitor the real-world impactso putting PCD building blocks in place.Lesson 8: Devote adequate resources to the analysis o policy coherence issues and progress towards PCDdrawing also on the expertise o civil society and research institutes, domestically and internationally.Lesson 9: Report transparently to parliament and the wider public about progress on PCD as part o reporting
on development cooperation activities and progress towards meeting the MDGs.
By Dr Alan Hudson, ODI (a.hudson@odi.org.uk) and LinneaJonsson, London School o Economics. The fndings draw onresearch conducted in early 2008, unded by the Organisationor Economic Co-operation and Development (OECD). Funding or this paper was provided by OECD and the UK Departmentor International Development (DFID). Additional resources:
www.odi.org.uk/country_mappings ; www.oecd.org/develop-
ment/policycoherence; www.dfd.gov.uk/mdg/aid-eective-
ness/policy-coherence.asp; and www.cgdev.org/cdi
OECD (2008a) ‘Development Co-operation Report 2007’, OECD Journal on Development , Volume 9, No. 1.
OECD (2008b) ‘Policy coherence or development: Synthesis report on the OECD-DAC Peer Reviews, 2003-07’ (ODI with ippr).
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