Citizens’ EngagementCitizens’ Engagementin National Development in National Development

StrategiesStrategies

Tamas HALM Tamas HALM Secretary General of the ESC of HungarySecretary General of the ESC of Hungary

Nairobi, 7-8 March 2011

and the Role of Economic and Social and the Role of Economic and Social CouncilsCouncils

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OutlineOutline

1)1) Why is the participation of civil society Why is the participation of civil society necessary in the formation of necessary in the formation of development strategies?development strategies?

2)2) What does the European Union expect What does the European Union expect from its Member States in this respect?from its Member States in this respect?

3)3) How was this exercise done in Hungary How was this exercise done in Hungary for the 2007-13 programming period?for the 2007-13 programming period?

4)4) What lessons can/should be learnt What lessons can/should be learnt from this process for other countries?from this process for other countries?

1) Why is the 1) Why is the participation of civil participation of civil society necessary?society necessary?

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DevelopmentDevelopment:: for the people for the people (!) – by the people (?)(!) – by the people (?)

Elected representatives – tied by Elected representatives – tied by party interestsparty interests party disciplineparty discipline

Very focussed proposals, typically:Very focussed proposals, typically: motorways, highways, tramwaysmotorways, highways, tramways gyms & swimming pools for schoolsgyms & swimming pools for schools renovation of town/village centresrenovation of town/village centres

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Development for the Development for the people – by the people (!!)people – by the people (!!)

Civil society organisationsCivil society organisations Bringing up various ideasBringing up various ideas Reflecting/representing various Reflecting/representing various

interestsinterests Activating a relatively large number of Activating a relatively large number of

citizens – creating citizens – creating “ownership”“ownership” Problem: conflicting ideas and interestsProblem: conflicting ideas and interests

How to prioritise among them?How to prioritise among them?

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Development for the Development for the people – by the peoplepeople – by the people

PrioritisationPrioritisation Economics as a science analyses the Economics as a science analyses the

optimum distribution of scarce resources optimum distribution of scarce resources among various competing uses among various competing uses –– but but no scientific answer how to use the no scientific answer how to use the

resources of development – no resources of development – no ““public public choice models” (at least in Hungary) choice models” (at least in Hungary)

„„Shall we repair the hospital building or Shall we repair the hospital building or construct a new road?”construct a new road?”

Learning the preferences of Learning the preferences of stakeholders – integrating them into stakeholders – integrating them into development plansdevelopment plans

22)) What does the EU What does the EU expect?expect?

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Why the European Union?Why the European Union? It gives very substantial amounts as It gives very substantial amounts as

development support for the regions of development support for the regions of its Member States.its Member States.

It stipulates the conditions under which It stipulates the conditions under which these amounts will be disbursed from the these amounts will be disbursed from the so-called Structural Funds and the so-called Structural Funds and the Cohesion FundCohesion Fund

Please note: national Please note: national legislations need legislations need notnot be consulted – but civil society be consulted – but civil society organisations and organisations and Economic and Social Economic and Social CouncilsCouncils & similar institutions & similar institutions have to behave to be! ! – on how the money will be spent – on how the money will be spent →→

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COUNCILCOUNCIL REGULATION (EC) No REGULATION (EC) No 1083/20061083/2006

of 11 July 2006of 11 July 2006laying down general provisions on laying down general provisions on the European Regional the European Regional Development Fund, the European Development Fund, the European Social Fund and the Cohesion FundSocial Fund and the Cohesion Fund

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Article 11Article 11: : PartnershipPartnership1. The objectives of the Funds shall be pursued in the 1. The objectives of the Funds shall be pursued in the

framework of close cooperation, (hereinafter framework of close cooperation, (hereinafter referred to as partnership), between the referred to as partnership), between the Commission and each Member State. Each Member Commission and each Member State. Each Member State shall organise, where appropriate and in State shall organise, where appropriate and in accordance with current national rules and accordance with current national rules and practices, a partnership with authorities and bodies practices, a partnership with authorities and bodies such as:such as:

(a) the competent regional, local, urban and other (a) the competent regional, local, urban and other public authorities;public authorities;

(b) (b) the economic and social partnersthe economic and social partners;;(c) any other appropriate body representing (c) any other appropriate body representing civil civil

society, environmental partners, non-governmental society, environmental partners, non-governmental organisations, and bodies responsible for promoting organisations, and bodies responsible for promoting equality between men and womenequality between men and women..

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1083/2006/EC regulation 1083/2006/EC regulation cont’dcont’d

Each Member State shall designate Each Member State shall designate the the most representative partnersmost representative partners at national, at national, regional and local level and in the regional and local level and in the economic, social, environmental or other economic, social, environmental or other spheres (hereinafter referred to as spheres (hereinafter referred to as partners), in accordance with national rules partners), in accordance with national rules and practices, taking account of the need and practices, taking account of the need to promote equality between men and to promote equality between men and women and sustainable development women and sustainable development through the integration of environmental through the integration of environmental protection and improvement requirements.protection and improvement requirements.

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1083/2006/EC regulation 1083/2006/EC regulation cont’dcont’d

2. The partnership shall be conducted in full compliance 2. The partnership shall be conducted in full compliance with the respective institutional, legal and financial with the respective institutional, legal and financial powers of each partner category as defined in powers of each partner category as defined in paragraph 1.paragraph 1.

The partnership shall cover tThe partnership shall cover the preparation, he preparation, implementation, monitoring and evaluation of implementation, monitoring and evaluation of operational programmes.operational programmes. Member States shall involve, Member States shall involve, where appropriate, each of the relevant partners, and where appropriate, each of the relevant partners, and particularly the regions, in the different stages of particularly the regions, in the different stages of programming within the time limit set for each stage.programming within the time limit set for each stage.

3. Each year the Commission shall consult the 3. Each year the Commission shall consult the organisations representing organisations representing the economic and social the economic and social partners at European levelpartners at European level on assistance from the on assistance from the Funds.Funds.

3) The case of Hungary3) The case of Hungary

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““Levels” of partnership Levels” of partnership

National macro-forums, umbrella National macro-forums, umbrella organisations (organisations (“most representative “most representative ones”) ones”) – direct contact with the National – direct contact with the National Development OfficeDevelopment Office

““Specialised” civil society organisation – Specialised” civil society organisation – partners of the line ministriespartners of the line ministries

Regional civil society organisations – Regional civil society organisations – partners of the Regional Development partners of the Regional Development AgenciesAgencies

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The ESC’s involvementThe ESC’s involvement

The process started in the summer of 2004 – The process started in the summer of 2004 – when the Hungarian ESC was establishedwhen the Hungarian ESC was established

The ESC discussed the blueprint of the The ESC discussed the blueprint of the development plan in its very first meetingdevelopment plan in its very first meeting

All major documents have been submitted to the All major documents have been submitted to the ESCESC

The co-operation with the National Development The co-operation with the National Development Office was qualified as exemplary by the Office was qualified as exemplary by the GovernmentGovernment

The ESC issued opinions but there was no genuine The ESC issued opinions but there was no genuine reconciliation of the interests of the various reconciliation of the interests of the various groupings. groupings.

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A lengthy series of A lengthy series of partnership partnership negotiationsnegotiations… I… I

Long-term Development Concept (2005-Long-term Development Concept (2005-20)20) April-May 2005April-May 2005

National Strategy on Sustainable National Strategy on Sustainable DevelopmentDevelopment Sept-Oct 2005Sept-Oct 2005

National Reform Programme (LS)National Reform Programme (LS)Sept-Oct 2005Sept-Oct 2005

National Strategic Reference Framework National Strategic Reference Framework (National Development Plan II)(National Development Plan II)

Oct-Nov 2005Oct-Nov 2005

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A lengthy series of A lengthy series of partnership partnership negotiations… IInegotiations… II

Operational programmesOperational programmesJan-March 2006Jan-March 2006

Calls for proposals (Calls for proposals ( ̏ ̏ tenders”)tenders”)Oct-Nov 2006Oct-Nov 2006

Action plansAction plans every 2nd yearevery 2nd year In all: In all: sixsix (!) levels of partnership (!) levels of partnership

negotiations, not all of them negotiations, not all of them required by the EUrequired by the EU

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Partnership consultation of Partnership consultation of the long-term development the long-term development conceptconcept

51 forums organised on the long-term 51 forums organised on the long-term vision (with NGOs + elite surveys)vision (with NGOs + elite surveys)

Direct mail to 3000-plus NGOsDirect mail to 3000-plus NGOs 388 responded positively 388 responded positively 529 on-line questionnaires filled in529 on-line questionnaires filled in Plus 100 comments and proposals on paperPlus 100 comments and proposals on paper

3000-plus votes cast on the list of 3000-plus votes cast on the list of priorities on the website of the National priorities on the website of the National Development OfficeDevelopment Office

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Partnership consultation of Partnership consultation of the long-term development the long-term development conceptconcept

Special emphasis laid on the Special emphasis laid on the involvement of personalities belonging involvement of personalities belonging to the opposition (e.g. former to the opposition (e.g. former ministers)ministers)

Involvement of the experts of the Involvement of the experts of the opposition parties of the Parliamentopposition parties of the Parliament

Even the opposition acknowledged that Even the opposition acknowledged that this partnership had beenthis partnership had been “ “exemplary”exemplary”

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Partners did show Partners did show interest!interest!

Information brochure published in Information brochure published in 20,000 copies, CD-ROM in 3,00020,000 copies, CD-ROM in 3,000

140,000 visits on the website140,000 visits on the website 25,000 (!) downloads of the 25,000 (!) downloads of the

Development ConceptDevelopment Concept Officials of the National Officials of the National

Development Office attended more Development Office attended more than 200 eventsthan 200 events

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Partnership of the Partnership of the National Development National Development Plan (2007-13)Plan (2007-13)

Direct mail to 5500 potential partnersDirect mail to 5500 potential partners Website/questionnaire for the Website/questionnaire for the

comments and proposalscomments and proposals Negotiations with national (non-Negotiations with national (non-

regional/local) NGOsregional/local) NGOs Regional forums in each county (19), Regional forums in each county (19),

co-organised by local daily newspapersco-organised by local daily newspapers Partnership forums with national Partnership forums with national

newspapers and magazines (various newspapers and magazines (various interests!)interests!)

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How to deserve/reciprocate How to deserve/reciprocate the attention & activity of the attention & activity of partners?partners?

Each written comment/proposal Each written comment/proposal received a personalised answerreceived a personalised answer What happened to the proposal and whyWhat happened to the proposal and why

Each letter posted (in the original Each letter posted (in the original form!) on the websiteform!) on the website Only two letters had not been published Only two letters had not been published

there (racist remarks)there (racist remarks) Answers also publishedAnswers also published This procedure developed by the NDO This procedure developed by the NDO

has become general practice – required has become general practice – required by law!by law!

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Typical proposals Typical proposals submitted by civil society submitted by civil society organisationsorganisations

Improvement of the state of the Improvement of the state of the (physical) (physical) healthhealth of the nation of the nation

Raising the level of Raising the level of employment employment (2005!)(2005!)

Increasing the level of education, Increasing the level of education, reinforcing the reinforcing the knowledge basedknowledge based societysociety

65 % accepted that 65 % accepted that competitivenesscompetitiveness should lead the list of prioritiesshould lead the list of priorities

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A very special A very special interpretation of interpretation of partnership…partnership…

December 13, 2005: the European December 13, 2005: the European Council adopts the Financial Perspectives Council adopts the Financial Perspectives for 2007-13for 2007-13

In January 2006 the private office of the In January 2006 the private office of the PM in Hungary starts negotiations with PM in Hungary starts negotiations with mayors and regional officials (belonging mayors and regional officials (belonging to his party…)to his party…) What would you like to see in the What would you like to see in the

development plan?development plan? Result: inventory of development projectsResult: inventory of development projects In use only until the elections in April 2006In use only until the elections in April 2006

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A positive exampleA positive example Civils for the Transparency of the National Civils for the Transparency of the National

Development PlanDevelopment Plan Eye-catching abbreviation: CNNyEye-catching abbreviation: CNNy Concerning Concerning ““partnership technology” partnership technology” –– ahead of ahead of

the National Development Officethe National Development Office The partnership procedure was built upon their The partnership procedure was built upon their

proposalsproposals From suspicion to mutual understanding and From suspicion to mutual understanding and

respect respect One of their spokespersons became head of the One of their spokespersons became head of the

partnership unit of the NDO…partnership unit of the NDO… And the under-secretary of stateAnd the under-secretary of state responsible for responsible for

partnership invited to join the ESC as Secretary-General…partnership invited to join the ESC as Secretary-General…

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To be proud of….To be proud of…. Transparency International issued a Transparency International issued a

very positive opinion on the openness of very positive opinion on the openness of national planning in Hungarynational planning in Hungary

The opinion of the director of the The opinion of the director of the European Commission on partnership European Commission on partnership (in the negotiation process):(in the negotiation process):

“ “No comment, no questionNo comment, no question –– congratulations!”congratulations!”

Partnership procedure nominated in a Partnership procedure nominated in a competition for competition for ““best practices in public best practices in public administration”administration”

44)) What lessons What lessons can/should be learnt?can/should be learnt?

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Lessons (to be) learntLessons (to be) learnt – – II

Civil engagement is not only a Civil engagement is not only a mustmust for for governments butgovernments but it brings genuine enrichment, ‘value added’it brings genuine enrichment, ‘value added’

Civil representatives have to be involved in Civil representatives have to be involved in the whole cycle of development policythe whole cycle of development policy planning, implementation, monitoring and planning, implementation, monitoring and

evaluationevaluation Development policy (especially in cases of Development policy (especially in cases of

programmes and projects co-financed by the programmes and projects co-financed by the European Union) can involve very European Union) can involve very complicated and bureaucratic procedures complicated and bureaucratic procedures civils can be watchdogs against over-complicationcivils can be watchdogs against over-complication

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Lessons (to be) learnt – Lessons (to be) learnt – IIII

Civil engagementCivil engagement takes much time and energy! takes much time and energy! presupposes the freedom of expression presupposes the freedom of expression

and of the press – prevailand of the press – prevailinging in Hungary in Hungary can contribute substantially to better can contribute substantially to better

regulation and better governanceregulation and better governance is indispensable for the transparency and is indispensable for the transparency and

accountability of governance/governmentaccountability of governance/government BUT: requires honest, tolerant civil BUT: requires honest, tolerant civil

society organisations with considerable society organisations with considerable expertiseexpertise

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Lessons learnt – ILessons learnt – IIIII Civil organisations can also amplify the Civil organisations can also amplify the

voice of marginal(ised) groups of voice of marginal(ised) groups of society, safeguarding their interestssociety, safeguarding their interests

Economic and Social Councils and Economic and Social Councils and similar institutions similar institutions can serve as good forums for presenting can serve as good forums for presenting

different views and preferencesdifferent views and preferences only strong ESCs can act as arbitrator only strong ESCs can act as arbitrator

between these preferences and demandsbetween these preferences and demands member organisations can retain the right member organisations can retain the right

to act individually vis-to act individually vis-àà-vis the government -vis the government (?)(?)

Thank you for your kind Thank you for your kind attention.attention.