Flemish Towns and Municipalities
Municipal International Cooperation
Multi-Annual Programme 2008-2012
Funded by DG Development Cooperation, Belgian Federal Government (DGOS)
General framework
Financial and administrative guidelines
Content
1. Introduction 3
2. Vision and mission regarding poverty reduction and sustainable human development
2.1. Vision 4
2.2. Mission 6
3. Objectives and strategies of the multi-annual programme 9
4. Methodology and programmes
4.1. Methodology 12
4.2. Geographical and thematic demarcations 14
5. [Procedure] 16
6. Financial and administrative guidelines 17
2. Vision and mission
2.1 Vision regarding poverty reduction and sustainable human development from the perspective of local authorities
In the overall goal of the Belgian international cooperation sustainable human development is pursued through poverty reduction. ‘Sustainable human development, to be achieved through poverty alleviation, based on the concept of partnership and in accordance with the criteria for development cooperation’ (Law concerning the Belgian international cooperation, 25th May 1999). The lawmaker is explicitly referring to the contribution to development and the strengthening of the democracy and the constitutional state including the principle of good governance.
Since the 1990s decentralisation is more and more being recognised as a crucial element for development and poverty reduction, based on the equally increasing importance attached to democratisation and good governance[1]. Different evolutions led to this approach: the erosion of the highly centralised national states in the 1980s, the search for more efficient ways to make basic service provisions reach the poor, the growing social demand for more democracy and good governance, the emergence of a more participatory approach towards development processes through which different stakeholders (among which local authorities) are given a chance to have a say in policy processes, … [2]
All together we see a rediscovery of the local dimension of development and the potential role and added value of local authorities as a catalyst for local development. For example, in its ‘EU strategy for Africa’, the European Union emphasises the strategic importance of partnerships between European and African local authorities regarding the achievement of the Millennium Development Goals (MDGs)[3]. This is in line with the earlier clear stand by the United Nations on the role of local governments vis-à-vis the MDGs[4].
Contrary to previous waves of decentralisation, this time we are witnessing a fundamental rethinking of the institutional relations within states and of the relations of this state with its citizens. Decentralisation can not be reduced to an administrative reform, but forms part of a larger quest for more democracy and a more central role for the civil society in public affairs.
Different dimensions can be identified within this broader decentralisation process: political, administrative and fiscal decentralisation. The growing importance of local governments fits first of all in the political decentralisation or devolution. Devolution can be defined as a public administration process that allocates more and more decision power to a separate institutional level with local (elected) representatives regarding public affairs and resources required to take up these (new) responsibilities. Fiscal decentralisation heavily influences the impact of devolution, since local authorities can acquire two fundamental rights through this process: to dispose of revenues through a budget transfer from the central authority and/or through local taxes on the one hand, and to have the decision power regarding their own expenditures.
As an institutional framework local authorities can make an important contribution to the strengthening of democracy, the promotion of (local) development and the alleviation of poverty. To do so, 3 conditions have to be met:[5]:
§ An active involvement of citizens in this process
The concept local governance goes beyond the administrative and political entities of the local authorities. Local governance links democratisation and decentralisation at the local level and comprises two dimensions: the local government as primary local (development) actor and an active civil society. Hence the interaction between the civil society (including private companies) and the local government, and the downward accountability by the authority towards its constituency (local accountability) are two fundamental components of local governance.
§ The (political) will and capacity of local governments to apply the principles of good governance
It is crucial to reinforce the local governments’ capacities so they can meet the expectations of the population, and thus build the necessary legitimacy as a relatively new institutional level. The proximity of the policy makers to the local situation and a better understanding of the real needs of the local population, make it possible to define priorities and to develop an effective policy. The citizens’ involvement is essential to force the policy makers to govern in accordance with the principles of good governance. We define good local governance as follows.
A good local government … is democratically elected,
focuses on the needs and opportunities of all citizens,
pursues an inclusive and equitable policy,
takes decisions transparently,
encourages participation,
is accountable to its citizens,
provides effective and efficient services for its population,
has the authority and means to take up its responsibilities,
and implements its policies legitimately.
§ The willingness and capacities of the central state to provide an adequate institutional framework which, according to the principle of subsidiarity, puts the authority and decision making power at the local level.
The above mentioned decentralisation processes should be part of a coherent national policy and an adequate institutional framework that enables an effective implementation.
We want to underline that decentralisation and local governance processes take place in a complex setting, in which mutually related factors determine their level of success. The OECD[6] cautioned about the absence of an automatic contribution of decentralisation processes to poverty alleviation. In countries where the government is not able to fulfil its roles or where the society is characterised by fundamental intrinsic inequalities, decentralisation might even be contra productive. Although decentralisation is not under discussion as such, it is crucial to continue the search for the most effective approaches – taking into account the determining context factors – to put decentralisation and local governance into practice in order to achieve to goal of poverty alleviation.
Democratisation can not be reduced to an institutional reform only, but should be seen as part of a complex process of community building and the emancipation of individuals and nations, differing in each country influenced by their respective cultural, social and political background. E.g. some countries are characterised by a extremely dual society, or a history of military dictatorship; both examples are legacies that require both institutional reforms and a re-definition of the concepts of democracy, self-governance, power, etc. This should in the first place happen at the local level where local governments , due to the proximity of the people, are in position to engage in an inclusive emancipation process. However, this will require a lot of time and confidence in these local governments
.
Vision
The Association of Flemish Towns and Municipalities (VVSG) and the Flemish local governments are convinced that Southern local governments can play a crucial role in poverty alleviation and development. Strong local governments that pursue good local governance are a sustainable and fundamental institutional link, which in collaboration with the civil society can contribute to:
§ a more adequate service delivery that is more responsive tot the real needs of the local people
§ the empowerment of (vulnerable groups within) the society through increased opportunities for participation
§ a sustainable local economic development.
2.2 Mission
Through municipal international cooperation, the VVSG and the Flemish local governments want to contribute to poverty alleviation and a sustainable human development in the South. This can be achieved, within this vision and context as elaborated above, by supporting the institutional capacity building processes of Southern local governments. This institutional capacity strengthening focuses the three interrelated components of local governance:
§ The local – political – government
§ The local administration
§ The participation of citizens in the local policies.
Local authorities as primary actors
The Flemish local governments will primarily respond to the first and second condition for an effective decentralisation, namely the willingness and capacities of local authorities to apply the principles of good governance, and the active involvement of citizens.
The specificity of the municipal international cooperation[7] stems from the fact that local governments in North and South are expected to take up the same roles and responsibilities[8]:
§ To offer adequate services to its citizens
§ To represent its citizens and to govern for the benefit of the public interest
§ To be a catalyst and a leader of local development
Building upon a long and rich experience in local governance and a sustained effort to apply the principles of good local governance in general, and – more specifically – the know how and experience regarding certain local policy areas, Flemish local governments can make a specific contribution to the development process of Southern local authorities. Proceeding from these comparative strengths this contribution can be a real added value, complimentary to the activities of other actors in the field of development cooperation.
VVSG as the umbrella of the local authorities
A third fundamental condition for a successful decentralisation is the institutional framework provided by the national state. Composing this framework is a complex and lengthy process, involving a broad group of stakeholders and which is influenced by various factors. VVSG, as an umbrella of local authorities, could contribute modestly – given the limited (financial) resources available through this programme – to this type of processes.
Good practices regarding good local governance or specific policy areas, emerging from the city partnerships, could be detected by the VVSG in partnership with its sister organisations or other relevant actors. These creative and innovative practices could be used to influence national policy development processes (as a feedback from the local ‘experiments’) or to inspire other local authorities. Moreover, this will contribute to the necessary legitimisation of the local authority as an important, though still fragile, institutional layer.
VVSG in partnership with its local authorities and their partner municipalities, can play a facilitating role in this process, by collaborating with its sister associations and other relevant intermediary or national actors in the partner country. Experienced, as a national umbrella body, in defending the interests of and representing local governments vis-à-vis the central authority and other national actors, and based on its helicopter view regarding local partnerships and their activities, VVSG is well placed to take op this role of detecting, articulating and disseminating good practices[9]. In collaboration with intermediary organisations and the Southern local governments involved, the national decentralisation process and other policy developments at national level can be affected positively.
Mission statement
Making use of the specific expertise of the local authorities and the Flemish Association of Towns and Municipalities (VVSG), the municipal international cooperation – at local and sub-national level – can contribute effectively to the fight against poverty.
Through an innovative and creative approach towards the strengthening of institutional and management capacities[10] of the Southern local governments, the accessibility and responsiveness of local public service delivery can be increased; the emancipation of communities can be encouraged through improved opportunities for participation in the local decision-making processes; and opportunities can be created for a sustainable local economic development. These three factors affect the multidimensional phenomenon poverty.
Articulating and disseminating the good local practices to the national level and to other local governments , the impact of the local ‘experiments’ can be increased and national decentralisation and sectorial policy processes can be gradually influenced.
Finally, VVSG and the Flemish local authorities would like to stress the importance of the following principles in collaborating with Southern local authorities and other involved actors:
§ Partnership
Development cooperation can not be reduced to a donor-recipient relationship. An equal position for both partners involved, is the only option when pursuing sustainable development. Firstly, in the view of a long-standing relationship, this requires that the partners create enough time and space to learn about each other and to build sufficient trust. It also implies that the Southern partner plays a central role in all stages of the cooperation: preparation and identification, implementation, monitoring and reporting. This should be enshrined in the partnership agreements between the two local governments. Furthermore, we strive to create a win-win situation for both parties. We have learned by experience that the municipal international cooperation can imply a relevant learning process for the Northern partner, e.g. in terms of participation, or through exposure to a fundamentally different view on local policy challenges.
§ Process-oriented and integral approach
Too often development cooperation is still regarded as – basically financial – support to isolated projects. The municipal international cooperation should build upon existing democratisation and decentralisation processes in the partner municipality and partner county, related to identified areas of cooperation. This requires a deliberate orientation to the Southern partner municipality’s priorities (as defined in the local development plan) and the adjustment of the cooperation programmes to the complex and ever-changing environment in which this local government operates (political, demographical, cultural, socio-economical). Only a holistic approach towards the change processes that will be supported, and a broad involvement of all stakeholders (or their representing organisations) can be effective.
§ Synergies and complementarities
In the first place, the collaboration should be sufficiently aligned with the local policy priorities and change processes, making use of existing legitimate structures in the partner countries (in accordance with the Paris Declaration on Aid Effectiveness[11]). Local authorities are pre-eminently appropriate intermediary partners between the central authority and the civil society when aiming to establish effective and well co-ordinatedd development programmes, due to their sustainable institutional and – through elections – legitimated character. Secondly, several national and international actors are active in the same field, both locally (other local authorities, NGOs, regional authorities, …) and nationally (national line ministries and bi/multilateral cooperating partners). During the identification phase, sufficient attention should be paid to the alignment of the joint programme to the programmes and specificity of the other actors who are active in the same area, in order to take advantage of opportunities to collaborate (joint action) and to avoid unnecessary overlap or conflicting interests.