The role of the UN in strengthening democratic governance: what works?

1. The role of the UN in strengthening democratic governance: what works? www.undp.org/governance

2. Structure • Contemporary doubts about democracy promotion • US Policy • Global trends • Role, structure and resources of the UNDP • Strengths and limits of the UNDP culture • UNDP operational principles • Organizational structure, resources and staffing • Role, structure and resources of the Democratic Governance group • Focus areas, organizational structure, and role • Conclusions • Challenges and future priorities • Long-term process requires national ownership and capacity building for sustainable human development

3. 1. Contemporary doubts about democracy promotion

4. Reasons for doubts • The Bush administration’s record • Grandiose claims: 2nd inaugural address 20 Jan 2005 • ‘Democratic realism’: • “The best hope for peace in our world is the expansion of freedom in the world.” • “America’s vital interests and our deepest beliefs are now one.” • Recent history of Iraq and Afghanistan • Real politik: Pakistan, Uzbekistan, Egypt (Carothers) • Inherent difficulties of conflict reduction, peace-building and reconstructing failed states after elections (Collier, Snyder) • E.gSudan, East Timor, DRC, Lebanon, Liberia

5. Reasons for doubts 2. Stagnation in global trends • Little progress in democratization since 2000 • # of nations with civil liberties and political rights (FH) • Many autocracies remain • 45 autocracies out of 191 states worldwide (25%) (FH) • Common in Africa, Arab states, Central Asia • Many ‘electoral autocracies’ (Levitsky) • High risks of instability during any transition • Active pushback on human rights (fuelled by oil politics?): Russia, Venezuela, China • Challenge of deepening democracy • 57 ‘consolidating’ democracies out of 191 states (28%) (FH) • Many have weak channels of participation • States lack the capacity to deliver basic public services • Unstable transitions remain vulnerable to deterioration (Russia) or even collapse (Thailand, Fiji)

6. The growth in democracy 1972-2004 Note: The graph shows the growth of in the proportion of democratic regimes worldwide as monitored using standardized 100-point scales by Freedom House, Cheibub and Gandhi, Vanhanen, and by Polity IV. See Norris Driving Democracy (CUP 2007) for a discussion of these measures and trends.

7. Reasons for hope • Many bilateral donors have strengthened their spending programs on democratic governance • Eg Dfid, CIDA, NORAD, Spain, Netherlands, Ireland, France, Sweden • Good governance now a mainstream focus within World Bank • New UN Democracy Fund

8. Democratic governance can be strengthened but… • Requires long-term investment in capacity building • Needs national ownership and multilateral cooperation • Risky enterprise with no guarantees of success

9. 2. Role, structure and resources of the UNDP

10. Strengths of the UNDP • International legitimacy of the UN • Trusted impartial partner working with national governments and bilateral donors • Global coverage • (Staff and offices in 130 program countries) • No aid conditionality • Dedicated staff

11. Limitations of the UNDP • Lack of coherence • Decentralized structure with real power in country offices (and thus national partners) • Accountability to the UNDP Executive Board • Can only go as far as there is an international consensus at the UN • Limited budget dispersed across multiple outcomes • Often low-level technical assistance rather than large innovative projects with major impact • Complex organization and ‘flat’ managerial structure • Feeding the beast • Social networks • Deeply anti-intellectual and conservative culture • Pushback against change • Little information derived from outside the organization • ‘Flat’ culture of information sharing from COs • Uneven staff quality and poor accountability of results/impact

12. Principles and role of the UNDP • National ownership • Capacity development • Gender equality and women’s empowerment • Multilateral cooperation, technical assistance, and aid effectiveness • South-south cooperation • Long-term sustainable human development • Values from the Millennium Declaration (Freedom, Equality, Solidarity, Tolerance, Respect for Nature, Shared Responsibility)

14. DG

15. UNDP Focus Areas Source: UNDP Strategic Plan 2008-11: Focus Areas

16. UNDP income, 1993-2005

17. UNDP largest donors, 2005

18. UNDP expenditure, 2005 DG is the largest area $1.4bn

19. 3. Role, structure and resources of the Democratic Governance Group

20. The UNDP mandate for strengthening democratic governance • The Millennium Declaration resolution 55/2 • “To promote democracy and strengthen the rule of law…”(September 2000) • General Assembly resolution 55/96 • “Promoting pluralism, the protection of all human rights and fundamental freedoms, maximizing the participation of individuals in decision-making and the development of effective public institutions.” (December 2000) • 2002 • Creation of the Democratic Governance practice in UNDP • Kofi Annan In Larger Freedom • “The protection and promotion of the universal values of rule of law, human rights and democracy are ends in themselves.” (2005) • High Level Panel Delivering as One • Recommends UNDP’s programmatic work “leading the UN’s support to governance” (Nov 2006 clause 19)

21. DG’s role and mission “Developing, identifying, and sharing effective solutions to the challenges facing democratic governance in developing countries.” • Problem-oriented • Expanding awareness about a wide range of alternative policy interventions • Sharing practical experiences about ‘what works’ among different countries worldwide (knowledge networks) • Serving broader UNDP goals of human development by expanding individual and institutional choices

22. Promoting democratic governance grounded in UN principles Fostering inclusive participation Strengthening responsive governing institutions Enabling mechanisms DG’S Focus Areas Regional bureau/SURF governance advisers Country offices focal points for governance Members of the DG knowledge network

23. UN principles Gender equality | Anticorruption | Human rights Inclusive participation Civil engagement (Political parties/civil society/citizen’s audits) Elections Communication channels (Independent journalism, E-gov, access to information) Responsive institutions Government service delivery (Economic governance, poverty /MDGs, conflict prevention) Parliaments and assemblies Justice & rule of law Enabling mechanisms Knowledge networks | Capacity development and learning | Resource management/ partnerships | | DG Focus Areas Regional bureau/SURF governance advisers Country offices focal points for governance Members of the DG knowledge network

24. Draft DG Integrated Results Framework UNDP Strategic Plan 2008-2011

25. Staffing resources • 24 in HQ NY • 10 in the Oslo Governance Center • 24 in Regional Centers/SURFS • Panama, Bangkok, Beirut, Bratislava, Jo-burg, Dakar, Colombia, Geneva, Brussels • Total 58 policy advisers and staff -------------------------------------------------- • Advisors in 166 UNDP country offices • 1,800 members of DG knowledge network

27. Partnerships and collaboration • Within the UNfamily • UN Department of Political Affairs/Electoral Assistance • UN Office of the High Commissioner for Human Rights, • Bureau for Crisis Prevention and Recovery, • UNIFEM • UN Department for Economic and Social Affairs • UN Department of Peace Keeping Operations • UN Office on Drugs and Crime • World Bank, Etc. • External partners • Multilateral organizations • ICNRD, CD, IPU, IDEA, IFES, Transparency International, • Regional organizations eg African Union • Bilateral organizations eg NDI, ABA, national donors, • Private-public partnerships eg Microsoft, CISCO

28. Illustrative cases e.g. • East Timor • Justice and security sector reform • Women and politics • KNOW politics • Arab States • Parliamentary oversight and transparency • Democratic Republic of Congo • Electoral assistance and administration

29. Challenges • UN reform and cohesion • High Level Panel Delivering as One • 8 pilot nations • Debate about speed of reform • Role of UNDP in coordinating UN agencies • The UNDP Strategic Plan 2008-11 • Pushback on human rights based development • Issues of implementation and impact • Problems of vertical integration from corporate, regional and country levels • Challenge of horizontal integration among UN agencies