GPEDC Jint Supprt Team s Reflectin n the Advice frm the Mnitring Advisry Grup DRAFT fr discussin - January 2016 In December 2015, the Mnitring Advisry Grup (MAG) f the Glbal Partnership fr Effective Develpment Cperatin (GPEDC) shared tw analytical pieces f technical advice with the Jint Supprt Team (JST), regarding: (A) The GPEDC Thery f Change : An expsitin and critique, and (B) MAG Respnse t the 2016 Prgress Reprt Cncept Nte. This paper summarizes the JST s main cmments n these tw technical cntributins, as well as reflectins f MAG s advice n the apprach fr the current mnitring rund and fr the 2016 Prgress Reprt. Further discussin during the upcming MAG meeting in New Yrk (February 2016) will help refine this draft nte ging frward. Sectin A. Reflectin n MAG s GPEDC Thery f Change paper The JST appreciates the MAG s initial assessment t clarify the ratinale and expectatins fllwing the Busan high-level meeting that set in mtin the Glbal Partnership s mnitring mechanism i.e. the underlying Thery f Change (TC) driving GPEDC s mnitring actin and beynd. The fllwing paragraphs discuss the main cmments frm the JST and suggest ways t reflect these issues int the nging mnitring prcess r MAG review: Initial assessment f GPEDC s thery f change A key initial bservatin is the lack f an explicit thery f change in GPEDC s inceptin dcuments. The glbal principles and cmmitments arund effective develpment c-peratin agreed in the Busan Partnership agreement (BPa) were inspired bth by previus wrk stemming frm the Rme/Paris/Accra prcesses fr effective develpment c-peratin (EDC) and frm the bradened scpe and cverage f actrs f the Busan prcess. The BPa and GPEDC s mnitring framewrk itself resulted frm a dynamic multi-stakehlder plitical negtiatin that did nt lend itself t articulate an explicit TC in detail. While there was/is a brad cnsensus arund the EDC principles (i.e. cuntry wnership, fcus n results, inclusive partnerships, transparency and accuntability), the specificatin f these principles int the subset f Busan EDC cmmitments selected fr GPEDC mnitring was nt made explicit at the time. In light f this gap in the inceptin dcuments, the MAG attempted t retractively recnstruct an implicit TC based n the guiding statements f the Partnership s gverning bdies and de fact peratinal wrk f GPEDC stakehlders and secretariat. The exercise allwed the MAG making explicit the set f assumptins that drive GPEDC peratins and strategic directin. The MAG presents an initial assessment f the rbustness f these assumptins in the secnd part f the paper, as a guide fr future wrk. The JST agrees with this analytical apprach, and prpses a way t further detail the initial descriptin f GPEDC s implicit TC if needed. In rder t help the MAG in refining the implied generic thery f change fr the GPEDC (figure 1 in MAG paper), the JST stands ready t prvide the MAG with further detail n the types f activities and actins carried ut by GPEDC (in its three wrk streams: keeping parties accuntable and fstering mutual learning thrughut mnitring, implementatin f agreed nrms and cmmitments thrughut the glbal partnership initiatives, and 1
maintaining internatinal accuntability and plitical mmentum via high-level plicy/plitical dialgue). This granularity in the detail will help all actrs understand the planned synergies between the different wrk streams in setting the GPEDC implicit TC in mtin, and help test the rbustness f the underlying assumptins made in this apprach further. In fleshing ut the implicit TC fr GPEDC s mnitring framewrk, the MAG raises strategic questins that may have implicatins fr GPEDC as a whle, beynd the mnitring framewrk itself. The MAG emphasizes that GPEDC shuld have a greater rle in achieving a mre cherent, inclusive, efficient and effective apprach in supprting cuntry-level develpment prcesses. While acknwledging that the drivers f develpment are endgenus and dmestic decisin-making prcesses are plitically cntested and subjected t uncertainty and t plitical ecnmy cnstraints, the develpment effectiveness agenda f the past decade and a half and the principles f EDC agreed in Busan prvide a sund basis fr pursuing cmmitments, actin and activities that culd supprt these prcesses with better jint wrk/strnger partnerships: the implicit TC utlined by the MAG fllws a causality chain where develpment impacts wuld be mre effectively achieved when these agreed principles have been mre fully implemented by all the relevant develpment actrs/partners in cuntry. It is prpsed that imprvements in the prcess-riented activities being mnitred (i.e. behaviral change n the way develpment actrs relate t each ther and wrk tgether) will lead t imprved effective develpment cperatin, which will in turn lead t achieving better develpment results/impact. In the TC assessment, the MAG recgnizes that there are fundamental assumptins nt fully articulated r tested, albeit they may have a significant influence n the chain t achieve greater develpment effectiveness. In particular, there are tw sets f imprtant assumptins that remain implicit: n causality and n cntext. On the first issue, the causality chain described abve is the backbne f the wrk carried ut by the develpment cmmunity, but it remains vague in the specifics (e.g. t what extent specific materializatins f these principles, i.e. specific indicatrs, drive change). On the secnd issue, the MAG recgnizes that cntext (whether in terms f plitical, rganizatinal, institutinal cntext; and/r in terms f respective capacities and resurces) plays a majr rle in facilitating behaviral change as well as in carrying ut effective mnitring, and in ensuring that these tw will lead t mre effective develpment cperatin. But cntext is nt made an explicit assumptin in the GPEDC s inceptin dcuments r apprach. Making explicit the underlying assumptins supprting the fundamental lgic f the GPEDC TC is difficult at the mment, due t the type f existing cnsensus amngst the invlved parties, and the need t build further evidence arund them. As the MAG indicates, GPEDC s had a plitically-driven inceptin, which is reflected in its rganizatinal arrangements and decisin-making prcess. In additin, engagement in the Glbal Partnership s activities is vluntary, lacking frm hard mechanisms t enfrce cmpliance at the cuntry r glbal levels 1. Finally, a cnsequence f the implicit r tacit nature f the GPEDC s principles and cmmitments mnitring since Busan is that there is nt a cmmn, agreed understanding amng GPEDC stakehlders n what the particular implicatins f these specific Busan cmmitments are fr each f them, nr regarding the allcatin f respnsibilities and expectatins acrss stakehlders. That said, the 2015-2016 mnitring rund ffers a number f pprtunities t gather data and views frm the interested parties, in rder t infrm the review f the underlying TC twards an interpretatin that culd generate greater cnsensus and fster wnership arund the assciated develpment effectiveness agenda. The MAG s review f GPEDC Mnitring Framewrk, supprted by MAG-JST gathering f data, view and ther surces f evidence t infrm the review, ffers an pprtunity t test these hyptheses. Sme ptential surces f evidence may include: the data reprted and bserved behavir during the mnitring rund; the pst-mnitring pll t participants; as well as feedback received frm the 1 As it is the case f the institutins hsting the GPEDC Secretariat (i.e. OECD, UNDP), the Glbal Partnership relies n sft tls such as pen accuntability, reputatinal incentives, multi-stakehlder dialgue mechanisms, knwledge sharing platfrms, and mutual learning activities with the bjective f fstering plicy transfer and/r imitatin and incentivize behavir change amng the relevant actrs. 2
reginal pst-mnitring wrkshps, and frm specific fra and dialgue prcesses invlving develping cuntry gvernments, prviders, CSOs and ther GPEDC actrs. The 2016 Prgress Reprt cmbining findings frm mnitring data and cmplementary evidence ffers an pprtunity t reprt n the rbustness f sme f the implicit assumptins. Amng thers, ne particular way in which we may test sme GPEDC assumptins will be thrughut assessing the effect f cntext n bserved mnitring results; and in prviding mre vice t GPEDC stakehlders in highlighting/agreeing n existing bttlenecks and indicating ptential plicy suggestins t mve frward. Implicatins n the GPEDC scpe and mandate (medium-term hrizn) The rle and scpe f the GPEDC vis-a-vis the widely agreed principles f effective develpment cperatin is ne key strategic questin that may need reflectin. The Busan and Mexic high-level meetings and subsequent cnversatins within GPEDC s Steering Cmmittee have bradly supprted the EDC principles (cuntry wnership, fcus n results, inclusive partnership, and transparency and accuntability) as imprtant guiding nrms t achieve cherent, inclusive, efficient and effective develpment cperatin and thus strengthen partnerships fr the develpment prcess. With the principles nw engraved in the internatinal Sustainable Develpment Gals and framewrk (SDGs, FfD), the key questins psed in the MAG s nte n the GPEDC thery f change are: What rle shuld GPEDC have in supprting the plicy dialgue and plitical supprt arund/implementatin f/cmpliance with the EDC principles? And hw can GPEDC play that rle? GPEDC s stakehlders and the MAG seem t agree that the Glbal Partnership shuld be playing a rle in terms f mnitring prgress in implementatin, in prviding a unique inclusive multi-stakehlder platfrm fr plicy dialgue and mutual learning, and in supprting cuntry-level implementatin. If GPEDC steps up t that rle in supprting the principles fr EDC, a series f related strategic questins fllw: Hw shuld the implicit assumptins arund causality and cntext be addressed/adjusted in rder t strengthen GPEDC s verall impact? Shall GPEDC assume a rle in champining the principles being translated int actins? If s, is it thrugh facilitating/negtiating specific cmmitments and prviding a space fr mutual accuntability fr implementing such cmmitments? D we aim at gaining recgnitin and a greater rle in implementatin at the cuntry level? And, if s, what is the scpe f wrk that GPEDC culd d in, fr example, prmting and assessing in-cuntry enabling framewrks fr multi-stakehlder dialgue and actins that translate the principles int actins (e.g. fcusing n facilitating an enabling envirnment fr inclusive develpment; prmting related institutinal, legal and regulatry refrms; capacity building)? In addressing these questins, the strng plitical drive and supprt f the GPEDC shuld be recgnized: the EDC agenda is widely shared and there is a brad endrsement f the general principles f effective develpment cperatin with varius stakehlders articulating specific (differentiated) cmmitments. With the general principles f EDC engraved in the FfD and reflected in the SDGs at general level, we may cnsider further analysis t make explicit the causal mechanisms as an exercise t deepening n these principles i.e. hw t translate these principles int actins thrugh differentiated cmmitments that may emerged frm varius stakehlders and result n psitive impacts n develpment cperatin, and n develpment mre generally. Building n the strengths f the GPEDC, we suggest that the TC articulates and clarifies these causality-related assumptins using a cuntry-level perspective (i.e. hw all develpment actrs perate in practice in recipient cuntries, and what are the drivers f change). T this end, and as 3
suggested by the MAG, bserved change in cuntry cases (i.e. hw the behavir f varius stakehlders/cnstituencies evlved in GPEDC participating cuntries) culd illustrate and add a greater level f granularity t the review and refinement f GPEDC s thery f change ptentially supprted by crss-cuntry analysis. This exercise can help clarify the effectiveness f varius incentives fr the type f behaviral change f develpment actrs that culd enhance develpment effectiveness. At the mment, GPEDC incentivizes and tracks behavir change and assciated institutinal refrms which are expected t have a psitive impact n the quality f develpment cperatin, partnerships and financing fr develpment and ultimately n develpment. Hwever, n strategic priritizatin and sequencing are pssible withut an understanding f the cuntry-specific impacts f the different types f behavir/behavir change. Including that dimensin (relevance) int the analysis can help recncile the purely technical wrk (effectiveness f plicy/institutinal/ gvernance refrms) with the plitical and managerial dimensins. These discussins culd nt nly infrm a revised scpe fr GPEDC s mnitring framewrk, but als GPEDC s revised mandate and wrking arrangements. The discussins and related review culd als infrm the cntent f the HLM 2 utcme dcument, depending n the ambitin and visin f the HLM 2 utcme dcument. Implicatin n GPEDC s mnitring framewrk (shrt-term hrizn) The MAG s paper n GPEDC s TC als pints ut twards sme useful suggestins that culd ptentially be taken n bard in the implementatin f the nging mnitring rund as well as thrugh the evidence reprting and type f analysis included in the 2016 Prgress Reprt. The MAG recgnizes that there are distinctive cnditins and cntexts fr the cuntries and regins participating in the GPEDC mnitring runds. This is in turn reflected in different needs and expectatin fr change. The MAG als suggests that a fcused analysis wuld be useful t test assumptins n the inclusive character f multi-stakehlder prcesses triggered by the mnitring runds, and n the existing pwer relatins at the cuntry level that may affect the prcess. The JST will explre ways t refine the analysis and reprting t accmmdate these cnsideratins. First, it is suggested t further disaggregate data (at the cuntry/regin levels). Likewise, a mre granular and cntextual assessment (i.e. with a characterizatin f the diverse cuntry and reginal cntexts t help interpret the mnitring data) culd als help in testing the cntext-related assumptins that may impact the extent f bserved behavir change. Cuntry case studies can als help clarify causality-related assumptins. As the MAG suggests in the paper, a fcused analysis wuld be useful t test the assumptin f inclusive multi-stakehlder prcess in their develpment and negtiatin strengthens the hand f the least pwerful actrs relative t mre pwerful nes. Implicatins in rder t strengthen the relevance f GPEDC s mnitring framewrk As the MAG paper nted, there is a need t clarify and test the assumptin abut the causality, and identifying key assumptin abut the cntext, as well as where the mnitring shuld fcus n in terms f prmting behaviral changes. In this cntext, the MAG s paper included sme useful elements f pssible indicatrs arund behaviral change such as existence f plicy refrm, institutinal refrm, enabling laws and regulatins, and the emergence f new crdinatin mechanisms as imprtant indicatrs f behavir change (in case f prviders and recipient). Further discussin in the cntext f the upcming February 2016 MAG meeting will be needed t priritize JST s and MAG s wrk in explring an expanded scpe that culd be mre in line with the needs and expectatin f all GPEDC stakehlders, and reflect the pririties, perfrmance and behavir change f all the relevant actrs engaged in develpment cperatin and in verall develpment prcesses. 4
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Sectin B. Reflectin n MAG s Respnse t the 2016 Prgress Reprt Cncept Nte The Mnitring Advisry Grup (MAG) highlights the critical rle the 2016 Prgress Reprt can play in demnstrating GPEDC s wn value and in cntributing t SDGs fllw-up and review. On the first issue, given that a cre bjective f the reprt is t infrm the High-Level Meeting in Nairbi (HLM 2), there is a need t use the reprt fr bth taking stck f prgress in implementing the EDC principles t date and in adpting a frward-lking perspective in suggesting ways frward. The MAG suggests taking stck in tw ways: (i) by prviding a review f the effectiveness and impact n the implementatin f the Busan EDC cmmitments t date; and (ii) by assessing the impact f EDC mnitring n cuntry-level multi-stakehlder dialgue and strength f develpment partnerships. The MAG als underscres the critical imprtance f taking int accunt bth plitical and plicy-riented dimensins, with space t identify prgress bttlenecks, ptential reasns fr that, and including cntextual elements in the interpretatin f the data (glbal and cuntry cntexts). There is a suggestin t think beynd the reprt itself, prducing plicy-riented r thematic materials based n the reprt and the mnitring data which culd facilitate prcessing the findings by the brader stakehlder cmmunity and help infrm the High-Level Meeting. In the cntext f psitining the GPEDC in relatin t SDGs mnitring, the MAG recmmended an element f frward-lking articulatin as t hw the GPEDC s mnitring prcess may be strengthened t make it mre relevant/aligned with the SDGs mnitring. The JST welcmed the MAG recmmendatins n the 2016 Prgress Reprt, and agrees with the need t have: (a) strnger plicy and plitical ecnmy dimensins, (b) supprted by cuntry-based/cntext-sensitive assessment f the results, (c) fcusing n where prgress is made and why prgress is limited and relevant plicy guidance n what needs t be dne 2. T this end: The JST is cmpiling available relevant and cmplementary analysis undertaken by varius institutins and initiatives, and will als explre the pssibility f getting independent views n prgress and challenges that can be intrduced in the Reprt; The JST will expand the Cncept Nte fr the 2016 Prgress Reprt t utline specific areas f cmplementary analysis that might infrm the glbal analysis; As suggested by the MAG, the JST will explre inclusin f a sectin r chapter that wuld highlight challenges mre bradly with cuntry examples capturing views/perspectives f varius cnstituencies, in additin t preparing varius relevant plicy briefs t infrm the HLM 2 discussins; As part f the disseminatin and publicatin f the reprt, JST will als explre partnering with sme institutins t prvide sme key plitical message materials; T further enrich the prgress stck-taking in a cmplex cperatin landscape, the MAG recmmended presentatin f analysis in a way that demnstrates diversity f prgress als shwcasing illustrative examples. Cuntry prfiles/briefs will prvide mre cntextualized assessment f prgress, while the Prgress Reprt will als articulate varying degree f prgress acrss regins and by prviders. With the view t strngly psitin the GPEDC in the SDGs implementatin, the MAG s recmmendatin n having a chapter/sectin that utlines frward-lking elements f the GPEDC mnitring is well nted. T supprt such a sectin, as recmmended by the MAG, the reprt will benefit frm a clear review f the effectiveness/impact t date and further articulatin f the thery f change fcusing n the chain f changes that translate the principles int actins, and actins leading t develpment impact. T supprt this element, the JST will seek cncrete cuntry examples where the principles translated int actins and mnitring f 2 The depth and breadth f the assessment shuld be cnsistent with a mnitring apprach (vis-à-vis an in-depth evaluative apprach). The resurces and timing available fr the preparatin f the prgress reprt are cmmensurate with a mnitring apprach, and relying n existing cmplementary surces f evidence may have the nly feasible ptin if the team is t meet the tight deadlines t influence the HLM-2 with mnitring findings. 6
effectiveness f develpment cperatin have had impacted the cuntry-level develpment planning prcess and crdinatin framewrks. JST reflectin n key MAG recmmendatins MAG: Specific areas f recmmendatin The indicatr-fcused chapters shuld demnstrate diversity f prgress and cntext-specific factrs affecting prgress. Disaggregate as much as pssible. The Mnitring prcess itself is t spark multi-stakehlder dialgue as a way t prmte multi-stakehlder actins. T this end, the MAG recmmends the imprtance f a paragraph r sectin that utline engagement f the multistakehlder actrs in the mnitring prcess itself. MAG underscres the imprtance f having clear views n impacts t date and hw they can be taken frward as ne f the three key questins fr the Prgress Reprt t address. Reference pint fr the reprt t be the 2011 Busan cmmitments (nt as a cntinuatin f the Paris agenda). All GPEDC stakehlders shuld be cnsidered key audience. Emphasize GPEDC mnitring unique cntributin (fcus n develpment cperatin, partner cuntry led, inclusive apprach) Cnsider hw bttlenecks can be addressed. Specific advice n the reprt utline Prepare cllateral shrter materials fr better knwledge sharing and impact. JST Reflectin and Prpsed Actins JST aims t achieve this by presentatin f results at certain level f disaggregatin (acrss regins, acrss varius cuntry cntext). Data will be disaggregated as much as pssible. This element is very useful t signal hw mnitring sparks incuntry multi-stakehlder dialgue. T infrm this, sme specific cuntry examples will need t be surced. There is already a gd example f mnitring prcess launched thrugh multi-stakehlder prcesses and in-cuntry crdinatin mechanisms supprting useful multi-stakehlder engagement in the mnitring. Such specific infrmatin will enrich this sectin. The impacts f the mnitring in cuntry prcess will be infrmed frm articulatin f the GPEDC thery f change, particularly thrugh lking at sme examples f cuntry level institutinal refrms/strengthening f partnerships. The JST will explre surcing these infrmatin frm cuntry level, in additin t being infrmed frm cmplementary analytical wrk undertaken by sme f the institutins. Pint well taken. Pint well taken. Pint well taken. T the extent pssible, we will map existing appraches being tried ut, and we will explre ways t bring stakehlders views n ptential slutins t slve these bttlenecks (als t gain reprt wnership). Suggestins well taken. The tentative utline shuld/will be adjusted n the basis f the MAG discussins arund the TC and n hw t best incentivize behavir change. We plan t g beynd the reprt, which is central but nt the nly disseminatin piece nr the mst apprpriate fr every audience. 7
Dec 2011 Sept 2015 Achievement f Busan Partnership Agenda Sustainable Develpment Agreement 2030 Gals 2014 Mnitring Rund 2018 Mnitring Rund 2030 Mnitring Rund 2016 Mnitring Rund 2020 Mnitring Rund 8