1. Citizens Engagement in National Development Strategies Tamas HALM Secretary General of the ESC of Hungary Nairobi, 7-8 March 2011 and the Role of Economic and Social Councils

2. 2 Outline 1) Why is the participation of civil society necessary in the formation of development strategies? 2) What does the European Union expect from its Member States in this respect? 3) How was this exercise done in Hungary for the 2007-13 programming period? 4) What lessons can/should be learnt from this process for other countries?

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

4. 4 Development: for the people (!) – by the people (?) Elected representatives – tied by Elected representatives – tied by party interests party interests party discipline party discipline Very focussed proposals, typically: Very focussed proposals, typically: motorways, highways, tramways motorways, highways, tramways gyms & swimming pools for schools gyms & swimming pools for schools renovation of town/village centres renovation of town/village centres

5. 5 Development for the people – by the people (!!) Civil society organisations Civil society organisations Bringing up various ideas Bringing up various ideas Reflecting/representing various interests Reflecting/representing various interests Activating a relatively large number of citizens – creating ownership Activating a relatively large number of citizens – creating ownership Problem: conflicting ideas and interests Problem: conflicting ideas and interests How to prioritise among them? How to prioritise among them?

6. 6 Development for the people – by the people Prioritisation Prioritisation Economics as a science analyses the optimum distribution of scarce resources among various competing uses – but Economics as a science analyses the optimum distribution of scarce resources among various competing uses – but no scientific answer how to use the resources of development – no public choice models (at least in Hungary) no scientific answer how to use the resources of development – no public choice models (at least in Hungary) Shall we repair the hospital building or construct a new road? Shall we repair the hospital building or construct a new road? Learning the preferences of stakeholders – integrating them into development plans Learning the preferences of stakeholders – integrating them into development plans

7. 2) What does the EU expect?

8. 8 Why the European Union? It gives very substantial amounts as development support for the regions of its Member States. It gives very substantial amounts as development support for the regions of its Member States. It stipulates the conditions under which these amounts will be disbursed from the so-called Structural Funds and the Cohesion Fund It stipulates the conditions under which these amounts will be disbursed from the so-called Structural Funds and the Cohesion Fund Please note: national legislations need not be consulted – but civil society organisations and Economic and Social Councils & similar institutions have to be! – on how the money will be spent Please note: national legislations need not be consulted – but civil society organisations and Economic and Social Councils & similar institutions have to be! – on how the money will be spent

9. 9 COUNCIL REGULATION (EC) No 1083/2006 of 11 July 2006 laying down general provisions on the European Regional Development Fund, the European Social Fund and the Cohesion Fund

10. 10 Article 11: Partnership 1. The objectives of the Funds shall be pursued in the framework of close cooperation, (hereinafter referred to as partnership), between the Commission and each Member State. Each Member State shall organise, where appropriate and in accordance with current national rules and practices, a partnership with authorities and bodies such as: (a) the competent regional, local, urban and other public authorities; (b) the economic and social partners; (c) any other appropriate body representing civil society, environmental partners, non-governmental organisations, and bodies responsible for promoting equality between men and women.

11. 11 1083/2006/EC regulation contd Each Member State shall designate the most representative partners at national, regional and local level and in the economic, social, environmental or other spheres (hereinafter referred to as partners), in accordance with national rules and practices, taking account of the need to promote equality between men and women and sustainable development through the integration of environmental protection and improvement requirements. Each Member State shall designate the most representative partners at national, regional and local level and in the economic, social, environmental or other spheres (hereinafter referred to as partners), in accordance with national rules and practices, taking account of the need to promote equality between men and women and sustainable development through the integration of environmental protection and improvement requirements.

12. 12 1083/2006/EC regulation contd 2. The partnership shall be conducted in full compliance with the respective institutional, legal and financial powers of each partner category as defined in paragraph 1. The partnership shall cover the preparation, implementation, monitoring and evaluation of operational programmes. Member States shall involve, where appropriate, each of the relevant partners, and particularly the regions, in the different stages of programming within the time limit set for each stage. The partnership shall cover the preparation, implementation, monitoring and evaluation of operational programmes. Member States shall involve, where appropriate, each of the relevant partners, and particularly the regions, in the different stages of programming within the time limit set for each stage. 3. Each year the Commission shall consult the organisations representing the economic and social partners at European level on assistance from the Funds.

13. 3) The case of Hungary

14. 14 Levels of partnershipLevels of partnership National macro-forums, umbrella organisations (most representative ones) – direct contact with the National Development Office National macro-forums, umbrella organisations (most representative ones) – direct contact with the National Development Office Specialised civil society organisation – partners of the line ministriesSpecialised civil society organisation – partners of the line ministries Regional civil society organisations – partners of the Regional Development Agencies Regional civil society organisations – partners of the Regional Development Agencies

15. 15 The ESCs involvement The process started in the summer of 2004 – when the Hungarian ESC was established The process started in the summer of 2004 – when the Hungarian ESC was established The ESC discussed the blueprint of the development plan in its very first meeting The ESC discussed the blueprint of the development plan in its very first meeting All major documents have been submitted to the ESC All major documents have been submitted to the ESC The co-operation with the National Development Office was qualified as exemplary by the Government The co-operation with the National Development Office was qualified as exemplary by the Government The ESC issued opinions but there was no genuine reconciliation of the interests of the various groupings. The ESC issued opinions but there was no genuine reconciliation of the interests of the various groupings.

16. 16 A lengthy series of partnership negotiations… I Long-term Development Concept (2005-20) April-May 2005 Long-term Development Concept (2005-20) April-May 2005 National Strategy on Sustainable DevelopmentSept-Oct 2005 National Strategy on Sustainable DevelopmentSept-Oct 2005 National Reform Programme (LS) Sept-Oct 2005 National Reform Programme (LS) Sept-Oct 2005 National Strategic Reference Framework (National Development Plan II) Oct-Nov 2005 National Strategic Reference Framework (National Development Plan II) Oct-Nov 2005

17. 17 A lengthy series of partnership negotiations… II Operational programmes Jan-March 2006 Operational programmes Jan-March 2006 Calls for proposals (̏ tenders) Oct-Nov 2006 Calls for proposals (̏ tenders) Oct-Nov 2006 Action plansevery 2nd year Action plansevery 2nd year In all: six (!) levels of partnership negotiations, not all of them required by the EU In all: six (!) levels of partnership negotiations, not all of them required by the EU

18. 18 Partnership consultation of the long-term development concept 51 forums organised on the long-term vision (with NGOs + elite surveys) 51 forums organised on the long-term vision (with NGOs + elite surveys) Direct mail to 3000-plus NGOs Direct mail to 3000-plus NGOs 388 responded positively 388 responded positively 529 on-line questionnaires filled in 529 on-line questionnaires filled in Plus 100 comments and proposals on paper Plus 100 comments and proposals on paper 3000-plus votes cast on the list of priorities on the website of the National Development Office 3000-plus votes cast on the list of priorities on the website of the National Development Office

19. 19 Partnership consultation of the long-term development concept Special emphasis laid on the involvement of personalities belonging to the opposition (e.g. former ministers) Special emphasis laid on the involvement of personalities belonging to the opposition (e.g. former ministers) Involvement of the experts of the opposition parties of the Parliament Involvement of the experts of the opposition parties of the Parliament Even the opposition acknowledged that this partnership had been exemplary Even the opposition acknowledged that this partnership had been exemplary

20. 20 Partners did show interest! Information brochure published in 20,000 copies, CD-ROM in 3,000 Information brochure published in 20,000 copies, CD-ROM in 3,000 140,000 visits on the website 140,000 visits on the website 25,000 (!) downloads of the Development Concept 25,000 (!) downloads of the Development Concept Officials of the National Development Office attended more than 200 events Officials of the National Development Office attended more than 200 events

21. 21 Partnership of the National Development Plan (2007-13) Direct mail to 5500 potential partners Direct mail to 5500 potential partners Website/questionnaire for the comments and proposals Website/questionnaire for the comments and proposals Negotiations with national (non- regional/local) NGOs Negotiations with national (non- regional/local) NGOs Regional forums in each county (19), co- organised by local daily newspapers Regional forums in each county (19), co- organised by local daily newspapers Partnership forums with national newspapers and magazines (various interests!) Partnership forums with national newspapers and magazines (various interests!)

22. 22 How to deserve/reciprocate the attention & activity of partners? Each written comment/proposal received a personalised answer Each written comment/proposal received a personalised answer What happened to the proposal and why What happened to the proposal and why Each letter posted (in the original form!) on the website Each letter posted (in the original form!) on the website Only two letters had not been published there (racist remarks) Only two letters had not been published there (racist remarks) Answers also published Answers also published This procedure developed by the NDO has become general practice – required by law! This procedure developed by the NDO has become general practice – required by law!

23. 23 Typical proposals submitted by civil society organisations Improvement of the state of the (physical) health of the nation Improvement of the state of the (physical) health of the nation Raising the level of employment (2005!) Raising the level of employment (2005!) Increasing the level of education, reinforcing the knowledge based society Increasing the level of education, reinforcing the knowledge based society 65 % accepted that competitiveness should lead the list of priorities 65 % accepted that competitiveness should lead the list of priorities

24. 24 A very special interpretation of partnership… December 13, 2005: the European Council adopts the Financial Perspectives for 2007-13 December 13, 2005: the European Council adopts the Financial Perspectives for 2007-13 In January 2006 the private office of the PM in Hungary starts negotiations with mayors and regional officials (belonging to his party…) In January 2006 the private office of the PM in Hungary starts negotiations with mayors and regional officials (belonging to his party…) What would you like to see in the development plan? What would you like to see in the development plan? Result: inventory of development projects Result: inventory of development projects In use only until the elections in April 2006 In use only until the elections in April 2006

25. 25 A positive example Civils for the Transparency of the National Development Plan Civils for the Transparency of the National Development Plan Eye-catching abbreviation: CNNy Eye-catching abbreviation: CNNy Concerning partnership technology – ahead of the National Development Office Concerning partnership technology – ahead of the National Development Office The partnership procedure was built upon their proposals The partnership procedure was built upon their proposals From suspicion to mutual understanding and respect From suspicion to mutual understanding and respect One of their spokespersons became head of the partnership unit of the NDO… One of their spokespersons became head of the partnership unit of the NDO… And the under-secretary of state responsible for partnership invited to join the ESC as Secretary-General… And the under-secretary of state responsible for partnership invited to join the ESC as Secretary-General…

26. 26 To be proud of…. Transparency International issued a very positive opinion on the openness of national planning in Hungary Transparency International issued a very positive opinion on the openness of national planning in Hungary The opinion of the director of the European Commission on partnership (in the negotiation process): The opinion of the director of the European Commission on partnership (in the negotiation process): No comment, no question – congratulations! No comment, no question – congratulations! Partnership procedure nominated in a competition for best practices in public administration Partnership procedure nominated in a competition for best practices in public administration

27. 4) What lessons can/should be learnt?

28. 28 Lessons (to be) learnt – I Civil engagement is not only a must for governments but Civil engagement is not only a must for governments but it brings genuine enrichment, value added it brings genuine enrichment, value added Civil representatives have to be involved in the whole cycle of development policy Civil representatives have to be involved in the whole cycle of development policy planning, implementation, monitoring and evaluation planning, implementation, monitoring and evaluation Development policy (especially in cases of programmes and projects co-financed by the European Union) can involve very complicated and bureaucratic procedures Development policy (especially in cases of programmes and projects co-financed by the European Union) can involve very complicated and bureaucratic procedures civils can be watchdogs against over-complication civils can be watchdogs against over-complication

29. 29 Lessons (to be) learnt – II Civil engagement Civil engagement takes much time and energy! takes much time and energy! presupposes the freedom of expression and of the press – prevailing in Hungary presupposes the freedom of expression and of the press – prevailing in Hungary can contribute substantially to better regulation and better governance can contribute substantially to better regulation and better governance is indispensable for the transparency and accountability of governance/government is indispensable for the transparency and accountability of governance/government BUT: requires honest, tolerant civil society organisations with considerable expertise BUT: requires honest, tolerant civil society organisations with considerable expertise

30. 30 Lessons learnt – III Civil organisations can also amplify the voice of marginal(ised) groups of society, safeguarding their interests Civil organisations can also amplify the voice of marginal(ised) groups of society, safeguarding their interests Economic and Social Councils and similar institutions Economic and Social Councils and similar institutions can serve as good forums for presenting different views and preferences can serve as good forums for presenting different views and preferences only strong ESCs can act as arbitrator between these preferences and demands only strong ESCs can act as arbitrator between these preferences and demands member organisations can retain the right to act individually vis-à-vis the government (?) member organisations can retain the right to act individually vis-à-vis the government (?)

31. Thank you for your kind attention.