Version 12 May 2004
DRAFT MAY 2004
COMMISSION STAFF WORKING DOCUMENT
European Initiative for Democracy and Human Rights (EIDHR)
Programming 2005 to 2006
TABLE OF CONTENTS
SUMMARY 4
1 INTRODUCTION 5
1.1 History of the European Initiative for Democracy and Human Rights (EIDHR) 5
1.2 Development of thematic objectives and priorities 5
1.3 The added value of the EIDHR 6
1.4 The financial envelope 7
2 SITUATIONAL ANALYSIS AND EUROPEAN UNION POLICY ORIENTATIONS 7
2.1 Analysis of the situation in areas identified as EIDHR funding priorities 7
2.1.1 Thematic priority 1: support to strengthen democratisation, good governance and the rule of law 7
2.1.1.1 Strengthening the capacity of civil society 7
2.1.1.2 Human rights education and training 8
2.1.1.3 Actions concerning elections 8
2.1.1.4 Conflict prevention and resolution 9
2.1.2 Thematic priority 2: activities in support of the abolition of the death penalty 9
2.1.3 Thematic priority 3: support for the fight against torture and impunity and for international tribunals and the International Criminal Court 10
2.1.3.1 Prevention of torture and rehabilitation of torture victims 10
2.1.3.2 Support for the fight against impunity and for international tribunals and the International Criminal Court 11
2.1.4 Thematic priority 4: combating racism and xenophobia, and discrimination against minorities and indigenous peoples 11
2.1.4.1 Racism and discrimination of minorities 11
2.1.4.2 Support to indigenous people 12
2.1.5 Topical human rights issues not included in an EIDHR thematic priority 13
2.1.5.1 Rights of the Child 13
2.1.5.2 Trafficking of human beings 13
2.1.6 Human rights dialogues 14
2.1.6.1 China 14
2.1.6.2 Iran 14
2.1.7 Regional priorities 15
2.1.7.1 South Eastern Europe 15
2.1.7.2 South Mediterranean and Middle East 15
2.1.7.3 NIS countries 16
2.1.7.4 European Neighbourhood Policy 17
2.1.7.5 Asia 17
2.1.7.6 Sub-Saharan Africa, Caribbean, Pacific 17
2.1.7.7 Latin America 18
3 PAST SUPPORT, LESSONS LEARNED AND RECOMMENDATIONS 19
3.1 Financial support from 2002 to 2004 19
3.2 Summary of lessons learnt and recommendations 20
4 THE RESPONSE STRATEGY 25
4.1 The overall structure 25
4.3 Thematic focus 27
4.1.1.1 Campaign 1: Promoting Justice and Dignity 28
4.1.1.2 Campaign 2: Fostering a Culture of Human Rights 30
4.1.1.3 Campaign 3: Promoting the Democratic Process 32
4.1.1.4 Campaign 4: Advancing Equality and Combating Discrimination 35
4.2 Contingencies and allocation criteria 37
5 MULTI-ANNUAL INDICATIVE PROGRAMME 37
5.1 The annual budgets 37
SUMMARY
The European Initiative for Democracy and Human Rights (EIDHR), as constituted under this heading by several budget lines, is a funding instrument of the European Community complementary to the overall EU policy on human rights and democracy. It provides financial support to civil society and non-governmental organisations for activities in third countries promoting and defending human rights and fundamental freedoms, supporting the processes of democratisation, and aims to prevent conflicts and deal with their consequences.
Drawing upon the lessons of past exercises, the programming of the instrument for 2005 and 2006 aims to achieve the following objectives:
- maximise the efficiency and impact of EIDHR through a greater concentration of resources available on priorities pursued at the global, regional and local levels;
- move towards an holistic approach integrating former EIDHR “focus themes” and “focus countries” into comprehensive “campaigns”;
- reduce the emphasis on the commitment of funds as opposed to the monitoring of impact;
- ensure better synergy between EIDHR and other EU instruments as well as overall EU policy objectives in the field of human rights;
- enhance the visibility of EU action.
Within the framework of the Financial Perspectives 2000 – 2006, and on the basis of the financial reference amounts as included in the instrument’s basic acts, a global financial envelope of ¤ 212 million is foreseen for 2005 and 2006.
The structure of this programming document follows the inter-service “Common Framework and Procedure for the Establishment and Programming of Thematic and Horizontal Budget Lines”.
1 INTRODUCTION
1.1 History of the European Initiative for Democracy and Human Rights (EIDHR)
In 1994, a series of budget headings specifically dealing with the promotion of human rights were collated in a single budget chapter entitled “European Initiative for Democracy and the Protection of Human Rights”. This change was made at the request of the European Parliament to ensure that the funding of Community support for measures to promote observance of human rights and democratic processes could be consistent and transparent. It also aimed to reflect the new competences arising from the Treaty on European Union.
The budget items under the EIDHR increased to a maximum of eleven by 2000, followed by a merging of two operational budget items in 2002: development and consolidation of democracy and the rule of law – respect for human rights and fundamental freedoms, and support for activities of international criminal tribunals and the setting-up of the International Criminal Court. In 2004, three budget items were again added: the European Inter-university Centre, support for the victims of human rights’ abuses, and a pilot project to establish a conflict prevention network.
1.2 Development of thematic objectives and priorities
Although each budget item covered by the EIDHR since 1994 was complemented by separate commentaries explaining the respective objectives to be pursued thereunder, it was only the legal bases for the EIDHR adopted in 1999 which determined the instrument’s objectives and the procedures for implementation of operations. Within the general objective of contributing to developing and consolidating democracy and the rule of law and to respecting human rights and fundamental freedoms in developing and other third countries, the two basic acts specify that consistent with the European Union’s foreign policy as a whole the European Community should provide technical and financial aid for operations aimed at (i) promoting and defending the human rights and fundamental freedoms proclaimed in the Universal Declaration of Human Rights and other international instruments concerning the development and consolidation of democracy and the rule of law, (ii) supporting the processes of democratisation, and (iii) support for measures to promote respect for human rights and democratisation by preventing conflict and dealing with its consequences, in close collaboration with the relevant competent bodies. Each of the three specific objectives is sub-divided into particular aims indicating the possible scope of operations.
In view of the relatively limited budget available compared with the broad policy objectives as set out in the basic acts, the Commission Communication of May 2001 on the EU’s role in promoting human rights and democratisation in third countries adopted a more strategic, prioritised and long-term approach to the EIDHR, seeking to enhance its impact and effectiveness. The main elements of this strategic approach are a concentration on four thematic priority issues, the identification of a limited number of countries on which to focus, and securing a potential for flexibility in the form of a micro-project facility allowing reaction to country-specific situations and also in the form of contingencies to allow the European Community to respond to urgent and unforeseen needs.
The four thematic priorities for support and intervention within the framework of the EIDHR are:
- support to strengthen democratisation, good governance and the rule of law;
- activities in support of the abolition of the death penalty;
- support for the fight against torture and impunity and for international tribunals and criminal courts;
- combating racism, xenophobia and discrimination against minorities and indigenous peoples.
In order to translate this strategic approach into practical operations, a multi-annual programming with annual updates is provided for. The first multi-annual EIDHR Programming Document 2002 – 2004 specified for each of the four thematic priorities a number of anticipated results.
1.3 The added value of the EIDHR
Compared with other co-operation instruments of the European Community, the EIDHR has a significant added value:
- EC co-operation programming under National Indicative Programmes (NIPs) or country strategies identifies areas for co-operation which are subject to the agreement of governments of third countries. The focus of the EIDHR on support to civil society through NGOs means that EIDHR funding is available to beneficiaries without the consent of the government of the country in which the supported activity is to take place, or where the main European Community co-operation programmes are not available for other reasons, such as their suspension.
- The EIDHR has its own internal logic but also underpins wider EU policy objectives in the field of human rights and democratisation. In some regions, the EIDHR provides the only legal basis for certain activities including the promotion of political and civil rights, election observation and conflict resolution initiatives .
- The EIDHR can be considered to represent a form of 'human rights venture capital fund', allowing the launch of initiatives on a pilot or experimental basis which may subsequently be taken up by governments on a broader scale.
- Compared with other donor support, notably from EU Member States, the main added value of the EIDHR is that it is perceived to have the EU's political backing, which may help to protect potentially vulnerable civil society organisations vis-à-vis repressive governments. EIDHR funding can take more political risks than support provided by a Member State with particular commercial or political interests in a given country. In beneficiary countries, the financial support provided under the EIDHR is seen as being delivered impartially with no national interest strings attached to it.
1.4 The financial envelope
According to the EIDHR legal bases, the financial reference amount for the implementation of the instrument between 1999 and 2004 came to ¤ 410 million . For the years 2005 and 2006 the corresponding amount is set at ¤ 212 million . In the 2004 budget, the European Parliament went considerably beyond the ¤ 106 million reference amount as foreseen in the financial perspective 2000 – 2006. By including three additional budget items and increasing appropriations under two remaining budget items, a total of ¤ 134.357 million in appropriations (including ¤ 7 million in expenditure on administrative management) was made available in 2004.
As a guideline, the programming of EIDHR support in 2005 and 2006 will be oriented along the following percentages of available operational appropriations:
- Campaigns up to 45% of total operational appropriations
- Election observation and pre and post
election assistance up to 15% of total operational appropriations
- Micro-project facility up to 30% of total operational appropriations
- Contingency up to 10% of total operational appropriations
2 SITUATIONAL ANALYSIS AND EUROPEAN UNION POLICY ORIENTATIONS
2.1 Analysis of the situation in areas identified as EIDHR funding priorities
The analysis of the situation in the field of human rights and democratisation below focuses on the thematic priorities of EIDHR support as defined by the Commission Communication of May 2001 on the EU’s Role in Promoting Human Rights and Democratisation in Third Countries .
2.1.1 Thematic priority 1: support to strengthen democratisation, good governance and the rule of law
Functioning participatory democracies based upon the rule of law and accountable governments are essential to achieve lasting and peaceful economic, social and human development. The EU has adopted several important policy documents underlining its commitment to support democratisation, good governance and the rule of law. Such support has materialised in a great number of projects funded under mainstream geographic budget lines. The EIDHR itself has concentrated on the following objectives:
2.1.1.1 Strengthening the capacity of civil society
The emergence and development of a strong civil society is an important factor in the promotion of democracy, accountability and public participation in decision-making. As civil society organisations constitute the main beneficiaries (together with international organisations) of the EIDHR, the strengthening of civil society is an expected by-product of all EIDHR projects, whatever issue they seek to address. However, the EIDHR has in many countries also specifically sought to reinforce, as such, the ability of NGOs to grow and develop, research and improve strategies, manage resources, operate in a transparent manner and launch advocacy and public information campaigns. Micro-projects facilities set up in a growing number of Commission Delegations across the world have been a particularly efficient way to provide support to civil society organisations.
Over ¤47 million have been allocated from 2002 to 2004 under the EIDHR to projects aimed at strengthening the capacity of civil society organisations.
2.1.1.2 Human rights education and training
Providing human rights education and training to younger generations, decision-makers, judges and law-enforcement officers is a powerful way to promote a “human rights culture” across the board and prevent human rights violations. The “UN Decade for Human Rights Education” (1995-2004) has been a useful anchor and catalyst mechanism for human rights education in the world.
The EU has regularly expressed its support for programmes of human rights and democracy education, including on the occasion of the 50th Anniversary of the Universal Declaration on Human Rights, when it pledged to further develop activities in this field.
EIDHR projects to promote awareness-raising in the field of human rights worldwide have mainly focused on voters’ education, education of women or training of police and prison personnel.
In 1997, the EIDHR supported the establishment of the first European Master’s Degree for Democracy and Human Rights, in Venice. This initiative has provided inspiration for similar projects in different regions of the world: the European Regional Master for Democracy and Human Rights in South-East Europe based in Sarajevo; the African Master’s Degree in Human Rights and Democratisation, based in Pretoria and the Mediterranean Master’s Degree, based in Malta.
Over ¤29 million have been allocated from 2002 to 2004 under the EIDHR to human rights education and awareness-raising.
2.1.1.3 Actions concerning elections
Fair, open, transparent and genuinely competitive elections play a vital role both as a mechanism to regulate internal conflict and as a way of conferring legitimacy on political authority. As such, they contribute to the broader goals of promoting sustainable governance, national and international stability. Election observation plays an important role in supporting respect for human rights, strengthening democracy and the rule of law as enshrined in international instruments and domestic legislation. These elements are also at the core of the EU’s identity as a “project for democracy, development and peace” .
In 2000, the Commission adopted a Communication on Election Assistance and Observation taking stock of the experience acquired since 1993 and proposing a more coherent and consistent policy in this field. Key recommendations for election observation included a clarification of roles between EU institutions and funding sources, improved programming and the adoption of a standard long-term observation methodology. These recommendations were endorsed by the Council and European Parliament. On 19 December 2003, the Commission services presented a report on the implementation of the 2000 Communication.
EIDHR foresees an annual allocation to support election activities, including all EU EOMs, training for EU observers, capacity-building programmes with regional organisations (such as OSCE, Council of Europe, African Union Commission), as well as pilot projects with NGOs for civic/voter education and domestic observation.
EU EOMs have contributed to stability, transparency and public confidence in the countries observed through the production of informed statements and reports and through the presence of large numbers of observers. Through EOMs, the EU has strengthened its profile as a credible and visible actor in the field of democratisation. As a consequence, requests from third states and EU Members States to deploy EU EOMs have multiplied.
¤ 42 million have been allocated under the EIDHR to election observation in 2002-2004.
2.1.1.4 Conflict prevention and resolution
Conflict prevention and conflict resolution are essential elements of the European Union’s overall policy on promoting human rights and democratisation around the world. Violent conflict always leads to a deterioration of the human rights situation and endangers democracy whilst countries with conflict potential are usually those where the democratic process is the least advanced and where human rights are violated. Stable and pluralist societies that respect human rights and fundamental freedoms represent, therefore, the best chance of avoiding conflict, building sustainable peace and providing long term security.
The Commission stressed in its Communication on Conflict Prevention that preventing conflict goes much deeper than simply containing warring parties and needs to tackle the root causes of conflict such as discrimination, inequality and intolerance as well as strengthen the institutions of democratic governance and the rule of law.
The EIDHR aims to support the development of early warning, mediation, reconciliation and confidence building measures implemented by grass-roots and international NGOs, the promotion of common training modules for civilian staff to be deployed in international crisis management missions, and the strengthening of the capacity of international, regional or local organisations involved in conflict prevention. In this way, the added value of the initiative lies in its ability to tackle problems at a local, grassroots level; and to help neighbourhoods and communities to nurture leaders and mediators.
Whilst no specific financial envelope has been allocated to conflict prevention per se under the EIDHR, and many EIDHR projects have unquantifiable long-term effects on potential armed conflicts, around 20 projects are currently focusing on conflict prevention. In 2004, all funding from the EIDHR have to take into account the objectives of conflict prevention and resolution by explicitly favouring project proposals which included these aspects in their specific objectives. Meanwhile, following an initiative by the European Parliament, the 2004 budget also supports (¤1.125 million) the creation of a Conflict Prevention Research Network which brings together expertise from the academic world to conduct relevant research and present it to the EU institutions in a timely and appropriate form.
2.1.2 Thematic priority 2: activities in support of the abolition of the death penalty
According to Amnesty International, 112 countries have abolished the death penalty in law and 83 countries retain and use capital punishment.
The international legal tool for the abolition of the death penalty is the Second Optional Protocol of the International Covenant on Civil and Political Rights. At the European level, Protocols 6 and 13 of the European Convention on Human Rights provide, respectively, for the abolition of the death penalty and for its abolition in all circumstances, even in relation to war crimes.
The European Union is opposed to the death penalty in all circumstances and has agreed to campaign for its universal abolition. EU guidelines setting out the circumstances in which EU action should be taken were adopted in 1998.
The political commitment of the EU is matched by funding under the EIDHR. In the past years, the Initiative has funded projects aiming at raising public awareness and influencing public opinion and the judicial system by training and informing lawyers and by funding concrete studies that explored the possibilities of replacing the death penalty by other forms of punishment.
¤ 7,1 million have been allocated under the EIDHR to projects aiming at the abolition of the death penalty in 2002-2004.
2.1.3 Thematic priority 3: support for the fight against torture and impunity and for international tribunals and the International Criminal Court
2.1.3.1 Prevention of torture and rehabilitation of torture victims
Torture is a global phenomenon. There is a solid framework of international obligations and commitments regarding the fight against torture, including the UN Convention Against Torture and a wealth of provisions relating to the treatment of prisoners . The adoption of the Optional Protocol to the Convention Against Torture in December 2002, which aims to institute a complementary system of national and international visiting mechanisms, is an important development in which the EU has played a leading role.
The EU is committed, under the Guidelines against Torture , to raising the issue in international fora and in dialogue with third countries and to supporting projects to combat torture under the EIDHR and other instruments. As part of the efforts to implement the EU Guidelines on Torture more effectively, an EU Global Action Plan has been drawn up during 2003, based on confidential reports from EU Heads of Mission which have been requested from all third countries.
In terms of prevention of torture, EIDHR funding has been targeted on two key areas:
- Education, training and awareness-raising - support for training and awareness-raising for key personnel including police and prison officers, staff in other “closed” institutions such as mental hospitals, judicial and legal actors, medical practitioners, government and parliamentary officials and the general public.
- Support for international instruments and mechanisms designed to prevent torture - this has included projects to reinforce NGO input into the Committee against Torture and other treaty bodies, monitoring of prison conditions, implementation of the Istanbul Protocol regarding the investigation and documentation of torture and the tracking of the trade in torture instruments.
The EU has been a major source of support for rehabilitation centres. As with prevention, such support serves to assist third countries in implementing their international commitments in the field of torture. Just as the Convention against Torture provides for States parties to train relevant personnel to avert torture, so Article 14 requires victims to be accorded “as full a rehabilitation as possible”. The importance of rehabilitation is also acknowledged in the EU Guidelines against Torture.
Over ¤ 30 million have been allocated under the EIDHR to the fight against torture in 2002-2004.
2.1.3.2 Support for the fight against impunity and for international tribunals and the International Criminal Court
International tribunals aimed at addressing genocide, war crimes and crimes against humanity have made a crucial contribution to fighting impunity, enhancing stability in post-conflict situations and promoting international peace and justice. Building upon the pioneering work of the International Criminal Tribunal for the former Yugoslavia (ICTY), the International Criminal Tribunal for Rwanda (ICTR) and the Special Court for Sierra Leone (SCSL), the recent foundation of the International Criminal Court (ICC) has been another very important milestone in this process.
The EU is a strong supporter of the ad hoc international tribunals and the ICC. Consolidating the rule of law and respect for human rights, addressing impunity and preventing, resolving and dealing with the consequences of conflicts are fundamental policy priorities of the Union.
In several Common Positions (most recently on 16 June 2003) , the EU has expressed its support for the effective functioning of the ICC and reiterated its commitment to advancing universal support for the Court by promoting the widest possible participation in the Rome Statute. On 4 February 2004, the EU adopted an “Action Plan on the ICC” to follow up on the Common Position, which constitutes a solid basis to further enhance practical initiatives aimed at promoting the ICC.
In 1995, the European Parliament, which has been a consistent supporter of international justice, created a specific budget line to provide technical support to the ad hoc tribunals and setting up of the ICC. The longstanding support provided under EIDHR to civil society initiatives aimed at promoting international justice has played an important role in accelerating the setting up of international tribunals and the ICC. EIDHR support worldwide has mainly focused on projects to train and raise awareness amongst key actors such as Parliamentarians, civil society activists, government officials, lawyers and the military.
From 2002 to 2004, EIDHR has provided ¤18,6 million to projects in support of international justice worldwide, making the EU the single-most important donor in this field.
2.1.4 Thematic priority 4: combating racism and xenophobia, and discrimination against minorities and indigenous peoples
2.1.4.1 Racism and discrimination of minorities
The most common problems encountered by minorities are racism on the part of the majority population; discriminatory treatment from institutions, particularly at the local level; educational and cultural disadvantage; and an unsatisfactory level of participation in decision-making and economic prosperity. Some communities, like the Roma, even experience social and economic exclusion. Caste-discrimination is a major source of human rights violations in South Asia. Minorities’ issues can entail a threat to peace and stability when they translate into nationalistic tendencies, or when peaceful coexistence with the mainstream population, or between different minorities, can no longer be ensured.
The Convention on the Elimination of Racial Discrimination provides for a wide range of action to combat discrimination, including legislative, policy and educational measures. The World Conference Against Racism, Racial Discrimination, Xenophobia and Related Intolerance of 2001 served to reinforce the international community’s response to the issue with the adoption of a wide-ranging Declaration and Plan of Action. The UN Committee for the Elimination of Racial Discrimination and the Special Rapporteur of the Commission on Human Rights on contemporary forms of racism, racial discrimination, xenophobia and related intolerance also make a valuable contribution in this field.
The European Union is committed to combating racism, racial discrimination and xenophobia in all forms. Article 13 of the Treaty establishing the European Community and Article 29 of the Treaty on European Union specifically mention the fight against racism and discrimination, while the Charter of Fundamental Rights of the European Union reaffirms the prohibition on discrimination on grounds of sex, race, colour, social or ethnic origin, genetic features, language, religion or belief, political or any other opinion, membership of a national minority, property, birth, disability, age or sexual orientation. The Charter guides EU actions in its external relations.
Several projects aiming to contribute to the implementation of the Programme of Action adopted in Durban in September 2001 were supported under EIDHR. Attention was also paid to the issue of caste discrimination. National initiatives were also supported to prohibit racism and promote effective action where discrimination occurs.
As regards minorities, numerous projects aiming at better promotion and improved enforcement of the rights of persons belonging to minorities were supported, as were those targeting better inter-cultural and inter-ethnic understanding. EIDHR support has mainly sought to raise public awareness of minority rights, improve media representation and enhance the capacity of anti-discriminatory bodies, ombudspersons concerned with the rights of minorities and equal opportunities institutions.
From 2002 to 2004, the EIDHR has provided over ¤ 20 million to projects aimed at fighting racism and discrimination and promoting the rights of minorities.
2.1.4.2 Support to indigenous people
At least 350 million people worldwide are considered to be indigenous. Many of these people confront difficulties such as threats to their historical territories, land and resources, discrimination and the erosion of their cultural or linguistic identity.
The rights of indigenous people aim to ensure the autonomy as well as the cultural and physical survival of indigenous people as distinct people. Such rights are enshrined in several international conventions (ICCPR, CERD, the UN draft Declaration on Indigenous Peoples’ Rights, the ILO Indigenous and Tribal Peoples Convention, the Convention on the Rights of the Child) and mechanisms (the UN Working Group on Indigenous Peoples’ Issues, the UN Permanent Forum on Indigenous Peoples’ Issues and the UN Special Rapporteur on the Rights of Indigenous People). Other instruments, such as the Rio Declaration, Agenda 21 and the Convention on Biodiversity, have established international legal standards for the protection of the traditional knowledge of indigenous peoples in the field of the exploitation and protection of the environment.
The EU has expressed its commitment to promoting the rights of indigenous people through the adoption of a Council Resolution in 1998 and Council conclusions in 2002 . The Commission has adopted several documents tackling different aspects of indigenous peoples’ rights, such as the 2001 Communication on Human Rights, the 2003 Communication on the Implementation of the Bonn Guidelines and the 2003 Communication on Land Tenure.
EIDHR has provided support to projects aimed at promoting the rights of indigenous people during the period 2002-2004. EIDHR projects mainly aim to empower local indigenous communities and raise awareness on indigenous people’s rights at the international level.
Over ¤ 13 million have been allocated under the EIDHR to projects aiming to promote the rights of indigenous people in 2002-2004.
2.1.5 Topical human rights issues not included in an EIDHR thematic priority
2.1.5.1 Rights of the Child
In spite of almost universal adherence to the Convention on the Rights of the Child (CRC), violations of those rights are documented across the globe. The Declaration and Plan of Action adopted at the UN General Assembly Special Session on Children (UNGASS) in May 2002 is testament to the huge number of challenges facing States in realising children’s rights, and a tacit acknowledgement that many of the previous goals set at the World Summit for Children in 1990 remain unfulfilled.
Specific children’s rights issues have received increasing political and legal attention, such as the issue of children and armed conflict, which has led to the entering into force in 2002 of the Optional Protocol to the CRC on the Involvement of Children in Armed Conflict. The UN Security Council has adopted several resolutions and debated the Secretary General’s annual report on this issue. The Secretary General’s fourth report on children and armed conflict which was released in November 2003 includes an updated list of parties recruiting or using children as well as an additional list of parties recruiting children in conflict situations which are not on the agenda of the Security Council.
The EU has taken a strong lead on the promotion of children’s rights in international fora. On 8th December 2003, the Council adopted EU Guidelines on Children and Armed Conflict . The Guidelines constitute a commitment to use the tools at the EU’s disposal to address the impact of armed conflict on children, including through monitoring and reporting by EU Heads of Mission, démarches, political dialogue, multilateral co-operation and crisis management operations.
The Commission Communication of 2001 “mainstreamed” children’s rights in all thematic priorities pursued under the EIDHR, requiring all proposals to demonstrate that they had taken the issue into account. However, mainstreaming has not resulted in the disappearance of specific projects addressing important aspects of children’s rights. For example, funding has been provided under EIDHR to projects on the death penalty, which include efforts to improve juvenile justice. The EIDHR has also supported several major projects with UNICEF with the goal of advancing children’s rights.
2.1.5.2 Trafficking of human beings
Trafficking of human beings, in particular women and children, is a human rights problem of global proportions. Leading NGOs working in this field have documented trafficking in every continent, for the purposes of cheap labour, forced prostitution, other sexual exploitation and the drugs trade. The European Union is also a major market for trafficked individuals.
There is no shortage of international and regional commitments to combat trafficking. Examples include the Convention on the Elimination of all Forms of Discrimination Against Women, the Convention on the Rights of the Child, supplemented by an Optional Protocol regarding the Sale of Children, Child Prostitution and Child Pornography and the Protocol to the UN Convention Against Transnational Organised Crime to Prevent, Suppress and Punish Trafficking in Persons, Especially Women and Children. Regional initiatives to combat trafficking include the Brussels Declaration of September 2002, the Libreville Declaration of February 2003 regarding trafficking in Central and Western Africa and the OSCE’s Anti-trafficking Action Plan, adopted in July 2003.
The EU has pursued actively the fight against trafficking with specific EU legislation and programmes including STOP I and II and AGIS.
Given the existence of specific instruments aimed at addressing the issue in all its dimensions, limited support has been extended under the EIDHR to projects tackling trafficking. The EIDHR programming document for 2004 identified trafficking in human beings as a regional priority for Asia and Western Africa.
2.1.6 Human rights dialogues
The EIDHR has been used to underpin the two structured EU Troika human rights dialogues which the EU has engaged with China and Iran.
2.1.6.1 China
In 1996, the EU decided to engage in a structured dialogue on human rights with China. Opening a Human Rights dialogue was assessed to be the best opportunity to contribute to bringing about concrete improvements in the promotion and protection of human rights and fundamental freedoms in China. The dialogue has provided with a valuable forum to exchange views on issues of concern, expose Chinese policy-makers to international human rights standards and EU practices and identify concrete co-operation projects.
EIDHR has provided funding to the setting up of an “EU-China Network for the Ratification and Implementation of International Human Rights Covenants”. This network has organised regular human rights legal seminars which have helped underpin the official EU-China human rights dialogue.
Over ¤ 2,2 million under the EIDHR have been allocated to the EU-China Network for the Ratification and Implementation of International Human Rights Covenants in 2002-2004.
2.1.6.2 Iran
In 2002, the EU decided to engage in a structured human rights dialogue with Iran, in addition to efforts undertaken with respect to the negotiation of a political agreement and a trade and co-operation agreement with the country. From the outset the EU made it clear that the deepening of economic and commercial relations between the EU and Iran should be matched by similar progress in all other aspects of the relationship. The EU was expecting significant positive developments on human rights, non-proliferation, terrorism and the Middle East Peace Process. The situation of human rights in Iran is therefore one of the factors which will determine future progress in EU-Iranian relations.
From 2002 to 2004, EIDHR has been used to fund the participation of EU and Iranian civil society representatives in the round-tables organised as part of the EU-Iran Human Rights dialogue. In 2003, it was decided to extend this funding to a number of accompanying ad hoc activities which would aim to promote the implementation and ratification of key UN human rights instruments and strengthen the rule of law.
Over ¤ 4 million have been allocated under the EIDHR to activities aimed at supporting the EU-Iran Human Rights Dialogue in 2002-2004.
2.1.7 Regional priorities
The EIDHR has identified focus-countries and thematic priorities on the basis of an assessment of country situations and while taking into account the action of other EC geographical instruments. EIDHR support has materialised according to the following broad regional priorities:
2.1.7.1 South Eastern Europe
The region is still recovering from the legacy of its recent wars. EU policy towards the Western Balkans is anchored in the Stabilisation and Association Process (SAP), which is designed to promote peace and stability, and help the countries of the region prepare for future EU membership. But the pace of movement towards the EU ultimately depends on each country’s performance in implementing necessary reforms and respecting the Copenhagen Criteria and the SAP conditionality (respect for democracy, the rule of law and human rights, including the rights of minorities).
To assist the countries of the region, the EU is deploying a wide range of instruments and working closely with other key players and international organisations in the region. Since 1991 the EU has provided more than ¤7 billion in assistance, while the current (2000-2006) CARDS programme, amounting to ¤4.65 billion, allocates significant resources on strengthening institutions and building administrative capacity particularly in the area of justice and home affairs.
EIDHR has sought to complement support and actions under the CARDS programme to help change mentalities, promote tolerance, respect for human rights and ensure ethnic and religious coexistence. Given its limited resources, the EIDHR has concentrated on a few priorities, such as combating racism and xenophobia and discrimination against minorities. Support has also been given to the freedom of the media and the fight against ill treatment and impunity.
EIDHR has channelled funds to grass roots projects in Serbia and Montenegro and Bosnia and Herzegovina. A regional project with the Council of Europe, which includes activities focused on democracy and the rule of law, is also ongoing. EIDHR also funds the Sarajevo-based Human Rights Masters programme which, annually, educates 35 local students and future leaders to work for the full realisation of human rights in the region.
2.1.7.2 South Mediterranean and Middle East
The situation with respect to human rights and democratisation in the South Mediterranean and Middle East is varied and complex. Whilst some countries are engaged in processes of reform, studies such as the UNDP’s Arab Human Development Reports have identified certain broad regional trends, pointing in particular to a general absence of democratic governance and meaningful political participation, and deficits in freedom and the empowerment of women. In addition, shortfalls in the full protection of civil and political rights, such as freedom of association and expression, can be felt keenly by non-governmental organisations, and in particular those working on human rights issues, which can face legal and administrative constraints, and sometimes repression.
In May 2003, the Commission adopted a Communication on “Reinvigorating EU Actions on Human Rights and Democratisation with Mediterranean Partners” which set down a comprehensive framework for pursuing actions on human rights and democratisation in the region, including within the framework of the EIDHR. The promotion of human rights and democratisation issues is also an integral part of the New Neighbourhood Policy and EU regional strategy towards the wider Middle East.
In 2002-2004, EIDHR “focus countries” in the region were Algeria, Tunisia, the West Bank and Gaza and Israel. Funds were directed toward detailed country-specific priorities and the micro-project facility was made available in these Delegations. In addition, in 2004, the micro-project facility was extended to Egypt, Lebanon, Syria, Jordan and Morocco. On the regional level, from 2002 to 2004 EIDHR has predominantly supported projects working to advance the human rights of women. It has become clear that this is a crucial cross-cutting issue for the region and one where regional exchanges can be particularly fruitful. EIDHR has also been used to strengthen the capacity of civil society, through the creation or consolidation of networks of NGO operators working in specific areas such as freedom of association or expression, or the rights of vulnerable or disadvantaged groups.
2.1.7.3 NIS countries
The 12 states which emerged following the disintegration of the Soviet Union face a number of common challenges. Effective implementation of legislative reforms needs to be ensured; NGOs still fail to significantly influence policy-making; there is a general lack of awareness among the population of political and civil rights; harassment of journalists and limitations on freedom of expression are all too frequent.
The EU has entered into Partnership and Co-operation Agreements (PCAs) with most of the NIS countries. In addition to dialogue on trade and economic issues these PCAs have been instrumental in initiating political dialogue on democracy and human rights issues. The main instrument for financial support is technical assistance under TACIS. A recent Commission Communication underlines that the EU-Russia partnership must be founded on shared values.
Since all of the NIS countries are members of the OSCE, the EU attaches great importance to using this organisation as a vehicle to promote human rights in this region. This is particularly relevant for the Central Asian states and Belarus since these countries do not belong to the Council of Europe. The other countries have all become Council of Europe member states and thus undertaken to fulfil a number of human rights obligations.
During 2002-2004 there have been three focus countries in the region: Georgia, Russia, and Ukraine. Taking into account TACIS actions (notably projects aimed at strengthening the Rule of Law or addressing trafficking in human beings), a number of country-specific priorities were identified, which materialised in targeted projects in combination with micro-projects managed by each respective Delegation. Among activities financed the following can be highlighted: human rights training for the judiciary and prosecutors; implementation of the Council of Europe Media Action Plan (Ukraine), anti-corruption activities (Georgia) and support to ombudsman institutions (Russia).
Regional activities in four of the Central Asian states were also financed jointly with OSCE/ODIHR, notably with a view to promoting fair trials, death penalty abolition activities, human rights monitoring and enhancing civic dialogue.
2.1.7.4 European Neighbourhood Policy
The enlargement of the EU has created new challenges and given the EU an opportunity to enhance relations with its neighbours on the basis of shared values. In November 2002, the Copenhagen European Council agreed that the Union should avoid drawing new dividing lines in Europe and promote stability and prosperity on both sides of the new borders. Relations with Russia, Ukraine, Moldova, Belarus, the Southern Mediterranean and the South Caucasus should therefore be strengthened, based on a long-term approach promoting reform, democracy, sustainable development and trade.
The establishment of functioning democratic institutions, respect for human rights and the rule of law are necessary prerequisites to economic reform. The Commission is drawing up action plans for the first wave of neighbouring countries concerned and the EIDHR should be used in complementarity with other budgetary instruments to support relevant chapters of these plans.
2.1.7.5 Asia
Respect for human rights and progress towards democracy follow different patterns from one country to the other in Asia, which make it difficult to identify broad regional trends. Several of the most recent experiences of post-conflict reconciliation and transition to democracy have taken place in Asia while many countries within the region remain some of the world’s major sources of tension, conflict or human rights violations. Common shortcomings remain, such as the weakness of democratic governance and accountability; the persistence of corruption and shortfalls in the protection of civil and political rights which affect the capacity of civil society to grow and play a more assertive role.
The Council has endorsed several Commission communications setting down strategic recommendations for relations with Asia which include a central reference to human rights and democratisation. The promotion of human rights and democracy has been a regular feature of the political dialogue of the EU with Asian countries. The EU has conducted, since 1996, a specific human rights dialogue with China (see 2.1.6). Human rights issues have also been addressed within the framework of ASEM.
During the period 2002-2004, 6 focus countries for EIDHR intervention were identified in the region: Cambodia, China, Indonesia, Iraq, Nepal and Pakistan. Specific priorities were identified for each of these countries. EIDHR support has notably been provided to projects aimed at reinforcing conflict mediation and dialogue (Nepal), promoting children’s rights (Cambodia), promoting the ratification of international human rights covenants (China) or providing human rights training to judges and lawyers (Timor Leste).
2.1.7.6 Sub-Saharan Africa, Caribbean, Pacific
In sub-Saharan Africa, and in most of the Caribbean and Pacific islands which belong to the ACP group, almost half the people live in conditions of absolute poverty. Many of these countries have embarked upon a process of democratisation and made commitments to transparent and accountable governance and respect for human rights. Most notable have been the establishment of an African Court on Human and Peoples’ Rights, the creation of an African Peace and Security Council, and the launch of the Pan African Parliament.
The framework for EU relations with the ACP countries is provided by the Cotonou Agreement. The agreement, which emphasises respect for human rights, good governance, democratic principles and the rule of law, is innovative in that it also establishes special consultation procedures and appropriate sanctions for dealing with human rights violations and corruption. The EU provides development assistance to the 79 ACP countries through the European Development Fund (EDF).
The EIDHR has had a key role to play in underpinning EU support for the strengthening of civil society in ACP countries as the provisions of the Cotonou agreement do not allow the EU to provide direct funding to NGO projects. The overarching priority of regional support under EIDHR for Sub Saharan Africa has been “strengthening the capacity of civil society organizations active in the field of human rights and democratization”. Given the limited resources of the EIDHR, 14 countries out of the 79 ACP countries were chosen on which to focus funds. Support has mainly focused on the strengthening of civil society, the strengthening of the legal system, support to freedom of expression and the media. Other issues which have also been addressed are minorities, governance, torture prevention, human rights education and electoral assistance.
2.1.7.7 Latin America
Democratic institutions in many Latin American countries still remain weak. Groups which have suffered long term discrimination (indigenous peoples, ethnic minorities) are often excluded from the decision-making process. Nepotism, patronage and corruption remain widespread, while access to justice fails adequately to be guaranteed in several countries. Armed violence overshadows the picture and, in spite of several rather successful national reconciliation processes, impunity has never been sufficiently addressed. A dynamic and fairly well-developed civil society and free media are playing an important role in promoting human rights in the region.
The EU and Latin American Countries agreed in 2002 to institutionalise and strengthen further their political dialogue so as to notably address in a more systematic manner issues related to human rights and good governance.
From 2002 to 2004, EIDHR projects have mainly focused on the consolidation of democratic institutions and participation of civil society - including minorities and indigenous peoples - in decision-making processes; the fight against impunity; conflict prevention and the strengthening of the rule of law.
3 PAST SUPPORT, LESSONS LEARNED AND RECOMMENDATIONS
3.1 Financial support from 2002 to 2004
Allocations by thematic priorities (M¤)
DEMOCRATISATION, GOVERNANCE, RULE OF LAW 2002 2003 Anticipated 2004
Strengthening Civil Society 7.850 000 27.322.622 16.680.000
Human Rights Education and Awareness-raising 5.575 971 10.572.551 12.971.250
Freedom of Expression and independent media 396.160 7.268.012 12.971.250
Elections
EU Observations Missions 12.922.877 13.638.647 11.000.000
Training observers & Education 1.737.072 850.000 3.000.000
Rule of Law and institutions 8.902 782 15.632.986 12.971.250
Governance 7.176 938 8.179.895 12.971.250
Conflict prevention / resolution 3.819 454 3.244.080 1.125.000 (1)
Sub-Total 48.381.254 86.708.793 83.690.000
ABOLITION OF DEATH PENALTY 5.197 328 0 (2) 2.000.000
TORTURE, IMPUNITY AND INTERNATIONAL JUSTICE
Torture 14.272 403 0 (2) 16.000.000
International Justice 4.735 939 6.967 504 7.000.000
Sub-Total 19.008 342 6.967 504 23.000.000
RACISM, MINORITIES AND INDIGENOUS PEOPLES
Racism 10.622 939 0 (2) 2.500.000
Minorities 5.792.372 0 (2) 2.500.000
Indigenous Peoples 6.231.573 0 (2) 6.935.000
Sub-Total 22.646.884 0 (2) 11.935.000
CONTINGENCIES 5.225 514 7.272.678 5.000.000
TOTAL 100.459.125 100.948.975 125.625.000
Source: AIDCO-F3
(1) Amount allocated to a pilot-project “Conflict Prevention Network” under budget line 19.04.05
(2) No calls for proposals were launched in 2003
Allocations by geographical scope (¤)
2002 2003 Anticipated 2004
Global projects* 27.423.730 28.728.829 49.125.000
Regional projects 40.278.153 7.842.235 14.820.000
Focus countries 32.757.242 64.377.911 61.680.000
Total 100.459.125 100.948.975 125.625.000
*Global includes all activities in non-focus countries
Allocations by instrument for the selection of projects (¤)
2002 2003 2 Anticipated 2004
Targeted projects 21.429.784 16.915.850 17.685.000
Call for Proposals 51.293.878 40.704.296 72.260.000
Micro-projects 7.850 000 14.600 000 16.680.000
Elections EU Observation Missions 12.922.877 13.638 647 11.000.000
Training for observers/Education 1.737.072 850 000 3.000.000
Contingencies 5.225 514 11.946 811 5.000.000
TOTAL 100.459.125 100.948.975 125.625.000
3.2 Summary of lessons learnt and recommendations
A wealth of experience has been gained in the implementation of the EIDHR:
1. While the programming of the use of funds under the EIDHR has sought to channel resources towards precisely-defined priorities and carefully chosen focus-countries, the implementation of the instrument has been fully reliant upon the capacity of NGOs (and, to some extent, international organisations) to efficiently apply for support and to carry out projects. The selection of targeted proposals has been curtailed through the operation of the new Financial Regulation entered into force in 2003, which has established calls for proposals as the main instrument for identifying implementing partners.
An under-developed civil society, limited implementing capacity and difficulties in formulating applications according to complex Commission guidelines have led to problems in generating enough eligible project proposals in a number of focus-countries (e.g. Algeria, Cambodia, DR Congo, Eritrea, Ethiopia, Fiji, Haiti, Mexico, Nepal, Rwanda, Sudan, Tunisia, Ukraine, Zimbabwe). As a result of this situation, a great number of regional projects (i.e. projects involving at least two focus-countries) have been funded in the last two years. An increased number of small-scale projects have also been funded in focus-countries through the setting up of human rights projects facilities in Delegations of the Commission.
Particular problems have ensued from the selection of focus-countries in the past, including a clash of priorities in the decision-making process, a greater number of “worthy causes” than available funds and problems in articulating fully to the public the reasons for selection. The regular updating of the EIDHR programming has been a rather time-consuming and restrictive procedure allowing for marginal adjustments only.
Difficulties in identifying projects in some focus-countries and pressure to support initiatives in a number of countries which had been identified as focus-countries have cast some doubts on the efficiency of the ‘”focus-country” approach. This approach, combined with the limited amount of funds earmarked for contingencies, has not allowed the EIDHR to come up with the resources necessary to respond to a number of urgent and unforeseen needs in several countries. Difficulties in identifying projects under the focus-countries approach may have led to a situation where a disproportionate emphasis was given to the commitment of funds.
The EIDHR micro project facilities, whilst time-consuming for Commission Delegations from a management point of view, have been unanimously acknowledged as particularly well suited to the achievement of policy objectives at the grass roots level.
The great number of projects funded at all levels, while ensuring diversity, has not necessarily allowed the improved level of impact sought. In this regard, many observers have taken the view that a greater impact could be achieved by concentrating efforts towards similar objectives at the different available levels.
Recommendations:
- program the use of EIDHR funds for a limited period of two years (2005-2006) without envisaging any updating (unless in exceptional circumstances);
- shift away from “focus countries” to a “focus on countries”;
- pursue objectives through thematic campaigns;
- increase the allocation for contingencies;
- establish EIDHR micro-projects facilities in all Delegations of the European Commission in third countries;
- establish clear criteria for the selection of countries eligible for support under the EIDHR.
2. The EIDHR has, in some instances, funded projects at the global, regional and local level without always ensuring that such initiatives are inter-connected, complementary or mutually-reinforcing. This has likely led to a certain loss of impact. The EIDHR has not always taken into account the fact that, for cultural or political reasons, some objectives can better be achieved at the regional level than through projects focusing on individual countries. The EIDHR should look for more consistency in the objectives it pursues at different levels. It should maximise its impact in particular by generating regional dynamics on some issues (e.g. international justice, the death penalty, the fight against torture).
To date, 69% of the implementing partners of the EIDHR are NGOs based in the North. Experience suggests that having the responsibility for managing a project not only has advantages in terms of ownership and credibility, but is also a very valuable opportunity to acquire know-how. On the other hand, when an organisation manages more activities and funds that befit its capabilities, this leads to poor management, poor performance and poor impact. Identifying different levels (global – regional – local) in the implementation of EIDHR campaigns may hopefully encourage a de facto distribution of labour whereby NGOs based in the North concentrate on global and regional initiatives while local NGOs focus on local projects.
Cost-effectiveness, operational synergy and exchange of know-how should also be sought between EIDHR projects pursuing different, yet potentially complementary objectives.
Recommendations:
- concentrate EIDHR resources on achieving a limited number of campaign objectives consistently pursued at the local (national), regional and global level;
- support regional initiatives to achieve objectives identified as being particularly achievable through a regional approach;
- encourage, wherever possible, operational synergies and exchange of know-how between NGOs from the North and the South on joint, complementary and mutually-reinforcing projects.
3. A great number of the priorities addressed under the EIDHR coincide with EU Common Foreign and Security Policy (CFSP) human rights priorities defined in common positions, conclusions, guidelines or action plans. The EIDHR has sought to underpin EU human rights policy objectives while aiming to operate according to a logic of its own (e.g. provide support to projects which would not have been agreed directly with governments; focus on civil society capacity-building rather than government-driven initiatives etc.) and maintaining an appropriate inter-institutional division of roles in decision-making. This balance has allowed the instrument to maintain a high degree of attractiveness, credibility and efficiency.
The EIDHR has tried to operate in a complementary manner with EC geographical co-operation programmes and other policy instruments. However, given the different objectives and dynamics of the EIDHR and of these instruments, the need for complementarity should probably not be over-emphasised. EIDHR has, for instance, taken into account the existence of an increasing number of Rule of Law programmes funded under geographical budget lines to reduce emphasis on this particular priority. The setting up of specific instruments (in which human rights can be mainstreamed) addressing trafficking in human beings in the NIS has also gradually resulted in a focus from EIDHR on regions which do not benefit from such instruments. As regards emerging EU priorities – for example children and armed conflict – efforts have been made to take stock of existing EC funding programmes in order to identify gaps in provision which the EIDHR is well-placed to address. However, complementarity should not result in the assumption that geographical budget lines should be exempted from investing in the promotion of human rights and democracy as this would be the natural task of the EIDHR. Human rights should remain a key priority on the agenda of National Indicative Programmes to allow for the setting up of government-sponsored projects. The EIDHR should continue to concentrate on the strengthening of civil society and projects where government approval can not be secured or can take time.
The EIDHR has demonstrated a true vocation, in certain circumstances, to follow up on conflict prevention and post-conflict rehabilitation initiatives funded under the Commission’s Rapid Reaction Mechanism (RRM). This has not, however, been sufficiently reflected in the identification of projects. The EIDHR and the RRM should also be able to simultaneously operate hand in hand in some countries.
Recommendations:
- continue to use the EIDHR to underpin, through flanking initiatives, the implementation of EU policy in relation to certain human rights objectives, regions or countries while bearing in mind the limits of complementarity, the need to preserve the instrument’s own operating dynamic and decision-making procedures and to encourage geographical budget lines to address more pro-actively human rights and democratisation concerns;
- use the EIDHR to empower civil society organisations to take over in the implementation of projects originally set up with governments under geographical budget lines;
- concentrate EIDHR action, wherever possible, on the most “sensitive” aspects that mainstream geographical programmes agreed with governments cannot address;
- improve synergy between the EIDHR and the RRM.
4. Several international organisations (UNCHR, UNDP, UNICEF, OSCE/ODHIR, Council of Europe etc.) have over the years expressed strong interest in receiving financial support from the EIDHR and securing a stable and predictable funding. Some of these organisations have expressed interest in being able, through the signing of strategic documents, to anticipate priorities for the co-funding of projects. To date, such documents have been jointly established with OHCHR and UNICEF. These documents can assist in determining areas where more structured, longer-term co-operation under the EIDHR might be pursued. However, they cannot stand as a guarantee of EIDHR funding in any particular year and should not impede the flexibility and responsiveness which must be encouraged for the instrument. The EIDHR should accordingly continue to provide ad hoc support to initiatives which demonstrate synergy with particular EC objectives and which can assist in the realisation of EIDHR objectives. Moreover, international organisations are well-placed to assist in the international aspects of EIDHR projects, with sometimes specific expertise or in support to international instruments or mechanisms.
The EIDHR should seek to work more closely with those regional or sub-regional organisations (SAARC, ASEAN, OUA etc.) on the agenda of which human rights and democratisation issues now occupy an increasingly prominent place.
Recommendations:
- continue strategic dialogue with international organisations to pursue specific projects in the framework of common priorities;
- envisage EIDHR support for projects with international, regional or sub-regional organisations within the campaign structure;
- notwithstanding the above, ensure that the amount of money given to international organisations does not increase significantly, since the instrument must remain predominantly dedicated to supporting NGO projects.
5. Existing structures providing a potential platform for the exchange of information on human rights priorities or projects pursued by EU Member States have not provided the degree of transparency necessary to foster complementarity between EIDHR and Member States’ bilateral initiatives. Despite repeated requests made within COHOM and the Human Rights and Democracy Committee, Member States still do not regularly provide comprehensive and up-to-date information on their own bilateral cooperation priorities. EIDHR campaigns could offer Member States the opportunity to adjust their own strategy and look for greater consistency and complementarity. The establishment of human rights micro-projects facilities in Commission Delegations in third countries should also lead to more systematic co-ordination and burden-sharing at the local level between Member States’ embassies and Commission Delegations.
Recommendations:
- encourage further exchange of information within COHOM and the Human Rights and Democracy Committee on EC and bilateral human rights (thematic and geographical) cooperation priorities;
- encourage further exchange of information between EU missions in third countries on local human rights cooperation priorities.
6. Commission services in Brussels provide regular opportunities for civil society organisations, as EIDHR beneficiaries and implementing partners, to express their views and concerns on the programming and practical implementation of the EIDHR. It is important to make sure that EIDHR programming documents are clearly understood and “owned” by the NGO community.
The process of deconcentration underway and the future development of micro-projects facilities mean that dialogue will need to be further enhanced at the local level. Delegations of the Commission in third countries should seek the input of local NGOs on the choice of priorities for, and implementation of, EIDHR campaigns. Such input should also be sought for the identification of priorities for the use of funds under local micro-projects facilities.
Recommendations:
- organise regular exchange of views on EIDHR campaigns and local priorities with local NGOs in Delegations of the Commission in third countries;
- encourage Delegations to organise local training in EC call for proposals’ applications and procedures;
- organise yearly regional EIDHR conferences involving NGOs (beneficiaries and potential beneficiaries) to exchange views on EIDHR priorities, geographical focus and practical implementation.
7. The European Parliament has been a keen supporter of the EIDHR and exchanges of views regularly take place with Members of the Parliament. The Parliament should be encouraged to continue providing its input and comments. Some form of more systematic and regular “structured dialogue” should be envisaged to that end.
Recommendations:
- hold regular meetings on the EIDHR with competent committee members of the European Parliament;
- encourage the Parliament to raise awareness about EIDHR campaigns in its reports, resolutions, statements and visits.
8. Making a clear assessment of the impact of EIDHR projects on the ground is not easy. Establishing performance indicators to assess the outcome and impact of EIDHR-funded activities is a particularly difficult exercise. It is rare that a single project can claim credit for clearly measurable progress in the field of human rights and democratisation, where the action of other donors, social change and political reform obviously play a key role. Constant feedback from the participants and beneficiaries of individual projects helps to inform on the strengths and weaknesses of the EIDHR and makes it possible to extrapolate conclusions. Asking organisations seeking EIDHR support to identify clear benchmarks and expected results for each project can also be helpful to assess the impact of these projects ex post.
Recommendations:
- emphasise the importance for NGOs seeking EIDHR support to identify their own benchmarks and expected output in their applications;
- seek more regular feedback from participants in, and beneficiaries of, EIDHR projects;
- identify indicators to assess the implementation of EIDHR campaigns.
9. The EC, through the EIDHR and mainstream geographical co-operation, is the world’s most important donor in the field of human rights and democratisation. EIDHR has pioneered a new approach within the community of donors to supporting human rights initiatives. However, a certain deficit of visibility in the EIDHR has not allowed the instrument to promote EU visibility as a whole. The programming documents of the EIDHR remain obscure for people not associated with their production, in particular local NGOs. It has proven particularly difficult to explain what the consequences of not being an EIDHR “focus-country” were, as well as to explain why countries where unexpected crisis situations or major human rights violations occurred after the identification of focus-countries could not be added to the list. The successive release of calls for proposals focusing on specific countries has not made it easy to give a coherent “corporate image” to the EIDHR.
The simultaneous launching of calls for proposals under the well-identifiable heading of coherent campaigns should attract further NGO and media attention. It should be easier to orchestrate some sort of publicity using the campaign structure.
Recommendations:
- launch one single call for proposals to identify projects under the same campaign;
- encourage Delegations of the Commission to launch local calls for proposals under their micro-projects facilities at the same time as campaign calls in Brussels;
- use the launch of campaigns to attract media attention both at Headquarters’ and Delegations’ levels;
- share EC experience in the setting up of EIDHR and micro-project facilities with third donors.
4 THE RESPONSE STRATEGY
4.1 The overall structure
Pursuing increased visibility of the available European Community aid and securing appropriate sustainable impact of the funds allocated in support of human rights and democratisation projects in third countries, the EIDHR in 2005 and 2006 will focus on a limited number of defined campaigns within the framework of the priorities developed by the legal bases and the Commission Communication on the EU’s role in promoting human rights and democratisation in third countries .
A campaign is the simultaneous action of several actors under one theme in identified countries. Individual projects within the same campaign are selected so as to be mutually reinforcing and form part of a coherent effort to promote policy objectives. Each campaign combines, wherever possible, support at global, regional and country levels.
The identification of a limited number of campaigns aims to give increased visibility, simplicity and coherence to the EIDHR. Different themes have therefore been gathered, on the basis of the proximity of the overall objectives they seek to address, under the umbrella of four distinct campaigns.
Individual projects under each campaign will be able to focus on a single aspect of the campaign if they wish so. Projects will be assessed on the basis of their own merits. However, the Commission will also, wherever possible, seek to select individual projects under each campaign with a view to compose a coherent, mutually reinforcing and comprehensive package of projects aiming to achieve the same objective at different levels. The Commission will seek to ensure that each campaign comprises at least one project under each – global, regional and local – level.
A global project, under the EIDHR definition, is a project involving participation of countries from at least two of the regions eligible for support under a given campaign.
Support at the global level will particularly concentrate on issues of global concern on which the EU is keen to promote a well-established vision of its own (e.g. on the death penalty, the fight against torture, international justice).
A regional project under the EIDHR involves participants from at least two countries eligible for individual support under a given campaign.
The EIDHR will seek to encourage regional projects on issues where past experience has demonstrated that a trans-national approach is helpful to generate exchange of experience or trigger useful political synergies.
A local project under the EIDHR focuses on one single country eligible for individual support under a given campaign.
The impact of the EIDHR will be best achieved when different NGOs from a country eligible for individual support have received support for projects addressing the same issue at the global, regional and local level (e.g. an NGO from China has received support to organise or take part in a global project on the death penalty, another NGO has received support for a regional project, and a third for a local project, thus ensuring that the issue of the death penalty in China has been addressed at different levels and under different perspectives).
4.2 Selection of countries eligible under EIDHR campaigns
The identification of countries where EIDHR campaigns will concentrate their action will take into account the following criteria:
- the situation of human rights and democracy in the country concerned;
- the existence of autonomous civil society organisations or their potential emergence;
- the influence of civil society organisations on the shaping of the human rights and democratisation agenda;
- the absorption and implementation capacity of existing NGOs;
- the action - planned or underway - of other EC instruments;
- the support already provided by EU Member States, international organisations and third countries;
- political commitments of the EU (common positions, action plans, guidelines etc.);
- views expressed by the European Parliament and the NGO community.
The Commission has identified lists of countries eligible for EIDHR support at the regional or local level. Only eligible countries or regions (defined as groupings of eligible countries) can receive EIDHR funding. The Commission does not commit itself to funding projects in all eligible regions or countries.
4.3 EIDHR performance indicators
A set of indicators has been identified for each campaign to assess performance in the implementation of the EIDHR. Such indicators do not aim to assess the impact of projects on the human rights situation on the ground. EIDHR applicants are expected to provide with their own project impact indicators.
4.4 Implementing instruments
The campaigns will be implemented on the basis of calls for proposals, targeted projects and micro-project facilities.
Geographic balance should be sought through calls for proposals in granting funding for NGOs from the North and the South, from industrialised and developing countries, drawing on the particular strengths of each. NGOs from the North should be encouraged to work together in partnership with local NGOs in the implementation of projects.
The use of targeted projects has been curtailed through the operation of the new Financial Regulation, which specifies that calls for proposals must be the prime instrument for identifying implementing partners. Exceptions to this rule are very limited in scope, so that it is exceedingly difficult to support targeted projects when the implementing partner is not a State body or an international organisation.
EIDHR micro-project facilities have been recognised as an effective and valuable instrument to support human rights and democratisation activities in third countries. These facilities have significantly contributed to an extended reach within local civil societies and enhanced EU visibility. They have played a significant role in capacity-building. Micro-project facilities concentrating on priorities identified within each Delegation have provided an important element of flexibility to the EIDHR.
Within the thematic framework of each campaign, the micro-project facility will be open to all deconcentrated Delegations of the European Commission (see 4.6 below). EIDHR micro-project facilities have a dual aim: they should underpin EIDHR campaigns by funding projects falling broadly within the scope of EIDHR campaigns, and should also be able to address specific local priorities not necessarily identified within such campaigns (i.e. provide additional flexibility in the EIDHR).
4.3 Overarching objectives of the 2005-2006 programming
The 2005-2006 programming of the EIDHR will seek to:
- achieve a certain balance between projects concerning human rights and those relating to democratisation;
- support more projects aiming to promote the emergence and strengthening of civil society and help it to become an influential actor in the realm of public decision making;
- encourage projects which underpin the policy objectives of the EU or international community initiatives which are supported by the EU;
- encourage the mainstreaming of gender issues, children’s rights and the rights of vulnerable groups in EIDHR projects;
- underpin the conflict prevention strategy of the EU.
4.3 Thematic focus
Within the programming period 2005-2006, four campaigns will be implemented. These are:
– Promoting Justice and Dignity;
– Fostering a Culture of Human Rights;
– Promoting the Democratic Process;
– Advancing Equality and Combating Discrimination.
The structure and content of each campaign, its objectives and the results which it seeks to achieve are explained below.
4.3.1 Campaign 1: Promoting Justice and Dignity
The campaign takes up the issues of international criminal justice, of access to justice and promoting the rule of law, of combating torture and rehabilitating its victims, and of supporting activities aiming at the abolition of the death penalty. On all these issues, the EU has an established policy framework established by Guidelines, Common Positions and “Action Plans” which contribute to shaping the content of the campaign.
EIDHR support should work towards promoting the efficient functioning of international criminal tribunals (International Criminal Tribunal for the former Yugoslavia, International Criminal Tribunal for Rwanda, Special Court of Sierra Leone, Special Khmer Rouge Chambers of Cambodia) and the International Criminal Court. Efforts towards the ICC will concentrate on promoting universal adherence to the Rome Statute; strengthening the judiciary at the local level; and enhancing public perception and awareness.
Activities in support of the ICC need to match the emerging needs of the Court as a fully operational organisation which has started its investigations on the ground. Particular attention should be paid, in this respect, to the support which could be provided to ensure the implementation of the complementarity principle, according to which national jurisdictions have primary competence to investigate and prosecute crimes under the Rome Statute.
EIDHR support under this campaign will also seek to promote access to justice and the independence of the judiciary. Support will be provided to projects aiming to encourage independent, professional and accessible judicial institutions to play a key role in enforcing human rights.
Within the framework of the campaign, support will focus equally on measures aimed at preventing torture and on assisting rehabilitation centres for victims of torture inside and outside the European Union. In relation to the prevention of torture, education, training and awareness-raising of key personnel remains a core target alongside activities promoting support for international instruments and mechanisms designed to prevent torture. The conditions for granting assistance to rehabilitation centres for torture victims shall discourage a dependency of the centres on EIDHR funding.
Given the large number of actors engaged in supporting anti-torture training processes in several countries, efforts should be made to ensure that the EIDHR avoids supporting initiatives which duplicate existing training programmes. Synergy, wherever appropriate, should be looked between the instruments used for the rehabilitation of torture victims and the rehabilitation of victims of trafficking in human beings.
The campaign will aim to support the signature, ratification and implementation of the Optional Protocol to the Convention Against Torture. In light of the existence of a highly-regarded visiting mechanism in the framework of the Council of Europe, EIDHR efforts should focus on increasing support for the Optional Protocol in other regions of the world.
The campaign will aim at financing, at country level, activities which aim to raise awareness; monitor the conditions of implementation of the death penalty; provide specialised legal assistance in cases of particular concern and promote legal reform. Since states which maintain the death penalty frequently point to public opinion favourable to capital punishment, further efforts should be made to raise awareness among decision makers and the general public of the adverse effects of the death penalty. In particular, lobbying and advocacy work should be supported. In view of the previous positive effects of supporting access to legal assistance for death row prisoners, such actions should also be financed under the EIDHR.
Campaign objectives:
- support the effective functioning of international criminal tribunals addressing genocide, war crimes and crimes against humanity;
- raise public awareness and secure co-operation from national authorities concerning the operation of such tribunals;
- promote further adherence to the Rome Statute establishing the International Criminal Court;
- provide legal expertise to implement the Rome Statute into national legislation;
- raise awareness about human rights among judges, lawyers, prosecutors and law enforcement officers;
- support initiatives aimed at promoting the independence, impartiality, professionalism and accessibility of the judiciary;
- promote judicial reform at the grass-roots level and the independence of the judiciary;
- promote the signature, ratification and implementation of the Optional Protocol to the UN Convention against Torture;
- support activities aiming to prevent incidences of torture including the training of key personnel, awareness-raising and lobbying activities, the tracking of the supply of torture instruments, research into and denunciation of torture practices;
- support activities aimed at the rehabilitation of torture victims;
- support activities to increase public awareness concerning EU views on the death penalty;
- enable advocacy for a progressively restrictive use of the death penalty and the application of minimum international standards in those countries which still apply capital punishment;
- enhance transparency on the issue and improve the monitoring of the conditions of implementation of the death penalty;
- raise awareness about the death penalty among opinion-makers in view of ratification of the Second Optional Protocol to the ICCPR;
- provide specialised legal assistance in cases of particular concern.
Geographical focus:
The EIDHR campaign on “Promoting Justice and Dignity” will support projects at the global level. It will seek to identify regional projects in the Southern Mediterranean and Middle East, Asia, Central Asia, Latin America, the Southern Caucasus, Sub-Saharan Africa and the Western Balkans.
The following countries will be eligible for individual country support under the campaign:
International Criminal Justice:
Cambodia, Chile, China, Colombia, India, Indonesia, Mexico, Russia, Randa, Sierra Leone, Turkey, Ukraine
Rule of law:
Colombia, Russia, Venezuela, Georgia
Torture:
Bangladesh, China, Colombia, DR Congo, Egypt, Moldova, Morocco, Nigeria, Peru, Russia, Serbia/Montenegro, Turkey, Uzbekistan
Death penalty:
China, Laos, Philippines, Russia
Campaign indicators:
- Support provided to at least two projects at the global level involving, together, all regions selected for regional support;
- Support provided to at least two regional projects;
- Support provided to at least five individual country projects;
- At least ten countries eligible for individual support have received support for projects addressing the same issue at the global, regional and local level;
- At least 50% of the number of direct beneficiaries are NGOs from the South;
- All campaign objectives covered at the global, regional or local level.
4.3.2 Campaign 2: Fostering a Culture of Human Rights
The campaign focuses on empowering individuals and civil society in relation to human rights issues through education and training, including on issues such as children’s rights and children and armed conflict and the strengthening of women’s rights. The campaign addresses the issue of conflict prevention and post-conflict reconciliation. It is aimed at enabling effective advocacy for human rights through civil society capacity-building.
Civic education initiatives shall be encouraged especially for vulnerable groups. Dissemination of information on human rights shall particularly aim at reaching remote areas and being readily understood by the most disadvantaged members of society. A multiplier effect shall be developed through support to establishing links between different networks involved in human rights education projects and by encouraging institutional sustainability whereby trained individuals themselves become human rights trainers in an autonomous fashion (“training the trainers”).
The campaign will seek to promote advocacy, awareness-raising and training in the field of children and armed conflict relating to the signature, ratification and implementation of relevant international instruments and commitments, including the Convention on the Rights of the Child and its Optional Protocols, and the Plan of Action agreed at the UN Special Session on Children in May 2002.
The campaign will provide support to initiatives aimed at promoting the rights of women, notably through awareness raising and education.
Within the framework of the campaign, particular attention will be given to the transfer of experience in the ratification and implementation of international human rights instruments. The campaign will notably aim to provide a space for a non-confrontational exchange of views in support of the human rights dialogues engaged with third countries (China, Iran).
The EIDHR will also provide support to programmes of higher education and training for professionals active in the field of human rights and for those whose professional activity has an impact on human rights. Supporting the European Masters’ Degree in Human Rights and Democratisation (EMA), and regional Masters Degree in Human Rights and Democratisation in South-East Europe, the Mediterranean, Africa, Asia and Latin America will be particularly relevant in that respect. Networking and co-operation should be strengthened between the different Masters degrees supported under EIDHR (through regular meetings, exchange of staff and students, joint publications, harmonisation of the academic content of the courses) while overall academic coherence should be ensured through the European Master Programme based in Venice, which has given inspiration to the regional Master Programmes.
The campaign will seek to address conflict prevention and post-conflict reconciliation in a way that dovetails better with the Rapid Reaction Mechanism. It will promote initiatives aiming to prevent conflicts and seek post-conflict reconciliation notably through mediation and the training of inter-community “connectors”.
The campaign will seek to encourage the growth and development of accountable civil society organisations and reinforce their ability to research and develop strategies, manage resources, launch advocacy and public information campaigns and engage in activities aimed at enhancing the protection and promotion of human rights, monitoring good governance and combating corruption and providing input into public decision-making.
Campaign objectives:
- support activities aimed at raising awareness and providing education and training on human rights;
- promote the setting up of Masters Degrees in Human Rights and Democratisation;
- raise awareness about children’s rights and the issue of children and armed conflicts;
- raise awareness about women’s rights;
- support initiatives aimed at empowering citizens to take action in defence of their human rights;
- support activities enhancing the capacity of public officials and their commitment to protect human rights and consider the particular situation of vulnerable and disadvantaged groups in society;
- foster the exchange of experience on the ratification and implementation of international instruments (treaties, UN human rights mechanisms etc.);
- support the development of networks of expertise in human rights and democracy;
- promote initiatives in support of conflict prevention or post-conflict reconciliation;
- encourage the setting up, development and strengthening of civil society organisations advocating and protecting human rights.
Geographical focus:
The EIDHR campaign on “Fostering a Culture of Human Rights” will support projects at the global level. It will seek to identify regional projects in the Southern Mediterranean and Middle East, the Western Balkans, the South Caucasus, NIS countries and Latin America.
The following countries will be eligible for individual country support under the campaign:
Education and training:
Afghanistan, Bangladesh, Belarus, Bolivia, Burma/Myanmar, Burundi, Cambodia, China, Colombia, DR Congo, Ethiopia, Guatemala, Indonesia, Iraq, Ivory Coast, Kazakhstan, Kyrgyzstan, Laos, Liberia, Mexico, Nepal, Pakistan, Peru, Philippines, Russia, Sierra Leone, Somalia, Sri Lanka, Sudan, Timor Leste, Uganda, Uzbekistan, Vietnam, Zimbabwe
Empowerment of women:
Afghanistan, Algeria, Bahrain, Bangladesh, Cambodia, Egypt, India, Iraq, Jordan, Lebanon, Moldova, Morocco, Pakistan, Russia, Syria, Ukraine, West Bank/Gaza, Yemen
Conflict prevention:
Afghanistan, Indonesia, Iraq, RD Congo,
Civil society capacity-building:
Afghanistan, Algeria, Bahrain, Bangladesh, Belarus, Bolivia, Bosnia, Burma/Myanmar, Burundi, Cambodia, China, Colombia, DR Congo, Egypt, Ethiopia, Guatemala, Indonesia, Iran, Iraq, Ivory Coast, Jordan, Laos, Liberia, Moldova, Morocco, Nepal, Pakistan, Peru, the Philippines, Russia, Serbia/Montenegro, Sierra Leone, Somalia, Sri Lanka, Sudan, Syria, Timor Leste, Tunisia, Turkmenistan, Uganda, Ukraine, Vietnam, West Bank/Gaza, Yemen, Zimbabwe
Campaign indicators:
- Support provided to at least one project at the global level;
- Support provided to at least two regional projects;
- Support provided to at least five individual country projects;
- At least ten countries eligible for individual support have received support for projects addressing the same issue at the global, regional and local level;
- At least 60% of the number of direct beneficiaries are NGOs from the South;
- All campaign objectives covered at the global, regional or local level.
4.3.3 Campaign 3: Promoting the Democratic Process
The campaign focuses on supporting third countries in developing and enhancing their democratisation process in a number of pivotal areas: elections; good governance; freedom of association; freedom of expression and an independent media. The campaign also addresses the issue of human rights defenders.
Within the framework of the campaign, part of the available support will concentrate on election observation and pre- and post-election assistance. The current model of EU election observation is widely viewed as a credible and effective tool of the European Community’s support to democratisation in third countries. More emphasis, though, shall be laid on the pre- and post-election process to maximise the impact of EU election observation missions. In order to better determine the technical needs well before elections are called, greater use of needs assessment missions will be made. The recommendations made by EU Election Observation Missions shall be considered as an input for further EIDHR programming. Campaign funds shall be available for civic and voter education, training programmes for EU observers, capacity building for domestic observers and the media and enhancing the election observation capacity of regional organisations.
The campaign will support initiatives aimed at promoting good governance and fighting corruption. It will seek to reinforce the ability of civil society organisations to perform a watchdog role on governments.
The campaign will seek to provide support to projects aiming to promote freedom of association, including the free formation of labour unions. Support will notably be provided to initiatives aiming to bring legislative frameworks in line with international human rights and ILO standards; raise awareness of decision-makers and promote the setting up of information networks.
Support will be provided under the campaign to projects aiming to promote freedom of expression. Support will be provided to the development of an independent press and broadcasting, to professionalizing the media, eliminating legal and technical obstacles to the freedom of the press, promoting adequate communication and media legislation and promoting access to, and unrestricted use of, the internet. It may accompany the establishment of viable community media which reach local people and enable marginalised sections of society to gain a voice within that society. There is also a need to assist and encourage independent media organisations which are committed to raising professional standards and to developing professional skills in a self-regulating environment.
The campaign will seek to promote the rights of human rights defenders. It will notably aim to help support, improve the protection and raise awareness about the situation of those who work, at personal risk, to advance human rights through non-violent means. The campaign will support projects aimed at promoting ways to ensure that the fight against terrorism does not hinder the work and safety of human rights defenders.
Campaign objectives:
- promote fair, open, transparent and genuinely competitive elections;
- promote civic education;
- contribute to the development of domestic and regional electoral observation capacity;
- provide training to EU election observers;
- develop and reinforce the capacity of civil society organisations to combat corruption by performing a watchdog role on government;
- promote freedom of association, including the free formation of trade unions;
- raise awareness about freedom of association;
- promote freedom of expression;
- support activities aimed at enabling the media to operate in accordance with international human rights standards;
- support activities aimed at removing undue censorship;
- promote unrestricted access to the information provided through new technologies such as the internet;
- support activities aimed at raising awareness about the value of information for the democratic process;
- assist and encourage independent media organisations which are committed to raising professional standards and to developing professional skills in a self-regulating environment;
- improve the protection and raise awareness about the situation of human rights defenders;
- promote ways to ensure that the fight against terrorism does not hinder the work and safety of human rights defenders.
Geographical focus:
The EIDHR campaign on “Promoting the Democratic Process” will support projects at the global level. It will seek to identify regional projects in the Mediterranean and Middle East, the Balkans, NIS countries and Latin America.
Priority countries for election observation missions will continue to be identified on the basis of criteria set out in the 2001 Communication on Election Observation, completed by the conclusions of the Council Working Group on Human Rights (COHOM) of 19 June 2003. All countries where EU election observation missions are to be carried out in 2004-2006 will therefore be eligible for projects aiming to follow up on observation recommendations in addition to the countries listed under “Elections” below.
The following countries will be eligible for individual country support under the campaign:
Elections:
Afghanistan, Armenia, Azerbaijan, Indonesia, Iraq, Mongolia, Timor Leste
Good governance:
Bangladesh, Belarus, China, Colombia, Moldova, Russia,
Freedom of association:
Burma/Myanmar, China, Iran, Laos, Vietnam
Freedom of expression:
Albania, Angola, Belarus, Burma/Myanmar, China, Colombia, Cuba, DR Congo, Eritrea, Iraq, Ivory Coast, Jordan, Kazakhstan, Kyrgyzstan, Laos, Lebanon, Moldova, Morocco, Mozambique, Pakistan, Russia, Serbia/Montenegro, Sudan, Tajikistan, Ukraine, Uzbekistan, Vietnam, Zimbabwe
Human rights defenders:
Afghanistan, Algeria, Belarus, China, Colombia, Cuba, Egypt, Iran, Iraq, Morocco, Nigeria, Pakistan, Russia, Sudan, Syria, Vietnam, West Bank/Gaza, Zimbabwe
Campaign indicators:
- Support provided to at least two projects at the global level involving, together, all regions selected for regional support;
- Support provided to at least three regional projects;
- Support provided to at least ten individual country projects;
- At least two projects funded which aim to address pre- or post-election concerns;
- At least ten countries eligible for individual support have received support for projects addressing the same issue at the global, regional and local level;
- All campaign objectives covered at the global, regional or local level;
- At least 50% of the number of direct beneficiaries are NGOs from the South.
4.3.4 Campaign 4: Advancing Equality and Combating Discrimination
The campaign focuses on the issue of racism, racial discrimination, including caste discrimination and xenophobia, and the rights of minorities and indigenous peoples. The relevant international instruments and Council conclusions contribute to the shaping of the campaign.
Within the framework of the campaign, support shall be given to activities aimed at allowing people belonging to minorities to organise themselves, promoting the enforcement of their rights, enhancing media representation and building the capacity of anti-discriminatory bodies. A particular emphasis shall be placed on activities targeting a better inter-cultural and inter-ethnic understanding, and the integration of minorities into society.
The campaign’s support to indigenous peoples shall focus on activities aimed at raising public awareness of the situation and living conditions of indigenous peoples, and promoting knowledge and understanding of their rights, in particular the right to live on their proper land. Projects of capacity building in the broader sense shall be encouraged, including enhancing information flows, ad hoc training and workshops for indigenous peoples. Support shall be provided for the preparation and activities of organisations participating in international fora concerning issues of relevance for the future of indigenous peoples, while also encouraging and supporting networking and capacity building of indigenous peoples' organisations at national and regional level. Within the framework of the campaign, cooperation with international organisations will be encouraged.
Campaign objectives:
- support activities aimed at promoting the principle of equal treatment of persons irrespective of racial or ethnic origin and combating caste-discrimination;
- encourage activities which aim to implement the Action Plan of the Durban World Conference against racism, racial discrimination, xenophobia and related intolerance;
- support the enhancement, promotion and enforcement of the rights of persons belonging to minorities;
- support activities aimed at improving inter-cultural and inter-ethnic understanding;
- support activities empowering indigenous peoples to promote and defend their rights;
- support initiatives aimed at enhancing respect for the rights of indigenous peoples at the international level.
Geographical focus:
The EIDHR campaign on “Advancing Equality and Combating Discrimination” will support projects at the global level. It will seek to identify regional projects in Africa (Great Lakes Region), Latin America, South Caucasus and the Balkans.
The following countries will be eligible for individual country support under the campaign:
Racism and discrimination:
Bangladesh, India, Iraq, Nepal, Pakistan, Russia, Vietnam, West Bank/Gaza, Zimbabwe
Indigenous people:
Bangladesh, Burkina Faso, Cameroon, India, Indonesia, Kenya, Laos, Mali, Philippines, Thailand, Vietnam
Minorities:
Algeria, Bolivia, Burma/Myanmar, China, Colombia, Indonesia, Iraq, Laos, Moldova, Philippines, Serbia/Montenegro, Vietnam
Campaign indicators:
- Support provided to at least one project at the global level;
- Support provided to at least three regional projects;
- Support provided to at least five individual country projects;
- At least three countries eligible for individual support have been involved in projects at the global, regional or local level;
- At least 60% of the number of direct beneficiaries are NGOs from the South;
- All campaign objectives covered at the global, regional or local level.
4.4 Election Observation and Assistance
EU Election Observation Missions (EOMs) will continue to be conducted according to the methodology established in the 2001 Communication on Election Assistance and Observation. In particular, the Commission will continue to identify countries as priorities for possible observation missions on the basis of criteria set out in the 2001 Communication completed by the Council Working Group on Human Rights (COHOM) on 19 June 2003. However, the programming of EOMs as well as other EIDHR actions undertaken within the framework of the campaign on Promoting the Democratic Process should seek to be mutually complementary so as to enhance the impact of both. Similarly, once an EOM has completed its work, consideration should be given to how EIDHR through campaign activities or other geographical budget lines can be used to ensure effective follow up (i.e. through the implementation of EOM recommendations).
4.5 Contingencies and allocation criteria
An important element of the response strategy is to allow the European Community to respond to urgent or unforeseen needs which will inevitably arise, and where the EIDHR is the appropriate instrument to pursue objectives in the field. The EIDHR should be able to respond to unexpected international developments such as conflicts leading to human rights violations; national reconciliation or democratisation processes which need to be accompanied or major EU policy developments (new common positions or strategic guidelines) which the EIDHR is in a position to underpin usefully.
4.6 Role of Commission Delegations
The management of a great number of EIDHR projects has been, and will continue to be deconcentrated to Delegations of the Commission in third countries. This should allow for a more efficient delivery of EIDHR support.
As mentioned under 4.2, Human Rights Projects Facilities funded under the EIDHR will be open to all Commission Delegations, provided they:
- have been deconcentrated;
- have the required infrastructure and resources to operate the facility;
- have enough absorption capacity (i.e. have spent funds under previous budgets);
- express an explicit request to benefit from a Human Rights Projects Facility.
Delegations will identify projects to be funded under their Human Rights Projects Facility through local calls for proposals. In order to underpin EIDHR campaigns as well as to allow them to benefit from the publicity of these campaigns, Delegations will be encouraged to make sure that the terms of reference of their calls for proposals fall within the scope of one of the fours EIDHR campaigns. As a matter of exception justified by the opportunity to address specific local priorities not necessarily identified within such campaigns, terms of reference may seek to identify projects falling outside any of the four EIDHR campaigns.
5 MULTI-ANNUAL INDICATIVE PROGRAMME
5.1 The annual budgets
Within the framework of the financial perspective 2000 – 2006, the annual budgets foreseen for the EIDHR in 2005 and 2006 amount to ¤ 106 million, respectively. This amount includes an annual appropriation of ¤ 7 million for technical assistance. Taking into account the percentage share of the programming elements in the total of operational funds available as set out under point 1.4., the annual budgets are configured as follows:
TYPE OF PROGRAMMING ELEMENT PERCENTAGE (%) OF TOTAL OPERATIONAL APPROPRIATIONS ROUNDED AMOUNT (IN ¤ MILLION)
Campaigns (macro-projects)
including micro-project facility
45
30
45.0
30.0
Election observation and assistance
15
14.0
Contingency
10
10.0
Technical Assistance
-
7.0
Total
100
106.0
The two year budget (2005 – 2006) for the campaigns distributes as follows:
CAMPAIGN
(MACRO- AND MICRO-PROJECTS)
BUDGET
2005
(IN ¤ MILLION)
BUDGET
2006
(IN ¤ MILLION)
Promoting Justice and Dignity
17.0
17.0
Fostering a Culture of Human Rights
22.5
22.5
Promoting the Democratic Process
22.0
22.0
Advancing Equality and Combating discrimination
13.5
13.5
Total campaigns
89.0
89.0
The two-year budget for other actions distributes as follows:
TYPE OF ACTION
BUDGET
2005
(IN ¤ MILLION)
BUDGET
2006
(IN ¤ MILLION)
Election observation and assistance 14.0 14.0
Contingencies 10.0 10.0
Technical Assistance 7.0 7.0
Total other actions 31.0 31.0
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