Scandinavian Human Rights Funding:
Scandinavian Funding for Democracy and Human Rights in the
Areas under the Jurisdiction of the Palestinian Authority, 1994-2003
Karin Almbladh
The area under the jurisdiction of the Palestinian Authority
(PA) is a favored recipient of aid from the Scandinavian countries, all of
which have poured large sums of money into the area. The bulk of the aid,
however, has been concentrated on health, education, infrastructure and other
activities designed to promote the social and cultural rights of the
population. At the same time, however, there are gross violations of civil and
political rights, by the PA, violations more or less overshadowed by the peace
process and attention to Israeli violations. As a result, those human rights
NGOs focusing on Israeli violations have received the lion's share of funding.
This is disturbing, given that the majority of Palestinians currently live
under the jurisdiction of the PA. There is an increasing awareness among donor
countries, however, of the troubling situation in the area under the
jurisdiction of the PA. This awareness and the growing interest in building
civil society, supporting democratic institutions, and instituting the rule of
law has led to greater support for NGOs focusing on human rights violations by
the PA.
I. Human Rights and the Criteria for Scandinavian Foreign
Aid
Criteria for aid
The criteria for Scandinavian foreign aid to the PA is
strikingly similar to the criteria for Scandinavian foreign aid in
general. The following areas of interest guide the funding by the various
Scandinavian countries.
- Development of the
social and physical infrastructure in
- Support for
projects promoting employment
- Development of
human rights and democracy
- Support for
activities by Danish NGOs[3]
Social and economic development and democratization are
common concerns of all these countries, although each also has special
interests--women and humanitarian aid for
Although
1. Promotion of
global security
2. Reduction of
widespread poverty
3. Promotion of
human rights and democracy
The promotion of
human rights and democracy is one of the central goals of Finnish foreign and development policy. The universality
of human rights and international human rights agreements, which are binding on
governments, entail that the international community has a legitimate right to
intervene in human rights violations wherever they occur. Intervention in human
rights violations must be consistent and must not be influenced by economic interests.
Finnish human rights policy focuses on the rights and equality of minorities, indigenous peoples, and women and
children, particularly girls. In its development cooperation
4. Prevention of
global environmental problems
5. Promotion of
economic dialogue
To social and
economic development, democratization, and peace,
Human rights
Among the common denominators in these funding priorities
are democracy and human rights. None of the countries, however, specify what is
meant by those expressions. Take the Finnish document as an example:
The promotion of
human rights and democracy is one of the central objectives in
The objective of
promoting human rights and democracy is related to respect for the rule of law
and good governance, and the promotion of social and gender equality.
As a result of the
universal nature of human rights and the international conventions on human rights that bind
governments, the international community has a legitimate right to criticize
violations of human rights in any country or impose commercial and development
cooperation sanctions. As a Nordic country,
Human rights, democracy, the rule of law and good governance
play a central role in the EU's relations with
developing countries. In accordance with a
decision made by the EU Council in 1995, a clause on human rights and democracy is included in all cooperation,
association and free trade agreements
made by the
violations, it is also possible to impose sanctions of
varying degree, ranging from visa restrictions to investment bans and trade
boycotts.
As a rule, the EU includes a clause on human rights in all
trade and cooperation agreements. Actual trade boycotts are seldom resorted to,
as they are not necessarily effective
in achieving the desired goal and may affect other than the targeted parties. Arms export
restrictions and bans are the most
commonly used commercial sanctions.
It is
The key areas of
resources, expertise
and initiative in these issues. In its development cooperation
In order to promote
democracy,
and transparent
political and economic institutions (e.g. developing judicial systems and organizing free elections),
political participation, the evolvement
of civil society and freedom of expression.
Of the various human rights dimensions, the Scandinavian
countries tend toemphasize social, economic, and
cultural rights. This is explicitly stated inthe
Finnish policy-document quoted above but is implicit in the policy-documentsfrom the other countries as well.
II. Statistical Survey of Scandinavian Aid Promoting
Democracy and Civil and
Political Rights in the West Bank/Gaza[7]
The following is a statistical survey of Scandinavian aid
designed to promote democracy and civil and political rights (CPR) in the areas
under the jurisdiction of the Palestinian Authority, put in the context of the
total aid.Civil and political rights are defined by
the International Convention on Civil and Political Rights (ICCPR). Also
included are grants to support the training of the Palestinian civil police
force.
The inclusion of the latter is due to the fact that much
Scandinavian policy ispremised on the view that
government's most important task is to guarantee humanrights
and to protect individuals under its jurisdiction against abuses, by bothpublic and private perpetrators. The police are seen as
the main tool for upholding the rule of law. Accordingly, the training of civil
police occupies a prominent position in Scandinavian aid. The same holds true
for the funding of the Palestinian Independent Commission for Citizen's Rights
(PICCR). Ostensibly designed to serve as a governmental ombudsman (see below),
this would require a mandate from the highest legislative body and a
functioning parliamentary democracy, immunity, and economic independence. Since
these requirements are not met in the case of the PICCR, it has to seek funding
in the same way as do NGOs. While donors recognize that the PICCR is not
formally an NGO, they regard its existence as essential and, therefore, treat
it as one.[8]
1. Bilateral Danish aid promoting democracy and civil and
political rights in
the West Bank/Gaza
Information concerning Danish aid has been gathered from the
official website of
the Ministry of Foreign Affairs, http://www.um.dk/udenrigspolitik/udviklingspolitik/.
At that site, several
documents are published under the heading Dansk udviklingspolitik ("Danish policy for
development"). The following discussion and data are based upon the
following official publications found there:
Program- og projektorientering 1998: Danidas programmer og projector ("Programmes
and projects 1998: Danida programmes
and projects")
Program- og projektorientering 1998:
NGO-programmer og projector ("Programmes
and projects 1998:
NGO programmes and projects").
Danidas
årsberetning 1998, ("Danida Annual Report 1998")
Den rullende 5-arsplan 2000 - 2004 ("Current 5-year plan
2000 - 2004")
Landestrategi
for Gaza/Vestbredden februar
1997 ("Land strategy for Gaza/West
Bank February
1997")
Danish aid to the West Bank/Gaza is considered to be overgangsbistand ("Transitional assistance"), and
the total Danish aid (bilateral as well asmultilateral
aid) to the area is budgeted at DKK 540 mil for the period 1994 -2003.[9]
According to “Den rullende 5-arsplan 2000 - 2004,”
the yearly budget 2000 - 2003 is scheduled to be DKK 50 mil. This aid is to be
phased out by 2004.[10]
The main focus of the spending is on improving the social and physical
infrastructure of
Danish aid channeled through Danida
1994 - 2000
Danida, the Danish authority for
international aid, distributed its support forprojects
promoting democracy and CPR between 1997 - 1999 as follows:
LAW 1997 - 1999
1997 DKK 0,5 mil for the publication of a HR-magazine: 4000
copies in Arabic, 1000 in English 1998
DKK 0,49 mil conference on HR in Jerusalem June 7-10, 1998 1997-1999 DKK 0,9 mil: for the publication of
Peoples Rights MagazineTotal: DKK 1,89 mil[12]
Local NGOs 1994 - 1998
1994-1998 DKK 10,8 mil: support
to different local NGOs working on health
issues; aid to the physically and mentally handicapped; artisan
education for young women and men;
activities for small children; human rights.
Among the organizations that
have been supported are B'tselem, PCHR, PHRIC, and Al-Haq. This aid
was channeled through Dan Church Aid.
Total: DKK 10,8 mil (without any breakdown by project or
organization)[13]
Palestinian Authority 1997 - 2000
1997-2000 DKK 17,04 mil: training of the Palestinian (civil)
police (without any specification of
the extent to which human rights training, if any, is included in the curriculum)Total: DKK 17.04
mil[14]
Palestinian Authority 1998 - 2000
1998-2000 DKK 19 mil: support for promoting democracy, good
government, and
respect for human
rights by supporting public Palestinian institutions and Palestinian HR organizations
Total: DKK 19 mil (no breakdown by project or organization)[15]
1997-1998 DKK 0,23 mil
1998 DKK 0,51 mil: marketing of the magazine The Pen, to appear in the
first half of 1999
Total: DKK 0,74 mil[16]
Panorama 1997 - 2000
1997-2000 DKK 0,40 mil: establishment of a centre for
democracy in Ramallah
Total: DKK 0,40 mil[17]
PCHR 1997 – 1999
1997 DKK 0,49 mil: monitoring local elections in 1997[18]
1998-1999 DKK 0,95 mil: support for political prisoners in
Total: DKK 1,44 mil[19]
PICCR 1997 - 2000
1997 DKK 0,33 mil
1998-2000 DKK 0,5 mil/year
Total: DKK 1,83 mil[20]
Dan Church Aid 1994-1998
1994-1998 DKK 0,32 mil: project monitoring in order to
guarantee the
development of the projects in
Danish aid to projects channeled through NGOs 1998 - 2001
To the aid channeled through Danida
to projects in the area under the jurisdiction of the PA, should be added the
aid channeled through the Danish NGO Dan Church Aid.
LAW 1998 - 1999
1998-1999 DKK 1,94 mil: campaign against administrative
detentions in
and
Total: DKK 1,94 mil[21]
1998-2001 DKK 1.51 mil: education and consciousness raising
activities
Total: DKK 1,51 mil[22]
PCHR 1998 - 2000
1998-2000 DKK 1, 51 mil: investigations and information
concerning Israeli
and Palestinian abuse of human rights, with an emphasis on
Total: DKK 1,51 mil[23]
2 Bilateral Norwegian aid promoting democracy and Civil and
Political Rights in
the West Bank/Gaza
Information on Norwegian aid has been gathered from the
official website of the
Ministry of Foreign Affairs,
http://odin.dep.no/ud/publ/publ.html#BistandThe following data and discussions
are drawn from these documents located at that url.
Norsk bistand
i fokus 1995 ("Focus
on Norwegian aid, 1995")[24]
Norsk bistand
i fokus 1997 - rapport om norsk bistand
1996 ("Focus on Norwegian aid, 1997
- report on Norwegian aid in 1996)[25]
Norsk bistand
i fokus 1999 - utviklingspolitisk redegj?relse
1999 - rapport om
norsk bistandsvirksomhet
i 1998 ("Focus on Norwegian aid, 1999 - report
on Norwegian development aid in
1998"), covering both 1997 and 1998.[26]
Unfortunately neither the budget for 1999 nor 2000, nor the
report for 1999 were
available at the time of this writing.
At http://www.mr.dep.no/statistikk, however, certain
official statistics onHR-aid in 1997 and 1998 are
available on aid to "peace, democracy and humanrights".
However, these data lack specificity.[27]
In addition, access to unpublished data was received by thePalestinian Human Rights Monitoring Group (
Affairs, Department for Human Rights and Humanitarian Aid,
as well asinformation from the Representative Office
on the West Bank/Gaza on human rights projects funded by the Ministry of
Foreign Affairs.[28]
On
Norwegian aid to the area under the jurisdiction of the
Palestinian Authority (PA) is channeled both directly from the Ministry of
Foreign Affairs and through Norad, the Norwegian
Authority for International Development Aid.
The total bilateral aid to the area under the jurisdiction
of the PA between 1994 - 1998 was NOK 1 261 649 000.[30]
From a comparatively modest beginning in 1994, there was a steep rise in 1995
to its height in 1996. The amount fell back in 1997, only to rise again in
1998.:
|
1994 |
1995 |
1996 |
1997 |
1998 |
|
89,730,000 |
254,399,000 |
325,121,000 |
289,647,000 |
302,752,000 |
For "peace, democracy and human rights" the
following amounts were allocated during this period:[31]
|
1994 |
1995 |
1996 |
1997 |
1998 |
|
45,148,000 |
92,704,000 |
53,685,000 |
19,819,000 |
42,003,000 |
For the years 1994 - 1996, the amounts allocated to
"democracy, development, and
national independence" were:[32]
|
1994 |
1995 |
1996 |
1997 |
1998 |
|
31,263,000 |
259,000 |
25,457,000 |
N/A |
N/A |
For "peace and human rights":
|
1994 |
1995 |
1996 |
1997 |
1998 |
|
13,885,000 |
92,445,000 |
28,228,000 |
N/A |
N/A |
For the years 1999-2003, the total Norwegian commitment for
development projects
on the West Bank/Gaza is scheduled to be NOK 1 300 000. In
addition, the annual
Norwegian contribution to UNWRA is NOK 100 000 000. The aid is allocated as
follows:
1) Programmes financed under
bilateral agreements between
2) Support to the civil society (e.g. non-governmental
organizations) (16%)
3) Industrial and commercial endeavors (assistance to both
private and
governmental enterprises) (15%)
4) Assistance through the Ministry of Foreign Affairs (human
rights and
democratization programmes, the
peace process, assistance channeled through
multilateral agencies etc) (23%)[33]
This suggests that programmes for
HR and democracy are financed through the
Ministry of Foreign Affairs.
Norwegian aid from the Ministry of Foreign Affairs 1997 -
1999
Details from the Ministry of Foreign Affairs to programmes for HR and democracy
are available only for 1997 - 1999. The aid promoting the
CPR was distributed as follows:[34]
LAW 1997 – 1999
1997. NOK 0,125 mil:
the publication of a HR-magazine NOK 0,365 mil: preparation` of a draft law
against torture
1998. NOK 0,04 mil:
travel grant to Dr Shikrat, LAW, and Dr Sarraj,
Community Mental
Hospital NOK 0,225 mil: creation of a
Centre for Human Rights in East Jerusalem
NOK 0,53 mil: establishment of an entity for the control of the HR
committee of the
PLC (Legisco)
1999. NOK 0,3 mil:
support for services of legal advice in
NOK
0,525 mil: Legisco
Total: NOK 2,235 mil
To this aid for the promotion of CPR, LAW was also funded
for projects promoting
Economic, Social, and Cultural Rights (ESCR). Thus in 1998,
it was funded with
NOK 0,5 mil, and in 1999 with NOK 0,525 mil, for a total of
NOK 1, 025 mil.
There are no details on the projects funded.
MIFTAH
1999. NOK 0,75 mil: establishment of an institute for
democracy
Total: NOK 0,75 mil
PCHR 1997 - 1999
1997. NOK 0,217 mil:
general support for 1997
NOK 0,144 mil: HR-conference ahead of the final status
negotiations between the PA and
1998. NOK 0,0085 mil: travel support for Fatima Soboh
1999. NOK 0,3 mil: general support for 1999
Total: NOK 0,6695 mil
PICCR 1997 - 1999
1997. NOK 0,4 mil: activities in 1997
1998. NOK 0,41 mil: function as "ombudsman"
1999. NOK 0,75 mil: function as "ombudsman"[35]
Total: NOK 1, 56 mil
Temporary International Presence in
Included into the figures from the Department for Human
Rights and Humanitarian
Aid at the Ministry of Foreign Affairs are the costs for the
Norwegianparticipation of the Temporary International
Presence in Hebron (TIPH), in all NOK 32,65 mil in 1998-1999. This is somewhat
problematic in the present context, since it is not clear that TIPH is a Human
Rights project.
The mandate of TIPH is outlined as follows in the agreement
on TIPH:
A.
to
provide by their presence a feeling of security to the Palestinians of
B.
to
help promote stability and an appropriate environment conductive to the
enhancement of the well-being of
the Palestinians of Hebron and their economic development;
C.
to
observe the enhancement of peace and prosperity among Palestinians;
D.
to
assist in the promotion and execution of projects initiated by the donor
countries;
E.
to
encourage economic development and growth in
F.
to
provide reports as set out in the Agreement on TIPH; and
G.
to
co-ordinate its activities with the Israeli and Palestinian authorities in
accordance with the Agreement on TIPH.[36]
The Staff Division of TIPH also engages in small-scale
community projects in
support of charitable work, sports and culture.[37]
Taken together this suggests
that to the extent that TIPH engages in human rights work,
the focus is the
promotion of the ESCR rather than the CPR.
Norwegian aid from the Representative Office, Ramallah-Al Bireh 1998 - 1999
To the aid distributed from the Ministry of Foreign Affairs
should be added aid
disbursed by the Norwegian Representative Office, Ramallah-Al Bireh. Only figures
covering 1998 - 1999 are available and unfortunately they include no specifics
on the projects supported. Included in the data are funds for at least one
Israeli organization, HaMoked, as well as funding of
organizations promoting ESCR:[38]
|
Organization |
Funding in 1998 |
Funding in 1999 |
|
Research Co-operation with MUWATIN(Palestinian Institute
for the Study of Democracy |
24 000 000 |
2 000 000 |
|
Palestinian Human Rights Organization: Escre,
LAW, Legisco, { HaMoked
Centre for the Defense of Individual},Pal Center for Human Rights, Pal.
Independent Comm. for Citizen’s Rights, Pal Society for Social and Economic
Rights, etc. |
3 000 000 |
23 000 000 |
|
MIFTAH- The Palestinian Initiative for the Promotion of
Global Dialogue and Democracy |
7 000 000 |
|
|
Total |
34 000 000 |
25 000 000 |
3. Bilateral Swedish aid promoting democracy and the Civil
and Political Rights
to the West Bank/Gaza 1993 - 2003
Information concerning Swedish aid has been collected from
Peter Nobel.
Västbanken och
Commission of Jurists (ICJ) (Swedish Section).[41]
Bilateral Swedish aid to the area under the jurisdiction of
the Palestinian Authority (PA) is primarily channeled through Sida, the Swedish Authority for International Development
Aid.
Total bilateral aid from
Table 1: Aid for Training Civil Police and for Human Rights
|
Project |
Period |
Amount in Sek |
Budget 1998 |
Paid 1998 |
Budget 1999 |
Budget 2000 |
|
Training of the civil Police (incl. Training in HR) |
9508-9912 |
16540 000 |
4 500 000 |
1 529 000 |
2 000 000 |
8 0000 000 |
|
Support to different NGOs |
9304-9712 |
24 864 000 |
|
|
|
|
|
New Projects for NGOs |
9801-0012 |
34 347 000 |
15 000 000 |
12 889 000 |
15 000 000 |
15 000 000 |
|
Total |
|
75 751 000 |
19 500 000 |
14 418 000 |
17 000 00 |
23 000 000 |
Table 2:Total Aid to the PA According to Sectors
|
Sector |
Period |
Amount SEK |
Budget 1998 |
Paid 1998 |
Budget 1999 |
Budget 2000 |
|
Infrastructure |
9307-0006 |
213 080 000 |
59 8000 000 |
41 977 000 |
122 740 000 |
53 4000 000 |
|
Health and Rehabilitation |
9507-0206 |
73 100 |
14 400 000 |
12 700 000 |
18 000 000 |
16 000 000 |
|
Children and \youth |
9604-9906 |
52 155 000 |
30 539 000 |
18 943 000 |
10 628 000 |
20 090 000 |
|
Culture |
9605-0106 |
17 050 000 |
7 210 000 |
6 558 000 |
15 660 000 |
15 670 000 |
|
Institution
building (excl training of the civil police) |
9307-0012 |
33 238 000 |
4 100 000 |
3 176 000 |
4 765 000 |
4 500 000 |
|
Miscellaneous |
9801-9812 |
5 000 000 |
6 500 000 |
5 000 000 |
0 |
0 |
|
HR (incl. Training of the civil police |
9308-0012 |
75 751 000 |
19 500 000 |
14 418 000 |
17 000 000 |
23 000 000 |
|
Grand total |
307-0206 |
469 374 000 |
142 049 000 |
102 772 000 |
188 793 000 |
132 570 000 |
In a survey from the Swedish Consulate General in
Table 3: aid for training civil police and for human rights
(estimate as of
|
Human rights and Democracy (incl. training of the civil
police |
Agreement period |
Amount in SEK |
Disbursed through 1998 |
Disbursed Sept 1999 |
Estimate 1999 |
Estimate 2000 |
Estimate 2001 |
Estimate 2002 |
|
Police force training |
9505-0001 A |
18 540 000 |
8 489 000 |
54 000 |
2 500 000 |
7 500 000 |
|
|
|
Police force training |
2001 1 |
|
|
|
|
|
5 000 000 |
3 000 000 |
|
Support to different NGO’s |
2000-2001 1 |
2 500 000 |
|
|
|
2 500 000 |
|
|
|
PICCR |
1999-2000A |
3 000 000 |
|
800 000 |
800 000 |
1 200 00 |
1 000 000 |
|
|
PLC |
1999-2000P |
1 700 000 |
|
|
|
1 700 000 |
|
|
|
Miftah |
1999 1 |
500 000 |
|
|
|
500 000 |
|
|
|
Support through ICJ |
9801-0012A |
32 347 000 |
10 689 000 |
8 871 000 |
10 729 000 |
10 729 000 |
10 000 000 |
|
|
Total |
|
58 587 000 |
19 178 000 |
9 725 000 |
14 029 000 |
24 129 000 |
16 000 000 |
3 000 000 |
The estimated total aid for 1999 to the areas under the
jurisdiction of the PA is given as SEK 172 899 000, for 2000 SEK 159 387 000,
for 2001 SEK 138 950 000, and for 2002 SEK 128 900 000, with the total aid from
1993 - 2002 is estimated to be SEK 430 222 000.
Swedish aid to Human Rights organizations.
Swedish aid to human rights organization is channeled
through the International
Commission of Jurists-Swedish Section. It should be stressed
that human rights aid is not channeled through ICJ-S only to the areas under
the jurisdiction of the PA. ICJ-S is also responsible for channeling Swedish HR
aid to
The annual amount of HR aid has varied between SEK 10 000 000 and SEK 11 000 000. According
to a personal communication from Ms. Annika Lindgren,
thefollowing Israeli and Palestinian organizations
were supported in 1998 - 2000. The individual amounts for the organizations
were not disclosed: Al-Haq, B'tselem
(Israeli), HaMoked (Israeli), LAW, Jerusalem Center
for Human Rights, Women's Center for Legal Aid and Counseling, Defense for
Children, Palestine section, Defense for Children, Israel section (Israeli),
Palestinian Center for Human Rights (PCHR), Kav LaOved (Israeli), Jerusalem Center for Social and Economic
Rights, Peace Now (only 1998; Israeli), Birzeit
University Law Center (Palestine), Palestinian Yearbook, i.e. five Israeli
organizations, the rest being Palestinian.[45]
The work of three of the Palestinian organizations, Al-Haq,
LAW, and the PCHR, are mainly devoted to promoting CPR, the
rest of them focusing on the ESCR.
To this aid through ICJ, should be added the funding of the
PICCR. PICCR has, so far, been funded directly from Sida,
but in a report from 1999 it was recommended that the funding should come
through ICJ-S. The change is not merely cosmetic since the ICJ-S has been provided
with the financial means to be in dialogue with the organizations funded.[46]
4.
A "Memorandum of Understanding" has been signed
between the PA and
III. Analysis of Scandinavian aid
First of all, it is obvious that the statistical figures
presented above are notcomparable, covering as they
do different and overlapping periods. Furthermorethe
statistical material that forms the basis of this research lacks transparency
and specificity. An example of this lack is the figures on Norwegian aid. In Norsk bistand i
fokus 1999 - utviklingspolitisk
redegjørelse 1999 - rapport om norsk bistandsvirksomhet
i 1998 (section II:2) it says that Norwegian aid for
"peace, democracy and Human Rights" in 1997 and 1998 was NOK 19 819
000 and NOK 42 003 000 respectively. But, in Bistand
the sum total for HR projects as well as humanitarian aid in 1997 is given as
NOK 18 538 090, and for 1998 NOK 32 017 563 (NOK 37 017 563 if the aid from the
Representative Office,
Ramallah-Al Bireh
is included). It is, however, not always clear whether the same amount is
included under two headings. An example of this latter difficultyinvolves
the Norwegian funding of Miftah in 1999. When looking
at the numbers istry of Foreign Affairs and that from
the Representative Office are the same monies. One way to answer such questions
would be to study the financial reports of the organizations themselves.
Unfortunately, however, only one such report was available for this study.
Another difficulty involves the different definitions of human rights used by
the Scandinavian donor countries. As mentioned above,
Second, it appears that much of this funding is going to
come to an end.
Furthermore one can discern a difference between the
Scandinavian countries inthe way aid is channeled to
the area. Norwegian aid is channeled through the Ministry of Foreign Affairs of
Norway and through the Representative Office, Ramallah-Al
Bireh. Danish and Swedish monies, however, are channeled
through Scandinavian NGOs, via Dan Church Aid and ICJ-S (in the case of aid to
local HR-organizations). Those organizations also have the task of being in
continuous dialogue with the local NGOs funded.
1. Aid to the
Palestinian Authority
Common to the
Scandinavian countries is heavy funding of the PA for projects designed to promote democracy and the rule of
law. Given the Scandinavian consensus
that the most important task of government is to guarantee human rights and to protect those under its
jurisdiction from abuses, whether by public or private perpetrators, the police
have a particularly important function.
They are seen as the main tool for upholding the rule of law. This explains the strong Scandinavian interest in
the training of the civil police.
Other parts of the
Scandinavian aid to the PA are less transparent. An example of this is the large sum provided by
2. Aid to the PICCR
A great part of the
Scandinavian funding is channeled to the PICCR. The reasons for this have been discussed above.
Although recognizing that the
PICCR is not an NGO, these donor countries believe its
presence to be essential for the
establishment of democracy and the rule of law. These countries tend to see the PICCR as a
Palestinian "ombudsman."
In 1995, 82.5 % of the budget of the PICCR for 1995 was
covered by funding from the
Scandinavian countries, rising to 94% in 1996.
3. Aid to NGOs
It is not possible
to establish the precise proportions of funding of Israeli and Palestinian NGOs since the amounts often
are entered under the same heading. Nor
are there separate entries for NGOs promoting civil and political rights and those promoting economic, social,
and cultural rights. This fact probably
reflects the Scandinavian thinking on the unity and the indivisibility of human rights.
Different attitudes among the Scandinavian donors can
perhaps be discerned from their
funding. Judging from the available data,
Norwegian funding,
60 % was unrestricted grants and the rest was earmarked for specific projects.[51]
In 1999, all of the Danish funding was earmarked for specific projects. As for
But what types of
NGO projects are funded? Among the projects were publication of human rights magazines[53],
the foundation of HR institutes, and the creation of entities to monitor HR issues.[54]
Other projects include HR conferences[55],
travel grants[56],
and education.[57]
The provision of legal aid[58],
scrutiny of draft legislation[59],
and the monitoring of elections also were funded.[60]
Grants have been approved for a
campaign against HR violations[61]
as well as to investigate and report on
human rights violations.[62]
It is obvious that the focus of the
funding has been on the legal aspects of human rights and the strengthening of NGOs as
"watchdogs." In a way this is only natural given the
nature of the NGOs.
Yet, the need for HR education also has been recognized (as mentioned in the evaluation of the
Swedish aid, cited below), but only one such education project has been identified.
IV. Evaluations of the aid by the donor countries
One evaluation of the aid provided has been reviewed. This
was a 1997 evaluation
of Swedish HR aid provided between 1993 and1996. The
evaluation was made from
information gathered though site visits in
during May-June 1997.[63]
Also to be considered is the follow-up to it
which was undertaken
in 1999. This was done through reviews of the reports
from recipients of
Swedish aid, e-mail queries, and site visits in the
and
The 1997 report makes several recommendations for future
aid. These are detailed as follows:
1.
Development
of a local consciousness of human rights at the grass-roots level
In order to accomplish this, it
is suggested that the urban-based NGOs should
develop local networks taking as
their model existing local networks of
women's organizations.
2.
Improvement
of contacts and work with local NGOs
Here it is stressed that support
should not be limited to financial support. Funders
also should work actively to strengthen the management of the organizations and
supply training to improve the efficiency of their HR work. Three areas of
improvement were stressed, (1) that all the NGOs' internal structure should be
clear, with an internal democracy, and an ultimately responsible board; (2) the
NGOs should be characterized by accountability and transparency; (3) that the
board should formulate the goals of the organization to make it possible to
describe the role of the organization and clarify its methods
3.
Pressure
on
4.
Work
with the PA.
A prerequisite for successful
human rights work is support from the political leadership. Given that
awareness of the importance of human
rights (according to the report) is lacking among the Palestinian
leadership, several ways of developing this among the political leadership are
suggested.[65]
In the 1999 review, the improved functioning of the NGOs is
complimented. Apart
from that progress, however, a rather gloomy picture
emerges. No comments are made regarding the first recommendation of the 1997
report, nor are any notable changes in Israeli policy seen. As for the fourth
recommendation on working with the PA a bleak picture emerges. It is observed
that the legislative situation is "chaotic." The possibility that the
Palestinian Legislative Council might fulfill its role is said to be hindered
by the lack of legal settlement of the boundaries between the legislative and
the executive branches.[66]
The report also states that the legal system, including the judiciary and the
Ministry of Justice is among the weakest entities in the PA.[67]While
efforts to train the civil police are complimented, the report notes that the
positive experiences from this training might be undermined unless the swollen
ranks of the security police are reduced. Although further support for the
training of the civil police is recommended, there are hints of doubts about the
ultimate success of aid.[68]
V Questions for the Future
The present survey has attempted to estimate the amount of
Scandinavian aid toprojects promoting democracy and
civil and political rights in the areas under the jurisdiction of the
Palestinian Authority. It also has attempted to offer some hints about the
effectiveness of this aid. Judging from the figures available, 10.8% (
In light of all of this aid, the most burning question is
when will the PA develop asufficiently sustainable
legal structure that no longer requires foreign aidfor
this kind of institution-building?
As long as both a viable legal system and stable democratic
institutions arelacking, there will be an urgent need
for Palestinian NGOs to act as "watchdogs." Given this need, what
will happen if and when the fundingis phased out?
Conclusion
While the long-term success of a democratic
relation to those funds granted to the PA itself, since it
exercises a measure of control over its environment that the NGOs do not.
Additionally, an exit strategy needs to be developed which can accommodate the
needs and expectations of both parties. Simply ending the funding without a careful
planning process could jeopardize years of work and waste huge sums of money.
As this study shows, the Scandinavian countries have dedicated themselves and
their national funds to the building of a democratic Palestinian state which
observes international human rights norms. It is incumbent on them to make sure
that this work has not been wasted.
Excursus: what is an "ombudsman"?
The explicit reason for the heavy Scandinavian funding of
the PICCR is to support its function as "ombudsman." This requires
some clarification.
"Justitieombudsman" (JO)
is the office of the Swedish Parliamentary Commissioner for the Judiciary and
the Civil Administration. According to the constitution, JO supervises the
application of the law in the civil administration (bothwithin
the state bureaucracy and the local government) as well as the judiciary.
The parliamentary instructions for the JO state that its
task is to ensure that the courts and the civil administration, at all levels,
follow the constitutional injunctions to maintain objectivity and impartiality.
The JO is also enjoined to ensure that citizens' basic human rights are not
violated or ignored. Anyone who feels that this has happened can complain to
the JO who then investigates the matter. The JO also is empowered to
investigate matters on its own initiative. Whenever an investigation is
initiated, the civil servants on
all levels are obliged to hand over all relevant documents
to the JO. The JO is, furthermore, entitled to (if necessary) be present at the
discussions in the courts and in the civil service.
At present there are four holders of the office of Justitieombudsman, each appointed for four years. They are
appointed by parliament, which also funds theoffice.
JO also submits a yearly report to the parliament. Originally created in the
early 19th century as a parliamentary "watchdog," supervising the
king and his government and the bureaucracy, the office is today the citizens'
safeguard against the civil administration. The reason for this is, of course,
the different constitutional situation today compared to the inception of the office.
The office was created before the rise of parliamentary democracy in the early
20th century, i.e. at a time when the government was appointed by the king and
solely responsible to him.
References
Unpublished sources
Bistand = Norsk
bistand til menneskerettighetsprsjekter i det palestinske omradet (Communication from the Royal Norwegian Ministry of
Foreign Affairs,Oslo, to Ann Kristin Brunborg, January 14, 2000).Minutes, 2000 - Agreed minutes
from Annual review meeting on development cooperation between The Palestinian
Authority and The Government of the Kingdom of
Published sources
5-year plan = Den rullende
5-arsplan 2000 - 2004 (Web version
Nobel, 1999 = P Nobel, Västbanken
och
PCHR 1999 = Palestinian Centre for Human Rights, Annual
report 1999: Financial statements as of
Footnotes
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