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Making policy reform work Understanding the politics for
better advocacy
Alexandre Cote SIEMPRE, DEC. 2008, Tirana (updated april 2010)
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Policy reform
• We talk a lot about it but…• We rarely seems it coming to an end…• Are we really aware of what it means?…• Are we really taking it as seriously as we
should?…• Are we naïve or idealist or cynical?…• DO WE BELIEVE?...• DO WE TRUST?….
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Basic rules of the game
NOTHING IS OBVIOUS
IT S NOT DONE UNTIL IT’S DEFINITELY FINISHED
UNTIL YOU GAVE EVERYTHING, YOU GOT NOTHING
SOMETIMES GIVING EVERYTHING IS NOT ENOUGH
And …..
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3 KEY WORDS
EVERYTHING IS POLITICS
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Chapters
• What are we talking about?– What is public policy?– From politics to change in people’s lives– Who is involved and for what?
• Multi stakeholders: public-ngos partnership, what kind of relationship
• Tools for political analysis of policy reform
• Advocate, advocate advocate: some lessons learned
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PUBLIC POLICY: WHAT ARE WE TALKING ABOUT?
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Needs, rights, resources and policy?
Public Policy
Social innovation
Governance
RightsLocal
legislation
International binding legal instruments
Needs
Survival Full Participation
ResourcesState Community
Public policy, social innovation and good governance are ways to allocate often scarce resources to enforce rights and entitlements that respond to needs.
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What is Public Policy?• A set of defined or at least definable values;
• A clear vision of a desirable future that is based on these values that should foresee positive change in life of population
• Appropriate strategies that can be implemented in order to realize that vision.
• Implementation package includes:– Legislation– Adequate Procedures– Enforcement body– Implementation plan– Dedicated resources– Staff training– Monitoring and Evaluation
• Public policy is the output of politics and is most of the time the results of strong negotiation whether we talk a bout legislative, budgetary issues…
• The interaction between policy and politics can be defined as policy making
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Every level has its relevance
• International policy / agenda : EU/ WB. Accession process, structural adjustment, aid conditionality
• National Agenda: PRSP…• National Disability Strategy• National specific policy (health care, education,
employment, child protection…)
• Local level (community development, local disability action plan , agenda 22…)
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A process and a system…
Polity :The rules and the
stakeholders
People’s lives :Level of autonomy,
quality of life Degree of participation in the community life.The impact of politics and output of policy
Practice :How does it work
on the field?The outcome of
politics and output of policy
Policy :The output of the
politics.
Politics :The political power
play . Ideology and interest
Policy making
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Polity :The rules and the
stakeholders
People’s lives :Level of autonomy,
quality of life Degree of participation in the community life.The impact of politics and output of policy
Practice :How does it work
on the field?The outcome of
politics and output of policy
Policy :The output of the
politics.
Politics :The political power
play . Ideology and interest
Policy making
Brings people’s life in
From consultation to lobbying
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Polity :The rules and the
stakeholders
People’s lives :Level of autonomy,
quality of life Degree of participation in the community life.The impact of politics and output of policy
Practice :How does it work
on the field?The outcome of
politics and output of policy
Policy :The output of the
politics.
Politics :The political power
play . Ideology and interest
Policy making
Support policy development
Technical assistance
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Polity :The rules and the
stakeholders
People’s lives :Level of autonomy,
quality of life Degree of participation in the community life.The impact of politics and output of policy
Practice :How does it work
on the field?The outcome of
politics and output of policy
Policy :The output of the
politics.
Politics :The political power
play . Ideology and interest
Policy making
Bring policy to practice
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Policy making
People’s lives :Level of autonomy, quality of life Degree of participation in the community life.
Practice :How does it work on the field
Policy :The outcome of the politics.
Polity :The rules and the stakeholders
Politics :The political power play . Ideology and interest
Su
pp
ort to
inn
ovatio
n
Su
pp
ort to
service delivery
Bring innovation in people s life
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Scale up good practice to policy
Policy making
People’s lives :Level of autonomy, quality of life Degree of participation in the community life.
Practice :How does it work on the field
Policy :The outcome of the politics.
Polity :The rules and the stakeholders
Politics :The political power play . Ideology and interest
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Polity :The rules and the
stakeholders
People’s lives :Level of autonomy,
quality of life Degree of participation in the community life.The impact of politics and output of policy
Practice :How does it work
on the field?The outcome of
politics and output of policy
Policy :The output of the
politics.
Politics :The political power
play . Ideology and interest
Policy making
Su
pp
ort to
inn
ovatio
n
Su
pp
ort to
service delivery
Scale up
Support to DPOs Surveys/support to multi stakeholders process
Technical assistance
to ministries
SUMMARY…..
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Stakeholders involved…International organisation
Local authorities
Civil sectorInterest groups
Disabled people organistaion
SocialService providers
Private sector
? ?
?
National authorities
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USERS / CITIZENS
SERVICE PROVIDERS
POLICY MAKERS
? ?
?
DONORS
?
?
OPINION
MAKERS
?
?
?
MULTI STAKEHOLDERS?
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Stakeholders involvedOpinion makers
Supply side Demand side Policy makers
-National and local media-Think tank
-Human rights ngos
-NGOs-School-Primary
health care-Youth centers
-Centers for Social Work (CSW)….
-Parents-Children
-Adults with disabilities
-Ministries-High
council…-Governors-Directorate
-District authorities
-DONORS?
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PUBLIC-NGOS PARTNERSHIP WHAT KIND OF RELATIONSHIP?Based on : Kelly Teamey, 2007 “Literature Review on Relationships between Government and Non-state Providers of Services”, International Development Department , University of Birmingham
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What are we talking about?
• Contracting?
• Purchasing?
• Cooperation?
• Subordination?
• Mutual benefit?
• Trust?
• Sharing resources?
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Mutuality*Identity
• Mutuality (interdependence and commitment between partners, equality in decision-making and rights and responsibilities)
• Organisational identity (the maintenance of each partner’s own identity, mission, beliefs, core values and constituencies).
• The primary driver of a partnership is to access key resources needed to reach objectives.
(Brinkerhoff, 2002)
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Mutuality*Identity
Mutuality
Organisationalidentity
Co-optation and gradual absorption
Partnership
ContractingExtension
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Power and institutional pluralism
(Coston, 1998)
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Goal*strategies (Najam 2002)
Goal
Strategy
=
-
- =
Complementarity
Confrontation Co-optation
Cooperation
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So who plans, regulates, delivers, finances, advocates…?
WHO SHOULD? WHO CAN? WHO WANT?
Central authorities?
Local authorities?
Community?
DPOs?
NGOs?
Central authorities?
Local authorities?
Community?
DPOs?
NGOs?
Central authorities?
Local authorities?
Community?
DPOs?
NGOs?
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VALUES STAKES
CONSTRAINTSRESOURCES
WILL
CAPACITY
Always think about stakeholders will and capacity …
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WILL
CAPACITY
Direct or indirect Influence towards policy makers
Non state mechanisms to develop policies
Supporting Users’ awareness raising and advocacy activities
Advocacy towards Donors to bring resources
Direct or indirect substitution to duty bearers
Capacity building of providers Strategy for supporting empowerment of users
Advocacy and awareness raising
SUPPORTING THE CONTINUOUS IMPROVEMENT
AND THE MONITORINGBY PEOPLE CONCERNED
Advocacy towards Donors to bring resources
Capacity building of policy makers
and service providersSupporting advocacy
by users - beneficiaries
WHETHER DUTY BEARERS ARE WILLING AND ABLE TO DO IT? (based on DFID “improving services delivery in difficult environment” 2001 )
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TOOLS FOR POLITICAL ANALYSIS OF SOCIAL POLICY REFORM
Based on: - Joan M. Nelson 2003, “The Politics Of Social Sector Reforms”, ODI Washington, DC- Grindle M and Thomas J “Implementing reform: Arena, stakes and resources. Public choices and policy change: the political economy of reform in developing countries” Baltimore, john Hopkins university Press.
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Difficult social service reforms..
• No technical consensus• Require active collaboration of many
stakeholders• Takes years to implement from legislation to
staff training..• No cost in delaying action• Different motivation of service providers (public
private non profits)• Competition between social sectors for scarce
resources (middle class/poor – availability/universality/diversity /quality)
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Thinking policy reform
• Values• Vision• Legislation• Adequate Procedures• Enforcement body• Implementation plan• budget• Staff training• Monitoring and Evaluation
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Working groups (examples from the Balkans region)
• Gate keeping reform based on ICF for adults with disability merging all status and impairements
• Increase of the Disability allowance
• Community services / de-institutionalisation social services delivery reform
• Inclusive education
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Which ambition for the reform?From Joan M. Nelson, THE POLITICS OF SOCIAL SECTOR REFORMS, 2002
Advantages Drawbacks
Broad functional scope * mobilizes wider interest, morepotential allies* less likely than narrow reformsto be defeated by system inertia* may attract more donor support
* mobilizes broad opposition* difficult to launch quietly* hard to administer, high risksof mistakes
Radical depth * may draw stronger support fromthose dissatisfied with old system* attracts attention, interest
* mobilizes intense opposition
Speed * allows reformers to seizefavorable moments* lets reformers keep ahead ofgrowing opposition* helps maintain momentum
* limits consultation, reducesperceived legitimacy* risks mistakes inimplementation
Wide geographicspread
* may be technically necessary for
some reforms
* spreads leadership andsupervision thin* reduces opportunities to letprogressive localities moveahead, provide models forlaggards
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Political analysis From Joan M. Nelson, THE POLITICS OF SOCIAL SECTOR REFORMS, 2003
LOW HIGH
Concentration of cost (who is impacted ? How important this is )
A wide part of population is impacted
just few groups are impacted
Concentration of benefits (who benefit ? How important it is )
A wide part of population will benefit
Only a small group will benefit
Technical content No complexity High technicalities and require expertise
Level of participation Not many people and stakeholder have to be
mobilized
A lot of stakeholders need to contribute
Duration Short term reform from agenda to implementation
Long process
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Different politics for different reforms? From grindle Merilee and john thomas (1991)
Characteristicof reform
Dispersal ofthe costs
Dispersal ofthe benefits
Technical andadministrative
complexity
Level of publicparticipation
Duration andvisibility of
reform process
Features of reforms in thebureaucratic arena, requiring
bureaucratic compliance
Costs focus ongovernment institutions
Benefits are notimmediately felt by
bureaucracy and onlyin long term by public
Reforms are administrativelycomplex
Reforms require limited publicinvolvement and are ‘invisible’
Reforms require sustained effortwith few immediate visible returns
Features of reforms in thepublic arena, requiring political
support and stability
Costs have wide impactamong the population
Benefits are focused ongovernment
Reforms have lowadministrative content
and can be done quickly
Reforms require wide publicinvolvement and are ‘visible’
Reforms can be achievedquickly and are visible
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Working groups
• Gate keeping reform based on ICF for adults with disability merging all status and impairements
• Increase of the Disability allowance
• Community services / de-institutionalisation social services delivery reform
• Inclusive education
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Routes to policy reform
• Multiple institutional options for policy reform, each with its own pros and cons– “Long routes”
• Lead by central government bureaucracy• Lead by sub-national governments
– “Short routes” • By special agencies• Donors supported reform teams • By nonstate providers (for-profit and non-profit)• With community participation
• Successful service delivery reforms (esp. short routes) are plenty, but...
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Can they be sustained or scaled up?
– The State matters • Short-route innovations are difficult to institutionalize and
sustain• Are difficult to replicate/scale up• And are prone to capture due to lack of accountability
– Private/civil sector delivery with its own pitfalls• Need for effective compensatory policies and strong
regulation (geographic distribution, discriminatory access)
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Managing the reform process (gov) From Joan M. Nelson, THE POLITICS OF SOCIAL SECTOR REFORMS, 2002
4) Implementationa. Smooth launch
b. Rapid problem solving
2) Reaching agreement with the Executivea. Recognizing viewsb. Wining top support
3) Winning Legislative Approvala. Reducing or neutralizing opposition from vested interests.
b. Building Alliancesc. Modling public opinion
1.) Getting on the agenda
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Which tactics
• Public education and media campaign
• Consultation with stakeholders
• Compensation with potential “looser”
• Dividing opponents
• Avoiding confrontation
• Creating linkage between different reforms
• Building alliances with early winners
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POLITICAL TASK
TACTICS
public education
consultation compensationdividing
opponentavoiding
confrontationlinkage
early winners
getting in the agenda
reaching agreement
winning legislative approval
a reducing vested interest
building alliances
modling public opinion
ImplementationLaunchingsustaining
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It’s complex, so what?
• Alone we cannot solve problem neither public administration nor NGOs
• We can give ourselves the illusion that we can
• But at the end, we need to work together which doesn’t mean we are friends
• Nobody say it will be easy….
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ADVOCATE, ADVOCATE, ADVOCATE….Lessons learned from POLIO PLUS team, Macedonia, about their national advocacy campaign “My signature is the law”
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Advocate Advocate advocate….
I. Identify needs, issues, rights
IV. Official adoption of policy
V. Implementing
policy (budget)
VI. Monitoring the implementation of the
policy/law A
dvo
cac
yLo
bby
ing
Ad
voc
acy
Lob
byi
ng
II. Decision of public response
Ad
voc
acyLob
bying
Advocacy
Lobbying
III. Develop, formulate
policy (through consultation)
Ad
voc
acyLob
bying
Advocacy Aimed at
recognizing the lack of
solution and the need for
action or policy
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Lessons learned from Polio Plus campaign “my signature is the law” by Polio Plus Team , Skopje, Macedonia
1. Include! Include! Include!• Never even think that all interested parties have already
been included in the process. There is always someone who, if is not included, might became enemy of your idea. We experienced that on our own skin.
2.Educate!• No matter how many educated and aware people join
you, never overestimate their knowledge for such a specific issue. The earlier you start with their education, the less problems you will have once the work has entered in its crucially important phase.
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Lessons learned3. Be aware of the invisible enemy!• Your opponents will never publicly state that they are against the
rights of people with disabilities. But, as all is a matter of interest, might happen that yours and their interests are completely opposed.
4.Do not travel alone! • The old African proverb says: “If you want to travel fast - go alone,
but if you want to get far- walk with the others”. Maybe, we understood this ancient wisdom a bit too late.
5.Individual vs. Frontal• To have a real distinction of all the “mess” which you faced you
need strong individuals and “clean” opinion makers. So, don’t “burn” them during the process. You must protect them from frontal impact with back-up support of legitimate groups, organizations and institutions.
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Lessons learned6. Far away is (simply) closer…• Extend the process to the maximum. Only then you will provide
enough time for more knowledge, and enough space for more people take ownership over the process. Educated “boss” will not give up from what they think is theirs.
7.The closer you get –more resistance you face!• Go carefully with fundamental interventions in the existing systems.
Each system (even the worst and the weakest one), has its own mechanisms for self-protection. The more you touch their inner core, the greater becomes the resistance and you will just improve their cohesive forces of their dummy disconnection and disorganization.
8. You can never get enough of media support! • In all systems with “indirect“ democracy, the only tool to “articulate”
your voice and “your truth” is through direct communication. As clearer your message is, more accurately it will be transferred to the general public. Use the media wisely, with wisdom, be present, but not tedious, be clear, but not rude; be worried, but not frustrated. Finally, help the people from the media. They will know how to show appreciation.
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Lessons learned
9. Politicians will always be just politicians! • Politics does not always (and for everything) have to be
in accordance with your position. The priorities change on daily basis, and political regrouping may happen in a flash. The events not always go in line with your time schedule. As much as the very next day, your main supporter might be disfavored by the establishment or the public opinion. Do not bind yourself to the political positions of any group. Make the groups (in their strategy, programs and personal relations and presentations) to bind themselves to your cause.
10. The invisibles are your visibility • Discover, inspire and mind the “little” activists,
volunteers, members … You will be surprised how big support, visibility and sustainability you can get.