Change for Freedom
Policy for democratic development and human rights in
Swedish development cooperation, 2010–2014
Produced by the Department for Development
Policy and the Press and Communication
Department, Ministry for Foreign Affairs
Cover: Jean-Léo Dugast/Phoenix
Art no: 10.039
ISBN: 978 91-7496-422-6
Printed by: EDITA, Sweden 2010
Additional copies of the publication can
be ordered on the MFA website: www.ud.se
Change for
Freedom
Policy for democratic development
and human rights in Swedish development
cooperation, 2010–2014
Photo: Pietro Cenini/Phoenix
Content
Summary
6
1.Introduction
7
2.Aims
10
3.Overall objectives, basic premises and values
10
3.1
3.2
3.3
3.4
10
11
14
Objectives
The rights perspective
Focus areas
Democratic development and
human rights in various country situations
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4.Implementation
27
27
28
30
32
4.1
4.2
4.3
4.4
Analysis and assessment
Implementation of the rights perspective
Forms of cooperation
Aid effectiveness and goal fulfilment
5.Division of roles and responsibilities
33
6.Follow-up
34
Summary
With this policy, the Government is raising its level of ambition and clarifying
its aims concerning Swedish development cooperation in working towards
the goal of democratic development and greater respect for human rights in
developing countries. Achievement of this goal will help Sweden meet the
overall objectives of its international development cooperation programme1.
A basic premise is that human rights are universal, interdependent and
indivisible. In this policy, the Government places special emphasis on civil
and political rights.
Priority is given to three focus areas: i) civil and political rights, ii) the institutions and procedures of democracy and the rule of law, and iii) actors of
democratisation. The basic positions adopted by the Government with regard
to the rights perspective and its implementation are to apply across the entire
development cooperation sphere, regardless of sector.
The policy applies to that part of the Swedish development cooperation
programme which focuses principally on democratic development and greater respect for human rights. Other areas of activity that fall outside the policy
framework but which can help fulfil the policy goal include administrative
reforms, for example in the health and education sectors.
Sweden is to familiarise itself with each partner country’s political situation, specific history, traditions, power structures, values and culture in order
to achieve the best possible results in its development cooperation efforts.
Sweden’s international aid programme has two subdivisions: The objective of the
International Development Cooperation subdivision is "to help create conditions that
will enable poor people to improve their lives”. The objective of the Reform Cooperation
in Eastern Europe subdivision is: ”Strengthened democracy, equitable and sustainable
development, and closer ties to the EU and its basic values”.
1
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1. Introduction
Democratic society based on human rights must be constantly upheld and
defended. At all times. In all countries. In many parts of the world, abuses and
other crimes against human rights, growing distrust of political parties and
elected representatives, an ever-harsher climate for civil society organisations,
violations of women’s rights in conflict situations, and inadequate respect for
the rule of law, have all made efforts to support democratic development
more difficult. New donors are wielding greater influence in many developing countries, including ones that lack democratic values or human rights as
a normative basis in society. This situation is presenting individual states, the
international community and other actors with fresh challenges, and there is
a growing need to emphasise the importance of human rights and democracy
in international development cooperation.
Children are sometimes inprisoned with their mothers. Hyderabad, India.
Photo: Heldur Netocny/Phoenix
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Sweden takes a multidimensional view of poverty that goes beyond lack of
resources to embrace lack of freedom and political power as well. A person is
living in poverty, for instance, if he or she lacks freedom of expression and the
chance to participate, thus lacking influence. All individuals must therefore have
the opportunity, the power and the security to change their situations in life and
influence how their country develops. Democratisation is built from within and
from below. But it can, and should, be supported from outside.
This policy proceeds from a definition of democracy as a form of collective
decision-making and exercise of power by citizens living on equal terms in
society. The democratic process assumes the presence of elected government
representatives, free and fair elections, universal and equal suffrage, the right to
stand for elected office, opportunities for demanding accountability, and respect
for the various opinion-related freedoms (freedom of thought, conscience, religion, expression, opinion, association and assembly).
The indivisibility of human rights
What constitutes human rights is defined in the UN’s Universal Declaration
of Human Rights and in the international and regional conventions on human
rights. A basic premise in Sweden’s international development cooperation
work is that human rights are universal, interdependent and indivisible. Each
individual state is required to respect, protect and provide for these rights.
The enjoyment of civil and political rights is important in itself, and also
improves the chances of the poor to claim their economic, social and cultural
(ESC) rights.
At the same time, the realisation of ESC rights may in turn be a prerequisite
for the enjoyment of certain specific civil and political rights. This linkage must
continue to be borne in mind in Swedish development cooperation efforts.
The Government takes the view that respect for civil and political rights
and the rule of law are both crucial to the task of building efficient democracies and reducing poverty in all its dimensions. These rights and the institutions that guarantee them must therefore be given a prominent role. Special
initiatives in support of democratisation and freedom of expression are to
comprise a large part of the Swedish democracy support programme, not least
in countries under authoritarian rule.
Democracy is the form of governance best capable of ensuring and strengthening respect for human rights. A characteristic of democratic development
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is that citizens are increasingly able to place demands on their elected representatives and hold them to account.
In developing countries, democratic forces – and powerful opponents – are
to be found in many policy areas. To gain legitimacy, political rulers are well advised to choose priorities that reflect popular expectations regarding efficient
public services capable of meeting citizens’ basic needs and rights. Unequal
access to basic public services has often proved a powerful factor in generating protest movements. People join forces and bring about political change
by seeking to solve specific practical problems. These may include things like
children’s attendance at school, maternity care improvements, access to clean
water, or securing the food supply.
Other areas of development cooperation than those which focus specifically on promoting democracy and respect for human rights may therefore
contribute to the fulfilment of the policy objective (see 3.1). This applies for
instance to administrative reforms in the health, education and agricultural
sectors and in development of the private sector. Education and research can
strengthen the prospects for democratisation by improving knowledge, which
gives people a better chance of influencing both their own situation and society as a whole.
Democratic development and human rights in
Swedish development cooperation
The rights perspective* and the perspective of
the poor in all development cooperation.
Democratic development and human rights in
relevant sectors.
Activities focusing principally on democratic
development and human rights.
Special initiatives in support of
democratisation and freedom of expression.
* The rights perspective is based on the UN’s Universal Declaration of Human Rights and on
the international and regional human rights conventions. The following four principles apply:
a) Participation, b) Openness and transparency, c) Accountability, d) Non-discrimination.
See sections 3.2 and 4.2.
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2. Aims
The policy establishes a number of fundamental positions relating to that part
of the Swedish development cooperation programme which focuses principally on promoting democracy and respect for human rights.
The policy is based on the Government’s communication to the Riksdag,
Freedom from Oppression: Swedish Democracy Support (Freedom from Oppression – Government Communication on Swedish Democracy Support, Govt
Comm. 2008/2009:11) and applies both to Sweden’s bilateral development
assistance and to its multilateral programme.
The policy also specifies how a rights perspective is to be mainstreamed
into the entire development cooperation programme.
The policy covers the period 2010–2014.
Photo: Lorenz Christensen/Phoenix
3. Overall objectives, basic premises and values
3.1 Objectives
The overall objective of Sweden’s support for democratic development and
human rights in both multilateral and bilateral cooperation programmes is:
Democratic development and increased respect for human rights in developing
countries.
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3.2 The rights perspective
The implementation of Sweden’s policy for global development, of which
development cooperation is a part, is to be based on a rights perspective
and on the perspective of the poor. The rights perspective places the rights
and freedoms of the individual at the centre of development in a country.
Poverty reduction and support for equitable and sustainable global development is to be based on the situation, needs, capabilities and priorities
of poor women, men and children. The two perspectives complement and
support one another and partially overlap. They also represent a starting
point for analyses and assessments and provide a common basis for dialogue, cooperation and follow-up.
Depending on the context and purpose, however, there may be reason
to emphasise one of these perspectives in particular. The following makes
clear the basic premises underlying the Government’s thinking on how
a rights perspective is to be mainstreamed into the entire development
cooperation programme, irrespective of sector.
3.2.1 Human rights as a normative base
Ensuring that the rights perspective is mainstreamed into development
cooperation is in itself an important way of promoting both greater respect for human rights and democratic development. The starting point
for rights-based development cooperation is a globally agreed set of common values, comprising the UN Universal Declaration of Human Rights
adopted in 1948 and the legally binding human rights conventions subsequently adopted. In addition, there are regional instruments and systems
for the protection of human rights in Africa, Europe and America.
Human rights regulate the relationship between the state and the individual. The state is obliged to make these rights a practical reality, via for
instance an efficient justice system and by guaranteeing citizens’ rights to
education, health and the opinion-related freedoms (freedom of thought,
conscience, religion, expression, opinion, association and assembly). States
governed by the rule of law guarantee such rights – where the rule of law
is absent, these rights do not reach the citizens.
Human rights are inherent to all, without distinction, regardless of coun-
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try, culture or specific situation. The rights perspective is based on the understanding that all individuals possess rights. No government can claim
special conditions such as tradition, culture or religion as an excuse for
violating human rights. Human rights include civil and political rights as
well as economic, social and cultural rights. These rights are universal, mutually supportive and indivisible. Although contradictions or tensions may
exist between different rights, states cannot choose to disregard certain of
their obligations under international law.
3.2.2 The rights perspective in development cooperation
People’s enjoyment of their human rights is both a foreign policy goal and
a means of achieving development and a sustainable peace.
Sweden’s basic position is that all development cooperation must be
human rights-based, i.e. that a rights perspective must be applied in all
areas. This approach empowers the individual by strengthening his/her
right to control his/her development and situation in life. In practice,
it is a matter both of persuading the state to guarantee the rights of the
individual and of heightening people’s awareness of these rights and improving their chances of claiming them themselves. Gender equality and
women’s rights, and also children’s rights, are a key part of the rights perspective. Women and men must have equal rights, but it is their differing
circumstances, interests, capabilities and opportunities that are to provide
the basis for a rights analysis and for decisions on what action to take to
ensure that both sexes are able to enjoy their rights.
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Four principles
The rights perspective incorporates four fundamental principles, based on
the normative framework for human rights:
Non-discrimination is a basic premise of development cooperation
and means that people are to be treated equally and with the same respect for their dignity, which in practice often means that the interests of
marginalised and discriminated groups are to be brought to the fore and
given priority. Every individual is entitled to a life free from discrimination
and poverty. This presupposes things like access to relevant statistics and
qualitative information.
Participation is both a method for achieving predetermined objectives
and securing sustainable results, and a goal in itself in that it makes people
more aware that they have the right to demand change and social justice.
All individuals must be able to make their voices heard, regardless of
their social position, sex, age, disability, ethnicity, religion or other belief,
orsexual orientation. When decisions are to be made that affect people
living in poverty, therefore, one of the basic aims of Swedish development
cooperation must be to strengthen citizens’ participation in democratic
political processes.
The right to free and independent information is a condition of active participation in the various functions of society, where openness and transparency enable people to demand accountability on the part of decision-makers.
An open society is also essential if corruption is to be properly tackled.
By ratifying the conventions on human rights, together with human rights
that have the status of international customary law, each state unequivocally
commits itself to ensuring that rights are respected, protected and supported
at all levels. It is the task of the state to ensure that individuals are able to enjoy
their rights, whether alone or in the company of others. The principle of accountability, therefore, is a key part of the rights perspective. This principle is
closely linked to the principles of openness and transparency and free and fair
elections. By acceding to international conventions, states have also agreed
to let their implementation of the documents be scrutinised – and criticised
– not only by the UN monitoring bodies but in practice by the country’s
citizens and other states as well.
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The Supreme Court in Mocambique signing documents in connection with
the first democratic election in Mocambque in 1994.
Photo Gustaf Eneroth/Phoenix
3.3 Focus areas
In the present policy, the Government identifies three focus areas as a point of
departure for its priorities with regard to Swedish development cooperation
centring on support for democracy and respect for human rights:
• Civil and political rights
• The institutions and procedures of democracy and the rule of law
• The actors of democratisation.
3.3.1 Civil and political rights
Strengthen freedom of expression and the development of free,
independent media
Civil and political rights are of particular relevance in connection with an
intensified, focused democracy support effort. Freedom of expression and the
emergence of free, independent media – including their role in fostering accountability – are therefore to be given priority.
In seeking to strengthen freedom of expression, Sweden is to push for legislation that encourages the development of free and independent media (radio,
TV, the press and the Internet), a strong and diversecommunication environment, and laws and policies that facilitate press freedom, free media, cultural
diversity and the right to cultural expression, and the free use of information
and communication technology.
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Sweden is to emphasise the importance of independent bodies for the distribution of broadcasting and publishing licences, of good journalistic ethics,
and of avoiding both excessive concentrations of ownership and interference
by the authorities so as not to restrict freedom of expression. Sweden will also
support journalist training and journalist associations. Sweden should further
seek to ensure that supervisory bodies take into account how new media
converge, co-exist with and influence traditional media. If the media are to
perform their role as watchdogs and give citizens insight into the workings of
government and society, legislation providing for public access and the regulated right to information are both essential.
Exploit information and communications technology
Sweden is to help improve access to and the use of information and communication technology (ICT) so as to enhance knowledge, participation and the
dissemination of information, without the need to consider physical borders.
This is to apply both within and between countries, between different age
groups, sexes and population groups, and between urban and rural parts, and
is to be pursued with respect for human rights.
Freedom of expression and the principle of transparency are to be mainstreamed both into the dialogue and into the work being undertaken on ‘Internet and Internet Governance’, i.e. national and international dialogue and
policy processes addressing the development and use of the Internet. Sweden
is to help create new arenas and more extensive opportunities for the dissemination of information and for networking, the pursuit of accountability, the
documentation of human rights violations, and election monitoring etc. The
use of tools such as social media is to be encouraged.
Ensure universal suffrage and participation
Sweden is to help ensure that all individuals in developing countries have a
genuine opportunity and the freedom to improve their circumstances in life
by exercising an influence in political processes and decision-making, and that
they are also able to prepare for this through association with civil society organisations and political parties. Electoral processes and election monitoring will
therefore be two key instruments in Sweden’s democracy support programme.
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3.3.2 The institutions and procedures of democracy and the rule of law
Strengthen state protection of human rights
Democratic development presupposes properly functioning institutions and
procedures, i.e. parliaments and elected assemblies at national and local level,
national institutions for the protection of human rights, electoral processes,
democratic parties and party systems, efficient administrations and justice
systems, and a security sector under democratic control. All this must have a
constitutional and legal basis. Sweden is to give priority to solutions that are
based on citizen interests and existing local conditions in different cultures,
and on systems with the potential to gain credibility and legitimacy in the eyes
of those living in poverty. Quality and a long-term perspective is to be sought
in these relations. Capacity development is to be given priority.
Support entire electoral processes
Sweden is to encourage the development of strong, legitimate and pluralistic
electoral and party systems with political actors capable of formulating, implementing and reviewing policies.
In its development cooperation work, Sweden is to give prominence to the
electoral process as a whole, from voter education and the planning of coming
elections to transparent electoral laws, including rules for the distribution of
seats and systems for post-election conflict resolution. Sweden is to give priority to independent election commissions and civil society organisations that
engage in opinion-making activities, voter education and election monitoring.
Sweden will also place emphasis on local and regional elections, not least to
ensure that women, young people, minority groups and people with disabilities are included more fully.
Strengthen parliaments
Sweden is to help strengthen private citizens’ influence on the political process. To this end, democratic structures will be required that facilitate accountability – especially popularly supported, effective and independent parliaments
and elected assemblies at regional and local level.
Swedish support for parliamentary development must seek to strengthen
the political process as a whole, i.e. the aim must be clearer accountability,
broader representativity and greater openness and transparency. Support can
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be provided in different ways and the most suitable approach will need to be
determined from case to case; initiatives where the activities centre on specific
policy issues can sometimes be more effective than general parliamentary
support.
Encourage the development of democratic political party systems
A democracy cannot work without credible and democratic political parties
capable of formulating political and economic reforms. Sweden, therefore,
is to give priority to the development of pluralistic and democratic political
party systems and democratic political parties. This activity will represent an
important and integrated part of Sweden’s democracy support effort.
Political party-affiliated organisations in Sweden should be able to cooperate with sister parties in other countries, to strive for the development of a
multiparty structure, to cooperate across political party lines and to contribute
to the democratisation process in other ways. Special attention should be given
to civil society actors who assume a broad political responsibility and who are
capable of developing into new political parties, particularly in authoritarian
states and post-conflict situations.
Promote efficient and effective public administration
Administrative reforms are both technical and political in character since they
often challenge existing power structures and values. With a strong and efficient public administration in place, the state in a developing country can
implement the development policies it has adopted and make the most of
donor support. As a rule, it is via the local administration that the individual
can claim the majority of his or her rights. Sweden is to give priority to the
development of open, effective and efficient administration at national, regional and local level.
A further priority aim is to support and scrutinise the executive powers
in order to make public administration more efficient, to combat corruption
and to prevent discrimination. Actors of key importance are parliaments, independent auditors, ombudsman institutions, the media, universities and civil
society organisations.
Where possible and relevant, the potential for eGovernment should be examined with a view to developing it further. In all cases where administrative
support is to be provided, both general and sectoral administrative reforms
should be given consideration, e.g. in the areas of financial governance, taxaP olic y fo r democ r atic de v elopment and h u man r i g h ts
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tion, staff policy and staff administration. Other areas may include making
public data accessible, on the Internet and elsewhere, independent auditing,
and efforts to ensure that administrations are characterised by openness and
transparency, e.g. by applying the principle of the right to information. The
Swedish principle of public access to official documents may be a source of
inspiration in this respect.
Decentralisation reforms and programmes for institutional development
at local level that make it easier for poor women and men to both participate in and seek accountability from the political system, are strategically
important, as is greater budgetary openness at local level. The decentralisation
of decision-making functions should be accompanied by the distribution of
power and resources.
As the level of direct taxation rises, demands for greater accountability and
fair decision-making tend to increase. Sweden, therefore, will seek to strengthen the ability of states to mobilise domestic financial resources, primarily by
means of wider tax collection.
There are considerable benefits to be had from a free flow of information,
goods, services and capital. There are risks, however, in becoming too dependent on external flows such as aid, loans, remittances, portfolio investments or
direct foreign investments.
Fight corruption
Corruption is often a result of weak democratic governance and informal
power relation that hamper or undermine democracy and reduce the effectiveness of partner countries’ development policies for poverty reduction and
reform. Corruption also tends to undermine respect for human rights.
Sweden will seek to support governments’ efforts to curb corruption
through concrete initiatives and dialogues. Dialogues on corruption risks, and
plans for dealing with them, are to adopt a broad approach and accompany all
stages of the development cooperation process – analysis, strategy, implementation and follow-up – irrespective of sector. The efforts of media watchdogs
and ‘whistle blowers’ to curb corruption are to be supported.
Sweden is to actively encourage all partner countries to ratify and implement the UN Convention against Corruption and will provide support to help
them implement it effectively.
In this connection, it is vital to enhance awareness of the human rights commitments of businesses via increased corporate social responsibility (CSR), and
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also to pay due regard to their anti-corruption work and their demands for
transparent procurement processes and efficient administration.
Contribute to the development of a properly functioning justice system
Sweden is to encourage the development of an efficient, independent and
effective justice system and thereby contribute to the principle of equality
before the law, the prohibition of torture, the right to a fair trial and the protection of citizens against arbitrary deprivation of liberty. In the Government’s
view, the extent to which poor women, men, children and young people have
access to justice before the law should be a decisive factor in determining
how judicial bodies are planned and structured. In both its initiatives and its
dialogues at national level, therefore, Sweden must address the justice chain as
a whole so as to facilitate cohesive reforms in the justice sector for the purpose
of dealing with problems such as freedom from prosecution, impunity and
corruption in an effective manner.
Consequently, Sweden will press for equal access to justice. Actors in both
formal and traditional justice systems and in civil society play a strategic role
in the democratisation process. Traditional judicial structures that enjoy considerable legitimacy – which are often more accessible – should be included
in reform programmes where appropriate, as long as they guarantee equal
rights before the law. Of crucial importance in this connection is the protection of the rights of women, people with disabilities, LGBT persons, indigenous peoples and people living with hiv and aids, and also the protection of
national, ethnic, linguistic, religious or other minorities. Children and young
people must be guaranteed protection and special consideration throughout
the judicial process.
3.3.3 Actors for democratisation
If democracy is to develop and be consolidated, it is not enough for a country simply to have democratic public institutions. A democratic culture must
also develop among private individuals. The culture of democracy implies an
awareness both of the human rights each person has and of the norms and
values required to make these rights a practical reality, e.g. autonomy, reciprocity, respect and trust.
A democracy is not possible without democrats. Democratisation is only
possible if those who believe in democracy are prepared to fight for it. When
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supporting democratisation processes, therefore, it is vital to begin by identifying potential drivers of change in the form of organised or individual opposition forces or defenders of human rights.
Swedish support for and cooperation with democratically minded drivers of change at global, national, regional or local level in such spheres as the
public sector, civil society, political parties, academia, the media, cultural life
and the private sector will be given priority. The realisation of human rights is
largely dependent on central governments’ political priorities, but also on the
capacity of public administration to fulfil its duties and the ability of private
individuals to claim their rights.
Sweden is to encourage closer political interaction between central government, parliament and opposition, the justice system, public administration,
the private sector and civil society actors.
Contribute to the development of a vibrant and pluralistic civil society
Democratic reform efforts initiated by civil society actors are to be given priority. Potentially reform-minded actors in the state and private sectors are also to
be given special attention. Civil society can disseminate information and raise
awareness about democratic processes, serve as a channel and arena for people’s
political interest and commitment, promote accountability and help ensure
popular support for the policies pursued. Sweden, therefore, will encourage the
development of a vibrant, pluralistic civil society capable of contributing effectively – through a human rights-based approach – to the reduction of poverty
in all its dimensions. In providing democracy support, Sweden is to emphasise
civil society’s role as a collective voice.
Civil society is of key importance in helping both to raise public awareness
and to strengthen demands for responsibility and accountability on the part of
the executive. This holds true even where civil society organisations do not have
democratic development and human rights as their principal area of activity.
Sweden should encourage the development of national and local arenas for
popular participation in the formulation and follow-up of the partner country’s
development policies. Where mechanisms for demanding responsibility/accountability are lacking, Sweden is to help create such forums for dialogue.
Protect human rights defenders
Defenders of human rights – organisations, groups or individuals within the
state apparatus or civil society – are to be given priority in the Swedish democ-
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Women queing to vote at the elections for Parliament in Guinea-Bissau 1999.
Foto Gustaf Eneroth/Phoenix
racy support programme. They are in a vulnerable position, often live under
threat, and strive to defend a wide spectrum of rights. The documentation of
human rights violations and corruption should also be given priority, along
with training, opinion-making, legal counselling and protection.
Strengthen women’s rights and encourage their participation in politics
Sweden is to actively seek greater gender equality and the participation of
women in decision-making on the same terms and with the same rights as
men, not least in the parliamentary arena and in elected bodies at regional and
local level. This applies both to the proportion of women and to their actual
power and influence in relation to decision-making, law-making, supervision
and control, and conflict management. Emphasis is to be placed on training
and support for women’s leadership.
3.4 Democratic development and human rights in various
country situations
Democratisation is an unpredictable process. It is seldom linear in character,
but involves both advances and setbacks. A number of situations can be used
to describe what state countries are in. The feasibility of democratisation in
a given country is often closely dependent on traditional patterns, existing
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cultures and surrounding countries in that particular region.
Events of one kind or another can affect democratic development in a country. Conflicts, legal trading and smuggling, access to or lack of energy and water,
and migratory and refugee flows in a region are all examples in point. Often,
therefore, intergovernmental regional organisations and strategic regional alliances are crucial to democratic development. So too are the terms and conditions established for membership of regional organisations such as the EU,
the AU and the OAS etc. Sweden is to strive for more extensive dialogue on
democracy within and between international and regional organisations.
The countries of Eastern Europe and the Western Balkans with which
Sweden is engaging in reform cooperation are seeking EU membership. A
candidate country wishing to join the EU must meet what are known as the
Copenhagen criteria. These require countries to have stable institutions that
guarantee democracy and human rights, to respect the rule of law and to
protect minorities. Sweden’s bilateral development cooperation with these
countries is to, for example, focus on such tasks as facilitating closer integration
with the EU in these areas.
Each country has its own unique conditions. Below, the Government specifies different approaches on which Sweden can base its democracy support
provision in different situations. In some cases, elements of different situations
may be present simultaneously in one and the same country.
3.4.1 Authoritarian states
Authoritarian states in which intergovernmental cooperation is
neither possible nor desirable
Sweden’s basic position is that its aid should not be given directly to the regime in an authoritarian state. Instead, it is to go primarily to drivers ochange
within the country via a range of different channels, including Swedish and
foreign civil society organisations, party political organisations, and regional
and other intergovernmental organisations.
Democratically oriented exile organisations and exile media have a vital role to
play in paving the way for greater pluralism, a robust and pluralistic civil society,
increased citizen influence and more extensive accountability. The development
of political alternatives and a new leadership is to be encouraged.
Where the opportunity presents itself, Sweden is to support civil society
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organisations, human rights defenders, research institutes, the media and culture-creating constellations so as provide greater scope for exchanges of views
and influence democratisation processes. Sweden should encourage greater
use of ICT so as to enable private individuals to obtain, create and disseminate
information independent of official channels for media and communication.
Authoritarian states where there is scope for change through
long-term development cooperation
Democratisation processes in authoritarian states tend to benefit from the appearance of cracks in the regime and the emergence of groups of more reformminded actors. Dialogue with and support for such forces for change within a
regime should, where appropriate, be considered after careful analysis of the
risks and opportunities such a course entails. In certain situations, there may be
scope for aiding moves towards democracy by means of long-term development
cooperation with a central government partner. In such cases, Swedish support
may be provided for reforms of a country’s public administration, justice sector or other sectors, including health, private sector development and natural
resource management. This must however take place in such a way that it does
not represent or be thought to represent political support to or legitimisation
of an undemocratic authoritarian regime. Where appropriate, Sweden is to help
develop preparedness for an imminent or possible future transition.
3.4.2 Conflict and post-conflict situations
Peace agreements are instrumental in paving the way for change. Which electoral system is chosen – and what history a country has in terms of ethnic, social and other power structures – directly affects the chances of a relapse into
violence. It also affects whether a multiparty system will emerge and whether
women will have the chance to occupy positions of power in the new setup.
Conflict resolution and lasting peace cannot be achieved without broad popular participation and long-term action. In conflict situations, the rights and
protection of women and girls in particular are to be ensured and safeguarded.
The participation of women on equal terms in formal and informal decisionmaking processes, peace negotiations, conciliation processes and other conflict
management mechanisms is vital if lasting, sustainable peace is to be secured.
Reforms of the security sector, focusing on the justice chain in its entirety,
are of key importance. The work of truth and conciliation commissions and
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the rehabilitation of direct and indirect victims of conflicts may be crucial.
Impunity and freedom from prosecution must be actively opposed so as to
prevent future abuses, including gender-related violence, corruption and antidevelopment policies, and also to help restore human dignity to the victims.
Often, compensation for actual losses of cattle, land, homes and income are at
least as important as bringing the perpetrators to justice.
The transformation of combatants into democratically minded political actors should be given priority. Demobilisation and the reintegration of both adult
and child solders, through for instance inclusion in educational programmes,
is of vital importance, as is exploiting the potentially constructive contributions of young people. Where conflicts have led to population displacements,
a fair distribution of land and other natural resources is an important part of
the reconstruction process and an aid to future democratic development. The
problems faced by the individual after a conflict are more likely to find their
solution in administrative measures than in judicial measures.
Sweden should encourage non-discrimination and a diversity of voices by
striving for freedom of expression, a free flow of information and free and
independent media, and should press for greater access to information and
communication technology. Freedom of expression and the right to information are other important components in post-conflict reconstruction processes,
in that they make it possible to deal with future conflicts in accordance with
democratic principles. Media development and the use of ICT should, where
possible, be included in strategies for the reconstruction and development of
post-conflict areas.
3.4.3 Fragile democracies in the early stages of democratisation
Where corrupt and authoritarian one-party states and military regimes have
collapsed and democratisation has begun, the transition has often been brought
about by a combination of pressure from civil society and reform efforts on the
part of the ruling power elite. The most sweeping changes tend to come early, during the first year of transition when a new regime takes office, even if the change
process may have been building up gradually over a long period.
Democratic reforms introduced in conjunction or immediately after a transition should be supported so as to pave the way for a long-term democratisation
process and so as to strengthen constructive forces and drivers of change in society.
Special emphasis should be placed on processes that encourage participa-
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tion and gender equality and that combat discrimination, so as to ensure the
deepest and widest popular support possible. Efficiency in the provision of
public services and the presence of accountability and transparency at both
local and national level are often particularly important in fragile democracies
since they create the requisite confidence in what democracy can achieve.
Electoral processes, party systems, parliaments and central government mechanisms for supervision and control should be given priority.
3.4.4 New democracies in the process of consolidation
Some of Sweden’s partner countries are relatively new democracies in the
process of implementing reforms and building up a democratic political culture. These countries have democratically elected parliaments, a multiparty
system and some form of local autonomy. In general, respect for the basic
principles of democracy is on the increase but a democratic political culture
has yet to be properly established. The shortcomings found in stagnating democratisation processes are also present here – e.g. weak local autonomy and
political and economic elites actively opposing both greater political equality
and development policies on poverty reduction. The influence of women in
the political, administrative and business spheres may be weak as a result of
traditional perceptions of gender roles.
The participation of young people and opportunities for them to gain real
influence in the community should be given priority. Of key importance to the
further advancement of democracy is development in the media sector, a free
cultural life, the development of civil society organisations and the party system – based on wider membership and gender equality – and broader citizen
participation. Also, women must be given a greater say in general. The same
applies to reform-minded forces in the justice system, the government and
parliament, since they can initiate and implement decentralisation reforms
and ensure openness and transparency in the dealings of parliament and government agencies.
3.4.5 Stagnating democratisation processes
In countries with stagnating democratisation processes, all the requisite political institutions are nominally in place but their foundations are weak and
justice reforms that threaten the interests of those actually wielding power are
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Registration of voters for the local elections in Odzak, Bosnia Herzegovina.
Photo: Gustaf Eneroth
obstructed or delayed. Usually, there are forces that openly or covertly oppose
political equality, such as the military, militia, commercial interests, clans and
political elites; sometimes, it is social movements that have either been coopted or have lost momentum. At best, the status quo prevails. At worst, such
countries slide into the abyss.
In such situations, openness and transparency are crucial to the task of
ensuring political accountability, e.g. via laws that facilitate access to information and the mobilisation of stakeholder groups via innovative channels
(mobile telephony, the Internet, the performing arts etc). Support for the
scrutinising role of the media can help vitalise democracy. This also applies to
human rights defenders and alliances of stakeholder groups such as environment movements, religious communities, women’s rights organisations, trade
unions, student organisations and small business organisations.
The vitalisation of public institutions at national and local level, including
national and municipal auditing bodies, parliamentary committees reviewing
national budgets, tax authorities, bureaus of statistics and anti-corruption authorities may be of paramount importance in breaking through the stagnation,
assuming that they are not manipulated by those actually in power.
Initiatives emphasising local research, opinion-making activities and public
debate should be given priority, along with the economic and political participation and influence of women and young people.
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4 Implementation
This policy applies to Sweden’s bilateral and multilateral aid and serves as a
guide for Sweden’s positions in the EU.
The following section outlines those aspects that are crucial both for ensuring operationalisation of the policy in Swedish development cooperation – in
for instance strategies, programmes and dialogues – and for ensuring that the
resources are used effectively and in a focused manner.
4.1 Analysis and assessment
It is vital to be aware both of underlying power relations and of what incentives or obstacles exist when seeking to reduce poverty and encourage reform
via properly implemented development policies. Where required, therefore,
power and actor analyses are to be undertaken, preferably as part of a contextspecific poverty analysis. Such analyses do not necessarily have to be performed by Sweden. Existing surveys and analyses of a topical nature are to be
used as far as possible, where relevant.
Power and actor analyses make clear the formal and informal relationships
and power structures that exist between the individual and the state, between
women and men, and between different groups in society. The aim is for
these analyses to help identify drivers of democratic change and processes that
Sweden can support, and also to provide a basis for the development of cooperation strategies. The analyses should address underlying structural factors
that may affect the prospects for successful democratisation, such as the level
of economic development, identity-based dividing lines within the country,
historical experience of political diversity, and conditions for a free cultural
life. Power and actor analyses may be carried out at national, regional or local level, or focus on a specific sector, as a basis for a cooperation strategy, in
preparing specific programmes or for the purpose of identifying the dialogue
issues that Sweden should focus on. Where possible, analyses performed by
or in the partner country are to be used. Sweden must exercise particular care
and consideration where sensitive situations are involved.
In seeking to gauge the degree of democratic development and the extent
to which people are able to assert their human rights in partner countries in
Eastern Europe and the Western Balkans, Sweden should take account of the
data in the European Commission’s annual reports and progress reports.
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4.2 Implementation of the rights perspective
Working with an integrated rights perspective means focusing not only on
the results achieved but also on the process of reform implementation. A
fundamental starting point is the analysis of any failure to respect human
rights and of what the basic causes of this shortcoming may be. Application of this perspective necessitates both careful attention to power structures and a proper understanding of them. A rights perspective, therefore,
helps us to understand how laws, social norms, values, traditions and institutions affect people positively and negatively.
Reports and recommendations from the seven monitoring bodies in
the UN system2, as well as the recommendations to governments contained in the Universal Periodic Review (UPR) reports, are to be used in
preparing the analysis. These bodies monitor how individual states live up
to their human rights obligations. Issues requiring closer analysis may also
be identified in connection with the bilateral and multilateral dialogue on
the developing countries’ own strategies and plans for poverty reduction.
Lessons learned from previous development cooperation efforts are
also relevant. In its development work, Sweden should draw on successful efforts in the past that have led to improvements such as greater actual participation on the part of individuals and civil society actors and a
greater awareness of human rights, democracy and gender equality.
In seeking to secure a breakthrough for the rights perspective, Sweden should, as part of its global advocacy work, deepen cooperation with
relevant UN bodies and other international organisations, share its experience more specifically within the EU community, press ahead with
its work in the OECD/DAC and its coordinating efforts there on the
subject of democratic governance and human rights, and also support the
World Bank in its efforts to encourage the observance of human rights.
Sweden should at all levels make use of the expertise that international
civil society organisations possess concerning human rights and the rights
perspective.
Sweden must also make use of regional processes and of reports and
3
The Human Rights Committee, the Committee on Economic, Social and Cultural
Rights, the Committee on the Rights of Persons with Disabilities, the Committee
on the Elimination of Racial Discrimination, the Committee on the Elimination of
Discrimination against Women, the Committee Against Torture, and the Committee on
the Rights of the Child.
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recommendations from regional human rights instruments as a basis for
intensified cooperation on this perspective. Both intergovernmental cooperation and cooperation with civil society must be deepened in the
regional context to ensure that the rights perspective has a greater impact.
As part of its bilateral development cooperation effort, Sweden is to
emphasise democracy and rights issues in its dialogue with partner countries (on budget support, sectoral programmes and operational funding),
and thereby help strengthen capacity for both central government reporting and civil society’s shadow reporting to the UN monitoring bodies.
Sweden is also to support the preparation and implementation of national
action plans for human rights and strengthen synergies between capacitybuilding assistance to organisations active at global, regional and national
level.
A complex reality with many different actors necessitates flexibility
and expertise in the application of the rights perspective. The level of
ambition must be realistic.
To fully exploit the potential inherent in a stronger rights perspective,
clearly defined and conspicuous leadership will be required, along with incentives, adequate resources and skills. Further requirements are method
and dialogue support, process and performance indicators, unequivocal
management by results, and a greater focus on the reporting of lessons
learned from past experience.
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4.3 Forms of cooperation
Programme-based approaches
Programme-based approaches are to be sought, e.g. via joint donor support
for the reform of institutions and via core and activity support to civil society organisations. Further scope for strategic project support may be justified
where the political situation in the country concerned requires it, even if the
activity is not cost-effective or staff-intensive. It may be justified, for instance,
where special measures are needed to further democratisation and freedom of
expression by strengthening drivers of change and making it easier for them
to obtain and disseminate information and opinions, and also where action is
needed to reduce oppression of various kinds. Whatever the form of cooperation involved, the rights perspective is to be applied.
Capacity building
Capacity building is an important instrument for achieving sustainable results
when seeking to support democracy and respect for human rights. It is to be
supported within the framework both of programme-based approaches and
of other aid forms, such as inter-agency cooperation. The development of capacity in institutions guaranteeing democracy and the rule of law (e.g. public
administration, election commissions, party systems and the justice system) is
to be given priority. This includes parliament’s legislative, representative, conflict management and watchdog functions, and ombudsmen, national human
rights commissions and civil society organisations.
Where demand exists, and where benefits are to be had, Sweden is to facilitate institutional and organisational cooperation between Swedish public
authorities and organisations and their counterparts in partner countries, especially in the public administration sphere. Experience shows that such cooperation is particularly useful for boosting capacity and for raising the level of
technical expertise in the partner country. It is important to create the means
for Swedish actors to apply the principles of aid effectiveness, not least by
enhancing knowledge about them. Sweden must ensure that its cooperation
efforts are in line with its partners’ priorities and work cycles, and are also
coordinated with those of other donors as far as possible. Swedish actors are
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to be encouraged to make use of the partner country’s regular system for the
monitoring and reporting of progress and results.
Dialogue
Democracy support is a part of foreign policy and foreign policy is a part of
democracy support. The two parts are interdependent and must therefore
be an integrated and mutually supportive whole, as reflected in the Council
conclusions on Democracy Support in the EU’s External Relations Council
meeting in Brussels on 17 November 2009.3 Sweden will seek to ensure that
these conclusions are implemented. Dialogue is to be pursued in existing forums, together with other governments and development actors. Proceeding
from the three focus areas, Sweden will give priority in the dialogue to those
core issues to which it can add value as a result of its special skills in the field,
its previous involvement, or its ability and ambition to exercise global political leadership.
Neither actual political obstacles nor a lack of political priorities can be
solved ‘technically’ through reform processes. Consequently, a dialogue strategy should be drawn up at country and regional level. It should embrace the
global, regional and local level and seek to ensure that efforts at these levels
are mutually reinforcing. The local level is often the most sensitive, requiring a sound grasp of the state’s and the public authorities’ obligations and
commitments. For the dialogue to be effective, special skills in dealing with
democracy and human rights issues will be required. The local context, clearly
defined goals for desired change, an analysis of obstacles and opportunities,
alliance-building capacity and a long-term commitment should all be included
in the strategy. In this dialogue, public diplomacy may also be an effective tool
in seeking to bring about a constructive dialogue on the prime objective, i.e.
democratic development and greater respect for human rights.
Council conclusions on Democracy Support in the EU’s External Relations Council
meeting, Brussels, 17 November 2009.
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4.4 Aid effectiveness and goal fulfilment
Support for democratisation development and human rights must comply
with the principles of aid effectiveness and goal fulfilment set out in the Paris
Declaration and Accra Agenda for Action if development cooperation is to
succeed. Broader ownership in the countries’ reform work is a priority. In contributing to the overall policy objective, Sweden will lay special emphasis on:
– democratic ownership. If sustainable results are to be achieved in the development cooperation effort, the country’s rulers must have a sense of
ownership. Political ownership must in turn be supplemented by broader
democratic ownership. Democratically elected bodies, civil society actors,
universities and the private sector should be brought into the preparation,
implementation and evaluation of development strategies to a greater extent, so that the interests of all individuals are made clear and their voices
heard.
– adapting to the partner country’s systems. In supporting the institutions
and procedures of democracy and the rule of law, Sweden should primarily
use national systems. Parliament and elected assemblies at local level, along
with civil society actors, are of key importance in this respect.
– harmonisation and strategic alliances. Democracy and human rights are to
be given prominence in joint donor approaches, for instance when undertaking joint analyses, country visits, evaluations and dialogues with strategic
partners.
– stronger focus on results and effects. The quality of results is to be assured
by identifying which groups and which human rights benefit from development.
– mutual responsibility and accountability. The partner country’s commitment to greater openness and transparency, aimed at facilitating parliamentary checks and controls, should be emphasised. Civil society has a key
role to play in this respect. Parliament, auditing agencies and civil society
organisations etc should have an opportunity to be a part of the planning
and follow-up of national reform programmes.
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5 Division of roles and responsibilities
Cooperation between a wide range of actors in Sweden, in the partner countries, regionally and globally, is crucial to the successful implementation of this
policy. These actors include individual governments and intergovernmental
organisations, civil society organisations – including the labour market partners and culture-creating constellations – and private businesses, universities
and the media. The division of roles and responsibilities, however, varies between actors.
The Swedish International Development Cooperation Agency (Sida) is responsible for policy implementation in the case of both geographical cooperation strategies and non-geographical strategies.
At global level, the Swedish Government Offices (Ministry for Foreign Affairs) is responsible for basic budgetary support to and cooperation with multilateral bodies, including UN organisations. The present policy is intended as
an aid in developing Swedish positions in the policy development, operational
planning and follow-up activities of the multilateral organisations. Sida has an
important supplementary role in that it contributes experience gained from
bilateral and regional development cooperation and from the multilateral aid
sphere.
In the implementation process, Sweden is to seek complementarity with
the European Commission’s thematic and geographical programmes.
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6 Follow-up
Swedish support for democracy and human rights is to be followed up as
follows:
(a) Sida is to undertake performance analyses relating to democratic development and human rights in connection with its reviews and followups of geographical and non-geographical strategies where activities
centring on these issues represent a key part,
(b) During the strategy period, the outcome of the Swedish support programme targeting democracy and human rights is to be evaluated. This
evaluation is to focus on the democracy and human rights objectives
specified in the strategies that govern the activities covered by the
evaluation, and also on the objectives and standpoints described in the
present policy. If possible, the evaluation is to be carried out in collaboration with other donors.
(c) A mid-term review of policy implementation under relevant strategies
is to be completed by 2013 at the latest.
The Government further intends to keep a close watch on the progress of
activities in support of democratic development, based on relevant academic
research, other thematic analyses, and follow-ups and evaluations undertaken
by the aid management system, by Swedish civil society organisations and by
and together with other donors.
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The policy for democratic development and human rights is based
on the objective of the Swedish international development cooperation, to help create opportunities
that will enable poor people to improve their conditions of life, and
the Government´s policy for global
development, with the overall goal
to contribute to equitable and sustainable development.