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Working Better Together as Team Europe Through joint programming and joint implementation Guidance
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Section 2 JP: Broadening the scope of joint programming

Working Better Together as Team Europe
Through joint programming and joint implementation

Guidance

A tool to help EU Delegations work better together with Member States as Team Europe and with like-minded partners and country stakeholders, through joint programming and implementation.

 

 

Broadening the scope of joint programming

The 2016 Council conclusions set higher ambitions for joint programming processes. They called for the inclusion of strategic issues such as migration, climate change, fragility, security and democracy in line with the EU’s comprehensive approach to external conflict and crisis. European values on human rights, gender equality, good governance and engagement with civil society must also be increasingly reflected in joint programmes as they evolve to look ‘beyond aid.

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GHANA

 

In Ghana, graduation beyond aid is a strategic aspect of the joint programming document underpinning all of the priorities. The joint programming process will specifically support and accompany Ghana’s transformation process and consolidation of its middle-income status, economic growth and democratic governance. The aim is to move towards a mature and mutually beneficial partnership and into more strategic forms of cooperation, which the government refers to as ‘Ghana beyond Aid’. This ‘EU+ Cooperation Group’ will therefore evolve from traditional aid to a more comprehensive approach encompassing trade, competitiveness, migration and climate change. The role of joint programming in the broader cooperation context is deemed essential in serving Ghanaian and European common interests

 

Joint programming processes have so far focused mainly on programmable bilateral cooperation, because including other funds (thematic, regional, etc.) was seen as adding to the complexity of the exercise. However, some country experiences have highlighted pragmatic ways to address this issue.

 

A coherent response to the 2030 Agenda

The 2030 Agenda for Sustainable Development sets out 17 Goals that are ‘integrated and indivisible and balance the three dimensions of sustainable development: the economic, social and environmental.’ The 2030 Agenda also provides a commitment to ‘leave no one behind’, implying that complex issues related to exclusion and inequality within and between nations need to be accorded a higher priority. To achieve the targets associated with the 17 SDGs, new partnerships, increased use of innovative financing, and new networks of collaboration will need to be explored.

The European response is elaborated in the Global Strategy (2016) and the new European Consensus on Development (2017). Both documents recognise the need to implement a coherent European approach to addressing complex and multi-sectoral issues that were not always at the heart of development programming. The joint programming approach is in line with the 2019 EU Report on Policy Coherence for Development and is intended to bring together existing policy commitments.

These include:

Ensuring a joined-up response is the primary motivation for joint programming.

For example, joint programming could integrate the principles of the 2009 Conclusions on Democracy Support, the 2012 EU Strategic Framework on Human Rights and Democracy and the new Action Plan on Human Rights and Democracy, to lay the ground for further development of a common and practical response based on cooperation between the EU institutions and Member States to tackle these challenges.

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SENEGAL

 

In Senegal, migration is a strategic issue, which is referenced in a number of ways in the joint programming document. In particular, migration is part of the 2nd strategic objective (economic governance, public finance management and the fight against corruption; migration management; democratic governance and security). An analysis of the state of migration is provided in the document along with other strategic issues. Migration is also specifically monitored through the joint results framework, notably linked to SDGs 5 (gender equality), 8 (decent jobs and economic growth), 10 (reduced inequalities), 16 (peace, justice and strong institutions) and 17 (partnerships for the goals). The overall aim is to step up management of regular and irregular migration as a factor promoting sustainable development and there are tables with expected results, indicators, means of verification and lead actors. Finally, the joint programming document for Senegal also looks into the relationship between programmable and non-programmable aid, noting that both deal with migrant management, because they are complementary and help deliver the aims and results of the European Joint Strategy.

 

Including strategic issues in joint programming

Joint programming develops common approaches to strategic issues. It can incorporate existing bilateral work and design new programmes that build on common interests and collective expertise. To establish the scope of the joint programme while ensuring it remains feasible and realistic, the following approach is suggested:

  1. Head of Delegation, together with Member State Heads of Mission, should be closely involved in determining the scope of the joint programme. They are most closely acquainted with bilateral and EU policy and, as senior-level advocates for joint programming at country level, they will have national counterparts with decision-making responsibility on strategic, complex and potentially sensitive issues.
  2. The joint analysis will indicate the strategic issues that are most relevant to the partner country context as well as the potential for — and risk involved in — designing a successful response.
  3. Review the mapping exercise to identify existing support for strategic issues identified in the context analysis. This will establish the foundation for joint programming work.
  4. Informed by the context analysis, convene a discussion that will reconcile partner country realities with European policy priorities. This will inform the selection of priority sectors as well as programme design.
  5. Policy initiatives such as the Gender Action Plan, the EU country roadmaps for engagement with Civil Society, the Action Plans on Human Rights and Democracy, and the Humanitarian-Development-Peace Nexus already share common mechanisms, principles and goals with joint programming and may be integrated with the joint programming process in various ways.
  6. Use the outcome of internal reflections in dialogue with the government, national stakeholders and other development partners working on similar issues. It is strongly advised to include dialogue/consultations with the people (rights-holders) often represented by civil society organisations that will be affected by or benefit from the interventions, in order to create a participatory process in line with the rights-based approach. Where relevant, reference the national plan, international treaties and obligations, and the SDGs to frame the discussion in a normative manner.
  7. Develop a vision and/or proposal for how like-minded partners — including those not participating in joint programming — could work together to address specific strategic issues (agreed results can be included in the joint results framework).
  8. Set up an expert working group if specific expertise is required and resources are available. This group can lead on some or all of the tasks outlined above to inform the final decision on the scope of work and implementation modalities.
  9. When consensus about joint strategic interests and priorities is reached, agree on a detailed outline for the joint response and highlight any potential for joint implementation or division of labour.
  10. Manage partnerships and messaging through deliberate and careful use of communications to indicate policy direction and expected results on strategic issues.

 

Each section or chapter may be used separately to fulfil a specific need for guidance, which means there may be some overlap between the different parts of the document.

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