D+C Development and Cooperation (No. 5, september/October 2000, p. 27)

Sharper Focus for German Development Aid

Karin Adelmann

We should no longer swing the watering-can over the globe. Let us give up 'projectitis' in development policy and work towards real structural changes in the poor countries." Such demands have long been common in the developmental debate. To date, no political masters of the German Federal Ministry for Economic Cooperation and Development (BMZ) have had the courage to implement these goals. But that appears to be changing. The ministry on May 10 presented the Bundestag (Federal Parliament) Committee for Economic Cooperation with a concept that plans to reduce the number of Germany's cooperation partners and set sectoral priorities

Key partner countries

Of the world's present 146 developing countries, an average of about 118 have in the past received bilateral aid from Germany. In future, they are to number only about 70. In terms of sectoral priorities, bilateral cooperation is to focus on key areas in line with the "economic, social, ecological and political objectives and interests" of German development policy, and by which a "relevant contribution" to improving the structures in the partner countries can be expected. These points, as well as the inputs of the other bilateral and multilateral donors and the internal framework conditions in the respective countries, serve also as categories for their selection and classification as either 'Key partner countries' or 'Partner countries'.

The proposal to the Parliamentary committee says: "In key partner countries we should use our entire developmental instruments, and in selected countries only three focal points if possible should be covered to an appreciable extent." BMZ department head Michael Bohnet names as typical examples Egypt, the Palestinian Autonomy Areas, South Africa, Mozambique, Mali, Bangladesh, Vietnam, Bolivia and Peru. Because of the current intensity of cooperation with most of the key partner countries, concepts for them are already in place. For some, country concepts must still be developed. Bilateral development cooperation with the so-called 'Partner countries' is to be limited if possible to only one focal point, such as rainforest protection in Brazil, industrial environmental protection in Mexico and water resources management in Jordan. The BMZ will not develop country concepts for these countries, but will probably draw up focal point strategy papers for them.

No rigid country list

Realistically, the BMZ adds, its concentration on fewer focal points can only be achieved in the long term and in agreement with the cooperation countries and the other donors. "Concentration therefore must be seen as a process; current projects will be completed." Bohnet emphasises that classification of a country as a 'key partner' or 'partner' in no way means fixing the level of future development aid. "The difference between them is solely in programming and the intensity of the work." The country list, Bohnet adds, also should not be seen as a rigid instrument. "In the course of time it can be adjusted to developments." He says that in no case must there be 'development ruins'. "Current projects will be completed." Content focal points also are not be perceived as an inflexible principle, but as an orientation goal.

The departure from the 'watering-can' formula is being driven in part by the constraints of the government's budget consolidation. BMZ State Secretary Erich Stather emphasises that cost-cutting is not the main reason for the reform. "Setting focal points will improve the quality of our work," he says. "It is about increasing the effectiveness of the resources employed." The government's implementing agencies of Technical Cooperation (TC) and Financial Cooperation (TC), that is, the GTZ and KfW, are bound to the guidelines. The German Foundation for International Development (DSE), the German Development Service (DED) and the Carl Duisberg Society (CDG) are also to align their strategic planning on the BMZ's list of key area and partner countries.

For NGOs in development cooperation, church aid organisations, political party foundations and private project implementing organisations, the country lists are meant to serve merely as orientation. Their activities will not be restricted. The BMZ adds that the work of churches, foundations and NGOs in countries with which Germany has no official development cooperation will be possible and is expressly welcomed. That applies in particular to countries which the BMZ concept classifies as "potential cooperation partners". There are 14 such countries at present, including Sudan, Syria and Myanmar (Burma), with which the BMZ would like to cooperate under changed framework conditions. Naming them as potential partners is meant to send them a signal, as well as make the BMZ's decisions transparent.

That leaves the countries that are to be dropped from bilateral development cooperation, including Swaziland, Lebanon and Malaysia. The BMZ plans to continue cooperation with these countries at the multilateral level, such as via the World Bank and regional development banks, and as part of the European Union's development cooperation. Regional organisations and regional cooperation between developing countries are to continue to be given special promotion.

Karin Adelmann Translated from epd - Entwicklungspolitik.