This section deals with methodology, representativeness of the study, the peer group, the product selected, the evaluator, study limitations and planning.
3.1 Study methods
Different study methods will need to be used in order to answer all the study questions. Information can be obtained from CNV and FNV in the Netherlands, and from Southern partner organisations. Broadly speaking, the following three types of methods will be used:
1) Study of documents
The evaluation will cover the period from the launch of the current VMP in early 2009 until the start of the evaluation study. Documents at the head offices of CNV and FNV will provide
information on the changes implemented by the organisations with regard to the selection of partners and partner countries and PME. The document review could also encompass an analysis of working methods and how the project is formulated.
To answer question 1 (selection of partner countries), other documents besides those on the countries in this evaluation could be used. Questions 2 (selection of partners) and 3 (PME) can be answered through the study of documents of partner organisations in the two countries concerned.
2) Interviews with CNV, FNV and partner organisations
Besides studying documents, the evaluator will interview key individuals at CNV Internationaal and FNV Mondiaal.
3) Field study in partner countries
The evaluator will conduct field studies in two partner countries: Ghana and Indonesia (see 3.2). Partner organisations in these countries will be asked to participate in the study.
3.2 Representativeness
The evaluation will not be representative. In view of the limited time and funding available, the evaluator can only perform an illustrative study. Field studies will be carried out in only two countries, Ghana and Indonesia.
These countries were selected on the following grounds:
The countries have been designated development cooperation partner countries of the Ministry of Foreign Affairs by the Minister of European Affairs and International Cooperation, Ben Knapen.
The countries are geographically distinct.
Both CNV Internationaal and FNV Mondiaal have partner organisations in the countries in question, so that partner organisations of both trade union federations can be evaluated.
There are an adequate number of partner organisations in each of the selected countries.
The countries were major recipients of FNV and CNV project funding in 2010. FNV Mondiaal‟s budget for Indonesia in 2010 was €421,490 and CNV Internationaal‟s budget for that country was €534,358. Of all the development cooperation partner countries, Indonesia is the largest recipient of funding from these organisations. The
budget for Ghana in 2010 was €270,352 for FNV Mondiaal and €99,036 for CNV Internationaal.
3.3 Peer group
Members
A peer group has been formed for this evaluation. It is chaired by Marion Derckx, head of the Civil Society Division and management team member of the Social Development
Department. The other five members are Conny Wedda for CNV Internationaal, Tjalling Postma for FNV Mondiaal, Lex van den Burg, representing the Sustainable Economic Development Department (DDE), the policy department concerned, Piet de Lange (IOB) as external, independent expert, and Maartje ten Brummelaar, policy officer (DSO/MO).
Tasks
The peer group‟s main tasks are monitoring quality and advising the head of the Civil Society Division, Marion Derckx, with regard to the ToR, the inception report, and the draft final report. The peer group will convene at least three times:
1) at the start of the evaluation, to discuss the ToR; 2) after CDP has submitted the inception report;
3) towards the end of the evaluation, to discuss the draft final report.
3.4 Product
The evaluator will draw up a final report in English, with a summary in Dutch. The report will set out the study findings and provide recommendations for a subsequent grant policy framework. The draft and final reports should not exceed 40 pages (excluding annexes). The draft report will be discussed by the peer group. The final report will in principle be publicly available, although access to parts of the report may be restricted if this is necessary to protect certain individuals. The Ministry is authorised to make decisions concerning public access to the report.
Annexe B: Overview of activities
Period/dates Activity Organisations
October
Week 40 Preparation/submission of proposal
CDP/BUZA
Week 41 Award of contract BUZA/CDP
Week 42 Interviews and dossier study CNV
CNV First inception report CDP Week 43 Interviews and dossier study
FNV
FNV
Reference group meeting Reference group Ministry dossier study (CNV) DGIS
Organisation of field visits/visas CDP
November
Week 44 Workshop with CNV staff
Dossier study / interviews CNV
Week 45 Second inception report CDP
Dossier study/interviews FNV Organisation of field visits CDP Start of reporting: outline and
Introduction
CDP
Week 46 Ditto, Travel to Ghana JF
Week 47 Meetings with CNV partners, visit to premises in Accra and Tema
GFL GS and Board members,
representatives of affiliates (6), Finance Department
Meetings with FNV partners/ visit to offices
CEO and GS of GTUC
GS GAWU, LRPI and Monitoring
specialist, BWI Health sector unions (6), Finance department GTUC
Workshop in GFL Affiliates (8), PME Committee and representative of BCPA
Workshop in GTUC Affiliates (7) and PME specialist, Streetnet Ghana, Finance Department Meetings with support structures BCPA (CNV) and ALRN (FNV)
Meeting at RDA Ambassador and Sector specialist Meeting with ILO IPEC and regional representative Debriefing GFL and GTUC GS, Board members
Travel to Indonesia JF
Additional dossier study FNV and CNV
December
Week 48 Meetings with CNV partners GS-KSBSI, representatives of 4 affiliates, Gender Committee, PME team
Workshop with CNV partners Representatives of all affiliates and confederations
Meetings with collaboration partners FNV
AJI, TURC, ICEM and project members IPPUWF, FSP, KEP, FPE SBSI, KIKES SBSI
FARKES, Khutindo/BWI Workshop on women in middle
management
10 women participants, TA Meetings with support structure TA FNV
Meeting with representatives ACILS and FES
Meeting with RDA Sector Specialist
Additional dossier study: FNV and CNV
CDP
Week 49 Meeting at FSPMI President, GS, Board members
Travel to the Netherlands JF
Workshop at FNV Staff of FNV Mondiaal
Ministry dossier study (FNV) DGIS Dossier study, analysis and
reporting
CDP Week 50 Dossier study, analysis and
reporting
CDP Week 51 Reporting and preliminary note
on Theory of Change/ tele- meeting with Ministry
CDP
January
Week 1 Dossier study, analysis and reporting
CDP Week 2 Presentation Results
Submission of first report draft
Reference Group/CDP Week 3 Feedback session on first report
draft
Reference Group/CDP Preparation of final report draft CDP
Week 4 Final report draft: Submission and Comments
DGIS Week 5 Submission of final report CDP
Annexe C: List of Dutch government partner countries and LDCs applicable to VMP
Country Category Country Category
Afghanistan Fragile (10) Angola Other LDC (32)
Burundi Bhutan Colombia Cambodia DRC Central African Republic Guatemala Gambia Kosovo Laos Pakistan Madagascar
Palestinian Territories
Malawi
Sudan Maldives Yemen Kiribati East Timor Bangladesh MDG (16) Nepal Benin Niger Bolivia Samoa
Burkina Faso Tuvalu
Ethiopia São Tomé and
Principe
Ghana Sierra Leone
Kenya Vanuatu
Mali Chad
Mongolia Comoros [OK]
Mozambique Djibouti
Nicaragua Eq. Guinea
Rwanda Guinea
Senegal Guinea Bissau
Tanzania Haiti
Uganda Lesotho
Zambia Liberia
Mauritania Burma
Egypt Broad relations (7) Solomon Islands
Georgia Somalia Indonesia Togo Moldova Suriname South Africa Vietnam
Being phased out after 2011 (7), so not applicable in 2012:
Albania Cape Verde
Armenia Eritrea
Bosnia & Herzegovina
Macedonia Sri Lanka
Annexe D: Overview of countries included in the FNV programme in 2009 and projected for 2012
Programme Countries Attention Countries
Exploratory
Countries Other DC Countries Phase-Out Countries
2008 2012 2008 2012 2008 2012 2008 2012 2008 2012 2008 2012
Belarus China Brazil Bangladesh Bangladesh - Angola Angola Albania Albania Paraguay Lebanon
China Colombia Burma Brazil Bolivia - Benin Benin Argentina Argentina Philippines Liberia
Colombia Ghana Guatemala Burma Cambodia - Burkina Faso Bolivia Armenia Armenia Swaziland Macedonia
Ghana India Indonesia Guatemala DRC - Burundi Burkina Faso Azerbaijan Azerbaijan Thailand Madagascar
India Peru Kosovo Indonesia Georgia -- Congo Braz. Cambodia Barbados Barbados Trin.&Tob. Malaysia
Peru S. Africa Mexico Kosovo Guinea - Egypt DRC Bosnia Belarus Tunisia Mali
S. Africa Zimbabwe Nigeria Mexico Laos - Ethiopia Egypt Botswana Bosnia Turkey Mauritius
Zimbabwe Palest. Terr. Nepal Moldova - Guinea-Bissau Ethiopia Cameroon Botswana Ukraine Mongolia
Serbia Palest. Terr. Nepal - Haiti Georgia Chile Burundi Uruguay Montenegro
Serbia Nicaragua - Kenya Guinea Costa Rica Cameroon Venezuela Morocco
Suriname - Lesotho Kenya Croatia Chile - Namibia
Liberia Malawi Dom. Rep Congo Braz. - Nigeria
Madagascar Mozambique Ecuador Costa Rica - Panama
Malawi Nicaragua El Salvador Croatia - Paraguay
Mali Niger Fiji Dom. Rep. - Philippines
Mongolia Pakistan Ecuador - Sri Lanka
Mozambique Rwanda Guyana El Salvador - Swaziland
Niger Senegal Honduras Eq. Guinea - Thailand
Pakistan Sierra Leone Côte d'Ivoire Fiji - Trin.&Tob.
Rwanda Suriname Jamaica Guinea-Bissau - Tunisia
Senegal Tanzania Jordan Guyana - Turkey
Sierra Leone Togo Kazakhstan Haiti - Ukraine
Sri Lanka Kyrgyz Rep. Honduras - Uruguay
Tanzania Uganda Lebanon Côte d'Ivoire - Venezuela
Togo Vietnam Macedonia Jamaica - -
Chad Yemen Malaysia Jordan - -
Uganda Zambia Mauritius Kazakhstan - -
Vietnam Moldova Morocco Kyrgyz Rep. - -
Yemen Namibia Laos - -
Zambia Panama Lesotho - -
Annexe E: FNV VMP programme: Financial flows over the last five years through bilateral and multilateral partners per category and per country, in euros
Expenditure 2008 2009 2010 2011 2012
Programme Countries (Until Nov.) Budget
China 588,396 346,925 558,806 393,694 454,000 Colombia 591,531 772,848 650,949 779,136 786,964 Ghana 322,008 245,416 270,352 246,423 400,000 India 948,121 903,115 851,579 779,705 748,000 Peru 627,599 577,889 562,902 564,120 420,000 South Africa 593,687 526,078 924,682 718,643 927,198 Zimbabwe 359,859 482,244 399,734 374,588 300,000 Subtotal 4,031,201 3,854,515 4,219,004 3,856,309 4,036,162 Attention Countries Bangladesh 275,660 256,255 201,450 174,612 238,600 Brazil 699,334 615,420 521,767 140,765 240,000 Burma 134,380 227,049 98,093 109,470 215,600 Guatemala 59,173 58,547 59,435 55,190 90,000 Indonesia 227,856 315,653 421,490 287,548 320,400 Kosovo 11,865 16,986 180,360 52,848 97,680 Mexico 492,575 359,385 444,794 339,174 210,000 Nepal 89,376 135,106 149,894 208,858 175,000 Palestinian Terr, 118,605 31,628 91,487 101,215 96,800 Serbia 21,820 23,562 25,504 26,279 96,904 Subtotal 2,130,644 2,039,591 2,194,274 1,495,959 1,780,984 Other DC Countries Angola 33,149 58,667 38,538 18,971 50,000 Benin 21,951 8,618 20,346 21,040 25,000 Bolivia 9,843 22,993 38,741 19,941 40,000 Burkina Faso 208,474 35,459 26,957 12,700 25,000 Cambodia 6,851 59,045 38,198 27,138 25,000 Chad 19,200 30,690 10,452 28,700 25,000 DRC 48,135 115,356 118,357 115,638 150,000 Egypt 80,664 30,920 62,707 92,168 100,000 Ethiopia 7,131 13,758 20,165 25,528 50,000 Georgia 11,764 14,067 10,047 6,557 29,054 Guinea 42,351 73,447 59,672 101,916 50,000 Kenya 366,666 102,879 143,683 178,619 150,000 Malawi 52,253 36,566 35,548 78,423 75,000 Mozambique 58,800 61,432 51,995 23,752 50,000 Nicaragua 27,255 44,723 47,216 92,425 130,000 Niger 36,451 24,422 9,956 13,514 25,000 Pakistan 107,540 57,665 34,303 76,946 60,000 Rwanda 8,636 9,255 - 500 - Senegal 8,618 20,090 24,990 43,412 50,000 Sierra Leone 19,783 69,837 68,691 50,144 50,000 Suriname - 31,624 20,993 54,537 20,000 Tanzania 111,156 106,466 77,227 122,394 125,000 Togo 29,163 43,056 31,997 43,450 50,000 Uganda 98,395 41,615 49,478 59,363 50,000 Vietnam 45,510 82,527 105,238 72,931 85,000 Yemen 25,421 13,459 25,056 26,000 22,000
Zambia 90,951 70,616 65,961 117,634 80,000 Subtotal 1,576,111 1,279,252 1,236,512 1,524,341 1,591,054 Phase-Out Countries Burundi 6,326 3,357 - - - Albania 60,947 29,306 3,032 5,836 - Argentina 242,207 82,177 56,572 7,292 - Armenia 9,369 19,765 11,627 4,827 - Azerbaijan 9,600 30,130 20,627 9,147 - Barbados 18,637 5,355 16,431 5,000 - Belarus 167,332 194,435 89,126 8,063 -
Bosnia & Herz, 54,313 76,117 405 5,329 -
Botswana 36,817 21,970 - - - Cameroon 2,791 1,860 - - - Chile 65,543 48,661 34,837 5,883 - Congo Brazzaville 3,932 - - - - Costa Rica 7,443 5,721 14,937 2,084 - Croatia 25,484 28,140 3,032 5,836 - Dom, Rep, 7,777 7,382 10,881 1,292 - Ecuador 82,059 42,495 80,878 11,295 - El Salvador 6,220 4,190 2,750 1,292 - Eq, Guinea 836 - - - - Fiji 28,945 8,068 - - - Philippines 170,687 102,036 68,389 8,344 - Guinea-Bissau 2,394 - - - - Guyana 6,500 2,617 16,431 5,000 - Haiti 2,394 - - - - Honduras 20,772 12,123 12,443 4,155 - Ivory Coast 34,691 12,709 - - - Jamaica 8,677 6,193 16,431 5,000 - Jordan 87,703 13,459 46,537 39,518 - Kazakhstan 5,937 25,835 22,134 7,200 - Kyrgyz Rep, 15,401 28,325 18,761 4,827 - Laos 16,043 - - - - Lesotho 8,618 9,360 - - - Lebanon 84,791 15,059 43,403 42,190 - Liberia 14,424 43,021 43,306 1,550 - Macedonia 46,978 27,041 13,788 - Madagascar 3,932 - - - - Malaysia 160,573 164,009 85,242 24,846 - Mali 60,972 34,477 20,706 7,840 - Mauritius 28,259 10,837 - - - Mongolia 4,616 - - - - Montenegro 24,693 26,422 3,032 5,481 - Morocco 18,699 129,190 98,705 5,645 - Namibia 150,610 79,927 43,075 - - Nigeria 310,173 237,628 127,800 43,525 - Panama 32,667 13,467 12,301 9,566 - Paraguay 32,073 13,840 12,875 139 - Sri Lanka 73,214 103,231 43,090 35,769 - Swaziland 59,504 26,720 34,515 - - Thailand 151,041 73,094 52,963 7,747 -
Trinidad & Tobago 9,822 2,641 16,431 5,000 - Tunisia 3,932 3,603 - - - Turkey 92,521 69,039 52,515 40,957 - Ukraine 84,001 191,815 143,127 40,107 - Uruguay 55,376 50,385 31,968 206 - Venezuela 73,387 43,026 44,409 27,471 - Subtotal 2,792,653 2,180,258 1,469,512 445,259 Total: 54 Sources:
FNV annual reports for 2008/2009/2010, a list of preliminary expenditure up to 30 November 2011, and Work Plan 2012.
Annexe F: Case studies: FNV programmes in Ghana and Indonesia
The FNV-Ghana programme
Ghana is a Programme Country, so the interventions and partnering were to be reassessed through a context study (a programming exercise for a multiannual and strategic plan). The result would be a focused country programme and longer-term collaboration with partners, following organisational reassessment. In practice, decision-making takes place through many other mechanisms and generates a wide range of interventions in line with the VMP content-wise objectives:
- The number of partners, ways of working and areas of intervention are being expanded through a combination of financing and partnering modalities, The Ghana Trade Union Confederation (GTUC) is a long-standing partner and the most significant actor in the Ghana labour movement to date. GAWU is a second bilateral partner and also affiliated to GTUC. Multilateral financing is substantial.
- Collaboration with GTUC has not been questioned as such, since GTUC has been a long- standing partner and has many strengths: it is well positioned, has a sound operational basis (17 affiliates), is represented in the different sectors and has a reasonable level of dues payment.1 It is accepted that activity/project funding needs to be external. Working with this organisation is a matter of habit rather than choice.
- The GTUC confederation level and a selected five out of 17 affiliates were to benefit from assistance. The affiliate selection would produce a greater degree of focus. In that case, the mechanism would entail needs being identified by GTUC and the five affiliates taking the lead. The GTUC activities may be relevant for all affiliates (e.g. working on social security systems). Activities are conducted in five sectors of the economy.
- It was decided that only 4 Decent Work themes2 would be selected for the Ghana Country programme, as well as the additional objective of Organisational Strengthening. Although limiting the number of DW themes implies a certain degree of focus, the options3 taken include a wide variety of activities such as initiatives to ensure application of the law on paying basic salaries, collective bargaining negotiations, increasing worker membership in the formal and informal sectors, lobbying for international framework/conventions (or preventing others from being concluded), social security for all (including payment of pensions, unemployment benefits, maternity leave, healthcare coverage for multiple children per family/worker, payment of medication, living wage, minimum wages per sector, training and awareness-raising on such topics and associated specific research), gender issues, and extension of workers‟ rights to include informal sector workers. With regard to social dialogue, there are plans for tripartite and bipartite talks with employers‟ organisations and representation in forums such as the National Labour Commission. This shows that DW themes are quite accommodating and not at all selective.
- Financing through several GUFs, notably the Building and Woodworkers‟ International (BWI) and the Public Services International (PSI), as well as the International Federation of Chemical, Energy, Mines and General Workers Union (ICEM).
o Such funding may be earmarked, e.g. the specific project set up for health sector reform (especially pay reforms/research and working out of the Single Spine Salary structure in the sector as well as capacity building in the organisations).
o Alternatively, support may take the form of more generic financing for GUF-affiliated unions in several countries, including the Timber and Woodworkers Union (TWUG) in Ghana, for the programme on HIV/AIDS awareness building.
- Direct financing of research institutes and their activities, such as the Labour Research and Policy Institute. The LRPI is attached to the GTUC, the temporary coordinator of the ALRN research network for 13 countries in Africa, which also benefits from bilateral
1
The Deputy Secretary-General says that this may not be the case for three of the affiliates. 2
The Right to organise and collective bargaining (DW 2), Employment (DW 6), Social Security, including the informal sector (DW 7) and Social Dialogue (DW8).
3
activity financing like carrying out the Ghana contextual analysis, as well as from more structural multilateral financing.
- The focus on crosscutting issues like child labour and gender for which separate activities may be formulated, will be financed either bilaterally or multilaterally
- Financing in collaboration with FNV Affiliates, e.g. eradicating child labour in the cocoa production and industry value chain.
- The option to also include the informal sector4 and consecutive decision-making should
open up possibilities for a very wide range of additional interventions:5
o GAWU has a long history as a union representing formal sector workers, particularly in the cocoa and farming sectors. Many workers lost their jobs and had to take up or return to self-employment in agriculture so as not to lose their membership. GAWU developed initiatives6 to help get them started: setting up farmers‟ unions at community level in many districts, providing inputs, generating opportunities for off-farm employment activities (revolving fund), providing extension (information sharing, post- harvest management) and marketing information through ITC, strengthening women‟s participation in the sector, linking structures at national, regional and local levels and associated advocacy, as well as strengthening the capacity of GAWU to include informal sector workers.
o In collaboration with Streetnet International7 as well as through GTUC, the Alliance of
five local unions of traders (mainly women) is receiving support to set up the organisation (rules/regulations, by-laws, linking with GTUC), work on environmental health in markets, conduct research and highlight the role of women. Some of the network members are also participating in projects financed by VMP through other channels.
o The Timber and Woodworkers Union (TWUG) focuses on formal and informal sector workers, partly also because its membership is diminishing.8 With around 9,000 workers its position is relatively weak. They include informal sector workers like artisans and woodworking entrepreneurs. As part of the GUF-BWI initiatives linking activities to a sustainable forestry framework, the union is undertaking reforestation of 160 hectares, for which it employs workers. It thus generates a workforce and future members for its organisation.
Such activities also have been initiated by FNV and can be justified for their own sake. However, this does prompt a number of questions. How much focus is lost, including at the organisational level? Are all the activities still part of the unions‟ core tasks? Some of these activities may be more in line with the mission of other organisations like NGOs or government services. They also mean that unions‟ energies are diverted from their original target groups.9
4
It is part of ILO policy and the Decent Work Agenda to include informal sector workers, but this means taking on a large variety of sectors and in most countries, enormous numbers of workers. It also means that existing mechanisms, like deducting dues at source from salaries, do not necessarily apply.
5
The same applies to part of the Ghana Federation of Labour activities financed by CNV. 6 FNV is supporting GAWU with €211,291 for three years.
7
An INGO which is also part of ITUC. 8
Since informal workers contribute little financially, and in view of the work involved, this union may not be ideally suited to pioneering in this field.
9
Financially, these extra efforts are often too much to ask for, since unions find it very difficult to collect dues from participants in the informal sector and thus retain their membership. The additional services draw quite heavily on the limited resources of most of these unions, who already have too few members to run their staff and operations. In such cases, project funding becomes a means of paying the staff assigned to the project, but it means that they should then focus on that. As a result, the new orientations do not become internalised.
Conclusions
- The resulting Ghana programme accommodates a large array of useful and basically justifiable interventions10, which are valuable to the labour movement and workers‟ organisations and also improve the situation of workers.
- The mechanisms combine to form a broad programme that lacks content-wise focus because interventions are run in parallel.11 Multiannual programming, which would remedy such a situation, has not been very effective so far,12 largely due to the same mechanisms.
The FNV-Indonesia programme
Indonesia is not a Programme but an Attention Country. The sequence of contextual analysis, organisational analysis and multiannual programming for the country as a whole has therefore not yet been launched. The projects contribute to five Decent Work Agenda themes (1,2,3,6 and 8: e.g. negotiating, freedom of association and crosscutting issues), next to the strengthening of unions/federations.13 Some relationships (e.g. with Kahutindo) are long-standing, and have not yet been reassessed. The list of ongoing projects – both bilaterally and multilaterally funded – is relatively long and does not suggest content-wise focus at first sight.
However, the projects target unions and sector federations in a relatively limited number of sectors, with a large formal workers‟ component. Informal (contract and agency) workers are also covered. The bulk of the efforts are focused on or through four or five organisations which show initiative. The FNV sees these as „frontline organisations‟, as they have a