SOE 2007 Policy Brief - SAARC Development Goals

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Sri Lanka: State of the Economy 2007

‘Empowerment of the Poor’

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13. SAARC Development Goals

13.1 Introduction

Accommodating almost one fourth of the world’s population, South Asia is home to 47

per cent of the world’s poor living on less than US$ 1 a day. In absolute terms, South

Asia has the highest number of poor people – even more than Sub-Saharan Africa – and

as a region South Asia is not even on track to achieving any of the human development

goals, although of course performance may vary across countries. It would seem that

even after more than 50 years of independence from colonial rulers there has not been a

corresponding freedom and prosperity for the vast majority of the population of the

region. Even in terms of political freedom, there seems to be a gap in more than one

South Asian country.

This phenomenon has led to considerable debate over the past few years on what should

be done to eliminate poverty and related problems in South Asia. This was reflected at

the 12th SAARC Summit held in Pakistan in 2004, where the Heads of State directed the

Independent South Asian Commission for Poverty Alleviation (ISACPA) to set out a

comprehensive and realistic blueprint, setting out SAARC Development Goals (SDGs)

for the following 5 years in the areas of poverty alleviation, education, health and

environment. At the 13th SAARC Summit held in 2005, the Heads of State decided to

declare 2006-2015 as the SAARC Decade of Poverty Alleviation and endorsed the SDGs

which are to be achieved by 2010. With this deadline only three years away, it is prudent

to ask what the progress, if any, has been in achieving these goals.

Although as a region, South Asia is not on track to meet many of these goals, Sri Lanka’s

progress has been better than most, but it may also not be able to meet the goals by 2010.

It raises the question of whether the 2010 deadline is unrealistic. The latest report

published in March 2007 by the ISACPA on Taking SDGs Forward would seem to

indirectly suggest this to be so, whereby almost all references to the deadline of 2010

have been shifted to 2012. What is needed to be determined at this stage is whether the

region is spending time and resources in creating different sets of goals and targets

(which are not achievable and are then subsequently rescheduled) rather than actually

getting on with the task at hand – i.e., to achieve the ultimate objective of improving the

standard of living in the South Asia region by targeting the key areas of poverty,

education, health and environment.





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13.2 Description of the SDGs

In order to assess the suitability/necessity for setting SDGs, a closer examination of the

goals and how they are measured is required. The SDG report on An Engagement with

Hope finalised in 2004 identified a set of 22 goals of which 8 are related to livelihood, 4

to health, 4 to education and 6 to the environment. The report published in March 2007

recommends the adoption of 67 indicators to be used in monitoring these goals.1

Box 13.1: SAARC Development Goals (2005-2010)a

Livelihood SDGs

Goal 1 Eradication of hunger and poverty

Goal 2 Halve proportion of people in poverty by 2010 (i.e., within the period 2005-2010)

Goal 3 Ensure adequate nutrition and dietary improvement for the poor

Goal 4 Ensure a robust pro-poor growth process

Goal 5 Strengthen connectivity of poorer regions and of poor as social groups

Goal 6 Reduce social and institutional vulnerabilities of the poor, women, and children

Goal 7 Ensure access to affordable justice

Goal 8 Ensure effective participation of poor and of women in anti-poverty policies and programmes

Health SDGs

Goal 9 Maternal health

Goal 10 Child health

Goal 11 Affordable health-care

Goal 12 Improved hygiene and public health

Education SDGs

Goal 13 Access to primary/communal school for all children, boys and girls

Goal 14 Completion of primary education cycle

Goal 15 Universal functional literacy

Goal 16 Quality education at primary, secondary and vocational levels

Environment SDGs

Goal 17 Acceptable level of forest cover

Goal 18 Acceptable level of water and soil quality

Goal 19 Acceptable level of air quality

Goal 20 Conservation of bio-diversity

1 There was also an additional 23rd SDG suggested by the Sri Lankan implementing authority on

environmental disaster management aimed at reducing the impact of natural disasters, as well as industrial and other disasters. This could be seen as a response or an attempt to contextualise the goals following the 2004 tsunami. However, this has not been included.





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Goal 21 Wetland conservation

Goal 22 Ban on dumping of hazardous waste, including radio-active waste

.

As can be seen when looking at the goals, they are in line with the existing Millennium

Development Goals (MDGs) but are more detailed and also more ambitious (see Box

13.1). This is somewhat surprising considering that many of the countries in the region

are not even on track to meet the MDGs (made up of 8 major goals, 18 targets and 48

indicators) leave alone the SDGs. One of the objectives of formulating the SDGs was to

contextualise the MDGs to South Asia, and whilst this makes sense it is questionable

whether the correct solution is to create additional goals which may not be achievable

under the current institutional framework.

13.3 Current Status of SDGs in Sri Lanka

The set of 67 indicators suggested in the 2007 report Taking SDGs Forward are easily

applicable to all the South Asian countries and can be measured nationally and compared

regionally. However, given the vast quantity of information required for this purpose, the

task of monitoring remains yet to be implemented. At present, the monitoring and

implementing authority is the Samurdhi Division which falls under the purview of the

Ministry of Nation Building and Estate Infrastructure Development. Even though some of

the projects initiated under the MDG Plan (Jana Pubudu, Gam Pubuduwa, Gemidiriya,

etc.) are implemented by this division, it is not directly involved in implementing the

MDGs and is solely responsible for the SDGs in Sri Lanka.

As the indicators were only finalized in January 2007 progress is yet to be assessed.

However, a country report on the SDGs in Sri Lanka together with a regional poverty

profile is due to be completed by the end of 2007. This will be used in the evaluation

process. In the case of the MDGs, Sri Lanka is either on track or has already achieved

some of the targets in relation to poverty (halving the proportion of people living below

US$ 1 a day); education (on track to achieve MDG 2 of universal primary education and

some of the targets under MDG 4 in relation to gender equality in education) and health

(on track to achieve MDG 4 and 5 in relation to child mortality and maternal health).

As there is an overlap in information in some cases, this can be used to ascertain to some

extent how far Sri Lanka is on track to achieving the SDGs. However, this has to be done

Notes: a: In the new report Taking SDGs Forward the time frame is 2007-2012.Source: ISACPA, 2004, An Engagement with Hope-SAARC Development Goals 2005-2010.





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at the level of indicators because when looking at individual goals a greater number of

indicators and targets have been suggested for the SDGs. For example, SDG 9 on

maternal health is the same as the MDG 5 to improve maternal health. However, in the

case of the MDG, the indicators used are maternal mortality ratio per 1000 live births and

proportion of births attended by skilled health personnel, whereas in the case of the SDG

in addition to these two, life expectancy of women as a ratio of life expectancy of men

and age specific fertility rate of 15-24 years of girls has also to be used. Whether the

latter is relevant here is questionable as it does not refer only to mothers but to the entire

female population. Sometimes, collecting too much information can actually be less

helpful and act to confuse, rather than provide some form of clarity. Though data

collection for the calculation of indicators has not commenced yet, it is expected that the

Samurdhi Division will work with its supervising ministry and other relevant ministries

in order to obtain the information.

The original report on An Engagement with Hope talks about costing and how it signals

commitment. All of which is undoubtedly true. However, at present there is no separate

budget for the implementation of the SDGs. The Samurdhi Division is expected to

balance these within its original budget allocation. Perhaps in terms of necessary actions

and projects to achieve the goals, this is sensible. However, for monitoring and evaluation

purposes – both of which bear a cost – it is necessary to allocate sufficient resources both

financial and otherwise.

13.4 Challenges and Implications for Sri Lanka

There are a number of key challenges to be faced in implementing the SDG goals. A few

of the main issues that were noted at formulation stage and mentioned in the original

SDG document on An Engagement with Hope are;

• Incorporation of the SDGs into national development plans/poverty reduction strategy papers (PRSPs) and prioritization of the SDGs in light of national concerns and the limited time frame:

• Developing an effective implementation plan;

• Resource allocation, management of public expenditure, resource mobilization, exploring external resources and building multi-stakeholder partnerships;

• Establishment of credible database at both national and regional levels;

• Tracking progress and putting in place a proper monitoring mechanism; and





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• Ensuring regional cooperation wherever feasible and necessary.

The first of these is a very valid one and also one very relevant to Sri Lanka where there

are a number of different goals in existence. National development plans have to some

extent incorporated the MDGs. The government’s Ten Year Plan has made a number of

references to the MDGs, and in addition, a number of key projects have been initiated

under each of the 8 goals. What remains now is to combine and synergise the SDGs with

the existing plans so that an action plan can be formulated to achieve any targets not

accounted for in the existing plans.

Any action plan that is developed should be clear and effective. There should be clear

accountability so that progress can be properly tracked and monitored. It is so often the

case that responsibilities are not clearly allocated so that there is often confusion and

inefficiency which will ultimately result in failure to achieve these goals.

Resources should be allocated in an adequate and sensible manner. As mentioned in the

original SDG report “costing signals the seriousness of purpose”. Therefore, public

expenditure and national budgets should reflect a commitment to achieving these goals.

Establishment of a credible database at a national and regional level is important for

monitoring purposes. There already exists a database for monitoring the MDGs at the

national level created by the Department of Census and Statistics (though this only

monitors 23 of the 48 indicators) and another set of progress cards by those implementing

the goals. These only need to be expanded to take into account the 67 indicators under the

SDGs. Of course, for an investment in such a database to serve any purpose it needs to be

complemented by an efficient and effective monitoring mechanism. Given the short time

frame, progress needs to be monitored frequently and implementing officials should be

accountable and reasons given in the event of failure to achieve certain goals.

Ensuring regional cooperation wherever feasible and necessary, is seen as a challenge in

the original SDG report of the ISACPA. In today’s context where at the best of times

there is a certain level of discord between countries over borders, defence policy and

trade matters this could be seen as a challenge of sorts. But such a level of co-operation is

generally beneficial to all parties. This is even so in terms of resource mobilization. For

example, the SAARC Development Fund created in 1996 (originally known as the South





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Asia Development Fund) is for projects in the region which are of significant economic

interest in two or more countries. This Fund is made up of three windows: social,

economic, and infrastructure of which the ‘social window’ is for poverty alleviation and

social development projects, and thus covers the achievement of the SDGs. This window

could be used more effectively for the purpose of achieving the SDGs if countries co-

operate with each other.

13.3 Conclusion

The key objective when formulating the SDGs was to bring to the forefront the

international imperative of achieving the MDGs and going beyond and further than these

targets. It also aimed to contextualize these goals for the South Asia region in order to

achieve these goals and allow for a poverty free South Asia. However, putting theory into

practice is no easy task – especially when dealing with such ambitious and all

encompassing goals. At least in the Sri Lankan context where there is already a

monitoring mission for the MDGs, and where there also exists a separate authority to

achieve the national Ten Year Plan, it might appear that the SDGs represent an additional

burden. Furthermore, as there is no separate budget for the SDGs within the Samurdhi

Division, its implementation could compete with other concerns that do not directly fall

under the SDGs. In the context of the ongoing conflict in the country, the number of

displaced people and communities, perhaps resources will need to be channelled to

otherwise more urgent needs.

In order to make best use of these goals and minimize duplication, it is important that the

monitoring be done together with the monitoring of the MDGs. As these two are

complementary, it is not sensible to treat them as mutually exclusive and independent.

Also, as the Samurdhi Division is responsible for implementation it would make sense for

the monitoring to be carried out by a separate independent authority. The Department of

Census and Statistics would seem to be geared for this task as they are already involved

in the monitoring of the MDGs and, therefore, would appear to be the ideal candidate to

play the role of monitoring authority.

The Sri Lankan strategy for achieving the MDGs is led and administered by the Ministry

of Finance and Planning together with the support of the United Nations Development

Programme (UNDP) which provides direct implementation assistance. The National





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Council for Economic Development (NCED) is also involved and brings together

stakeholders from the private and public sector in order to develop appropriate economic

policies and plans. Yet for some unspecified reason, implementation of the SDGs falls

under the Ministry of Nation Building and Estate Infrastructure Development. Given that

both sets of goals are meant to complement each other, it would be sensible to have them

fall under one umbrella. In this manner, efforts can be combined and duplication of

efforts avoided. Given that information collection for the SDGs is done with the

assistance of other ministries it would be easier if the tasks for both the MDGs and SDGs

are consolidated to some degree, thereby easing the burden on those involved in

supplying data and working for each of these line ministries. Given the need for

prioritization of the SDGs, it would seem that it is necessary to educate the public sector

on their existence as many ministry employees are not aware of the SDGs.

Overall, any action plan in this regard has been delayed. With deadlines being pushed to

2012, it brings into question whether the set goals can be achieved. While the SDGs

appear additional to the requirements – and could possibly serve to confuse – in view of

existing MDGs, as they have already been set and targets decided upon, it would be

sensible at this stage to combine MDG and SDG efforts and set a clear agenda of both

sets specifying what is to be achieved and when.

SOE 2007 Policy Brief - SAARC Development Goals

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