4 Remaining challenges
30. While there were many positive outcomes to the
Summit, it was clear that a number of significant challenges must
be addressed if the international community is to have a chance
of meeting the MDGs. One of these, as briefly discussed at the
end of Chapter 3, is to build clear lines of accountability from
the Summit, establishing clearly who is responsible for achieving
what. Another is to bring the most off-track Goals back into range.
A third priority is ensuring that global development actors, notably
the UN, are working at maximum capacity to lead progress on the
Goals in the short time left before 2015.
Securing progress on the most
off-track goals
31. As we described in Chapter 2, a number of MDG
targets will not be met if current trends are sustained. The most
off-track include the MDG 1 target on hunger, MDG 2 on education,[57]
MDG 3 on gender equality, MDG 5 on maternal health and the MDG
7 target seeking to halve the proportion of people without access
to basic sanitation. The scale of the challenge for most of these
targets is very serious. For example, a UN study found that 20
of 30 countries surveyed were either off-track or required corrective
action to achieve the education MDG, and only seven were on-track
for maternal health.[58]
32. The sanitation target is also seriously off-track
and, as we said in Chapter 2, on current trends will not be met
until the 23rd Century. In its 2007 report on Sanitation and Water,
our predecessor Committee called the failure to address sanitation
provision "a hidden international scandal that is killing
millions of children every year."[59]
On current trends, the target will be missed by one billion people.[60]
WaterAid told us that DFID should increase the volume of
UK aid spent on water, sanitation and hygiene (WASH) to £600
million annually, and do more to integrate WASH within health
and education goals and strategies. It also recommended that DFID
"commit the highest levels of government support" for
the international Sanitation and Water for All partnership.[61]
A side event on sanitation and water was held at the Summit; WaterAid
reported that a number of states recognized and gave their
support to the partnership.[62]
33. While it is beyond the remit of this report
to explore all the factors constraining progress on all the off-track
Goals, we are deeply concerned about the number of targets that
are seriously lagging. Specifically, we wish to note the worrying
lack of progress on MDG 1 target on hunger, MDG 2 on education
and MDG 3 on gender equality. We have particular concern about
the MDG 7 target on sanitation, which looks set to be missed by
at least one billion people. Our predecessor Committee challenged
DFID in 2007 to intensify its efforts on the Goal—but nearly
four years on progress towards the Goal is still lagging. We urge
DFID to look carefully at the balance of resources it gives to
sanitation, and to ensure sanitation concerns are well-integrated
into health and education strategies. We were encouraged to hear
that a number of new countries gave their support to the Sanitation
and Water for All partnership at the Summit, and recommend DFID
does all it can to boost international support for this important
initiative.
THE GENDER-RELATED MDGS
34. In this short report, we are unable to examine
all the MDGs, so we have decided to focus on MDG 5, which seeks
a reduction by three-quarters of the ratio of women dying in childbirth.
This is the Goal that is currently most off-track. The results
of DFID's programmes reflect this: only two out of DFID's 22 priority
countries are on track to achieve MDG 5.[63]
As our predecessor Committee said in its 2008 report on Maternal
Health, the reasons for the very poor levels of progress on the
Goal are manifold. But central to the problem is the fact that
women's ability to exercise their right to maternal health is
directly affected by the gender, social, cultural and economic
inequalities they face.[64]
Women are more likely to face poverty, poor educational opportunities,
violence and oppressive socio-cultural norms than men and are
therefore less able to articulate their demand for better care.
Given this, making progress on MDG 5 will depend on advancements
made towards the other gender-related goals, for example the MDG
1 target promoting employment for all, and MDGs 2-3 seeking full
participation in education. As Myles Wickstead, Head of Secretariat
for the Commission for Africa, emphasised to us, the reverse is
also true: progress on maternal health (MDG 5) will have "a
huge impact across the board".[65]
A 2010 UN paper on gender underlined this.[66]
For example, gender discrimination continues to: keep girls out
of school (slowing MDGs 2 and 3); lead to women's under-representation
in the labour market and in parliaments (MDGs 1 and 3); and perpetuate
high rates of maternal mortality (MDG 5).
35. The Summit produced some important outcomes for
addressing gender inequality. For example, the Global Strategy
for Women and Children's Health had a significance extending beyond
new financial pledges: it offered what Professor Wickstead called
a "very strong political push" in order to show how
far behind the maternal health target had fallen and focus attention
on it.[67] Another positive
outcome was the World Bank's announcement of an additional $750
million for 79 countries off-track on the education MDGs.[68]
In sub-Saharan Africa and South Asia, this will include support
for gender-focused interventions such as girls' scholarships.
36. Secondary education offers particular benefits
for both girls themselves (in terms of their daily lives, employment
and ability to move out of poverty) and economic returns for societies
(smaller families, a larger labour market and improved health
and education outcomes for whole families).
Yet recent statistics show that only 44% of
girls in developing countries progress through to secondary education.[69]
DFID's Business Plan says new programmes will be approved to increase
the number of girls completing primary and secondary education,
which indicates a shift in emphasis from the Department's previous
focus on increasing girls' enrolment in primary education.[70]
The Secretary of State described to us the importance of educating
girls:
The impact down the generations over a number
of years—it is not instantaneous—of having more girls
educated through schools is incredibly important. They increasingly
take leadership positions in their own government—there
is evidence of that happening in Afghanistan—but also in
their own communities, driving forward the importance of girls'
education having had it themselves, ensuring that their own children
become doctors, teachers and so forth, and having fewer children
as a result of education, as all the research shows.[71]
The Minister has made a wider commitment to re-orient
DFID's programme to prioritise women's needs.[72]
DFID is currently carrying out a review of its bilateral programme,
the results of which will be published in the first quarter of
2011.
37. We are deeply concerned about the very poor
progress on MDG 5 seeking to reduce maternal deaths. Our concern
extends to DFID's own performance on this issue, given that only
two out of DFID's 22 priority countries are on track to achieve
the MDG. We welcome the new Government's decision to put
women's needs at the centre of DFID's programmes. We urge DFID
to implement this objective as quickly as possible and provide
details of how this will be done when the Bilateral Review is
published in early 2011.
38. We believe that making progress on MDG 5 will
rely on addressing wider gender inequalities that obstruct women's
ability to exercise their right to health. We welcome Summit outcomes
that will help address gender inequality, including the Global
Strategy for Women's and Children's Health which sent a strong
political message to Governments about the prioritisation of maternal
health and gender issues. We also welcome the announcement of
increased World Bank funding for education. As a major shareholder
in the World Bank, DFID should help ensure this new funding promotes
secondary level education for girls. We look forward to seeing
the results of DFID's own increasing focus on girls completing
secondary as well as primary school.
39. Another major obstacle to meeting MDG 5 is that
some developing country governments have not shown the necessary
political will to achieve this goal. There is evidence that where
there is political leadership, maternal deaths can be reduced
relatively quickly (shown, for instance, by recent advances in
Sri Lanka).[73] We asked
witnesses how to deal with governments which do not take gender
concerns sufficiently seriously. Myles Wickstead said that challenging
entrenched social norms takes "time and historical development".
He was confident that, as families and countries became economically
better off, they would increasingly see the value of getting girls
into school, for example, and the wider gender equality that tends
to follow.[74] Andrew
Shepherd of the ODI also said there were specific interventions
which could be made to support developing countries in changing
such norms.[75] This
is likely to include building civil society capacity to hold their
governments to account, as discussed in Chapter 3. It will also
require donors to prioritise women's and girls' wellbeing and
address the structural barriers that prevent equal access to education,
health and other services, and employment. Further, the UK must
put the case to other governments. The Secretary of State agreed,
saying "Should we speak out [about gender issues]? Absolutely,
and we will speak out."[76]
Alan Duncan, DFID Minister of State, reiterated this, saying:
"The [Goal] that is most off track and concerns us most is
No. 5—maternal mortality [...] We will continue to press
other countries to step up to the plate."[77]
40. Securing progress on maternal health clearly
depends on developing country governments demonstrating the political
will to prioritise gender equality. Such governments can be supported
in this by donors through specific interventions such as the promotion
of girls' education. But it will also involve sending a clear
message to developing country governments that gender equality
is both morally right and economically advantageous for countries.
As part of its follow-up efforts to the Summit, we urge the UK
Government to do this.
Accountability and follow-up
mechanisms to the Summit
41. As we said in Chapter 3, the Summit Outcome Document
stressed the need for accountability in the run-up to 2015.[78]
DFID states that it "pressed for and secured" the annual
MDG review mechanism that was included in the Outcome Document.
The annual review will include monitoring of the implementation
of the Outcome Document. The Outcome Document asks the Secretary-General
to organise a "special event" in 2013 to follow up on
efforts.[79]
42. DFID emphasised the importance of clear lines
of accountability following the Summit. It told us:
Our priority going forward will be to ensure
the UN follows up on the commitments made both in the outcome
document and at side events. Work is underway to record all of
the policy and financial commitments, not just from governments,
made at the Summit and there was a clear commitment from Ban Ki-Moon
to ensure that all sides will be held accountable through the
UN Economic and Social Council [...] [The UK will] continue to
make sure that the international community lives up its promises—as
the UK will do.[80]
43. In Chapter 3, we welcomed the commitments
made by developing countries at the Summit and emphasised the
need for Parliaments and populations to be supported in their
ability to hold their governments to account. We reiterate our
view that holding both developing countries and donors to account
for their Summit commitments is of key importance. We commend
DFID for its role in securing an annual review mechanism for both
the MDGs and the implementation of the Outcome Document. We request
that any new details about its format are conveyed to us in the
Government Response to this report. We also recommend that
DFID continue to press to ensure that all policy and financial
commitments from the Summit are fully recorded. DFID should update
the Committee on this issue in three months' time. Further, we
welcome the UN special event on the MDGs in 2013. We foresee that
this will be a critical meeting taking place just two years before
the 2015 deadline, and recommend that DFID take a central role
in planning the event.
UN reform
IMPROVING UN CO-ORDINATION
44. Meeting the MDGs will depend on the effectiveness
of key organisations and how efficiently their work is co-ordinated.
We will comment on DFID's own operations and on the World Bank
in reports to be published in early 2011. Here we examine briefly
the work of the UN and its agencies.
45. There is a wide range of UN agencies working
in developing countries, with the largest including the UN Development
Programme (UNDP), the UN Children's Fund (UNICEF), the Office
of the United Nations High Commissioner for Refugees (UNHCR) and
the World Food Programme (WFP). The diverse agendas and working
styles of these agencies ensure a comprehensive approach, but
also heighten the risk of poor co-ordination and duplication of
work. In 2006, the UN High-level Panel on System-wide Coherence
produced a report entitled "Delivering as One" which
aimed to address widespread concerns about this problem. The report
led to the 'One UN' initiative, a process piloted in eight countries
aiming for greater cohesion at the country level through "one
UN leader, one budget, one programme and one office."[81]
DFID has provided financial support to a number of the pilots.
A key purpose of the One UN process was narrowing the gaps between
the three areas of humanitarian assistance, development and the
environment, but another primary concern has been ensuring effective
UN leadership of work towards the MDGs.
46. Efficient UN co-ordination is especially relevant
to implementing commitments made under the Global Strategy for
Women's and Children's Health. Our predecessor Committee reported
in 2008 on the particular risk of poor co-ordination on the MDGs
relating to women's health, given that responsibility for them
is spread across a number of UN agencies including the UN Population
Fund (UNFPA), UNICEF and the World Health Organization (WHO).
Our predecessor Committee said that fragmentation amongst the
agencies has slowed progress on MDG 5 on maternal health in particular,
and called for greater co-ordination between the three relevant
agencies.[82] In discussions
at the UN we heard that serious attempts were made to improve
co-ordination, but in some areas progress was very slow. While
the new Global Strategy for Women's and Children's Health brings
advantages, it also heightens the risk of poor co-ordination as
it brings together not just UN agencies but a range of other partners
including the UK, USA and Australian Governments, the World Bank
and the Gates Foundation.
47. Meeting
the MDGs will depend on the ability of implementing agencies to
work effectively. The efficient co-ordination of agencies, in
particular UN agencies, is the key to maximising this contribution,
particularly if the new Global Strategy for Women's and Children's
Health, which is key to meeting several MDGs, is to be successful.
Not only will the Strategy focus on an already fragmented sector,
it will bring together both a range of UN agencies and a set of
wider partners, including the UK Government. We were impressed
by the emphasis in our meetings at the UN on the need to improve
co-ordination, but disappointed to hear that progress in achieving
this was too often very slow. We recommend that the UK Government
closely monitor the effectiveness of co-ordination between the
various UN Agencies involved in the Strategy so that the initiative
can make the strongest possible contribution to meeting successfully
the MDGs relating to women's and children's health. The level
of DFID funding for UN agencies should be related to improvements
in their co-ordination. We trust that the forthcoming Multilateral
Aid Review will take this into account.
UN WOMEN
48. Partly in response to longstanding concerns about
a fragmented and overlapping UN approach to gender issues, a new
'super agency' called UN Women has been established. The new
agency is the culmination of four years of negotiations.[83]
We met the new Head of UN Women, Michelle Bachelet, during our
visit to UN Headquarters in New York and were impressed with her
plans for the new agency, which will be operational by 1 January
2011. It will merge four UN bodies currently working on gender.[84]
It will implement programmes directly in countries and will also
support global agreements on gender and women's rights. Its mandate
will reach across all the development activities of the UN system.
DFID's Minister of State, the Right Honourable Alan Duncan MP,
"strongly welcomed" the new organisation and its "necessary
leadership role". He called it "the structural expression
of 'Delivering As One'". Funding mechanisms for the agency
are still being planned, but Mr Duncan said it was "unthinkable"
that DFID would not be a funder.[85]
Christian Aid told us that DFID should "commit to
being one of the top four funders of the new agency, and that
it should provide the necessary political support to ensure that
UN Women is able to leverage real change through the UN system."[86]
49. We welcome the creation of UN Women after
years of negotiations about how to improve the UN's fragmented
approach to gender issues. The new agency has been established
just in time to catalyse progress on the off-track gender MDGs,
and help the Global Strategy for Women's and Children's Health
fulfil its potential. DFID must press for both country programmes
and international advocacy work connected with the agency to begin
in earnest next year. We recommend that DFID be a major funder
of the agency, but future funding must be dependent on evidence
of success. We also recommend that DFID monitor the agency's work
to ensure co-ordination in this very important area is improved
and that existing work is not duplicated.
57 However, as stated in Chapter 2, there has been
significant progress towards MDG 3 seeking universal primary education:
the proportion of children in primary school has risen from just
over 70% in 1990 to well over 80% in low- and middle-income countries.
However, this trend is not sufficient for the Goal to be met by
2015. For further details, see ODI Report Card, Millennium
Development Goals Report Card (2010). Back
58
"UK calls for bold new plan to get MDGs back on track",
DFID release, 11 March 2010, online at http://www.aidsportal.org/News_Details.aspx?ID=12800
Back
59
International Development Committee, Sixth Report of Session 2006-07,
Sanitation and Water, HC-126-1, Summary Back
60
DFID, DFID in 2010, p.17 Back
61
Ev w156 Back
62
Ev w155 Back
63
NAO, The work of the Department for International Development
in 2009-10 and its priorities for reform (November 2010),
para 3.20 Back
64
International Development Committee, Fifth Report of Session 2007-08,
Maternal Health, HC 66-1, para 23 Back
65
Q66 Back
66
United Nations Development Group, Thematic Paper on MDG 3,
2010 Back
67
Q 66 Back
68
Ev w51 Back
69
NAO, DFID: Bilateral support to primary education, HC 69,
Session 2010-2011 (18 June 2010), paras 2.13 and 7 Back
70
DFID Business Plan 2011-2015 (November 2010), Section 5 and NAO,
The work of the Department for International Development in
2009-10 and its priorities for reform (November 2010), para
3.21 Back
71
Q 40 Back
72
DFID Business Plan 2011-2015 (November 2010) Back
73
K.McNay, R.Keith and A.Penrose, Bucking the Trend (Save
the Children UK, 2004) Back
74
Q 68 Back
75
Q 68 Back
76
Q 40 Back
77
Uncorrected transcript of oral evidence taken before the International
Development Committee on 23 November 2010, HC 605-i, Q 72 Back
78
Ev w98-99 Back
79
Ev w99 Back
80
Ev w51 Back
81
UN Development Programme, 'Delivering as one', online at http://www.undg.org/?P=7.
The eight pilot countries are: Albania, Cape Verde, Mozambique,
Pakistan, Rwanda, Tanzania, Uruguay, and Vietnam. Back
82
International Development Committee, Fifth Report of Session 2007-08,
Maternal Health, HC 66-1, paras 60 and 65 Back
83
UN News Release, 2 July 2010, 'General Assembly adopts consensus
text on system-wide coherence, establishing composite entity -
UN Women - to accelerate gender equality, empowerment'. Back
84
The four bodies are: the UN Development Fund for Women (UNIFEM);
the Division for the Advancement of Women (DAW); the Office of
the Special Adviser on Gender Issues; and the UN International
Research and Training Institute for the Advancement of Women (UN-INSTRAW). Back
85
Uncorrected transcript of oral evidence taken before the International
Development Committee on 23 November 2010, HC 605-i, Q 64 Back
86
Ev w41 Back
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