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Commonwealth Functional Co-operation: Report of the Committee of the Whole

The Committee of the Whole met on 12 November 2003 in Marlborough House, London, to consider Commonwealth functional cooperation. Implementation of the High Level Review Group (HLG)

Recommendations

2. The Committee noted the progress made in the implementation of the High Level Review Group (HLG) recommendations and urged that work in this area is continued and reflected in the Secretariat's Strategic Plan 2004-2008.

3. The Committee recalled that at the Commonwealth Heads of Government Meeting (CHOGM) in Coolum, Australia, in March 2002, Heads of Government endorsed the recommendation of the High-Level Review Group to create the Commonwealth Intergovernmental Committee to Review the Mandates of Commonwealth Organisations (CIC). The Committee commended the work of the CIC; acknowledged that the CIC Report reflects a consensus amongst member governments and invited Heads of Government to consider endorsing the CIC Report. The Committee called on all Commonwealth organisations concerned to fully implement the resulting recommendations.


Role of Board of Governors for Preparation of CHOGMs

4. The Committee recommended that in years in which a CHOGM takes place, the Board of Governors of the Commonwealth Secretariat meet as the Committee of the Whole (COW) to undertake oversight of preparations for CHOGM. It would meet in London about a month before CHOGM for this purpose. It would meet again at CHOGM to draft the Communiqué. These meetings would be chaired by the Senior Official of the host government,
assisted by the Chairman of the Board of Governors.

Commonwealth Fund for Technical Co-operation (CFTC)

5. The Committee welcomed the progress made in the implementation of the HLG recommendations on the development work of the Commonwealth especially those activities funded by the CFTC. It invited Heads of Government to note that the resources available to the CFTC remain still considerably short of the commitment made at Millbrook in 1995 to restore them to their 1991/92 levels in real terms. The Committee welcomed the increased pledges to the CFTC from donor countries as well as a number of developing member states. It noted the view of the Secretary-General that any diminution of the CFTC below £20 million would seriously undermine the Fund.

6. Consequently, the Committee invited Heads of Government to reaffirm their commitment to their 1995 Millbrook decision, and to ensure that while urging their augmentation, the current level of resources within CFTC is maintained in real terms to enable adequate provision of technical assistance to member countries for capacity building, good governance, deepening democracy, assistance with the development and drafting of new laws, gender equality and strengthening economic management in niche areas.

7. The Committee endorsed the Secretariat's regional consultative meetings with member governments to determine the future focus of the CFTC-funded programmes of assistance and how best it could contribute to the existing development architecture and the delivery of Millennium Development Goals (MDGs) over the Secretariat's next four year strategic plan. The Committee also welcomed efforts by the Secretariat to strengthen the quality, sustainability and development impact of its work by employing a results-based management approach. As part of efforts aimed at improving the management, impact and co-ordination of Commonwealth assistance, the Committee requested governments to locate their CFTC's Primary Contact Point in a Ministry with responsibility for determining national development priorities.

8. The Committee noted that considerable attention has been paid to developing public sector institutions in member countries to better cope with the demands of globalisation and prevailing development challenges. Equally, the Commonwealth Service Abroad Programme (CSAP) has continued to attract extensive interest, and enabled the Secretariat to further expand the appeal and people-centred nature of its package of development assistance.

9. The Committee invited Heads of Government to note further the Secretariat's initiatives to continue to expand partnerships with international and regional organisations and other groupings to carry forward its ongoing programmes. It also requested them to call on the Secretariat to continue to support the New Partnership for Africa's Development (NEPAD) framework for promoting sustainable development in Africa.

Poverty Eradication and Millennium Development Goals (MDGs)

10. The Committee invited Heads of Government to note their appreciation for the Commonwealth's contribution to the achievement of the MDGs, in particular, poverty eradication through its technical assistance programmes in developing member countries. It recalled that Commonwealth Finance Ministers had welcomed further elaboration of the initiative of the United Kingdom's Chancellor of the Exchequer for an International Finance Facility (IFF) and looked forward to the further consideration of this or other similar options. The Committee also called for on-going monitoring of progress, identification of impediments to the achievement of the MDGs and the development of recommendations for action at national, regional and international levels. The Committee further invited Heads of Government to engage in the United Nations Secretary-General's review of progress against the MDGs in 2005, and to renew the commitment to achieving the MDGs through sustainable economic growth, particularly in least developed countries.

Sustainable Development

11. The Committee invited Heads of Government to call for an effective and adequately financed follow-up on the WSSD Plan of Implementation. It also invited them to reaffirm the Commonwealth's commitment to this process through the thematic cluster approach adopted at CSD II to support continued high-level dialogue and exchange of experience to accelerate the attainment of sustainable development and the deeper integration of the three pillars of sustainable development; to encourage the Secretariat to support the efforts of its developing member states in engaging with the partnerships announced at WSSD; and to strengthen collaboration with regional and sub-regional institutions.

12. The Committee noted the progress that the Iwokrama International Rain Forest Centre in Guyana has made in developing a programme for conserving and sustainably utilising tropical rain-forest resources, and ensuring its future financial viability. Heads of Government are requested to encourage member states to continue to build on the commitments made at the WSSD to promote sustainable forest management and to address issues of forest law enforcement, governance and trade. The Committee noted the importance of the Secretariat continuing to build consensus and strengthen co-operation in this area of work according to its comparative advantage.

13. The Committee encouraged the Commonwealth Secretariat's efforts to assist member governments to address the pressing issues covered by the United Nations (UN) Framework Convention on Climate Change. Member states which have ratified the Kyoto Protocol urged those that have not yet done so to ratify the Protocol in a timely manner. It also reaffirmed the need for the Commonwealth Secretariat to continue to provide technical assistance to address the adaptation concerns of Small Island and other states that are vulnerable to global warming and sea level rise.

14. The Committee noted the entry into force of the Biosafety Protocol.

15. The Committee called on member states who have not yet done so, to consider joining the Johannesburg Coalition of countries which had adopted the way forward on renewable energy and on the implementation of sustainable development.

Debt Management and Heavily Indebted Poor Countries (HIPCs)

16. The Committee invited Heads of Government to call for the speeding up of the process for HIPCs reaching completion point and for broadening the approach to ensure debt sustainability. The Committee noted with satisfaction the continued assistance provided by the Secretariat in the area of debt recording and management in collaboration with other international agencies. The Committee further welcomed the advocacy and consensus building work undertaken by the Commonwealth HIPC Ministerial Forum (CHMF) and encouraged its efforts towards achieving HIPC's sustainable exit from debt and attainment of the MDGs. It advocated the widening and deepening of the HIPC process in consultation with other parties. The Committee also called on Heads of Government to support the provision of additional resources through topping-up at the completion point under HIPC and more generally, to address the issue of unsustainable debt.

Multilateral Trade Issues/Trade-related Capacity Building

17. The Committee attached high priority to the Secretariat's work in the area of trade related technical assistance in the aftermath of the disappointing outcome of Cancun and the need for progress in the negotiations to achieve a successful outcome to the Doha Development Round. It also noted with particular satisfaction the Secretariat's efforts to build the negotiating capacities of member states, especially the Least Developed Countries (LDCs) and Small Economies, to address the challenges of globalisation and liberalisation; to provide technical support to devise effective trade policies; to strengthen their trade policy institutions; to provide adequate services to LDCs and small economies on accession to the WTO; and to strengthen their capacity to overcome new trade restrictions.

18. The Committee invited Heads of Government to note the valuable role played by the Trade and Investment Access Facility (TIAF) in funding the Secretariat's programmes for building capacity in member countries; and called for the continuation of technical support during the period of the Doha Round and the Cotonou process. The Committee also requested Heads of Government to welcome EU support (17 million Euros) to Commonwealth efforts for capacity building in trade policy formulation and trade negotiating skills in ACP countries.

Strengthening Financial Systems

19. The Committee invited Heads of Government to support an inclusive multilateral process aimed at improving and strengthening financial and banking standards in financial centres. The Committee took note of the current work by the Secretariat to facilitate multilateral consultations between all interested parties and called for efforts to strengthen capacity in this area, and in particular in the supervision and regulation of financial centres.

20. The Committee noted that Commonwealth developing countries have benefited from technical assistance programmes in the areas of overall financial system management and governance, specific problems in the banking system, and dealing with development of emerging securities and insurance markets.

Combating Money Laundering

21. The Committee reaffirmed its support for the assistance the Secretariat is providing to implement the FATF recommendations on combating money laundering and terrorist financing. It requested Heads of Government to urge the Secretariat to continue supporting national, regional and sub-regional anti-money laundering initiatives.

Private Sector Development and New Opportunities for Investment

22. The Committee requested Heads of Government to note the Secretariat's activities to enhance capital flows and new opportunities for private direct investment in developing Commonwealth countries. The Committee particularly welcomed the work of the Secretariat in strengthening the capacity of member countries for private sector development and good corporate governance. The Committee also noted that the ability of a number of member countries to benefit from globalisation is constrained by low foreign direct investment. It called for innovative and cost-effective ways of promoting private flows into economies with endowed handicaps.

23. The Committee also expressed its support for the Secretariat's activities which contribute to the New Partnership for Africa's Development (NEPAD) framework in supporting the development efforts of Commonwealth countries in Africa by encouraging participatory processes and developing a programme of assistance.

Commonwealth Private Investment Initiative (CPII)

24. The Committee invited Heads of Government to note the progress made since their Meeting in Coolum, Australia in March 2002, in launching the pan-Commonwealth Africa Partners and to support its ongoing capital mobilisation efforts. The Committee also expressed its support for the early establishment of second generation funds for South Asia and the Pacific.

Human Settlements

25. The Committee requested Heads of Government to note the establishment of ComHABITAT, the support structure for the Commonwealth Consultative Group on Human Settlements, as a collaborative partnership involving the Commonwealth Secretariat, the Commonwealth Foundation, the Commonwealth Human Ecology Council, the Commonwealth Local Government Forum and other governmental and non-governmental agencies.

Education

26. The Committee recalled that Heads of Government were requested by the Commonwealth Ministers of Education at their Conference in Edinburgh, October 2003, to reaffirm their commitment to and support for upholding the right of their citizens to education as a foundation for human development and the achievement of the MDGs. The Committee therefore requested Heads of Government to consider the message from this Conference and invited them to endorse the Edinburgh Action Plan which outlines ways of closing the gap in access, inclusion and achievement in education in the Commonwealth.

27. The Committee also invited Heads of Government to welcome the decision of the Commonwealth Institute to establish a Centre for Commonwealth Education in partnership with Cambridge University as a new resource supporting the development of primary and secondary education across the Commonwealth. The Committee urged Heads of Government to endorse the establishment of this Centre.

Health

28. The Committee drew the attention of Heads of Government to the message from Commonwealth Ministers of Health from their meeting in Geneva, Switzerland, on 18 May 2003. The Committee invited Heads of Government to support building responsive health systems to deliver essential health care and using new strategies to increase the health workforce, including implementation of the Commonwealth Code of Practice for the International Recruitment of Health Workers. The Committee also invited Heads of  Government to facilitate the multi-sectoral response to the many elements of HIV/AIDs, which remains a threat to sustainable development, and to recognise that the empowerment of the vulnerable members of society, especially youth and women, is critical to mitigating the effects of

HIV/AIDS.


29. In this context, the Committee noted with satisfaction the ongoing cooperation between the Commonwealth Secretariat and the UN, and offered its support to the outcome of the 2003 UN General Assembly High Level Meeting on HIV/AIDS held in New York in September 2003. The Committee also welcomed the recent agreement in the WTO on the manufacturing of life saving generic drugs in the developing countries under certain conditions and
circumstances. It recommended that the Commonwealth support the integration of traditional and complementary medicines into the health care systems.

Gender

30. The Committee invited Heads of Government to reaffirm their commitment to mainstreaming gender equality in all sectors and at all levels of Commonwealth policy-making, planning and implementation. The Committee also invited Heads of Government to reaffirm their commitment to gender equality and the implementation of the 1995 Commonwealth Plan of Action on Gender and Development (PoA), and note the Secretary-General's Report on the Implementation of the PoA and its Update (2000-2005). The Committee invited Heads of Government to support the efforts that contribute to poverty eradication amongst women. It also drew the attention of Heads of Government to the development of a new Commonwealth Gender Plan of Action (2005-2015), to be finalised by Women's Ministers at their Seventh Meeting in 2004 and subsequently presented to the UN Fifth World Conference on Women in 2005.

31. The Committee requested Heads of Government to note the progress made by certain Commonwealth member countries and the Secretariat in advancing gender equality in the areas of globalisation and macro-economic policies; poverty eradication; the multilateral trading system and the informal economy; the MDGs; as well as increasing women's participation in conflict prevention, mediation, resolution and post-conflict reconstruction activities;
promoting women's human rights; and working towards the Commonwealth target of at least 30 percent representation of women in political and public decision-making.

Accountability and the Relationship between the Three Branches of
Government

32. The Committee requested Heads of Government to note the work of Law Ministers in the development of principles to provide, in accordance with the laws and customs of each Commonwealth country, an effective framework for the implementation, by governments, parliaments and judiciaries of the Commonwealth's fundamental values. The Committee invited Heads of Government to welcome the contribution made by the Commonwealth Parliamentary Association, the Commonwealth Magistrates and Judges Association, the Commonwealth Lawyers Association, the Commonwealth Legal Education Association and other Commonwealth organisations to further the Commonwealth Harare Principles, through the development of the Latimer House Guidelines.

Law and Development

33. The Committee drew the attention of Heads of Government to the message from Law Ministers from their meeting in 2002.

34. The Committee reaffirmed the importance of a strong legal framework and environment to support and foster development. The Committee endorsed the work of the Secretariat on the enhancement of democracy by the elimination of legal barriers to development and supported continued work which concentrates on a range of fundamental legal issues concerning land and succession, competition and company law and access to justice.

35. The Committee invited Heads of Government to note the contribution made by Law Ministers to the advancement of core Commonwealth values, and that regular meetings were essential to maintain progress in carrying forward the priorities identified by Heads of Government. The Committee invited Heads of Government to endorse the recommendation that Law Ministers' Meetings continue to be a regular feature of Commonwealth activity. The Committee also requested Heads of Government to note that Law Ministers and Attorneys-General of Small Commonwealth Jurisdictions have expressed a wish to meet as a separate group outside the plenary meeting of Law Ministers.

Combating Corruption

36. The Committee invited Heads of Government to reaffirm their commitment to a comprehensive national and international strategy against corruption. The Committee invited Heads of Government to welcome the successful conclusion of the negotiations for a comprehensive UN Convention against Corruption which contains a wide range of provisions to strengthen international efforts to fight corruption. The Committee also invited Heads of
Government to encourage signature, ratification and implementation of the convention by the member countries.

37. The Committee welcomed the ongoing work of the Secretariat on implementation of the Framework for Commonwealth Principles on Promoting Good Governance and Combating Corruption. The Committee requested Heads of Government to commend the efforts being made at national, regional and sub-regional levels to fight corruption. It supported Commonwealth action on corruption, in particular the co-operation of member states in securing the repatriation of illegally acquired funds and assets to their countries of origin in accordance with the UN Convention against Corruption.

International Criminal Court

38. The Committee noted the work of the Secretariat in helping interested member states who requested assistance with regard to adherence to the Rome Statute for the International Criminal Court. The Committee invited Heads of Government to acknowledge the strong Commonwealth representation among the elected judges of the International Criminal Court.


39. Member states which have ratified the Rome Statute urged those that have not yet done so to consider ratifying the Statute in a timely manner.

Human Rights

40. The Committee invited Heads of Government to note the enhanced profile of the Secretariat's human rights work and endorsed its programme in promoting human rights in the Commonwealth, emphasising that all human rights, social and economic as well as civil and political rights are universal, indivisible, interdependent and interrelated. The Committee welcomed the work done by the Secretariat, which includes building the capacity of national
and regional human rights institutions; promoting 'best practice' standards based on Commonwealth values; and building awareness of and respect for international human rights instruments. The Committee invited Heads of Government to endorse and support projects which assist national human rights institutions with their mandates.

Youth Development

41. The Committee drew to the attention of Heads of Government the message from the Commonwealth Youth Ministers Meeting (CYMM) of May 2003, under the theme Young People: Development Partners against Poverty and HIV/AIDS. The Committee invited Heads of Government to endorse the vision of the Commonwealth Youth Programme (CYP) for young people to maximise their participation in development and democracy, shaping the
present and the future of their communities and societies. The Committee further invited Heads of Government to give greater priority to incorporating the CYP strategic programme areas into their national development plans, and to consider strategies for increased resource allocation, political commitment and democratic structures to facilitate youth development and alleviate poverty and combat the spread of HIV/AIDs among youth. The Committee noted the recommendations of the CIC related to the CYP.

Reducing the Digital Divide

42. The Committee invited Heads of Government to recognise the contribution of the Commonwealth Telecommunications Organisation (CTO),

COMNET-IT, Commonwealth Business Council (CBC) and Commonwealth of Learning (COL), among others, in promoting capacity building in ICTs and to propose these as the lead agencies in the implementation of the Commonwealth Action Programme on the Digital Divide (CAPDD) under the leadership of the Commonwealth Secretariat. It also urged them to support strategies to ensure that ICTs help the developmental priorities of Commonwealth countries and to renew their commitment to reducing the digital divide.

43. The Committee requested Heads of Government to encourage the Secretary-General to promote synergies and joint programme collaboration with the information society programmes of the European Union and other global and regional development networks

44. The Committee further invited Heads of Government to endorse the recommendations of the Commonwealth Network Society Summit organised by the CBC in association with COMNET-IT and with the support of the Commonwealth Secretariat and to agree that the Commonwealth High-Level Forum on the Digital Divide be held in the run-up to CHOGM 2005. The Committee noted the recommendations of the CIC related to the Commonwealth Science Council (CSC).

Commonwealth Secretariat Budgets

45. The Committee requested Heads of Government to endorse the recommendations contained in the Commonwealth Secretariat paper on 'Strengthening the 1999 Durban Guidelines on Arrears to the Secretariat's Funds', paying particular attention to the situation of its smaller member countries who may be required to enter into negotiations with the Secretary-General to clear their outstanding arrears in order to benefit from technical assistance from the CFTC and continue to attend CHOGMs.

Civil Society and the Commonwealth Foundation

46. The Committee invited Heads of Government to commend the work done by the Commonwealth Foundation through its Citizens and Governance Programme to advance understanding and good practice in the field of inclusive governance and to promote partnership between governments, the private sector and civil society. In this respect, the Committee requested Heads of Government to note the highly successful civil society consultative processes organised by the Commonwealth Foundation for ministerial meetings and other priority Commonwealth activities. In this respect, the Committee took note with appreciation the dialogue which had taken place between officials and civil society representatives on 11 November 2003. The Committee recommended that such dialogues become part of all future processes.

47. The Committee invited Heads of Government to underline the importance of government-Civil Society Organisations (CSO) partnership in contributing to the Commonwealth-wide processes of both development and democracy.

48. The Committee invited Heads of Government to note with satisfaction the work of the Commonwealth Foundation in implementing the HLG mandate for increased co-operation between the Foundation and the Commonwealth Secretariat and closer alignment of the Foundation's governance structures and administrative planning and budgetary processes with those of the Secretariat.

49. In light of the Foundation's increasing activities and challenges, the Committee requested Heads of Government to acknowledge the need to review the level of assessed contributions made by member governments and to explore the possibility of other sources of funding with effect from the financial year 2004/2005. At the same time, the Committee also urged members who are in arrears to take every possible action to clear them. The Committee noted the recommendations of the CIC related to the Commonwealth Foundation.

Commonwealth of Learning (COL)

50. The Committee noted with appreciation the work of COL in contributing to new methodologies and practices for open, distance and technology-assisted learning and its impact on education, training and poverty eradication across the Commonwealth. The Committee also noted COL's proposal, requested by Education Ministers, to establish a Commonwealth Virtual University for Small States that can also serve the needs of other Commonwealth member countries. The Committee noted that COL had been directed to take leadership of this capacity-building initiative, collaborate with existing resource institutions in member countries, and work with the Commonwealth Secretariat to identify sources of funding to take this concept forward.

51. The Committee further noted COL's Three Year Strategic Plan for 2003-2006 which has been endorsed by Commonwealth Ministers of Education. The Committee noted the recommendations of the CIC on the COL.

Commonwealth Parliamentary Association (CPA)

52. The Committee invited Heads of Government to endorse the contribution of the CPA towards improving the quality and effectiveness of Commonwealth good governance through its various programmes. The Committee also invited Heads of Government to recognise the continuing need for the Commonwealth to achieve better outcomes by using the CPA's network of members, Parliaments and Legislatures to strengthen parliamentary performance and enhance public respect for democratic institutions in partnerships with governments, intergovernmental organisations and civil society.

Commonwealth Local Government Forum (CLGF)

53. The Committee invited Heads of Government to reaffirm the value they attach to elected local government as an important foundation for democracy and give constitutional and legal recognition to the sphere of local government and commend its role in the implementation of the Commonwealth Harare Declaration. The Committee further invited Heads of Government to welcome the report and recommendations of the 2003 Commonwealth Local Government Conference, Local Government Service Partnerships, and look forward to the development and dissemination by CLGF of good practice guidelines. The Committee invited Heads of Government to emphasise the need for resources from member governments, particularly from those that are not already contributing, to support CLGF programmes to consolidate local democracy, provide technical assistance and undertake, where requested, specified local elections monitoring, in partnership with the Commonwealth Secretariat.

Commonwealth Partnership for Technology Management (CPTM)

54. Heads of Government are invited to consider the content of the CPTM's Report and take note of its successful activities in fulfilment of its mandate and its preferred mode of delivery through advisory country-task and smart partnership national and international dialogue in enhancing democracy, prosperity and development. They are also invited to recognise CPTM's initiatives in establishing the Endowment Fund and the contribution to this Fund from Commonwealth governments and the private sector to provide stability to CPTM's financial resources and enable it to undertake enhanced activities that benefit the Commonwealth. The Committee noted the recommendations of the CIC related to the CPTM.

CHOGM Committee on Co-operation through Sport (CCCS)

55. The Committee requested Heads of Government to endorse the importance of sport as an effective instrument for development in Official Development Assistance and to promote increased sport participation, recognising the benefits of sport particularly as it relates to youth and youth at risk. The Committee invited Heads of Government to formally endorse the establishment of regular meetings of Commonwealth Ministers of Sport on the margins of the Commonwealth and the summer Olympic Games, as a collaborative means to address important issues in sport in the Commonwealth. The Committee endorsed the recommendation of the Executive Committee of the Commonwealth Secretariat's Board of Governors that the CCCS should be dissolved and reconfigured as an Advisory Body, reporting to Commonwealth Sports Ministers through the Secretary-General and promoting sport as a positive part of nation-building and human development, particularly youth development.

56. The Committee noted the recommendations of the CIC related to the CCCS, and encouraged donor support for the new sports body, which will be assisted by the Commonwealth Secretariat.


Commonwealth Secretariat
Marlborough House
London SW1Y 5HX


12 November 2003

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