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13. SAARC Development Goals

13.1 Introduction Accommodating almost one fourth of the worlds population, South Asia is home to 47 per cent of the worlds 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 Lankas 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 Goal 22

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Wetland conservation Ban on dumping of hazardous waste, including radio-active waste

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.

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
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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 governments 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 todays 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 cooperate 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.

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