Análisis de Actores

METHODOLOGICAL
GUIDE FOR
IMPLEMENTING
A MAPPING OF
CIVIL SOCIETY
ACTORS IN
LATIN AMERICAN
COUNTRIES
This methodological guide was

produced by Michel FALISSE
for IBF consulting within the
framework of contract number
2008/169094 European Union
Programme for the NSAs in
Latin America: the thematic
Study on the mapping of Non
State Actors in Latin America was
carried out by Michel Falisse and
Beatriz Sanz - Corella.
"This report was prepared with

the financial support of the
European Commission. The
opinions expressed herein are
those of the consultants and do
not reflect the official opinion
of the Commission."
Contents
Introduction
Civil society involvement, a pillar of governance............................... 9
Helping EC Delegations in Designing their Support Strategy to Civil
Society.................................................................................................. 10
A mapping that provides an overview of civil society network....... 10
Context of the methodological note.................................................. 11
The specificity of the role of civil society in Latin America:
some notes........................................................................................... 12
Concepts: Some precisions

Non-state actors (NSAs)..................................................................... 19
Civil Society . ....................................................................................... 20
The mapping
What are the goals of a mapping?..................................................... 23
What is a mapping?............................................................................. 24
How to carry out a mapping?............................................................. 27

1: Definition of the goals of mapping................................................. 29
2: Literature on social actors..............................................................33
3: Reviewing existing mappings.........................................................37
Methodological guide for implementing

A mapping of civil society actors in latin american countries

What is the use of a civil society/NSA mapping for the EU

Delegations?........................................................................................ 25
4: Collecting data on the actors ............................................................... 41
Introduction
5: Creation of graphic matrices ................................................................ 45

6: Creation of timelines............................................................................... 55
7: Identifying the main tensions at work................................................... 59
8: Structure the different actors by level................................................... 63
Civil society involvement, a pillar of

governance
9: Defining the frameworks in which the actors evolve . ........................ 67
11: To Make the Work of Mapping Sustainable........................................ 75
Appendices
General context........................................................................................... 79
The political role of the NSAs is currently recognised in the main
European development cooperation guiding documents....................... 81
Together with the State public institutions at the local, regional and
national levels as well as the market-related economic agents, the civil
society and its multiple stakeholders play a fundamental role in the
development dynamics in Latin American countries.
Civil society actors are recognised for their role in:
Building a citizen-based democratic legitimacy.
Civil society and EC relation Assessment................................................. 84
Implementing programmes and projects in sectors and places

where State entities are not always present.
The EC support policy to civil society in the specific

Latin-American context.............................................................................. 89
Maintaining a constant pressure that guarantees a permanent

search for good governance.
Web page of the RELEX.............................................................................. 94
The European Union and its various components recognize in their
"The mapping exercise in the programming cycle" ............................... 96
documents and declarations this role of the civil society that should
Lessons drawn from the Guatemala mapping . ...................................... 97
lead to a significant support to governance and development efforts.
Guidelines on principles and good practice for the participation of Nonstate Actors in the development dialogues and consultations . .......... 102
Given the wide variety of civil society stakeholders, which is the result
of its own dynamism, it is not easy to identify the strategic and reliable
institutions the Commission can work with in terms of strategy design
and programme implementation. That is the reason behind designing
such a methodological guide.

10: Analyzing strengths and weaknesses................................................. 73
Helping EC Delegations in Designing their

Support Strategy to Civil Society
Context of the methodological note

The debate on the effectiveness of development aid has emphasised in
As a generic objective this methodological guide aims at building a
this last few years the importance of a growing involvement of the civil
comprehensive involvement of Civil Society Organisations (CSOs) and,
society in defining priorities and evaluating cooperation needs.
in a broader framework, non-state actors, in the design and elaboration

of development strategies. It aims at proposing a methodology that can
The European Union and its various institutional components defined the
help the EC delegations to establish a global support strategy for civil
objectives according to the involvement of the civil society in the socio-
society as a development actor. It focuses mainly on EU-Latin America
political dynamics of collaboration and cooperation.
relations, relying on existing examples in the region and more specifically a

mapping exercise of the civil society of Guatemala.
It is primarily about the Communication on the Participation of

Non-State Actors of 2002 (November 7; COM 2002 598) and of the
European Consensus on Development, of the joint declaration of the
A mapping that provides an overview of civil

society network.
EU Council and the representatives of the governments of the Member

States at the Council, the European Parliament and at the Commission
on the development policy of the European Union entitled the European
Consensus on development [Official Journal C 46 of 24.2.2006].
economic and political context of assistance-recipient countries, this guide

aims more precisely at providing guidelines for designing a mapping
exercise that allows for a panoramic vision of the civil society networks
and their relations with the government and donors.

This methodological guide lies within the scope of a study intended to
10
promote comprehensive strategies for the involvement of Non-State actors

in Latin America, using as an empirical component a mapping exercise of
the Guatemalan civil society carried out between March and August 2009.
This more specific framework lies in appendix 2 of the current guide:

main policy papers of the European cooperation on development.
In order to implement these objectives, the European Commission has
designed financial and methodological instruments.
This methodological guide lies in the framework of these efforts
including: a study on the capacity-building programmes of civil societies
in ACP countries which includes aspects of mapping methodology,
the present methodological guide for mappings in Latin America and a
mapping exercise in Asia.

Given the need to deepen the knowledge on the social, institutional,
11
The specificity of the role of civil society in Latin

America: some notes
Effects on the dynamics of civil societies

This economic situation has generated a number of CSO actors to address
these great challenges.
From a structural point of view, Latin American societies are vey diverse,
which can be seen in their wide range of organisational forms or in the fights
In Brazil, ABC, a Sao Paulo union that originated in the 80s, is the political
among its populations during all their history. It would be impossible to
movement that enabled Brazil to get out, through democratic means, of
analyse in a few words this diversity in such particular countries. However, we
the cycle of dictatorships and brought to power the democratically elected
can refer to some elements as food for thought.
president Luis Ignacio Da Silva Lula, the trade-union leader who fought during
the Eighties.
The core factors that shape these societies are varied:

In Bolivia, the fight for the nationalisation of hydrocarbon and the natural gas
At the economic level

It is one of the worlds regions where social tensions are the highest in
terns of wealth distribution, with significant consequences on the level of
poverty that affects large groups of the population.
The exploitation of natural resources, mainly mines, oil and natural gas,
as well as strategic water resources - the Amazonian river basin and the
Andes mountain range.
At the macroeconomic level, most Latin American countries depend
heavily on the United States and the European Union countries, in
addition to an emerging regional power: Brazil, that has been able to
resources gave rise to the movement that brought Evo Morales to power.
In Argentina, the movement of the piqueteros and the unemployed caused
by the financial and economic crisis, triggered major political changes in the
country.
In most Latin American countries, farmer movements have a long track of
fights for land rights and agrarian reforms for a better land redistribution.
Thus in most Latin American countries, the dynamics of the civil society are
stronger in terms of political change than those of public political bodies such
as political parties.
12
countries continue to rely on their agriculture and on the exploitation of

their limited and non-renewable natural resources.
At the political level

Latin America of the second half of the 20th century was deeply marked by a
cycle of military dictatorships in most of its parts, as well as by the Cold war
between the Soviet block and the United States. The concepts of right and left
wings were almost limited to the Communist Party, on the one hand, and


develop a national productive economy of its own. Most Latin American
13
forces abroad. In Europe, it was the times of thousands of politicised

the military dictatorships, on the other. Armed struggle movements have
solidarity committees and NGOs that supported these anti-dictatorship
also had an important role, embodied by the victory of the guerrillas in
movements.
Cuba and by the emblematic figures of Fidel Castro and Ernesto Che
Guevara.
When dictatorships ended, the return of political refugees meant the

return towards the political arena and a huge number of civil society
The concept of organised political parties in Latin America does not
leaders who took public political responsibilities from the lowest
have the same bearing as in the European historical democracies and in
positions to the highest office as Head of State.
the United States. It looked more of a means for social ascension. The
partisan political tradition remains weak and hence has an impact on
This dialectics between the civil and political society continues to shape
populist and Caudillo-like exercise of power.
the life of the institutional actors of civil societies in Latin American

countries. Leaders going from one arena to the other are common as
With the return to democratic forms of government in the 80s and
well as close links between figures of each bank. This dialectics, which
90s, relatively normal political relations were restored between the
is so specific to Latin America, has a direct impact on the dynamics for
international community and the old Latin dictatorships.
securing social cohesion in the continent.
The polarisation between right wing radicalism and Latin American left-
At the social level
wing crystallises over electoral processes whose dynamics builds up the

leaders legitimacy, in particular those born in social movements rooted
in civil society organisations, such as the MAS movement in Bolivia or
the indigenous movement in Ecuador.
Repercussions on the civil society dynamics
At the global scale, the Latin-American continent is where social

breakdown and inequalities are most obvious, and surprisingly, is the
continent where social welfare is the weakest.
The welfare state is not able to mitigate conflicts and social tensions due
to its limited direct and indirect tax resources.
14
political forces into the civil society arena, as there was no democratic
Are we saying that civil societies in Latin America are always on the
space to do politics. These were years of clandestine movements and
verge of explosion?
waves of Latin American refugees, mainly intellectuals who were to be
The fact is that in the social and cultural field, you find the foundations
found in large universities, trade unions and in European political parties.
of a social cohesion where the civil society network acts, sometimes as

a State substitute, sometimes as the architect of alternative dynamics
International political unions, such as the Socialist International or the

Christian Democratic International also played a catalyst role for political


The time of military dictatorships in Latin America has literally sent the
15
of popular power, reflected not much in a desire to take State power,

but more in an active participation in the local economic and social
networks.
In this sense, civil society actors represent a key pillar on which any
economic and social development policy must be based.
The role of the church
The Indigenous issue

One cannot speak of Latin-American civil society without mentioning
the indigenous movements that have underpinned the social and
political lives of these countries since de-colonisation. The presence of
the indigenous movements at different levels of power shows an evergrowing awareness of the importance of these communities for the
development of their countries, the natives being without exception the
poorer groups of the population.
At the time of dictatorships, the Catholic Church played a very significant

role as a defender of the poor, the marginalised and the oppressed. It
took under its protection most of the movements fighting for human
rights and against dictatorships. It was the times of the Liberation
Theology, a Latin-American version of the preferential option for the Poor
supported by the Vatican, which went much further than the Churchs
official doctrine. This particular action of the Church enabled the survival
of many movements in Chile, Brazil, El Salvador, etc.
In spite of the changes of orientation prompted by the arrival of John
Paul II, major sectors of the church in Latin America continue to play
a significant role of support to the marginalised segments of the
population.
The last two decades have seen the exponential rise of evangelic
16
of poor people, attracted by the hope of a short-term paradise with

immediate advantages. These religious movements indicate that the
social movements will loose their political dimension, as they do not
focus on the fight for human rights but only on short-term benefits.


churches whose discourse meets the expectations of large numbers
17
Concepts:
Some precisions
Non-state actors (NSAs)
There is a lively discussion over the concept of Non-State Actors and
over the parallel notion of civil society. Hence it is impossible to identify
a single and commonly accepted definition.
The EC has more frequently used Non-State Actors (NSA) which,
according to the communication of the Commission on the
Participation of Non-State Actors in EC Development Policy are
defined as follows:
The term NSA is used to describe a range of organisations that
bring together the principal, existing or emerging, structures of the
society outside the government and public administration. NSAs are
created voluntarily by citizens, their aim being to promote an issue or
an interest, either general or specific. They are independent of the state
and can be profit or non-profit-making organisations.
the State in the processes of development, including:

the private sector;
social and economic stakeholders;
trade unions and civil society organisations of all kinds according

to national characteristics.


The Cotonou agreement refers to NSAs as complementary actors to
19
They correspond thus to heterogeneous sectors which include: basic community
are multiple and not necessarily idealistic. Putting aside this type
organisations, womens groups, human rights associations, NGOs, religious
of normative contents will make it possible to include sectors of
organisations, agricultural cooperatives, trade unions, universities, research
civil society such as the youth groups whose weight is not to be
institutes, the media, the private sector, etc. but also informal groups such as the
underestimated in the field of governance in Latin America.
basic organisations or associations of the informal private sector.

All in all, it is paramount to begin from the broadest and more flexible
definition in order to incorporate the immense diversity of actors
who play a significant role as civil society players, including new
Civil Society
forms of citizen participation.

One of the most coherent definitions of civil society is given by
The concept of civil society either has a commonly agreed definition, but a
CIVICUS, which defines civil society as: the arena, outside of the
series of definitions referring to its heterogeneous composition.
family, the state and the market where people associate to advance
common interests1.
Although it is a more frequently used concept, the limitation of the concept

of civil society is based on its strict opposition to the two other large spheres
In this context, working with a definition of Non-State Actors enables
of society: the State and the Market. That is why civil society is very often
opening a civil society area that encompasses a broader spectrum,
compared with the concept of non-governmental organisations (NGOs) or
including the private sector and the existing hybrid zones located in
with the concept of non-profit sector (or tertiary sector). Nevertheless, these
between the Market and the State.
strict definitions do not allow for the distinction of a series of gray zones
made up by complex, variable and changing realities that characterize civil
In any case, to adapt the definition to our mapping exercise and to the
societies, mainly in Latin America. In these gray zones, one could find the
needs of the European Commission, this guide limits the analysis
foundations of companies or corporate organisations representing the rights
to stable organisations and is articulated in such a way so as to
20
cover a reality that does not have clear borders.
The definition of civil society should not either exclusively reflect idealistic
concepts which only recognize those organisations promoting the common
good or democracy.
It should foresee, first and foremost, a realistic conception of society,
accepting the fact that the values which feed the various organisations
1.

CIVICUS: World Alliance for Citizen Participation, is an international alliance of civil society organisations at the local, national
and international levels whose objective is to promote civic interventions at the global level. CIVICUS created the Civil Society
Index, a dynamic cartography instrument that seeks to analyse structures, contexts and values and the impact of civil society in
socio-political processes. www.civicus.org.


of the economic sector.
21
The mapping
The objective of this guide is to propose a methodology for the
creation of Non-State Actors mappings in the Latin-American region.
The proposal is based on:
An empirical example: the realisation of a mapping exercise of
civil society in Guatemala.
The capitalisation of previous mapping exercises, at the national
and regional levels in Latin America.
The exchange of views with the EC delegations in Latin America
in order to share lessons and experiences.
The development of practical instruments.
Basic definitions.
What are the goals of a mapping?

To have a global vision of the institutional actors in the country in
the State, economic and civil society spheres.
connection with the main economic, social and political events of

the country or region.
To have a vision of the social actors in the various sectors relating
to cooperation with the European Union, their connections and
respective weight.

To have a historical vision of the activities of these actors in
23
To help decision-makers in identifying, formulating and implementing

policies and strategies, and, in this specific case, to help the EC
What is the use of a civil society/NSA

mapping for the EU Delegations?
delegations in Latin America.

To provide a wider overview on non-state actors in the
comprehensive development processes.
What is a mapping?
The mapping serves as a tool that enables a cross-analysis of

the non-state actors in the general framework of the European
(or sector) in order to better understand how they are enshrined in a

relational dynamics that give rise to development processes.
With mapping, one aims at identifying the role and position of actors in
a broader social, institutional and political framework of a given society,
as well as its strengths and weaknesses, which allows for the analysis
of theirs influences in this same arena.
It is designed as a dynamic exercise and not simply a descriptive,
easy to read one and which enables the delegations to have a precise
identification of actors to be incorporated in the various phases of a
development process, according to their structuring levels and action

lines.
24
cooperation.
A mapping must be designed as a tool that offers an
interpretation of the social reality with the aim to build up a
global strategy of participation of the non-State actors within the
European cooperation, well beyond the traditional instruments
that support them/ they use (i.e thematic programmes).
Mappings can be useful in the programming cycle, in the
identification and programme elaboration phase as well as during
its implementation and future evaluation or review.
A mapping can not only be useful in the definition of specific
programmes of support to civil society but also in a wider
framework of comprehensive strategy of cooperation in these
processes 2

In the consultation of the documents of the National

Development Strategy for Poverty Reduction,
In the elaboration by the EC of country Strategy documents,
In the definition of sectoral strategies.
The mapping plays a key role in the different steps of political

dialogue, as it enables the definition of the non-State actors roles
within a systemic and relation-based framework with the same actors
of development particularly the governments and all the donors.
2. See in appendices The mapping exercise in the programming cycle

Mapping is an identification work on the key actors in a given country
25
A mapping enables a greater flexibility when organizing consultations in
The strengthening of local capacities
a strategic way.
The creation of spaces for dialogue between the government

and the civil society, strengthening the role of these
organisations in the definition of cooperation policies as well
as they increase the states accountability in relation to its
commitments.
A mapping is instrumental in the different guiding documents of the

community cooperation that aim at facilitating the involvement of nonstate actors in the new aid modalities, namely the macroeconomic and
sectoral programmes.
The utility of a mapping has to do with the move towards a
comprehensive vision of the participation of the civil society
organisations in the development process.
The perfecting of programmes and support instruments to

non-state actors, enabling their integration in the phases of
development processes.
Coordination improvement between donors, particularly with
Member States.
A mapping goes well beyond a descriptive and static approach of the

state actors, it has the objective of providing information on the social
and political context as an integrated whole.
How to carry out a mapping?
A mapping helps the EC Delegations to define a comprehensive

support strategy to civil society that is considered as an actor in the
fields of governance and development. As such, it enables in fine
the creation of a typology of countries according to their level of
involvement in their respective political and socioeconomic contexts.
A mapping provides a clear-cut analysis of the strengths and
weaknesses of the civil societies under scrutiny.
A mapping helps identifying the legal framework of the action of the
The following methodological files indicate orientations for the

preparation of a mapping of civil society actors.
They may be used according to the purposes, the complexity, the
sectors, the objectives, etc. of the mapping.
This is actually a guide.
associations and entities of the civil society, with the limitations and
restrictions that must be taken into account when designing a strategic
26
A mapping can serve as a starting point for strategic changes of the

European cooperation in matters such as:


framework.
27
1.
(1/4)
Definition of
the goals of mapping
Mapping objectives will guide the work according to the expectations,

the reliability degree given to the exercise, the findings expected from
the mapping itself in terms of its potential use in the definition and
implementation of the European Union strategies in the country.
Description
A mapping can be carried out in different
contexts, which will influence its objectives:
A call for proposals to the civil society
Within the framework of the dialogue on
country strategy or in a mid-term review
At the beginning of a new partnership
strategy with the civil society,
Etc.
The opportunities to start a mapping of
social, political and economic actors in a given
country are multiple and will depend on the will
of the institutional actors to have an in-depth
knowledge of the composition, role, influences
and internal dynamics that are specific to the
institutions embracing the civil society.
If there is a proper understanding of the
objectives that originate the mapping of civil
society actors, the mapping scope will be better
defined and its findings will better meet the
expectations.
Comments
As far as possible,
even if the mapping
objectives are related
to a particular context
or conditions, we shall
start with the most
general and gradually
move to more specific
situations or sectors.
In fact, this already
completed general
work will be useful
when carrying out other
sectoral or specific
mappings, since civil
society plays a real or
potentially effective
role in all sectors of the
society.

Subject
29
1.
Subject
(2/4)
Definition of
Description
What are the possible mapping

objectives?
To have a global vision of the institutional
actors acting in the country State, economic
and civil society spheres.
To have a historical vision of the activities
of these actors in connection with the main
economic, social and political events of the
country or region.
To have a vision of the social actors in the
various sectors relating to cooperation with
the European Union, their connections and
respective weight.
Comments
Definition of
Description
Example of the Guatemala mapping

The objectives of the mapping exercise of the
civil society in Guatemala were multiple and
varied, ranging from a comprehensive mapping
of the civil society to more limited and concrete
aspects.
One of the major difficulties was to get the
consent of all participants and to adapt the
exercise to the multiple objectives and to the
available resources within a fixed timeframe.
Comments
In the definition of
the objectives, it is
important to link the
short-term, the medium
and the long-term
concerns. They are
all valuable. Mapping
cannot be only related
to a specific situation.
Mapping which is
only theoretical and
disconnected from it is
neither a good solution.
Mapping must be
dynamic. Its periodic
update is essential (see
file 11: Making mapping
sustainable)
In the Brussels headquarters, mapping was

viewed as a general cartography of Guatemala
civil society actors, whose aim was to design
a methodology to help the Latin American
Delegations in making their mappings.
For the Delegation, the mapping exercise was
also an opportunity to identify the relevant actors
of the priority sectors chosen by the Delegation
itself and the development of a strategy for the
civil society: youth and justice.
It is important to
consider that without
clear objectives, the
findings of mapping
will not be useful. Since
mapping is about
support to decisionmaking, the clearer is
the scope of decisionmaking and the actors
involved the more
useful and concrete the
results will be.
Subject
(3/4)
Estudio Temtico sobre los mapeos de los actores no estatales

en Amrica Latina
To help decision-makers in identifying,

formulating and implementing policies and
strategies, and, in this specific case, to help
the EC delegations in Latin America.
1.
30
31
1.
Subject
(4/4)
Definition of
Description
How to achieve the mapping

objectives?
Seeking consensus.
Bringing together the main actors
interested and involved in the European
Commission.
Bringing together the various cooperation
partners interested in the exercise and
possibly wishing to contribute financially.
Seeking people who have an excellent
command of civil society matters in a
country.
Designating, within the Delegation staff,
those in charge of civil society matters, a
person in charge of the exercise, reporting
on it and disseminating the information.
2.
Comments
(1/3)
Literature on
social actors
The aim is to inquire on the relevant, historical or specific analysis,

related to goals of the countrys institutional actors
Subject
Description
Comments
There are numerous analyses of the social,

political, economic and historical realities and
histories in Latin America.
The most important

difficulty in the
documentation search
is the huge amount of
existing information.
The selection work enables to have the basic

historical information on the trends of social
dynamics at ones disposal.
One has to be careful

with the scientific
character of this
literature that is a
common reference
for most of the social
actors of a country.
Syntheses, compilations, and transversal

analyses that provide a global historical overview
of the social movements and roles of institutional
actors.
This literature can be found mainly in
universities social sciences departments and in
the media.
Estudio Temtico sobre los mapeos de los

actores no estatales en Amrica Latina

Please note that various important texts are

located in European and North American
university centres, as a result of the academic
works carried out by faculties geared to social
sciences.
There are many

documents that, under
a pseudo-scientific
cover, try to give a
partisan vision whose
aim is to support or
justify the actions of an
actor or another.
32
33
2.
Subject
(2/3)
Literature on
social actors
Description

Historical documentation in relation with the
political and social evolution of Guatemala is to
be found at the University of San Marcos and
also on the Internet.
Because of the civil war and the practical
impossibility to carry out independent social
research in universities, many documents
referring to that period are either in solidarity
committees in Europe or in independent
research centres, NGOs and others, in
Guatemala after the signing of Peace
Agreements.
2.
Comments
Subject
(3/3)
Literature on
social actors
Description
How to constitute a reference

document basis on a countrys
social actors and on their activities
throughout History?
Seeking key individuals, analysts,
academics, and researchers in academic
or research centres.
Cross-checking the information to come
up with a limited number of references,
unavoidable for the knowledge on the
socio-political and economic reality of the
country.
Seeking references on the Internet.
The search for historical

references differs from
the search for other
documents or already
existing mappings
on the country under
investigation. These
two elements are dealt
with in the following
cards...
Mapping Mapeo
Cartographie:

The preparation of
systematic studies
on the positioning of
social actors is recent
and lacks agreed
definitions. The words
commonly used are:
in English: mapping; in
French: Cartographie;
in Spanish: mapeo,
which should prevent
from using a word
or another, if it has a
cultural justification.

Seeking syntheses already made by other

actors.
Comments
34
35
3.
(1/4)
Reviewing
existing mappings
The aim here is to investigate a countrys existing social actors

Description
Comments
There may be relevant elements, updated or not,

which can be used as a working basis to further
develop specific topics.
To get additional
information on these
tools, refer to the
document Mapping
Political Context: A
Toolkit for Civil Society
Organisations, of
Robert Nash, Alan
Hudson y Cecilia
Luttrell, of the
Research and Policy
in Development
Programme (July 2006)
When carrying out a mapping, it is important

to consider other mapping instruments of the
political context devised by other Member
States.
Some examples that may be relevant:
Power Analysis - suggested by the
Swedish International Development
Agency (AIDS). This instrument tries to
analyse the political context of a country
according to power asymmetries, to
access resources and ability of the
different actors to have a political impact.
Drivers for Change - carried out by DFID to
analyse the lack of articulations between
the political framework of a country and
the development organisations actions,
focused primarily on the interaction of
the economic, social and political factors
that support or prevent the reduction of
poverty.
The Governance Questionnaire designed by GTZ as a tool to analyse the
frameworks, the actors and the political
and institutional relations in a country.

Subject
37
Subject
(2/4)
Reviewing
existing mappings
Description
Example of Guatemala mapping

There are four main mapping categories carried
out to date in Guatemala or in the Central
American region.
1. Mapping studies on the overall civil society,
such as the mapping carried out by IDB in 1996
and the study under the global initiative Civil
Society Index (CSI) of CIVICUS.
2. Sector studies focused on the analysis of
some components of civil society.
In this category you find:

diagnosis studies on women, the youth,

and indigenous populations carried out
within the framework of the TINAMIT
programme of the EC in 2007;
38
the mapping of the Programme of Alliances

with Civil Society (PASOC) of the UNDP in
2007 focused on civil society organisations
that are active in the three working fields
of PASOC; i.e. racism and discrimination,
access to justice, social auditing and
transparency.
3.
Comments
There may be studies
or mappings that are
confidential for various
reasons amongst
which the naming of a
person, which could be
prejudicial to them.
The authors of
mappings must take
into account their final
objective and broader
dissemination to all
actors. This stand
must prevail on any
other whatsoever. It
is not complicated to
withdraw names from a
report or soften some
declarations, allowing
thus for greater benefit
for all and very often
for money savings. This
does not mean that
sensitive data should
not be processed
with much care,
always protecting the
information sources.
Subject
(3/4)
Reviewing
existing mappings
Description
Comments
The study of the NGO sector in Guatemala

in the framework of the 3rd National
Congress of NGOs held in 2008, initiated
by a Commission made up of a group
of organisations encompassing the civil
society of Guatemala;
The mapping of the media in Guatemala,
in the framework of the mapping project of
the media in the Americas, which applies
the geographical information systems (GIS)
and provides an electronic map showing
the position of the media.
3. Other sectoral mappings of the civil society
in the Central American region, including thus
an analysis on Guatemala (such as the mapping
of womens organisations with a regional
structure of Central American civil society).
4. Studies on governance in Guatemala,
including civil society as one of the
fundamental players. There is a reference to
the Power Analysis done by the embassies of
Sweden and the Netherlands.

3.
39
Subject
(4/4)
Reviewing
existing mappings
Description
How to search for existing mappings

of civil society actors in a given
country?
Searching in the main cooperation
agencies or embassies represented in the
country with support programmes for civil
society.
Searching specialised agencies in the
preparation of mappings in the region such
as CIVICUS, UNDP, DFID, etc.
Searching in the federations or networks of
associations or national NGOs that may be
aware of the existence of such studies.
Searching on the Internet.

Searching in the political sciences

departments and faculties of sciences in
the main universities of the country, and
those of the United States and Europe.
40
4.
Comments
(1/3)
Collecting data
on the actors
The aim is to collect data on institutional actors of civil society

Subject
Description
Comments
Regarding the data about the institutional actors

of the civil society, it is about:
For instance, a
mapping of social
actors implemented a
few years ago in Bolivia
could not ignore the
role of the economy
of drug trafficking, the
presence of unions of
coca, the role of NGOs,
the weight of natural
resources (gas, oil)
in an analysis whose
objectives would be
to define a support
strategy to civil society
actors in that country.
In other words, a
mapping of civil society
actors is closely linked
to the actors of other
spheres, namely the
State and the economy.
Their vision, mission and main objectives.

Their historical route (beginning, main
activities carried out throughout their
institutional life, main people operating in
the institution throughout its existence, etc.).
Their legal form: this element enables to
identify to whom the institution belongs.
Basic financial elements: volumes of
financing; national, cooperation-subsided,
bilateral, multilateral, partner-subsided,
Western NGOs, etc. This point is important
in order to locate the organisation (tell me
who funds you, Ill tell you who you are).
The main projects or activities supported
by the institution, the most relevant ones,
their working methodology, collaborations,
targets, main findings, conclusions of the
assessments already made, etc.
One will also collect the main data relating
to other institutional actors, according to
their relevance for the sector under scrutiny,
be it the State or the main actors of the
economy.
Having the data

relating to institutional
actors is of the utmost
importance when
considering drawing up
contracts with these
actors.
3.
41
Subject
(2/3)
Collecting data
on the actors
Description

Given the time constraints for the
implementation of the Guatemala mapping, it
has not been possible to further deepen this
aspect.
However, the Delegation of the European
Commission in Guatemala had the basic
information related to the justice and youth
sectors.
Once justice and youth were identified as
priorities by the Delegation, this data collection
was made after having identified the key people
and institutions to which the relevant information
about these sectors converge.
Estudio Temtico sobre los mapeos de los actores no estatales

en Amrica Latina
It was from these people and institutions that the

research started as well as the guideline on how
to get more.
42
4.
Comments
Very often, we
underestimate the
time necessary to
carry out a relevant,
comprehensive and
strategic mapping.
It is not a question
of delivering a list of
organisations with
telephone numbers and
addresses, but laying
down strategic actors
in the sector after
having identified the
relations (quality, weight
and nature) between
them and with the
sectoral challenges.
Subject
(3/3)
Collecting data
on the actors
Description
How to collect data on actors?

Using the existing resources of he
European Commission, the CRIS or
PADOR.
Comments
The elaboration of
instruments such
as CRIS or PADOR
could be in the
future the beginning
of a database on
institutional actors of
civil society.
Setting up a specific database for the

country.
Seeking information in the associations or
NGOs themselves.
Seeking information within the federations
of NGOs or in existing networks.
Seeking information in other cooperation
agencies of European countries or of
multilateral cooperation that operate with
the entities under scrutiny.
Seeking information in the government
of the country and its ministry in charge
of the associations or the NGOs. In some
countries, databanks do exist.
Seeking information on the Internet.

4.
43
5.
(1/9)
Creation of
graphic matrices
The aim is to set up graphic charts of some concepts or institutions in

order to better understand this complexity through visualisation.
Description
Comments
The circles: the three circles respectively

represent the State, the market and the civil
society. The circles are not static, mixing up in a
more or less significant manner.
The drawing up of the circles and sub-circles
enables to identify the sectors, their weights and
the relations between them. The size of each
circle indicates the relative weight of this sector
compared to the others.
It is worth considering that, ideally, these
diagrams should be made on a participative
basis, allowing for the creation of consensual
diagrams.
The State sphere
The sphere of
civil society
The economy sphere

Subject
45
5.
(2/9)
Creation of
graphic matrices
Subject
Description
5.
Comments
MERCADO
MFA
Cooperation
Companies
Companies
with public
capital
Provincial
regional
authorities
Advisory
groups
Technical
agencies for
cooperation
Local
municipal
authorities
ESTADO
Private
Universities
NGOs
MFA
Cooperation
Foundations
Associations
Unions
Fare Trade
Baseline
groups
Economical
actors
Informal
sector
Movements
Professional
federations
Subject
Description
represent the State, the Market and civil society.

The circles are not static, mixing up in a more or
less significant manner.
SOCIEDAD
CIVIL
Cooperatives
Creation of
graphic matrices
The circles: the three circles respectively
Examples of actors in the respective circles and

the way they intermingle, with nuances over their
belonging to one sphere or another.
ESTADO
(3/9)
STATE
Public
universities
Government
Provincial
regional
authorities
Presidency
social
partners
Local
municipal
authorities
Congress
Local
communities
Comments
For instance, a
federation of employers,
although it belongs to
civil society circle by
its legal constitution
and its advocacy
work for businesses
is also connected to
the economy sector,
as it is the object of its
action. In the same way,
a university, because
of its ideological role,
its elaboration and
development of models
to understand realities
belongs to the civil
society circle. But
in the case of public
universities, some of
them belong to the
public circle whereas
some private universities
are within the market
circle.
Political
parties
Estudio Temtico sobre los mapeos de los

actores no estatales en Amrica Latina
Identifying, in the country, those

institutions or systems that make up each
circle.
46
Identifying the relevant systems in each

sphere such as the informal, the drugtrafficking economy, and graphically
providing a dimension that reflects its
importance in the mapping exercise i.e.
that reflects its influence in the dynamics of
the civil society.
Sub-circles: Depending on the complexity of

the three large circles, it can be useful to break
them into a number of small entities constituting
the larger circle.
As an example, the State

circle is made up of the
Parliament, the Executive
(Presidency and the
Council of Ministers),
Justice, regional
authorities, municipal
authorities, the entities
collaborating with civil
society at all these levels,
etc. These sub-circles
are not static either:
there are interactions
between them.

How to work out the circles matrix?
47
(4/9)
Creation of
graphic matrices
Subject
Description
Comments
MARKET
Formal
economy
Remittances
Drug-trafficking
economy
5.
Informal economy
It is important to
identify the dominant
financial or productive
circuits in the country.
It may be for their
financial weight
and fluctuations
(for example the
remittances sent by
Guatemala nationals
living in the United
States) or for their
political and social
weight such as the
drug-trafficking
economy or both at
the same time.
Each country has its
own capitalisation
productive structures
with concrete locations.
The aim is to identify

within the concept
of civil society or
non-state actors
those sectors that are
relevant according to
the objectives and the
defined scope of the
mapping.
CIVIL SOCIETY

National NGOs
48
Indigenous
organisations
Corporation
Institutions
Academic
institutions
Media
Churches
International
NGOs
Gangs /
mafia
groups
Basic
organisations
This graph
reflects in
a general
perspective the
most relevant
sectors of
civil society in
Guatemala.
Subject
(5/9)
Creation of
graphic matrices
Description
Creation of a simple matrix with 4 entries:

North or South actors, actors of the public
sphere (State) and the private sphere (Market
and civil society).
Comments
Everyone is free
to choose these
modalities, easy to use
with the PowerPoint
program.
These 4 elements can also be divided into subelements.

The public sphere can be broken down into the
regional, local and national levels.
Once the actors are defined and located in one
of the 4 sectors of the image, one can define
the relations between them, drawing up lines
of different thickness according to the strength
of the link as well as of different colours to
illustrate the different types of relationships
(financial, political, opposite actors). Ideally, as
defined in the principles of methodology, this
exercise should be carried out with the actors
themselves, or at least with those of the civil
society, in workshops where scheme is created
in a participatory way.
One can also imagine a classification of actors
based on relevant criteria, according to the
nature of the mapping, etc. These criteria may
be the legal form, the geographical setting of the
actors in the country.

5.
49
50
Foundation Myma Mack
ICCPG
SEDEM
IEPADES
ASIES
IDEM
PNC

Congress
Study centres of
Guatemala
Citizen
Action
Anxious
mothers
FADS
Private
security
companies
Army
Security Advisory
Council
Min Justice
University
San Carlos
FOSS
Dutch Platform
against impunity
CICIG
HR
Convergence
CNSAFJ
The diversity of associations of the civil

society.
NSA Support Group
The various public institutions that have to

do with Justice.
Executive

Where the DCE is placed.
UN System,
UNDP, UNICEF.
The central role of the CICIG.
Donor Countries Group, G-13
A first reading shows:
European embassies
Purple in the column south public is about

the State entities.
Public area
FOSS and FORO are the two organisations

federating NGOs and associations of the
sector that have different stands.
Embassy of the USA
Blue colour relates to the members of the

forum of Guatemala.
DCE
European NGOs
Red in the south private space relates to

the members of the FOSS.
Solidarity
committees
Green identifies the actors with a presence

of the civil society that plays a role in the
justice debate at the national level.
North
How to read the graph of the actors?
Private area
Mapping of actors of the civil society of

Guatemala in the field of Justice.
Security National
Council
Example of the mapping of Guatemala
Guatemala
FORUM
Comments
Evangelic church
Description
CACIF
Creation of
graphic matrices
Catholic Church
Subject
(6/9)
South
5.
51
5.
Subject
(8/9)
Creation of
graphic matrices
Description
How to work out the matrix of the

actors?
Drawing up the list of institutional actors
in the relevant circle of the mapping. The
example is about the actors in the Justice
sector in Guatemala.
Identifying their institutional weight.
5.
Comments
Being too exhaustive
may lead to an
overloaded and hence
illegible mapping.
Putting down the
right actors is more
important than
exhaustiveness.
Subject
(9/9)
Creation of
graphic matrices
Description
Comments
The interpretation of the graph shall be done in

the light of the others, in particular the historical
framework and the various graphs representing
the tensions.
After reading the overall graphs, one starts
having a general understanding of the subject,
enabling the preparation of different strategic
support scenarios.
Identifying the strength and nature of their

relationships.
How can a matrix of actors be useful?

When reading the matrix of the Justice actors,
you can see:
52
When identifying the relationships between

the actors, one can point out more
precisely the consequences of supporting
an institution or another, as they are
interconnected.
Positioning the actors in a matrix of this
kind also gives an overview of all the
actors as a whole.


The great amount of institutions dealing

with the topic and those towards which the
network of relationships converges.
53
6.
(1/3)
Creation of
timelines
The aim is to draw up timelines corresponding to the location of the

activities of the institutional actors of civil society.
Subject
Description
Although the previous stage has given an
understanding of the place of the actors in
the society, it was somehow a snapshot at a
given time. The upcoming step is about the
identification of the main historical facts that
have influenced the dynamics of these actors.
Comments
The thread that controls
the position of the facts
on the various timelines
is the relevance and the
influence of these facts
on the dynamics of civil
society actors.
The various timelines are:

International events
National events
Economy
State
Culture, religion and society
Civil society
How to work out timelines?

Placing the facts on the various lines.
Performing a vertical reading, the civil
society line being the reference point.
Put only the relevant

facts in order not to
further overload the
drawing, for the sake of
legibility.

International cooperation and particularly

the EU
55
56

2003-2008: Democratic municipalities
2004-2009: Tinamit
2000-2005: Mesodilogo
International
cooperation and EU
1995-1996: Assembly of civil society
2003: Failure of the peace agreements

1978-1983: Social movement, Violence, killings
Civil society
1970-1980: Catholic Church

Social liberal option
Culture
1976: Entry of international NGOs
2008: Colon
2004: Berger
1998: Arz
2000: Referendum
Portillo
1985-1996: Constitutional rebirth of the SC
State
1998: Mitch
1996: Peace agreements
Comments
1980: Drug-trafficking entry
Economy
1980-1982: Civil war in El Salvador
1976: Earthquake
National
events
70
Which historical event is currently significant in

the dynamics and the evolution of civil society?
How can the understanding of this historical
context be instrumental in the preparation of
a strategy of the Commission regarding civil
society, be it considering specific sectors or
geographical areas?
Economic crisis coffee sugar banana
2002:
Lula
Brazil
00
20
19
19
The reading should always raise the

same question:
80
It is a period of rich dialogue between

all the actors in a move to reconciliation
launched by the European Union, from
2000 to 2005.
19

Hurricane Mitch in 1998 marked the

beginning of the presence of international
NGO assistance. In the past, solidarity
committees used to have the bigger
presence, in particular entities linked to
evangelic churches.
90
At the economic level, the Free trade

Agreement with the United States,
implemented since 2006 while talks
continue with the European Union.
2006: Free-trade agreement with the USA
Description
2005: Evo 2007:
2009:
Morales Correa
Funes
Bolivia Ecuador (FMLN) El
Salvador
Subject
Although Guatemala has experienced an

armed conflict, that is not the major trend
anymore. The latest armed conflict in
Latin America dates back to the Sandinista
revolution in 1990.
The democratic processes leading liberal
governments to power in most of Latin
American countries, the last one being a
neighbour of El Salvador that propelled a
former FMLN guerrilla to the Presidency.
Creation of
timelines
1994: Surge 1998:first election

of the Zapata
of H. Chavez
movement
What can we learn from a timeline in

Guatemala?
Comments
(3/3)
1989: Berlin
Description
6.
1978-1990: Sandinista Revolution
Creation of
timelines
International
events
Subject
(2/3)
10
20
6.
57
7.
(1/4)
Identifying the main

tensions at work
The aim is to identify the main tensions at work; the challenges, what is
at stake in the various spheres that define the social and political agenda
of the country where the actors of civil society act.
Description
Comments
The present chapter is important insofar as it

will define the dynamics at stake in a society
according to which the various institutional
actors will have to place themselves.
The tensions must

be defined according
to the nature of the
mapping and its
specific or structural
character.
These tensions or contradictions are an integral

part of each and any society. Some are
common, others are specific to a given society
or to a specific or given time.
It must provide a
general understanding,
and avoid too many
details that would
prevent a clear
interpretation of the
images.
We are talking about the basic national debates

as well as the present structural or historical
contradictions.
The tensions of the various spheres or subspheres can be identified within a relevant
national context.

Subject
59
7.
(2/4)

tensions at work
Subject
Description
Comments
As an example, you will find hereafter, the

various graphical representations carried out in
the framework of the Guatemala mapping.
The objective here is to identify the main
contradictions present in the country around
which the defined stakeholders will position
themselves. These contradictions also define the
scope of these actors permanently evolving as
it could be seen in the timelines graph.
1.Contradictions / tensions in the

public sphere
State
Democracy
7.
No Violence
Subject
(3/4)

tensions at work
Description
Comments
In the case of Guatemala, important

contradictions remain between democracy and
dictatorship, the State destabilisation attempts
being permanent. The question of who runs the
mapping must be: How does the contradiction
between democracy and dictatorship will impact
civil society organisations and how do they
position themselves in the great debates and, as
far as the delegation is concerned, how can it be
instrumental in defining a coherent strategy with
European policy?
In Guatemala, in the justice area, these questions
are related to:
The debate on impunity and the presence
of CICIG (the international Commission
against Impunity in Guatemala).
The debate on death penalty.
The contradiction between violence and nonviolence involves civil society in the debate on:
Protection of the private life.
No State

Dictatorship
60
Selling / buying guns.

Private security systems/National police.
Gangs / youngster groups / Drug-trafficking.
Provinces
Indigenous
International
National
Capital
Ladinas
Once the main contradictions are identified, each

institutional actor from the political sphere may
be positioned public and civil society in the
framework of these contradictions.
This timeline and actors graph positioning may be
very helpful to those in the Delegations who are
in charge of the definition of civil society support
and of the definition of the strategic lines towards
that sector.

Violence
61
(4/4)

tensions at work
Subject
Description
Comments
2. The contradictions in the

economy sphere
Ladinas
Formal
Market
external
Market
internal
Remittances
Informal
Indigenous
(1/3)
Structure the different

actors by level
The idea is to structure the actors in function of their integration,

collaboration and coordination levels.
Subject
Accumulation
internal
Licit
IIlicit
8.
Description
Comments
Structure the different actors by level.

For this distinction, the differentiated analysis
can be useful, creating categories starting with
the baseline organisations (first level) to the wide
national and international networks, coordinators
and platforms.
The example of Guatemala shows there are

various economies acting against each other:
Informal vs formal.
Indigenous vs ladina.
External move vs the move towards the
national market.
Regional vs developing in the capital city.
Level 4:
platforms, fora
Internal production vs remittance input.

Legal vs illegal (drug-trafficking circuit).
How to carry out graphs of tensions?

Beginning with the State, economy and
civil society spheres.
Going on with the sub-spheres of each
main sphere.
Placing on both lines ends the concepts
or elements identified as opposed,
contradictory or conflicting.
Level 3:
coordinators,
federations, networks, etc.
Level 2:
Support NGOs, Unions, employers
associations, professional corporations,
religions
Level 1:
Grass-root organisations, common interest groups,
associations, cooperatives, grass-root religious groups,
etc.
Greater interaction,
collaboration and
complementarity
between the
organisations

7.
63
Subject
(2/3)

actors by level
Description
It is important for a mapping exercise to create

a type categorisation enabling to find the most
suitable structure to the concept of specific roles
in the process of development.
A higher level of structure will have to match with
a greater capacity of action in the public sphere,
without having necessarily to exclude the less
structured organisations from the integration
mechanisms within the political dialogue.

The correspondence between the structuring

levels and the degree of implication in the
definition of the development strategies must
also be balanced in function of the objectives of
the European co-operation.
64
Comments
The structure level
is only one criterion.
While developing
classification, it is
important to take
into account that the
higher the level, the
biggest the number
of -sometimes
contradictory and
political- interests they
represent.
These umbrella entities
are looking for a
political legitimacy,
gathering a wide variety
of associations whose
relevance is sometimes
very weak.
Particular attention
should be paid to
the identification of
federation members
and their actual
existence in the
associations landscape
and in their specific
sector (Women, human
rights, etc.)
8.
Subject
(3/3)

actors by level
Description
Comments
The sectoral mapping of the Justice sector in

Guatemala has shown the political importance
of networks, their political influences, legitimacy
and of the aims borne by the different entities
and their structuring levels.
It was interesting to see how the coordinations
included some identical members, as it was in
their interest to grasp the route and image of a
lower level structure entity and for the latter, to
be part of more than one entity.
How to carry out a structure pyramid?

Beginning with the identification of the entities
that are part of a specific sector.
Making a geographic cluster of the entities by
different sectors.
Identifying the characteristics of each entity in
function of the 4 levels of the pyramid.
Adding up the geographical and sectoral criteria
if need be to have a national level pyramid.
One has to be
careful that an entity,
association may belong
to different levels at
the same time. This
is how an entity may
be a grass-root NGO
implementing concrete
projects at the local
level and at the same
time performing
coordination functions
at the level of a county
or region or at national
level. It is paramount,
when building the
pyramid, to clarify the
positioning level of the
entity.

8.
65
9.
(1/5)
Defining the frameworks in

which the actors evolve
The idea is to identify the legislative, institutional and contract

frameworks in which the actors develop their activities.
Description
1. The legislative framework

Defining and describing the legislative framework
in which the actors develop their activities taking
into account that this framework may be more or
less hostile.
In this chapter, it is important to identify the rules
that determine their status and the degree of
protection that is granted to them through the
national legislative framework. The references
in the Constitution (if they exist) have to be
considered, particularly as regards the macropolitical context and the degree of freedom of
speech and association protection provided.
Comments
Attention when
comparing the
existence of a formal
legal framework
and the effective
implementation of
what is foreseen in
the framework. Many
laws remain ineffective
because they lack
implementing decree.
More concretely, the legislative framework

conditioning the design of public policies has to
be identified as well as the incidence capacity
the civil society organisations enjoy.
2. The institutional framework

Defining the institutional framework in which the
actors operate: the institutionalised mechanisms
to access local/national/intergovernmental
authorities; the formal or informal, consulting
dialogue mechanisms.

Subject
67
Subject
(2/5)

Description
Comments

The idea is to identify the involvement level

of the actors in the effective political dialogue
within the open institutional frameworks as well
as the effective monitoring capacities of civil
society associations. This part has to do with the
watchdog role performed by the NGOs and
civil society associations.
68
Subject
(3/5)

Description
Comments
4. Framework agreement with the EC
With regard to the legislative and institutional

frameworks, it is important to distinguish
between theory and practice. These
frameworks do not solve by themselves the
practical operational difficulties for civil society
organisations. The limits of the State apparatus
may make it impossible for the State actors
to manage public space, because of process
restrictions or political obstacles.
3. Political dialogue, monitoring and

development projects implementation.
9.
Specifying the existing framework agreement

between civil society and European cooperation,
with regard to coinciding priorities and funding
mechanisms. We should not only consider
dealing with the assistance modalities, but also
the demanded procedures.
The history of the

relations between civil
society in Guatemala
and the European
Union remains marked
by the Mesodilogo
period between 2000
and 2005. This dialogue
enabled to open
spaces for concertation
between all the
public, private, social
movement and NGO
national actors and
the European Union
including the European
Parliament.
This Mesodilogo
is still a landmark, a
quoted example when
reference is made to
a dialogue between
institutional actors in
Guatemala.
It is important to detail the community

instruments in which civil society involvement
is framed, but it is also fundamental to deal
with the links between the latter and the other
donors, paying particular attention to the
Member States.
In the framework of the Paris Declaration, the
mapping exercises must be used to better
harmonise the different donors, identifying the
work of cooperation in a wide sense, in order to
enrich EC development strategy definition.

9.
69
9.
Subject
(4/5)

Description
The mapping exercise in Guatemala showed that

despite a rather progressive legal framework,
there were numerous extra-legal obstacles to the
legalisation of the associations at the national
level.
On the other hand, the recognition of the
entities was decentralised to the level of the
municipalities, which is creating a reverse effect,
meaning a too quick and easy recognition of
the entities, which, in turn, gave little credibility
to this recognition.

Description
Comments
How to define the different

frameworks?
Compiling the legal texts from the country
Constitution to the regulations from the
ministry in charge of the programmes with
the NGOs and associations.
Creating specific regulations for NGOs.
Creating regulation or monitoring
bodies for the associations, national or
international NGOs or from specific sectors
(micro credit, human rights NGOs, etc.).
Creating a legal agreement or dialogue
framework between public authorities and
global or specific-sectoral associations.
Compiling history, practice and the
possible regulations defining the
framework for the relations between
the European Commission and the
country and the national or international
associations.
Subject
(5/5)

Another lesson drawn from the mapping

in Guatemala was to observe that informal
channels of political incidence used by the
actors gave rise to more outcomes in a shorter
period using their own channels instead of
the formal ones provided for in the legal and
institutional frameworks.
Comments
9.
70
71
10.
(1/1)
Analyzing strengths and

weaknesses
The aim is to analyse the strengths and weaknesses of the institutions

to be able, at a later stage, to reinforce them with existing local training
programmes aiming at building capacities.
Description
Comments
The civil society global, geographical or sectoral

mappings, once identified the actors, their place
in the various circles, interaction, may also be
used to identify the weak and strong points of
theses actors.
We mention here a
training provision
related to the
institutional capacity
in relation to the
incidental actor of
these institutions in
their participation to the
development dynamics
of their country.
One of the objectives of the European Union in

terms of civil society support is to reinforce the
non-state actors. It is paramount to identify the
existing training provision in the country to help
these organisations be stronger to perform their
roles better.
In order to identify the training provision, one
may investigate in universities, the private sector,
local NGOs, investigation centres, international
NGOs whose objective is precisely the
institutional reinforcement of their counterparts,
etc.

Subject
73
11.
(1/1)
To Make the Work of

Mapping Sustainable
The aim is to guarantee the sustainability of the work accumulated over time
Description
Comments
A mapping is partly a picture of the actors at a

certain point in time, but it also constitutes the
sum of historical information related to these
actors and their actions in a society. In this
sense, a mapping is an important information
capital which informs decision-making.
Nevertheless, it is quickly lost if it is not updated
because of the evolution of the events at the
social, political, economic levels, the evolution of
laws and regulations as such, etc.
This is why it is fundamental to permanently
update the information base of the initial
mapping. With little investment the mapping
instrument may remain alive.
One may think about creating a permanent civil
society observatory, located in a study centre, a
university that would publish on a regular basis
- a periodical updating of the main data related
to the mapping.
The cost of such an updating would be minimum
compared to the benefits it would bring.

Subject
75
Appendices
General context
Over the last years, the debate on the effectiveness of the development
aid has increased the importance of a growing participation of civil
society in the definition of the priorities and the cooperation evaluation.
This debate already suggested at the end of the nineties that the
success of the development strategies definitely depended on the
collaboration of the populations they aimed at and who would have to
accept and support them in the future. But the evolution of the debate
over the last years has reinforced the idea that a mere a posteriori
acceptance is not enough to provide continuity to the development
strategies.
Today the decisive issue is to look for participation mechanisms in the
design of these development strategies.
The local internalisation of the development projects emerges as a
need not only for moral considerations ruling out the imposition of a
universal development model, but mainly because we can empirically
witness the failure of the donor-driven assistance which does not take
into account each context. From universal prescriptions designed by
non-specialist international experts, it is now intended to proceed to
projects that take into account local demands.
of a wider participation of the local actors is urgent. Civil society
organisations have appeared to limit the governments in terms of
representativeness of an increasingly complex and heterogeneous
social dynamics that can, through its extent, be used as consensus
generating mechanism.


In this framework, revising the assistance instruments in function
79
In this sense, the civil society organisations are no longer seen as

recipients of development assistance, but as strategic actors and
partners, complementary to the states in the political dialogue with the
The political role of the NSAs is currently

recognised in the main European
development cooperation guiding documents.
donors.
Within the framework of the Paris Declaration, the new development
assistance strategies intend to support the establishment of policies
The Cotonou Agreement, which in 2000 framed a new relation between
based on national demands, basically defined through agreement with
the ACP countries, assistance recipients and the European Union,
the governments. This new prospect will require a different role from
promoted the emphasis put on the part of non-state actors in the
the civil society actors; while they may see the funds intended to them
development processes, which meant that they would have to:
with regards to the other instruments and programmes. The EC is

thus seeking new forms of implication of the NSAs, particularly in the
definition of the budget support strategies, as well as in the framework
of sectoral strategies.
So, on the one hand, the EC seeks to maximize the potential role of the
NSAs in the implementation of the instruments and geographical and
thematic programmes,

particularly the European instrument for Democracy and Human
Rights (EIDHR)
the Thematic programme for Non-state Actors and Local
Authorities (NSA&LA)

But it also opens the debate on the need to reinforce the NSA
80
capacities in order for them to develop their potential in the new

functions of political dialogue, evaluation and accountability, in strict
complementarity with the state actors.
Be consulted in the definition of the policies, strategies and
cooperation priorities;
Be involved in the implementation of projects and programmes;
Which would lead them to:

Benefit from financial resources to play their specific part;
And also benefit from support for their empowerment and the
opening of spaces for dialogue in the political sphere.
In 2002, the multiplicity of roles of Non-state Actors in the various

stages of development appeared clearly in the Communication on the
participation of Non-State Actors (November, 7th;COM 2002 598)1.
This Communication highlighted the need to integrate civil society in:

The consultation and preparation processes of the National
Development or the Poverty Reduction Strategy documents;
The production of the EC Strategy documents for the country,
which derive from the National Development strategy and the
community cooperation priorities;
The definition of the sectoral strategies, once the priority sectors
have been defined;
1. Communication of the Commission to the Council, the European Parliament and Economic and Social Committee.

decrease in reality, the part they will have to play will be more decisive
81
The implementation of the development projects as such;
In this statement, it is again referred to civil society participation as one
The various stages of the cooperation assessment, from the project
of the guiding principles:
assessment to the country strategy review.

Civil society, including economic and social partners such as trade
The document also described how this multiple part of civil society
unions, employers organisations and the private sector, NGOs and
participation in the debate and the formulation of the policies conferred
other non-state actors of partner countries in particular play a vital role
a stronger legitimacy to the process, reinforcing democracy and
as promoters of democracy, social justice and human rights.
encouraging a sense of mutual responsibility among the various actors:

NSAs, governments and the private sector. Finally, it stressed that non-
In this sense, the Consensus stressed the importance to widen
state actors in developing countries do not always have the possibility
institutional spaces to integrate NSAs in the cooperation policy
to be part of the development process, be it for internal weaknesses
decision-making.
or because of a hostile context, which proves imperative to provide

empowerment and dialogue mechanisms between donors and NSAs.
The new legal framework for EC development aid - the Financing

Instrument for Development cooperation (DCECI) - renews Community
In 2004, the EC presented the Guidelines on principles and good
commitment with a more efficient involvement of non-state actors.
practices for the participation of Non-State Actors in the development
The instrument, used as framework to fund aid from 2007 to 2013,
dialogues and consultations with more specific information on how
envisages the setting up of thematic and geographical programmes
to set up an effective participation of NSAs. In a generic document
(per country and region), stressing that in both axes, the organised
applicable to all developing countries, the EC referred to civil society
civil society actors must be involved both in the dialogue and in the
mapping as a fundamental preliminary tool to reconcile the European
implementation of the programmes.
development strategies with the respective national contexts.
82
The 2005 European Consensus on Development2 - a joint Declaration
used as a guiding matrix for the development cooperation of the
of the European Commission, the Parliament and the European Council -
EC, non-state actors are recognised as key elements alongside the
established the common principles for the cooperation of the European Union
governments in policy and strategy definition and implementation.
and its Member States.
Although the implementation of the resulting principles has proved

positive in some instances, it remains nevertheless weak.
2. Joint statement by the Council and of the representatives of the governments of the Member States meeting within the Council, the

European Parliament and the Commission on European Union Development Policy entitled The European Consensus on
Development (Official Journal - 2006/C 46/01).


In all the documents from the first five-year period of the 21st century,
83
Civil society and EC

relation Assessment
The fragmentation of responsibilities towards civil society,
both at level of the Headquarters and in the Delegations on
the ground.
Although there are some recent positive examples of strategic link

with civil society projects, the long-term impact of the assistance
The commitment to review the community instruments in their link with
through civil society has not systematically been assessed.
civil society in the developing countries, led to a series of assessments

of the current funding mechanisms. Some of them led to significant
The recommendations presented in this document are mainly focused
conclusions on the weaknesses of these instruments with regard to an
on the need to reassess how the EC establishes its relation with
effective involvement of non-state actors.
civil society organisations, in their institutional framework and the

established operational mechanisms. It should be noted that one of the
One of these recent evaluations was carried out by AIDCO -
main recommendations of the document, particularly interesting for this
Evaluation of the assistance of the EC channelled through civil society
guide, is to increase knowledge on civil society. One of the difficulties
organisations - in December 2008. Concerning the 2000-2006 period,
mentioned when seeking quality cooperation with CSO is the lack of
the main conclusions of the document were:
knowledge concerning their roles in the dynamic scene of the links they
84
The institutional strategy of the EC through the channel of civil
society continues to lack coherence, at the level of the regions,
Another assessment that deserves to be mentioned is the one carried
the sectors as well as the topics.
out by the Court of Auditors, whose conclusions are to a large extent
The lack of actual knowledge of civil society organisations added
value, as well as of how to reinforce this value, continues to
impede the capitalisation of these actors, mainly because of the
lack of EC instruments to do it.
The EC institutional culture inhibits a more fluid and strategic
We can also benefit from several conclusions from the capitalisation
relation with civil society, particularly with regard to:
study on Capacity Building Support Programmes for NSAs under the
in line with the conclusions of the above-mentioned assessment. The

conclusions stress the limitations of the current EC instruments to
achieve the intended objectives, particularly with regard to too strict
procedures.
Keeping the priority to the fast and result-driven financial
9th EDF3 that, although it does not mention the Latin-American area,
execution, which hinders more sustainable long-term
describes some advancement in the framework of the ACP countries.
processes;
The lack of spaces for dialogue to establish a strategic
cooperation with civil society;
3. EC Capitalisation Study On Capacity Building Support Programmes For Non State Actors Under the 9th EDF. Letter of contract

2008/162532. Final report. Drafted by Maurizio Floridi, Beatriz Sanz and Stefano Verdecchia. IBF. June 2009


have between each other and with the governments and the donors.
85
The document mentions several positive experiences of how the EC
In conclusion, and since all the assessments point to the need to boost
is testing new ways to associate in its cooperation with civil society,
the role of the NSAs as governance actors, it is necessary to stress
and generically the NSAs. It could be said that the EC is currently in a
the conclusions of the EC support thematic evaluation towards good
transitional period, trying to evolve towards a support logic of the
governance .
transformation processes at political, institutional, economic and
In this sense, the document refers to the positive role of the EC

programmes in the responsibility increase of the public sector towards
the citizens. Nevertheless, the document mentions as future goals:
governance in the new strategic relations with countries that benefit

from development aid. However, this intention to consider governance
a political priority hasnt matched the operational level in the
delegations and on the ground.
The main obstacles in this mismatch between theoretical and practical
sense, the EC must make an effort to support the current national
frameworks include:
political and administrative devolution processes and take
A limited knowledge and use of the existing policies and
advantage of the NSA support programmes to promote a stronger
guidelines, etc.
added value of the NSAs as governance actors must be taken

into account because of their representativeness and closeness
to a wider range of citizens unavoidably as a complement to the
governments. In this framework, the delegations must reinforce
A frequent deficit in the assimilation of the governance support

programmes;
A lack of integrated strategies in the country to support
governance;
their roles as political dialogue facilitators and critical observers of
Limitations to efficient coordination, complementarity and
social dynamics.
coherence;
To recognize the plurality of the NSAs and to reinforce their roles
A lack of adequate strategies and tools to support institutional
in the development processes according to their capacities and

evolution towards an integrated and coherent perspective on
The need to reinforce the political role of the NSAs. In this
interaction between them and their reference contexts. The
86
According to this evaluation, the EC carried out a considerable
development processes in a long-term perspective;
specific nature. To this aim, mapping emerges as a fundamental
A lack of clarity in the way the EC/EU puts into practice
instrument to increase the strategic knowledge of civil society
governance principles and ensures mutual responsibility.
actors.
From the different evaluations presented here, it is important to conclude

that there continues to be obvious contradictions between the
political discourse, which increasingly involves non-state actors as
protagonists of governance, and the actual practices on the ground.
4. Thematic Evaluation of the EC support to Good Governance. Final Report June 2006 PARTICIP GmbH; Contract numbers:

Eva/80-208

social levels.
87
The EC support policy to civil society in the

specific Latin-American context
Taking into account that this thematic study aims at reflecting on a

global support strategy to civil society in Latin America, it is important
to look at it in the framework of the Community cooperation with the
region.
Following the general trend, the main cooperation instruments of
EC cooperation with Latin America wish to be in phase with a more
coherent participation of Non-state Actors as development actors:
The regional framework for the whole continent;
The sub-regional cooperation frameworks agreed with the Andean
Community (AC), MERCOSUR and the Sistema de Integracion
Centroamericana (SICA);
The bilateral cooperation frameworks agreed with each country in
a bilateral way.
Several documents referred to the need to reassess EC instruments in
relation to a more prolific dialogue with the civil society actors.
88
European Union and Latin America (COM (2005) 636 final) goes in this
direction, when suggesting social cohesion and regional integration as
central axes for the EU cooperation policy with LA.
In terms of social cohesion, civil society undoubtedly plays a significant
and complementary role to that of the State in all its national, regional
and local dimensions. If it one wishes to ensure assimilation and


The 2005 communication on A stronger partnership between the
89
a major sustainability to the projects and other interventions, it is
The Document on experience capitalisation in the region, which
necessary to have an organised, mobilised and strong civil society,
precedes this guide and is part of the thematic study of NSA mapping
able to have a political impact, as well as a government able to work
in Latin America displays examples of these contradictions:
with participative criteria and open to dialogue.
Almost all the countries carried out consultation processes with

NSAs and LA to draft the CSP, usually under the form of seminars
In the same way, civil society can be an important gateway so that from
and meetings. As a consequence, in the majority of the CSP of the
the ground, from the citizens and their organisations, as a complement
analysed countries, there is no support provided to CS (for instance
to the local communities, social topics may actually meet those of
in Argentina, Bolivia, Chile, CAN, Honduras, Ecuador, Paraguay,
regional integration. This would reinforce the social dimension of
Peru, Uruguay, and Nicaragua).
integration, which up to now continues to be a pending issue on the

agenda of Latin America and its sub-regions.
The above-mentioned Communication stresses the need to
stimulate the link between different families of organised actors
(public authorities, civil society, the private sector and international
organisations) in relation to more sustainable development processes
on the long term.
One of the positive examples is Colombia, where the CSP features

the NSA/AL support in two of the three priority intervention sectors:
Peace and Stability, including alternative development (through the
project Peace Laboratories which supports the local initiatives
aimed at creating peace zones, coexistence, economic development
and reconciliation); and Rule of law, justice and human rights.
The majority of countries do not have any Governance programme
attached to the CSP, although some countries have a Governance
The conclusions of the above-mentioned EC aid evaluation through the
component as a transverse axis of priority sectors, as in Ecuador
organisations of civil society indicate that in Latin America, civil society
and Paraguay.
participation was mainly reduced to the implementation of projects via
In the majority of the countries, the EC did not carry out any
the thematic programmes (former budget lines, mainly the NGOs co-
mapping. Only one was completed (Ecuador) and some are under
funding line) and the current programming corroborates this decision.
process in Honduras, Venezuela and El Salvador. CIVICUS and the

Inter-American Development Bank (IDB) are the entities that have
90
carried out mappings in the area.
trend to evolve towards a logic of support to the transformation

processes at political, institutional, economic and social levels. The role
We may conclude that NSA consultancy and involvement instruments
devoted to the NSAs remains basically confined to the implementation
in the development processes remain extremely limited in practice.
of the thematic instruments.
Latin America is a tremendously diversified and heterogeneous

region with a rich history of organised people mobilisations that


Indeed, reality on the ground is in contradiction with the pretended
91
played a relevant part in the different democracy reconstruction and
Web page of the RELEX
consolidation processes, overriding institutional and political crisis.

This phenomenon has enabled civil society, in all the countries of the
region, to remain close to the citizens, which has not always been the
case for the authorities.
The European Union and Latin America have enjoyed a Strategic

Partnership since the first bi-regional Summit in Rio de Janeiro (Brazil)
In this context, the Community cooperation can play a significant role:
in 1999. They are natural allies linked by strong historical, cultural
Reinforcing the overall intervention strategy to support civil
and economic ties. They co-operate closely at international level and
society;
maintain an intensive political dialogue at all levels - regional, sub
Developing their role of complementarity with the governments

as main actors in the governance architecture;
regional (Central America, Andean Community and Mercosur) and also

more and more at bilateral level.
Reinforcing the role of non-state actors beyond their traditional
EU policy priorities towards Latin America are defined in the recently
functions as project performers, looking for new cooperation
adopted Communication EU-Latin America: Global players in
modes.
Partnership 2009 that updates the Communication on a Stronger

Partnership between the European Union and Latin America 2005
The preliminary stage in that direction is to know civil society actors
This represents, as Commissioner Ferrero-Waldner stated: another
better and the challenges they face in the political, socio-economic and
visible and tangible step towards the strengthening of our already well
cultural contexts in which they operate.
established and flourishing relation. Issues such as macro economic

and financial matters; environment, climate change and energy;
From this diagnosis, will appear a clearer vision of civil society
science, research and technology; migration; and, finally, employment
added value.
and social affairs figure prominently in bi-regional dialogues.
The development of mappings is particularly useful in this scenario.
The regional strategy paper 2007-2013
defines the specific areas
92
period, EU assistance amounts to around 3 billion, while for the same

period the European Investment Bank is authorised to lend up to 2.8
billion.
The EU is the leading investor in the region and the second trading
partner of Latin America.


for regional development cooperation programmes. For the 2007-2013
93
A summit of EU, Latin America and the Caribbean (LAC) leaders takes
place bi-annually, the last one was held in Lima, Peru in May 2008. The
"The mapping exercise in the

programming cycle"
next one takes place in Madrid, Spain in 2010.

On alternate years to the EU-LAC Summits, there are meetings at
Participation of the NSA to the country

strategy and PIN definitions
Ministerial level between the EU and the Rio Group. The last EU-Rio
Group ministerial meeting took place in Prague in 2009.
Country strategic Programming (DSP

and PIN)
Identification of
programmes and projects
Evaluation and capitalisation
Information
to the NSAs
throughout
process
Dialogue and
follow-up
Programmes and projects

proceedings
Programmes and projects implementation

Level 3: Participation in the programmes and projects (actors part

of the implementation)
94
Participation of the NSAs to the

follow-up and evaluation
Level 2: Participation in the followup (advisory committees, MTR

exercise, etc.)
Level 1: Information
Source: Maurizio Floridi and Beatriz Sanz-Corella, Capitalisation Study

On Capacity Building Support Programmes For Non State Actors Under
the 9th EDF.

Participation of the NSAs in the

programmes and projects implementation
95
Lessons drawn from the

Guatemala mapping
In more specific terms, the report on the Guatemala mapping

indicates that some segments of society continue to be excluded
from participation and that their overdependence on external funding
often leads to a competition in the access to funding. Furthermore, the
exercise of structural and political rights is still limited and adds to the
This guide followed a civil society mapping exercise in Guatemala. It
historical distrust, which impedes a more fluid relation between civil
was used to give legitimacy to the guide at stake, as it enabled to draw
society and the State. Finally, the socio-political context continues to
some important lessons. On the one hand, the study enabled to draw
exclude the informal organisation levels, which still have a significant
some conclusions on Guatemala society as such, which can be useful
weight within the Guatemala civil society.
as an example of interpretation and analysis of a mapping exercise.

Many of these phenomena are also plausible in a wider Latin-American
From these conclusions, we may highlight the confirmation that civil
context, which is why the mapping conclusions bear a more relevant
society organisations in Guatemala play a significant role in supplying
aspect when defining an overall civil society support strategy. The
alternative visions on development and governance, even if it may
conclusions highlight weaknesses in the environment as well as within
sometimes result difficult. Their role as actors of development has
the organisations that may help identify sensitive elements that the
been weakened over the last years through the lack of leadership, the
European cooperation must take into account.
transformation of popular movements into NGOs, the migration of

trained executives and the lack of multi-sector dialogue.
It is also important to stress that the report indicates that, in many

case, civil society organisations foster democratic and nonviolent
The report also stresses as main general trends and future challenges
principles, have positive priorities such as environment and that
for a more effective involvement of the NSAs:
they commonly foster transparency in the public sector. This is
civil society;

The initial role the federative bodies, networks and alliances
96
continue to have;
why civil society organisations stand as relevant partners of state

complementarity and control.
The report also states that civil society organisations are very well
considered by society because of their ability to respond to social
needs.
The unequal geographical distribution;

The mainly external sources of funding.
With regard to the impact of the CSO, the report specifies that:
The majority of their actions are associated to the Government,
the social protests and the consultation actions;

The persistence of divisions and polarisation phenomena within
97
Both urban and rural development councils are perceived as
For this reason, it would be important that the delegation:
opportunities for civic implication;
In terms of information: review current information,
The actual ability to have a political impact is limited since only
communication and/or consultation spaces and tools at its
a few one-shot actions to improve the responsibility of state
disposal in order to improve accessibility;
agencies have been developed;
In terms of political dialogue: take up a role of facilitator
The CSO are usually more focused on short-term priorities,
to support the dialogue between the Government and civil
leaving aside strategic agendas that would be significant on the
society and that it improves the harmonisation with the other
long-term.
donors in the country;

In terms of participation in the programmes and access
Finally, the report places the dynamics of civil society in the framework
to funds and resources: to reinforce the horizontal
of development cooperation, putting particular stress on community
approach of civil society and increase the support to the
cooperation, while also approaching other donors.
CSO through thematic and geographical instruments.
Generally speaking, the report draws the attention to a threefold
In the recommendations section, the report also lists the questions that
process that took place with European cooperation:
seem particularly relevant when defining CSP/NIP, MTR and follow-up
First, a depoliticisation of the support to civil society, which is
in general.
no longer placed in a wider governance approach;

Second, an increasing technical aspect to the support provided
The report thus enabled to have actual perceptions on social
to civil society organisations, which results in an increasing role
organisations as actors of a broader social dynamics that necessarily
of the European NGOs to the detriment of the local civil society;
determines them.
thematic instruments, the support to civil society being relegated

and limited to the field of thematic instruments.
98
Consequently, the report makes concrete recommendations in this

direction:
It turns out to be key to grant of civil society actors a part as key
actors of and for governance in the processes and bodies of
discussion, negotiation, follow-up and evaluation of European
cooperation, as a complement to state action;
The layout of this wider context will allow the European Commission
delegation to know about the main strengths and weaknesses of the
country civil society in the framework of its links with the remaining
actors. From an evolution point of view, we can then see potential
breakpoints and thus achieve a more effective involvement of the NSAs
in the development processes.

Third, an increasing separation between the geographical and
99
Guidelines on principles and good practice for

the participation of Non-state Actors in the
development dialogues and consultations
Identification of Non-state Actors
A descriptive study of Non-state Actors situation in each country
or region may considerably help the delegation in the implementation
of the participation process. The more one knows its limits, potential,
needs, participation and activity sectors, the easier it will result to
involve them in the development process, as in the drawing up of
support programmes specifically intended to them.
This study may be useful for a fundamental task: evaluating the
influence of Non-state Actors in the society of each party country. The
aims of this descriptive study are:
To provide a general vision of all the existing Non-state
Actors networks and organisations (including the national
and international NGOs, media, economic and social parties,
research organisations, women associations, other special status
organisations such as the Red Cross, etc), but also of the most
relevant existing dialogue processes in each country or region, in
which civil society takes part.
100
and the obstacles that they face, in terms of defence of interests,

supervision, political dialogue and service provision, both at
central level and at regional level.
The study should be undertaken in a realistic way and identify the
key networks of non-state organisations and actors, as well as
geographically and thematically select the representative networks


Evaluating the capacity of these organisations, the part they play
101
and organisations for the analysis, taking into account the strategically
indication (geographical, sectoral, etc.) relating to the degree
important fields in EU/EC cooperation.
of organisation of Non-state Actors and to the need to develop

capacities, taking into account the possible synergies and links
following aspects of civil society organisations and networks:
An analytical description of the networks and organisations of the
to complete them,
existing Non-state Actors and their missions, as well as of the
the relations between them,
interests that they represent or the mandate their members have
their level of involvement in the dialogue,
entrusted to them. This study will provide useful information on
regional level, with the national authorities or the donors

community; including the current participation situation compared
to the cooperation with other donors and the EC.
the opinion and participation of the rank and file,

The expected results of this descriptive study will be:
their missions and functions; as well as their capacity
the policy supervision and implementation, on a central and
102
with already existing programmes and initiatives in the field.
the class of poor people organisations who take part in them and
with which ends, as on the power and influence balance between
the various Non-state Actors groups and to what extent they can
be regarded as representative of the interests of the rank and file.
Furthermore, to establish a capacity assessment of these
organisations to contribute to the development process in terms
their financial environment and their strategies to obtain
of political dialogue, supervision and defence of interests, and
funds (funding legislative framework and reliance on external
service provision, including analysing the extent to which the civil
assistance),
society organisations actually take part in the service provision to
their opinions, expectations and strategies with regard to
the government.
collaboration with the central and local administrations,
Finally, to carry out an analysis and evaluation of how the
the information flow within civil society and between the non-
available consultation and dialogue mechanisms contribute to
state actors themselves at central and community levels: nature
an equal participation of women and men in the policy-making
(top-down, i.e. from the central level towards the districts and
processes, including the identification of positive incentives that
communities and/or bottom-up, i.e. from the communities
could be necessary so that women organisations take an active
towards the regional and central levels) and contents,
part in the dialogue processes in the country.
the information flow between the donors, the government and
An analytical description of the institutional mechanisms and
civil society: nature (top-down or bottom-up) and content
the legislative framework in which non-state actors operate and
(strategies, policies, responsibility, procedures, access to funding,
which lead the interaction between the government and civil
etc),
society.
An analysis of the government vision and strategies in terms of
civil society involvement in the development process.

In order to provide the expected results, the study must analyse the
103
A general vision of the other donors initiatives in relation to civil

society involvement in the dialogue, as well as to the development
of their capacities. It would be necessary to highlight and analyse
the various options in order to achieve synergies and coherence
(e.g. basket funding or other types of coordination assistance),
An analysis of the existing or envisaged mechanisms, for the
participation of non-state actors in the programming, review and
evaluation of the development cooperation funded by the EC.
This descriptive study will have to be discussed through seminars
in which the parties would take part, in order to understand better the
nature and expectations of non-state actors and to determine the main
necessary elements to organise the different consultations and to work
out a programme to support these actors. Even in the most scarcely
populated countries, where it is easy to identify non-state actors,
certain components of this descriptive study can prove useful to
properly analyse the situation.
In the countries where the EC or other donors already made various

studies whose contents meets to a great extent the objectives of
the descriptive study, the former shall be used in order to avoid
duplications, although their results might be updated if need be.
In some instances, there arent any descriptive studies yet and it
proves very difficult to identify non-state actors with regard to their
104
participation in the dialogues and consultations, because of the

important number of existing civil society organisations or their lack of
capacities. Before a descriptive study is complete, discussions could
start on all the subjects relating to their participation in the multilateral
consultation systems with all the parties involved. These consultation
systems would have to be flexible, open, inclusive and pluralist, and
their composition should be periodically reviewed.

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METHODOLOGICAL

This methodological guide was

"This report was prepared with

Concepts: Some precisions

How to carry out a mapping?............................................................. 27

Methodological guide for implementing

Methodological guide for implementing

What is the use of a civil society/NSA mapping for the EU

4: Collecting data on the actors ............................................................... 41

5: Creation of graphic matrices ................................................................ 45

Civil society involvement, a pillar of

9: Defining the frameworks in which the actors evolve . ........................ 67

11: To Make the Work of Mapping Sustainable........................................ 75

Civil society and EC relation Assessment................................................. 84

Implementing programmes and projects in sectors and places

The EC support policy to civil society in the specific

Maintaining a constant pressure that guarantees a permanent

Web page of the RELEX.............................................................................. 94

The European Union and its various components recognize in their

"The mapping exercise in the programming cycle" ............................... 96

Lessons drawn from the Guatemala mapping . ...................................... 97

lead to a significant support to governance and development efforts.

Methodological guide for implementing

10: Analyzing strengths and weaknesses................................................. 73

Helping EC Delegations in Designing their

Context of the methodological note

As a generic objective this methodological guide aims at building a

comprehensive involvement of Civil Society Organisations (CSOs) and,

society in defining priorities and evaluating cooperation needs.

in a broader framework, non-state actors, in the design and elaboration

help the EC delegations to establish a global support strategy for civil

objectives according to the involvement of the civil society in the socio-

society as a development actor. It focuses mainly on EU-Latin America

political dynamics of collaboration and cooperation.

relations, relying on existing examples in the region and more specifically a

It is primarily about the Communication on the Participation of

A mapping that provides an overview of civil

EU Council and the representatives of the governments of the Member

economic and political context of assistance-recipient countries, this guide

Methodological guide for implementing

This methodological guide lies within the scope of a study intended to

promote comprehensive strategies for the involvement of Non-State actors

This more specific framework lies in appendix 2 of the current guide:

Methodological guide for implementing

Given the need to deepen the knowledge on the social, institutional,

The specificity of the role of civil society in Latin

Effects on the dynamics of civil societies

among its populations during all their history. It would be impossible to

movement that enabled Brazil to get out, through democratic means, of

analyse in a few words this diversity in such particular countries. However, we

the cycle of dictatorships and brought to power the democratically elected

can refer to some elements as food for thought.

The core factors that shape these societies are varied:

At the economic level

countries continue to rely on their agriculture and on the exploitation of

At the political level

Methodological guide for implementing

Methodological guide for implementing

develop a national productive economy of its own. Most Latin American

forces abroad. In Europe, it was the times of thousands of politicised

solidarity committees and NGOs that supported these anti-dictatorship

also had an important role, embodied by the victory of the guerrillas in

When dictatorships ended, the return of political refugees meant the