 PREAMBLE
On June 11-13, 2007 UN Headquarters in New York will host a conference of all UN member states to deliberate on the Strategic Plan on Population, which will be the platform for UNFPA's program of action for 2008-2011. In preparation to that paramount meeting member states who will be present were invited to comment on the Draft document of Strategic Plan for 2008-2011. That document was prepared by an expert team of UNFPA.
Reviewing the document issued in New York on May 3, 2007 one could initially observe the approach taken by the UNFPA team. Stated in the Introduction the mission of UNFPA reads as follows:
UNFPA supports countries in using population data for policies and programmes to reduce poverty and to ensure that every pregnancy is wanted, every birth is safe, every young person is free of HIV/AIDS, and every girl and women is treated with dignity and respect.
It is further elaborated that UFPA's mission reflects the achievements attained since the ICPD in Cairo 1994, roughly 13 years past. It is, however, imperative to note is that prior to the groundbreaking ICPD, many developing countries have already successfully implemented their family planning and reproductive health programs (FP and RH Programs). Those achievements were greatly enhanced by those past 13 years since the ICPD in Cairo, Egypt. To date one could safely say that countries with great numbers of population have achieved remarkably in their FP and RH programs. Their successes have significantly changed the structure of the population from the young to the more mature, if not older populations. One could even claim that successes in FP and RH have resulted in the marked increase in the mature and even the older segments of the population.
One could also debate that a significant proportion of those achievements have been attributable to family welfare and to changes in family life in general. It is noted, however, that the "family" element is not explicitly mentioned.
Yet, it is through interventions in the family structure and family life that since ICPD, Cairo, profound changes have occurred. It is in that vein that the challenges since the ICPD has changed markedly. The biggest challenge was in RH, and in that fertility patterns have been altered or at least controlled, as it were.
However, there are other issues which have not been responded to in other sections of the Draft Strategic Plan, or if they were, the responses have been only superficial or inadequate at best. Those omitted issues include health outside the realm of and reproductive health, including safe delivery, infant and child growth. Issues such as youth and adolescent especially their lack of access to adequate health services, have not been clearly mentioned. Other than that, are issues revolving around their lack of access to education and training and their employment opportunities in the ever-increasing competitive and urbanized societies. Similarly is the lack of youth and the adolescents to adequate capital funds to propel them to embark upon a better living standards.
Moreover, there is virtually no mention on the increasing proportion of the elderly who have survived and even exceeded their estimated expectancy of life at birth. Those elderly are generally accorded treatment and services as if they were in a situation when their life expectancy were much lower. It is in these cases when one would find that the elderly are denied of having their honorable right for their “second career” and to give them the opportunity to serve in the overall development efforts. All of these, in dealing with the elderly, UNFPA appears to have been side-tracked by her own adherence to the ICPD Plan of Action concerning the elderly. UNFPA may also have been firm on the opinion that policy decision makers should be and aware and cognizant of the implications of changes in the age structure of the population.
In this context it appears that UNFPA’s mission during the heyday of the ICPD, when the message was that FP is one of the more important determinants of development, is no longer valid, and has actually narrowed into what is presently known as RH. This could indeed be undermining UNFPA’s own future.
Countries which has experienced rapid demographic transition due to their successes in family planning and reproductive health are actually facing greater challenges than just the mere increased number of deliveries and of infants. Babies and infants, in actual terms do not need much in terms of basic health and other fulfillment. What is daunting is actually the number of adolescents and youth who are uneducated and unemployed. They are the ones, if no firm actions are taken to remedy their conditions, who could pose the real political threat. They are the ones who are so volatile and could explode and destroy all that have been done in terms of progress and development. Infant and child revolution can only encourage and motivate parents to take actions to bring them to healthy youth, but revolution of the youth does not await parents to act. Revolution of the youth can be devastating and destroy all that they think could hamper their future. The youth demand that they are guaranteed of a better tomorrow; for them the past is best buried and be forgotten.
Countries which have achieved rapid transitions, yet have not adequately responded to those transitions, may find themselves with multiplied younger segments of their population, increased number of youth and the elderly, while on the other hand, are faced with adverse conditions of poverty and inadequate access of education, training, employment opportunities and insufficient capital fund. These countries may find themselves in a loosing race of their population growth against welfare interventions. The resultant is that many of those countries could not gain from the oft said “population dividends”, and on the contrary beset by spiraling problems of poverty.
II. The Conceptual Foundation of the Draft Strategic Plan 2008-2011
This section presents salient notes pointing to the indications that recommendations of previous international conferences have often resulted in remarkable achievements in population programs in general, including that of FP and RH, yet a significant number of those achievements have not been duly noted in the Draft Strategic Plan.
a. The Priorities
As one could gather from the mission statement of the Draft Strategic Plan 2008-2011, it focuses on three major thrusts, i.e. Population and Development, Reproductive Health and Rights, and Gender issues. If one were to link this Draft Strategic Plan with the MDGs, one would note that within the rubric of Population and Development many aspects could still be deliberated upon. Yet, from the Draft Strategic Plan the deliberations are scant, with reference devoted to a greater extend on reproductive topics, pregnancy and safe deliveries.
One would also find that the deliberations on reproductive health are also narrow in scope, whereas actually MDGs addresses much on the prevention of HIV/AIDS and other communicable diseases. One also finds that the Draft does not adequately address the issues of other diseases which in fact could threaten the fruits of development, such as malaria and the avian influenza.
On the deliberations on gender issues one finds that the focus is limited to human rights, and more specifically to reproductive rights, and very scant – if at all – on the democratic rights to choose one’s path of life in terms education, employment and other opportunities, to contribute and excel in one’s pursuit of welfare and happiness in accordance with one’s social beliefs and norms. Neither could one find deliberations on crime and violence in households and in families.
Further, one also finds scant deliberations on the ways and means to convince policy decision makers on measuring the impacts of development using population-based indicators which ultimately would result in establishing population-centered development policies and programs.
Encapsulated, the general impression of the deliberations in this category is the narrowing of thrusts and the depreciation of the mission statement, which could arrive at the undesired result where attention and priorities are curtailed and limited. It also appears that the principles of interdependence and interrelations among the various elements in population and development are ignored or waived.
b. The Operational Principles
As resultant to the above, the Operational Principles as introduced in the Draft is curtailed to only three major thrusts, i.e. the Human-Rights-based approaches, Gender Mainstreaming, and the Generally Sensitive approaches.
It is observed that as the global agency who has been the champion and stronger advocate of Human Resources Development, and which has produced significant numbers of FP and RH programs in the past, UNFPA appears to have ignored lessons learnt that those successes were not attributable to adherence to human rights or gender mainstreaming issues per se. Lessons have indicated that those successes were attributable to the hopes instilled upon FP and RH acceptors that their families will be able to enjoy enhanced welfare, improved health, and become more equipped to face future challenges. In fact, family welfare approaches has become the main feature in many international gatherings of the past, and many within their respective programs. Many have even debated which priority should come primary, whether it should be FP or Development.
Human Resources Development as put forth in the MDGs commands the attention of policy decision makers in general as it deals explicitly with poverty alleviation, with health matters in general, with prevention of HIV/AIDS, with malaria and other diseases, such as the avian influenza, dengue fever; with child health, with education, with gender issues, with preservation of the environment, and linking all of the above with the broad base of international commitment. Worth noting is that with poverty alleviation it is important to utilize Human Development Index and other indices of human quality, such as expectancy of life at birth, average years of schooling, literacy rates, and indices on decent standards of living.
It should be imperative if the Draft Strategic Plan of UNFPA were to mention all of the previously mentioned, such that population programs which we all have deliberated in all past international meetings, could remain current and consistent. It is also important to make all efforts in human resources development to be parallel with the overall development efforts, and to be consistent with MDGs and HDI ideals.
c. Cross-Cutting Principles
Whereas it is generally accepted that within the context of reproductive health and gender issues the Draft Strategic Plan would give emphasis on mainstreaming young people’s concerns, emergencies and humanitarian assistance, and special attention to marginalized and excluded population, the scant attention to the plight of children of the poor, whose parents having accepted family planning ideals, have brought them to survive to school-going ages, yet are unable to support them to school. It is also of serious concern to see the scant mention, if at all, of empowering the younger segment of the population who have survived to join the youth and the adolescents, yet remaining poor and unable to enjoy proper education and training, and thus would remain unemployed.
It would be desirable if the Draft Strategic Plan were to mention concerns, that within the context of establishing harmonious family life, to make explicit efforts to equip the younger generations for a better tomorrow. One would think of this as paramount considering the possibilities of having a “lost generation” in the midst of progress and development; a cohort of young people with no access to adequate health services, who are uneducated due to the poverty of their parents, and who are unemployed, and hence a burden to the society in general.
One should also consider the possible phenomenon of change in the rural areas where one would find an abundance of young people, having survived childhood maladies such as infant and child diseases, enter the already overloaded agricultural work force. They would become a significant segment of the population who could threaten to “nurture” poverty.
It is in this realm that the need is direly felt to give emphasis to empowering the communities based upon local potentials.
d. New Priorities
Important to mention is the shift of policies towards strengthening UNFPA country offices. Although according the Draft Strategic Plan this would not commence until mid 2008, indeed it is a commendable policy, yet should be given cautious note. The increase of 30 percent of UNFPA’s budget should be considered with care.
One would note that although increases in the Headquarters’ and Regional offices are slight, or even decline, one should consider with care the pledge to increase the number of professional staff almost in all country offices. These professional staff will be the added “thinkers” in the field, who could become the augmentors of project plans and proposals, yet which may not have sufficient funding for implementation, and thus contribute little to the host countries and the field.
On the other hand, UNFPA country offices could become effective triggers and stimulators in establishing and strengthening operational networks at the local and field levels. UNFPA should become the source of funds and resources to plan and develop models, rather than concentrating on “final impact” projects. Model projects are generally small and can have little impact to large countries such as Indonesia. These models and pioneering activities will ultimately need to be further replicated and multiplied using local community and government resources. It is also desireable that UNFPA could facilitate the mobilization of complementary and supplementary resources from other international agencies, such that by-and-large all programs and projects could be implemented with global standards, yet fulfilling local needs.
III. Implementing the Strategic Plan 2008-2011
In a specific part of the Draft document it is mentioned that the major partner of UNFPA is the government, and community organizations. In a separate part UNFPA also considers the development of a network involving and inclusive of the central government, provincial governments and local district governments. It is reminded in this context that a viable network should not be mainly built on partnering with government agencies which are known to be lacking in stability, especially with the oft and periodic changes in government structures and administration. Emphasis is therefore submitted to consider socio cultural approaches to strengthen the confidence, and giving greater empowerment to the civil society.
The process of empowerment of the civil society should be part of all programs, augmented by sufficient funds and resources, supported by tangible political and economic commitments. It is also important to consider that the funding should be such that local governments are encouraged to further give priority to fostering and developing the capacities of non-government organizations. UNFPA generated funds should be freed of all governmental bureaucratic constraints.
The emphasis on empowerment of the community, down to the grass roots levels, should be the overriding paradigm for the present and the future.
It is further emphasized that organizational and institutional development should not be solely based on knowledge-based considerations, rather it should also include the population-based premises. Project and program locations serving larger numbers of population and clientele, should be given higher priority for capacity building and capacity enhancement for government and non-government agencies, with the ultimate aim of creating self-sufficiency and self-confidence.
As the scope of the Draft Strategic Plan is yet not clearly defined, the scope of advocacy as mentioned in the Draft, is as yet unfocussed and narrow. It is therefore submitted that in the final document, the scope of advocacy will place people as the focus of development. People should come forth as the potential and the strength for inviting investments in human resources, promising multiple returns and dividends. These human resources investments should be made so attractive, not only to the government circles but the public in general.
It is further submitted that in the Indonesian program, empowering the family as the smallest unit of the society, especially at the grass roots, is indeed of utmost strategic value. It is therefore recommended that enhancing the quality and value of the family be placed high on the priority list. Indonesia is convinced, and have experienced that only through this priority can development efforts be tangibly felt by the people and the beneficiaries, and be sustained through time and surmount future challenges.
Nurturing the enhancement of family welfare is to be done within the context of local and incumbent socio cultural norms and values. It is proved that by heeding to these confines, that absorption of newly developed change values can be nurtured and institutionalized. Again using the Indonesian experience, it is submitted that those socio cultural norms and values dictate eight functions of the Indonesian families, which would guarantee the success of all development endeavors. Those eight functions are (1) believe in the Almighty God, (2) the cultural function, (3) nurturing affection and care, (4) sanctuary for all members of the family, (5) the reproductive function, (6) the education function, (7) the economic function, and (8) preservation of the environment.
Final in this section, it is submitted that in the Indonesian program, the most recent approach to empower the family and all members of the family is best done through the establishment of POSDAYA, i.e. local village posts for the empowerment of all members of the family. This is a regular forum of families and community members to deliberate, decide and plan all community and family activities for the benefit of all members of the family. These posts can be community based, or faith based, or functional based. The activities of the POSDAYA are centered on the three major elements of MDGs, i.e. health, education and economic activities.
The POSDAYA has become institutionalized and inculcated in the daily fabric of social life, especially of rural life in all villages. The POSDAYA are led by local village leaders with strong support of the ulamas (religious circles), and the commitment of all local community prominents. This forum also becomes the nucleus of social and community movement based on the eight functions of the family as mentioned above.
The forum also guarantees the democratic rights of individuals to chose their respective paths of life towards attaining their respective welfare ideals, both in terms of their physical and spiritual need fulfillment. It is these fora which have strengthened the validity of population-centered indicators, which when appropriately applied will at the same time attain the MGDs, which indeed are parallel with UNFPA’s vision.
It is submitted that UNFPA could be better served if those ideals and principles are mentioned in the Draft Strategic Plan, which will also motivate other members of the UN and the UN family to heed to the firm participation of their respective civil society.
IV. Concluding Note
It is important to note that all the thoughts presented are based on the premise that the Draft document is giving heavier emphasis to developing countries who have not yet gone far, or have not yet embarked, in FP and RH programs. One would take this opportunity to encourage UNFPA to also take side with countries who have taken significant strides in successfully implementing the program. To the latter countries, UNFPA’s contribution would be more on encouraging those countries to make more tangible and significant investments in their human resources in its widest possible scope.
Successes in human resources investments, will certainly guarantee long-term dividends, and will bring those countries to a higher plane of perpetual propelling development . |
