Resumé:Politiksammenhæng for udvikling er en tilgang, der har til formål at få nationale politikmål til at harmonere medbredere internationale eller globale mål for at undgå eller minimere negative konsekvenser for udviklingslandene. Istedet vil potentialet for positive synergieffekter på tværs af politikker blive efterstræbt for at skabe positive effekterpå udviklingslandene. Dette vil medføre behov for afvejning af politiske hensyn samt kompromiser.Konceptnoten beskriver, hvordan Danmark vil arbejde med politiksammenhæng for udvikling, herunder strategiskeovervejelser og valg i processen for at fastlægge den danske tilgang. I noten præsenteres tre udvalgte prioritetsområder:fødevareforsyningssikkerhed og klimaforandringer, handel og finansiering samt sikkerhed. En handlingsplan vilblive udarbejdet på baggrund af konceptnoten, og den vil fastlægge, hvordan Danmark vil styrke, prioritere,koordinere og gennemføre arbejdet med politiksammenhæng for udvikling. Handlingsplanen vil formulere politiskemålsætninger under de valgte prioritetsområder samt identificere tre til fem konkrete politik- spor, som Danmarkvil fokusere sin indsats på.Den danske indsats vil være rettet mod EU-politikker, idet disse har langt større betydning for udviklingslandeneend nationale politikker. Danmark vil anlægge en ressourceeffektiv tilgang til behandlingen af politiksammenhængfor udvikling, der bygger på eksisterende interministerielle koordinationsmekanismer og eksisterende strukturer fordialogen med Folketingets Udenrigsudvalg og Europaudvalg. Den danske ressourcebase vil fortsat blive inviteret tilat bidrage til arbejdet med at fremme politiksammenhæng. Ejerskab og fælles forståelse for målsætninger på tværs afministerområder er afgørende for fremskridt, hvis dagsordenen skal kunne løftes.Dette papir er en forkortet dansk version, der sammenfatter hovedpointerne i den vedlagte engelske version afkonceptnoten for ”Shared Results – Denmark’s Action Plan for Policy Coherence for Development”.

1. Overordnet vision og rammerAlle lande i verden deler et ansvar for, at der ikke vedtages eller gennemføres politikker, derunderminerer mulighederne for at stimulere fremskridt og velstand andre steder i verden.Usammenhængende politikker hindrer ikke alene økonomisk vækst og fattigdomsbekæmpelse iudviklingslandene, men underminerer også effektiviteten og resultaterne af udviklingssamarbejdet.Økonomisk vækst og udvikling på global plan kan alene fremmes, hvis alle landes potentialeindfris. Europas langsigtede velstand afhænger således også af, om levestandarden for fattigemennesker i udviklingslande forbedres. Samarbejdet med udviklingslande vil desuden i stigendegrad være rettet mod varetagelsen af fælles interesser og forpligtende samarbejde med det formålat beskytte og regulere globale offentlige goder.Politiksammenhæng for udviklingskal forstås som et fælles ansvar for at undgå politikker, der hindrerudvikling, men i stedet tilstræbe at føre gensidigt understøttende politikker i fællesskab medudviklingslandene. Danmark ønsker med sin tilgang til politiksammenhæng for udvikling at sikresammenhæng mellem nationale politiske målsætninger og bredere internationale eller globaleudviklingspolitiske målsætninger med det formål at undgå eller minimere negative virkninger påudviklingslandene. I stedet vil potentialet i synergieffekter på tværs af politikområder søgesudnyttet for at opnå positive effekter på udvikling. Usammenhængende politikker er ofte udtrykfor interessekonflikter mere end blot manglende koordination eller utilstrækkelig information. Det1

kræver kompromiser og politisk ejerskab fulgt op af klare og realistiske politikmål. Men der kanvære situationer, hvor andre interesser vejere tungere end udviklingspolitiske målsætninger.Målet om at øge politiksammenhæng for udvikling nyder stor politisk opbakning i den danskeregering. En dansk handlingsplan for politiksammenhæng for udvikling vil søge at indfri deforpligtelser, som regeringen har formuleret i regeringsgrundlaget ”Et Danmark der står sammen”(2011), strategi for Danmarks udviklingssamarbejde ”Retten til et bedre liv” (2012), Lov ominternationalt udviklingssamarbejde (2013), den nye handelspolitiske strategi (2013) og denstrategiske ramme for Danmarks deltagelse i EU’s udviklingssamarbejde ”Fælles om en bedreverden” (2013).Formålet med handlingsplanen for politiksammenhæng for udvikling er at formulere, hvordanDanmark kan styrke, prioritere, koordinere og gennemføre tiltag, der fremmerpolitiksammenhæng for udvikling. Handlingsplanen vil definere strategiske prioriteter og politiskemålsætninger for danske indsatser, hvilke vil være gældende frem mod 2020, samt løbendeidentificere politik-spor, som skal forfølges.

2. Danmarks tilgang til politiksammenhæng for udviklingDanmark vil anlægge en ambitiøs, men realistisk tilgang, der sætter fokus på udvalgteprioritetsområder for derigennem at sikre maksimal gennemslagskraft og en effektivressourceanvendelse. Danmark vil bygge på erfaringer fra andre ligesindede lande, når deretablereres en national mekanisme for politiksammenhæng for udvikling. Nedenfor beskrives enrække strategiske overvejelser og valg, der er gjort i forbindelse med fastlæggelsen af den dansketilgang:Politisk opbakning og ejerskab på tværs af regeringen:For at opnå fremskridt meddagsordenen for politiksammenhæng for udvikling er det nødvendigt med politisk interesse, støtteog ejerskab på tværs af relevante ministerier. Det er nødvendigt at skabe en fælles forståelse afmålsætninger og handlemuligheder. Derfor vil relevante ministerier, hvis ressortområder påvirkerudviklingslandene, være inddraget og engageret i processen med at identificere prioriteter ogaktiviteter for den danske indsats for politiksammenhæng for udvikling.Fokus på EU-politikker:EU’s fælles politikker har langt større betydning for udviklingslandeneend nationale politikker. Derfor vil den danske tilgang til politiksammenhæng for udvikling værefokuseret på EU og på EU’s politikker. Der er i EU stærke politiske og juridiske forpligtelser iforhold til politiksammenhæng for udvikling, bl.a. i Lissabon-traktaten. Danmark vil arbejde for, atdisse ambitioner omsættes til handling ved at støtte EU i arbejdet med at institutionaliserebehandlingen af politiksammenhæng for udvikling. Det gælder blandt andet EU’slovgivningsarbejde, men også at fremme politiske drøftelser om dilemmaer relateret tilpolitiksammenhæng for udvikling. Med global tilstedeværelse i godt 140 lande har EU også envæsentlig komparativ fordel i forhold til dets medlemslande i forhold til at føre dialog pålandeniveau om politiksammenhæng for udvikling.En ressourceeffektiv tilgang til interministeriel behandling af politiksammenhæng forudvikling:Erfaringer fra andre sammenlignelige lande viser, at nationale mekanismer for at sikrepolitiksammenhæng for udvikling bør baseres på den eksisterende forvaltningskultur. Danmark vilderfor ikke opbygge nye enheder eller særskilte koordinationssystemer, men i stedet forankrearbejdet i eksisterende strukturer for at sikre ejerskab på tværs af ministerierne. Specialudvalget forudviklingspolitiske spørgsmål, der er en del af den danske EU-beslutningsproces, er eninterministeriel koordinationsmekanisme, som har til opgave at sikre sammenhæng i behandling af2

EU-sager, der vedrører udviklingsområdet. Specialudvalget vil i fremtiden fungere som platformfor interministeriel dialog og koordination af emner relateret til politiksammenhæng for udvikling.Formulering af prioriteter:For at opnå konkrete resultater vil Danmark fokusere indsatsen forpolitiksammenhæng for udvikling på et begrænset antal strategiske prioriteter, og der vil inden fordisse prioriteter blive formuleret politiske målsætninger og tre til fem konkrete politikspor. Påbaggrund af en årlig screening af EU-kommissionens arbejdsprogram vil specialudvalget forudviklingspolitiske spørgsmål vurdere, hvilke konkrete politikspor, som Danmark vil forfølge medhenblik på at understøtte de politiske målsætninger. Der vil i udvælgelsen af politikspor blive lagtvægt på, at Danmark kan fungere som forandringsagent og bidrage med merværdi i politik-processen. Den danske ressourcebase vil blive inviteret til at komme med input til den årligeproces.Viden og erfaringsopsamling:Politikker kan påvirke udviklingslande og befolkningsgrupperforskelligt. Uden den fornødne investering i evidensbaseret forskning i virkninger af EU-politikkerfor udviklingslande er det vanskeligt at fremme politiksammenhæng. Dataindsamling er enressourcetung opgave, og der eksisterer et fælles behov for at forbedre den internationale kapacitettil at udføre fælles analyser og dele viden. EU’s egne konsekvensanalyser, der udarbejdes iforbindelse med bl.a. lovforslag er et vigtigt værktøj, og Danmark vil arbejde for at sikre, atudviklingskriterier bliver inddraget i analyserne. En systematisk dialog med udviklingslandenesregeringer, civilsamfund og den akademiske verden gennem blandt andet EU’s delegationer omkonsekvenser af EU's politikker er også afgørende for at skabe den viden, der er nødvendig for atskabe sammenhængende politikker i forbindelse med politikudvikling.Dialog og afrapportering:Civilsamfundet, private aktører, Folketinget og partnere iudviklingslande vil blive inddraget systematisk i arbejdet med at fremme politiksammenhæng forudvikling, bl.a. i forbindelse med den årlige screening af mulige politik-spor for den danskeindsats. Dialog med relevante udvalg i Folketinget om politiksammenhæng for udvikling vil findested som del af den danske EU-beslutningsprocedure, herunder i forbindelse medudviklingsministerens halvårlige forelæggelser af Udenrigsrådet (udvikling) for FolketingetsUdenrigsudvalg og Europaudvalg. Danmarks indsats for politiksammenhæng for udvikling i EU-regi vil blive beskrevet i Udenrigsministeriet/Danidas årsrapport. EU's egen rapport ompolitiksammenhæng for udvikling, som udarbejdes hvert andet år, vil blive anvendt til at følgefremgang i såvel EU’s institutionelle håndtering af politiksammenhæng for udvikling somfremskridt indenfor de enkelte prioritetsområder.

3. Strategiske prioritetsområderDen danske indsats for politiksammenhæng for udvikling vil fokusere på følgende tre strategiskeprioritetsområder, der alle ligger inden for EU’s nuværende fokusområder for politiksammenhængfor udvikling: 1) Fødevareforsyningssikkerhed og klimaforandringer, 2) handel og finansiering og3) sikkerhed. Disse prioritetsområder repræsenterer danske styrkeområder og komplementererdanske udviklingspolitiske strategier, strategiske rammer og handlingsplaner. Inden for dissestrategiske prioritetsområder vil der som led i handlingsplanen blive formuleret konkrete politiskemålsætninger. Der vil yderligere blive identificeret i alt tre til fem konkrete politikspor, som vilblive forfulgt de kommende år for at understøtte de politiske målsætninger.Fødevareforsyningssikkerhed og klimaDen globale middelklasse forventes at vokse til tre milliarder mennesker i 2030, og det vil øgeefterspørgslen på energi med 45 procent, på vand med 30 procent og på fødevarer med 50procent. Samtidig forventes det øgede pres på naturressourcer i udviklingslande at resultere i høje3

og ustabile priser på fødevarer og ressourcer pga. befolkningstilvækst, ikke-bæredygtigt forbrug ogproduktionsmønstre samt klimaforandringer. Udviklingslande er mere sårbare over forresultaterne af klimaforandringer, og modstandsdygtighed i forhold til klimaforandringer ogfødevareforsyningssikkerhed nødvendiggør en holistisk tilgang.Fremme af politiksammenhæng indenfor fødevareforsyningssikkerhed og klima er komplekst. Ensærlig udfordring er de konkurrerende målsætninger om øget landbrugsproduktivitet, øgetanvendelse af bioenergi, nedbringelse af vandforbrug og affald samt reduktion af gødning ogpesticider, klimaforandringer, tab af skovarealer og andre økosystemer. Vækst i landbrugssektorenhar større effekt på økonomisk udvikling, beskæftigelse og fattigdomsbekæmpelse end vækst inogen anden sektor, men det er også en af de sektorer, der er mest påvirket af klimaforandringer.Som konkret politikspor inden for politiksammenhæng for udvikling kan Danmark eksempelvisarbejde for at sikre, at EU fremmer et grønt globalt landbrugs- og handelssystem, der støtterudviklingslande med at prioritere og gennemføre bæredygtige løsninger. Danmark kan arbejde forat sikre, at EU’s energi- og naturressourcepolitikker ikke påvirker udviklingslandes fødevare- ogernæringssikkerhed negativt og samtidig arbejde for at sikre sammenhæng og synergi mellem EU’sklimapolitik og EU’s målsætninger på udviklingsområdet. Adgang til jord er livsgrundlaget formange mennesker i udviklingslande. EU skal støtte jord- og ejendomsrettigheder i udviklingslandefor at sikre, at fødevareproduktion og lokale folks livsgrundlag ikke undermineres af eksterntopkøb af jord og ejendom. Biobrændsel er et område, hvor priser, politikker og effekter på jordkan have både lokal og global påvirkning på fødevaresikkerhed og fødevarepriser. Men koblingenmellem biobrændsel og fødevaresikkerhed er ikke entydig, og evalueringerne af disse bør væremultifacetterede og tage hensyn til den konkrete kontekst.Handel og finansieringMange udviklingslande nyder godt af stigende økonomisk vækst, handel, regional integration oghøjere investeringsrater. Dette gør landene mindre afhængige af udviklingsbistand og åbnersamtidig op for nye muligheder for samarbejde og handelsrelationer - også for Danmark. Men enrække af verdens fattigste lande falder fortsat agterud på grund af mangelfuld integration i detinternationale handelssystem. Samtidig mister udviklingslande, herunder danske prioritetslande,milliarder hvert år som følge af ulovlige pengestrømme med forbindelse til kriminalitet, korruptionog skatteunddragelse. Disse milliarder kunne have finansieret en bedre offentlig sektor iudviklingslandene.Øget regional og økonomisk integration fremmer og forenkler samhandel mellem udviklingslande.Som konkret politikspor inden for politiksammenhæng for udvikling kan Danmark eksempelvisstøtte EU’s bestræbelser for at sikre, at standarder og tekniske krav ikke bliver handelsbarrierer,samt støtte øget EU-samarbejde med regionale organisationer såsom EAC og ECOWAS.Danmark kan også arbejde for, at EU udviser fleksibilitet i forhandlingerne om frihandelsaftalermed de fattigste udviklingslande. I den forbindelse bør fokus være på bæredygtighed ogmarkedsadgang, herunder i forhold til liberalisering af grønne produkter samt fremme afmenneskerettigheder og arbejdstagerrettigheder. EU’s frihandelsaftaler med andre udviklede landekan også gavne udviklingslandene. En mere systematisk evaluering af effekterne affrihandelsaftalerne på udviklingslande og bæredygtig udvikling bør derfor fremmes.Danmark kan også støtte EU-tiltag, der fremmer systemer til national ressourcemobilisering iudviklingslande, oftest i form af mere effektiv skatteinddrivning. Det kunne også være fremme afsynergieffekter imellem EU’s arbejde for at bekæmpe skattesnyd og skatteunddragelse og EU’sarbejde for at fremme god regeringsførelse indenfor skatteområdet. Et eksempel er det nye4

regnskabsdirektiv vedtaget i 2013, som har indført krav om land-til-land rapportering for storeudvindings- og skovdriftsvirksomheder med henblik på blandt andet at øge gennemsigtigheden afvirksomhedernes betalinger for at udnytte naturressourcer, særligt i udviklingslande.SikkerhedStabilitet og sikkerhed er tæt forbundet med udvikling, fattigdomsbekæmpelse og fremme afmenneskerettigheder. Verdensbanken og OECD forventer, at mere end halvdelen af verdensfattige lever i skrøbelige stater i 2015. Som en konsekvens af dette har både EU og Danmark øgetsamarbejdet med skrøbelige stater samt øget fokus på konfliktforebyggelse, statsopbygning ogfredsopbygning. EU har en unik styrke i forhold til at anvende en bred vifte af udenrigs-,udviklings-, finansielle og sikkerhedspolitikker til at takle disse komplekse problemstillinger. Heriligger der muligheder for at sikre politiksammenhæng for udvikling og sammentænkte indsatser.Danmark vil arbejde for at styrke koordinationen og komplementariteten mellem sikkerheds- ogudviklingsmålsætninger i EU, alt imens der fastholdes et fokus på fattigdomsbekæmpelse. EU skalvære bedre til at udnytte Den Fælles Udenrigstjenestes potentiale til at sikre politiksammenhængpå tværs af alle EU’s udenrigspolitiske områder for at udnytte synergieffekter og dermed styrkeresultaterne af de samlede indsatser. Som konkrete politikspor inden for politiksammenhæng forudvikling kan Danmark eksempelvis fokusere på tiltag mod pirateri i Vestafrika og bekæmpelse afseksuel vold i konfliktsituationer.

This concept note clarifies the concept of policy coherence for development (PCD), presentsstrategic considerations and choices made in the process towards determining Denmark’sapproach to this area, and describes the priority areas selected for future work on PCD.An action plan will be developed based on this concept note. It will formulate how Denmarkcan strengthen, prioritise, coordinate and implement efforts in promoting policy coherence fordevelopment focusing on the EU. The action plan will include three to five specific activitiesand political tracks to be followed within the selected priority areas.This concept note is the result of an inclusive and transparent process, close cooperation withministries participating in the Special Committee for Development Policy Issues. Constructiveinputs from the resource base have been received in connection with the public hearing, andwill along with discussions in the Council for Development Policy and the Foreign AffairsCommittee of the Danish Parliament be taken into account when drafting the action plan.

1. Overall vision and context of Denmark’s approachAll countries share a responsibility in avoiding formulating and implementing policies thatundermine the possibilities of stimulating progress and well-being elsewhere in the world. Todrive forward global economic growth and development, the potential of all countries must befulfilled. As such, safeguarding Europe’s long-term prosperity also depends on our ability toimprove living standards of poor people in developing countries. Future cooperation withdeveloping countries is increasingly directed towards the promotion of collective interests andeffective engagement to protect and regulate global public goods that are in the interest ofeveryone. Striving towards fulfilling this shared responsibility to not impede development andinstead pursue mutually supportive policies and collective interests together with thedeveloping world is known aspolicy coherence for development.

“Policy coherence means different policy communities working together in ways that

result in more powerful tools and products for all concerned. It means looking for

synergies and complementarities and filling gaps among different policy areas so as to

meet common and shared objectives.” (OECD)

Pursuing policy coherence for development in a changing global context entails giving priorityto collective action, realising synergies, opportunities and win-win situations. It builds commonground on how to make efforts in key policy areas relevant for developing countries morecoherent and effective. It is a global policy tool that helps facilitate collective action to createenabling environments conducive to development for all countries.In its approach to policy coherence for development, Denmark will seek to reconcile domesticpolicy objectives with broader international or global objectives with the view to avoid orminimise negative spill-over effects and the impacts of policies that adversely affectdevelopment. Instead the potential of positive synergies across policies to foster positive effectson development will be exploited. Not only do incoherent policies impede developingcountries’ ability to achieve economic growth and poverty alleviation, but they also greatlyundermine the effectiveness of development cooperation and development aid.Incoherent policies are often a matter of conflict of interests more than lack of coordination orinsufficient information. This entails trade-offs and compromise, requiring political ownershipand choices accompanied by clear and realistic political objectives. However, it is alsoacknowledged that some issues may be subject to interests outweighing a trade-off to be madewith the objectives of development cooperation.The aim of increasing policy coherence for development enjoys political support in the Danishgovernment, and has since the last two years initiated progressive changes in its developmentpolicy that underpins commitment to strengthen the efforts in this area. The Danish actionplan on policy coherence for development will seek to realise commitments made in thegovernment platform “A Denmark that stands together” (2011), Denmark’s developmentpolicy strategy “The Right to a Better Life” (2012), the new International DevelopmentCooperation Act (2013), the New Trade Policy Strategy (2013) and the Strategic Framework onDenmark’s Participation in the EU’s Development Cooperation, “Together for a better World”(2013).Studies from the OECD/DAC and other international partners have accentuated the need toestablish coordination and reporting systems able to provide greater coherence between thosesectors and policy areas that affect developing countries. The Ministry of Foreign Affairs havecontinually but on an ad-hoc basis worked with policy coherence for development issues in7

close collaboration with other ministries over the last years, but is yet to establish more formaltools for systematically dealing with such issues. This has been noted in the last three peerreviews of Denmark’s development cooperation made by the OECD in 2003, 2007 and 2011.The aim of the action plan for policy coherence for development is to formulate how Denmarkcan strengthen, prioritise, coordinate and implement efforts in promoting policy coherence fordevelopment. The action plan will define strategic priorities and policy objectives for Danishengagement, which will apply up until 2020, and will also include policy tracks and initiatives tobe pursued. The specific policy tracks will, however, be subject to annual assessments.2. Denmark’s Approach: Pursuing coherent policies in the EUPursuing policy coherence for development is an exceptionally difficult task in practice. It is anintegral political concept that requires political ownership and choices at the highest possiblelevel accompanied by clear and realistic objectives. Denmark will apply an ambitious butrealistic approach, entailing engagement in selected priority areas in order to focus resourcesand maximise impact.In its approach, Denmark will build on the lessons-learned from other likeminded countrieswhen establishing its national tool for PCD. The European Centre for Development PolicyManagement prepared a study for the Danish Ministry of Foreign Affairs in the spring of 2013on the experiences of other EU member states with implementing policy coherence fordevelopment1.In the following, the strategic considerations and choices made in the process of determiningDenmark’s approach to policy coherence for development are presented.Political support and ownership across government and ministries:Policy coherence for development notonly relates to the Ministry of Foreign Affairs, nor is it only a technical matter. Without broadownership and political sponsorship across the government and across line ministries progressis not likely to be made. Developing and sustaining high levels of political interest and supportfor policy coherence for development is imperative and can become the greatest challenge, if acommon understanding of objectives and channels of action is not created. Therefore, allrelevant ministries whose mandates may affect developing countries have been and willcontinue to be included and engaged in the developing and deciding priorities and activities inthe action plan.Concentrating efforts on EU-policies:During the last ten years, policy coherence for developmenthas gained prominence in the EU and has been underpinned by strong political and legalcommitments2. The obligations of the European Union are Denmark’s obligations, andDenmark will work to translate these ambitions into action by supporting the EU in assuringthat its policies do not impact developing countries negatively. Combined with Denmark’sstrong position in EU development cooperation, the acknowledgement that neither Denmarknor any other individual Member State may lift this agenda alone, and further that it is in theECDPM:”Insights from Developments in National Policy Coherence for Development Systems: Key CrossCutting Issues and Dilemmas”.12

EU decisions on policies with the greatest impact on developing countries are taken, impliesthat Denmark will work through the EU and concentrate efforts on EU-policies. With itsglobal presence in more than 140 countries, the EU has striking comparative advantages to anyof its member states in maintaining country-level dialogue on PCD with developing countries.The EU generally pursues policy coherence for development within twelve priority areas withcurrent emphasis on five of these. These are food security, trade and finance, climate change,security and migration. Denmark will also focus its PCD-efforts within these areas in order tocomplement work.A resource effective approach to inter-ministerial handling:Lessons learned from other countries showsthat the configuration and dynamics of national tools for policy coherence for developmentshould be based upon the governance and administrative culture in place. Denmark will thusnot seek to build new units or separate coordination systems but rather base its work onexisting structures in order to ensure efficiency and ownership across ministries. The SpecialCommittee for Development Policy Issues, created as part of the Danish EU-decision makingprocess, is an inter-ministerial coordination mechanism set in place to ensure coherence acrossministries. Today, it handles EU-files under the Foreign Affairs Council in so far as it dealswith development. This committee will in future become the platform for inter-ministerialdialogue and coordination of PCD-related issues, including the task of identifying processesand policy tracks to be pursued within the strategic priorities. If necessary other EU specialcommittees can be engaged on specific issues.Priority setting:Experience shows that setting political objectives and priorities within a limitednumber of issues is of key importance in order to ensure concrete outcomes on PCD.Denmark’s approach will be thematic and issue-based and will take a forward-look. In thisconcept note the more overall priority areas have been selected while more concrete policyobjectives will be identified as part of the action plan. The more specific and immediate policytracks and processes in which Denmark will engage within these priority areas supporting thepolicy objectives will depend upon an analysis of on-going and forthcoming initiatives andpolicy proposals in the EU. This screening will take place on a yearly basis, taking outset in theEuropean Commission’s annual work programme.Based on the screening, the SpecialCommittee for Development Policy Issues will decide to engage in a limited number of issuesfor the next year(s) and set specific goals for the outcomes to be obtained. The Danish resourcebase will be invited to contribute with input in this process. In setting the priorities andobjectives, it will be considered where Denmark is able to act as an agent of change and addvalue to the policy processes.Evidence:The consequences of policies differ according to context. Without investment inevidence-driven research on the (potential) impact of EU policies on developing countries,commitments and institutional arrangements for policy coherence for development willcontinue to lack the necessary traction and evidence. Feedback from developing countries onthe impact of policies on development is fundamental to generate the necessary evidence toinform policy. As no single EU member state has the capacity or resources to conduct suchdata-gathering work solely on their own, a common need exists to improve our capacity forperforming joint analyses and sharing knowledge. EU impact assessments are important toolsand Denmark will work to ensure that these are shaped to take incoherencies and PCD-issuesinto account. Denmark will promote that EU-delegations engage in a more systematic dialoguewith partner countries including the civil society, academia etc. in order to obtain informationon country-specific impacts of EU-policies. Denmark will also work with relevant partners9

(EU, OECD, think tanks, academia and research institutes) at both international and nationallevel to build more systematic approaches to evidence-based analyses with involvement ofdeveloping countries.Dialogue and reporting:Dialogue and engaging with civil society, private actors, parliamentarystakeholders and developing countries is essential in ensuring that policy coherence fordevelopment can bring about real outcomes. The involvement of these actors will therefore bemade more systematic, e.g. in connection with the annual screening of the policy tracks forDanish engagement. Dialogue with relevant parliamentary committees on PCD-issues will takeplace in the framework of the Danish EU-decision procedures, including in connection withthe Development Minister’s biannual meetings with the Foreign Affairs Committee andEuropean Affairs Committee on preparation of the Foreign Affairs Council (Development).Experience shows that a flexible dialogue-based approach is preferable to heavy ex-postreporting. Results in the work on policy coherence for development in the EU will be reportedannually in the Ministry of Foreign Affairs annual report. The biennial reports of the EU willbe utilised as a basis for following progress in the EU on the institutional handling of PCD aswell as within the individual priority areas.

3. Strategic priority areasThe Special Committee on Development Policy Issues has agreed to focus on the followingthree strategic priority areas in the action plan for policy coherence for development: 1)Foodsecurity and climate change, 2) trade and finance, and 3) security.These priority areas represent Danishstrongholds and complement efforts and strategic orientations as set out in other politicalstrategies, strategic frameworks and action plans. It is foreseen that a total of three to fivepolicy tracks and issues within these selected priority areas will be pursued for the next years.These will be agreed upon in the process of developing the action plan. The input andresponses received by the civil society organisations in this regard will be taken into dueconsideration in this process. The identified policy tracks and issues will be subject to acontinuous assessment and pursued as long as their relevance remains intact.Food security and climate changeThe global middle-class is expected to increase by 3 billion in 2030 and increase demands forenergy with 45 per cent, for water with 30 per cent and for food with 50 per cent.Simultaneously, pressure to natural resources in developing countries is expected to result inhigh and unstable prices on food and resources due to population growth, unsustainableconsumption and production patterns and climate changes.Addressing issues of incoherence within food security and climate change is a complex andmulti-dimensional matter. The challenges include improving agricultural productivity as well asresearch and innovation systems; reducing waste as well as water usage; reconciling increasedagricultural productivity with other potentially competing objectives and constraints such asbioenergy, water scarcity and quality, climate change, loss of forests and other ecosystems anduse of fertilizers and pesticides.The changing climate in many developing countries may affect rainfalls, water, land, forests andbiodiversity entailing shifts in food production and implications for agriculture. Developingcountries are more vulnerable to the effects of climate change than other countries. Asimportant as the changes to food production and agricultural productivity is the question ofdistribution of and access to food. Building resilience to climate change and reducing10

vulnerability to food security requires a holistic approach pursuing sustainability on severalfronts.Denmark can work to ensure that the EU advances a green global agricultural and trade systemthat supports developing countries in choosing and applying sustainable solutions todevelopment challenges. Growth in the agricultural sector has a greater impact on economicdevelopment, employment and poverty alleviation than growth in any other sector, but is alsoone of the sectors hit hardest by climate change. In relations to partner countries, the EUshould push to make agricultural and food industries drivers for a sustainable and inclusivegrowth, addressing vulnerability and adaptation of local farming to climate changes throughstrengthening resilience of food production systems and food producing communities.Denmark can work to ensure EU energy and natural resource policies are not negativelyaffecting developing countries’ food and nutrition security, while working to increase coherenceand synergy between EU climate change policies and EU development objectives. EU’s workto secure access to food in developing countries must not be undermined in the pursuit foreconomic growth or increased energy security.Furthermore, Denmark can take an active role in working for a climate mechanism REDD+(Reduction of Emissions from Deforestation and Forest Degradation) that includes non-carbon benefits for indigenous people and vulnerable forest-dependent populations. This willinclude more analysis and knowledge on non-carbon benefits and their relations to safeguardsin the context of REDD+.Access to land is the basis for the livelihood of many people in developing countries. The EUneeds to support land and property rights in developing countries to ensure that foodproduction and the livelihood of local people are not undermined through external acquisitionof land. Biofuels is one issue in which prices, policies and land effects may have both local andglobal impacts on food security and food prices. Denmark will promote ambitious sustainabilitycriteria for the use of biofuels. However, the links between biofuels and food security arecomplex and the assessments of such should thus be multi-faceted and contextualized.Trade and financeMany developing countries profit from increasing economic growth, trade, regional integration,and higher investment rates, making them less dependent on development aid and opening upnew possibilities for cooperation and trade relations, including with Denmark. However, withthe growth in several developing countries, some of the world’s poorest countries are being leftbehind in the quest for economic growth through inadequate integration into the internationaltrade system. Simultaneously, developing countries including Danish priority countries losebillions every year due to illicit financial flows connected with crime, corruption and tax evasion- funds that could have otherwise financed public services.Technical trade barriers remain a challenge for developing countries, as the reciprocal openingof markets moves beyond solely negotiating tariff barriers becomes increasingly complex.Denmark can support EU efforts to ensure that standards and technical demands do notbecome barriers to trade. Increased regional economic integration encourages and simplifiestrade. Denmark can focus efforts in supporting increased EU cooperation with regionalorganizations such as EAC and ECOWAS to facilitate increased regional integration. Denmarkwill also work to ensure that EU exercises flexibility in the negotiations of free tradeagreements with the poorest developing countries, giving attention to the interests of thesewhen it comes to sustainability and market access, and advancing human rights and employee11

rights, including ILO conventions. EU’s free trade agreements with other developed countries,as e.g. with the USA, can also benefit developing countries. The EU should more systematicallyevaluate the effects of the new chapters on sustainable development in the free tradeagreements, instead of concentrating on ex-ante assessments. These assessments shouldprovide information on consequences for developing countries of the free trade agreement andbe used to strengthen the content of chapters on sustainable development in future free tradeagreements. Further possibilities of promoting green chapters in free trade agreements can beexplored allowing swifter liberalisation of green energy products and encouraging green growth.Denmark can also support the EU in promoting high standards from European enterprisesengaging in developing countries. European enterprises are well placed to transfer their highstandards and practices on human rights and labour rights, environmental protection and anti-corruption to business operations in developing countries.Denmark can support EU efforts to promote systems for mobilising domestic resources indeveloping countries, and can work to promote synergies between EU efforts to fight tax fraudand tax evasion, as well as EU efforts to promote good governance in tax matters.Revenue from natural resources should benefit the population and help finance public servicesand reform. The new EU Accounting Directive adopted in June 2013 introduces a newobligation for large extractive and logging companies in the EU to report the payments theymake to governments on a country-by-country basis. The new disclosure requirement willimprove the transparency of payments made to governments all over the world by extractiveand logging industries. Such disclosure will provide civil society in resource-rich countries withthe information needed to hold governments to account for any income made through theexploitation of natural resources. Denmark will continue to support the EU’s efforts in thisarea and close links can be made to the implementation plan for Danish engagement in tax anddevelopment in its development cooperation. In this connection the Special Committee willlook into the concrete suggestions for the action plan received by the civil society organisationsregarding fighting illicit financial flows and promoting financial transparency as well as moreeffective and fair taxation of extraction of natural resources.SecurityStability and security are closely interrelated with development, poverty reduction andadvancement of human rights. The EU is uniquely equipped to tackle these complex andinterrelated challenges. The principal strength of the EU is the wide array of political,developmental, financial, and security tools at its disposal. For instance, EU developmentassistance targeting poverty eradication can be strengthened by active use of other EU toolswhere relevant.These considerations are not least pertinent to fragile and conflict-ridden states. The WorldBank and OECD predict that more than half of the world’s poor will be living in fragile statesby 2015. Overall, fragile states are by far underperforming on UN development targets and nofragile or conflict-ridden country has reached the 2015 goals. As a consequence, both EU andDenmark have increased their cooperation with fragile states and efforts within conflictprevention, state building and peace building.It is within the interplay between the EU’s many different instruments that the necessity ofpursing PCD in the context of security becomes evident. A coherent and whole-of-EUapproach to fragile states is required to ensure that development cooperation objectives and12

humanitarian principles are not compromised by insufficient coordination and recognitionfrom other actors.Denmark will work to strengthen coordination and complementarity between security anddevelopment objectives in the EU, while maintaining focus on poverty reduction. The EUneeds to better exploit the potential of the European External Action Service in ensuring policycoherence across all EU foreign policy instruments and actors to create synergies and therebystrengthen the combined development efforts. Guiding efforts in this direction can have wide-ranging consequences, bearing the EU’s presence in more than 140 countries in mind.Possible areas for Danish engagement could be anti-piracy efforts in West Africa, focusing onregional coordination, capacity building and poverty reduction, linking it to EU’s regionalstrategy for the Sahel.Another issue for further exploration for the action plan is sexual violence in conflicts. Inaddition to the physical and psychological trauma suffered by survivors, sexual violence adds toethnic, sectarian and other divisions, which engrains conflict and instability and underminespeace-building and stabilisation efforts. Yet the overwhelming majority of survivors neverreceive justice and face considerable challenges in accessing the medical, psycho-social oreconomic support necessary to help them rebuild their lives. A range of responses whichaddress prevention, protection and access to justice are therefore required. Denmark canencourage the EU to play a major role in supporting this agenda.

SHARED RESULTS

- Denmark’s Action Plan for Policy Coherence for Development

1. Overall vision and context of Denmark’s approach ....................................................... 7

2. Denmark’s Approach: Pursuing coherent policies in the EU ....................................... 8

3. Strategic priority areas .................................................................................................. 10

“Policy coherence means different policy communities working together in ways that

result in more powerful tools and products for all concerned. It means looking for

synergies and complementarities and filling gaps among different policy areas so as to

meet common and shared objectives.” (OECD)