GIVEN the profound implications of the rapidly changing global environment for trade, there is increasing recognition that civil society must become involved in trade policy matters. Globally, there are calls for a new form of governance and a new form of "participatory democracy" to more adequately represent the many "voices" in society.

The Cotonou Agreement is the successor agreement to the Lomé Conventions between African, Caribbean and Pacific (ACP) countries and the European Union (EU). It is unique among international agreements in its extensive and innovative provisions recognising the role of 'non-state actors' (NSAs) in trade and development.

Key NSA provisions in the agreement

The agreement recognises the complementary role of NSAs and their potential for contribution to the trade and development process. Article 4 provides that they shall be, where appropriate:

i Informed and involved in consultations;

ii Provided with financial resources;

iii Involved in the implementation of projects and programmes; and

iv Provided with capacity-building support.

Article 6 defines NSAs as the private sector, economic and social partners, (including trade union organisations), and civil society in all its forms according to national characteristics. It also further provides criteria for recognition of NSAs depending on:

a) The extent to which they address the needs of the population;

b) Their specific competencies; and

c) Whether they are organised and managed democratically and transparently.

Under the Country Support Strategy (2001) for Jamaica, 10 million euros have been provided to assist NSA participation over the next five years. But NSAs must meet eligibility criteria to get access to these funds. Recently, the ACP-EU Committee of Ambassadors approved eligibility criteria which identify the principles to be considered in formulating national and regional criteria for accessing funds. Reflecting the principles of democracy, transparency and accountability, the criteria requires NSAs, inter alia, to be registered and to prove that they are representative and competent in working towards the key objectives of the Cotonou Agreement.

Implementing the provisions

Implementation is easier said than done! These new provisions radically change the traditional programming approach of European aid to Africa, Caribbean and Pacific (ACP) countries. Significantly, NSAs will be involved in the process of defining, implementing, monitoring and evaluating the country strategies and the sectoral priorities. With no standard "blue-print" approach to this involvement, there has been much confusion about the practical steps involved since the signing of the agreement in June 2000.

Recently, the European Centre for Development Policy Management (ECDPM), an independent foundation specialising in ACP-EU co-operation, embarked on a project on behalf of the ACP Secretariat to produce a User's Guide that is expected to clarify the modalities for NSA participation in the Cotonou Agreement.

In an effort to get grassroots perspectives on how to produce the guide, the ECDPM has been consulting NSAs in six ACP countries including Jamaica. From June 25 to July 2, a representative from ECDPM, Laura Schmidt, visited Jamaica to carry out this mission. The ECDPM in collaboration with their local partner, the Institute of Law and Economics (ILE), conducted telephone and personal interviews across Jamaica and hosted a workshop on July 1.

Two findings of the mission are significant: (1) Most NSAs interviewed (particularly community-based organisations) had very little or no knowledge and understanding of the Cotonou Agreement; and (2) All NSAs saw training and education as among their greatest needs and the factors most likely to limit the effectiveness of participation in ACP-EU co-operation.

A plea for public education

It is imperative that NSAs understand, not only the profound social and economic implications of ending preferential arrangements, but crucially they must understand their role in mitigating the negative effects. Without this knowledge, NSAs will be unable to effectively participate in the consultations.

Managing the process so that funding goes to the most eligible NSAs and those who can make the most meaningful contribution to achieving national development objectives will indeed be a challenge. But this can be made easier if people are kept informed.

At the ECDPM/ILE workshop on July 1, one of the NSAs on the frontline of poverty reduction passionately described her fight against a chink infestation in a rural community in Clarendon. Without a serious strategy to educate the public, financing opportunities for similar deserving NSAs will be missed and one of the central objectives of the agreement, the elimination of poverty, may not be met. Further, without public education, opportunities to adequately influence the new trade and economic arrangements with the EU in meaningful ways will be missed. Only those well-connected NSAs 'in the know' will be involved.

Under the agreement, an eight-year period of preparation and negotiation was agreed, ending in 2008. Today, less than five years remain and most Jamaicans do not know what is the Cotonou Agreement, nor its significance to their lives. Education about these matters must be the first step in the preparation phase. While some people are able to access information on the Internet, many Jamaicans have neither Internet access nor electricity. Every effort must be made to educate those who need it most.

Not only is a "hungry man an angry man" but an ignorant man who is hungry will be even angrier!

Websites for more information:

www.ecdpm.org

www.dgroups/groups/nsaguide

www.europa.eu.int/comm

www.deljam.cec.eu.int

www.ilejamaica.org

Dr Rosalea Hamilton is a trade policy consultant and CEO, Institute of Law & Economics

E-mail: rosaleahamilton@hotmail.com

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