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Guatemala
>> Regional Overview >> Guatemala Overview Activity Data Sheet
PROGRAM: Guatemala
TITLE AND NUMBER: More Inclusive and Responsive Democracy, 520-001
PLANNED FY 2001 OBLIGATION AND ACCOUNT: $2,850,000 (DA)
PROPOSED FY 2002 OBLIGATION AND ACCOUNT: $2,000,000 (DA)
STATUS: Continuing
INITIAL OBLIGATION: FY 1997 ESTIMATED COMPLETION DATE: FY 2003Summary: With the signing of the Peace Accords at the end of 1996, Guatemala formally put an end to 36 years of internal conflict. However, despite areas of progress, many Peace Accord commitments remain as yet unfulfilled and the democratic process and institutions have not been fully consolidated. This strategy works to advance the peace process and deepen democracy by strengthening democratic institutions and expanding effective participation in political life, especially among the indigenous population and women. The strategy seeks to support the government and civil society to work together to address key issues. The ultimate beneficiaries will be those individuals and groups that have been excluded from participation.
Key Results: (1) A more effective and responsive criminal justice system through increased functional integration among key actors, streamlined and improved transparency of justice administration, and improved legal education; (2) Broader, more effective citizen participation in political decision-making by helping civil society organizations (CSOs) focus on public policies related to women, the indigenous, the rule of law, and the legal framework for citizen participation; and (3) Increased citizen participation in strengthened local governments by supporting greater citizen involvement in local decision-making and municipal development activities.
Performance and Prospects: USAID's democracy program continues to make progress despite the uncertainty and governance problems accompanying the new government that came to power in January 2000. The USAID justice activity has promoted greater access to justice through: 1) acceptance by all key Government of Guatemala (GOG) justice sector institutions - including the justice sector coordinating body - of the USAID-inspired "justice center" concept that serves to integrate key actors at the local level and promote modern mechanisms of administration of justice; 2) the opening of a new justice center in Santa Cruz del Quiche, with plans for several others; 3) training and other assistance to over 100 public defenders throughout the country and promoting implementation of the new Judicial Career Law; and improving the Public Ministry's (Office of the Attorney General) service to victims of crime and the general public. Nevertheless, the justice system requires major reform and much remains to be done in order to address its inability to provide timely and effective justice, including better coordination at the policy level among key institutions. In particular, the Attorney General's office has not provided the necessary leadership and impetus for significant change, without which reform of the criminal justice system will falter. More positively, the Supreme Court is taking a leadership role in promoting reform, the Court Clerk's Office has been fully established, and in-service judicial training has been institutionalized in the training unit.
As discussed in a recent external evaluation, the USAID civil society program has made advocacy part of the political lexicon and laid the foundation for more active and effective participation by CSOs in the transition to democracy, particularly in the areas of human rights, transparency, and political advocacy. With lessons learned from this groundbreaking program, USAID is designing a follow-on program that seeks to further support the important role of CSOs in developing and strengthening democracy in Guatemala. The "Non-Violence Against Women" activity has shown early impacts through the establishment of some 18 community self-help groups and legal and psychological support to around 100 women victims of violence. A violent attack on one of the activity's Guatemala City offices toward the end of 2000 evidenced the vulnerability of CSOs in Guatemala, especially those working on sensitive matters.
The USAID local governance activity, "Nexus Municipal," moved into full swing in 2000, focusing on the Quiché Department, one of the areas hardest hit during the internal conflict. Major accomplishments include the establishment of 18 municipal planning offices, the creation of institutionalized mechanisms for citizen participation in decision-making, including budget allocation and technical support on analysis and proposals for key decentralization policy. Nexus also expanded its work in citizen participation to 20 municipalities in Quetzaltenango, Sololá and Chimaltenango, and is providing assistance to the national municipal associations, including the indigenous association, particularly regarding political leadership and advocacy skills. Nexus has been able to provide leadership in this sector and is working to transfer its knowledge to national entities, which have, thus far, shown little political will to push reform efforts. The ongoing USAID Special Development Fund (SDF) provides financial assistance to over 50 rural community groups every year. Focusing primarily on ex-conflictive areas, SDF supports small development projects (e.g., bridges, roads, school buildings) while promoting democratic participation.
USAID efforts to strengthen the national legislature were ended early, after it became clear that the newly installed Congress lacked the political will to modernize and institutionalize changes. Nonetheless, the Congress has maintained the three regional outreach offices established under the program, with plans to open others. USAID also delivered to the Congress and other interested organizations a near complete computerized registry of existing laws along with an inventory of many obsolete laws that could be eliminated.
In FY 2001, USAID will obligate a total of $2,850,000 DA funds to finance the activities of: 1) Civil society program to improve CSOs' participation in the formulation, implementation, and oversight of public policies and institutions ($2,750,000); and 2) transparency and program evaluation costs ($100,000). Support to justice and local government will be provided through ESF funds under the Peace Special Objective.
In FY 2002, USAID intends to obligate a total of $2,000,000 DA funds to continue support to civil society support activities, widening and strengthening Guatemalan CSOs' participation in the formulation, implementation, and oversight of public policies and institutions; a limited number of multiyear subgrants will be initiated for advocacy, policy research, and civic education/mobilization activities.
Possible Adjustments to Plans: As a result of its disappointing performance, support to strengthen the Congress has been discontinued. Other significant changes will be made to focus our civil society initiative to further sharpen and target USAID assistance. The new civil society activity, planned to come on line in late FY2001, will include more focused components on organizational development, setting common goals, working with the media, negotiating with the government, and forming alliances with the private sector.
Other Donor Programs: Until recently, USAID was the lead donor in supporting democratic initiatives, particularly in justice sector reform. Other donors have become more involved in supporting Guatemala's justice modernization, with the Inter-American Development Bank (IDB) and the World Bank having signed major programs at the end of 1998. Local government and community development also receive support from several donors, including German Technical Cooperation (GTZ) and the IDB. The European Union (EU), the Organization of American States (OAS), Canada, Sweden, Norway, Spain, and Holland also have investments in the democracy sector. The United Nations Verification Mission for Guatemala (MINUGUA) continues to be engaged in human rights verification, although it role will diminish as it proceeds with its gradual withdrawal from Guatemala.
Principal Contractors, Grantees, or Agencies: USAID activities are implemented with the Guatemalan judicial branch, the Public Ministry, San Carlos University Law School, selected municipalities, municipal associations, CSOs and the National Congress. A mix of U.S. partners - Checchi, Inc., Creative Associates, Inc., the University of Texas at Austin and Development Alternatives Inc. - and local CSOs, manages activities.
FY 2002 Performance Table
Guatemala 520-001
Performance Measures:
Indicator FY97
(Actual)FY98
(Actual)FY99
(Actual)FY00
(Actual)FY00
(Plan)FY01
(Plan)FY02
(Plan)Indicator 1: Public confidence in key democratic institutions and process 0.4 NA 0.401 NA NA 46-48% NA Indicator 2: Number of preliminary legislative studies prepared by the Congress legislative Technical Assistance Unit * 39 24 46 4 50 NA NA Indicator 3: Individual free expression and participation 0.59 NA 60-62% NA NA 63-65% NA Indicator 4: Increased effectiveness of target CSOs in public policy advocacy NA 23.8 28.88 30.12 31.29 34.06 TBD Indicator 5: Strengthened local governance index NA NA 0.021 0.366 0.363 0.62 0.818 Indicator 6: Number of Justice Centers opened and operating with the approval of key counterparts and with transparent case management systems implemented in each Center 2 7 7 8 7 11 13 Indicator Information:
Indicator Level (S)or(IR) Unit of Measure Source Indicator Description Indicator 1: IR Percentage of positive responses in DIMS on the System Support Index, composed of Courts, Elections Tribunal, Public Offices, Congress, Human Rights, and Political Parties. Democratic Indicators Monitoring Survey (DIMS) data are collected in odd numbered years and reported in even numbered years by Development Associates The DIMS is a bi-annual national survey of adults, which measures changes in democratic values and attitudes over time as a proxy measure for the degree to which a culture of democracy is deepening over time. System support is defined as the legitimacy (not popularity) accorded by the populace to the political system in general and to its component institutions. Since 1993, six of those institutions (Courts, Electoral Tribunal, Public Offices, Congress, Human Rights Ombudsman and Political Parties) in which USAID has programmatic activities, have been grouped as a System Support Index. Indicator 2: IR The number of preliminary legislative studies prepared by Legislative Technical Assistance Unit which support legislative initiatives. Coordinator of the Congress' Legislative Technical Assistance Unit. Legislative studies are a systemic collection of information (normative law, bills decisions, reports, resolutions, judicial and administrative jurisprudence, comparative law, doctrine, media articles, etc.) providing the Congress with the information necessary for the preparation of high quality laws. *This indicator will be discontinued in FY 2001 due to termination of the USAID program with Congress Indicator 3: S Percentage of positive ratings in DIMS on Democratic liberties Index (Extensive Participation) Democratic Indicators Monitoring Survey (DIMS) data are collected in odd numbered years and reported in even numbered years by Development Associates. The DIMS is a bi-annual national survey of adults which measures changes in democratic values and attitudes over time as a proxy measure for the degree to which a culture of democracy is deepening over time. The Democratic Liberties Index is a composite indicator of public support for democratic liberties that is composed of the two other composite measures, extensive participation, and tolerance. This indicator measures public support for extensive participation. Respondents were asked whether they approved, disapproved or were indifferent with respect to public participation in the following: legal demonstrations; working for a party or a candidate during an election campaign; and participating in community groups or associations in order to resolve community problems. Indicator 4: IR An index will rate target CSO capacity for effective advocacy in the following two ways: Preparation and design of policy proposals and strategies, including: 1) strategic analysis of issues, 2) ability to understand the issues and the public policy process, 3) ability to formulate proposals, 4) ability to inform and receive feedback from constituents on policy issues. Demonstrated ability to influence public policy, including: 1) advancing proposals (coalition building, lobbying, etc.), 2) follow-up/monitoring implementation of policy changes, 3) engaging the government in dialogue, 4) drawing support from and mobilizing constituents effectively. Data collected on an annual basis through several mechanisms: self-assessment surveys, semi-structured interviews based on the project's results framework, information derived from project grants and other activities, and verification of information by project staff. Each of the two areas noted above are measured on a scale of 20 points each, with 1 to 5 points given for each specific criteria, for a total of 40 points: no effectiveness in public policy advocacy (8-12); very limited effectiveness (13-19); moderate effectiveness (20-26); good level of effectiveness (27-33); excellent effectiveness (34-40). A scale has been developed that includes an objective set of criteria for ranking CSOs in each of the eight areas listed above. This index is disaggregated according to programmatic area (women, indigenous, rule of law, and legal framework for citizen participation). Indicator 5: IR Degree of progress made within selected municipalities in achieving critical local governance benchmarks. USAID's institutional contractor (and local partners) which will monitor and evaluate the progress in each municipality based on set criteria established in the M & E plan (including assessments, surveys, municipal records, on-going monitoring). This is an index of critical benchmarks that each municipality (25 municipalities in the original universe of the program) has achieved in promoting citizen participation and strengthening local governance as well as the creation of a policy environment propitious to decentralization and municipal authority. As such it is a good proxy to measure higher level results. Key measures include: institutionalized mechanisms exist for regularized open citizen participation in joint decision-making with municipal officials; citizens are directly involved in municipal plan implementation, including budget hearings and other financial decisions; municipalities have effective technical/planning offices for the execution of plans and proposals generated through an open, participatory process; and national policies supportive of increased authority for local governments are adopted and implemented.
Indicator 6: IR Number of Centers operating in Guatemala The institutional contractor. The number of Justice Center in which USAID Justice Program is working. U.S. Financing
(In thousands of dollars)
Obligations Expenditures Unliquidated Through September 30, 1999 6,726 DA 2,670 DA 4,056 DA 0 CSD 0 CSD 0 CSD 0 ESF 0 ESF 0 ESF 0 SEED 0 SEED 0 SEED 0 FSA 0 FSA 0 FSA 0 DFA 0 DFA 0 DFA Fiscal Year 2000 2,300 DA 2,924 DA 0 CSD 0 CSD 0 ESF 0 ESF 0 SEED 0 SEED 0 FSA 0 FSA 0 DFA 0 DFA Through September 30, 2000 9,026 DA 5,594 DA 3,432 DA 0 CSD 0 CSD 0 CSD 0 ESF 0 ESF 0 ESF 0 SEED 0 SEED 0 SEED 0 FSA 0 FSA 0 FSA 0 DFA 0 DFA 0 DFA Prior Year Unobligated Funds 0 DA 0 CSD 0 ESF 0 SEED 0 FSA 0 DFA Planned Fiscal Year 2001 NOA 2,850 DA 0 CSD 0 ESF 0 SEED 0 FSA 0 DFA Total Planned Fiscal Year 2001 2,850 DA 0 CSD 0 ESF 0 SEED 0 FSA 0 DFA Future Obligations Est. Total Cost Proposed Fiscal Year 2002 NOA 2,000 DA 3,130 DA 17,006 DA 0 CSD 0 CSD 0 CSD 0 ESF 0 ESF 0 ESF 0 SEED 0 SEED 0 SEED 0 FSA 0 FSA 0 FSA 0 DFA 0 DFA 0 DFA
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Last Updated on: May 29, 2002 |
