Chapter 2. Sweden’s policy vision and framework
This chapter assesses the extent to which clear political directives, policies and strategies shape Sweden’s development co-operation and are in line with international commitments, including the 2030 Agenda for Sustainable Development.
Sweden has established a coherent but broad framework for its development policies since the last review. The new framework focuses on areas where Sweden has comparative advantages, and helps deliver on its commitment to leaving no one behind by addressing rights and multidimensional poverty. Sweden is a global leader on gender equality, confirmed through its Feminist Foreign Policy. At the same time, Sweden maintains a large number of thematic priorities and has developed a multitude of strategies. There is scope for Sweden to consolidate its policy priorities and better capitalise on synergies among its strategies.
Sweden takes a strategic approach to engaging at the country or regional level and aims to select partners on the basis of how well they can contribute to its policy goals and achieve sustainable results. Sweden’s selection of partner countries is overall well aligned with its policy focus on LDCs and the most vulnerable countries. However, Sweden’s bilateral ODA is thinly spread across its priority countries.
Sweden takes an informed approach to selecting priority multilateral partners but makes limited use of governments as implementing partners.
Framework
Sweden has developed a coherent framework for its development policies that focuses on poverty and rights, playing to Sweden’s strengths. At the same time, Sweden maintains a large number of thematic priorities and has also developed a multitude of strategies. There is scope for Sweden to consolidate its policy priorities and better capitalise on synergies among its strategies.
Sweden has established a coherent but broad policy framework
Sweden has established a coherent framework for its development co-operation, as recommended in the 2013 peer review. The 2016 Policy Framework for Swedish Development Cooperation and Humanitarian Assistance confirms Sweden’s long-held vision of its development co-operation, to “create preconditions for better living conditions for people living in poverty and under oppression”. The framework also confirms Sweden’s continued focus on rights. It is aligned to Sweden’s Policy for Global Development (Government of Sweden, 2002) and takes account of the 2030 Agenda, the Addis Ababa Action Agenda on Financing for Development, the Paris Agreement on climate change and Sweden’s Feminist Foreign Policy.
This new policy framework sets out five perspectives - poor people, rights, environment and climate, gender equality, and conflict - that together provide a comprehensive foundation and play to Sweden’s comparative strengths as a donor. Eight additional thematic directions in the framework however make for a broad policy vision that does prioritise policies effectively (Figure 2.1), especially when combined with the multitude of new strategies produced to operationalise the policy framework.
Sweden has revised how it frames its perspectives and priorities twice since the 2013 peer review.1 The 2016 framework replaces the 2014 Aid Policy Framework (Government Offices of Sweden, 2014), which was Sweden’s initial attempt to bring together its thematic policy priorities in one central document. Sweden would benefit from consolidating its existing policy framework to allow staff to build up skills and knowledge in the newly identified areas and to enable time for implementation of agreed priorities (Chapter 4).
Source: Government of Sweden (2016), Policy Framework for Swedish Development Cooperation and Humanitarian Assistance, www.government.se/legal-documents/2017/05/policy-framework-for-swedish-development-cooperation-and-humanitarian-assistance/.
Sweden’s numerous strategies are aligned to the policy framework but the synergies among them are not sufficiently exploited
Sweden currently implements 63 strategies that govern its development co-operation: 6 regional, 25 country, 13 global thematic, and 19 that relate to multilateral co-operation (Government Offices of Sweden, 2018a). These strategies set out the objectives to which Sweden’s co-operation will contribute in a specific period. The Guidelines for strategies in Swedish development co-operation and humanitarian assistance, adopted in 2017, set out, in broad terms, the process for drafting, implementing and monitoring a strategy (Government Offices of Sweden, 2017b). Most strategies have dedicated funding allocated to their implementation.
While strategies individually are aligned to the policy framework, there are not clear connections among them and this can result in duplication of funding to partners and lost opportunities to create synergies. Liberia provides an example of more than one strategy providing funding in a given a country: in 2017, the regional strategy for Africa South of Sahara provided support to the West Africa Network for Peacebuilding in Liberia, this Network is also funded via Sweden’s Liberia country strategy, and Sweden’s thematic strategy for sustainable peace funded six activities in Liberia in parallel to the activities funded through the country strategy (Sida, 2018a). Currently, there is no systematic approach to ensuring that the owners of global thematic strategies who are based in Sida’s headquarters have an overview of activities undertaken within their policy area that are funded through country strategies. Similarly, country-level staff do not necessarily have an overview of how global thematic strategies are being operationalised in their country or region.
Past reviews have highlighted a “forest of policies”; Sweden has now developed what may be termed a “forest of strategies”. Sweden could establish more formal information channels about activities undertaken through the different strategies and better capitalise on synergies among the strategies to maximise complementarity, ensure consistency and coherence, and improve programme impact.
Principles and guidance
Sweden takes a comprehensive approach to addressing a range of priority policy areas, supported by its new multidimensional analysis of poverty. Sweden is a global leader on gender equality, confirmed through its Feminist Foreign Policy. Additionally, it has strengthened its approach to environment and is increasingly using conflict and resilience analysis to inform its programming in fragile contexts.
As a response to the 2030 Agenda Sida is using a new, multidimensional poverty analysis to help to leave no one behind
Sweden has embedded the pledge to leave no one behind in its policy framework and has a clear focus on poverty, as manifested in its long-standing vision of its development co-operation. Since the last peer review, Sida has developed a new multidimensional poverty approach (MDPA) to addressing poverty that is set out in its 2017 Conceptual Framework (Sida 2017c), supported by the Poverty Toolbox (Sida, 2018f).
The MDPA looks at poverty as not only a lack of material resources, but also a lack of opportunities and choice, power and voice, and human security. It starts out with an analysis of who specifically is living in poverty, how poverty manifests itself for different groups, and why poverty is prevailing by analysing the context taking a holistic approach (Figure 2.2). This approach will become an integrated part of the strategy management cycle and should help Sweden to develop a strong context analysis, better target its programming accordingly and map out partners who can address the four dimensions of poverty. It will also help Sida to better integrate work across thematic areas. As Sweden implements this new diagnostic tool, it would be useful if it could share learning with members of the OECD Development Assistance Committee (DAC).
Source: Sida (2018f), Poverty Toolbox, https://www.sida.se/English/partners/resources-for-all-partners/methodological-materials/poverty-toolbox.
Sweden’s Feminist Foreign Policy has confirmed its global leadership on gender equality
Sweden has a well-established focus on gender equality and the human rights of women and girls in its development co-operation. Framed as one of five overarching policy perspectives, gender equality is a recurring theme in Sweden’s programming, as is evidenced in Liberia, and in Sweden’s interactions with partners. Sweden’s new global strategy for gender equality and women’s and girls’ rights (2018-22) aims to strengthen normative frameworks, increase the safety of organisations working on gender inequality and improve disaggregated statistics (Government Offices of Sweden, 2018b).
Sweden takes seriously its role in addressing divisive issues of critical importance to women’s empowerment that sometimes are shunned by other donors or difficult to broach with partner governments, for example, sexual and reproductive health and rights (SRHR), masculinities, and sexual and gender-based violence (Sida, 2018e). This was evident in Liberia (Annex C). Sida supports staff in integrating gender equality across all its programming through a gender toolbox that provides knowledge, tools and inspiration on how to operationalise gender equality in Swedish development co-operation; a Gender Equality Network of staff specialists and advisors; and regional Gender Help Desks.2
Sweden’s Feminist Foreign Policy, adopted in 2014, has enabled Sweden to also ensure gender equality is an essential part of its diplomatic, security and trade efforts and to take a more systemic approach to the issue, confirming its position as a global leader (Box 2.1). Sweden should continue to pursue its Feminist Foreign Policy and its strong support for women’s rights globally, and to bring others along.
In October 2014, Sweden became the first country in the world to launch a Feminist Foreign Policy. This policy represents a shift towards a more systemic approach to addressing inequality, and focuses on enhancing the rights, representation and resources of women and girls globally. It also enables Sweden to use all its foreign policy tools to address gender equality. On security, for example, Sweden has used its non-permanent membership of the United Nations (UN) Security Council to advance women’s participation in peace efforts and conflict prevention, creating a Swedish Women’s Mediation Network that is actively working in Afghanistan, Burundi, Somalia, Sudan, Syria, Yemen and Zimbabwe. In trade, Sweden has worked hard to improve the gender focus of European Union (EU) trade agreements. The EU’s free trade agreement with Chile has an entire chapter on gender equality for the first time, thanks in part to Sweden.
Mobilisation and achieving normative change are integral parts of Sweden’s strategic approach. Sweden was a founding member of the SheDecides global movement that supports the rights of girls and women to decide freely about their sexual and reproductive lives.3 Sweden, as part of the movement, swiftly increased its aid spending on reproductive health to counter the declines in other countries’ spending.4 Its drive to change norms also has led to creative partnerships. In 2018, in partnership with Wikimedia, Sweden introduced the #WikiGap campaign to enhance the information about women on Wikipedia around the world. In the first three months of the campaign alone, participants wrote almost 4 000 new articles that were read over 5 million times across 50 countries.
One reason for the success of Sweden’s Feminist Foreign Policy is its full integration in the Ministry for Foreign Affairs, where it benefits from strong leadership and deep ownership through a bottom-up approach that has involved consultation with all the Ministry’s staff. This has been accompanied by a comprehensive set of guidance and support mechanisms for implementation, including the introduction of gender budgeting and work to ensure that the Ministry’s staff diversity reflects its commitment to gender equality.
Source: Government Offices of Sweden (2018d), Swedish Foreign Service Action Plan for Feminist Foreign Policy 2015-2018, Including Indicative Measures for 2018, Ministry for Foreign Affairs, Stockholm, https://www.government.se/information-material/2018/03/swedish-foreign-service-action-plan-for-feminist-foreign-policy-20152018-including-indicative-measures-for-2018/.; Government Offices of Sweden (2018c), Handbook: Sweden’s Feminist Foreign Policy, Ministry for Foreign Affairs, https://www.government.se/reports/2018/08/handbook-swedens-feminist-foreign-policy/.
Sweden is strengthening its approach to the environment and climate change
Since the last peer review, Sweden has raised its ambitions on addressing environmental sustainability and tackling climate change within its development co-operation, both as a standalone issue and in terms of integrating climate and environment across all its programming. Sida’s new environmental policy and an environmental action plan aim to increase the share of aid focussed on the environment (Chapter 3). Sida also has a staff network and a Helpdesk for Environment and Climate Change.5
However, an internal environmental audit of Sida in 2018 concluded that the agency still needs to address the issue of human and financial resources to meet its ambitions (Sida, 2018c). As is evidenced in Liberia, further efforts could be undertaken to integrate climate and environment into country strategies that do not have these topics as priority areas. Sweden’s efforts and willingness to learn, including through the DAC peer learning exercise on mainstreaming environmental concerns, should support its intention to be at the forefront of tackling climate change and environmental sustainability.
Greater use of conflict and resilience analysis has enhanced Sweden’s approach to working in fragile contexts
Sweden has continued to build upon its already solid approach to working in fragile states and contexts since the last peer review. The elevation of conflict as a perspective in its policy framework requires staff to take conflict into account and apply conflict sensitivity in all of Sweden’s development co-operation programming. Staff are increasingly doing this, as evidenced in Liberia, where the embassy commissioned an in-depth conflict analysis to inform the development of the current strategy (Annex C). Sweden’s outsourced policy Helpdesk on Human Security and Humanitarian Assistance enables staff to augment in-house expertise and provides high quality and timely policy support.6
In addition, Sida has introduced a new risk and resilience analysis tool for working in fragile states and contexts (Chapter 7). The tool is helping Sweden to identify and focus on the most vulnerable groups. In Sida’s recent mid-term review of the Afghanistan country strategy, this approach was integrated into the multidimensional poverty analysis and has resulted in programming being adjusted to include internally displaced people and returning refugees (Government Offices of Sweden, 2018a).
Basis for decision making
Sweden’s selection of partner countries is overall well aligned with its policy focus on LDCs and the most vulnerable countries, although it maintains a relatively high number of countries which results in a geographically thinly spread aid programme.
Sweden takes a strategic approach to engaging at the country or regional level. It aims to select the partners and forms of co-operation that contribute most effectively to achieving sustainable results. It takes an informed approach to selecting priority multilateral partners but makes limited use of governments as implementing partners.
Sweden aims to engage in countries where it can make the biggest difference but its bilateral ODA is geographically thinly spread
In selecting where its engagement can have the greatest impact, Sweden takes account of a country’s needs and resources and the degree to which its development co-operation is the best-placed to assist the country (Government of Sweden, 2016). Its policy framework calls for a strong focus in its bilateral programme on least developed and most vulnerable countries.
On the whole, Sweden’s selection of partner countries is well-aligned with its policy focus on least developed and fragile countries. However, Sweden also continues to undertake development co-operation with countries in Eastern Europe, Western Balkans and Turkey with the aim of contributing to the EU integration process, although these countries are not categorised as least developed or fragile (Table 2.1).
Sweden has managed to reduce the number of its partner countries, since the 2013 peer review, down to 35 from 44. But Sweden fell short of its objective to reduce the number of its partner countries to 32, as it maintained two partner countries it had planned to cut (Burkina Faso and Republic of North Macedonia) and added a new partner country (Cuba). Even with the overall reduction, Sweden’s aid programme is geographically thinly spread compared to other DAC members (Chapter 3). Sweden could allocate a higher share of its development assistance on a prioritised set of partner countries to promote its aid impact (Chapter 3).
Sweden takes a strategic approach to deciding when to engage at the regional or country level, as is evidenced in its choice of regional strategies. For example, Sweden decided to set up a regional SRHR strategy in Africa (Government Offices of Sweden, 2015), given that this is a normative and potentially divisive issue. The strategy encourages an exchange of experiences among countries to bolster learning and strives to strengthen policy commitments at the regional level on the issue. The strategy facilitated the expansion of a programme on sexuality education in Zambia to the regional level (Sida, 2018e). Equally, Sweden’s 2016-21 strategy for regional development co-operation in sub-Saharan Africa is focused on strengthening the capacity of regional actors to tackle cross-border challenges such as climate change, economic integration and trade (Government Offices of Sweden, 2016d).
Sweden’s rationale for selecting partners is based on who contributes most effectively to its goals but could take a more balanced approach
Sweden’s approach to partner identification is based on the long-term, sustainable results it wants to achieve and an assessment as to which partner is best placed to deliver these in the given context. Sweden does not have a ratio indicating either the amount of ODA that should be delivered via its bilateral and multilateral channels or the amount of aid that should be delivered among different types of partners. The Swedish government agency or agencies in charge of implementing bilateral programmes are responsible for selecting the partners and forms of co-operation that would contribute most effectively to achieving sustainable results. Staff also assess alignment with Sweden’s policy perspectives and international commitments before engaging with a partner. The multidimensional poverty framework will likely be helpful in identifying partners. Sweden values the contribution of different stakeholders and makes extensive use of multilateral partners and civil society organisations and, to a lesser extent, the private sector (Chapter 3). While Sweden conducts dialogue with its partner governments and is committed to the principle of country ownership, Sweden makes limited use of governments as implementing partners and accounts for this due to its increased engagement in fragile countries and contexts (Chapter 5).
A strategic approach to selecting priority multilateral partners
Sweden continues to have an informed and criteria-based prioritisation for its core funding of multilateral organisations, as highlighted in the 2013 review. Sweden’s support is governed at a general level by its strategy for multilateral development policy (Government Offices of Sweden, 2017a), which was updated in 2017 to reflect the changes in the multilateral architecture. Sweden also has individual strategies for each of its priority organisation. Multilateral organisations value Sweden’s preference for long-term partnerships based on dialogue and with a focus on core funding, which Sweden sees as the most effective type of support for these organisations. As this 2017 policy sets out, priority organisations for funding are selected based on the following criteria:
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The relevance of the organisation for Sweden’s international development co-operation and humanitarian assistance policy.
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The ability of the organisation to contribute effectively to results in development co-operation and/or humanitarian assistance.
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The size of Sweden’s aggregate support to the organisation eligible as ODA.
Sweden also makes extensive use of multi-bi support in its country programming. While the prioritisation criteria in the multilateral strategy guide Sweden’s multi-bi support, this support is also governed by the thematic and geographical strategies (Government Offices of Sweden, 2017a), adding a layer of complexity in partner selection at the country level. Sweden’s multi-bi funding is long term and softly earmarked.
Sweden follows up and assesses the relevance and effectiveness of each organisation. As of 2017, Sweden relies mainly on assessments by the Multilateral Organisation Performance Assessment Network (MOPAN), supplemented by a short assessment of relevance against Sweden’s policy framework. This is good practice. Sweden is also showing leadership by assuming the Chair of MOPAN in 2019.
Sweden promotes collaboration and aims to create synergies in the multilateral system and improve the effectiveness of multilateral funding, using different groupings of like-minded countries to promote its positions. Sweden chaired the Utstein group in 2016, and in 2018, it hosted a special meeting in Stockholm on a funding compact for the United Nations Development System (Government Offices of Sweden, 2018a). Sweden also plays an active role on governing boards, advocating for gender equality, rights and the environment.
References
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Government of Sweden (2002), Shared Responsibility: Sweden’s Policy for Global Development, Government Bill 2002/03:122, Ministry for Foreign Affairs, Stockholm, https//www.government.se/49b74b/contentassets/e9b903fda24f4a778cf7b06da7c10ef9/shared-responsibility-swedens-policy-for-global-development-government-bill-200203.
Government Offices of Sweden (2018a), DAC Peer Review 2019 - Memorandum of Sweden, September 2018, Stockholm.
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Notes
← 1. The 2014 Aid Policy Framework set out two fundamental values - poor and oppressed people’s own perspective and the rights perspective - and six sub-objectives. These sub-objectives are strengthened democracy and gender equality, greater respect for human rights and freedom from oppression; better opportunities for people living in poverty to contribute to and benefit from economic growth and obtain a good education; a better environment, limited climate impact and greater resilience to environmental impact, climate change and natural disasters; improved basic health; safeguarding human security and freedom from violence; and saving lives, alleviating suffering and maintaining human dignity.
← 2. For more on Sida’s Global Gender Help Desk, see https://ncgsw.se/project/global-gender-helpdesk-sida.
← 3. More information about this movement is available at https://www.shedecides.com/.
← 4. Over time, Sweden has increased both the volume and percentage of the ODA that it commits to population and sexual reproductive health. In 2016 and 2017, Sweden committed on average USD 151 million (2016 constant prices), or 5% of its total bilateral allocable ODA, to population and sexual reproductive health, compared to USD 68 million, or 2% of total bilateral allocable ODA, in 2014 and 2015. See also Table B.5. in Annex B.
← 5. For information about Sida’s Helpdesk for Environment and Climate Change, see https://sidaenvironmenthelpdesk.gu.se.
← 6. Sida’s Helpdesk on Human Security and Humanitarian Assistance was established in 2011 to complement Sida’s in-house expertise. The Helpdesk provides advisory support to embassies and programme managers. Typical tasks include conflict sensitivity reviews; support to strategy development, including mapping exercises and partnerships; portfolio reviews; targeted research on thematic issues; desk-based conflict analysis; general monitoring and evaluation; and presentations or events. The Helpdesk is external to Sida and implemented by a consortium of five agencies, which permits users to tap into a broad range of geographical and sector expertise.