Chapter 1. Greece’s global efforts to support sustainable development
This chapter examines Greece’s approach to global sustainable development, including its response to global challenges, action to ensure coherence between domestic policies and global sustainable development objectives, and efforts to raise awareness of global development issues at home. Greece engages in global processes to resolve challenges facing the Mediterranean, Southeast Europe and the Middle East, and advocates for a safe marine environment in the Eastern Mediterranean. Greece recognises the importance of policy coherence for sustainable development, but has not updated its legal framework to determine leadership, responsibility and accountability, or established a co-ordination mechanism for it. While Greece has intensified efforts to combat trafficking in human beings, greater efforts are needed to prevent corruption and illicit financial flows, and combat bribery. The solidarity shown to migrants provides a good foundation for public support for development co-operation. Engaging the public on the sustainable development goals could enhance global awareness among Greeks.
Efforts to support global sustainable development
Greece engages in global processes to resolve the challenges – including peace and security, climate and the environment, culture and migration – facing the Mediterranean, Southeast Europe and the Middle East. Greece advocates for a safe marine environment in the Eastern Mediterranean. The Greek Government will reflect the Sustainable Development Goals (SDGs) in its new national development strategy and intends to develop a national implementation plan for the SDGs in 2019.
Greece engages in global processes and advocates to resolve challenges in its neighbouring region
Through its membership in the European Union, Greece engages in global processes that affect sustainable development. It also advocates in its national capacity on issues of domestic concern and challenges facing its immediate neighbourhood – the Mediterranean, Southeast Europe and the Middle East – including peace and security, climate and the environment, culture and migration.
Greece actively participated in the processes leading to the 2030 Agenda for Sustainable Development. In addition to associating itself with the positions of the European Union, Greece advocated for democracy and the rule of law, sustainable consumption and production, employment and decent work for all, and the conservation and sustainable use of marine resources.1 In his input to the United Nations Sustainable Development Summit, Prime Minister Tsipras reflected on Greece’s recent experience of economic, security and refugee crises. He emphasised the importance of tackling debt, building and improving welfare states, and ensuring the ability of governments to manage taxation.2
Greece also contributed to developing the Addis Ababa Action Agenda and the Sendai Framework on Disaster Risk Reduction. It also ratified the Paris Agreement on Climate Change and, together with the European Union and its Member States, committed to reducing domestic greenhouse gas emissions by 40% by 2030 compared to 1990.3 Greece also pledged to implement 21 of the core commitments agreed at the World Humanitarian Summit.
Greece’s national development strategy will reflect the SDGs
The 2030 Agenda and the SDGs provide an opportunity for Greece to “transition to a new, fair and sustainable development path, ensuring that no one is left behind” (Government of Greece, 2018). Greece will reflect the SDGs in its forthcoming national development strategy, and the General Secretariat of the Government is formally mandated to lead the SDG integration process. An Inter-ministerial Co-ordination Network involving all ministries has been established, providing a vehicle for dialogue with civil society, employer and employee representative bodies, the private sector, and regional and local authorities.
Greece’s Voluntary National Review was presented to the High-level Political Forum on Sustainable Development in July 2018. It identifies eight national priorities,4 which will underlie the national implementation plan for the SDGs to be elaborated in 2019 (Government of Greece, 2018a).
Greece addresses risks to peace and stability in its neighbourhood
Greece strives to be a responsible broker in promoting peace and security, stability and religious tolerance in the Mediterranean region and the Middle East, and has recently initiated a number of processes to support this.
The inaugural International Conference on Religious and Cultural Pluralism and Peaceful Coexistence in the Middle East, organised by the Ministry of Foreign Affairs in October 2015, focused on the impact of human rights violations, terrorist acts and violent extremism on religious and cultural communities in protracted crises. By way of follow-up, the Centre for Religious Pluralism in the Middle East5 was established in Athens to deepen understanding of the challenges, and a second International Conference was held in October 2017.
Greece hosted the first Informal Ministerial Meeting of the Rhodes Security and Stability Conference in September 2016, which led to the Rhodes Informal Ministerial Conference for Security and Stability in May 2017 and June 2018.6
Greece has also entered into trilateral technical co-operation partnerships with Cyprus7 and Israel, as well as Cyprus and Egypt, centred on enhancing peace and stability in the Eastern Mediterranean.8
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The partnership between Greece, Cyprus and Israel was initiated in 2016. It focuses on energy, tourism, research and technology, the environment, water management, migration and combating terrorism.9
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The partnership between Greece, Cyprus and Egypt was initiated in 2017. It focuses on energy, migration, tourism, the environment, protection of cultural heritage, information and communication technology, agriculture and the diaspora.10
Greece seeks regional and global solutions to its migration crisis
While traditionally a country of emigration, Greece’s positioning on the south-eastern border of the European Union makes it an attractive entry point for people wishing to enter Europe irregularly. As a result, Greece’s efforts to manage migration flows and its border quickly became a European issue. Greece recognises that its domestic migration crisis requires regional and global solutions, and participates in several processes with the European Union to curb the flow of irregular migration to Europe through its borders. Efforts by the Hellenic Police and the Hellenic Coast Guard to protect Greece’s borders have been supplemented by the European Border and Coast Guard Agency (Frontex). Between 2008 and 2014, irregular border crossings on the Eastern Mediterranean route to Europe averaged 45 404 per year, using Greece as the main point of entry. The number of illegal crossings increased dramatically in 2015, reaching 885 386. It subsequently dropped to 182 277 in 2016 and 42 305 in 2017,11 mainly owing to the effects of the European Union-Turkey statement (European Council, 2016). Greece also participates in policy fora such as the Global Forum on Migration and Development,12 several European migration-related networks13 and the OECD Working Party on Migration. It has been actively involved in the recent intergovernmental negotiations on the Global Compact for Safe, Orderly and Regular Migration (United Nations, 2018).
Creating a safe marine environment in the Eastern Mediterranean
Greece is a maritime nation, with an extensive coastal area and significant involvement in maritime transportation. It has been a member of the International Maritime Organization since 1958 and has ratified its international conventions.14 Greece participates in the UN Convention on the Law of the Sea15 and strives to protect the Mediterranean Sea, including through the Barcelona Convention16 (Box 1.1).
During its European Union Presidency in 2014, Greece sought to redefine and relaunch EU maritime policies, and was successful in progressing the drafting and adoption of the European Union’s Maritime Security Strategy.
Greece plays an active role in protecting the Mediterranean marine environment.
It signed the Convention for the Protection of the Marine Environment and the Coastal Region of the Mediterranean (“Barcelona Convention”) in February 1976, and ratified it in January 1979. It subsequently signed the Specially Protected Areas Protocol in April 1982 (ratifying it in January 1987) and the Specially Protected Areas Biodiversity Protocol in June 1995. The Secretariat of the Barcelona Convention has been based in Athens since 1981. Greece hosted the 19th Conference of the Contracting Parties to the Barcelona Convention in February 2016, and presided over the Meeting of the Bureau of the Contracting Parties to the Convention in 2016 and 2017.
While trilateral technical co-operation partnerships with Cyprus and Israel (2016), and Cyprus and Egypt (2017), cover a wide range of topics, the marine environment is a key feature of both. Issues addressed include:
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marine pollution, particularly resulting from oil and gas exploration
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water pollution, water re-use and wastewater treatment, particularly waste water from olive-oil mills
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underwater cultural heritage in the Eastern Mediterranean
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combating coastal erosion and coastal-zone management
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biological diversity and nature protection.
Policy coherence for sustainable development
Greece recognises the importance of policy coherence for sustainable development, but has not updated its legal framework to determine leadership, responsibility and accountability, or established a co-ordination mechanism for it. The country has intensified efforts to combat trafficking in human beings, but could address several shortcomings in its approach. Greater efforts are needed to prevent corruption and illicit financial flows, and combat bribery.
Putting Greece’s commitment to policy coherence for sustainable development into practice
Greece recognises the importance of policy coherence for sustainable development. It endorsed the OECD Ministerial Declaration on Policy Coherence for Development in 2008 and the European Consensus on Development in 2017. However, Greece has not updated its legal framework to determine leadership, responsibility and accountability for policy coherence for sustainable development, leaving it without a clear commitment or co-ordination mechanism (CONCORD, 2015).
As a result, the Centre for Global Development ranks Greece poorly (25th out of 27 countries) on the 2017 Commitment to Development Index, which considers aid, finance, technology, environment, trade, security and migration.17 The country performs best on the environment, given its ratification of the Paris Agreement on Climate Change and the Fish Stocks Agreement, and its high petrol taxes. However, it performs poorly on aid (Chapter 3) and technology (Centre for Global Development, 2017).
The formal establishment of mechanisms to integrate the SDGs into Greece’s national development strategy (Section 1.1) shows what can be achieved with political interest and commitment. As it develops a national implementation plan for the SDGs in 2019, Greece has an opportunity to analyse areas where its domestic policies and regulatory frameworks have potentially negative impacts on developing countries, and to identify corrective actions.
Greece has intensified efforts to combat human trafficking
Greece’s location makes it highly vulnerable to the illegal movement and trafficking of people. The country included trafficking in human beings in its Criminal Code in 2002. It ratified a protocol protecting children in 2008 and a protocol on human trafficking in 2011.18
In recent years, Greece has intensified its efforts to combat trafficking. The Office of the National Rapporteur on Trafficking in Human Beings was established within the Ministry of Foreign Affairs in 2013. It is supported by a permanent co-ordination mechanism and a permanent consultation forum that facilitates exchange between the National Rapporteur and specialised non-governmental organisations (NGOs). In 2014, Greece acceded to the Council of Europe Convention on Action against Trafficking in Human Beings.19 The National Referral Mechanism was formalised through a government decision in 2016.
In its first evaluation of Greece’s actions against trafficking in human beings, the Council of Europe’s Group of Experts on Action against Trafficking in Human Beings (GRETA) praised the positive steps taken by Greece, but also highlighted a number of shortcomings (GRETA, 2017).20 The Group of Experts also noted the refugee crisis creates opportunities for traffickers and exploiters, especially in light of the presence of an estimated 3 150 unaccompanied children in Greece.21 As it considers further action, Greece might also consider the links between human trafficking, money laundering and terrorist financing, highlighted in a recent Financial Action Task Force (FATF) report (FATF-APG, 2018).
Lessons from the past must inform Greece’s efforts to prevent corruption and illicit financial flows, and combat bribery
Greece is a Party to the OECD Anti-Bribery Convention;22 progress with its implementation is reviewed by the Working Group on Bribery of the OECD. A new law preventing money laundering and terrorist financing (Law 4557/2018) was enacted in July 2018.
A revised National Anti-Corruption Action Plan was adopted in 2015. The European Union and the OECD are providing technical support to the General Secretariat against Corruption, which is responsible for implementing the plan.23 In July 2018 the General Secretariat revised the plan, outlining actions to be taken in the period 2018-2021 (General Secretariat Against Corruption, 2018).
The 4th Round Mutual Evaluation of Greece under its membership of the FATF is tentatively scheduled for completion in 2019. In concert with many OECD Development Assistance Committee members, Greece has considerable work to do to meet the Task Force’s recommendations, including on illicit financial flows (OECD, 2014).
Given the extent of the recent investigations by the Directorate General of International Development Cooperation-Hellenic Aid of the Hellenic Ministry of Foreign Affairs (DG Hellenic Aid) into past misuse of funds by NGOs, government entities, and regional and international organisations (Ministry of Foreign Affairs, 2018), it is clear that greater efforts will be needed to prevent corruption and combat bribery, including in development co-operation. As noted in the 2016 OECD Council Recommendation (OECD, 2016), these efforts should include assistance and advisory services, staff training and awareness, and a more robust approach to audit, and risk assessment and management (Chapter 4).
Global awareness
Most Greeks support helping people in developing countries, but just one-third think it should be one of their government’s main priorities. The solidarity shown to migrants provides a good foundation for public support for development co-operation. Engaging the public on the SDGs could enhance global awareness and citizenship among Greeks.
Greeks recognise that development co-operation is important, but only one-third think it should be a top priority for their government
According to a Eurobarometer Special Survey undertaken in November-December 2016, 84% of surveyed Greeks believe helping people in developing countries is important. However, while 70% agree that tackling poverty in developing countries should be a top priority of the European Union, just 32% think it should be one of the main priorities of the Greek Government; 79% think that providing financial assistance to developing countries is an effective way to tackle poverty. While 52% of surveyed Greeks feel that individual engagement effectively helps to reduce poverty in developing countries, only 43% feel they can play a role as individuals. These results come close to the average for all EU countries (European Commission, 2017).24
Broader efforts are needed to build public support
The Greek population has shown great solidarity towards migrants in a challenging social and economic context, which indicates a positive response to the influx of asylum seekers. However, broader efforts are needed to build public support for Greek development co-operation and humanitarian assistance.
The Ministry of Foreign Affairs and its Directorate General of International Development Cooperation-Hellenic Aid (DG Hellenic Aid) provide information to the public about Greece’s development co-operation, mainly through the online publication of news items and the annual report submitted to the Parliament’s Standing Committee on Defence and Foreign Affairs. In recent years, the report has focused on the amounts and destinations of aid expenditure. The 2017 report also included information about the meetings hosted, Greece’s participation in EU and international processes, and investigations into past misuse of funds. While this is important to ensure transparency, it is unlikely to elicit greater public support for official development assistance. Focusing on the results and impact of Greece’s limited development financing, and enlisting the participation of other stakeholders (such as academics and civil society) would enhance public understanding and support.
The SDGs present an opportunity to increase global awareness and citizenship
The General Secretariat of the Government has engaged in dialogue with a range of stakeholders on how Greece might implement the SDGs at home and abroad (Section 1.1). A series of multi-stakeholder events organised by government, civil society and other actors, as well as courses provided to officials through the National Centre of Public Administration and Local Government, have also contributed to Greece’s consideration of sustainable development.25
While such efforts stimulate thinking among interested stakeholders, the real challenge for Greece – and for all DAC members – is reaching its ordinary citizens: only 39% of Greeks surveyed for the Eurobarometer had heard of – or read about – the SDGs. This figure is close to the EU average of 41% (European Commission, 2017) and in the 35-45% range identified by the OECD Development Communication Network (2017). DG Hellenic Aid might consider whether engaging the general public on the SDGs might contribute more broadly to enhancing global awareness and citizenship among the Greek population.
References
Government sources
General Secretariat against Corruption (2018), National Anti-corruption Action Plan (NACAP), General Secretariat against Corruption, Athens, http://www.gsac.gov.gr/attachments/article/234/National%20Anti-Corruption%20Action%20Plan%202018-2021.pdf
Government of Greece (2018a), Voluntary National Review on the Implementation of the 2030 Agenda for Sustainable Development: Greece, July 2018, General Secretariat of the Government, Office of Coordination, Institutional, International & European Affairs, Athens, https://sustainabledevelopment.un.org/content/documents/19378Greece_VNR_Greece_2018_pdf_FINAL_140618.pdf.
Government of Greece (2018b), Law 4457/2018, Government of Greece, Athens.
Ministry of Foreign Affairs (2018), “Memorandum submitted by the Greek Authorities to the Development Assistance Committee/DAC of the OECD”, Ministry of Foreign Affairs, Athens.
Other sources
Center for Global Development (2017), “Commitment to Development Index 2017”, Center for Global Development, Washington DC, https://www.cgdev.org/cdi-2017/country/GRC.
CONCORD (2015), “Operationalising Policy Coherence for Development: A perspective of civil society on institutional systems for PCD in EU Member States”, Spotlight Report 2015, CONCORD, Brussels, https://library.concordeurope.org/record/1634/files/DEEEP-REPORT-2016-008.pdf.
European Commission (2017), “EU Citizens' views on development, cooperation and aid: Special Eurobarometer 455 Report”, European Commission, Brussels, https://ec.europa.eu/europeaid/sites/devco/files/sp455-development-aid-final_en.pdf.
European Council (2016), “EU-Turkey Statement”, European Council, Brussels, http://www.consilium.europa.eu/en/press/press-releases/2016/03/18/eu-turkey-statement/.
FATF-APG (2018), Financial Flows from Human Trafficking, Financial Action Task Force, Paris, France, http://www.fatf-gafi.org/media/fatf/content/images/Human-Trafficking-2018.pdf.
GRETA (2017), “Report concerning the implementation of the Council of Europe Convention on Action against Trafficking in Human Beings by Greece: First evaluation round”, GRETA(2017)27, Group of Experts on Action against Trafficking in Human Beings, Council of Europe, https://rm.coe.int/greta-2017-27-fgr-gre-en/168075f2b6.
OECD Development Communication Network (2017), What People Know and Think About the Sustainable Development Goals, OECD, Paris, https://www.oecd.org/development/pgd/International_Survey_Data_DevCom_June%202017.pdf.
OECD (2016), 2016 OECD Recommendation of the Council for Development Co-operation Actors on Managing the Risk of Corruption, OECD, Paris, www.oecd.org/corruption/anti-bribery/Recommendation-Development-Cooperation-Corruption.pdf.
OECD (2014), Illicit Financial Flows from Developing Countries: Measuring OECD Responses, OECD, Paris, https://www.oecd.org/corruption/Illicit_Financial_Flows_from_Developing_Countries.pdf.
United Nations (2018), Global compact for safe, orderly and regular migration: Intergovernmentally negotiated and agreed outcome, 13 July 2018, United Nations, New-York, https://www.un.org/pga/72/wp-content/uploads/sites/51/2018/07/180713_Agreed-Outcome_Global-Compact-for-Migration.pdf
Notes
← 1. For Greece’s statements to the Open Working Group on Sustainable Development Goals and the post-2015 intergovernmental negotiations, see: https://sustainabledevelopment.un.org/memberstates/greece.
← 2. http://statements.unmeetings.org/media2/7651555/greece.pdf.
← 3. Intended nationally determined contribution of the European Union and its Member States: www4.unfccc.int/ndcregistry/PublishedDocuments/Greece%20First/LV-03-06-EU%20INDC.pdf.
← 4. The eight priorities are: fostering a competitive, innovative and sustainable economic growth; promoting full employment and decent work for all; addressing poverty and social exclusion, and providing universal access to quality health care services; reducing social and regional inequalities and ensuring equal opportunities for all; providing high-quality and inclusive education; strengthening the protection and sustainable management of natural capital as a base for social prosperity and transition to a low-carbon economy; building effective, accountable and transparent institutions; and enhancing open, participatory, democratic processes and promoting partnerships.
← 5. http://www.crpme.gr/about.
← 6. The issues discussed include: border security, trafficking, counter-terrorism, non-proliferation, water and food security, energy and climate, interconnectivity, infrastructure and disaster management. For the communiqué of the first informal ministerial meeting, see: https://www.mfa.gr/en/current-affairs/top-story/joint-communique-rhodes-security-and-stability-conference-rhodes-0809-092016.html. For the communiqué of the second conference, see: https://www.mfa.gr/en/current-affairs/statements-speeches/joint-communique-2nd-rhodes-ministerial-conference-for-security-and-stability-living-and-working-together-in-peace-and-stability-rhodes-greece-22-23-may-2017.html. For the communiqué of the third conference, see: https://www.mfa.gr/images/docs/anakoinoseis/greek_chairmanship_communique.doc.pdf.
← 7. Note by Turkey: The information in this document with reference to “Cyprus” relates to the southern part of the Island. There is no single authority representing both Turkish and Greek Cypriot people on the Island. Turkey recognises the Turkish Republic of Northern Cyprus (TRNC). Until a lasting and equitable solution is found within the context of the United Nations, Turkey shall preserve its position concerning the “Cyprus issue”.
Note by all the European Union Member States of the OECD and the European Union: The Republic of Cyprus is recognised by all members of the United Nations with the exception of Turkey. The information in this document relates to the area under the effective control of the Government of the Republic of Cyprus.
← 8. In addition to enhancing peace and stability in the region, these partnerships aim to “facilitate the sharing of experiences, knowledge and know-how in order to promote joint projects of mutual interest, find solutions to common concerns and promote interconnectivity and complementarity of actions” (Government of Greece, 2018).
← 9. Inaugural Cyprus-Israel-Greece Trilateral Summit Declaration: http://mfa.gov.il/MFA/PressRoom/2016/Pages/Trilateral-meeting-between-Israel-Greece-and-Cyprus-28-Jan-2016.aspx.
← 10. Nicosia Declaration of 21 November 2017: www.onisilos.gr/?p=13162.
← 11. Based on data from the European Border and Coast Guard Agency (Frontex): https://frontex.europa.eu/along-eu-borders/migratory-routes/eastern-mediterranean-route/.
← 13. These include the European Migration Network (https://ec.europa.eu/home-affairs/what-we-do/networks/european_migration_network/authorities/greece_en); the European Integration Network (https://ec.europa.eu/migrant-integration/network/european-integration-network-3); the European Social Fund Thematic Network on Migrants; and the Working Group on the Future of Integration.
← 14. Greece ratified the International Convention for the Safety of Life at Sea, 1974; the International Convention for the Prevention of Pollution from Ships, 1973; and the International Convention on Standards of Training, Certification and Watchkeeping for Seafarers: www.imo.org/en/About/Conventions/ListOfConventions/Pages/Default.aspx. For details about the International Maritime Organization, see: www.imo.org/en/Pages/Default.aspx.
← 15. www.un.org/depts/los/convention_agreements/convention_overview_convention.htm.
← 16. For a copy of the Barcelona Convention, see: http://wedocs.unep.org/ bitstream/handle/20.500.11822/7096/Consolidated_BC95_Eng.pdf?sequence=1&isAllowed=y.
← 17. https://www.cgdev.org/cdi-2017/country/GRC.
← 18. Greece ratified the UN Convention on the Rights of the Child in 1993, and its Optional Protocol on the Sale of Children, Child Prostitution and Child Pornography in 2008. In 2011, it became a Party to the United Nations Convention against Transnational Organised Crime and its Protocol to Prevent, Suppress and Punish Trafficking in Persons, especially Women and Children.
← 19. https://rm.coe.int/168008371d.
← 20. Actions include: adopting a national action plan and a mechanism for monitoring its implementation; including servitude among the forms of exploitation resulting from human trafficking; enhancing efforts to discourage demand for the services of trafficked persons and raising awareness of the criminalisation of knowingly using the services of trafficked persons; ensuring that identification does not depend on the victim’s statement and co-operation in investigations or criminal proceedings and speed up granting of victim status; systematically informing presumed victims of the three-month (five for children) recovery and reflection period; ensuring that victims can benefit in practice from their right to obtain a renewable residence permit; and prioritise identification of gaps in the investigation procedure and the prosecution of trafficking cases (GRETA, 2017).
← 21. https://data2.unhcr.org/en/documents/download/63462.
← 22. In February 1999, Greece ratified the 1997 OECD Convention on Combating Bribery of Foreign Public Officials in International Business Transactions: www.oecd.org/daf/anti-bribery/ConvCombatBribery_ENG.pdf.
← 23. www.oecd.org/gov/ethics/greece-oecd-anti-corruption.htm.
← 24. Across the European Union, 89% of surveyed citizens think helping people in developing countries is important, and 71% think that providing financial assistance to developing countries is an effective way to tackle poverty; 68% think tackling poverty in developing countries should be a main priority of the European Union, but only 51% agree it should be a priority of their national government. While 61% feel that individual engagement is effective in helping to reduce poverty in developing countries, only 43% feel they can play a role (European Commission, 2017).
← 25. Additional information about Greek efforts to enhance awareness and participation can be found in the Voluntary National Review report (Government of Greece, 2018a).