IN MARCH 1999, the Canadian Council for International Cooperation (CCIC) and a group of over thirty prominent Canadians urged Prime Minister Jean Chretien to make the goal of ending global poverty the central, and not merely the rhetorical, purpose of Canadian aid. In August of that year the government appointed Maria Minna as minister for international co-operation and, two months later, Len Good as president of the Canadian International Development Agency (CIDA). Both appointments were important signals for the future of Canada's aid programme. Both bring new energy and vision to their positions. Minna was a committed Canadian social activist involved with the rights of immigrants in Canada; Good was a Canadian executive director to the World Bank from 1994 to 1998 when James Wolfenson, the president of the Bank, launched his reform initiatives.These appointments were greeted with high expectations by Canadian non-governmental organizations (NGOs) looking for a deeper commitment to poverty reduction in Canada's development co-operation efforts. But have those expectations been fulfilled?Two years later the outlook is cautiously optimistic, but a definitive answer will have to wait for a number of years. Leadership and decisions that demonstrate the efficacy of new approaches for focusing Canada's aid resources and interventions on the elimination poverty will determine change, but some directions can be discerned by looking at some important benchmarks and aspects of a poverty focus in Canadian aid, arising from Canadian NGO assessments of over 30 years of development practice, and by analyzing the 'tracks of change for CIDA,' as articulated by Minna and Good.ASSESSING A POVERTY FOCUS IN CANADIAN ODACanadian NGOs and others have been strongly critical of the use successive Canadian governments have made of Canadian aid resources for a wide array of foreign and domestic policy concerns. The goal of ending poverty has never been the sole focus of Canadian aid; indeed, it usually runs a poor third to Canadian investment and commercial interests. This confusion of purpose, combined with a bureaucratic 'culture of compromise' and CIDA's need to demonstrate measurable 'results,' has resulted in an aid programme that is spread thinly across countries and over many sectors. Both the diffusion of efforts and the concern over results has led to the micro-management of a large number of projects undertaken by a variety of Canadian institutional or 'stakeholder' interests (the private sector, Canadian NGOs, and other Canadian institutions). At the same time, financial resources have declined sharply.Since the early 1990s, Canadian official development assistance (ODA) has been the victim of shrinking funds. Despite modest increases in the federal budget for 2000, it remains at a 30 year low. For fiscal year 2000-1 the projected amount is approximately $2.5 billion or 0.26 per cent of gross national product (GNP).(f.1) Aid has been cut in real terms (removing the impact of inflation) by more than 34 per cent since its peak of $3.5 billion, or 0.49 per cent of GNP, in FY1991/92, significantly closer to the United Nations target of 0.7 per cent.Among the 21 countries in the Development Assistance Committee (DAC) of the Organisation for Economic Co-operation and Development (OECD), Canada had dropped to 12th position by 1999, down from 7th earlier in the decade. Only Finland and Italy cut deeper in the 1990s, while 13 countries increased their aid (only four countries consistently exceed the UN target). Canadian NGOs and others have argued that significant increases - at least $350 million per year in Canadian aid resources are necessary if ministerial efforts for new aid priorities and Canada's commitment to the UN social development targets - one of which is to half the proportion of people living in absolute poverty by 2015 - are to become anything more than rhetoric.(f.2)Despite the massive cuts and the urgent need for reinvestment in international co-operation, the quality of Canadian aid - its mixed and confusing purposes and its impact on reducing poverty - is just as important for NGOs and others who want to reform Canadian aid practices. …
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