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Partnerships for Global Development PARTNERSHIPS FOR GLOBAL DEVELOPMENT THE CLEARING HORIZON DECEMBER 1992 A Report of the CARNEGIE COMMISSION ON SCIENCE, TECHNOLOGY, AND GOVERNMENT The Carnegie Commission on Science, Technology, and Government was created in April 1988 by Carnegie Corporation of New York. It is committed to helping government institutions respond to the unprecedented advances in science and technology that are trans- forming the world. The Commission analyzes and assesses the factors that shape the relation- ship between science, technology, and government and is seeking ways to make this rela- tionship more effective. The Commission sponsors studies, conducts seminars, and establishes task forces to focus on specific issues. Through its reports, the Commission works to see that ideas for better use of science and technology in government are presented in a timely and intelligible manner. Additional copies of this report may be obtained from the Commission's headquarters. PARTNERSHIPS FOR GLOBAL DEVELOPMENT THE CLEARING HORIZON DECEMBER 1992 A Report of the CARNEGIE COMMISSION ON SCIENCE, TECHNOLOGY, AND GOVERNMENT ISBN 1-881054-04-7 Printed in the United States of America CONTENTS FOREWORD 3 PREFACE 5 INTRODUCTION, by David A. Hamburg 9 1. THE CASE AND THE RECOMMENDATIONS IN BRIEF 13 Time for Renewal in a World of Change, 13 The Case, 14 The Recommendations, 16 Creative Commitment Now, 19 2. WHY: THE REASONS FOR COOPERATION FOR DEVELOPMENT 21 Roots of Current Cooperation, 21 Dimensions of Change, 27 Enduring Continuities, 35 Why the United States? 45 Why Now? 49 Unique Assets of the United States, 49 Rededication, 51 1 2 PARTNERSHIPS FOR GLOBAL DEVELOPMENT 3. WHAT: THE CONTENT OF COOPERATION FOR DEVELOPMENT 53 Levers on Development, 54 Principles of Balanced Institutional Development, 54 Critical Roles of Science and Technology, 57 Criteria for Programs, 60 Partnerships of Interests, Expertise, and Management, 67 Determinants of Current Government Program Content, 71 New Approach, 76 Conclusion, 79 4. How: ORGANIZATION, DECISION MAKING, AND RESOURCES 81 Harnessing the Full Power of Pluralism, 82 U.S. Government, 85 The World Bank and the UN System, 98 Resources for Development Assistance, 103 5. CODA 107 Surprises, 107 Seizing the Moment, 108 APPENDIXES A. Individuals Assisting the Task Force 111 B. Biographies of Task Force Members and Principal Advisors 113 and Consultants NOTES AND REFERENCES 117 BIBLIOGRAPHY 121 Members of the Carnegie Commission on Science, 127 Technology, and Government Members of the Advisory Council, Carnegie Commission on 128 Science, Technology, and Government International Steering Group of the Carnegie Commission on 129 Science, Technology, and Government Task Force on Development Organizations 12.9 FOREWORD The familiar division of our planet into Western and Eastern Blocs and First, Second, and Third Worlds has vanished suddenly. But as the curtains that divided us and distorted our social, economic, and military relations have been pulled back, the scope of human needs has become much more visible. This report, prepared by the Task Force on Development Organizations, presents the compelling logic for renewed global partnerships in development. The report emphasizes that science and technology are among the most powerful tools for development, especially allied with democratic values, market-friendly economics, and human rights. The Task Force argues that the United States, the world leader in science and technology, should rededicate itself to global development. Such rededication involves not only a logic for action, but also an agenda and means. This report lays out the principles and criteria for the agenda and provides examples. It then identifies barriers that need to be removed and explains how organization and decision making should be changed to make genuine partnerships for development even more effective. 3 4 PARTNERSHIPS FOR GLOBAL DEVELOPMENT We are grateful to former President Carter for his leadership of this effort, visionary yet pragmatic. And we are deeply impressed that the members of the Task Force, representing extraordinarily diverse views and experiences, could find so much common ground. The members of the Task Force are: President Jimmy Carter (Chair) John P. Lewis Rodney W. Nichols (Vice Chair) Lydia P. Makhubu Anne L. Armstrong* M. Peter McPherson Harvey Brooks Rutherford M. Poats John R. Evans Francisco R. Sagasti Robert W. Kates George P. Shultz (senior advisor) The report offers a remarkable basis for the government and people of the United States to move ahead, in the words of the report, "to make the world economy work for everyone and to help provide for those for whom the economy currently does not." William T. Golden, Co-Chair Joshua Lederberg, Co-Chair * Participated as a member of the Task Force from 1990 through July 1992. and endorses the general conclusions and recommendations. PREFACE The Carnegie Commission on Science, Technology, and Government estab- lished the Task Force on Development Organizations to examine the changing circumstances facing cooperation for international development over the next decades and to assess the policy and organizational implications of these changes for the United States. The Task Force was chartered to address three questions: Why should there be cooperation for development? What should it consist of? How should it be organized? The report sets forth the argu- ment for action and offers specific recommendations for the substance of programs and for ways of carrying them out. The Commission was aware in establishing the Task Force that there are many reports on cooperation for development, and partly for this reason an extensive bibliography is included. There have been many calls to action. And there have been many pleas for programs to address particular facets of development, including agriculture, population, manufacturing indus- tries, environment, health, basic human needs, gender issues, and children. 5 6 PARTNERSHIPS FOR GLOBAL DEVELOPMENT The Commission established the Task Force in the belief that a balanced report on the issues would be valuable, including criteria for the selection of programs and the often-neglected dimensions of organization and de- cision making, which are the Commission's special concern in all its work. In fact, the Commission felt that it could hardly consider its work complete unless it took account of the portions of humanity who are most in need of the benefits of science and technology. The Commission is carrying out several activities aimed at strength- ening the institutions and decision-making processes by which the use of science and technology is connected to world affairs. These activities are overseen by an International Steering Group chaired by Rodney W. Nichols. The Commission has issued a report on Science and Technology in U.S. Inter- national Affairs (January 1992), which examines how the U.S. Government, particularly the State Department, can be better prepared to mesh science and diplomacy. It has also issued International Environmental Research and Assessment (July 1992), which seeks to renew a positive, long-range vision of the international institutional science and technology infrastructure as it relates to environment and development. In addition, it has sponsored a consultant report by Alexander Keynan on "The United States as a Partner in International Scientific and Technological Cooperation: Some Perspec- tives from Across the Atlantic" (June 1991). The Task Force on Development Organizations was created in early 1990, following a preparatory workshop sponsored jointly by the Commis- sion and the Council on Foreign Relations and held at the Carter Center in Atlanta in October of 1989. Rodney Nichols, Vice Chair of the Task Force, and Jesse Ausubel, the Commission's Director of Studies, organized the work- shop and guided the research and analyses that underlie the report. The Task Force met four times and also convened a session with the leaders of major private voluntary organizations involved in development. Members of the Task Force benefited from numerous other consultations and exten- sive correspondence with knowledgeable individuals, including leaders of industry and of governmental and intergovernmental foreign assistance pro- grams, workers in the field, and scholars in development. Appendix A pro- vides a list of those with whom we have worked. Susan Raymond was the principal consultant to the study, and she and Charles Weiss prepared a series of particularly valuable background papers, which are available from the Commission and are listed in the Bibliography. William Foege, Executive Director of the Carter Center, and Victor Rabino- witch and Walter Rosenblith, members of the Commission's International Steering Group, participated extensively in the deliberations of the Task Force. Kenneth Keller, John Temple Swing, and Peter Tarnoff worked with PREFACE 7 the Task Force on behalf of the Council on Foreign Relations, and John Blackton provided liaison with the U.S. Agency for International Development. Maryann Roper, assistant to President Carter, provided professional and administrative liaison with the Carter Center. James Brasher, Michael Heisler, and Nancy Konigsmark helped greatly at the Carter Center. David Kirsch, Margret Holland, Doris Manville, and Georganne Brown made many practical contributions to the success of the project, and the Commission's executive director, David Z. Robinson, offered valuable suggestions and consistent encouragement throughout
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