Benchmarking and Self-Assessment for Parliaments O’Brien, Stapenhurst, and Von Trapp
Total Page：16
File Type：pdf, Size：1020Kb
Benchmarking Parliaments for and Self-Assessment Public Disclosure Authorized Public Disclosure Authorized DIRECTIONS IN DEVELOPMENT Public Sector Governance O’Brien, Stapenhurst, and von Trapp O’Brien, and von Stapenhurst, Benchmarking and Self-Assessment Public Disclosure Authorized for Parliaments Mitchell O’Brien, Rick Stapenhurst, and Lisa von Trapp, Editors Public Disclosure Authorized Benchmarking and Self-Assessment for Parliaments DIRECTIONS IN DEVELOPMENT Public Sector Governance Benchmarking and Self-Assessment for Parliaments Mitchell O’Brien, Rick Stapenhurst, and Lisa von Trapp, Editors © 2016 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington, DC 20433 Telephone: 202-473-1000; Internet: www.worldbank.org Some rights reserved 1 2 3 4 19 18 17 16 This work is a product of the staff of The World Bank with external contributions. The findings, interpreta- tions, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Nothing herein shall constitute or be considered to be a limitation upon or waiver of the privileges and immunities of The World Bank, all of which are specifically reserved. Rights and Permissions This work is available under the Creative Commons Attribution 3.0 IGO license (CC BY 3.0 IGO) http:// creativecommons.org/licenses/by/3.0/igo. Under the Creative Commons Attribution license, you are free to copy, distribute, transmit, and adapt this work, including for commercial purposes, under the following conditions: Attribution—Please cite the work as follows: O’Brien, Mitchell, Rick Stapenhurst, and Lisa von Trapp (eds.). 2016. Benchmarking and Self-Assessment for Parliaments. Directions in Development. Washington, DC: World Bank. License: Creative Commons Attribution CC BY 3.0 IGO Translations—If you create a translation of this work, please add the following disclaimer along with the attribution: This translation was not created by The World Bank and should not be considered an official World Bank translation. The World Bank shall not be liable for any content or error in this translation. Adaptations—If you create an adaptation of this work, please add the following disclaimer along with the attribution: This is an adaptation of an original work by The World Bank. Views and opinions expressed in the adaptation are the sole responsibility of the author or authors of the adaptation and are not endorsed by The World Bank. Third-party content—The World Bank does not necessarily own each component of the content contained within the work. The World Bank therefore does not warrant that the use of any third-party-owned individual component or part contained in the work will not infringe on the rights of those third parties. The risk of claims resulting from such infringement rests solely with you. If you wish to re-use a component of the work, it is your responsibility to determine whether permission is needed for that re-use and to obtain permission from the copyright owner. Examples of components can include, but are not limited to, tables, figures, or images. All queries on rights and licenses should be addressed to the Publishing and Knowledge Division, The World Bank, 1818 H Street NW, Washington, DC 20433, USA; fax: 202-522-2625; e-mail: pubrights@ worldbank.org. ISBN (paper): 978-1-4648-0327-7 ISBN (electronic): 978-1-4648-0328-4 DOI: 10.1596/978-1-4648-0327-7 Cover image: Created via Wordle.net. Cover design: Naylor Design. Library of Congress Cataloging-in-Publication data has been requested. Benchmarking and Self-Assessment for Parliaments • http://dx.doi.org/10.1596/978-1-4648-0327-7 Contents Foreword xiii Preface xv Acknowledgments xvii Abbreviations xix Introduction 1 Mitchell O’Brien Summary 1 Outline of the Book 2 Systems of Benchmarks 3 The Evaluation Criteria 4 Trends in Governance and Benchmarks 4 The Cases of Sri Lanka, Canada, and Australia 5 References 6 Chapter 1 Benchmarks and Self-Assessment Frameworks for Parliaments 7 Lisa von Trapp Introduction 7 Key Actors and Assessment Frameworks 9 Parliamentary Benchmarks and Self-Assessment Frameworks as Part of a Larger Trend 13 The Frameworks: Commonalities and Differences 15 The Frameworks and Gender 18 Initial Guidelines for Using the Frameworks and Experiences at the National Level 19 Conclusions 22 Annex 1A: Overview of the Process, 2004–10 23 Annex 1B: Key Actors and Assessment Frameworks 27 Annex 1C: International IDEA’s Questions on the Democratic Effectiveness of Parliament 32 Annex 1D: The Frameworks: Commonalities and Differences 33 Annex 1E: Regional Perspectives 51 Notes 56 References 58 Benchmarking and Self-Assessment for Parliaments • http://dx.doi.org/10.1596/978-1-4648-0327-7 v vi Contents Chapter 2 The IPU’s Self-Assessment Toolkit 61 David Beetham Introduction 61 Possible Contexts for Using the Toolkit 62 Issues Covered by the Toolkit 62 Using the Toolkit 63 Use of the Toolkit to Date 67 Conclusion and Next Steps 68 Annex 2A: Full List of Self-Assessment Questions 69 Note 71 References 71 Chapter 3 Benchmarks for Commonwealth Parliaments and Legislatures 73 Akbar Khan Background 73 Development of the Benchmarks 74 Content of the Benchmarks 76 Development of Regional Benchmarks 76 Going Forward 77 Annex 3A: Recommended Benchmarks for Democratic Legislatures 81 Annex 3B: Recommended Benchmarks for Codes of Conduct for Parliamentarians 87 Notes 92 References 95 Chapter 4 The Democratic Reality of Parliaments: What Evaluation Criteria? 97 M. Pascal Terrasse Introduction 97 Role of the APF 98 Development Process of the Evaluation Method 99 Specific Content of the Evaluation Criteria 100 Challenges of Developing Evaluation Criteria for the Francophone World 107 Conclusion 108 Notes 109 References 109 Chapter 5 The Parliamentary Confederation of the Americas: Toward the Consolidation of Parliamentary Democracy 111 Jacques Chagnon Introduction to COPA 111 Benchmarking and Self-Assessment for Parliaments • http://dx.doi.org/10.1596/978-1-4648-0327-7 Contents vii Development of the Benchmarks 112 The Adoption and Looking Forward 113 Annex 5A: Recommended Benchmarks for the Parliaments of the Americas 114 Notes 126 References 126 Chapter 6 Benchmarking for Democratic Parliaments 127 Anthony Staddon and Dick Toornstra Introduction 127 Merits of Benchmarking 127 Systems of Benchmarking 128 Parliamentary Entry Points for Benchmark and Assessment Frameworks 131 Conclusion 134 Notes 135 References 136 Chapter 7 Parliamentary Benchmarks: A Requisite for Effective Official Development Assistance 139 Alice French Introduction 139 Decentralization of the Aid Program, Budget Support, and the Trend to Country Ownership 140 Implications of the New Aid Model for Donor Organizations 143 Budget Support and the Implications for Parliaments 147 Benchmarks Required for Mutual Accountability 149 Conclusion 151 Notes 152 References 153 Chapter 8 The Role of Parliamentary Monitoring Organizations 155 Andrew G. Mandelbaum and Daniel R. Swislow Introduction 155 Roles and Effects of PMOs 156 Development of Normative Frameworks for Democratic Parliaments and Global Emergence of PMOs 158 The Declaration as a Contribution to International Parliamentary Norms and Standards 160 Content of the Declaration 162 Benefits of Greater Collaboration between PMOs and Parliaments on Normative Frameworks 166 Benchmarking and Self-Assessment for Parliaments • http://dx.doi.org/10.1596/978-1-4648-0327-7 viii Contents Strengthening the Capacity of PMOs to Refine and Apply Democratic Norms and Standards 170 Notes 171 References 172 Chapter 9 The African Parliamentary Index 175 Rasheed Draman Introduction 175 Parliamentary Capacities in Africa 175 Purpose and Scope of the API 177 Approach and Methodology 177 Conclusion 179 Annex 9A: Self-Assessment for African Parliaments— Parliaments’ Role in the Budget Process 180 Note 196 References 196 Chapter 10 Assessing Parliamentary Oversight in Sri Lanka 197 Raja Gomez Introduction 197 Background 197 IPU Toolkit for Self-Assessment 198 CPA Benchmarks and the Sri Lankan Parliament 206 Conclusion 223 Notes 224 References 225 Chapter 11 Building on the CPA Benchmarks to Establish a Parliamentary Accountability and Management Framework: The Case of Canada 227 Jill Anne Joseph Introduction 227 Guidelines for Benchmarking Frameworks 228 Identifying Core Products, Processes, and Services 230 Conclusion 237 Notes 237 References 238 Chapter 12 Rating the ACT Legislative Assembly against CPA Benchmarks for Democratic Legislatures: From an “A−” to an “AA”? 241 Wayne Berry and Tom Duncan Introduction 241 The First Benchmark Exercise: 2006 242 The Second Benchmark Exercise: 2011 245 Benchmarking and Self-Assessment for Parliaments • http://dx.doi.org/10.1596/978-1-4648-0327-7 Contents ix Conclusion 248 Annex 12A: Results of the First Benchmarking Exercise 248 Notes 257 Reference 257 Chapter 13 Assessing Parliament Using the CPA Benchmarks and the IPU Toolkit: A Personal Perspective from Kiribati 259 Hon. Taomati Iuta Background 259 Objective of the CPA Benchmarking Exercise 260 Practical Applications Leading to Valuable Assessments 261 A Higher Standard for Kiribati’s