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POLICY ANALYSIS and ENGAGEMENT TOOLKIT a Guide for Pacific Non-Government Organizations in the Fisheries Sector Written by Mata’Afa Desmond U

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POLICY ANALYSIS and ENGAGEMENT TOOLKIT a Guide for Pacific Non-Government Organizations in the Fisheries Sector Written by Mata’Afa Desmond U © naturepl.com / David Fleetham / WWF TOOLKIT FIJI 2018 POLICY ANALYSIS AND ENGAGEMENT TOOLKIT A guide for Pacific Non-government Organizations in the Fisheries Sector Written by Mata’afa Desmond U. Amosa (Ph.D) About the Author The author has taught, researched and published extensively on the subjects of public policy analysis and public sector management while working as a senior lecturer for the School of Management and Public Administration at the University of the South Pacific. He later served at the National University of Samoa as the Dean for the Faculty of Business and Entrepreneurship before joining the Pacific Islands Centre of Public Administration (PICPA) as a regional adviser for capacity development and training. During his time at PICPA, the author has conducted numerous workshops for senior public officials in the Pacific on public policy analysis; public policy implementation and evaluation; administrative ethics; and public sector management and governance. Acknowledgement This toolkit was produced with the generous support of the European Union, the Pacific Islands Forum Secretariat; and the Forum Fisheries Agency. It was written by Dr Desmond Amosa with input from Mr Duncan Williams and Mr Seremaia Tuqiri of WWF-Pacific. Many thanks to Kalo Williams of WWF-Pacific for layout and design. Disclaimer This toolkit has been prepared by the consultant, Dr. Desmond Amosa, for WWF. It includes the views and recommendations of the consultant and does not necessarily reflect the views of WWF, the European Union, the Pacific Islands Forum Secretariat and the Forum Fisheries Agency or indicate a commitment to a particular policy or action. While reasonable efforts have been made to ensure the accuracy and reliability of the material, WWF cannot guarantee that the information contained in the toolkit is free from errors or omissions. WWF does not accept any liability for the contents of this report or for any consequences arising from its use. For further information please contact: WWF-Pacific – Sustainable Fisheries and Seafood Programme 4 Ma’afu Street Tel: +679 3315533 Fax: +679 3315410 Cover picture Dense school of brown striped snapper (Xenocys jessiae), Galapagos Islands, Ecuador. 2 POLICY ANALYSIS AND ENGAGEMENT TOOLKIT CONTENTS 1. BACKGROUND 5 2. PURPOSE OF TOOLKIT 7 3 UNDERSTANDING PUBLIC POLICY CONCEPTS 8 3.1 What is a policy? 8 3.2 What is a public policy? 8 3.3 Why is public policy important? 9 3.4 What is public policy analysis? 10 3.5 The public policy process 10 3.6 NGOs and the public policy making process 12 4 HOW TO DO POLICY ANALYSIS 13 Step 1: Define the problem – what is the problem? 13 Step 2: Generate alternative solutions 16 Step 3: Projecting the outcomes 16 Step 4: Evaluating alternatives 18 Step 5: Make a decision 24 4.1 What if it’s a case of an opportunity for the NGOs rather than a problem? 24 5 MAKING YOUR ANALYSIS ENGAGING AND PARTICIPATORY 25 Step 1: Determine the need for participation 25 Step 2: Determine the goal of participation 26 Step 3: Decide on whom to engage 26 Step 4: Choose tools of engagement 27 6 THE ROLE OF RESEARCH IN POLICY ANALYSIS 28 7 PUTTING TOGETHER YOUR POLICY SUBMISSION 34 8 EVALUATING OTHERS POLICY SUBMISSION 36 9 THE ETHICS OF DOING POLICY ANALYSIS 38 10 REFERENCES 40 11 APPENDIX 1: FIVE-STEP MODEL QUICK REFERENCE 42 POLICY ANALYSISWWF-INT AND Annual ENGAGEMENT Review 2012 TOOLKITpage 3 3 © James Morgan / WWF Fishermen return from sea with an 80kg yellowfin tuna. Effective and responsible management is vital for the long-term food, economic and social security of thousands of people in the Pacific Islands region. 4 POLICY ANALYSIS AND ENGAGEMENT TOOLKIT 1. BACKGROUND One of the major sources of livelihood in the communities of the Pacific Island Countries (PICs) is the fisheries sector. The total fishery and aquaculture production of the zones of 22 PICs and territories in 2014 was estimated at two million metric tonnes, worth about US$3.2 billion. The fisheries sector is without doubt critical to national and regional development and in particular the sustaining of livelihoods, safeguarding food security and reduction of poverty amongst Pacific Islanders. However, there are many examples in the past of exploitation and mismanagement of the fisheries sector by various actors. As a result, damaging social-ills related to fisheries are emerging in the Pacific and hence the need to be addressed through effective public policy that embrace partnerships between government agencies and non-government organizations (NGOs) operating in the same space. NGOs have multiple functions and focus areas and are widely spread across the region. They therefore have the potential to address the many challenges and policy issues currently facing the fisheries sector as well as other issues like gender equality, observer safety, protection of workers involved in fishing, human rights, fisheries management, conservation, climate change, food security and overall governance at all levels, from the national to the regional and beyond. In essence, NGOs have the potential to support officials in national and regional agencies to identify and critically examine key issues and problems in the fisheries sector that are facing Pacific Islanders on the ground. NGOs are also in a good position to explore opportunities for collaborative actions with regional and national government officials. Over the years, NGOs have traditionally played a ‘watchdog role’ by actively voicing the views of communities they represent when engaging with responsible national and regional officials in various forums. However, in order for NGOs representatives to effectively engage and influence national and regional fisheries policy dialogue, they need to be proficient in policy analysis. 12016, Gillett, R. D. Fisheries in the Economies of Pacific Island Countries and Territories. POLICY ANALYSIS AND ENGAGEMENT TOOLKIT 5 © FFA Tuna fisheries are a shared resource and managed under several multilateral treaties whose membership includes small coastal states and distant water fishing nations. 6 POLICY ANALYSIS AND ENGAGEMENT TOOLKIT 2. PURPOSE OF TOOLKIT This toolkit aims at strengthening the capacity of members of non-government organisations (NGOs) to effectively contribute to both national and regional policy development processes and dialogues for effective formulation and implementation of public policy in the fisheries sector. It provides a structured approach to evaluating fisheries and fisheries-impacted policies and developing policy position submissions. Although intended for use by NGOs working on issues in the fisheries sector, this toolkit can also be used to support policy analysis on a variety of topics particularly those emerging issues that have significant “intersectionalities” with fisheries. When discussing fisheries policy in this context we are referring essentially to public policy analysis. Questions often arise as to what is really meant by policy and why are policies important? What is a policy process? Is there a specific process that should be followed? What is involved in policy analysis? How can policy analysis contribute to effective policy engagement in terms of policy submissions? This guide sets out to answer such questions and enhance the ability of NGOs representatives primarily working on fisheries-related policy issues by delivering a comprehensive yet simple and practical approach that guides them in their endeavor as policy analysts. The proposed model is a product of numerous interactions and dialogues with public officials and NGOs representatives in the region following years of engaging them in policy analysis trainings. The model proposed addresses the fundamentals of policy analysis and importantly, it helps NGOs officials gain a good understanding in doing policy analysis for their own purpose. Further, NGOs officials benefit from the model by conducting policy analysis intended to positively and effectively inform decision-making in government and regional agencies. No model captures the complexity of policy analysis, especially in government. This toolkit however provides the essentials of policy analysis critical to building the capacity of NGOs in order for them and the communities they represent to make an effective contribution to decision-making at the national and regional levels. For better understanding of this guide, it must be made clear from the outset that NGOs do not make public policy as this is the prerogative of public officials. However with the emphasis of the governments of the region in inclusive decision- making through the lens of good governance NGOs are expected to make profound contributions and positively influence the public policy making process mainly because they are expected to present the voice of various groups and communities on the ground. NGOs officials are therefore expected to be familiar with relevant policy making processes as its shortcomings. Such knowledge is helpful for NGOs in order to make an effective contribution through policy submissions to national and regional agencies that frame the perspectives of the communities they are representing. POLICY ANALYSIS AND ENGAGEMENT TOOLKIT 7 3. UNDERSTANDING PUBLIC POLICY CONCEPTS 3.1 WHAT IS A POLICY? A policy is largely perceived as a guideline or rules at the workplace. While these are correct descriptions, it is a fact that a policy goes much further than guideline and rules. It incorporates the organization’s strategic direction and operational modes. In general terms,
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