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Deelstudie Draagvlakversterking Van Ewijk En Van Lindert

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Deelstudie Draagvlakversterking Van Ewijk En Van Lindert Draagvlakversterking in Nederland en gemeentelijke ontwikkeling in Nicaragua - de bijdrage van stedenbanden en het Landelijk Beraad Nederland-Nicaragua Rapportage ten behoeve van de landenevaluatie Nicaragua in opdracht van Inspectie Ontwikkelingssamenwerking en Beleidsevaluatie (IOB), Ministerie van Buitenlandse Zaken - Deze studie is uitgevoerd in opdracht van IOB; de eindverantwoordelijkheid voor de inhoud berust bij de auteurs.- Edith van Ewijk & Paul van Lindert April 2010 Voorwoord Dit rapport bevat de bevindingen van een evaluatie naar de stedenbanden tussen Nederlandse en Nicaraguaanse gemeenten en de rol die het Landelijk Beraad Stedenbanden Nederland Nicaragua (LBSNN) in deze samenwerkingsverbanden speelt. De evaluatie is uitgevoerd in opdracht van de Inspectie Ontwikkelingssamenwerking en Beleidsevaluatie (IOB) van het Ministerie van Buitenlandse Zaken in het kader van een landenevaluatie Nicaragua. Behalve ondergetekenden hebben Rianne Verbeek en Arend Pieper in Nederland een belangrijke bijdrage aan het onderzoek geleverd. In Nicaragua was de hulp van Alvin Salinas Valle van onschatbare waarde. Speciale dank gaat ook uit naar Ronald van der Hijden (LBSNN), Anne-Lies Risseeuw (VNGi), Harry Clemens en Marie-Anne van Leeuwen (Hivos), Ruud Lambregts (Oxfam Novib) en Desirée van der Ven (gemeente Utrecht), die waardevol commentaar op eerder versies van dit rapport hebben geleverd. Verder zijn we natuurlijk ook in het bijzonder de direct betrokkenen in dit onderzoek, te weten de partners in de stedenbanden Tilburg-Matagalpa, Zoetermeer-Jinotega en Doetinchem-La Libertad zeer erkentelijk voor de gedetailleerde informatie die zij ons hebben verschaft. Dat geldt ook voor de vertegenwoordigers van andere Nederlandse stedenbanden die informatie via een elektronische enquête hebben verstrekt. Paul van Lindert en Edith van Ewijk 2 Inhoudsopgave Voorwoord 1. Inleiding 2. Gemeentelijke Internationale Samenwerking Nederland-Nicaragua: de context 3. LBSNN en het krachtenvel van de samenwerking 4. Programma’s en subsidies 5. De bijdrage aan draagvlakversterking voor ontwikkelingssamenwerking in Nederland 6. De bijdrage aan gemeentelijke internationale samenwerking 7. Conclusies Literatuur Bijlagen 1 – Geïnterviewde personen in Nederland 2 – Geïnterviewde personen in Nicaragua 3 – Multilaterale en bilaterale programma’s gericht op versterking van lokaal bestuur en bevordering van lokale ontwikkeling 4 – Draagvlakactiviteiten per gemeente 2006-2009 5 – Totaaloverzicht KPA programma 2006-2008 6 – Vergelijking resultaat programma indicatoren Caminando Juntos programma – voorlichting 2007-2008 7 – Programma Caminando Juntos – bijdragen voor voorlichtingscampagnes in Nederland in 2007 en 2008 in €’s 8 – Financieringslijnen LBSNN naar thema en programma 9 – LBSNN begrotingen 2004-2008, naar programma en type activiteit 10 – ‘Resultados relación PEM – PIMM’ 3 1. Inleiding Dit rapport richt zich op een bijzonder kanaal in de ontwikkelingssamenwerking met Nicaragua: de zgn. stedenbanden. Nederlandse gemeenten hebben met Nicaragua méér stedenbandovereenkomsten gesloten dan met enig ander land in het Zuiden. Bij stedenbanden gaat het strikt genomen niet om steden, maar om gemeenten die met elkaar een overeenkomst tot samenwerking sluiten. Daarbij zijn vrijwel altijd ook particuliere organisaties betrokken: aan Nederlandse zijde een stedenbandstichting en in Nicaragua een NGO. Verder kunnen aan beide zijden van de oceaan lokale, maatschappelijke organisaties en bedrijven deelnemen die actief zijn in uiteenlopende sectoren. In verhouding tot de bilaterale, multilaterale en ook de civilaterale hulpkanalen is het kanaal van de gedecentraliseerde samenwerking via stedenbanden relatief gering in omvang wat betreft de inzet van financiële middelen. De legitimatie van Nederlandse gemeenten om zich met vormen van internationale- of ontwikkelingssamenwerking bezig te houden is niet onomstreden. Sommigen vinden dat de gemeentelijke taken zich niet tot voorbij de gemeentegrens moeten uitstrekken. Maar in veel Nederlandse gemeenten denkt een meerderheid in de gemeenteraad daar anders over. Daar wordt gemeentelijke internationale samenwerking vanuit overwegingen van solidariteit, duurzaamheid, economische ontwikkeling, city marketing of vanwege andere motieven ondersteund. Een belangrijke legitimatie is ook dat internationale samenwerking het wereldburgerschap van de inwoners stimuleert. Een veronderstelling bij deze redenering is dan ook, dat stedenbanden van Nederlandse gemeenten met gemeenten in ontwikkelingslanden het draagvlak bij de bevolking voor ontwikkelingssamenwerking bevordert. Dit rapport gaat op deze beide kanten van de medaille in: in hoeverre leiden de stedenbandactiviteiten met Nicaraguaanse gemeenten aan Nederlandse zijde tot een versterking van het draagvlak voor ontwikkelingssamenwerking? En welke betekenis hebben de stedenbanden voor de partnergemeenten in Nicaragua? Bij de samenwerking op gemeentelijk niveau speelt het Landelijk Beraad Stedenbanden Nederland-Nicaragua (LBSNN) een centrale rol. LBSNN verenigt Nederlandse gemeenten en particuliere stedenbandorganisaties die een samenwerkingsrelatie hebben met Nicaraguaanse partners. In 2010 ware 13 gemeenten en 17 particuliere stedenbandorganisaties bij LBSNN aangesloten. LBSNN ontvangt onder meer subsidie van Nederlandse medefinancieringsorganisaties als Oxfam Novib en Hivos, alsmede van VNG International en PSO. Daarom krijgt in deze evaluatie de rol van LBSNN bij de stedenbanden in Nicaragua speciale aandacht. De drie vragen die voor de evaluatie leidend waren luidden dan ook als volgt: 1) Wat is de bijdrage van LBSNN aan draagvlakversterking in Nederland? 2) Welke resultaten zijn in Nicaragua behaald? 3) Wat is de specifieke meerwaarde van de werkwijze van LBSNN en hun activiteiten in Nicaragua? Voor deze evaluatie werden o.a. enquêtes gehouden onder een achttal Nederlandse gemeenten, interviews gedaan met sleutelpersonen in drie gemeenten (Doetinchem; Tilburg; Zoetermeer) en tevens werd in Nicaragua gesproken met relevante personen in de respectievelijke partnergemeenten (La Libertad; Matagalpa; Jinotega). Andere interviews werden o.a. gehouden met vertegenwoordigers van LBSNN, Hivos, VNG International en betrokken organisaties in Nicaragua1. Deze deelevaluatie richt zich op het totaal aan inspanningen die in het kader van de stedenbanden in de periode 2006-2009 werden verricht. 1 Zie voor een lijst van geïnterviewde personen in Nederland en Nicaragua: Annex 1 en 2. 4 Hoewel gebruik wordt gemaakt van ervaringen en resultaten uit individuele stedenbanden, programma’s en projecten maken deze niet afzonderlijk deel uit van de evaluatie. De structuur van het rapport is als volgt. In hoofdstuk 2 wordt ingegaan op de algemene context waarin de stedenbanden met Nicaragua opereren. Hoofdstuk 3 zoomt in op het LBSNN en zijn partnernetwerk. Hoofdstuk 4 beschrijft de verschillende programma’s en subsidiestromen waarmee de activiteiten in Nicaragua en in Nederland mogelijk worden gemaakt. In hoofdstuk 5 wordt nader ingegaan op de kwestie van de draagvlakversterking. In dit hoofdstuk wordt de eerste onderzoeksvraag (Wat is de bijdrage van LBSNN aan draagvlakversterking in Nederland?) beantwoord. Hoofdstuk 6 richt zich op de relevantie, efficiency en effectiviteit van de ontwikkelingsprogramma’s en projecten in Nicaragua. In dit hoofdstuk worden de evaluatievragen twee (Welke resultaten zijn in Nicaragua behaald?) en drie (Wat is de specifieke meerwaarde van de werkwijze van LBSNN en hun activiteiten in Nicaragua?) beantwoord. Het rapport wordt afgesloten met een conclusie en een reflectie op de bevindingen. 5 2. Gemeentelijke Internationale Samenwerking Nederland-Nicaragua: de context 2.1 Ontwikkelingen in de samenwerking op gemeentelijk niveau tussen Nederland en Nicaragua De eerste banden op het gemeentelijke niveau tussen Nederland en Nicaragua ontstonden in het begin van de jaren tachtig vanuit het maatschappelijk middenveld. Verschillende burgers verenigden zich in plaatselijke Nicaragua comités en vrijwilligersorganisaties om hun steun met de Sandinisten te uiten die in 1979 dictator Somoza hadden verdreven Het was een sterk ideologische beweging vanuit de links politieke hoek. Ook het Nicaragua Komitee Nederland werd in die tijd opgericht. In het begin van de jaren tachtig werden ook Nederlandse gemeenten actief in Nicaragua. In eerste instantie ging het toen nog vooral om de solidariteit met de Sandinisten te onderstrepen maar de gemeenten waren van meet af aan veel praktischer en minder ideologisch ingesteld dan het Landelijk Nicaragua Komitee en de plaatselijke Nicaragua comités. In 1986 richtten een tiental gemeenten en particuliere stedenbandorganisaties het Landelijk Beraad Stedenbanden Nederland-Nicaragua (LBSNN) op. Het was de tijd van de val van de Muur en het aantreden van de paarse kabinetten en Latijns Amerika kwam steeds minder in de belangstelling te staan. Aan het einde van de jaren tachtig, begin jaren negentig brokkelde de steun aan Nicaragua af en werd de één na de andere afdeling van het Nicaragua Komitee weer opgeheven2. Het draagvlak voor de stedenbanden in Nederland bleef echter wel bestaan, juist doordat zij een praktische en minder ideologische benadering hadden. Toen in 1990 de conservatieve Violeta Chamorro aan de macht kwam, bleef het draagvlak voor de stedenbanden in Nederland bestaan. Met de betrokkenheid van lokale overheden werden veel gemeentelijke banden bestendigd en geformaliseerd. Er werden samenwerkingsovereenkomsten getekend door de betrokken
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