FINAL REPORT Action for Cooperation and Trust in Cyprus 1 October 2005 – 31 December 2015 United Nations Development Programme Acknowledgements This report tells the story of UNDP-ACT over the past ten years—a story that would not have been possible without the commitment and professionalism exhibited by UNDP-ACT’s staf members, consultants and associates. They used their talents to serve the cause of peace and have laid the foundations for a durable solution to the Cyprus conflict. Copyright © 2015 United Nations Development Programme. Produced in Cyprus. All rights reserved. No part of this publication may be reproduced, stored in a retrieval system or transmitted in any form or by any means, electronic, mechanical, photocopying, recording, or otherwise, without prior permission of UNDP-Action for Co-operation and Trust. Published by UNDP-ACT www.undp-act.org I. INTRODUCTION Ten years of UNDP ACT programming has made a tangible and significant diference in the lives of those living on this long divided island. Most importantly, it has improved the prospects for peaceful reconciliation between Greek Cypriots and Turkish Cypriots. Hundreds of projects in dozens of fields illustrate the benefits of cooperation; beyond that, a network of civil society actors—shop keepers, media professionals, architects, business owners, engineers, teachers, researchers, women, scientists, athletes, artists, young people and opinion leaders—now exists as a source of know-how and experience to complement and to challenge traditional structures. Individually and together, through groundbreaking initiatives like the Cyprus Dialogue Forum, Cypriot civil society is working to support the peace building and peace making processes. It is responding to openings on the political front and will be able to confront the challenges of implementing any agreement. It has a pivotal role to play in ensuring lasting peace and is better positioned to do so because of ACT. ACT programming draws to a close at a time of great optimism with regard to the peace process. Not only have the two leaders committed to a shared goal of reaching a comprehensive settlement as swiftly as possible, but consensus, if not agreement, on key aspects of a solution are being discussed publically. Further, the two leaders have taken symbolic and significant steps to create forward momentum. Together they have attended cultural events and supported bicommunal ventures; they have reinvigorated the working groups and technical committees meant to augment their ability to negotiate on “the full spectrum of issues”. Without exception, these eforts—and the positive climate to which they contribute—are succeeding because of ACT’s work over the last decade. The experts discussing technical cooperation in the area of the environment or health, for example, have experience implementing ACT-funded bicommunal activities; the venues now used for bicommunal events and exchanges exist because of early contributions through ACT; collaboration in the areas of cultural heritage restoration or business development is possible because of the foundations laid with key partners by ACT; and the networks of people rallying to the cause of peace were nurtured by ACT initiatives. Long the caretaker of the unofcial peace process, Cypriot civil society is now taking its place alongside the political leadership. It is at the forefront of peace making, participating directly and efectively. Most agree that Cyprus’ civil society organizations would not be in a position to take part or to support the leaders in this push for peace without ACT’s support over the previous decade. Although this final report documents the activities and achievements of ACT through the period of the cooperative agreement from 2005 to 2015, the real legacy and lasting impact of ACT will continue to be realized for decades to come. As stakeholders in both communities have frequently observed, the value of ACT is not only in what it achieved while it was active, but the sustainability of what it leaves behind— skills, know-how and the means to hasten peace. With this in mind, this report reviews a decade of achievements, but also seeks to outline the approach of the programme and how this flexible and ever-nuanced approach resulted in concrete results and lasting change. Some of the most important lessons that ACT ofers the wider development community lie in its practical, flexible programme design that evolved in response to on-the-ground developments; its preoccupation with sustainability; the commitment, continuity and agility of the local team (UNDP and USAID) whose deep understanding of the Cyprus environment made it possible to navigate its complexities and to seize opportunities; and the collaborative technical approach that relied heavily on local resources and evidence-based planning, analysis and decision making. 3 II. BACKGROUND AND CONTEXT Established in 2005, the ACT programme was shaped to a large degree by the complex programming context that Cyprus presented both historically and at that particular time. The ongoing division necessitated nuanced administrative arrangements and calibrated accommodations while the sensitive and sometime volatile political climate required an ability to constantly adjust, especially in response to positive developments. FINE-TUNING IMPLEMENTATION ARRANGEMENTS ACT inherited the implementation arrangements designed originally to deal with the unresolved conflict and political realities on the island after 1974. Then, and in 2005, the international community was challenged to deliver assistance on both sides of the dividing Green Line fairly, in line with programme objectives and without eroding relations between the donor and either of the communities or between the two sides themselves. In 1974, to ensure that lifesaving humanitarian aid reached both communities without compromising the Government of the Republic of Cyprus (who remained the sole recognized government on the island) or legitimizing any parallel Turkish Cypriot authority, it was agreed that assistance would flow through the Cyprus Red Cross organization. According to the provisions of the 1960 Constitution, the President of the Red Cross was a Greek Cypriot and the Vice President a Turkish Cypriot. The ofces of these two became the conduits through which international assistance—via UNHCR at the time—flowed. While separate for all intents and purposes, the two remained linked through their direct connection with UNHCR and the personal relationships of the people involved, some of whom had worked together before 1974 and maintained close professional relationships afterwards. In 1997, UNHCR decided to close its humanitarian operations in Cyprus but UNDP agreed to partner with the U.S. government to implement a development programme focused on much-needed peacebuilding, complementing existing bicommunal infrastructure projects with funding for civil society organizations. At that time, however, the Turkish Cypriot side reconsidered the administrative arrangements in place for receiving international funding of this kind. In consultation with the Cyprus Red Cross, an arrangement was devised creating a Turkish Cypriot non-governmental organization (NGO)—the Humanitarian Relief Mission (HRM)—to allow UNDP to implement bicommunal peacebuilding programmes, reaching Turkish Cypriots directly while contributing to the overall development of the island. Recognizing that the political situation still precluded an arrangement whereby the two sides could be part of the same programme steering committee structure, UNDP and USAID agreed to parallel Programme Steering Committees where decisions were taken for each side, but information on the entire programme—and on international best practices—was provided. This arrangement proved 4 to be practical and efective, was mirrored by the European Commission when it began implementing its first programmes targeting the Turkish Cypriots and remained in place through the end of the ACT programme. BUILDING ON THE EXPERIENCE OF BDP From 1997 to 2004, UNDP implemented the Bicommunal Development Programme (BDP), also funded by USAID. To counter decades of separation and reduce tensions, the BDP’s focus had been on maximizing intercommunal contact and, for the first time, engaging civil society organizations through small infrastructure and development activities across cultural and economic life in Cyprus. Most significantly, it was through the BDP that UNDP opened the first facility for funding Cypriot non- governmental organizations (NGOs) in 1998. The BDP’s overall approach was one of “letting one thousand flowers bloom” to help establish the broadest possible matrix of intercommunal contact. Bicommunal activities were designed to serve the whole of the island in various spheres of life—from agriculture to environment, to restoration of monuments important to each community, to youth programmes, to support for cultural exchanges. Despite the restrictions on bicommunal contact in place for most of the seven years of the BDP’s operations, the BDP was able to “LETTING ONE foster and support cooperative relations between Greek Cypriots THOUSAND FLOWERS and Turkish Cypriots. By 2004, 70% of the BDP’s projects had BLOOM” succeeded in achieving some form of face-to-face contact between Greek Cypriots and Turkish Cypriots—achieving a monumental Between 1998-2005 shift in the practicalities of bicommunal work. The positive and the BDP worked with beneficial results of countless bicommunal endeavours helped in over 300 diferent