13 March 2009
1050 Meeting, 11 March 2009
11 Administration and Logistics
11.1 Resource Management and Mobilisation Strategy
for the Council of Europe Programme of Activities
Document prepared by the Directorate of Strategic Planning
1. The Council of Europe needs a coherent,
organisation-wide resource management and mobilisation strategy. A coordinated
approach towards resource mobilisation should take into account, in particular:
raising additional resources while ensuring implementation capacity, enhancing
sustainable donor relationships while stressing the alignment with
organisational priorities, and improving transparency and access to information
while reducing bureaucracy and simplifying reporting.
2. The Council of Europe’s Ordinary Budget is insufficient
to finance identified needs as defined by the Third Summit Action Plan. This
strategy therefore aims to consolidate the volume of Joint Programmes with the
European Commission following the significant increases over recent years and to
increase extra-budgetary contributions from other sources by some 20% by the end
of 2010 (see overview of extra-budgetary receipts since 2001 in Appendix I). At
the same time, the external funding should remain aligned with the priorities of
the Council of Europe and take into account the need for human resources and the
cost of overheads required for successful implementation. Transparency and
easier access to information as well as meaningful reporting and evaluation
practices should contribute to the consolidation of sustainable relationships
3. Meeting these challenges requires a strategic approach
in particular: embedding the management and mobilisation of resources in an
overall framework for multi-year planning, appropriate budgeting including
allocation of human resources, programming and evaluation. In this context, an
increase in the proportion of non-earmarked voluntary contributions is sought,
where appropriate. Below a minimum threshold, individual voluntary contributions
would be pooled.
4. This document builds on previous work to define an
organisation-wide resource management and mobilisation strategy, and it proposes
a number of measures to support the Council of Europe’s long term objectives.
Implementation of much of what appears in this document has already begun. It is
an important element in enhancing the added value of the Council of Europe in
the medium term.
MANAGING AND MOBILISING RESOURCES MORE EFFECTIVELY
5. In the context of budget constraints concerning the
Ordinary Budget which contrast with much larger identified needs, the focus must
be on additional resources (joint programmes, voluntary contributions and
public/private partnerships). At the same time, additional efforts must be made
to improve planning, budgeting and administration of resources. In this context,
the following objectives will be pursued:
Mix of financing mechanisms
v Develop integrated
budgetary and programming processes ensuring that the core activities are
primarily funded by the Ordinary Budget.
v Seek external
resources for activities contributing to the Council of Europe’s fundamental
objective which cannot be funded by the Ordinary Budget.
v Propose suitable
projects to external partners who can bring added value (financial and
non-financial) to the projects.
v Explore and initiate
innovative approaches to generate additional resources (e.g. fundraising
events, new partnerships and long-term alliances, selling of selected
products and services, and combinations of grants and loans or via the Human
Rights Trust Fund).
v Define in advance
acceptable limits of private sector partnerships, where they present
themselves, to ensure that partner organisations share the goals of the
Council of Europe, are not involved in activities which would not be
compatible with the values of the Council of Europe, and do not influence
the nature and implementation of the project.
Develop Donor Relationships
6. Overall coordination of donor relations is necessary in
order to ensure Organisation-wide coherence. Existing channels of communication
between operational entities and donors should be maintained and further
developed within this overall framework. In addition, an enhanced role for
in-country teams (including Special Representatives of the Secretary General)
with respect to contacts with donors and beneficiaries and project development
is foreseen. In particular, sustainable donor relationships should be
strengthened by the following measures:
v Identify donor
priorities and requirements through research into possible sources of
v Encourage long-term
partnerships (taking into account the different needs of donors and the
input from decentralised entities including field offices).
v Submit targeted
project proposals which match Council of Europe and donors’ priorities.
Encourage targeted resource mobilisation plans for major programmes
requiring external resources.
v Coordinate and
maintain regular contacts with major donors.
v Encourage contacts
with major partners (in particular the European Commission and the permanent
representations, Ministries of Foreign Affairs, specialised ministries and
development agencies of member and observer states), annual bilateral
consultations and multi-year framework agreements using standard contracts.
v At the same time,
maintain and develop specialised partnerships in different sectors.
FRAMEWORK FOR PROJECT SELECTION, IMPLEMENTATION,
REPORTING AND EVALUATION
7. To establish a coherent and co-ordinated approach and
to improve and stabilise the resources in a pluri-annual perspective, the
framework will be further enhanced:
v Plan all programmes
and projects through an integrated process to ensure alignment of objectives
(inclusion in the Programme of Activities) and include external resources in
the planning process.
v Ensure that project
proposals emphasise the value-added nature of the proposed project and
clearly set out the objectives foreseen.
v Encourage pluriannual
v Take due account of
the absorption capacity of the beneficiary when designing projects.
v Consider only donor
contributions which support agreed objectives.
v Design all project
proposals in accordance with document CM(2006)101 final, Establishing
criteria for projects.
v Consider the
implementation capacity of the entity responsible for the implementation of
v Consider only project
proposals which include estimates of the full cost of human and financial
resources required for each project and the conditions for successful
v In decision making,
take into account the reporting record of the implementing unit.
v Ensure that reporting
is harmonised and proportionate.
v Provide adequate
training for project management in order to improve efficiency of planning
and effective implementation and monitoring of projects.
v Provide for
appropriate evaluation of the project in line with the Council of Europe
evaluation policy (CM(2008)156) and donor requirements agreed beforehand.
v Identify key
indicators suitable for short-term and long-term impact assessment and
provide a final assessment of this impact at the conclusion of the project.
An overview of internal management structures is appended
to this document (Appendix II).
Identification of needs
8. All project proposals must be based on a sound
assessment of needs with the involvement of key stakeholders for the
implementation of the projects. Projects can be designed and implemented by all
sectors of the Council of Europe, but the following general principles and
guidelines should be applied:
v Programme and/or
project proposals should address identified needs and must be in line with
agreed Council of Europe priorities, have potential to reach a sustainable
positive impact, have been agreed with the beneficiary authorities, and have
been designed in collaboration with potential partners for implementation.
v Programmes and
projects proposed should not duplicate or repeat work done by other
international actors in the field. Efforts should be made to promote
cooperation rather than competition.
v Align the process for
external resource programme/project approval with that of core-funded
Identification of external sources of funding
v Use donor profiling to
identify potential donors, their funding capacity and allocation criteria,
matching individual programmes/projects or project themes with identified
v A systematic donor
profiling database will be developed through a survey of current and
potential donors, taking central and decentralised expertise into account.
Targeted fundraising plans
v Develop fundraising
plans for specific programmes/projects, targeted to donors with matching
interests. Facilitate the presentation of projects and programmes according
to specific donors’ requirements (thematic, country and regional).
v Encourage multi-annual
partnerships to fund pluriannual programmes/projects.
Coordinated fundraising and
v Promote the use of
Council of Europe standard contracts and coordinated negotiation procedures.
v Adapt fundraising
methodology to targeted donors as appropriate.
Project implementation and
v Introduce monitoring
mechanisms for project implementation and reporting to ensure donor
satisfaction and, at the same time, avoid unnecessary bureaucracy,
responding to donors with particular emphasis on the achievement of results
and objectives, timely execution of projects, efficient use of resources,
timely and adequate reporting and evaluation as well as donor visibility.
COMMUNICATION AND PRESENTATION
9. The presentation of programme/project proposals should
be done in a standard format in line with the Council of Europe’s Project
Management Methodology (PMM), comprising: logframe; project description; project
budget; and project work plan. Proposals for projects to be funded by voluntary
contributions will be included in the draft Programme of Activities submitted
for approval by the Committee of Ministers. Voluntary contributions will then be
solicited on the basis of the approved Programme of Activities. Further
envisaged improvements are as follows:
v Communicate project
proposals to potential donors in an attractive format, making use of media
tools (including Internet dissemination tools).
v Encourage donor
involvement in project implementation through participation in events such
as seminars and symposia in order to maximise Council of Europe and donor
visibility and recognition.
v Develop general and
thematic information to attract the interest of decision makers within
10. Resource mobilisation is an integral part of a
medium-term effort to implement the decisions of the Warsaw Summit and thus to
fulfil the goals assigned to the Council of Europe by its stakeholders. It
complements ongoing efforts to increase efficiency, effectiveness and
transparency of the Council of Europe. The implementation of the strategy will
contribute to developing an integrated approach to the management of resources
through the coordination of the various instruments and mechanisms of the
Council of Europe. The strategy and the target for the volume of additional
resources being sought should be reviewed after two years.
INTERNAL MANAGEMENT STRUCTURES
1. To ensure consistency in the implementation of this
policy and to facilitate donor access to information, a dedicated entry point
(External Resources Unit) for all stakeholders will be made available. This Unit
will also exercise an internal service and support function by co-ordinating
project design, donor matching, contract negotiation, reporting and evaluation.
This support function will be based on close cooperation with decentralised
entities responsible for project management.
2. The External Resources Unit will ensure implementation
of the resource management and mobilisation strategy by giving support and
advice concerning the elaboration of projects; facilitating access to the
various sources of external funding; developing standard procedures for contract
negotiation, project management and reporting; and acting as a clearing house
and repository of best practices in resource management and mobilisation for the
Council of Europe as a whole. Apart from establishing and further developing a
resource mobilisation database, the Unit will also play a role in the allocation
of non-earmarked contributions and in promoting, together with the Human
Resources Directorate, appropriate training arrangements.
3. Further division of responsibilities:
v The External Resources
Unit will be at the disposal of all Major Administrative Entities for donor
prospection. Individual MAEs will pursue existing fundraising contacts with
traditional donors and may undertake further prospection subject to
communication and coordination with the External Relations Unit and other
relevant areas of the organisation. They may also conclude specific sectoral
contracts within the framework of agreed programme and project planning.
Project implementation and reporting
v Operational Major
Administrative Entities will remain responsible for project proposals and
implementation as well as for narrative and financial reporting. They will
develop and implement monitoring procedures in accordance with general
guidelines in order to ensure that project implementation is in accordance
with contractual agreements. This will allow for variances to be reported
promptly to the donor, indicating the difficulties encountered, the actions
taken and, where appropriate, what further steps are proposed.
Reporting framework and evaluation
v The External Resources
Unit, in consultation with implementing entities, will develop a standard
common reporting (narrative and financial) and evaluation framework for all
projects, irrespective of the source of funding. Standard guidelines and
criteria for evaluation will be developed in connection with the Council of
Europe Evaluation Policy [cf CM(2008)156]. A minimum threshold for reporting
on individual contributions will be established.
v The External Resources
Unit will promote and encourage donors to accept the standard reporting and
evaluation framework for projects, to harmonise and streamline the process
and support implementing entities in their attempts to avoid complicated and
disproportionate reporting obligations for individual contributions.
4. Responsibility for the management of extra-budgetary
resources is included in the Secretary General’s annual delegation of financial
responsibility. The External Resources Unit will contribute to the overall
coordination of external resources within this framework and the current
fixed-rate deductions from external resources will be reviewed to ensure that
all attributable costs resulting from additional activities are covered in an