FAAE Committee Report

Government Response to the Fourth Report of the Standing Committee on Foreign Affairs and International Development

Canada’s International Policy Put to the Test in Haiti

The Chairman
Standing Committee on Foreign Affairs and International Development
House of Commons
Ottawa, ON K1A 0A6

Dear Colleague:

On behalf of the Canadian government, we would like to thank the members of the Standing Committee on Foreign Affairs and International Development for your report entitled “Canada’s International Policy Put to the Test in Haiti.”

The Committee’s review will make a significant contribution to the Government of Canada’s approach to its ongoing commitment. Haiti remains a priority focus for the Canadian Government engagement in the hemisphere. The government concurs with the Committee’s analysis of the scope of the challenges facing Canada and the international community in their interventions.

Canada is determined to support Haiti in its efforts to end the unacceptable conditions that exist in that country. But alone, we cannot eliminate the causes of the insecurity wracking Haiti. Because of this, and in recognition of the fact that reconstruction is a long-term process, Canada is continuing its considerable diplomatic efforts to solidify the long-term commitment of its partners and ensure that Haiti remains a priority. The success of the international conferences in Port-au-Prince (July 2006) and Madrid (November 2006) shows that the international community stands firm in its commitment to Haiti. Canada will continue to echo, and thereby reinforce, the messages sent on those occasions. To be successful, our actions must be guided by realistic objectives and be in keeping with the precepts of tight coordination.

Haiti is at a turning point in its history and, with enough support, can put an end to the cycles of violence and poverty. For the first time since the Constitution of 1987 came into effect, the country has completed a full electoral cycle and is now led by a democratically elected and highly committed government. The security situation, while still fragile, is stabilizing thanks to a better integration of efforts between Haitian authorities and MINUSTAH. Despite the willingness of the Haitian government, though, progress has been slow and there are still many challenges that must be overcome to reverse the downward spiral in which Haiti has been caught for many long years. We are just beginning to see the results of the massive investments that have been made by the international community since 2004: roads, prisons and police stations are now being rehabilitated, new police officers are better trained, macro-economic advances (control over inflation, budgetary transparency) can be seen and, for the first time in two decades, there is economic growth. But first and foremost, the Haitian people are willing to work for a better future. Though much remains to be done, the future of the country is being built day by day.

As the second-largest bilateral donor with a commitment of $520 million over five years (2006-2011), Canada will continue to play a leading role and to work together with the Haitian government and its international partners to improve living conditions in Haiti. Canada is distinguishing itself by its ongoing commitment, its respect for the leadership being shown by the Haitian authorities, and a whole-of-government approach that draws on a pool of varied expertise. Canada has a vast network of Canadian partners and enjoys a special relationship with Haiti, based on a common language and membership in the large family of La Francophonie.

The federal departments and agencies concerned have examined the Committee’s report in depth. The Department of Foreign Affairs and International Trade and the Canadian International Development Agency have worked together, in consultation with the Royal Canadian Mounted Police, the Department of National Defence and the Department of Finance, to prepare the response to the Committee’s recommendations.

Consequently, in accordance with section 109 of the House of Commons Regulations, we are pleased to submit the following response to the Committee’s report.

We would once again like to thank the Committee and its members for the work they have done, as well as for this opportunity to provide further information on the nature of Canada’s commitment in Haiti.

The Government of Canada would like to thank the members of the Standing Committee on Foreign Affairs and International Development for their work leading to their report on Canada’s engagement in Haiti.

DETAILED RESPONSES TO THE RECOMMENDATIONS

Recommendation 1

As part of a clear policy framework on Canada’s role in fragile states, the Government should set out concrete objectives, focusing on the Millennium Development Goals and anticorruption activities, for Canadian “whole of government” interventions in recipient states. Thereafter, the Government should table in Parliament annual progress reports detailing by country the funds expended and results achieved in the stated objectives.

Response

The international community of donors, including key organizations such as the OECD, UN agencies, and major development NGOs, have recognized the symbiotic relationship between security and development and, with respect to fragile states, have repeatedly called for a complementary, coordinated approach to both. Over the long term, poverty reduction cannot be sustained in the absence of reasonable stability and security nor can we expect security to take root in the midst of abject and persistent poverty.

The long-term objectives of Canada’s development programming in fragile states, as in all other states where we are active, are poverty reduction and achieving the Millennium Development Goals (MDGs). In Haiti and other fragile states, substantial Canadian government investments in the three key areas of democratic governance, security, and livelihoods lay the foundation for MDG achievement in the long run as well as country-owned development strategies that enable aid to be scaled up.

It is recognized that corruption remains an ongoing challenge in countries where governance and public institutions are weak. To address this challenge, federal departments such as DFAIT and CIDA ensure rigorous internal controls on their aid disbursements and provide development programming that supports anti-corruption reform in developing countries. CIDA is developing an Anti-Corruption Strategy to consolidate these efforts.

The Government of Canada has also recently endorsed the Extractive Industries Transparency Initiative (EITI) to support improved governance in resource-rich developing countries (including fragile states) through the publication and verification of company payments and government revenues. The aim of EITI is to overcome the “resource curse” — the risk of poverty, corruption, and conflict in countries rich in oil, gas, and minerals, but lacking in transparency and accountability. Ensuring that revenues from natural resources result in greater government spending on health, education and other priorities is key to the EITI goals of reducing poverty, promoting democracy, and reducing the risk of conflict. Canada has signed the UN Convention Against Corruption which will further enable Canadian federal departments to provide technical assistance to developing countries in the fight against corruption.

In 2005, the Government of Canada established the Stabilization and Reconstruction Task Force at DFAIT to provide overall policy leadership and coordination of Canada’s whole-of-government responses in failed and fragile states such as Afghanistan, Haiti, and Sudan. The 5-year, $500-million Global Peace and Security Fund managed by START provides robust, flexible, quick-impact programs to complement and reinforce CIDA’s investments in long-term poverty reduction.

The Government of Canada is committed to a whole-of-government approach to addressing the extensive and complex needs of fragile states. With respect to reporting obligations, all government departments and agencies report annually to Parliament on their expenditures against established plans and priorities through their Reports on Plans and Priorities and Departmental Performance Report. In these and other relevant reports submitted to Parliament, explicit reference to Canadian actions and objectives with respect to diplomatic, development, stabilization and reconstruction efforts in fragile states will be highlighted. In addition to reporting requirements set forward by Treasury Board Secretariat, DFAIT and CIDA Deputy Ministers have committed to ensuring complementarity of mandates and operating principles for programming in fragile states. Moreover, there is a strong, joint departmental policy commitment to evaluate major Canadian efforts towards stability and development in fragile states.

Furthermore, in CIDA’s Report on Plans and Priorities RPP) for 2006-2007, the International Cooperation Minister made a commitment to publish a report on international development results, in which certain progress towards the MDGs will be presented. The GPSF reports on its plans, results and expenditures (financial and non-financial) through the Departmental Performance Report on Plans and Priorities (RPP) and Departmental Performance Report cycle (DPR). These reports are tabled to Parliament, and are accessible to the public. GPSF complies with the Government of Canada general transparency obligations, such as proactive disclosure of contracts and grants & contributions.

Recommendation 2

The Government should, as part of its long-term assistance plan for Haiti, table in Parliament a report on Canada’s assistance to Haiti at the end of the current extended mandate of the Interim Cooperation Framework in 2007. The report should provide concrete details on all actions taken to correct flaws identified in donor evaluations — such as the 2004 CIDA study for the OECD — and should also provide concrete details of results from Canadian aid to Haiti in terms of meeting the Millennium Development Goals, in order to develop the future model for parliamentary reporting.

Response

CIDA has produced an initial interim report on the results achieved for the period of the Interim Cooperation Framework (Canada–Haiti Cooperation: Result Summary — Interim Cooperation Framework (ICF) (April 2004 — March 2006), distributed to the Parliamentary Committee in July 2006) and plans to make public a report on all of its activities once the extended ICF has been fully implemented. This detailed report will be posted on CIDA’s Web site and its main points will be outlined in the Departmental Performance Report.

Each year, in order to report to Parliament and to Canadians, ministers submit their Departmental Performance Reports to Parliament. Senior management in the respective departments and agencies make themselves available to respond to possible requests for clarification on information in the Departmental Performance Reports. And as mentioned in Recommendation 1, the Minister of International Cooperation will pay particular attention to fragile states in her annual report on development results.

The Government recognizes the importance of incorporating lessons learned into the planning and implementation of current initiatives so the necessary changes can be made to them. Canada has played a leadership role in recognizing lessons learned from actions in Haiti in the 1990s. This recognition has led to, among other things, better coordination of efforts, particularly through the Interim Cooperation Framework and the setting up of an integrated United Nations mission. We are now continuing our efforts to support the Haitian government in exercising its leadership in the area of coordination and rallying the donor community around a framework of results to be achieved with explicit indicators.

Recommendation 3

In the area of security, the Committee agrees that MINUSTAH must have clear authoritative direction and a clear mandate to disarm criminal gangs. Canada must work with international partners and Haitians to facilitate the preeminent need of Haiti for normalization and security in all areas. Canada should also consider increasing its contribution to the UN Mission during the period of its renewed mandate.

In regard to police reform, Canada should make a greater contribution over the next two to three years to the establishment and training of a professional politically neutral national police, taking into account lessons learned from its past Haitian police reform program.

Response

Restoring security and public order is central to Canada’s strategy in Haiti. A secure environment throughout the country is a necessary condition for the success of reconstruction and development initiatives.

In early 2006, Canada recognized the need to amend the MINUSTAH mandate to address the growing threat of criminal gangs in Haiti. At consultations on the margins of the General Assembly of the Organization of American States in Santo Domingo, Dominican Republic, in June 2006, Canada came to an agreement with key partners in the region on a coordinated approach with respect to negotiations held a few weeks later on the renewal of MINUSTAH’s mandate. Canada then proposed that the General Assembly adopt a declaration on Haiti stressing the reinforcement of “efforts made to ensure the security conditions necessary for the success of development initiatives in Haiti.”

Through these efforts, the mandate adopted by the UN Security Council on August 15, 2006, for the first time included provisions for “[translation] maximizing MINUSTAH’s role in crime prevention, particularly with regard to the threat of violence and abductions by gangs” and urging the establishment of “optimal coordination in order to combat criminal behaviour and violence.” When the time came to renew the mission’s mandate in February 2007, Canada made similar efforts, including consultations at the ministerial level to maintain these same provisions in the new resolution adopted in this regard.

Redefining MINUSTAH’s role in combatting criminal activity and increasing coordination with the Haitian National Police have yielded results. In his December 19, 2006, report on MINUSTAH (S/2006/1003), the UN Secretary General points out that over the past six months, “the overall security environment continued to be relatively stable in most of the country and there were signs of improvement in some critical areas.” However, he did recognize that the situation remained “fragile and volatile.” More robust operations led by MINUSTAH and the Haitian National Police from December 22, 2006, further improved the security situation and reduced the number of abductions significantly. Canada is fully conscious of the importance of sustaining these efforts over the longer term to effectively address the challenge posed by the criminal gangs; this issue has since been raised on several occasions at senior official and ministerial levels with the Haitian authorities and key partners involved in the effort in Haiti with a view to strengthening Haitian and UN resolve in this regard. Recognizing that an effective MINUSTAH is a key element of reconstructions efforts, Canada and Brazil co-sponsored in Brasilia a high-level seminar aimed at enhancing the Mission’s integration as a means to improving operational effectiveness.

In addition to these efforts to ensure that MINUSTAH is given the authority and the means to combat criminal gangs, Canada is helping to improve Haiti’s security situation. Specifically, Canada is providing support through MINUSTAH and the UNDP for efforts aimed at improving security in the communities most affected by gang violence. Through the creation of Committees for the Prevention of Violence for Development, communities will implement strategies to reduce the influence of armed groups, prevent conflict and provide counselling to victims of violence and former gang members. The committee will also define and implement new social programs effectively creating space for the government to deliver vital services such as health and education.

Canada will also provide funding to increase the Haitian government’s border management capacity with a view to reducing the incidence of such crimes as human trafficking and smuggling in weapons, drugs and migrants. Projects in this area will address the vulnerability of the country’s national borders to transnational criminal networks that exploit Haiti as a transit point. An added benefit of working to strengthen the Haitian government’s control of the borders is the opportunity to build relationships with neighbours like the Dominican Republic and CARICOM nations in dealing with issues of common concern.

Canada recognizes the crucial role played by MINUSTAH in the stabilization and reconstruction of Haiti, and is particularly appreciative of the important contribution of our partners in the region who make up more than 60% of the military contingent. The mission has, in fact, become the concrete manifestation of the priority attached to the improvement of the situation in Haiti in the hemisphere. Canada’s recognition of this important factor and our determination to ensure that our Latin American partners remain firmly engaged for the longer term in Haiti have guided decision-making processes with respect to our own contribution to the Mission.

In the area of policing, Canada has identified the specific value added that it can provide to the mission based on Canada’s long involvement in police reform efforts in Haiti. On October 8, 2006, TBS approved the submission for the creation of the Internal Police Peacekeeping and Peace Operations Program (IPP) in the RCMP to sustain and execute IPP activities. Now that there is funding in place, the RCMP will have to recruit, train and backfill in order to have 200 police releasible and qualified for deployment to international peace operations by March, 2008 . While we are still in a transition period to establish the 200 positions, this new program will give Canada the capacity to meet its commitments to contribute 100 police to MINUSTAH within the year. Canada has 70 police deployed to MINUSTAH, representing over two-thirds of Canada’s overall police deployments to peacekeeping missions. The Canadian police deployed are of the highest calibre and usually have prior experience in Haiti, as such they placed in positions of authority and responsibility. The past two MINUSTAH Police Commissioners have been Canadian and a Canadian is currently serving as the Deputy Police Commissioner. Additionally, Canada is committed to increase police deployments to MINUSTAH to 100. Reaching this target is challenging as language requirements limit the possible pool of candidates and domestic police requirements reduce the capacity of police to serve internationally. However, DFAIT is currently pursuing other options to deploy retired Canadian police to bolster our contributions to MINUSTAH. Canada remains committed to meeting its commitment including through cooperation with provincial and municipal police forces and deployment of recently retired police. Canada’s contribution to ongoing operations against criminal gangs is particularly appreciated. Canada currently contributes 4 officers, including the Chief of Staff to the military component of MINUSTAH with a view to supporting the Brazilian Force Commander in his functions.

As highlighted by the Committee’s report, Canada has participated in a number of efforts to reform the Haitian police since 1994. Over 550 Canadian police officers have participated in the various United Nations Civilian Police Force missions to Haiti since that time. Since 2004, Canada has sought to put the experience from Haiti to good use in ensuring that multilateral efforts to strengthen the Haitian police force yield results. One of the lessons learned is that bringing a police force to maturity is a slow process and requires long-term financial commitments and technical support on the part of the international community. This last observation is central to Canadian-led efforts to ensure MINUSTAH’s sustained presence over several years, given its key role of mobilizing and coordinating international resources to reform the police force.

Since 2004, Canadian experts have worked with their Haitian counterparts to develop a police reform plan, work that was subsequently taken on by MINUSTAH and the Haitian authorities in view of a national plan adopted in 2006. A number of Canadian projects are aimed at ensuring the professionalism of Haiti’s national police. A Global Peace and Security Fund (GPSF) project will make it possible to reform the Office of the Inspector General. This will enable the Inspectorate General to carry out the crucial vetting process (with support from MINUSTAH) and ensure that the Haitian police force is staffed with competent and professional officers, therefore enhancing the legitimacy of the Haitian police as a whole. In the longer term, CIDA is planning a project to create a police academy with a mandate to train the senior management of the Haitian National Police, thereby enhancing professionalism and effectiveness.

Recommendation 4

In the area of justice and corrections, considering that impunity still prevails across the entire country, Canada should work closely with Haitian authorities and international partners on putting an end to impunity, on establishing a national system of human rights protections, on the training of judges and on the reform of the prison system.

Response

In his December 19 report, the Secretary-General of the United Nations painted a bleak picture of Haiti’s justice system and stressed that the ongoing efforts of MINUSTAH and the international community would be critical in implementing the reforms put forth by the Haitian government in the action plan for judicial reform. This assessment was confirmed by the International Crisis Group in its report of January 31, 2007, which confirmed the conclusions drawn from past experiences in Haiti and other fragile states that police sector reform is doomed to failure if judicial and prison reforms do not advance at the same pace. As part of recent discussions chaired by Canada and its key partners in Haiti, DSRSG Mulet indicated that from now on judicial reform must be one of the international community’s four major priorities in Haiti.

The Haitian authorities have put forward a plan of action aimed at resolving the problem of preventive and prolonged detention, referred to in the Standing Committee’s report, and improving respect for the basic right of those awaiting trial to be tried within a reasonable time frame. The plan also seeks to re-establish public confidence in the Haitian legal system by ensuring the independence of the judiciary and by fighting corruption and abuse in legal institutions. To this end, though the GPSF, START is planning to engage in the area of prolonged detention in Haiti. Providing basic capacity and equipment to the courts in Port-au-Prince, facilitating the prosecution of criminals, and unblocking and rebuilding congested prisons would ensure the rapid realization of justice for many as well as increase confidence in the functioning of the judicial system, which remains unable to respond to immediate needs. It is recognised that justice reform will continue to occupy a critical place in Canadian programming in Haiti for the foreseeable future.

As part of CIDA’s interim strategy, strengthening rule of law and justice is one of the three priorities of its programming to support governance and strengthen government structures. At the moment, two projects are underway in the area of justice. The first is in support of Haiti’s Ministry of Justice and is being carried out by the International Organization of La Francophonie (OIF). Experts from Francophone countries will come and assist their Haitian counterparts in increasing the legal system’s capacities to make it more independent and more accessible to citizens. The project is built around three components: improving access to justice, enhancing the independence of the judiciary, and improving the dissemination of law and information. The primary objective of the second project is to consolidate rule of law and the penal chain. It is being carried out in partnership with the United Nations Development Program (UNDP). The project aims to strengthen prison administration in order to decrease the number of security-related incidents, increase respect for detainees’ rights, improve detention conditions and promote reintegration of detainees.

Canada will also be supporting the reform of the prison system by deploying eight correctional officers to MINUSTAH to work alongside of Haitian officers and provide training, mentoring and assistance. These officers will be accompanied by two Senior Canadian Correction Advisors who have been chosen for their expertise in the field as former MINUSTAH personnel.

Rule of law goes well beyond regulations and the skill of personnel who administer them. Equally important are the emergence and establishment of a civic culture in which the law and human rights are respected. A number of CIDA projects seek to foster civil society participation in the promotion and protection of human rights, particularly by raising public awareness of human rights principles, government obligations and available mechanisms. In particular, a Réseau Liberté project seeks to enhance the capacity of Haitian journalists in contributing to debates on governance and the protection of human rights. The Fund for Support of Justice and Human Rights, a CIDA organization, makes financial contributions to various projects and organizations that are apt to advance justice, democracy, national dialogue and human rights in Haiti. Furthermore, it enables minors (women and men) whose rights have been infringed on to have their day in court. It also helps women combat violence perpetrated against them.

Recommendation 5

Canada should work with international partners and the new Haitian government to ensure that the establishment of an economic plan, job creation and tangible improvements for Haiti’s poor are an immediate priority of development plans. Overall development strategy should also pay particular attention to: rural and local development, including agricultural production and food security; basic education for children; the empowerment of women; the formation of strong civil society and labour organizations; and the creation of a climate conducive to private-sector investment.

In view of the degree to which the environment in Haiti has deteriorated, Canada must work with its international partners and the new Haitian government to ensure that priority is also given to solving the serious environmental problems Haiti is facing, such as deforestation causing severe flooding, shoreline pollution and the accumulation of garbage in the streets of towns and villages, to name just a few.

Response

Canada and all international partners are supporting and assisting the Haitian government in devising an overall development strategy for the country.

At the International Conference for Haiti’s Economic and Social Development held in Port-au-Prince in July 2006, the Haitian government presented its eight priorities, including some that directly address the Committee’s recommendation. Building on the foundation of the Interim Cooperation Framework (ICF), these priorities are public works, social peace, justice and security, increased revenues, strengthening government structures, education, health, agriculture and the environment. At this conference, the Government of Canada announced a $520-million commitment to the development of Haiti over the next five years.

The Haitian government is currently preparing a final Poverty Reduction Strategy Paper (PRSP), which, like the ICF, is designed to promote growth that primarily benefits the poor. A number of the themes noted by the Committee can be found in the preliminary document that lays the foundations for the PRSP. The Haitian government attaches great importance to the preparation of the PRSP, as its approval is a condition for debt forgiveness by the majority of its creditors (see Recommendation 7). The government has already agreed on a participative strategy in finalizing the PRSP, which will facilitate the involvement of stakeholders from civil society.

For Canada, co-ordinating the development thrust is essential. CIDA is therefore providing strategic support for the preparation and possible follow-up of the PRSP, as it did for the preparation and follow-up of the ICF. Pending finalization of the Haitian government’s PRSP, CIDA’s interim strategy incorporates the priorities announced by Haiti’s new government and is essentially designed to make Haiti more resilient by reducing poverty and consolidating government structures. The strategy focuses on three major thrusts: good governance and reinforcement of government structures, access to basic services, particularly health and education, and social peace.

With regard to basic education, projects are aimed at enhancing quality by training teachers and improving school administration in the Artibonite region. CIDA is planning to increase its efforts at the national level in support of the Haitian government’s education plan. In addition, CIDA is also supporting school canteens, which will feed 300,000 children.

In gender equality, the C$4 million Fonds Kore Fanm II is geared towards enhancing the effectiveness of efforts by Haitian organizations and institutions whose goal it is to promote, protect and defend women’s rights and to stop violence against women. Civil society participation is essential to Haiti’s development. CIDA is therefore strengthening the capacity of Haitian and Canadian civil society to deliver services and to interact with the government through various mechanisms, including the Voluntary Cooperation Program — Governance Support, which makes it easier to send Canadians to carry out capacity-building initiatives within Haitian civil society organizations. Other CIDA mechanisms include a fund for partnership projects between Haitian–Canadian organizations and Haitian civil society and four local funds to which local organizations can apply.

The Canadian government would also like to contribute to the creation of a climate conducive to private investment. CIDA therefore funded the first consultation between the private sector and international donors. The Haitian private sector recognizes that restoring the rule of law is a priority in order to attract investors, and appreciates Canada’s efforts in this respect.

CIDA directly supports rural and local development projects. As part of this, a C$20 million integrated local development program was recently approved in order to support Haitian government institutions in developing a national local development policy and implementing a coordinating structure that will represent all local development stakeholders. The program also includes a $10 million fund to finance projects that help communities take ownership of their own socio-economic development. Also, CIDA-run agroforestry and river watershed projects have a strong environmental focus.

Environmental deterioration in Haiti remains a concern to the Haitian government and to Canada. Canada is working with the Haitian authorities and its international partners to ensure that priority attention is given to addressing environmental problems as Haiti develops its PRSP. The environment remains one of the cross-cutting themes of CIDA programming (as does gender equality). All CIDA projects must respect the guidelines of the Canadian Environmental Assessment Act, more specifically the Projects Outside Canada Environmental Assessment Regulations. Through this environmental screening process, opportunities to improve the environment are identified and potential negative impacts are avoided. Also, a number of CIDA projects have significant environmental benefits, including for example, the introduction of agro-forestry in local development and watershed management in the fertile Artibonite valley.

Lastly, it is important to note that Canada is engaged in constant political dialogue with the Haitian government and the international community to ensure that the partners collectively address all of the government’s priorities.

Recommendation 6

Canada should ensure that the voting infrastructures put in place are maintained and consolidated. With that in mind, it should provide more support, both financial and logistical, in order to ensure that the municipal elections, including those scheduled for December 2006, go ahead. These elections are essential in safeguarding all the work that has been done and ensuring that the government is not tempted to appoint mayors and thus perpetuate a situation that in the past was one of the biggest sources of corruption in Haiti.

Beyond continued electoral assistance; the Committee strongly supports long-term Canadian involvement in building sustainable institutions of democracy and good governance in Haiti. In particular, Canada should strive to strengthen Haiti’s parliamentary system to help enhance true voter representation of constituent communities in the national Parliament.

Response

In 2004, following the departure of President Aristide, Canada recognized the importance of holding prompt democratic elections in Haiti. The Montréal International Conference on Haiti, held in June 2005 and co-chaired by the governments of Canada and Haiti, allowed representatives of the Interim Government of Haiti, donor countries and friends of Haiti, financial institutions, as well as national, international, and regional organizations to reach a consensus on a concerted approach to the establishment of a secure and favourable environment for the holding of free and transparent elections in Haiti. Subsequently, Canada deployed significant financial, technical and human resources to support Haiti during the electoral process. Canada also demonstrated leadership throughout the process to prevent it from getting out of hand in the face of many political, logistical and organizational difficulties that arose along the way. From that perspective, the outcome of the electoral cycle in Haiti, with the holding of local and municipal elections on December 3, 2006, was a huge success for Haiti.

Canada invested over $35 million in Haiti’s 2005-2006 electoral cycle, including the presidential and legislative elections held in February and April 2006, as well as the local and municipal elections of December 3, 2006. This funding, most of which provided by CIDA, was used to organize the elections, to produce more than 3 million identification cards, to implement the International Mission for Monitoring Haitian Elections, led by Elections Canada, and to mobilize more than 200 Canadian short-term observers for the presidential and legislative elections. A portion of this funding came from DFAIT’s Global Peace and Security Fund and was used to procure communications equipment, to recruit 1,300 national security officers, and to deploy 25 Canadian police experts.

Canada was pleased with the local and municipal elections held on December 3, 2006, which ended an electoral cycle that was of particular importance for the reconstruction of democratic institutions in Haiti. Canada’s financial contribution to these local and municipal elections amounted to $5 million out of the above-mentioned $35 million. At the UN’s express request, Canada also redeployed a military officer to act, within MINUSTAH, as co-ordinator for the logistical support and security required for the elections, a role he had already played at the time of the presidential and legislative elections. Elections Canada was also present, directing the Canadian Mission for Accompanying Haitian Elections, with the deployment, from mid-October to mid-December 2006, of experts with the CEP and 22 international long-term observers throughout the area.

One of Canada’s main concerns throughout the electoral process was to consolidate the progress made and the knowledge acquired in developing electoral institutions. That is why, in addition to financing the deployment of Canadian observers, Canada contributed financially to the training of 3,000 domestic observers, who took part in the electoral process in 2006 (including 1,000 during the December 3, 2006 elections). These Haitian observers will be able to provide their expertise acquired in 2006 during the next electoral cycles. Throughout the process, Canada also emphasized the importance of enhancing local capabilities for organizing the 2006 electoral cycle. Within this context, it must be acknowledged that while MINUSTAH and the OAS played a major role during the presidential and legislative elections, it was the Haitian Conseil électoral provisoire that was responsible for most of the preparation for the elections of December 3, 2006. Moreover, the holding of local and municipal elections fulfils the constitutional conditions for creating permanent electoral institutions, which explains the importance of this final phase in the electoral cycle and the reason why Canada made the completion of the entire cycle a priority since the beginning.

Again in the aim of consolidating previous advances, Canada has committed with the Organization of American States (OAS) to supporting Haitian authorities in the development of a civil registry and in the transformation of the Interim Electoral Council into a more permanent body. The OAS already worked on a voters list prior to the presidential elections in the spring of 2006, and this list will be used as a basis for developing the national registry.

Canada considers that reinforcement of good governance and of parliamentary institutions is a priority that is fully reflected in CIDA’s interim strategy, in which the strengthening of the executive and the democratic institutions is part of the agenda. While continuing to provide technical assistance to key ministries during the transition, CIDA is developing, with the new government, a structured support program aimed at strengthening its management capacity to exercise its leadership in management and coordination of international aid, administrative modernization, modern human resources management and sound management of public finances. As for strengthening the legislative sector, CIDA is funding a project of the Parliamentary Centre that is aimed at providing technical assistance in order to increase Haitian parliament’s efficiency and capacities, in terms of its contribution to the good governance of the country. This project is built around four main components: strengthening the legislative and supervisory role of Parliament; improving the dialogue between the legislative and the executive; opening up Parliament to citizens; strengthening Parliament’s administrative office.

Recommendation 7

As part of the policy statements called for in Recommendations 1 and 2, Canada should formally commit to a “whole of government” strategy for Haiti that envisages involvement for at least 10 years and that indicates long-term funding — beyond the five-year allocations already announced in July 2006 — will be available to fully support this strategy.

Consideration must be given to the cancellation of Haiti’s multilateral and bilateral debt, which totaled some (US) $1.3 billion in 2005, of which the Haitian government is faced with payments of some (US) $60 million per year. Canada should work with other countries and international organizations towards the objective of canceling Haiti’s debt, in conjunction with the Heavily Indebted Poor Countries (HIPC) Initiative.

Canada should also work with and lend support to civil society organizations. A long-term aid strategy for Haiti must include both government and civil society.

Response

Canada acknowledges the importance of a whole-of-government, long-term approach in Haiti. Canada’s approach to date has included a number of key partners, such as Foreign Affairs and International Trade Canada (DFAIT), the Canadian International Development Agency (CIDA), the Department of National Defence (DND), and the Royal Canadian Mounted Police (RCMP), thus involving Public Safety and Emergency Preparedness Canada (PSEPC). Close cooperation among those partners, enhanced by ad-hoc contributions from other departments, such as Finance in connection with debt relief and Justice in defining possible Canadian initiatives in that sector, has helped Canada to adapt its activities as the situation evolves on the ground and to respond quickly to emergencies since 2004. That being said, Canada acknowledges that with the establishment of a new democratic government in Haiti and the adoption of a development plan that fleshes out the country’s longer-term needs and priorities, other Canadian government departments will be making more substantial contributions in the coming years.

Canada has learned from past mistakes and is committed to accompanying Haiti over the long haul. During his first conversation with President-Elect Préval in February 2006, the Prime Minister assured him that Canada’s commitment would be ongoing and long-term, an assurance that was reaffirmed during President Préval’s visit to Canada in May. During bilateral talks with key partners and multilateral meetings, Canada continues to affirm that Haiti’s reconstruction is a large-scale undertaking which calls on the ongoing commitment of the international community. In an inter-American context, Canada is demonstrating the political will needed to keep Haiti on the front burner.

Canada has positioned itself as a leader and model for other donors and partners involved in Haiti. At the International Donors Conference for Haiti in Port-au-Prince in July 2006, Canada was the only donor to make a five-year commitment. The Canadian approach is flexible and will adapt to the long-term needs and priorities that will be identified shortly in the Poverty Reduction Strategy Paper, which the Haitian authorities are finalizing for late 2007 or early 2008. The Paper will serve as the new strategic framework for the donor community.

Indeed, Canada’s efforts in Haiti go beyond government departments alone. Elections Canada, for example, has played a key role in accompanying Haiti during its electoral process. Other organizations are active in Haiti, including Rights and Democracy and the Parliamentary Centre. The Province of Quebec, which is home to a sizeable Haitian diaspora, is also a key player in the process. The Haitian diaspora in Canada is also very active and plays an important role in Haiti’s reconstruction, including through private-sector initiatives. CIDA is working with a number of organizations representing the diaspora, including the Regroupement des organismes canado-haïtiens (ROCAHD). Also noteworthy is the important role played by Canadian civil society, which has maintained close ties with Haitian society for a number of years.

For many years, Canada has supported Haitian civil society significantly in light of the weakness of the country’s government institutions. With a new government in place, Canada is now working to strengthen government’s capacity to deliver services to citizens. Support from civil society is still important. Canada acknowledges that civil society plays a key role in working with government authorities to strengthen democracy and the rule of law. Canada is thus seeking to strike and maintain a balance between its support for government and its support for civil society organizations.

Canadian civil society has played a major role over the years to support institutional capacity-building in Haiti, including the development and execution of development projects and engaging in dialogue with the Haitian government. Canadian institutions, NGOs and universities have worked in Haiti, starting with Quebec religious institutions, and close ties have been forged between the residents of both countries. Those ties are still one of the cornerstones of Canadian cooperation in Haiti.

CIDA’s Canadian Local Fund Management Centre is responsible for allocating a variety of local funds centred on democracy, health and education, economic development and employment, and gender equality. Those funds help CIDA to respond quickly to initiatives and funding applications submitted by Haitian, Canadian or international organizations based in Haiti. For example, the Democracy and Peace Support Fund supports good governance and human rights; the Fund for Support of Justice and Human Rights supports initiatives by civil society organizations (CSOs) to advance justice, democracy, national dialogue and human rights in Haiti; the Kore Famn Fund — Phase II is geared to enhancing the effectiveness of activities and Haitian institutions and organizations to promote, protect and defend women’s rights and stop violence against women; the Health and Education Fund is designed to help meet fundamental human needs in basic education and primary health care; and the Economic Development and Employment fund helps promote job creation by supporting economic and community opportunities for grassroots empowerment, and by supporting rehabilitation and social and economic infrastructure construction projects as key elements for local socio-economic development.

Canada has also demonstrated leadership on the debt issue, working with various international partners to support Haiti’s efforts to obtain forgiveness of its bilateral and multilateral debt. Canada has taken a whole-of-government approach to this issue, including support from the Department of Finance, DFAIT and CIDA. Canada has encouraged creditors to forgive Haiti’s debt, as the country has made substantial efforts to put its macroeconomic house in order and beef up domestic security. In that context, Canada has contributed C$15.8 million since 2004–2005 to clear Haiti’s arrears to the World Bank — which enabled Haiti to receive additional assistance from the Bank — and C$18 million towards Haiti’s arrears to the Inter-American Development Bank. More recently, CIDA also undertook a C$16 million project that will help Haiti service its debt to the IDB and also strengthen Haiti’s debt management capacities.

In late 2006, Haiti entered the enhanced Heavily Indebted Poor Countries Initiative (HIPC) and began receiving debt relief from bilateral and multilateral creditors. Within the World Bank and IMF system, Canada was one of the primary advocates of Haiti’s inclusion in HIPC. With Canada playing a leading role, the Inter-American Development Bank has also decided to grant debt relief to Haiti. It is estimated that the HIPC Initiative would provide debt relief totalling US$212.9 million (approximately US$140 million in NPV terms). Upon completion of the HIPC process, Haiti would qualify for further debt relief from the World Bank, which could amount to US$464.4 million (US$243.3 million in NPV terms). Following Haiti’s inclusion in HIPC, the Paris Club of bilateral creditors, including Canada, provided Haiti with an unprecedented level of interim debt relief — 100% moratorium on service due. Canada intends to work with the international community to cancel all eligible debts by Haiti once it complete the HIPC Initiative. It is expected that after full application of debt relief mechanisms, Haiti’s external debt in NPV terms would fall from US$1.3 billion to US$480 million when it successfully completes the HIPC process.

Debt relief will open important fiscal space for the Government of Haiti to redirect financial resources towards initiatives that reduce poverty and improve the lives of all Haitians. Without this assistance, Haiti’s development would be slowed by the need to continue to devote considerable resources to debt payments.