Strengthening Parliamentary Accountability, Citizen .
Strengthening Parliamentary Accountability,Citizen Engagementand Access to Information:A Global Survey of Parliamentary Monitoring OrganizationsAndrew G. MandelbaumSeptember 2011National Democratic InstituteandWorld Bank Institute
Strengthening Parliamentary Accountability,Citizen Engagement and Access to Information:A Global Survey of Parliamentary Monitoring OrganizationsAndrew G. MandelbaumSeptember 2011National Democratic Institute and World Bank Institute
NATIONAL DEMOCRATIC INSTITUTEThe National Democratic Institute (NDI) is a nonprofit organization working to strengthen andexpand democracy worldwide. Calling on a global network of volunteer experts, NDI providespractical assistance to civic and political leaders advancing democratic values, practices andinstitutions. NDI works with democrats in every region of the world to build political and civicorganizations, safeguard elections, and promote citizen participation, openness andaccountability in government.WORLD BANK INSTITUTEThe World Bank Institute (WBI) is a global connector of knowledge, learning and innovation forpoverty reduction. It is part of the World Bank Group. WBI connects practitioners, networks andinstitutions to help them find solutions to their development challenges. With a focus on the―how‖ of reform, WBI links knowledge from around the world and scales up innovations. WBIworks with and through global, regional and country-based institutions and practitioner networksand helps them develop customized programs that respond to their needs. WBI connects globallyand delivers locally.***********This paper is the product of cooperation between NDI and WBI. It was produced by a consultant,who has since become an employee of NDI. The findings, interpretations and conclusionsexpressed in this paper do not necessarily reflect the views of either organization, their directors,or, in the case of WBI, the governments they represent. Neither NDI nor WBI guarantees theaccuracy of the data in this work.Copyright National Democratic Institute (NDI) and World Bank Institute (WBI) 2011. Allrights reserved. Portions of this work may be reproduced and/or translated for non-commercialpurposes provided NDI and WBI are acknowledged as the sources of the material.iNational Democratic Institute World Bank Institute
AcknowledgmentsThis report represents the culmination of a joint research project on parliamentary monitoringorganizations conducted by the National Democratic Institute (NDI) and the World BankInstitute (WBI). The author is grateful to both NDI and WBI for their generous support of thisinitiative. The project was managed by Scott Hubli and David Kuennen of NDI‘s GovernanceTeam, and Rick Stapenhurst, Mitchell O‘Brien and Deena Philage of WBI‘s ParliamentaryStrengthening Program. These individuals, as well as Koebel Price, Marcos Mendiburu, LaceyKohlmoos and Jared Ford provided valuable feedback on the draft document. CatherineRobinson and Antonia Haber also furnished useful comments and much appreciated assistance.The author would also like to express appreciation to the many individuals at parliamentarymonitoring organizations (PMOs) and other organizations who have contributed to the project. Itis hoped that this document will commence a thoughtful discussion on parliamentary monitoringand the important roles that PMOs can play in promoting stronger democratic parliaments. Theauthor would like to acknowledge the National Endowment for Democracy for its continuedsupport of NDI‘s parliamentary monitoring activities.Cover CreditsImage of the legislatures of Argentina, Colombia, Peru, Chile and Mexico: Latin AmericanNetwork for Legislative Transparency (www.transparencialegislativa.org).Image of timeline: RegardsCitoyens.org (www.nosdeputes.fr).Image of plenary: Fundación Ciudadano Inteligente (www.votainteligente.cl).Cover design: Marc Rechdane.About the AuthorAndrew G. Mandelbaum currently serves as a senior program officer with NDI‘s GovernanceTeam, having previously served as a consultant to WBI and NDI on this project. Prior to thistime, Mr. Mandelbaum spent two years in Morocco consulting for international developmentprojects. Clients included the State University of New York Center for InternationalDevelopment‘s Moroccan Parliamentary Support Project and the U.S. Agency for InternationalDevelopment, among others. Mr. Mandelbaum, who speaks Arabic, has also worked on theMuslim World Initiative at the U.S. Institute of Peace. He holds a B.A. in Public Policy Studiesfrom Duke University and an M.A. in Democracy and Governance from GeorgetownUniversity.iiNational Democratic Institute World Bank Institute
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Table of ContentsTable of Contents . ivTable of Abbreviations . viExecutive Summary . 11. Introduction . 5The Research Project on Parliamentary Monitoring Organizations . 7Definition of ―PMO‖ and Methodology . 82. International Context . 11Parliamentary Informatics. 11International Donor Assistance for Parliamentary Strengthening . 13The Convergence of Parliamentary Strengthening and Parliamentary Informatics . 153. Characteristics of PMOs . 17Survey Participation . 18PMO Functions and Activities. 19Who PMOs Monitor . 22Challenges Facing PMOs. 22Sources of PMO Funding . 23Factors That Determine Activities Conducted by PMOs . 244. Monitoring Individual MPs . 27Background Information . 27Parliamentary Attendance and Participation. 30Parliamentary Debate and Public Statements . 31Oversight Tools. 33Legislation and Voting Records . 34Constituency Service and Constituency Development Funds . 38MP Financial Disclosures and Political Finance . 40Summarizing Performance Data for Individual MPs . 415. Monitoring Parliaments . 47Parliamentary Background Information . 47Assessing Parliamentary Activity and Functioning . 48Comprehensive Parliamentary Performance Monitoring . 55Legislative Tracking and Explanation . 58Transparency and Openness . 60ivNational Democratic Institute World Bank Institute
6. Good Practices in Parliamentary Monitoring . 65Increasing Transparency of Parliamentary Information . 65Sustaining Funding for PMOs . 67Overcoming Parliamentary Resistance to Monitoring. 68Effective Use of Parliamentary Informatics for Monitoring Parliaments . 71Using Parliamentary Monitoring to Support Reform and Reinforce Public Activism . 73Developing Effective Outreach to the Media . 75Using Sound Methodologies and Reporting Practices . 767. Preliminary Recommendations for the Donor Community. 79Appendix 1: List of Interviews. 85Appendix 2: List of PMOs by Region . 89Appendix 3: Selected Parliamentary Monitoring Resources . 101Appendix 4: Profile Sheets for Selected PMOs . 111Appendix 5: Sample PMO Survey Questionnaire . 227vNational Democratic Institute World Bank Institute
Table of MEPIMKSSMPMUHURINDINEDNGOviAmerican Bar Association Europe and Eurasia ProgramAsociación por los Derechos CivilesAfrican Leadership InstituteAfrican Legislatures ProjectAffiliated Network for Social AccountabilityAssemblée Parlementaire de la FrancophonieBalkan Trust for DemocracyCentre for Analysis and Prevention of CorruptionGhana Center for Democratic DevelopmentConstituency Development FundsCanadian International Development AgencyCommittee for Free and Fair Elections in CambodiaCommonwealth Parliamentary AssociationCongressional Research ServiceCivil Society OrganizationDanish International Development AgencyUK Department for International DevelopmentEuropean CommissionFriedrich Ebert StiftungFriedrich Naumann StiftungFree and Fair Election NetworkFreedom of InformationFreedom of Information Center of ArmeniaFundación Directorio LegislativoFundación Democracia sin FronterasInternational Budget PartnershipInformation and Communications TechnologyInternational Institute for Democracy and Electoral AssistanceInstitute for Public PolicyInter-Parliamentary UnionInternational Republican InstituteKonrad Adenauer StiftungKosova Democratic InstituteLatin American Network for Legislative TransparencyCenter for Research, Transparency and AccountabilityNetwork for Affirmation of NGO SectorMember of the European ParliamentMiddle East Partnership InitiativeMazdoor Kisan Shakti SangathanMember of ParliamentMuslims for Human RightsNational Democratic InstituteNational Endowment for DemocracyNon-governmental OrganizationNational Democratic Institute World Bank Institute
OECD DAC Organisation for Economic Co-operation and Development,Development Assistance CommitteeOSCEOrganization for Security and Co-operation in EuropeOSIOpen Society InstituteOSIEAOpen Society Institute of East AfricaPACPublic Accounts CommitteePILDATPakistan Institute of Legislative Development and TransparencyPMGParliamentary Monitoring GroupPMOParliamentary Monitoring OrganizationPRSPRS Legislative ResearchRIPTRegional Index of Parliamentary TransparencySAHRSouth Asians for Human RightsSIDASwedish International Development Cooperation AgencySDCSwiss Agency for Development and CooperationTITransparency InternationalTIBTransparency International BangladeshTIGTransparency International GeorgiaTISAThe Institute for Social AccountabilityUKUnited KingdomUNDEFUnited Nations Development FundUNDPUnited Nations Development ProgrammeUSUnited States of AmericaUSAIDUnited States Agency for International DevelopmentWBWorld BankWBIWorld Bank InstituteviiNational Democratic Institute World Bank Institute
Executive SummaryBackgroundDuring the past decade, parliaments have received increasing attention from the internationaldevelopment community. Citizens and civil society organizations have also realized theimportance – or, in some instances, the potential importance – of parliaments to democraticgovernance, due to their roles in lawmaking, conducting executive oversight, and representingcitizens and their interests. As a consequence, citizen-based groups have begun to monitor orassess the functioning of parliaments or their individual members, often seeking to facilitate andpromote public knowledge of, and participation in parliamentary processes. These parliamentarymonitoring organizations (PMOs) have shown promise in strengthening a number of componentsof democratic governance, including the accountability of parliaments to the electorate, citizenengagement in the legislative process and access to information about parliaments and theirwork. To a lesser extent, they have shown the capacity to encourage parliamentary reform.Given the lack of research on PMOs, the National Democratic Institute (NDI) and World BankInstitute (WBI) undertook a joint project to: 1) identify PMOs worldwide and collect basicinformation regarding their activities; 2) document good practices in parliamentary monitoring,and; 3) suggest recommendations for the international donor community regarding PMOs. Tomeet these objectives, the project conducted a survey of PMOs, analyzed their websites and otheroutputs, and interviewed a range of individuals at organizations involved in conducting orsupporting parliamentary monitoring activities.Project Findings Over 191 PMOs monitor more than 80 national parliaments worldwide. Theseorganizations are scattered throughout the world, but most are found in Latin America (42)and Central and Eastern Europe (28). According to project survey results, most PMOs (94percent) monitor national parliaments, while 24 percent monitor sub-national legislatures.Many of these PMOs focus on monitoring the activities and performance of individual MPs,although many also monitor parliaments as institutions, or the components of theparliamentary institution, such as parliamentary party groups or parliamentary committees. While a wealth of good practice information exists, the overall quality of PMOmethodologies and interventions remains mixed, and sharing good practices amongPMOs is limited. Some PMOs focus on monitoring the limited information that they canaccess, regardless of relevance, rather than advocating for transparency of more significantparliamentary information. Regional networking has commenced in Latin America, withsupport from the World Bank, and in the Middle East and North Africa, but represents arecent development.1National Democratic Institute World Bank Institute
Major challenges facing PMOs include limited access to information, insufficientfinancial support from local and international sources, and parliamentary resistance totheir activities. Access to parliamentary information remains a common challenge for PMOsglobally. Although parliaments often hesitate to support PMO activities – questioning theirpolitical allegiances or the methodologies used to assess parliamentary performance orfunctioning – some PMOs have successfully advanced monitoring through a morecollaborative model that is supportive of the institution or through participating ininternational monitoring activities. In countries receiving international developmentassistance, donor support is a critical source of funding for 86 percent of PMOs. Although ahandful of PMOs in these countries have succeeded in developing other sources ofsustainable funding, few PMOs offer funding models that appear transferable toorganizations in other countries. The application of information and communications technologies (ICTs) toparliamentary work, known as “parliamentary informatics,” is a rapidly growing trendin parliamentary monitoring. These tools can automatically aggregate and organizeinformation from parliamentary websites and other information sources, generatevisualizations (such as political finance maps), and create new platforms for citizens tointeract with MPs or participate in parliamentary monitoring and policy analysis.Parliamentary informatics, which are used by approximately 40 percent of PMOs surveyed,are oftentimes delivered through user-friendly and visually attractive websites. While theyhave proven effective in many instances, the most useful informatics tools require theavailability of parliamentary data in machine-readable or ―open data‖ formats, which remainsa challenge in many contexts. The impact of some PMOs has been limited by a lack of capacity to translatemonitoring into greater public awareness or advocacy. While the act of monitoring isvaluable in itself, its impact can be muted if quality information fails to improve citizenunderstanding of parliaments, or stimulate or inform parliamentary reform efforts. SomePMOs have invested more in monitoring than in developing an advocacy strategy or publicawareness campaign based on their monitoring results, with many of these limiting theiroutreach or advocacy strategy to printing of a report and conducting a press conferenceannouncing its release. PMOs vary in their approaches to parliamentary monitoring, with some taking moreadversarial stances toward parliaments and others choosing a more collaborativecourse. Some PMOs have found it helpful to complement monitoring activities with moreconstructive approaches that support legislative development. PMOs, as well as donororganizations that support them, should consider whether monitoring activities are designed2National Democratic Institute World Bank Institute
to stimulate democratic reform and improved governance, or whether they may serve insteadto increase public cynicism of politics and government. The international donor community can encourage effective parliamentary monitoringby:o continuing medium- to long-term investments in PMOs that allow them time to developtheir approaches and methodologies by forging credible and effective workingrelationships with MPs;o working with PMOs to help them translate quality parliamentary monitoring intosuccessful advocacy for reform and constructive parliamentary engagement;o supporting networking and peer-to-peer sharing among PMOs to consolidate effectiveactivities and tools, and encourage the use of good practices throughout the PMOcommunity;o supporting and engaging PMOs in efforts to improve parliamentary transparency,including the development of minimum transparency standards for parliaments, indicesof parliamenta
parliamentary work, known as “parliamentary informatics,” is a rapidly growing trend in parliamentary monitoring. These tools can automatically aggregate and organize information from parliamentary websites and other information sources, generate
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making processes. Women parliamentarians are changing politics and redefining political priorities to in-clude women's views and concerns. The report highlights some of the ways in which women are also working to mainstream a gender perspective in parliamentary work, such as through parliamentary committees and women's parliamentary caucuses.
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3 For referenced ASTM standards, visit the ASTM website, www.astm.org, or contact ASTM Customer Service at service@astm.org. For Annual Book of ASTM Standards volume information, refer to the standard’s Document Summary page on the ASTM website. 4 Withdrawn. 5 Available fromAmerican Concrete Institute (ACI), P.O. Box 9094, Farmington
