Analysing the United Nations Development Programme Organisation in Saudi Arabia
The UNDP or the United Nations Development Programme is a development organization of the United Nations, and is the United Nation’s (UN) largest funding provider of Human development. It was based on the integration of the UN’s expanded programme of technical assistance, which was created in 1949. The UNDP was established in 1965 by the General Assembly of the UN. In most country offices, the UNDP representatives serve as coordinators of developmental activities for the United Nations system as a whole. UNDP’s headquarters are located in New York and has cooperation offices in Geneva, Brussels, Copenhagen, Tokyo, and Washington D.C. It is an international organization, grounded in 166 countries, and has the benefit of international networks and the support of the many UN agencies and other networks.
Through such coordination, the UNDP seeks to ensure the most efficient use of UN’s international aid resources. In addition, the UNDP aims to protect human rights and the empowerment of women. UNDP Saudi Arabia was established in 1965 to act as a development partner to the Saudi government in various projects and fields. Since then the UNDP has formed its services in harmonisation with the country’s development needs. The key area for its operation is broadly developmental aiming for 1) poverty reduction 2)democratic governance 3) energy and environment 4) Crisis Prevention and Recovery 5) halt the spread of HIV/AIDS.
The UNDP Saudi Arabia country office is a relatively small office, with a total of twenty-three staff members. The office is divided to four main units, namely, the resident coordinator unit (UN Resident Coordinator UNDP Resident Representative, UNDP Deputy Resident Representative, and Executive Assistant to the Resident Representative), the programme implementation unit (Programme Coordinators, Programme Associates, and Programme Assistants), the knowledge performance management unit (Coordination Associate, Coordination Assistance, LAN Manager, and the Programme Support Associate), and the business service centre unit (Procurement Associate, Accounts and Finance Associate, Human Resources Associate, Admin Assistant, Human Resources Assistant, Information & Registry Assistant, Admin Clerk and drivers).The hierarchy of these positions is evident throughout divisions and position titles used in the office.
The UNDP Saudi Arabia was among the first office that applied “the paperless office system”, thus, benefiting from the best communication and information systems available. It ensures quality services, by becoming the leader of the pilot project of UNDP movement towards paperless offices. The UNDP provides services using all available media such as the Internet, television and newspapers, and as well as conference calls and brochures. It also uses media to enable face to face meetings, workshops and press conferences. It is a very reliable source of information, offering a UNDP intranet, in addition to a variety of unpublished documents.
Social context and Mission Statement of UNDP Saudi Arabia
The essence of the UNDP Saudi Arabia was agreed upon during an office retreat in Sharm El Sheikh, Egypt in 2004. This is where it stated its mission as development knowledge based organisation connected to the UNDP global development network partnering with the government of Saudi Arabia and civil society, aiming for human development and the implementation of the Millennium Development Goals.
In line with the Kingdom’s development priorities, UNDP Saudi Arabia targets its work to selected number of services. The tackled areas are customized to meet some of the challenges raised in Saudi Arabia’s Eighth Development Plan. The UNDP’s focus in Saudi Arabia has shifted in recent years from providing services and assistance in infrastructure to providing assistance in terms of implementation of strategies and planning. This is in relation to its multi-year funding framework, which is its main policy document and strategic management instrument that integrates programme directions and organizational strategies into a single framework. Another policy related to such strategies and planning is the strategic planning at the level of the country, which involves intended outcomes as well as annual targets towards these intended outcomes. The recent forms and evolving needs of the country directed the UNDP programmes into some new channels by adapting its strategy to the provision of services the UNDP kept in line with the government’s strategic plans, playing an invisible role in helping transform the society and empower key social factors.
The Saudi Ministry of Economy and Planning declares that “The Eighth Development Plan has been prepared, with a wide strategic vision of the economy and development that is directed to achieving sustainable development. In its quest to reach its ultimate goal, the Plan draws on the set of General Objectives and Strategic Principles approved by the Council of Ministers. In addition, the plan also draws on some strategies approved by several government agencies, such as the Strategy on Improving Living Conditions of All Citizens, the Privatization Strategy, the National Spatial Strategy and the Manpower Development Strategy, which have been relied on in preparing the Eighth Plan.” The UNDP Saudi Arabia work plan draws heavily on these objectives and works in line with its development strategies by providing consultancy services or training support.
Strategic action and methods of work
UNDP Saudi Arabia’s strategic aims are available through an unpublished document of the MYFF (Multi Year Funding Framework). This document is a vital planning tool for UNDP Saudi Arabia. The UNDP user guide explains the meaning and the purpose of the MYFF as “integrat[ing] programme directions and organizational strategies into a single framework.”
“The strategic planning at the level of the country/regional programme engages intended outcomes as well as annual targets towards these intended outcomes. Intended outcomes are usually established at the beginning of the programme cycle for the duration of the programme. Annual targets are set on a yearly basis towards intended outcomes. Country/regional programmes then critically reassess and report on results as part of the on-going efforts under the MYFF to help country and regional programmes manage more efficiently for development results” (UNDP intranet, user guide, strategy and planning).
UNDP Saudi Arabia SWOT Analysis
Strength
Weaknesses
- World Wide development Network
Professional experts
- Success stories and experiences to be shared globally
- Local professional staff
- Funded by the government
- Transparency
- Accountability
- International recognition
- Vast roster of tried and true experts
- Main partners are the government
- Being an NCC office – Net
Contributing countries funded by the government
- No track money
- Bureaucratic
- Does not make a tangible difference to the society
- consultancy service provider
Opportunities
Threats
- Vital partnerships
- New initiatives with private sector
- UNDP allows seed money for Saudi Arabia so projects could be launce and make a very tangible change
- Being funded by the government threatens the power of UNDP work and programmes where it is forced to follow the governments agenda and plans
- Dependency on the Ministry of Foreign Affairs threatens UNDP Saudi Arabia situation if the Ministry was not happy with the work produced or does not agree with on a future partnership which really limits UNDP’s ability to make a real difference or change
The strengths of UNDP Saudi Arabia enable the organization to come up with new plans ready for implementation and with collaboration with other countries. The new programs, which are under its five-year plan, were a result of the society’s study of its current situation, including the health of its citizens. In addition, these strengths further gather the support of a number of government and non-government institutions in Saudi Arabia, which can help the organization to achieve their plans. However, despite such strengths, weaknesses can still be identified, and these weaknesses would hinder the organization from functioning effectively in the society. Because primary funding of the organization is the government, this entails a slow flow of money, as the budget and financial resources of the government are allocated in different functions of the government. However, if UNDP seeks support from private firms, then there is a higher chance of obtaining larger amounts of financial support. In addition, because the organization lacks the financial support, it would be more challenging for the organization to achieve their goals, and to make a difference in the society. On the other side of the coin, such weaknesses can be overcome through the organization’s opportunities, as stated in the SWOT analysis table. These opportunities would provide additional options or alternatives for the organization, from which it could obtain its needed resources. However, it would be more useful, if the organization would continually use its research and development functions in order to locate or find other means that would help the organization with their plans. The threats listed in the table refer to the possible limitations that the organization would encounter given the variety of external factors that may affect the operations of the organization. In this regard, a strategic and effective business plan must be made by the organization in order to provide answers or anticipate the number of threats that it may encounter.
Stakeholders
UNDP Saudi Arabia stakeholders are government agencies, including private and the public sector. However, due to being a Net Contributing Country office, it cannot engage with stakeholders independently and must pass through or actually inform and acquire the permission of the Ministry of Foreign Affairs first and then establish the connection and partnership or cooperate with the approaching/ approached agency.
The Ministry of Foreign Affairs (MOFA) is considered the godfather of UNDP Saudi Arabia, which cannot accept any projects or agree on any form of cooperation without MOFA approval – represented by two deputy ministers, the deputy minister for Economic and Cultural Affairs and the deputy minister for Political Affairs and Head of the Department of International Organizations.
Extent of stakeholder participation
Most of UNDP Saudi Arabia’s projects are nationally executed (NEX) () according to the UNDP evaluation office. “National execution is the culmination of a long process of translating the evolving desires of member countries, as represented in the General Assembly and the Governing Council, for increasing the significant involvement of recipient countries in UN programmes.” As such projects require, on the one hand, the complete and total participation of stakeholders, and on the other being an NCC country office requires stakeholder participation and approval at all levels of project implementation. That is a logical requirement since the projects are funded by the stakeholders who create an ownership relationship with the specific project and thus more direct involvement.
How does it work with other organisations / groups?
Partnerships
The UNDP work system is designed on the basis of building partnerships with other agencies and organizations. The main partners are the government agencies and ministries (Regional Municipalities). There are also partnerships with other agencies such as the Saudi Arabia General Investment Authority (SAGIA), Arab Gulf Programme for United Nations Development Organisation (AGFUND), and the Saudi Food and Drug Authority (SFDA). It also maintains partnerships with the United Nations sister agencies (such as UNICEF, UNFPA, and WHO) in programmes of common interest and to establish a network to provide the programme with quality service and efficiency.
Partnerships with such agencies provide the UNDP Saudi Arabia a good means of communication and guidance, as these partnerships enable the organization further understand the condition of the society and its needs. Partnerships include its cooperation with the World Trade Organization or WTO, which would help ensure the sustainable future growth of the country, including maximizing its integration in the global economy. With its cooperation with SAGIA or the Saudi Arabian General Investment Authority, MOEP, and the Ministry of Commerce and Industry or MOCI, the organization has helped introduce policies and programmes in relation to economic diversification, growth, and sustainability. The extent of such partnerships would entitle the organization to support the attainment of a number of goals including trade promotion, increased domestic and foreign investments, strengthened competitiveness, and exploring new investment options, such as in the field of science and technology and knowledge economy. In addition, aside from sustainable growth and development, such partnerships also provide the organization with funding or financial support, including expertise, which would help the organization obtain and attain its short and long-term goals.
Network
As an agency within an Arab state, its networks are connected mainly with the Sub-Regional Resource Facility for Arab States or SURF-AS, which is a key player in “helping the country build and share solutions to the challenges if faces within the overarching framework of the millennium development goals” (UNDP SURF-AS).
These networks provide the UNDP with information services, thus, becoming the means of the organization to obtain relevant or credible information that can be used for developing new policies or actions. In this regard, the MDG or the Millennium Development Goals and the Human Resource Index become relevant. Such networks provide information on the different aspects of society, including the economy, health, crime rate, special needs, science and technology, youth and women, and many others. Specifically, such information networks provide information on drug abuse and crimes in the country, which can be analyzed in order to provide solutions and treatment to individuals concerned. In addition, information regarding the condition of other neighboring countries can also be obtained, thus, can be used as a basis for comparison and source of data that can be used to improve conditions in Saudi Arabia.
The Organization’s Activities
The UNDP’s activities are divided into five categories or “practice areas”, where each area is subdivided into a number of “service lines”.
UNDP-buzzwords and what they say about the organization
The and (2005) study of the use of buzzwords in development policy highlight how UNDP Saudi Arabia makes use of various buzzwords in their website or project documents. Such words are also used in describing themselves, as part of the discourse of the developing world, associating words such as ‘satisfaction’ with ‘partnership’ and ‘respect’ to emphasize the basic strategy in which the UNDP work, stressing shared responsibility and commitment. In addition, the UNDP uses terms such as, “in partnership with” and “building [a] partnership with”.
The use of words such as ‘aid’, ‘assist’, ‘contribute’, ‘cooperate’, ‘provide consultancy’, ‘coordinate with’, ‘advisory’, ‘strengthen’ and ‘support’ is not value neutral. According to and these words “carry an allure of optimism and purpose as well as considerable normative power” (2005: ). In the case of UNDP Saudi Arabia the choice of language symbolizes something wider, how the organization sees itself as well as integrates its vision within the dominant government discourses. This means there is a use of either cautious language, or of a language which – typically of a bureaucracy – signifies more than it delivers in meaning. Nonetheless, the language used indicates strongly the power/fiscal relationship between the host Saudi government and the UNDP organization. The employment of buzzwords in the UNDP literature unmistakably says a lot about the organisation’s position, its strategies and organizational framework. “Words that are used in development policies do more than provide a sense of direction; they lend the legitimacy that development actors need to justify their interventions” ( and , 2005:) according to the the following buzzwords are the most commonly used: “best / good practice”. These refer to past successful projects and advocacy in other countries of UNDP procedures. Typically the idea connoted by the buzzword is vague – it sounds positive, rational and even thoughtful, but may only be a way of obscuring bureaucratic perceptions, and a poverty of real change. “Civil society”, a term often used in UNDP documents, publications and websites referring to the web of social organisations from NGOs (Non-Governmental Organisations) through independent media, religious organisations and business associations. Again it is a vague term that may obscure real relationships to systems of power and patronage. In Saudi Arabia it should be remembered that “civil society” – whatever it’s meaning in a European context – has a very different meaning. Organisations are mainly profiled as charities, often with a member of the royal family – an Al-Saud – as a board director, as well as elite individuals from Saudi society as members of the board. Suddenly the idea of “civil society” has a quite different meaning for UNDP Saudi Arabia.
‘Efficiency’ and ‘effectiveness’ are commonly used in UNDP. Efficiency refers to performing actions in the shortest time possible; while effectiveness means achieving something in the finest, most careful way possible. Thus there is a shift from the use of these words in the UK or US contexts. Both terms are principally used in project documents and throughout project implementation processes. They may reflect a certain superficiality of judgment, and even have an impact on the results of UNDP projects. ‘Empowerment’ is a popular term in UNDP discourse, used often to suggest the political or social empowerment of individuals. In other words, it is a term seeming to aim to encourage people to become vigorous agents of change, to encourage them to take part in decision making, or directly to influence the decision making processes that affects their lives. The word “retains a prominent place in agencies’ policies concerning gender, but often appears in a diluted form neutralizing its original emphasis on building personal and collective power in the struggle for a more just and equitable world” ( and , 2005: ). This is important. The word may sound politically engaging, may suggest political and social change, but since it is contained within UNDP documentation for the consumption of an elite Saudi group its meaning may, in fact, be inverted. Empowerment in any situation does not come from documents it comes from acts and changes in structure – neither of which is likely to be the result of a buzzword in a document.
‘Mainstream’ – in terms of issues of gender, youth, unemployment and poverty – works in a similar way to ‘empowerment’: by embedding references to real political issues within documents about current projects, the UNDP implies some reference to society, to the public, to “the Common-peoples minds … like clean paper” (, 1968: ). But this is a diplomatic-speak that removes the real public – who may be unpredictable – and replaces them with a controllable buzzword that allows some control over inferences. The constant use of phrases like ‘reducing poverty’ “for example, rings with measurability, and harks to the rationality of policies that can bring poverty into check” ( and , 2005: ), yet mean little because they exist mainly to satisfy the need to refer to the idea rather than the idea itself. Similarly, ‘Poverty monitoring’ and ‘poverty alleviation’ “[carry] quite a different set of meanings, a making better rather than making-less” ( and , 2005: ), while ‘eradicating poverty’ is used “to evoke another world altogether”.
UNDP Saudi Arabia, according to a staff member known to the writer, does not challenge anything. Instead, it advocates gently, using a very low profile and takes its advocacy a notch higher only when it is felt this may be acceptable to the government, specifically the Ministry of Foreign affairs (MOFA). The reason for this lies in the host relationship of the organization with the government, as UNDP works and functions in partnership with the government.
Success and failure
The number one measure of success for UNDP worldwide – and UNDP Saudi Arabia – is programme delivery, which entirely affects its impact in the society. This means how much of the annual budget has been spent on the designated programmes. As long as such delivery is high and the budget is spent, the more successful the office feels itself to be: this is a purely financial standard in UNDP. Spending of itself doesn’t connote levels of success or failure. There are other methods to measure the organisation’s success and the quality of its work, such as annual auditing, the balance scorecard[1] that “enables organisations to measure and evaluate goals of a business strategy” (UNDP intranet), and the annual country office strategic plan, as well as the Multi-year Funding Framework.
All of these methods are reported to the UNDP resident coordinator, and thus on to the government (MOFA) as well as the partner agencies or ministries in addition to the UNDP headquarters in New York. If a flaw is indicated in the methods and processes, UNDP Saudi Arabia’s staffs assign an internal committee to review their strategies to improve the situation and insure success. Like the use of buzzwords, this is a closed, internal system with little contact with forces outside UNDP Saudi Arabia or the UN. Success or failure may, therefore, mean much less than they should.
In Saudi Arabia, the UNDP’s influence is not very great. However, on some issues it has had an impact, for example the Women and MDG Forum[2] held in December, 2005 which resonated beyond the organization into wider Saudi society. The fact that there was a resultant, wider debate suggests this Forum had an impact[3], though what may be impossible to assess. In this regard, the weaknesses of the organization, as stated in the SWOT analysis can be referred to in order to emphasize the lack of its impact in the society. Because of this, evaluation and assessment to measure the success of the programmes in the Kingdom would be done in order to strengthen the process. Its lack of impact in the society forced directors and officers from other countries, such as the United States to conduct a survey and evaluation, which aims to further improve the functions of the UNDP in the Kingdom (:2007). The results of such surveys can be perceived as a form of relevant information, which can be used by the country in order to provide services to its people.
Another example for the influence UNDP Saudi Arabia could have on some issues is in the area of local governance, where in partnership with Prince Sultan University in Riyadh a local governance forum was held in November, 2005[4]. However, the resulting social impact in terms of debate was too uncontrollable for the government and the office was requested, through MOFA, to hold back.
Conclusion
The UNDP is an internationally well-recognized organisation, on the ground in 166 countries globally, varying from governmentally funded offices to donor funded offices.
In terms of UNDP Saudi Arabia, the fact that where debate has spilled over from UNDP-sponsored forums into Saudi society there has been official attempts to control the results, suggests that any presence of an organization has some effect. On the other hand, the actual results of these forums, of the UNDP’s efforts may be difficult to measure. The use of high-sounding buzzwords may be some indication of the real effect in terms of social change in Saudi Arabia: they seem to act like buffers, protecting the reality of the Saudi political elite – linked intimately to the UNDP – from any real political pressures. There is no real Leviathan, in Hobbes’s sense, nor an attempt to build one, only a fear or what wider debate may bring. and (2005) are correct to draw attention to the smoke and mirrors of buzzwords used by organizations such as the UNDP. The meaning of such words is constrained by the UNDP’s relationship to its host government, and therefore the effect of the UNDP as an organization is likely to be similarly constrained. NGOs exist awkwardly between a public and its government. In terms of the UNDP it seems that in order to exist there has been a compromise – not unusual among UN organizations – that suggests this NGO only touches real social movements occasionally and accidentally, and when it does – for example when it touches the discourse of female emancipation and equality – the host government moves quickly to disengage the two.
Bibliography:
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