Interviewed by the Brazil and the South Observatory's, Marina Larionova, who has participated in the group of Russian researches for the State of the Debate publication, share some of the aspects of SSC from a Russian perspective.
• What are the essential characteristics of Russian development cooperation?
Russia occupies a unique position in the international donor community. It used to be a major donor during the Soviet Union. After the disintegration of the Soviet Union it experienced a period of being aid recipient during economic slowdown. Since 2007 Russia has been creating, or rather “re-creating,” an international development assistance program and has become an active global development cooperation partner. Building coalitions with emerging donors and promoting new approaches to development in international institutions, e.g. G0 and BRICS, Russia also strives to become an OECD member and cooperates with DAC, including through reporting ODA statistics. Thus, Russia can be characterized as a ‘re-emerging’ donor.
However, currently the use of the Soviet time experience is almost limited to only geographical/regional priorities (revitalization of old partnerships in Africa, Asia and Latin America, in the countries which USSR significantly contributed to development). It also still puts low emphasis on infrastructure and industrial development, however it gradually increased the level of cooperation on healthcare and to a lesser extend - on education.
In recent years Russia significantly increased the volume of official development assistance: from about USD 100 million in 2006 to USD 472 million in 2010 (reaching a maximum of USD 785 million in 2009 to help partners in tackling consequences of the international economic crisis). Russia’s ODA stabilized at almost USD 470 million in 2010-2012 and grew to USD 724 million in 2013. However, the ratio of ODA to GNI is still much lower than that of traditional and some emerging donors.
• What are the main modalities it encompasses? Which areas is it focused in? What are the main cooperation partners? Does it have a regional profile?
The term ‘International Development Assistance’ is used in Russian official narrative to describe development cooperation. The Concept of the Russian Federation's State Policy in the Area of International Development Assistance adopted in April 2014 officially recognized it as one of the activities of foreign policy, thus empowering Ministry of Foreign Affairs and its subsidiary Federal Agency for the Commonwealth of Independent States, Compatriots Living Abroad and International Humanitarian Cooperation (Rossotrudnichestvo) to promote development through ‘soft power’ instruments: education, culture, research cooperation, including international development assistance. The focus on soft power is criticised by some other ministries which prioritize the goals of partner countries’ economic development.
It should be noted that Rossotrudnichestvo was earlier defined as an agency responsible for implementation of Russia’s development policy on the bilateral basis. It broadened the Agency’s mandate of promoting Russian science, culture and education abroad, facilitating the education of foreign students in Russia (for example, through scholarships) and supporting Russian compatriots living abroad.
The concept documents stipulate several principles of Russia’s development cooperation: commitment to the priorities of sustainable development of the recipient states, concentration of efforts on achieving concrete results in combating poverty and inequality, cooperation to enhance trust and mutual respect, and to ensure transparency and accountability. Russia emphasizes the need of ‘strengthening equality and democratization of the system of international relations’ as part of it development cooperation and respects ‘political, economic, social, environmental and other characteristics’ of ‘recipient states’.
The current sectoral priorities in Russia’s development assistance programme were mainly formulated during Russia’s G8 presidency in 2006. Energy, health and education were put forward. While the official information on the breakdown of Russia’s ODA by sector is not available, according to the World Bank estimates, the majority of ODA is allocated to the health sector (about 40%), while education accounts for about 25%, and allocations on energy and food accounts for the remaining 35%.
The geographical priority clearly mentioned in the Concept of the Russian Federation's State Policy in the Area of International Development Assistance is focus on the members of the Commonwealth of Independent States, as well as Abkhazia and South Ossetia, which Russia recognizes. The OECD DAC statistics shows that in 2011-13 Russia allocated almost half of its bilateral ODA to the countries in Asia (including 30% in South and Central Asia), 17% in America, 16% in Africa and 9% in Europe. Top-5 recipients of Russian ODA include countries from different regions: Kyrgyz Republic, Nicaragua, DPRK, Serbia and Tajikistan.
• What are its positive highlights?
Russia is interested in supporting coordination between established and emerging donors. It hosted two international conferences together with the World Bank and OCED with participation of major donors aiming to establish a comprehensive and inclusive dialogue between different donors as well as donors and partners – The Moscow Process. Russia supports South-South cooperation (however, not being a SSC donor itself), with a special emphasis on its BRICS partners, including by promoting the creation of the New Development Bank.
Russia achieved significant results in supporting school meal programmes in partner countries. In partnership with World Food Program the Russian government launched a school meals programme in Armenia aiming to shift from distribution of food from Russia, to local food production to make the system sustainable and nationally owned. Later the project was expanded to more countries in CIS and Middle East.
Russia significantly contributes to developing countries’ capacity of responding to natural and man-made disasters and other emergencies. It also helps countries suffering from wars and conflicts through a special demining program. Russia is an consistent supporter of United Nations peacekeeping missions.
• Are there any important challenges or areas for improvement?
One of the key challenges is insufficient level of coordination among ministries and agencies which are engaged in development cooperation. It results in overlapping of functions and defragmented responsibility. The Concept on Russia’s Participation in International Development Assistance which was effective from 2007 to 2014 clearly defined Ministry of Foreign Affairs and Ministry of Finance as the main authorities responsible for coordination (with the overall strategic leadership of the President), however, many more agencies were engaged in this policy and there was not enough alignment. The new strategic document approved in April 2014 – Concept of the Russian Federation's State Policy in the Area of International Development Assistance – provides for the establishment of a special Commission of the Russian Federation for International Development Assistance to coordinate the activities of the federal authorities and to prepare proposals on the main directions of the policy for the President of Russia. Establishment of this commission could be an important step in enhancing the level of coordination as the Statute of the Commission and its composition should be approved by Russian President. However, no practical steps on its establishment have been announced so far.
Despite active participation of civil society organizations and business-community in international institutions during Russia’s presidencies (Civil 8 outreach during 2006 Russia’s G8 Presidency; and Civil 20 and Business 20 outreaches during 2013 Russia’s G20 Presidency), the level of their engagement in elaborating national policy of development cooperation is relatively low. However, creation of a public council within Rossotrudnichestvo, comprised of experts and public figures with advisory functions, and discussion of business engagement in development cooperation in the framework of the Business Council under the Minister of Foreign Affairs are positive steps towards a more inclusive dialogue with broader stakeholders.
Marina Larionova is part of the International Organizations Research Institute at the National Research University Higher School of Economics (HSE) in Moscow and the Managing Director of the International Relations Department, Russian Union of Industrialists and Entrepreneurs. Marina Larionova holds a doctorate in political science and a doctorate in philology. Marina Larionova' s recent publications include multi-level governance, European integration and the BRICS, among which we can mention the following studies: a Resource for Forging BRICS and G20 Decisions in the Key Areas of International Financial and Economic Architecture”; “Supply-Demand Model for Developing a Presidency Proposals in Informal International Institutions (G20, G8, BRICS)” e “Global Risks Governance and G20, G8, BRICS Capabilities”.
For more on Russia's Development Cooperation visit IORI's webpage and read the The Russian Federation’s International Development Assistance Programme: A State of the Debate Report
