Millennium Development Goals

Tuesday 10th January 2012 Westminster Hall

12:30

[Mr Gareth Thomas (Harrow West) (Lab/Co-op)]

I secured this debate because I am interested in finding out: what the Government are doing to help galvanise international action to secure a global development agreement for 2015 onwards; what they are doing to engage European Governments, not least through the upcoming EU budget negotiations; and their view of the process proposals and goal ideas in circulation at the moment.

I understand that a task team of senior technical experts from the United Nations Development Programme and the UN Department of Economic and Social Affairs have begun preparing work on the UN’s vision and road map for post-2015. Similarly, I understand that the UN Secretary-General is expected to appoint a high-level panel of eminent people to advise on the post-2015 framework, so the agenda is likely to gather momentum in New York. Next year, Britain will chair the G8. With the UN millennium review summit due in September 2013, which is arguably the key moment for agreeing a post millennium development goals agreement, UK Ministers will bear a heavy responsibility for progress—or a lack of progress—on achieving a post-MDGs accord. Thus far—I say this gently—there has been little sign from the Government of serious political leadership or engagement on the issue.

As the Government’s policies are putting a considerable squeeze on family incomes in the UK, and as Ministers are so obviously out of touch with the consequences, a debate about poverty in poor countries—and particularly about whether new targets for tackling poverty overseas are required—will seem to some people to be misplaced. However, tackling poverty in the world’s poorest countries is surely not just morally right, but fundamental to Britain’s long-term interests. We live in an interdependent world, and jobs in the UK, the level and types of disease in Britain, and migration patterns to the UK are all affected by what happens to the world’s poorest people. Indeed, the rise of the Taliban and their decision to shelter al-Qaeda in Afghanistan is a powerful example of what can happen when progress in tackling poverty is going in the wrong direction, when states are fragile, and when those for whom poverty is an irrelevance are what passes for being in charge.

The millennium development goals have been remarkably successful in galvanising political leaders, civil society organisations, parts of the private sector, trade unions and donors in the pursuit of tackling poverty. They were launched back in 2000 and are due to be achieved by 2015, and it is likely that the headline goal of halving extreme poverty will be achieved. There has been substantial progress in many countries towards achieving many of the individual goals.

[Tony Cunningham (Workington) (Lab)]

Does my hon. Friend agree that a key to those goals is education? It is difficult for young people in developing countries to get an education. It is more difficult for a girl, and almost impossible for disabled people. We must get to grips with the issue.

[Mr Thomas]

My hon. Friend is absolutely right, and I hope that the Minister will take advantage of his intervention to bring the House up to date with what the Government are doing to drive progress towards meeting the education millennium development goals.

Some countries have achieved all the millennium development goal targets, and others will have made significant progress by 2015. Clearly, not all countries will achieve all the goals, and some of the poorest—usually but not exclusively those that are, or have been, affected by conflict—are a long way from achieving them. Significant shortfalls remain in the delivery of international commitments to support the achievement of the goals. However, a joint report by the Overseas Development Institute and the Millennium Campaign on progress on the MDGs concluded that although it is not uniform across all countries,

“the rate of progress in reducing poverty and in increasing access to basic health, education, water, and other essential services is unparalleled in many countries’ histories.”

Britain undoubtedly played a significant role in galvanising the progress made towards meeting the MDGs through its ministerial support for, and engagement in, the process that saw the MDGs adopted. It maintained pressure for progress up to and beyond the 2005 G8 summit at Gleneagles, and in the UN General Assembly discussions in 2008 and 2009. That support has continued in more recent years, and I acknowledge the role that the Minister and his colleagues have played while in office.

Britain played a crucial role in keeping European aid directed at achievement of the millennium development goals, with the European development framework clearly targeted at the needs of the poorest.

[Chris White (Warwick and Leamington) (Con)]

I congratulate the hon. Gentleman on securing this debate. In the spirit of co-operation that he has shown in his work with me on my private Member’s Bill, does he agree that four years is a very short time in international politics, and that it is crucial that the UK starts to lead the debate on the formation of post-2015 goals for global development, and particularly on putting more emphasis on millennium development goal 8?

[Jim Sheridan (in the Chair)]

Order. That is a long intervention. Does the hon. Gentleman have a question?

[Chris White]

Does the hon. Member for Harrow West (Mr Thomas) agree that particular attention should be paid to goal 8, which is specifically about creating better governance so that we maximise the impact of aid spending and ensure that the gains that we make are not undermined by poor planning and corruption?

[Mr Thomas]

I agree with the hon. Gentleman. Governance is crucial, and I believe strongly that it needs to be part of a post-MDGs framework. The key question for this debate is what comes after the millennium development goals, from 2015 onwards. Where do Ministers stand on that agenda? Do they support the UN Secretary-General’s ambition for a new generation of sustainable development goals, and if they do, what action are they taking to make such an agenda happen?

The Minister will be cautious, understandably, about saying today what should be included among a new set of international goals, but Ministers could help to galvanise the process of agreeing an accord by supporting and encouraging international debate on what a post-MDGs agenda might look like. To date, we have heard remarkably little from the Secretary of State on this issue. Has a policy team of civil servants been set up within the Department to corral ideas, and to engage with those in civil society, the UN and other national Governments, particularly in Europe, to drive the UK’s involvement in the preparation of such an agenda?

Elsewhere in the UK, among the Catholic Fund for Overseas Development, the Overseas Development Institute, the Institute for Development Studies, Christian Aid, and the Beyond 2015 coalition of non-governmental organisations, there has been real interest in the question. Indeed, the Beyond 2015 coalition has published an interesting and thoughtful set of essential must-haves for a new global development framework, focusing on how a process might work and stressing the importance of the MDGs review summit next year, and the Rio plus 20 process in June this year. That interest in UK civil society is mirrored by a growing interest throughout civil society in developing countries.

Both CAFOD and the excellent Overseas Development Institute have noted how significant the “how” will be in reaching an agreement, and the importance of “what”—that is, what such an agreement should contain. I would welcome hearing how the Minister thinks an agreement could be reached, and what he plans to do to assist.

Civil society interest is clearly key in framing debate, and in involving those in developing countries and developed countries, but Governments must reach agreement. Vital to that is active dialogue within Government, between Governments and their civil society groups and, crucially, at intergovernmental level. That is where the British Government could do more. Although in recent years the G20 has become more prominent, discussions between G8 leaders still matter hugely. Britain will chair the G8 next year in the run-up to the review summit, and it could put a post-MDGs agreement at the centre of the debate between the richest nations in the world.

International negotiations require considerable time and effort, and they make progress only when leaders and national politicians are engaged. A G8-driven agenda to replace MDGs is likely to stir up scepticism and concern, so any agreement must be—and I believe will be—UN-led. It would, however, be a mistake to think that an agreement will be reached without the richest nations on board. As a result of its record and its forthcoming role, Britain is uniquely placed in the G8 to support the UN more visibly in working towards a post-MDGs accord.

There have been a series of initiatives to consider the post-2015 framework. Early suggestions included the roll-over of existing MDGs to 2020 or 2025, or an “MDG plus” agreement that could take some existing core goals in education, health or nutrition, and add three or four new, locally defined, goals. The so-called one world approach would have new goals based on issues such as resilience and climate change. More recent proposals include a gross national happiness index, such as that currently used by Bhutan, for measuring national progress; the UN General Assembly has expressed qualified interest in that. Measuring happiness has begun to be of interest in the UK and in France, and in a series of state governments in the US. A Sri Lankan economist has proposed a series of consumption goals to target under-consumption by the poorest countries and over-consumption in richer countries. The Colombian Government have proposed a series of sustainable development goals that I understand also have the support of Brazil. Those are due to be discussed at the forthcoming Rio plus 20 meeting in June, and focus on addressing global climate change and development. I would be interested to know what the Minister thinks about those ideas.

The Overseas Development Institute has suggested three principles for a new post-MDGs agreement. First, the principle of universality and inclusiveness goes with the grain of existing anti-poverty measures in developing countries such as Mexico, Kenya or Sierra Leone that deal with social protection, education and health care. Such measures create minimum standards of provision that are now within range of many more developing countries than was the case when the MDGs were originally conceived.

The ODI’s second principle is that of building resilience and reducing vulnerability. That could provide a focus for the use of renewed G8 and G20 development interest in growth and infrastructure to help tackle inequality and address issues such as capital flight and tax avoidance, as well as other critical environmental issues such as climate change, which reduce a community’s resilience and increase vulnerability. Finally, the ODI suggests a principle of building national economies—a key concern of Governments in developing countries, and one that increasingly reflects debate in many developed countries about what should be the priorities for overseas aid.

Perhaps the most interesting specific proposals come from the International Committee of the Red Cross and the Centre for International Governance Innovation. They have proposed 12 new goals that seek to build on existing MDGs while reflecting the changed international context, and they include new methods for devising targets and accounting for progress. As well as arguing for the inclusion of further indicators to improve the living standards of the poor, reduce diseases, eradicate hunger and ensure access to safe water supplies, they also suggest new indicators concerning access to and quality of education—that point will be of interest to my hon. Friend the Member for Workington (Tony Cunningham). They urge a new focus on the reduction of violence, particularly against women and children, the promotion of gender equality, and better access to basic infrastructure, such as energy, information and financial services. They also support indicators of environmental sustainability, access to justice, trade rules and the transparency of Government budgets—that will be of interest to the hon. Member for Warwick and Leamington (Chris White).

At the moment, that list contains too many suggestions to achieve the simplicity that has helped to drive the continuing appeal of the MDGs, and there is perhaps not enough focus on job creation and growth. In my view, however, the proposals merit further serious debate and attention, and in that spirit, I commend them to the House.

Time is ticking, and a new post-MDGs agreement would be a huge prize, with regard to our efforts to tackle global poverty and improve sustainability. Britain could—and I believe should—once again occupy a pivotal place in the debates, and I look forward to hearing the Minister’s plans to achieve that goal.

12:45

[The Parliamentary Under-Secretary of State for International Development (Mr Stephen O'Brien)]

I thank the hon. Member for Harrow West (Mr Thomas) for securing this debate on an important topic. Securing global agreement on a framework that updates the millennium development goals is a major priority for the coalition Government and the Secretary of State for International Development. We are now in 2012, and I welcome the chance to begin talking more openly about the key leadership role that the UK is playing—and will continue to play—on that agenda. Just as MDGs are at the heart of Government development policy, a successor framework should be central to all that we do, which means shaping it to ensure that any future global agreement reflects what we know about achieving results in the fight against global poverty. As one of the leading countries on development issues and with the legitimacy that comes from the coalition Government’s commitment to spend 0.7% of gross national income on overseas development from 2013, the UK will play a leading role.

The MDGs set a benchmark for global development policy, and over the past decade they have helped to galvanise efforts to improve the lives of millions of the world’s poorest people. The coalition has augmented and built on the previous Government’s commitment to put the achievement of MDGs at the centre of the UK’s development efforts.

[Tony Cunningham]

We have spoken a lot about international dialogue and my hon. Friend the Member for Harrow West (Mr Thomas) mentioned the G8 and G20. Will the Minister touch on our relationship with Europe and the European Union? Europe has a key role to play and the dialogue between the UK and the European Union will be crucially important.

[Mr O'Brien]

I do not plan to talk about Europe on the basis that the hon. Member for Harrow West—quite rightly—focused the debate on the UN. This is an international issue. There will, of course, be continuing discussions vis-à-vis Europe, but the primary focus must be on the UN and driven by the broad international community, not least because of the focus on moving to the post-MDG world and the emerging powers and other bodies that can be brought into a greater international political consensus to help in the battle against poverty.

The coalition is making every effort to accelerate progress with the current set of eight MDGs and particularly with those most off track. The UK’s aid effort has been designed, particularly over the past 18 months, to deliver the following key results by 2015, the first of which is to secure schooling for 11 million children—more than we educate in the UK but at 2.5% of the cost. That aim is particularly important for girls, as noted by the hon. Member for Workington. Other aims include vaccinating more children against preventable diseases than there are people in the whole of England; providing access to safe drinking water and improved sanitation to more people than live in Scotland, Wales and Northern Ireland; saving the lives of 50,000 women in pregnancy and childbirth; stopping 250,000 newborn babies from dying needlessly; and helping 10 million more women get access to modern family planning.

[Tony Cunningham]

rose—

[Mr O'Brien]

I will not give way, as I want to make some progress and there is a lot to get through.

Tremendous progress with MDGs has been made globally. As my right hon. Friend the Secretary of State for International Development and the USA’s Raj Shah showed in the MDG countdown event at the UN last September, countries such as Brazil, Zambia, Peru and Nepal have demonstrated how political commitment, good policies and targeted resources can make a real difference to the lives of the poorest people.

Over the next four years, we will continue to showcase and celebrate the successes that have been achieved. Of course, that is very important in building and maintaining broad public confidence and consent. However, in 2015, millions of people around the world will still be living in conditions of extreme poverty. It is important that we do not lose the momentum created by the MDGs: 2015 will be the moment to update the framework, building on the success of the current one, so that it can reflect the new challenges and opportunities that we face in a world that has changed dramatically since 2000. The process of building global consensus on that updated framework is starting now.

The MDGs have played an important role in generating global political consensus on development and worked well as a communication and advocacy tool, both with the UK public and internationally. The framework, with its tightly focused set of targets and indicators, has also helped to strengthen the availability of data in developing countries and thereby made it easier to put a greater focus on results. However, the MDG framework has had its limitations.

A number of critical themes and issues were not included—the importance of economic growth or conflict and fragility, for instance. There are concerns that in some cases the poorest and most vulnerable have been neglected and not even explicitly referred to or focused on. An example is people with disabilities—another point mentioned by the hon. Member for Workington. There are concerns that the plight of the poorest and most vulnerable has often been masked by the average success rates in countries where progress has been very uneven.

Ownership of the MDGs at country level has been patchy and has not always been closely linked to a country’s own plans and objectives. In some cases, the framework has also created perverse incentives. For example, it has incentivised a focus on measuring school attendance, rather than the quality of education or retention of students in education. It has also made it more difficult to deal with critical problems that are best tackled multi-sectorally.

An updated framework will need to deal with the weaknesses, while capitalising on the strengths of the current MDGs, ensuring that we retain the simplicity of the current goals, intensifying the political imperative to focus on poverty reduction and building on the progress achieved so far. An updated framework needs to reflect the new global context. Of course, the world has changed since the original MDGs were created: it is no longer as easy to divide the world into countries that we would classify as either developed or developing. India alone has more poor people than all of sub-Saharan Africa, but India faces rich-world and poor-world problems at the same time.

An updated framework will need to resonate with the Governments and citizens of emerging powers such as India, as well as dealing with the needs of low-income countries. Moreover, in parts of the world, aid is likely to become a much smaller share of external financing for development in the future. As aid dependence falls in certain countries, a development framework that focuses mainly on targeting aid will be less relevant.

The principles for an updated framework are fourfold, so people are not being quite as cautious as the hon. Member for Harrow West feared. Four principles seem to be emerging from the discussions about post-MDGs. The Secretary of State is considering whether those principles would help to take forward the revision of the framework. I can confirm that we have already set up a team of officials in the Department for International Development’s policy division. That involves the most senior officials. Ministers are already having regular discussions with international counterparts on the post-MDG question.

The first principle is that the process to agree an updated framework needs to involve new powers and engage citizens, especially those who are most vulnerable and marginalised. Last time, the OECD-led process meant that ownership at country level was weaker than it should have been.

Secondly, there is a need to retain a simple set of global goals, but to enable greater ownership and accountability at national level, allowing nationally defined indicators and targets. National targets should still link into a global agenda that enables us to get a sense of overall progress.

To pick up one of the ODI points referred to, the third principle is universality. There is a strong view that, after 2015, we will need goals that resonate with the aspirations and challenges of citizens in emerging powers and OECD countries, as well as those in poor countries. However, there is also the view that we need to seek universal outcomes to ensure that the poorest and most vulnerable are not neglected and, indeed, that inclusiveness applies.

Fourthly, an updated framework must incentivise action beyond aid. Goals should recognise that we are talking not only about aid transfers, but about all financial flows, including domestic public and private revenues—a framework that incentivises better resource allocation and helps to measure results. That is vital to the points on governance and anti-corruption measures that my hon. Friend the Member for Warwick and Leamington (Chris White) rightfully highlighted. It is a useful point to make that the international Open Government Partnership, which the UK is chairing with Brazil, will provide opportunities to build alliances to ensure that governance and transparency are incentivised as part of the successor framework to the MDGs.

The discussions about what should happen to the MDGs after 2015 are getting going on the international stage. We are in the early stages of the process, but the coalition Government are already actively engaging with old and new partners to shape the debate. Thanks to the all-party consensus on the 0.7% and the UK’s broader credibility and status on development issues, we have the potential to play a critical leadership role on this agenda internationally.

The Secretary of State has spoken to the UN Secretary-General, indicating our readiness to continue to play a leadership role. The Rio plus 20 sustainable development conference in June will provide a key occasion for the UK to further the debate. We are seeking opportunities on every occasion to develop consensus on a post-MDG framework. We are doing that with others in the UN and the G8, with other Governments, with foundations and with the private sector.

[Mr Thomas]

I specifically asked the Minister what discussions he has had with colleagues in Europe. Let me ask him even more specifically whether European International Development Ministers, at the regular formal meetings that take place, have discussed the post-MDGs summit and whether a British Minister from the Department for International Development will go to Rio plus 20. One would expect someone from the Department of Energy and Climate Change to go, but surely a Minister from DFID should attend as well.

[Mr O’Brien]

Of course, discussions have been happening both at the formal level and in the informal like-minded group—the hon. Gentleman will be aware that those are also very important meetings. They are broad discussions, but in relation to establishing the principles for the post-MDG framework, the primary focus has been on the more international, UN-driven bodies. Of course, he is right to identify—to some degree, this answers the point raised by the hon. Member for Workington—that discussions are going on around Europe, but as yet it has not become a critical focus. It is something that we are trying to lead and push on, as we have those various meetings.

Particularly with regard to the UN, it is important to recognise that the discussions are held with other bilaterals, groups of countries and key Governments such as Brazil to ensure that the interest in the sustainable development goals, to which the hon. Member for Harrow West referred, and the post-MDG agenda are brought together. That is a cross-Government agenda involving DFID, the Department for Environment, Food and Rural Affairs and the Foreign and Commonwealth Office. Given that cross-Government basis, the hon. Gentleman is quite right: of course there will be ministerial attendance at Rio. I am not in a position at the moment to confirm which of the Ministers will attend—that would be premature—but I can certainly assure the hon. Gentleman that the matter is being given the very high importance that he would expect.

We hope that there will be broader engagement by all interested parties, the UK public, the private sector and others to help us to define the agenda for international development for the next generation, not least because the MDGs were very useful in setting not just the advocacy but the aspirational drivers that supported it politically.

The four principles that I articulated, which are the key to ensuring that the post-MDGs are framed in the correct way, are the ones that the Secretary of State in particular and personally is taking forward. Those principles are that the updated framework on development needs to be legitimate, that it needs to balance better the relationship between the global and the national, that there needs to be universality and inclusiveness and that the updated framework must incentivise action that will be owned at country level.

I am thinking about the example that the hon. Member for Workington gave about education. Looking at education in relation to the post-MDGs, we will want to build on the dramatic progress on enrolment, but also to shift the focus on to incentivising learning outcomes. This is not just about retention and particularly getting girls into school and enabling them to sustain their education to secondary level, but about ensuring the quality of education and the attendance of the teachers and ensuring that that is sustained throughout. I do not know whether the hon. Member for Workington would like to make a short intervention now; there is about two seconds to go.

[Tony Cunningham]

I wanted the Minister to deal with the issue of disabled children; that was all.

[Mr O’Brien]

I covered the disablement point, which was one of the few notable absences in the original drafting of the MDGs. I hope that that can be rectified in the post-MDG framework, with a focus on the most vulnerable and the poorest. All of us who have travelled around various countries in the poorest parts of the world will know that one of the hidden but great concerns relates to the access to services that disabled children have.