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Development Policy as An Opportunity for Bulgaria's Foreign

Policy

Alexandra Kostova December 2015

By its accession to the EU Bulgaria turned from a „recipient” into a „donor” of

development aid, which is connected with a number of political and financial

commitments, but also with opportunities for our country. Few Bulgarian citizens,

including politicians and those who work in the public administration, know that

after 2010 Bulgaria has reported EUR 31- 37 million annually spent for an official

assistance to the developing countries, provided by bilateral, regional and

multilateral instruments and the European budget. The Bulgarian Development

Policy is an integral part of this country's foreign policy and the activities related to

the shaping and implementation of the latter are guided by the minister of foreign

affairsi. If the development aid is considered an opportunity not only for the

assistance to the poorer and suffering peoples, but also for strengthening the

positions, ties and the prestige of our country at the international stage, the foreign

policy of Bulgaria might take advantage of an instrument, which is significant both

in political and financial aspects.

The use of the Development Policy as an instrument for enhancement of the

efficiency of the Bulgarian foreign policy implies an optimal use of the

opportunities provided by the latter so as to achieve a maximum result for both

countries – for the recipient and for Bulgaria and the interests and priorities

thereof. In this context the resources related to the Development Policy might be

used more and more purposefully. Among the variety of considerations in this

respect, the following may be highlighted:

1. The Development Policy implies an investment of considerable funds from the

national budget on an annual basis, and the responsibilities of our country for

financing the development are long-term and will become more and more

immense. Over the next years and decades this policy will be supported by

more and more instruments, which should also have an effect on the role of this

policy in the external relations of our country. The „instrumentalisation” of the

development cooperation to the benefit of the Bulgarian diplomacy is

inevitable, but the sooner this process starts the better the ensuing foreign

policy and economic benefits will be.

2. The efficiency of the official development aid helps to overcome poverty and

stimulates the sustainable development of the significant number of poor and

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unstable states. Being a EU external border, Bulgaria is surrounded by

developing countries, while others are in the immediate proximity thereof. The

investments in the stability and prosperity of the neighbours are directly

connected with the welfare and security of our own country (regarding

immigration, terrorism, etc.).

3. If strategically used, Development Policy may also contribute in regard to

home affairs. Providing technical assistance, for example, or participating in

international projects has also a positive effect on the respective Bulgarian

experts, organisations, practitioners and others in the form of additional

financial incentives, professional opportunities, extended partnerships and

strengthened institutional capacity. In this context some of the activities for the

implementation of the Development Policy may be considered aninvestment in

national human and administrative capital.

In spite of the contribution of the bilateral development assistance provided by

Bulgaria to the bilateral relations, the prestige and the positions of our country, the

percentage of this assistance is still quite low. Along with that, in compliance with

the principles for the as sistance efficiency, Bulgaria should confine its

development cooperation initiatives to up to three sectors of the country-recipient,

in which the activities of Bulgaria have a value added.

In this context, laying a particular stress or a priority on a certain thematic

dimension of the development cooperation would provide an opportunity for

„specialisation” of Bulgaria’s donor efforts aimed at achieving efficiency,

developing a particular capacity, using the comparative advantages, purposefully

contributing to the achievement of the Millennium Goals for Development and the

post-2015 successor thereof and increasing the percentage of the bilateral

assistance, which is somewhat more visible. Thus Bulgaria could better fulfill its

commitments in terms of quality and quantity of the assistance and, along with

that, contribute to the efficiency of Bulgarian diplomacy.

The many years' experience and traditions in the development cooperation of

most of the donors in and outside the EU shows that it is not easy to identify the

common point between: 1) the actual needs of a partner; 2) the efficiency of the

assistance; and 3) the opportunities, priorities and the experience of Bulgaria.

Our country is still on its way of accumulating experience in the development

cooperation and the assistance provided by Bulgaria, though considerable with a

view to the national budget, is small in amount as compared to that provided by

other donors. Therefore the realm of action with a view to a possible thematic

focus in our Development Policy is comparatively narrow. However, culture is a

good opportunity for the strategic allocation of some resources of the

Bulgarian Development Policy, which will also contribute to the achievement

of some foreign policy priority objectives of Bulgaria, in particular –

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strengthening of the bilateral relations with significant partners and achievement of

global goals concerted at an international level (peace, prosperity, stability,

sustainable development, etc.).

Why do the cultural dimensions of the Bulgarian Development Policy provide

a number of opportunities regarding our foreign policy?

Culture provides a number of opportunities for laying the foundations of a

bilateral cooperation on an equal footing as it is a sector, where the donors enter

comparatively smoothly. The availability of the already established fruitful

partnership in the cultural dimensions of development contributes to the

establishment of a partnership in other fields, where trust already gained is

required.

The implementation of the projects/initiatives for the cultural dimensions of

development does not require any considerable financial investment. The services

and goods offered in the field of culture generally need little investment, because

skills and materials already available with the public are used (the funds allocated

by Bulgaria for Development Policy are of a limited amount as compared to those

by other donors).

The arguments for the opportunities to enhance the cultural dimensions in

the Bulgarian policy are inter alia as follows:

• Culture may definitely be indicated as a policy, in which Bulgaria enjoys

some comparative advantages and opportunities as the relevant national experience

and expertise accumulated, including those of the transition period, are positive.

• According to many experts, Bulgaria occupies leading positions worldwide

as per number and variety of cultural and historical monuments, while in this

country there are many national, institutional, regional and municipal museums, art

galleries, thousands of public community centres and other cultural institutions at

national level.

• The Bulgarian history and culture have much in common with those of

many developing countries, especially those bordering the EU, so the relevance of

the partnership in the cultural dimensions of development is still more facilitated

and justified.

• Our country maintains close ties in the field of culture with a number of

developing countries, which are based on bilateral agreements, plans, etc.

• With regard to foreign policy, Bulgaria possesses the structures and human

resources necessary for the cultural cooperation with other countries (cultural

attaches to the Bulgarian embassies, institutes for culture, a Regional Centre for

Intangible Cultural Heritage, a State Institute for Culture, etc.).

• The partners seek assistance from our country in this field, which can be

proved by the strategic programmes for development aid agreed so far at a bilateral

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level, while most of them comprise as a priority the cultural heritage safeguarding

and the local cultural potential promotion.

• Culture may be considered a sector, in which the concentration or

European donors is not high, so Bulgaria could identify its field for action while

observing the principles for the assistance efficiency.

The national strategies of the developing countries often define culture as a

cornerstone of the economic growth thereof and of the efforts to overcome poverty,

which is taken into consideration in the design of the respective donor

programmes.

The efforts made at European level to achieve a concerted and systematic

inclusion of culture in the external relations and the contribution of each EU

Member State to the cultural dimension of the European Development Policy are

mutually complementary and contribute to the EU performance. Since 11th

September 2001 the EU has made more strenuous efforts to integrate culture and

the cultural dialogue in the interrelations with the rest of the world. After the

Lisbon Treaty entering into force and the ensuing institutional changes, on the

basis of a European Parliament resolutionii, the European Commission launched a

consultation for the purposeful inclusion of culture in the EU's external activities,

in particular in the Development Policy. The consultation process will produce

results within the frames of the European External Action Service led by Ms

Federica Mogherini.

Since culture and development are policies, in which the EU more or less

complements what is implemented at national level, each EU Member State

applies an individual approach regarding the objectives, activities, priorities and

the overall concept for the cultural dimension of development. While the European

Commission seems to focus its activity mainly on establishing cultural industries

and fighting against the illicit trafficking in cultural property, the Member States

aim mainly at supporting the artists, exchanging experience, assisting in the

intercultural dialogue, etc.

The European experience is rich and varied and it can be used with a view to the

opportunities provided by culture to the Bulgarian Development Policy. The

conclusion drawn on the basis of the analyses is that the successful strategies are

those in which culture is at least a component in the development of the relations

with third countries, and some donors even specify culture as a leading component

in the bilateral cooperation. Denmark has adopted an overall strategy entitled The

Right to Art and Culture within the frames of its Development Policy, where an

approach based on human rights is applied. The Dutch strategy for international

cultural policy entitled Art without Borders and the French international cultural

policy are good combinations of Development Policy and cultural diplomacy. The

cultural window of Spain's MDG Achievement Fund (MDG-F), established in 2006

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to the UN, has contributed to the establishment and renovation of a cultural

infrastructure serving millions of people, has increased the income of thousands of

entrepreneurs and has enhanced the capacity of thousands of cultural institutions

and civil servants from the developing worldiii

. The new donors in the EU (the

Member States having accessed the EU after 2004) make the link between culture

and development in the light of the democratic reforms by providing assistance for

the social and intercultural dialogue in the developing countries on the way to

transition.

For many donors the right to culture is a cornerstone in the process of

establishing modern and democratic societies, and these societies are in the basis of

the sustainable economic growth. In spite of the various approaches and practices,

an impression is made that the EU Member States include in their strategies or

approaches to the cultural dimensions of development a component dedicated to

cultural diplomacy and the potentials to enhance the capacity of their own creative

art sectors and cultural sectors – in the form of experience exchange and

enrichment through interaction with culture and the artists in the developing

countries. The programmes on culture and development are always in compliance

with the respective country's foreign policy priorities, either for the purposes of

cultural diplomacy and the extension of the foreign policy influence (most

distinctly expressed in the case of France, Great Britain, Spain, Portugal and the

Netherlands and comparatively slightly – in the case of Denmark and Sweden) or

for the promotion of the European democratic values among the developing

countries (most of the newly accessed EU Member States).

The realities in the Bulgarian Development Policy provide some opportunities

for a future more purposeful integration of culture in the activities of our country

as a donor:

A. Three of the four bilateral strategic development aid programmes adopted so

far, which Bulgaria negotiated in 2013 (those with Moldova, Georgia and

Vietnam), comprise the cultural heritage safeguarding and the local cultural

potential promotion as a priority. As per the established trend, these fields of

cooperation should be integrated also in the future strategic programmes,

which Bulgaria’s Ministry of Foreign Affairs will adopt. Ukraine, for

example, is eligible for such a bilateral programme.

B. Given the fields of cooperation included in the bilateral strategic

programmes adopted so far, culture could be logically included in the

priorities of the next middle-term programme for development

cooperation and humanitarian aid, whose launch will coincide with the

launch of the post-2015 international framework for development – a

successor of the Millennium Goals for Development. In harmony with

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thefuture global donors' efforts, culture may be considered in the light of the

efforts for the achievement of sustainable growth.

C. In times of financial restrictions the donors, including Bulgaria, aim at their

financial assistance to the developing countries being spent effectively.

Therefore our country's activity regarding the cultural dimensions of the

Development Policy would have value added only if the assistance is

provided purposefully and on the basis of a thorough analysis. The potentials

as regards the Balkans and the Black Sea Region in this respect were

investigated back in 2008 in a report requested by the State Institute for

Cultureiv. Present day investigations, including investigations in situ, have to

be performed.

D. On the basis of such analyses Bulgaria’s Ministry of Foreign Affairs could

initiate a process of elaboration of a strategy dedicated to culture, which shall

specify the framework of a focused provision of assistance for development –

priorities, actions, follow-up mechanisms, etc. Such a framework could be of

a wider scope, e.g. in the form of an „international cultural policy” (on the

basis of France and the Netherlands' experience) or to be shaped in a peculiar

Strategy for Culture and Development (as is the case with Denmark)

In 2008 the Council of Ministers enacted the establishment of a Funds-in-Trust

to UNESCO for participation in the international development cooperation, and in

2009 a Regional Centre for the Safeguarding of Intangible Cultural Heritage in

South-Eastern Europe was established in Bulgaria under the auspices of UNESCO

– one of the five centres of this kind worldwide, whose scope of activities covers a

number of developing countries constituting a priority for Bulgaria, at that, not

only countries from South-Eastern Europe – Albania, Armenia, Bosnia and

Herzegovina, Macedonia, Montenegro, Serbia, Turkey and Georgia. The activities

of the Centre are to be performed in the future as a part of our country's long-term

investment and commitments – inter alia making an essential contribution to the

achievement of UNESCO's strategic objectives. The availability of a strategy for

the cultural dimensions of the Development Policy would contribute to the

functional and expert promotion of the Centre in the region and the fulfillment of

the tasks thereof.

It should be highlighted that in 2012 Sofia hosted the 8th meeting of the

Ministers of Culture in South-Eastern Europe, where a Declaration on Intangible

Cultural Heritage and Sustainable Development was adopted to highlight the

significance of culture (tangible and intangible cultural heritage, creative industries

and cultural infrastructure) for development and for the achievement of the

Millennium Goals for Development in the region at issuev. By the declaration the

ministers call for the integration of culture in the European policies and strategies

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for the development cooperation and bind themselves to establish a "new platform

for culture and development". In end-June 2014 the Culture and Development

Platform of the ministers of culture in this part of Europe held its annual meeting in

Macedonia, resulting in the adoption of a Regional Strategy for Cultural

Cooperation in South-Eastern Europevi. The priorities of the strategy inter alia

are as follows: use of the cultural heritage for the achievement of an inclusive

economic development and stable environment in the region at issue; support to

the creative work and the variety of cultural expressive forms aimed at social

cohesion and growth; safeguarding the intangible cultural heritage for the purposes

of social dialogue and inclusive growth, etc. A number of measures for the

fulfillment of the priorities were outlined to cover inter alia the incorporation of

culture in the national and regional plans and strategies for development.

The possible future elaboration of a strategy for the role of culture in the

Bulgarian Development Policy would be an ambitious, but a soundly justified by

the existing potentials undertaking. Such a strategy would allow Bulgaria's

specialisation as a donor in a particular sector and would be based on the existing

advantages in the respective field in the form of expertise, financial potential and

existing structures.

The approach for the elaboration of a strategy for the role of culture in the

Bulgarian Development Policy could vary as per the objectives, potentials and

ambitions of our country. Bulgaria possesses rich cultural heritage and thorough

experience in the dialogue between cultures and tolerance, which is a comparative

advantage that may be used both to assist the developing countries and to promote

the Bulgarian culture and creative arts in the latter. The combination of the

initiatives for the implementation of the Development Policy with those within the

scope of cultural diplomacy will provide more opportunities for the fruitful pursuit

and achievement of Bulgaria's foreign policy objectives. In this light, the future

strategy for culture should comprise a component for Bulgaria’s cultural promotion

abroad. The significance and the "visibility" of a component of this kind is a

subject of estimation, but in any case it should complement the activities under the

international plan of the EU Communication Strategy and those within the frames

of the National Culture Fund to the Ministry of Culture.

The examined experience of other countries has provided some applicable for

Bulgaria options for actions as regards the cultural dimensions of development;

these actions can be grouped and differentiated in specific, limited in number

realms with a view to feasibility and priorities, e.g.:

- Culture and democratic processes;

- Sustainable management of the cultural heritage;

- Strengthening of the dialogue and the partnerships among cultures (creative

and academic exchange).

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Bulgaria's development assistance with priorities of this kind may indirectly

contribute to the improvement of the environment of the Bulgarian communities in

some developing countries – a key priority of Bulgaria's foreign policy.

The active interaction among all players acting in the field of the Development

Policy and also in the field of culture and creative arts – institutes, organisations,

artists, etc. – is of key importance for the success of the activities related to culture

and development.

Bulgaria borders several developing countries, whose local authorities maintain

close cross-border political and cultural ties with their counterparts in Bulgaria,

complemented by the European programmes. The local and regional authorities

play a key role in the exchange of good practices and the fostering of common

traditions, especially in South-Eastern Europe(culture is among the fields of

partnership within the frames of the existing Euroregions with Serbia, Macedonia

and Turkey as well as of the interaction between Odessa and Varna and among

Sliven, Pleven and homologous structures in Southern Moldova and the Ukraine).

Many spoken word, musical and other artistic performances that set up the world

cultural heritage are inspired by a migrating population, hence the activities related

to culture and development may be performed with the cooperation of recognised

representatives of large Bulgarian communities abroad, especially outstanding

artists and actors.

Bulgaria's non-governmental sector already participates in the implementation

of projects on culture in a number of developing countries in South-Eastern and

Eastern Europe.

An essential role for the implementation of a strategy on culture and

development would also be played by the fruitful interaction and cooperation

within the frames of Bulgaria’s Ministry of Foreign Affairs: the structures in

charge of the international cooperation and development, the State Institute for

Culture, the Diplomatic Institute and the territorial directorates.

Bulgaria’s Ministry of Culture and the structures thereof have also a key role to

play.

The results from the activities dedicated to culture in Bulgaria's Development

Policy can be measured on the basis of the indicators tailored by UNESCO.

In this context we should mention that over the recent years UNESCO has

turned into an indisputable leader in the efforts to promote the significance of

culture for overcoming poverty. The role of culture for the achievement of

sustainable development and the incorporation of culture in the post-2015

development framework is a priority in the activity of Ms Irina Bokova,

UNESCO’s Director-General, who stated in May 2014: „It is not just the devel-

opment, but the sustainable and inclusive development that is at stake today. And

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culture is our unique opportunity”vii

. By its Funds-in-Trust to UNESCO and the

established Regional Centre for Intangible Cultural Heritage, Bulgaria supports

soundly Ms Irina Bokova's efforts in this respect, but turning culture into a priority

of Bulgaria's Development Policy will provide a significant strategic direction and

visibility of this assistance, especially in case that longer-term foreign policy

objectives are available.

The establishment of a strategic framework for the role of culture in Bulgaria's

Development Policy should be a result of the efforts made by all the players

involved in culture-related activities and development cooperation – national

institutions, representations of international governmental and non-governmental

organisations in Bulgaria, the private and public sectors, professionals, the

academic community, etc. To that end Bulgaria’s Ministry of Foreign Affairs may

hold not only thematic and broad consultations with the said participants in this

process, but it could also set up a discussion among them in the form of a con-

ference. The fruitful and open debate is not only a source of legitimately and

democratically generated smart ideas and proposals, but also a necessary

instrument to make the players feel committed. The current European Year of

Development (2015) is the best occasion for such debates.

The development cooperation should be definitely considered a significant

political and financial instrument to be used by Bulgaria and the foreign policy

thereof. Our country enjoys specific comparative advantages based on the positive

historic experience, gained also during the period of transition, and on the

geostrategic role that allow the purposeful use of the Development Policy with a

view to both donor's commitments and foreign policy priorities. The purposeful

and strategic use of culture in the EU's external relations lies ahead, while some

EU Member States actively use culture as an instrument of their foreign policies

and as a priority of the policies for development implemented by them. Culture

constitutes a very good opportunity to focus Bulgaria's efforts as a donor and to

strengthen Bulgaria’s prestige and position in the developing countries and in the

regional and international organisations, where it is a member. As a function of the

international context and of our country's priorities and ambitions, the development

assistance directed to the cultural dimensions, as a first step, could be included in

the objectives of the post-2015 Strategic Programme of Bulgaria for Development

Policy and Humanitarian Aid, and generally it could be a part of the future

strategic programmes for bilateral development cooperation. The necessary

comparative advantages, institutions, capacity and experience are available, so

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Bulgaria can turn culture into a strategic priority of the Development Policy and

into an instrument of the foreign policy, respectively.

i Decree of the Council of Ministers No. 234 of 1st August 2011 on the policy of Bulgaria for participation in the

international development cooperation. ii European Parliament resolution of 12 May 2011 on the cultural dimensions of the EU's external actions

(2010/2161(INI)) iii

“Culture and Development: MDG-F Thematic Study: Key Findings and Achievements”, UN, 2013.

http://www.mdgfund.org/sites/all/themes/custom/undp_2/docs/thematic_studies/English/full/Culture_

Thematic%20Study.pdf iv „Cultural cooperation in the Balkan and Black Sea region”, a report requested by the State Institute for Culture,

authors: Kristin Razslokova, Yuriy Valkovski and Yana Genova, May 2008. v A Joint Declaration of the Ministers of Culture from South-Eastern Europe entitled Intangible Cultural Heritage

and Sustainable Development, adopted at the 8th Ministerial Conference on Cultural Heritage in South-Eastern

Europe, held on 24th October in Sofia. http://www.unesco.org/new/fileadmin/MULTIMEDIA/FIELD/Venice/pdf/

news/DECLARATION_EN_25oct2012.pdf vi Ohrid Regional strategy for cooperation in South-East Europe, 28th June 2014, town of Ohrid, FYROM,

http://www.kunstkultur.bka.gv.at/DocView.axd?CobId=56282 vii

A keynote address delivered by Ms Irina Bokova, UNESCO's Director-General, at the High-level Thematic

Debate on Culture and Development within the frames of the UN General Assembly, dedicated to culture and

development, held on 5th May 2014.