Upload
others
View
3
Download
0
Embed Size (px)
Citation preview
This report was prepared by Christopher Wilson of the engine room with research assistance provided by Lena Olsen of the International Law and Policy Institute
Norway:IndependentReportingMechanism(IRM)ProgressReport2013-2014ExecutiveSummary:Norway.........................................................................................2
I.NationalparticipationinOGP.................................................................................11
II.Actionplandevelopment........................................................................................14III.Actionplanimplementation.................................................................................18
IV.Analysisofactionplancontents..........................................................................201.Publicreviewandpublicconsultation........................................................................252.Abetteroverviewofcommittees,boards,andcouncils-
Morepublicaccesstoinformationandbetteropportunitiesforfurtheruse273.“Simplify”(“Enkeltoggreit”)..........................................................................................294.ElectronicPublicRecord(OEP)-(Offentligelektroniskpostjournal)..............315.Re-useofpublicsectorinformation(PSI)..................................................................336.Accesstohealthdata..........................................................................................................357.RenewaloftheGovernment’swebsite(regjeringen.no–government.no).....378.DeclarationofprinciplesforinteractionanddialoguewithNGOs....................399.SimplificationanddigitaladministrationofarrangementsforNGOs..............4110.Registeringandpreservingdigitaldocumentationproducedbypublicbodies.................................................................................................................4311.TheNorwegianCitizenSurvey(Innbyggerundersøkelsen)................................4512.Whistle-blowing................................................................................................................4713.Strengthenedinformationexchangeformoreefficientcrimepreventionandcombating....................................................................................................................4914.Strengtheningthetransparencyofpublicauthoritiesandadministration.5115.E-Governmentwithanend-userfocus......................................................................5416.PlainLegalLanguage.......................................................................................................5617.NorwegianGrantsPortal(MFA)..................................................................................5818.Aninternationalconventionoragreementonfinancialtransparency.........6019.Reducingconflictsofinterests–Post-employmentregulations......................6220.CentreforIntegrityintheDefenceSector...............................................................6421.Modernisingpublicgovernance..................................................................................6622.Transparencyinthemanagementofoilandgasrevenue..................................6823.TransparencyinthemanagementoftheGovernmentPensionFund(GPF)7024.Transparencyandanti-corruptionefforts..............................................................7225.Themunicipalsector.......................................................................................................74
V.Process:Self-assessment.........................................................................................76
VI.Countrycontext.........................................................................................................78VII.Generalrecommendations..................................................................................80
VIII.Methodologyandsources...................................................................................83
IX.Eligibilityrequirements.........................................................................................86
Embargoed – not for quotation or citation
This report was prepared by Christopher Wilson of the engine room with research assistance provided by Lena Olsen of the International Law and Policy Institute
2
ExecutiveSummary:NorwayIndependentReportingMechanism(IRM)ProgressReport2013-2014
TheOpenGovernmentPartnership(OGP)isavoluntaryinternationalinitiativethataimstosecurecommitmentsfromgovernmentstotheircitizenrytopromotetransparency,empowercitizens,fightcorruption,andharnessnewtechnologiestostrengthengovernance.TheIndependentReportingMechanism(IRM)carriesoutabiannualreviewoftheactivitiesofeachOGPparticipatingcountry.
NorwayofficiallybeganparticipatinginOGPinSeptember2011,whenPrimeMinisterJensStoltenberglaunchedtheinitiativealongwithotherheadsofstateinNewYork.
TheMinistryofLocalGovernmentandModernisation(KMD)isresponsibleforcoordinatingOGPinthecountry.KMD’smandateisbasedsolelyoninter-ministerialdirectives,anditisnotlegallymandated.TheMinistryofForeignAffairs(MFA)currentlyfinancesKMD’scoordinationactivities.ThegovernmenthasestablishedanOGPCounciltocoordinateengagementwithcivilsociety.TheCouncilparticipatesinallOGP-relatedmeetingshostedbyKMD.
OGPPROCESSCountriesparticipatingintheOGPfollowaprocessforconsultationduringdevelopmentoftheirOGPactionplanandduringimplementation.
TheNorwegianGovernmentinvited27civilsocietyorganisations(CSOs)tosubmitcommitmentsforthenextactionplan.Italsoinvited100CSOrepresentativestoadialoguemeeting.Despitetheseefforts,CSOengagementintheOGPprocesswaslow,duesignificantlytothetimingandpresentationofconsultations.
KMDorganisedthreemeetingstoreviewprogressduringactionplanimplementationandinvitedbetween100and150CSOandgovernmentrepresentatives.Whilethemeetingswererelativelywellattended,theIRMresearchersnotedalackofengagementandparticipationbyattendees.
KMDcirculatedbyemailadraftself-assessmentreportto87CSOandgovernmentrepresentatives.Atthetimeofwritingthisreport,however,thegovernmenthadnotpublishedafinalversionofthereport.
AtaglanceMembersince: 2012Numberofcommitments: 25
LevelofCompletion:Completed: 8of25Substantial: 7of25Limited: 6of25Notstarted: 0of25Unclear: 3of25Officiallywithdrawn: 1of25
Timing:Onschedule: 14of25
CommitmentEmphasis:Accesstoinformation: 16of25Civicparticipation: 3of25Accountability: 5of25Tech&innovationfortransparency&accountability: 4of25
NumberofCommitmentsthatWere:ClearlyrelevanttoanOGPvalue: 22of25Oftransformativepotentialimpact: 0of25Substantiallyorcompletelyimplemented:15of25Allthree(✪):0of25
N o rway's sec ond ac tion p lan showed signific ant improvements over the first, with a greater fo c us on opening government. H owever, the p lan remains vague in parts. M oving fo rward, stakeho lder engagement and c onsultation will need to bec ome regular and institutionalised to better a lign with c ivil so c iety prio rities.
Embargoed – not for quotation or citation
3
COMMITMENTIMPLEMENTATIONAspartofOGP,countriesarerequiredtomakecommitmentsinatwo-yearactionplan.TheNorwegiancontains25commitments.Thefollowingtablessummariseseachcommitment,includingitslevelofcompletion,potentialimpact,whetheritfallswithinNorway’splannedschedule,andthekeynextstepsforthecommitmentinfutureOGPactionplans.Severalofthecommitmentsarephrasedinvagueterms,whichmadetheirlevelofambitionandcompletiondifficulttoassess.
TheIRMmethodologyincludesstarredcommitments.Thesecommitmentsaremeasurable,clearlyrelevanttoOGPvaluesaswritten,oftransformativepotentialimpact,andsubstantiallyorcompletelyimplemented.NotethattheIRMupdatedthestarcriteriainearly2015toraisethebarformodelOGPcommitments.Inadditiontothecriterialistedabove,theoldcriteriaincludedcommitmentsthathavemoderatepotentialimpact.Unfortunately,duetochallengeswithambitionandlackofspecificity,Norwaydidnotreceiveanystarredcommitments.Seehttp://www.opengovpartnership.org/node/5919formoreinformation.
Table1:AssessmentofProgressbyCommitment
COMMITMENT SHORT NAME POTENTIAL IMPACT
LEVEL OF COMPLETION TIMING
NO
NE
MIN
OR
MO
DE
RA
TE
TR
AN
SFO
RM
AT
IVE
NO
T S
TA
RT
ED
LIM
ITE
D
SUB
STA
NT
IAL
CO
MPL
ET
E
1. Public review and public consultation: Improve the basis for decisions in public administration by drafting new instructions for Official Studies and Reports.
Behind schedule
2. A better overview of committees, boards, and councils -More public access to information and better opportunities for further use: Make the records of committees, boards, and councils easier to use for the general public, public administration, and research institutions.
Unable to tell from
government and civil society
responses
Unclear
3. Simplify (“Enkelt og greit”): Consider a document worked out by the former government on how to simplify the lives of citizens.
Unable to tell from
government and civil society
responses
Unclear
4. Electronic Public Record (OEP): By request, Norway will share its experiences of OEP and the source code with other countries.
On schedule
5. Re-use of public sector information (PSI): All state enterprises are required to make public data available. In addition, the government has published a call for tenders for a socio-economic analysis of the availability of public geospatial data in Norway.
On schedule
Embargoed – not for quotation or citation
4
COMMITMENT SHORT NAME POTENTIAL IMPACT
LEVEL OF COMPLETION TIMING
NO
NE
MIN
OR
MO
DE
RA
TE
TR
AN
SFO
RM
AT
IVE
NO
T S
TA
RT
ED
LIM
ITE
D
SUB
STA
NT
IAL
CO
MPL
ET
E
6. Access to health data: Establish and improve services on the health portal helsenorge.n. Citizens shall have secure and easy electronic access to their own health records.
On schedule
7. Renewal of the Government’s website (regjeringen.no- government.no): Improve regjeringen.no. Ministries must be involved in the development work and user testing will be performed.
On
schedule
8. Declaration of principles for interaction and dialogue with NGOs: The Ministry of Culture will start work on a declaration of principles for interaction and dialogue with NGOs.
On
schedule
9. Simplification and digital administration of arrangements for NGOs: Make efforts to ensure that the requirements regarding applications and reporting for voluntary organisations are simplified and that more supports schemes are linked to the Register of Non-Profit Organisations.
On schedule
10. Registering and preserving digital documentation produced by public bodies: Establish joint solutions for preserving and making available digital documentation that are no longer in active administrative use.
Behind
schedule
11. The Norwegian Citizen Survey: Norway will carry out a third citizen survey in 2015. Its results shall be free for all agencies, municipalities, and citizens to adopt and re-use.
On schedule
12. Whiste-blowing: Carry out an evaluation of the whistle-blowing rules.
On schedule
13. Strengthening information exchange for more efficient crime prevention and combating: Pilot projects will be carried out on the cooperation between the police and other actors to achieve better coordination of information on combating crime.
Behind schedule
14. Strengthening the transparency of public authorities and administration: Norway will consider amendments to the Freedom of Information Regulations. It also will continue training in the practice of the archive legislation and the Freedom of Information Act.
Behind schedule
15. E-Government with an end-user focus: The Agency for Public Management and E-Government will develop guidelines for the provision of digital public services with a user-centred approach.
Behind
schedule
Embargoed – not for quotation or citation
5
COMMITMENT SHORT NAME POTENTIAL IMPACT
LEVEL OF COMPLETION TIMING
NO
NE
MIN
OR
MO
DE
RA
TE
TR
AN
SFO
RM
AT
IVE
NO
T S
TA
RT
ED
LIM
ITE
D
SUB
STA
NT
IAL
CO
MPL
ET
E
16. Plain legal language: Examine some acts and reformulate them in plain language to make them easier for the public to understand.
On schedule
17. Norwegian Grants Portal (MFA): Ensure the data in the Ministry of Foreign Affairs grants portal at the Norwegian Government website complies with IATI and is updated monthly.
On
schedule
18. An international convention or agreement on financial transparency: The Government will initiate an international dialogue on stricter rules for financial transparency.
Officially withdrawn
N/A
19. Reducing conflicts of interests – Post-employement regulations: Norway will consider formalising the three sets of post-employment regulations by law.
On schedule
20. Centre for Integrity in the Defence Sector: Operate a Centre for Integrity as a resource for the Norwegian defence sector and work closely with NATO.
On schedule
21. Modernising public governance: Consider measures aimed at strenghtening interaction and coordination across agencies and sectors and across administrative levels.
Unable to tell from
government and civil society
responses
Unclear
22. Transparency in the management of oil and gas revenue: Proposed measures include supporting EITI implementation, strengthen the Oil for Development Programme, securing poor countries’s access to information about extractive companies, consider adopting a country-by-country reporting system for the extractive sector, work to strengthen the financial sector transparency.
Behind schedule
23. Transparency in the management of the Government Pension Fund: Norges Bank will make general meetin’s voting results publicly available on its website.
On schedule
24. Transparency and anti-corruption efforts: Introduce national regulations on country-by-country reporting on financial information for every country that a company operates in.
On
schedule
Embargoed – not for quotation or citation
6
COMMITMENT SHORT NAME POTENTIAL IMPACT
LEVEL OF COMPLETION TIMING
NO
NE
MIN
OR
MO
DE
RA
TE
TR
AN
SFO
RM
AT
IVE
NO
T S
TA
RT
ED
LIM
ITE
D
SUB
STA
NT
IAL
CO
MPL
ET
E
25. The municipal sector: Develop the Board Appointments Register, further develop Municipality-State Reporting, achieve open and accessible information concerning schools, examine dual role issues in connection with the revision of the Norwegian Association of Local and Regional Authorities’ recommendations regarding sound municipal ownership.
Behind schedule
Table2:SummaryofProgressbyCommitmentNAME OF COMMITMENT SUMMARY OF RESULTS
1. Public review and public consultation
• OGP value relevance: Clear • Potential impact: Minor • Completion: Limited
The Instructions for Official Studies and Reports, the guidelines that dictate how officials engage in consultative processes on studies, reports and other types of official investigation work, are being reviewed. Work is proceeding slowly due to extensive consultation by the lead agency. The IRM researchers were not able to identify any use of technology, as specified in the language of the commitment. While increasing public consultation is laudable, the scope of the instructions is relatively narrow. The IRM researchers recommends inclusion of mechanisms, such as the Freedom of Information Act, that would have more impact on strengthening public consultation.
2. A better overview of committees, boards, and councils
• OGP value relevance: Clear • Potential impact: Minor • Completion: Unable to tell
The Government reports that work on this commitment has begun. IRM researchers were not able to determine, however, what activities this work included. While access to information on committees, boards, and councils is desirable, it is not clearly a priority area for access to information in Norway. As such, this commitment should not be prioritised in the next action plan.
3. “Simplify” (“Enkelt og greit”)
• OGP value relevance: Unclear
• Potential impact: None • Completion: Unable to tell
The Government committed to consider a document, produced by the previous government, on how access to public services could be simplified. While this is a loadable goal, the commitment’s relevance to OGP values is not clearly articulated. Unless the relationship with the open government agenda in Norway can be articulated more clearly, this commitment should not be carried over.
4. Electronic Public Record (OEP)
• OGP value relevance: Clear • Potential impact: Minor • Completion: Complete
The Norwegian Government participated in several international conferences to share its experiences with OEP. While there seems to be little interest in OEP nationally, hence the international focus of this commitment, it is an important mechanism for transparency and accountability. Therefore, the IRM researchers suggest that the government considers raising awareness for OEP at the national level and improve its accessibility.
5. Re-use of public sector information (PSI)
• OGP value relevance: Clear • Potential impact: Minor • Completion: substantial
The government held a hearing on the implementation of the E.C. Directive on the Re-use of Public Sector Data and is reviewing submissions to that consultation. It has also initiated an evaluation process of the Norwegian Public Data Licensing System. The analysis of the availability of public geospatial data in Norway was received and is under consideration. Moving forward, KMD should consider improving and harmonising agencies’ capacity to release data.
6. Access to health data
• OGP value relevance: Clear • Potential impact: Minor • Completion: Substantial
A number of steps, such as user access to electronic prescriptions and establishing access to personal health data online, have been taken towards fulfilment of this commitment. However, the IRM researchers were not able to determine whether eID was launched. These steps represent a minor but positive step towards reform of the Norwegian health care policy. The IRM researchers recommend that this work continues, but not be included in OGP processes.
Embargoed – not for quotation or citation
7
NAME OF COMMITMENT SUMMARY OF RESULTS
7. Renewal of Government’s website
• OGP value relevance: Clear • Potential impact: Minor • Completion: Complete
A redesigned regjeringen.no was launched in December 2014, therefore completing the commitment. This redesign renews a platform for information sharing and interaction with citizens that was already in place. The Norwegian Government Security and Service Organisation (DSS) will continue making improvements to the website and but these improvements should not be included in subsequent action plans.
8. Interaction with NGOs
• OGP value relevance: Clear • Potential impact: Minor • Completion: Substantial
A draft of the Declaration of Principles for Interaction and Dialogue with NGOs was published in December 2014. Civil society representatives were invited to provide feedback on the declaration by early 2015. While this declaration represents a positive step towards better cooperation with CSOs, civil society in Norway already benefits from good relationships with the government, and it is unclear if they requested this declaration. Therefore, this commitment does not need to be included in the next action plan, unless requested by CSOs.
9. Digital administration of arrangements for NGOs
• OGP value relevance: Clear • Potential impact: Minor • Completion: Substantial
The Ministry of Culture’s reported that an overview of grant schemes for volunteer organisations has been published, as well as a guide for how to improve grant schemes for one type of organisation. The IRM researchers were not able to find details on how application procedures are to be simplified or on work undertaken towards linking more support schemes to the Register for Non-Profit Organisations. While this commitment represents an effort to improve the efficiency of civil society’s engagement with government, it does not change the basic mode of operation or create new platforms for interaction between these actors. Consultation between government and civil society would be a good next step to ensure future commitment responds to civil society needs.
10. Digital documentation
• OGP value relevance: Clear • Potential impact: Minor • Completion: Limited
The SAMDOK project is intended to facilitate coordination among archive institutions on a voluntary basis. The project is widely regarded as a success and will continue to be implemented independently of the OGP process. Regarding revisions of the Archives Act, the government established a working group to consider adjustments to the regulations. While both of these activities are important to government efficiency and work is on going, they need not be included in subsequent action plans.
11. Norwegian Citizen Survey
• OGP value relevance: Clear • Potential impact: None • Completion: Substantial
Norway’s third citizen survey was conducted in 2015 and results are expected to be available for download and re-use. It is unclear how the information collected in the survey is being used, or could be used, to support more open government in Norway. Therefore, the IRM researchers recommend conducting an assessment on how survey results are used to improve policy and governance.
12. Whistle-blowing
• OGP value relevance: Clear • Potential impact: Minor • Completion: Complete
An evaluation of whistle-blower rules was carried out in 2013 and noted that Norwegian regulations did not meet international standards on whistle-blowing. The report is being reviewed by the Ministry of Labour, which fulfils the commitment. Moving forward, the Ministry of Labour should adopt progressive and ambitious changes to the whistle-blower rules on the basis of its review.
13. Strengthened information exchange
• OGP value relevance: Unclear
• Potential impact: Minor • Completion: Limited
The self-assessment report references pilot projects organised in collaboration with the private sector but the IRM researchers were unable to determine what these projects were. They were similarly unable to identify progress on the evaluation mentioned in the commitment. As currently written, the commitment is of unclear relevance to OGP values. Unless the commitment’s relevance to access to information, civic participation or public accountability are articulated better, it should not be carried over to the next action plan.
14. Transparency of public authorities
• OGP value relevance: Clear • Potential impact: None • Completion: Limited
The Government discussed amendments to the Freedom of Information Act (FOIA) to broaden the scope of its applicability. Consideration of these amendments is in preparatory phase. In addition, the Ministry of Justice held courses and lectures on implementation of FOIA. FOIA is a critical piece of legislation and further efforts are needed to raise awareness of FOIA across government agencies and ministries. In addition, the government should conduct an assessment of FOIA requests to identify gaps in the act’s implementation.
15. E-Government with an end-user focus
• OGP value relevance: Clear • Potential impact: None • Completion: Substantial
The Agency for Public Management and E-Government (Difi) has developed guidelines for the evaluation of digital services, which are available online. However, the IRM researcher could find no evidence that user studies have been conducted. Although the quality of guidelines can be important for setting standards, this commitment does not introduce any changes in access to information or public participation. The IRM researchers recommend that the next action plan focus on how evaluations and guidelines are used to increase accessibility and participation.
Embargoed – not for quotation or citation
8
NAME OF COMMITMENT SUMMARY OF RESULTS
16. Plain legal language
• OGP value relevance: Clear • Potential impact: Minor • Completion: Complete
The Plain Legal Language project has identified four laws whose language will be clarified, but IRM researchers could not find a timeline for completion of the project. While plain legal language is important, this project should only be included in future action plans to the extent that it relates to OGP values and only through clear and explicit commitments.
17. Norwegian grants portal
• OGP value relevance: Clear • Potential impact: None • Completion: Complete
The Norwegian grants portal is now compliant with the IATI standard. However, the IRM researchers were unable to determine how often it is updated. It is not clear that the information on the portal is the type of aid data most useful to stakeholders. The government should hold consultation with relevant actors to determine the type of information they would like to access.
18. Financial transparency
• OGP value relevance: Clear • Potential impact: Minor • Completion: Officially
withdrawn
This commitment was officially withdrawn due to a lack of international support for an international convention or agreement on financial transparency.
19. Post-employment regulations
• OGP value relevance: Clear • Potential impact: None • Completion: Complete
The government committed to consider a report on possible amendments to the Norwegian Post-Employment Regulations. Due to the vague language of the commitment, completion is difficult to assess. However, the proposed legal amendments contained in the report have been received positively by civil society and should now be enacted into law.
20. Centre for Integrity in the Defence Sector
• OGP value relevance: Clear • Potential impact: None • Completion: Substantial
The Centre has engaged in a number of activities including publications on good governance, an international conference, and the implementation of a NATO training course. These activities are not new, and the commitment does not appear to have had a significant impact on national integrity in the defence sector. The Centre should identify how it can work with national defence actors to improve integrity and the quality of accountability in Norway, such as procurement rules and management of FOIA requests.
21. Modernising public governance
• OGP value relevance: Unclear
• Potential impact: None • Completion: Unable to tell
This commitment was vaguely worded, which made it difficult to assess its potential impact or level of completion. Better management and greater ICT use would certainly matter, and the IRM researchers recommend commitments around this topic be written in clear, measurable language in future action plans.
22. Transparency in oil and gas revenue
• OGP value relevance: Clear • Potential impact: Minor • Completion: Limited
As currently formulated, most of the milestones under this commitment are not specific enough to be assessed. Of the milestones that could be assessed, a country-by-country reporting system was fully implemented in early 2014. Future commitments should move beyond existing work and be more specific in their formulation.
23. Managing Government Pension Fund
• OGP value relevance: Clear • Potential impact: Minor • Completion: Complete
Norges Bank made the voting results of their general meeting available online. However, the information is very difficult to find on their website, and it does not allow for use or comparison or provide background information on the data. It is also not clear that the voting results provide any more information than what is already made available by the Norwegian Ethical Council and the Finance Department. In the future, the government should explore ways to make voting information easier to access and to provide contextual information to make the results easier to understand.
24. Transparency and anti-corruption efforts
• OGP value relevance: Clear • Potential impact: Minor • Completion: Complete
A country-by-country reporting system was fully implemented 1 January 2014. It requires Norwegian-registered companies to report profits, expenses, taxes, and employees for each country in which they operate. Civil society generally appears satisfied with the new law, which represents an important step towards fighting international corruption. The IRM researcher recommends reviewing the law and exemptions earlier than the three-year review schedule and seeking civil society input on establishing sanctions.
Embargoed – not for quotation or citation
9
NAME OF COMMITMENT SUMMARY OF RESULTS
25. The municipal sector
• OGP value relevance: Clear • Potential impact: Minor • Completion: Limited
The Norwegian Association of Local and Regional Authorities (KS) created the Board Appointment Register. It provides an overview of board appointments and other important roles and interests for about 39,000 elected leaders. KS reports that the milestone regarding KOSTRA (municipality-state reporting) and schooling data are in progress while no progress has been made on accessible information concerning school objectives, strategies, plans, and results. Lastly, KS reports that work on examining dual role issues in connection with the revision of KS’s recommendations has not started. While these milestones are targeted at preventing corruption at the municipal level, KS’s CSO status seems to have inhibited progress on fulfilment. Moving forward, this commitment should be assigned to a government agency as responsible party.
RECOMMENDATIONSNorwayhasastrongtraditionforopennessandtransparencyandagenerallyvibrantcivilsociety.OnOGPissues,however,governmentengagementwithCSOshasbeenlacklustre.Commitmentsintheactionplanwerewordedvaguely,whichmadethemdifficulttoassessandlackingambition.Basedonthechallengesandfindingsidentifiedinthisreport,thissectionpresentstheprincipalrecommendations.
TOPFIVE‘SMART’RECOMMENDATIONS
1.Priortoconsultations,establishapublic-facingwebpresenceforOGPthatisdesignedtofacilitateinteraction,inwhichOGP-relatedinformationisorganisedaccordingtotheinterestsandmandatesofNorwegiancivilsociety.PromotethiswebpresenceinforumsandonwebsiteswhereNorwegiancivilsocietyisalreadyactive,suchashttp://www.bistandsaktuelt.no/.Usethiswebpresencetotrackproposalsandinputstoconsultations,regardlessoftheformatinwhichtheyaresubmitted,andtoprovidefeedbackonhowandwhyindividualproposalsareincorporatedintotheactionplan,orreasonstheyarenot.
2.DevelopandconsultonthethirdnationalactionplanaccordingtoatimelinethatisdevelopedinpartnershipwiththeOGPCouncil.
3.Priortodevelopingthenextnationalactionplan,seekministerial-levelpoliticalsupportfortheOGPfromkeygovernmentagencies.DevelopacommunicationsstrategyincollaborationwiththeOGPCouncilforpromotingtheOGPinnationalmediatoraiseawarenessandtofacilitatecivilsocietyengagementaheadofconsultations.
4.StrengtheninstitutionalownershipofOGPcommitmentsingovernmentagenciesbyestablishingaregularmulti-agencyprocessforsharingandmonitoringofcommitmentsbeforethenextimplementationcycle.
5.IncludemoreambitiousandmeasurablecommitmentsinthenextNationalActionPlanandensurethatthosecommitmentsmeettheSMARTcriteria,accordingtowhich,commitmentsshouldbeSpecific,Measurable,Answerable,Relevant,andTime-bound.ThesecommitmentsshouldbebasedonissuesthatareprioritisedinthecriticalmediaandbynationalCSOs.
Embargoed – not for quotation or citation
10
EligibilityRequirements:ToparticipateinOGP,governmentsmustdemonstratecommitmenttoopengovernmentbymeetingminimumcriteriaonkeydimensionsofopengovernment.Third-partyindicatorsareusedtodeterminecountryprogressoneachofthedimensions.Formoreinformation,seesectionIX:EligibilityRequirementsattheendofthisreportorvisit:http://www.opengovpartnership.org/how-it-works/eligibility-criteria.
Theengineroomsupportsinnovationinadvocacybymatchmakinginexistingsupportnetworksoftechnologists,supportorganisationsandadvocates.
The International LawandPolicy Institute(ILPI) isan independent institute focusingon goodgovernance,peaceandconflict,and internationallaw.ILPIprovidesresearch,analysis,processsupport,andtrainingtoclientsrangingfromprivatecompaniesandinstitutionstogovernmentsandinternationalorganisations.
TheOpenGovernmentPartnership(OGP)aimstosecureconcretecommitmentsfromgovernmentstopromotetransparency,empowercitizens,fightcorruption,andharnessnewtechnologiestostrengthengovernance.OGP’sIndependentReportingMechanismassessesdevelopmentandimplementationofnationalactionplanstofosterdialogueamongstakeholdersandimproveaccountability.
Embargoed – not for quotation or citation
11
I.NationalparticipationinOGPHistoryofOGPparticipationTheOpenGovernmentPartnership(OGP)isavoluntary,multi-stakeholderinternationalinitiativethataimstosecureconcretecommitmentsfromgovernmentstotheircitizenrytopromotetransparency,empowercitizens,fightcorruption,andharnessnewtechnologiestostrengthengovernance.Inpursuitofthesegoals,OGPprovidesaninternationalforumfordialogueandsharingamonggovernments,civilsocietyorganisations(CSOs),andtheprivatesector,allofwhichcontributetoacommonpursuitofopengovernment.OGPstakeholdersincludeparticipatinggovernments,civilsociety,andprivatesectorentitiesthatsupporttheprinciplesandmissionofOGP.Norway,oneoftheeightfoundingcountriesoftheOGP,beganitsformalparticipationinSeptember2011,whenthenPrimeMinisterJensStoltenberglaunchedtheinitiativealongwithotherheadsofstateandministersinNewYork.
ToparticipateinOGP,governmentsmustexhibitademonstratedcommitmenttoopengovernmentbymeetingasetof(minimum)performancecriteriaonkeydimensionsofopengovernmentthatareparticularlyconsequentialforincreasinggovernmentresponsiveness,strengtheningcitizenengagement,andfightingcorruption.Objective,thirdpartyindicatorsareusedtodeterminetheextentofcountryprogressoneachofthedimensions.SeeSectionIXon“EligibilityRequirements”formoredetails.
AllOGP-participatinggovernmentsarerequiredtodevelopOGPcountryactionplansthatelaborateconcretecommitmentsoveraninitialtwo-yearperiod.GovernmentsshouldbegintheirOGPcountryactionplansbysharingexistingeffortsrelatedtotheirchosengrandchallenge(s)(seeSectionIV),includingspecificopengovernmentstrategiesandon-goingprogrammes.Actionplansshouldthensetoutthegovernment’sOGPcommitments,whichmovegovernmentpracticebeyonditscurrentbaselinewithrespecttotherelevantgrandchallenge.Thesecommitmentsmaybuildonexistingefforts,identifynewstepstocompleteon-goingreforms,orinitiateactioninanentirelynewarea.
Norwaydevelopeditssecondnationalactionplaninthelatterhalfof2013.TheplanwasannouncedandsharedwithresponsiblegovernmentagenciesinNovember2013.Theeffectiveperiodofimplementationofthesecondnationalactionplaniscalendaryears2014and2015.Thisreportassessesthefirstyearofimplementationoftheactionplan,endingon30December2014.TheGovernmentofNorwaydisseminatedadraftversionofaself-assessmentreportforthesecondnationalactionplanon31March2015.
BasicinstitutionalcontextTheMinistryofForeignAffairs(MFA)incooperationwiththePrimeMinister’sOfficeco-ordinatedNorway’sinitialOGPinvolvement.TheIRMresearchershavenotidentifiedanyengagementofthePrimeMinister’sofficeinOGPprocessesfollowingthis,althoughtheMinistryofLocalGovernmentandModernisation(KMD)reportsthattherehasbeenregularcontactandmeetingsbetweenthePrimeMinister’sofficeandotherMinistries.Duringthecourseoftheimplementationofthefirstnationalactionplan,theMFAhandedresponsibilityforcoordinationovertotheMinistryofGovernment,Administration,andChurchAffairs(FAD),nowKMD.
TheNorwegianrepresentativeatmostOGPeventshasbeentheKMDStateSecretaryPaulChaffeywhohastakenamuchmorehands-onandengagedapproachtoOGPthanthepreviousgovernment,whichleftofficeinOctober2013.Theimpactofthechangeofgovernmentontheimplementationofthisactionplanisnotentirelyclear.Despitethefact
Embargoed – not for quotation or citation
12
thatseveraloftheactionplan’scommitmentsarealignedsubstantivelywiththenewgovernment’spoliciesandpoliticalprogramme,itappearsthatthenewgovernmenthasnotprioritisedtheOGPmandate,andthatthishashadconsequencesforpoliticalsupportandresourcesavailabletotheagenciesresponsibleforindividualcommitments.ThisalsomightcontributetothegenerallackofawarenessandenthusiasmregardingtheOGPthattheIRMresearchersencounteredwhenresearchingthisreport.
Thisalsoseemstobethecaseattheinternationalregister,asexemplifiedbythefactthattheNorwegianPrimeMinisterfailedtoattendtheOGPSummitonthemarginsoftheU.N.GeneralAssemblyinNewYorkinSeptember2014.NotbeingrepresentedbyaHeadofStateattheSummitsentanegativesignalwithregardtoNorway’sOGPparticipation.
OpinionsdifferonwhetherKMDisthemostappropriateinstitutional“home”forOGP.WhilerepresentativesofKMDseetheMinistryasthatwhichmostcloselyresemblesaministryoftheinterior,andtherebymostsubstantivelyalignedwithOGPcommitments,civilsocietyrepresentativessuggestthattheMinistryofFinancemighthavebeenamoreeffectiveagencyforcoordinationduetoitsdirectcontroloverbudgetandadministrativeresources,anditsstrongerpositionforinfluencingthenationalpoliticalagenda.
MFAcurrentlyfinancesKMD'scoordinationactivities,andhasresponsibilityforimplementingtwoOGPcommitments.KMD'smandatetocoordinateandimplementOGPactivitiesisbasedsolelyoninter-ministerialdirectives.Itisnotlegallymandated.
Aswiththefirstnationalactionplan,thesecondnationalactionplan'sbroadscoperequiresparticipationfromawidevarietyofgovernmentagencies.Thirteengovernmentagenciesarenamedresponsibleforimplementingcommitmentsinthesecondnationalactionplan.1Inaddition,onenon-governmentalbodyrepresentingmunicipalgovernmentsisresponsibleforonecommitment.2
Toassistwithcoordinationandengagementwithcivilsociety,theGovernmentofNorwayhasestablishedaCouncilforTransparencyinthePublicAdministration(Åpenhetsråd),whichalsofunctionsasanOGPCouncil.TheOGPCounciliscomposedofthreecivilsocietyrepresentatives,whoKMDappointsandfundsactivities.TheCouncilmeetsregularlyatleasteverytwomonths,butisnotmandatedtodo,sotechnicallyitisadhoc.TheCouncilparticipatesinallOGP-relatedmeetingshostedbyKMD,includinginter-departmentalmeetingsandmeetingswithcivilsociety.TheCouncilisfreetomeetwithministersofotherdepartmentstoraiseawarenessgenerallyaboutissuesconcerningtransparencyinpublicadministrationand,specifically,aboutNorway´scommitmentsonOGP.SincebeingestablishedinFebruary2015,theCouncilhasmetwiththreeministries.
AccordingtoanotedistributedbyKMDwithNorway’sself-assessmentreportinMarch2015,theCouncilhasamandateto:
• Provideinputtothedevelopmentandimplementationofnationalactionplans
• Followupwithactionplanimplementation
• Provideinputtoevaluationofactionplans
• RaiseawarenessoftheOGPinNorway,increaseengagementwithNorwegiancivilsociety,andcontributetoNorway'sleadingpositioninternationallyinregardtoopengovernance
• StrengthentheinvolvementofrelevantactorsinOGPprocesses
Embargoed – not for quotation or citation
13
• ParticipateinOGPforumstofacilitatetheexchangeofexperiencewithinstitutionsinotherOGPparticipatingcountries
SinceassumingresponsibilityforcoordinatingtheOGP,KMDreportsthatithasinvestedhumanresourcesequivalenttoapproximately75percentofanannualposition,themajorityofwhichhasbeenusedtoparticipateintheinternationalsteeringcommitteeforOGP,notfordomesticplanningorimplementation.TwohundredthousandNOKwereallocatedtoKMDforcoordinationofOGPactivities,and150,000NOKwereallocatedfor2014.
MethodologicalnoteTheIRMpartnerswithexperienced,independentnationalresearcherstoauthoranddisseminatereportsforeachOGPparticipatinggovernment.InNorway,theIRMpartneredChristopherWilsonoftheengineroom(http://theengineroom.org)andJoachimNahemoftheInternationalLawandPolicyInstitute(ILPI).JoachimNahemrecusedhimselffromtheroleofindependentresearchertoparticipateintheOGPCouncil,describedabove,andwasreplacedbyILPI’sLenaOlsen,whoworkedwithChristopherWilsontocarryoutthisevaluationofthedevelopmentandimplementationofNorway'ssecondactionplan.IRMresearchersfromtheengineroomandILPIreviewedthegovernment’sself-assessmentreport,gatheredtheviewsofcivilsociety,andinterviewedappropriategovernmentofficialsandotherstakeholders.OGPstaffandapanelofexpertshavereviewedthisreport.
ThisreportfollowsonanearlierreviewofOGPperformance,theNorwayProgressReport2011–2013,whichcoveredthedevelopmentofthefirstactionplanaswellasimplementationfrom1July2012to30June2013.
DuetolackofengagementandawarenessofOGPwithinNorwegiancivilsociety,theIRMresearchersdidnotattempttoconveneconsultationswithCSOsforthisreview,butinsteadinterviewedsixcivilsocietyrepresentativeswhowereactiveinthereviewofthefirstactionplananddevelopmentofthesecondnationalactionplan,aswellascivilsocietyrepresentativesparticipatingintheOGPcouncil.
1TheyincludetheAgencyforPublicManagementandE-Government(Difi),DirectorateofHealth,LanguageCouncilofNorway(Språkrådet),MinistryofDefence,MinistryofFinance,MinistryofForeignAffairs,theMinistryofPetroleumandEnergy,MinistryofJustice,MinistryofLabour,MinistryofLocalGovernmentandModernisation,NationalArchivesofNorway,NorgesBank,theGovernmentAdministrationService(DSS),theMinistryofHealthandCareServices,andtheNorwegianAssociationofLocalandRegionalAuthorities(KS).2ItistheNorwegianAssociationofLocalandRegionalAuthorities(KS).
Embargoed – not for quotation or citation
14
II.ActionplandevelopmentNorway’sengagementwithstakeholdersduringactionplandevelopmenthasbeenconductedprimarilythroughemailsandtwoin-personevents.Thelevelofcivilsocietyengagementintheseconsultationswaslowforavarietyofreasons,andIRMresearchersdidnotfindthatconsultationssuccessfullyincorporatedcivilsocietyandotherstakeholderinputintothedevelopmentoftheactionplan.CountriesparticipatinginOGPfollowasetprocessforconsultationduringdevelopmentoftheirOGPactionplan.AccordingtotheOGPArticlesofGovernance,countriesmust:
• Makethedetailsoftheirpublicconsultationprocessandtimelineavailable(onlineataminimum)priortotheconsultation,
• Consultwidelywiththenationalcommunity,includingcivilsocietyandtheprivatesector;seekoutadiverserangeofviewsand;makeasummaryofthepublicconsultationandallindividualwrittencommentsubmissionsavailableonline,
• UndertakeOGPawarenessraisingactivitiestoenhancepublicparticipationintheconsultation,and
• Consultthepopulationwithsufficientforewarningandthroughavarietyofmechanisms—includingonlineandthroughin-personmeetings—toensuretheaccessibilityofopportunitiesforcitizenstoengage.
Afifthrequirement,duringconsultation,issetoutintheOGPArticlesofGovernance.ThisrequirementisdiscussedinSectionIIIonConsultationduringimplementation:
• Countriesaretoidentifyaforumtoenableregularmulti-stakeholderconsultationonOGPimplementation—thiscanbeanexistingentityoranewone.
EvidenceforconsultationbeforeandduringimplementationisincludedhereandinTable1foreaseofreference.
Table1:ActionPlanConsultationProcessPhaseofActionPlan
OGPProcessRequirement(ArticlesofGovernanceSection)
Didthegovernmentmeetthisrequirement?
DuringDevelopment
Weretimelineandprocessavailablepriortoconsultation?
Yes
Wasthetimelineavailableonline? Yes
Wasthetimelineavailablethroughotherchannels?
Yes
Provideanylinkstothetimeline. Letterofnoticeofconsultation:http://bit.ly/1PPJlaL
Wasthereadvancenoticeoftheconsultation?
Yes
Howmanydaysofadvancenoticewereprovided?
91
Wasthisnoticeadequate? Yes
Embargoed – not for quotation or citation
15
Didthegovernmentcarryoutawareness-raisingactivities?
Yes
Provideanylinkstoawareness-raisingactivities.
None
Wereconsultationsheldonline? Yes
Provideanylinkstoonlineconsultations.
Theconsultationnotice:http://bit.ly/1PPJlaL
Werein-personconsultationsheld?
Yes
Wasasummaryofcommentsprovided?
Yes
Provideanylinkstosummaryofcomments.
Theresponsesfromsixofthe27CSOs:http://bit.ly/1FKtx8Z
Wereconsultationsopenorinvitation-only?
Invitation-only
PlacetheconsultationsonIAP2spectrum.1
Consult
DuringImplementation
Wastherearegularforumforconsultationduringimplementation?
No
Wereconsultationsopenorinvitation-only?
Open
PlacetheconsultationsontheIAP2spectrum.
Involve
Advancenoticeandawareness-raisingDescriptionofactivities:
On18April2013,KMDsentanemailtogovernmentagenciesaswellas27CSOsandorganisationsinthebusinesssector,invitingthemtoproposecommitmentsforthenextnationalactionplan.KMDreportsthattheserecipientswereselectedfromparticipantsintheindependentreviewofNorway’sfirstactionplan,inadditiontoorganisationsspecificallyselectedbyKMD.Itisnotclearhowemailrecipientswereselected.Thisinvitationwasrepeatedduringin-personOGPmeetingshostedbyKMDon6June2013and13June2013.Itisunclearwhoparticipatedinthesemeetings,butthefirstwasan“InformationMeeting”opentoallministriesandthesecondwasa“DialogueMeeting”announcedinanemailsenttoapproximately100representativesofcivilsocietyandgovernment.Whiletheeventwasnotpublicallyannounced,thoseinvitedwereencouragedtoinviteothers.
Thedeadlinetosubmitproposalsforthesecondactionplanwas18July2013.Sixwrittenproposalswerereceived.Thereisnorecordofanyproposalsmadeduringthein-personmeetingsandtheIRMresearcherswereunabletofindminutesorsummaryofthemeetings.
Embargoed – not for quotation or citation
16
Challenges:
ThescopeofKMD'soutreachforconsultationshasincreasedsteadily,andincreasingrecipientsfrom27to100issignificant.KMD'sdraftself-assessmentreportnotesthattherehasbeenanactiveefforttoincreasethescopeofoutreach.Thisincreaseinrecipientsdidnotseemtosignificantlyincreasecivilsocietyengagement(IRMresearchersparticipatedinmeetingshostedbyKMDanddidnotnotemorethanfiveorsixparticipantsrepresentingCSOs,includingmembersoftheOGPCouncil).Nordidincreasingthenumberofemailrecipientsappeartoincreasecivilsociety’sinputtothenationalactionplan(onlysixwrittensubmissionsareonrecord).Forthesereasons,itisworthreviewingotheraspectsoftheoutreach.
Timingwasanobviousimpedimenttoresponding,andplacingthedeadlineforsubmissionsinthemiddleofnationalsummerholidayslikelydiscouragedsubmissions,justasitdidduringconsultationsforthefirstactionplan.
Theformandaccessibilityofoutreachmaybejustasimportant.AllemailsfromKMDregardingtheconsultationprocesseshavebeenwrittenindenseadministrativelanguage,withsubstantiveinformationcontainedinuptosevenattachments,whichwerenotalwaysclearlylabelled.ThismayhavesignificantlydecreasedthelikelihoodthatrecipientsnotalreadyfamiliarwithOGPandmotivatedtoengagewouldreadandprocesstheinformation.Aslongasemaillistscontinuetobetheprimarymechanismforraisingawarenessandpromotingconsultations,clearlanguagerelevanttocivilsocietymaybenecessarytoincreasecivilsocietyengagement.
Similarly,theOGPwebpresenceinNorwayhasnotbeenhighlyengaging.NoticesforOGPactivitiesandconsultationsburieddeepingovernmentwebsitesarenoteasilyaccessibleandnotclearlypresented.Forexample,themainwebpagefortheOGPisatalonghyperlink:https://www.regjeringen.no/nb/tema/statlig-forvaltning/ogp/id723530/andcontainsapproximately1,600wordsofdensetextwithlinksandnointernalnavigation.Adedicatedwebsitesuchaswww.ogp.noandclearpresentationofkeyinformationlikelywouldbemoreaccessibletocivilsocietymembersnotalreadymotivatedtolearnaboutandengagewiththenationalOGPprocess.
DepthandbreadthofconsultationArecordofconsultationsisonlyavailableforthesixemailsubmissionsandtheconsultationheldafterthenationalactionplanwaslaunched.Thismakesitdifficulttodeterminewhetherconsultationscapturedadiversityofopinionsandtowhatextentthoseopinionsactuallyinfluencedthedevelopmentofthesecondnationalactionplan.
Itisworthnotingthatallin-personconsultationswereheldinOsloandparticipationwaslimited.KMDnotesinthedraftself-assessmentreport,thatnotallofthesixwrittenproposalswerereflectedinthedraftingoftheactionplan.
Whilewrittenproposalsindicatethatsomestakeholdersappreciatedtheopportunitytobeheard,oneCSOneverthelesscommentedthatthedeadlineforproposalswastooshortandthattherewasnotsufficientcivilsocietyinvolvement.2ThisperspectivewasconfirmedininterviewsbytheIRMresearchers,whencivilsocietyrepresentativesalsoemphasisedthattheconsultationtimingdiscouragedengagement,asitcollidedwiththenationalsummerholiday.
AdditionalInformationKMDreportsthattheNorwegianParliamentwasinvitedtoparticipateinoneoftheworkinggroups,buttheIRMdidnotidentifyanyparticipation.
Embargoed – not for quotation or citation
17
ThefollowingtableillustratesthedifferenteventsandcommunicationsthroughwhichtheNorwegiangovernmentcommunicatedwithNorwegiancivilsocietyandotherstakeholdersduringthepreparationandimplementationofthesecondactionplan.
Date Format Invited PublicAnnouncement?
Participants WrittenRecord?
April2013 Email,requestforproposals
27CSOsandorganisationsinthebusinessandprivatesector
No 6proposalsreceived
Yes,of6proposals
6June2013 DialogueMeetinghostedbyKMD
The27individualsinvitedtosubmitproposals,plusparticipantsinthepreviousOGPprocess
No Unclear No
13June2013 InformationMeetingforministries
Emailto115recipients,primarilyrepresentingrelevantgovernmentagencies,sentJune62013
OpeninvitationpostedonKMD'swebsite
18representativesofministries,and3civilsocietyandIRMrepresentatives
No
23Sept.2013 EmailrequestingcommentsonDraftActionPlan
Emailto114emailaddresses
No Unclear No
2Oct.2013 IRMreportonfirstactionplanreleasedforpubliccomment
31Oct.2013 Secondnationalactionplanlaunched
January2014 Implementationperiodbegins
1TheOpenGovernmentPartnership,Norway’sSecondNationalActionPlanonOpenGovernmentPartnership(OGP)bytheNorwegianMinistryofGovernmentAdministration,Reform,andChurchAffairs(Report,Washington,D.C.,2013);“IAP2SpectrumofPoliticalParticipation,”InternationalAssociationforPublicParticipation,http://bit.ly/1kMmlYC.2FeedbackprovidedbyFrivillighetNorgeisonfilewiththeIndependentresearchers,butnolongeravailableontheGovernmentwebsite.
Embargoed – not for quotation or citation
III.ActionplanimplementationTheGovernmentofNorwayhostedregularmeetingswithrelevantministriesandCSOsduringtheimplementationperiod.Althoughthesemeetingsappeartohaveprovidedausefulforumforinputandfeedback,itisnotclearwhatinputwassecuredorhowitwasused.AspartoftheirparticipationinOGP,governmentscommittoidentifyaforumtoenableregularmulti-stakeholderconsultationonOGPimplementation.Thiscanbeanexistingentityoranewone.Thissectionsummarisesthatinformation.
Regularmulti-stakeholderconsultationThreemeetingswereorganisedfollowingthelaunchofthesecondactionplan(17March2015,13June2015,and17April2015),asshowninthetableinSectionII.
Themeetingswereannouncedviaemailssenttobetween100and150recipients,representinggovernmentagenciesandCSOs.ThesemeetingswereheldingovernmentfacilitiesandwereheldsolelyforthepurposeofdiscussingOGP.Approximately30participantsjoinedeachmeeting.ThelastmeetingwasannouncedontheMinistry’swebsite,butthefirsttwowerenot.Itisnotclearthatthisannouncementhadanyconsequenceonthelevelofparticipation.
Meetingsgenerallylastedtwotothreehoursandwerecomposedofaseriesofpresentations.Summaryminutesfromsomeofthemeetingswerecirculatedtoparticipants,indicatingtheissuesthatwerediscussed.Theminuteswerecirculated1withscannedlistsoftheparticipants,whowrotetheirnamesonsign-upsheetstoindicatetheirparticipation.
IRMresearchersparticipatedineachofthesemeetingsandobservedthatgovernmentagenciesdominatedparticipation,andthatcivilsocietyparticipationwaslimitedtothreetofiveCSOs.
Generally,themeetingsappeartohaveprovidedausefulforumforinputandreflection,butthisdynamicwasinhibitedbyalackofengagementandparticipation.Itisnotclearhowmuchoftheinputreceivedactuallywasincorporatedintoofficialplanningprocessesorinfluencedactionplanimplementation.
Date Format Invited PublicAnnouncement?
Participants WrittenRecord?
17March2014
Meetingonprogressofimplementation
Emailto96recipients,sent9March2014
No 30representativesofgovernmentandcivilsociety
No
13June2014
Meetingonprogressofimplementation
Emailto158recipientssentJune5
No 27representativesofgovernmentandcivilsociety,plusPaulMaassen,DirectorforCivilSocietyEngagementat
Summarynotesentviaemailtoparticipants
Embargoed – not for quotation or citation
theOpenGovernmentPartnership
17April2015
Meetingtopresentinformationonthecloseofthe2ndactionplanandinputonthe3rdactionplan,hostedbyOGPCouncil
Emailto121recipientssent3April2015
Yes,postedonKMDwebsite
31representativesofgovernmentandcivilsociety
Summarynotesentviaemailtoparticipants
1GoogleDocLibrary,GoogleDrive,http://bit.ly/1IEjSvk
Embargoed – not for quotation or citation
IV.AnalysisofactionplancontentsAllOGPparticipatinggovernmentsdevelopOGPcountryactionplansthatelaborateconcretecommitmentsoveraninitialtwo-yearperiod.GovernmentsbegintheirOGPcountryactionplansbysharingexistingeffortsrelatedtoopengovernment,includingspecificstrategiesandon-goingprogrammes.Actionplansthensetoutgovernments’OGPcommitments,whichstretchpracticebeyonditscurrentbaseline.Thesecommitmentsmaybuildonexistingefforts,identifynewstepstocompleteon-goingreforms,orinitiateactioninanentirelynewarea.
Commitmentsshouldbeappropriatetoeachcountry’suniquecircumstancesandpolicyinterests.OGPcommitmentsshouldalsoberelevanttoOGPvalueslaidoutintheOGPArticlesofGovernanceandOpenGovernmentDeclarationsignedbyallOGPparticipatingcountries.TheIRMusesthefollowingguidancetoevaluaterelevancetocoreopengovernmentvalues:
AccesstoinformationCommitmentsaroundaccesstoinformation:
• Pertaintogovernment-heldinformation,asopposedtoonlyinformationongovernmentactivities.Forexample,releasinggovernment-heldinformationonpollutionwouldbeclearlyrelevant,althoughtheinformationisnotabout“governmentactivity”perse;
• Arenotrestrictedtodatabutpertaintoallinformation.Forexample,releasingindividualconstructioncontractsandreleasingdataonalargesetofconstructioncontracts;
• Mayincludeinformationdisclosuresinopendataandthesystemsthatunderpinthepublicdisclosureofdata;
• Maycoverbothproactiveand/orreactivereleasesofinformation;
• Maycoverbothmakingdatamoreavailableand/orimprovingthetechnologicalreadabilityofinformation;
• Maypertaintomechanismstostrengthentherighttoinformation(suchasombudsmanofficesorinformationtribunals);
• Mustprovideopenaccesstoinformation(itshouldnotbeprivilegedorinternalonlytogovernment);
• Shouldpromotetransparencyofgovernmentdecisionmakingandcarryingoutofbasicfunctions;
• Mayseektolowerthecostofobtaininginformation;
• ShouldstrivetomeettheFiveStarforOpenDatadesign(http://5stardata.info/).
CivicparticipationCommitmentsaroundcivicparticipationmaypertaintoformalpublicparticipationortobroadercivicparticipation.Theygenerallyshouldseekto“consult,”“involve,”“collaborate,”or“empower,”asexplainedbytheInternationalAssociationforPublicParticipation’sPublicParticipationSpectrum(http://bit.ly/1kMmlYC).
Commitmentsaddressingpublicparticipation:
Embargoed – not for quotation or citation
• Mustopendecisionmakingtoallinterestedmembersofthepublic;suchforumsareusually“top-down”inthattheyarecreatedbygovernment(oractorsempoweredbygovernment)toinformdecisionmakingthroughoutthepolicycycle;
• Canincludeelementsofaccesstoinformationtoensuremeaningfulinputofinterestedmembersofthepublicintodecisions;
• Oftenincludetherighttohaveyourvoiceheard,butdonotnecessarilyincludetherighttobeaformalpartofadecisionmakingprocess.
Alternatively,commitmentsmayaddressthebroaderoperatingenvironmentthatenablesparticipationincivicspace.Examplesincludebutarenotlimitedto:
• Reformsincreasingfreedomsofassembly,expression,petition,press,orassociation;
• ReformsonassociationincludingtradeunionlawsorNGOlaws;
• Reformsimprovingthetransparencyandprocessofformaldemocraticprocessessuchascitizenproposals,elections,orpetitions.
Thefollowingcommitmentsareexamplesofcommitmentsthatwouldnotbemarkedasclearlyrelevanttothebroaderterm,civicparticipation:
• Commitmentsthatassumeparticipationwillincreaseduetopublicationofinformationwithoutspecifyingthemechanismforsuchparticipation(althoughthiscommitmentwouldbemarkedas“accesstoinformation”);
• Commitmentsondecentralisationthatdonotspecifythemechanismsforenhancedpublicparticipation;
• Commitmentsthatdefineparticipationasinter-agencycooperationwithoutamechanismforpublicparticipation.
Commitmentsthatmaybemarkedof“unclearrelevance”alsoincludethosemechanismswhereparticipationislimitedtogovernment-selectedorganisations.
PublicaccountabilityCommitmentsimprovingaccountabilitycaninclude:
• Rules,regulations,andmechanismsthatcallupongovernmentactorstojustifytheiractions,actuponcriticismsorrequirementsmadeofthem,andacceptresponsibilityforfailuretoperformwithrespecttolawsorcommitments.
Consistentwiththecoregoalofopengovernment,”tobecountedas“clearlyrelevant,”commitmentsmustincludeapublic-facingelement,meaningthattheyarenotpurelyinternalsystemsofaccountability.WhilesuchcommitmentsmaybelaudableandmaymeetanOGPgrandchallenge,theydonot,asarticulated,meetthetestof“clearrelevance”duetotheirlackofopenness.Wheresuchinternal-facingmechanismsareakeypartofgovernmentstrategy,itisrecommendedthatgovernmentsincludeapublicfacingelementsuchas:
• Disclosureofnon-sensitivemetadataoninstitutionalactivities(followingmaximumdisclosureprinciples);
• Citizenauditsofperformance;
• Citizen-initiatedappealsprocessesincasesofnon-performanceorabuse.
Embargoed – not for quotation or citation
Strongcommitmentsaroundaccountabilityascriberights,duties,orconsequencesforactionsofofficialsorinstitutions.Formalaccountabilitycommitmentsincludemeansofformallyexpressinggrievancesorreportingwrongdoingandachievingredress.Examplesofstrongcommitmentsinclude:
• Improvingorestablishingappealsprocessesfordenialofaccesstoinformation;
• Improvingaccesstojusticebymakingjusticemechanismscheaper,faster,oreasiertouse;
• Improvingpublicscrutinyofjusticemechanisms;
• Creatingpublictrackingsystemsforpubliccomplaintsprocesses(suchascasetrackingsoftwareforpoliceoranti-corruptionhotlines).
Acommitmentthatclaimstoimproveaccountability,butthatmerelyprovidesinformationordatawithoutexplainingwhatmechanismorinterventionwilltranslatethatinformationintoconsequencesorchange,wouldnotqualifyasanaccountabilitycommitment.Seehttp://bit.ly/1oWPXdlforfurtherinformation.
TechnologyandinnovationforopennessandaccountabilityOGPaimstoenhancetheuseoftechnologyandinnovationtoenablepublicinvolvementingovernment.Specifically,commitmentsthatusetechnologyandinnovationshouldenhanceopennessandaccountabilityby:
• Promotingnewtechnologiesthatofferopportunitiesforinformationsharing,publicparticipation,andcollaboration.
• Makingmoreinformationpublicinwaysthatenablepeoplebothtounderstandwhattheirgovernmentsdoandtoinfluencedecisions.
• Workingtoreducecostsofusingthesetechnologies.
Additionally,commitmentsthatwillbemarkedastechnologyandinnovation:
• Maycommittoaprocessofengagingcivilsocietyandthebusinesscommunitytoidentifyeffectivepracticesandinnovativeapproachesforleveragingnewtechnologiestoempowerpeopleandpromotetransparencyingovernment;
• Maycommittosupportingtheabilityofgovernmentsandcitizenstousetechnologyforopennessandaccountability;
• Maysupporttheuseoftechnologybygovernmentemployeesandcitizensalike.
NotallE-Governmentreformsimproveopennessofgovernment.AnE-Governmentcommitmentneedstoarticulatehowitenhancesatleastoneofthefollowing:accesstoinformation,publicparticipation,orpublicaccountability.
Recognisingthatachievingopengovernmentcommitmentsofteninvolvesamulti-yearprocess,governmentsshouldattachtimeframesandbenchmarkstotheircommitmentsthatindicatewhatistobeaccomplishedeachyear,wheneverpossible.ThisreportdetailseachofthecommitmentsNorwayincludedinitsactionplan,andanalysesthemfortheirfirstyearofimplementation.
Whilemostindicatorsusedtoevaluateeachcommitmentareself-explanatory,anumberdeservefurtherexplanation.
1. Specificity:TheIRMresearcherfirstassessesthelevelofspecificityandmeasurabilitywithwhicheachcommitmentoractionwasframed.Theoptionsare:
Embargoed – not for quotation or citation
• High(Commitmentlanguageprovidesclear,measurable,verifiablemilestonesforachievementofthegoal)
• Medium(Commitmentlanguagedescribesactivitythatisobjectivelyverifiable,butdoesnotcontainclearlymeasurablemilestonesordeliverables)
• Low(Commitmentlanguagedescribesactivitythatcanbeconstruedasmeasurablewithsomeinterpretationonthepartofthereader)
• None(Commitmentlanguagecontainsnoverifiabledeliverablesormilestones)
2. Relevance:TheIRMresearcherevaluatedeachcommitmentforitsrelevancetoOGPvaluesandOGPgrandchallenges.
• OGPvalues:ToidentifyOGPcommitmentswithunclearrelationshipstoOGPvalues,theIRMresearchermadeajudgmentfromaclosereadingofthecommitment’stext.Thisjudgmentrevealscommitmentsthatcanbetterarticulateaclearlinktofundamentalissuesofopenness.
3. Potentialimpact:TheIRMresearcherevaluatedeachcommitmentforhowambitiouscommitmentswerewithrespecttoneworpre-existingactivitiesthatstretchgovernmentpracticebeyondanexistingbaseline.
• Tocontributetoabroaddefinitionofambition,theIRMresearcherjudgedhowpotentiallytransformativeeachcommitmentmightbeinthepolicyarea.ThisisbasedontheIRMresearcher’sfindingsandexperienceasapublicpolicyexpert.Toassesspotentialimpact,theIRMresearcheridentifiesthepolicyproblem,establishesabaselineperformancelevelattheoutsetoftheactionplan,andassessesthedegreetowhichthecommitmentwouldimpactperformanceandtacklethepolicyproblem,ifimplemented.
AlloftheindicatorsandmethodusedintheIRMresearchcanbefoundintheIRMProceduresManual,availableathttp://www.opengovpartnership.org/about/about-irm.Onemeasuredeservesfurtherexplanation,duetoitsparticularinterestforreadersandusefulnessforencouragingaracetothetopbetweenOGP-participatingcountries:the“starredcommitment.”StarredcommitmentsareconsideredexemplaryOGPcommitments.Toreceiveastar,acommitmentmustmeetseveralcriteria:
1. Itmustbespecificenoughthatajudgmentcanbemadeaboutitspotentialimpact.Starredcommitmentswillhave"medium"or"high"specificity.
2. Thecommitment’slanguageshouldmakeclearitsrelevancetoopeninggovernment.Specifically,itmustrelatetoatleastoneoftheOGPvaluesofAccesstoInformation,CivicParticipation,orPublicAccountability.
3. Thecommitmentwouldhavea"transformative"potentialimpactifcompletelyimplemented.1
4. Finally,thecommitmentmustseesignificantprogressduringtheactionplanimplementationperiod,receivingarankingof"substantial"or"complete"implementation.
Finally,thegraphsinthissectionpresentanexcerptofthewealthofdatatheIRMcollectsduringitsprogressreportingprocess.ForthefulldatasetforNorway,andallOGP-participatingcountries,seetheOGPExplorer.2
Embargoed – not for quotation or citation
GeneraloverviewofthecommitmentsFollowingbackgroundinformation,adescriptionoftheprocessthroughwhichitwasdeveloped,andadetaileddescriptionofNorway'spoliticalcultureforopenness,thesecondNorwegiannationalactionplanforOGPlists25commitments.Thecommitmentsarenotgroupedorcategorised.Afterachangeingovernment,atwenty-sixthcommitmentwasaddedafterthepublicationoftheoriginalactionplan.Butitwasneverincludedinawrittendocumentandisnotreviewedinthisreport.Itrelatedtomunicipalityreform,butIRMresearcherswereunabletodeterminefurtherdetailsofwhatthiscommitmentwastoentail.
The25commitmentstogetheremphasiseabroadrangeofactorsandthemes,includingcorruption,internationalcoordinationonfinancialtransparency,archiving,municipaltransparency,anddigitalsolutionsforaccesstoinformation.
1TheInternationalExpertsPanelchangedthiscriterionin2015.IndependentReportingMechanism(IRM),“IRMtoRaisetheBarforModelCommitmentsinOGP,”Blog,OpenGovernmentPartnership,6May2015,http://www.opengovpartnership.org/node/5919.2TheOGPExplorerprovidestheOGPcommunity—civilsociety,academics,governments,andjournalists—witheasyaccesstothewealthofdatathatOGPhascollected.“OGPExplorer,”OpenGovernmentPartnership,http://www.opengovpartnership.org/explorer/landing.
Embargoed – not for quotation or citation
1.Publicreviewandpublicconsultation[…]ThepurposeoftheNorwegianpublicconsultationsystemistwofold:
- ·Toprovidethebestpossiblebasisformakingpublicpolicydecisions(thequalityaspect)
- ·Toensurethataffectedpartiesandotherstakeholdershavetheopportunitytoexpresstheiropinions(thedemocraticaspect)
TheNorwegianconsultationprocesshastwostages:
1. Proposalsaremadebygovernment-appointedcommittees.
2. Theproposalsfromsuchcommitteesaresubmittedforpublicconsultation.[…]
COMMITMENTDESCRIPTION
NewInstructionsforOfficialStudiesandReportsaretobedrafted.Theobjectiveistoimprovethebasisfordecisionsinthepublicadministration.Theobjectiveistoenhancethebasisforpublicauthoritydecisions.Moreefficientuseofnewtechnologyisoneofthemeansavailabletoachievebetterinvolvementofstakeholdersandthepublic.
KEYIMPACTBENCHMARK
NewInstructionsforOfficialStudiesandReportsaretobedrafted.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,seehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e ✔ ✔ ✔ ✔ ✔ ✔
Whathappened?NewInstructionsforOfficialStudiesandReports
InstructionsforOfficialStudiesandReportsareguidelinesthatdictatehowgovernmentofficialsengageinconsultativeprocessesforofficialstudiesandreports,aswellasothertypesofofficialinvestigationwork.Theydonotapplytopublicconsultationsgenerally,butonlyconsultationsonofficialstudiesandreports.Thustheyrepresentaveryimportantmeasureforaverynarrowtypeofpublicconsultation.Thepreviousinstructionscurrentlyarebeingreviewedtodeterminewhatkindsofnewinstructionswouldbeappropriate.TheKMDcontactpointforthiscommitmentreportsthattheworkisproceedingslowlyduetotheneedforextensiveconsultationswithmultipleministriesandagencies,butthatthiswasexpected.Thecontactalsoreportedthatthedraftinstructionsarenearlycomplete.
Embargoed – not for quotation or citation
Moreefficientuseofnewtechnology
TheIRMresearcherswerenotabletoidentifyanyuseoftechnologyoranyspecificintentiontousetechnologytoenhancepublicconsultation.
Diditmatter?Norwayhasatraditionfortop-downgovernmentadministration,andwhileconsultativeprocesseswithingovernmentandacrossagenciesisawell-establishedpractice,theIRMresearchershavenotdiscoveredmanyinstitutionalprocessesforpublicconsultationswithcitizens.Assuch,thiscommitmentisprogressiveandlaudable,butcoversarelativelynarrowscopeofpublicadministration(consultationonofficialstudiesandreportsandotherofficialinvestigations)andshouldbeviewedasasmallandincrementalstepwithinthelargercontextofchanginginstitutionalculturetobecomemorebottom-upandinterestedinpublicfeedback.
TheKMDcontactforthiscommitmentnotesthatthisworkwouldhavebeenpursuedregardlessoftheOGPcommitment.TheKMDcontactalsonotes,however,thatincludingthison-goingworkintheactionplanhasbeenusefulbecauseitarticulatedtheintentiontodeveloptheconceptofpublicconsultationstowardsmoreopenconsultations.
Thecommitmentdoesnotspecifyanycontenttobeincludedinthenewguidelines,norisitclearwhatthenewguidelineswillcontain.ItisnotcleartotheIRMresearcherswhatimpactthecommitmentwouldhavewhenfulfilled,becausethecommitmentdoesnotindicateanysubstancetobeincludedinthenewguidelines.
MovingforwardWhiletheprincipleunderlyingthiscommitmentislaudable,thecommitmentitselffocusesonpublicconsultationonlyasitrelatestoofficialstudiesandreports.Thescopeofactiondictatedbysuchinstructions(suchassettinglimitsforminimumconsultationperiodsfordifferenttypesofgovernmentdocuments)islikelytohaveonlyanincrementalimpactonchanginginstitutionalculturesfortop-downplanningandadministration,especiallyintheNorwegianmunicipalcontext.
Thiscommitmentreflectson-goingpoliticalprocessesandwouldhavetakenplaceindependentofOGPprocesses.Assuch,KMDdecidednottoincludeitintheupcomingnationalactionplan,butstillconsidersofficialinstructionstoberelevantforOGP.KMDsuggeststhattheymaybemoreimportantthanothermechanismsforaccountabilityandtransparency,suchasthenationalFreedomofInformationAct(FOIA),duetotheinstructionsbreadthofscope.TheIRMresearchersdidnotfindsupportforthisperspectivefrominterviewswithCSOs,whoplacedamuchhigherpremiumonmechanismssuchastheFOIAandOpenElectronicPostJournals(seecommitment4).
Embargoed – not for quotation or citation
2.Abetteroverviewofcommittees,boards,andcouncils-MorepublicaccesstoinformationandbetteropportunitiesforfurtheruseTheMinistryofGovernmentAdministration,ReformandChurchAffairshasresponsibilityforkeepingarecordofcentralgovernmentcommittees,boardsandcouncils.TherecordisavailableinadatabasethatcanbeaccessedfromtheNorwegianGovernmentwebsite,Regjeringen.no.Thedatabasecontainsinformationprovidedbythevariousministries,andhasnofacilitiesforadvancedsearching.
COMMITMENTDESCRIPTION
Maketherecordofcommittees,boards,andcouncilseasiertouseforthegeneralpublic,publicadministration,andresearchinstitutions.
KEYIMPACTBENCHMARK
Maketheinformationavailableintheformofsearchablefiles
ACTIVITIES
IncooperationwiththeMinistryofGovernmentAdministration,ReformandChurchAffairs(GovernmentAdministrationServices),theNorwegianSocialScienceDataServices(NSD)andtheAgencyforPublicManagementandeGovernment(Difi)willprepareprinciplesfortechnicalsolutions.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ Unable to Tell from
Government and Civil Society Responses
Whathappened?TheMinistryofMunicipalityandModernisation(KMD)reportsthatworkonthiscommitmentbeganwithapreparatoryphase.Itisnotclearwhatactivitythisincludes,andtheIRMresearcherswerenotabletogatheranyadditionalinformationortosecureaninterviewwiththecontactpointforthiscommitment.
Thecommitmentistocreateprinciplesforimprovedfunctionalityofawebsite(Regjeringen.no).Itisnotclearwhatformtheseprincipleswouldtakeorwhethertheyhavebeenestablished.
Diditmatter?Accesstoinformationregardingindividuals'participationongovernmentcommittees,boards,andcouncilsisagoodthing,andsearchableonlinefilesappeartobeagoodsolution.However,theIRMresearcherswerenotabletoidentifyacleardemandforthismeasurefromstakeholdersinterviewed.
Embargoed – not for quotation or citation
NoristhisclearlyapriorityareaorprioritymechanismforaccesstoinformationinNorway.Recentpoliticaldebatessurroundingaccesstopoliticaldocumentsatthemunicipallevel(seecountrycontext)makeitclearthatthereareothermechanismstogainaccesstoinformationongovernmentroles.ThecompletionofthiscommitmentlikelywouldhaveminorimpactonthequalityofaccesstoinformationinNorway.
MovingforwardKMD'sinputtotheNorwegianGovernment'sself-assessmentreportdescribesthenextstepforthisactiontobethecreationofadatabasefor“collegialbodies.”TheIRMresearchersunderstandthistomeanboardsandadministrativebodiesformunicipalorganisations.ItisnotclearhowthisrelatestothecommitmentorwhetherthecommitmentbelongsinanOGPnationalactionplan.Asthisseemsperipheraltothelargerquestionsaboutaccesstoinformationandcultivatingacultureofopennessingovernment,especiallyatthemunicipallevel,thiscommitmentshouldnotbeprioritisedinfutureOGPactionplans.
Embargoed – not for quotation or citation
3.“Simplify”(“Enkeltoggreit”)Thegovernment’s“Simplify”projectwasinitiatedbytheNorwegianPrimeMinisterinFebruary2013.[…]
Themaingoaloftheprojectwas,incooperationwithcivilsociety,toidentifyfieldsorissueswherethegovernmentcansimplifytheeverydaylivesofcitizens.
Inthisproject,theGovernmentadoptedanumberofdifferentworkingmethods:
• DialoguebetweentheAgencyforPublicManagementandeGovernment(Difi)andcivilsocietyorganizations(NGOs)
• ConsultationbetweenthePrimeMinisterandrepresentativesfromcivilsociety• DialoguebetweensomeministriesandtheOfficeofthePrimeMinister• AnelectronicmailboxontheInternetwherethecitizenswereabletomake
suggestionsandcomments.
Theseprocessesresultedinmorethan300proposalsfromcitizens,NGOsandcivilservants.Differentministriesareresponsibleforthe45commitments.The“Simplify”documenthas45commitments.
COMMITMENTDESCRIPTION
Simplifywasworkedoutbytheformergovernment.Thenewgovernmentwillconsiderthisdocumentinconnectionwithitseffortstomodernizepublicsector.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e ✔ Unclear ✔
Unable to Tell from Government and Civil
Society Responses
Whathappened?ThiscommitmentisfortheNorwegiangovernmenttoconsideradocumentproducedbytheformergovernment.Thedocumentpresentedrecommendationsonhowaccesstopublicservicescouldbesimplified,basedonconsultationswithcitizens.1TheIRMresearchershavenotfoundevidenceofanyformalprocessesthroughwhichthisdocumenthasbeen“considered.”
Diditmatter?Thiscommitmentlackstractioninthecurrentpoliticalenvironment,duelargelytotherecentchangeingovernment.Thenewgovernmentisexplicitlycommittedtomanyoftheprinciplesinthiscommitment,especiallyincreasingtheeaseofinteractionwith
Embargoed – not for quotation or citation
government,inparticularforbusiness.However,becausethegovernmentusesdifferentmechanismstopursuetheseaims,therelevanceofthe“Simplify”documentandthiscommitmentislimited.
MovingforwardThefocusofthisinitiativeisonfacilitatingefficientgovernmentandefficientinteractionwithgovernment,especiallyforbusiness.Whilethisisalaudablegoal,thecommitment’srelevancetoOGPvaluesofaccesstoinformation,civicparticipationandpublicaccountabilityisnotclearlyarticulated.TheseareexplicitpoliticalobjectivesforthecurrentNorwegianGovernment,whichisactivelypursuingthemthroughavarietyofmechanisms.ButtheseobjectivesarenotclearlyapriorityareaforopengovernmentinNorwayandshouldnotbeprioritisedinfutureOGPactionplans.
1EnkeltogGreitbytheNorwegianGovernment(Report,2013),http://bit.ly/1Lydm92
Embargoed – not for quotation or citation
31
4.ElectronicPublicRecord(OEP)-(Offentligelektroniskpostjournal)[…]
ElectronicPublicRecords(OEP)isacollaborativetoolwhichcentralgovernmentagenciesusetopublicizetheirpublicrecordsonline.Publicrecorddataarestoredinonesearchabledatabase.Userscansearchthisdatabasetolocatecasedocumentsrelevanttotheirfieldofinterest.Havinglocatedrelevantcasedocuments,usersmaysubmitrequeststoviewthese.Requestsaresenttotherespectiveagenciesresponsibleforthecasedocumentsandpublicrecordentries.TheagenciesthemselvesthenprocessrequestssenttothemviaOEP,andreplytousersdirectly.[…]
COMMITMENTDESCRIPTION
TheOEPsoftwarehasbeendevelopedonthebasisofopensourcecode,mainlybasedonfreesoftware,andisthereforeavailabletootherlevelsofgovernmentsaswellaspublicandprivateinstitutionsforre-usefreeofchargeandwithoutrestrictions.Thesolutionisintendedtobeaccessibletoallkindsofusergroups.Ithasbeendevelopedinkeepingwithuniversaldesignprinciplesandwebdevelopmentstandards.
KEYIMPACTBENCHMARK
Onrequest,NorwaywillshareitsexperiencesofOEPandthesourcecodewithothercountries.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?ThiscommitmentdoesnotseemtointendtoimproveElectronicPublicRecords(OEP)inanyway.ThecommitmentdescriptionnotesOEPoriginsandstatesthatitshouldbeshared,andthebenchmarkissharingthegovernment'sexperiencewithOEPwithothercountriesondemand.Todate,representativesoftheAgencyforPublicManagementandE-Government(Difi)haveparticipatedinseveralinternationalconferences,whichwouldseemtohavefulfilledthecommitment,buttheseconferencesdonotseemtohavebeenarrangedexplicitlyforsharingOEPexperiences.TheIRMresearcherswerenottoldofanyspecificrequestsfromothercountriesforsharingtheplatformorrelatedexperiences.
Diditmatter?SharingtheNorwegianGovernment’sexperiencewithOEPhasbeenanon-goingeffortofDifisincebeforetheactionplanwasdrafted.Difi'scontactpointforthiscommitment
Embargoed – not for quotation or citation
32
suggeststhatinclusionofthiscommitmentinthesecondnationalactionplanprovidesasmalldegreeofaccountabilitythatotherwisewouldhavebeenabsent,butthatthecommitmentitselfisvague,andthereislittleinterestintheissuenationally.AccordingtotheDificontact,thereissignificantinterestintheOEPinternationally,whichissufficienttosatisfythiscommitment,butverylittleinterestintheOEPamongnationalstakeholders.
MovingforwardCivilsocietyrepresentativesinterviewedbytheIRMresearchersindicatedthatOEPisaquiteimportantmechanismfortransparencyandaccountabilityinNorwegiangovernance.Becauseofthevastamountofadministrativedocumentationandcorrespondenceitcovers,OEPprovidesanimportantalternativeandcomplementarymechanismtotheFOIA.AlthoughcivilsocietyinterviewssuggestthattheOEPisnotaswellknownoraccessibleasitcouldbe,thedegreeofOEPuseoraccessibilityisuncleartotheIRMresearchers.Statisticsprovidedbythegovernmentathttps://oep.no/content/statistikk?lang=nbindicateverywideuse(millionsofreleasesandrequests),butdonotprovideanyinsightsonhowrequestsorreleasesaremadeorbywhom.FurthercommitmentsregardingtheOEPinOGPactionplansshouldconsidertheneedtoraiseawarenessamongcitizensandcivilsociety.
Specificcommitmentsinthisregardmightincludeholdingfreeworkshopstotraincivilsocietyonusingtheplatformorconductinguserresearchwithcivilsocietyandimplementingimprovementsontheplatformbasedonthisresearch.
Embargoed – not for quotation or citation
5.Re-useofpublicsectorinformation(PSI)[…]
COMMITMENTDESCRIPTION
1.Allstateenterprisesarerequiredtomakepublicdataavailablesothatitcanbeusedbyothers,i.e.publishedelectronicallyinauser-friendlyformat.
2.Thegovernmenthasrecentlypublishedacallfortenderforacase-based,socio-economicanalysisoftheavailabilityofpublicgeospatialdatainNorway.Theaimoftheanalysisistoidentifyalternativewaysoffacilitatingthepublicationofspatialdataincomparisonwiththecurrentsituation.Theanalysisshoulddeterminewhichoptionprovidesthebestoveralleconomicsolution.ThestudyshouldbereadybyQ22014.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Whathappened?Requiringallstateenterprisetomakepublicdataavailablesothatotherscanuseit
InOctober2014,NorwayheldahearingontheimplementationoftheE.C.DirectiveontheRe-useofPublicSectorData1andcurrentlyisreviewingsubmissionstothatconsultation.AnevaluationprocesswasinitiatedregardingtheNorwegianPublicDataLicensingSystem(NLOD),whichallowsuserstocopy,use,andredistributelicenseddatawithattributionofthedataprovider.2Thesearestepstowardscompletingthisaction,althoughtheNorwegianself-assessmentreportnotesthatrequiringallstateenterprises“tomakepublicdataavailablesothatitcanbeusedbyothers”issobroadthatitmustberegardedason-goingwork.Forthesereasons,itisdifficulttodeterminewhetherthecommitmentiscompleted,althoughtheself-assessmentreportalsonotesNorway'spositionontheGlobalOpenDataIndexandtheOpenDataBarometerasevidenceofprogress(despitethefactthatNorway'srankdroppedonbothIndicessincethepreviousyear).3
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to
info
rmat
ion
Civ
ic p
artic
ipat
ion
Publ
ic a
ccou
ntab
ility
Tec
h. a
nd I
nnov
. for
T
rans
pare
ncy
and
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
OVERALL ✔ ✔ ✔ ✔ ✔
1. Electronically available data ✔ ✔ ✔ ✔
2. Study of availability of data
✔ ✔ ✔ ✔ ✔
Embargoed – not for quotation or citation
Tenderandreviewacase-based,socio-economicanalysisoftheavailabilityofpublicgeospatialdatainNorway
Theministryisconsideringtheanalysis,completingthisaction.TheanalysiswillbeusedtodevelopanactionplanformakingGeographicInformationSystem(GIS)dataavailableinthecontextofsectorspecificwork,referencedabove.TheIRMresearcherswereunabletofindfurtherinformationonhowthisisdoneoranyspecificimpactsthattheanalysismayhavehad.
Diditmatter?Thiscommitmentissimultaneouslyimpossiblyambitious(requiringallgovernmentagencies“tomakepublicdataavailablesothatitcanbeusedbyothers”)andnotablyunambitious(commissioningamappingofavailableGISdata).However,activitiesattachedtothiscommitmentwouldhavebeenundertakeneveniftheOGPactionplandidnotexist.AlthoughinternationalcommitmentssuchastheOGPprovideauseful“pressurepoint”inregulatingagencies'publicationofdata,KMD’scontactpointforthiscommitmentnotesthatitalsocanbestrategictodeemphasiseOGP,asthereareseveralotherinternationalpolicyarenasrelevanttothiscommitmentinwhichNorwayisalsoinvolved.PolicysuchastheEuropeanUniondirectivesondataprotectionismorefamiliarintheNorwegianpoliticalcontextandcanprovidestrongerincentivesandpoliticalcapital.4
MovingforwardKMDintendstoprioritisemakingculturaldata,transportationdata,researchdata,geo-dataandpublicexpensespubliclyavailable,andintendstodevelopactionplansforeachoftheseareas(notOGPactionplans).ThisseemstobeareasonableapproachtofurtherworktowardsacommitmentthatisinlinewithnationalpolicyandonwhichNorwayalreadyisperformingwell.
Obstaclestoimprovethereusabilityofpublicsectordataappeartobeprimarilyaboutcapacityofgovernmentagenciestoreleasedata,notlackofpoliticalinterest.Indeed,thebusinesscaseformakingthistypeofdataavailableseemstobewidelyacceptedbygovernmentactorsandiswellalignedwiththepoliticalprioritiesofthegovernmentinpower.Improvingandharmonisingcapacitiestoengageinreleasingdataacrossagencieswouldbeamoremeaningfulandambitiousfocusforthiscommitment.Specifically,theKMDshouldconsiderestablishingcommontechnicalstandardsfordatareleaseacrossstateenterprisesandconductingspecifictrainingexercisestobuildthecapacitiesofthoseenterprisestoreleasepublicsectordata.
1TheEuropeanParliamentandCouncil,“Directive2003/98/ECoftheEuropeanParliamentandoftheCouncilof17November2003ontheRe-useofPublicSectorInformation,”OfficialJournalL345,3December2003,http://bit.ly/1OcXAce.2“NorwegianLicenseforPublicData,”Difi,http://data.norge.no/nlod/no/1.0.3GlobalOpenDataIndex,http://index.okfn.org/;“OpenDataBarometerSecondEdition(January2015),”http://www.opendatabarometer.org/.4ThomasNordtvetd,commitmentfocalpointatKMD,sectionforICTsandinnovation,interviewwiththeIRMresearchers,16March2015.
Embargoed – not for quotation or citation
6.AccesstohealthdataOneimportanthealthpolicygoalistoensureeachindividual’sopportunitytobeinvolvedinprocessedanddecisionsconcerningtheirownhealth.Easyandsecuredigitalservicesshallmakecontactwiththehealthandcareserviceeasierandcontributetothecitizens’perceptionoftheserviceasaccessibleandcomprehensive.
Citizensshallhavesecureandeasyelectronicaccesstotheirownhealthrecords,Self-servicesolutionsandelectronicdialoguewithhealthpersonnel.[…]
Theservicesshallbeavailabletothecitizensonthenationalhealthportal,helsenorge.no.Through“Myhealth”ontheInternet,patientsandusersshouldbeabletoaccesstotheirownhealthrecords.Throughsecurechannels,itwillbepossibleforcitizenstohaveanelectronicdialoguewithhealthpersonnel.Self-servicesolutionsforelectronicschedulingandrenewalofprescriptionsandelectronicdialoguewithhealthpersonnelwillalsobeoffered.Citizensshallalsohaveaccesstoinformationaboutavailableservicesandtreatmentquality.Thisinformationwillbeavailableonhelsenorge.noandgivethecitizensassistanceinfindinghealthandcareservicethatsuitstheirneeds.Public,non-personaldatafromthehealthsectorshallbemadeavailableonhelsenorge.notosupportdevelopmentofuser-adapted,Internet-basedhealthservicesandappsthatthepublicsectorwillnotbecapableofdevelopingalone.
KEYIMPACTBENCHMARK
Servicesareavailableonhelsenorge.no.Electronicidentification(eID)withhighlevelofsecurityisanimportantcomponentinordertoestablishdigitalservicesforthecitizens.
ACTIVITIES
Servicesaretobeestablishedandfurtherimprovedonthehealthportalhelsenorge.no.CollaborationbetweentheDirectorateofHealth,asownerofhelsenorge.no,andthehealthcareprovider’sorganisationsisnecessarytoprovideaccesstopatientrecords.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
CommitmentOverview
Specificity OGPValueRelevance PotentialImpact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔ ✔
Whathappened?Servicesareavailableonhelsenorge.no
Anumberofpreliminarystepshavebeentakentowardsthisobjective.Useraccesstoelectronicprescriptionshasbeenestablishedonwww.helsenorge.no.Accesstopersonal
Embargoed – not for quotation or citation
healthdataonlinehasbeenestablishedfor700,000people.Apilotprojectofaccesstopatientjournalsfromhospitalshasbeeninitiated,andonlineappointmentbookinganddigitalhealthcaredialoguescurrentlyarebeingtestedwithselecthealthcareinstitutions.Sincethecommitmentdoesnotspecifywhichservices,orforwhom,thisactioncanbeunderstoodascompleted.
Electronicidentification(eID)withhighlevelofsecurity
TheIRMresearcherswerenotabletodeterminewhetheraneIDwasincludedintheaboveservices.
Diditmatter?TheactivitiesreferencedinthiscommitmentarepartofabroadereffortbytheNorwegianGovernmenttoreformNorwegianhealthcarepolicy,withafocusonreducingwaitingtimesforaccesstohealthcareandimprovingqualityofhealthservices.1TheIRMresearchershavefoundnoevidencethattheactionplanplayedaroleinmotivatingtheseactivities.Theactivities,iftheyarecompleted,representminor,butpositivestepstowardsaverybroadandambitiousgoal.
Thereissignificantpoliticalinterestinthisareaatthemoment,aswellasanumberofprivatesectoractorscurrentlyworkingtoaccessandcapitaliseonhealthdata.However,theIRMresearcherswerenotabletoidentifysignificantcitizensorcivilsocietydemandforthisdata.
MovingforwardAswithothercommitmentsrelatedtoaccesstoinformation,thereappearstobeafundamentalmisalignmentbetweenthesupplyanddemandforinformation.Othermechanisms(suchasOEPandtheFreedomofInformationAct)andothertypesofinformation(suchasmunicipalplanninginformation)appeartobemuchmoreindemandandmoreappropriateasthefocusofOGPcommitments.TheMinistry’sself-assessmentreportindicatesthatthiscommitmentwillnotbeterminated,butwillcontinueaspartoftheMinistry’son-goingwork.TheIRMresearchersrecommendthatthisworkcontinue,butnotbeincludedinOGP.
1MinistryofHealthandHumanServices,“Sykehustalen2015,”PressRelease,GovernmentofNorway,7January2015,http://bit.ly/1Vt00lb.
Embargoed – not for quotation or citation
7.RenewaloftheGovernment’swebsite(regjeringen.no–government.no)Regjeringen.noisajointportalforallofthe17NorwegianministriesandtheOfficeofthePrimeMinister.Thecurrentsolutionissixyearsold[…].
DSSwishesto
• improvesearchfacilitiesonregjeringen.no
• makeiteasierforuserstofindrelevantdocuments
• makeiteasierforuserstofindtheirwayaroundandknowexactlywhichwebsitestheyarevisiting
• createamoreuser-friendlydesign.
COMMITMENTDESCRIPTION
Theobjectiveistodeliverimprovementsandfurtherdevelopmentofthesolutionduring2013and2014.Ministriesaretakingpartinthedevelopmentwork,andusertestingisanimportantinstrument.Thechangesmustbemadeinsuchawaythattheyprovidegoodsupportfortheongoingworkoftheministriesbyintroducingchangesandrestructuringstepbystep.Ministriesmustbecloselyinvolvedinthedevelopmentwork,andusertestingandevaluationwillbecarriedoutcontinuously.
KEYIMPACTBENCHMARK
Thefirstimprovementsmustbecarriedoutbytheendof2014
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
✔
Whathappened?AredesignofRegjeringen.nobeganbeforethelaunchofthesecondactionplan,andanewwebsitewaslaunched15December2014.Thiswouldseemtocompletethecommitment,whichcalledforthefirstimprovementstothewebsitetobedeliveredbeforetheendof2014.
Diditmatter?Asstatedintheactionplan,theGovernmentAdministrationServices(DSS)startedworkonimprovingthewebsitebeforetheactionplanwasfinalised.DSSalsonotesthatthey
Embargoed – not for quotation or citation
considerwebdevelopmentandimprovementstothegovernment’swebsitestobecontinuousworkwithnoenddate.
Assuch,thiscommitmentrepresentsaminorimprovementinthegovernmentale-platformbecauseitdoesnotintroduceatotallynewarenaforinformationsharingorinteractionwithcitizens.Rather,itrenewstheplatformthatisalreadyinplace.TheIRMresearcherswereunabletoidentifyanysignificantcomplaintsordemandsfromcivilsocietyorcitizensforimprovementstothegovernment’swebpage.
MovingforwardAsDSSstatedintheirself-assessmentreport,theworkonimprovingandmanagingthewebpageiscontinuous,andtherewillalwaysbeissuessubjectedtorevisionandrenewal.ThisispartofDSS’son-goingworktasks,notworthprioritisationintheOGPprocess.
Embargoed – not for quotation or citation
39
8.DeclarationofprinciplesforinteractionanddialoguewithNGOsNGOsareindependentplayersincivilsociety.Atthesametime,Norwayhasalongtraditionforcloseinteractionbetweenthevoluntarysectorandthepublicauthoritiesinanumberofdifferentareas.InordertopromotegreaterpredictabilityandacommonunderstandingintheinteractionanddialoguebetweentheauthoritiesandtheNGOs,adeclarationofprinciplesistobeprepared.ThedeclarationofprinciplesistoincludetheroleoftheNGOsinNorwegiansocietyandthespecialcharacteristicsofvoluntarywork.ThedeclarationofprincipleswillbebasedonthefundamentalprincipleslaiddownintheCouncilofEurope’s“CodeofGoodPracticeforCivilParticipationintheDecision-MakingProcess”preparedbyinternationalNGOs.
COMMITMENTDESCRIPTION
TheMinistryofCulturehasresponsibilityfortheworkonadeclarationofprinciplesforinteractionanddialoguewithNGOs.ThedeclarationofprincipleswillbesubmittedtotheGovernment.
KEYIMPACTBENCHMARK
Workistobestartedonadeclarationofprinciplesfordialogueandinteractionwithvoluntaryorganizations.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?On3September2014,theMinistryofCultureinvitedcivilsocietytoameetingontheissue.Adraftoftheprincipleswaspublishedon5December2014,theU.N.InternationalVolunteerDay,andisavailableinEnglish.1Thedeclarationisnotasetofrules,butratheritestablishesaframeworkfordialogueandinteractionwiththevoluntarysectorirrespectiveofwhichministry,directorate,oragencyisinvolved.Itisintendedtoformpartofanintegratedvoluntary-sectorpolicy.Civilsocietyrepresentativeswereinvitedtoasummitwiththegovernmentandinvitedtogivefeedbacktothedeclarationby5March2015,aftertheperiodofimplementationcoveredbythisreport,atwhichpointareviseddeclarationwasdeliveredtogovernment.Thiscompletedthecommitment.
Diditmatter?BasedontheinformationavailabletotheIRMresearchers,theactivitiesreferencedaboverepresentasmallbutpositivesteptowardsbettercooperationwithcivilsociety.Italso
Embargoed – not for quotation or citation
40
mustbenotedthattherelationshipbetweengovernmentandcivilsocietyinNorwayisgenerallyquitegood.Whiletherearesomedisagreementsonpolicyandprocedure,generallyNorwegiangovernmentandcivilsocietytendtosharenormativeframeworksandenjoyastrongbasisforcooperation.
TheIRMresearcherswereunabletofindanyevidencethattheNorwegiancivilsocietyhadexpressedademandfortheseprinciplesorthatthisOGPcommitmentplayedasignificantroleinpromptingtheirdevelopment.ThissuggeststhattheinitiativewouldhavebeenundertakenindependentoftheOGP.NoneofthestakeholdersinterviewedbytheIRMresearcherswerefamiliarwiththeinitiative.
MovingforwardPendingfurtherinformationonthecontentofthereviseddeclaration,therearenoclearnextstepstoadvanceopennessinthisarea,whichisalreadyquitestronginNorway.Barringexplicitdemandforimprovementinthisareafromcivilsociety,workrelatedtothiscommitmentshouldnotbeincludedinsubsequentactionplans.
1Notethatthisdeclarationusestheterms“voluntarysector”and“civilsociety”interchangeably.MinistryofCulture,“TheGovernment’sDeclarationonVoluntaryWork,”PressRelease,GovernmentofNorway,5December2014,http://bit.ly/1MOwPrv.
Embargoed – not for quotation or citation
9.SimplificationanddigitaladministrationofarrangementsforNGOs[…]
COMMITMENTDESCRIPTION
TheMinistryofCulturewillmakeeffortstoensurethattherequirementsregardingapplicationsandreportingforvoluntaryorganizationsaresimplifiedwhereappropriate,thatinformationconcerningstategrantschemesiseasilyavailableandthat,inthelongterm,moreschemesarelinkedtotheRegisterofNon-ProfitOrganizations.
KEYIMPACTBENCHMARK
Moresupportschemesforvoluntaryorganizationsare,inthelongterm,tobelinkedtotheRegisterofNon-ProfitOrganizations.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?TheMinistryofCulture’sself-assessmentreportedthatanoverviewofgrantschemesforvolunteerorganisationswaspublishedatregjeringen.no/frivilligtilskuddandthataguideforhowtoimprovegrantschemesforchildrenandyouthorganisationswaspublishedinMarch2014.1
Simplifiedrequirementsforapplicationsandreporting
Aguideforonespecificsectorhasbeenreleased,andalistofproposedapplicationprocedurestobesimplifiedhasbeenpublishedontheministry’swebsite.2However,theIRMresearcherswerenotabletofinddetailsonhowapplicationproceduresaretobesimplifiedorspecificexamplesofrequirementsforapplicationsandreportingthathavebeensimplified,improved,orotherwisechanged.
MoresupportschemeslinkedtotheRegisterofNon-ProfitOrganisations
TheIRMresearcherswereunabletofindevidencethatworkhasbeenundertakentowardsthisobjective.
Diditmatter?Thiscommitmentrepresentsanefforttoimprovetheefficiencyofcivilsociety’sengagementwithgovernment.Clearprocessesareagoodpracticeincommunicationbetweencivilsocietyandthegovernment,butifthiscommitmentisfulfilled,itwillnot
Embargoed – not for quotation or citation
changethebasicmodeofoperationorcreateanewplatformforinteractionbetweencivilsocietyandthegovernment.Asmentionedinregardtoothercommitments,therelationshipbetweentheNorwegiangovernmentandNGOsisgenerallyquitegoodandproductive.Althoughtherearecertainlyexamplesoffrustrationsregardingprocessesandpriorities,theIRMresearchersconsiderthistobeinherenttorelationsbetweenfundersandrecipients,andtheyfoundnoindicationthattherewasawidespreaddemandbycivilsocietyforthesimplificationoftheseprocesses.
MovingforwardTheMinistry'sself-assessmentreportsuggeststhatcivilsocietywillbeconsultedregardingfurtherstepstoaddressonthiscommitment.Consultationcouldbeanimportantfirststeptoensuringthatworkintheareaofcivilsocietyengagementaddressesactualchallengesandneeds,whichisnotclearlythecaseforthiscommitment.
1Thelinkprovidedbythegovernmentforthispublicationisnolongerfunctional.2MinistryofCulture,“EasierGrantsforNGOs,”GovernmentofNorway,12December2014,http://bit.ly/1DnGbtv
Embargoed – not for quotation or citation
10.Registeringandpreservingdigitaldocumentationproducedbypublicbodies[…]
COMMITMENTDESCRIPTION
Automatedandspecializedcasemanagementsystemsusedbypublicbodieswillincludearchivefunctionsthatlinktodocumentsandassociatedmetadata,andstoretheseinaccordancewithapprovedstandards.Thesefunctionswillensurepreservationofdigitaldocumentationintheshortandlongtermaswellastransparencyandfreedomofinformation.
Considerationwillalsobegiventoestablishingjointsolutionsforpreservingandmakingavailabledigitaldocumentationassoonasitisnolongerinactiveadministrativeuse.Thiswillensurebothcontinuedtransparencyandpublicconfidencethatsuchdocumentationisretainedinitsauthenticform.
KEYIMPACTBENCHMARK
InworkonrevisionoftheArchivesAct,considerationhasbeengiventotherecommendationofthewhitepaperonarchiving,Meld.St.7(2012-2013),thatthecreationofarchivesshouldbeastatutoryfunctionofallelectronicsystemsforpublicdocumentsofarchivalvalue.Standardsandstandardizedsolutionshavebeendevelopedwithintheframeworkofabroadcooperationbetweenactorsinbothcentralgovernmentandmunicipaladministration.
ACTIVITIES
RevisionoftheArchivesAct.
Broadcooperationprojectonarchivesine-administrationincludingprinciples,methods,standards,systemssolutionsandorganizationalsolutions.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Creationofarchivesshouldbeastatutoryfunctionofallelectronicsystemsforpublicdocumentsofarchivalvalue
WorktowardsthisobjectiveisexecutedthroughtheNationalArchives’(Riksarkivets)SAMDOKproject.Itisintendedtofacilitatecoordinationamongarchiveinstitutionsona
Embargoed – not for quotation or citation
voluntarybasis,throughrepresentativeworkinggroupsintheprivatesector,themunicipalsector,andindigitalprocurement(e-forvaltning).1
WithinSAMDOK’sthreemainworkinggroups,thereare14tasksimplementedbyadiversegroupofpublicandprivateinstitutions.AsfarastheIRMresearchersareabletodetermine,the14tasksincludedwithinSAMDOKgenerallyconcernmappingofarchivingpracticesandopportunitiesforcollaborationamongvariousprivateandpublicbodiesthatengageinarchivingactivities.Thechallengesanddetailsrelatedtotheseprojectsarehighlyspecific,havingtodowithtechnicalstandardsandinstitutionalprocedures.TheIRMresearcherswereunabletoidentifyanyprojectsdirectlyrelatedtoopengovernmentthemes.TheIRMresearchersalsowereunabletoidentifySAMDOKactivitieswithexplicitrelevancetoaccountabilityoraccesstoinformation,althoughingeneral,archivingofpublicinformationisimportanttoboth.
TheSAMDOKprojectiswidelyregardedasasuccess,especiallyregardingthedegreeofcollaborationonarchivingstandardsacrosssectors.ThisprogrammewasinitiatedindependentlyoftheOGPprocessandwillcontinuetobeimplementedindependentlyoftheOGPprocess.TheIRMresearcherswereunabletoidentifyanycivilsocietyactorswhofeltthatthiswasapriorityareaforopengovernmentinNorway.
RevisionoftheArchivesAct
TheMinistryofCultureandtheNationalArchiveshaveestablishedaworkinggrouptoconsideradjustmentstotherelevantregulations.TheIRMresearcherswereunabletoidentifyanyspecificplansforspecificrevisionstothearchivesact.
Diditmatter?Thetwoactionsdescribedinthiscommitmentintroducenewactivitiesintheareaofarchiving,bothofwhichappeartohavebeeninitiatedindependentoftheactionplan.NoneofthecivilsocietyrepresentativesconsultedbytheIRMresearcherswerefamiliarwiththeseinitiatives,andnonesaidthattheywereimportanttoopennessandaccountabilityinNorway.
MovingforwardWorkonbothoftheseareaslikelyshouldproceedasplannedbecausetheywillhavepositiveconsequencesforNorwegiangovernmentalefficiency,buttheyarenotclearlypriorityareasforOGP.Further,giventhelackofdemandfromcitizensandcivilsociety,theyshouldnotbeincludedinsubsequentactionplans.
1SAMDOK,http://samdok.com/about/.
Embargoed – not for quotation or citation
11.TheNorwegianCitizenSurvey(Innbyggerundersøkelsen)TheNorwegianCitizenSurveyisbothacitizensurveyandacustomersatisfactionsurvey.ItisoneofthelargestsurveysofpublicservicesinNorway.Thefirstsurveywaslaunchedin2010,thesecondin2012-2013.Theplanistocompletethesurveyeverysecondyear.[…]
Theresultsofthesurveyarefullytransparent,andtheresultsarefreeforallAgencies/Municipalitiesandcitizenstoadoptanduseandre-use.Theresponseratein2012-2013was41%.[…]
KEYIMPACTBENCHMARK
1.Norwaywillcarryoutathirdcitizensurveyin2015.
2.TheresultsshallbefreeforallAgencies/Municipalitiesandcitizenstoadoptanduseandre-use.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Norwaywillcarryoutathirdcitizensurveyin2015
Thesurveywasconductedin2015asplanned,althoughaftertheimplementationperiodassessedbythisreport.Thesurveyincludesamoduleassessingindividualsatisfactionwith23nationalandmunicipalservicesintheareasofeducation,healthandculture.
Theresultsshallbefreeforallagencies,municipalitiesandcitizenstoadopt,use,andre-use
Resultsofprevioussurveysareavailablefordownloadandre-use.TheIRMresearchersexpectthatthiswillbethecaseforthe2015survey.
Diditmatter?Thissurveyprovidesagoodbasisforassessingandanalysingpublicopinionregardingwelfareservicesandpublicoffices.However,theDificontactpointforthesurveynotesthatthesignificantamountofbureaucracyandroutinessurroundingthesurveymeansthattherearenoclearentrypointsfortheOGPtoinfluenceitsdevelopmentorimplementation.OGPhasnothadinfluencedhowthesurveyhasbeendevelopedorimplemented.KMDreportssignificantengagementbetweenthesurveyandrelevantministriesandpublicagencies,includingdirectreferenceofsurveydatainstrategicprocesses.KMDalsonotes
Embargoed – not for quotation or citation
thatsurveydatahasbeenreportedinmediaarticles.TheIRMresearchersdonothaveinformationonwhetherorhowsurveydatahasbeenusedspecificallytoinformpolicyorgovernanceprocessesrelatedtoopengovernmentvalues.
MovingforwardWhileitisusefultocollectinformationonhowcitizensandresidentsexperiencethequalityofgovernmentservicesinNorway,itisnotclearhowthisinformationisbeingused,orcouldbeused,toimproveservicesandsupportmoreopengovernmentinNorway.TheIRMresearchersrecommendconductinganassessmenttodeterminehowresultsofthissurveyarebeingusedtoimprovepolicyandgovernance,aswellaswhatadjustmentstothesurveymightincreaseuptakebypolicy-makers.TheIRMresearchersalsosuggestaddingadditionalquestionsoranadditionalmoduletoidentifywhichopengovernment-relatedissuesandchallengesareprioritiesforNorwegiancitizens.
Embargoed – not for quotation or citation
12.WhistleblowingAnevaluationisbeingcarriedoutoftherulesconcerningwhistleblowing.Theevaluationisbeingconductedbyanindependentbody.Areferencegrouphasbeenestablishedforthisproject,withparticipationbythesocialpartners.
Thefinalreportoftheprojectistobepublishedbytheendof2013.TheevaluationwillsubsequentlybefollowedupbytheMinistryofLabour,andanyneedsforamendmentswillbeconsideredinthatconnection.
COMMITMENTDESCRIPTION
Anindependentevaluationofthewhistleblowingruleswillbecarriedout.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Conductevaluationontherulesconcerningwhistleblowing
Anevaluationofwhistle-blowerruleswascarriedoutinthefirsthalfof2013,beforethesecondnationalactionplanwasfinalised.TheevaluationnotedthatNorwegianregulationsdidnotmeetinternationalstandardsonwhistle-blowing.
FinalreportwillbefollowedupbytheMinistryofLabour
TheMinistryofLabourcurrentlyisreviewingthereportandwillconsiderfollowup.Thecommitmentappearstohavebeenfulfilled.
Diditmatter?Theevaluationofthewhistleblowingruleswasdecideduponandlargelyconductedbeforethesecondactionplanwasfinalised.Therefore,thecommitmentdidnotinfluencetheMinistryofLabour’sworkonthisissue.Thisis,nonethelessanimportantpolicyareaforopengovernmentinNorway,andrecentwhistleblowingeventshaveprovokedsignificantcritiquefromcivilsociety.Atthemoment,Norwegianwhistleblowinglawplacestheonusofproofonthewhistle-blower,ratherthanontheresponsiblelegalentity.Thisdoesnotmeetinternationalbestpracticesforwhistleblowingregulations,aswasstatedclearlyintheassessmentdeliveredtotheMinistryofLabour.
MovingforwardThiscommitmentmeritsfurtherattention,andcivilsocietyrepresentativesinterviewedbytheIRMresearchershaveemphasisedhowimportantwhistle-blowerprotectionisforNorway.TheMinistryofLabourshouldadoptprogressiveandambitiousactionsonthe
Embargoed – not for quotation or citation
basisofitsreview,includingashiftofburdenofprooffromwhistle-blowerstotheresponsibleentity.ThisshouldbeincludedinNorway'snextactionplan,withcleardetailsandambitiousobjectives.
Embargoed – not for quotation or citation
13.Strengthenedinformationexchangeformoreefficientcrimepreventionandcombating[…]
COMMITMENTDESCRIPTION
Norwayaimstoachievebettercoordinationofinformationoncombatingcrime.[…]initiativeshavealreadybeentakeninseveralarenas,andfollow-upofthisworkiscontinuing.Noamendmentstospecificrulesareunderconsideration.Theobjectiveisthatthepoliceandotheractorswillgiveprioritytoinformationexchangeandcooperation,andexploitthepotentialofcurrentlegislation.
ACTIVITIES
Pilotprojectswillbecarriedoutonthecooperationbetweenthepoliceandotheractors.Anevaluationwillbemadeofcooperationinbodiesforcooperationandcoordinationbetweenthepoliceandthelocalauthorities(politiråd)inordertofurtherdevelopsuchbodiesasarenasforinformationexchange.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleasesee http://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ Unclear ✔ ✔
Whathappened?Policeandotheractorswillgiveprioritytoinformationexchangeandcooperation
TheIRMresearcherswerenotabletosecureevidencethattheNorwegianpoliceandotheractorshaveprioritisedthis.
Pilotprojectswillbecarriedoutthroughthecooperationbetweenthepoliceandotheractors
TheNorwegianself-assessmentreportprovidedbytheMinistryofJusticecontactpointreferencespilotprojectsorganisedincollaborationwithaprivatesectoradvisorintheNationalCriminalInvestigationService,butdoesnotprovideanydetails,andtheIRMresearcherswereunabletodeterminewhattheseprojectswere.ItisnotcleariftheNationalCriminalInvestigationServiceconstitutesthe“otheractors”referredtobythecommitmentorifthislanguageisintendedtorefertoprivatesectoractors.Theself-assessmentreportalsoindicatesthatthiscollaborationwaspositiveandwillleadtotheestablishmentofpermanentpositionsinpolicedistrictsthatwillaimtomaintaincontact
Embargoed – not for quotation or citation
withtheprivatesector.Thepositionswillconstituteanetworktoassisttheprivatesectorinpreventingcorruption.
Anevaluationwillbemadeofcooperationandcoordinationbetweenthepoliceandthelocalauthorities
IRMresearcherswereunabletoidentifyanyinformationaboutaformalevaluation.
Diditmatter?ThecapacityoftheNorwegiangovernmentandpolicetoenforceeconomiccriminalaccountabilityisanimportantissueforNorway.ProminentseriesofinvestigationsinthemostpopularNorwegiandailynewspaper1havesuggestedtheNorwegiangovernmenthaspoorcontrolsforavoidingcorruptioninprocurement,especiallywithregardtoidentifyingcompanieswitharecordofcorruption.TheIRMresearcherswerenotabletodeterminewhetherthiscommitmenthadmeaningfulimpactonhowtheissuesareregardedbyrelevantactorsorwhetheritmotivatedthepilotprojectsandnetworkdevelopmentreferencedabove.Theactionsareamodeststeptowardsincreasedcontrolsandaccountabilityforeconomiccrime,buttheirrelationshiptotheOGPcommitmentisunclear.Withoutaclearrelationshipbetweentheactionsandthecommitment,thecommitment’srelevancetoOGPvaluesremainsunclear.
MovingforwardInformationaboutanypilotprojectsshouldbemadepublicandsharedwithCSOsworkingactivelyonissuesofeconomiccorruptioninNorway.Additionalplansforinformationsharingandanyotherworkinthisareaalsoshouldbeshared.Aswritten,however,thiscommitment’srelevancetoopengovernmentvaluesisunclear,andthecommitmentshouldnotbecontinuedinfurtheractionplans.
1Kjell-IvarGrondal,“PoliceMakeMajorCrackdownonConstructionIndustry,”StavangerAftenblad,6May2015,http://bit.ly/1hgfNXT;EinarHaakaasandSiriGedde-Dahl,“WarningsAgainstUndeclaredWorkandMafiaDevelopmentinVestfold,”Nyheter,23August2014,http://bit.ly/1LomiGj
Embargoed – not for quotation or citation
14.Strengtheningthetransparencyofpublicauthoritiesandadministrationa)Removaloftheexceptionprovisionforpublicsectorcompanieswithnoemployees.
Pursuanttosection1,secondparagraph(a)oftheFreedomofInformationRegulations,theFreedomofInformationActshallonlyapplytoindependentlegalpersonswithemployeespermanentlyemployedinadministrativeposts.Thebackgroundforthiswasthatsuchlegalpersonsoftenhaveno-onewhocanpractiseandfollowuptheAct,cf.theRoyalDecreeof17October2008,pages63–64.Manycompanieshaveprovedtobeorganizedinsuchawaythat,whiletheyhavenoemployeesoftheirown,theyaremanagedbyemployeesofparentcompanies,subsidiaries,externalconsultants,etc.,andthatanumberofsuchcompanieshaveconsiderableturnover.[…]
b)BetterpracticeoftheFreedomofInformationAct
[…]RegularcoursesandlecturesareheldonpracticeofthearchivelegislationandtheFreedomofInformationAct.Thiswillbecontinued.TransparencyInternationalNorwayhasproposedthat“aspartoftheforthcomingevaluationoftheFreedomofInformationAct,considerationshouldbegiventowhetherpenaltiesmayhelpinensuringbetterpracticeofandcompliancewiththeintentionsoftheAct”.
COMMITMENTDESCRIPTION
• Norwaywillconsidertheneedforamendmentstosection1,secondparagraph(a),oftheFreedomofInformationRegulations.However,itisnotpossibletopredictwithanycertaintywhetheranyamendmentswillbemadeorwhatsuchamendmentswouldconsistof.
• Duringfollow-upoftheevaluationoftheFreedomofInformationAct,considerationwillbegiventowhetherthequestionoftheprovisionofseparatepenaltyprovisionsintheFreedomofInformationActshouldberaised.However,theresearcherswhoaretoconducttheevaluationwillnotconsiderthisquestion.
• TheworkontraininginthepracticeofthearchivelegislationandtheFreedomofInformationActwillbecontinued.
KEYIMPACTBENCHMARK:
• CoursesandlectureswillbeheldonhowthearchivelegislationandtheFreedomofInformationActshallandshouldbepracticed.
• Duringfollow-upoftheevaluationoftheFreedomofInformationAct,considerationwillbegiventowhetherthequestionoftheprovisionofseparatepenaltyprovisionsintheFreedomofInformationActshouldberaised.However,theresearcherswhoaretoconducttheevaluationwillnotconsiderthisquestion.
• TheFreedomofInformationActshallbeevaluatedbyanindependentbody.Inconnectionwithevaluation,themainemphasisistobeplacedonwhethertheintentionofgreateraccesstoinformationhasbeenmet.Duringtheevaluation,particularattentionwillbedevotedtothepracticeoftheexemptionfromaccesstointernaldocuments.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Embargoed – not for quotation or citation
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Considertheneedforamendmentstosection1,secondparagraph(a),oftheFreedomofInformationRegulations,includingtheneedforseparatepenaltyprovisions
AmendmentstoFOIAhavebeendiscussedtoremovethelimitationofitsapplicabilitytolegalentitieswithfull-time,administrativeemployees.ThiswouldsignificantlybroadenFOIA’sapplicability,especiallyinmunicipalgovernments.AccordingtotheMinistryofJustice'sinputtoNorway'sself-assessmentreport,considerationofamendmentstoFOIAisinpreparatoryphases,anditisunclearwhenanevaluationwillbefeasible.1TheIRMresearchershavenotbeenabletodeterminemoreaboutthispreparatoryphase.TheMinistrycontactreportsthatitwasdifficulttobegintheevaluationduetoanumberofbureaucraticandproceduralissues.Thecontactreportsthattheevaluationisnowunderway,althoughithasnotyetproducedmeaningfulinsights.2
ContinuedtraininginthepracticeofthearchivelegislationandFOIA
TheMinistryofJusticereportedthatregularcoursesandlectureshavebeenheldontheimplementationandpracticeofthearchivelegislationandFOIA.TheMinistryalsoreportedthat,inthefuture,thiscommitmentwillbecontinuedthroughDifiandwillbeheldonline,notinperson.TheMinistry'scontactexpressedconcernthatthequalityofcoursesofferedwouldsufferasaconsequence.3TheIRMresearcherswereunabletoobtaininformationfromgovernmentonthescopeandreachofthecoursesandlecturesheld.
Diditmatter?NorwegianCSOsintervieweddescribeFOIAasakeystoneofNorwegianaccountability,butonethatisnotwellknownorused.Recenteventssuggestthatinsomeareas,forexampleinthedefencesector,whereFOIAisnoteasytouseandrequestsarerarelyfulfilled.AnecdotalevidencereferencedininterviewstheIRMresearchershadwithcivilsocietyalsosuggeststhatFOIAisnotconsistentlyunderstoodorprioritisedindifferentgovernmentagencies.
FOIAisacriticalpieceoflegislationforNorwegiangovernanceandaccountability.EvaluationofFOIAisanimportant,regularactivity.But,becausethecommitmentiscurrentlyworded,nospecificorambitiousactivitiesareattachedtothatevaluation.TrainingonFOIAalsoisimportant,butitispoorlydefinedinthiscommitment.TheMinistryemphasisedthatthewayinwhichtrainingiscarriedouthasatremendousinfluenceonhowimpactfulthetrainingwillbe.
Embargoed – not for quotation or citation
ThiscommitmentappearstohavebeeninitiatedandexecutedcompletelyindependentlyfromtheOGPactionplan.
MovingforwardFurthereffortsareneededtoraiseawarenessaboutFOIAacrossministriesandgovernmentagencies.Trainingactivitiesalsoshouldbeconductedbroadlyacrossrelevantagenciesandshouldbeintegratedintoothertrainingtoensurecoverage.
DiscussionswithNorwegiancivilsocietyandjournalistssuggestthatFOIArequestsoftenarerejectedoutofhand,butthatrepeatedfilingofthesamerequestcanoftenresultinasuccessfulapplication.AlthoughitispossibletoappealdenialsofFOIArequests,itisnotpossibletoappealalackofresponse,andtherearenosanctionsinplacetoencourageagenciestorespondtorequests.ThissuggeststhatFOIAimplementationcouldbestrengthenedmoregenerally.Toinformimplementation,thetraining,andawareness-raisingactivities,theNorwegiangovernmentshouldconductanassessmentofFOIArequeststoidentifytheconditionsunderwhichtheyareapprovedandrejected.
Suchactivitiesshouldbeincludedinanambitiouscommitmentforfreedomofinformationinfutureactionplans.
1MinistryJustice,inputtonationalself-assessment[notpubliclyavailable],viaemailtoIRMresearchers,16April2015.2OleKnutLøstegaard,commitmentfocalpointattheMinistryofJustice,legalsection,interviewwiththeIRMresearcher,18March2015.3MinistryJustice,inputtonationalself-assessment[notpubliclyavailable],viaemailtoIRMresearchers,16April2015.
Embargoed – not for quotation or citation
15.eGovernmentwithanend-userfocus[…]
COMMITMENTDESCRIPTION
TheAgencyforPublicManagementandeGovernment’s(Difi)strategyistohaveauser-centricapproachtodigitalservicedevelopment.Serviceinnovationandimplementationwillbebasedonknowledgederivedfromcontactwithendusers.By2014Difiwilldevelopguidelinesforthescreeningofdigitalpublicserviceswithauser-centredapproach.Difiwillalsoconductuser-centredstudiestoanalyseobstaclestouseandsuggestimprovements.Resultsandresourceswillbemadeavailabletoallstakeholdersinvolvedinserviceinnovation,productionandimplementation.
KEYIMPACTBENCHMARK
Difiwilldevelopguidelinesfortheprovisionofdigitalpublicserviceswithauser-centredapproach.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Difihasdevelopedguidelinesfortheevaluationofdigitalservices,whichhavebeenusedtoevaluate52digitalservices.Theresultsofthesescreeningsareavailableathttp://kvalitet.difi.no/resultat.Openconsultationsalsohavebeenheld,soliciting125commentsondigitalservices,whichareavailableathttp://kvalitet.difi.no.TheIRMresearcherfoundnopublicrecordofuserstudies.KMDreportsthattheyarenotpublicduetoprivacyconcerns.
Diditmatter?Thedevelopmentofnewguidelinesrepresentsanewactionthatdoesnotsimplycontinuetheeffortsofpreviousdecisions.Whileproducingguidelinesforevaluationofpublicservicesisacommendablesteptowardsimprovingservices,thisprocesshasnotbeenpublicfacing.Moreover,itisnotclearwhetherthisactivitywaspromptedbythesecondnationalactionplanorindependently.Eitherway,althoughthequalityofguidelinescanbeimportantforsettingstandards,itisworthnotingthatthiscommitmentdoesnotintroduceanychangesinactualaccesstoinformationoreaseofpublicparticipation.Therefore,thecommitmentmaintainsthestatusquo.
Embargoed – not for quotation or citation
MovingforwardDifiwillconductanevaluationofpublicwebsitesanddigitalservicesonaregularbasis.Thenextroundwillbein2015-2016,andtheguidelineswillberevisedonaregularbasis.TheIRMresearchersrecommendthatthenextnationalactionplanfocusonhowevaluationsandguidelinesareusedtoincreaseaccessibilityandparticipation.
Embargoed – not for quotation or citation
16.PlainLegalLanguageAsurvey(telephoneinterviews)in2009revealedthattwooutofthreeNorwegiancitizensthoughtthatthepublicsectordoesnotwriteinplainlanguageandfoundpublicformsdifficulttofillin.
TheNorwegianPlainLanguageprojectwasformallylaunchedinMarch2009withtheaimofstimulatingpublicagenciestoadoptgoodanduser-friendlylanguage.[…]
COMMITMENTDESCRIPTION
Norwayhasdecidedtolookintotheoriginofunclearlanguagethroughaseparateprojectcalled“PlainLegallanguage”.
Inthisproject,wewillexaminesomeActsandreformulatetheminplainlanguage.PreferencewillbegiventoActsthatareimportanttocitizensandActsthataffectmanycitizens.Theaimofthisworkistodeviseageneralmethodthatcanbeusedinthefuture,bothwhendraftingnewActsandamendingorrevisingexistingActs.WeaimtobeginexaminingthefirsttwoActsbefore1July2014.
KeyImpactBenchmark:
WewillbeginexaminingthefirsttwoActsbefore1July2014
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?ThePlainLegalLanguageprojectwasinitiatedthroughministrycollaborationasasub-projectofthePlainLanguageProjectin2011.Todate,theprojecthasidentifiedfourlawswhoselanguagewillbeclarified(theEducationAct,theInheritanceAct,theLawGoverningPersonnelintheDefenceSector,andtheAdoptionAct)1andaconferenceonclearlegallanguagehasbeenheld.2TheIRMresearcherswereunabletoidentifyanytimelineaccordingtowhichtheselawswouldbereformulated,althoughKMDhasreferencedtheirexistencewithinthefourindividualministries.Thecommitmentaswritteniscontradictorybecausethecommitmentistoexamineandreformulateacts,buttheimpactbenchmarkisto“beginexaminingsomeacts.”Itisthusnotentirelyclearwhetherthecommitmentisfulfilled.TheIRMresearchersassumedthelowestthreshold(“beginexamining”)andconsiderthiscommitmentfulfilled.
Embargoed – not for quotation or citation
Diditmatter?Norwegianlegallanguagegenerallyisunderstoodtobecumbersomeandchallengingfornon-experts,aswasdocumentedinthegovernmentalsurvey.ThismotivatedthePlainLanguageProject.Ifthisprojectweretoleadtomoreaccessiblelegislation,thatwouldbeapositivedevelopment.However,asindicatedbythestakeholderstotheIRMresearchersandintheNorwegianmedia,itisnotclearlyapressingissueforopengovernmentorgovernmentaccountability.Thecommitmentto“examinesomeactsandreformulatethem”alsoisnotambitious.
TheIRMresearchersfeelthatplainlegallanguageisimportant,butonlyshouldbeincludedinfutureactionplanstotheextentthatitexplicitlyrelatestoOGPvalues,andonlythroughclearandexplicitcommitments.
MovingforwardTheIRMresearchersseenoclearactionpointsmovingforwardandassumethatthisworkwillproceedpositivelyofitsownaccord,withoutinclusionintheOGPframework.
1“KlartIovsprak,”Difi,http://bit.ly/1aZoROA.2“Lovsprakskonferansen14.April2015,”Difi,http://bit.ly/1GFAreJ.
Embargoed – not for quotation or citation
17.NorwegianGrantsPortal(MFA)TheMinistryofForeignAffairs'grantsportalispublishedontheMinistry’swebpage.ThegrantsportalprovidesanoverviewofallsignedgrantagreementsbytheMinistryandNoradwithplannedoractualdisbursementsfor2013andthecomingfouryears.TheportalgiveseasyaccesstodatainlinewiththeprinciplesandobjectivesofIATI.Theoverviewshowsthecountriesinwhichthegrantsaretobeused,thegrantrecipientstheMinistryandNoradhaveenteredintoagreementswith,andthesectorsthataretoreceivefunding.[…]
COMMITMENTDESCRIPTION
ThedataintheMinistryofForeignAffairsgrantsportalattheNorwegianGovernmentwebsitecomplieswithIATI,andisupdatedmonthly.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?NorwegianGovernmentgrantportalcomplieswithInternationalAidTransparencyInternational(IATI)
TheIATIstandardisadatastandardwhichdictatesthestructureinwhichinformationoninternationalaidisstructuredandpresented.AftertheIATIstandardwasintroduced,theNorwegiangrantsportalwasredesignedtocomplywiththatstandardand,accordingtotheNorwegiangovernment,isnowcompliant.
NorwegianGovernmentgrantportalisupdatedmonthly
KMDreportsthatthegrantsportalisupdatedonamonthlybasis.
Diditmatter?Aswithothercommitments,thisappearstorepresentafundamentalmisalignmentbetweensupplyanddemandforinformationintheNorwegiangovernancecontext.Thereisavigorousnationaldebateabouttheefficiencyandallocationofforeignaid,andseveralrecentcriticalreportsfromthenationalAuditorsOffice.1However,theIRMresearcherswereunabletofindanyevidenceofdemandsforIATIcomplianceinanationalaccountabilitycontextortofindpeoplewhoactuallyusetheNorwegiangrantsportalforaccountabilitypurposes.Norisitclearthatthegrantsportalhasthefunctionalitynecessarytomakeitausefulaccountabilitytool.
Embargoed – not for quotation or citation
MovingforwardTodeterminehowthegrantsportalcouldbemadeausefultoolforenhancingnationalaccountabilityforinternationalaid,theNorwegianGovernmentshouldholdconsultationswiththeNationalAuditor’sOfficeandBistandsAktuelt(theprimaryjournalisticpublicationontheNorwegianaidindustry).Effortsalsoshouldbemadetodeterminehowthisinformationisaccessedandusedbyactorsinaidrecipientcountries.Thisinformationshouldbetakenintoconsiderationwhenupdatingorredesigningtheservice.TheNorwegianGovernmentshouldprovideapublicrecordoftheconsultationsandtheirplanstoimprovethegrantsportal.
1See,forexample,“BistandTilRenEnergiHarGittFaResultater,”OfficeoftheAuditorGeneralofNorway,http://bit.ly/1PT8QrG;“RiksrevisjonensUndersokelseAvBistandTilGodtStyresettOgAntikorrupsjonIUtvalgteSamarbeidslad,”OfficeoftheAuditorGeneralofNorway,http://bit.ly/1O9gcZ6.
Embargoed – not for quotation or citation
18.Aninternationalconventionoragreementonfinancialtransparency[…]Norwaywillinitiateaninternationaldialogueonstricterrulesforfinancialtransparency,forexample,intheformofaconventionoragreement.Theworkwillbelong-termandpromotethenormativeagendaoffinancialandeconomictransparency.Norwaywillbuildacommonunderstandingwithlike-mindedcountriesaboutwhatsuchrulesmightentail.Theobjectiveofthedialoguewillbetodeveloprulestopromotetransparencyininternationalfinancialtransactionsinordertohelppreventtheillicitfinancialflows.Itmayinvolveobligationstoregisterandexchangeinformationonfinancialtransactionsacrossbordersormutuallegalassistanceintrackingtheflowofmoney.
[…]Toassesstheneedforandthecontentofapossibleconventionoragreement,itwouldbeappropriatetohaveaninternationaldialogue.Thisdialoguewillaimtoidentifytherelevantforumstodevelopnewrulesandthesubsequentenforcementprocedures,strategicalliancepartners.ThecontentofanyobligationsmustbeadaptedtonationallegislationandobligationsunderotherconventionssuchastheEU/EEAregulations.Objectionsofaproceduralnature,includingthecostsofpossiblenewreportingobligations,mustbeconsidered.
COMMITMENTDESCRIPTION
TheGovernmentwillinitiateaninternationaldialogueonstricterrulesforfinancialtransparency.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleasesee http://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔ Officially Withdrawn
Whathappened?Thesecondnationalactionplanindicatedthatworktowardsthiscommitmentwouldbelong-termandaimtopromotethenormativeagendaoffinancialandeconomictransparency.Preliminarytalkswithothercountrieshaveneverthelessshowedlittleinternationalsupportforsuchaninitiative,accordingtoministryofficialsandNorwegiancivilsociety.InJanuary2014,theMinistrydecidedtoendtheirworkforpromotingaconvention.Thecommitmentwasthuswithdrawn,despitethefactthecommitmentisonlyforthegovernmenttoinitiateadiscussionandcouldhavebeenconsideredcompleted.
Diditmatter?Thiscommitmentwouldhavebeenveryambitiousifitsetouttocreateanewinternationalagreementonillicitfinancialflows.However,itonlyaimedtoinitiateaninternational
Embargoed – not for quotation or citation
dialogueonthisissue,andthatdialoguewasabandoned.ItisalsoworthnotingthattheMinistryofForeignAffairscommissionedadraftconventionfromtheInternationalLawandPolicyInstitutehalfayearbeforethesecondactionplanwasfinalised,soactivitytowardsthiscommitmentwasinitiatedindependentlyoftheOGPactionplan.
MovingforwardAbandoningworktowardsaninternationalconventionwasjustifiedgiventhelackofpoliticaltractionamongothercountries,andcivilsocietyhasapplaudedNorway’salternatefocusonspecificmechanismsinthisarea,suchasthecountry-by-countryreportingmechanism(whichisthesubjectofcommitment24inthesecondactionplan).1Thiscommitmentshouldbereformulatedinfutureactionplanstopursuemoremodestandrealisticgoalsthananinternationalconvention,suchasfacilitatingimplementationofthecountry-by-countryreportingmechanismordevelopingmechanismstosupportbetterreportingtoExtractiveIndustriesTransparencyInitiative(EITI).
1BorghildTonnessen-Krokan,“VilRegjeringenBeSelskaperRapportereomSkatteparadiser?,”NyeMeninger,12June2015,http://bit.ly/1LonyJe.
Embargoed – not for quotation or citation
19.Reducingconflictsofinterests–Post-employmentregulations[…]Theregulationsapplytothosewhohavedecidedtotakeupanewpostorhaveaccepteddutyoutsidethestatesectororintendtostartupabusiness.Theaimoftheregulationsistoavoidconflictofinterest,unfaircompetitionanddecreaseofconfidenceinthestatesector.Theregulationsmaybeimposedifthereisaclauseintheemployee’sworkingagreement(orintheappointmentdocumentforministersandstatesecretaries).
[…]In2005,Norwayalsointroducedregulations(temporarydisqualification)forpoliticiansmovingtopositionsastopcivilservantsintheministries.
COMMITMENTDESCRIPTION
Norwaywillconsiderformalizingthethreesetsofpost-employmentregulationsbylawratherthanasaclauseintheemployee’scontractofemployment(ortheappointmentdocumentforministersandstatesecretaries).
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Thepotentialmisuseofpoliticalinfluencefollowingtheterminationofpoliticalofficehasbeenatopicofconcern.Thedangerof“revolvingdoors”betweenpoliticaloffice,privatesectorpositions,andlobbyingpositionsalsohasbeenatopicofconcerninNorwegianmedia.1ThisattentionledtoaparliamentaryhearingandtheproposalofalegalamendmenttotheNorwegianPost-EmploymentRegulations,whichspecifiedquarantineperiodsforpoliticiansandcivilservants.Itwassubmittedtoparliamentaryleadershipon18December2014.
Diditmatter?Aswithmanyofthecommitmentsinthisactionplan,thiscommitmentisquitevague,whichmakesitdifficulttoevaluateprogresstowardscompletionortoestimatepotentialimpactifithadbeencompleted.EstablishingclearrulesforpoliticalquarantineisanimportanttopreventtheperceivedorrealabuseofpoliticalpositionintheNorwegianpoliticalcontext.EstablishingclearrulesalsohasbeenthesubjectofinternationalpressurefromactorssuchastheEuropeanCouncil.2Areviewoftheexistinglegislation,andproposalsfornewlegislationisanappropriatefirststep.
Embargoed – not for quotation or citation
MovingforwardTheproposedlegalamendmenthasbeenreceivedpositivelybycivilsocietyandnowshouldbeenactedintolaw.
1DiscussionssurroundingtheCommunicationsConsultancyfirm,FirstHouse,havebeenexemplary.“TakkerMedieneforSuksessen,”DagensNaeringsliv,http://bit.ly/1iRHesa.2NTP,“NyttKravOm‘FirstHouse-Register,’”NyheterOkonomi,21July2014,http://bit.ly/1YV2WMT.
Embargoed – not for quotation or citation
20.CentreforIntegrityintheDefenceSectorAspartoftheMinistry’sstrongemphasisonintegrity,transparencyandaccountability,theMinistryofDefencehasestablishedtheCentreforIntegrityintheDefenceSectorinOslo.
Thecentrewillbeaknowledgeandcompetencecentreandwillfocusonthedevelopmentofgoodgovernancebybuildingintegrity,especiallyintermsofinstitutionbuildingandpreventiveanti-corruptionefforts.
COMMITMENTDESCRIPTION
ThecentrewilloperateasaresourcefortheNorwegiandefencesector,andwillalsoworkcloselywithouralliesinNATO,NATOpartnernations,andrelevantnationalandinternationalorganizations.Assuch,itwillbeanimportantNorwegiancontributiontofurtherprogressinthisvitalarea;buildingintegrity,increasingtransparencyandreducingtheriskofcorruption.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?OperateasaresourcefortheNorwegiandefencesector
TheCentrewasestablishedin2012beforethesecondactionplanwasfinalised.TheIRMresearchersunderstandseveraloftheCentre’sactivitiestoberelevanttothiscommitment,suchasthetrainingofmilitarypersonnelandthepublicationoftrainingguides.Thetargetedaudiencesfortheseactivitiesappeartobeprimarilyinternationalaudiences(oftenNATOforces).KMDreportsinthegovernment’sselfassessment,“TheCentrehasbeeninstrumentalinintroducinganti-corruptioneffortsasanintegralpartofNorway’sMilitaryOperationalDoctrineandhasintroducedmodulesonintegrityandanti-corruptionattheNorwegianJointStaffCollege.”AlthoughtheIRMresearcherswereunabletoconfirmanyspecificactionsfocusingontheNorwegiancontext,thereisnoreasontodoubtthattheCentreforIntegrityintheDefenceSectoralsooperatesasaresourceintheNorwegiandefencesector.
WorkcloselywithalliesinNATO,NATOpartnernations,andrelevantnationalandinternationalorganisations
TheCentrehasengagedinanumberofinternationalactivities,includingpublicationsongoodgovernanceinthedefencesector(inEnglish),twointernationalconferences,andtheimplementationofaNATOtrainingcourse.InterviewswiththecommitmentcontactindicatethattheCentrefeelsthishasbeenquitesuccessful.
Embargoed – not for quotation or citation
Diditmatter?Thiscommitmentdoesnotprescribeanynewactivities,nordoesitappeartohavehadasignificantimpactonnationalintegrityinthedefencesector.CivilsocietyrepresentativessuggestthattheCentreshouldhaveagreaterfocusonnationalintegritysystemsandanti-corruptionsystems.Theyciteanumberofrecentscandalsinthedefencesectorandthedefencesector’sweaknessinrespondingtoFOIArequestsasevidencethatthereisasignificantnationaldemand.1
MovingforwardTheCentreshouldidentifyhowitcanworkcloselywithnationaldefenceactors,suchastheMinistryofDefence,toimproveintegrityandthequalityofaccountabilityinNorway.ObviousimportantpointsofentrywouldincludeprocurementrulesandmanagementofFOIArequests.TheCentreshouldconsultcivilsocietyontheseissuesandpublishanactionplantoconductnationalintegritywork.
1ToreBergsakerandKristofferEgeberg,“SkjultSalgavRIBVekketnyKorrupsjonsmistanke,”Dagbladet,22June2015,http://bit.ly/1RkSgC1;MarenOrstavik,“KreveratDepartementeneRedegjorforInnsynsbehandlinger,”Kultur,28June2015,http://bit.ly/1RKLnZo.
Embargoed – not for quotation or citation
21.Modernisingpublicgovernance[…]Thepurposeofthisinitiativeistoclarifyobjectivesandpriorities,clarifyrolesandresponsibilities,reduceunnecessaryreporting,andpromotebetterleadershipandmoreefficientcentralgovernmentagencies,amongotherways,bymeansofbetterexploitationofICTandbybetterinteractionandcoordinationacrosssectorsandadministrativelevels.
COMMITMENTDESCRIPTION
TheGovernmentwillconsidervariousmeasurestopromoteamoreimplementation-orientedandresult-orientedadministration.Thesemeasureswillaimtostrengtheninteractionandcoordinationacrossagenciesandsectorsandacrossadministrativelevels.Thiswillhelpinensuringthatcentralgovernmentagenciesarebettermanaged,andthattheymakegreateruseofICTthantheydotoday.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleasesee http://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ Unclear ✔ Unable to Tell from
Government and Civil Society Responses
Whathappened?Considervariousmeasurestopromoteamoreimplementation-orientedandresult-orientedadministration
TheIRMresearcherswereunabletodeterminewhatwouldqualifyas“consideration,”“variousmeasures,”or“promote,”andwerethusunabletodetermineworkexecutedthiscommitment.
Ensurethatcentralgovernmentagenciesarebettermanaged,andthattheymakegreateruseofICTthantheydotoday
TheIRMresearcherswerenotabletodeterminewhetherthecentralgovernmentagencieswerebettermanagedormadegreateruseofICTasaresultofthiscommitment.
Diditmatter?Initsbroadformulation,bettermanagementandgreaterICTusebycentralgovernmentagencieswouldcertainlymatter,butIRMresearcherswereunabletodeterminewhatthiscommitmentactuallyimplied.
MovingforwardKMDinitiatedaProgrammeforBetterGovernanceandManagementoftheState(availableathttp://blogg.regjeringen.no/bedrestyringogledelse/),whichisscheduledtobe
Embargoed – not for quotation or citation
implementedin2014-2017.KMDhasexpressedgreatoptimismaboutthepotentialforthisprogramme,whichdirectlyaddressesseveralcoreOGPvalues.Totheextentthatactivitiesfromthisprogrammearetobeincludedinfutureactionplans,theyshouldbemanifestinclear,measurable,andmeaningfulcommitments,whichstretchambitionbeyondwhathasbeenplannedorimplementedalready.
Embargoed – not for quotation or citation
22.Transparencyinthemanagementofoilandgasrevenue[…]
COMMITMENTDESCRIPTION
Norwaywill,in2014-15,
• ContinuetoliveuptotheExtractiveIndustriesTransparencyInitiative(EITI)principlesandsupporttheEITIInternationalSecretariatanddevelopingcountries`EITIimplementation,throughbothbilateralandmultilateralprogrammes.
• StrengthentheOilforDevelopmentprogramme(OfD),thelargestdevelopmentprogrammeofitskindintheworld,providingsupportandguidancetomorethan20developingcountriesonmanagementofpetroleumresources.
• Promotethedevelopmentofa“transparencyguarantee”,securingnatural-resource-richpoorcountriesaccesstoextractivecompanyaccountinginformationnecessarytolevytherightamountoftax.
• Consideradoptingacountry-by-countryreportingsystemfortheextractivesector.
• Worktostrengthenfinancialsectortransparencygenerally,forinstancebyworkingagainsttypicaltaxhavenpracticesofconcealingbeneficialownershipandfinancialtransactioninformationandbysupportingtaxinformationexchange.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Continuetoliveupto(EITI)principlesandsupporttheEITISecretariatandimplementation
NorwayisamemberoftheEITIandhashostedtheEITIInternationalSecretariatintheNorwegianDirectorateforInternationalAidsince2007.TheIRMresearcherswereunabletoidentifyspecificactivitiesrelatedtothisgoaloutsidethescopeofNorway’son-goingactivities.ItisnotcleartotheIRMresearcherswhatthiscommitmentwasintendedtoachieve,asidefromhighlightingNorway’sinvolvementintheEITI.
Embargoed – not for quotation or citation
StrengthentheOilforDevelopment
OilforDevelopmentisanaidprogrammeinitiatedbytheNorwegianGovernmentin2005.ItintendedtosharetheNorwegianGovernment’sexperiencesmanagingoilresourceswithoil-producingdevelopingcountries.Norwaysupportsdevelopingcountriesunderthisprogrammethroughgrantsandinstitutionalcooperation.TheIRMresearcherswereunabletoidentifyspecificactivitiesrelatedtothisgoaloutsidethescopeofNorway’son-goingactivities.
Promotethedevelopmentofa“transparencyguarantee”
TheIRMresearcherswereunabletoidentifyspecificactivitiesrelatedtothisgoal.
Consideradoptingacountry-by-countryreportingsystemfortheextractivesector
Acountry-by-countryreportingsystemwasfullyimplementedon1January2014.ThissystemrequiresNorwegianregisteredcompaniestoreportprofits,expenses,taxandemployeesforeachcountryinwhichtheyoperate,inananti-corruptionefforttotrackmoneyhiddenintaxsheltersaroundtheworld.Additionalinformationisavailablebelowinthisreport’ssectiononcommitment24,whichisfocusedspecificallyonthecountry-by-countryreportingsystem.
Worktostrengthenfinancialsectortransparencygenerally,forinstancebyworkingagainsttypicaltaxhavenpractices
Norwayisgenerallyastrongadvocateforfinancialsectortransparency,andthereareafewactivitiesthatreasonablycouldfallunderthiscommitment.Oneworthnotingistheparliamentarymotion,initiatedin2012,torequirecompaniestodiscloseinformationonbeneficialownership.Beneficialownershipiswhenindividualsbenefitfromownershipofcompanies,butarenotlistedasowners,forexample,duetocomplexcorporateownershipstructures.TheIRMresearcherswerenotabletoidentifyspecificactivitiesundertakentowardsthismilestonewithintheactionplanimplementationperiod.
Diditmatter?Together,theseindividualbenchmarksprovideasurveyoftheworkNorwayisdoingalreadyonoilandgastransparency,independentoftheOGP.Whilethisworkisimportant,itdoesnotseemthatitsinclusionintheOGPprocessmattered.NoneofthesecommitmentsdirectlyaddresstransparencyoftheNorwegianoilandgassectorworkingwithinNorway,andonlytwoofthefivebenchmarksaddressNorwegiancorporateactivitiesabroad.Assuch,thesebenchmarksdonotappeartohaveasignificantpotentialforimpactinNorwegianopengovernment.(Forfurtherinformationoncountry-by-countryreporting,seecommitment24.)
MovingforwardThecommitmentasitiscurrentlyformulatedisnotspecificenoughtobeassessed.FurtherOGPcommitmentsinthisareashouldmovebeyondworkthatNorwayisdoingalready.Moreover,futurecommitmentsshouldbedividedaccordingtoseparateactivitiesandshouldfocusonnational,ratherthaninternational,transparencyandaccountability.
Embargoed – not for quotation or citation
23.TransparencyinthemanagementoftheGovernmentPensionFund(GPF)TransparencyisalsoacentralprincipleinthemanagementoftheGovernmentPensionFund(GPF).TheGPFcomprisestheGovernmentPensionFundGlobal(GPFG)andtheGovernmentPensionFundNorway(GPFN)whicharebothinstrumentsforgeneralsavingsonthepartoftheState.TheMinistryofFinancehastheoverallresponsibilityforthemanagementofthetwofundsandsubmitsawhitepaperonthiseveryyear.[…]
NorgesBankreportsquarterlyandannuallyonthemanagementoftheFund[…]
ParliamenthasappointedtheSupervisoryCouncilofNorgesBank.TheSupervisoryCouncilsupervisestheBank’soperationsandensuresthattheBankiscompliantwiththerulesgoverningtheBank’sactivities,includingthemanagementoftheGPFG.[…]
CompaniesshallbeexcludedfromtheinvestmentuniverseoftheFund,pursuanttotheguidelinesfortheFund,iftheyareinvolvedinproductionorundertakingsthatimplyanunacceptablyhighriskthatthecompanycontributestogrosslyunethicalactivities.TheexclusionmechanismishandledbytheMinistryofFinanceafterreceivingrecommendationsfromaseparatebody,theCouncilonEthics.InformationontheworkoftheCouncilismadepublic,asaretheCouncil’srecommendationstotheMinistryofFinancewhichispublishedwhentheMinistryofFinancehasreachedadecision[…]
COMMITMENTDESCRIPTION
NorgesBankhasrecentlydecidedtomakevotingresultspubliclyavailableonitswebsiteonebusinessdayaftertheconclusionofthegeneralmeeting.
Editorialnote:Thetextofthecommitmentwasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?TheIRMresearchershavereadthiscommitmentasintending“tomakevotingresultspubliclyavailableonitswebsiteonebusinessdayaftertheconclusionofthegeneralmeeting.”AccordingtothesubmissionbyNorgesBanktotheNorwegianself-assessmentreport,NorgesBanknowmakesthevotingresultsfromtheirgeneralassembliesavailableontheirwebsitethroughthesearchfunctionalityonedayaftertheconclusionofeachgeneralassembly.Afterconductinginterviewsanddeskresearchwithsignificanteffort,theIRMresearcherswereabletofindthisinformationonline(seehttp://www.nbim.no/en/the-fund/holdings/).Votinginformationisdisplayedthrougha
Embargoed – not for quotation or citation
searchfunctionforeachcompanyinwhichthebankisinvested.Informationisselectedbycategoryofinvestment,thenbycountry,thenbycompany.TheIRMresearcherschecked15companiesatrandom,andfoundvotingdatalistedforonlytwoofthem.ItisnotclearfromdiscussionswiththeBankwhetherthedataexistsandiswaitingtobeintegratedorthedatadoesnotexist.Thisisdifficulttodeterminebecausedataisonlyavailablethroughindividualsearches.
Noneoftherecordscontaineddetailedinformationabouttheissuesvotedon(a“yes”or“no”entryisrecordedwiththeitem“ApproveDividendPolicy,”butnoinformationonthedividendpolicyisprovided),andthedataisnotavailableinbulkformattoallowforeasyaccess,use,orcomparison.Nevertheless,giventhewordingofthiscommitment,theIRMresearchersconsiderthiscommitmentcomplete.
TheNorgesBankcontactpersonforthiscommitmentindicatesthatthecontentofthiscommitmentwasapprovedbeforethedraftingofthesecondnationalactionplan,andtheBankprioritisedit.
Diditmatter?Publishingofvotingrecordsisapositivemovetowardsgreatertransparencyforanygovernmentinstitution.However,itisnotclearthatthisparticularinstanceprovidesanyadditionalusefulinformationaboutexclusionsfromgovernmentpensionfundsbecausetherecommendationsfromtheNorwegianEthicalCouncilandFinanceDepartment,onwhichNorgesBank’sdivestmentdecisionsarebased,arealreadypublic.
Theformatoftheinformationreleasealsoisproblematicbecauseitisverydifficulttofindandaccess.Moreover,itlikelydoesnotprovideenoughinformationtobeusefulforaccountabilityandtransparencyefforts.
MovingforwardTheIRMresearchersassumethatthiscommitmenthasbeencompleted,ascommunicatedbyNorgesBank.Futureactionplansshouldexplorehowamoremeaningfulcommitmenttotransparencyinthisareacouldbeformulatedtoprovideuserswitheasyaccesstovotinginformation,bulkaccesstovotinginformation,andcontextualinformationtomakesenseofvotinginformation.
Embargoed – not for quotation or citation
24.Transparencyandanti-corruptionefforts[…]TransparencyisalsoakeydimensionoftheNorwegianrecentlyadoptedActionPlanAgainstEconomicCrime(March2011).Theactionplandiscussesmeasuressuchascountry-by-countryreporting(CBCR).CBCRisadifferentconceptfromregularfinancialreportingasitpresentsfinancialinformationforeverycountrythatacompanyoperatesin,ratherthanasinglesetofinformationatagloballevel.Reporting,forexample,taxes,royaltiesandbonusesthatamultinationalcompanypaystoahostgovernmentislikelytoshowacompany’sfinancialimpactinhostcountries.Suchatransparentapproachwillalsoencouragemoresustainablebusinesses.
InOctober2011theEuropeanCommissionproposedtointroduceanEUsystemofCBCR,toincreasetransparencyregardingpaymentstogovernmentsmadebylargecompaniesandcompanieslistedintheEUthatareactiveintheextractiveandloggingindustries.TheproposalwasadoptedbytheCouncilandtheEuropeanParliamentinJune2013.
NorwaygenerallysupportstheEU-provisionsonCBCR.ThelegislationisinlinewiththeGovernment’sworkrelatedtoincreasedtransparencyininternationalpaymentflows.ThelegislationisalsoinlinewiththeGovernment’seffortstoenterintoinformationagreementswithso-called“taxhavens”forthepurposeoffightingtaxevasion.[…]
TheNorwegianGovernmentappointedaworkinggroupinDecember2012tolookatnationalregulationofCBCR.TheMinistryreceivedtheworkinggroupreportatthebeginningofMay,andaimstointroducesuchrequirementsfrom2014.
COMMITMENTDESCRIPTION
TheMinistryofFinancehasinOctober2013proceededabillonCBCRtotheParliament.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleasesee http://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?Thecommitment,aswrittenseemstosuggestthattherelevantactivityistheproposalofabill.Thiswasdonebeforetheactionplanwasdraftedandbeforetheimplementationperiodbegan.Acountry-by-countryreportingsystemwasfullyimplemented1January2014.ThissystemrequiresNorwegianregisteredcompaniestoreportprofits,expenses,taxes,andemployeesforeachcountryinwhichtheyoperate.Itisinananti-corruptionefforttotrackmoneyhiddenintaxsheltersaroundtheworld.Thefirstcountry-by-country(CBC)reportsweretobepublishedinthefirsthalfof2015,buttheIRMresearchershavenotbeenableto
Embargoed – not for quotation or citation
confirmifthishashappened.Therecurrentlyarenomonitoringproceduresorsanctionsinplace.
Diditmatter?ThepassageoftheCBCregulationswillincreaseprivatesectortransparencybymandatingdisclosureofinformationsuchasregistrationofcompanysubsidiaries,includingintaxhavens.However,itisworthnoting,thatsomesectorsandtaxhavensareexemptfromreporting.Becauseofloopholesandthelackofmonitoryandsanctions,theIRMresearchersgavethecommitmentlowpotentialimpact.ThislawwasapprovedonthebasisofpressureandaproposalfromNorwegiancivilsociety.Followingthesubmissionofaproposalbycivilsociety,thelawwasapprovedwithsomeamendments,butcivilsocietyappearstobegenerallysatisfiedwithit.Whatremainstobeseenishowthelawwillbeimplemented.Thelawneverthelessrepresentsanimportantsteptowardsfightinginternationalcorruption.Itisscheduledforreviewinthreeyears’time.
MovingforwardNorwayshouldconsiderreviewingthelaw,includingexemptions,soonerthanthescheduledreview,andpotentiallyafteroneyear.Norwegiancivilsocietyalsoshouldbeengagedtoparticipateinthedraftingofmonitoringprocedures,andcivilsocietyinputshouldbesoughtonestablishingsanctions.
Embargoed – not for quotation or citation
25.Themunicipalsector[…]TheNorwegianAssociationofLocalandRegionalAuthorities(KS)istheinterestorganizationandemployers’associationofthemunicipalsector.AllmunicipalitiesandcountyauthoritiesaremembersofKS.
COMMITMENTDESCRIPTION
• KSwillfurtherdeveloptheBoardAppointmentsRegister(Styrevervregisteret)inordertomakeitmoreaccessibleandeasiertouseandtoensuregreaterregistrationoftheinterestsandboardappointmentsofelectedrepresentativesandmunicipalmanagers.
• KSwillmakeeffortstofurtherdevelopKOSTRA(Municipality-StateReporting)toprovidebettermanagementinformation,amongotherways,byfurtherdevelopingqualityindicatorsandbyidentifyingandremovingdatanotusedactivelyasmanagementinformation.
• KSwillworktoachieveopenandaccessibleinformationconcerningschoolobjectives,strategies,plansandresultsatalllevelsoftheorganization.Transparencyisthebestdrivingforceforimprovementandqualitydevelopment.Themunicipalsectormustthereforehaveaccesstoallrelevantdatafordevelopmentofhighqualityservices.
• KSwillfurtherexaminedualroleissuesinconnectionwiththerevisionofKS’srecommendationsconcerningsoundmunicipalownership,tentativelyinautumn2013.
Editorialnote:Thetextofthecommitmentswasabridgedforformattingreasons.Forthefulltextofthecommitment,pleaseseehttp://bit.ly/1QlVIja.
Commitment Overview
Specificity OGP Value Relevance Potential Impact Completion
Non
e
Low
Med
ium
Hig
h
Acc
ess
to I
nfor
mat
ion
Civ
ic P
artic
ipat
ion
Publ
ic A
ccou
ntab
ility
Tec
hnol
ogy
& I
nnov
atio
n fo
r T
rans
pare
ncy
&
Acc
ount
abili
ty
Non
e
Min
or
Mod
erat
e
Tra
nsfo
rmat
ive
Not
sta
rted
Lim
ited
Subs
tant
ial
Com
plet
e
✔ ✔ ✔ ✔
Whathappened?FurtherdeveloptheBoardAppointmentsRegister(Styrevervregisteret)
TheNorwegianAssociationofLocalandRegionalAuthorities(KS)reportsthatthemilestoneregardingtheBoardAppointmentsRegisterhasbeencompleted.ThenewBoardAppointmentsRegisterprovidesanoverviewofboardappointmentsandotherimportantrolesandinterestsforabout39,000electedleadersandemployees.Ithasimportantinfluencesinabout350ofthe450Norwegianmunicipalities.Ninety-fourmunicipalcompaniesandparastatalorganisationsalsojoinedtheregister.
Embargoed – not for quotation or citation
MakeeffortstofurtherdevelopKOSTRA(Municipality-StateReporting)toprovidebettermanagementinformation
KOSTRAisanationaldatabasethataggregatesalldatareportedbymunicipalitiestothenationalgovernment,andsetsdatastandardsforwhichindicatorsaretobereported.Thiscommitmentreferstoeffortstodeveloptheindicatorsaroundschoolingdatathatmunicipalitiesarerequiredtoreport.KSreportsthatmilestonesregardingKOSTRAandschoolingdataareinprogress,butthatithasbeenchallengingtodevelopqualityindicatorsforKOSTRA.IthasbeenchallengingpartlyduetocommunicationbetweenKSandgovernmentagencies.Nevertheless,indicatorsforeducationalqualityaretobestandardisedamongmunicipalitiesin2016.
Worktoachieveopenandaccessibleinformationconcerningschoolobjectives,strategies,plans,andresultsatalllevelsoftheorganisation
KSreportsthattheyrepeatedlyhavecommunicatedthemunicipalsector’sneedforqualitydatatotheDirectorateofEducation.ButKSnotesthatasanon-governmentalorganisation,theydonothaveaccesstomunicipaldata.AninterviewwiththeKScontactpersonforthiscommitmentindicatesthatnoprogresshasbeenmadeonthisbenchmark.
FurtherexaminedualroleissuesinconnectionwiththerevisionofKS’srecommendationsconcerningsoundmunicipalownership
KSreportsthatworkonthismilestonehasnotstarteddueto“practicalreasons.”IRMresearcherswerenotabletoidentifythenatureoftheactivityorchallenge,andtheywerenotabletodeterminethepracticalreasonsfornotbeginningwork.
Diditmatter?TheIRMresearcherspresumethatthiscommitmenttargetsmunicipalgovernmentintegrity.Therehavebeenseveralcorruptioncasesatthemunicipallevelinthelast10yearsandapublicdebateaboutwhethermunicipalgovernmentshavesufficientcontrolsforpreventingcorruption.1Itisnotentirelyclearthattheabovebenchmarksarethemostimpactfulmechanismstoaddresstheseissues.TheyseeminanycasetobeinhibitedsignificantlybyKS’sstandingasanon-governmentalbody.
MovingforwardTheNorwegiangovernmentshouldconsiderworkingwithCSOstoassessthequalityofintegrityandanti-corruptioncontrolsatthemunicipallevel.Theyshouldensurethattheaboveactionsarethemostimportantmechanismstopursuethisobjective.Ifthesebenchmarksorrelatedcommitmentsareincludedinfutureactionplans,agovernmentagencyshouldbedesignatedtheresponsibleparty.
1“KorrupsjonIKommunene?,”TransparencyInternationalNorge,16August2013,http://bit.ly/1L91IYc;“KorrpsionsfarenStorstISmaKommuner,”NRK,16March2014,http://bit.ly/1L20cms.
Embargoed – not for quotation or citation
V.Process:Self-assessmentAtthetimeofwritingthisreport,theNorwegiangovernmenthadcirculatedadraftself-assessmentreporttoalistofstakeholders.Itisunclearifthedraftandits13attachmentswillbeconsolidatedintoasingledocumentandofficiallypublished.
Table2:Self-assessmentchecklist
Wastheannualprogressreportpublished? No
SummaryofadditionalinformationKMDreleaseditsdraftself-assessmentreporton31March2015.Theself-assessmentreport,whichwasaccompaniedby13PDFattachmentstoanemail,wassentto87representativesofcivilsocietyandgovernment.Itsbodycontainedthreewords(“seeattacheddocuments”).ItisnotcleartotheIRMresearchershowtheseemailaddresseswereselectedorwhethertheself-assessmentreportwaspublishedpublicly.Theemailannouncingtheself-assessmentreportdidnotprovideanyexplanationabouthowtheself-assessmentreportwasrelatedtothelargerOGPprocess.Theemailalsodidnotincludeanyindicationwhycivilsocietymightcaretoreviewit,atimelineforreview,oranyinstructionsonhowtonavigatethe13PDFattachments.Toourknowledge,KMDreceivednofeedbackonitsself-assessmentreport,whichwassenttotheOGPsecretariaton27April2015.
Follow-uponpreviousIRMrecommendationsConsultations:
ThepreviousIRMreportplacedaparticularemphasisonrecommendingchangestotheconsultationprocess,aslackofcivilsocietyawarenessandengagementseemstobeanimportantweakspotfortheOGPinNorway.Inparticular,thereportrecommended:
• Cleartimelinesforconsultationswithsufficientnotice,
• AlignmentoftimelinesfordevelopingactionplansandincorporatinginputfromIRMreports,
• Developingactionplansafterconsultingwithcivilsociety,and
• Publiclysharingdraftactionplans,informationontheconsultationprocessandlistofconsultedorganisations,perrecommendationsintheOGPguidelines.
AlthoughKMDsignificantlyincreasedthenumberofCSOsonitsmailinglist,itdoesnotseemtohaveengagedmeaningfullywiththeaboverecommendations.ConsultationswereheldagainwithdeadlinesduringNorwegiansummerholiday,andcivilsocietyrepresentativesagaincomplainedabouttoolittletimetoprovidefeedback.Informationondraftplansandconsultationprocessesarenotpubliclyavailableonthegovernment'swebpageforOGP.1
TheNorwegianGovernmentneedstodoabetterjobofengagingcivilsocietyinOGPprocesses.IthasnotmanagedtomakeacompellingcaseforwhyOGPisrelevanttocivilsociety.Inacountrywheregovernanceisstrong,transparencyisanacceptednorm,andrelationshipsbetweencivilsocietyandgovernmentaregenerallygood,thismaywellbeaprerequisitefortheNorwegianGovernmenttoimplementtheOGPmeaningfully.ForthemajorityofCSOsinNorwaythatarenotfamiliarwithOGPandhavetoomuchtodo,
Embargoed – not for quotation or citation
packagingOGPcommunicationsindenseoremptyemailswithnumerousattachmentsandwithoutclearrelevancemeansthatthesecommunicationsarenotread.
Atthetimeofwritingthisreport,onlyaverysmallnumberofCSOsarefamiliarwithOGP.CSOsfamiliarwithOGPalsohappentobereceivingfinancialsupportfromtheNorwegianGovernmenttoparticipateintheOGPCouncil.AlthoughNorwayenjoysastrongtraditionforcollaborationbetweencivilsocietyandgovernment,includinggovernmentfundingofindependentCSOs,theIRMresearchershaveconcernsaboutthisarrangement.ItistroublingthatCSOsnotreceivingsupportarenotengagedorinterestedinparticipatinginOGPprocesses.ItalsoistroublingthattheNorwegianGovernmentmaybe,ineffect,outsourcingsomeofitsresponsibilitiesfordesigninganddrivingOGPprocesses.Financialsupportalsohasthepotentialtodistortincentivesfordesigningandimplementingopengovernmentactionplans.
Ownership:
NorwayhasidentifiedaresponsibleagencyandfocalpointfortheOGP,inkeepingwithpreviousrecommendations,butquestionsremainaboutOGPownership.Interviewsandself-assessmentmaterialssuggestthatthedegreeofownershipvariesdramaticallybetweendifferentagenciesandcontactstaskedwithdraftingandimplementingcommitments.ManyagenciesandcontactsseemstilltoregardOGPasanexternalphenomenonthathappenstooverlapsubstantivelywiththeworkthattheyalreadyaredoing.Inthatsense,OGPimpliesextrareporting,butlittleelse.Asinthepreviousreview,greatersupportandcoordinationwiththePrimeMinister'sofficeandotheragencieslikelywouldhelp,butitseemsasthoughhigh-levelpoliticalsupportalsomaybenecessarytomakeOGPameaningfulandrelevantphenomenonforNorway.
Ambitiouscommitments:
ThepreviousIRMreportrecommendedthatNorway“strivetoselectOGP-relatedtopicsthatareregardedbroadlyaschallengingintheNorwegiancontext.”Someofthecommitmentsinthesecondactionplandothisbytargetingareassuchasaccesstoinformationinmunicipalanddefencesectors,anti-corruptionefforts,internationalcorporateactivities,andmunicipalgovernance.However,thesecommitmentsgenerallyarenotambitious.Theyreferlargelytovagueeffortsto“review”or“consider”regulatoryframeworksandtoactivitieswhichalreadyareunderwayandwhicharepoliticallynon-contentious.
ThepreviousreportalsorecommendedthatNorwayreducethenumberofcommitmentstofacilitategreaterengagementandownership.Thesecondactionplanincreasedthenumberofcommitmentsfrom20to26(althoughthefinalcommitment,addedlate,wasnotincludedinthenationalactionplanandisnotreadilyavailableorconsideredinthisreport).
Embargoed – not for quotation or citation
VI.Countrycontext
Norwayisacountrywithastrongtraditionforopennessandtransparency,principlesthatareprotectedactivelybycivilsociety.Thisiswellillustratedbyrecentpoliticaleventssurroundingthecountry’sfreedomofinformationlaw.Parliamentaryeffortstomakefasttrackchangestothelaw,whichwouldhaveallowedcitycouncilstokeeppreparatorydocumentsasecret,provokedstrongreactionsamongthepressandcivilsociety.Theyappeartohaveledtotheblockingofthechangesinparliament.2
TherapidandeffectiveresponseofabroadcrosssectionofNorwegiancivilsocietyinthisinstancedemonstratesthatcivilsocietyengagementthatispossiblewhenissuesandinstancesobviouslyarerelevant.ButithighlightsthefailureoftheNorwegianGovernmenttoengageeffectivelywithcivilsocietyontheOGP.SomeofthemostactiverespondentstotheparliamentaryproposalforlimitingthescopeofFOIArequests,suchasthecivilombudsmanandthenationalpressassociation,wereengagedinthefirstindependentreviewofNorway'sOGPcommitments.Presumably,theywereinvitedtoKMD'sconsultationsforthesecondnationalactionplan.Theirlackofparticipationintheconsultationprocessshouldnotbeconfusedwithalackofengagementontheirpart,butshouldpromptquestionsaboutwhethertheNorwegianGovernmenthasmadesufficienteffortstodemonstratetherelevanceoftheOGPprocessandtoaccommodatecivilsocietycontributions.
Thisdynamicispresentinseveralotheraspectsofthesecondactionplan.AccesstoinformationandfreedomofinformationrequestsaretopprioritiesforcivilsocietyinNorway.Groupsconsultedforthepreparationofthisreportconsistentlycitedchallengesintheseareas.Theybelievethechallengesarecriticalforsecuringtransparencyandaccountability.WhileseveralofthecommitmentsinthesecondnationalactionplanrelatetoaccesstoinformationandFOIAlegislation,thesecommitmentstendnottoaddressthetypesofinformationormechanismsthatcivilsocietyandcitizensdemand.Instead,theyemphasisemechanismsandtypesofinformationthatgovernmentagenciesprioritise.ThissuggestsafundamentalmisalignmentbetweensupplyanddemandforinformationintheNorwegianaccountabilitycontext.Presumably,themisalignmentmaybemitigatedbymeaningfulconsultationswithcivilsociety.
AsdiscussedinSectionV,theNorwegianGovernment’seffortstoengagecivilsocietyintheOGPprocessarenotasproactiveorproductiveastheycouldhavebeen.FailuretoarticulatetherelevanceofOGP,tofacilitateaccesstoOGPinformation,ortoengageadiversesegmentofcivilsocietylikelyhaveresultedinthegenerallylacklustrequalityofcivilsocietyengagement.
StakeholderprioritiesTheIRMwasunabletoreconveneabroadselectionofcivilsocietyrepresentativesduetolackofengagementintheOGPprocess.InterviewsanddiscussionsconductedwiththeIRMresearcherinthepreparationofthisreportsuggestsomepriorityissuesforcivilsociety,includingstrengtheningofgovernmentcapacitiestomanageFOIArequests,anti-corruptioncontrolsatthemunicipallevel,andwhistle-blowerprotection.Theseissuesareaddressedlargelybythesecondactionplan,butnotthroughmeasuresorwithfocusthatstakeholdersfoundmeaningful.
ItisalsoworthnotingthattheseissuestendtoalignwiththemandateofthefeworganisationsthathavefollowedtheOGPprocess.Althoughaddressingthepriorityissues
Embargoed – not for quotation or citation
ofthethreetofivevocalCSOsisimportantintheOGPprocess,itisequallyimportanttoidentifyandtorespondtotheprioritiesofthefullspectrumofCSOsandcitizens.Inacountrywheregovernanceisstrongandtherelationshipbetweencivilsocietyandgovernmentishighlyfunctional,thegovernmentshouldframetheOGPasaneffortthatisrelevanttocivilsociety.Itshouldbereflectedincommunicationsandconsultations.TheIRMresearcherswereunabletoconveneabroadsectorofcivilsocietyduetolackofawarenessandengagement.Theydidnotfinditwithintheirmandatetoconductextensiveawareness-raisingactivities.Forthisreason,itshouldbenotedthattheremaybeseveralothercivilsocietyperspectivesandprioritiesthatarenotrecordedinthisreport.
ScopeofactionplaninrelationtonationalcontextTheissueareascoveredbyNorway'ssecondnationalactionplanarelargelyconsistentwiththeOGPDeclarationofPrinciplesandArticlesofGovernance.However,thecommitmentsfailtoaddressmeaningfulareasofimprovement.Forexample,whiletherighttoinformationisclearlyapillarofopengovernmentandfallssquarelywithinopengovernment,thecommitmenttoevaluatethatlawandconsideramendmentsisnotambitious.
AccordingtoseveralrepresentativesoftheNorwegiancivilsociety,thefreedomofinformationlawisa“gamechanger”forNorwegianopennessandtransparency.However,muchworkneedstobedonetomakethepublicawareofthelaw,toimprovegovernmentresponsiveness,andtomakethelaweasiertoimplement.TheseissueshavebeenraisedinconsultationsandintheNorwegianmedia.Acommitmenttoreviewthelawgenerallyaddressesnoneoftheseissues,butratherdescribesactivitiesthatlikelyalreadywereplanned.Moreover,theactivitiescannotbeexpectedtoimprovethequalityofNorwegianopennesssignificantly.
Thisdynamicoftopicalrelevanceundercutbyvagueandmodestcommitmentsisrepresentativeofthemajorityofcommitmentsinthesecondnationalactionplan.
Commitmentsintheactionplantendtodescribeon-goingpoliticalprocessesthatappeartoberelatedonlysubstantivelytotheOGP.Accordingtofocalpoints,suchcommitmentswouldhavebeendeterminedandimplementedinpreciselythesamemannerwithoutOGP.
WhileitisnottheIRMresearchers’intentiontopenaliseNorwayfordoinggoodworkonopengovernmentandtransparencyoutsideoftheOGPinitiative,theOGPinitiativeshouldnotbeusedasabox-checkingexercisetocataloguerelevantinitiativesthatareunrelatedtotheOGPprocess.Suchanapproachalsorepresentsasignificantopportunitycost,asinterviewsconductedforthisreportsuggestthatbetterintegrationofOGPwithrelevantinitiativescouldhaveabeneficialconsequenceforboth.
Thiswouldrequireinvolvingrelevantagenciesandfocalpointsmoreextensivelythansimplyreportingonon-goingactivities.ItwouldrequireaskingthemeithertorethinkandtorestructureactivitieswithintheOGPcontext,ortodevelopOGPcommitmentsthatbuildonandaddtotheiron-goingactivities.Thisisamoredemandingapproachthansimplycataloguingactivities,butitlikelywouldhavemoremeaningfulresults,bothforOGPactionplansandforothertransparencyandopennessworkintheNorwegianpublicsector.Theadditionaleffortandresourcesinvolvedalsolikelywouldimplyprioritisationofareas,fewercommitments,andmorefocusinfutureactionplans.
1“OpenGovernmentPartnership,”GovernmentofNorway,6December2014,http://bit.ly/1FN7dvk.2“StortingsforslagOmMindreApenhetMoterKraftigMotstand,”IAllOffentlighet,http://bit.ly/1Od0RZ9.
Embargoed – not for quotation or citation
VII.GeneralrecommendationsThissectionrecommendsgeneralnextstepsforOGPingeneral,ratherthanforspecificcommitments.
Crosscuttingrecommendations1. Improvethequalityofactionplancommitments.Thevaguenessandmodestyof
Norwegiancommitmentsinthefirstandsecondnationalactionplanshavehinderedengagement,review,andimplementation.Commitmentswithoutclearactivitiesoroutcomes,orcommitmentsthatdescribeon-goingornon-contentiousactivities,providenoaddedvaluetothequalityofopennessinNorway.TheyprovidenoreasonforNorwegiancivilsocietytoengagewiththeOGPprocess.Generally,thequalityofactionplancommitmentslikelywillimprovebyincludingfewercommitments.Additionally,individualcommitmentsshouldbecraftedtoadheretothefollowingrulesofthumb:
A. CommitmentsinOGPnationalactionplansshouldbespecificandmeasurable.Commitmentsshouldbeformulatedwithspecificactivitiestobeexecutedbyspecificactors.Thiswouldmakeitpossibletodeterminewhethersuchactivitieshavebeencompleted.Commitmentsshouldincludespecifictimelinesandmeasurablebenchmarks.
B. Commitmentsshouldbeambitious.Governmentagenciesinademocraticsocietyregularlyactinwaysthatcanbeconsideredtocontributetoopengovernmentthroughtheirbasicoperationandinteractionwithcitizens.Whilelaudable,suchactivitiesonlyshouldbeconsideredOGPcommitmentswhentheysignificantlycontributetomakinggovernmentmoreopen,accountable,andresponsivetocitizens.
Superficialadjustmentstowell-establishedgovernancemechanismsdonotmeetthiscriterion.On-goingpoliticalprocessesforwhichthereisnopoliticalorpracticaloppositionalsodonotmeetthiscriterion.IncludingtheminactionplansrepresentsadescriptionofNorwegianpoliticalprocesses,notambitiouscommitmentstostrengthenopengovernment.
C. Commitmentsshouldaddresspriorityareas.Someissueareas,suchassimplifyingthegrantreportingrequirementsforNGOs,1arelaudable,butdonotclearlydeservetheattentionandprioritisationthenationalactionplanshouldconvey.Asacountrywithastrongrecordfordemocraticgovernanceandastrongcivilsociety,NorwayshouldbasecommitmentsonissuesthatareprioritisedinthecriticalmediaandbynationalCSOs.OGPcommitmentsshouldnotbeidentifiedanddevelopedonthebasisofrelevantactivitiesthatarealreadyunderway.
2. Worktomakenationalactionplansrelevanttobothcivilsocietyandresponsibleagencies.ThisreporthasnotedNorwegiancivilsociety'slackofengagementintheOGPmechanism.Thisisnotbecausealackofengagementonissuesofnationalopennessorgovernmentresponsiveness,butlikelybecausetherelevanceofOGPtonationalopennessandresponsivenessisnotclear(seeabovediscussiononcountrycontext).Similarly,manyofthegovernmentofficialsinterviewedforthisreportbytheIRMresearchersindicatedthattheywerenotfamiliarwithOGP.Thosethatwere,oftendescribedtheiractivitiesasonlylooselyrelatedandcitedimprecise
Embargoed – not for quotation or citation
potentialbenefitsofassociationwiththeOGP,suchasthepotentialtoaccessgreaterpoliticalsupportorbudgetallocations.
A. RaiseawarenessabouttheOGPinnationalmedia.TheNorwegiannationalpressregularlycoversOGP-relatedissuesthroughop-eds,debates,andinvestigativejournalism.Effortshouldbemadebythegovernmentand/ortheOGPCounciltofacilitatemediacoveragetohighlighttheOGP'srelevance.
B. Seekhigh-levelpoliticalsupportfortheOGP.Norwayfailedtodemonstratehigh-levelpoliticalsupportfortheOGP,mostnotablybynotattendingtheHighLevelSummitin2014.PoliticalandcoordinationsupportfromthePrimeMinister’sofficelikelywouldhaveaverypositiveeffectinfacilitatingengagementandcoordinationbetweenagenciesresponsibleforindividualcommitments.Politicalsupportattheministeriallevelinresponsibleagencies,orafewkeyagencies,likelyalsowouldgreatlyimproveawareness,ownership,andcoordinationamongfocalpointsforOGPcommitments.
C. TailortheOGPtoaddressissuesthatNorwegiancivilsocietyandgovernmentagenciesarealreadyworkingon.Notingtheimportanceofambitiouscommitmentsandnotreframingexistingworkascommitments,itcanneverthelessbeimportanttoidentifytheissueareasandinstitutionalmandatesthatarealreadybeingprioritisedbycivilsocietyandgovernmentagencies.ThisrequiresNorwaytobalancethoughtfullybetweenidentifyingambitiousstepstobetakeninnovelareas,andfocusingonareasandprioritiesalreadyidentifiedbycivilsociety.Norwayalsoshouldimprovethequalityofcommitments,aswellasthequalityofengagementandownership.
3. Improvetheaccessibilityanddepthofconsultations.OGPconsultationsforthesecondnationalactionplanhavenotbeenwellattendedbycivilsociety,althoughgovernmentagencyrepresentationincreased.
A. Improvehowconsultationsarepresented.Ifemailcontinuestobetheprimarymechanismtoinviteparticipantstoconsultations,NorwayshouldmakeanefforttostateclearlythepurposeoftheconsultationsandhowOGPisrelevanttocivilsociety'swork.Effortshouldbemadenottocreateobstaclestocivilsocietyengagementthroughformattingorrhetoric.Thisprincipleshouldalsobeappliedtoonlineandotherinformation.
B. Makeconsultationinformationeasytofind.Inaddition,tomakinginformationeasytofindinactualemails,muchcouldbedonetospreadinformationaboutconsultationswherecivilsocietyislikelytoseeit.Existingprintandonlineinformationsources,suchasBistandsAktuelt,Global.noandtheFORUMnewslettercanbeimportantchannelsforensuringthatcivilsocietyrepresentativesseeconsultationinformation.
C. Keepclearrecordsonconsultationsandprovidefeedbackonhowinputduringconsultationswasorwasnotincorporatedintoplanningandimplementation.Severalcivilsocietyrepresentativesexpresseddissatisfactionwithconsultationprocesses.AlthoughtheproposalssubmittedviaemailwerepublishedontheKMDwebsite,itwouldbeusefultorecordproposalsmadeinlivemeetings.Italsowouldbeusefultoprovideanexplanationforwhysomeproposalswereincludedinthenationalactionplanandsomewerenot.This
Embargoed – not for quotation or citation
mighthelptoconstructafeelingofmoremeaningfulconsultationandtofacilitategreatercivilsocietyengagementinOGPprocesses.
D. Ensurethatconsultationmeetingsanddeadlinesdonotdiscourageparticipation.Aswiththefirstnationalactionplan,consultationsin2013coincidedwithnationalsummerholidays,inhibitingcivilsocietyparticipation.Stepsshouldbetakentoavoidthis.
TopSMARTrecommendationsTOPFIVE‘SMART’RECOMMENDATIONS
1.Priortoconsultations,establishapublic-facingwebpresenceforOGPthatisdesignedtofacilitateinteraction.OGP-relatedinformationshouldbeorganisedaccordingtotheinterestsandmandatesofNorwegiancivilsociety.PromotethiswebpresenceinforumsandonwebsiteswhereNorwegiancivilsocietyalreadyisactive,suchashttp://www.bistandsaktuelt.no/.Usethiswebpresencetotrackproposalsandinputstoconsultations,regardlessoftheformatinwhichtheyaresubmitted.Italsocanbeusedtoprovidefeedbackonhowandwhyindividualproposalsareincorporatedintotheactionplan,orreasonstheyarenot.
2.DevelopandconsultonthethirdnationalactionplanaccordingtoatimelinethatisdevelopedinpartnershipwiththeOGPCouncil.
3.Priortodevelopingthenextnationalactionplan,seekhigh-levelpoliticalsupportfortheOGPattheministeriallevelforkeygovernmentagencies.DevelopacommunicationsstrategyincollaborationwiththeOGPCouncilforpromotingtheOGPinnationalmediatoraiseawarenessandtofacilitatecivilsocietyengagementaheadofconsultations.
4.Strengthengovernmentagencies’institutionalownershipofOGPcommitmentsbyestablishingaregularmulti-agencyprocessforsharingandmonitoringofcommitmentsbeforethenextimplementationcycle.
5.Includemoreambitiousandmeasurablecommitmentsinthenextnationalactionplan.EnsurethatthosecommitmentsmeettheSMARTcriteria.ThesecommitmentsshouldbebasedonissuesthatareprioritisedinthecriticalmediaandbynationalCSOs.
1Seecommitment9.
Embargoed – not for quotation or citation
VIII.MethodologyandsourcesAsacomplementtothegovernment’sself-assessmentreport,well-respectedgovernanceresearchers,preferablyfromeachOGPparticipatingcountry,writeanindependentIRMassessmentreport.
ExpertresearchersuseacommonOGPindependentreportquestionnaireandguidelines,1basedonacombinationofinterviewswithlocalOGPstakeholdersaswellasdesk-basedanalysis.ThisreportissharedwithasmallInternationalExpertPanel(appointedbytheOGPSteeringCommittee)forpeerreviewtoensurethatthehigheststandardsofresearchandduediligencehavebeenapplied.
AnalysisofprogressonOGPactionplansisacombinationofinterviews,deskresearch,andfeedbackfromnongovernmentalstakeholdermeetings.TheIRMreportbuildsonthefindingsofthegovernment’sself-assessmentreportandanyotherassessmentsofprogressbycivilsociety,theprivatesector,orinternationalorganisations.
Eachlocalresearchercarriesoutstakeholdermeetingstoensureanaccurateportrayalofevents.Givenbudgetaryandcalendarconstraints,theIRMcannotconsultallinterestedoraffectedparties.Consequently,theIRMstrivesformethodologicaltransparency.Therefore,whenpossible,theIRMmakespublictheprocessofstakeholderengagementinresearch(detailedlaterinthissection).Innationalcontextswhereanonymityofinformants—governmentalornongovernmental—isrequired,theIRMreservestheabilitytoprotecttheanonymityofinformants.Additionally,becauseofthenecessarylimitationsofthemethod,theIRMstronglyencouragescommentaryonpublicdraftsofeachnationaldocument.
Generally,evaluatingNorway’scommitmentsinthisactionplanwashamperedbythevaguenessofcommitmentformulation.Descriptionsofactionsalreadytaken,orintentionsto“review”or“consider”activitieshavenotbeenaccompaniedbymeasurablebenchmarks,requiringasignificantamountofguessworkandinterpretationonthepartoftheIRMreviewers.Asaresult,muchofthecodingofthecommitments’specificity,ambition,andcompletionareopentodiscussion.TheIRMresearchersrecognisethisandhopethatmorespecificandmeasureablecommitmentswillallowformoredefinitiveevaluationsoffutureactionplans.
InterviewsandfocusgroupsEachnationalresearchercarriesoutatleastonepublicinformation-gatheringevent.Careistakenininvitingstakeholdersoutsideofthe“usualsuspects”listofinviteesalreadyparticipatinginexistingprocesses.Supplementarymeansmaybeneededtogathertheinputsofstakeholdersinamoremeaningfulway(e.g.onlinesurveys,writtenresponses,follow-upinterviews).Additionally,researchersperformspecificinterviewswithresponsibleagencieswhenthecommitmentsrequiremoreinformationthanprovidedintheself-assessmentreportorthanisaccessibleonline.
TheIRMresearcherswereunabletosolicitinterestforabroadpubliceventandinsteadprioritisedparticipationinmeetingsorganisedbytheNorwegianGovernmentandindividualinterviewsstakeholders.InMarch2015,theIRMresearcherscontactedgovernmentpointsforall25commitmentsandsecuredandexecuted13interviews.TheIRMresearchersalsoconductedinterviewswithfourCSOs,includingtheOGPCouncil,inthistimeperiod.InJune2015,theIRMresearchersconductedfollow-upinterviewswithmembersoftheOGPCouncil.
Thelistofintervieweesanddialoguemeetingsisasfollows:
Embargoed – not for quotation or citation
InterviewwithDifi,12March2015
InterviewwithIKTNorge,12March2015
InterviewwithKS,13March2015
InterviewwithDifi,Ledelseogorganisering,17March2015
InterviewwithOGPCouncil,17April2014
InterviewwithKMD,AvdelingforIKTogFornying,18March2015
InterviewwithFinansdepartementet,avdelingforformueforvaltning,18March2015
InterviewwithJustis-ogBeredskapsdepartementet,18March2015
InterviewwithRiksarkivet,Avdelingforbevaringogtilsyn/Seksjonforelektroniskarkivdanning,18March2015
InterviewwithTransparencyInternational,19March2015
InterviewwithKMD,20March2015
DialogueMeetinghostedbyKMDon6June2013
MeetinghostedbyKMDon17April2014
Inadditiontotheseinterviews,theIRMresearchersalsoconsideredthefollowinginputtothedraftself-assessmentreport:
Kommunal-ogmoderniseringsdepartementet,AvdelingforIKTogfornying(AIF);Justis-ogberedskapsdepartementet(JD),AvdelingforLovavdelinga;DirektoratetforforvaltningogIKT,Avdelingfordigitalforvaltning;NationalArchives,Avdelingforbevaringogtilsyn/Seksjonforelektroniskarkivdanning;Helse-ogomsorgsdepartementet,Administrasjonsavdelingen;Utenriksdepartementet,AvdelingforKompetanseogRessurser,Seksjonfortilskuddsforvaltning;AgencyforPublicManagementandE-Government(Difi),AvdelingforDigitalforvaltning(DIG);MinistryofCulture,DepartmentofCivilSocietyandtheVoluntarySector;DirektoratetforforvaltningogIKT(Difi),AvdelingforLedelseogorganisering(LEO);Arbeids-ogsosialdepartementet,AvedelingforArbeidsmiljø-ogsikkerhetsavdelingen;Justis-ogberedskapsdepartementet,Politiavdelingen;NorwegianAssociationofLocalandRegionalAuthorities(KS);Finansdepartementet,Avdelingforformuesforvaltning(FIN);Utenriksdepartementet,AvdelingforKompetanseogRessurser,Seksjonfortilskuddsforvaltning;Utenriksdepartementet,Avdelingforøkonomiogutvikling;InputtoNorway'sSelf-AssessmentReportsubmittedbyFinansdepartementet,Finansmarkedsavdelingen;Kommunal-ogmoderniseringsdepartementet(tid.FAD),AvdelingforIKTogfornying
DocumentlibraryTheIRMusespubliclyaccessibleonlinelibrariesasarepositoryfortheinformationgatheredthroughoutthecourseoftheresearchprocess.Alltheoriginaldocuments,aswellasseveraldocumentscitedwithinthisreport,areavailableforviewingandcommentsintheonlinelibraryathttp://bit.ly/1ga0Oyt.
AbouttheIndependentReportingMechanismTheIRMisakeymeansbywhichgovernment,civilsociety,andtheprivatesectorcantrackgovernmentdevelopmentandimplementationofOGPactionplansonabi-annualbasis.ThedesignofresearchandqualitycontrolofsuchreportsiscarriedoutbytheInternational
Embargoed – not for quotation or citation
Experts’Panel,comprisedofexpertsintransparency,participation,accountability,andsocialscienceresearchmethods.
ThecurrentmembershipoftheInternationalExperts’Panelis:
• AnuradhaJoshi
• DebbieBudlender
• ErnestoVelasco-Sánchez
• GerardoMunck
• HazelFeigenblatt
• HilleHinsberg
• JonathanFox
• LilianeCorrêadeOliveiraKlaus
• RosemaryMcGee
• YaminiAiyar
AsmallstaffbasedinWashington,D.C.shepherdsreportsthroughtheIRMprocessinclosecoordinationwiththeIRMresearchers.Questionsandcommentsaboutthisreportcanbedirectedtothestaffatirm@opengovpartnership.org.
1FullresearchguidancecanbefoundintheIRMProceduresManual,availableathttp://www.opengovpartnership.org/about/about-irm.
Embargoed – not for quotation or citation
IX.EligibilityrequirementsInSeptember2012,OGPdecidedtobeginstronglyencouragingparticipatinggovernmentstoadoptambitiouscommitmentsinrelationtotheirperformancewithrespecttotheOGPeligibilitycriteria.TheOGPSupportUnitcollateseligibilitycriteriaonanannualbasis.Thesescoresarepresentedbelow.1Whenappropriate,theIRMreportswilldiscussthecontextsurroundingprogressorregressonspecificcriteriainthesectiononcountrycontext.
2011 Current Change Explanation
BudgetTransparency2 4 4 Nochange
4=Executive’sBudgetProposalandAuditReportpublished2=Oneoftwopublished0=Neitherpublished
AccesstoInformation3 4 4 Nochange
4=Accesstoinformation(ATI)Law3=ConstitutionalATIprovision1=DraftATIlaw0=NoATIlaw
AssetDeclaration4 4 4 Nochange
4=Assetdisclosurelaw,datapublic2=Assetdisclosurelaw,nopublicdata0=Nolaw
CitizenEngagement(Rawscore)
4(10.00)
5
4(10.00)6
Nochange
1>02>2.53>54>7.5
Total/Possible(Percent)
16/16(100%)
16/16(100%)
Nochange
75%ofpossiblepointstobeeligible
1Formoreinformation,seehttp://www.opengovpartnership.org/how-it-works/eligibility-criteria.2Formoreinformation,seeTable1inhttp://internationalbudget.org/what-we-do/open-budget-survey/.Forup-to-dateassessments,seehttp://www.obstracker.org/.3ThetwodatabasesusedareConstitutionalProvisions(www.right2info.org/constitutional-protections)andLawsandDraftLaws(http://www.right2info.org/access-to-information-laws).4SimeonDjankov,RafaelLaPorta,FlorencioLopez-de-Silanes,andAndreiShleifer,“DisclosurebyPoliticians,”(TuckSchoolofBusinessWorkingPaper2009-60,2009),http://bit.ly/19nDEfK;OrganisationforEconomicCo-operationandDevelopment(OECD),“TypesofInformationDecisionMakersAreRequiredtoFormallyDisclose,andLevelofTransparency,”inGovernmentataGlance2009,(France:OECDPublishing,2009),132,http://bit.ly/13vGtqS;RichardMessick,“IncomeandAssetDeclarations:GlobalExperienceofTheirImpactonCorruption”(paperpreparedfortheConferenceonEvidence-BasedAnti-CorruptionPolicyorganisedbyThailand’sNationalAnti-CorruptionCommission(NACC)incollaborationwiththeWorldBank,Bangkok,Thailand,5-6June2009),16,http://bit.ly/1cIokyf.Formorerecentinformation,seehttp://publicofficialsfinancialdisclosure.worldbank.org.In2014,theOGPSteeringCommitteeapprovedachangeintheassetdisclosuremeasurement.Theexistenceofalawanddefactopublicaccesstothedisclosedinformationreplacedtheoldmeasuresofdisclosurebypoliticiansanddisclosureofhigh-levelofficials.Foradditionalinformation,seetheguidancenoteon2014OGPEligibilityRequirementsathttp://bit.ly/1EjLJ4Y.5TheEconomist,DemocracyIndex2010:DemocracyinRetreat,bytheEconomistIntelligenceUnit(Report,London,2010),http://bit.ly/eLC1rE.6TheEconomist,DemocracyIndex2014:DemocracyanditsDiscontents,bytheEconomistIntelligenceUnit(Report,London,2014),http://bit.ly/18kEzCt.