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NGOs, social movements, and civil society
Before we can study the role of non-governmental organizations in global politics, it is necessary to be clear what is meant by an NGO. The term appears to be very abstract and remote from our daily lives. Unfortunately, it is what social scientists call an essentially contested concept. For many people, to define a non-governmental organization is to take a political position, either explicitly or implicitly. NGOs are to be admired: therefore, the term can only cover admirable organizations. Alternatively, NGOs are to be condemned: therefore, the term only covers organizations with negative features. For some people, NGOs are the organizations with which they are familiar and other very different types of NGOs are not acknowledged. The only unanimous point is we cannot use the literal meaning of the term: non-governmental organizations do not include every organized group that is independent from governments. Another confusion is the preference of some writers and activists for the terms social movements and/or civil society. This chapter will address the question of what NGOs are and discuss how they relate to the broader concepts of social movements and civil society.
Creation of the term ânon-governmental organizationâ by the United Nations
Until the adoption of the United Nations Charter in 1945 the term non-governmental organization did not exist. Before 1945 several different terms were used. In 1910 a group of 132 organizations, which we would now call international NGOs, came together to form the Union of International Associations. The Secretariat of the League of Nations described itself as keeping âin constant touch with a number of private national and international organizations.â1 In 1929 a group of organizations that regularly related to the League of Nations Secretariat and attended League meetings formed the Federation of Private and Semi-Official International Organizations Established at Geneva, while the representatives of âinternational associationsâ at League committees were called âassessors.â2 The League had formal relations with âinternational bureauxâ but these were defined under its Covenant as intergovernmental bodies created by treaties. Contacts did also gradually develop over the years with private organizations, but it was in an unsystematic, pragmatic manner. There were never any permanent official procedures for the League to relate to private organizations.
When the UN Charter was finalized, the San Francisco conference agreed to make provision for both intergovernmental organizations and private organizations to have formal relations with the Economic and Social Council (ECOSOC) of the UN. However, the delegates were unwilling to give the same status to the two types of international organizations. Under Article 57, a new term, âspecialized agencies,â was defined to cover international organizations, such as the World Health Organization (WHO), âestablished by intergovernmental agreementâ that would be âbrought into relationship with the United Nations.â Under Article 70, ECOSOC could make arrangements for representatives of the agencies âto participate, without vote, in its deliberations.â This gave the heads of agency secretariats the same status as government delegates from countries that had not been elected as members of ECOSOC. Under Article 71, a second new term, ânon-governmental organizations,â was invented, but it was left undefined. The result was that âspecialized agenciesâ and âNGOsâ became UN jargon. After 1945, private international organizations quickly started to call themselves NGOs, but the term did not move outside the world of diplomacy until the 1970s. It is now widely used in public debate. On the other hand, it is not so well known that âNGOsâ originated as a very broad term from the UN Charter.
Thus, the foundation stone, upon which the whole edifice of NGO influence in global diplomacy was built, is just one article in the UN Charter.
There was meant to be a clear distinction between the higher status of âparticipation without voteâ for specialized agencies and âconsultationâ with the NGOs. ECOSOC affirmed at its second session, by Resolution 3 (II), âthis distinction, deliberately made in the Charter, is fundamentalâ and NGOs should not have the same rights of participation as government observers and specialized agencies. Despite the official award of a secondary status, NGOs were able to use Article 71 as the crucial lever to open the door and eventually gain a strong role as participants in international diplomacy. In 1950, ECOSOC codified its definition of what were NGOs and how it would work with NGOs, in a Statute on Arrangements for Consultation with Non-Governmental Organizations. This was revised in 1968 and again in 1996.3 Different ways of thinking about what groups are or are not NGOs, including the UN definition of NGOs, will be discussed in this chapter. Then how NGOs participate in the UN system will be discussed in the next chapter.
Narrow definitions of non-governmental organizations in global diplomacy
NGOs are often presumed to be concerned with development, humanitarian work, the environment, or human rights. Then, they may be categorized into operational groups that run their own projects or advocacy groups that seek to influence policy. Not surprisingly, such an approach appears in the definitions used by intergovernmental organizations concerned with development. A variety of restrictive definitions of non-governmental organizations is reported in Box 1.1.
Several points emerge from these definitions. As the term implies, there is general agreement that NGOs are independent from governments. It is also agreed that NGOs are not profit-making or engaged in commercial activities. Transnational corporations are definitely not NGOs. Less obviously, it is taken for granted, in the above definitions, that NGOs are established organizations and cannot be ephemeral groups, informal associations, or unstructured networks. Thus, the consensus only extends to negative pointsâwhat are not NGOs. Little else seems to be agreed. For the Food and Agriculture Organization, they should have operational programs, but for the others this is not essential. At United Nations Development Programme headquarters in 1993 they were seen as being altruistic, whereas for the World Bank and the Organization for Economic Co-operation and Development they could be groups cooperating to look after the interests of their own members. Sometimes NGOs are seen as raising funds from the public, but others do not mention this. Some definitions focus on the groupâs activities, while others focus on their objectives. Various activities such as undertaking programs, funding projects, or advocacy for general public interests, are suggested but none of the definitions mention political activities to empower disadvantaged people or research to improve understanding of what development policies succeed or fail.
Even if we accept the focus on development in these definitions, they are deficient in not leading us to expect womenâs groups, religious organizations, or scientists to be important NGOs. The world of NGOs goes beyond standard operational and advocacy activities to include many other, less well-known, activities, such as harmonization of technical standards, maintenance of communications systems, provision of information, professional collaboration, transnational cooperation and learning, sustaining shared values or a common identity, protecting collective interests, empowerment of the disadvantaged, cultural exchanges, and promoting communal, class, gender, or ethnic solidarity. Each of the definitions quoted above is too narrowly focused on the NGOs of concern to those who wrote the definitions. None are acceptable for a general study of NGOs.
Limiting non-governmental organizations to the virtuous
Outside the world of diplomacy, in wider public debate, NGOs are often portrayed as having high moral standing. If they are altruistic groups, concerned with the general public interest, they must be worthy of support. It comes as a shock to many that the US gun lobby, the National Rifle Association (NRA), is registered at the United Nations as an NGO. It also came as a shock to the other NGOs at the UN when the NRA joined them. Some reacted by saying: surely, the NRA is not a âtrueâ NGO. A similar pattern of thought has been evident among environmentalists. In the run-up to the 1992 Earth Summit in Rio de Janeiro, a group of 86 NGOs set up an International Facilitating Committee (IFC) composed of representatives of the âindependent sectorsâ to run a Global Forum and to lobby the diplomats. Other more radical NGOs formed an alternative Steering Committee. One of their major disagreements with the IFC was over inclusion of âbusiness and industryâ as an independent sector and rejection of collaboration with the Business Council for Sustainable Development. There remain very many NGO activists who see business as solely being concerned with profit-making. Hence, âtrueâ NGOs cannot collaborate with the private sector. A third challenge has arisen with the Unification Church, popularly known as the Moonies, which has had at least four front organizations working at the UN headquarters in New York.4 These groups have also been rejected by the NGO community. To some people, the gun lobby, business groups, or the Unification Church may be acceptable groups. To others, they are self-evidently not legitimate NGOs. Whatever oneâs point of view, each of these groups represents very large numbers of people and has gained recognition among the NGOs at the UN. The lesson from these events is that there is not any universal moral standard for recognition of a âtrueâ NGO.
The above point about controversy over specific groups can be generalized. It is not possible to regard all NGOs as sharing the same values and being able to adopt common policy positions. On some occasions, in some special situations, there may be high agreement among all the NGO representatives who are present at a particular meeting. However, such self-selecting sets of NGOs will not reflect the full diversity of the world of NGOs. Similarly, invocation of âthe peopleâ or public opinion with implied assumptions that everybody is united against some âbadâ policy of governments ignores the fact that no government, not even a dictatorship, can operate without support from some social groups. More extreme naive idealism, which is out of touch with reality, comes in the Cardoso Report, a UN report on its relations with NGOs, produced in June 2004. This asserts there is âa new phenomenonâ global public opinionâthat is shaping the political agenda and generating a cosmopolitan set of norms and citizen demands that transcend national boundaries.â The report even argued that âenhancing civil society relations can also keep the United Nations in tune with global public opinionâthe âsecond super-powerââand enhance its legitimacy.â5 Of course, public opinion is important and it is now a factor in global diplomacy. However, there is rarely a single homogeneous public opinion within individual countries and there is never any such thing at the global level. There are multiple strands to public opinion. Consequently, there are diverse strands of thought within the NGO community.
The possibility of NGO diversity is not just a hypothetical question. It exists on many global issues. The role of transnational corporations in globalization produces divisions between those who see TNCs as the engines of growth, those who see TNCs as creating poverty through their ruthless pursuit of profits, and those who think TNCs might be beneficial but only when they are regulated. The question of global population growth unites many womenâs groups, development organizations, environmentalists, medical professionals, and human rights activists in support of the provision of reproductive health services, in the face of bitter opposition to birth control from the Roman Catholic Church hierarchy, some radical feminists, and ultra-conservative social groups. There is a somewhat different political division over the related question of providing abortion services. Other issuesâsuch as the reconciliation of economic growth and environmental conservation; the balance between individual human rights, the rights of social groups and the general public interest; or the role of women in societyâalso produce divisions within civil society.
It may be possible to categorize NGOs in terms of a standard of moral acceptability, their standing with public opinion, their membership, the activities they pursue, or the issues they cover, but it is not possible to define what is or is not an NGO by any of these criteria. Each academic analyst and each political activist can have their own idea of what is a âgoodâ NGO, worthy of their support, but by that personâs own standards there will also be âbadâ NGOs. Nobody can support all NGOs, because so many of the NGOs actively oppose other NGOs. For the same reason, nobody can oppose all NGOs, because there must be some that are in accord with their own values. There is no such thing as a âtrueâ NGO, just as there is no such thing as a ...