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OFFICE OF THE UNITED NATIONS

HIGH COMMISSIONER FOR HUMAN RIGHTS

PROFESSIONAL TRAINING SERIES NO. 10

Handbook on National

Human Rights Plans of Action

UNITED NATIONS

New York and Geneva

29 August 2002

 Note

The designations employed and the presentation of the material in this Handbook do not

imply the expression of any opinion whatsoever on the part of the Secretariat of the

United Nations concerning the legal status of any country, territory, city or area, or of its

authorities, or concerning the delimitation of its frontiers or boundaries.

*

• *

Material contained in this Handbook may be freely quoted or reprinted, provided that

credit is given and a copy of the publication containing the reprinted material is sent to

the Office of the United Nations High Commissioner for Human Rights, United Nations,

1211 Geneva 10, Switzerland.

HR/P/PT/10

The World Conference on Human Rights

recommends that each State consider the desirability

of drawing up a national action plan identifying

steps whereby that State would improve the

promotion and protection of human rights.

Vienna Declaration and Programme of Action,

Part II, paragraph 71

 CONTENTS

1. Introduction

1.1 A changing environment...................................................................................... 1

1.2 Institutional strengthening ................................................................................... 1

1.3 The value of national action plans ....................................................................... 2

1.4 What does this Handbook seek to do? ................................................................. 3

1.5 Who is this Handbook for? .................................................................................. 4

1.6 The structure of the Handbook............................................................................. 5

Part I: The Concept of a National Action Plan and Early Experiences

2. Development of the concept of national human rights action plans

2.1 The 1993 World Conference on Human Rights .................................................. 7

2.2 What did the Conference say about national action plans? ................................. 7

2.3 Why were national action plans proposed? ......................................................... 8

2.4 Purposes and benefits of national plans ............................................................... 9

2.5 What has been done since Vienna?......................................................................11

2.6 National plans of action for human rights education ...........................................12

3. More about national human rights action plans – general principles

3.1 A process as well as an outcome..........................................................................13

3.2 Commitment to universal human rights standards...............................................14

3.3 Implementing international human rights obligations .........................................15

3.4 Interdependence and indivisibility of human rights.............................................18

3.5 Action orientation ................................................................................................18

3.6 A public document...............................................................................................19

3.7 Monitoring and evaluation...................................................................................19

3.8 A continuing process............................................................................................20

3.9 A national undertaking.........................................................................................20

3.10 The international dimension ................................................................................21

3.11 Potential difficulties .............................................................................................21

4. Eleven national action plans

4.1 Australia (1993) ...................................................................................................24

4.2 Malawi (1995)......................................................................................................26

4.3 Latvia (1995)........................................................................................................27

4.4 The Philippines (1996).........................................................................................28

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4.5 Brazil (1997) ........................................................................................................30

4.6 Ecuador (1998).....................................................................................................31

4.7 Indonesia (1998) ..................................................................................................32

4.8 Mexico (1998)......................................................................................................34

4.9 South Africa (1998) .............................................................................................35

4.10 Venezuela (1999) .................................................................................................37

4.11 Bolivia (1997) .....................................................................................................38

4.12 Common elements of finalized plans...................................................................39

Part II: Developing a National Action Plan

5. The preparatory phase of the plan

5.1 Five main stages...................................................................................................41

5.2 Who should initiate ..............................................................................................41

5.3 Who should be involved ......................................................................................42

5.4 The role of government and parliament...............................................................43

5.5 How the preparatory phase should be managed ..................................................44

5.6 National coordinating committee.........................................................................45

6. The role of national institutions and civil society

6.1 National human rights institutions .......................................................................51

6.2 Who constitutes civil society? .............................................................................51

6.3 Human rights NGOs ............................................................................................52

6.4 NGOs and community-based organizations dealing with

economic, social and cultural rights.........................................................53

6.5 Educators, representatives of academic institutions, research institutions

and human rights experts .........................................................................53

6.6 Representatives of the private business sector.....................................................54

6.7 Representatives of philanthropic and other private funding organizations .........54

6.8 The media.............................................................................................................54

6.9 The general public................................................................................................55

7. Consultative mechanisms

7.1 The importance of the process .............................................................................56

7.2 Committees ..........................................................................................................57

7.3 Public meetings and public hearings....................................................................58

7.4 Participation through comment or other contributions ........................................59

8. The development phase of the plan

8.1 Conceptualizing the national action plan.............................................................60

8.2 Preparation of a national human rights status report – a baseline study..............61

8.3 Identification of priorities ....................................................................................65

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8.4 Vulnerable groups................................................................................................66

8.5 Issues for special focus ........................................................................................66

8.6 Drafting the plan ..................................................................................................66

8.7 Linkage with other national planning activities...................................................68

8.8 Time frames .........................................................................................................69

8.9 Legal status ..........................................................................................................70

9. Content and structure of a plan

9.1 General issues ......................................................................................................72

9.2 Principles and objectives......................................................................................72

9.3 Scope of the plan..................................................................................................73

9.4 Format ..................................................................................................................74

9.5 Targets and benchmarks ......................................................................................74

9.6 Responsibility for implementation.......................................................................77

9.7 Suggestions for the plan’s content .......................................................................77

Part III: Implementation, Monitoring and Evaluation of a National Action

Plan

10. Implementation of the plan

10.1 Implementing mechanisms ..................................................................................86

10.2 Implementing partners .........................................................................................87

10.3 Launching the plan...............................................................................................88

10.4 Media and dissemination strategy........................................................................88

10.5 Use of the plan in human rights education...........................................................93

11. Monitoring

11.1 Monitoring and reporting techniques and mechanisms .......................................94

12. Evaluation and successor plans

12.1 Evaluation issues..................................................................................................98

12.2 Initiation of successor plans.................................................................................99

13. Resources

13.1 Funding issues and strategies...............................................................................100

13.2 Institutional partnerships......................................................................................103

13.3 International assistance ........................................................................................104

14. Regional and international partnerships

14.1 Sharing experience...............................................................................................106

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14.2 Regional and international workshops.................................................................107

14.3 The United Nations ..............................................................................................107

14.4 Technical cooperation and OHCHR ....................................................................107

LIST OF FIGURES

1. Benefits of national action plans.......................................................................... 3

2. The national human rights action plan process.................................................... 6

3. General principles ................................................................................................13

4. The preparatory phase..........................................................................................45

5. National coordinating committee – possible composition and mandate .............48

6. Civil society participation ....................................................................................52

7. Consultative mechanisms.....................................................................................57

8. The development phase........................................................................................58

9. The baseline study................................................................................................63

10. Linkages between national plans .........................................................................69

11. Suggestions for the structure of a national action plan ........................................75

12. National action plan media strategy.....................................................................90

vii

1. Introduction

1.1 A changing environment

Approaches to international work on human rights have evolved significantly over the

past decade. While the international community continues to speak out strongly in

denunciation of human rights violations, governments and civil society are aware that

the promotion and protection of human rights involve more than identifying alleged

wrongdoers and exhorting governments to improve their performance. Policy-makers

and advocates increasingly recognize that genuine improvements require resources

and long-term effort in the areas of education, institutional strengthening and

institution-building.

The desire to entrench human rights principles more effectively reflects the

strengthened environment of democracy, openness and accountability that

increasingly prevails in all regions of the world. It is recognized not only that these

principles are important for the well-being of individuals and communities but also

that they are an essential component of economic and social progress. There is a

growing conviction that the implementation of human rights principles will strengthen

social harmony and cohesion, advance the process of development and promote the

accountability and legitimacy of governments.

The popular movement that underpins these developments has been inspired by the

human rights principles and standards enshrined in instruments and resolutions

developed within the framework of the United Nations, particularly the Universal

Declaration of Human Rights and the International Covenants on Human Rights. It

has also been facilitated by the information technology revolution, which ensures that

human rights advocates and media organizations have effective means of drawing

worldwide public attention to human rights violations and issues. These themes have

converged with modern management and governance principles, which see the

achievement of long-term economic and other goals as dependent on openness,

democratic systems of government, accountability, an active civil society and the rule

of law.

1.2 Institutional strengthening

An institutional strengthening approach to human rights promotion and protection is

realistic and pragmatic. It acknowledges that improving human rights is a public

policy objective that can be implemented through the normal planning and resource

allocation processes of government. It integrates human rights objectives into the

general objectives of the State, particularly development, so that ultimately the nation

as a whole benefits and is strengthened.

Importantly, this approach recognizes that no country is perfect; all countries face

human rights challenges in moving towards the objective of “better standards of life in

larger freedom” set forth in the Charter of the United Nations. To meet these

challenges successfully, governments and peoples must work together to change

1

attitudes, to intensify human rights education programmes and to strengthen human

rights institutions.

The most prominent activities that governments and communities are considering in

this area probably include the establishment of national human rights institutions, the

development of national programmes of human rights education and the development

of national plans of action for the promotion and protection of human rights.1

1.3 The value of national action plans

National action plans require considerable planning and effort. The practical value of

a national plan will not necessarily be the same in all situations. A decision whether or

not to embark on such a plan needs to be taken in a serious and critical fashion in each

case, in the light of a realistic appraisal of national needs and circumstances. As

elaborated elsewhere in this Handbook, experience to date suggests that factors with a

likely bearing on a particular plan’s effectiveness include:

• The level of political support;

• Transparent and participatory planning;

• Comprehensiveness of the baseline human rights study underlying the plan;

• Realistic prioritization and action-oriented planning;

• Clear success criteria and strong participatory mechanisms for monitoring and

evaluation; and

• Adequate commitment of resources.

As shown in section 8.7, great care is required to ensure linkage with existing

overarching national development frameworks (such as the national development

plans of the United Nations Development Programme (UNDP) and the Poverty

Reduction Strategy Papers of the International Monetary Fund (IMF) or the World

Bank) and with policy planning processes in the areas of health, education, law

enforcement and so forth to ensure that human rights concerns are not unwittingly

quarantined in a separate “sector”.

Subject to these kinds of considerations, it would be reasonable to expect the

following outcomes from a national action plan:

• Ratification of additional international standards and more effective incorporation

of these standards in domestic law and practice, leading to an expansion of the

range of human rights protection for individuals;

• A stronger administration of justice, improved rule of law, strengthened

independence of the judiciary and improved practices on the part of security

authorities;

• Better awareness and implementation of economic, social and cultural rights,

leading to an improved quality of life, particularly for vulnerable groups;

• Improved linkage between human rights and development;

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The terminology used for national plans of action varies somewhat from country to country.

In this Handbook, we use the terms “national plans of action for the promotion and protection

of human rights”, “national plans of action”, “national plans” and “national action plans”

interchangeably. Some countries prefer the word “programme” to “plan”.

2

• Establishment or strengthening of national human rights institutions;

• More effective civil society institutions;

• Enhanced programmes for vulnerable groups;

• Greater understanding of human rights standards and their value to individuals and

the community; and

• Reduced risk of social tensions.

Figure 1 – Benefits of national action plans

A national action plan will

• Review a country’s human rights needs

• Raise awareness of human rights issues among government officials, security

authorities, civil society organizations and the general public

• Mobilize a broad spectrum of society in a cooperative atmosphere

• Propose realistic activities

• Set achievable targets

• Promote linkages with other national programmes, particularly in the areas of

development and education

• Generate commitment to action

The outcomes of a national action plan will include

• Stronger legal frameworks, embracing firmer adhesion to international norms,

more effective incorporation of human rights standards in domestic law, enhanced

independence of the judiciary and more effective rule of law

• Better protection for individuals

• A stronger culture of human rights

• Stronger national institutions for the promotion and protection of human rights

• More effective social programmes that enhance the quality of life for all,

particularly vulnerable groups

• Improved national harmony, reducing risks of internal conflict

1.4 What does this Handbook seek to do?

The Office of the United Nations High Commissioner for Human Rights (OHCHR)

has prepared this Handbook2 as a guide for those considering or working on national

plans of action for the promotion and protection of human rights. It provides

background information on the concept of national plans, on how the idea developed

and on the experience of some countries that have developed such plans. It also

discusses issues relevant to the development of national plans:

• The concept;

• Institutional aspects;

• Content and structure;

• Development, implementation and monitoring; and

2

The Office of the High Commissioner for Human Rights acknowledges and offers its thanks

to the principal author of the Handbook, Mr. Bill Barker of Human Rights International Pty

Ltd., Australia.

3

• International activity and experience.

These ideas are based on work that has taken place both in the development of

specific national plans by a number of countries and in international discussions of the

issue.

The Handbook is intended to be a reasonably self-contained introduction to the

process of developing national action plans. Any country embarking on such a process

will, of course, be working within its own legal and policy environment. But it is

hoped that the information about national action plans provided in the Handbook will

help them to gain from the experiences of others, to draw on international thinking on

the issue and to develop a plan that is comprehensive and effective. In this way, new

plans may be developed as current international best practice, rather than on an ad hoc

basis.

1.5 Who is this Handbook for?

OHCHR has prepared this Handbook to assist people and institutions working on, or

interested in, national human rights action plans. They include individuals and

organizations representing government, civil society, national human rights

institutions, the judiciary, the academic world and many other sectors as well as the

general community.

Government officials who find the Handbook useful will include not only those

working in justice or foreign affairs ministries but also officials working on issues

such as health, education, housing or social policy more generally. This applies also to

the civil society counterparts of government agencies. In addition, the Handbook

should be of interest to parliamentarians as a comprehensive overview of issues

relevant to legislative and public policy processes in the field of human rights.

The Handbook will be useful for officials and civil society representatives working in

three broad sectors:

• The primary audience will be those working on the development of new national

action plans. The Handbook will inform them of the principles and processes

involved and the experiences of other countries.

• The Handbook will also be useful to governments and civil society in countries

where national plans have already been developed. By providing additional

information on the concept and implementation of national action plans, the

Handbook may guide further implementation and continuous improvement.

• A third target group is governments and private institutions that wish to provide

funds for technical assistance programmes in the field of human rights. The

Handbook provides a comprehensive approach to human rights promotion and

protection. National action plans set up as result of the Handbook’s guidance will

contain numerous proposals for activities that could be supported by technical

cooperation programmes from donor governments or private foundations.

4

1.6 The structure of the Handbook

The Handbook begins with a description of the origins of the concept of national

action plans and their purpose and benefits and reviews progress on implementing the

concept in various countries and at international meetings. It then highlights some of

the general principles of national plans, outlines steps towards their implementation

and notes some of the obstacles that have been identified. It then provides an

overview of some of the national plans that have been developed to date.

Moving on from these introductory sections, the Handbook outlines the preparatory

phase of national planning, placing particular emphasis on the roles of the different

agencies and organizations that will be involved. It gives special attention to the role

of civil society. The Handbook next describes the development phase of the plan, in

which the details are worked out and drafted. The range of issues that have to be

addressed at this crucial stage are described.

The Handbook then moves on to the implementation phase, beginning with its launch

and giving particular attention to a media and dissemination strategy. It concludes

with sections on monitoring and evaluation, including the desirability of a successor

plan, on resources and on international activity.

5

Figure 2 – The national human rights action plan process

Preparatory Developmental Implementation Monitoring Review

phase phase phase phase phase

Consult within Frequent meetings of Launch plan Develop agreed Consider annual

government coordinating committee reporting formats reports

Conceptualize plan Regular meetings of

Consult with NGOs coordinating committee Semi-annual assessments Appoint review panel

and other interested Establish secretariat by coordinating

groups Establish sectoral working Work with implementing committee Reports to parliament

groups partners and general public

Appoint focal agency Input by civil society

Consult with NGOs and Action by implementing Recommendations for

Develop draft other interested groups agencies and partners Consultation and successor plan

principles Public meetings and public networking

hearings Consultation and

Government networking Feedback to

endorsement Prepare baseline study implementing agencies

Identify priorities, issues for Media and dissemination

Public announcement special focus, needs of strategy Reports to parliament

vulnerable groups and general public

Organize initial Human rights education

Establish links with other

meeting with interested

national planning activities

groups Legal status – endorsement

Draft plan by parliament

Establish coordinating Consider time frames

committee

Consider legal status

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 PART I: THE CONCEPT OF A NATIONAL ACTION PLAN

AND EARLY EXPERIENCES

2. Development of the concept of national human

rights action plans

2.1 The 1993 World Conference on Human Rights

The concept of national human rights action plans was developed as part of the World

Conference on Human Rights held in Vienna in 1993. This Conference was a major

event in the history of international activity to promote and protect human rights. It

was only the second world conference on human rights, the first having been held in

Teheran in 1968.

The Vienna Conference undertook a wide-ranging review of progress in the field of

human rights since the adoption of the Universal Declaration of Human Rights in

1948. It also sought to identify obstacles to further progress and ways in which they

might be overcome. The Conference and its preparatory process thus resulted in a

close examination of existing philosophies, concepts and mechanisms as well as many

proposals for new approaches to the promotion and protection of human rights.

The document adopted at the Conference, the Vienna Declaration and Programme of

Action3 (VDPA), was particularly important because of its comprehensiveness and

because it was agreed by all participating governments. It made many

recommendations and suggestions to governments and other actors in the international

community regarding actions that could be taken to advance the promotion and

protection of human rights. These recommendations were not binding but they have a

strong persuasive character owing to the significance of the occasion and the fact that

they were unanimously supported.

2.2 What did the Conference say about national action plans?

The Conference made two recommendations concerning national human rights action

plans. Part II, paragraph 71, reads:

The World Conference on Human Rights recommends that each State consider

the desirability of drawing up a national action plan identifying steps whereby

that State would improve the promotion and protection of human rights.

This paragraph is part of a section of the Declaration that addresses “Cooperation,

development and strengthening of human rights”. The section focuses on

strengthening national human rights institutions and infrastructures, including through

international cooperation and assistance. Paragraph 69 recommends:

3

United Nations document A/CONF.157/23. The VDPA is accessible from the home page of

the OHCHR web site (www.ohchr.org) through the “Index”.

7

 that a comprehensive programme be established within the United Nations in

order to help States in the task of building and strengthening adequate

national structures which have a direct impact on the overall observance of

human rights and the maintenance of the rule of law . . . That programme

should make available to States assistance for the implementation of plans of

action for the promotion and protection of human rights.

2.3 Why were national action plans proposed?

The concept of national human rights action plans was based on the view that lasting

improvements in human rights ultimately depend on the government and people of a

particular country deciding to take concrete action to bring about positive change.

External persuasion, and sometimes pressure, has its place in influencing governments

to take action, but improved human rights observance cannot simply be imposed from

outside.

To promote successful changes in human rights observance as an element of public

policy, many factors need to be taken into account. Social planning starts with

comprehensive needs analysis and includes wide-ranging and incremental programme

proposals, the allocation of resources and effective evaluation.

Genuine improvements in human rights observance require, among other things,

attitudinal change, education and training, a sound and independent legal and judicial

system and a commitment to the rule of law. They also require the resources and

political will to put in place policies and programmes that deliver basic services in

areas such as health, education, housing and social welfare, particularly to vulnerable

groups.

In proposing the concept of national action plans, the World Conference took the view

that a comprehensive structured approach to human rights planning would facilitate

the achievement of positive outcomes.

The national action plan concept implies that there are certain general principles that

will be applicable to many, if not all, countries. But it has always been central to the

national action plan approach that each country starts from its own political, cultural,

historical and legal circumstances. There is no single approach that can be applied to

all countries. Each has to develop proposals suited to its own situation. This is

embodied in the recommendation of the World Conference, which says what a

national action plan is, but leaves it up to States to decide what to do.4

The national action plan concept also recognizes that no country has a perfect human

rights record. The nature of human rights shortcomings will inevitably vary, but each

and every member of the international community must take substantive action if the

promise of the Charter of the United Nations to “promote social progress and better

4

Whether or not national action plans are used as a vehicle for the promotion and protection

of human rights, the Vienna Declaration made it clear that States have a duty to advance

human rights: While the significance of national and regional particularities . . . must be

borne in mind, it is the duty of States, regardless of their political, economic and cultural

systems, to promote and protect all human rights and fundamental freedoms (VDPA, Part I,

paragraph 5).

8

standards of life in larger freedom” is to be made a reality. The proponents of the

national action plan concept started from the premiss that all share in the challenge to

improve human rights observance. On that basis, they believed it should be possible

for governments and others to address problems that all face to some degree in a spirit

of goodwill and cooperation, just as in other fields such as economic development.

The basic idea endorsed by the World Conference was thus that a country would

recognize that it faced a challenge to improve its human rights observance. It would

start from its current situation, whatever that might be, and articulate a comprehensive

and pragmatic programme of activities aimed at progressively bringing about

improvements.

Many elements of such a programme cannot be put in place overnight. However, the

first step towards setting a useful process in motion is to encourage the will to bring

about change. The recommendations of the World Conference are one element in

providing this encouragement. Also important is wider support for the approach from

other members of the international community. This can come from the example set

by countries that have already begun national action planning, and from the adoption

of resolutions by the United Nations and other international and regional

organizations. It can also come from advocacy on the part of civil society and the

provision of technical cooperation, both through the Office of the United Nations

High Commissioner for Human Rights and bilaterally.

2.4 Purposes and benefits of national plans

The fundamental purpose of a national human rights action plan is to improve the

promotion and protection of human rights in a particular country. It does this by

placing human rights improvements in the context of public policy, so that

governments and communities can endorse human rights improvements as practical

goals, devise programmes to ensure the achievement of these goals, engage all

relevant sectors of government and society, and allocate sufficient resources.

The benefits of this approach as compared with less comprehensive or systematic

approaches include the following:

• A national action plan should stimulate a more comprehensive assessment of

needs in the country concerned and, by making plans explicit both to the

government itself and to the general public, can generate a commitment to

achievement that would not otherwise exist;

• National action plans are practical in orientation: they set achievable targets and

propose realistic activities aimed at reaching these objectives;

• National action plans can be a tool of sound public administration and governance,

leading to:

9 A stronger rule of law, enhancing management of the State and economic

performance as well as the rights of citizens;

9 Promotion of national cohesion by encouraging an environment of tolerance,

harmony and common purpose even where there is diversity;

9

9 Effective promotion of programmes in areas such as education, health, housing,

nutrition, social services and administration of justice, thereby enhancing the

quality of life for all;

9 Reduced risk of catastrophic unrest and conflict that can have long-lasting adverse

impacts on the State and its people;

• A national action plan necessarily mobilizes a wide range of people and

organizations in support of human rights activity. It therefore raises awareness and

positive interest both within government and in the wider community;

• A comprehensive and structured approach is more likely to ensure that the

concerns of specific or vulnerable groups, such as women, children, minorities

and indigenous peoples, are more effectively addressed;

• A national action plan can facilitate the mobilization of domestic and international

resources, including through United Nations and other programmes of technical

cooperation, for countries that need resources, training and expertise to achieve

their human rights goals;

• National action planning takes an essentially non-confrontational approach to the

consideration of human rights issues. By avoiding the recriminations that

sometimes make human rights work more difficult, it may be possible to keep all

relevant actors engaged in the task and cooperating more constructively.

More specific purposes are:

• To provide guidance to government officials, non-governmental organizations

(NGOs), professional groups, educators, advocates and other members of civil

society regarding the tasks that need to be accomplished to ensure that human

rights are effectively observed and to promote cooperation among these groups;

• To establish or strengthen national or issue-specific institutions dealing with

human rights;

• To promote the universal ratification of international human rights treaties,

facilitate the effective observance by governments of their obligations and

promote conformity of national legislation with international standards;

• To promote wider awareness of human rights standards and mechanisms,

including among those whose actions are particularly critical, such as police,

security forces, prison staff and politicians as well as government officials and

other workers in social fields;

• To promote and maintain a high level of awareness of the state of human rights

observance in the country;

• To develop programmes specifically directed towards alleviating the human rights

situations of vulnerable groups in society;

10

• To emphasize the role of human rights in national development.

2.5 What has been done since Vienna?

Australia was the first country to elaborate a national human rights action plan. This

plan, covering the five-year period 1994-1998, was submitted to the Commission on

Human Rights at its fiftieth session in early 1994. Since then plans have also been

finalized by the Governments of Bolivia, Brazil, Democratic Republic of the Congo,

Ecuador, Indonesia, Latvia, Malawi, Mexico, Norway, the Philippines, South Africa,

Sweden, Thailand and Venezuela.5 Other countries have initiated the process of

developing a national action plan. They include Cape Verde, Jordan, Mongolia and

Nepal.

The plans that have been developed so far vary considerably in scope and approach.

They are described in chapter 4 below.

Simultaneously with the work undertaken at the national level, the Office of the High

Commissioner for Human Rights and governments have also taken action in the

framework of the United Nations human rights programme. One of the first regional

workshops on human rights national plans was convened in Bangkok, Thailand, from

5 to 7 July 1999. An important part of the background documentation for that

workshop was a “Compendium of National Plans of Action” reproducing the text of

plans that had been drawn to the attention of OHCHR.6 The Bangkok Workshop

adopted an important set of conclusions on the subject, including a set of Possible

elements to facilitate the development of national action plans for the promotion and

protection of human rights.7 The “Possible elements” set out general directions and

purposes for national action plans and proposed steps for the development of a plan:

• Establishment of a national coordinating committee;

• Preparation of a baseline study of the state of human rights in the country

concerned;

• Selection of components of a national plan;

• Development of priorities and strategies;

• Drafting of the plan;

• Implementation of the plan;

• Monitoring and revision.

The conclusions of the Eighth Workshop on Regional Cooperation for the Promotion

and Protection of Human Rights in the Asia-Pacific Region, held in Beijing from

1 to 3 March 2000, reaffirmed the desirability of developing national human rights

plans of action and endorsed the dissemination of this Handbook.

5

These are national action plans that have come to the attention of OHCHR. There may be

others that have not yet been drawn to its attention.

6

Accessible from the OHCHR web site: www.ohchr.org/html/menu6/apw.htm.

7

Accessible from the OHCHR website: www.ohchr.org/html/menu6/bgkcncls.htm#annex.

11

2.6 National plans of action for human rights education

Within the framework of the United Nations Decade for Human Rights Education

(1995-2004), both the General Assembly and the Commission on Human Rights

called on States to develop comprehensive, effective and sustainable national plans of

action for human rights education.

To assist in this undertaking, OHCHR facilitated the development of Guidelines for

National Plans of Action for Human Rights Education8 in cooperation with the United

Nations Educational, Scientific and Cultural Organization (UNESCO), several

resource persons and practitioners. The Guidelines, published in 1997, include a set of

principles for effective human rights education and a step-by-step strategy to develop

national plans in this area.

The Guidelines stress that national human rights education plans should incorporate

networks, experiences and programmes already in place. National strategies should be

developed and implemented through a creative mixture of governmental and non-

governmental institutions and organizations. They can include several courses of

action such as the integration of human rights education into all levels of formal

education; relevant training of professionals or other groups (in particular vulnerable

groups); public awareness campaigns; the translation, production and revision of

materials; research and legislative reform. The Guidelines also stress the importance

of having monitoring and evaluation mechanisms included in the national plan.

A national plan of action for human rights education should clearly form an integral

part of a general national human rights action plan, as should other relevant national

action plans relating, for example, to women, children, minorities and indigenous

peoples. Many of the principles and strategies elaborated in the Guidelines for

National Plans of Action for Human Rights Education are equally relevant and

applicable to the preparation of general national human rights action plans.

3. More about national human rights action plans –

general principles

The idea of national action plans centres on encouraging change within each country

according to the country’s own circumstances. Thus, national action plans are

concerned with mobilizing the will to change and developing appropriate

mechanisms. It is important to recognize that the will to change may manifest itself in

various ways and that the situations in which important actors operate are often

complex. In responding to this complexity, it is easier for governments to implement

positive changes if they use mechanisms similar to those they employ in other areas of

administration. Achievement of national human rights action plan objectives will thus

coincide with achievement of linked national objectives such as social harmony and

economic development.

8

United Nations document A/52/469/Add.1 and Add.1/Corr.1. This document is accessible

from the home page of the OHCHR web site (http://www.ohchr.org) through “Human Rights

Education and Training”.

12

The process of development of national action plans and their content depend on the

specific circumstances prevailing in individual countries. However, there are some

general principles that apply to all national action plans, namely:

• The importance of the process;

• Commitment to universal human rights standards;

• Implementation of international obligations;

• Interdependence and indivisibility of human rights;

• Action orientation;

• Public participation;

• Monitoring and evaluation;

• A continuing process;

• A national undertaking;

• The international dimension.

Figure 3 – General principles

• Process and outcome are equally important

• There should be a broad and intensive consultation process with civil society and

the general public

• The plan should be a national undertaking, involving all elements of society

• The plan should be a public document

• The plan should incorporate a commitment to universal human rights standards

and set out how these standards will be effectively implemented

• The plan should be comprehensive in scope, reflecting the interdependence and

indivisibility of human rights

• The plan should be action-oriented

• Effective monitoring and review of implementation is essential

• The national action plan process should be continuous, with the conclusion of one

plan leading to the commencement of another

• National action plans have international dimensions

The following sections outline these principles, which are discussed in greater detail

later in the Handbook.

3.1 A process as well as an outcome

A national action plan is both an outcome and a process, each equally important.

The outcome is the plan itself and the activity that flows from it. The plan should be

developed as a substantial and comprehensive document and it should trigger activity

in a wide range of areas of public administration. At the same time, the manner in

which a national action plan is developed will influence its chances of success. Key

elements are the extent to which the plan enjoys high-level support and the breadth

and depth of the consultation process. Section 7.1 elaborates on this point.

Contemporary society all over the world increasingly demands a participatory and

transparent approach to public policy-making. A national action plan must provide a

central role for civil society. It should embrace the broadest range of participants from

13

all sectors of society – human rights NGOs and community organizations of all types,

as well as relevant individuals. This is all the more important in the area of human

rights, where individuals feel touched by developments and outcomes. An effective

consultation process during the development of the plan will encourage broader

understanding and acceptance of it. The consultation process is crucial for the

credibility and, ultimately, the effectiveness of the plan.

In addition to their concern with questions of principle, human rights NGOs and other

representatives of civil society are involved at grassroots level in the protection of

human rights and the identification of human rights problems. They also embody

powerful reserves of commitment and energy. They are thus often best placed to make

a substantive and constructive contribution to the national plan development process.

Consultation and coordination within government are also crucial. The involvement of

a wide range of government agencies in developing and implementing the plan will

reinforce the notion that human rights are not just a matter for justice or foreign affairs

ministries, but are the responsibility of government as a whole. Commitment by

public officials to the plan is vital to ensure that a plan’s substantial human and

financial resource requirements are met.

Visible support from the top echelons of government will help mobilize bureaucratic

action more effectively, give a much higher public profile to the plan and ensure that

the process is sustainable. Multi-party political support is also very important. A

national human rights action plan should be based on lasting universal standards that

are shared by all sectors of society. It is part of a long-term process of enhancing

national observance of universal standards that should survive changes of government

and be above political dispute.

3.2 Commitment to universal human rights standards

A credible national action plan must be built on a commitment to universal human

rights standards. An important element of any national action plan should be a

commitment to the Universal Declaration of Human Rights. Embracing both civil and

political rights and economic, social and cultural rights, it constitutes the foundation

of the international human rights system. In United Nations resolutions dealing with

human rights, the nations of the world have time and time again unanimously

reaffirmed the Universal Declaration.

The 171 nations attending the 1993 World Conference on Human Rights reaffirmed in

the Vienna Declaration and Programme of Action “their commitment to the purposes

and principles contained in the Charter of the United Nations and the Universal

Declaration”. They emphasized the Universal Declaration’s description of itself as “a

common standard of achievement for all peoples and all nations”. They reaffirmed

“the solemn commitment of all States to fulfil their obligations to promote universal

respect for, and observance and protection of, all human rights and fundamental

freedoms for all”. The Conference further stated that “the universal nature of these

14

rights and freedoms is beyond question”.9 To mark the fiftieth anniversary of the

Universal Declaration in 1998, the States Members of the United Nations reaffirmed

the centrality of the Declaration in resolutions of the General Assembly and the

Commission on Human Rights10 as well as in numerous other commemorative

activities.

These resolutions also stressed “the necessity for further national efforts as well as

enhanced international cooperation, with a view to fully realizing all human rights and

fundamental freedoms” (emphasis added).

The status of the Universal Declaration makes it highly desirable that any national

human rights action plan should start with an endorsement of the universality and

relevance of the Declaration as the basis for the plan’s content. As the national action

plan is designed to be a practical instrument, the speed with which countries realize

their international human rights obligations will vary, particularly in relation to the

resources available. But the content of the plan must, as a minimum, conform to the

standards set out in international human rights instruments. Otherwise, it will lack

credibility among its stakeholders and in the international community.

3.3 Implementing international human rights obligations

Following the adoption of the Universal Declaration of Human Rights, the United

Nations drafted two treaties that elaborated on the provisions of the Universal

Declaration in a way that made them legally binding on countries that agreed to ratify

them. The two treaties were the International Covenant on Civil and Political Rights

(ICCPR) and the International Covenant on Economic, Social and Cultural Rights

(ICESCR). Together with the Universal Declaration, they constitute the International

Bill of Human Rights.

Subsequent instruments also elaborated on the basic expression of rights in the

Universal Declaration, specifying how these rights apply to specific groups of people

such as women, children and migrant workers or to certain problems such as torture

and racial discrimination. All countries have become party to at least one of those

treaties and most countries have ratified or acceded to several. For countries that have

accepted them, human rights treaties such as covenants and conventions create

obligations on governments under international law to observe their provisions. While

not binding in the same way as treaties, human rights declarations set out principles

that countries should observe, particularly if they are a party to a related human rights

treaty.

The ratification of international standards such as the two Covenants is, of course,

only one element in the effort to ensure the widest possible enjoyment of human

rights. To be truly effective, ratification of an international human rights instrument

may need to be accompanied or followed by legislative action to give it effect in

9

Vienna Declaration and Programme of Action, preambular paragraphs 3 and 8 and

paragraph 1(I).

10

General Assembly resolution 53/168 of 10 December 1998 and Commission on Human

Rights resolution 1997/35 (the text of all General Assembly and Commission resolutions are

accessible on the OHCHR web site, through “Documents” on the home page).

15

domestic law (where this is necessary in the legal system of the country concerned).

In many cases, international human rights standards have been incorporated in

national constitutions. Policy and administrative steps to give effect to the legislation

are needed to back up ratification. In this process of giving practical effect to

international obligations, a national action plan must review the range of a country’s

human rights commitments and propose steps to ensure that they are effectively

observed at the domestic level. This is addressed in sections 9.7.1 and 9.7.3.

In addition to their substantive provisions, international human rights instruments

require States parties to take measures to give effect to relevant rights. Comprehensive

and effective national action plans can assist States in meeting these obligations. This

is particularly relevant to States parties to the International Covenant on Economic,

Social and Cultural Rights, who are under an obligation to achieve progressively, by

all appropriate means, the full realization of the rights recognized in the Covenant.

The provisions of declarations should also be worked into national action plans as a

means of promoting the widest possible observance of human rights.

The scope of international human rights instruments is wide. It is important to note

that most countries have ratified most instruments. In addition to the International Bill

of Human Rights, the other major human rights treaties and declarations11 include:

• Convention on the Prevention and Punishment of the Crime of Genocide;

• International Convention on the Elimination of All Forms of Racial Discrimination

(ICERD);

• Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or

Punishment (CAT);

• Convention on the Elimination of All Forms of Discrimination against Women

(CEDAW);

• Convention on the Rights of the Child (CRC);

• Convention on the Protection of the Rights of All Migrant Workers and Members

of Their Families;

• Declaration on the Right to Development;

• Declaration on the Rights of Persons Belonging to National or Ethnic, Religious

and Linguistic Minorities;

• Declaration on the Elimination of All Forms of Intolerance and of Discrimination

Based on Religion or Belief;

• Declaration on the Elimination of Violence against Women;

• Declaration on the Right and Responsibility of Individuals, Groups and Organs of

Society to Promote and Protect Universally Recognized Human Rights and

Fundamental Freedoms;

• Statute of the International Criminal Court.

11

The texts of these and many other United Nations human rights instruments may be found

on the OHCHR web site (www.ohchr.org/html/intinst.htm).

16

Numerous International Labour Organization (ILO) conventions are also relevant,

particularly the following:

• Forced Labour Convention, 1930 (No. 29);

• Freedom of Association and Protection of the Right to Organize Convention, 1948

(No. 87);

• Right to Organize and Collective Bargaining Convention, 1949 (No. 98);

• Equal Remuneration Convention, 1951 (No. 100);

• Abolition of Forced Labour Convention, 1975 (No. 105);

• Discrimination (Employment and Occupation) Convention, 1958 (No. 111);

• Minimum Age Convention, 1973 (No. 138);

• Occupational Health and Safety Convention, 1981 (No. 155);

• Indigenous and Tribal Peoples in Independent Countries Convention, 1989 (No.

169).

The following table shows the number of ratifications12 for a selection of instruments:

International Covenant on Civil and Political Rights 148

International Covenant on Economic, Social and Cultural

Rights 145

International Convention on the Elimination of All Forms of

Racial Discrimination 162

Convention on the Rights of the Child 191

Convention on the Elimination of All Forms of

Discrimination against Women 170

Convention against Torture and Other Inhuman or Degrading

Treatment or Punishment 130

Convention on the Protection of the Rights of All Migrant

Workers and Members of Their Families 19

Statute of the International Criminal Court 78

ILO Convention No. 87

Freedom of Association and Protection of the Right to

Organize 141

ILO Convention No. 111

Discrimination (Employment and Occupation) 156

The high number of ratifications is further evidence of the universality of human

rights and of the willingness of States to take specific action to guarantee the

observance of human rights within their jurisdictions.

12

Status of ratification as of 24 August 2002. This reference is accessible from the home page

of the OHCHR web site through “Status of ratification”: http://www.ohchr.org/pdf/report.pdf.

The “Status of ratification” of ILO conventions can be found on

http://ilolex.ilo.ch:1567/english/docs/convdisp.htm.

The status of ratification of the Statute of the International Criminal Court can be found at:

http://untreaty.un.org/ENGLISH/bible/englishinternetbible/partI/chapterXVIII/treaty10.asp.

17

3.4 Interdependence and indivisibility of human rights

A national action plan should adopt a comprehensive approach to human rights,

giving equal attention to all categories of rights. These embrace economic, social and

cultural rights and the right to development as well as civil and political rights. The

plan’s comprehensiveness should be demonstrated by its application to all persons

within a national jurisdiction, particular attention being given to the rights of women,

children and other vulnerable groups. This comprehensive scope flows from the

universality and indivisibility of human rights and the equality of all human beings.

Indivisibility is a practical rather than a theoretical issue. For example, persons who

are homeless or badly housed suffer a violation of their right to housing. However, the

absence of adequate housing is also likely to cause poor health, to interfere with

family life and education, to hinder employment opportunities and to undermine civil

and political rights. This may lead to discrimination and social exclusion, and to

problems with the justice system.

Such an analysis can be applied to most areas of rights. Clearly, it is important for

very practical reasons of individual well-being, broad social cohesion and national

development to take a comprehensive approach to human rights improvements,

seeking progress in all areas.

While a national action plan should be based on a comprehensive approach to human

rights, there are a variety of ways in which such an approach can be reflected in the

plan. This issue is discussed in greater detail in section 9.7.2.

3.5 Action orientation

A national action plan should, of course, be action-oriented. Just as the ratification of

international treaties must be followed by steps that give effect to the principles they

contain, so the drafting of a national action plan must also facilitate its

implementation. Rather than setting forth claims and vague promises, a national

action plan should:

• Indicate clearly what the current situation is;

• Identify what problems need to be overcome;

• Specify what action will be taken (in terms that provide benchmarks for the

evaluation of progress);

• Specify who is to take the action;

• Establish a firm time frame in which action will be taken; and

• Provide for effective monitoring and evaluation of what has been done.

Many of those involved in implementing the plan will probably be from organizations

other than those with primary responsibility for its management. It is important to

ensure that all those implementing the plan fully accept the need for concrete

outcomes. This underscores the need for an inclusive approach to development of the

plan.

18

With this action-oriented approach in mind, it would probably be useful to make a

distinction between objectives that are achievable within a limited time frame and

others that may be desirable in the long term or have inspirational value. The

objectives achievable in the short term could then be described in terms of the five

considerations set out above so that both those responsible for implementing the plan

and those affected by specific measures have a clear idea of what the target is and

how achievement can be measured.

How to produce meaningful action is, of course, the central purpose of this Handbook

on national action plans. Chapters 5 to 12 provide detailed guidance.

3.6 A public document

Dissemination

A national action plan is a public document that must be widely disseminated and

easily obtainable. The plan should be launched and reviewed with high-level political

involvement so as to ensure media coverage. Alongside the plan itself, there should be

a media strategy to ensure that the widest possible spectrum of the public is involved

in the development and implementation of the plan and is aware of its importance. For

this aspect of the plan to be implemented successfully, appropriate resources should

be made available as an integral part of the plan.

Education

Implicit in the concept of a national action plan is the central place of education about

human rights. National action plans can educate citizens as well as public officials

about the human rights situation in their own country. Organizations or individuals

responsible for discrete aspects of the plan should be made aware of the plan’s

requirements and given the necessary training or resources to enable them to meet the

outcomes specified.

Translation and special needs

Where significant minority language groups exist, translation should be undertaken.

Similarly, attention should be given to ensuring that citizens with special

communication needs are taken into account, for example people with disabilities or

poor literacy skills.

Section 10.4 expands on how the document can be effectively disseminated, while

section 10.5 deals with human rights education.

3.7 Monitoring and evaluation

Any serious planning process must be organized in a systematic way. We have

already indicated that the process should include an assessment of the current

situation and clear objectives and performance indicators. This is, however, only part

of what is needed. Just as with technical planning processes, national human rights

19

action plans should also incorporate mechanisms for the monitoring of progress and

for evaluation of the plan's achievements. Human rights issues are ultimately just as

important as other areas of public administration. Every effort should thus be made to

avoid a situation in which human rights objectives are launched with great fanfare but

are then left to wither because of lack of follow-through.

There will be a variety of possible monitoring mechanisms but, whatever mechanism

is chosen, it should have high-level support and weight within government so that

government agencies respond to its recommendations and proposals. Ideally, a

government minister should lead the monitoring process. Monitoring should involve

all relevant layers of government in order to ensure that appropriate responsibility is

taken for ensuring the plan’s implementation. Civil society – genuine representatives

of stakeholders – should be welcomed into the monitoring process to encourage

greater transparency and objectivity in evaluation.

The monitoring mechanisms should meet at reasonable intervals during the life of the

plan. The reviews should honestly identify shortcomings and obstacles and propose

remedies to ensure that objectives are met. Towards the end of the life of the plan, it is

desirable for an independent evaluation to be carried out. The plan’s achievements can

then be assessed and recommendations made for subsequent plans.

Monitoring and evaluation are dealt with in detail in chapters 11 and 12.

3.8 A continuing process

Promoting and protecting human rights is a continuing process. There is no country

that can seriously expect to resolve all its human rights problems within a relatively

short time frame. This means that a national human rights action plan should be

viewed as part of a long-term process. As one plan draws to an end, another should be

developed to take its place, just as with economic plans. Happily, this seems to be

developing as the practice of States that are working on national plans. Some of the

first States to have drawn up a national plan are now developing a successor plan.

The monitoring and review process can thus feed into the planning of the next

national action plan by identifying to what extent problems have been overcome and

by focusing attention on areas where further action needs to be taken. Subsequent

plans will also take into account emerging human rights issues and new international

standards. The process of renewing the national action plan will itself reinvigorate the

commitment of all stakeholders to the promotion of human rights and enhance the

dissemination of information about human rights.

3.9 A national undertaking

A national action plan should be regarded as a truly national undertaking involving

all elements of society. To make a real difference, it needs to be “owned” by the entire

population. This is another way of looking at the elements of seriousness of purpose,

inclusiveness, action orientation and publicity. It underscores that a national human

rights action plan is a mechanism for the effective pursuit of national goals.

20

Government, in seeking to achieve its objectives, must bring stakeholders into a

meaningful partnership.

This does not mean that governments should stand back from the process. Indeed,

they will need to take an active stance by promoting the national action plan at all

stages and ensuring that it remains a living document. Through such a broad-based

effort, better results may be expected in terms of enhanced public awareness and

strengthened institutions.

3.10 The international dimension

It is important for countries that have established national action plans to be involved

on the international stage as well. By developing and implementing a national action

plan, a country is making an unambiguous statement not only to its own people but

also to the outside world about its human rights agenda. By having a clear programme

that reflects internationally agreed guidelines and accords with international best

practice, countries are in a better position to seek technical and other assistance in

overcoming human rights problems, especially in areas where domestic expertise or

resources are limited. Countries that have already established a national action plan

are also in a position to provide guidance, if requested, to others that are in the process

of developing a plan. This may be done through seminars and technical assistance. In

addition, information that is publicly available through international networks will

encourage those considering or working on the development of a plan. Through such

international activity, the promotion and protection of human rights will be seen as a

truly common endeavour aimed at ensuring the observance of universal principles.

International issues are further addressed in chapter 13.

3.11 Potential difficulties

Pursuing a national action plan approach to improving human rights observance has

many advantages. However, it would be misleading to suggest that there are no

obstacles, difficulties or potential criticisms of the process. The Handbook addresses

many of these issues in passing, but it is appropriate to consider them as a specific

issue that deserves attention.

Some of the potential difficulties are conceptual, some are political and some are

practical.

One concern is that because of the great differences between States – in terms of

culture, political systems and economics – it is inappropriate to develop guidelines

intended to apply to all of them. However, human rights have progressively been

accepted as an issue demanding international cooperation and the development of

international guidelines for action is consistent with practice in many other areas. A

national action plan may be viewed as a voluntary mechanism for implementing more

effectively principles to which a country has already given a commitment. In this

sense, the development and implementation of a national action plan may be viewed

as a means of strengthening a nation’s individual capacities.

21

Another conceptual issue is the view of some governments that they already have a

good human rights record and it is therefore unnecessary for them to spend time and

effort developing a national action plan. This overlooks the fact that all countries face

human rights shortcomings of one kind or another. Even those that have relatively

good records often face difficulties in the areas of discrimination and economic, social

and cultural rights.

A possible political difficulty is the perception that a national action plan might

provide a basis for political attacks on existing governments or institutions. There are

two broad points that may be made in response to this.

• One is that the objectives of a national action plan are consistent with many of the

central objectives of any government. These include increasing the standard of

living and quality of life of a country’s citizens and promotion of national

cohesion. They also include strengthening of legal systems so as to enable a

country’s administration and institutions to function more effectively, promotion of

greater trust between government and citizens and enhancing a country’s

international reputation. If developed properly, the plan should thus strengthen the

institutions of the State and enjoy broad support.

• The other point is that the national action plan process should be carried out in an

inclusive manner. While the content of the plan may well be the subject of lively

discussion, the aim should be to involve all sectors of the community and all

political forces in its development so that it is seen as a common endeavour around

which all are united. Realistically, of course, there will be difficulties from time to

time. The aim should be to work through these pragmatically bearing in mind the

great value of the overall plan objectives.

The following are some of the practical problems experienced in countries where a

national plan has already been adopted:

• Possible duplication by a baseline study of existing human rights needs

assessments;

• Lack of clear prioritization of objectives, particularly in view of limited

availability of resources;

• Overly ambitious and ultimately unrealistic objectives;

• Preparatory processes too elaborate and requiring too many financial and

human resources;

• Failure to take into account existing initiatives, particularly by civil society

organizations;

• Lack of agreement on implementing and monitoring responsibilities;

• Unmet expectations in establishing a follow-up secretariat responsible for

monitoring implementation;

• Insufficient coordination and ownership among relevant actors and an

ineffective division of labour among them;

• Emphasis on relatively cost-intensive proposals in an unsuccessful effort to

attract major donor funding.

22

There are many other practical challenges facing the development and implementation

of a national action plan. In later chapters, this Handbook discusses and offers

suggestions on the mobilization of resources, the identification of implementing

partners, raising public awareness, monitoring and so on. If a country focuses on

appropriately practical measures, these problems need not stand in the way of

proceeding with a plan. An important resource for countries embarking on the process

and considering how to overcome some of the practical problems is the experience of

others. There is a willingness in the international community to provide both expertise

and resources to help those working on national plans. As well as providing general

guidance and resources, this assistance helps countries to avoid or address some of the

practical challenges they may be concerned about.

23

4. Eleven national action plans

At the time this Handbook was finalized, the following fifteen13 Member States had

prepared national action plans:14

• Australia (1993)

• Malawi (1995)

• Latvia (1995)

• Philippines (1996)

• Brazil (1997)

• Ecuador (1998)

• Indonesia (1998)

• Mexico (1998)

• South Africa (1998)

• Venezuela (1999)

• Bolivia (1999)

• Norway (1999)

• Democratic Republic of the Congo (2000)

• Thailand (2001)

• Sweden (2002)

Eleven of the 15 plans and the processes leading to their adoption are discussed in

detail in this chapter. Although they vary significantly in length, format and scope,

they share many common features. The following outline summarizes these eleven

plans and is followed by a section on their common elements.

4.1 Australia (1993)

The Australian “National Action Plan” is contained in a 127-page book. This was the

first national action plan and its preparation reflected Australia’s leading role in

promoting the concept at the Vienna World Conference on Human Rights. While the

plan itself does not indicate how it was prepared, it was developed in late 1993 by an

interdepartmental committee of government officials, led by the Department of

Foreign Affairs and Trade and the Attorney-General’s Department. There was some

consultation with the NGO community. The plan was made publicly available,

although there was no media campaign associated with its launch.

The Australian plan was drafted within a tight time frame of several months so that it

could be presented to the Commission on Human Rights at its fiftieth session in 1994.

The document contains a foreword by the Acting Prime Minister of Australia, who

described the plan as a “clear statement of Australia’s commitment to the protection

and implementation of human rights at a national level”. He said “the document

identifies the challenges ahead and possible future action to be taken by the Australian

Government”. While the plan document does not explicitly refer to its time frame,

13

There may be other plans that have not come to the attention of OHCHR.

14

The full texts of most of these plans may be found on the OHCHR web site at

www.ohchr.org/html/menu2/plan_action.htm.

24

other Australian Government statements indicated that it was intended to cover the

five-year period from 1994 to 1998.

The plan begins with a preamble, which is useful as a guide to the Australian system

of government for non-Australian readers. The plan is comprehensive in its scope and

gives particular attention to economic, social and cultural rights and the rights of

vulnerable groups. It also addresses how Australia can strengthen its adherence to

international norms, better incorporate international standards into domestic law,

strengthen its human rights institutions, promote human rights education and

strengthen its international relationships in the field of human rights.

The plan is structured around suggestions as to how the plan could promote

improvements in the observance of human rights in Australia. To provide an

indication of this approach, the following is a selection of section headings:

(a) Indicate the United Nations or regional human rights instruments Australia

intends to ratify and outline concrete steps by which this objective is to be achieved

…

(e) Develop targets for Australia in the area of economic, social and cultural rights

and indicate progress towards their achievement, for example, by:

…

(ii) the right to health

…

(vii) the right to an adequate standard of living with particular reference to

housing

…

(i) Define a programme of human rights information and education, including in

school curricula and the workplace, for Australia

Each section contains three sub-sections:

• Features of Current Policy, which contains a description of action undertaken so

far in the relevant area;

• Challenges Ahead, which provides some assessment of the shortcomings in the

present situation; and

• Proposed National Action, which identifies action Australia will or could take to

address the challenges and thereby improve the observance of human rights.

The Australian plan made no provision for a monitoring or review process. The

Australian Government did, however, submit two reports to the Commission on

Human Rights covering progress towards achieving the plan’s goals. During the

period of the first plan, Australian officials foreshadowed the preparation of a further

plan, with the implication that the original plan would then be reviewed. The

Australian Government subsequently announced, on Human Rights Day, 10

December 1998, that a new plan would be prepared. At the time of drafting this

Handbook, work continues on this project.

25

4.2 Malawi (1995)

The Malawian “1995 - 1996 National Plan of Action in the Field of Human Rights” is

set out in a four-page document, with an introduction drafted in the form of a

resolution. It begins with a preamble asserting Malawi’s “commitment to building a

State based upon democracy, human rights and fundamental freedoms protected under

the rule of law”, a reflection of the fact that Malawi held its first democratic,

multiparty elections ever in 1994. The preamble also emphasizes the importance of

international assistance and cooperation and refers to the recommendation on national

action plans in the Vienna Declaration and Programme of Action.

The plan was drafted and adopted by the Inter-ministerial Committee for Human

Rights and Democracy. The Committee was chaired by a high official from the Office

of the President and Cabinet and comprised the Permanent Secretaries of all the

ministries most directly concerned with human rights as well as representatives of

Parliament, the judiciary and the police. The plan was subsequently adopted by the

Cabinet and publicized in the national media.

The Malawian plan is structured around five sections:

A. The Creation of an Effective Legal Framework for the Promotion and

Protection of Human Rights;

B. The Strengthening of Implementation Mechanisms;

C. Public Information and Training Campaigns;

D. The Strengthening of National Monitoring Capacity;

E. Implementation of the National Plan of Action.

In section A, the plan notes that international human rights treaties to which Malawi is

a State party have been incorporated in domestic legislation through the Constitution.

In the plan, the Government undertook to facilitate wide awareness of these

provisions and to consider ratification of instruments to which Malawi was not a

party. The Government also undertook to review domestic law and practice to ensure

conformity with international standards.

Section B contains an undertaking to ensure that provisions of applicable human

rights treaties are reflected in policy formulation. The Government undertook to

establish human rights focal points in relevant departments and agencies, which

would have responsibility, inter alia, for preparing reports required by the treaties.

This would be done in consultation with concerned NGOs. Steps would be taken to

reform and strengthen the administration of justice in Malawi.

In the Section on “Public Information and Training Campaigns”, the Government

undertook to disseminate widely the texts of treaties and to develop special materials

for the general public. It also indicated it would take steps to develop relevant school

and tertiary courses. The plan envisaged the involvement of NGOs in this process.

In section D, on “Strengthening National Monitoring Capacity”, the Government

committed itself to ensuring effective and independent monitoring of human rights

treaties and stated that it would seek assistance for the establishment of an office of

26

ombudsman and a human rights commission. This section also strongly encouraged

international assistance and cooperation aimed at strengthening Malawian NGOs.

The plan addresses the issue of implementation in section E, in which it envisages

seeking international assistance for establishing a secretariat for the Inter-ministerial

Committee on Human Rights and Democracy that would facilitate achievement of the

goals of the plan. This process would also identify obstacles and difficulties, which

would form the basis of a successor plan of action. A national workshop involving

representatives of the relevant ministries and all branches of government as well as

NGOs, the media and the donor community was convened in 1996 to review the

progress achieved under the plan. As might be expected for a relatively short plan

with a limited number of priority goals, many of the objectives were achieved,

although not within the two-year time frame. At the time of writing, the Government

was considering adopting a second plan of action.

4.3 Latvia (1995)

The “National Programme for the Protection and Promotion of Human Rights in

Latvia” is contained in a 30-page document. As in the case of the Malawi national

plan of action, the preparation of the Latvian plan owed much to international

technical advice, particularly through an international mission that visited Latvia in

July 1994. The programme document itself does not specify how the programme was

developed, but the international mission met with a broad range of government

representatives, political figures, civil servants, NGOs and others. Two forums with

NGOs were held before the plan was adopted by the Government.

The programme does not attempt a systematic analysis of the situation of human

rights in Latvia, but it does outline factors that make such a plan necessary, such as

the perception that the term “human rights” had lost meaning over the years.

Another feature of the programme is the importance it ascribes to the establishment of

an independent institution for the protection of human rights that would provide

information to the general public, prepare reports on human rights issues and review

individual complaints. The concluding section describes this institution, the Human

Rights Council of Latvia, as the centrepiece of the programme and sets out in detail

the factors that make it necessary, its terms of reference and powers. The conclusions

also outline a national programme of human rights education that should be one of the

first priorities of the Council.

The programme document has five substantive sections:

1. Education, training and information

This area of the programme outlines the need for the introduction of human rights

elements into the formal curriculum, teacher training, training for personnel in the

legal system and information for the general public, including information on Latvia’s

international human rights obligations.

27

2. Issues relating to the protection of the rights of vulnerable groups

This section describes needs and measures relating to children, religious

organizations, non-citizens, prisoners, refugees and people with physical, intellectual

or psychiatric disabilities. The programme notes that the issue of non-citizens is

controversial and that it is important to introduce legislation as soon as possible and to

conduct a widespread information campaign about the status and rights of non-

citizens.

3. The existing national framework

This section surveys relevant institutions of the State and draws attention to areas

where steps need to be taken. For example, the programme notes that it is important to

ensure that Members of Parliament have access to advice on Latvia’s international

human rights obligations, that members of the public know about mechanisms for

redress of problems and that an environment is developed in which NGOs can operate

effectively.

4. The media

This section briefly refers to the importance of free and independent media and to

training needs.

5. The international framework (Latvia’s international treaty obligations)

This section notes that Latvia has international obligations under instruments of the

United Nations, the OSCE and the Council of Europe.

Although the programme does not refer to monitoring or implementation mechanisms,

Latvia considers that most of its objectives have been met. There is now greater public

awareness of human rights, with an active NGO community. An independent national

institution has been established, human rights training programmes have been put in

place for relevant sectors, domestic legislation has been adopted and international

treaties have been ratified.

The programme does not establish a time frame for its implementation but it is

recognized that the existing document should be revised or updated to include new

objectives and strategies.

4.4 The Philippines (1996)

The “Philippines Human Rights Plan 1996 - 2000” is contained in several documents,

with a 20-page summary. A feature of the plan was the central role given to the

Philippines Commission on Human Rights (PCHR) in coordinating its

implementation. Another feature was the extensive consultation between the

Government and NGOs prior to its adoption.

In response to the recommendation of the Vienna World Conference, the PCHR

initiated action on its own account in 1994 to propose a national plan. This was

28

subsumed in a Presidential Memorandum issued in early 1995 that established a task

force comprising representatives of the Government and NGOs to prepare the plan.

The task force worked to a set of guiding principles that asserted the universality of

human rights, the need to focus on vulnerable groups and the importance of broad

community support. In developing the plan, it focused on 13 groups (later expanded to

16) that had been officially recognized by the Government as vulnerable and needing

special consideration. A structured process of consultation and review was put in

place involving the preparation of a range of proposals and regional action plans. The

process included meetings and consultations in many areas of the country, which

contributed to a national process that also involved public meetings and consultations.

Another feature of the Philippines plan was the attention given from the start to

budgetary issues. The task force established a special committee to review financing

requirements for proposed activities under the plan and to identify sources of funds.

All this activity fed into the broad-based presidential task force that produced the

plan. The draft plan was submitted to the President in September 1995 and, after some

further revision, was adopted in June 1996. It set itself a five-year time frame, for the

period 1996-2000. This was later extended to 2002.

The vulnerable groups identified in the plan are women, children, youth, indigenous

cultural communities, Muslims, the elderly, persons with disabilities, the mentally

disabled, prisoners and detainees, migrant workers, public-sector labour, private-

sector labour, informal labour, the urban poor and rural workers. A uniform

presentation was adopted for each sector. The summary of the plan does not set out a

systematic analysis of the situation in each sector but summarizes the major problems

faced. The plan contains a brief discussion of the rights of each sector as well as a

summary of current programmes of the Government and NGOs. The plan then

proposes measures for legislative, administrative and other actions to address the

issues affecting the human rights of people in each sector.

Looking at the issue of women as an example of the plan’s approach, the issues

identified include:

• Discriminatory legislation;

• Violence against women; and

• Failure to recognize women’s rights, for instance in relation to health, reproductive

rights, stereotyping, sexism and limited educational and employment opportunities.

The legislative measures proposed include:

• Repeal of discriminatory laws;

• Amendment of legislation that is not responsive to the needs of victims of violence

against women, redefinition of concepts of trafficking in persons, rape and

domestic violence;

• Legislation to eliminate discrimination.

29

Administrative measures include:

• Encouraging measures to promote the participation of women in politics and

governance;

• Organization of support groups and projects to assist victims of violence against

women;

• Action on sexual harassment;

• Arrangements to protect migrant workers;

• Incorporation of the gender perspective at all levels of education and in the health

system.

The plan also provides for actions in other areas that would help alleviate the

problems identified.

The implementation mechanisms for the plan include the creation of inter-agency

“Sectoral Working Groups” that would operate in conjunction with the PCHR to

oversee relevant activities. Another important feature of the Philippines plan is the

importance attached to the monitoring and review process, under the oversight of the

PCHR. This continuing review of the plan has involved a frank assessment of

progress and obstacles and has contributed to the plan’s overall effectiveness.

The plan does not give separate attention to human rights education. However, the

Philippines already has a wide-ranging programme in this area, which has won the

PCHR a UNESCO prize for human rights education. In addition, the President of the

Philippines declared 1998-2007 a Human Rights Education Decade. Within this

framework, the PCHR has put in place an ambitious programme of education and

inter-agency cooperation.

4.5 Brazil (1997)

The Brazilian “National Action Plan for Human Rights” is set out in a 17-page

document. The plan was drafted on the initiative of the President. Its development

reflected Brazil’s prominent role at the Vienna World Conference. It was prepared

over a period of two years by the Ministry of Justice together with several

organizations of civil society. The preparation included seminars and debates.

It begins with a Preamble and an Introduction, which assert the fundamental

importance of human rights in the life of the nation and outline the process whereby

the plan was developed. The plan takes a comprehensive approach to human rights,

although it focuses on civil rights. It indicates an intention to be realistic in its

objectives. While it does not attempt a systematic assessment of current human rights

problems, it refers to them frequently in passing as justification for various proposed

actions.

The bulk of the plan consists of Proposals for Government Action, which are

structured around major issues and vulnerable groups and are divided into proposals

that can be addressed in the short term and those relating to the medium term. There

are over 130 separate proposals. Many of these address the needs of youth, women,

the black population, indigenous people, foreigners, Brazilian communities abroad,

older persons and persons with disabilities. Others address civil rights issues such as

30

personal security, impunity, arbitrary detention and forced labour. There are also

sections on human rights education and international action.

A selection of some of the short-term proposals gives some idea of the approach:

• To improve the quality of treatment for people living with HIV/AIDS;

• To propose penal legislation against the exploitation of child labour;

• To stimulate the creation of shelters for women who are victims of violence;

• To ratify ILO Convention No. 169 (on indigenous and tribal peoples);

• To propose a draft law regarding the use of firearms by police officers during their

time off and rigorous control of access to weapons and ammunition.

The plan does not refer to any monitoring or review mechanism.

4.6 Ecuador (1998)

Ecuador’s “National Human Rights Programme” is set out in book form. The

programme itself is 50 pages long and is published in five languages, including

Quichua, the language of one of the indigenous peoples of Ecuador. The programme

was developed on the initiative of the Ministry of Foreign Affairs during more than a

year of intense negotiations and consultations with diverse sectors of Ecuadorian

society and the administration, including the Government, civil society, the church

and the military. A three-day conference involving all parties was the centrepiece of

this process. The programme benefited from international support. Its content has

been converted into legislation as an Executive Decree, which is included in the

programme document.

The programme does not attempt an assessment of current human rights problems, nor

is it restricted to any particular time frame.

The programme begins with an Introduction and a Mission Statement that assert the

importance of human rights in the daily life of peoples and recognize the rights

contained in international standard-setting instruments.

The content of the programme is structured around four “strategic axes” – Legislative

Development, Civil and Political Rights, Economic, Social and Cultural Rights and

Collective Rights. The Collective Rights are is further subdivided into the following

areas, focusing particularly on vulnerable groups:

• The Environment

• Communications

• Indigenous Nationalities

• Black People

• Children

• Teenagers

• Women

• The Elderly

• Sexual Minorities

• Detainees

• The Disabled

31

In the area of Legislative Development, the programme commits Ecuador to national

and international action to improve observance of human rights. For example, it

provides for adaptation of the Constitution and national legislation to reflect all

human rights set out in international agreements and for the adoption of legal

mechanisms and guarantees to ensure enforcement of these principles.

Under each of the other three strategic axes, the programme establishes General

Objectives and Strategic Guidelines, the latter setting out broad proposals for action.

For example, the section on “Civil and Political Rights” focuses on fairness and due

process in the legal system. The programme sets out as one of four objectives:

To eradicate torture and physical and moral mistreatment as investigation and

punishment mechanisms from detention, investigation and penitentiary

systems.

One of the five strategic guidelines under this heading is:

To reform the current detention, investigation and penitentiary systems

through plans, programmes and changes in the legal system.

In the area of “Economic, Social and Cultural Rights”, the programme commits the

Ecuadorian State to equity and non-discrimination in social policy and to adequate

health, education and social security systems. It also envisages the establishment of a

committee to monitor the implementation of the International Covenant on Economic,

Social and Cultural Rights.

Somewhat more than half of the programme is devoted to the section on “Collective

Rights”, particularly relating to vulnerable groups. The Strategic Guidelines in these

sections contain up to 12 specific proposals for each of the identified groups. The

proposals aim at promoting the recognition of the rights of group members, in both

law and practice, and at initiating administrative and community actions to enhance

their dignity and improve their quality of life.

The programme contains additional sections on Institutions, International Policy,

Citizen Involvement, Financing and the Operating Plan. They describe how the

Ecuadorian State will facilitate the effective implementation of the programme. The

key element in implementation is development of the Operating Plan by government

agencies in consultation with civil society. It will provide specific diagnoses and

details of proposed actions and will identify those responsible for implementation, a

schedule of activities, resource requirements and so on. A notable feature is the

recognition that financial resources will be required. The Operating Plan also provides

for a Standing Follow-up and Assessment Committee to monitor progress, modify

guidelines where necessary and ensure compliance with the programme.

4.7 Indonesia (1998)

The “Indonesian National Plan of Action on Human Rights 1998-2003” is set out in a

21-page booklet. An Inter-Departmental Standing Committee on Human Rights drew

up the plan in cooperation with the Indonesian National Commission on Human

32

Rights. Much of the input for the plan came from the Second National Workshop on

Human Rights held in late 1994, which was attended by some 300 participants,

comprising government officials, military officers, academics, Members of

Parliament, members of the National Commission and representatives of civil society.

Work on the plan was effectively concluded by 1996 but it was not made public until

after the political reforms that began in 1998. There have been indications that the

plan may be adjusted in the light of changing circumstances in Indonesia. For

example, the country’s commitment to ratify the International Covenant on Civil and

Political Rights, scheduled to take place in 2003, was later brought forward to 2000.

The plan was launched by the Indonesian President on 25 June 1998, the fifth

anniversary of the adoption of the Vienna Declaration and Programme of Action. In

his statement at the launch of the plan, the Indonesian President said that “the key to

success lies in the cultivation and strengthening of a human rights culture”. He added

that “the real meaning of a plan of action lies in its implementation”.

The plan, which covers the period 1998-2003, is a very focused and precise

document. It begins with a preamble that situates the issue of human rights in the

Indonesian context. The preamble asserts the universality and indivisibility of human

rights as well as the balance between individual and collective rights and between

rights and responsibilities. The plan contains a narrative section that describes the

general approach in each of the four main areas of application and a Programme of

Activities set out in tabular form. It includes information on which agency will be

responsible for many of the activities described and indicates where international

assistance would be welcomed.

The four main areas of the plan’s application are:

1. Preparation for ratification of international human rights instruments

At the time the plan was launched, Indonesia had ratified two of the six major

international human rights instruments. The plan states that “ratification of

international human rights instruments will strengthen and expedite the development

of national legal instruments on human rights”. The tabular section sets out a five-year

programme for ratification of the remaining four major international human rights

instruments as well as a number of other instruments and ILO conventions. This

section includes provision for the review of existing legislation and the drafting of

new legislation as required and the formulation of guidance for law enforcement

personnel. It also addresses the need for development of the capacity to meet

reporting obligations effectively.

2. Dissemination of information and education on human rights

The plan stresses the need for a broad and consistent approach to human rights

education. It provides for:

• Work under the umbrella of the United Nations Decade for Human Rights

Education;

• Establishment of human rights courses in universities and other institutions of

higher education, including training for law enforcement officials;

33

• The development of curricula for school education, including teacher training;

• Informal community and family education;

• Education through the mass media.

3. Implementation of priority issues on human rights

This section stresses the importance of dissemination of international standards on

torture and arbitrary detention among law enforcement officers, human rights training

for law enforcement officers, information on humanitarian law, a special programme

for judges and prosecutors, protection for vulnerable groups and crowd control

training for the police.

4. Implementation of the international human rights instruments that have been

ratified by Indonesia

This section focuses on the two major international human rights treaties that had

been ratified by Indonesia at the time the plan was launched, the Convention on the

Rights of the Child and the Convention on the Elimination of All Forms of

Discrimination against Women. The plan provides for activity through national

institutions, international cooperation, social mobilization, legal reform, law

enforcement, training and monitoring.

Provision is made for the establishment of a National Committee on Human Rights as

the implementing body for programme activities under the plan. It will be composed

of both government officials and community representatives. The plan envisages

regular evaluation and states that aspects of human rights not covered by the present

plan will be addressed when it is upgraded following evaluation of its initial

implementation.

4.8 Mexico (1998)

The Mexican “National Programme to Promote and Strengthen Human Rights” is set

out in a 23-page document. The Ministers of Foreign Affairs and the Interior launched

the programme, which is coordinated by the Mexican National Commission on

Human Rights. The programme invites civil society to support and join its activities.

There is no specific time frame for its implementation.

The programme makes specific reference to the federal nature of the Mexican State. It

was developed as an initiative of the executive branch of government and was

coordinated by the Ministry of Foreign Affairs. It requests the other branches of

government – the legislature, the judiciary and state Governments – to take

complementary action in their own spheres of responsibility.

The programme begins with an introduction that outlines the place of human rights in

Mexican history and notes the growing development of a participatory and democratic

political culture. It refers to the establishment of the National Commission on Human

Rights and the place of human rights in the National Development Plan 1995-2000.

34

The programme sets out a series of broad objectives including strengthening the

human rights culture, consolidating institutional mechanisms, eradicating impunity,

developing human rights monitoring mechanisms, strengthening public information

activities, assisting in fulfilling international commitments and promoting cooperation

with civil society. It then describes a series of more specific activities that government

agencies will undertake to give effect to these objectives.

Under the general heading “Strengthening”, the programme provides for seminars and

training courses for public servants and reinforcement of human rights education

programmes. Under the heading “Promotion”, the programme provides for public

information campaigns and the establishment of human rights promotion and

dissemination mechanisms. Under the heading “Protection”, it provides for the

bolstering of law enforcement mechanisms in cases where human rights have been

violated, and assistance in fulfilling international obligations and strengthening

evaluation activities to protect the rights of members of vulnerable groups.

The programme lists some broad activities to be pursued in the short term, including a

national campaign against violence, torture and impunity, and production and

dissemination of audiovisual material on protection of human rights.

It then lists specific activities to be undertaken by a range of key agencies. The

following is a small selection of these activities:

• Eradication of illegal procedures and harassment of persons with criminal records;

introduction of legislation to criminalize the production and sale of child

pornography (Secretariat of the Interior);

• Review of reservations to international instruments (Secretariat of Foreign

Affairs);

• Strengthening knowledge of children’s rights in teacher training (Secretariat of

Public Education),

• Holding a seminar on the right to health care (Secretariat of Health).

The Mexican programme addresses the issue of monitoring and evaluation,

envisaging the establishment of a Technical Follow-Up Committee.

4.9 South Africa (1998)

The South African “National Action Plan for the Promotion and Protection of Human

Rights” is set out in a small 151-page pocketbook. The plan contains a foreword by

then President Mandela, the Minister and Deputy Minister for Justice and the

Chairperson of the South African Human Rights Commission. The plan has a time

frame of three years and states that it was developed with international cooperation.

The plan is a very comprehensive document. It includes a brief outline of South

Africa’s human rights history and current situation and indicates how a national action

plan can help advance human rights in South Africa. A notable feature of the

document is the detailed description of its development. The process was consciously

participatory and collaborative, beginning with a National Human Rights Conference

convened by the South African Human Rights Commission in May 1997. This was

35

followed by workshops and consultations and the establishment of a National Steering

Committee for the Plan. President Mandela launched the National Plan process on

Human Rights Day, 10 December 1997, in the presence of Mary Robinson, United

Nations High Commissioner for Human Rights. Work continued through 1998,

including Cabinet approval of the plan framework and a series of consultative

workshops in all provinces of the country. An important feature of the workshops was

that they afforded an opportunity to provide basic human rights training to local

officials at the provincial level. In November 1998, the draft plan was discussed and

adopted by Cabinet. It was subsequently presented to, and endorsed by, Parliament.

The plan was launched on International Human Rights Day, 10 December 1998.

Another feature of the South African plan is the effort it makes to be user-friendly. It

includes a section explaining how the plan document is structured and is made more

action-oriented by indicating the various State institutions that have responsibilities

relevant to human rights. In addition, the plan is published in a handy pocketbook

format. The plan process involved a national public awareness plan that included

media coverage, workshops and pamphlet distribution.

The plan is comprehensive in its content and approach. It considers particular rights

and issues under the following three broad headings:

Civil and Political Rights

• Equality

• Life

• Freedom and security of the person

• Privacy

• Labour rights

• Political rights

• Access to justice

• Just administrative action

• Citizens

• Aliens

• Refugees

• Expression

• The rights of arrested, detained and accused people

Economic, Social and Cultural Rights

• Employment

• Housing and shelter

• Health

• Food

• Water

• Land

• Social security

• Education

• Freedom of culture, religion and language

• Rights of children and young people

36

Rights to Development, Self-determination, Peace and a Protected Environment

• Development

• A protected environment

Another notable feature is the specific description of the rights applicable to each area

addressed. Under each of the above sub-headings, the plan discusses:

• Constitutional obligations;

• International obligations;

• What has been done, in terms of policy, legislation and administrative steps taken;

• Further challenges;

• Addressing the challenges;

• Evaluation and monitoring;

• Resources and budget.

The plan envisages the establishment of a National Consultative Forum on Human

Rights, which will have responsibility for implementing and monitoring the plan. The

Minister or Deputy Minister of Justice will convene the Forum. Government agencies

that are responsible for monitoring and implementing the plan will have to report

periodically on progress to the Forum. The plan provides for a full review of progress

halfway through its three-year life span, following which it will be revised and re-

adopted.

4.10 Venezuela (1999)

Venezuela’s National Plan of Action on Human Rights was elaborated in 1997, which

was declared by former President Rafael Caldera the “Year for Human Rights”. The

plan was the result of a long process of consultations between the Government, NGOs

and representatives of civil society. Several initiatives and recommendations were put

forward by NGOs. The President requested the National Commission on Human

Rights to compile all initiatives, provide a forum for discussion and maintain regular

communication with the NGO community and civil society. In this connection,

multiple seminars and workshops throughout Venezuela were organized. Three

working groups were established to discuss civil and political rights, economic, social

and cultural rights, and environment and human development. Discussions in the three

groups took into consideration a gender perspective, the age of the targeted population

and vulnerable groups. A first draft was finalized and submitted for consultation to

approximately 500 governmental and non-governmental bodies. Further comments

and recommendations were duly incorporated.

The National Plan of Action was approved in the second half of 1997 and adopted by

the Government of President Chavez through a resolution issued by the Ministry of

the Presidency in January 1999.

The National Plan takes due account of many of the concepts laid out in the Vienna

Declaration and Programme of Action. It foresees strategic objectives and follow-up

action in the following areas:

37

• Civil and political rights;

• Freedom of expression;

• Education;

• Health;

• Labour rights;

• Social security;

• Property rights;

• Recreation;

• Environment and human development.

The plan also provides for stronger cooperation with international human rights

organizations and mechanisms such as the Commission on Human Rights, the Inter-

American Commission on Human Rights and the Inter-American Institute of Human

Rights.

With a view to implementing the plan, several prior measures were envisaged by the

National Commission. They aim at strengthening the legal, administrative and

financial capacity of government entities, in particular the National Commission on

Human Rights, in order to mainstream human rights and implement the plan. Of

particular importance is the establishment of a committee comprising representatives

of the Government and civil society to monitor implementation of the plan.

4.11 Bolivia (1999)

The Bolivian “National Plan of Action for the Promotion and Protection of Human

Rights in the Medium and Long Term” is set out in a 19-page document. The plan

begins by noting that Bolivia is going through an extraordinary period in its history,

one in which it is strengthening its institutions, particularly those relating to the

defence, protection and promotion of human rights. It points out that recognition of

multi-ethnic and multicultural values has become a key element in domestic politics.

While the plan does not attempt a systematic analysis of the present situation, it

highlights problems such as domestic violence, discrimination against women, the

critical situation of the rights of indigenous peoples and drug trafficking. It is

comprehensive in its approach to human rights, substantive and forward-looking,

envisaging, for example, the establishment of new governmental agencies. The

document does not describe the process of developing the plan, nor does it comment

on the role of civil society. The plan does not establish any time frame for

implementation.

The objectives of the plan are grouped under five thematic headings:

• Respect, defence and promotion of human rights;

• Civic education;

• Strengthening of institutions;

• Legislative reform; and

• Strengthening of civil society.

38

The plan provides for implementation of activities under three broad headings:

1. Strengthening of institutions

The plan indicates an intention to strengthen the Ministry of Justice by such means as

the establishment of two new departments within the Office of the Under-Secretary

for Human Rights, a Human Rights Documentation Centre and a Human Rights

Education and Training Centre, strengthening of the Department of Constitutional

Affairs and Human Rights and the National Public Defender Department, and

improvement of inter-agency coordination.

2. Legislative reform

The plan notes recent milestones in legislative reform, including constitutional

provisions for the multi-ethnic and multicultural nature of the country. It envisages

legislation in the medium term to harmonize Bolivian institutions with international

human rights norms. It also provides for streamlined legal procedures and the

adoption of codes of conduct applicable to personnel working in the judicial system.

This section stresses the need for a realistic approach, combining effective reforms

with maintenance of the broadest possible consensus.

3. Education, training, information and documentation

The plan accords considerable importance to education and training. It is expected

that the Human Rights, Documentation, Publications and Information Centre will play

an influential role. The Human Rights Education and Training Centre of the Office of

the Under-Secretary for Justice will pursue a strategy aimed at both the general public

and specific professional and social sectors. The aim is to achieve the “routinization”

of respect for human rights. Such programmes will focus on personnel involved in the

administration of justice. Training will also extend to civil society personnel and

organizations, with particular emphasis on women, children and indigenous peoples.

Steps will also be taken to promote human rights education at all levels of formal

education.

The plan does not address the question of monitoring or review.

4.12 Common elements of finalized plans

The existing plans differ significantly. They vary in length from 4 to 150 pages, their

time frame ranges from 2 to 5 years to an indefinite period and they vary in the

specificity of their provisions. However, there are some prominent common features:

1. The importance of international standards as the basis for the plan

Plans consistently refer to the Universal Declaration of Human Rights and other

instruments as the standards they seek to implement. Plans also provide for the

progressive ratification of more international instruments.

39

2. Civil society

All plans emphasize the importance of broad public participation in the processes

associated with the plan.

3. Comprehensive scope

Most plans provide for a comprehensive approach embracing civil, political,

economic, social and cultural rights. Some provide for so-called “third generation”

rights such as the right to a healthy environment. Most plans accord priority to the

needs of vulnerable groups as well as thematic issues of major concern.

4. Objectives

All plans set targets of some kind. In some cases they are quite specific and in others

presented in more general terms. Most plans outline particular challenges as specific

tasks for the plan to address.

5. Process of preparation

Some plans refer to the process whereby they were developed. In some cases this

involved the establishment of a national coordinating committee.

6. High-level political involvement

Most plans refer to high-level political involvement, either in the development of the

plan or in its endorsement.

7. National human rights institutions

Some plans provide specifically for national human rights institutions to take a

leading role in monitoring their implementation. In cases where no national human

rights institutions exist, the national plan may specifically call for their establishment.

8. The local context

Most plans seek to provide a local context for the general approach adopted.

9. Baseline study

Some plans refer in impressionistic terms to the current human rights situation in the

country concerned, but none of them attempt a systematic review or reflect this

explicitly in the final product.

10. Monitoring and evaluation

Many plans refer to the need for monitoring of implementation and evaluation of

achievements towards the end of the time frame. Some describe specific mechanisms

to be established for the purpose. Others assign these functions to an existing human

rights body such as a human rights commission.

40

 PART II: DEVELOPING A NATIONAL ACTION PLAN

5. The preparatory phase of the plan

5.1 Five main stages

Putting a national human rights action plan in place is a substantial undertaking. The

broad steps towards accomplishing this task involve:

• A preparatory phase, during which key agencies and organizations address the

institutional structures for planning and engage in initial consultations (covered in

this chapter);

• A development phase, during which key agencies and organizations elaborate the

concept of a national action plan applicable to the country concerned, intensify the

consultation process and draft the plan (chapters 8 and 9);

• An implementation phase, during which relevant agencies implement the plan

(chapter 10);

• A monitoring phase, which overlaps with the implementation phase and involves a

process of adjustment of plan objectives and activities in the light of circumstances

(chapter 11);

• An evaluation phase, in which achievement of the stated goals is systematically

assessed with a view to laying the foundation for a successor plan (chapter 12).

There is a need for effective consultation at all stages of the process. This is addressed

in particular in chapters 6 and 7.

Situations differ from one country to another, depending on constitutional and legal

systems, political cultures, human rights situations and other factors. So there is no

single detailed model for developing a national plan. This chapter seeks to identify

general elements that have been found useful by countries with national plans or that

are desirable in terms of broad human rights principles. Users of the Handbook can

draw on these elements when developing new national plans or revising existing ones.

5.2 Who should initiate?

The central role of government

A national action plan must be approached as an important national endeavour. The

fundamental stimulus for developing the plan will be a felt national imperative to

promote and protect human rights. In a number of cases, national action plans will be

part of a wider process of reform or democratization. More generally, there will be a

recognition that effective implementation of the plan contributes to the achievement

of broad national objectives such as promotion of social cohesion, improvements in

individual well-being and better governance.

As the plan will embody commitments by the national government, the government

will necessarily have a central role to play in its development. The plan should be

41

developed in a manner similar to that of other major government activities. The

stimulus may originate at the highest level of government. Alternatively, it may

originate at the working level, as part of the policy-making process. Government

action is of course influenced by action on the part of civil society, particularly non-

governmental organizations working in the field of human rights. In some cases, it

may be the action of NGOs that persuades governments to develop a national plan.

While the major stimulus will be of domestic origin, international activity can provide

shape and direction to the process. The Vienna Declaration and Programme of Action

is an important reference point, which leads naturally to the use of internationally

agreed human rights norms as the framework of a plan. Impetus can also be provided

by international meetings on the subject, such as the regional workshops on national

action plans that have been organized by OHCHR in Latin America, Africa and the

Asia-Pacific region.

The focal agency

Whatever the precise location of the original stimulus to action, it is important that a

specific organ of government be identified early in the process as the focal agency for

action. That organ may be a Ministry of Justice, a Ministry of Foreign Affairs, the

Office of the President or some other appropriate department. In some cases, it may

be a national human rights institution, although it should be understood that

responsibility for implementation must always rest with the government.

The focal agency may be more or less self-selecting. Its nomination may flow from a

process of consultation involving government agencies and possibly civil society

organizations and other relevant institutions. The end-point of the process should

involve the government officially appointing the selected agency to perform the task.

Whatever organ of government is appointed as focal agency, it should be given

sufficient authority and resources to carry out its responsibilities effectively. It is also

useful to have a counterpart NGO coordination committee or possibly a “focal” NGO

to facilitate communication with civil society (see section 6.3).

5.3 Who should be involved?

Without broad participation at the stages of both development and implementation,

there is a risk that the plan will end up as no more than a rhetorical gesture and that at

the implementation stage it will run into the sand. Broad participation will ensure that

the plan’s goals are widely shared and that the process is transparent. By mobilizing

large numbers of people, broad participation will also help maintain momentum

towards effective implementation.

Depending on the size and scope of the projected plan and taking into account

available resources, the planning process may include the participation or involvement

of the following:

• The head of government and responsible ministers;

• Parliamentarians, particularly where there are parliamentary human rights

committees;

42

• The focal agency, which might be a Ministry of Foreign Affairs, a Ministry of

Justice or an inter-institutional coordinating body;

• Other relevant government agencies, which might include ministries responsible

for police and the justice system, the interior, labour, education, health, women,

social welfare, defence and the armed forces, finance, planning and development;

• Security institutions such as the armed forces and police;

• Relevant semi-governmental agencies, such as statutory authorities;

• National human rights institutions, such as an independent human rights

commission;

• Human rights NGOs, including specialized organizations such as NGOs focusing

on the rights of women and children;

• Representative members of vulnerable groups;

• Community organizations, particularly NGOs that may not normally be regarded

as human rights organizations because they deal with social issues such as health,

housing, education, development assistance, minorities, religious issues, asylum-

seekers, indigenous peoples and so on;

• Members of the judiciary and jurists;

• Trade unions and professional groups, including associations of teachers, lawyers,

journalists and so on;

• Human rights experts;

• Academics and educators;

• Representatives of research institutes;

• The media;

• Corporate representatives, including business and industry associations;

• Private foundations.

In addition, it may be useful in some situations to have representatives of international

organizations as participants in the process, particularly where the development and

implementation of the plan draws significantly on international technical cooperation.

5.4 The role of government and parliament

An effective plan will require productive cooperation between government and civil

society. The role of government is, however, crucial. The effective implementation of

the plan will require the mobilization of political will, effective coordination across a

wide range of government agencies, sustained effort over a substantial period of time,

the allocation of sufficient resources and a dispassionate monitoring process. Each of

these elements can be difficult to put into practice. Ensuring the implementation of all

of them will be a challenge for those centrally involved in the relevant government

agencies.

The role of political parties and the parliament should also be emphasized. As part of

the democratic process, governments change from time to time. The national action

plan must nevertheless continue operating without interruption. It is therefore

important to ensure that the plan enjoys the support of all major political parties so

that its implementation is not adversely affected if governments change. To facilitate

this, opposition parties may be included in the consultation process. A special effort

should be made to involve parliamentarians from all parties who have an interest in

43

human rights issues. Parliamentary committees dealing with such issues are a useful

mechanism for achieving this.

5.5 How the preparatory phase should be managed

It will probably not be practicable to involve all the participants listed in section 5.3,

especially on an ongoing basis. There will thus be a need for a representative body

and a management structure, together with sufficient resources to enable these bodies

to function effectively.

The following steps are generally relevant to the preparatory phase of the plan. The

manner in which these elements are put into practice, the steps relevant to each

situation and the order in which action is taken will, of course, vary from one country

to another:

• Initial consultations within government and between government and civil society,

possibly as a result of a recommendation by a human rights commission or an

NGO forum;

• A preliminary decision by the government to proceed with the plan;

• Identification and appointment of the government body that is to act as the focal

agency for action;

• Communication to relevant agencies of government as well as semi-government

organizations of the intention to develop the plan;

• Communication to major interested groups, such as the judiciary, NGOs, and

academic and educational institutions;

• Development by the focal agency of draft principles relating to the initial stages of

developing the plan. This should be done in close consultation with civil society

and other agencies. The principles will be tentative and flexible and address in

particular who should be involved in the process and the initial meetings necessary

to set the process in motion;

• If not already part of the process, specific endorsement and direction from the head

of government and/or relevant ministers;

• A public announcement, as part of an initial media strategy, of the intention to

develop a national action plan;

• Organization of an initial national consultative meeting or a series of meetings to

obtain input from the various interested groups. The meeting or meetings will

discuss the concept of the national action plan and fill in the details of the

development process. An important issue at this stage is the structure and

membership of the national coordinating committee (see below). Other issues for

discussion at the initial national consultative meeting might include the scope of

the plan, time frames, resources, media and education, and international

cooperation.

44

Figure 4 – The preparatory phase

• Consultations within government

• Consultations with NGOs and other interested groups

• Government takes decision to proceed with the plan

• Government appoints focal agency

• Focal agency informs other government agencies and civil society groups of the

intention to prepare a plan

• Focal agency draws up draft principles, in consultation with civil society, for the

initial stages of development of the plan

• Government formally endorses the process

• Public announcement of the intention to develop a national action plan

• Organization of an initial national consultative meeting or meetings with

stakeholders

• Establishment of the national coordinating committee

5.6 National coordinating committee

The key development in the preparatory phase of work on the plan will be the

establishment of the national coordinating committee. This body might alternatively

be called a task force, a steering committee or something else, but for the purposes of

this Handbook we shall refer to it as a “national coordinating committee”,

“coordinating committee” or “national committee”. As part of its work in the

preparatory phase, the focal agency could prepare a recommendation on the size,

composition and methods of work of the coordinating committee, and on its necessary

supporting structures and resources. This recommendation could be considered by

civil society representatives and other participants at the initial national consultative

meeting mentioned above. The government will normally take the final decisions on

matters relating to the committee, though it is essential that these decisions enjoy the

support of other stakeholders.

Size

The committee should be on a scale that permits satisfactory representation of

government agencies, stakeholders and interest groups, while at the same time being

manageable in terms of decision-making effectiveness and cost. A membership of

around 10 to 20 may be the optimum size to achieve these goals.

Composition

In order to achieve the twin objectives of effective implementation and broad popular

support, membership should include representatives of both important government

agencies and civil society organizations. Gender balance and equitable representation

of ethnic, religious, regional or other minorities should be an important consideration.

Government agencies should include those that have particular responsibility for

implementation of the plan, such as security authorities and departments responsible

for social policy. Civil society organizations should include representatives of trade

unions and those with responsibility for economic and social issues as well as

45

representative members of vulnerable groups. Some representation from the business

sector is desirable. In some cases, the public profile of the committee may be

enhanced if it includes film, television, music or sports personalities. In some

situations, such as where a plan is being developed with substantial international

technical cooperation, it may be appropriate to include an international observer.

Chairperson

The chairperson of the committee should be an effective spokesperson for the national

action plan and for human rights promotion generally. The chair will have an

important role to play during all phases of the plan’s preparation. Whether the

chairperson is elected by other members or appointed, it may be desirable for the

incumbent to be a political figure, possibly a minister, to ensure a profile within

government for the development, launch and implementation of the national action

plan. It would also be desirable to have a vice-chairperson drawn from the NGO

community.

Sectoral working groups; other committees

In order to ensure representation from relevant organizations and to mobilize

effectively the available expertise, it will probably be necessary to establish

subcommittees or “sectoral working groups” to deal with specific themes within the

plan. There will be many government agencies and non-governmental organizations

involved in implementing the plan and it will probably not be practical to have more

than those with broad responsibilities on the coordinating committee itself. Issue-

specific subcommittees would ensure that they were substantially involved in the

process and that their input could be channelled directly to the coordinating

committee. It would therefore be desirable to establish such sectoral working groups,

which would be responsible for needs assessment, drafting of the plan and monitoring

with regard to specific sectoral issues covered in the national action planning process.

Such issues could include health, education, housing, juvenile justice, prisoner

administration, refugees and many other issues.

The sectoral working groups would be under the supervision of and would report to

the coordinating committee. The range of committees established to steer the

development of the plan should be kept under review so that the institutional structure

is appropriate to the needs of the task. There may be a need to establish new structures

or to discontinue existing ones in response to changing circumstances. These bodies

should be monitored carefully by the coordinating committee to ensure economy of

resources and time.

In the initial stages of developing the plan, the coordinating committee should take a

strong directive role so that the process can quickly develop momentum. The

coordinating committee should ensure a rich flow of input from civil society and

government agencies as well as the dissemination of accurate information to those

directly involved and the general public.

It is probably also desirable for both the government and the NGO community to have

separate additional committees to handle matters specific to their own spheres of

activity. Such matters might include, on the government side, the development of

46

recommendations to ministers and resource questions. On the NGO side, it might

include the development of coordinated NGO positions or the dissemination of

information to the grassroots. Depending on national conditions and the needs of the

plan, there may be value in setting up regional or local committees.

The need for committees and other structural mechanisms may not be fully apparent

at the beginning of the process. The process should start with consultations and the

establishment of a national committee, but it should be flexible enough to incorporate

new elements and to allow changes in structure.

47

 Figure 5 – National coordinating committee – possible composition

and mandate

Focal

agency Peak

Govt.

agency NGO

Govt. Peak

agency NGO

Govt. Committee functions

agency • Conduct baseline study NHRI

• Effective liaison with government

• Effective consultations with

Police community Vulnerable

• Public meetings and hearings group rep

• Develop plan management and

evaluation structures

Armed • Draft the plan Vulnerable

forces

• Develop media and dissemination group rep

strategy

• Facilitate implementation of plan

Parliament- • Monitor and review Community

arian • Revise plan as necessary rep

• Consult with implementing agencies

on shortcomings

• Report to government and the general

Judiciary

public Community

rep

rep

HR

educator Business

rep

Trade

union rep

Media rep

Private

foundation

48

Functions

The main functions of the committee are:

• To conceptualize the national action plan as a synthesis of international standards,

domestic law and local circumstances;

• To conduct a baseline study to establish the national human rights context;

• To collate relevant existing human rights information such as government agency

studies and reports, and reports by national human rights institutions, international

organizations and NGOs;

• To take into account existing action plans, including development plans and plans

in the areas of women’s rights, children’s rights and educational planning;

• To formulate the draft national action plan by identifying objectives, strategies,

components, priorities, vulnerable groups, programmes and activities, monitoring,

evaluation and revision within clear time frames;

• To organize consultative forums/public meetings to assess responses and then to

revise and finalize the national action plan, taking into account the input received;

• To submit the plan for approval at the highest levels of government;

• To disseminate the adopted national action plan to all actors concerned for

implementation and integration into their respective policies and plans of action;

• To develop and implement a media strategy, including the public dissemination of

relevant materials, in order to bring all stakeholders into the process and to

facilitate awareness of the plan among the general public;

• To monitor and facilitate evaluation of the national action plan;

• To report as appropriate, including perhaps to the public, the government or the

parliament.

In some countries, it may be found useful to institutionalize the coordinating

committee as a body with functions that extend beyond the national action plan. The

committee may assume continuing responsibility for integrating and mainstreaming

human rights issues within government agencies. Its activity may include promoting

and coordinating human rights training, capacity-building and events, and mobilizing

resources for human rights-related activities.

Time frames

Clear time frames should be established for the functioning of the coordinating

committee and the completion of its various tasks. The committee itself should meet

on a regular basis.

While it is important that the plan be properly prepared, the work of the coordinating

committee should not be excessively prolonged. It will undermine efforts to set an

effective plan in place if a perception develops that the process is drifting. It is

desirable therefore that the coordinating committee should work steadily and aim to

launch the plan 12 to 18 months after the process has begun.

49

Secretariat and resources

There should be a secretariat to support the coordinating committee and to manage

activities relating to the national plan between committee meetings. Core staff of the

secretariat may be provided by the focal agency on a secondment basis. It is important

to ensure that some at least of the secretariat’s staff is provided by other organizations.

This will enhance the secretariat’s human rights expertise and promote new ideas and

approaches. Organizations that might consider supplying staff include national human

rights institution, human rights NGOs, legal bodies or law firms and business

corporations. Senior secretariat staff should be selected by the coordinating committee

according to criteria it has developed itself.

It is unlikely that a large secretariat will be needed. Where local resources are scarce

and support is sought from international donors, a large secretariat may be perceived

as inappropriate and even wasteful. The intensity of secretariat activity will vary over

the life of the plan. During the developmental phase there will be a high level of

activity, while during the implementation phase the focus of activity will shift away

from the coordinating committee and the secretariat and the level of activity will be

much lower.

The government should allocate adequate financial resources to permit the holding of

committee meetings and public meetings, to meet the expenses of the secretariat and

to cover the costs of the media programme.

50

6. The role of national institutions and civil society

6.1 National human rights institutions

National human rights institutions (NHRIs) such as human rights commissions and

ombudsmen (also known in some countries as public defenders or public protectors)

have been established by government in many countries. They are a repository of

knowledge and expertise on human rights issues and usually perform functions such

as monitoring human rights violations and problems, advising governments on

legislative and other matters, and carrying out programmes of human rights education.

While their structure and functions vary from one country to another, they play an

extremely important role in promoting and protecting human rights. They can also

make a significant contribution to the preparation and implementation of a national

action plan and should participate in both the national coordinating committee and

wider consultative activities. In countries that do not have NHRIs, their establishment

is normally a key objective of the plan (see section 8.5.6).

Where national plans have been developed to date in countries that have NHRIs, the

latter have usually been closely involved in the planning process. South Africa, where

the impetus for drafting a plan came from the human rights commission, is a good

example. In some cases, such as the Philippines, NHRIs may be called upon to take a

leading role in coordinating the implementation of the plan. Where this happens, it

should still be clearly recognized that the commitments in the plan impose obligations

on governments to take appropriate action and that responsibility for ensuring

achievement of the plan’s objectives cannot be transferred to non-governmental

bodies.

Given their status of independence from government, it is normally difficult for

NHRIs to take responsibility for supervising the implementation of the plan. The role

of NHRIs should be essentially to monitor implementation, to provide expertise and to

make recommendations to government regarding appropriate action. This general

point notwithstanding, there may be areas in which an NHRI itself will be the

implementing body for one or more areas of the plan, such as human rights education

for the general public. In addition, some national plan objectives may aim at the better

functioning of NHRIs.

Where the activity of NHRIs under the plan goes beyond their normal functions,

government should ensure that adequate resources are made available.

6.2 Who constitutes civil society?

“Civil society” may generally be regarded as all organizations and individuals who

are not directly associated with government. Reflecting the strengthening of

democratic institutions around the world over the past two decades, civil society has

assumed an increasingly important role in contemporary public policy-making.

Improvements in information technology and transport have facilitated this

development. The public is now much better informed, better able to organize and

better able to express its views.

51

Figure 6 – Civil society participation

• Human rights NGOs, including

• Trade unions
• Relevant professional associations
• Jurists
• Women
• Children and youth
• Representative members of vulnerable groups

• NGOs dealing with economic, social and cultural rights and community-based

organizations

• National human rights institutions

• Educators, representatives of academic and research institutions, and human rights

experts

• Representatives of the private business sector

• Representatives of philanthropic and other private funding organizations

• The media

• The general public

In practical terms, the scope of civil society is very broad. In human rights work,

human rights NGOs appropriately play a leading role and can be expected to be

centrally involved in the planning and implementation of national action plans. But

since a national action plan seeks to promote progress in such a wide range of

activities, those guiding the process should make every effort to extend the

consultation process well beyond actors who are traditionally seen as comprising the

“human rights community”. This applies in particular to countries that are large and/or

geographically or ethnically complex. The organizations brought within the

consultation network will thus vary in size, resources, focus and geographical spread.

In many contexts it will be more appropriate to talk about “non-State actors” than

“non-governmental organizations” in order to cover the range of interests that should

be involved in the national action plan. With some differences from country to

country, the following civil society sectors should participate in the development and

implementation of a national action plan.

6.3 Human rights NGOs

Many countries have one or more human rights NGO “umbrella” bodies that are

responsible for representing constituent NGOs and for coordinating action and

disseminating information. Government should view these NGO bodies as key

partners in planning and implementing the national action plan. By working with such

coordinating bodies, governments will find that the process of consultation with civil

society can be handled more effectively. From the broader NGO point of view, it is

probably preferable for them to concentrate their activities under the plan through

representative action rather than allowing their efforts to be dissipated through diverse

and ad hoc mechanisms. In addition, a formal role for NGO coordinating bodies will

help dissipate any perception that the government is not taking the consultations

seriously or that it is manipulating the process.

52

As effective consultation is an integral part of the cost of an effective plan,

governments should ensure that adequate resources are allocated to this function of

NGO coordinating bodies. The costs involved in the NGO coordination process will

include travel, communications, preparation and dissemination of materials and hire

of venues.

It is desirable to supplement the coordinating and representative role of leading NGOs

by involvement in the consultation process of many other organizations engaged in

the promotion and protection of human rights. These could include trade unions,

professional associations, jurists and organizations representing women, children,

minorities, indigenous people, persons with disabilities, rural dwellers and so on. The

coordinating committee should give particular attention to ensuring effective

consultation with representative members of vulnerable groups, which may be defined

somewhat differently from country to country.

6.4 NGOs and community-based organizations dealing with

economic, social and cultural rights

The coordinating committee should make a particular effort to ensure the effective

involvement in the consultation process of NGOs and community-based organizations

(CBOs) dealing with economic and social issues as well as their counterpart

government agencies. The importance of economic, social and cultural rights and the

indivisibility of human rights are important themes that should be fully addressed

under any plan. A valuable outcome should be increased awareness among those

working in relevant fields, as well as among the general public, of economic, social

and cultural rights such as the rights to health, housing and education and the right to

development. This will promote a rights-based approach to these issues, centering on

the entitlements of individuals and groups, as opposed to the more common service-

delivery approach that lays primary emphasis on political, bureaucratic and budgetary

considerations. Work on these issues within the framework of the national plan will

assist in the development of benchmarks that can be used in other contexts, for

example reporting under relevant human rights treaties.

6.5 Educators, representatives of academic institutions, research

institutions and human rights experts

Promoting and protecting human rights are long-term activities in which a country’s

education system plays an important part. The involvement of educators and

representatives of educational institutions in the national action plan process will:

• Encourage more effective relations with the education system;

• Promote better provisions on human rights education in the plan; and

• Facilitate better implementation of the plan's provisions within the education

system.

Consultation with those associated with research institutions will also assist in

ensuring that the plan’s impact is disseminated on a wider and longer-term basis.

53

In many countries there will be individuals who have developed particular expertise in

human rights issues, whether as representatives of NGOs, in the legal profession or as

academic experts. Even though they may not play a formal role in any of the

organizations involved in the consultation process, they are an important repository of

information and wisdom on human rights matters. The coordinating committee should

make provision for such persons to be brought into the consultation process where

possible, for example to assist in preparing the baseline study.

6.6 Representatives of the private business sector

With globalization and a trend towards smaller government, there is increasing

recognition that social outcomes depend in part on non-governmental actors in

society, including business. In some countries, multinational mining and industrial

enterprises may constitute an important actual or potential channel for delivery of

social benefits such as infrastructure, education and health facilities. There is a slowly

increasing awareness among business corporations that their mission is not only to

deliver benefits to shareholders but also to demonstrate commitment to environmental

responsibility and the promotion of social values, particularly for stakeholders. Of

course, care must be taken not to be associated with corporations or business leaders

who are identified with questionable or abusive human rights practices.

6.7 Representatives of philanthropic and other private funding

organizations

For reasons parallel to the growth in the importance of the corporate sector, private

funding organizations are playing an increasingly important part in the delivery of

social benefits, which can usually be expressed in human rights terms. Some of them

may be associated with corporations. In addition, such organizations are often led by

individuals who have a prominent standing in the community and are thus well placed

to make a useful contribution to the national action plan process. While such

organizations would not normally take a leading role in the national action plan

process, it may be useful to involve them in consultations, particularly through the

provision of information.

6.8 The media

The success of a national action plan will very much depend on public awareness and

support. The media should therefore be encouraged to involve themselves in the

planning process in two broad roles. One is to provide accurate information about

human rights and the national action plan to the general public. The other is to provide

input for the planning process as a sector with a direct interest in human rights,

particularly freedom of information.

54

6.9 The general public

Over and above the opportunities provided for consultation with NGOs and other

representatives of civil society on the plan, it is desirable that there should be specific

mechanisms for consultation with the general public. These may include an

interactive web site, public meetings, invitations to members of the public to make

individual submissions, and use of the media, for example through talkback radio.

Such mechanisms are discussed in detail in chapters 7 and 10.

55

7. Consultative mechanisms

7.1 The importance of the process

It is often said that the process of developing the plan is as important as the document

itself. This is because the process will determine:

• The extent of political support for the plan;

• The extent to which relevant government agencies and NGOs are effectively

involved;

• Whether there is sufficient interaction between the various actors to ensure that the

plan derives full benefit from their varying insights and perspectives;

• How widely the plan is recognized and supported by the general public;

• How effectively the plan is monitored.

To ensure that the plan achieves its optimum potential, the process itself, as well as

the plan’s content and mechanisms, should be structured in such a way as to produce

results. The principal actors, State and non-State alike, should engage in consultations

about the process from the outset. The end result will be much more effective if it is

produced as a result of partnership between government and civil society rather than

as a government-driven exercise. It is true that, at the end of the day, obligations to

fulfil the plan fall primarily on government, and from that point of view it is

impractical to have a plan that provides for measures that the government cannot or

does not wish to carry out. However, a genuine process of dialogue should produce an

understanding between government and civil society that lays the basis for a realistic

plan enjoying broad community support.

Mechanisms such as periodic meetings of government and civil society

representatives will be a primary vehicle for consultations, but the principal actors in

the process should constantly seek new and effective means to broaden consultations

on the plan. The guiding principle should always be that the national action plan is a

national undertaking and that the broader the consultations, the more effective and

long-lasting will be the plan’s outcomes.

Such broader consultations should include regular informal personal and

telecommunication contacts among the main players to promote better cooperation

and a harmonious atmosphere for collaboration. They can also include an interactive

web site, public meetings, public hearings, provision for written submissions and use

of talkback radio. There are also benefits to be gained from principal actors travelling

to provincial areas to try to ensure that the process is brought closer to its

beneficiaries.

56

Figure 7 – Consultative mechanisms

• National coordinating committee

• Sectoral working groups

• Meetings between government and civil society representatives

• Consultations between and within civil society organizations

• Informal personal and telecommunication contacts

• Public meetings, including in provincial areas

• Interactive web site

• Public hearings

• Provision for written submissions

• Use of talkback radio

7.2 Committees

The first major step in the process is the establishment of the national coordinating

committee (see section 5.6). The general composition of the committee has already

been discussed but the number of civil society participants will depend on its size. To

ensure adequate representation of the diverse interests of society in a successful plan,

it would probably be desirable to have eight to ten such members in a committee of

twenty. Efforts should be made to ensure that the committee’s rules of procedures and

methods of work are conducive to a harmonious environment and productive

outcomes.

NGOs and other non-State actors with expertise in particular areas of social action

will participate in sectoral working groups addressing specific themes of the plan,

whether or not the organizations concerned are represented directly on the

coordinating committee.

The sectoral working groups will themselves play a key role in the consultation

process. They will be an indispensable vehicle for extending the “reach” of the

coordinating committee into specialist organizations and into all regions of the

country and sectors of society. They will make it possible for the coordinating

committee to draw on a wider range of expertise and will significantly enhance the

quality of the plan.

There should also be broader processes of consultation beyond those within the

framework of the coordinating committee and sectoral working groups. These

processes will include:

• Consultation among civil society organizations;

• Consultation between government and civil society organizations;

• Consultation within civil society organizations;

• Face-to-face consultation with members of the public.

For example, an NGO that is represented on the coordinating committee might

arrange meetings with partner NGOs and community-based organizations to discuss

the plan. NGOs might take specific steps to canvass the views of their grassroots

57

members. There might also be consultations between government or the coordinating

committee and a wider group of civil society organizations. It is important that there

should be facilities for public hearings open to a wide spectrum of interested

organizations and individuals so that there are varied opportunities for members of the

public to put their views forward.

7.3 Public meetings and public hearings

Consultations with stakeholders should aim to reach out to people at all levels of

society and in the various regions of the country. Efforts should be made to avoid a

situation in which the plan becomes an exercise focused narrowly on government and

civil society elites.

Public meetings can make a significant contribution to the process of consultation and

to the development of a plan that enjoys broad support. They will be more effective

where they are set up in partnership with civil society organizations, properly

organized and funded adequately. There will be many situations in which it will be

desirable to take the public meetings to the people. For example, many persons

belonging to vulnerable groups may live in areas distant from the capital. Other

members of vulnerable groups may feel greater confidence in the process if public

meetings are held within the framework of their own organizations. In addition, the

general public will accord greater credibility to the process if it is seen to make an

effort to reach out directly to ordinary people. An issue relating to public meetings is

that they require adequate funding to cover travel costs of participants, advertising and

venue hire.

A somewhat different version of the public meeting is the public hearing, in which

members of the public, civil society organizations and government officials can be

invited or required to provide information on relevant issues. Public hearings may be

part of the legal mandate of parliaments, parliamentary committees, national human

rights institutions or other statutory authorities. Such hearings can inquire into issues

in a systematic way, calling for submissions or the appearance of witnesses, analysing

information provided and making recommendations.

Public hearings on human rights themes can be very effective when they are brought

locally to the people. For example, public "speak out" hearings on poverty were

organized in 1998 across South Africa by the Human Rights Commission, the

Commission for Gender Equality and the South African NGO Coalition

(SANGOCO). The hearings gave the poor a unique opportunity to tell their

compelling stories and to be heard directly by decision-makers and the general public.

An important benefit of public meetings and hearings is that they can be the focus for

positive media coverage of the national action plan process. Such coverage will

constitute a potentially significant and cost-free element of the plan’s public

information strategy. The public awareness benefits will probably be particularly

evident in rural and provincial areas.

Members of vulnerable groups or persons who have been victims of human rights

violations may not always feel comfortable expressing their views in public contexts.

If this is the case, those involved in consultations with the public should provide

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facilities for more private exchanges and may even wish to ensure confidentiality in

some situations. It may also be necessary to invite advocates or legal representatives

of the affected people, as appropriate.

7.4 Participation through comment or other contributions

No matter how effective a face-to-face consultation process may be, direct

communication will be possible only with a minority of potentially interested

members of the public. It is therefore important to make provision for dissemination

of information about the plan to a wide spectrum of the interested public and to ensure

that there is a capacity to receive and incorporate comments and submissions from the

public, including from individuals. This should be part of the interactive media

strategy discussed in greater detail in section 10.4.

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8. The development phase of the plan

After initial structures have been established in the preparatory phase, the next step is

substantive development of the plan itself, its content and the mechanisms for

implementation, monitoring and evaluation.

Figure 8 – The development phase

• Frequent meetings of coordinating committee

• Conceptualization of national action plan

• Establishment of secretariat

• Consultation with NGOs and other interested groups

• Public meetings and public hearings

• Preparation of baseline study

• Identification of priorities

• Attention to vulnerable groups

• Issues for special focus

• Linkage with other national planning activities

• Drafting the plan

• Time frames

• Legal status

8.1 Conceptualizing the national action plan

One of the first and most important tasks of the coordinating committee is to develop

a model of the national action plan concept that both draws on international work on

such plans and is adapted to the situation of the country concerned.

Many of those involved in the coordinating committee may be unfamiliar with the

concept of a national human rights action plan. Some of them may also have no

experience in working within the broader human rights system. Nevertheless, the

value of having a broad-based committee that comprises representatives of the wider

community, government organizations responsible for implementing the plan and

human rights experts is that it facilitates the development of a practical synthesis of

ideas to serve as the basis for an effective plan.

The focal agency should prepare the way for the committee’s conceptual discussions

by:

• Providing appropriate background material on national action plans, including this

Handbook, and information on international human rights standards, domestic

norms and the national human rights situation;

• Preparing an options paper that elaborates several scenarios for implementing a

plan that might be suited to the local situation;

• Inviting international experts who have had experience of such conceptual work

and/or the development of national plans in other countries to conduct workshops

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 or seminars with the coordinating committee and other relevant agencies and

organizations (this could be funded through international technical cooperation

programmes).

The concept of the plan should incorporate both international norms and features of

the local situation. In a series of meetings, the coordinating committee should seek to

develop an outline for a plan that is ambitious but realistic and embodies substantive

human rights commitments to be achieved within realistic time frames. This outline

can then be used as the basis for consideration by the government and for consultation

with the community.

8.2 Preparation of a national human rights status report – a baseline

study

8.2.1 General approach to the baseline study

A comprehensive and accurate baseline study is a key element in any systematic

approach to the development of a national action plan. For a country to move forward

towards better observance of human rights, it is important to know where it stands at

present. Many of the national action plans that have been published to date are based

on comprehensive human rights needs assessments that were carried out in some

cases by the United Nations. As a result, some have provided a broad-brush account

of human rights problems that need to be addressed, a statement of current policy and

an overview of what has been or is being done to address these challenges.

It must be acknowledged that such a detailed human rights baseline study may be

perceived as a politically sensitive issue that governments are reluctant to embark

upon. A baseline study will by its nature identify shortcomings, which may imply

organizational responsibility for deficiencies, and this may in turn have negative

implications. However, the willingness of the authorities to undertake a human rights

assessment is itself an indication of the political will necessary for an effective

national action plan process. Moreover, an accurate and frank assessment of pressing

human rights problems is essential to identifying solutions.

A thorough baseline study can, in addition, be a major exercise in itself. A baseline

study that seeks to reach detailed conclusions on the state of observance of all areas of

human rights requires investigation into health care, the education system and many

other areas of service delivery as well as into the administration of justice and the

existence of discriminatory attitudes. Countries frequently carry out studies of matters

of concern, and experience has shown that a comprehensive study of just one issue

can take a considerable amount of time and involve substantial resources. It may be

suggested that, in extreme cases, a detailed baseline study may take years and large

amounts of money to complete.

If the baseline study is unreasonably expensive or prolonged, it may undermine the

whole national plan process. In most cases, the solution is to find a commonsense

approach to the preparation of the study. It is up to individual countries to decide how

they should proceed in the light of their own circumstances, including available

resources.

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Political leaders, public officials, members of civil society organizations and members

of the public will all, to a greater or lesser extent, have an understanding of the nature

of present shortcomings and of what needs to be done. This understanding will be

based on media reports, personal experience, information in the public domain and

existing studies. The baseline study should only seek to confirm and systematize what

is already known. It should be seen as a part of the national action plan process, not as

a process in itself. In particular, it should not be a substitute for specific inquiries into

matters of concern.

Some countries may wish to embark on more detailed assessments of their human

rights situations even if they present some difficulties. Indeed, it is unlikely that

genuine human rights improvements can be achieved without confronting challenging

issues. In some situations in-depth investigations will be required into instances of

serious human rights violations. It is suggested, however, that these should be the

subject of specific investigations and not form part of the baseline study.

While the report should be frank, it need not be long. It should be comprehensive,

covering economic, social and cultural rights and the right to development as well as

civil and political rights. The report should draw on existing studies, where relevant,

such as country reports to United Nations human rights treaty bodies, conclusions by

United Nations treaty bodies and special rapporteurs, existing sectoral reports or

reports by NGOs. It should focus on ways of contributing to the action plan and not

on political advocacy, retrospective ascription of responsibility or inquiry into specific

issues.

8.2.2 Content of the baseline study

There is no single model for such a study, but some elements are generally

appropriate. It should examine the legal framework, institutions for the protection of

human rights and the state of human rights education and awareness. In particular, the

report should identify the main areas in which problems have been encountered in

meeting the country's human rights obligations.

It should focus also on the situation of vulnerable groups and the picture presented by

social indicators. Highlighting major human rights issues that have been identified in

the public arena will enhance the immediacy and relevance of the study.

Legal framework

This should include the international framework, covering the extent to which the

provisions of the Universal Declaration and applicable human rights treaties are

observed as well as the status of the State’s ratification of all major international

human rights treaties. The incorporation of international norms into domestic law

should also be covered and there should be a general survey of domestic law in the

human rights field. Human rights issues will probably be covered in some way in a

country’s constitution and may appear in a variety of contexts in domestic legislation.

It is important for the study to provide some impression of the effectiveness of the

legal framework and the independence and capacity of the judicial system.

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Human rights institutions

The study should survey national institutions for the protection of human rights and

comment on their effectiveness. It should cover not only the national human rights

commission, where there is one, but also other relevant institutions such as those

established to protect the rights of women, children or indigenous people or to

promote human rights education or those that are relevant to other human rights

issues. The study should also address the basic conditions for NGOs to function

effectively.

Figure 9 – The baseline study

Supervision by the national coordinating committee

Consultation with civil society

Drafted by: Covering:

⇒ Secretariat, or ⇒ Legal framework

⇒ National human rights ⇒ Human rights

institution, or institutions

⇒ Parliamentary committee, ⇒ Social indicators

or ⇒ Vulnerable groups

⇒ Human rights expert, or ⇒ Human rights issues

⇒ Other consultant individual ⇒ Other relevant issues

or organization, or

⇒ Consultation with NGOs

Time frame

Two months for drafting Two months for comment

Social indicators

These will provide an important indication of the state of human rights observance,

particularly in relation to economic, social and cultural rights. It is important to

provide disaggregated data, including for race, gender and other criteria, so that the

incidence of discrimination is apparent. Where such indicators and information are

not available, the national action plan may ultimately include plans to collect the

necessary data regularly.

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Vulnerable groups

The study should list groups in society that are regarded as vulnerable or requiring

some form of special attention. It should make an assessment of their human rights

situation.

Human rights issues

It may be useful to list the principal human rights issues that have been identified in

recent times by national inquiries, the parliament, NGOs, the United Nations treaty

bodies and special procedures, and the media.

8.2.3 Drafting and dissemination of the baseline study

There are several possible approaches to drafting the baseline study:

• The coordinating committee may request the secretariat to draft it;

• The committee may commission a suitable individual, group or organization to

undertake the task or constitute a task force of several organizations to do so.

These may include national human rights institutions, parliaments, NGOs, judicial

officials, representatives of international human rights organizations or respected

human rights experts.

• An alternative model is for the baseline study to be the outcome of a consultative

process managed on a cooperative basis between government and civil society. The

exercise can be managed as an activity of the coordinating committee, possibly

with the input of sectoral working groups. If it is properly organized, funded and

prepared, a single meeting over several days, together with written submissions

and some more informal information-gathering activities, can produce the desired

assessment. If this does not accord with local conditions, for example in large or

populous countries, the consultative process may comprise several meetings in

different locations.

Whatever the approach, it is important to ensure adequate consultation before the

study is finalized. Even if it is prepared in association with civil society, it is desirable

to develop a draft for comment by interested groups and members of the public. This

draft should be disseminated to all groups in the consultation process. It should also

be posted on the plan’s web site and should be made available to members of the

public for comment.

There should be clear time frames to ensure that the preparation of the study does not

delay the drafting and launching of the plan. On the basis that the study should not

involve original research and should not be lengthy, a period of two months is

suggested for the preparation of the draft study, with a further two months for

comment. The coordinating committee should, of course, continue with other

activities while the study is under way.

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8.3 Identification of priorities

A human rights action plan covers very broad fields of activity. It is not possible to

overcome all human rights problems immediately. Resources and the need for

education are important constraints. Consequently, judgements have to be made about

priorities. Prioritization is a necessary management tool and is particularly important

in the area of human rights because of the limited resources available in relation to the

amount of work to be undertaken. Moreover, some human rights problems should be

given priority, such as those concerning the right to life, torture and security of the

person. Lastly, prioritization is closely related to the concept of substantive equality.

The promotion of substantive and not only formal equality contributes significantly to

the elimination of discrimination on grounds of race, gender and other criteria that

have been identified in international standards.

Prioritization should be undertaken on a cooperative basis and it should be one of the

prime tasks of the national coordinating committee. The following are some criteria

for high-priority tasks:

• The severity of the problem identified in terms of its human rights impact;

• The cost implications of possible human rights “solutions”, taking into account the

availability of resources;

• The impact of accomplishment of the task on other plan objectives; and

• The extent of public concern over the issue.

For those concerned with human rights improvements, the need for prioritization

presents some dangers. They must be careful to avoid moving from discussion of

priorities to the conclusion that one category of rights needs to be implemented before

others can be realized. Recognition of the need to provide “all human rights for all”,

to move forward in all areas, is essential to any comprehensive approach.

What then should be the priorities? Obviously they will differ from country to country

but they should become clearer as a result of the baseline study process. The plan

should certainly not fail to give proper expression to the most urgent problems

identified in the needs assessment. Usually such problems will draw attention to

themselves. Where there are people whose right to life is at risk, who are living in

pain, fear and insecurity, who are living in misery because their economic, social and

cultural rights are denied, or who suffer discrimination, some at least of the priorities

will become clear. A national plan’s time frames and financial resources should

obviously be designed to give preference to eliminating such serious problems. This

will give rise to some difficult choices for the coordinating committee. In addressing

priorities, it should give explicit attention to time frames - whether short, medium or

long - for achievement of priority goals. This will enhance the plan’s transparency and

promote discussion and purposive action.

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8.4 Vulnerable groups

An important issue in the consideration of priorities is the human rights situation of

vulnerable groups, given the need to incorporate fundamental norms of equality and

non-discrimination effectively in the plan. The human rights problems facing such

groups are often significant in a country’s overall human rights picture. Yet because

of the disadvantaged position of vulnerable groups, they may have a

disproportionately low profile. In determining priorities special attention should be

given to the needs of such groups and a particular effort should be made to bring them

into the process as participants.

Some vulnerable groups are apparent to those working regularly in the human rights

field. Indigenous peoples, ethnic, linguistic or religious minorities, persons with

disabilities and refugees are examples that appear in most of the plans that have been

prepared to date. Women and children are also always mentioned as groups requiring

specific attention, though whether they should be classed as “vulnerable” groups is a

matter for debate. Other groups that may not always spring to mind also demand

serious attention. They include people living with HIV/AIDS, the mentally ill, the

elderly and sexual-orientation minorities.

Vulnerable groups may also be viewed from a slightly different perspective, that is to

say not as organic or cohesive groups but as economic or social groups deserving

special attention. The Philippines plan refers, for example, to the urban poor and rural

workers. Another consideration is that some categories of vulnerable groups are

relevant to some countries and not to others.

8.5 Issues for special focus

It is up to each country to identify the issues on which it wishes to focus. However,

most countries share the need to strengthen the legal and institutional framework for

the protection and promotion of human rights and programmes for human rights

education. For that reason, national action plans often recommend the establishment

of a human rights commission, where one does not already exist.

8.6 Drafting the plan

Each country will have its own practices for drafting a plan such as this. Whatever

approach is adopted, there are some factors that will contribute to the success of the

exercise. First, as outlined in section 8.1, the national coordinating committee should

determine the structure of the plan. This should flow from the initial discussions of the

most appropriate way to incorporate both international norms and features of the local

situation.

Content

Members of the committee will wish to make specific proposals regarding the content.

Many of these proposals will represent the views of the organizations that committee

66

members represent, be they civil society organizations or government agencies. The

committee may also draw, should it so wish, on the guidance in chapter 9 and the

experiences of other countries that have developed plans.

In addition to proposals coming directly from members of the committee, proposals

will also be made by members of the general public, either through the various formal

and informal consultation mechanisms established by the committee or through

written submissions. It will be the responsibility of the committee to decide on how

these public proposals should be incorporated in the plan.

Who should draft?

There are several options as to how the actual drafting of the plan should proceed.

Drafting may be done by:

• The secretariat,

• The various sectoral working groups, whose separate contributions can then be

harmonized by the secretariat;

• External consultants; or

• Government agencies and civil society organizations, who can contribute to

sections of the plan according to their responsibilities.

Whichever approach is chosen, the committee secretariat will have major

responsibility for its implementation. Drafts of work in progress should be referred

regularly to all members of the committee, particularly to give committee members

with specialist expertise an opportunity to contribute input for the text at an early

stage.

Timetable for drafting

There should be a clear timetable for the drafting process. As noted in section 5.6, the

coordinating committee should aim to launch the plan some 12 to 18 months after the

process has begun. Given the need for lead time for drafting to begin, for

consultations and for time to consider the final draft, this will impose a tight schedule

on the drafters and the coordinating committee. If specific interim deadlines and

drafting targets are established, the task will be manageable.

Dissemination and consultations

It is also desirable for the draft plan to be made available publicly, both electronically

and in hard copy, for comment and input. In this way, greater benefit can be drawn

from the views of broader civil society for the development of the plan. Reaching out

to people in this way will enhance the credibility of the final version. Its provisions

will be likely to enjoy more effective support. Releasing the plan in draft form will

also assist in promoting public awareness through the media. In some situations, it

may be necessary to translate the draft into other languages spoken in the country

concerned. As with the original submissions, the committee will have to decide on

how public comment should be incorporated in the final version of the plan. This

could be through media dissemination or other publicity or by one or more meetings

to facilitate consultation.

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There may also be a need for consultation between the committee and government on

the terms of the final version of the plan. As there will have been substantial

government representation on the coordinating committee, its deliberations may be

expected to have proceeded with the government’s full awareness and concurrence.

Sometimes, however, it is only at the point where a final draft is available for

consideration that the government’s full attention is applied to such an issue. It is

vitally important that the final version of the plan enjoys not only the approval of the

government but also its enthusiastic support. Achievement of the plan’s objectives

will require adequate resources, sustained attention and sustained direction from the

highest levels. Thus, it is important that the plan’s text should be placed before

government with a recommendation that it should be the subject of continuing

government support.

8.7 Linkage with other national planning activities

As they reach into most areas of government activity and are not only potentially

beneficial to individuals but may also serve the interests of the nation as a whole,

national human rights action plans are of overarching significance. Viewed

conceptually, the realization of human rights may be seen to incorporate virtually all

government activity in the social and legal areas. While this conceptual approach

should be kept in mind, it should also be accepted that, realistically, linkage will be

seen by government as a matter of coordinating human rights planning with the many

other planning activities that are likely to be under way. It is important for the

coordinating committee to ensure that the national human rights action plan is

consistent with other national plans. Conversely, the committee should seek to ensure

that the plan’s human rights objectives are reflected in other planning activities.

This applies in particular to development. International human rights standards

provide a framework for the effective pursuit of people-centred processes of

development. The national human rights action plan will provide an ideal opportunity

to promote public participation and to ensure the centrality of all human rights in the

development process.

In addition to broad national plans, such as those relating to development, protection

of children or elimination of discrimination against women, government social policy

will usually be expressed in terms of objectives within some kind of plan, even if it is

not given a public profile. For example, the health authorities of a particular country

may plan to improve the availability of preventive health care or reduce the incidence

of particular diseases. These plans may, however, be largely internal to the

government agencies concerned. Nevertheless, it is on the content and implementation

of these other plans that actual progress towards the achievement of human rights

objectives will ultimately depend. It will be important for the coordinating committee

to ensure that national human rights action plan goals are reflected in the State’s

social planning objectives, regardless of the format for expressing these objectives.

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Figure 10 – Linkages between national plans

Development

Human

Women Children

rights

Human Rights

Education

8.8 Time frames

Time frames enter into the national action plan process in two ways. One is the time

frame for the plan as a whole; the other is the timing for each of its individual

components.

Overall time frame

The time frames for national action plans to date have ranged from two, three, five or

ten years to an indefinite period. As the aim in national action planning is to promote

a more systematic approach to human rights policy and to provide a stimulus to

action, it is desirable to propose specific time frames in a plan for the achievement of

its objectives. There should also be a time frame for the plan as a whole so that

government and civil society have a global frame of reference for assessing the plan’s

achievements and shortcomings.

For the overall time frame, the plan should allow enough time for the necessary

administrative, resource, educational and infrastructure measures to be put in place for

some of the objectives to be achieved. The time frame should not therefore be too

short. Equally, the time frame should not be so long that a sense of continuity or

overall perspective is difficult to maintain. A period of five years is often chosen for

economic plans and this also seems reasonable for a national human rights action

plan. It may be useful to link the time frame for the human rights action plan

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explicitly to the time frame for economic development plans. Individual countries

may have differing views on this. The key issue is to ensure that there is a time frame,

so that those involved have a deadline to structure their activities and to facilitate

monitoring and final evaluation.

Time frames for implementation of specific activities

Wherever possible, specific activities proposed in the plan should also have specific

time frames. Only where such targets exist will those charged with the

implementation of the plan have a clear structure to work in and a basis for

monitoring the plan’s achievements. These time frames should be realistic. Where

objectives are expressed in general terms (referred to elsewhere as “goals”) or are

clearly long term, it may be desirable to propose interim or contributory objectives

with more specific timings.

One example of the use of specific time frames is the national plan of Indonesia. The

plan as a whole has a five-year time frame, after which it is to be reviewed and

renewed. For specific objectives relating to the ratification of international human

rights instruments, the plan sets a schedule of progressive ratifications over the five-

year life of the plan. This provides a clear target for the government agencies

responsible for these steps. It also makes evaluation of progress, in this area at least,

quite straightforward.

The time frames should be an integral part of the plan, in other words set out in the

plan document rather than being left for separate action.

8.9 Legal status

An issue that has formed part of some countries’ consideration of national plans is

whether or not the plan should enjoy legal status. What is or is not possible in this

area will depend very much on the legal traditions and policies of the countries

concerned. However, there are a number of advantages to be gained from moving in

this direction, including:

• Action to provide some form of legal status would tend to promote broader

political support for the plan;

• It would be an important symbol of the commitment of the nation to the promotion

and protection of human rights;

• It would encourage civil society and promote a more cooperative relationship with

government;

• Action by the legislature would have the substantive benefit of strengthening the

commitment of officials to the task.

If legislation is the desired path, the coordinating committee should manage the

processes aimed at giving effect to such a decision. Enacting legislation can often be a

difficult and lengthy process and appropriate steps will probably have to be pursued

with some vigour. It may be a complex task to draft an instrument or instruments that

convey the content of the plan, while at the same time maintaining an appropriate

relationship with other national legislation. Obviously the government will have to

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give strong support to such a proposal, but it is also desirable to arrange consultations

with other political parties in the parliament to ensure the widest possible support.

An easier path may be to incorporate the plan in a government or presidential decree.

Depending on the country concerned, this will probably have different legal force

from legislation as such. It will go beyond endorsement by the head of State or

government, which is envisaged in any case as essential to the process of developing

and implementing the plan.

A third approach in this area is to seek parliamentary endorsement of the plan rather

than specific legislation. Once again this goes beyond endorsement by relevant

political leaders in public statements, since it involves a specific parliamentary debate

and an act of endorsement of the plan. Such a step is easier in legal terms than

enacting legislation to give effect to the plan. If possible, it is desirable for the

coordinating committee to propose such a step, as it would give a substantive stimulus

to effective implementation of the plan.

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9. Content and structure of the plan

9.1 General issues

Determining and expressing the content of the plan are probably the most important

parts of the national action plan process. Other elements such as consultation and

implementation are of course also important, but it is the content that embodies the

government’s commitment to take action and that provides the basis for

implementation. Moreover, the commitments described will constitute benchmarks by

which the degree of success is measured.

The plan should have a clear, systematic and logical structure. This will facilitate its

acceptance and understanding by the general public, its incorporation in the planning

of specific implementing agencies and the process of monitoring and evaluation.

9.2 Principles and objectives

All countries share a common ultimate goal – broadly, “all human rights for all” – but

the path to that goal, in practical terms, will be different for each country. Thus,

different national action plans will contain common elements, in terms of broad

principles and structure, but each will differ in terms of specifics. A national action

plan must be tailored to the circumstances of the country concerned and each country

will thus have a different starting point. But wherever that starting point may be, each

country should formulate concrete measures to enable it to move forward in human

rights terms.

Principles expressed as mission statements

The process of developing a national action plan will benefit from consideration of its

conceptual origins and of the general purposes it is intended to serve. Many existing

plans have included, in their introductory sections, statements about broad purposes

and conceptual issues. Sometimes these are described as “mission statements”. Such

considered statements constitute a useful orientation for those working on the plan as

well as providing guidance to the general public. Many statements emphasize the

importance of a commitment to international human rights standards both as a source

of inspiration and as specific guidance for action.

Broad objectives

When considering the drafting of a national action plan, the objectives outlined in

chapter 2 may be grouped into three distinct areas:

• Achievement of genuine and substantive improvements in the observance of

human rights;

• Promotion of greater awareness of human rights, both in the general public and in

specific sectors; and

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• Promotion of coordination of human rights activity among diverse government

agencies and non-governmental organizations.

It is important to develop awareness of all human rights, including economic, social

and cultural rights, among those working in diverse and relevant fields. Coordination

is also important. But the overarching objective of the plan is to bring about tangible

improvements in observance of all categories of human rights.

From this point of view, it is important for those involved in the development and

implementation of the plan to prevent it from being limited to a public relations

exercise. For example, there may be a temptation simply to include ongoing

programmes in relevant areas and to re-label them as human rights programmes.

While this may entail some benefit, as it may promote awareness of human rights and

a rights-based approach to social and development programming, if it is the only or

the main content of the plan in the area concerned, it will fall well short of what might

be achieved using the mechanism of a national action plan.

Hence a desirable general approach is to set out broad principles but also to include

particular and achievable targets. It will then be possible to demonstrate progress and

to ensure that the effort that has gone into the national planning process has been

worthwhile.

9.3 Scope of the plan

In keeping with the indivisibility of human rights, the plan should be broad in scope.

At the same time, consideration should be given to how detailed the plan can or

should be in some areas. This is particularly relevant to economic, social and cultural

rights, although it is also a consideration in other areas. Many of the issues covered by

the plan will represent a human rights orientation for activities that are an ongoing

part of a government’s normal programmes. In areas where substantive activity is

already taking place, care will be needed to focus on the substantive benefit of the

plan. The coordinating committee should clarify what the plan adds to work already

under way. If it does little more than reformulate objectives and programmes already

in existence, it runs the risk of adding to administrative and reporting workloads and

undermining official support. In many areas, it will be better to emphasize raising

awareness of the human rights dimensions of a particular issue among those

responsible for implementing relevant programmes rather than attempting to provide a

human rights version of most areas of government activity.

In addition to more traditional issues such as civil rights within the legal system and

discrimination, the plan should also address issues that have appeared more recently

on the human rights agenda, such as trafficking in women and child pornography on

the Internet. The plan should take account of information technology issues that affect

human rights, both positively by enhancing the dissemination of human rights

information and negatively by providing a medium for exploitation, for example with

regard to children.

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9.4 Format

Consideration should also be given to the format of the plan as a document. It will be

aimed at practitioners – politicians, public officials and civil society organizations – as

well as the general public. It should therefore be a document that inspires and

encourages users. It should provide practical guidance but should not be too lengthy.

Consideration should be given to a layout that is clear and easy to understand.

Some of the countries that have adopted plans have found it useful to work on the

basis of a set of headings applicable to each area considered, which give a clear

indication of the current state of affairs and proposals for change. Such headings may

include:

• International obligations and national legislation;

• What has been done to date;

• Present situation (drawing on the baseline study);

• Proposed action within various time frames – short, medium and long;

• Institutional responsibility for the proposed action and identification of resources;

• Monitoring and evaluation.

It is important to make clear the commitment of government to the achievement of the

plan’s objectives. Directions from the head of State or government should be

specifically included. To ensure that it can serve as a working document, it may be

useful to include relevant contact details of key organizations in each sector. This will

enable civil society organizations and the general public to become engaged more

readily in implementation of the plan. It may also serve to foster a better partnership

between government and civil society. The document should also include appropriate

references to international human rights norms and national legislation.

9.5 Targets and benchmarks

To be realistic, targets should be reasonably precise and achievable within reasonable

time frames. Judgement will be required to decide in which areas and in what terms

targets should be defined. In some areas, for example the administration of justice,

establishment of human rights coordination committees, ratification of international

standards and human rights education, it is desirable to include detailed targets in the

plan itself. In the case of economic, social and cultural rights, the plan may include

broad targets, such as reducing rates of illiteracy, mortality, morbidity or

homelessness, increasing school retention rates and improving nutrition. However, in

line with the view expressed in the previous section, it us probably not desirable to

attempt a plan that prescribes detailed activities in all areas of social policy, for

example extending into areas such as education and health. A preferable approach will

often be for individual implementing agencies to incorporate more general human

rights objectives of the national plan into their own separate planning documents as

higher-level targets, ensuring consistency with their own objectives. It will be for the

specific agency to decide how their normal programmes should be pursued or

adjusted in order to implement these human rights objectives.

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Figure 11 – Suggestions for the structure of a national action plan

Goal Objective Activity Relevant Completion Performance

agency Target date indicator

1. Promote broad 1. Raise 1. Produce and arrange dissemination of a series of Insert Insert target Completion of

public awareness awareness of radio and television programmes on the human rights names of dates for proposed

of human rights the human of vulnerable groups in society relevant completion activities

rights needs 2. Commission and publish an expert report on human agencies Surveys

of vulnerable rights needs of vulnerable groups indicating

groups in 3. Public statements by leading political figures on raised public

society human rights needs of vulnerable groups awareness

2. Raise 1. Distribute information kits on instruments to Insert Insert target Completion of

public educational institutions, NGOs, government names of dates for proposed

awareness of departments relevant completion activities

international 2. Conduct seminars for relevant government agencies Surveys

human rights officials, including police and armed forces indicating

instruments 3. Publicize reports to and comments of treaty bodies raised public

4. Organize media events, e.g. on International awareness

Human Rights Day

2. Extend 1. Ratify 1. Engage in relevant consultations Deposit of

implementation international 2. Take necessary administrative and legal steps instruments of

of international instruments 3. Publicize action ratification

standards

2. Withdraw 1. Engage in relevant consultations Advice to

reservations 2. Take necessary administrative and legal steps United Nations

3. Publicize action of withdrawal

of reservations

3. Enact 1. Engage in relevant consultations Enactment of

implementing 2. Take necessary administrative and legal steps legislation

legislation 3. Publicize action

75

Goals

Those involved in developing the plan will often wish to express more general or

aspirational goals, probably couched in more imprecise terms. The use of such general

formulations need not be a problem so long as they are incorporated in a systematic

framework. For example (using the methodology followed in some development

assistance programming), the broadest objectives of the plan might be described as

goals. They might be expressed in terms such as “to promote broad public awareness

of human rights” or “to strengthen the capacity of national human rights institutions”.

Expressed in this way, they would not lend themselves to detailed analysis but serve

the purpose of giving a clear indication of the government’s intentions. Such general

goals should be few in number. A lengthy list risks drowning the plan in vague (and

often too familiar) rhetorical flourishes.

Objectives

At the next subordinate level, the plan may outline more specific targets as objectives.

These should not simply be a rewording of the goals but should set out conditions

providing evidence that the goals are being achieved. For example, pursuing the

public awareness theme, an objective might be “to disseminate awareness of the

human rights needs of vulnerable groups in society”. This greater level of specificity

will serve the important purpose of facilitating more effective monitoring and

evaluation.

Activities and performance indicators

The next subordinate level may comprise a list of the various activities proposed as

the substantive content of the plan. These are the specific actions that the government

concerned commits itself to undertake. An activity corresponding to the example

given above might be “to produce and arrange dissemination of a series of radio and

television programmes on the human rights of vulnerable groups in society”.

Completion of the various activities would represent achievement of the objectives set

out at higher levels in the plan. Looking at the logical character of the plan, these

actions may be incorporated as specific performance indicators, which will lend

themselves to more effective implementation and monitoring. It is extremely

important for the performance indicators to be clear and fully understood by all who

need to work with them. It will usually be better if they are simple and precise. It is

also important for the coordinating committee and the relevant implementing agency

or agencies to agree that the performance indicators represent the standard that will be

used to evaluate whether or not the agreed objectives have been achieved.

It is probably better not to include an objective in the plan unless there is a genuine

willingness to move towards its achievement and some reasonable prospect of

success. The inclusion of targets for rhetorical reasons is likely only to undermine the

whole planning process and, by diminishing the plan’s credibility, to render less likely

the achievement of other more realistic goals.

While the preparation of the plan is not intended to become a mechanical exercise, the

process may become clearer if, in addition to the narrative text, the plan is prepared in

a tabular format that sets out the interrelationship between its various elements. Such

76

a table might incorporate goals, objectives, activities, the agency or agencies

responsible for carrying out each activity, the timetable for each activity and a

description of the performance indicators that may be used to determine whether the

activity has been carried out according to plan. Whether or not the published

document is in tabular form, such a table may be useful as an “in-house” document

for those responsible for developing, implementing and monitoring the plan.

9.6 Responsibility for implementation

The plan should specify which agencies are responsible for implementing the various

activities provided for in the document. This should extend to implementing partners

such as civil society organizations. It should also extend, where appropriate, to

provincial or local government agencies that have ultimate responsibility in certain

areas. This issue is addressed in greater detail in sections 10.1 and 10.2.

9.7 Suggestions for the plan’s content

The following outline is not prescriptive. The circumstances of each country will

differ but users of the Handbook should consider drawing on each of the proposed

areas to the greatest extent consistent with the situation in their country. Moreover, the

proposals in the outline are not exhaustive. There will probably be other elements

appropriate to individual countries that should be proposed for action within the plan.

For more detailed guidance on the possible content of a national action plan, users of

the Handbook are referred to the plans that have already been developed by various

countries (see chapter 4).

9.7.1 International and national legal frameworks

Suggested national action plan content:

Commitments:

• Ratification of United Nations or other international human rights

instruments, including an outline of specific steps that the State will take to

achieve this objective;

• Overcoming any delays that impede the State’s compliance with its reporting

obligations, including the establishment of time frames;

• Withdrawal of any reservations the State has entered to international human

rights instruments;

• Accession to optional protocols to human rights treaties, including complaint

procedures;

• Incorporation of international human rights standards in domestic law and

practice, including appropriate research and implementation steps.

For over fifty years, the international human rights legal system has provided

inspiration and guidance to all peoples and countries as they work to improve the

observance of human rights. The effective operation of the international system and

the widest possible engagement in it are fundamental objectives. Accordingly, the

77

international community has set as a target the universal ratification of international

human rights instruments, most prominently in the Vienna Declaration and

Programme of Action.15 An obligation common to all the major treaties is the

submission of reports to the various committees. Most States find it difficult to meet

this obligation in a timely way. To enhance the effectiveness of the treaty system, it is

important for States to seek to improve their performance in this area.

By their nature, reservations to human rights instruments limit the application and

hence the effectiveness of these instruments. Encouraging the limitation or removal of

such reservations is therefore another objective of the international community.16

Several international instruments have optional protocols, including complaint

procedures that serve to define the application of the treaties to individuals, their

ultimate beneficiaries. The United Nations General Assembly has regularly

encouraged States to consider accepting these optional protocols.

9.7.2 Economic, social and cultural rights

Suggested national action plan content:

● Commitment to take legislative and administrative measures to entrench the

recognition and observance of economic, social and cultural rights;

● Commitment to effective means of redress for violations of economic, social and

cultural rights;

• Elaboration of benchmarks for the realization of economic, social and cultural

rights in line with the country’s human rights obligations and development of

specific programmes to achieve associated targets in areas such as:

• The right to an adequate standard of living, including nutrition and housing;
• The right to health;
• The right to education;
• The right to social security;
• The right to take part in cultural life;
• The right to work;
• The right to just and favourable conditions of work and to form and join trade

unions;

• Elimination of discrimination in the observance of economic, social and cultural

rights;

• Development of mechanisms to monitor on a regular basis the observance or non-

observance of economic, social and cultural rights;

• Conduct of public inquiries into systemic problems in the areas of economic, social

and cultural rights;

• Proposal of programmes of awareness of economic, social and cultural rights both

for relevant officials and workers and for the general public;

• Promotion of research and debate on economic, social and cultural rights.

This Handbook has emphasized the need for a comprehensive approach in any

national action plan. In particular, the plan should be based on the universality and

indivisibility of human rights. There are various possible ways of reflecting this broad

15

Vienna Declaration and Programme of Action, Part I, para. 26, and Part II, para. 4.

16

Vienna Declaration and Programme of Action, Part II, para. 5.

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scope in the plan. An important corollary of the breadth of human rights principles is

that they apply to most areas of human activity and hence government programmes.

Attracting attention to the importance of economic, social and cultural rights has

proved difficult. Much government activity focuses on the economic, social and

cultural sectors but the extent to which activity in these areas has a human rights

dimension is not well understood by many practitioners. The key point is that

recognition of rights in the economic, social and cultural area requires policy-makers

and service providers to move away from the traditional welfare approach. The

framework in which they work should no longer be based on what a government is

prepared to provide within existing budgets and policy settings but on the entitlements

of rights-holders. This should provide a stimulus to intensified action.

If, for example, a government seeks to eliminate inequalities between ethnic groups

in, say, the rate of infant mortality, it will start with the recognition that the

disadvantaged group has the right to outcomes no worse than for the community as a

whole. The reduction of the infant mortality rate to a certain level will then become

one of the benchmarks for the observance of human rights in this area.

This Handbook earlier discussed the important practical question of how far a national

action plan should go in specifying actions aimed at promoting economic, social and

cultural rights. One option would be for a national human rights action plan to provide

for detailed activities across the whole range of economic, social and cultural issues.

This Handbook takes the view that such a broad approach could present difficulties. It

will not be possible for the national human rights action plan to take on the full

functions of social planning in all relevant areas. Most of those involved in the

national plan process will have neither the expertise nor the mandate to undertake

such a task, which would inevitably lead to duplication and possible inefficiency. If

the plan consists of no more than a recitation of existing programmes, it will devalue

the national action plan process by failing to provide any value additional to that

already existing in the various programmes.

It is suggested that the plan should focus on promoting legislation, redress,

benchmarks, monitoring and greater awareness and understanding of economic, social

and cultural rights. It should also focus on synergistic linkages with programmes of

agencies with responsibilities in the economic, social and cultural areas. The plan

should involve such agencies in the planning process so that their programme targets

promote observance of economic, social and cultural rights.

Awareness-raising programmes should aim at alerting officials, parliamentarians,

community workers, academics, the media and the general public to the fact that

action in these areas is part of the effort to improve observance of human rights. Such

programmes should both be specific to this area and form part of general human rights

education activities. The awareness-raising effort should also encompass research.

Work that has taken place within the framework of the United Nations, including the

contributions of the Committee on Economic, Social and Cultural Rights, will be

invaluable in promoting this better understanding.

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9.7.3 Civil and political rights

Suggested national action plan content:

• Commitment to enact legislation protecting civil and political rights, including

legislation addressing issues such as violence against women and exploitation of

children;

• Legal reform with a view to bringing the criminal procedure code and other key

legislative acts into conformity with the relevant human rights treaties;

• Proposed measures aimed at strengthening the independence of the judiciary;

• Proposed training on human rights issues for the judiciary, police, correctional

services workers and security authorities;

• Provision of adequate resources to ensure that the court system and the general

administration of justice operate effectively, that police operations are able to give

full attention to the rights of citizens and that correctional institutions are better

able to observe the rights of detainees;

• Establishment of standing monitoring mechanisms (such as a prison inspectorate)

and commissions of inquiry where needed to investigate and formulate

recommendations on specific issues;

• Abolition or limitation of the death penalty;

• Establishment of operational policies and guidelines for the judiciary, police,

correctional service workers and security authorities that ensure actions are in

accordance with internationally recognized human rights standards;

• Steps to strengthen the electoral system to ensure it provides for genuine periodic

elections in accordance with international human rights standards and

international best practice;

• Establishment of effective mechanisms aimed at the eradication of impunity,

including grievance procedures in relation to public administration and effective

measures of redress for violations of human rights;

• Steps to promote freedom of information, particularly access to State-owned

broadcasting media;

• Steps to promote freedom of religion;

• Establishment or strengthening of provisions for legal aid.

National action plans should focus on administration of justice issues, which are often

the source of serious human rights problems, particularly for minorities. This involves

improving the protection and promotion of the human rights of persons coming into

contact with the police, the courts and prisons. Legal reform is another area that is

often of relevance to civil and political rights, as many legislative acts may never have

been brought into conformity with the applicable international human rights

obligations of the government. Sometimes acceptance of a human rights treaty may

require new definitions in the law (such as “torture”, as defined under article 4 of the

Convention against Torture and Other Cruel, Inhuman or Degrading Treatment or

Punishment); the criminalization of certain acts (such as incitement to racial hatred or

violence, as required by article 4 of the International Convention on the Elimination

of All Forms of Racial Discrimination); or the setting of minimum standards (such as

a minimum age for marriage, as required under article 16 of the Convention on the

Elimination of All Forms of Discrimination against Women).

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9.7.4 Particular groups/vulnerable groups

Suggested national action plan content:

• Indication of legislation or administrative action aimed at improving observance of

the human rights of groups such as:

9 Women

9 Children

9 Indigenous peoples

9 Racial, ethnic, religious, linguistic and other minorities

9 Persons living in extreme poverty

9 Persons with disabilities

9 Persons living with HIV/AIDS

9 Older persons

9 The mentally ill

9 Refugees and asylum-seekers

9 Migrant workers

• Indication of steps to prevent discrimination

National human rights action plans should promote broad national goals such as

national integration, elimination of inequalities and poverty alleviation. If substantive

equality is to be achieved, it will be necessary to develop programmes targeted at the

needs of specific groups, including vulnerable groups, who may not benefit from legal

and other measures providing for formal equality. Most of the plans that have been

developed to date have laid emphasis on special measures directed towards promoting

and protecting the rights of such groups.

9.7.5 Collective rights

Suggested national action plan content:

• Promotion of research and debate on collective rights;

• Coverage of collective rights in human rights education programmes;

• Promotion of awareness of the right to development among government national

planning or development assistance agencies;

• Promotion of consideration of the right to development and human rights issues in

international forums dealing with economic issues;

• Development of policies that integrate human rights into the development process;

• Strengthening of the ability of indigenous and minority peoples to maintain and

develop their distinct identities and to make decisions on matters affecting them;

• Protection of indigenous and minority peoples from policies destructive of their

economies and cultures;

• Facilitating the establishment by indigenous and minority peoples of their own

political and social institutions.

Collective rights or solidarity rights often provide a framework within which other

rights can flourish. References to measures aimed at strengthening the autonomy of

indigenous and minority groups are not intended to be inconsistent with fundamental

81

principles of the Charter of the United Nations,17 particularly in relation to national

unity.

9.7.6 National institutions

Suggested national action plan content:

• Commitment to establishing national human rights institutions (NHRIs - such as a

human rights commission or ombudsman) in conformity with the “Paris

Principles”;18

• Commitment to expanding or strengthening the mandate of an existing national

institution;

• Commitment to increasing resources available to an NHRI, particularly where it is

given additional functions relating to the implementation of the national action

plan.

National human rights institutions, particularly human rights commissions, can play

an extremely important role in promoting and protecting human rights within a

country. A strong national human rights action plan should therefore provide for the

establishment of a national human rights institution or, where such an institution has

already been established, for its strengthening through expansion of its mandate and

an increase in the resources available to it. Where the NHRI has a role in the

implementation of the plan that goes beyond its normal functions, additional resources

should be provided to enable it to carry out this task effectively.

9.7.7 Human rights education

Suggested national action plan content:

• Commitment to a comprehensive programme of human rights education using the

guidance provided in the United Nations Guidelines for National Plans of Action

for Human Rights Education;

• Human rights training for police, prisons officials, judges, magistrates and

lawyers;

• Development of human rights curricula at all educational levels (primary,

secondary and tertiary);

• Public information and awareness campaigns.

17

Vienna Declaration and Programme of Action, following the Declaration on Principles of

International Law concerning Friendly Relations and Cooperation among States in accordance

with the Charter of the United Nations, provides that reference to self-determination “shall not

be construed as authorizing or encouraging any action which would dismember or impair,

totally or in part, the territorial integrity or political unity of sovereign and independent States

conducting themselves in compliance with the principle of equal rights and self-determination

of peoples and thus possessed of a Government representing the whole people belonging to

the territory without distinction of any kind”.

18

The “Paris Principles” is the name commonly given to the Principles relating to the Status

of National Institutions, which were the outcome of an international workshop held in Paris in

October 1991. They were subsequently endorsed by the General Assembly in its resolution

48/134 of 20 December 1993 (http://www.unhchr.ch/html/menu6/2/fs19.htm#annex).

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Human rights education is the fundamental instrument through which a culture of

human rights may be developed. Such a culture can change underlying attitudes,

strengthen respect for human rights norms and form the basis for the observance of

human rights in the long term. The United Nations Decade for Human Rights

Education was proclaimed in 1994 and runs until 2004. OHCHR developed a Plan of

Action for the Decade19 in 1996. According to paragraph 11 of the Plan of Action:

Governments should play an active role in the implementation of the

programme of the Decade through the development of national plans of action

for human rights education.

In cooperation with UNESCO, OHCHR has already developed Guidelines for

National Plans of Action for Human Rights Education20 which include a set of

principles for effective human rights education and a step-by-step strategy to develop

national plans in this area. The Guidelines set out:

• The objectives of human rights education plans;

• Suggestions as to the structure and functions of the national committee established

to develop, implement and evaluate the national plan;

• Provisions for a baseline study:

• Priority-setting;

• Suggestions for developing and implementing the plan:

• Recommendations on how the plan should be evaluated.

9.7.8 Civil society

Suggested national action plan content:

• Proposed legal and administrative measures aimed at facilitating the activities of

non-governmental organizations;

• Commitment to implementing the provisions of the “Declaration on Human Rights

Defenders”;21

• Commitment to involving civil society representatives in implementation and

monitoring of the plan.

Virtually all actors in the field of human rights, governmental and non-governmental

bodies alike, have accepted that the active involvement of civil society in measures to

promote and protect human rights is essential. The plan should therefore propose

ways in which this involvement can be fostered.

19

United Nations document A/51/506/Add.1.

20

United Nations documents A/52/469/Add.1 and Add.1/Corr.1. These may be found in the

OHCHR publication The United Nations Decade for Human Rights Education 1995 – 2004:

Lessons for Life, Geneva, 1998.

21

Declaration on the Right and Responsibility of Individuals Groups and Organs of Society to

Promote and Protect Universally Recognized Human Rights and Fundamental Freedoms,

General Assembly resolution 53/144 of 9 December 1998. This document can be accessed on

the OHCHR web site (www.ohchr.org) under “Treaties”, then “Human Rights Defenders”.

83

9.7.9 International action

Suggested national action plan content:

• Proposed measures to strengthen cooperation with regional and international

human rights organizations;

• Proposed measures of cooperation with other countries on human rights matters,

including comparing experience in the implementation of national action plans;

• Submission of overdue reports to the United Nations treaty monitoring bodies;

• Active follow-up to the conclusions and recommendations of the treaty bodies;

• Measures to make reports submitted to the treaty bodies available to the general

public;

• Increased cooperation with Special Rapporteurs of the United Nations

Commission on Human Rights;

• As applicable, steps to follow up the conclusions and recommendations of Special

Rapporteurs;

• Where appropriate, drawing on international funding and technical assistance for

the implementation of national action plan components;

• Where appropriate and requested, provision of funding and technical assistance

for the promotion and protection of human rights in other countries.

Human rights activities have developed as an important area of international

cooperation. The United Nations and other international and regional bodies carry out

programmes in the area of monitoring, standard-setting, technical assistance and

research. The international focus on human rights issues has facilitated the promotion

and protection of human rights in individual countries, which have drawn inspiration

and received technical guidance from the work of the international community. Any

country seeking to improve its human rights performance should consider how it can

contribute to international human rights work. Such efforts will assist in promoting

human rights elsewhere and enable interested countries to benefit from the

experience, technical assistance and resources of others. Countries with development

assistance programmes should include the promotion of human rights as an important

element in the programmes. National human rights action plans can serve the very

useful purpose of providing a framework for the development and implementation of

assistance programmes. Countries whose own resources are limited may wish to enter

into arrangements to receive technical assistance from others. This has been done by a

number of countries that have established national action plans to date. In some cases,

they have designated specific plan activities as particularly appropriate for

implementation with international assistance. Others have simply expressed a more

general interest in receiving assistance for their implementation.

9.7.10 Proposed monitoring and evaluation mechanisms

The plan should provide for its own monitoring and evaluation mechanisms to

emphasize the seriousness of the enterprise. More detail is provided in chapters 11

and 12. An important part of the monitoring and evaluation process is the

establishment of time frames both for the plan as a whole and for individual activities.

The plan should also outline how the monitoring and evaluation process might be

carried out. It will probably not be necessary to go into detail because it is not always

possible to foresee at the outset the best methods of conducting the monitoring or

84

evaluation process at a later stage. Details of the evaluation mechanism can be worked

out towards the end of the plan. The important thing at this stage is make an explicit

commitment to monitoring and evaluation.

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PART III: IMPLEMENTATION, MONITORING AND EVALUATION

OF A NATIONAL ACTION PLAN

10. Implementation of the plan

10.1 Implementing mechanisms

If the plan has been developed on the basis of realistic objectives, clear targets, broad

scope and inclusive participation, it will be much easier to ensure effective

implementation. Nevertheless, implementation should not be left to look after itself.

Good work done in the developmental phase must be systematically carried through

to the implementation phase. The coordinating committee set up to manage the

development of the plan should not necessarily be disbanded when the plan is

launched. Rather, it may be maintained and given responsibility for monitoring

implementation. This chapter describes the full range of possible functions that can be

carried out by a coordinating committee in such a case.

Agency implementation mechanisms

How implementation proceeds will vary from country to country. If commitment has

been secured during the development of the plan from the various government

agencies responsible for different sectoral activities, each of those agencies is likely to

set up its own implementation mechanisms that can be expected to operate effectively.

This will be extremely helpful for the overall process. However, rather than leaving it

entirely up to individual agencies to devise their own implementation mechanisms,

the coordinating committee may propose a coordinated structure that takes account

both of the individual approaches of the agencies and the need for consistency on the

part of all those involved in the plan. This should, of course, be done in consultation

with the agencies concerned.

Agency reports

As part of this coordinated approach, it is desirable for each of the implementing

agencies to provide progressive reports on their activity. The coordinating committee

should meet on a periodic basis to review these reports and to monitor how the

activities of the various implementing agencies compare with the commitments

provided for in the plan. Where there are gaps, the coordinating committee should

draw this to the attention of the agencies responsible so that an extra effort can be

made to meet the original objectives of the plan. It will be easier to take such action

effectively if the committee is broad-based and its chairperson is able to exercise

effective influence. The monitoring and evaluation process is discussed in greater

detail in the next chapter.

Provincial and local government responsibilities

86

Responsibility for implementing the plan is likely to be spread over several levels of

government, particularly if a country has a federal constitutional arrangement. In

some cases, provincial or local governments will have substantial responsibilities, for

example in the areas of administration of justice, policing, health, education, housing

and so on. Special attention will have to be given to ensuring that these subordinate

levels of government are part of the coordination process. Central government

agencies responsible for specific areas of the plan should assume responsibility for

briefing and consulting provincial or local government agencies. The coordinating

committee should also consider arranging seminars, briefing sessions or some other

form of direct communication with such agencies to ensure that those with grassroots

responsibilities are fully engaged in the national action plan process.

10.2 Implementing partners

Government agencies have primary responsibility for implementation of the plan,

which will thus assign responsibility for implementing various activities to ministries

or departments of justice, foreign affairs, defence, education, health and so on.

Discussions about which agencies are responsible for what should form part of the

process of developing the plan. It is important for the plan to make explicit reference

to the various institutional responsibilities so that it is clear to the agencies themselves

as well as to stakeholders and the general public.

The concept of implementing partners should extend beyond the government agencies

with responsibility for implementing various sections of the plan. The range of issues

to be covered by a plan is so wide and the need for broad participation and

involvement so great that the approach to implementation must be an innovative and

inclusive one. Thus, the coordinating committee and its secretariat, as well as the

various government agencies responsible for the plan, should identify other potential

partners who may be interested and capable of furthering its objectives.

For example, in the area of human rights education, partnerships may be developed

with professional associations of teachers, authors and publishers of textbooks and

other materials, Internet search engines and service providers, and media personalities

and organizations. In the area of administration of justice, partnerships may be

developed with professional associations of jurists, police and security personnel,

social workers and community organizations. There may also be scope for developing

partnerships with international bodies such as United Nations agencies. In all areas,

the plan should give consideration to establishing productive partnerships with

relevant NGOs, trade unions, business corporations and philanthropic foundations.

Implementing partners may become involved in a wide range of activities such as:

• Development of projects in cooperation with the police, the judiciary, prison

officials and legal aid organizations aimed at the protection of the rights of persons

who are arrested or in detention;

• Funding of projects aimed at improving the health status or employment chances of

vulnerable people by business corporations or philanthropic foundations;

• Promotion of awareness of the human rights aspects of issues such as HIV/AIDS,

child labour or trafficking in women by the media and prominent personalities;

87

• Promotion of awareness of labour rights by trade unions and employers.

If the basic processes of government administration are enhanced through supportive

activities involving a wide range of organizations and individuals, the implementation

of the plan is likely to produce a greater impact. Such implementing partners are

likely to be closer to various constituencies in society such as local communities,

women, youth, labour, the professions and business. Tapping into contemporary styles

of communication is likely to give the plan greater immediacy and relevance, to

promote stronger support for its objectives and to contribute to its effectiveness.

10.3 Launching the plan

This Handbook has emphasized the importance of high-level political endorsement of

the plan. Government leaders often initiate the plan to ensure that their endorsement

forms an intrinsic part of the process. Even where the plan has its origins at the

working level of government administration, the involvement and endorsement of

government leaders are crucial for its ultimate effectiveness.

Where this level of endorsement is part of the process, the launching of the plan will

naturally prove more effective. A strong launch will make all relevant actors aware of

the plan and its main elements, particularly their impact on specific sectors charged

with its implementation. The general public will also be more aware of the plan if

there is a high-profile launch.

While the specific features of the launch of the plan will depend on the traditions and

mores of the country concerned, every effort should be made to give it the maximum

impact. Whatever the approach, the launch should be a noticeable media event. It is

desirable to involve the head of State or government and relevant ministers as well as

representatives of other political parties and other tiers of government. It may also be

advantageous to hold the launch on a date that is otherwise significant. Several plans

have been associated with international Human Rights Day, 10 December.

To emphasize its people-centred orientation, the event should involve representatives

of various vulnerable or target groups such as children, youth, persons with

disabilities, indigenous people and others. Care should be taken to ensure that such

participation is managed on a meaningful basis and is not perceived as mere tokenism.

The relevance of international mechanisms may be emphasized through the

participation of representatives of the United Nations or other international or regional

organizations. The involvement of implementing partners as outlined above can also

enhance the impact of the launch, particularly if media personalities are involved.

To manage the launch effectively, government will have to allocate reasonable

resources.

10.4 Media and dissemination strategy

If the plan is to be effective, it is crucial that all relevant actors as well as the general

public are aware of it and give it their support. To promote this awareness, the plan

should be based on a two-pronged approach. First, there should be effective

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mechanisms for communication and information dissemination within the core

structures set up to develop and implement the plan. Second, there should be effective

media and public dissemination strategies going beyond the core structures to

reinforce the message of the plan, to target audiences and to spread awareness among

the general public.

10.4.1 Communication among core agencies and organizations

In setting up links between government agencies, political organizations, NGOs,

security authorities, community organizations, national human rights institutions and

others as part of the development stage of the plan, the coordinating committee needs

to ensure that there are clear and effective means of communicating relevant

information. This also requires a dual approach. One aspect is to ensure that the

committee has effective means pf communicating with those involved in the plan

process. The other is to ensure that the participating organizations have internal

communication channels so that information is disseminated to all relevant staff.

The coordinating committee should have an information disseminating capacity that

goes beyond the mere generation of letters and memoranda. To assume its primary

responsibility of communicating with agencies and organizations participating in the

plan’s development and implementation, the committee should be able to produce

leaflets, brochures and regular newsletters and to provide seminars and workshops for

relevant personnel. The committee’s secretariat should preferably include staff who

have media skills. In addition, the committee should have the capacity to provide

training programmes that serve to disseminate awareness of the plan.

With regard to the internal communication channels of participating agencies and

organizations, there should be a coordinated effort to ensure that each of them is able

to disseminate information effectively to its staff. This is particularly important in the

case of large organizations such as security agencies and those involved in the health

and education systems. The secretariat should have the capacity to provide some

assistance, for example by conducting train-the-trainer seminars for key personnel of

relevant agencies. While the secretariat should be able to respond to requests for

assistance, it should do so on the basis that training in human rights is part of the core

business of the agencies concerned. In this way, the costs of training and information

dissemination will be borne by these agencies as part of their normal programmes,

thus ensuring that human rights training is carried forward effectively into the future.

10.4.2 A media strategy

The coordinating committee will set up channels and mechanisms of communication

as part of the process of development and implementation of the plan as it affects the

core agencies and organizations. Beyond this, the committee should have a media

strategy to assist in the effective dissemination of the national action plan and in the

marshalling of support. The media strategy should enhance but not replace the basic

channels of communication. An effective media programme can greatly expand the

possibilities for promoting awareness of the plan by disseminating information widely

and in a cost-effective manner. Having specialist media personnel on the secretariat to

implement the plan’s media programme will enhance the quality of the “in-house”

information dissemination programme and ensure more cost-effective use of print and

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other materials. Of course, the media situation will vary from country to country and

the suggestions here will probably have to be adapted to local circumstances.

Figure 12 – National action plan media strategy

Identify • Inform sectoral groups and general public about the

objectives plan; encourage effective implementation

• Inform the public about their rights and about relevant

institutions

• Highlight important issues

Obtain • Additional funding from government

resources • Recruitment or secondment of staff with media skills

• Use of existing media units in participating

organizations, particularly the focal agency

Identify • Potential beneficiaries

target • Key sectors for the promotion and protection of

groups human rights

• The general public

• The international community

Draw up • National coordinating committee, working through

strategy the secretariat and with the assistance of

implementing partners, particularly those with media

skills

Implement • Publications – leaflets, brochures, posters, etc.

activities • Interactive web site, including updating and

maintenance

• Dissemination of print and audio-visual materials

• Media activities:

− Establishment of good relations

− Backgrounding

− Media releases

− Media conferences

− Interviews

− Developing appropriate events and ensuring

media coverage

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It is desirable for the coordinating committee to give attention, from early in the

process of developing the plan, to how best to approach making effective use of the

media. It can consider recruiting relevant personnel or making optimum use of

existing media promotion units, for example in the focal agency responsible for

managing the plan. The committee should draw up a specific media strategy and

implement and monitor it in the same way as it does for other areas of the plan.

The media strategy will serve:

• To inform sectoral groups and the general public about the national action plan and

to encourage them, as appropriate, to implement it or to influence government and

those with responsibility for implementing it;

• To inform people about what their human rights are, what the government is doing

to promote and protect their human rights and how they can take action themselves

to advance human rights observance;

• To inform people about institutions that exist to promote and protect human rights

within the country;

• To highlight important national human rights issues.

10.4.3 Target groups

The media strategy should identify its target audiences. There are probably four target

groups in relation to national action plans:

• The potential beneficiaries of advances in human rights observance. While in a

broad sense this will include the whole of society, the primary targets from the

point of view of a media strategy comprise vulnerable groups and those whose

rights are actually or potentially under threat;

• Those who have a key role to play in protecting and promoting human rights –

judicial and security officials, politicians, teachers and others;

• The general public who, even if their rights are not immediately under threat, will

draw satisfaction from the awareness that a national plan is in place that will

enhance the security and well-being of all their fellow-citizens;

• The international community, both as a potential source of technical cooperation

and as part of the international environment that interacts with the country in

question.

10.4.4 Media activities

The media strategy may include:

• Establishing good relations with the media;

• Media backgrounding, through both print and other media;

• Media releases;

• Media conferences;

• Interviews;

• Media coverage of events associated with the plan;

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• Development of events specifically targeted at the media;

• Preparation and dissemination of print materials;

• Development of audio-visual materials.

An innovative and flexible approach will promote more effective implementation of

the media strategy. Events that are novel or present “human interest” perspectives are

likely to be more interesting both to the media and to the general public. Wherever

possible, the media programme should involve partners from the community, NGOs,

the professions, labour and business to enhance the immediacy and relevance of

media messages. Efforts should be made to encourage the media to use material

related to the plan to prepare documentary as well as news programmes.

10.4.5 Dissemination activities

Section 10.4.1 outlined issues relating to communication among those who are part of

the core group of agencies and organizations involved in developing and

implementing the plan. Hopefully these will represent a wide cross-section of society

and thus serve to disseminate information widely. In addition to this and to the use of

the media, however, the secretariat should have the capacity to disseminate

information more widely to the general public. Brochures, leaflets and posters can be

produced and distributed through government agencies and non-governmental

organizations to their clients or sent directly to schools, community organizations and

members of the public on request.

Beyond this, the dissemination programme should seek to make the best possible use

of modern information technology. What can be done will vary from country to

country depending on the resources available, the information technology

environment and the size and complexity of the country.

If feasible, there is much to be gained from having an interactive Internet web site that

provides in electronic form all the information materials that are available in print and

also gives the general public an opportunity to communicate their views on the plan

and its implementation. The web site may be linked to other sites such as those of

relevant government agencies, the national human rights institution or ombudsman’s

office, OHCHR, regional human rights organizations and major human rights NGOs.

The extent to which a web site can be used will depend on the resources available. It

will be necessary to develop and update the site, to design interactive pages and to

monitor and respond to contacts from users. If usage is heavy, there will probably be a

need for staff dedicated solely to web-site operations. If it is not possible to establish

an interactive web site, the coordinating committee should at least ensure that basic

documentation on the plan is available electronically to those who request it.

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10.5 Use of the plan in human rights education

Human rights practitioners are aware that education is the key to the long-term

improvement of human rights observance. Reference has been made22 to the United

Nations Guidelines for National Plans of Action for Human Rights Education. These

were developed separately from present work on general plans of action but obviously

should be associated with, if not integrated into, the general plan. Many human rights

education materials that were developed in all regions of the world have been

catalogued by OHCHR and are listed in a Database on Human Rights Education that

is accessible from the home page of the OHCHR web site.

Despite its importance, education presents some major challenges for the promotion

of human rights. National education systems often involve very large bureaucracies

and long-term planning. Preparation of materials on a large scale can be a costly

process. It may therefore be difficult to accommodate changes or new ideas unless

they are part of larger changes, which often take place only infrequently. Owing to

these complications, human rights education sometimes focuses on less central areas

of education such as the media and promotional events. This is inevitably less cost-

effective than introducing human rights into core curricula and reduces the long-term

impact of educational efforts. These considerations should be borne in mind in

implementing national plans of action for human rights education as well as in

implementing specific human rights education activities in the general national plan.

The national plan itself should be an element in human rights education programmes.

Building on general human rights education, material on the national plan will impart

greater immediacy to approaches to the application of human rights standards in the

country concerned. As the national plan process is a continuing one, with one plan

leading into another, the national plan can be a consistent theme of human rights

education rather than a single event, and lends itself to the continuing development of

educational curricula. To supplement core information and values, materials produced

as part of the plan’s media and dissemination programmes will add to the

effectiveness of the education programme. Print materials should be disseminated

among schools as a matter of course. Audio-visual materials can be used to enliven

human rights learning and contemporary students will possess the computer skills

needed to make use of Internet web sites.

Education efforts should, of course, extend beyond the formal school and university

systems. The plan should include steps to ensure that information about its content

and about human rights are included, where possible and appropriate, in vocational

education and training programmes. Dissemination of printed and other information

should not simply involve the physical movement of materials but should form part of

a strategy for the effective use of such materials in education and public awareness

programmes of all kinds. Work with the potential implementing partners mentioned in

section 10.2 is particularly relevant in this context.

22

See chapter 2 and section 9.7.7.

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11. Monitoring

A national human rights action plan should be approached in much the same way as

any other government programme. It should thus contain objectives, strategies,

programmes of implementation, resource provisions and mechanisms for evaluation.

One of the main concerns of a national plan is to move human rights activity from the

realm of idealism and rhetoric into the realm of practice and routine. This is not to

argue that idealism and inspiring rhetoric have no place in human rights promotion:

quite the contrary. But so long as human rights are regarded as a field in which results

are produced by methods outside normal government processes, such processes will

not be effectively used to promote and protect human rights. Human rights will tend

to be left in the hands of those who do not have the means to bring about human rights

improvements directly. As the Bolivian plan states,

“[Human rights objectives] must … become a permanent component of ...

state policy.”

An essential component of any programme of organizational action is a regular and

dispassionate process of evaluation. Experience in many areas has demonstrated that

activity without objectives and evaluation tends to be both ineffective and self-

perpetuating. Stating of objectives amounts to little more than rhetoric if they are not

accompanied by a process of evaluating the activities aimed at implementing them.

Most contemporary organizations, in both the public and private sectors, are aware of

these potential problems. Many seek to ensure that their programmes are productive

by developing detailed implementing plans, including targets, and providing for

regular monitoring. Where necessary, plans or activities are revised in the light of the

monitoring and evaluation process.

There is a need to evaluate both ongoing plan processes and the plan as a whole. In

this Handbook, “monitoring” refers to the ongoing process of assessing the

effectiveness of the plan, while “evaluation” refers to its overall assessment and the

results achieved.

Reference is made below to the national coordinating committee as the body

responsible for monitoring implementation. However, experience has shown that it

may be more appropriate and cost-effective to entrust this function to other pre-

existing bodies such as a human rights commission, an inter-ministerial committee or

a ministry responsible for human rights.

11.1 Monitoring and reporting techniques and mechanisms

From the point at which a national action plan is proposed and developed, all players

should accept that monitoring and evaluation mechanisms must be incorporated in the

plan as an essential component.

The national coordinating committee or other designated follow-up body should be

the primary mechanism for maintaining an effective monitoring process. A prototype

of such a process will emerge at the development stage of the plan, as implementing

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agencies establish contacts through the committee to present their various proposals

for action. The committee should formalize these processes and maintain them

throughout the implementation stage of the programme.

Effective evaluation

The reporting processes will be based on the objectives and targets that make up the

plan and the assignment of responsibilities to various agencies and organizations for

achieving them. To facilitate effective evaluation, it will be necessary to develop a

standardized reporting format. This will set out the goals, objectives, target dates and

performance indicators and seek succinct information from the relevant agency or

organization on how it has implemented activities aimed at fulfilling them during the

period in question. In order to evaluate whether or not a particular activity has been

implemented successfully, it will be necessary to have a complete understanding of its

objective. This underscores the importance of taking time when drafting the plan to

establish clear and realistic performance indicators. The tabular approach suggested in

section 9.5 is probably particularly useful in this regard.

Monitoring and reporting mechanisms

The core process of monitoring will flow from meetings of the coordinating

committee at which it examines the situation in each of the plan’s areas of activity.

Each country will develop mechanisms that suit its own situation, but it may be useful

to hold a major evaluation session on an annual basis, with a simplified evaluation

every six months. At this time, each of the agencies and organizations responsible for

implementing sections of the plan will provide a report to the committee in the form

of a statement setting out the relevant objective, the performance indicator, what the

implementing agencies have done to achieve the objective and how their activity

satisfies the performance indicator agreed at the beginning of the process. If the

performance indicator, and hence the particular objective, was not met, the report

should state this frankly and include an assessment of why it was not met and what

should be done. The reports should be collated and presented at a meeting or meetings

of the committee specifically dedicated to monitoring. The whole process should be

systematic and all those involved should fully understand and accept it well in

advance. The monitoring process should continue throughout the life of the plan.

The whole approach should aim to be economical in terms of resources and time so

that the reporting process does not become unwieldy or sink under its own weight. If

it is too cumbersome in terms of either the preparation or the evaluation of reports,

there will be a disincentive to all concerned to maintain it effectively. For this reason,

the reports should not exceed more than a few pages.

The outcome of the evaluation should also be systematized, with the committee

advising each agency promptly of its views on its performance and, for example,

requesting special attention to be given to specific areas and the provision of

additional information as appropriate. The process should seek to advance

achievement of the plan’s targets on the basis of dialogue and agreed action.

Where the results of certain activities are at variance with the targets, there will be a

requirement for additional action. If the evaluation process demonstrates that targets

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have been achieved or exceeded, the coordinating committee and relevant agencies

should highlight this in the plan’s media and information dissemination programmes.

In this way, the value of the plan will be more widely accepted and support will

increase. Where targets are not achieved, the approach should be a realistic one.

Recriminations should be avoided and steps taken to establish the reason for the

shortcomings. Reasons may include unrealistic time frames, inadequate resources,

insufficient political support or organizational inadequacies. It may be considered

with hindsight that the original targets were excessively vague or inherently

unattainable. Whatever the assessment of the reasons for shortcomings, both the

coordinating committee and the agency concerned should develop proposals to deal

with them.

Some organizations may not feel comfortable with what amounts to an external

evaluation of its human rights performance. In any exchanges on the subject it should

be borne in mind that the evaluation concerns only what the organization itself freely

agreed to aim at in the plan. Nevertheless, some coordinating committees may

experience difficulties in ensuring that the process of evaluation leads to sufficient

attention to areas where shortcomings are identified. This underscores the value of

having as chairperson of the committee an individual who has the necessary personal

qualities and standing to take up difficult issues with heads of organizations and

political leaders.

Informal evaluation

In addition to this more formal approach, which will constitute the central monitoring

vehicle, all those involved should scrutinize the effectiveness of the plan as it unfolds

and should not hesitate to take action where shortcomings are apparent.

Key figures such as the chairperson and members of the coordinating committee or

the focal agency will acquire a good understanding, through their involvement in the

plan’s implementation, of the successes and shortcomings of the process. Their

insights should form part of the dialogue aimed at improving the plan’s

implementation.

In addition to formal processes of evaluation, a multiplicity of activities and events

will contribute to an understanding of the success of the plan. Individual agencies will

provide information through their own ongoing evaluation and reporting systems. In

an open society, NGOs, community organizations, the media, political organizations

and others will not hesitate to draw attention to any shortcomings in the plan’s

implementation. Such informal evaluations should be accepted in an open-minded

spirit, without recourse to a combative defensiveness.

Revising plans before completion

As a plan proceeds, modifications will probably be required in at least some areas.

Where objectives have not been achieved, some adjustment to proposed activities will

be needed such as the application of more resources, changes in working methods,

revision of timetables or perhaps amendment of objectives. As suggested above, this

will be the responsibility of the coordinating committee. The committee should be

careful not to allow a situation to arise in which implementation falls short of the

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plan’s objectives but no compensatory action is taken. This would naturally tend to

undermine public confidence in the national action plan process.

Where objectives and proposed activities have to be modified in response to the

evaluation process or for other reasons, the coordinating committee should take steps

to ensure that the changes are properly documented. As the original plan will have

attracted official and media attention and will have been widely disseminated, any

subsequent changes should be disseminated by the coordinating committee, at least to

practitioners and organizations in relevant areas. They should also be incorporated in

the coordinating committee’s media and dissemination programmes.

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12. Evaluation and successor plans

12.1 Evaluation issues

This Handbook has recommended that a specific time frame should be set for the plan

as a whole. Although it will vary according to the situation and institutions of the

country concerned, we have suggested that a period of five years may be appropriate.

Whatever the period, it is desirable to conduct a more substantial and independent

evaluation of the plan as a whole. The purpose of this evaluation is to determine the

degree of success of the plan in terms of achievements measured against objectives. It

will serve to justify the expenditure of the resources allocated to the plan. Beyond this

more programmatic justification, the evaluation will represent an important report to

the government, the human rights community and the general public on the plan’s

outcomes. It will also be useful to other countries, which stand to gain from the

experience of countries that have had plans in place for some time. This applies both

to countries that have already initiated national plans and to those that are

contemplating doing so.

An important point to decide is who should undertake the overall evaluation. The

coordinating committee (or any other monitoring body designated for the purpose)

will naturally wish to evaluate the programme for which it has had responsibility for a

number of years. There is also a strong argument, however, for an external evaluation.

As the plan will have been largely developed and managed by the coordinating

committee, it may be difficult for the committee to maintain a rigorous and credible

independent approach. Thus, while care should be taken not to undermine the

committee’s work, it may be worthwhile commissioning an external evaluation, since

it would be likely to add substantially to the credibility of both the plan itself and the

broader action plan process. If an external evaluation is undertaken, it is probably

desirable to have a small committee chaired by a senior independent expert but

including, say, two other members, one representing government agencies and the

other non-governmental organizations.

For the overall assessment, the same basic approach should be adopted as for other

evaluations, namely assessing achievements against stated objectives and targets. At

this level, however, it is also desirable to address the broader mission and goals of the

plan. An important aspect of the overall review will be any recommendations made

for further work on human rights protection and promotion, particularly a successor

national action plan.

As with the annual and semi-annual reviews, every effort should be made to keep the

process succinct. At the same time, the overall review should be treated as a

significant aspect of the plan. The final review should be issued as a public document

for the government, interested agencies and organizations, and the general public.

With regard to timing, the final overall evaluation should be set in motion well before

the formal end of the plan period. Thus, if the plan is due to expire at the end of a

calendar year, it will probably be found useful to commence the review by the middle

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of the year. It may even be desirable to begin earlier if the findings and

recommendations are to be part of a successor plan.

An effective monitoring process will require the allocation of some resources for

personnel and for the publication and dissemination of the final report.

12.2 Initiation of successor plans

This Handbook has recommended that the initial national action plan should lead to a

series of successor plans. In this way, work on human rights will be conducted in a

manner similar to that of other areas of government activity, with a comparably

serious approach to the allocation of resources and to accountability. As one national

human rights action plan draws to an end, another will take its place, just as with

economic plans.

The successor plan will be based to a considerable degree on the overall evaluation of

the previous plan. Without detracting from the independence of the evaluation

process, the conclusion of one plan and the elaboration of the next should therefore be

integrated as far as possible. The evaluation will feed into the development of the next

plan by identifying areas where further action needs to be taken.

The process of developing a successor plan should be similar to that for the original

plan. With structures and procedures already in place, a successor plan will be easier

to develop. However, a special effort will be needed to ensure that the new plan has a

similar impact and attracts similar attention. While the aim should be to bring human

rights work into the mainstream of government activity, any suggestion of over-

familiarity and staleness should be avoided by ensuring that, as before, the process of

developing and implementing the plan includes the full range of human rights NGOs,

community organizations, national institutions and other non-governmental actors.

The successor plan should involve government to the same extent as the original. It

should be launched with a similar impact, supported by similar media and

dissemination programmes, and implemented with the same energy.

In this way, the process of renewing the national action plan should itself reinvigorate

the commitment of all stakeholders to the promotion of human rights and enhance the

dissemination of information about human rights.

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13. Resources

The success of the plan will depend to a considerable extent on the availability of

resources to support its activities. Providing such resources should be regarded as an

investment in social progress. Achievement of the plan’s objectives will yield a

genuine and valuable return. In a good plan, the objectives will reflect important

societal values. Protecting and promoting human rights, whether in the area of

personal security, the administration of justice, prevention of discrimination or the

provision of education or health services, will advance the interests of the State and its

people in the same way as activity aimed at promoting economic growth or military

security.

The provision of reasonable resources will thus be seen as a good indication of a

government’s commitment to the plan and its human rights objectives. A failure to

provide reasonable resources will raise questions about the government’s seriousness

and about the credibility of the plan.

Of course, governments everywhere are seeking to restrain expenditures, while

demands on national budgets are heavy. Securing adequate resources in this climate

will not be easy. The approach of the coordinating committee should thus combine

rigorous economy, strict accountability, cost-effectiveness and innovation. Resource

requirements should be analysed carefully. They should be seen as comprising human

and institutional resources as well as financial resources. This may open the way to

more productive methods of supplementing resources available to the plan, by giving

attention to options additional to the provision of financial support,

13.1 Funding issues and strategies

Funds are required in two broad areas of the plan’s operations. One relates to the costs

of developing and disseminating the plan and monitoring its implementation. The

other relates to the implementation itself. The difference between the two is that the

former is new expenditure resulting from the decision to institute a plan and relates to

the costs of the coordinating committee, the secretariat, consultations, information

materials and so on. These can be called development and monitoring costs.

The second area of expenditure covers programme activities of relevant agencies.

These can be called programme implementation costs. As they are normal

programme activities of the agencies concerned, the agencies’ regular budgets should

provide the necessary funds. The funds should not come out of the government’s

allocation for management of the plan. It may well be that some programme activities

involve new expenditure in the sense that funding for these specific purposes has not

been allocated in the past. However, the appropriate approach should be that agencies

ought to have funded these activities in the past, in that they are of core importance to

the agencies concerned, but that they have simply been overlooked or neglected.

Where funding has to be found from within an agency’s budget, there will be a need

for prioritization, compromise and reallocation of resources to ensure that the

agency’s overall objectives are met.

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The following are a range of activities falling within the development and monitoring

areas of the plan that are likely to require funding or resource allocation, together with

comments on how the various funding requirements may be addressed. (The issue of

funding assistance through programmes of technical assistance is discussed below in

section 13.3.)

Preliminary consultations with relevant agencies and organizations

• These should probably be conducted by staff of the focal agency. It is therefore

preferable to view the use of this staff as a core activity of the agency concerned

and to include the expenses involved in the agency’s normal budget. Travel costs

may be incurred when staff visit different parts of the country to speak to relevant

groups, for example at public meetings, as well as venue hire costs and other

expenses associated with the holding of public meetings. These costs will be

supplementary to those budgeted for by the agency in the absence of a plan, but it

is desirable to finance such activities from within its normal budget.

• Some costs may be incurred by NGOs participating in consultations. It is suggested

that they should generally be borne by the organizations concerned, partly because

government funding of NGO core advocacy functions may tend to undermine the

NGO’s independence.

• An exception to this general rule may arise in the case of the initial national

consultative meeting to elaborate the concept of the national action plan and to fill

out the details of the plan development process. It may be desirable for the

government to finance the expenses of those invited to participate. However, if a

less structured approach to participation is adopted, such financing may not be

appropriate.

Establishment of the national coordinating committee

• Resources will be required to cover the travel costs of committee members and the

costs of meeting venues, secretariat services at meetings and, possibly, honoraria.

The costs will depend on the size of the committee and how often it meets. In the

developmental phase it will need to meet more often, while during the

implementation and monitoring phase it may meet only every six months. The

funds required for the committee will be additional to any previously existing

budgets. However, most countries have experience of establishing autonomous

committees for specific purposes and funding precedents are also likely to exist.

• Key office-holders of the committee may find themselves working more or less full

time. Office space and associated facilities may be needed. These requirements

may be categorized as expenses of the secretariat.

Establishment of a secretariat

• A small secretariat will be required to support the coordinating committee and to

manage activities relating to the national plan between committee meetings.

Resources will be required for purposes such as office space, office equipment,

communications, travel and so on. Major tasks for the secretariat may include

responsibility for drafting the baseline study and probably the plan itself. If the

baseline study or other activities are subcontracted by the secretariat to others, for

example consultants, funds will be needed to cover the additional costs.

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• As noted in section 5.6, core staff of the secretariat may be provided by the focal

agency on a secondment basis, while ancillary staff may be provided by other

organizations. We suggest that, to avoid adding to the cost of the secretariat, the

additional staff should also be seconded from their organizations. In some cases,

however, this may not be possible owing to a lack of resources. The government

may therefore consider the desirability of funding the attachment to the secretariat

of a small number of appropriate staff.

• No specific number is suggested for the staff of the secretariat. However, there is

usually no need for a large secretariat, regardless of the national situation,. One

factor that will influence its size is the extent of its involvement in media work and

information dissemination.

• As noted in section 5.6, the intensity of secretariat activity - and hence resource

requirements - will vary over the life of the plan.

Developmental phase

• The period of consultations with the community will probably require some travel

within the country by committee members and the secretariat, entailing

corresponding costs. Consultative forums and public meetings may require

additional funds for venue hire, advertising and other related costs. Provision will

have to be made for appropriate funding.

• The drafting, production and dissemination of information material will also

require some additional funding. The secretariat can probably undertake most of

this work, but there may be a need for professional involvement in presentation and

formatting of materials and the design and development of a web site. If relevant

skills are not available within the secretariat, the work will need to be

subcontracted to consultants. Printing and dissemination of materials will also

require resources.

• It may also be necessary to fund research, including public opinion surveys to

assist in developing baseline data for use in subsequent monitoring of the

effectiveness of the plan.

• If possible, additional costs may be minimized by using the facilities of the focal

agency. While there are still unavoidable real costs in the use of in-house

resources, such an approach promotes economies of scale and relieves the

secretariat of the task of establishing an independent public affairs unit.

• Similarly, it may be possible to draw on the focal agency’s media relations

capacities. There will probably still be a need for a person with media skills in the

secretariat, but the opportunity to access an established unit’s expertise and

equipment will greatly facilitate the secretariat’s work and promote economies.

• Production and dissemination of information materials and media relations work

will continue, on a reduced scale, during the implementation and

monitoring/evaluation phases.

Implementation phase

• The cost of implementing the various activities provided for in the plan should

largely be borne by the implementing agencies, on the grounds that the plan’s

activities constitute part of the core business of the agency concerned. The role of

the national committee and the secretariat at this stage should be confined to

102

 promoting awareness of the plan, monitoring its implementation and evaluating its

outcomes. Crucial to the success of the plan will be the ability of those involved in

its promotion to persuade relevant agencies that achieving human rights objectives

forms an integral part of their mission and to provide for adequate funding.

Monitoring and evaluation phase

• Activities at this stage focus on meetings of and travel by members of the

coordinating committee and secretariat personnel. Only towards the end of the plan

period, when the overall review of the plan is undertaken, will there be an increase

in the intensity of activity and a requirement for a somewhat higher level of

resources. If an external evaluation of the plan’s effectiveness is to be

commissioned, additional funding will be required to cover the travel and

consultancy costs, fees and other expenses of evaluators.

13.2 Institutional partnerships

This Handbook has drawn attention several times to the desirability of the government

(through its focal agency) entering into innovative partnerships with other

organizations. This is particularly important when considering how to mobilize

resources. It is increasingly accepted in public administration that governments have

neither the resources nor the expertise to deal with every aspect of social policy. In

many cases, it will be better for the government to set broad policies, in consultation

with other actors, and then to establish partnerships to maximize funding

opportunities and utilization of available expertise.

As far as funding is concerned, the primary partnership will be between the

coordinating committee and focal agency, on the one hand, and the various

government agencies that have responsibility for implementing the plan, on the other.

If the plan is to be successful, the implementing agencies must incorporate funding of

the various plan commitments in their own budgeting processes. This is perhaps the

central issue in the whole plan process, the acknowledgement that human rights

objectives are core activities across most areas of government administration.

Partnerships with other bodies may also be helpful in funding the development,

dissemination and evaluation of the plan:

• A key area of partnership will be with civil society organizations, which have the

capacity both to implement some areas of the plan’s activities, for example

education and dissemination of information, and to contribute to the work of the

coordinating committee and the secretariat;

• Private philanthropic or funding organizations may assist in funding specific

projects;

• It is worth exploring corporate sponsorship, for example of the production and

dissemination of information materials;

• In some cases, private organizations may be in a position to fund aspects of the

secretariat’s expenses, for example the acquisition of computer hardware or office

equipment;

• Media organizations may decide to make documentary video or radio programmes

on the plan, thereby moderating media strategy costs;

103

• Other levels of government may also be able to contribute to resource

requirements. For example, local governments may provide venues and local

transport for the consultation process.

13.3 International assistance

Some countries that have already instituted national action plans have employed

development assistance funding to meet some resource requirements. Other countries

contemplating the development of national plans will probably also wish to consider

external funding assistance. This is in keeping with recent trends, as both donors and

recipient governments increasingly see human rights as an appropriate area for

international cooperation of this kind. Potential donors include international

development agencies such as those within the United Nations family, donor

governments and private foundations.

A major advantage of the national action plan process is that it provides a systematic

framework for the integration of specific areas of activity into a coherent whole. The

plan identifies objectives, time frames and projected outcomes. It can assist donors

and recipients alike in developing specific technical cooperation projects. An example

is the Indonesian plan, which:

“welcomes bilateral, regional and international cooperation in strengthening

its national capacity to implement the programme to promote and protect

human rights, in the spirit of international cooperation as enshrined in the

United Nations Charter and on the basis of principles of mutual respect and

equality among nations.”

Footnotes to lists of the various activities provided for in the plan indicate which may

require technical cooperation. They include, in particular, training activities.

The Malawian plan takes a similar approach, emphasizing:

“the importance of international assistance and cooperation aimed at

supporting the democratic transition in Malawi and strengthening national

capacity to promote and protect human rights.”

The Malawian plan outlines various areas in which international assistance will be

sought. Other national plans have used technical assistance for the production and

dissemination of information materials.

National action plans can also be a vehicle for donor government commitments. The

Australian plan states that Australia will:

“continue to assist other countries to strengthen their national human rights

infrastructure as well as developing promotional and educational activities

aimed at ensuring that human rights are enjoyed by everyone.”

If the plan is developed in a systematic way, it will become clear which areas are

likely to experience resource shortfalls and which may lend themselves to external

assistance. As experience to date has suggested, areas in which such assistance may

104

be particularly appropriate include training and the production and dissemination of

information and educational materials. There may also be a need for technical advice

in the development of national plans themselves.

It is not desirable for the whole of a national action plan to be funded externally. A

key consideration is to bring human rights activity within the normal range of

government action. Thus, even if a government has only limited resources at its

disposal, some of these resources should be allocated to achievement of the plan’s

objectives. A corollary is that limited resources need not prevent a government from

developing a national action plan.

105

14. Regional and international partnerships

Human rights activity at the national level cannot be separated from human rights

activity at the international level. The Charter of the United Nations states that human

rights are of international concern, while international human rights norms provide the

basis for standards and legislation at the national level. Whether the aim is to combat

racial discrimination, to promote the rights of indigenous peoples, to elaborate the

right to development or to promote human rights education, the stimulus comes from

international activity.

National action plans fit into this picture. As national plans, they must focus on

activity taking place at the national level. However, the concept of national action

plans originated at the international level (see chapter 2) and international meetings

have been held to develop the concept. It makes sense for those working on action

plans at the national level to have an international orientation so that they can both

gain from international experience and enable others to learn from theirs. In addition,

expertise and resources available at the international level can be accessed in this way.

The international dimension has already been discussed at a number of points in this

Handbook. Some international aspects of national action plans are summarized below.

14.1 Sharing experience

Each country that has developed a national action plan has the potential to provide

useful guidance to other countries embarking on the same path. The range of

countries, situations and cultures is so vast that a country that is developing a national

action plan needs a variety of examples to draw on as a source of guidance for its

work. Thus, every new plan that is put in place will expand the range of examples

available. A new plan may well contain features that have not been addressed

elsewhere and this may be useful to countries facing similar issues.

As part of this process of sharing, it will be possible to cut across traditional

boundaries of donors and recipients of technical assistance. As most countries that

have developed national action plans to date have been developing countries, much of

the existing expertise is located in the developing world. As a result, where

consideration is being given to funding and provision of expert advice under technical

cooperation programmes, the expertise will be drawn largely from developing

countries. Such a role for representatives of developing countries is likely to

contribute helpfully to a more balanced, vigorous and constructive international

debate.

As this Handbook has suggested, a national action plan is not a single event but

should be a continuing process. This makes the sharing of experience even more

important, as every country that has a plan will wish to review its approach in the light

of what may be described as best international practice. In this way, successor plans

will benefit not only from the experience of the country concerned in implementing its

first plan but also from the accumulated experience of all countries that have been

working with national plans.

106

14.2 Regional and international workshops

Some of the sharing of experience will take place in regional and international

workshops devoted wholly or in part to consideration of national action plans. Such

meetings have already taken place in New Delhi, Bangkok, Dakar and Quito, and

further meetings are planned. Those who participated in these meetings included not

only representatives of countries that had instituted national plans but also

representatives of governments, OHCHR and other United Nations bodies, national

human rights institutions and NGOs. Such workshops play an important role in

spreading awareness internationally of the national action plan concept, in sharing

experience and in identifying best practice. The workshops have, in turn, developed

useful suggestions regarding the possible structure and content of national plans and

how further work on the idea might be managed. Countries that have developed

national plans should stand ready to contribute to such workshops.

14.3 The United Nations

Work on national plans has flowed from and been sustained by activity at the United

Nations. This will continue as more and more countries consider national plans as a

vehicle for human rights improvements and look to the world body and its affiliates

for guidance and assistance. Countries that have experience with national plans can

contribute in various ways to United Nations expertise on the subject. They can

provide information on their own plans to OHCHR, both the texts of the plans and

information on evaluations and revisions. They can participate in debates on the issue,

for example at the annual sessions of the Commission on Human Rights, and provide

input to relevant resolutions of the Commission and other human rights bodies that

address national human rights action plans. The mechanism of national plans can thus

be carried forward in a consistent and cooperative way so that the widest possible

number of countries, organizations and individuals can benefit from the concept.

14.4 Technical cooperation and OHCHR

The Office of the United Nations High Commissioner for Human Rights has provided

advice and other assistance for the development of several of the national human

rights action plans that have been adopted so far. The assistance may have been

provided under a larger comprehensive national technical cooperation project or as a

focused single activity. In a number of cases, the assistance was provided through the

“Human Rights Strengthening” (HURIST) joint OHCHR/UNDP programme (see

http://www.unhchr.ch/development/hurist.html). Lessons learned from those plans

will be made public on the OHCHR web site and in due course incorporated in a

revision of this Handbook.

An independent review of the HURIST programme’s first two years of operation –

published in August 2001 (http://www.ohchr.org/development/huristreview.doc) –

raised a question regarding the compatibility of national human rights action plans

with the imperative of “mainstreaming” human rights as a cross-cutting concern

within national-level development policy and planning activities. This concern is

reflected in the introductory section of this Handbook (section 1.3) and elaborated in

107

section 8.7. However, OHCHR’s policy position is that there is no fundamental

inconsistency between action plans and the “mainstreaming” imperative. Experience

in the development and implementation of national action plans to date is helping to

provide a clearer picture of the conditions likely to make national action plans

effective. Apart from political commitment and the various “process” and “content”

factors discussed earlier, the value and practical impact of human rights action plans

will be maximized to the extent that the plans and their coordinating committees can

function as effective vehicles for the integration of human rights into national-level

development planning frameworks and “mainstream” policy sectors.

This Handbook will be revised in the light of further accumulated experience.

Information, advice and assistance in the development of national human rights

actions will continue to be made available by OHCHR on request.

108

來源 PDF: 7366-國家人權行動計畫手冊.pdf

聯合國人權事務高級專員辦公室

專業訓練系列 NO. 10

國家人權行動計畫手冊

聯合國

紐約與日內瓦

八月 29 日 2002

 註記

本手冊中使用的名稱和內容表述並不意味著聯合國秘書處就任何國家、領

土、城市或地區或其當局的法律地位表達任何意見，亦不代表聯合國對其國

界或邊界之劃界。

*

• *

本手冊中的內容可以自由引用或轉載，但須註明出處，並將相關出版物的副本發送

給瑞士日內瓦之聯合國人權事務高級專員辦事處。

HR/P/PT/10

世界人權會議建議每個國家皆應考慮制定一項明

確指出該國改善促進和保護人權的步驟之計畫可

行性。.

維也納宣言和行動綱領， 第二部分，第 71 段

 CONTENTS

1. 介紹

1.1 不斷變化的環境 1

1.2 體制強化 1

1.3 國家行動計畫的價值 2

1.4 本手冊的目的為何？ 3

1.5 本手冊為誰而做？ 4

1.6 本手冊之結構 5

第一部分: 國家行動計畫和早期經驗

2. 國家人權行動計畫發展概念

2.1 1993 年世界人權會議 7

2.2 會議對國家行動計畫的評價為何？ 7

2.3 為什麼提出國家行動計畫？ 8

2.4 國家計畫的目的和益處 9

2.5 自維也納（條約）以來做了什麼？ 11

2.6 國家人權教育行動 12

3. 更多關於國家人權行動計畫 – 一般原則

3.1 既是過程也是結果 13

3.2 對普及人權標準的承諾 14

3.3 履行國際人權義務 15

3.4 人權的相互依賴和不可分割性 18

3.5 行動方向 18

3.6 公共文件 19

3.7 監測與評估 19

3.8 一個持續過程 20

3.9 國家承諾 20

3.10 國際層面 21

3.11 潛在困難 21

4. 十一個國家行動計畫

4.1 澳洲(1993) 24

4.2 馬拉維(1995) 26

4.3 拉脫維亞(1995) 27

4.4 菲律賓(1996) 28

4.5 巴西(1997) 30

4.6 厄瓜多爾(1998). 31

4.7 印度尼西亞(1998) 32

4.8 墨西哥(1998) 34

4.9 南非(1998) 35

4.10 委內瑞拉(1999) 37

4.11 玻利維亞(1997) 38

4.12 各最終計畫之共同要素 39

第二部分: 制定國家行動計畫

5. 計畫籌備階段

5.1 五個主要階段 41

5.2 誰應該發起？ 41

5.3 誰應該參與？ 42

5.4 政府和議會的作用 43

5.5 準備階段應該如何處理？ 44

5.6 國家協調委員會 45

6. 國家機構與民間社會的作用

6.1 國家人權機構 51

6.2 誰建立民間社會 51

6.3 人權非政府組織 NGOs 52

6.4 處理經濟、社會及文化權利之非政府及社會組織 53

6.5 教育家、學術及研究單位代表以及人權專家 53

6.6 私人企業部門代表 54

6.7 慈善組織及其他私人基金會代表 54

6.8 媒體 54

6.9 一般公眾 55

7. 協商機制

7.1 過程的重要性 56

7.2 委員會 57

7.3 公開會議與公開聽證會 58

7.4 透過評論或其他方式參與 59

8. 計畫的發展階段

8.1 國家行動計畫概念化 60

8.2 編寫國家人權狀況報告-基線報告 61

8.3 優先辨別 65

8.4 弱勢團體 66

8.5 特別關注之問題 66

8.6 草稿計畫 66

8.7 其他國家規劃活動之連結 68

8.8 時間框架 69

8.9 法律地位 70

9. 計畫內容與結構

9.1 一般問題 72

9.2 規劃與目標 72

9.3 計畫範圍 73

9.4 格式 74

9.5 目標和基準 74

9.6 責任履行 77

9.7 對於計畫內容之建議 77

第三部分: 國家政策實施、監測與評估

10. 實施計畫

10.1 實施機制 86

10.2 實施合作夥伴 87

10.3 啟動計畫 88

10.4 媒體與傳播戰略 88

10.5 於人權教育中使用該計畫. 93

11. 監測

11.1 監測、報告技術與機制 94

12. 評估與後續計畫

12.1 評估問題 98

12.2 開始後續計畫 99

13. 資源

13.1 基金問題和策略 100

13.2 機構合作夥伴 103

13.3 國際援助 104

14. 區域和國際合作關係

14.1 經驗分享 106

14.2 區域與國際研討會 107

14.3 聯合國 107

14.4 技術合作與人權代表 107

附圖列表

1. 國家行動計畫好處 3

2. 國家人權行動計畫過程 6

3. 一般原則 13

4. 準備階段 45

5. 國家協調委員會– 可能之組成與任務 48

6. 民間社會參與 52

7. 協商機制. 57

8. 發展過程 58

9. 基線研究 63

10. 國家計畫間之連結 69

11. 給予國家行動計畫之建議 75

12. 國家行動計畫媒體策略 90

1. 介紹

1.1 不斷變化的環境

過去十年來，國際人權工作的方法有了很顯著的成長。縱然國際社會繼續在譴

責侵犯人權行為方面發表強烈言論，但各國政府和民間社會都意識到在促進和

保護人權當中不僅只是查明被指控的不法行為者或勸告政府改善其表現。政策

制定者和倡導者逐漸意識到，真正的改善是需要再教育、體制補強和體制建設

等領域挹注資源和長期努力。

這股渴求加強鞏固人權原則的聲浪反映了堅強的民主、開放及問責環境已經在

世界各地越來越普遍。這些原則也被認為不僅是對個人和社區的福祉相當重

要，同時他們也是經濟和社會進步的當中相當重要元素。人們越來越相信，人

權原則的實施將加強社會和諧與凝聚力並協助推動發展進程以及促進政府對人

權問責和合法性。

支撐這些發展的運動受到聯合國框架內製定的文書和決議所載人權原則和標

準的啟發，特別是「世界人權宣言」和「國際人權盟約」。 信息技術革命

也為此提供了便利，確保人權倡導者和媒體組織能夠有效地吸引全世界公眾

注意侵犯人權和問題。 這些主題與現代管理和治理原則相結合，並認為長

期經濟和其他目標的實現取決於開放性、政府的民主制度、問責、積極的公

民社會和法治。

1.2 體制強化

體制強化的辦法對於提升與保護人權是切合實際及務實的。它認可了改善

人權是一項公共政策目標且可透過政府的正常規劃和資源分配程序實踐。

它將人權目標納入國家的整體目標，特別是發展面向，最終整個國家受益

並得到加強。

重要的是，這個方法意識到沒有一個國家是完美的，所有國家在實現「聯合國

憲章」規定裡的「在更大的自由中更好的生活標準」的目標上都面臨著人權挑

戰。 為了能成功地應對這些挑戰，各國政府和人民必須共同努力改變態度，加

強人權教育實施方案及強化人權機構。

1

政府和社區在這一領域正在考慮的最突出的活動可能包括建立國家人權機構、

制定國家人權教育實施方案以及製定促進和保護人權的國家行動計畫 1。

1.3 國家行動計畫的價值

國家行動計畫需要大量的規劃和努力。 國家計畫的實際價值不一定在所有情況

下皆相同。各國應依照需求和情況進行實際的評估，每一個情況下都需以認真

和批判性的方式決定是否制定一項規劃。 正如本手冊其他部分所述，迄今為止

的經驗建議中提及可能影響特定計畫有效性的因素包括：

● 政策支援的程度;

● 透明及參與式的規劃;

● 計畫所依據的基線人權研究的全面性;

● 現實的優先順序及行動導向的規劃;

● 明確的成功標準及強有力的監測和評估參與機制; 和

● 充足的資源投入。

如第 8.7 節所示，需要非常謹慎地確保與現有的整體國家發展框架之間建立聯繫

（例如聯合國開發計畫署（開發計畫署）的國家發展計畫和國際貨幣基金組織

（貨幣基金組織）或世界銀行的減貧戰略文件）以及確保人權議題不會在衛

生、教育、執法等領域的政策規劃過程中無意識地被分開。

在考慮到這些因素的情況下，合理的期望國家行動計畫得出以下的結果：

● 批准其他國際標準，並將這些標準更有效地納入國內法和實踐，從而擴大對

個人的人權保護範圍;

● 加強司法，改善法治，加強司法獨立以及改善安全當局的做法;

● 提高對經濟，社會和文化權利的認識和落實從而提高生活質量，特別是對弱

勢群體而言;

● 改善人權與發展之間的聯繫;

● 建立或加強國家人權機構;

1 用於國家行動計畫的術語因國家而異。 在本手冊中，我們使用「國家促進和保護人權

行動計畫」、「國家行動計畫」、「國家計畫」和「國家行動計畫」等術語。 有些國

家更喜歡「方案」一詞來替代「計畫」。

2

● 更有效的民間社會機構;

● 加強針對弱勢群體的方案;

● 更好地理解人權標準及其對個人和社區的價值;

 減少社會緊張風險.

圖一、國家行動計畫的好處

國家行動計畫將會

 審查一個國家的人權需求

 提高政府官員、安全機構、民間社會組織和公眾對人權議題的認識

 在合作的氛圍中動員廣泛的社會

 提出切合實際的活動

 定可實現的目標

 促進與其他國家計畫的聯繫，特別是在發展和教育領域

 產生行動承諾

國家行動計畫的成果將包括

 更強有力的法律框架、更加堅定地遵守國際規範、更有效地將人權標準納入

國內法，以及提高司法獨立性和更有效的法治

 更好地保護個人

 更強大的人權文化

 加強國家機構促進和保護人權

 更有效的社會計畫以提升所有人的生活質量，特別是弱勢群體。

 改善民族和諧，減少內部衝突的風險

1.4 本手冊的目的為何？

聯合國人權事務高級專員辦事處（人權高專辦）編寫了本手冊 2，作為考慮或制

定促進和保護人權國家行動計畫的指南。 它提供了關於國家計畫概念的背景信

息、概念的形成以及制定此類計畫國家的一些經驗。 它也探討了與制定國家計

畫有關的問題：

● 概念;

● 組織面向

● 內容和結構

● 發展、實施與監督；以及

● 國際活動和經驗

2 人權事務高級專員辦事處承認並感謝「手冊」的主要作者，澳大利亞人權國際有限公

司的比爾·巴克先生。

3

這些想法的基礎是一些國家制定具體國家計畫和國際討論該問題的工作。

該手冊旨在成為國家制定行動計畫過程的介紹。任何國家都將在自己的法律和

政策環境中執行工作。希望手冊中所提供的其他國家行動計畫的資訊有助於他

們從經驗中獲益，借鑒國際上對該問題的看法，並制定一項全面有效的計畫。

藉由這種方式可以制定新的計畫作為現今國際的最佳做法而非臨時基礎的計

畫。

1.5 這本手冊為誰而做呢？

人權高專辦編寫了這本手冊以協助從事或對國家人權行動計畫感興趣的人員和

機構。 它們包括代表政府、民間社會、國家人權機構、司法機構、學術界和許

多其他部門以及一般社區和組織。

發現這本手冊有用的政府官員不僅包括在司法部或外交部工作的人員，還包括

更廣泛地從事健康、教育、房屋或社會政策等問題的官員。這也適用於政府機

構的民間社會對應方。 此外，這本手冊應引起議員的興趣，作為與人權領域立

法和公共政策進程相關問題的全面概述。

該手冊將對在三個廣泛領域工作的官員和民間社會代表有著其用途：

● 那些致力於制定新的國家行動計畫將會是主要群眾。 該手冊將告知他們所涉

及的原則和過程以及其他國家的經驗。

● 手冊對於已制定國家計畫的國家的政府和民間社會有著其重要用途。 透過提

供有關國家行動計畫的概念和實施的更多信息，手冊可進一步地引導實施和

持續改進。

● 第三個目標群體是希望為人權領域的技術援助計畫提供資金的政府和私營機

構。手冊提供了促進和保護人權的綜合方法。 由於手冊指南而制定的國家行

動計畫將包含許多可由捐助國政府或私人基金會的技術合作計畫支持的活動

提案。

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1.6 手冊的結構

該手冊首先描述了國家行動計畫概念的起源及其目的和益處，並審查了在各國

和國際會議上實施該概念的進展情況。 除外，手冊還強調了國家計畫的一般性

原則，概述了實施這些計畫的步驟，並且提出了一些執行過程中所面臨的困

境。 手冊也概述了迄今為止已制定的一些國家計畫。

從這些介紹部分開始，手冊概述了國家規劃的籌備階段，特別強調的是將涉及

的不同機構和組織的作用，同時也特別關注了民間社會的作用。 除外，該手冊

也描述了該計畫的制定階段，其中有著詳細制定和草擬的細節，描述了關鍵階

段所必須解決的問題範疇。

手冊接著將進入介紹實施階段，從公開發布開始並特別關注媒體傳播的策略。

最後則是有關於監督與評估的章節，這涵蓋了後續的計畫、資源和國際活動的

可取性。

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圖二 國家人權行動計畫進程

準備階段 發展階段 實施階段 監督階段 審查階段

政府內部諮詢 頻繁召開協調委員會會議 執行計畫 制定商定的報告格式 考慮年度報告

諮詢非政府組織和其他有 概念化計畫 定期召開協調委員會會議 協調委員會的半年度評估 任命審查小組

關團體 成立秘書處 與執行夥伴合作 民間社會的投入 向議會和公眾報告

任命焦點機構 成立部門工作組 執行機構和合作夥伴的行動 對執行機構的反饋 對後續計畫提出建議

制定原則草案 諮詢非政府組織和其他相關團 向議會和公眾報告

諮詢和網絡

政府認可 體

媒體傳播策略

公開會議和公開聽證會

公告 人權教育

準備基線期研究

向感興趣的團體組織召開 法律地位 - 議會批准

確定優先事項、特別關注的問

會議

題、弱勢群體的需求

成立協調委員會

與其他國家規劃活動建立聯繫

草擬計畫

考慮時間範圍

考慮法律地位

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第一部分：國家行動計畫的概念和早期經驗

2. 制定國家人權行動計畫的概念

2.1 1993 年世界人權會議

國家人權行動計畫的概念是 1993 年在維也納舉行的世界人權會議的一部

分。這個會議是第二次世界人權會議，該會議是促進和保護人權的國際活

動歷史上的一件重大事件，而第一次會議則是於 1968 年在德黑蘭舉行。

自 1948 年通過「世界人權宣言」以來，維也納會議對人權領域的進展進

行了廣泛的審查。此次會議試圖找出進一步取得進展的障礙以及克服這些

困境的方法。 因此，會議及其籌備過程中仔細審查了現有的哲學、概念和

機制，以及關於促進和保護人權的新方法的許多建議。

會議通過的文件，即《維也納宣言和行動綱領》（VDPA），由於其全面

性以及所有參與政府的同意而特別重要。 它向各國政府和國際社會其他行

動者提出了許多建議，涉及為促進和保護人權可採取的行動。 這些建議沒

有約束力，但由於這一場合的重要性以及得到一致支持的事實，這些建議

具有強烈的說服力。

2.2 會議對國家行動計畫的評價為何？

會議就國家人權行動計畫提出了兩項建議。 第二部分第 71 段內容如下：

世界人權會議建議每個國家考慮制定一項國家行動計畫的

可取性，該計畫確定該國將改善促進和保護人權的步驟。

該段是宣言中關於「合作、發展和加強人權」的一部分。 該部分側重於加

強國家人權機構和基礎設施，包括通過國際合作和援助。 第 69 段建議：

在聯合國內部建立一個全面性的方案，以幫助各國建立和加強對全面

遵守人權和維護法治有直接影響的適當國家結構…… 該方案應向各國

提供援助，以促進和保護人權的行動計畫。

3 聯合國文件 A / CONF.157 / 23。《維也納宣言和行動綱領》可自人權高專辦網

站（www.ohchr.org）之主頁透過「索引」取得。

7

2.3 為什麼提出國家行動計畫？

國家人權行動計畫的概念是基於這樣的觀點，即人權的持久改善最終取決於

某個國家的政府和人民決定採取具體行動以實現積極變革。外部勸說和壓力

對於影響政府採取行動方面佔有一席之地，但改善人權遵守不能單純地從外

部強加。

為了促進人權遵守作為公共政策要素的成功變化，需要考慮許多因素。 社會

規劃從全面的需求分析開始，包括廣泛和漸進的計畫提案、資源分配和有效

的評估。

除了其他方面，人權遵守方面的真正改進還需要態度上的改變、教育和培

訓，健全和獨立的法律、司法制度以及對法治的承諾。 它們還需要資源和政

治意願，制定政策和方案，在衛生、教育、房屋和社會福利等領域提供基本

服務，特別是向弱勢群體提供服務。

在提出國家行動計畫的概念時，世界會議認為對人權規劃採取全面的結構性

方法將有助於實現積極成果。

國家行動計畫概念意味著某些一般性原則適用於許多（如果不是全部）國

家。 但它始終是國家行動計畫方法的核心，每個國家都從自己的政治、文

化、歷史和法律環境開始。 沒有一種方法可以適用於所有國家。 每個人都必

須制定適合自己情況的方案。 這體現於世界會議的建議裡，該會議說明了國

家行動計畫是什麼但由各國自行決定該做些什麼 4。

國家行動計畫概念也承認任何國家都沒有完美的人權記錄。人權缺陷的性質

將不可避免地有所不同，倘若希望聯合國憲章承諾裡所提及的「促進大自由

中的社會進步和更好的生活標準」能被實現，那麼國際社會的每一個成員都

必須採取實質行動。國家行動計畫概念的支持者始於所有人都參與挑戰的前

提，以改善人權遵守情況。在此基礎上，他們認為，政府和其他方面應該有

可能以善意和合作的精神在某種程度上解決所有問題，就像經濟發展等其他

領域一樣，就如在經濟發展等其他領域一樣。

4 無論國家行動計畫是否被用作促進和保護人權的工具，《維也納宣言》明確指出，

各國有責任促進人權：同時具有國家和區域特點的重要性…… 必須牢記，各國無論

其政治、經濟和文化制度如何，都有責任促進和保護所有人權和基本自由（VDPA，

第一部分，第 5 段）。

8

因此，世界會議贊同的基本想法是，一個國家將意識到在改善人權遵守方面

所面臨的挑戰。這可以是從目前的情況開始，抑或無論可能是什麼，並制定

一項旨在逐步實現改進的全面務實的方案。

這種計畫的許多要素不能在一夜之間實施。 然而，制定有用的流程的第

一步是鼓勵改變的意願。世界會議的建議是提供這種鼓勵的一個因素。

同樣重要的是更廣泛地支持國際社會其他成員的做法，這可以是來自已

經開始實施國家行動計畫的國家以及聯合國和其他國際和區域組織通過

決議的例子。除外，這也可以是來自民間社會的宣傳和透過聯合國人權

事務高級專員辦事處和雙邊提供技術合作。

2.4 國家計畫的目的和益處

國家人權行動計畫的根本性目的是改善特定國家對人權的促進和保護。它藉

由投票將人權改進置於公共政策的背景下來實現這一目標，以便政府和社區

能夠認可人權改善作為實際目標，制定計畫以確保實現目標，讓政府和社會

的所有相關部門參與並分配足夠的資源。

與不太全面或系統的方法相比，這種方法的好處包括：

● 國家行動計畫應促進對有關國家的需求進行更全面的評估，並透過向政府

本身和公眾明確制定計畫，可以產生對本來不存在的成就的承諾;

● 國家行動計畫在實踐中具有實際意義：它們設定了可實現的目標，並提出

旨在實現這些目標的現實活動;

● 國家行動計畫可以成為健全的公共行政和治理工具，從而導致：

✔ 加強法治，加強對國家的管理和經濟表現以及公民的權利;

✔ 通過鼓勵包容、和諧和共同目標的環境促進民族凝聚力，即使在多樣性的

情況下也是如此；

✔ 有效促進教育、健康，房屋、營養、社會服務和司法等領域的方案，

從而提高所有人的生活質量;

✔ 減少可能對國家及其人民造成長期不利影響的災難性動亂和衝突的風

險;

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● 國家行動計畫必然動員廣泛的人員和組織人權支持的活動，因而提高

政府內部和更廣泛社區的意識和積極的興趣;

● 全面和有條理的方法更有可能確保更有效地解決諸如婦女、兒童、少

數群體和原住民等特定或弱勢群體的關切;

● 國家行動計畫可以促進為需要資源、培訓和專業知識以實現其人權目

標的國家，包括透過聯合國和其他技術合作方案或是調動國內和國際

資源;

● 國家行動計畫採取基本上非對抗性的方式來審議人權問題。 透過避免

有時使人權工作更加困難的相互指責，有可能使所有相關行動者參與

任務並更具建設性地進行合作。

更具體的目的是：

● 為政府官員、非政府組織（NGO）、專業團體、教育工作者、倡導者

和民間社會其他成員提供指導，幫助他們完成確保人權得到有效遵守

的任務，並促進這些人員之間的合作組;

● 建立或加強處理人權問題的國家或處理特定人權議題的機構;

● 促進普遍批准國際人權條約，促進各國政府有效遵守其義務，並促進

國家立法符合國際標準;

● 促進更廣泛地了解人權標準和機制，包括行動特別嚴重的人員標準和

機制，如警察、安全部隊、監獄工作人員和政治人員以及政府官員和

社會領域的其他工作人員;

● 促進並保持對該國人權狀況的高度認識;

● 制定專門針對減輕社會弱勢群體人權狀況的方案;

● 強調人權在國家發展中的作用

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2.5 自維也納條約以來做了什麼？

澳大利亞是第一個制定國家人權行動計畫的國家。 該計畫涵蓋了從 1994 至

1998 的五年期間，於 1994 年初提交人權委員會第五十屆會議。此後，玻利

維亞、巴西、剛果民主共和國政府也最後確定了計畫， 厄瓜多爾、印度尼西

亞、拉脫維亞、馬拉維、墨西哥、挪威、菲律賓、南非、瑞典、泰國和委內

瑞拉 5 其他國家已著手制定國家行動計畫。 它們包括佛得角、約旦、蒙古和尼

泊爾。

迄今為止制定的計畫在範圍和方法上有很大差異。 第 4 章中的描述如下。

在國家一級開展的工作的同時，人權事務高級專員辦事處和各國政府也在聯

合國人權方案的框架內採取了行動。 1999 年 7 月 5 日至 7 日在泰國曼谷召開

了第一次關於人權國家計畫的區域工作坊。該工作坊背景基礎文件的一個重

要部分為《國家行動計畫綱要》，其複製了計畫案文事項引起了人權高專辦

（OHCHR）的注意 6。曼谷研討會通過了一系列關於這一主題的重要結論，

包括一系列可能的內容，以促進制定促進和保護人權的國家行動計畫 7。「可

能的要素」列出了國家行動計畫的整體方向和目的以及制定計畫的擬議步驟:

● 成立國家協調委員會;

● 編寫有關國家人權狀況的基線性研究報告;

● 選擇國家計畫的組成部分;

● 制定優先事項和策略;

● 草擬計畫;

● 計畫實施;

● 監督與修訂.

2000 年 3 月 1 日至 3 日在北京舉行的第八屆亞太區域促進和保護人權區域合

作講習班的結論重申了制定國家人權行動計畫的可取性，並贊同傳播這本手

冊。

5 這些是引起人權高專辦注意的國家行動計畫。 可能還有其他人尚未引起其注意。

6 可從人權高專辦網站訪問：www.ohchr.org/html/menu6/apw.htm。

7 可從人權高專辦網站訪問：www.ohchr.org/html/menu6/bgkcncls.htm#annex

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2.6 國家人權教育行動計畫

在聯合國人權教育十年（1995-2004）的框架內，大會和人權委員會都呼籲各

國制定全面、有效和可持續性的人權教育國家行動計畫。

為協助這項工作，人權高專辦與聯合國教育、科學及文化組織（教科文組

織），若干顧問和從業人員合作，協助制定了《國家人權教育行動計畫指

南》8。 該準則於 1997 年出版，其中包括一套有效的人權教育原則和逐步制

定該領域國家計畫的戰略。

這指南強調了國家人權教育計畫應納入已有的網絡、經驗和方案，且應通過

政府和非政府機構和組織的創造性組合來制定和實施國家策略，可以包括若

干行動方案，例如將人權教育納入各級正規教育，專業人員或其他團體（特

別是弱勢群體）的相關培訓，公眾意識活動，材料的翻譯、製作和修訂，研

究和立法改革。 這份指南還強調了將監督和評估機制納入國家計畫的重要

性。

國家人權教育行動計畫應該明確地成為一般國家人權行動計畫的組成部分，

與婦女、兒童、少數民族和原住民有關的其他相關國家行動計畫也應如此。

《國家人權教育行動計畫指南》中闡述的許多原則和實施措施同樣適用於制

定一般國家人權行動計畫。

3. 更多關於國家人權行動計畫 - 一般原則

國家行動計畫的構想主要是在鼓勵各國依自身情況來進行改變。 所以國家行

動計畫主要涉及如何激發改變和發展適當機制的意願。但也必須銘記改變的

意願可以各種方式體現出來，而實際執行計畫的人員往往在極為複雜的情況

下運作。 為了應對這種複雜性，並且容易實施正面的改變，政府可使用與其

他管理領域相似的機制。 因此，實現國家人權行動計畫的目標將與實現社會

和諧、經濟發展等相關國家目標吻合。

8

聯 合 國 文 件 A / 52/469 / Add.1 和 Add.1 / Corr.1 。 可 自 人 權 高 專 辦 網 站

（http://www.ohchr.org）的主頁中「人權教育和培訓」取得該文件。

12

制定國家行動計畫及其內容的過程取決於各國的具體情況。 但也有適用於所

有國家行動計畫的一般原則，其中包括：

● 過程的重要性;

● 對普及人權標準的承諾;

● 履行國際義務;

● 人權的相互依賴和不可分割性;

● 行動方向;

● 公眾參與;

● 監測和評估;

● 持續性的過程;

● 全國性的任務;

● 國際層面.

圖 3 – 基礎原則

 過程和結果一樣重要

 應與民間社會組織和公眾進行廣泛而密集的磋商

 這為全國性的計畫，涉及到全社會

 該計畫應該是公開的文件

 該計畫應包含對普及人權標準的承諾，以及列出如何有效地落實此

承諾

 該計畫的範圍應該是全面性的，反映了人權的相互依存和不可分割性

 該計畫主要為實際行動

 有效的監測和評估計畫實施至關重要

 國家行動計畫的過程應該是連續的，一個計畫的結束必須導致另一個

計畫的開始

 國家計畫須包含國際層面的考量

以下章節概述了這些原則，這些原則將在本手冊後面詳細討論。

3.1 既是個過程也是個結果

國家行動計畫既是一個結果，也是一個過程，兩個都同樣重要。 結果是計畫

本身以及從中發展的活動。 該計畫應製定為一份實質和全面性和的文件，並

應引發廣泛公共行政領域的活動。 同時，制定國家行動計畫的方式將影響其

成功性。 而成功的關鍵在於計畫在多少程度上獲得高層支持以及磋商過程的

廣度和深度。 第 7.1 節詳細闡述了這一點。

13

全世界的現代社會逐漸的要求制定公共政策的透明性和參與性。國家行動計

畫在社會上必須扮演重大的角色，也應該包括來自社會各界的參與者 - 人權非

政府組織和各類社區組織以及相關個人。這在人權領域更為重要，人將因為

發展和成果的影響而感動。在制定計畫期間進行有效的磋商將有助於充分地

理解和接受該計畫。磋商過程對於可信度以及最終計畫的有效性極為重要。

除了對人權原則的關注之外，非政府組織和民間社會的其他代表在將在基層

實際參與保護人權的活動和辨識人權問題。 它們也會是強而有力的後盾，提

共對人權的承諾和激勵。 因此，它們通常最適合為國家計畫制定過程作出實

質性和建設性的貢獻。

政府內部的磋商和協調也是個關鍵。 當各個政府機構參與制定和實施該計畫

將強調，人權不僅僅是司法或外交事務部的事，而是整個政府的責任。 公職

人員對該計畫的承諾對於確保落實計畫所需的人力和財務資源至關重要。

來自政府高層的可見支持將更有效地動員官僚行動，為計畫提供更好的公眾

形象，並確保過程的持久性。 各黨派在政治上的支持也非常重要。 國家人權

行動計畫應以社會各界共有的長久普及標準為基礎。 這是加強長期國家遵守

普及標準的一部分，這些標準應該在政府輪替中繼續存在並超越政治爭端。

3.2 對普及人權標準的承諾

一項可靠的國家行動計畫必須建立在對普及人權標準的承諾之上。 任何國家

行動計畫的重點內容應是對“世界人權宣言”的承諾。 它擁有公民，政治，經

濟，社會和文化權利，是國際人權體系的基礎。 在聯合國有關人權的決議

中，世界各國一再一致地重申「世界宣言」。

參加 1993 年世界人權會議的 171 個國家在“維也納宣言和行動綱領”中重申了

“它們對聯合國憲章和世界宣言所載宗旨和原則的承諾”。 他們強調“世界人權

宣言”將為“所有人民和所有國家的共同目標”。 他們重申“所有國家莊嚴承諾履

行其義務，促進普遍尊重，遵守和保護所有人的所有人權和基本自由”。會議

進一步指出，“這些權利和自由的普及性質是不容置疑的 9。 為紀念 1998 年

“世界人權宣言”五十週年，各會員國在聯合國大會以及許多其他紀念活動重申

了“宣言”的中心地位。 大會和人權委員會 10。以及許多其他紀念活動。

14

這些決議還表示“必須進一步加強國內進度，加強國際合作，以期充分實現所

有人權和基本自由”（重點強調）。

「世界人權宣言」的地位使得任何國家人權行動計畫都應該先認同“宣言”的普

及性和相關性，作為該計畫內容的基礎。 由於國家行動計畫是成為一項實際

工具，各國履行其國際人權義務的速度將有所不同，特別是在可用資源方

面。 但該計畫的內容必須至少符合國際人權文書規定的標準。 否則，它將喪

失對利益方和在國際社會上的信譽。

3.3 履行國際人權義務

在通過「世界人權宣言」之後，聯合國起草了兩項條約，詳細闡述了“世界人

權宣言”的條款，使對同意這些條約的國家具有法律約束力。 這兩項條約是“公

民權利和政治權利國際公約”（ICCPR）和「經濟，社會，文化權利國際公

約」（ICESCR）。 它們與“世界宣言”一起構成了「國際人權法案」。

隨後連串的文書還詳細闡述了“世界人權宣言”中對權利的基本表達，具體說明

了這些權利如何適用於婦女，兒童和移民工人等特定群體，或酷刑和種族歧

視等某些問題。 所有國家都已成為至少一個條約的締約國，大多數國家已經

批准或加入了許多條約。 對於已經接受這些條約的國家，諸如契約和公約等

人權條約規定政府有義務遵守國際法規定的條款。 人權宣言雖然不像條約那

樣具有約束力，但卻規定了各國應遵守的原則，特別是對相關人權條約的締

約國。

當然，批准兩項公約等國際標準只是盡可能確保可廣泛地享有人權的一個因

素。 然而，要真正具其效力，批准一項國際人權文書可能需要伴隨或遵循立

法行動，以使其生效。

9 “維也納宣言和行動綱領”，序言部分第 3 和第 8 段以及第 1（I）段。

10 大會 1998 年 12 月 10 日第 53/168 號決議和人權委員會第 1997/35 號決議（大會和委員會所有決議案文

可在人權高專辦網站上透過主頁上的「文件」查閱）.

15

在許多情況下，國際人權標準已納入國家憲法。 需要採取政策和行政措施來

落實立法。 在實際履行國際義務的過程中，國家行動計畫必須審查該國的人

權承諾範圍，並提出確保在國內有效遵守這些承諾的步驟。 這在第 9.7.1 和

9.7.3 節中討論。

除實質性條款外，國際人權文書還要求締約國採取措施落實相關權利。 全面

有效的國家行動計畫可以協助各國履行這些義務。 這對“經濟，社會，文化權

利國際公約”締約國尤其重要，它們有義務透過一切適當手段逐步實現“公約”

承認的權利。

宣言的規定也應納入國家行動計畫，作為促進盡可能廣泛地遵守人權的方

法。

國際人權文書的範圍很廣。 值得注意的是，多數國家已經批准了大多數文

書。 除“國際人權法案”外，其他主要人權條約和聲明 11 也包括在內:

● 防止及懲治滅絕種族罪公約;

● 消除種族歧視國際公約;

● 禁止酷刑和其他殘忍，不人道或有辱人格的待遇或處罰公約;

● 消除對婦女一切形式歧視公約;

● 兒童權利公約；

● 保護所有移民工人及其家庭成員權利公約;

● 發展權宣言;

● 關於在民族或族裔，宗教和語言上屬於少數群體的人的權利宣言;

● 消除基於宗教或信仰的一切形式的不容忍和歧視宣言;

● 消除對婦女的暴力行為宣言;

● 關於個人，群體和社會機構在促進和保護普遍公認的人權和基本自由方面

的權利和責任的宣言;

● 國際刑事法院規約。

11

可以在人權高專辦網站（www.ohchr.org/html/intinst.htm）上找到這些和許多

其他聯合國人權文書的案文。

16

許多國際勞工組織的公約也具有相關性，特別是以下內容:

● 1930 年強迫勞動公約（第 29 號）;

● 1948 年結社自由和保護組織權利公約（第 87 號）;

● 1949 年組織和集體談判權利公約（第 98 號）;

● 1951 年“同酬公約”（第 100 號）;

● 1975 年廢除強迫勞動公約（第 105 號）;

● 1958 年（就業和職業）歧視公約（第 111 號）;

● 1973 年最低年齡公約（第 138 號）;

● 1981 年職業健康和安全公約（第 155 號）;

● 1989 年“獨立國家原住民和部落民族公約”（第 169 號）

以下表格顯示了一系列文書的批准數量 12：

公民權利和政治權利國際公約 148

經濟、社會和文化權利國際公約 145

消除一切形式種族歧視國際公約 162

兒童權利公約 191

消除對婦女一切形式歧視公約 170

禁止酷刑和其他不人道或有辱人格的待遇或處罰公約 130

保護所有移民工人及其家庭成員權利公約” 19

國際刑事法院規約 78

勞工組織第 87 號結社自由和保護組織權利公約 141

勞工組織第 111 號歧視（就業和職業）公約 156

大量批准進一步證明了人權的普及性以及各國是否願意採取具體行動以保證

在其管轄範圍內遵守人權。

12

截至 2002 年 8 月 24 日的批准情況。可從人權高專辦網站的主頁透過“批准情況”查

閱該參考資料：http：//www.ohchr.org/pdf/report.pdf。 國際勞工組織公約的“批准狀

況”可自 http://ilolex.ilo.ch:1567/english/docs/convdisp.htm 搜尋。

“國際刑事法院規約”的批准情況見：http：

//untreaty.un.org/ENGLISH/bible/englishinternetbible/partI/chapterXVIII/treaty10.as

p

17

3.4 人權的相互依賴和不可分割性

國家行動計畫應採取全面的人權方針，同等重視各類權利。 這些權利包括經

濟，社會和文化權利以及發展權以及公民權利和政治權利。 該計畫的全面性

應通過適用於國家管轄範圍內的所有人來證明，特別注意婦女，兒童和其他

弱勢群體的權利。全面性的範圍源於人權的普遍性和不可分割性以及所有人

的平等。

不可分割性是一個實際問題，而不是理論問題。 例如，無家可歸或居住環境

不好的人遭受了侵犯住房權的行為。 而缺乏適足住房也可能導致衰退健康狀

況，干擾家庭生活和教育，妨礙就業機會和破壞公民權利和政治權利。 這可

能導致歧視和社會排斥，以及司法系統的問題。

以此方式的分析可以適用於大多數權益領域。 顯然在現實面，個人福祉，大

眾和社會凝聚力以及國家發展具有重要性。須採取綜合辦法改善人權，在所

有領域尋求進步。

雖然國家行動計畫應以全面的人權方法為基礎，但這種方法可以通過多種方

式反映在計畫中。 第 9.7.2 節將更詳細地討論此問題。

3.5 行動方向

國家行動計畫必須以行動為主。 正如遵循和實施批准的國際條約的概念一

樣，此起草的國家行動計畫也必須促進其實施。 與其提出索賠和模糊的承

諾，國家行動計畫應該：

● 明確說明當下情況;

● 確定需要克服的問題;

● 指定將採取的行動（以評估進展為基準）;

● 指定採取行動的人員;

● 建立明確的時間框架，以便採取行動;

● 提供有效的監測來評估已完成的工作.

絕大多數實施計畫的人員可能來自主要負責組織以外的團體。 重要的是要確

保所有實施計畫的人員完全接受具體成果的需要。這強調制定計畫參與性的

必要。

18

考慮到這種以行動為主的方法，必須區分在有限時間範圍內可實現的目標與

有勵志價值的長期目標。 在根據上述五個考慮因素來描述短期目標，以便負

責實施計畫的人員和受特定措施影響的人員了解目的以及如何衡量成果。

制定有意義的行動，是本手冊的核心目的。 第 5 章至第 12 章提供了詳細的指

導。

3.6 公共文件

傳播

國家行動計畫是一份公共文件，必須廣泛傳播並易於獲取。 該計畫應在高層

政治參與的情況下啟動和審查，以確保媒體的報導。 除了計畫本身，還應制

定媒體策略，盡可能確保公眾參與計畫的製定和實施，並了解其重要性。 為

了成功實施該計畫的傳播，應為此部分提供適當的資源。

教育

國家行動計畫概念隱含著人權教育的中心地位。 國家行動計畫可以教育公民

和公職人員了解他們自己國家的人權狀況。 負責計畫各個方面的組織或個人

應了解計畫的要求，並提供必要的培訓或資源，使其能夠達到規定的結果。

翻譯以及特殊需求

如有許多少數民族語言群體，則應進行翻譯。 同樣，應注意考慮到有特殊溝

通需求的公民，例如身心障礙者或識字能力差的人。

第 10.4 節擴展如何有效傳播文件，而第 10.5 節涉及人權教育。

3.7 監測和評估

必須以系統方式組織任何的規劃過程。 我們已經表明，該過程應包括對當前

情況的評估以及制定明確的目標和績效指標。 然而，這只是所需要的一部

分。 正如技術規劃過程，國家人權行動計畫也應納入監測進展和評估計畫成

就的機制。 人權問題最終與其他公共行政領域同樣重要。 因此，應該盡一切

避免人權目標大張旗鼓地發起但由於缺乏後續行動而陷入枯萎的局面

19

自此會泛化出各種監測機制，但無論採用何種機制，都應該在政府內部提供

高層支持和重視，以便政府機構對其建議和提案作出回應。 理想情況下，政

府部長應該領導監督過程。 監測應涉及所有相關政府層面，以採取適當的責

任而確保計畫的實施。 應歡迎民間社會 - 利益方的真正代表 - 進入監測過程，

以鼓勵在評價中提高透明度和客觀性。

監測機制應在計畫有效期內以合理的間隔進行。 審查應誠實地識別缺點和障

礙，並提出對應措施。 在計畫即將結束時，需要進行獨立評估。 然後評估該

計畫的成果，並為後續計畫提出建議。

第 11 章和第 12 章詳細討論了監測和評估。

3.8 一個持續的過程

促進和保護人權是一個持續的過程。 沒有一個國家能夠期望在短期內解決所

有人權問題。 這意味著應將國家人權行動計畫視為長期進程的一部分。 隨著

一項計畫的結束，應該制定另一項計畫來取代，就像經濟計畫一樣。 令人振

奮的是，在制定國家計畫中的國家已有此做法。 目前制定國家計畫的一些國

家也同時在制定後續計畫。

監測和審查過程可以透過辨識還需克服問題並將注意力集中在需要採取進一

步行動的領域，為下一個國家行動計畫的規劃提供依據。 隨後的計畫還將考

慮新出現的人權問題和新的國際標準。 更新國家行動計畫的過程本身將重振

所有利益方對促進人權和加強傳播人權信息的承諾。

3.9 國家承諾

國家行動計畫應被視為涉及社會所有成員的國家目標。 要做出真正的改變，

需要由全體人民承擔起責任。 這是另一種看待目標，包容性，行動方向和宣

傳的嚴肅性要素的方式。 它將強調，國家人權行動計畫是有效實現國家目標

的機制。

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政府在尋求實現其目標時，必須和利益方建立有意義的合作關係。

這並不表示政府應該退出這過程。 實際上，政府需要採取積極的姿態，在所

有階段推廣國家行動計畫，並確保它仍然是一份活文件。 透過這種基礎廣泛

的努力，可以在提高公眾意識和加強機構的方面取得更好的成果。

3.10 國際層面

對於已制定國家行動計畫的國家來說，國際參與也很重要。透過制定和實施

國家行動計畫，一個國家不僅向其本國人民對人權改善做出明確的聲明，也

能向外界宣傳其人權議程。透過制定明確反映國際準則的方案，各國能更有

效的在克服人權領域上尋求技術和其他援助，特別是在國內專門知識或資源

有限的領域。已經制定國家行動計畫的國家也可以根據要求向正在制定計畫

的其他國家提供指導。這可以透過研討會和技術援助來完成。此外，透過國

際外交關係公開提供的信息將鼓勵那些考慮或致力於制定計畫的人。透過這

些國際活動，促進和保護人權將和遵守普遍原則將成為共同努力的目標。

第 13 章進一步闡述了國際問題。

3.11 潛在困難

採取國家行動計畫方法來改善人權遵守情況具有許多優點。 但是，絕不能認

為這過程並沒有障礙，困難或潛在的批評。 該手冊將陸續地解決這些問題，

但還是需要將它們視為值得關注的具體問題。

有些潛在的困難是概念性的，有些是政治性的，而有些是實際性的。

其中潛在的問題是各國之間在文化，政治制度和經濟方面存在的巨大差異，

因此制定適用於所有國家的準則是不恰當的。 但是，人權逐漸被接受為一個

需要國際合作的問題，制定國際行動準則與許多其他領域的做法是一致的。

國家行動計畫可被視為一個自願機制，用於更有效地實施一個國家已承諾的

原則。 從這個方面上說，制定和實施國家行動計畫可被視為加強國家個人能

力的方式。

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另一個概念性問題是當政府認為他們已擁有良好的人權紀錄，因此他們沒有

必要花時間和精力制定國家行動計畫。 這忽視了所有國家都面臨某種在人權

上有缺陷的事實。 即使是那些紀錄相對較好的國家，在歧視和經濟，社會和

文化權利方面也經常遇到困難。

而可能存在的政治障礙是國家行動計畫可成為在野黨用來攻擊或批評執政黨

的方法。 對此有兩點可以做出回應。

● 第一，國家行動計畫的目標與任何政府的許多核心目標一致。 這些措施包

括提高一個國家公民的生活水平和生活質量，以及促進民族凝聚力。 它們

還包括加強法律制度，以使一個國家的行政和機構更有效地運作，促進政

府與公民之間的更大信任，並提高國家的國際聲譽。 如果制定得當，該計

畫應該加強國家機構並得到廣泛支持

● 另一點是國家行動計畫應以包容的方式進行。 雖然計畫的內容很可能成為

熱烈討論的議題，但其目的應該是讓社會各界和所有政治力量參與其發

展，以使其被視為一個共同努力，團結的目標。 當然，實際上也會有實施

的困難。 目標應該是務實地考慮到整體計畫目標的價值。

以下是已經通過國家計畫的國家遇到的一些實際問題:

● 對現有人權需求評估的基線研究可能重複;

● 缺乏明確的目標優先次序，特別是鑑於資源有限的情況;

● 過於野心，最終不切實際的目標;

● 籌備過程過於復雜，需要過多的財務和人力資源;

● 未考慮現有舉措，特別是民間社會組織;

● 在履行和監督責任方面缺乏一致同意;

● 建立負責監督實施的後續秘書處未預料到的期望;

● 相關實施人員之間的協調和所有權不足，以及他們之間不好的勞動分

工;

● 在未能成功吸引主要捐助資金的情況下，強調相對成本昂貴的提案。

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制定和實施國家行動計畫還面臨許多其他實際挑戰。 在後面的章節中，本手

冊討論並提供有關調動資源，確定執行夥伴，提高公眾意識，監測等方面的

建議。 如果一個國家側重於採取適當的實際措施，這些問題就不會妨礙制定

計畫。 對於開始程序並考慮如何克服一些實際問題的國家來說，重要的資源

是其他國家的經驗。 國際社會將願意提供專業知識和資源，幫助那些致力於

國家計畫的人。 除了提供一般指導和資源外，這種援助還有助於各國避免或

解決他們可能關注的一些實際問題。

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4. 十一項國家行動計畫

於本手冊截稿前，以下共十五個 13 會員國已制定國家行動計畫：14

● 澳大利亞（1993 年）

● 馬拉維（1995 年）

● 拉脫維亞 （1995 年）

● 菲律賓（1996 年）

● 巴西 （1997 年）

● 厄瓜多爾（1998 年）

● 印度尼西亞 （1998）

● 墨西哥（1998 年）

● 南非 （1998）

● 委內瑞拉 （1999 年）

● 玻利維亞 （1999 年）

● 挪威（1999 年）

● 剛果民主共和國 （2000 年）

● 泰國 （2001 年）

● 瑞典（2002 年）

本章詳細討論了上列 15 個計畫之中的 11 個計畫及其採用之流程。這些計畫

的長度、格式和範圍上雖然有很大差異，但它們仍然共享許多共同特徵。以

下概述總結了這 11 個計畫並討論其共同要素。

4.1 澳洲 (1993)

澳洲的「國家行動計畫」是被收錄在一本 127 頁的書中。這是史上第一個相

關的國家行動計畫，其準備工作反映了澳大利亞在維也納世界人權會議上促

進這一概念的領導角色。雖然該計畫本身並沒有說明其準備過程，但它是由

政府官員部門間委員會於 1993 年底制定的。他的籌備是由外交貿易部及司法

部共同負責，同時也與非政府組織社區進行了一些磋商。雖然該計畫沒有相

關的媒體宣傳活動但該計畫已公開發布。

澳洲所發布的計畫為了能在 1994 年第五十屆會議上提交給人權委員會，僅用

了急迫且緊湊的幾個月的時間來規劃及架構。該文件載有澳洲代理總理的序

言，他將該計畫描述為“明確的聲明了澳洲致力於以國家規格保護和落實人

權”。他說：“該文件確立了未來將面臨的挑戰以及澳洲政府未來可能採取的行

動”。雖然計畫文件沒有明確提及其時限，但澳洲政府的其他聲明表明了該目

的為涵蓋 1994 年至 1998 年這五年的期間。

13 可能仍有一些其他計畫尚未引起人權高專辦的注意。

14 這些計畫的全文多數可在人權高專辦的網站 www.ohchr.org/html/menu2/plan_action.htm 上找到。

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這個計畫以序言開頭，作為非澳洲讀者對澳洲政府體系的指南。其範圍是相

當全面的，並特別關注經濟，社會和文化權利以及弱勢群體的權利。同時，

這個計畫也涉及澳洲如何加強遵守其國際準則，並能更完善地將國際標準納

入國內法，加強其人權機構並促進人權教育和加強其在人類領域的國際關係

權利。

這個計畫主要的結構是圍繞著如何促進改善澳洲人權的遵守情況而制定如以

下部分節錄標題所示：

（a）表明澳大利亞 打算批准的聯合國或區域人權文書，並概述實現這一目標

的具體實現步驟

…

（e）為澳洲制定經濟，社會和文化權利領域的目標， 並指出在實現這些目標

方面取得的進展，例如：

...

（ⅱ）健康的權利

...

（ⅶ）享有適足生活水準的權利，尤指住房方面

...

（i） 為澳洲制定人權資訊和教育之方案，包括在學校課程和工作場所

每個部分皆包含三個子部分：

● 現行政策的特點 ：其中包含對於迄今為止相關領域內的行動之描述;

● 未來的挑戰 ：對目前情況的不足進行了一些評估並

● 擬議國家行動提案：確立澳洲因應相關挑戰而將採取或可能採取之行動，

從而改善人權的實踐。

澳洲的計畫內沒有規定監督或審查程序。但是，澳大利亞政府向人權委員會

提交了兩份報告，其內容涉及實現該計畫目標的進展情況。在第一個計畫期

間，澳洲官員預示著對於進一步計畫的準備工作。這意味著原計畫將會被進

行審查。澳洲政府隨後於 1998 年 12 月 10 日世界人權日宣布將制定一項新計

畫。然在本手冊出稿前，其準備工作仍在繼續。

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4.2 馬拉維 （西元 1995 年）

馬拉維的「1995 - 1996 年國家人權領域行動計畫」載於一份四頁的文件

中，並以決議的形式起草。首先是序言，主張馬拉維“致力於建立一個以法治

保護的民主、人權和以自由為基礎的國家”，這反映了馬拉維在 1994 年舉行了

第一次民主的多黨選舉。序言還強調了國際援助與合作的重要性，並提到了

“維也納宣言和行動綱領”中關於國家行動計畫的建議。

該計畫由部際人權與民主委員會起草和通過。委員會由總統和內閣辦公室的一

名高級官員擔任主席，並由最直接涉及人權的所有部委的常務秘書及議會、司

法和警察的代表組成。該計畫隨後由內閣通過，並在國家媒體上公布。

馬拉維計畫圍繞五個部分組成：

A.建立促進和保護人權的有效法律框架 ;

B.加強執行機制;

C.公共訊息和培訓活動;

D.加強國家監測能力;

E.執行國家行動計畫。

該計畫在 A 節中指出，馬拉維為已通過將國際人權條約納入國內“憲法”的締約

國。在該計畫中，政府承諾促進人民對這些規定的廣泛認識，並考慮批准馬

拉維目前還尚未締約的文書。政府還承諾將審查國內法律和慣例，以確保其

符合國際標準。

在 B 節中，包含了承諾確保適用的人權條約的規定將反映在政策制定中。政

府承諾在有關部門和機構設立人權協調中心，除其他外，這些協調中心負責

編寫條約所要求的報告。這將與相關的非政府組織協商一同完成。改革和加

強馬拉維的司法行政的步驟將被採取。

在第 C 節，『公共訊息和活動培訓』一節中，政府承諾廣泛傳播條約文本並

為公眾開發特殊內容。這當中還表示將採取措施開發相關的學校和高等教育

課程。該計畫設想將由非政府組織參與這一進程。

在第Ｄ節，「加強國家監測能力」裡，政府承諾確立有效和獨立地監測人權

條約，並表示它將尋求協助建立一個監察員和人權委員會。本節還強烈鼓勵

旨在加強馬拉維非政府組織的國際援助與合作。

26

執行方面的討論則來到了 E 節，這當中提及到了該計畫預想能夠尋求國際援

助，以便為人權和民主問題部際委員會設立一個秘書處，以促進實現該計畫

的目標。執行過程中還將辨認出障礙和困難，這些障礙和困難將構成後續行

動計畫的基石。 在 1996 年曾召開一次國家工作坊。有關部委和政府各部門以

及非政府組織，媒體和捐助界的代表皆出席此次工作坊，審查該計畫所取得

的進展。正如可能對具有有限數量的優先目標的相對較短的計畫所預期的那

樣，儘管不是在兩年的時間範圍內，許多目標仍已經實現。在本文編輯時，

該國政府正在考慮通過第二項計畫行動。

4.3 拉脫維亞(1995)

『拉脫維亞保護與促進人權國家方案』載於一份 30 頁的文件中。與馬拉維國

家行動計畫的情況一樣，拉脫維亞計畫的編製很大程度上歸功於國際技術諮

詢，特別是 1994 年 7 月的一個國際團隊至拉脫維亞的訪問。該方案文件本身

沒有具體說明該方案是如何制定的，但國際代表團會見了廣泛的政府代表，

政治人物，公務員，非政府組織…等等。在該計畫獲得通過之前，政府曾與

非政府組織舉行過兩次論壇。

該方案並未試圖對拉脫維亞境內的人權狀況進行系統分析，但它確實概述了

使這一計畫如此必要的因素，例如人們對「人權」一詞的認知在數年來已經

變了調。

該方案的另一個特點是重要的是其建立了一個保護人權的獨立機構，向公眾

提供信息，編寫人權問題報告和審查個人投訴。在結論的部分也描述了該機

構--拉脫維亞人權理事會 - 作為該計畫的核心內容進行了描述，並詳細列出了

為何此這個計畫如此必要以及其職權範圍和權力。結論還概述了一項國家人

權教育方案，該方案應成為安理會的首要優先事項之一。

此方案文件有五個實質性區塊：

1. 教育、培訓與資訊

這個區塊概述了將人權因素納入正規課程，教師培訓，法律系統人員培訓和

一般公眾信息的必要性，包括拉脫維亞國際人權義務的資訊。

27

2. 保護弱勢群體權利相關的議題

這個部分介紹與兒童、宗教組織、非公民、囚犯、難民以及肢體，智力或精

神障礙人士相關的需求和措施。該方案指出，非公民問題具有爭議性，必須

盡快制定立法，並就非公民的地位和權利開展廣泛的宣傳活動。

3. 該國現存的組織架構

本部分陳述了該國的相關機構，並使需要採取措施的領域受到注意。例如，

該計畫指出，重要的是確保議員能夠提出有關拉脫維亞國際人權義務的建

議，公眾成員能夠明白問題處理的機制以及建構一個非政府組織可以運作的

環境。

4. 媒體

本節簡要介紹了自由和獨立媒體的重要性以及相關的培訓需求。

5. 國際架構（拉脫維亞的國際條約義務）

本節指出，拉脫維亞對於聯合國、歐安組織和歐洲委員會的指示具有國際義務。

雖然該計畫沒有提到監測或實施機制，但拉脫維亞認為其大部分目標已經實

現。現在，大眾對人權之認識因活躍之非政府組織而有所提升。一個獨立的

國家機構已經成立並為相關部門制定了人權培訓方案、通過了國內立法，亦

簽署了國際條約。

該計畫沒有為其實施確定時程框架，但普遍認為目前現有文件應予以修訂或

更新以涵蓋新的目標和戰略。

4.4 菲律賓 (1996)

『菲律賓 1996 - 2000 年人權計畫』載於若干文件中，其摘要共 20 頁。該計

畫的一個特點是菲律賓人權委員會（PCHR）具有協調其實施的核心作用。另

一個特點是政府與非政府組織在通過之前進行了廣泛的磋商。

根據維也納世界會議的建議，PCHR 於 1994 年開始自行開展行動並提出國家

計畫。 這是納入 1995 年初發布的總統備忘錄中，該備忘錄設立了一個由政府

和非政府組織代表組成的工作團隊以編製該計畫。

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該工作團隊制定了一套指導原則，這些原則主張人權的普遍性，關注弱勢群

體的必要性以及廣泛的社區支持的重要性。在制定計畫時，它集中在 13 個

（後來擴展到 16 個）政府官方承認容易受傷害且需要特別考慮的群體。當中

也經歷了結構化的磋商和審查過程，涉及編製一系列提案和區域行動計畫。

該進程包括該國許多地區的會議和磋商，這是有助於實現公共會議和磋商的

國家進程。菲律賓計畫的另一個特點是從一開始就注意到預算問題。該工作

隊設立了一個特別的委員會，負責審查該計畫下擬議活動的籌資需求，並確

立其資金得來源。

所有這些活動都交給了制定該計畫的基礎廣泛的總統特遣部隊。該計畫草案

於 1995 年 9 月提交給總統，經過進一步修訂後於 1996 年 6 月通過。它為

1996 - 2000 年期間制定了一個五年時程框，並在後來被延展到了 2002 年。

計畫中確立的弱勢群體是婦女、兒童、青年、原住民文化社區、穆斯林、老

年人、身心障礙者、精神障礙者、囚犯和被拘留者、移民工人、公共部門勞

工、私營部門勞工、非正規勞工、城市貧困人口和農村勞動力。每個部門都

採用統一的介紹。該計畫的摘要沒有對每個部門的情況進行系統化的分析，

但總結了其所面臨的主要問題。該計畫簡要討論了每個部門的權利以及政府

和非政府組織現行方案的摘要。然後，該計畫提出立法，行政和其他行動的

措施，以解決影響每個部門的人權相關問題。

將婦女問題作為該計畫實施方法的其中一個例子，確立的問題包括：

● 具歧視性的法律;

● 針對婦女的暴力; 和

● 未被承認的婦女權利，例如與健康，生殖權利，刻板印象觀念，性別歧視

以及有限的教育和就業機會相關的權利。

建議的立法措施包括：

● 廢除歧視性法律;

● 修訂不符合暴力侵害婦女行為受害者需求，重新界定販運人口概念，強暴

和家庭暴力的立法;

● 立法消除歧視

行政措施包括：

● 鼓勵促進婦女參與政治和公務之相關措施;

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● 組織支持團體和項目，以協助受暴力侵害行為的婦女受害者;

● 對於性騷擾的措施;

● 保護外籍移工之相關協議;

● 將性別觀點納入各級教育和健康系統。

該計畫還針對其他領域規定了有助於緩解相關問題的措施。

該計畫的實施機制包括建立機構間“部門工作團隊”，該工作團隊將與 PCHR 共

同監督相關活動。菲律賓計畫的另一個重要特徵是在 PCHR 監督下其對監測

和審查過程的重視。這個計畫的持續審查對進展和障礙進行直接評估，並為

整個計畫實行做出了貢獻。

該計畫並沒有單獨關注人權教育。然而，菲律賓已經在這一領域開展了廣泛

的計畫，該計畫已經使 PCHR 獲得了聯合國教科文組織的人權教育獎。此

外，菲律賓總統宣布 1998 - 2007 年為人權教育十年。在這一框架內，PCHR

實施了一項雄心勃勃的教育和機構間的合作計畫。

4.5 巴西 (1997)

巴西的「國家人權行動計畫」載於一份 17 頁的文件中。該計畫是在總統的倡

議下起草的。它的發展反映了巴西在維也納世界會議上的突出作用。它由司

法部和幾個民間社會組織在兩年時間內編寫。準備工作包括數場研討會和辯

論。

此計畫以 序言 和 引言 作為開頭。開頭概述了人權在國家生活中的根本重要

性，並概述了制定計畫的過程。這個計畫採取全面的人權方法，但重點則放

在公民權利。同時，表明了在其目標中切合實際的意圖。雖然沒有嘗試對當

前的人權問題進行系統的評估，但這些作為各種擬議行動的理由。

該計畫的大部分內容包括 政府行動提案 ，這些提案圍繞較主要的問題和弱勢

群體進行，並分為可在短期內解決的提案和與中期有關的提案。當中有 130 多

個單獨的提案。其中許多解決了年輕人、婦女、黑人、原住民、外國人、旅

外巴西人、年長者和身心障礙的需求。 其他部份則闡述人民權利相關的議

題， 如：人身安全，有罪不罰，任意拘留和強迫勞動。同時，還有關於人權

教育和國際行動的章節。

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摘錄代表該方法的一些短期提案如下：

● 提高愛滋病毒/愛滋病患者的治療品質;

● 提出禁止剝削童工的刑事立法 ;

● 促進成立為暴力受害婦女所建立的庇護所;

● 批准勞工組織第 169 號公約（關於原住民和部落民族）;

● 提出一項關於警察在休假期間使用槍枝以及嚴格控制獲取武器和彈藥的法

律草案。

該計畫未提及任何監督或審查機制。

4.6 厄瓜多爾(1998)

厄瓜多爾的「國家人權方案」是以書的形式列出。該方案本身長達 50 頁，並

以五種語言出版，其中包括厄瓜多爾原住民之一的語言 Quichua。該方案是在

外交部的倡議下，在與該國社會各界與管理階層，包括政府、民間社會、教

會和軍方進行一年多的激烈談判和磋商所制定的。一個為期三天並由各方所

組成的會議是整個發展的核心。該方案相當受益於國際支持。其內容已從行

政法令轉換為立法法律，該法令已被包含在計畫文件中。

該方案不試圖評估當前的人權問題，也不限於任何特定的時間範圍。

該方案以介紹 和使命宣言 作為開頭，該宣言聲明人權在人民日常生活中的重

要性，並承認國際準則制定文書所載的權利。

該計畫的內容圍繞四個“策略軸心” –分別為立法進度、公民和政治權利、經

濟、社會和文化權利以及群體權利 。其群體權利將進一步細分為以下領域，

並特別關注於弱勢群體：

● 環境

● 通訊

● 原住民族

● 黑人

● 孩童

● 青少年

● 婦女

● 年長者

● 性少數群體

● 被拘留者

● 身心障礙者

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在立法進度領域，該方案承諾厄瓜多爾將採取國內和國際行動，以改善對人

權的遵守。例如，它規定對“憲法”和國家立法進行調整，以反映國際協定中規

定的所有人權，並通過法律機制和保障確保這些原則的執行。

在其他三個策略軸線下，該計畫確定了 總體 目標 和 策略準則 ，後者提出

了廣泛的行動建議。例如，“公民權利和政治權利”一節側重於法律制度中的公

平和正當程序。以下為該計畫列為四個目標的其中之一：

在拘留、調查和監獄系統的調查和懲罰機制中消除酷刑和身心虐待。

本標題下的五項戰略指導方針之一是：

透過計畫、方案和法律變革改革目前的拘留、調查和監獄系統。

在「經濟、社會和文化權利」領域，該方案使厄瓜多爾國家在社會政策

中能夠實現公平且消弭歧視並調整在保健、教育和社會保障制度中。同時，

還預想設立一個委員會來監測「經濟、社會、文化權利國際公約」的執行情

況。

該計畫的一半以上用於「群體權利」一節，特別是與弱勢群體有關的部

分。策略指南在這些部分中針對每個組別分別提出至多 12 個具體的提案。這

些建議旨在促進法律和實際情形中承認群體成員的權利，並啟動行政和社區

行動，以提高他們的尊嚴和改善他們的生活質量。

該計畫另包含有關機構、國際政策、公民參與、金融和運作計畫的其他章

節。他們描述了厄瓜多爾將如何促進該計畫能夠有效的實施。實施的關鍵因

素是政府機構能夠與民間社會組成協商並制定運營計畫。它將對法律提案提

供具體的診斷和詳細的建議，並將確立相關負責實施的人員、活動時程表、

資源需求等。一個相當值得注意的特徵對於財政資源的認識是相當必須的。

運作計畫中還規定了一個常務和評估委員會，以監督進展情況，在必要時修

改指南並確保遵守該計畫。

4.7 印度尼西亞 (1998)

「印度尼西亞 1998 - 2003 年國家人權行動計畫」載於一本 21 頁的小冊

子。該計畫的制定歸功於由一個部際人權常設委員會與印度尼西亞國家人權

委員會的合作。該計畫的大部分內容來自於 1994 年底舉行的第二次全國人權

工作坊，約 300 名 與會者出席了會議，其中包括政府官員、軍官、學者、議

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員、國家委員會成員和地方仕紳。關於該計畫的工作成功地於 1996 年結束，

但卻一直到 1998 年的政治改革之後才公布。有跡象表明，該計畫可能會根據

印度尼西亞情況的變化進行調整。例如，該國承諾批准定於 2003 年通過的

「公民權利和政治權利國際公約」，後來提早到 2000 年上路。

該計畫是印度尼西亞總統於 1998 年 6 月 25 日「維也納宣言和行動綱

領」通過五週年紀念日所發布。印度尼西亞總統在啟動該計畫時的發言中

說：「成功的關鍵在於培養和加強人權文化」。他補充說：「行動計畫的真

正含義在於其實施。」

該計畫涵蓋時程 1998 - 2003 年期間，且是一份非常專門並精準的文件。

它首先介紹了印度尼西亞環境的人權問題。該序言中宣稱了人權的普遍性和

不可分割性以及個人權利和集體權利之間的平衡還有權利和責任之間的平

衡。該計畫包含了一個敘述部分，當中對四個主要領域的應用中的方法逐一

概述並以表格形式列出的其活動計畫。同時也包括將負責相關眾多活動的機

構資訊，並且說明國際可以提出援助的地方。

該計畫的四個主要應用領域是：

1. 簽署國際人權條約之預備

在該計畫啟動時，印度尼西亞已經簽署了六項主要國際人權條約當中的兩

項。該計畫指出：「簽署國際人權條約將加強並加快制定國家人權法律相關

條例。」表格部分則列出了一個五年的時程當中需要簽署完其餘的四個主要

國際人權條例以及其他一些相關條例並和勞工組織公約方案。本節包括審查

現有法律並依據需求擬定新法草稿，同時為相關執法人員制訂守則規定。當

中也提及發展履行義務能力的需求。

2. 傳播有關人權的資訊和教育

該計畫強調需要對人權教育採取廣泛和一致的方法。它規定：

● 在聯合國人權教育十年的保護下開展工作;

● 在大學和其他高等教育機構設立人權課程，包括為執法官員提供培訓;

● 制定學校教育課程，包括教師培訓;

● 非正式的社區和家庭教育;

● 透過大眾傳播媒體提供教育。

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3. 實施人權的優先問題

本節強調對於執法人員灌輸國際對於酷刑和任意拘留的標準，還有對執法

人員的人權培訓、對法官和檢察官設立特別方案提供人道法資訊、並教育警

察對於保護弱勢群體和群眾控制培訓等的重要性。

4. 印度尼西亞已經簽署的國際人權條約的執行情況

本節主要介紹印度尼西亞在該計畫啟動時簽署的兩項主要國際人權條

約，即『兒童權利公約」和『婦女歧視消除公約』。該計畫透過國家機構、

國際合作、社會動員、法律改革、法律執行、培訓以及監測來達到執行。

國家人權委員會針對該計畫底下相關專案及活動已經制定專門條例。它將由

政府官員和社區代表組成。該計畫設想將定期評估，並定期指出現行方案並

未包含的人權問題並針對相關問題實施初步評估後對其進行升級進而解決相

關問題。

4.8 墨西哥 (1998)

墨西哥的『促進和加強人權國家計畫』』載於一份 23 頁的文件中。外交

部和內政部長共同發布了該方案。而該方案當初則是由墨西哥國家人權委員

會居中協調而成。該方案邀請民間社會支持和加入其活動。其實施時程並無

具體的設限。

該計畫承襲了墨西哥國家的聯邦性質。該計畫起初是為政府行政部門的

一項倡議制定的，並由外交部居中協調而成。同時，也要求政府的其他部門--

立法機關、司法機關和州政府須在其自己的責任範圍內採取配合行動。

該計畫首先介紹了墨西哥歷史上人權的地位，並指出了參與式民主政治文

化的發展進程。它提到在 1995 - 2000 年國家發展計畫中設立了國家人權委員

會和針對人權的定位。

該方案規定了一系列廣泛的目標，包括加強人權文化、鞏固機構機制、

消彌有罪不罰現象、發展人權監測機制、加強新聞活動、協助履行國際承諾

和促進與民間社會的合作。隨後亦介紹了政府機構為實現這些目標而開展的

一系列更具體的活動。

該方案在「加強」的大標題底下，為公務員提供研討會和培訓課程，並

加強人權教育方案。而在「促進」的標題下，提供宣傳運動和建立人權促進

和傳播機制。並在「保護」標題下，提及了加強執法機制避免人權受到侵犯

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的情況並將協助履行國際義務和加強評估活動，以保護弱勢群體成員的權

利。

該方案列出了短期內將要開展的一些廣泛活動，包括全國反對暴力、酷

刑和有罪不罰的運動，以及製作和傳播關於保護人權的視聽內容。

隨後也列出了一系列主要機構需要承辦的具體活動。以下節錄這些活動的一

小部分：

● 消彌非法程序和騷擾有犯罪紀錄的人;立法將兒童色情製品的生產和銷售定

為刑事犯罪（內政秘書處）;

● 審查對國際條例的緘默（外交事務秘書處）;

● 加強對教師培訓中兒童權利的了解（公共教育秘書處），

● 舉辦關於保健權利的研討會（衛生秘書處）。

墨西哥方案指出監測和評估以及未來建立後續行動之技術委員會的議題。

4.9 南非 (1998)

南非「促進和保護人權國家行動計畫」載於一本 151 頁的小冊子中。該

計畫包含當時曼德拉總統，司法部長和副部長以及南非人權委員會主席的序

言。該計畫的時間期限為三年，並表明該計畫是在國際合作的基礎上所建

構。

該計畫是一份非常全面的文件。它簡要概述了南非的人權歷史和現狀，

並指出了國家行動計畫如何有助於促進南非的人權。該文件的一個顯著特徵

是其發展的詳細描述。從南非人權委員會於 1997 年 5 月召開的全國人權會議

開始，這一系列的過程是有意識地操作的。隨後研討會和磋商會分別舉辦，

並成立國家計畫指導委員會。曼德拉總統於 1997 年 12 月 10 日在人權日發布

了國家計畫進程，聯合國人權事務高級專員瑪麗魯賓遜出席了該會議。工作

事項一直持續到 1998 年，包括內閣批准該計畫綱要以及在該國所有省份舉辦

的一系列協商工作坊。工作坊的一個重要特點是，它們提供了省級地方官員

基本人權培訓的機會。 1998 年 11 月，其內閣討論並通過了該計畫草案。隨

後即提交給議會，並得到議會的認可。該計畫於 1998 年 12 月 10 日國際人權

日啟動。

南非計畫的另一個特點是它對於使用者友善的努力。當中的一個部分，

解釋了計畫文件的結構，並透過表明各個負責人權的國家機構，使其更加注

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重行動。此外，該計畫以便利的手冊形式出版。計畫過程涵蓋一項全國公眾

意識計畫，其中包括媒體報導，研討會和小冊子分發。

該計畫內容和方法相當全面。當中根據以下三大標題審議特定權利和問題：

1、公民權利和政治權利

● 平等

● 生活

● 人身自由與安全

● 隱私權

● 勞工權利

● 政治權利

● 司法訴諸權

● 行政正義法

● 公民

● 外國人

● 難民

● 言論表達

● 遭捕、遭拘留及被告人的權利

2、經濟、社會和文化權利

● 僱用

● 房屋和住所

● 健康

● 食物

● 水

● 土地

● 社會安全

● 教育

● 文化、宗教和語言的自由

● 兒童和青少年的權利

3、發展權、自決權、和平權和受保護環境

● 發展

● 受保護的環境

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另一個值得注意的特徵是適用於所涉及的每個領域的權利的具體描述。根據

上述每個小標題，該計畫對其討論如下：

● 憲法義務;

● 國際義務;

● 在政策、立法和行政措施方面所做的事項 ;

● 進一步挑戰;

● 應對挑戰;

● 評估和監測;

● 資源和預算。

該計畫預想建立一個全國人權協商論壇，該論壇將負責執行和監測該計畫。

部長或司法部副部長將召集論壇。負責監測和實施該計畫的政府機構必須定

期向論壇報告進展情況。該計畫規定對其三年壽命中途的進展進行全面審

查，然後對再其進行修訂和重新採用。

4.10 委內瑞拉 (1999)

委內瑞拉的國家人權行動計畫於 1997 年制定，前總統拉斐爾卡爾德拉宣

布為「人權年」。該計畫是由政府、非政府組織和民間社會代表之間長期磋

商的結果。非政府組織當初提出了若干倡議和建議。該主席要求國家人權委

員會彙編所有倡議、提供討論論壇，並與非政府組織社區和民間社會保持定

期溝通。在這方面，委內瑞拉在各地舉辦了多次研討會和工作坊並成立了三

個工作團隊，分別討論公民和政治權利、經濟社會和文化權利以及環境和人

類發展問題。三個團隊的討論考慮了性別觀點、目標人群和弱勢群體的年

齡。最後確定了初稿並提交給大約 500 個政府和非政府機構進行磋商。進一

步的意見和建議進而能被適當的討論。

『國家行動計畫』於 1997 年下半年批准，查韋斯總統政府透過 1999 年

1 月份總統府發布的決議予以通過。

該國家計畫適當考慮了“維也納宣言和行動綱領”中提出的許多概念。它預

見了以下領域的策略目標和後續行動：

● 公民和政治權利;

● 言論自由 ;

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● 教育;

● 健康;

● 勞工權利;

● 社會安全;

● 資產權利;

● 娛樂休憩;

● 環境與人類發展。

該計畫亦規定須加強與國際人權組織和機制的合作，如人權委員會，美

洲人權委員會和美洲人權研究所。

為了執行該計畫，國家委員會預想了若干前期的措施。它們旨在加強政府實

體，特別是國家人權委員會的法律，行政和財務能力，以便將人權納入主流

並實施該計畫。特別重要的是設立一個由政府和民間社會代表組成的委員

會，以監測該計畫的執行情況。

4.11 玻利維亞 (1999)

玻利維亞『中長期促進和保護人權國家行動計畫』載於一份長達 19 頁的

文件中。該計畫首先指出玻利維亞正在經歷其歷史上的一個特殊時期，其中

一點便是他正在加強其所轄機構，特別是與國防，保護和促進人權有關的機

構。計畫指出，承認多民族和多元文化價值已成為國內政治的一個關鍵因

素。

雖然該計畫沒有試圖對目前的情況進行系統化的分析，但它強調了諸如

家庭暴力、對婦女的歧視、原住民權利嚴峻的情況和毒品販運等問題。它在

人權、實質性和前瞻性的方法方面是全面的，例如設想建立新的政府機構。

該文件沒有描述制定計畫的過程，也沒有評論民間社會的作用。該計畫亦沒

有確立任何執行時限。

該計畫的目標分為五個主題：

● 尊重、捍衛和促進人類權利;

● 公民教育;

● 增強機構能力;

● 立法改革; 以及

● 增強公民社會。

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該計畫規定在三個大主題下規劃活動：

1. 增強機構能力

該計畫表明打算透過在人權事務副秘書長辦公室、人權文獻中心和人權

教育和培訓中心設立兩個新部門等辦法加強司法部。同時也打算增強憲法事

務和人權部和國家公設辯護處的能力，以及增進機構間的協調能力。

2. 立法改革

該計畫提到近期立法改革的里程碑，包括該國多民族和多文化性質的憲

法規定。其預想在中期目標完成立法，以使玻利維亞機構與國際人權準則相

互協調。同時該計畫亦制定了簡化且可實行的法律程序給予司法系統工作人

員作為行為守則。本節強調需要採取切合實際的方法，將有效的改革與盡可

能與廣泛的共識維持相結合。

3. 教育，培訓，資訊及文件

該計畫非常重視教育和培訓。人權、文獻、出版物和資訊中心預計將發

揮重要作用。司法部副部長辦公室的人權教育和培訓中心將制定一項同時針

對一般社會大眾以及特定專業的社會部門的策略。其目的是實現尊重人權的

“常規化”。這些方案將側重於參與司法行政的人員。培訓還將擴展到民間社會

人員和組織，其中將特別強調婦女，兒童和原住民相關議題。同時，還將採

取特定步驟以促進各級常規教育的人權教育。

該計畫未涉及監測或審查的問題。

4.12 各最終計畫之間的共同要素

現存計畫之間彼此差異相當大。它們的長度從 4 到 150 頁不等，時間範圍則

從 2-5 年到無限期，且各自規定的特異性亦不盡相同。但是，仍然有部分相當

重要的共同特徵：

1. 以國際標準作為計畫基礎的重要性

各國計畫皆將“世界人權宣言”和其他公約作為他們尋求實施的標準。且多

數計畫還指出將逐步簽署更多的國際條約。

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2. 公民社會

所有的計畫都強調廣泛的大眾參與計畫以及計畫相關的過程的重要性。

3. 全面性的範圍

大多數計畫都提供了包含公民，政治、經濟、社會和文化權利的綜合方

法。有些人提供所謂的“第三代”權利，例如：健康環境權。大多數計畫都優先

考慮弱勢群體的需求以及優先考慮大眾關注的主題。

4. 目標

所有計畫都為自身設下了某些特定的目標。並依情形而定，部分情況下

相當具體，部分則較為籠統。大多數計畫都將特定挑戰概述為計畫要解決的

具體任務。

5. 準備過程

有些計畫反映出了他們被制定的過程。在某些情況下，這些計畫涉及國

家協調委員會的建立。

6. 高層次政治參與

大多數計畫都涉及高層次的政治參與，無論是在制定計畫的過程還是在

其批准的過程中。

7. 國家人權機構

有些計畫專門提供國家人權機構主導監督其實施的權利。如果沒有國家

人權機構，國家計畫可能會特別要求建立這些機構。

8. 當地的環境背景

大多數計畫都試圖改編其採用的方法以迎合其當地環境背景。

9. 基礎研究

部分計畫以抽象的方式提及有關國家目前的人權狀況，但沒有任何一個

計畫在最終結論中進行系統性的審查或明確反映。

10. 監測和評量

許多計畫皆提到在時程結束時監測實施情況和評估成果的必要性。部分

亦描述了為此目的所建立的具體機制。其餘則將這些功能能分配給現有的人

權機構，如人權委員會。

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第二部分: 制定國家行動計畫

5. 計畫籌備階段

5.1 五個主要階段

制定國家人權行動計畫是一項重大任務。 完成這項任務的主要步驟包括：

•準備階段 ：在此期間，主要機構和組織針對的制度結構進行規劃並參與初步磋商

（本章節將會做進一步探討）;

•發展階段 ：在此期間，主要機構和組織制定適用於有關國家的國家行動計畫的概念，

加強協商進程並起草計畫（第 8、9 章）;

•實施階段：在此期間，相關機構實施計畫（第 10 章）;

•監視階段 ：這階段與實施階段同時進行，需為達成計畫目標及依據活動的具體情況，

對計畫進行調整（第 11 章）;

•評估階段 ：其中的既定目標成的成就，會系統性的評估，替後續計畫奠定基礎（第

12 章）。

在該過程的所有階段都需要進行有效的協商。 這在第 6 章和第 7 章中特別提到。

各國的情況各不相同，取決於憲法和法律制度，政治文化，人權狀況和其他因

素。 因此，制定國家計畫沒有單一的詳細模型。 本章旨在確定在已經具有國家

計畫的國家，或是在廣泛的人權原則方面，有哪些可取的、有用的普遍性要

素。 本手冊的用戶可以在制定新的國家計畫或修訂現有計畫時利用這些要素。

5.2 誰應該發起？

政府的核心作用

必須將國家行動計畫作為一項重要的國家努力。 發展國家行動計畫的根本刺激

因素是要促進和保護人權。在一些情況下，國家行動計畫將成為更廣泛的改革

或民主化進程的一部分。更普遍地，認識到有效實施該計畫將有助於實現廣泛

的國家目標，例如促進社會凝聚力，改善個人福祉和更好治理。

由於該計畫將體現國家政府的承諾，政府必將在計畫發展中發揮核心作用。 計

畫應該是以類似於其他主要政府活動的方式發展。刺激措施可能來自最高級別

的政府。或者，它可能起源於工作層面，作為決策過程的一部分。政府行動當

41

 然受到民間社會，特別是從事人權領域工作的非政府組織的行動的影響。在某

些情況下，可能是非政府組織的行動，說服政府制定國家計畫。

雖然主要刺激措施將來自國內，但國際活動可為該進程提供形式和方向。“維也

納宣言和行動綱領”是一個重要的參考點，它自然地導致使用國際商定的人權準

則作為計畫的框架。關於這一主題的國際會議也可以提供推動力，例如聯合國

人權事務高級專員辦事處在拉丁美洲、非洲和亞太地區組織的關於國家行動計

畫的區域工作坊。

焦點機構

無論原始行動刺激的確切位置如何，重要的是在該過程的早期確定一個特定的

政府機構作為行動的焦點機構。該機關可以是司法部，外交部，總統辦公室或

其他一些適當的部門。在某些情況下，它可能是一個國家人權機構，但應該理

解，實施的責任必須始終由政府承擔政府。

焦點機構可能或多或少地自我選擇。其提名可能來自政府機構，有時候還有民

間社會組織和其他相關機構參與的協商過程。該過程的終點應該包括政府正式

任命所選機構執行任務。 無論政府任何機構被任命為協調機構，都應該給予足

夠的權力和資源來有效履行其職責。 建立一個對應的非政府組織協調委員會或

可能是一個“焦點”的非政府組織來促進與民間社會的溝通也很有用（見第 6.3

節）。

5.3 誰應該參與？

如果沒有在發展和實施階段廣泛參與，那麼該計畫最終可能只是一種修辭手段，

並且在實施階段它將陷入困境。廣泛參與將確保廣泛分享計畫的目標，並確保

流程透明。透過動員大量人口，廣泛參與也將有助於保持有效實施的動力。

根據計畫預計的規模和範圍並考慮到可用資源，規劃過程可包括以下幾種參與：

• 政府領導人和負責任的部長;

• 議員，特別是在人權委員會的議員;

• 該焦點機構可能是外交部，司法部或機構間的協調組織;

• 其他相關政府機構，可能包括負責警察和司法系統、內政、勞工、教育、衛生、婦

女、社會福利、國防和武裝部隊、財政、規劃和發展;

• 安全機構，如武裝部隊和警察;

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• 相關的半政府機構，如法定機關;

• 國家人權機構，如獨立的人權委員會;

• 人權非政府組織，尤其是關注人權的非政府組織，如關懷婦女及兒童權利的非政府

組織;

• 弱勢群體的代表成員;

• 社區組織，特別是那些通常不被視為人權組織的非政府組織，通常它們關注社會問

題，如健康、住房、教育、發展援助、少數民族、宗教問題、尋求庇護者、原住民

等等;

• 司法機構成員和法律學者;

• 工會和專業團體，包括教師協會，律師，記者等;

• 人權專家;

• 學者和教育工作者;

• 代表性研究機構;

• 媒體;

• 企業代表，包括工、商業協會;

• 私人基金會。

此外，在某些情況下，讓國際組織參與這一進程的參與者可能是有益的，特別是

在該計畫的規劃和實施極大地促進國際技術合作的情況之下。

5.4 政府和議會的作用

有效的計畫需要政府與民間社會之間的富有成效的合作。然而，政府的作用至關

重要。有效執行該計畫將需要動員政治意願，在各種政府機構之間進行有效協調，

在相當長的一段時間內持續努力，分配足夠的資源和公平的監測程序。這些元素

中的每一個都難以付諸實踐。對於那些主要參與的相關政府機構來說，確保這些

所有項目的實施將是一項挑戰。

政黨和議會的作用也應強調。作為民主進程的一部分，政府不時變化。 然而，國

家行動計畫必須繼續不間斷地運作。因此，重要的是要確保該計畫得到所有主要

政黨的支持，以便在政府改變時不會對其實施產生不利影響。為此，反對黨可能

會被納入協商過程。應該特別努力於讓不同政黨但是關注此議題的議員參與人權

議題。處理此類議題的議員會是實現這一目標的有效機制。

43

5.5 準備階段應該如何管理

讓第 5.3 節中列出的所有參與者參與，甚至是持續參與，可能是不切實際的。因此，

需要一個代表機構和一個管理結構，以及足夠的資源使這些機構能夠運作有效。

以下步驟通常與計畫的準備階段有關。當然，這些要素付諸實踐的方式，與每種

依情況而定的步驟以及採取行動的順序皆因國家而異：

• 政府內部以及政府與民間社會之間的初步磋商，可能是來自於人權委員會或非政府

組織的建議;

• 政府決定開始進行計畫;

• 決定和任命作為行動重點機構的政府機構;

• 與政府相關機構以及半政府組織溝通計畫的目標;

• 與主要利益集團的溝通，如司法機構，非政府組織，學術單位和教育機構;

• 由協調機構制定與計畫初始階段有關的原則草案，並與民間社會和其他機構密切協

商。這些原則將是暫時且靈活的，且特別針對誰應該參與該過程，以及在初始會議

的設置流程的必要性;

• 如果尚未成為流程的一部分，則由政府首腦和/或相關首長進行具體背書或指揮;

• 公開宣布制定國家行動計畫的意圖，作為初步媒體戰略的一部分;

• 組織初次全國協商會議或一系列會議，以獲得各有關團體的意見。一個或多個會議

將討論國家行動計畫的概念，並討論出發展過程的細節。此階段的一個重要議題是

國家協調委員會的結構和成員資格（見下文）。在初次全國協商會議上討論的其他

問題可能包括計畫的範圍、時限、資源、媒體和教育以及國際合作。

44

 圖 4 – 籌備階段

 政府內部的磋商

 與非政府組織和其他有關團體的磋商

 政府決定繼續執行該計畫

 政府任命焦點機構

 焦點機構通知其他政府機構和民間社會團有意制定計畫

 重點機構與民間社會協商，制定計畫初期階段的原則草案

 政府正式通過這一進程

 公開宣布制定國家行動計畫的意圖

 組織初次全國協商會議或與利益攸關方舉行會議

 成立國家協調委員會

5.6 國家協調委員會

該計畫工作籌備階段的關鍵發展將是建立國家協調委員會。或許可以將該

機構稱為特別工作組、指導委員會等，但為了本手冊的目的，我們將其稱

為“國家協調委員會”、“協調委員會”或“國家委員會”。作為籌備階段工作的

一部分，協調機構可就協調委員會的規模、組成和工作方法及其必要的支

持結構和資源編寫一份建議。民間社會代表和上述初次全國協商會議的其

他與會者可以審議這項建議。政府通常會就與委員會有關的事項作出最終

決定，但這些決定必須得到其他利益關係人的支持。

規模

該委員會的規模應涵蓋政府機構，利益關係人和利益集團的代表，同時在

決策方面具有有效性，成本方面具有可控性。成員大約 10 到 20 可能是實

現這些目標的最佳規模。

組成

為了實現有效實施和廣泛民眾支持這兩個目標，成員應包括重要政府機構

和民間社會組織的代表。性別和種族平等，宗教、區域或其他少數群體的

公平代表性也應是重要的考慮因素。政府機構應包括對執行計畫負有特定

責任的機構，例如安全部門和負責社會政策的部門。民間社會組織應包括

工會代表和負責經濟和社會問題的代表以及弱勢群體的代表成員。商業部

門的一些代表是可取的。在某些情況下，如果委員會的公眾形象包括電影，

電視，音樂或體育名人，則可以加強公眾形象。在某些情況下，例如在制

定計畫並進行大量國際技術合作的情況下，可能應該包括國際組織的觀察

者。

45

主席

委員會主席通常應該是國家行動計畫和促進人權的有效發言人。在計畫準

備的所有階段，主席將發揮重要作用。無論主席是由其他成員選舉還是由

其任命，主席都希望是政治人物，如部長，以確保政府內部的計畫制定、

發布和實施。從非政府組織社區中選出一名副主席也是可取的。

部門工作小組;其他委員會

為了確保有關組織的代表性並有效調動現有的專門知識，可能有必要設立

小組委員會或「部門工作小組」來處理計畫中的具體主題。許多政府機構

和非政府組織參與該計畫的執行，讓協調委員會單獨負責如此廣泛的合作

是不切實際的。關心特定議題的小組委員會將確保他們大量參與相關議程，

並將他們的意見直接提供給協調委員會。因此，最好設立這樣的部門工作

小組，負責需求評估、起草計畫和監測國家行動計畫進程中涉及的具體部

門問題。這些問題可能包括保健、教育、住房、少年司法、囚犯管理、難

民和許多其他問題。

部門工作小組將由協調委員會監督並向協調委員會報告。部門工作小組應

該不斷審視為指導計畫發展而成立之委員會，以便讓制度結構能夠符合任

務的需要。可能需要建立新結構或停止現有結構以應對不斷變化的情況。

協調委員會應認真監督這些機構，以確保資源和時間的經濟性。

在制定計畫的初始 階段，協調委員會應發揮強有力的指導作用，以便該過

程能夠迅速發展。協調委員會應確保民間社會和政府機構提供豐富的投入，

並向直接參與的人和公眾傳播準確的信息。

政府和非政府組織社區也可能需要單獨的其他委員會來處理他們自己的活

動領域的具體問題。從政府方面的角度來看，這些事項可能包括的發展對

部長和資源問題的建議。在非政府組織方面，它可能包括發展協調的非政

府組織職位或向基層傳播信息。根據國情和計畫的需要，建立區域或地方

委員會可能很有價值。

46

在該進程開始時，對委員會和其他結構機制的需求可能並不是那麼的明

顯。這個過程應該從協商和建立國家委員會開始，但它應該足夠靈活，以

納入新的要素，並允許改變其組織結構。

47

 圖 5 – 國家協調委員會 - 可能的組成和任務

焦點機關

政府機關 高峰非政府

組織

政府機關 高峰非政府

組織

委員會職能

政府機關

 進行指標性研究 國家人權機

構

 與政府進行有效聯絡

警察  與社區進行有效磋商 弱勢族群代

表

 公開會議和聽證會

 制定計畫管理和評估結構

國防軍事

代表  起草計畫 弱勢族群代

表

 制定媒體和傳播戰略

 促進計畫的實施

議員 社區代表

 監督和審查

 根據需要修改計畫

司法機關  就缺點諮詢執行機構

社區代表

代表

 向政府和公眾報告

教育者

商業代表

商業協會代

表

媒體代表

私人基金會

48

 功能

委員會的主要職能是：

• 將國家行動計畫概念化為國際標準、國內法和地方法情況的綜合;

• 進行指標性研究以確定國家人權脈絡;

• 整理相關的現有人權訊息，如政府機構研究和報告，以及國家人權機構、

國際組織和非政府組織的報告 ;

• 考慮現有的行動計畫，包括婦女權利、兒童權利和教育方面的發展計畫

和計畫;

• 透過在明確的時間內確定目標、戰略、組成要素、優先事項、弱勢群體、

計畫和活動、監測、評估和修訂來制定國家行動計畫草案;

• 組織協商論壇/公開會議以評估答覆，並考慮收到的反饋做修改和最終確

定國家行動計畫;

• 向最高層級的政府機關提交計畫並取得批准;

• 向所有利益相關人傳播已獲得批准的國家行動計畫，以便實施並與各自

的政策和計畫做結合;

• 制定和實施媒體戰略，包括公開傳播相關材料，以便讓所有利益相關人

參與進程並促進一般社會大眾對此計畫的認識;

• 監督和促進對國家行動計畫的評估;

• 適當地報告，報告對象可能包括人民，政府、議會報告。

在一些國家，將協調委員會制度化，使其具有超出國家行動計畫的職能，

可能會有所幫助。委員會可以繼續努力負責將人權問題帶入政府機構並使

其成為主流思想。具體活動包括促進和協調人權培訓、能力建設和活動、

以及為人權有關的活動籌集資源。

時間範圍

應為協調委員會的運作和完成各項任務確定明確的時間框架。委員會本身

應該定期開會。

雖然必須妥善準備該計畫，但協調委員會的工作不應過分延長。如果執行

時產生的概念導致執行過程開始偏移，那將破壞努力制定有效計畫應有的

成效。因此，協調委員會應該穩定地工作，並希望在該進程開始後 12 至 18

個月啟動該計畫。

49

秘書處和資源

應設立一個秘書處，以支持協調委員會，並在委員會會議之間管理與國家

計畫有關的活動。秘書處的核心工作人員可由調查機構借調。重要的是確

保秘書處的一些工作人員是由其他組織提供。 這將增強秘書處的人權專業

知識，並促進新的想法和方法。國家人權機構、人權非政府組織、法律機

構或律師事務所和商業公司等機構都是可以考慮向其借調成員成為秘書處

的一員。秘書處的高級辦事員應由協調委員會根據其自身制定的標準選出。

不太可能需要一個大型秘書處。如果當地資源稀缺並尋求國際捐助者的支

持，大型 秘書處可能被認為是不恰當，甚至是浪費的。秘書處的工作強度

將隨計畫的生命週期而變化。在發展階段，將有較高的工作負荷，而在實

施階段，活動的重點將從協調委員會和秘書處轉移，工作負荷將低得多。

政府應撥出足夠的財政資源，以便舉行委員會會議和公開會議、支付秘書

處的費用，以及支付媒體的費用。

50

6 國家機構與民間社會的作用

6.1 國家人權機構

國家人權機構（NHRIs），如人權委員會和監察員（在一些國家也稱為

公設辯護人或公共保護者），在許多國家已被政府創立。 它們是人權議

題知識和專業知識的儲存庫，其功能為監測人權侵犯等相關問題，提供

政府關於立法和其他事項的諮詢，以及執行人權教育方案。 雖然它們的

結構和功能因國家而異，但它們在促進和保護人權方面發揮著極其重要

的作用。 它們也可以為國家行動計畫的制定和實施做出重大貢獻，並參

與國家協調委員會以及更廣泛的協商活動。 在沒有國家人權機構的國

家，其建立通常是該計畫的一個關鍵目標（見第 8.5.6 節）。

迄今為止，在擁有國家人權機構的國家制定了國家計畫，後者通常密切參與規

劃進程。 人權委員會起草計畫的發源國 - 南非 - 就是一個很好的例子。 在某些

情況下，例如菲律賓，國家人權機構可能要求在協調計畫的實施方面中扮演主

導作用。 如果發生這種情況，仍然應明確認知計畫中的承諾會對政府將於採取

適當行動的責任，並且認知確保實現計畫目標的責任不能轉移給非政府機構。

鑑於其獨立地位，國家人權機構通常很難一肩扛起監督計畫實施之責任。 國家

人權機構的作用應該主要是監測執行情況，提供專業知識，並就適當的行動向

政府提出建議。 儘管如此，在這方面，國家人權機構本身可能會成為該計畫的

一個或多個領域的執行機構，例如為公眾人權教育。 此外，有些國家計畫目標

可能主要在改善國家人權機構的運作。

如果該計畫下的國家人權機構的活動超出其正常職能，政府應確保提供足夠的

資源。

6.2 誰建立民間社會？

“民間社會”通常可被視為與政府沒有直接聯繫的所有組織和個體。 在過去二十

年中，因為民間社會反映加強全世界民主體制，它在當代公共政策制定中扮

演越來越重要的作用。 信息技術和運輸方面的改進促進了這角色的發展。 因

為如此，現在，大眾更加見聞廣闊，並且更有組織及表達觀點的能力

51

圖 6 –民間社會參與

 人權非政府組織, 包含

-貿易工會

-相關專業協會

-法律專家

-女性

-小孩與青年

-弱勢團體代表成員

 處理經濟,社會及文化權利的非政府組織以及社區組織

 國家人權機構

 教育家, 學術及研究單位代表, 人權專家

 私人企業部門代表

 慈善及其它私人基金會代表

 媒體

 一般大眾

實際上，民間社會的範圍非常廣泛。在人權工作中，人權非政府組織適當發

揮主導作用，並預期集中參與國家行動計畫的規劃和實施。但是，由於國家

行動計畫在於促進如此廣泛的活動，所以指導這一過程的人應盡一切努力將

協商進程擴展到傳統上被視為組成“人權社區”的行動者之外。尤其對於大型和

/或地理或民族複雜的國家，這更加適合。因此，諮詢網絡內的組織在規模，

資源，重點和地域分布方面各不相同。在許多情況下，談論「非國家行為

者」會比談論「非政府組織」更為恰當，以便涵蓋涉及國家行動計畫的各種

利益。由於各國之間存在一些差異，下列民間社會部門應參與國家行動計畫

的制定和實施。

6.3 人權非政府組織

許多國家都有一個或多個人權非政府組織「傘形」機構，負責代表組成非政府

組織，協調行動和傳播信息。 政府應將這些非政府組織機構視為規劃和實施

國家行動計畫的關鍵夥伴。 藉由與這些協調機構合作，政府會發現與民間社

會協商的過程可以更有效地處理。 從更廣泛的非政府組織的角度來看，透過

代表性行動，他們能將其活動集中在計畫之下，而不是讓他們的努力通過各

種的特設機制消散。 此外，非政府組織協調機構的正式作用將有助於消除對

於政府沒有認真對待磋商或操縱這一過程的任何看法。

52

由於有效協商是有效計畫支出中的必要部分，各國政府應確保為非政府組織協

調機構的這一部分能分配到足夠的資源。 這花費包含旅行、通訊、材料的準備

和傳播以及場地的租用。

最好透過參與促進和保護人權的許多其他組織的協商過程中來補充主要非政府

組織的協調和代表作用。這些組織可包括工會，專業協會，法學家以及代表婦

女，兒童，少數民族，原住民，身心障礙人士，農村居民等組織。協調委員會

應特別確保與弱勢群體的代表成員有進行有效協商，這點可能在國與國之間會

有所不同的定義。

6.4 處理經濟、社會及文化權利的非政府組織及社區組織

協調委員會應特別確保處理經濟和社會問題以及其對應的政府機構的磋商過

程的非政府組織和社區組織(CBO)在磋商過程中的有效參與。經濟，社會和

文化權利的重要性以及人權的不可分割性是須經任何計畫充分處理的重要主

題。一個有價值的成果應該是提高在相關領域和公眾中工作的人們對經濟，

社會和文化權利，如健康權，住房和教育權以及發展權的意識。這將促進以

這種問題為基礎的基於權利的方法，以個人和群體的權利為中心，而不是主

要強調政治，官僚和預算考慮的更常見的服務提供方法。在國家計畫框架內

就這些議題開展工作將有助於制定可在其他背景下使用的基準，例如根據相

關人權條約提交報告。

6.5 教育家、 學術及研究單位代表、人權專家

促進和保護人權是長期活動，一個國家的教育體系在此中扮演即為重要的角

色。 教育工作者和教育機構代表在國家行動計畫進程中將：

● 鼓勵與教育系統建立更有效的關係;

● 在計畫中促進更好的人權教育規定; 和

● 促進在教育系統內更好地實施計畫的規定。

來自於研究機構相關的人員的諮詢也將有助於確保計畫能在更廣泛和更長期

的基礎上的影響。在許多國家，無論是作為非政府組織的代表，還是作為法

律專業的代表，還是作為學術專家，都會有人在人權問題上具有特殊的專業

知識。 儘管他們的角色在任何協商過程的組織並無實質效益，但他們在人權

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事務的專業與知識極為重要。 協調委員會應盡可能將這些人納入磋商過程，

例如協助他們準備基線研究。

6.6 私人企業部門代表

隨著全球化和政府規模縮小化的趨勢，人們越來越認識到社會成果部分取決

於社會中的非政府行為者，包括企業。 在一些國家，多國採礦和工業企業應

能構成傳遞社會福利, 如國家建設, 教育, 和衛生設施, 的重要實際或潛力渠

道。 商業公司也慢慢意識到，他們的使命不僅是為股東帶來利益，而且還表

現出對環境責任和促進社會價值的承諾，特別是對利益相關者而言。 當然，

必須注意不要與被認定有可疑或濫用人權行為的公司或商業領袖有聯繫。

6.7 慈善組織及其它私人基金會代表

由於與公司部門平行增長重要性的原因，私人資助組織在提供社會福利方面

發揮著越來越重要的作用，這通常可以用人權術語表達。其中一些可能與公

司有關。此外，這些組織通常由在社區中具有顯著地位的人領導，因此有能

力為國家行動計畫進程作出有益貢獻。雖然這些組織通常不會在國家行動計

畫進程中發揮主導作用，但讓它們參與磋商可能是有益的，特別是透過信息

提供。

6.8 媒體

國家行動計畫的成功在很大程度上取決於公眾的意識和支持。 因此，應鼓勵

媒體以兩個廣泛的角色參與規劃過程。 一是向公眾提供有關人權和國家行動

計畫的準確信息。 另一個是為規劃過程提供見解，作為一個對人權的直接關

注，特別是信息自由。

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6.9 一般公眾

除了與非政府組織和其他民間社會代表就計畫進行協商的機會之外，與公眾

協商的具體機制還是要有。 這些可能包括互動網站，公共會議，邀請公眾成

員提交個人意見，以及使用媒體，例如透過對講電台。 這些機制將在第 7 章

和第 10 章中詳細討.

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7 協商機制

7.1 過程的重要性

人們常說，制定計畫的過程與文件本身一樣重要。 這是因為該過程將決定：

● 對計畫的政治支持程度;

● 相關政府機構和非政府組織有效參與的程度;

● 各方之間是否有足夠的互動，以確保該計畫從其不同的見解和觀點中獲益;

● 公眾對計畫的認可和支持有多廣泛;

● 監測計畫的效率如何。

為確保計畫實現其最佳潛力，流程本身以及計畫的內容和機制應以產生結果的

方式構建。主要行為者，無論是國家還是非國家，都應該從一開始就這一進程

進行磋商。如果政府和民間社會之間建立夥伴關係而不是政府推動的工作，最

終結果將會更加有效。誠然，最後，履行計畫的義務主要落在政府身上，從這

個角度來看，制定一項計畫來規定政府不能或不希望執行的措施是不切實際

的。然而，真正的對話進程應該在政府和民間社會之間產生一種理解，這理解

會為實現廣泛社區支持的現實計畫奠定基礎。

機制,如政府和民間社會代表定期會議等,將成為磋商的主要工具，但該進程的

主要行動者應不斷尋求新的有效手段，以擴大對該計畫的磋商。指導原則應始

終是國家行動計畫是一項國家承諾，協商範圍越廣，計畫的結果就越有效和持

久。

這種更廣泛的磋商應包括主要參與者之間的定期非正式的個人和電信聯繫，

以促進更好的合作和和諧的合作氛圍。它們還可以包括互動網站，公開會

議，公開聽證會，書面提交和對講電台的使用。前往省級地區的主要參與者

也可帶來好處，因為他們可以確保該過程更貼近受益者

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圖 7 – 協商機制

 國家協調委員會

 部門工作組

 政府與民間社會代表的會議

 民間社會組織之間與之內的協商

 非正式私人及通訊聯絡

 公開會議，包含在省級地區

 互動性網站

 公開聽證會

 書面意見書

7.2 對講電台的使用

委員會

該進程的第一個重要步驟是建立國家協調委員會（見 5.6 節）。委員會的一般

組成已經討論過，但民間社會參與者的數量將取決於其規模。為了確保在一個

成功的計畫中充分代表社會的各種利益，可能需要在一個二十個委員會中有八

到十個這樣的成員。確保委員會的程序和工作方法規則有利於和諧的環境和富

有成效的結果。

非政府組織和其他具有特定社會行動領域專門知識的非國家行為者將參加處理

該計畫具體主題的部門工作組，無論有關組織是否直接代表協調委員會。

部門工作組本身將在磋商過程中發揮關鍵作用。它們將是將協調委員會的“範

圍”擴展到專業組織以及進入該國所有地區和社會各部門的不可或缺的工具。

它們將使協調委員會能夠利用更廣泛的專業知識，並將大大提高計畫的質量。

除協調委員會和部門工作組框架內的協商外，還應有更廣泛的協商進程。這些

進程包括：

• 民間社會組織之間的磋商;

• 政府與民間社會組織之間的磋商;

• 民間社會組織內的磋商;

• 與公眾進行面對面的磋商。

例如，在協調委員會中有代表非政府組織可以安排與其他姐妹非政府組織和社

區組織進行會議，以討論該計畫。非政府組織可能會採取具體步驟來徵求其基

層成員的意見。政府或協調委員會與更廣泛的民間社會組織之間也可能進行磋

57

商。重要的是，應該為廣泛的有關組織和個人提供公開聽證會的設施，以便公

眾有各種各樣的機會提出他們的意見。

7.3 公開會議與公開聽證會

與利益攸關方的磋商應旨在接觸社會各階層和該國各地區的人民。當計畫狹隘

地集中在政府和民間社會精英上時，這情況應極力避免。

公開會議可以對磋商過程和制定得到廣泛支持的計畫作出重大貢獻。如果與民

間社會組織合作建立，並且適當地組織和充分資助，它們將更加有效。在許多

情況下，公開會議可公開給人民。例如，屬於弱勢群體的許多人可能居住在遠

離首都的地區。如果在其組織的框架內舉行公開會議，弱勢群體的其他成員可

能會對此過程更有信心。此外，如果被視為努力直接與普通人接觸，公眾將對

該過程給予更大的信譽。與公開會議有關的一個問題是，它們需要足夠的資金

來支付參與者的旅行費用，廣告和場地租用。

公開會議的一個不同版本是公開聽證會。在聽證會裡，可以邀請或要求公眾，

民間社會組織和政府官員提供有關問題的信息。公開聽證會可為議會，議會委

員會，國家人權機構或其他法定機構的法定任務的一部分。此類聽證會可以系

統地調查問題，要求提交或證人出庭，分析所提供的信息並提出建議。

關於人權主題的公開聽證會在向當地人民提出時非常有效。例如，人權委員

會，兩性平等委員會和南非非政府組織聯盟（SANGOCO）於 1998 年在南非

各地組織了關於貧困問題的公開“說出”聽證會。聽證會給了窮人一個獨特的機

會直接向決策者和公眾講述他們引人入勝的故事。

公開會議和聽證會的一個重要好處是，它們可以成為媒體對國家行動計畫進程

的積極報導的重點。這類報導將構成該計畫公共信息戰略中潛在的重要且無成

本的要素。在農村和省級地區，公眾意識的好處可能尤其明顯。

弱勢群體成員或遭受侵犯人權的人並非都對在公共場合表達自己的觀點感到合

適。如果是這種情況，那些參與公眾諮詢的人應該提供更多私人交流的設施，

甚至可能希望在某些情況下確保機密性。邀請受影響人群的倡導者或法律代表

也是有必要的

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7.4 透過評論或投稿來參與

無論面對面的諮詢過程多有效，只有少數可能感興趣的公眾成員才能有直接

交流。 因此，規定向廣泛的有關公眾傳播有關該計畫的信息，並確保有能力

接收和納入公眾，包括個人的評論和意見，有重要性。 這應該是 10.4 節中更

詳細討論的交互式媒體策略的一部分

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 8 計畫的發展階段

在籌備階段建立初步結構後，下一步是實質性地制定計畫本身，其內容以及

實施，監測和評估機制。

圖 8 – 發展階段

 頻繁召開協調委員會會議

 國家行動計畫的概念化

 建立秘書處

 與非政府組織和其他有關團體進行磋商

 公開會議與公開聽證會

 基線研究準備

 優先順序認知

 關注弱勢團體

 特別關注問題

 與其他國家規劃活動的聯繫

 草稿計畫

 時間框架

 法律地位

8.1 國家行動計畫概念化

協調委員會的首要任務之一是制定一個國家行動計畫概念模型，該模型既利用

有關此類計畫的國際工作，且應用於有關國家。

參與協調委員會的許多人可能不熟悉國家人權行動計畫的概念。其中一些人可

能也沒有在在廣泛的人權系統內工作的經驗。儘管如此，由廣大社區的代表，

負責實施計畫的政府組織和人權專家組成的基礎廣泛的委員會的價值在於，它

有助於制定實際的綜合思想，作為有效計畫的基礎。

協調機構應以以下方式為委員會的概念性討論做好準備：

• 提供關於國家行動計畫的適當背景材料，包括本手冊，以及有關國際人權

標準，國內規範和國家人權狀況的信息;

• 編寫一份備選文件，詳細說明實施可能適合當地情況的計畫的若干方案;

• 邀請具有此類概念工作經驗和/或在其他國家制定國家計畫的國際專家與協

調委員會和其他相關機構和組織舉辦研討會或研討會（可通過國際技術合

作計畫提供資金）。

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該計畫的概念應包括當地情況的國際規範和特徵。在一系列會議中，協調委員

會應設法制定一項雄心勃勃但實際的計畫綱要，並體現在實際時限內要實現的

人權承諾。然後，該大綱可以作為政府考慮和與社區協商的基礎。

8.2 編寫國家人權狀況報告 – 基線研究

8.2.1 基線研究的一般途徑

全面而準確的基線研究是制定國家行動計畫的任何系統方法的關鍵要素。為了

使一個國家能夠更好地遵守人權，此國家要知道它目前的立場。迄今為止公布

的許多國家行動計畫都是以聯合國在某些情況下進行全面人權需求評估為基

礎。因此，一些人提供了需要解決的人權問題的粗略敘述，當前政策的陳述以

及對應對這些挑戰已經或正在採取的行動的概述。

必須知道，這種詳細的人權基線研究可能被視為政府不願意進展的政治敏感問

題。基線研究本質上會偵測缺點，這可能意味著組織對缺陷的責任，且可能反

過來產生負面影響。但是，當局進行人權評估的意願本身就表明了有效的國家

行動計畫進程所需的政治意願。此外，對緊迫的人權問題進行準確和坦率的評

估對於確定解決方案至關重要。

此外，徹底的基線研究本身也是一項重要的練習。旨在就所有人權領域的遵守

情況得出詳細結論的基線研究需要調查醫療保健，教育系統和許多其他服務提

供領域以及司法行政和歧視態度的存在。各國經常對關注事項進行研究，經驗

表明，對一個問題進行全面研究可能需要相當長的時間並涉及大量資源。有人

可能會建議，在極端情況下，詳細的基線研究可能需要數年時間才能完成。

如果基線研究過於昂貴或耗時太長，可能會破壞整個國家計畫進程。在大多數

情況下，解決方案是找到一種常識性的方法來準備研究。各個國家應根據自身

情況（包括現有資源）決定如何進行。

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政治領導人，公職人員，民間社會組織成員和公眾成員都將或多或少地了解目

前缺點的性質和需要做的事情。這種理解將基於媒體報導，個人經驗，公共領

域的信息和現有研究。基線研究應該只是試圖確認和系統化已知的內容。它應

該被視為國家行動計畫進程的一部分，而不是一個過程本身。特別是，它不應

取代對有關事項的具體調查。

有些國家可能希望對其人權狀況進行更詳細的評估，即使它們存在一些困難。

實際上，如果不面對具有挑戰性的問題，就不可能實際地改善人權。在某些情

況下，嚴重侵犯人權的情況需要進行深入調查。但是，有人建議，這些應該是

具體調查的主題，而不是基線研究的一部分。

雖然報告應該清楚，但不需要冗長。它應該是全面的，涵蓋經濟，社會和文化

權利以及發展權以及公民權利和政治權利。該報告應根據狀況利用現有研究，

例如向聯合國人權條約機構提交的國家報告，聯合國條約機構和特別報告員的

結論，現有的部門報告或非政府組織的報告。它應側重於為行動計畫做出貢獻

的方式，而不是政治宣傳，回顧性責任歸屬或對具體問題的調查。

8.2.2 基線研究的內容

這種研究沒有單一的模式，但一些元素通常是合適的。它應審查法律框架，保

護人權的機構以及人權教育和意識狀況。特別是，報告應辨認在履行國家人權

義務方面遇到問題的主要領域。

它還應側重於弱勢群體的情況和社會指標所呈現的情況。突顯在公共領域已經

被辨認出的主要人權問題將提高研究的即時性和相關性。

法律框架

這應包括國際框架，涵蓋遵守“世界人權宣言”和適用的人權條約規定以及國家批准所有

主要國際人權條約的情況。還應包括將國際規範納入國內法，並應對人權領域的國內

法進行一般性調查。人權問題可能會在某個國家的憲法中以某種方式涵蓋，並可能出

現在國內立法的各種背景下。研究必須對法律框架的有效性以及司法系統的獨立性和

能力提供一些印象。

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人權機構

該研究應調查國家機構保護人權並評估其有效性。它不僅應包括國家人權委

員會，還應包括為保護婦女、兒童或原住民的權利或促進人權教育或與其他

人有關的其他相關機構。 該研究還應著重於非政府組織有效運作的基本條

件。

圖 9 – 基線研究

由國家協調委員會監督

與民間社會的協商

草稿由: 包含:

 秘書處, 或  法律框架

 國家人權機構, 或  人權機構

 議會委員會, 或  社會指標

 人權專家, 或  弱勢團體

 其他顧問個人或組織，或  人權議題

 與非政府組織的協商  其他相關議題

草稿時間

兩個月草稿 兩個月評審

社會指標

這些將成為人權遵守的重要標誌，特別是在經濟，社會和文化權利方面。重

要的是提供分類數據，包括種族，性別和其他標準，以便歧視的發生率明顯

易見。如果沒有這些指標和信息，國家行動計畫最終可能包括定期收集必要

數據的計畫。

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弱勢團體

該研究應列出被視為易受傷害或需要某種形式特別關注的社會群體。 它應該

評估他們的人權狀況。

人權議題

列出國家調查，議會，非政府組織，聯合國條約機構和特別程序以及媒體最近

確定的主要人權問題可能是有用的。

8.2.3 基線研究的草稿與傳播

起草基線研究有幾種可能的方法：

● 協調委員會可要求秘書處起草;

● 委員會可委託合適的個人，團體或組織承擔任務，或組成若干組織的工作

來這樣做。 這些機構可能包括國家人權機構，議會，非政府組織，司法官

員，國際人權組織的代表或受人尊敬的人權專家。

● 另一種模式是基線研究為政府與民間社會之間合作管理的協商過程的結

果。這項工作可以作為協調委員會的一項活動進行管理，可能需要部門工

作組的投入。如果組織，資助和準備得當，幾天的單次會議，連同書面提

交和一些非正式的信息收集活動，都可以產生預期的評估。如果這不符合

當地條件，例如在大國或人口眾多的國家，協商過程可能包括在不同地點

的幾次會議。

無論採用何種方法，在研究最終確定之前確保充分的諮詢非常重要。即使

它是與民間社會聯合編製的，也有必要制定一份草案，供有關團體和公眾

發表評論。該草案應在磋商過程中分發給所有小組。它也應該張貼在網站

上，並應提供給公眾以徵求意見。

應該有明確的時間框架，以確保研究的準備不會拖延計畫的起草和啟動。

鑑於該研究不應涉及原創性研究且不應冗長，建議為研究草案的準備工作

提供兩個月的時間，並再進行兩個月的評論。當然，協調委員會應該在研

究期間繼續開展其他活動。

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8.3 優先辨別

人權行動計畫涉及非常廣泛的活動領域。要立即克服所有人權問題是不可能

的。資源和教育需求是重要的制約因素。因此，必須對優先事項作出判斷。確

定優先次序是一種必要的管理工具，在人權領域尤為重要，因為相對於需要進

行開展之工作而言，可用資源有限。此外，應優先考慮一些人權問題，例如關

於生命權，酷刑和人身安全的問題。最後，優先次序與實質性平等的概念密切

相關。促進實質性而非正式平等有助於消除基於種族，性別和國際標準中確定

的其他標準的歧視。

確定優先次序應在合作的基礎上進行，這應該是國家協調委員會的主要任務之

一。以下是優先級任務的一些標準：

• 根據人權影響確定的問題的嚴重性;

• 考慮到資源的可用性，可能的人權“解決方案”的成本影響;

• 完成任務對其他計畫目標的影響; 和

• 公眾對該問題的關注程度。

對於那些關注人權改善的人來說，確定優先次序的必要性存在一些危險。他們

必須小心避免從優先事項的討論轉向需要實現其他類別的權利，才能實現之前

實現一類權利的結論。認識到需要提供“人人享有人權”，在所有領域取得進

展，這對任何綜合方法都至關重要。

什麼應該是優先事項？顯然，它們因國家而異，但由於基線研究過程，它們應

該變得更加清晰。該計畫當然不能恰當地表達需求評估中發現的最緊迫問題。

通常這些問題會引起人們的注意。如果有人的生命權處於危險之中，他們生活

在痛苦，恐懼和不安全的環境中，因為經濟，社會和文化權利被剝奪或遭受歧

視而生活在苦難中，至少有一些優先事項將變得清晰。顯然，國家計畫的時間

框架和財政資源應該優先考慮消除這些嚴重問題。這將給協調委員會帶來一些

困難的選擇。在處理優先事項時，應明確注意實現優先目標的時間框架 - 無論

是短期，中期還是長期。這將提高計畫的透明度，促進討論和有目的的行動。

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8.4 弱勢團體

考慮到優先事項的一個重要問題是弱勢群體的人權狀況，因為需要在計畫中有

效地納入平等和不歧視的基本準則。在一個國家的整體人權狀況中，這些群體

面臨的人權問題往往很重要。然而，由於弱勢群體處於不利地位，他們可能不

成比例地被忽略。在確定優先事項時，應特別注意這些群體的需求，並應使他

們以參與者進入此一過程。

一些弱勢群體對於那些在人權領域經常工作的人來說是顯而易見的。原住民、

種族、語言或宗教少數群體，身心障礙人士和難民是迄今為止已制定大多數計

畫中的例子。婦女和兒童也經常被提及為需要特別關注的群體，但他們是否應

被歸類為“弱勢群體”是一個需要辯論的問題。其他可能不常浮現在腦海中的群

體也需要關注。他們包括愛滋病毒/愛滋病患者(HIV/AIDS)，精神病患者，老

年人和性取向的少數群體。

弱勢群體也可以從不同的細微角度來看待，也就是說不是作為有機或有凝聚力

的群體，而是作為值得特別關注的經濟或社會群體。例如，菲律賓的計畫是指

城市貧民和農村工人。 另一個考慮因素是，某些類別的弱勢群體與某些國家有

關。

8.5 特別關注的問題

每個國家都有權認定它希望關注的問題。但是，大多數國家都有必要加強保護

和促進人權和人權教育方案的法律和體制框架。因此，國家行動計畫經常建議

在沒有人權委員會的國家中設立人權委員會。

8.6 草稿計畫

每個國家都有自己的做法來起草這樣的計畫。無論採用何種方法，都有一些因

素可以促成這項工作的成功。首先，如第 8.1 節所述，國家協調委員會應確定

該計畫的結構。這應該從最合適的方式的最初討論來納入當地的國際規範和特

徵。

內容

委員會成員希望就內容提出具體建議。其中許多提案將代表委員會成員所代表

的組織的觀點，無論是民間社會組織還是政府機構。如果願意，委員會也可以

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根據第 9 章的指導和制定計畫的其他國家的經驗提出。

除了直接來自委員會成員的提案外，公眾還可以通過委員會建立的各種正式和

非正式磋商機制或透過書面提交的方式提出建議。委員會有責任決定如何將這

些公共提案納入計畫。

誰應草稿？

關於如何進行計畫的實際起草，有幾種選擇。 起草可以通過以下方式完成：

• 秘書處，

• 各部門工作組，其單獨的貢獻可由秘書處統一;

• 外部顧問; 或

• 政府機構和民間社會組織，他們可以根據自己的職責為計畫的各個部分做出

貢獻。

無論選擇哪種方法，委員會秘書處都將對其實施負主要責任。正在進行的工作

草案應定期提交給委員會的所有成員，特別是讓具有專業知識的委員會成員有

機會在早期階段為案文提供意見。

起草時間表

起草過程應該有明確的時間表。如第 5.6 節所述，協調委員會的目標應該是在

該過程開始後約 12 至 18 個月啟動該計畫。鑑於需要籌備起草的時間，進行

磋商和考慮最終草案的時間，這將對起草人和協調委員會施加時間壓力。如

果確定了具體的臨時期限和起草目標，則該任務將是可行的。

傳播與磋商

最好草擬計畫能夠以電子方式和書本形式公開，以供評論和建議。透過這種

方式，可以從更廣泛的民間社會的觀點中獲得更大的利益，以制定計畫。以

這種方式與人們接觸將提高最終版本的可信度。其條款可能會得到更有效的

支持。 以草稿形式發布計畫也將有助於透過媒體提高公眾意識。在某些情況

下，可能有必要將草案翻譯成有關國家使用的其他語言。與原始提交的內容

一樣，委員會將必須決定如何將公眾意見納入計畫的最終版本。這可以透過

媒體傳播或其他宣傳或一次或多次會議來促進磋商。

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委員會和政府之間可能還需要就計畫的最終版本進行協商。由於協調委員會中

將有大量政府代表，因此預計其審議工作將隨著政府的充分認識和同意而進

行。然而，有時候，只有在最終草案可供參考時才能將政府的全部注意力應用

於這樣的問題。至關重要的是，該計畫的最終版本不僅享有政府的批准，而且

還得到其熱情的支持。實現該計畫的目標需要充足的資源，持續的關注和最高

層的持續指導。因此，重要的是將計畫的文本放在政府面前，並建議它應該是

政府持續支持的主題。

8.7 與其他國家規劃活動的連結

由於它們涉及政府活動的大多數領域，不僅可能對個人有益，而且可能也符合

整個國家的利益，因此國家人權行動計畫具有至關重要的意義。從概念上看，

人權的實現可能幾乎包含了社會和法律領域的所有政府活動。雖然應該牢記這

一概念，但也應該接受政府將把聯繫視為協調人權規劃與可能正在進行的許多

其他規劃活動的問題。協調委員會必須確保國家人權行動計畫與其他國家計畫

保持一致。相反，委員會應設法確保計畫的人權目標反映在其他計畫活動中。

這特別適用於發展階段。 國際人權標準為有效追求以人為中心的發展進程提供

了框架。國家人權行動計畫將為促進公眾參與和確保所有人權在發展進程中的

中心地位提供理想的機會。

除了廣泛的國家計畫，例如與發展，保護兒童或消除對婦女歧視有關的計畫

外，政府的社會政策通常也會在某種計畫的目標範圍內提出，即使它沒有公

開的形象。例如，某個國家的衛生當局可能計畫改善預防性保健的可用性或

減少特定疾病的發病率。但是，這些計畫可能主要是有關政府機構的內部計

畫。然而，正是在這些其他計畫的內容和實施方面，實現人權目標的實際進

展最終將取決於此。協調委員會必須確保國家人權行動計畫目標反映在國家

的社會規劃目標中，而不論表達這些目標的格式如何

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圖 10 –國家計畫的聯繫

發展

人權

女人 小孩

人權教育

8.8 時間框架

時間框架以兩種方式進入國家行動計畫進程。一個是整個計畫的時間範圍; 另

一個是每個組成部分的時間安排。

整體時間框架

到目前為止，國家行動計畫的時間範圍從兩年，三年，五年或十年到無限期。

由於國家行動計畫的目標是促進對人權政策採取更系統的方法並為行動提供刺

激，因此最好在計畫中提出實現其目標的具體時限。整個計畫也應該有一個時

間框架，以便政府和民間社會有一個全球參考框架來評估該計畫的成就和缺

點。

在整體時間框架內，該計畫應該留出足夠的時間來實施必要的行政，資源，教

育和基礎設施措施，以實現一些目標。因此，時間框架不應太短。同樣，時間

框架不應太長，以至於難以保持連續性或整體觀點。通常選擇五年的經濟計

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畫，這對於國家人權行動計畫來說似乎也是合理的。將人權行動計畫的時間框

架明確地與經濟發展計畫的時間框架聯繫起來可能有用的。各國對此可能有不

同看法。但各國都應有時間框架，以便有關人員有最後期限來組織其活動，並

促進監測和最終評估。

實施具體活動的時間框架

在可能的情況下，計畫中提議的具體活動也應具有具體的時限。只有在存在此

類目標的情況下，負責執行計畫的人才有明確的工作結構，並且有監測計畫成

果的基礎。這些時間框架應該是實際的。如果目標以一般術語表示（在其他地

方稱為“目標”）或明顯是長期目標，則可能需要以更具體的時間提出臨時或貢

獻目標。

使用具體時限的一個例子是印度尼西亞的國家計畫。整個計畫有五年的時間框

架，之後將對其進行審查和更新。對於與批准國際人權文書有關的具體目標，

該計畫制定了計畫五年期限內逐步批准的時間表。這為負責這些步驟的政府機

構提供了明確的目標。它至少在這方面對進展做出非常明瞭的評估。

時間框架應該是計畫的一個組成部分，換句話說，應在計畫文件中列出，而不

是列為單獨行動。

8.9 法律地位

一些國家考慮國家計畫的一個問題是該計畫是否應享有法律地位。在這方面有

什麼或不可能在很大程度上取決於有關國家的法律傳統和政策。但是，從這個

方向發展可以獲得許多好處，包括：

• 提供某種形式的法律地位動往往會促進對該計畫的更廣泛的政治支持;

• 這將是國家對促進和保護人權的承諾的重要象徵;

• 它將鼓勵民間社會並促進與政府的更加合作關係;

• 立法機構的行動將具有加強官員對該任務的承諾的實質性好處。

如果立法是理想的途徑，協調委員會應該管理旨在實施這一決定的程序。制定

法律往往是一個艱難而漫長的過程，適當的步驟可能必須以一定的積極性來執

行。草擬傳達計畫內容的一項或多項文書可能是一項複雜的任務，但同時與其

他國家立法保持適當的關係也是相當複雜。顯然政府將不得不大力支持這一提

議，但也希望與議會其他政黨進行磋商，以確保盡可能廣泛的支持。

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更簡單的方法可能是將計畫納入政府或總統令。根據有關國家的不同，這可能

會因立法而具有不同的法律效力。它將超出國家元首或政府首腦的認可，無論

如何這對於制定和實施該計畫的過程至關重要。

該領域的第三種方法是尋求議會認可該計畫而非具體立法。這再次超出了相

關政治領導人在公開聲明中的認可，因為它涉及具體的議會辯論和批准該計

畫的行為。從法律角度講，這一步驟比制定立法以實施該計畫更容易。如果

可能的話，協調委員會最好提出這樣一個計畫，因為它將為有效實施該計畫

提供實質性的刺激

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 9 計畫內容與結構

9.1 一般問題

確定和表達計畫的內容可能是國家行動計畫過程中最重要的部分。諮詢和實

施等其他要素當然也很重要，但其內容需體現政府採取行動的承諾，並為在

實行時提供基礎。此外，所述的細項將成為衡量計畫是否成功的程度基準。

該計畫應具備一個清晰、具有系統及邏輯的結構，並且納入規劃及執行機

構，監測和評估整個過程，將有助於公眾接受度並取得大眾的理解。

9.2 規則與目標

所有國家都有一個共同的最終目標。廣泛地說就是：『所有人權之落實』。

但實際上，實現這一目標的道路將因每個國家而異。因此，不同的國家行動

計畫將在廣泛的原則和結構下包含了某些共同的要素，但每個行動計畫的具

體細節都不同。必須根據各國家的具體情況制定國家行動計畫，因此每個國

家都有不同的起點。但無論出發點是什麼，每個國家都應該制定具體措施，

使其能夠以人權方式向前發展。

原則的表達為使命的陳述。

制定國家行動計畫的過程將受益於對其之起源概念及以服務作為目的考量的

宗旨。許多現有計畫在其介紹部分中包括廣泛的目的和概念問題的陳述。有

時這些被描述為『使命陳述』。這些經過深思熟慮的陳述將為從事該計畫的

人員以及向公眾指導提供一個有用的方向。其中許多陳述裡強調了作為靈感

來源和行動的具體指導對於國際人權標準承諾的重要性。

廣泛的目標

在考量起草國家行動計畫時，第 2 章概述的目標可細分為三個不同的領域：

● 遵守並實現人類真實且有實質性的修正權利

● 促進且提高公眾和特定部門的人權意識

● 促進各種政府機構和非政府組織之間的人權活動的協調組織。

提高各相關領域的工作人員對所有人權的認識也相當重要，其中包括經濟、

社會和文化等權利，而協調也同等重要。但該計畫的首要目標是在遵守各類

人權時取得確實的進展。

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從這個角度來看，參與制定和實施計畫的人員必須防止將其限定於公共關係

的活動中。例如，將相關領域裡正在進行的計畫納入其中並將其重新標記為

人權計畫。雖然可能帶來一些好處，像是人權意識的抬頭和以權利為主軸並

針對社會發展去編製相關的細項。但假如它是相關地區計畫的唯一或主要內

容，在使用國家行動計畫的機制下，它將遠遠無法實現其預期中可取得的成

果。因此，最理想的方法是制定廣泛的原則，且包括特定和可實現的目標。

屆時即可證明其進展並確保進入至國家規劃的過程及努力是值得的。

9.3 範圍與計畫

為了與人權的不可分割性保持一致，該計畫的範圍應是廣泛的。同時，該計

畫的考量也需包含其在某些領域的詳細程度。這將與經濟、社會和文化權利

有著不可劃分的關係。儘管在其他領域也是一個考量因素，但該計畫涵蓋的

許多問題將代表人權方向，而其相關活動也將代表政府部分正執行的計畫。

在已實行的活動領域中，則需注意且關注該計畫的實質益處。協調委員會也

應澄清該計畫對已經開始進行的工作所帶來的影響。如果只是重新制定已經

存在的目標和計畫，它就有可能增加行政和報告的工作量，並破壞官方政府

的支持。因此在許多領域中，最好能強調提高負責實施相關計畫的人員對於

特定問題的人權方面的認識，而不是試圖提供一個針對大部分政府活動所提

出的人權計畫版本。

除了法律制度內的民權和歧視等傳統問題外，該計畫還應解決近期出現在人

權議程上的問題。例如：在網路上販賣婦女和兒童色情用品。該計畫也需考

量到可能影響人權的信息技術問題，既要積極地加強人權信息的傳播，也需

提供媒介並且善用之，例如：兒童相關問題。

9.4 格式

計畫的文件格式也需思慮周全，從業者到政治家，甚至到公職人員和民間社

會組織 -以及公眾都有可能是其使用對象。因此，它應該是一份能激勵和鼓勵

用戶的文件，也應提供實用的指導方針，但不可過長，且具備清楚、淺顯易

懂的版面編排。

有些已經通過計畫的國家認為，針對各領域所寫的一系列標題能清楚地表達

目前的現狀以及針對修正所做的建議。而這些標題可能包括：

● 國際間的義務和各國家的立法

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 ● 目前為止做了哪些

● 現狀（根據指標性研究）

● 提出在不同時間範圍內的行為建議 -（短期、中期和長期）

● 擬議行為和鑑定資源的責任與制度

● 監測和評比。

政府對於實現計畫目標與對其之承諾必須是清楚明瞭的，應明確包含國家元

首或政府最高領導人，以確保可作為正式文件，且包括各部門裡重要組織的

相關聯繫方式是有幫助的。這將使民間社會組織和公眾更容易參與、執行該

計畫，還能促進政府與民間社會之間有更好的合作關係。而該文件也應包含

針對國際人權準則和國家立法提供適當的參考資料。

9.5 目標和基準

為了切合實際，應在合理的時間範圍內設定精確且能實現的目標，這將需要

正確的判斷來決定領域及界定最終目標。在某些領域中，例如：司法，建立

人權協調委員會、批准國際標準和人權教育。如能在計畫本身中列入詳細的

目標是最好的。而就經濟、社會和文化權利而言，該計畫可包括廣泛的目

標，例如：降低文盲率、死亡率、發病率或減少遊民人數，提高學校保留率

和改善營養方面的問題。

然而，根據上一節中所表達的觀點中，我們可能不會希望制定了一項計畫，

去規定社會政策所有領域的詳細活動。例如：擴展到教育和衛生等領域。而

一個較好著手的計畫，通常是針對各個執行機構，將國家計畫中更多的普遍

人權目標納入自己的單獨規劃文件中，作為更高層次的目標，確保與其自身

目標保持一致性。這些將由各特別機構決定如何追求或調整其計畫，以實施

這些人權目標。

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圖 11 - 關於國家行動計畫結構的建議

目標 目的 活動 相關機構 完成目標日期 績效指標

1. 促 進 公 眾 1.提高對社會弱 1. 製作並安排傳播關於弱勢群體人權的一系列的 插入相關機構 插入完成目標日 完成擬議的活動調查，

對 人 權 的 廣 勢群體人權需 廣播和電視節目 。 的名稱 期 提高公眾意識

泛認識 求的認識 2. 委託並發布關於弱勢群體人權需求所做的專家

報告 。

3. 由重要的政治人物提出關於弱勢群體人權需求

的公開聲明

2.提高公眾對 1. 向教育機構、非政府組織、政府部門分發關於 插入相關機構 插入完成目標日 完成針對提高公眾意識

國際人權文書 此文件的資料袋。 的名稱 期 擬議的活動調查

的認識 2. 為相關政府官員舉辦研討會，包括警察和軍

隊。

3. 宣傳相關報告和評論其條約內容大綱 。

4. 籌劃媒體活動，例如：國際人權日

2.擴大國際 1.批准國際文書 1. 參與相關協商 交存批准書

標準的實施 2. 採取必要的行政和法律 步驟

3. 宣傳 行動

2.撤消異議 1. 參與相關協商 向聯合國提出撤消

2. 採取必要的行政和法律 步驟 異議的建議

3. 宣傳 行動

3. 制定實行法 1. 參與相關協商 立法的制定

律條例 2. 採取必要的行政和法律 步驟

3. 宣傳行動

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目的

參與制定計畫的人，通常希望能表達更多大致或理想中的目標，也可能因此更加

無法精確實行，但其實只要將這些通用的準則放入有系統的架構中，制定準則將不

再是問題。例如：使用一些發展援助計畫中所遵循的方法。計畫中最廣泛目標可被

描述為目標。它們可以用『促進公眾對人權廣泛的認識』或『加強國家人權機構

的能力』等方式表達，且以這種方式表達，他們並不會進行詳細的分析，但其目

的是明確表明政府的意圖。這樣的總體目標應該簡短地條列出來，冗長的條列目標

可能使計畫存在著含糊不清或者太相近的修辭中。

目標

在下一個層級中，該計畫可能會將更具體想要實現的細向列為目標。這些不應僅

僅是目標的改寫，而應該提供條件，證明其目標可被達成。例如：在達到公眾意識

的主題中，目標可能是『傳播對社會中弱勢群體的人權需求的認識』，這種具體性

將有助於促進更有效的監測與評估。

活動和成果指標

在此層級中，包含了作為計畫的實質內容提出的各種活動的列表。這些是有關

政府做出的承諾所採取的具體行動。與上述例子相對應的活動可能是『製作和安

排傳播關於社會弱勢群體人權的一系列廣播和電視節目』。完成各項活動將代表

實現該計畫中更高層級的目標，且考量到計畫的邏輯與特徵，這些行動可以納入

作為具體的績效指標，而這將有助於更有效的實施和監測。對於所有需要與之合

作的人來說，明確並充分理解績效指標極為重要，如果它們簡單且精確會更好。

與之同等重要的是，協調委員會和相關的執行機構同意將績效指標用於評估與商

定的目標是否已經達到的標準。除非真正願意朝著完成度、向著某些合理的成功

前景邁進，否則最好不要在計畫中包含任何一個目標。而如因修辭原因而把目標

包含其中，可能只會破壞整個規劃過程，且削弱了計畫的可信度，使得其他較切

實的目標更難以實現。

雖然計畫的編製並非旨在成為一種機械式的練習，但如果除了敘述文本之外，

該計畫是以表格形式編製，其中列出了其各種要素之間的相互關係，那麼這一

過程可能會變得更加清楚明瞭。表格可能包括目的、目標、活動、機構或負責

每項活動機構，以及為各活動所制定時間表和可用於確定是否按照計畫活動已

經進行了各項性能指標的說明。無論發表的文件是否以表格形式出現，這樣的

表格可以作為『內部』文件，用於負責制定，實施和監測計畫。

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9.6 責任履行

該計畫應規定哪些機構負責實施文件中所規定的各種活動。其範圍應擴展至民間

社會組織等執行夥伴，且應酌情擴展到在某些領域中背負最終責任的省級或地方政

府機構。第 10.1 和 10.2 節將更詳細地討論此問題。

9.7 對於計畫的建議內容

以下概述並不是規定性的，每個國家的情況會有所不同，但『手冊』的使用者應

考量在最大程度上利用每個可擬議區域，以符合其國家的情況。此外，綱要中的提

議並非詳盡無遺，可能還有其他適合個別國家的因素，應提議在計畫內採取行動。

關於國家行動計畫可能有針對內容的更詳細指導，本手冊的使用者可參考各國已制

定的計畫（見章節四）

9.7.1 國際和國家法律架構

國家行動計畫內容建議：

承諾：

● 批准聯合國或其他國際人權文書，包括國家為實現這一目標將採取的具體步

驟的內容概要;

● 克服任何妨礙、延誤國家履行報告義務，其包括時間範圍的設立 ;

● 撤回國家對國際人權的任何異議、手段;

● 加入人權條約的議定書，其包括申訴程序;

● 將國際人權標準納入並實踐於國內法律，其包括做適當的研究和實施步驟。

五十多年來，國際人權法律體系為所有人民和國家努力改善人權的遵守情況，

並提供了靈感和引導。國際體系能有效運作和盡可能的多方參與是其基本目標。

因此，國際社會已將國際人權文書的目標抵定，其中以廣為人知的『維也納宣

言』和『行動綱領』 15 中為重要設立目標。所有主要條約的共同義務是向各委

員會提交報告，而實際上，大多數國家都難以在時間內履行並實行這義務，因

此為了提高條約的有效性，各國必須設法改善其在這方面的表現。

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 單就其性質而言，對人權條約的協定反而限制了其適用範圍及有效性。因此，

促進各限制或取消這類條約是國際社會 16 的另一個目標。若干的國際公約具有

其議定書，其中也包括用於界定條約適用於個人及其最終受益者的投訴程序。

聯合國大會也經常鼓勵各國考量並接受這些條約及議定書。

9.7.2 經濟、社會和文化權利

建議的國家行動計畫內容：

● 承諾採取立法和行政措施，鞏固對經濟、社會和文化的認可和權利;

● 承諾對侵犯經濟、社會和文化的行為，採取有效補救措施的權利;

● 根據國家的人權義務制定實現經濟、社會和文化權利的基準，並制定具體方

案，以實現這些領域的相關目標。 如：

− 合乎需求、生活水準的權利，包括營養和住處;

− 健康權;

− 教育權;

− 社會安全的權利;

− 參加文化的生活權利;

− 工作權;

− 享有公正和有利的工作條件以及組建和加入工會的權利;

● 消除在遵守經濟、社會和文化權利方面時遭遇的歧視;

● 建立定期監測經濟、社會和文化方面是否遵守其法規機制的權利;

● 對經濟、社會和文化領域的系統性問題進行公眾調查的權利;

● 可針對有關官員和人員以及公眾經濟、社會和文化權利意識提案;

● 促進關於經濟、社會和文化的研究和辯論的權利。

本手冊旨在強調於任何國家行動計畫中採用綜合方法的必要性。特別是，該

計畫應以人權的普遍性和不可分割性為基礎，也有各種可能的方式來反映其廣

大的計畫範圍。人權原則的廣泛性其中很重要的一點是，它們適用於人類活動

的大多數領域，因此也適用於政府方案。

15“

維也納宣言和行動綱領”，第一部分，第 26 行；和第二部分，第 4 行。

16“

維也納宣言和行動綱領”，第二部分，第 5 行。

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 而事實證明了提高對經濟、社會和文化權利重要性的關注是十分困難的。許多

政府活動側重於經濟、社會和文化部門，但許多相關人員並未充分了解各領域

的活動中具有的人權發展。其關鍵點在於承認經濟、社會和文化領域的權利，

要求政策制定者和服務提供者擺脫傳統的福利政策。他們的工作框架不應再基

於政府在現有的預算和政策環境中，所提供的內容應基於權利持有者的權利，

並加強行動，提供適當的刺激。

如果政府試圖消除種族群體之間人口的不平等，例如：嬰兒死亡率，那麼首先

需認可弱勢群體其自身的權利並不亞於整個族群，因此將嬰兒死亡率降低到一

定水平，可能成為在這方面遵守人權的基準之一。

本手冊先前討論了一個十分重要的實際面問題，即國家行動計畫規定在促進經

濟、社會和文化權利的行動方面應該實行多遠。其一是制定國家人權行動計畫，

以便在整個經濟、社會和文化問題範圍內提供詳細的活動，而廣泛實行的方法

可能會帶來困難，因該計畫不可能在所有相關領域承擔社會規劃的全部工作，

而參與該計畫過程的大多數人可能既沒有專門知識，也無法承擔這項任務，這

將不可避免地導致重複性的產生和可能的低效率。但如果該計畫只包括對現有

計畫的更動，那麼它將使國家行動計畫過程貶值，因其無法提供任何在各專項

計畫中發揮已存在的各種價值及其連帶的額外價值。

建議該計畫應著重於促進立法、補救、基準、監測以及提高對經濟，社會和

文化權利的認識和理解，也應著重於與負責經濟、社會和文化領域的機構方案

協同的維繫。該計畫應使這些機構參與規劃過程，以便其促進遵守經濟，社會

和文化權利。

意識抬頭相關方案應旨在提醒官員、議員、社區工作者、學者、媒體和引起公

眾注意這些領域的行動，是改善人權遵守情況的一部分。這些方案既應具體針對這

一領域，也應成為一般人權教育活動的一部分，其中內容還應包括研究。在聯合國

的架構下展開的工作，包括對於經濟、社會和文化權利委員會的貢獻，使得促進且

達到理解將是非常寶貴的成果。

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9.7.3 公民和政治權利

建議的國家行動計畫內容：

● 承諾頒布、立法保護公民權利和政治權利，其中包括解決暴力侵害婦女和剝

削兒童等問題的法律條例;

● 進行法律改革，以使刑事訴訟法和其他主要立法符合相關人權條約;

● 旨在加強司法獨立性;

● 研擬對司法人員、警察、教化服務工作人員和安全人員培訓 ;

● 提供足夠的資源，確保法治系統和一般司法行政·能有效地運作，警察在行

動時能夠充分照顧到公民的權利，教化機構對於被拘留者也能夠遵守公民的

權利。 ;

● 建立常設監測機制（如監獄檢查機構）和調查委員會，以便調查和對於問題

而制定、提出更具體的建議;

● 廢除或限制死刑

● 為司法人員、警察、教化服務工作人員和安全當局制定實務的政策和準則，

確保一切行為符合國際公認的人權標準;

● 加強選舉制度，以確保其按照國際人權標準和實踐國際間的公約，提供真實

而無偽造的定期選舉;

● 建立旨在消除有罪不罰現象的機制，包括與公共行政有關的申訴程序和對侵

犯人權行為的有效補救措施;

● 促進信息自由的步驟，特別是獲得國有廣播媒體的機會;

● 促進宗教信仰自由

● 設立或加強法律援助

國家行動計畫應著重於司法問題，這往往是嚴重人權問題的根源，特別是對少

數群體而言。這涉及加強保護和加強與警察、法院和監獄接觸的人的人權。而

法律改革則是往往另一個與公民權利和政治權利相關的領域，因為許多立法行

為可能永遠不會符合政府適用的國際人權義務。因此有時可能需要接受人權條

約法律中的新定義（例如：『酷刑』，如“禁止酷刑和其他殘忍、不人道或有辱

人格的待遇或處罰公約”第 4 條所界定的）;。跟根據『消除一切形式種族歧

視』 國際公約第 4 條的規定將某些行為定為刑事犯罪（例如煽動種族仇恨或暴

力行為 ）; 或根據“消除對婦女一切形式歧視公約”第 16 條的要求制定最低標準

（例如最低結婚年齡女性）。

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9.7.4 特殊群體/弱勢群體

建議的國家行動計畫內容：

● 指示旨在改善群體人權遵守情況的立法或行政行動，例如：

 婦女

 小孩

 原住民

 種族，民族，宗教，語言等少數民族

 低收入戶

 身心障礙者

 與有愛滋病患者生活在一起的人

 年長者

 精神病患者

 難民和尋求庇護者

 移民相關工作人員

● 詳細列出防止歧視或不平等待遇狀況發生的步驟

國家人權行動計畫應促進國家一體化，消除不平等和減輕貧困等廣泛的國家目

標。如果要實現實質性平等，就必須制定針對特定群體，包括弱勢群體需求的

方案，這些群體可能無法從提供形式平等的法律和其他措施中受益。迄今為止

制定的大多數計畫都強調了旨在促進和保護這些群體權利的特別措施。

9.7.5 群體權利

建議的國家行動計畫內容：

● 促進關於集體的研究和辯論權利;

● 人權教育中群體權利的涵蓋範圍;

● 促進政府國家計畫或發展協助機構之間對權力之意識;

● 在處理經濟問題的國際論壇上，促進對發展權和人權問題的審議問題;

● 制定將人權納入發展的政策;

● 加強原住民和少數民族維持和發展其獨特身分的能力，並就影響事項作出決議

● 保護原住民和少數民族免受破壞其經濟和文化的政策;

● 促進原住民和少數民族建立自己的政治和社會機構。

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群體權利或集體權利往往提供一個框架，在這個框架裡，其他權利可以蓬勃發

展。提及旨在加強原住民和少數群體自治的措施並不表示與聯合國憲章 17 原則 ，

特別是在國家統一方面有不一致。

9.7.6 國家機構

建議的國家行動計畫內容：

● 承諾按照“巴黎原則”建立國家人權機構（國家人權機構 - 如人權委員會或監

察員） ; 18

● 承諾擴大或加強現有國家機構的任務;

● 承諾增加國家人權機構可用的資源，特別是在國家行動計畫執行有著額外職

能的情況下。

國家人權機構，特別是人權委員會，可以在促進和保護一個國家的人權方面發

揮極其重要的作用。因此，強而有力的國家人權行動計畫應該規定去建立一個

國家人權機構，或者在已建立這樣一個機構的情況下，透過擴大其任務和增加

其可用資源來加強該機構。假如國家人權機構在執行超出其正常功能的計畫中

發揮作用，則應提供額外資源，使其能夠有效地執行這項任務。

9.7.7 人權教育

建議的國家行動計畫內容：

● 使用“聯合國國家人權行動計畫導引”所提供的指導，致力於實施全面的人

權教育;

● 對警察、監獄官員、法官、地方法官和律師進行人權培訓;

● 在所有教育層面（小學，中學和初級階段）制定人權課程）;

● 公開信息和宣傳活動。

17

“關於各國根據『聯合國憲章』之間的友好關係與合作以及『國際法原則宣言』之後所制定的

『維也納宣言』和『行動綱領』，提及到自治『不應被解釋為授權或鼓勵任何完全或部分地肢

解或損害主權和獨立國家的領土完整或政治統一的行動，這些國家需遵守各國人民的平等權利

和自治原則，從而擁有代表全體人民的政府保有沒有被外力所劃分的領土。』

18

『巴黎原則』是 1991 年 10 月在巴黎舉行的國際研討會的成果，這是由『國家機構中的地位

原則』所命名的。隨後，大會第 48 號決議核可了這些原則。 1993 年 12 月 20 日第 134 號

（http://www.unhchr.ch/htm l /menu6/2/fs19.htm#annex）。

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人權教育是可以發展人權文化的基本工具，而它將可以改變潛在的態度，加強對

人權準則的尊重，並形成長期遵守人權的基礎。聯合國人權教育十年計畫於 1994

年宣布，一直持續到 2004 年。聯合國人權事務高級專員辦事處於 1996 年制定了

十年行動計畫 19。根據『行動計畫』第 11 段中提到：

各國政府應通過制定國家人權教育行動計畫，在實施十年方案中積極發

揮其作用。

聯合國人權事務高級專員辦事處與聯合國教育、科學及文化組織合作，制定了

國家人權教育行動計畫指南 20，其中包括一套有效的人權教育原則和逐步制定

該領域國家計畫的戰略。準則中規定：

● 人權教育計畫的目標;

● 關於制定、實施和評估國家而設立的國家委員會的結構和功能的計畫給予建議;

● 指標性研究的規定：

● 優先權的設置;

● 針對制定和實施計畫的建議：

● 關於如何評估計畫的建議。

9.7.8 人權社會

建議的國家行動計畫內容：

● 旨在促進非政府組織活動的相關法規和行政措施;

● 承諾執行『人權維護者宣言』的規定 21 ;

● 承諾讓民間社會代表參與執行和監測計畫。

事實上，人權領域的所有人、政府和非政府機構都認為，民間社會對於積極參與促進

和保護人權的措施至關重要。因此，該計畫應提出各式促進參與的方式。

19

聯合國文件 A / 51/506 / Add.1。

20

聯合國文件 A / 52/469 / Add.1 和 Add.1 / Corr.1。這些可在聯合國人權事務高級專員辦事處的

出版物 『聯合國人權教育十年計畫 1995-2004』中找到：

生命教訓 ，1998 年，日內瓦。

21

關於個人、群體和社會機構促進與保護所公認的人權和基本自由的權利與責任宣言，大會

1998 年 12 月 9 日第 53/144 號決議。該文件可在聯合國人權事務高級專員辦事處的網站上查閱

（www. ohchr.org）在的『條約』裡搜尋『人權捍衛者』。

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9.7.9 國際 行動

建議的國家行動計畫內容：

● 建議加強採取措施與區域和國際人權組織的合作;

● 與其他國家在人權事務上合作的研擬措施，需包含比較各執行國家行動

計畫的經驗;

● 向聯合國條約監測機構提交逾期報告;

● 積極落實、更新條約與機構所得之結論與建議;

● 衡量向機構提交的報告是否能讓公眾所知;

● 和聯合國的國家人權委員會的特派調查員增加合作 ;

● 酌情採取步驟，對特派調查員的結論和建議更新並採取後續行動;

● 酌情利用國際資金和技術援助執行國家行動計畫;

● 在適當和要求的情況下，為促進和保護其他國家的人權提供資金和技術

援助。

人權活動已成為國際合作的一個重要領域。聯合國和其他國際和區域機構執行

監測，標準制定、技術援助和研究領域的方案。國際上對人權問題的關注促進

了各個國家的人權的促進和保護，這些國家從國際社會的工作中獲得了靈感並

得到了技術上的指導。任何國家尋求改善其人權狀況應該考量應如何能促進國

際人權工作，而其將有助於促進其他地區的人權，使相關國家從經驗、技術援

助和其他資源中受益。 而有發展援助計畫的國家應將促進人權作為計畫中最重

要的內容。國家人權行動計畫可以為提供援助方案的制定和實施架構提供非常

有用的目標。而資源有限的國家也可希望達成安排，以便從其他國家獲得技術

援助。迄今，已制定國家行動計畫的某些國家已經做到了這一點。針對某些情

況下，他們制定了具體的計畫活動，適合在國際援助的情形下實施，而其他的

國家僅表達了對於接受援助的興趣。

9.7.10 建議的監測和評估機制

該計畫應提供自己的監測和評估機制，以強調其中重要性。（在第 11 章和第

12 章中有更多細節。）監測和評估過程是整個計畫和個人活動建立時間架構的一

個重要部分。該計畫還應概述如何進行監測和評估過程，但毋需詳細說明，因其可

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能無法預知剛開始執行及在後期監測過程中達到效果，不過監測的細節與體制可在

計畫進行後期完成，在此階段中，需明確地制定出監測和評估相關要求。.

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第三部分: 國家行動計畫之實施、監測與評估

10 實施計畫

10.1 實施機制

若該計畫是在現實目標、明確目標、廣泛範圍和包容性參與的基礎上制定的，

那麼確保有效實施將更加容易。然而，實施不應該完全由單人負責。在發展階

段已實行之傑出工作必須系統地貫徹到實施階段。在計畫啟動時，不一定要解

散為管理計畫制定而設立的協調委員會。反之，其可以維持並負責監督實施。

本章描述了協調委員會在此種情況下可以執行的所有可能功能。

機構實施機制

實施的進展情況因國家而異。如果在負責不同部門活動的各個政府機構制定計畫期

間確保了承諾，那麼這些機構中的每一部分都可能建立自己的實施機制，以期有效

運作。這對整個過程非常有幫助。然而，不是完全由個別機構來設計自己的實施機

制，而是機構的各個方法以及參與計畫的所有人的一致性需求。當然，這應該與有

關機構協商完成 。

機構報告

作為這種協調方法的一部分，每個執行機構都希望提供關於其活動的漸進報告。

協調委員會應定期舉行會議，審查這些報告，並監測各執行機構的活動如何與

計畫中規定的承諾相比較。如果存在差距，協調委員會應提請負責機構注意，

以便能夠做出額外努力以實現計畫的最初目標。如果委員會具有廣泛基礎並且

其主席能夠發揮有效影響力，那麼採取這種行動將更容易。下一章將更詳細地

討論監測和評估過程。

審核地方政府的責任

實施該計畫的責任可能會分散在多個級別的政府中，特別是如果一個國家有聯

邦憲法安排。在某些情況下，省或地方政府將承擔重大責任，例如在司法、警

務、衛生、教育、住房等領域。必須特別注意確保這些下級政府是協調進程的

一部分。負責計畫特定領域的中央政府機構應負責向省或地方政府機構進行簡

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報和諮詢。協調委員會應考慮安排研討會，與這些機構舉行簡報會或其他形式

的直接溝通，以確保有基層責任的人充分參與國家行動計畫處理。

10.2 實施合作夥伴

政府機構對執行該計畫負有主要責任，因此將執行各種活動的責任分配給司法

部，司法部、外交部、國防部、教育部、衛生部等。討論哪些機構負責應該成

為制定計畫過程的一部分。該計畫必須明確提及各種機構責任，以便機構本身

以及利益相關者和公眾明白。

執行夥伴的概念應超出政府機構的範圍，負責實施計畫的各個部分。計畫要涵

蓋的問題範圍如此廣泛，廣泛參與和參與的需求如此之大，以至於實施方法必

須是一種創新和包容性的方法。因此，協調委員會及其秘書處以及負責該計畫

的各政府機構應確定可能有興趣並有能力實現其目標的其他潛在合作夥伴。

例如，在人權教育領域，可以與教師、教科書和其他材料的作者和出版者，互

聯網搜索引擎和服務提供者以及媒體人士和組織的專業協會建立夥伴關係。在

司法領域，可以與法學家、警察和安全人員、社會工作者和社區組織的專業協

會建立夥伴關係。也可能有與聯合國機構等國際機構建立夥伴關係的餘地。在

所有領域，該計畫應考慮與相關的非政府組織、工會、商業公司和慈善基金會

建立富有成效的伙伴關係。

實施合作夥伴可能參與各種活動，例如：

● 與警方、司法機構、監獄官員和法律援助組織合作開展項目，旨在保護被

逮捕或被拘留者的權利;

● 為旨在改善商業公司或慈善基金會弱勢群體的健康狀況或就業機會的項目

提供資金;

● 通過媒體和知名人士提高對愛滋病毒/愛滋病，童工或販賣婦女等問題的

人權方面的結識 ;

● 透過工會與僱主促進勞工權益。

如果透過涉及廣泛組織和個人的支持性活動來加強政府管理的基本過程，該計

畫的實施可能會產生更大的影響。這些執行夥伴可能更接近社會中的各種選區，

如當地社區，婦女、青年、勞工、專業和商業。利用當代的溝通方式可能會使

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該計畫具有更大的直接性和相關性，從而促進對其目標的更強有力的支持並促

進其有效性。

10.3 啟動計畫

本手冊強調了高層政治認可該計畫的重要性。政府領導人經常提出計畫，以確

保他們之認同成為這一過程的內在組成部分。即使計畫起源於政府管理的工作

層面，政府領導人的參與和認可對其最終的有效性至關重要。

如果這一級別的認可是該過程的一部分，那麼該計畫的啟動自然會更有效。強

有力的啟動將使所有相關行動者了解該計畫及其主要內容，特別是其對負責實

施的具體部門的影響。如果有一個引人注目公開對外發表，公眾也會更加了解

該計畫。

雖然計畫啟動的具體特點將取決於有關國家的傳統和習俗，但應盡一切努力使

其產生最大的影響。無論採用何種方法，發布都應該是一個引人注目的媒體事

件。其最好讓國家元首或政府首腦及相關部長以及其他政黨和其他政府層級的

代表參與進來。將其發布於特定重要日期也可能是有利的。例如，有幾項計畫

與 12 月 10 日國際人權日有關。

為了強調其以人為本的方向，一旦發生應涉及各種弱勢群體或目標群體的代表，

如兒童、青年人、身心障礙者、原住民等。應該注意確保這種參與是在有意義

的基礎上進行管理，而不是僅僅被視為象徵主義。此外，可以通過聯合國或其

他國際或區域組織的代表的參與來強調國際機制的相關性。如上所述，執行夥

伴的參與也可以增強發布的影響，特別是如果涉及媒體人士。為有效管理發表，

政府必須分配合理的資源。

10.4 媒體和傳播戰略

如果要使計畫有效，所有相關行為者和公眾都應了解並給予支持，這一點至關

重要。為了提高這種意識，該計畫應基於雙管齊下的方法。首先，應該有效在

制定和實施計畫的核心結構內進行溝通和信息傳播的機制。第二，應該有有效

的媒體和公共傳播戰略超越核心結構，以加強計畫的信息、目標受眾和傳播意

識。

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10.4.1 核心機構與企業之間的溝通組織

在政府機構、政治組織、非政府組織、安全機構、社區組織、國家人權機構和

其他機構之間建立聯繫，作為計畫發展階段的一部分，協調委員會需要確保有

明確有效的溝通方式。相關信息。這也需要雙重方法。一個方面是確保委員會

與參與計畫過程的人員進行溝通的有效手段。另一個是確保參與組織有內部溝

通渠道，以便向所有相關工作人員傳播信息。

協調委員會應該具有信息傳播能力，而不僅僅是信件和備忘錄。委員會承擔與

參與計畫制定和實施的機構和組織溝通的主要責任，應該能夠製作傳單、小冊

子和定期通訊，並為相關人員提供研討會和講習班。該委員會的秘書處最好應

包括擁有媒體技能之工作人員。此外，委員會應有能力提供培訓計畫，以傳播

對計畫的認識。

關於參與機構和組織的內部溝通渠道，應該協調努力，確保每個機構和組織能

夠有效地向其工作人員傳播信息。對於安全機構等大型組織以及參與衛生和教

育系統的大型組織而言，這一點尤其重要。秘書處應有能力提供一些援助，例

如為相關機構的關鍵人員舉辦培訓師培訓班。雖然秘書處應該能夠回應援助請

求，但應該在人權培訓是有關機構核心業務的一部分的基礎上這樣做。透過這

種方式，培訓和信息傳播的費用將由這些機構承擔，作為其正常計畫的一部分，

從而確保人權培訓得到有效推進未來。

10.4.2 媒體戰略

協調委員會將建立溝通渠道和溝通機制，作為影響核心機構和組織的計畫制定

和實施過程的一部分。除此之外，委員會應制定媒體戰略，以協助有效傳播國

家行動計畫和協調支持。媒體戰略應該加強而不是取代基本的溝通渠道。有效

的媒體計畫可以透過廣泛和經濟有效的方式傳播信息，極大地擴大提高對計畫

的認識的可能性。讓秘書處的專業媒體人員實施該計畫的媒體計畫將提高“內部”

信息傳播計畫的質量，並確保更具成本效益地使用印刷品和其他材料。當然，

媒體情況因國家而異，這裡的建議可能需要根據當地情況進行調整。.

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表 12 – 國家行動計畫媒體戰略

● 向部門組織和公眾通報該計畫;鼓勵有效實施

● 告知公眾他們的權利和相關機構

確定目標

● 突出重要問題

● 政府提供的額外資金

● 招聘或借調具有媒體技能的員工

獲得資源

● 在參與組織中使用現有媒體單位，特別是焦點機

構

● 潛在的受益者

● 促進和保護人權的關鍵部門

確定目標群體

● 廣大市民

● 國際社會

● 國家協調委員會，通過秘書處，於執行夥伴的協

助下開展工作，特別是具有媒體技能的伙伴

制定策略

● 出版物 - 傳單，小冊子，海報等。

● 交互式網站，包括更新和維護

活動實行

● 傳播印刷和視聽材料

● 媒體活動：

• 建立良好關係
• 媒體後台處理
• 媒體發布
• 媒體會議
• 面試
• 制定適當的活動並確保媒體報導

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協調委員會最好從制定計畫的早期階段開始關注如何最有效地利用媒體。它可

以考慮招聘相關人員或充分利用現有的媒體宣傳單位，例如主責管理計畫的協

調機構。委員會應制定具體的媒體戰略，並以與計畫其他領域相同的方式實施

和監督。

媒體策略將進行之服務：

● 向部門團體和公眾通報國家行動計畫，並酌情鼓勵他們實施或影響政府和

負責實施的人員;

● 告知大眾其人權是什麼，政府正在採取什麼措施來促進和保護他們的人權，

以及他們如何採取行動來促進人權的 遵守;

● 向大眾介紹在國內促進和保護人權的機構;

● 強調重要的國家人權的問題。

10.4.3 目標群體

媒體策略應確定其目標受眾。與國家行動計畫有關的可能有四個目標群體：

● 人權遵守進展的潛在受益者。從廣義上論之，這將包括整個社會，從媒體

戰略的角度來看，主要目標包括弱勢群體和權利實際上或可能受到 威脅的

群體;

● 保護和促進人權方面發揮關鍵作用者 - 司法和安全官員、政治家、教師和教

師與其他;

● 一般公眾即使他們的權利沒有立即受到威脅，也會因為認識到制定了一項

旨在加強所有同胞安全和福祉的國家計畫而使人們感到安心滿意;

● 國際社會，既是技術合作的潛在來源，也是與有關國家相互作用的國際環

境的一部分。

10.4.4 媒體活動

媒體策略可能包括：

● 與媒體建立良好關係;

● 媒體背景，通過印刷和其他 媒體;

● 媒體發布;

● 媒體會議;

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 ● 採訪;

● 媒體報導與此相關的事件計畫;

● 制定專門針對 媒體的活動;

● 印刷 材料的準備和傳播;

● 視聽的發展 材料。

創新和靈活之方法將促進更有效地實施媒體戰略。對於媒體和公眾來說，新穎

或呈現「人類利益」觀點的事件可能更有趣。媒體計畫應盡可能讓社區、非政

府組織、專業、勞工和企業的合作夥伴參與進來，以提高媒體信息的即時性和

相關性。應努力鼓勵媒體使用與計畫有關的材料來準備紀錄片和新聞節目。

10.4.5 傳播活動

第 10.4.1 節概述了與參與制定和實施計畫的核心機構和組織的成員之間的溝通

有關的問題。希望這些將代表社會的廣泛領域，從而有助於廣泛傳播信息。然

而，除此之外以及媒體的使用，秘書處應該有能力向公眾更廣泛地傳播信息。

小冊子、傳單和海報可以通過政府機構和非政府組織製作和分發給他們的客戶，

也可以根據要求直接發送給學校、社區組織和公眾。

除此之外，傳播計畫應力求盡可能地利用現代信息技術。可以做的事情因國家

而異，取決於可用資源、信息技術環境以及信息技術與國家規模和複雜程度。

如果可行的話，有一個互動的網站，可以獲得很多資訊，該網站以電子形式提

供所有可用的印刷信息材料，並使公眾有機會就計畫及其實施發表意見。該網

站可能與其他網站相關聯，例如相關政府機構、國家人權機構或監察員辦公室、

人權高專辦、區域人權組織和主要人權非政府組織。

網站的使用程度取決於可用資源。其也許有必要開發和更新站點，設計交互式

頁面以及監視和響應用戶的聯繫人，若是使用量很大，可能需要專門負責網站

運營的員工。如果無法建立互動網站，協調委員會至少應確保計畫的基本文件

以電子方式提供給提出要求的人。

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10.5 在人權教育中使用該計畫

人權從業者意識到，教育是長期改善人權遵守的關鍵。「聯合國人權教育國家

行動計畫準則」提及 22。這些是與目前關於總體行動計畫的工作分開制定的，

但顯然應該與總體計畫相關聯，如果沒有納入總體計畫。人權高專辦編製了世

界各地區編寫的許多人權教育材料，並列入人權教育數據庫，可從人權高專辦

網頁上直接查閱。

儘管其重要性，但教育對促進人權提出了一些重大挑戰。國家教育系統通常涉

及非常大的官僚機構和長期規劃。大規模製備材料可能是一個昂貴的過程。因

此，可能難以適應變化或新想法，除非它們是較大變化的一部分，這些變化通

常很少發生。由於這些併發症，人權教育有時側重於不太重要的教育領域，如

媒體和宣傳活動。與將人權納入核心課程並減少教育工作的長期影響相比，這

不可避免地降低了成本效益。在執行國家人權教育行動計畫以及在一般國家實

施具體的人權教育活動時應牢記這些考慮因素。

國家計畫本身應成為人權教育方案的一個組成部分。在一般人權教育的基礎上，

國家計畫的材料將使有關國家適用人權標準的方法更加直接。由於國家計畫進

程是一個持續的計畫，一個計畫進入另一個計畫，國家計畫可以成為人權教育

的一貫主題，而不是單一事件，並有助於教育課程的不斷發展。為了補充核心

信息和價值觀，作為計畫媒體和傳播計畫的一部分而製作的材料將增加教育計

畫的有效性。印刷材料應當在學校之間傳播。視聽材料可用於活躍人權學習，

當代學生將擁有利用網際網路所需的電腦技能。

當然，教育工作應該超越正規的學校和大學系統。該計畫應包括相關措施，以

確保有關的內容和有關人權的信息都包括在可能和適當的，在職業教育和培訓

計畫。印刷和其他信息的傳播不應僅僅涉及材料的物理移動，而應成為在各種

教育和公眾意識方案中有效使用此類材料的戰略的一部分。與第 10.2 節中提到

的潛在執行夥伴合作在這方面尤其重要。

22

見第 2 章和第 9.7.7 節。

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11. 監測

一個國家人權行動計畫應該以政府任何其他的規劃大致相同的方式處理。 因此，

它應包含目標，戰略，執行方案，資源規範和評估機制。國家計畫的主要關注之一

是將人權活動從理想主義和修辭領域轉移到實踐和日常領域。這並不是說理想主義

和鼓舞人心的言論在促進人權方面沒有地位：恰好相反。但只要人權被視為通過正

常政府程序以外的方法產生結果的領域，這些程序就不會被有效地用於促進和保護

人權。人權往往遺留在那些無法直接改善人權的人手中，正如玻利維亞計畫所述，

"｛人權目標｝必須成為...國家政策永久的組成部分。"

任何組織行動計畫的一個重要組成部分是定期和冷靜的評估過程。許多領域的經驗

表明，沒有目標和評估的活動往往既無效且一成不變。如果沒有評估旨在實施這些

目標的活動的過程，說明目標只不過是誇誇其談。公共和私營部門的大多數現代組

織都意識到這些潛在的問題。許多組織透過制定詳細的實施計畫，包括目標，並提

供定期監測，力求確保其計畫的生產力。必要時，根據監測和評估程序修訂計畫或

活動。

正在進行的計畫流程和整個計畫是需要評估的。在本手冊中，“監測”是指評估計畫

有效性的持續過程，而“評估”是指其總體評估和取得的成果。

以下提到國家協調委員會作為負責監督實施的機構。然而，經驗表明，將這一職能

委託給其他現有的機構，如人權委員會，跨部委員會或負責人權事務的部門，可能

更為合適以及具有成本效益。

11.1 監測、報告技術與機制

從提出和制定國家行動計畫的角度來看，所有參與者對於監測和評估機制必須作為

計畫中的必要組成部分都應該接受。

國家協調委員會或其他指定的後續機構應是維持有效監測進程的主要機制。這一過

程的原型將在計畫的發展階段出現，因為執行機構通過委員會建立聯繫以提出各種

行動建議。委員會應該正式確立這些流程，並在整個計畫實施階段對其進行維護。

有效的評估

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 報告過程將以構成計畫的目標和指標為基礎，並為各機構和組織分配責任以

實現這些目標和指標。為促進有效評估，有必要制定標準化報告格式，這將

列出目標，目的，目標日期及績效指標，並從相關機構或組織那裡獲取有關

如何在相關時期內實施旨在實現這些目標的活動的簡明訊息。為了評估特定

活動是否已成功實施，全面了解其目標是必須的。這強調了在起草計畫時花

時間建立明確和實際績效指標的重要性。第 9.5 節中建議的表格方法在這方

面可能特別有用。

監測與報告機制

監測的核心過程將來自協調委員會的會議，在該會議上，它審查每個計畫活

動領域的情況。每個國家都將制定適合自身情況的機制，但每年舉行一次重

要評估會議可能會有所幫助，每六個月進行一次簡化評估。此時，負責實施

計畫各部分的每個機構和組織將以聲明的形式向委員會提交一份報告，其中

列出了相關目標，績效指標，執行機構為實現目標所做的工作。以及他們如

何滿足流程開始時商定的績效指標。如果績效指標，特別是特定目標沒有得

到滿足，報告中應該坦白地說明，並包括對未達到和應該做什麼的評估。報

告應整理並在專門監督的委員會會議上提交。整個過程應該是系統性的，所

有參與者都應該事前充分理解和接受，監測過程應在計畫的整個生命週期內

持續進行。

整個方法的目標應該是在資源和時間方面保持經濟實惠，以便報告不會變得

過於龐大或是難以理解。如果在準備或評估報告方面過於繁瑣，那麼所有方

面都將讓報告難以有效進行。因此，報告應保持少許幾頁即可。

評估結果也應系統化，委員會應迅速向各機構通報對其表現的看法，例如，

要求特別注意特定方面並斟酌情提供補充資料。該進程應力求在對話和商定

行動的基礎上推進計畫目標的實現。

如果某些活動的結果與目標不一致，則需要採取額外行動。如果評估過程表

明已達到或超過目標，協調委員會和相關機構應在計畫媒體和信息傳播計畫

中強調這一點。透過這種方式，計畫的價值將得到更廣泛的接受，也會有更

多的支持。如果沒有達到目標，那麼方法就需符合實際，避免相互指責，並

採取措施確定缺失的原因。原因可能包括不切實際的時間框架，資源不足，

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 政治支持不足或組織不足。事後可以認為原始目標過於模糊或固有無法實

現。無論對缺點原因的評估如何，協調委員會和有關機構都應制定相應處理

的建議。

有些組織可能對其人權表現的外部評估感到不安。 在關於該主題的任何交流

中，應該記住評估僅涉及組織本身自願同意在計畫中鎖定的目標。然而，一

些協調委員會也許在確保評估過程中對缺陷被發現的關注不足遇到困難。這

凸顯了讓具備必要人格品質及地位的協調委員會主席與組織負責人和政治領

導人討論困難議題的價值。

非正式的評估

除了這種構成中央監測工具的更正式方法之外，所有相關人員都應該仔細審

查計畫的有效性，並且應當於出現明顯缺陷時毫不猶豫地採取行動。

諸如主席和協調委員會或協調機構成員等關鍵人物將通過參與計畫的實施，

充分了解該過程的成功和不足。他們的見解應成為旨在改進計畫實施的對話

的一部分。

除了正式的評估過程之外，活動和事件的多樣性將有助於理解計畫的成功。

各個機構將透過自身的持續評估和報告系統提供訊息。在開放的社會中，非

政府組織、社區組織、媒體、政治組織和其他單位會毫不猶豫地對計畫實施

中的任何缺陷引起注意。應該以開放的精神接受這種非正式評估，而不是訴

諸戰鬥的防禦姿態。

在完成之前修改計畫

隨著計畫的進行，至少在某些方面可能需要進行修改。如果尚未實現目標，

則需要對擬定的活動進行一些調整，例如應用更多資源，改變工作方法，修

訂時程表或修改目標。如上所述，這將由協調委員會所負責。委員會應該注

意不要在實施不符合計畫目標的情況時，不採取補救行動，這自然會削弱公

眾對國家行動計畫進程的信心。

如果必須根據評估過程或由於其他原因修改目標和擬定活動，協調委員會應

採取措施確保修改可得到適當的紀錄。由於最初的計畫將引起官方和媒體的

關注並將得到廣泛傳播，任何後續的變化都應透過協調委員會傳播，至少應

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向相關領域的從業者和組織發布，它們也應納入協調委員會的媒體和傳播計

畫。

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12. 評估與後續計畫

12.1 評估問題

本手冊建議應為整個計畫設定一個特定的時間範圍。雖然它會根據有關國家的情

況和機構而有所不同，但我們已建議合適的區間可為五年。無論什麼時期，都希

望對整個計畫進行更實質和獨立的評估。評估的目的是根據目標衡量的成就來確

定計畫的成功程度，它將有助於證明分配給該計畫的各項資源支出。除了這種更

具規劃性的理由之外，評估代著表向政府，人權界和公眾提交關於計畫成果的重

要報告，對其他國家也有幫助，它們可以從已經制定計畫一段時間之國家的經驗

中獲益，這適用於已經啟動國家計畫的國家和正在考慮這樣做的國家。

決定的重點之一是誰應該進行整體評估。協調委員會（或為此目的指定的任何其

他監督機構）自然希望評估其多年來負責的計畫。然而，對於外部評估，也存在

強烈的爭論。由於該計畫將主要由協調委員會制定和管理，因此委員會可能難以

保持嚴格和可信的獨立方法。因此，雖然應該注意不要損害到委員會的工作，但

是委託進行外部評估或為值得的，因為它可能會大大增加計畫本身和更廣泛行動

計畫的可信度。如果進行外部評估，一個由高級獨立專家主持的小型委員會或許

是最好不過了，但包括其他兩名成員，一名代表政府機構，另一位代表非政府組

織。

對於總體評估，應採用與其他評估相同的基本方法，即根據既定目標和指標評估

成果。但是，在此程度上，還極需要提出該計畫更廣泛的使命和目標。全面審查

的一個重要方面是為了進一步開展人權保護和促進工作提出的任何建議，特別是

後續的國家行動計畫。

與年度和半年度審查一樣，應盡一切努力使流程簡潔明了。同時，整體審查應被

視為該計畫的一個重要層面。最終審查應作為政府、有關機構與組織以及公眾的

公開文件發布。

關於時間安排，最終的總體評估應在計畫期間正式結束之前開始。因此，如果該

計畫將在一個日曆年結束時到期，那麼可能會發現在該年年中開始審查是有助益

的。若研究結果和建議是後續計畫的一部分，甚至可能需要提前開始執行。

有效的監測過程將需要為人員做些資源分配以及出版和發布最終報告。

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12.2 開始後續計畫

本手冊建議初步的國家行動計畫應連同一系列後續計畫一併制定。透過這種方式，

人權工作將以類似於政府活動其他領域的方式開展，對資源分配和問責制採取比較

嚴肅的方法。隨著一項國家人權行動計畫即將結束，另一項將取而代之，就像經濟

計畫一樣。

後續計畫將在很大程度上基於對先前計畫的總體評估，在不損害評估過程獨立性的

情況下，應盡可能整合一個計畫的結論和下一個計畫的詳細說明。評估將以確定需

要採取進一步行動的領域，為下一個計畫的製定提供支持。

制定後續計畫的過程應與原計畫的過程類似。隨著結構和程序的到位，後續計畫將

更容易發展。但是，需要作出特別努力，以確保新計畫產生類似的影響並吸引類似

的關注。雖然目標應該是將人權工作納入政府活動的主流，但如過往一樣，包括所

有人權非政府組織、社區組織、國家機構和其他非政府行為者，制定和實施該計畫

的過程，應避免任何過度熟悉和過時陳舊的建議。後繼計畫應該涉及政府與原始計

畫相同的程度，它應該在類似的媒體和傳播計畫的支持下，以類似的影響進行發

起，並以同等的能量實施。

透過這種方式，更新國家行動計畫的過程本身應會重振所有利益攸關方對促進人權

和加強傳播有關人權訊息的承諾。

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13.資源

該計畫的成功在一定程度上將取決於是否有資源來支持其活動。而提供這

些資源則應被視為對社會進步的投資。該計畫目標的實現則會產生有真正價值的回

報。一個好的計畫裡，其目標將反映重要的社會價值觀。人權的保護和促進，無論

是在人身安全、司法、防止歧視、教育的提供亦或保健服務方面，都將旨在以促進

國家及其人民利益的相同方式助於經濟增長或軍事安全。

因此，當提供合理的資源則被視為政府對該計畫及其人權承諾的一個好徵

兆。若未能提供合理的資源則可能引發對政府慎重性和計畫可信度的質疑。

當然，世界各地的政府都在講求如何節流時，卻將國家預算拉得很高。在

這樣的趨勢下獲得足夠資源絕非易事。因此，協調委員會的方法應在縝密的經濟、

完全擔當責任、成本效益和創新結合下仔細分析資源需求。它們應被視為構成人力

和機構資源以及財政資源。透過給予其他提供經濟支援的關注，可以是個更有效的

方法做為計畫中可用資源的補充。

13.1 資金問題和策略

在計畫運作有兩個主要領域需要資金。一個與計畫開發和宣傳和成本的監

測實施有關。另一個涉及實施本身。兩者之間的區別在於；前者由於決定計畫而產

生的新支出，包含協調委員會、秘書處、協商、資訊設備等的費用。這些可稱為

開發和監控成本。

第二個支出領域包括相關機構的活動計畫。這些可稱為方案實施成本。由

於它們是相關機構的標準方案，各機構的固定預算應提供必要的資金。資金不應來

自政府計畫管理的撥款。可能涉及一些活動方案新的支出，因為過去沒有針對於這

些特定目的做資金分配。然而，較適當作法的則為過去各機構應須資助的這些活

動，對相關機構來說具有核心重要性，但它們只是被忽視或忽視。如果必須從機構

的預算中找到資金，則需要確定資源的優先次序、折衷和重新分配，以確保符合機

構的總體目標。

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 以下是可能需要資金或資源分配的計畫開發和監測領域內的一系列活動，

以及關於如何解決各種資金需求的意見。 （透過技術援助方案提供資金援助的問

題將在下文第 13.3 節討論

相關機構和組織的初步協商

● 這些應該由主要機構的工作人員進行。因此，最好將其工作人員視為相關機

構的核心代表，並將該機構的正常預算所涉及的費用包括在內。當工作人員

訪問該國的不同地區與相關團體交談時，例如在公開會議上，以及場地租賃

費用和與舉行公開會議相關的其他費用。這些費用將在沒有規劃的情況下編

入該機構預算的費用，宜在其正常預算範圍內為這些活動提供經費。

● 非政府組織協商參與可能會產生一些費用。建議它們一般應由相關組織來承

擔，部分原因是政府對於非政府組織核心宣傳職能的資助可能會破壞非政府

組織的獨立性。

● 在初次全國協商會議的情況下，可能會有於一般規則的例外情況，即擬定國

家行動計畫的概念並撰寫計畫制定過程的細節。政府為受邀出席者的費用提

供經費較適宜。但是，若採用不太有條理的出席方式，則不符合經濟效益。

成立國家協調委員會

● 將需要資源來支付委員會成員的旅行費用以及會議場地的費用，秘書處會議

的服務以及可能的酬金。費用將取決於委員會的規模和會議的頻率。在發展

階段，則需要更頻繁地召開會議，而在實施和監測階段，可能只會每六個月

召開一次。委員會所需的資金將是既有預算的額外開銷。但是，大多數國家

皆有為特定目的建立自治委員會的經驗，也可能有資金先例的存在。

● 委員會的辦公室主要負責人可能會發現自己或多或少都是全職工作。辦公空

間和相關設施可能派上用場。這些所需可歸類為秘書處的費用。

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秘書處的設立

● 將需要一個小型秘書處來支持協調委員會，並在委員會會議之間管理與國家

計畫 相關活動。辦公場所、辦公設備、通訊，旅行等用途將需要資源。秘

書處的主要任務可能包括草擬基礎研究的責任，也可能包括計畫本身。如果

秘書處將基礎研究或其他活動分包給其他人，例如顧問，則需要資金來支付

額外費用。

● 如第 5.6 節所述，秘書處的核心工作人員可由協調機構借調，而輔助工作人員

則可由其他組織提供。我們建議，為避免增加秘書處的費用，額外的工作人

員應同為其原組織借調。但是，在某些情況下，由於資源的缺乏，這些也許

是較難實現的。因此，政府可能會考慮為少數適宜的工作人員為秘書處提供

資助的可取性。

● 沒有建議秘書處工作人員的具體數字。然而，無論國家情況如何，通常都不

太需要大型秘書處。媒體參與工作和信息傳播程度只是影響其規模的一個因

素。

● 如第 5.6 節所述，秘書處活動的密集程度 - 以及資源需求 - 將隨計畫的有效期

而變化。

發展階段

● 與社區協商的時間可能需要委員會成員和秘書處在國內的旅行、相關所需的

費用。協商論壇和公開會議的場地租用可能需要額外的經費、廣告和其他相

關則必須提供適當費用。

● 訊息設備的草擬、製作和宣傳也需要一些額外的資金。秘書處可以承擔大部

分的工作，但可能需要專業人員參與材料的展示和格式以及網站的設計和開

發。若秘書處內部沒有相關技能人員，則需要將工作外包給顧問。在印刷和

宣傳設備上也需要資源。

● 可能還需要資助研究，包括民意調查，以協助制定基本數據，以便隨後監測

計畫的有效性。

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● 如果可能，則使用協調機構的設施來降低額外費用。雖然在使用內部資源方

面仍然有無法避免的實際成本，但這種方法可以促進規模經濟，並使秘書處

免於建立自主公共事務單位的任務。

● 同樣，也有可能利用協調機構的傳媒關係能力。秘書處仍然需要具備傳媒技

能的人員，若獲得既定單位專業知識和設備的機會將大幅度促進秘書處的工

作效率和經濟。

● 在實施和監測/評估階段，生產和傳播訊息設備和媒體關係工作將持續縮小規

模。

實施階段

● 執行計畫中各種活動的費用應主要由執行機構承擔，理由是該計畫的活動構

成與機構核心業務的一部分有關。現階段國家委員會和秘書處的作用應限於

此以提高對計畫的認識，監察計畫的實施並評估其結果。該計畫成功的關鍵

在於參與其促進活動的人員是否能夠說服相關機構進而實現人權目標，這是

其使命中組成的一部分，並提供充足的資金。

監測及評估階段

● 現階段的活動側重於協調委員會成員和秘書處人員的會議和旅行。只有在計

畫期間結束時，對計畫進行全面審查，活動密集度才會增加，且需要更高層

面的資源。如果要進行對計畫有效性的外部評估，則需要額外支付評估人員

的差旅費、諮詢費和其他費用。

13.2 機構合作關係

本手冊多次引起政府（通過其主要機構）關注與其他組織創立新夥伴關係

的可行性。在如何調動資源時的考慮為重要觀點。愈來愈多公共行政部門逐漸接受

政府沒有資源和專業知識來處理各層面的社會政策。在許多情況下，政府最好與其

他執行者協商並制定廣泛的政策，再建立其合作關係，利用現有的專業、知識和經

費做最大限度地利用。

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 就經費而言，主要的合作關係將是協調委員會和協調機構，以及負責實施

該計畫的各政府機構之間的合作。如果想讓計畫成功進行，執行機構須在預算編製

過程中納入各計畫之預算。以人權為宗旨的認知是大多數政府主要管理領域的項

目，也是整個計畫過程中的核心問題。

● 合作關係將是民間社會組織的其一的關鍵，它們既有能力實施某些領域的計

畫活動，例如：教育和訊息傳播，也有助於協調委員會和秘書處的工作;

● 私人慈善組織或供資機構可為特定項目協助提供資金;

● 企業贊助是值得開發的，例如：製作和訊息傳播設備;

● 在某些情況下，私營機構可能會提供資金作為秘書處的經費，例如：購置電

腦硬體或辦公設備;

● 媒體機構可能決定有關計畫紀錄片或廣播節目的製定，從而降低媒介策略成

本;

● 其他政府基層也可以對資源需求做出貢獻。例如，地方政府可以在諮詢過程

中提供場地和當地交通疏導。

13.3 國際援助

在某些已制定國內行動計畫的國家則已使用發展援助資金以符合資源需

求。其他考慮制定國內計畫的國家可能考慮外部資金援助。的確符合最近的趨勢，

因為越來越多捐助方和受援方政府地將人權視為適當的國際合作領域。潛在的捐助

方包括國際發展機構，如聯合國，捐助國政府和私人基金會。

主要一個國內計畫行動進展的優點是，它為將具體活動領域納入一個連貫

的整體提供了一個完整系統。透過該計畫確定目標、時限和預計結果後。它可以協

助捐助方和受援方制定具體項目的技術合作。其中的一個例子是來自印尼的計畫：

「歡迎雙邊、區域和國際合作，加強其國家執行促進和保護人權方案的能力，

本著”聯合國憲章“所載國際合作的精神，並在各國相互尊重和平等的原則基礎

上。」

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 計畫中規定的各種活動上清單的附註表示可能需要技術合作，尤其包括培

訓。馬拉維計畫採用相似的方法並強調，

「旨在支持馬拉維民主過渡期和加強國家促進和保護人權能力的國際援

助與合作的重要性。」

馬拉維計畫簡述了各個尋求國際援助的領域。其他國家計畫則用技術支援

訊息設備的製作及傳播。

國家行動計畫也可以是捐助國政府用來承諾的工具。澳大利亞計畫表示澳

大利亞將：

「繼續協助其他國家加強其國家人權基本建設，並旨在確保每個人享有

人權的倡導和教育發展上。」

如果該計畫是以制式系統的方式呈現，那麼哪些地區可能出現資源短缺、

哪些地區可能會有外部援助則會顯得明顯。迄今的經驗顯示，可提供此類援助的領

域、特別合適的培訓以及訊息和教育設備的製作和宣導。在擬定國家計畫時可能還

需要技術諮詢。

整個國家行動計畫的外部資金是不可取的。考慮因素的關鍵是將人權活動

納入政府正常行動範圍。因此，即使政府只擁有有限的資源，也可分配一些資源來

實現計畫中的目標。其中必然結果是，有限的資源對於政府制定國家行動計畫並不

是太大的阻礙。

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14.區域和國際合作關係

國家的人權活動與國際的人權活動層面息息相關。 “聯合國憲章”指出，人

權是國際關注的議題，而國際人權準則是國家一級標準和立法的基本。目標是制止

種族歧視、促進原住民的權利、制定發展或促進人權教育的權利，來自國際行為上

的刺激。

國家行動計畫合乎這類情況。作為國家計畫，必須關注國家的活動層面。

但是，國際行動計畫的概念起源於國際層面（見第 2 章），並舉行了國際會議以

製定這類概念。對從事國家級行動計畫的人來說，有意義的國際化定位是可以讓他

們從國際經驗中獲益，也可以讓其他人向他們學習。另外，可以通過這種方式獲得

國際級的專業知識和資源。

本手冊中的若干要點已經討論了國際層面。國家行動計畫的一些國際方面

概述如下。

14.1 經驗分享

每個已制定國家行動計畫的國家極有可能為追隨其後的其他國家鋪路。大

部分國家、狀況和文化如此龐大深遠，以至於正在制定國家行動計畫的國家需要各

式各樣的例子作為指導其工作的來源。因此，每個新計畫都須擴大可用範例之範

圍。新計畫可能包含其他地方尚未解決的特徵，對於面臨到類似問題的國家可能有

幫助。

作為分享過程的這部分，有可能跨越捐助者和技術受援方的傳統界限。由

於迄今大多數制定國家行動計畫都是發展中國家，現有的許多專業知識都位於發展

中國家。因此，在考慮依據技術合作計畫提供資金和提供專家意見諮詢的情況下，

專業知識將主要來自發展中國家。這種作用可能有助於促進發展中國家在國際辯論

中更具平衡、有力和建設性。

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 正如本手冊所建議，國家行動計畫不是單一突發事件，應該是一個持續的

過程。經驗分享變得更加重要，因為每個有計畫的國家都希望其方法能被稱為最佳

國際慣例的方式審查。如此，後續計畫不僅將受益於其國家第一個實施計畫的相關

經驗，且能於其餘有國家計畫的積累經驗中獲益。

14.2 區域和國際研討會

在用於全部或部分專門審定國家行動計畫的區域和國際研討會上將進行一

些經驗分享。此類會議已在新德里，曼谷，達喀爾和基多舉行，並計畫舉行進一步

的會議。參加這些會議的人不僅包括已制定國家計畫的國家的代表，還包括政府、

人權具代表性和其他聯合國的機構、國家人權機構和非政府組織的代表。這些研討

會在國際上宣傳國家行動計畫概念，發揮分享經驗和最佳做法方面的重要作用。反

觀，就國家計畫的可能結構和內容以及如何管理這類想法，研討會對於進一步動作

提出了有益的建議。已制定國家計畫的國家應隨時做出為此類研討會貢獻之準備。

14.3 聯合國

源於聯合國的國家計畫的工作得到了聯合國的支持。隨著越來越多的國家將國

家計畫視為改善人權的工具，並希望世界組織及其附屬機構提供指導和協助，這種

情況將繼續發生。具有國家計畫經驗的國家可以通過不同方式這一問題上的專業知

識為聯合國在作出貢獻。他們可以向人權代表提供有關其自己計畫的訊息，包括計

畫的文本及相關評估和修訂的訊息，並參加相關問題的辯論，例如，在人權委員會

年會上，提供為委員會和處理國家人權計畫的其他人權組織投入有關的決議。因

此，國家計畫的機制推動得以一致和合作的方式進行，以便更多的國家、組織和個

人從這概念中獲得利益。

14.4 技術合作和人權代表

聯合國人權事務代表專員辦事處提供了為制定迄今通過的若干國家人權行

動計畫諮詢和其他協助。或是在更深廣的全面性國家技術合作下提供的援助，亦或

是一項主要重點活動。在某些情況下，通過“強化人權”（人權計畫）聯合人權代表/

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開發計畫署提供方案的協助（網址如下

http://www.unhchr.ch/development/hurist.html）。從這些計畫中吸取的經驗教訓

將在人權代表的網站上公佈，並適時納入本手冊的修訂版。

對 HURIST 計畫運作的頭兩年進行獨立審查 - 發表於 2001 年 8 月

（http://www.ohchr.org/development/huristreview.doc） - 提出了關於國家人權

行動計畫與兼容性的問題將人權“納入主流”作為關切國家級發展政策和規劃活動

跨領域中的主軸。問題反映在本手冊的導言部分（第 1.3 節）中並在中進行了

詳細闡述第 8.7 節。然而，人權代表的政策立場是：行動計畫與“主流化”必要性

之間沒有所謂的不同。迄今制定和實施國家行動計畫的經驗有助於更清楚地了

解有效使國家行動計畫的條件。除了政治兌現和上述討論過的各種“過程”和“內

容”因素外，其協調委員會計畫及整合的有效媒介可以將人權行動計畫的價值和

實際影響到最大化。人權納入國家級的發展規劃和“主流”政策部門。

本手冊將依據進一步經驗累積進行修訂。人權代表將應要求持續提供國家人權

行動發展的相關訊息、諮詢與協助。

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