ࡱ> UWNOV` Rbjbjy/%@0( ( ( < ]]]8$^_T< aa"*a*a*acdcdcdbdddddd$h( c|cd,,*a*a$uuu,&*a( *abebuuR ( *a` f!i]6^>^<z0| ( "<cd %nSuzcdcdcddcdcdcd<  (5D(< 5< < < ,,,,,, Japans ODA Policy and Reforms in Comparative Perspective: Policy Making in Japan, the US, and the UK 1. Challenges of Japans Official Development Assistance (ODA) Japans ODA policy is under critical review for three key reasons. First, the fiscal crisis is forcing the government to cut expenditures that are not deemed absolutely necessary. Under fiscal austerity, Japans ODA budget continued to decline over the past decade, recording a cumulative reduction of 38% from the peak level of FY1997. As a result of this trend, the United States (US) replaced Japan as top donor country in 2001 for the first time since 1991. More recently, the United Kingdom (UK) surpassed Japan to be the second largest donor (on a net disbursement basis). Now that many donors are bolstering aid to achieve the United Nations targets of 0.7 percent of GNI (gross national income) to support the realization of the Millennium Development Goals (MDGs), it is important for Japan to reverse the current declining trend and demonstrate its firm commitment to development assistance. Trends of Net ODA from G7 Countries 19852006 (net disbursement basis)   Second, domestically, the Japanese public is experiencing aid fatigue. Domestic constituency for development assistance is weak, and amid fiscal austerity and widening income disparity within Japan, the public feels that the budget should be spent on services that benefit them more directly. So, views are divided over why and for what Japan should give foreign aid. The results of the latest opinion polls conducted by the Cabinet Secretariat (2007) show that a declining share of the public actively supports Japans engagement in foreign aid. The share of those who responded that Japan should increase the ODA budget dropped from around 40 percent in the early 1990s to 23% in 2006. In contrast, those who responded that Japan should decrease or stop ODA increased to around 25% in 2006, compared to less than 10% in the early 1990s. The third reason for increased scrutiny of the ODA policy is that Japan has not effectively communicated with external stakeholders. Japans failure to articulate its ODA vision in global debates has contributed to this shortfall. Despite its past efforts in deepening mutual understanding between Japan and the Western aid community, Japan continues to feel a gap between mainstream development thinking and the East Asian development experience, which is widely regarded as a success story and to which Japan itself made significant contributions through aid, trade, and investment. Triggered by these domestic and external pressures, a series of ODA policy and institutional reforms are underway and have been accelerated since around 2002. To better understand the nature of the challenges faced by Japans ODA policy-making and to draw implications for the ongoing reforms, we compare aid policy-making among Japan, the US, and the UK. Special attention will be paid to the legal and policy framework for ODA decision-making, characteristics of aid systems, and key actors and their interests. Finally, we will discuss Japans current ODA reforms and future prospects. 2. Policy and Institutional Framework for ODA Decision-MakingUS, UK, and Japan The US, the UK, and Japan are the top three bilateral donors in terms of ODA volume. They accounted for 45 percent of the total ODA provided by the Development Assistance Committee (DAC) members in 2006 (on a net disbursement basis). As Table 1 shows, the three countries have similarities and differences in their ODA trends (e.g., volume, geographical sector, multilateral share, grant share). Table 2 compares the policy and institutional framework for ODA decision-making among the three countries; this framework could affect their ODA trends as well. Table 1: Comparison of ODA Volume and Allocation Trends USUKJapanVolume (ODA/GNI) (2006: net disbursements)$22,739 mn (0.17%)$12,607 mn (0.52%)$11,608 mn (0.25%)Bilateral share (2005: % of total net disbursements)92%76%79%Regional distribution (200405: % of total gross disbursements)Middle East & North Africa (47.4%) Sub-Saharan Africa (22.1%)Sub-Saharan Africa (53.6%) South & Central Asia (21%)East Asia & Oceania (40.7%) Middle East & North Africa (19.3%)Major aid use (200405: % of total bilateral commitments)Social & administrative infrastructure (43.6%) Humanitarian aid (14.3%)Social & administrative infrastructure (30.0%) Humanitarian aid (8.1%)Economic infrastructure (26.8%) Social & administrative infrastructure (21.4%)Grant share (2005: % of total ODA commitments)100%96.5%48.8%ODA through NGOs (2004-05: % of total bilateral commitments)Not reported9.2%1.7%Source: OECD/DAC (Development Cooperation Report 2006, CRS online database) Table 2: Comparison of Policy and Institutional Framework USUKJapanLegal and policy frameworkForeign Assistance Act (1961, amended several times) White House National Security Strategy (2002, 2006) State Dept./USAID Foreign Assistance FrameworkInternational Development Act (2002) DFID White Papers (1997, 2000, 2006)No law ODA Charter (Cabinet decision: 1992, 2003), Medium-Term Policy on ODAPolicy formulation and implementation coordinationFragmented aid system, with strong Congressional involvement USAID: semi- independent, subcabinet-level agency MCC (2004 ): govt- owned corporation Other depts. & agenciesCoherent & organized aid system DFID (1997-): independent, cabinet-level dept. for ODA policy & implementation Public Service Agreement with the Treasury (setting 3-year performance targets)Fragmented aid system Policy: MOFA (overall), MOF, METI Implementation: MOFA (grants), JBIC (loans), JICA (TA), etc. Other ministries & agenciesRole of legislatureNo specialized committee for ODA, but vigorous budget scrutiny by Congress Strong check & control in executive branch over aid policies, budget, and programs Comprehensive review by International Development Committee (House of Commons, est. 1997), especially DFID policies, expenditure and administrationRecently, special committee for ODA established (House of Councilors in 2006) Limited role of Diet in aid policy-making 2-1. United States (US) Historically, US foreign aid policy has been driven by the dual purposes of diplomacy and development. Especially, the Bush Administration (2001 ) has advocated the War on Terror to elevate the prominence of diplomatic purposes in aid-giving. Currently, Presidential leadership is a driving force to mobilize political and public support to ODA, including the recent drastic increase of the ODA budget. The US is the largest bilateral donor in terms of aid volume, although its ODA/GNI ratio is low. The recent drastic increase of ODA is primarily for Iraq debt forgiveness and reconstruction; reconstruction and anti-narcotics efforts in Afghanistan; and specific programs in Africa, primarily Sudan and Ethiopia (DAC 2006). Geographically, the Middle East is a high priority region. Sectorally, social and administrative infrastructure receives the largest allocation, followed by humanitarian aid. The US government channels the majority of its ODA through bilateral aid. Legal and policy framework The Foreign Assistance Act, legislated in 1961 under the John F. Kennedy Administration, provides the legal basis for todays US foreign assistance programs. The Act mandated the creation of the United States Agency for International Development (USAID) to administer economic and social development assistance programs, separated from military aid. The events of 11 September 2001 marked a major shift in US foreign aid policy. The government has used the logic of national security (the War on Terror) to boost the image of development cooperation in Congress and among the American public. In 2002, President Bush pledged to add US$5 billion to the annual ODA budget over the next three years (FY20042006), from the 2000 level. This was the biggest boost for foreign aid since the Marshall Plan was launched in 1948. The National Security Strategy, formulated by the White House in 2002 and 2006, has raised development to the status of one of three pillars of national foreign policy, along with diplomacy and defense (the 3Ds). The Department of State has shaped a policy of Transformational Diplomacy, aimed at working with our many partners around the world to build and sustain democratic, well governed states that will respond to the needs of their people and conduct themselves responsibly in the international system(Rice 2006). Building on this policy, the Foreign Assistance Framework has been formulated to guide the operations of the Department of State and USAID. Under the presidential system, both the executive and legislative branches of government play a role in shaping policies and especially in determining federal expenditures. The executive branch proposes annual levels of expenditures that must then be appropriated by Congress. Congress plays an active role in deciding not only the amount but also the use of those expenditures and then oversees the programs they fund. This often results in extensive earmarking of funding allocation. As such, Congress is viewed widely as limiting the efficiency and flexibility of American aid (Lancaster 2006). Aid system, key actors, and interests The US aid system is known for organizational fragmentation and strong congressional involvement in ODA strategy, programs, and budget. About 26 government institutions are involved in providing ODA. Among them, five institutions accounted for over 90 percent of the total funding in 2005, including USAID and the Departments of Defense, Agriculture, State, and Treasury (DAC 2006). In this fragmented system, USAID is the main aid agency and the key voice for development within the US government. It is a subcabinet-level agency taking foreign policy guidance from the Secretary of State. This organizational arrangement reflects the ideas that development should be a separate purpose of aid but that aid should also serve diplomatic purposes (Lancaster 2006). Notably, there has been the major redirection of ODA from USAID in recent years. During 20022005, USAIDs share of total ODA funding dropped from 50.2 percent to 38.8 percent (DAC 2006). This is primarily due to the rapidly expanding role of the Department of Defense in ODA to support global security interests, particularly in the Middle East. Furthermore, the creation in 2004 of the Millennium Challenge Corporation (MCC)a government-owned corporation charged with managing the Millennium Challenge Account (MCA)is likely to accelerate this trend. The MCC provides performance-based grants to eligible countries that demonstrate a commitment to just and democratic governance, economic freedom, and investments in people. (The Bush administration chose to create an entirely new agency to manage these funds rather than allocating them to USAID.) To address the problem of organizational fragmentation, an Office of the Director of Foreign Assistance was created in the Department of State in 2006. The Director serves both as Deputy Secretary of State and as Administrator of USAID. It is expected that this office would serve as an umbrella leadership structure for rationalizing and coordinating all foreign assistance policy, planning and oversight. Regarding key actors and interests influencing ODA policy-making, currently, presidential leadership is a major driver of mobilizing political and public support for the sake of national security concerns. Within the administration, the Department of State is the principal advocate for the diplomatic purposes of foreign aid. Historically, foreign aid has been regarded as a useful tool in support of Cold War containment, peace-making, anti-terrorism, and other policies associated with US national interests. The Department of Treasury is responsible for aid to the international financial institutions and for debt relief and is primarily concerned with fiscal responsibility. The Department of Agriculture is involved in food aid (PL480), in coordination with the other departments and agencies involved. Those agencies advocating commercial interestsi.e., the Department of Commerce, the Export-Import Bank, and the Department of Agriculture (for food aid)have had limited influence on US foreign aid or access to decision-making on the allocation and the use of aid. The Department of State is reluctant to allocate aid to promote specific commercial goals and is powerful enough to fend off attempts by these agencies (Lancaster 2006). However, US aid does indirectly further commercial purposes abroad through the high percentage of tied aid (often cited as between 70 percent and 80 percent) USAID has been the principal advocate for the developmental use of aid. However, as a subcabinet-level, semi-autonomous agency, its bureaucratic rank in the government has been relatively weak (Lancaster 2006). USAID seeks allies outside the executive branch, including members of Congress and their staffs, development and relief-oriented NGOs, and the media, for support on development issues. There exists a fairly strong aid lobby primarily made up of NGOs that are focused on relief, development, and associated issues such as the environment, population and family planning, womens rights, and HIV/AIDS. Although they are a fractious group of organizations (churches, universities, service delivery groups, think tanks, etc.), they collaborate in a loose network and lobby for high aid levels, aid for development broadly defined, and at times, aid for their own particular missions and activities. The American public broadly supports foreign aid to reduce poverty, and this support has grown further since the events of 11 September 2001. Nevertheless, the public remains cynical over the way government aid programs are implemented. 2-2. United Kingdom (UK) The UKs development assistance has experienced substantial transformations since 1997, when the Labor government returned to power. In 1997, the government created the Department for International Development (DFID) as a cabinet-level ministry with responsibility for foreign aid and international development and has made global poverty reduction a national priority. DFIDs cabinet-level representation ensured a stronger position compared with its predecessor, the Overseas Development Administration (ODA) under the Conservative Thatcher government. ODA was no more than one unit within the Foreign and Commonwealth Office (FCO). The UK government is firmly committed to increasing its ODA to 0.7 percent of GNI by 2013. As the result of progressive effort to increase the ODA volume, in 2006, the UK became the second largest donor in volume terms, surpassing Japan. DFID programming is strongly focused on poverty reduction and closely aligned to the MDGs. Geographically, DFID concentrates its resources on the poorest countries, particularly in sub-Saharan Africa and South Asia and is increasing its assistance to fragile and under-aided states. Sectorally, social and administrative infrastructure receives the largest aid allocation. About one-fourth of UK aid is disbursed through multilateral organizations. Legal and policy framework The 2002 International Development Act provides a clear legislative mandate around poverty reduction and gives the current strategic orientation on issues of development, not only aid. This has been further refined by DFID at the policy level through a series of regular White Papers. Having a status equal to the FCO and the Department of Trade and Industry (DTI), DFID has become a ministry able to speak up on UK foreign and economic policy from a development perspective. In the UK, the Parliament has the International Development Committee to examine the expenditure, administration, and policy of DFID and its associated public bodies. The Committee also takes an interest in the policies and procedures of multilateral agencies and NGOs to which DFID contributes. The Committee was created in 1997 and is appointed by the House of Commons. Aid system, key actors, and interests With a clear legislative mandate, UK has taken a coherent and organized approach to aid policy-making and implementation. DFID is responsible for almost all ODA, with direct control over some 84 percent of total disbursements (DAC 2006). A strong political alliance among the Prime Minister, the Secretary of State, and the Chancellor of the Exchequer has ensured consistent clarity of vision and the resources required to address complex tasks of international development. Especially, Clare Short, the first Secretary of State for International Development, provided strong political leadership and vision to the newly created DFID. Such a high-level political commitment and shared vision on international development contribute to DFIDs ability to ensure policy coherence across the government. The current overarching framework for DFID is to contribute to the achievement of the MDGs and the elimination of world poverty. All of DFIDs activities are explicitly considered in relation to the goals. For example, DFIDs Public Service Agreement (PSA) is closely aligned with the MDGs. The importance of the goals also explains DFIDs commitment to engagement with other donor and multilateral organizations as an integral part of its work; DFID acknowledges that the MDGs cannot be achieved by the departments efforts alone and will be reached only through global coordination and cooperation. With an insignificant share of UK aid going through multilateral organizations, DFID actively tries to promote reforms and influence policy within them. Notably, under the leadership of the first Secretary of State Clare Short, DFID decided to end pursuit of commercial profit through aid (Ishikawa 2005). In 1997, DFID abolished the Aid and Trade Provisiontied grant aid incentives under a mixed-credit schemewhich had been provided by the Conservative Thatcher government. DFID stands up for the poverty reduction agenda in the face of commercial interests of the DTI and foreign policy concerns of the FCO. The development studies sector in the UK is among the worlds most vibrant. There is also a substantial development research capacity in many NGOs. DFID has established close networks with researchers in university departments, think tanks, consultancies, and NGO policy research units. Such close relationships contribute to an overall coherence in thinking between policy thinkers and researchers and help to ensure that all are speaking a common language on the terms of the debate (Warrener 2004). The UK appears to enjoy a relatively high level of public support for development. According to a recent public opinion survey (July 2006), about 80 percent of the respondents are either very or fairly concerned about poverty in developing countries. This is partly due to UK-specific cultural contexts, such as the Christian concept of charity, historical connections with former colonies, a multi-cultural society, and a strong civil society sector. In fact, many respondents recognize how their lives are connected to the developing world. There is shared understanding that the UK might be affected by poverty in developing countries through refugees, asylum seekers, and workers coming to the UK; ill feeling leading to terrorism; and the possibility of conflict and war. 2-3. Japan As stated in the beginning, Japans ODA policy stands at a crossroads, and notable reform initiatives are underway (see section 3). Thus, it is important to examine the nature of challenges faced by Japans ODA policy-making to draw their implications for the future. Japan was the top donor in the early 1990s in terms of aid volume. But, the fiscal crisis compelled the government to cut the ODA budget over the past decade. In 2006, Japan was the third largest donor, following the US and the UK. The OECD/DAC projects that Japan will be ranked fifth by 2010 if the current decline continues. Geographically, East Asia continues to be the primary destination of Japans bilateral aid. Sectorally, economic infrastructure receives the largest allocation, followed by social and administrative infrastructure. About 20 percent of the total aid is channeled through multilateral aid. Furthermore, Japan is unique in its relatively large share of loans in bilateral aid. Legal and policy framework Unlike the US and the UK, Japan does not have a basic law on aid. The highest policy document is the ODA Charter, approved by the Cabinet. The ODA Charter clarifies the philosophies and principles of Japans ODA. The 2003 ODA Charter (revised from the 1992 version) proposes that the ultimate objectives of ODA are to contribute to the peace and development of the international community, and thereby to help ensure Japans own security and prosperity. Below this lies the Medium-Term Policy on ODA as the guideline to realize the principles articulated in the ODA Charter. The Diet plays a limited role in policy debates and decision-making on aid (except in cases of scandal or major crises), although the recent years have seen signs of changes. Until recently, there was little regular oversight of foreign aid on the part of the Diet and there were few challenges to the governments policies or purposes. So, much of the real decision-making in Japan took place within the bureaucracy. In this regard, the creation of a special committee for ODA in the House of Councilors (the upper house) in early 2006 deserves attention. Aid system, key actors, and interests Japanese aid is fragmented at both the policy and implementation levels. As the leading ODA ministry, the Ministry of Foreign Affairs (MOFA) is responsible for coordinating with other ministries and supervising implementation agencies. In reality, however, the planning and implementation of ODA policies and budgets are scattered across many organizations. First, policy is divided from implementation. Key roles in decision-making are assumed by MOFA, the Ministry of Finance (MOF), and the Ministry of Economy, Trade and Industry (METI). The Japan International Cooperation Agency (JICA) and the Japan Bank for International Cooperation (JBIC) are the two major executing agencies. For JICA, the MOFA determines policy. MOFA, MOF, and METIall with rather different institutional interestsparticipate in policy and lending decisions by JBIC. Second, implementation is also divided. Implementation of bilateral aid is divided among MOFA, which handles grant aid; JICA and relevant ministries, which handle technical cooperation; and JBIC, which handles yen loans (concessional loans). While JICA undertakes about half of the technical cooperation, 13 different ministries are also involved. Contributions to international organizations are divided between MOFA, which deals with UN-related organizations, and MOF, which deals with the international financial institutions. Within the Japanese government, MOFA serves as the principal external representative of Japans aid programs. MOFA, JICA, and JBIC represent the voices for development interests. MOFA also promotes diplomatic interests, seeing the role of foreign aid as supporting the basis of diplomacy. MOF focuses on the volume of expenditures and the terms of Japanese aid. It also has responsibility for Japans participation in international financial institutions. METI represents commercial interests within the government, but the commercial sector has become less supportive of aid since the 1980s, when the government began to untie its aid (Lancaster 2006). In recent years, an increasing number of development and relief NGOs have come to operate as either implementers or advocates of aid for development. Nevertheless, the Japanese civil society sector remains weak in comparison to those of Europe and North America. The public is generally unfamiliar with ODA issues and has misconceptions concerning the bilateral aid program. Yet, a certain proportion of the public is supportive of humanitarian efforts and concerned about development. 3. Current ODA Reforms and Future Prospects To promote the public understanding of aid effectiveness and to improve its efficiency under fiscal austerity, the Japanese government has initiated a series of ODA reforms. While these reforms started within the existing framework, they have developed into more comprehensive institutional changes since 2006. Examples of the initial reforms include: Establishment of an advisory board for MOFA ministers for comprehensive ODA strategy issues, called the Board on Comprehensive ODA Strategy (June 2002); Renewal of policy framework, by adopting a new ODA Charter (August 2003); and Strengthening of country-assistance programming, by forming field-based All Japan country teams across agencies from early 2003. JICA, under the leadership of President Sadako Ogata (who took office in October 2003), introduced initiatives such as field delegation, a human security approach, and increasing aid to Africa. JBIC also introduced new lending products to support low-income countries. More recently, in 2006, the Japanese government decided to restructure the institutional framework for ODA policy planning and implementation. This decision is a component of the reform package of public financial institutions, promoted by ex-Prime Minister Koizumi. The new institutional framework (called the three-tier structure) includes: Establishment of the Overseas Economic Cooperation Council (OECC)a ministerial meeting chaired by the Prime Minister and supported by the Cabinet Secretariatas an effort to strengthen strategic planning of ODA (April 2006); Reform of the MOFA organizational structure related to ODA to enhance its capacity for holistic policy planning and coordination (August 2006); and Establishment of a new ODA implementation system through the integration of ODA loan operations (currently under JBIC) and a substantial part of grant aid (currently under MOFA) into JICA, which is currently dedicated to technical assistance. The resulting new JICA is expected to be operational in October 2008. These are unprecedented and historic reforms, in terms of scope and structural changes, for ODA policy formulation and implementation. The members of the OECC are the Minister of Foreign Affairs; the Minister of Finance; the Minister of Economy, Trade and Industry; and the Cabinet Secretary. The Prime Minister serves as chair. The new JICA will become effectively the worlds largest bilateral development agency, and, overall, second only to the World Bank in aid volume. With annual gross disbursements estimated at around US$8.59 billion, it will become a unique aid agency providing technical assistance, grant aid, and ODA loans in an integrated manner. If properly designed, a single ODA executing agency should lead to stronger linkages among various aid instruments and enhance the already started efforts to reinforce country-based approaches with greater field delegation. Nevertheless, these opportunities are not automatic, and it is important to recognize the challenges ahead. First, it is yet to be determined whether and to what extent the OECC meetings have strategic planning capability. Nor is it clear to what extent the new MOFA structure is linked to the OECC in terms of providing policy and strategy advice. Currently, the OECCs ministerial meetings are taking place in isolationwithout policy inputs from the outside (or from MOFAs policy planning body). Second, at the government level, frequent staff rotation makes it difficult to accumulate professional expertise in international development. MOFA development staff and those seconded by other ministries rapidly rotate out of development cooperation. Third, at the implementation level, the two aid agencies differ in their approaches to development. JBIC focuses on economic growth and emphasizes funding infrastructure, while JICA has a greater focus on poverty reduction and human security, including conflict management and global issues. Finally, political interests in ODA remain weak. So far, there have been limited debates on the substance of ODA visions and policy. This is because in Japan, ODA is not a useful issue for garnering votes. As explained, the initial drive for reform came not from political consensus on the direction for new ODA, but rather from domestic motives, i.e., budget cuts and public sector reforms. Reflections The challenges faced by Japans ODA mirror general problems of policy formulation in Japan. The weakness of political leaders and lack of strategic visions have led to a fragmentation and devolution of power within the Japanese bureaucracy. Prime ministers have been reluctant to take strong positions in pushing reforms on reluctant ministries or in resolving disputes among ministries. As a result, differences among ministries have had to be coordinated, or negotiated out, making it difficult to show strong policy directions or to realize substantial policy changes in programs that adversely affect the interests of the involved ministries. Moreover, the absence of clear visions and principles that can be projected to the rest of the world as well as slow and passive reactions to shifting external circumstances are the salient features of Japanese diplomacy after the World War II. A weak civil society sector and weak policy think tanks are also accountable for the problems. All these features are visible in Japans ODA policy. Bibliography Ishikawa, Shigeru. 2005. Supporting Growth and Poverty Reduction: Toward Mutual Learning from the British Model in Africa and the Japanese Model in East Asia, GRIPS Development Forum Discussion Paper, No. 9, March 2005. http://www.grips.ac.jp/forum/pdf05/DP9.pdf Lancaster, Carol. 2006. Foreign Aid: Diplomacy, Development, Domestic Politics, The University of Chicago Press. Chapter 3, The United States: Morgenthaus Puzzle, pp. 62109. Chapter 4, Japan: The Rise and Decline of an Aid Superpower, pp. 110142. Warrener, Debbie (with Julius Court). 2004. Aid Policy Research: Towards Stronger Japan-UK Linkages Setting the Scene, Overseas Development Institute, August 2004. http://www.odi.org.uk/Rapid/Projects/R0219/docs/July_report_setting_scene.pdf Ohno, Izumi. 2007. Country-Specific Growth Support in East Asia and Africa: Japans ODA to Vietnam and Ghana, GRIPS Development Forum Discussion Paper No. 16, January 2007. http://www.grips.ac.jp/forum/pdf07/dp16.pdf Organization for Economic Cooperation and Development. 2006. United States, DAC Peer Review: Main Findings and Recommendations. Organization for Economic Cooperation and Development. 2006. United Kingdom, DAC Peer Review: Main Findings and Recommendations. Organization for Economic Cooperation and Development. 2003. Japan, DAC Peer Review: Main Findings and Recommendations.  This section is primarily drawn from DAC Peer Review of US Development Cooperation Policies and Programs (2006) and Lancaster (2006), Chapter 3, pp. 62109.  Speech delivered by the Secretary of State, Condollezza Rice, entitled Transformational Diplomacy on January 18, 2006 at the Georgetown University.  According to Lancaster (2006), aid tying has been a means for USAID to fend off pressures for a more direct allocation of aid for export promotion. USAID stopped publishing data on the proportion of aid used to purchase US goods and services in 1996.  This section is primarily drawn from DAC Peer Review of UK Development Cooperation Policies and Programs (2006) and Warrener (2004).  The Public Service Agreement (PSA) was first introduced in 1998 as part of the overall results-oriented approach of the New Labor government. A set of time-bound and results-oriented performance targets is agreed between each department and the Treasury and laid out in a triennial Public Service Agreement.  Based on PPT prepared by Debbie Warrener, DFID, Building public support for development: DFIDs activities in the UK, April 2007.  This section is largely drawn from Lancaster (2006), Chapter 4, pp. 110142.  Beginning in the late 1990s, parliamentarians began to take a more active interest in Japanese aid and in Japanese foreign policy in general. The LDP established its own Special Committee on External Economic Assistance to follow aid issues (Lancaster 2006).  JBIC was formed in 1999 as the result of a merger of the former Overseas Economic Cooperation Fund (OECF) and the Export-Import Bank of Japan (JEXIM).  This reform package is based on ex-Prime Minister Koizumis plan to downsize the administrative apparatus in Japan. Although the restructuring of the ODA system was not the major objective of this administrative reform, the treatment of JBIC, which is a public financial institution charged with international financial operations, triggered active debates on the appropriateness of the existing ODA system and resulted in the creation of the new JICA.     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