USAID's
current program in Cambodia traces its roots to humanitarian
assistance activities in
support of Cambodian non-communist resistance groups beginning
in 1986. U.S. assistance to Cambodia accelerated sharply
after the signing of the Paris Peace Accords in 1991, which
in turn led to the re-opening of the USAID/Cambodia Mission
in 1992. Since that time, USAID has provided nearly $500
million in support of Cambodia’s development.
With the establishment of a full-scale Mission, USAID also
began a more strategic approach, one that recognized the long-term
development requirements of Cambodia. While the initial focus
was on meeting basic human needs across the country, programs
were also developed to support the UN-sponsored move to establish
a freely elected government. In these circumstances, there
was understandable interest in building the foundations for
democratic governance while also putting Cambodia on a path
toward more sustained economic growth. Improved health and
education services also emerged as a key concern. From the
outset, funding was primarily delivered through contracts and
grants to private voluntary organizations (PVOs) or international
organizations—a pattern that continues to this day.
The early years were dominated by the United Nations Transitional
Authority in Cambodia (UNTAC), the organizational embodiment
of the Paris Peace Accords. UNTAC’s main task was to
provide essential administration and security functions in
the country long enough to conduct national elections. UNTAC
was the most complex—and, at $1.9 billion over two years,
the most expensive peacekeeping operation in the UN's history,
involving 22,000 civilian and military peacekeepers from 46
countries. Its prime mission was to create conditions for "free,
fair, and open" national elections to choose a new government.
The first election was successfully held in May 1993 and involved
wide participation among all segments of the Cambodian population.
This was followed by adoption of a new constitution, the seating
of a National Assembly, and the coronation of King Sihanouk
in September 1993. National reconciliation was incomplete,
however, in part because the disarming and demobilization of
the various military forces did not take place as planned.
Having financed a large share of the UNTAC operation, the U.S.
had a significant stake in preserving the fragile peace and
democracy that prevailed from the time of the elections in
1993 up to the political upheavals of July 1997. During that
period, based on strong economic growth and a continuing fragile
peace, USAID shifted to a more sustainable and long-term development
program. The U.S. was the second largest bilateral donor in
Cambodia throughout much of this period, trailing only Japan.
Other important bilateral donors included Australia, France,
the Netherlands and Sweden, among many others. Both the World
Bank and the Asian Development Bank have also been heavily
involved.
When Second Prime Minister Hun Sen ousted his coalition partner
First Prime Minister Ranariddh in a violent military clash
in early July 1997, the result was a dramatic shift and setback
for the evolving USAID development program. The U.S. temporarily
suspended two-thirds of its $37 million program until the government
made measurable progress toward free and fair elections. The
only activities left in place were those that were demonstrably
humanitarian in nature or promoted the democratic process.
In this climate, preparations began for new national elections
began. USAID helped, in part by providing support to three
indigenous election monitoring organizations that worked to
raise voter awareness. The groups also fielded over 22,000
monitors countrywide for the national elections, held on July
26, 1998. More than 93% of all registered voters participated.
The ruling Cambodian People’s Party (CPP) won the majority
of votes. However, it failed to win the two-thirds majority
needed to form a new government.
Tensions remained high and sporadic political violence occurred
throughout a four-month deadlock. Then, on November 30, 1998
a coalition government was formed between Hun Sen’s CPP
party and Prince Ranariddh’s FUNCINPEC party. Following
the formation of the government, the National Assembly and
a newly formed Senate began operating; other donors returned
to respond to Cambodia’s request for development assistance;
and the Royal Government of Cambodia announced its intentions
of embarking on a path toward reform. Subsequent elections—held
in July 2003—also resulted in a political deadlock, this
one taking almost a year to resolve. Once again, the CPP emerged
with the most seats in the National Assembly but had to rely
on FUINCINPEC to form a viable government.
While USAID programs in Cambodia have evolved over time, policy
and legislative restrictions continue to have an important
impact. The USAID program is largely implemented through partnerships
with a variety of non-governmental organizations (NGOs) and
private voluntary organizations (PVOs), both international
and indigenous.
Exceptions to this general approach are effected on a case-by-case
basis and guidance is provided in part through annual aid appropriation
bills that are approved by the U.S. Congress. In 2000, USAID
was authorized to engage directly with the Government of Cambodia
on issues related to HIV/AIDS. In 2002, this authority was
extended to include programs related to basic education and
trafficking as well.
Given the changes taking place within Cambodia as well as the
increased Congressional authority to engage at various levels
of the Cambodian government in some key areas, USAID reviewed
its Cambodia program and determined it was appropriate to develop
a three-year Interim Country Strategic Plan. During 2001, in
preparation for the new Country Strategic Plan, USAID carried
out in-depth assessments on democracy and governance as well
as population, health and nutrition, including HIV/AIDS. A
preliminary assessment for basic education was also prepared.
Three strategic objectives were also established as part of
the new USAID Cambodia Interim Country Strategic Plan (2002-2005),
one promoting democracy and good governance, a second focused
on health and a third emphasizing basic education.
With the Interim Strategy concluding in September 2005, USAID/Cambodia
recently prepared a new strategy covering the period October
2005 and beyond. The document was approved in Washington in
June 2005, setting the stage for a program that focuses on
three main concerns: good health; good education; and good
governance. Recent increases in program funding make the new
strategy especially relevant. In fact, USAID funding levels
in 2004 and again in 2005 exceed $55 million—the highest
levels of USAID funding since 1993, when USAID assistance for
Cambodia reached $61 million.
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