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