THE ROLE OF NATIONAL AGRICULTURAL POLICIES IN REGIONAL INTEGRATION PROCESS AND THE PARTICIPATION OF FAMER ORGANIZATIONS IN FORMULATION AND IMPLEMENTATION
CASE STUDY: UGANDA; TANZANIA & RWANDA
BY
JOSEPHINE JOSEPH MKUNDA
This document was produced with the co-financing of the General Direction of Development Cooperation (DGCD - Belgium) and of the European Commission and of thein the framework of the Europe Africa project: «Agro-food policies and regional integration: for a practice of solidarity between Europe and Africa»
Executives Summary
Farmer Organizations (FOs) are essentially civil organizations addressing issues of farmers’ welfare, and hence contributing to poverty reduction initiatives. Farmer Organizations (FOs), as civil organizations, have high potentials in terms of voicing the interests of their members in the debate over economic policies. Farmers have interests in the choice of economic and agricultural policies strategies and programmes adopted and implemented by the government. The process of policy formulation and implementation as well as review is influenced by number of variables such as the need to improve agricultural sector, other sectors needs and the international factors.
This study attempts to assess the role of the farmer organizations in policy formulation and influencing reforms in order to strengthen their various activities and the role and impact of economic and agricultural policies in the region integration process.
Six apex Farmer Organization were selected in Uganda, Tanzania and Rwanda, namely Réseau des Organisations Paysannes du Rwanda (ROPARWA) ( Anational umbrella of Farmers Organisations in Rwanda) Union des Coopératives de Riziculteurs du Rwanda (UCOORIRWA) (A national Union of Rice Growers in Rwanda) and the Rwanda Farmers Federation, “IMBARAGA” (means “strength” in Kinyarwanda) National Network of Small scale farmers in Tanzania (MVIWATA), network of small-scale farmer group networks in Monduli and Longido Districts (MVIWAMO) and Uganda National Farmer Federation (UNFFE). In addition Ministries of agriculture, Bureau of Statistics and East African Cooperation in Tanzania and Uganda were visited and the East African Secretariat. The primary data were collected through interview in the form of face to face interview. This was backed up by secondary data collection using literature review.
Basing on the findings of the study, with respect to the levels of organization, networking and collaboration both vertically and horizontally, Farmer organizations are not yet strong enough to effectively influence policy formulation, implementations and review in Tanzania, Rwanda and Uganda. This is probably because of most of farmers organizations do not use research based evidence in influencing policies, an organization that use research based evidence is in better position to influence policy because it can identify and articulate problem adequately which area prerequisites for policy formulation. The challenges faced by farmer organizations in these countries in such endeavour building capacity of their members and staffs in research skills, and the biggest challenge is finance needed for training members in social science research methods. The critical issue is how you can collect information to ensure its validity and reliability and how you can analyze the information to ensure the credibility interpretation and reliability of the information.
However, there has been some limited success in lobbying the government through different channels, such as representation on relevant policy making bodies, programmes and projects implementation. For example MVIWAMO is a partner agent in the implementation of the Participatory Agricultural Development and Empowerment Project(PADEP) project in Monduli District in Arusha Tanzania; MVIWATA has been participating in the different government decision making bodies like in Public Expenditure Review (PER), Ward Development Committee (WDC) and Regional consultative Committee (RCC). ROPARWA and COORIRWA they are participating in the implementation of the CAADP compact as service provider where by the government of Rwanda have provided funds to these organizations. In addition, UNFFE was able to lobby for the removal of tax for the imported seed as well as participating in the Task Force and was very actively involved in the formulation of the National Agricultural Advisory Services (NAADS) policy. Most of UNFFE’s ideas were incorporated into the NAADS policy and UNFFE is a member of is a member of all NAADS institutions starting from the NAADS board, the farmers’ fora at district and sub-country levels in the farmer groups.The federation lobbied the removal of VAT on agricultural machines and withholding tax from seeds imports and irrigation equipment, partial lifting of the ban on importation of bull semen as well as participated in the formulation of the Biotechnology and Bio safety policy, also is a key stakeholder in the National Agricultural Research Systems Governing Council and lobbied the inclusion of the mechanisation as vital component of the PMA.
In order to have Farmer organizations effectively involved in policy formulation, implementation and evaluation the following ought to be done the Apex bodies have to sensitize the grass root to create increased awareness on the government policies especially Agriculture, rural development and land policies. Consultations must be done by the Apex bodies with the grassroots in policy formulation, implementation and evaluation. In addition, the transformation of the small holder agriculture will not be possible unless the policy framework at national and sub regional and regional levels is conducive enough to facilitate improved performance. The policy framework governing development assistance from development partners should be in such a way that facilitate investment in small scale agriculture including problems that make production difficult and expensive for instance infrastructure, markets, and environment degradation.
Farmer organizations at regional level need to be involved in the formulation and implementation of policies, strategies and programs, this will help in the regional integration process as well as poverty alleviation. This is based on the EAC treaty which advocates the need for people-driven and people-centered development. Limited information as well as understanding of the EAC Customs Union is a challenge which makes farmers unaware on the opportunities therein.
With regard to the role of national agricultural and economic policies in the regional integration the study found that these countries have similar objectives in the poverty alleviation process. In addition the partner states have adopted an action program that focuses on poverty reduction in the EAC. EAC policies, strategies, projects and programmes intend to contribute implicitly and automatically to poverty reduction through their general focus on integration
The Government of Rwanda’s agricultural sector targets are outlined in four key strategic documents, the Vision 2020, the National Agricultural Policy (NAP), the Economic Development and Poverty Reduction Strategy (formerly the Poverty Reduction Strategy (PRSP), and the Strategic Plan for the Transformation of Agriculture (PSTA). The progress of moving the CAADP agenda from a strategic document to real actions and decisions on the ground, as illustrated by the Rwanda round table outcomes, has indeed been a key achievement to foster African agricultural growth. The Compact specifies a set of concrete commitments and actions with respect to sector policies, budgetary allocations, investment needs, development assistance, and review process that are needed to reach the CAADP targets.
However there are several bottlenecks on the implementation of the Rwanda CAADP compact as pointed out by IMBARAGA farmer organization in Rwanda that all the partners of the compact are not getting funds as it was promised. Some have been funded to do feasibility studies and the priorities had been presented to the ministry of Agriculture but still waiting for the funds. This situation has already hindered the implementation of some of the priorities that had been selected. There is also lack of capacities for farmers to monitor the process. This concern is mostly of the framers’ organisations secretariats. Producers are not informed about whatever is being done in the agricultural domain. This is because of the little capacities to influence policy. Finally the mentioned services providers of the projects are ignored in favour of the existing government agencies that are serving the projects in various activities.
TABLE OF CONTENTS
Executives Summary
Acronyms
1.0 Background information
1.2 Agriculture in East African Countries
1.3 Policy related problems within the region
1.3.1 Governance
1.3.2 Legal and Regulatory Framework
1.4 Justification of the study
1.5 Methodology
1.5.1 Analysis of documents
1.5.2 Data Collection
2.0 LITURATURE REVIEW
2.1 East African Community Background
2.2 Liberalization and Policy Reforms
2.3 EAC Rural and Agricultural Development Policy (EAC-ARD)
2.3.1 Rationale for the Development of the EAC-ARD Policy
2.3.2 Goals and Objectives
2.3.2.1 Goals
2.3.2.2 Objectives
2.3.3 Policy Instruments
2.3.4 Sanitary and Phytosanitary (SPS) Measures
2.3.5 Institution Framework for the Implementation
2.4 Performance of Agriculture in Three EAC Countries
2.5 East African Customs Union
3.0 Uganda Poverty Eradicating Policies
3.1 Background
3.2 The Poverty Eradication Action Plan (PEAP) of Uganda
3.3 Uganda Participatory Poverty Assessment Project (UPPAP)
3.5 Uganda Agriculture Sector
3.6 The Plan for Modernization of Agriculture (PMA)
3.7 The National Agricultural Advisory Service
3.8 Agricultural Policy Formulation in Uganda
4.0 Agriculture Industry in Tanzania
4.1 Background information
4.2 Agricultural and Livestock Policy, 1997 (ALP, 1997)
4.3 Agricultural Sector Development Strategy (ASDS)
4.4 The Agricultural Sector Development Programme (ASDP)
4.5 Rural Development Strategy (RDS)
4.6 Land Policy
4.7 Other relevant policies to agricultural development
4.8 New Macro-economic Policies
4.9 Policy Formulation Process in Tanzania
4.10 Participation FOs and other CSOs at national level policy formulation in Tanzania
5.0 RESULTS AND DISCUSSION
5.1 Contribution to Agriculture Sector to Economic Growth
5.2 Export Performance of the agricultural sector in Uganda
5.3 Agricultural Trade Performance in Tanzania
5.4 Agricultural Trade Performance of traditional crops
5.5 Agricultural Export Contribution Share
5.6 Involvements of FOs in Uganda and Tanzania in Policy Dialogue and Implementation
5.6.1 Involvement of MVIWATA in Policy Dialogue
5.6.2 Involvement of MVIWAMO in Policy Implementation
5.6.3 Involvement of UNFFE in policy dialogue
5.7 The challenges FOs face in influencing policies
5.8 Relation between FOs, and Government
5.9 Key challenges in Economic and agricultural policies formulation process
5.10 The importance EAC CU to farmers and Farmers organizations
5.11 Challenges of EAC CU to farmers
5.12 The role of National Agricultural and economic policies in the Regional Integration
6.0 Comprehensive Africa Agriculture Development Programme (CAADP)
6.1 Background
6.2 Objectives
6.3 Literature Review on the Rwanda CAADP Compact
6.3.1 Background information
6.3.2 CAADP as a Value Addition Agenda at the Country Level
6.3.3 Rationale for and Use of Rwanda CAADP Compact
6.3.4 Long Term Vision and Commitment of the GoR with Respect to Economic and Social Development
6.3.5 The Government’s agenda for Agricultural Growth, Poverty Reduction, and Food Nutrition Security
6.3.6 Purpose, Principles, and Modalities of the EDPRS/PSTA Partnerships
6.3.7 Government Commitments under the EDPRS/PSTA Agenda and Partnerships
6.3.8 Development Partners’ Commitments under the EDPRS/PSTA Agenda
6.3.9 African Union and regional partners’ commitments under the Maputo declaration
6.3.10 Commitments of the private sector and civil society
6.3.11 CAADP National Compacts
6.4 Findings on the Rwanda CAADP Compact implementation process
6.4.1 Relationship between the NEPAD/CAADP, EDPRS and PSTA/SPAT
6.4.2 Involvement of Farmer organizations in the process of CAADP Compact Implementation
6.4.3 Views from Rwanda Farmers Federation IMBARAGA
6.5 Rwanda CAADP Compact Bottlenecks
7.0 Conclusion
8.0 Recommendations
References
ANNEXES1: Checklist for analyzing the role national agricultural policies in regional integration and participation of farmer organizations in formulation, implementation and evaluation
LIST OF TABLES
Table 1: GDP contribution by Sector, 1999/00-2006/2007...... 34
LIST OF FIGURES
Figure 1: Exports by percentage value 2001 - 2005...... 35
Figure 2: The Exports of the major cash crops...... 36
Figure 3: Agricultural Exports performance in Tanzania...... 37
Acronyms
ALPAgriculture and Livestock Policy
AMSDPAgricultural Marketing Systems Development Program
ASDPAgricultural Sector Development Programme
ASDSAgricultural Sector Development Strategy
ASLMAgricultural Sector Lead Ministries
CAADPComprehensive African Agriculture Development Program
CBICross Border Initiative
CDFUganda Comprehensive Development Framework
CETCommon External Tariff
COMESACommon Market for Easter and Southern Africa
CSOsCivil Society Organizations
EACEast African Community
EAC- ARDPEast African Community Agriculture and Rural Development Policy
EAC-ARDSEast African Community Agriculture and Rural Development Strategy
EAC-CUEast African Community Customs Union
EAFFEastern Africa Farmers Federation
ESRFEconomic and Social Research Foundation
FAAGFocal Area Advisory Group
FOs Farmer Organizations
GDPGross Domestic Product
HIPCHighly Indebted Poor Countries
IMTCInter-Ministry Technical Committee
IRTInvestors Round Table
ISARNational Institute of Agricultural Sciences Research
LGALocal Government Authorities
LGRPLocal Government Reform Programme
MFPEDthe Ministry of Finance, Planning and Economic Development
MTEFMedium Term Expenditure Framework
MVIWATAMtandao wa Vikundi vya Wakulima Tanzania
NGOsNon Governmental Organizations
NPES National Poverty Eradication Strategy
NTBsNon Tariff Barriers
PEAPPoverty Eradication Action Plan
PERPublic Expenditure Review
PMAPlan for Modernization of Agriculture
PRPPoverty Reduction Papers
PRS Poverty Reduction Strategy
RADARwanda Agriculture Development Authority
RARDARwanda Animal Resources Development Authority
RCCRegional Consultative Committee
RDSRural Development Strategy
RECsRegional Economic Communities
REPOAResearch on Poverty Alleviation
SADCSouthern Africa Development Community
SPSSanitary and Phytosanitary
TANGOTanzania Network of Non Governmental Organization
TASTanzania Assistance Strategy
TCCIATanzania Chamber of Commerce, Industry and Agriculture
TDVTanzania Development Vision
TEsTraditional Exports
TGNPTanzania Gender Network Programme
TNBCTanzania National Business Council
UNFFEUganda National Farmer Federation
UPPAPUganda Participatory Poverty Assessment Project
VA Village Assembly
WDCWard Development Committee
WTOWorld Trade Organization
AUAfrica Union
NEPADNew Economic Partnership for Agricultural Development
EDPRSEconomic Development and Poverty Reduction Strategy
PSTA/SPATStrategic Plan for Agricultural Transformation
GoR Government of Rwanda
ICTInformation and Communication Technology
1.0 Background information
The Eastern Africa Farmers Federation (EAFF) is the Regional Farmers Organization representing Apex farmer organizations within Eastern Africa region and is therefore their umbrella body. We have in our membership National farmers’ organizations in Kenya, Uganda, Tanzania, DRCongo and Rwanda. We have also recruited Burundi and a commodity association in Ethiopia, this year we will be profiling farmer organizations in Sudan as well as others in Ethiopia with the view of increasing membership.
EAFF has been involved in lobby and advocacy activities, capacity building and information sharing with its member organizations on all cross-cutting issues affecting Agriculture in the region as well as internationally, and as a result it had has formed networks with other regional Farmer organizations as well as RECs. EAFF has also been building consultative mechanisms with governments (Africa and Europe) with a view of representing farmers at all platforms of decision making, these consultative structures ensure that there is trickle down effect as well as feedback of issues affecting farmers and this structure has helped strengthen EAFF in terms of Technical back-stopping to both our members and in various fora.
1.2 Agriculture in East African Countries
About 80 percent of the population of the EAC Partner States live in the rural areas and depend on agriculture for their livelihood. The majority of them are poor, making poverty predominantly a rural phenomenon. Since agriculture employs over 75 percent of the rural population, development of the agriculture sector presents a great opportunity for poverty reduction in a sustainable manner. The Partner States have undergone institutional changes that have necessitated implementation of macroeconomic reforms and structural adjustment programmes (EAC ARD- Strategy 2005-2030).
With the development of our strategic plan (2008-2011), one of the main areas of emphasis was on EAFF being pro-active in policy formulation; tracking and being seen to influence policy areas as well as implementation in the region, by analyzing the role of Agricultural policies in the regional integration processes, and their impact on smallholder faming families. And the other important area that is instrumental to Agriculture development in Africa is in the Comprehensive African Agriculture Development Program (CAADP) which has been ratified by our governments and ear marked as the vessel for economic growth.
Agricultural production cannot be stimulated and the optimal allocation of resources in the agricultural sector cannot be attained unless there is a market for both the agricultural inputs and outputs. In the past, markets for agricultural products in the EAC Partner States were dominated by the governments' objectives of maintaining national food security. For this purpose, parastatals were established to be responsible for agricultural marketing, input supply and processing. However, all EAC Partner States have reformed their agricultural policies and rationalized parastatals’ respective roles in the agricultural sector towards market liberalization. This has led to low degree of public intervention in the agricultural sectors and a stiff competition for farmers from world markets.
Despite the importance of agriculture in the Partner States, poverty levels are still high particularly in the rural areas due to poor performance of the sector. Poverty is multi-faceted and is manifested where households lack basic needs such as health, education, housing, food security and income generating opportunities. In essence, subsistence farmers and pastoralists are the most vulnerable and account for over 50 percent of the total poor. Moreover, food insecurity is experienced in various parts of the Partner States even though some producers have surplus produce going to waste due to lack of market. Trade restrictions and lack of market information aggravates food insecurity. Improvement in agriculture is therefore a basic pre-condition for reduction of food insecurity and rural poverty in the region.
1.3 Policy related problems within the region
1.3.1 Governance
Poor governance/management of partner state governments is characterized by declining quality of services, poor leadership, inadequate and inappropriate policies, weak financial management, failure to clearly distinguish public and private interest, arbitrary applications of laws and regulations, closed decision making processes, misallocation and misappropriation of resources, conflicts and failure to decentralize resources, power and taxing authority to lower levels of government.