The role of national agricultural policies in regional integration process and the participation of farmer organizations (AfricaFiles / Eastern Africa Farmers Federation)

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Title: National agricultural policies in regional integration process

Author: Josephine Joseph Mkunda
Category: Eastern Region
Date: 3/5/2010
Source: Eastern Africa Farmers Federation
Source Website: http://www.csa-be.org <http://www.africafiles.org/database/www.csa-be.org>

African Charter Article# 13: Every citizen shall have the right to participate freely in the government of their country and to equal access of public services .

Summary & Comment: This study assesses the role of the farmer organizations in policy formulation and reform. It aims to strengthen farmer organisations‚ activities and the role and impact of economic and agricultural policies in the region integration process. Farmer organizations are not yet strong enough to effectively influence policy formulation, implementations and review in Tanzania, Rwanda and Uganda. 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. DN

2008 - India, Tamil Nadu, SCAD-project : Food production in the drylands is always difficult, but with the right soil conditioning, irrigation can be limited and biomass production significantly enhanced.

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The role of national agricultural policies in regional integration process and the participation of farmer organizations in formulation and implementation

Case Study: Uganda, Tanzania, and Rwanda

http:///IMG/doc_agric_EAC_EAFF-2008.doc <http://www.csa-be.org/IMG/doc_agric_EAC_EAFF-2008.doc>  

NOTE
This draft document was produced with the co-financing of the General Direction of Development Cooperation (DGCD – Belgium) and of the European Commission and of the in 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)
• A national 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.
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TABLE OF CONTENTS

Executives Summary. 2
Acronyms. 6
1.0 Background information. 9
1.2 Agriculture in East African Countries. 9
1.3 Policy related problems within the region. 10
1.3.1 Governance. 10
1.3.2 Legal and Regulatory Framework. 10
1.4 Justification of the study. 11
1.5 Methodology. 12
1.5.1 Analysis of documents. 13
1.5.2 Data Collection. 13

2.0 LITURATURE REVIEW.. 14
2.1 East African Community Background. 14
2.2 Liberalization and Policy Reforms. 14
2.3 EAC Rural and Agricultural Development Policy (EAC-ARD) 15
2.3.1 Rationale for the Development of the EAC-ARD Policy. 16
2.3.2 Goals and Objectives. 16
2.3.2.1 Goals. 16
2.3.2.2 Objectives. 17
2.3.3 Policy Instruments. 17
2.3.4 Sanitary and Phytosanitary (SPS) Measures. 18
2.3.5 Institution Framework for the Implementation. 18
2.4 Performance of Agriculture in Three EAC Countries. 19
2.5 East African Customs Union. 19

3.0 Uganda Poverty Eradicating Policies. 20
3.1 Background. 20
3.2 The Poverty Eradication Action Plan (PEAP) of Uganda. 21
3.3 Uganda Participatory Poverty Assessment Project (UPPAP) 21
3.5 Uganda Agriculture Sector 22
3.6 The Plan for Modernization of Agriculture (PMA) 22
3.7 The National Agricultural Advisory Service. 23
3.8 Agricultural Policy Formulation in Uganda. 23

4.0 Agriculture Industry in Tanzania. 25
4.1 Background information. 25
4.2 Agricultural and Livestock Policy, 1997 (ALP, 1997) 25
4.3 Agricultural Sector Development Strategy (ASDS) 26
4.4 The Agricultural Sector Development Programme (ASDP) 27
4.5 Rural Development Strategy (RDS) 27
4.6 Land Policy. 28
4.7 Other relevant policies to agricultural development 29
4.8 New Macro-economic Policies. 30
4.9 Policy Formulation Process in Tanzania. 31
4.10 Participation FOs and other CSOs at national level policy formulation in
Tanzania. 33

5.0 RESULTS AND DISCUSSION. 35
5.1 Contribution to Agriculture Sector to Economic Growth. 35
5.2 Export Performance of the agricultural sector in Uganda. 35
5.3 Agricultural Trade Performance in Tanzania. 36
5.4 Agricultural Trade Performance of traditional crops. 37
5.5 Agricultural Export Contribution Share. 38
5.6 Involvements of FOs in Uganda and Tanzania in Policy Dialogue and
Implementation. 38
5.6.1 Involvement of MVIWATA in Policy Dialogue. 38
5.6.2 Involvement of MVIWAMO in Policy Implementation. 39
5.6.3 Involvement of UNFFE in policy dialogue. 40
5.7 The challenges FOs face in influencing policies. 42
5.8 Relation between FOs, and Government 42
5.9 Key challenges in Economic and agricultural policies formulation process. 42
5.10 The importance EAC CU to farmers and Farmers organizations. 44
5.11 Challenges of EAC CU to farmers. 44
5.12 The role of National Agricultural and economic policies in the Regional
Integration. 44

6.0 Comprehensive Africa Agriculture Development Programme (CAADP) 46
6.1 Background. 46
6.2 Objectives. 47
6.3 Literature Review on the Rwanda CAADP Compact 47
6.3.1 Background information. 47
6.3.2 CAADP as a Value Addition Agenda at the Country Level 47
6.3.3 Rationale for and Use of Rwanda CAADP Compact 48
6.3.4 Long Term Vision and Commitment of the GoR with Respect to
Economic and Social Development 49
6.3.5 The Government‚s agenda for Agricultural Growth, Poverty Reduction,
and Food Nutrition Security. 49
6.3.6 Purpose, Principles, and Modalities of EDPRS/PSTA Partnerships 50
6.3.7 Government Commitments under the EDPRS/PSTA Agenda and
Partnerships. 50
6.3.8 Development Partners‚ Commitments under EDPRS/PSTA Agenda 51
6.3.9 African Union and regional partners‚ commitments under the Maputo
declaration. 51
6.3.10 Commitments of the private sector and civil society. 51
6.3.11 CAADP National Compacts. 52
6.4 Findings on the Rwanda CAADP Compact implementation process. 52
6.4.1 Relationship between the NEPAD/CAADP, EDPRS and PSTA/SPAT. 53
6.4.2 Involvement of Farmer organizations in the process of CAADP
Compact Implementation. 54
6.4.3 Views from Rwanda Farmers Federation IMBARAGA. 54
6.5 Rwanda CAADP Compact Bottlenecks. 55

7.0 Conclusion. 56

8.0 Recommendations. 57

References. 59

ANNEXES

1. Checklist for analyzing the role national agricultural policies in regional integration and participation of farmer organizations in formulation, implementation and evaluation. 60
   

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7.0 Conclusion

Farmer organizations are not yet strong enough to effectively influence policy formulation and implementations 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. Most farmer organizations are weak have no capacities and desired competencies in analyzing and comprehending policy issues. 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.

The governments of Tanzania, Rwanda and Uganda through various government documents such as ASDP/SDS in Tanzania, PSTA Rwanda and PMA/NAADS in Uganda and the EAC Agricultural and Rural Development policy and Strategy recognize the importance of farmer organizations, no clear modalities are mentioned with respect to how the FOs the can participate in influencing, implementation and monitoring in favor of their activations.

However, there has been some limited success in lobbying the government through different channels, such as representation on relevant policy and programmes 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.
• 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 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.

With regard to the role of national agricultural and economic policies in the regional integration the study find 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).
• In addition, strategic development plans exist for various sub sectors such as rice, coffee, tea, and livestock, as well as for key investment areas such as fertilizers, marshland development, and research and extension. In many cases, long-run objectives are set in terms of output targets, crop areas, and/or yield levels
  

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. In addition, if defines a shared, long term framework for development planning by the government of Rwanda as well as the planning of long term assistance to the sector by development partners and of investment by the private sector.

8.0 Recommendations

In order to have Farmer organizations effectively involved in policy formulation, implementation and evaluation as well as  the national agriculture and economic policies contributing to the regional integration process the following ought to be done:

1. 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;
2. Having farmer organizations fulfilling their ascribed role and influence policies is an enormous challenge. It requires considerable investment in terms of capacity building in group dynamics, leadership, financial resource management, education and training in the areas of research methodology. It will help farmer organization to analyse and articulate policies with the view of influencing as well as participate in the implementation process;
3. Farmer organizations at regional level need to be involved in the formulation and implementation of policies, strategies and programme, this will help in the region integration process as well as poverty alleviation this is on the EAC treaty which advocates the need for people-driven and people-centered development;
4. Limited information on the EAC Agriculture and Rural Development policy and strategy as well as understanding of the EAC Customs Union is a challenge which causes farmers unaware on the opportunities created at regional level. There is need the region secretariat in collaboration with farmer organizations at region level to find modalities of working together with the view of sensitizing farmers on the opportunities created by the integration process.
   

ANNEXES 1:

Checklist for analyzing the role national agricultural policies in regional integration and participation of farmer organizations in formulation, implementation and evaluation

A: Livelihood priorities

1. Who and where are the smallholder farmers?
2. What are their livelihood priorities?
3. What policy sectors are relevant to these priorities?
   

B: The policy context

1. What is policy in those sectors?
2. Who makes policy in those sectors?
3. What is the macro policy context?
   

C: Agriculture Policy measures

1. What measures have been put in place to implement agriculture policy?
2. What are the characteristics of these policy measures?
3. Through what institutions and organizations are these measures channeled?
   

D: Agricultural Policy in the local context

1. In what shape do these institutions and organizations exist locally?
2. What other institutions and organizations affect local responses to policy?
3. What other local institutions and organizations might policy affect?
   

E: Farmer organizations and agricultural policy

1. What resources can farmers and farmer organization draw on to influence policy?
2. What opportunities exist for farmers and farmer organizations to influence policy directly?
3. What opportunities exist for farmers and farmer organizations to influence policy indirectly?
4. How does FOs operate in relation to agricultural policy?
5. *To what extent and how do they participate in policy formulation?
6. *What changes does FOs propose and how do they work?
7. *What are own perceptions of success in pursuing farmers‚ goals and
8. interests?
9. *What seems to be the outcome of own efforts in terms of influencing
10. policies in different policy domains and for different categories of farmers?
11. *How does the FOs determine the policies they will work in favor of?
12. *What is the policy analysis capacity and competence of the FOs and
13. how can this be augmented through networking with other organizations?
    

F: Impact of agricultural policies in smallholder farmers

1. How do the national policy and macro-economic environment influence the Livelihoods of smallholder farmers?
2. How do possible inconsistencies in policy statements influence FOs‚ business decisions, operations, and smallholder farmers‚ production?
3. What macro-economic issues limit FO members‚ access to local, regional and international markets
   

G: Agricultural policy and regional integration

1. How does economic and agricultural policy operate in relation to regional integration process?
2. To what extent and how do Economic and agriculture policies promote regional integration process?
3. What changes do national governments propose and how do they work?
4. What are the perceptions of success in pursuing regional integration goals and interests?
   

H: The Rwanda CAADP Compact process

1. How the Rwanda CAADP Compact it was reached?
2. What was the country processed towards attaining the Compact?
3. How it is being implemented (who are involved, what are the bottlenecks)?
4. How does farmers organization was involved in the processes of formulating and implementation?
5. What are the possible policy gaps identifiable in this process for Regional Farmer Organizations to engage governments on?
   

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