RWANDA

	FY 1998 Actual	FY 1999 Estimate	FY 2000 Request
Development Assistance	$6,160,000	$8,500,000	---
Development Fund for Africa	---	---	$9,500,000
Child Survival and Disease	$1,340,000	$2,770,000	$3,500,000
Economic Support Fund	$250,000	---	---
P.L. 480 Title II	$28,709,000	---	$ 1 ,516,000

Introduction.

In his 1998 visit to Rwanda, President Clinton reaffirmed the U.S. commitment to assist the Government of Rwanda (GOR) and its people in their recovery from the 1994 genocide and war and the subsequent political unrest and displacements. He acknowledged the United States' lack of timely response to the genocide to the Rwandan people. In so doing, USAID’s program was dedicated to the transition which Rwanda is undergoing from meeting emergency needs to achieving sustainable development where justice, respect for human rights and accountability in governance prevail. Achieving a lasting peace in Rwanda is crucial to regional stability and is in the clear interest of the United States. The USAID program is fully consistent with Greater Horn of Africa Initiative principles.

The Development Challenge.

Rwanda continues to make progress on political, social and economic fronts, but daunting problems remain. GOR battlefield successes in the northwest prefectures of Gisenyi and Ruhengeri, combined with the inability of insurgent forces to materially support the civilian population in the area, resulted in over 600,000 internally displaced persons (IDPs) between May and October 1998 as residents sought protection and security in commune centers. USAID led all donors in responding to this humanitarian and political situation through provision of food and material supplies. By the end of 1998, the potential disastrous consequences of the sudden creation of large IDP concentrations were averted. The importance of stability and increased productivity in the northwest cannot be overestimated as the region contains Rwanda’s most productive farmland and has been the stronghold of opposition to the current GOR. Social, political and economic stability in this region is essential to Rwanda’s transition.

In the political arena, the GOR’s Ministry of Justice (MOJ) continued to make remarkable progress in the formidable task of processing over 120,000 people detained and accused of genocide crimes. By the end of 1998, case files were established for almost half of all detainees, more than 3,000 detainees have been released, over 1,000 have confessed through the plea bargaining system established by the USAID-supported National Genocide Law, and 150 have been tried. Although trying the remaining detainees is still an impossible task, prospects are now improved for speedier resolution of cases including group trials. USAID assistance in cooperation with the U.S. Department of Justice will endeavor to improve caseload management. Improvements in the overall justice system will be expanded once Great Lakes Initiative (GLI) funding becomes available later in FY 1999.

Rwanda made progress in 1998 towards a more open and participatory political system. USAID’s local governance efforts became a model for programs funded by the World Bank, the United Nations Development Program, and the Netherlands. The GOR developed plans for local elections which will enable communities to select representatives with increased authority to make local decisions.

Social indicators in Rwanda, the most densely populated African country with population figures over 7.7 million in a country the size of Maryland, are alarming. The population growth rate is in excess of 3% per year and infant mortality is at 130 per 1,000 live births with child mortality rates (children under 5) adding another 70 deaths. To effectively solve these problems, the Ministry of Health (MOH), with USAID support, continues to decentralize its resources to improve service delivery in an integrated primary health care system. Economic Support Funds (ESF) is requested in FY 2000 through the GLI to meet the U.S. Government’s commitment to the Rwanda Multi-Donor Debt Relief Trust Fund will enhance the GOR's abilities to allocate national resources to social sector service delivery.

Rwanda's economy is dominated by an agricultural sector which has re-absorbed over two million people during the period 1995-1998. Nearly 95% of the population is engaged in subsistence agriculture for household consumption; however, per capita food production has declined steadily since the early 1980's and 25% of all households do not produce enough for their families to eat. USAID’s program has now relinked the work of Michigan State University with the Ministry of Agriculture (MOA) to improve data management and planning capacities. USAID's expanded agricultural program will support food marketing, seed multiplication and the private sector distribution of agricultural inputs and the development of off-farm employment that secures sustainable livelihoods through agricultural processing and small and micro industry. Development programs are augmented by P.L. 480 Title II Monetization Program-funded support for critical food security interventions and OFDA assistance for emergency interventions.

Other Donors.

A wide range of multilateral and bilateral donors are active in Rwanda and are closely coordinated by the Ministry of Finance and Planning's new unit for external assistance, CEPEX, The World Bank, International Monetary Fund and the European Union along with the full range of UN agencies provide the bulk of all project assistance and financial support. Bilateral programs are currently making the final transition into development assistance. Future funding levels have not be firmly established. Donors are coordinated by sector through thematic groups organized by UNDP. Overall coordination is the role the GOR and is still evolving.

FY 2000 Program.

USAID programs will continue to focus on three strategic objectives: 1) increased rule of law and transparency in governance; 2) increased use of health and social services and changed behaviors related to STI/HIV/AIDS and maternal and child health by building service capacity in target regions; and 3) increased ability of rural families in targeted communities to improve household food security.

Related to USAID's goal of strengthening democracy and good governance, Funds are requested to pursue achievement through: 1) strengthened capacity for administration of justice; 2) increased sense of security on the part of the general population by increasing capacity to demine productive areas, promoting civilian police protection and reintegrating former military into the productive sector; and 3) improved governance, accountability and transparency within a decentralized national structures. Resources will permit a rapid expansion of program support to genocide caseload management, reconciliation, and local elections.

Related to USAID's goal of stabilizing population growth and protecting human health and providing humanitarian assistance, Child Survival funds are requested to achieve: 1) increased availability of decentralized, quality primary health care (PHC) focusing on reproductive health; 2) improved knowledge, perceptions and practices related to reproductive health; 3) improve MOH financial and administrative accountability; and 4) increased GOR capacity to provide basic social support activities.

Related to USAID's overall goals of promoting broad-based economic growth and agricultural development and providing humanitarian assistance, DA resources are requested to achieve: 1) increase GOR capacity in the MOA to plan and implement sound food security policies and programs; 2) create and enhance broad-based economic growth through internal production-marketing chains; and 3) increase capacity of institutions to develop and disseminate agricultural technologies that can result in increased production and profitability.

RWANDA

FY 2000 PROGRAM SUMMARY
(in thousands of dollars)

USAID Mission Director: George E. Lewis

USAID Strategic and Special Objectives	Economic Growth & Agriculture	Population & Health	Environment	Democracy	Human Capacity Development	Humanitarian Assistance	TOTALS
S.O 1. Increased Rule of Law and Transparency in Governance - DFA	---	---	---	2,400	---	---	2,400
S.O. 2. Increased Use of Health and Social Services and Changed Behaviors Related to STI/HIV, Maternal and Child Health - CSD	---	3,500	---	---	---	---	3,500
S.O. 3. Increased Ability of Rural Families to Improve Household Food Security - DFA - P.L. 480/II	7,100 ---	--- ---	--- ---	--- ---	--- ---	--- 1,516	7,100 1,516
Totals: - DFA - CSD - P.L. 480/II	7,100 --- ---	--- 3,500 ---	--- --- ---	2,400 --- ---	--- --- ---	--- --- 1,516	9,500 3,500 1,516

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ACTIVITY DATA SHEET

PROGRAM: RWANDA
TITLE AND NUMBER: Increased Rule of Law and Transparency in Governance, 696-SO01
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 2000: $2,400,000 DFA
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY 2001

Summary: Since 1995, USAID has been achieving results under this strategic objective (SO). The Ministry of Justice, the courts and prosecutorial system, the representative political institutions such as the transitional National Assembly, the Ministry of the Interior and the decentralized, local organizations coordinated by that Ministry, the National Demining Office, the two principal police institutions, and civil society non-governmental organizations (NGOs) have been partners and beneficiaries of USAID-supported activities. Current plans for FYs 1999 and 2000 are to continue and deepen gains related to these results. A major expansion of activities is foreseen when significant Economic Support Fund resources become available for programming and implementation under the Great Lakes Initiative).

All Rwandans will benefit from increased confidence in legal and governmental structures, decentralization and improved security of persons and property. Immediate and direct beneficiaries are the institutions which underpin administration of justice, rule of law and broad-based participatory development and political processes, including at least 350 civil servants in the areas of justice and local government, 190 law school students, 150 members and staff of the transitional National Assembly; 20,000 rural citizens in target communities; more than a total of 8,000 former soldiers in reintegration activities; 100 members of local NGOs committed to improving civil society; and 800 genocide survivor orphans who are attending secondary schools.

Key Results: Support through this SO will build the capacity to improve the administration of justice and decentralized local governance by providing the tools and the skills necessary to develop legal and governmental structures and civil society associations. In FY1999/2000, activities will focus on: 1) creating the institutional capacity for more timely and effective administration of justice; 2) increasing security of property and persons; and 3) building consensus for greater participation in decision making at the local and national level.

Performance and Prospects: USAID efforts during 1998 were directed towards establishing the basis for justice and good governance. Major accomplishments include: 1) Completion of law degree education for 120 Anglophone law students in 1999 at the National University thus addressing the critical shortages in legal expertise within the country; 2) material assistance in preparing dossiers for individuals accused of genocide crimes; 3) continued training for public safety officials at the community and national level in order to lay the institutional foundation for the rule of law and respect for human rights; 4) building a capacity through the National Demining Office (NDO) to identify and destroy land mines and unexploded ordnance; 5) in partnership with the Netherlands, enabling the Ministry of Internal Affairs (MOIA) to issue new identity cards, free of ethnic affiliation, nationwide, thus enabling freedom of movement while still maintaining security; and 6) supporting the establishment of a decentralization unit within the MOIA to build consensus for national policies that will transfer decision making to local communities

USAID assistance in improving the administration of justice will: 1) continue to train new legal professionals--(120 law students are scheduled to graduate in 1999) and produce legal materials in English; 2) fund placement of Rwandan journalists in Arusha to provide extensive reporting, in the local language, on the proceedings of the International Criminal Tribunal for Rwanda; 3) assist the Ministry of Justice (MOJ) to develop and implement an effective awareness campaign informing the population at large, and the detainees in particular, about the genocide law and duties and responsibilities of all citizens in a country governed by the rule of law; and 4) provide legal/prosecutorial expertise and caseload management advice to the MOJ; and 5) provide material and technical assistance to the newly authorized National Judicial Council, the body tasked with selecting and supporting judges.

To improve security, USAID will: 1) to train public safety personnel, including police trainers and new police officers, and equip public safety institutions to provide the basis for civilian law enforcement; 2) build the capacity and self-sufficiency of the NDO so that more land can be returned to productive use; and 3) support the Government of Rwanda (GOR) demobilization effort through participation in a multi-donor program, funded through the United Nations Development Program trust fund which would provide technical assistance to the National Demobilization Commission and skills training for demobilized soldiers. The scope and timing of the demobilization actions will depend on the situation in the Congo (DRC) and the current insurgency in the northwest of the country.

To improve accountability and transparency in governance, USAID will: 1) promote participatory processes at the community level that enable communities to plan for and allocate resources for rehabilitation activities; 2) assist the MOJ and the MOIA to develop sound financial management and accounting systems; 3) continue to support policy dialogue on decentralization to increase local ownership of communal government; 4) provide technical assistance and material support to develop and strengthen civil society through local non-governmental organizations (NGOs) that represent professional associations such as the Bar Association, human rights groups and other civil society organizations; 5) provide technical assistance to the National Assembly to improve technical staff’s legislative analysis and drafting skills; and 6) contribute to the National Assistance Fund for Genocide Survivors to pay school fees for secondary school students orphaned in the genocide. These activities all play a key role in resolving the traumatic events of the past, and establishing a framework to mitigate future conflict as Rwandan society rebuilds.

Possible Adjustments to Plans: USAID is prepared to design and implement a major expansion of on-going activities when funds become available for the Great Lakes Initiative (GLI). Support to the Rwandan Prosecutor General’s Office, the MOJ, the national court system, programs for healing and reintegration, and increased participation in democratic decision-making are all areas where activities can be expanded to meet the GLI objectives.

Other Donors Programs: The Netherlands and Germany are the major donors in the justice sector, each contributing more than the United States. UNDP has funded advisors with the MOIA and the MOJ. The World Bank and the Netherlands have provided $15 million to replicate decentralization activities based on the USAID Local Governance Initiative. Canada is supporting the local language publication of material on the work of the ICTR. Through an NGO, Belgium furnishes defense lawyers for genocide detainees. Demobilization and reintegration efforts will be a multi-donor funded activity through the UNDP Trust Fund with a total estimated budget of $39 million.

Principal Contractors, Grantees, or Agencies: The MOIA, the MOJ, the U.S. Department of Justice, the University of Quebec at Montreal, AFRICARE, SUNY, Chemonics, and Ronco are currently implementing activities.

Major Results Indicators:

	Baseline (1997)	FY 2000	Target (2000)
Increased availability of legal expertise.	40 lawyers working in Rwanda	250 lawyers	370 lawyers
Productive Land demined	600 sq km of land compro- mised by mines and UXOs	50% of compromised area cleared	projected completed in 2000)
Mechanism estab- lished for local resource allocation	All development resources allocated by central government	Mechanism estab- lished for local partici- pation in 12 communes	Local authorities in 12 communes access central funds

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ACTIVITY DATA SHEET

PROGRAM: RWANDA
TITLE & NUMBER: Increased Use of Health and Social Services and Changed Behaviors Related to STI/HIV/AIDS and Maternal and Child Health by Building Service Capacity in Target Regions, 696-SO02
STATUS: Continuing
PROPOSED OBLIGATION & FUND SOURCE: FY 2000: $3,500,000 CSD
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY2001

Summary: This Strategic Objective's purpose is to increase the utilization of quality primary health care (PHC) and basic social services in target regions and contribute to increased stability and strengthened development capacity. USAID work in the health sector has made excellent progress in the transition from emergency response to long-term sustainable activities. Much of the work in FY1997 met short-term needs, especially in re-establishing community level health services with a focus on STI/HIV/AIDS and maternal child health. However, in FY1998 and FY1999, the program shifted to working closely with an increasingly competent ministry and decentralized public health service delivery system on basic and long-term issues of quality of care and health sector finance. FY2000 will see a continuation and deepening of the shift to sustainable development activities. Direct program beneficiaries are the general population of the prefectures of Byumba (772,500), Gitarama (858,800), Kibungo (671,000), the health districts of Nyagatare in Umutara (300,000) and Kigali (600,000) as well as 30,000 unaccompanied or orphaned children and their foster families. To improve service delivery, 300 Rwandans working in the public health delivery system and social service sector will be direct beneficiaries of professional training activities.

Key Results: USAID is implementing a set of activities in close cooperation with the Ministry of Health (MOH) and other partners which continues to rebuild delivery of key services and to build the long-term financial sustainability and quality of health care. Activities will: 1) integrate and improve planning, management and implementation of STI/HIV services within existing primary health care delivery systems in four pilot regions; 2) establish and expand sustainable quality assurance systems through greater quality design, control and improvement; 3) improve HIV/AIDS prevention through peer education program and increase capacity to produce and disseminate information, education and communication (IEC) messages to target groups about STI/HIV/AIDS; 4) develop comprehensive financial and administrative systems which will be used to budget and account for MOH resources; 5) to develop and pilot sound health care cost recovery systems to reinforce MOH efforts to deploy qualified health care providers, to develop the skills and confidence of health workers at all levels, and empower health districts to monitor service standards and performance, and identify training needs; and 6) increase the capacity of local communities to identify and address the needs of vulnerable people, including orphans and foster children.

Performance and Prospects: USAID assumed a leadership role in rebuilding Rwanda’s health and social service capacity to serve Rwandans reintegrating into their communities after the genocide and war of 1994. Infrastructure assistance through the rehabilitation and refurbishing of health clinics and training facilities was complemented by technical assistance to improve management and accounting systems in the national health care system. The quality of health and social welfare services in target regions improved through better clinical practices, establishment of community-based education and communication networks, improved referral systems, technical training, and innovative STI/HIV communication interventions. In addition, USAID has strengthened the capacity of the public sector to provide basic child welfare services to the community while simultaneously mobilizing communities to meet the needs of unaccompanied and orphaned children, and other vulnerable individuals.

These activities build a public capacity to deliver quality primary health care (PHC) and social welfare services for children as well as strengthen existing community social, communication and economic networks and services. To increase the availability of decentralized PHC services in target areas, USAID provides technical assistance to improve primary health care planning, management and implementation with an emphasis on STI/HIV prevention and control interventions. USAID assistance is used to improve knowledge and perceptions related to reproductive health, emphasizing STI/HIV, through innovative peer education programs and aggressive education at the community level of political, religious and opinion leaders. Technical assistance to the MOH to enhance sustainability of PHC services through improved financial, administrative and management systems and accountability at the central and regional levels has led to the establishment of a Finance and Administrative Division. This will improve reporting on donor accounts, produce greater decentralization of resource management, and create standard costs to be paid by customers for national health system services and pharmaceuticals. USAID support to basic social welfare services for children has resulted in a national action plan to decentralize such services and has mobilized community-based networks to assist families with foster children. Technical assistance and training will improve the capacity of social development committees at the prefecture and community levels to address the needs of vulnerable people.

Possible Adjustment to Plans: USAID has requested ESF funding to meet the U.S. Government commitment in October 1998 to the Multi-Donor Debt Relief Trust Fund. These funds will enhance the GOR’s capacity to deliver social services in health and education.

Other Donor Programs: USAID and the World Bank jointly fund a Rwandan-managed national communications center. USAID and the World Bank also collaborate with the MOH to decentralize and improve STI/HIV services nationally. USAID and the United Nations Development Program share in the joint planning and financing of a community based comprehensive health and sanitation intervention program in northeastern Rwanda. USAID collaborates with the MOH to implement their national health policy and action plans and with the Ministry of Gender, Family and Social Affairs to strengthen coordination, develop policy and build a community capacity for the care and protection of children.

Principal Contractors, Grantees or Agencies: The MOH, the Ministry of Gender, Family and Social Affairs, and international non-governmental organizations (CARE International, Save the Children, Family Health International, Samaritan’s Purse International, Population Services International), and contractors AbT Associates,and Johns Hopkins University.

Selected Performance Measures:

	Baseline (1997)	FY 2000	Target (2001)
Increased access to quality PHC services in five regions	50% with STI correctly diagnosed and treated	60% of clients with STI correctly diagnosed and treated	65% of clients with STIs correctly diagnosed and treated
Improved management of national health delivery system	Inability to provide USG funds to MOH	Central and regional accounting and admin- istration systems acceptable to USAID	USAID funds provided directly to the MOH for approved programs
Reduction of children in institutions and residential centers	6,600 children	1,200 children	(program ends 2000)

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ACTIVITY DATA SHEET

PROGRAM: RWANDA
TITLE & NUMBER: Increased Ability of Rural Families in Targeted Communities to Improve Household Food Security 696-SO03
STATUS: Continuing
PROPOSED OBLIGATION & FUND SOURCE: FY 2000 $7,100,000 DFA; $1,516,000 P.L.480 Title II
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY 2002

Summary: The purpose of this objective is to increase access to agricultural inputs and staple foods for rural families through expanded production, better market access, an improved environment for small scale private enterprise, and through increased capacity to monitor and respond to those most affected by food insecurity. During 1997, USAID was instrumental in meeting the emergency needs of 1.5 million returnees with timely and effective use of humanitarian assistance. During 1998, USAID provided resources to meet the needs of approximately 600,000 internally displaced persons (IDPs). Successful transition activities will help diversify economic opportunities for targeted poor rural households by increasing both agricultural production and purchasing power, thus reducing vulnerability to food insecurity. Beneficiaries include: 1) households and farmers in target communities who will benefit from growing trade with neighboring countries, increased availability of agricultural inputs at reasonable prices and improved rural market access; 2) an estimated 20 technical staff plus decision and policy makers within the Food Security Technical Unit (FSTU) and the Government of Rwanda (GOR); and 3) an estimated 700,000 persons acutely affected by food insecurity in Rwanda through effective monitoring and provision of appropriate assistance.

Key Results: Development Assistance resources for longer term capacity building are being combined with local currency from the P.L. 480 Title II Emergency Monetization Project which address immediate needs. Development Assistance will achieve the following intermediate results: 1) increase GOR capacity in the Ministry of Agriculture (MOA) to plan and implement sound food security policies and programs; 2) create and enhance broad-based economic growth through internal production-marketing chains; and 3) increase capacity of institutions to develop and disseminate agricultural technologies that can increase production and profitability. P.L. 480 Title II emergency monetization proceeds will: 1) fund food security initiatives to address emergency needs including short-term causes of food insecurity in Rwanda; 2) reduce dependency on overall external food aid; 3) enhance local production and marketing capabilities; and 4) increase the GOR’s understanding and ability to respond to the root causes of food insecurity in Rwanda. All activities aim to increase rural purchasing power by expanding agricultural production and off-farm employment and improving market services including agro-processing, storage facilities and trading networks with neighboring countries.

Performance and Prospects: In FY1997, approximately $29 million in U.S. food assistance (out of a regional total of $72.5 million) was provided to World Food Program (WFP), representing 40% of all food assistance to Rwanda. This assistance was distributed to vulnerable groups, through Food for Work programs; to promote agricultural recovery, build houses and rehabilitate basic infrastructure. OFDA assistance, totaling more than $26 million in 1997, provided life saving and rehabilitation assistance including clean water, sanitation, health supplies, seeds and agricultural tools, food distribution and emergency shelter assistance, as well as communication equipment furnished directly to the GOR. Small grants were directed to community based women’s associations for restocking small ruminants and income generation opportunities in the amount of $350,000.

During FY1998, USAID was instrumental in meeting the emergency needs of about 600,000 IDPs in Rwanda's northwest with timely and effective use of humanitarian assistance. During this period, U.S. assistance totaled over $5 million. An additional $1.4 million was provided in FY1999 for emergency activities in the northwest. P.L. 480 Title II monetization in the amount of $400,000 provided seeds and tools to restart agricultural production in this, the country's most productive zone. Over $100,000 were provided to Northwest communities reaching 140 womens’ association. As emergency needs at the household level and national levels are met, USAID’s programs will address rehabilitation and development requirements by shifting assistance to promoting productive activities and private marketing channels that lead to long-term food security. It is encouraging to note that overall agricultural production has reached just over 90 percent of its pre-genocide levels but still represents a major decline in per capita food availability which has decreased 33 percent since 1984.

Possible Adjustments to Plans: No major adjustments are anticipated for this Strategic Objective.

Other Donor Programs:USAID will work with: (1) the MOA and Michigan State University to restore the agriculture statistical data base in the MOA and provide policy development assistance; (2) the United Nations Development Program (UNDP), the European Union (EU) and the World Bank to enhance broad-based economic growth by empowering farmers’ associations, cooperatives and formal private sector to respond to market demand and improve investment in rural sector production; and (3) the Ministry of Commerce, Cooperatives and Industry (MCCI), the MOA and International Institute of Tropical Agriculture to increase capacity of ISAR to develop and disseminate agriculture technologies which will improve production and profitability with the help of IARCs and their research network.

Principal Contractors, Grantees, or Agencies: The MOA and the MCCI are USAID’s principal partners in these endeavors. Contractors and grantees include Michigan State University, the International Institute for International Agriculture, World Vision for Rural Development, International Refugee Committee, Save the Children (UK), Food for the Hungry International, Catholic Relief Services, and Concern International, RONCO Inc., ACDI/VOCA, and other U.S., Rwandan and international non-governmental, international and organizations and private sector firms.

Selected Performance Measures:

	Baseline (1997)	FY 2000	Target (2001)
Increased GOR capacity and to implement sound agricultural practices.	FSTU not yet functional	FSTU functional data collected and analyzed	FSTU analysis used to develop policy
Increased household food security in targeted areas	25% of the population, or 2 million, are food insecure	5% reduction in food insecure persons in targeted areas	10% reduction in food insecure persons in targeted areas
Increased off-farm enterprise.	Post-genocide period rural enterprises are minimal	Rural enterprises created in targeted areas	Rural enterprises provide off-farm in targeted areas

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