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FY 1997 Development Fund for Africa: $ 9,620,357
Introduction.
Democratization, improved health, sustainable and natural resource utilization are the central objectives of U. S. development assistance in Niger. These can help create the conditions necessary to hasten Niger's evolution from a centrist authoritarian state towards a broad-based, free-market economy built on democratic principles. U.S. interests in Niger are primarily humanitarian, but our national interests are served by stable democratic governance contributing to a stronger West African regional political and economic system, particularly as Niger shares borders with seven countries, including Nigeria and Libya. Economic development and democratic governance will enhance productivity and food security, reducing the need for far greater expenditures during natural disasters such as periodic droughts.
A military coup in January 1996 led immediately to suspension of U.S. assistance, to be followed by the orderly windup of all activities, with the exception of those covered by waivers or "notwithstanding" clauses in the foreign assistance legislation. A timetable for the restoration of democracy by September 1996 has been set and is being adhered to. The movement of Niger from a full to a limited development assistance program reflects U.S. concerns regarding the coup and, at the same time, a recognition of the importance of Niger's return to democratic government and its overwhelming development needs.
The U.S. development assistance program in Niger has been revised to both reflect the more limited resources being made available (about half of the originally planned program) as well as Niger's development priorities. The program will continue to address the Agency goals of Stabilizing World Population Growth and Protecting Human Health, Encouraging Broad Based Economic Growth and Building Democracy. However, there will be major changes in emphases as well as lower funding levels. The primary focus of the program will be on child survival, HIV/AIDS and response to disasters. Economic growth and environmental activities will be sharply focused on support through private voluntary organizations (PVOs) for decentralized financial services and small scale natural resource management activities. In light of the problems which gave rise to the coup and the importance of a return to democracy, USAID will place increased emphasis on elections and the building of democratic institutions.
The USAID Mission currently has ten U.S. direct hire employees. This presence is expected to be reduced by about one half.
The Development Challenge.
Niger is one of the poorest countries in the world. Its Gross Domestic Product (GDP) has experienced negative growth over most of the past fifteen years, and its per capita GDP was estimated at slightly less than $300 in 1995. Its "severity of need" index rating is 8.6, the sixth highest in the world. Niger's mid-1997 population will approach 10 million and is expected to double in about 20 years. The country's low-resource, drought-prone environment in West Africa's inland Sahel region is seriously threatened, as natural replenishment of land resources no longer suffices to maintain population-resource equilibrium. Illiteracy--especially among females--and infant, child and maternal mortality are among the world's highest. The education system, from primary through university levels, has not been operational for most of the past three years. Modern health care services have become even less accessible as a result of public sector strikes and drug shortages. Legacies of tradition and colonial administrative experience and the weakness of Niger's tiny formal private sector and civil society are major constraints on the country's economic growth and democratization. Difficulties in reducing public
sector employment and collecting taxes has made reaching structural adjustment agreements with the IMF difficult. Debt servicing is over 35 percent of receipts from export of goods and services. The military coup in January 1996 testifies to the fragility of democracy in Niger.
Nigerians, however, now have opportunities to reverse years of stagnation. Niger's informal sector is flourishing and has contributed to estimated economic growth last year. A much needed regional currency devaluation, good rains, and other factors helped boost agriculture sector growth to about 8.5% in real terms in 1994 and about 3.5% in 1995. The country has had experience with constitutional democracy at the national level to which the United States provided strong encouragement and assistance during the 1992-1993 transition to a democratically elected government. The current military coup leaders have made clear their intention to return to a democratic government by October 1996. Land tenure policies have been clarified and are moving towards further codification to protect rural producers from arbitrary local or national authorities. However, even given these positive factors, Niger is not a candidate for rapid graduation from development assistance in the foreseeable future.
Other Donors.
In FY 1994, the United States was the fifth largest donor to Niger, providing about $20 million or 8.5% of all donor contributions. The other major bilateral contributors that support and often build upon the results of USAID's work in Niger include: France, the European Union's Fund for Development (FED), Germany, Canada, Taiwan, Nigeria and Algeria. The major multilateral donors are the World Bank, the IMF, UNICEF, the UNDP, the United Nations Fund for Population Activities (UNFPA), and the International Fund for Agricultural Development (IFAD). Most of the bilateral donors suspended their assistance programs following the coup, however they have now largely resumed activities. Most multilateral assistance was not affected.
FY 1997 Program.
By assisting Niger in achieving a healthier population growing at a slower rate, increased rural production and better conservation of the environment, the United States will help Niger achieve the economic base it needs for sustainable development and enable it to become a stabilizing influence in the region. Improved health and child survival will, in the long run, encourage lower fertility, improve capacities for economic production and reduce pressure on the country's fragile natural resource base. Enabling Niger to anticipate, assess and respond to disasters, especially food- related emergencies, will allow Nigerians to better cope with natural disasters and will reduce the need for future U.S. disaster assistance.
The revised U.S. development strategy currently encompasses one Strategic Objective in the area of maternal/child health, disaster mitigation and HIV/AIDS Control; as well as two limited Special Objectives: (1) restoration of democratic government and strengthening of civil society; and (2) adoption of management practices improving the conservation and productive use of natural resources. Most USAID financing is dedicated to child survival. The program is highly integrated, with an emphasis on geographic concentration across objectives. Activities which cut across all three objectives include democratic governance initiatives, disaster preparedness and mitigation, training, and women in development.
The reduction in U.S. development assistance to Niger will necessarily curtail efforts in economic reform and microenterprise as well as policy reform work in the field of health and natural resource management. Significant U.S. commitments will continue for reducing child mortality (including reproductive health services) strengthening systems for disaster mitigation, and strengthening democracy.
Agency Goal: Encouraging Broad-Based Economic Growth.
U.S. assistance has improved Niger's potential for economic growth. U. S.-encouraged economic policy reforms have included the elimination of agricultural export taxes and the reduction of bribes associated with the transport of goods. This has spurred greater exports and revenue. U.S. initiatives have led to a rapidly expanding savings and credit union movement and growth of rural cooperatives and local interest groups for natural resource management. Policy successes in public health include moving national hospitals towards privatization and cost recovery systems.
Specific Objective 2: Adoption of Management Practices Improving the Conservation and Productive Use of Natural Resources.
Agency Goal: Protecting the Environment.
Niger's serious environmental deterioration, including soil erosion and loss of fertility, deforestation and desertification requires that rural producers adopt practices that produce more while using fewer natural resources. Production methods must not only conserve but, because of rapid population growth, they must improve Niger's fields, pastures and forests.
At the initiative of the U.S. and other donors, the Government of Niger (GON) has adopted improvements in natural resource management and has accelerated its decentralization efforts. Changes in approaches to forest management are providing greater local control of production from natural resources in some areas. These reforms are leading to the growth of local associations that test and adopt new natural resource technologies and enhanced agricultural production. However, very low levels of education constrain the diffusion of new technologies. Rural people in Niger are deeply risk averse and reluctant to adopt practices whose impact may only be felt in the long term. Diffusion also is limited by the dominance of a centralized bureaucracy with which rural people have very limited identification.
Specific Objective 2: Adoption of Management Practices Improving the Conservation and Productive Use of Natural Resources.
Agency Goal: Stabilizing World Population Growth and Protecting Human Health.
With high fertility (Niger's "need score" of 9.7 is the second highest in the world), low agricultural production and per capita income, and malnutrition from frequent droughts and food deficits, Niger is one of the few countries in the world, during peacetime, not to have experienced improvement in basic health indicators over the past two decades. Infant and child mortality indicators are the highest recorded by the international demographic and health surveys. One-third of Niger's children die before age five, an unusually high percentage dying after infancy. The main underlying reasons are high fertility and complications to pregnancy and birth, poor nutrition, primitive sanitation and lack of access to medical treatment due to low household income and absence of community organizations to develop and implement health measures. Improved child survival is an objective in its own right and also an essential measure to eventually encourage lower fertility. Episodic severe droughts and highly uneven rain distribution over time and space engender chronic food insecurities, a cycle of poverty and economic stagnation.
Niger's high fertility and rapidly growing population increases the health risks for mothers and children and challenges the country's food production capacity, its already weak education system and its ability to provide even the most basic health services. The population growth rate exceeds Niger's rate of economic growth and is unsustainable in a country with such a poor resource base.
In 1994, USAID initiated a national program for social marketing and commercial retail sales of condoms for child spacing and HIV/AIDS control and assisted the Ministry of Public Health (MOPH) in further expanding family planning coverage in existing facilities. These activities contributed to modestincreases in the use of contraception during 1995. The marketing program has overcome strong attacks by religious fundamentalists by successfully encouraging Islamic associations to play active roles in developing media messages. This was a notable advance in the environment for family planning in Niger. However, the impacts of this achievement are limited by the low status and literacy rates of women which constrain the rate at which innovations in preventive health care and family planning can be diffused. GON efforts to emphasize education in family planning are limited by budgetary constraints and the high dispersion of the rural population. Nigerian law strictly enforces restrictions on voluntary surgical contraception and there are virtually no surgeons with training in these methods. Widely observed social customs encourage or permit the marriage of females at very early ages.
Strategic Objective 1: Increased use of Maternal/Child Health Services and Child Survival, Disaster Mitigation Practices and HIV/AIDS Control Practices.
Agency Goal: Building Democracy.
The United States is committed to helping Nigerians build a democratic governmental framework which provides the freedom and flexibility to undertake economic and social initiatives which will facilitate the country's economic growth. Niger's politics were dominated throughout 1995 by a political struggle between the elected president and a prime minister who represented the majority coalition in the National Assembly. The military coup in January 1996, led to immediate suspension of the U.S. Government's assistance to Niger. Assuming a return to democratic government and a decision to continue assistance, USAID's Strategic and Special Objectives all include a democratic governance component and are geared towards achievement of results that are essentially and explicitly related to building democracy. Special Objective 2 emphasizes increasing public understanding of and participation in political and legal processes as well as increasing the capacity of local civil society groups to play an active role in these processes.
Over the past two years, the U.S. Mission increased its assistance for democratic governance. Activities were conducted primarily through Nigerian non-governmental organizations (NGOs), and were focused on training and the dissemination of information on democracy and the rule of law. A major effort was undertaken to support a network of village-based paralegals whose work improved the quality of local administration of law. These efforts played an important part in the remarkable growth of Nigerian private voluntary organizations beyond the capital city. The United States expects to accelerate its democracy/governance activities in 1997, particularly in the area of popular empowerment and support for decentralized, democratic local governments.
Strategic Objective 1: Increased use of Maternal/Child Health Services and Child Survival, Disaster Mitigation Practices and HIV/AIDS Control Practices.
Specific Objective 1: Restoration of Democratic Government and Strengthening of
Civil Society.
Specific Objective 2: Adoption of Management Practices Improving the Conservation and
Productive Use of Natural Resources.
|
Encouraging Broad-based Economic Growth |
Stabilizing Population Growth and Protecting Human Health |
Protecting the Environment |
Building |
Providing Humanitarian Assistance |
TOTALS |
|
|
USAID Strategic Objectives |
||||||
|
1. Increased Use of Maternal/Child Health Services and Child Survival, Disaster Mitigation Practices and HIV/AIDS Control Practices - Dev. Fund for Africa |
100,000 |
5,252,260 |
|
50,000 |
|
5,402,260 |
|
SP 1. Restoration of Democratic Government and Stengthening of Civil Society - Dev. Fund for Africa |
50,000 |
650,000 |
|
700,000 |
||
|
SP 2. Adoption of Management Practices Improving the Conservation and Productive use of Natural Resources -Dev. Fund for Africa |
881,410 |
|
2,431,961 |
204,726 |
|
3,518,097 |
|
Totals - Dev. Fund for Africa |
981,410 |
5,252,260 |
2,481,961 |
904,726 |
|
9,620,357 |
USAID Mission Director: James M. Anderson
PROGRAM: NIGER
TITLE & NUMBER: Increased use of Maternal/Child Health Services and Child Survival, Disaster Mitigation Practices and HIV/AIDS Control Practices, 683-S001
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 1997 $5,402,260 DFA
INITIAL OBLIGATION: FY 1995; ESTIMATED COMPLETION DATE: FY 2002
Purpose: To increase the use of maternal/child health and related family planning services, disaster mitigation practices and HIV/AIDS control practices.
Background: Niger has some of Africa's worst health indicators in the areas of population growth, maternal and child mortality, the rate of childhood immunization, maternal tetanus vaccination, and prevalence of use of contraception. Constraints to progress include a delivery system primarily restricted to urban areas due to a lack of financial and human resource capacity and poor coordination of services within the public sector and between the public and non-governmental organizations (NGO) sectors. Extremely low levels of female literacy, rapid population growth and a small formal private sector impose major constraints on health care service demand and supply.
USAID Role and Achievements to Date: USAID has employed an integrated approach including working with NGOs and the Government of Niger (GON) to change policies, improve GON capacity to deliver family planning services and procure and distribute contraceptives. USAID has also provided technical assistance in health and population policy development and demographic data collection and use, assisted in marketing of condoms, and helped the GON to mprove the quality of maternal/child health services and medical and nursing training. Largely as a result of these efforts, contraception now is legal and available in all of Niger's 44 districts. National hospitals are in the process of privatization and the Ministry of Health has better control of its financial affairs. The private sector is beginning to develop and USAID-supported social marketing programs are now providing over 100,000 condoms per month throughout Niger.
Description: USAID/Niger's main objectives in this sector are to: expand and improve maternal child health (MCH) and related family planning (FP) promotion and services in the private sector nationwide; improve capacities to predict and respond to food security and health-related disasters and expand immunization activities and responsibilities. Most program funds will be disbursed at the district level and a substantial amount will be distributed through Private Voluntary Organizations (PVOs).
Host Country and Other Donors: The United States is the major donor in this area. UNICEF and the World Bank fund the Expanded Program of Immunization, with USAID support. The United Nations Fund for Population Activities (UNFPA) and the World Bank finance population programs, while France and the European Union's Fund for Development finance important health facilities. A group of donors, including USAID, supports the national campaign against AIDS. The GON provides health facilities and salaries for local counterparts.
Beneficiaries: Children under 15 years of age and women of reproductive age, constituting approximately 6.75 million people or 75% of Niger's population. USAID/Niger's program targets about 20% of this population in its FP/MCH program, but its private sector program--especially in child survival and HIV/AIDS-related family planning activities--will be national in scope.
Principal Contractors, Grantees or Agencies: USAID will implement these activities through competitively selected contractors and U.S. NGOs with agencies working under contracts with the Global Bureau Center for Population Health and Nutrition.
Major Results Indicators Baseline Target
Measles immunization coverage in selected districts 19.0%/20.4% 46% (1997)
(1990/1992)1/
Child malnutrition rates in selected districts 16% (1992)2 TBD (1997)
Purpose: To assist in restoring democratic government and developing a stronger civil society.
Background: Niger inaugurated its first democratically elected government in 1993, following 30 years of one party, military rule. This transition was marked by comparatively widespread electoral participation and a proliferation of independent media and other nongovernmental groups (NGOs). However, in January 1996, following a period of increased tension between the President and Prime Minister of opposite parties, the government was overthrown by military coup. Despite this major setback, Niger appears to be proceeding toward a return to democratic rule by the end of September 1996. The press, political parties and NGOs are now operating freely. The coup points up the fragility of Niger's democracy and the importance of continued assistance to strengthen civil society.
USAID Role and Achievements to Date: The United States played an important role in assisting Niger in its transition to democracy. In addition to direct electoral support, USAID supported Nigerien NGOs primarily for training and the dissemination of information on democracy and the rule of law. These efforts boosted the significant growth of Nigerien private organizations, especially outside the capital city. Activities in democracy and governance cut across all of USAID's Strategic Objectives. For example, Natural Resource Management activities emphasize local control of natural resources; credit and cooperative programs have given villagers more control over their economic future, and health care is increasingly decentralized. Following the coup, the United States has taken a leading role in encouraging the coup leaders to accelerate the return to democracy.
Description: This activity will focus on strengthening Nigerien democracy through several special activities. Under a contract with a U.S. NGO, support will be given to a project to increase the participation of civic organizations in the legislative process and foster the development of a transparent, responsive and accountable legislature that could become a viable instrument of democratic governance. Support will also be provided to strengthen four human rights groups. In addition, funding will be provided through USAID's global Women in Politics activity, which follows up the United Nations Fourth World Conference on Women, to support and increase women's participation in political processes and elections. This will include information dissemination, participation in regional workshops and assistance to women in exercising their voting rights.
Host Country and Other Donors: A number of other donors, including the United Nations Development Program, France and Canada have or are providing support for elections. The GON has paid local salaries and associated costs.
Beneficiaries: The direct beneficiaries of these activities will be the legislators, human rights groups, political parties and civic associations who receive training. Women will be more active in national and local political processes. Niger's electorate will benefit from improved elections observations.
Principal Contractors, Grantees or Agencies: National Democratic Institue (NDI), African-American Institute.
Major Results Indicators Baseline Target
Legislators and Civic Leaders trained. 20/20 40/40
Women participating in politics TBD TBD
PROGRAM: NIGER
TITLE & NUMBER: Adoption of Management Practices Improving the Conservation and Productive Use of Natural Resources 683-SP02
STATUS: New
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 1997 $3,518,097 DFA
INITIAL OBLIGATION: FY 1996; ESTIMATED COMPLETION DATE: FY 1998
Purpose: To assist Niger in the sustained adoption of management practices to improve the conservation and productive use of Niger's forests, fields, waters and pastures in selected areas.
Background: Low and uncertain rainfall, infertile soil, few trees, and pests constitute the main challenges for Niger's rural producers. They, and their communities, lack firm legal control over their natural resources as well as access to marketing, savings and credit services. Niger's informal sector is flourishing and savings exist, but the vast majority of rural producers cannot readily get credit or invest their savings to get a cash return.
USAID Role and Achievements to Date: The United States has been active for many years in the areas of Natural Resource Management (NRM) and support for decentralized financial institutions, mainly through projects managed by U.S.-based private voluntary organizations (PVOs) and local nongovernmental organizations (NGOs). Significant success has ben registered in the growth of, participation in, and repayment rates of credit unions and cooperatives. There has also been a substantial increase in the amount of land under community control, and the number of rural producers adopting improved NRM practices. On the macro level, USAID activities have resulted in the Government of Niger (GON) adoption of laws permitting more local control of natural resources, liberalization of regulations governing NGOs and promulgation of policy reforms which have encouraged greater export of agro-pastoral products and reduction of illicit payments by transporters.
Description: Under this activity, USAID--working through PVOS and NGOs--will continue to promote the use of improved NRM technologies in specific areas. Special attention will be given to technical training in improved NRM practices and increased community control of natural forests. U.S.-based PVOs will continue support to the highly successful programs of support to credit unions and cooperatives movements, with emphasis on helping selected communities increase their resources for investment in improved NRM practices. Special emphasis is placed on participation by women.
Host Country and Other Donors: The World Bank, European Union, United Nations Development Programme, Switzerland, Germany and the Netherlands, are supporting environmental activities. Three European donors are supporting the savings and credit union and cooperative movements. The GON pays llocal counterpart salaries.
Beneficiaries: Approximately 3% of Niger's population (250,000 people) benefit from existing U.S.-supported financial services activities in 1995. This should increase steadily in future years. Residents of targeted areas (approximately 20% of Niger's rural population) are expected to benefit from dissemination of improved NRM technologies. Niger as a whole will benefit from the increased productivity and food security resulting from U.S. assistance for improved NRM.
Principal Contractors, Grantees or Agencies: International Resources Group (IRG), Africare, World Council of Credit Unions (WOCCU), Cooperative League of the USA (CLUSA), CARE.
Major Results Indicators Baseline Target
Percent increase in use of TBD +5%/+20%
new NRM technologies where (1997/1999)
NRM programs are active.
Number of registered 10 (1995) 300 (2000)
community institutions
managing natural resources.
Decentralized credit 0/180 (1985/1995) 294 (1999)
institutions providing
small loans.