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FY 1997 Development Fund for Africa: $4,851,201
FY 1997 P.L. 480 Title II: $53,791,000
Introduction.
Rwanda is undergoing multiple, profound changes as it recovers from genocide, in which an estimated one million Rwandans were slaughtered, and the civil war which incited the flight and displacement of almost three million Rwandans. From May 1994 to February 1995, U.S. Government assistance to Rwanda was primarily humanitarian with the goal of saving lives and reducing suffering during a period of dramatic civil unrest and mass genocide. In the post-crisis period, U.S. humanitarian interests have shifted to focus on the prevention of renewed conflict in Rwanda and to contain violence in the region. Years 1995-1996 have seen progress toward the reconstitution of society as the newly installed Government of Rwanda (GOR) consolidates its power, re-establishes the nation's administrative capacity, and rehabilitates basic facilities. Nonetheless, the transition remains fragile. There are critical needs for material and financial support in all sectors, particularly in re-energizing the export economy, managing external debt, promoting investment in production, re-building the government's institutional capacity and assisting the GOR in the establishment of an operating justice system. Lingering and urgent issues facing post-war Rwanda are the return and reintegration of over 1.8 million refugees camped along the country's borders and the establishment of the rule of law.
Although progress has been made in Rwanda over the last year and half, the situation remains fragile. Unless the international community remains engaged, Rwanda could revert to violence and the costs to the U.S. Government could escalate. The tragedy of 1994 illustrates the high cost of responding to disaster. Since 1994, the U.S. Government has provided over $650 million in humanitarian aid to the Rwanda regional crisis. Funding reductions in development assistance have already forced USAID to scale back some of its activities. Further reductions will impair our effectiveness and our ability to try to prevent another disaster from occurring.
The Development Challenge.
Given the encouraging but fragile stability within Rwanda, the transition-to-development challenges are to promote: 1) stability and confidence by strengthening the institutions of justice and democratic governance, and 2) resettlement and reintegration by improving food security and increasing access to basic social and family services at the local level. The program challenge for such a transition to USAID is the integration of humanitarian, rehabilitation and long-term recovery resources in a manner that effectively promotes the recovery and development of Rwanda.
Although the current demographic picture of Rwanda is unknown, the 1991 census registered a population of 7.5 million. It is estimated that one million Rwandans were killed in the genocide and almost three million Rwandans are refugees or displaced. Demographic changes due to genocide and civil war have created a population that is 60%-70% females--many of whom are widowed or single parents--and left over 95,000 children orphaned or separated from their families. The loss of skilled and educated Rwandans to genocide or flight has been devastating and the lack of human resources remains a critical problem in all sectors.
A post-genocide state poses additional development challenges. Faced with mass complicity, the GOR understands the impossibility of arresting and trying all those guilty of participating in the genocide. Nevertheless, extreme pressures from powerful internal and external constituencies remain, and the GOR will be held accountable for rapidly moving to punish the guilty and releasing the innocent from prisons.
In late 1994, when Rwanda had no judicial system and where only one-third of the country's magistrates remained in Rwanda, arrests were conducted solely by the army and the military were the only body running the nascent local administration. Significant improvements have been made during the course of1995: the National Assembly, the legislative body representing several political groups, was established; the Supreme Court was nominated; local civil administrators have been appointed and a police force has been established. A U.S.-supported policy conference held late in 1995 set forth options, some of which are currently being debated in the National Assembly on how to proceed in addressing the complex judicial issue of trying those responsible for genocide. Donors, including the United States, have contributed to repairing and furnishing prosecutors' and judges' offices throughout the country and in training magistrates and police. Some 60,000 Rwandans accused of participating in the genocide are detained in Rwandan prisons. Such a serious and enormous problem will require considerable resources and great political will to ensure that the rule of law prevails.
The Rwandan crisis has had a profoundly negative and destabilizing effect on border countries, particularly Burundi and eastern Zaire. Violence anywhere in the region has direct consequences on neighboring countries and the potential of conflict leading to military confrontation remains dangerously large. It is clearly in U.S. interests to try to stabilize a volatile situation, thereby avoiding additional loss of life and costly and protracted interventions.
Although Rwanda's recovery remains tangled in a troubled regional dynamic, there are promising internal indicators of recovery and rehabilitation. Despite limited human and financial resources, the government quickly moved to repair damaged infrastructure; to reintegrate the internally displaced; to re-establish primary, secondary and higher education systems; to rebuild the national health delivery system (national vaccination coverage rates are already above 65% as compared to a pre-war level of 82%, while rates of acute (1% to 2%) and chronic (31%) malnutrition are lower than pre-war levels.) ; and, to promote recovery in the agriculture sector where production in 1995 had reached 80% of pre-war levels. General food distributions ceased in 1995 with the introduction of food-for-work schemes and targeted food programs.
Direct assistance to the GOR continues to be limited as the vast majority of international aid is channelled through non-government organizations (NGOs), United Nations agency and international organization intermediaries. The cost of Rwanda's rehabilitation is high and the capacity of the new government to respond to these needs is restricted both by the GOR's inability to absorb resources as well as the international community's constraints on direct government assistance.
Other Donors.
In the first post-war Round Table Conference on Rwanda, the United States pledged over $60 million to assist Rwanda in its transition from crisis to stability. The United States is by no means the largest donor, out-financed by the European Union ($127 million), Germany ($81 million) and the World Bank ($75 million). However, the United States maintains an exceptional leadership role in Rwanda that far outdistances other donor nations due to its strong and open relationship with the new government. The United States' ability to advise the GOR, leverage other donors, and provide leadership within the international community is a critical part of U.S. policy in Rwanda.
Several donors are involved in the areas of justice and democratization. The Netherlands, the largest contributor, provide support via a Trust Fund managed by the United Nations Development Program. Other donors, Germany, Switzerland and Canada provide more targeted assistance. A Belgian NGO, "Citizens' Network," has done considerable police training throughout 1995. Involvement on the part of the host-country remains at the strategic and policy and partner level for the moment, as the GOR struggles to get its financial house in order.
FY 1997 Program.
The USAID strategy for assisting Rwanda during the transition is to help stabilize the country and promote a long-term process of reintegration, rehabilitation and reconciliation. In order to accomplish this goal, the program has two main objectives: 1) creation of the necessary systems for the establishment of the rule of law; and 2) facilitating the reintegration of communities through continued humanitarian assistance,increased public sector capacity, improved food security, and increased access to basic health and social services.
This USAID "Transition Program" continues to evolve as immediate emergency needs are shifting to longer-term requirements. Humanitarian resources remain crucial in ensuring quick, effective and flexible responses to a fluid post-crisis situation, complicated by potential massive refugee repatriation. The Mission sees a rational and complementary integration of humanitarian and development activities, which address acute and long-term needs simultaneously, as the only solution in bridging the emergency relief to development transition. USAID will continue to combine resources in ways that help to meet these transitional needs.
As one of the countries within the Greater Horn of Africa Initiative (GHAI), Rwanda must play an increasing role in regional efforts to assure food security and reduce conflict and prevent future crises. Under the GHAI, the Famine Early Warning System project will begin maintaining and monitoring critical agricultural data from Rwanda. In addition, the Mission is exploring regional conflict resolution efforts and other food security activities. USAID anticipates applying successful approaches such as those developed in Uganda, to combat the enormous Human Immunodeficiency Virus/sexually transmitted diseases (HIV/STD) problem and the negative social consequences of "AIDS Orphans," increasingly a regional problem.
Agency Goal: Building Democracy
The genocide and civil war of 1994 crippled the institutions integral to the rule of law. The U.S. strategy is to support the growth of those institutions most directly related to the rule of law: the judiciary, local government, organs central to democratic procedure such as the parliament, institutions responsible for public safety, and civil society, including the press. The choice of activities is based on their importance to the rule of law, political commitment on the part of the GOR to work with the institution, and the activities of other donors. USAID has played an important role over the last 18 months in stabilizing and supporting the new government in its efforts to rebuild the infrastructure and re-establish operations of key ministries, including the rehabilitation of courts and court offices throughout the country, and through support of a policy conference on the post-genocide challenges.
Other institutions necessary for democratic tolerance and compromise, such as the UN Human Rights Field Operation which monitors and investigates human rights abuses, will be supported as appropriate as Rwanda passes through this difficult transition. In this respect, USAID remains flexible to support those democratic institutions which will demonstrate readiness to emerge from the aftermath of war.
Agency Goal: Stabilizing World Population Growth and Protecting Human Health
Rwanda is the most densely populated country in central Africa. Pre-war HIV infection rates were as high as 30% in urban areas, although only about 1% in rural areas where some 95% of the population resided. With the upheavals, violence and displacement of war it is believed that HIV /STD prevalence remains a serious problem throughout the country. The AIDS Control and Prevention (AIDSCAP) Rwanda activity was the first long-term health program to re-open and the only major project addressing HIV/STD prevention through education, government capacity-building and condom social marketing. The continuation and ultimate impact of condom social marketing and other HIV/STD prevention activities hinge on USAID's ability to provide condoms and program funding beyond FY 1996.
Agency Goal: Providing Humanitarian Assistance
USAID emergency humanitarian assistance has been instrumental in saving lives and relieving suffering during the crisis. In the post-crisis period, integrated humanitarian and development assistance directed toward health, water and sanitation, agriculture and food, and unaccompanied children have been key to rehabilitating infrastructure. This assistance is providing support for children and families harmed by genocide and war. The country's 36 hospitals and 316 health centers are now functional. Water systems have been restored to pre-war levels and rural water systems are being expanded in areas of increased post-war population or high refugee return. Humanitarian interventions in the agriculture sector (distribution of seeds/tools and seed multiplication programs) have contributed to the rapid recovery of agricultural production. (Ninety-five percent of the Rwandan population lives in rural areas and survives on subsistence farming.) Unaccompanied children in centers have all been documented and documentation for children in foster care is underway. An active family tracing and reunification program has been established and over 10,000 children have been reunited with their families. Foster families are being assisted to form associations that can address the physical and emotional needs of families caring for separated children and to find ways to integrate foster children and orphans into the life of the community. Widows and female heads of households have been supported through micro-grants for income-generating activities and skills training. Nevertheless, the GOR struggles to rehabilitate various sectors without necessary financial and human resources and continues to rely on NGO interventions in the social sector. USAID humanitarian assistance will continue only as appropriate given the changing conditions inside Rwanda.
Rwanda will also benefit from $239,713 worth of Africa Regionally-funded envirionmental activities.
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Environment |
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Humanitarian Assistance |
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| USAID Strategic Objectives | ||||||
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1. To Improve Systems Necessary for an Environment of Rule of Law - Dev. Fund for Africa |
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2,111,488 |
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2. Support Recovery, Rehabilitation and Reintegration at the Community Level - Dev. Fund for Africa - P.L. 480 Title II |
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2,500,000 |
239,713 |
53,791,000 |
2,739,713 |
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Totals - Dev. Fund for Africa - P.L. 480 Title II |
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2,500,000 |
239,713 |
2,111,488 |
53,791,000 |
4,851,201 53,791,000 |
USAID Mission Director: George Lewis
PROGRAM: RWANDA
TITLE AND NUMBER: Improve Systems for the Administration of Justice, 696-S001
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY1997: $2,111,488 DFA
INITIAL OBLIGATION: FY1995; ESTIMATED COMPLETION DATE: 2000
Purpose: To facilitate and broaden popular participation in shaping terms of the new social contract and the institutions through which that contract will be carried out.
Background: In response to the genocide and subsequent change in government, USAID closed most of the former activities--designed with the political context of the early 1990's in mind--and focused on supporting the growth of the capacity of the new government and stability in the country. For its part, since the tragic events of 1994, the Government of Rwanda (GOR) has been struggling to re-establish the rule of law and find ways and means of responding both socially and judicially to the genocide, while trying to stabilize the country and encourage refugees to come home. In essence, the country has two large socio-political hurdles to cross before stability in any permanent sense will be a reality. The first is the successful return and reintegration of all refugees into the countryside. The second is to find a policy response to the problem posed by the large numbers of guilty Rwandans, the large prison population, and the acknowledged inability to punish everyone involved.
USAID Role and Achievements to Date: In the 18 months since the genocide and war, USAID has contributed significantly to the infrastructural re-tooling of the administration of the state. Eight key ministries were chosen (Plan, Finance, Agriculture, Rehabilitation, Interior, Environment, Justice and Health) to receive commodity support in order to rebuild the functional capacity of their ministries. In addition, the project funded the rehabilitation of courts and prosecutors' offices throughout the country, and supported a policy-conference on the post-genocide challenges. Activities have been set in motion to aid in the creation of institutions which respect human rights and tolerance. The Ministry of the Interior will receive assistance for re-issuing identity cards without ethnic identities as per the Arusha Accords.
Description: Activities in the justice sector will respond to policy decisions as they are taken by the GOR. A mixture of expert counsel on the presentation of options, technical assistance, and implementational support will be given through the program. Efforts will be made to establish permanently a respect for rule of law in the new society. Local government activities will also be undertaken. Local government could play a key role in Rwanda in the coming months. As the most numerous voice of the state, the behavior of local government officials will have a huge impact on the success or failure of reintegration over the coming months; in short, competent local government is key for stability. Working with local government will also provide a vehicle for increasing participation. In addition, as in Uganda where the first elections were held at the local level, working with the local government now may position USAID for other steps toward participatory democracy in the years to come.
Host Country and Other Donors: The GOR has repeatedly requested assistance in these areas. Other donors from Europe and North America also recognize the importance of working in the justice sector. It is to be noted, however, that the lead for action must come from the GOR itself in the form of critical policy decisions. The Netherlands and Germany are heavily involved in the Justice sector (both greater than the United States financially, though the United States has supported some key moves such as the genocide conference). In local government, UNDP has a training activity which is due to terminate in 1996 and Germany have been working in selected regions of the country. The GOR has requested the United States to target the poorest regions of the country because, the GOR says, Germany chose what areas to work in and the GOR did not have much involvement.
Beneficiaries: While the direct beneficiaries of the project activities will be major institutions, the long-termbeneficiaries will be all the people of Rwanda through increased stability.
Principal Contractors, Grantees, or Agencies: International Rescue Committee, International Criminal Investigation and Training Assistance Program (Department of Justice), and others.
Major Results Indicators: Just as Rwanda is struggling through a transitionary period, so the USAID/Rwanda mission is rebuilding itself for the new Rwanda. Part of the participatory design process for new activities includes the identification of quantifiable, observable indicators which can be used to measure progress. These indicators are in the process of being developed.
Major Results Indicators:
Baseline Target
Judicial policy No progress, esp. on trials Functioning judicial response appropriate announcement (1994) for Rwanda (1997)
Genocide trials None (1994) Opening of genocide trials (1996)
Civilian governance Military occupation and rule Participatory governance and placement
of civil administrative of civilian administration--local and
structures: (1994) national (1997)
Absence of conflict in Insignificant refugee return and Improving stability/security over time
country-side random security incidents time, particularly for returning
(1994) refugees (1997)
PROGRAM: RWANDA
TITLE & NUMBER: Support Recovery, Rehabilitation and Reintegration at the Community Level, 696-S002
STATUS: Continuing
PROPOSED OBLIGATION & FUND SOURCE: FY 1997 $2,739,713 DFA, $53,791,000 P.L.480 Title II
INITIAL OBLIGATION: FY 1995; ESTIMATED COMPLETION DATE: 1999
Purpose: To contribute to the well-being of displaced Rwandans who are returning home after internal and external displacement, in ways that promote stability and productivity within the community.
Background: There has been a large displaced and refugee population in and around Rwanda for decades. Large numbers of the internally displaced were able to return home in 1993 following the signing of the Arusha Accords. However, the situation deteriorated with the outbreak of mass genocide and civil war in 1994 which resulted in massive population displacement (approximately 2,000,000 refugees and 900,000 internally displaced), the slaughter of up to one million people, and over 200,000 separated or orphaned children. Although the Rwanda Patriotic Front-led government has stabilized, the recovery inside Rwanda remains fragile. Of immediate concern are: 1) an unprecedented number of vulnerable people--separated children, widows, single-headed households, survivors of genocide and the displaced now reintegrating into society; and, 2) the rebuilding of critical physical and social infrastructure/services that will make reintegration and future reconciliation possible.
USAID Role and Achievements to Date: USAID support began in FY1993/1994 by assisting 225,000 displaced persons in northern Rwanda through a grant to Cooperative for American Relief Everywhere (CARE). In FY1995, assistance focused on the immediate needs of over 40,000 unaccompanied children inside Rwanda. A grant to Save the Children/US provided psycho-social support in 13 centers serving 2,000 children, worked with over 1,100 reunified families, and has initiated 15 foster family associations and 43 income-generating groups. To assist the Government of Rwanda (GOR) in the provision of essential public and social services, which will lend stability and promote confidence at the community level, expanded Assistance to Displaced Persons (ADP) assistance through FY 1997 will be in the health and community development sectors. Activities will concentrate on re-building Rwanda's human resource capacity in the health sector through training and health system capacity-building; combatting the spread of HIV/STDs through surveillance, education and improved clinical services; and support for community initiatives in social services and subsistence agriculture recovery.
Project Description: The original ADP activity was designed to assist the internally displaced as they returned home from camps in Rwanda. The FY1995 program amendment broadened the scope of the activities to include all returnees and the critical needs of survivors of the genocide. The project finances international non-government organizations (NGOs) to work and support government agencies and community associations that aim to: 1) strengthen key ministries responsible for unaccompanied children, foster families and other returnees and, 2) promote rural reintegration. Resources will also be used to strengthen local NGOs and community groups that assist returnees and promote reintegration and stability.
Host Country and Other Donors: USAID has worked with: the United Nations High Commissioner for Refugees (UNHCR) which established the concept of assistance to communes expecting returnees; the United Nations Department of Humanitarian Affairs (UNDHA) which supports cross-border programs as well as the resettlement of returning refugees; and the United Nations Children's Fund (UNICEF) which coordinate children's interventions and is assisting the GOR to build its own capacity in the unaccompanied children sector. Key donors, working through NGO intermediaries, have been the European Union, Canada, Japan, Germany, the Netherlands and the United Kingdom. The Ministries of Rehabilitation, Women & Family, Social Affairs, and the Interior are providing leadership in the sector and actively taking responsibility for reintegration issues facing Rwanda.
Beneficiaries: Due to the flexibility of the project, beneficiary numbers vary depending on the sub-grant targets: Immediate beneficiaries will be the staff of the Ministry of Health and regional health delivery system; the families that rely on basic primary health care in rural areas throughout the country and those Rwandans reintegrating into society after displacement (both internal and external).
Principal Contractors, Grantees or Agencies: The Ministry of Health, NGOs (CARE International, Save the Children Federation, and African Medical Research Foundation).
Major Results Indicators: Baseline Target
Children in residential 12,500 children 6,000 (1997)
centers (1995)
New caseload refugee 93,900 (1995) 200,000 (1997)
return
Human resource capacity- Absence of cost-recovery Institution of the Bamako Initiative
building: Health delivery (1995) by 1997
system Shortage of basic health Provision of trained community
care providers (1995) health workers, nurses (A2 &A3)
medical assistants (1997)
Lack of MOH capacity to Reinforce the capacity of the MOH to
regulate, monitor and provide take on all monitoring, supervision, and
technical leadership (1995) policy responsibility for the national
health system (1997)
GOR coordinates NGOs Absence of line ministry Ministry project review, approval
working in social sector (1995) and monitoring (1996)
coordination