Note: This document may not always reflect the actual appropriations determined by Congress. Final budget allocations for USAID's programs are not determined until after passage of an appropriations bill and preparation of the Operating Year Budget (OYB).
RWANDA
FY 1997 FY 1998 FY 1999 Actuals Estimate Request
Child Survival and Disease.......... $2,500,000 $1,340,000 $2,500,000 Development Assistance.............. $2,000,000 $6,160,000 $7,000,000 Economic Support Funds............. $500,000 --- --- P.L. 480 Title II........................... $70,899,729 $10,680,900 ---
Introduction
In her December 1997 address to the Organization of African Unity, Secretary of State Madeleine Albright articulated U.S. policy objectives in the Great Lakes region: to support peace and the rule of law, promote good governance and democracy, and encourage economic development and integration. These objectives form the basis of the development assistance program in Rwanda, which is based on the premise that achieving a lasting peace is crucial to regional stability and in the clear interest of the United States. In addition, the Secretary announced a Great Lakes Initiative, which will support strengthened mechanisms for justice and reconciliation. The USAID Rwanda program will be a key component of this Initiative, building upon its existing justice sector activities. The USAID program also plays a key role in the Greater Horn of Africa Initiative (GHAI), with a focus on the GHAI's twin objectives of conflict resolution and food security, as well as its cross-border approach to these issues.
The Development Challenge
In the last year, there have been strong indications that Rwanda is making progress on the political, social and economic fronts, but many daunting problems remain. Over 1.5 million Rwandans (almost 20% of the population) peacefully returned to the country between November 1996 and February 1997. The Government of Rwanda (GOR) mounted a herculean effort to provide shelter, health, and economic support for those people -- a monumental challenge. In addition, Rwanda faces an unsustainable external debt burden. At the end of 1996 external debt stood at $1.1 billion, or 83% of gross domestic product. In the near future, high debt service will continue to crowd out development priorities.
In the political arena, the GOR's Ministry of Justice has made significant progress in processing over 120,000 detainees accused of genocide crimes by establishing basic files for 50% of these cases and releasing over 3,000 people. Bringing the cases to trial remains a formidable task, but prospects are now improved for speedier resolution of cases and establishment of standards for detention and arrest. This is but a first step toward developing a functioning justice system. Progress has been made in other areas as well. The GOR created a National Judicial Council, which provides a mechanism for an independent judiciary. The first National Bar Association was launched and a framework established for a National Human Rights Commission. Five thousand Rwanda Peoples Army (RPA) soldiers were demobilized in the first phase of a program designed to reduce the size of the army and assist former soldiers to return to peaceful lives. Such a program should not only temper security concerns and reduce potential for conflict, but also enable the GOR to devote its scarce financial resources to the productive and social sectors and address severe budget shortfalls.
Despite these encouraging actions, political violence worsened considerably in 1997, principally in the northwestern prefectures where extremists seek to reignite the genocide. The outbreak was due in part to the GOR's admirable decision to open its borders to the refugees, during which time armed insurgents also entered. The RPA has generally been able to respond effectively, beating back and pursuing opposing forces perpetrating attacks on refugee camps and other sites. High civilian casualties persist, as in the brazen assault on Mudende camp where over 300 refugees were murdered. To address accusations that the RPA has violated human rights in its sometimes violent and poorly
targeted reactions to insurgent actions, the GOR has publicly detained, convicted and punished soldiers and officers found guilty of such actions through due process of law. Throughout the country there is a pervasive need to rebuild trust among neighbors and in local and national institutions.
With a growth rate over 3%, Rwanda is the most densely populated country in Africa. Infant mortality is also high (130 per 1000 live births). Due to a tremendous shortage of physical, fiscal, and human resources, much of the population has only rudimentary coverage and relies on non-governmental health services. To effectively and sustainably solve these problems, the Ministry of Health is decentralizing its resources in order to rapidly improve service delivery in an integrated primary health care system which incorporates maternal child health, family planning and HIV/AIDS interventions.
Nearly 100% of Rwanda's population is engaged in subsistence agriculture, yet over 50% of these households do not produce enough for their families to eat. Rwandan per capita food production has declined steadily since the early 1980's. Much of the human and physical resources which constituted the Ministry of Agriculture (MOA) were destroyed in 1994. However, during 1997, the MOA reestablished data management and planning capacities, and continued to support seed multiplication efforts using contract farmers. There is an urgent need to develop off-farm employment opportunities through agricultural processing and small and micro-scale industry and enterprise.
Other Donors
A broad array of multilateral and bilateral donors are actively engaged in Rwanda in close cooperation with the GOR, which has taken a true leadership role -- one of the key principles of the GHAI. USAID works in coordination with the Netherlands, Germany, Canada, Belgium, the World Bank, the European Union, and the United Nations Development Program.
FY 1999 Program
The USAID Integrated Strategic Plan for 1997-1999 responds to development challenges in the political, social, and economic sectors by focusing on three strategic objectives: 1) increased rule of law and transparency in governance; 2) increased utilization of primary health care and basic social services in target regions; and 3) increased ability of rural families to improve household food security in targeted communities.
Related to USAID's goal of strengthening democracy and good governance, funds are requested to combat the pervasive sense of impunity in Rwanda through the creation of an independent judiciary and an expanded cadre of trained legal professionals; to promote an increased sense of security on the part of the general population through demining, an improved police force, and the establishment of a civil-military dialogue conducive to reducing the size and role of the military; and to strengthen civil society at the national and local level. Funds are also requested to support in Rwanda's national demobilization program. The Great Lakes Initiative, described in a separate section, will complement these activities.
Funding is requested to increase availability of decentralized, quality primary health care (PHC), and sexually transmitted infections and human immuno-deficiency virus (STI/HIV) services in target areas; to improve knowledge and perceptions related to reproductive health and STI/HIV in target areas; to enhance sustainability of PHC services through improved financial and administrative accountability and health care financing; and to increase GOR capacity to provide basic social support activities.
Related to USAID's overall goals of promoting broad-based economic growth, agricultural development, providing humanitarian assistance, as well as the objectives of the GHAI, funding is requested to increase GOR capacity to improve access to agricultural inputs and staple foods for rural families through expanded production, 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.
RWANDA
FY 1999 PROGRAM SUMMARY
(in thousands of dollars)
USAID
Strategic and Special ObjectivesEconomic
Growth & Agriculture
Population
& Health
Environment
DemocracyHuman Capacity Development
Humanitarian
Assistance
TOTALS
S.O. 1. Increased Rule of Law and Accountability in Governance
- DA
---
---
---
2,500
---
---
2,500
S.O. 2. Increased Primary Health Care and Utilization
- CSD
---
2,500
---
---
---
---
2,500S.O. 3. Increase Ability to Rural Families to Improve Household Food Security
- DA
4,500
---
---
---
---
---
4,500
Totals
- CSD
- DA
---
4,500
2,500
---
---
---
---
2,500
---
---
---
---
2,500
7,000
USAID Mission Director: George E. Lewis
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 1999: $2,500,000 DA
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY 2001
Purpose: To build the capacity to improve the administration of justice and decentralized local governance by providing the tools and improving the skills necessary to develop legal and governmental structures and civil society associations.
USAID Role and Achievements to Date : USAID efforts during 1997 were directed towards establishing the basis for justice and good governance. Major accomplishments included: 1) training for 140 law students at the national university thus addressing the critical shortages in legal expertise within the country; 2) material assistance in preparing dossiers against individuals accused of genocide crimes; 3) continued training for an estimated 1,200 public safety officials at the local and national level in order to lay the institutional foundation for the rule of law and respect for human rights; 4) building a capacity within the National Demining Office (NDO) to identify and destroy land mines and unexploded ordnance; 5) in partnership with the Dutch Government, 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) establishing a decentralization unit within the MOIA to build consensus for national policies that will transfer decision making to local communities.
Description : In FY1998/99, 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. USAID assistance in improving the administration of justice will: 1) continue to train new legal professionals (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 (ICTR); 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 material and technical assistance to the newly authorized National Judicial Council which is the body tasked with selecting and supporting judges.
To improve security, USAID will: 1) continue 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) continue to build the capacity and self-sufficiency of the NDO so that all 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 (UNDP) trust fund, and provide technical assistance to the Rwanda Demobilization Commission and training for demobilized soldiers.
To improve accountability and transparency in governance, USAID will: 1) promote participatory processes at the community level that enable communities to plan, 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 associations; and 5) provide technical assistance to the National Assembly to improve the technical staff's legislative analysis and drafting skills.
These activities all play a key role in resolving the traumatic events of the past, and in establishing a framework to mitigate future conflict as Rwandan society rebuilds.
Host Country and Other Donors : USAID works closely with the GOR's MOIA and MOJ for its activities in the Justice sector. The Netherlands and Germany are the major donors in this sector, each contributing more than the United States. UNDP has placed advisors with the MOIA and the MOJ. The Netherlands joined USAID in providing a matching 50% of funds for the identity card project. The World Bank has provided $3 million to promote decentralization based on work to date in the USAID Local Government Initiative. Canada is supporting the local language publication of material on the work of the ICTR. Belgium furnishes defense lawyers for those accused of genocide crimes through the NGO, “Lawyers Without Borders”. Demobilization and reintegration efforts will be a multi-donor funded activity through the UNDP Trust Fund with a total estimated budget of $39 million. The United States has allocated $1.7 million to date.
Beneficiaries : All Rwandans will benefit from increased confidence in legal and governmental structures, decentralization and improved security of person and property. Immediate and direct beneficiaries are the institutions which underpin administration of justice, rule of law and broad-based development, including at least 350 civil servants in the areas of justice and local government, 20,000 rural citizens in target communities, up to 5,000 former soldiers in reintegration activities and 100 members of local NGOs committed to improving civil society.
Principal Contractors, Grantees, or Agencies : The MOIA, United States Information Agency, the University of Quebec at Montreal, Africare and Ronco are currently implementing activities.
Major Results Indicators Baseline Target (1997) Increased availability of legal 40 lawyers working in 250 lawyers (1999) expertise Rwanda Increase in military 5,000 personnel from the Additional 10,000 RPA and personnel demobilized Rwanda Patriotic Army 40,000 personnel of the and assisted (RPA) demobilized and previous government's army assisted assisted (1999) Improved personal security 600 sq. km of land 50% of compromised area through increased compromised by mines and cleared (1999) area of land unexploded ordnance as demined surveyed by the NDO Mechanism established for All local government Mechanism established in 12 local resource allocation development resources communities for broad-based allocated from the central participation planning for and government using development resources (2000)
ACTIVITY DATA SHEET
PROGRAM: RWANDA
TITLE & NUMBER: Increased Primary Health Care and Social Service Utilization in Target Regions,
696-SO02
STATUS: Continuing
PROPOSED OBLIGATION & FUND SOURCE: FY 1999: $2,500,000 CSD
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY2001
Purpose : 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 Role and Achievements to Date : 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 over 60 health clinics and training facilities (using both emergency and development resources as part of an integrated program) 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 sexually transmitted infections/human immunodeficiency virus (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 community social and income-generating networks which target foster families and unaccompanied and vulnerable children.
Description : Activities include building a public capacity to deliver quality 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 PHC 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 Ministry of Health (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 at the MOH. This will improve reporting on donor accounts, produce a greater decentralization of resources, 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 parent networks to assist families with foster children through improved communications and income-generation activities.
Host Country and Other Donors : 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 in the Umutara region. USAID collaborates with the Ministry of Health 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 .
Beneficiaries : 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. Three hundred Rwandans working in the public health delivery system and social service sector will be direct beneficiaries of professional training activities.
Principal Contractors, Grantees or Agencies : The Ministry of Health, the Ministry of Gender, Family and Social Affairs, and international non-government organizations (CARE International, Save the Children, Family Health International, Samaritan's Purse International, Population Services International).
Major Results Indicators: Baseline Target Improve access to quality PHC Baseline figures will be 30% increase (from the 1998 services in five regions. determined by the baseline) of clients with STIs who implementing organization are correctly diagnosed and treated and the MOH (2000) Increased use of STI services cited by health centers in the Gitarama Prefecture Improved management of national Inability to provide U.S. Acceptable accounting and health delivery system. funds to the MOH administrative systems in the MOH (1997) (central and regional levels) provide eligibility for direct USAID funding (1999) Increased capacity to recover costs Absence of cost recovery Institutional and public tariff incurred in health delivery. system (1997) system established nationally (1998) Improved knowledge and perceptions No national strategy National IEC strategy relating to STI/HIV infections. for local leaders to implemented in 5 pilot communes mobilize their (2000) communities in STI/HIV prevention and control Reduction of children in institutions 6,600 children 1,200 children (2000) and residential centers. (1998)
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 1999: $4,500,000 DA
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY 2001
Purpose: 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.
USAID Role and Achievement to Date: During 1997, USAID was instrumental in meeting the emergency needs of 1.5 million people with timely and effective use of humanitarian assistance. Approximately $29 million in U.S. food assistance (out of a regional total of $72.5 million) was provided to the World Food Program (WFP), representing 40% of all food assistance to Rwanda. This assistance was distributed to vulnerable groups and used to improve the productive sector through Food for Work programs which promoted agricultural recovery, built houses and rehabilitated basic infrastructure. Other emergency assistance, totaling more than $26 million, provided life saving and rehabilitation assistance including clean water, sanitation, health supplies, seeds and agricultural tools, food distribution and emergency shelter assistance. In addition, over 550 small grants were made to community-based women's associations. 165 groups purchased livestock, and over 200 groups initiated income generation projects. The balance received support for shelter and agricultural activities.
Description : As emergency needs at the household level and national levels are met, USAID's transition program addresses rehabilitation and development requirements by shifting assistance from humanitarian and emergency aid to establishing sustainable livelihoods and promoting productive activities that lead to long-term food security. USAID assistance will: 1) increase capacity in the Ministry of Agriculture (MOA) to plan and implement sound food security practices; 2) increase agriculture expertise in the public and private sector by refurbishing and improving training at the national agriculture training center; and 3) promote conditions that encourage off-farm enterprises, employment and regional trade. Proceeds from the monetization of food aid will be used to: 1) increase the GOR's understanding of and ability to respond to the root causes of food insecurity; 2) improve farming practices; and 3) strengthen internal market channels. All USAID 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.
Host Country and Other Donors: USAID will work with: (1) the MOA and a U.S. institution to restore the agriculture statistical data base in the MOA and provide policy development assistance; (2) the United Nations Development Program (UNDP) and the European Union (EU) to refurbish and provide courses at the national agriculture training center; and (3) the Ministry of Commerce, Cooperatives and Industry, the MOA, a U.S. institution, the EU, World Bank and UNDP to promote conditions that encourage off-farm enterprises and regional trade.
Beneficiaries: 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 GOR as well as an estimated 700,000 persons acutely affected by food insecurity through effective monitoring and provision of appropriate assistance; and 3) an estimated 200 students, GOR staff and private participants who pass through the national agriculture training center.
Principal Contractors/Grantees: The MOA and the Ministry of Commerce, Industry and Cooperatives are USAID's principal partners in these endeavors. Contractors and grantees include U.S. universities, U.S. and international non-governmental organizations, international and United Nation organizations and private sector firms.
Major Results Indicators
Increased GOR capacity to plan and implement sound agricultural practices.
Increased household food security in targeted communities.
Increased off-farm enterprise.
Baseline
FSTU has been established, but is not yet functioning or operational in 1997.
25% of the population, or two million persons, are food insecure. (FAO 1997)
Post-genocide period rural enterprises are minimal.
Target
Analyses used to develop policy by 2000.
10% reduction in food insecure persons in targeted areas by 2001.
Rural enterprises provide off-farm employment in target areas by 2001.
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