Committee Reports > List of Committees > Joint > 2004 > Committee on Foreign Affairs > Report No. 02 - Project Uganda

HOUSES OF THE OIREACHTAS

Joint Committee on Foreign Affairs

PROJECT UGANDA

TITHE AN OIREACHTAIS

An Chomhchoiste um Ghnóthaí Eachtracha

TIONSCADAL UGANDA

Chairman’s foreword

Irish people, both personally and through Official Aid are big supporters of Sub-Saharan Africa. This report sets out the current situation and prospects for economic and social development in Uganda. It examines the important role that Ireland is currently playing and the opportunity for deepening our positive contribution.

Uganda is a country of great progress and achievement on the one hand and tragic conflict, disease and poverty on the other. Progress has been made in building a democracy, in dramatically reducing HIV/AIDS prevalence from 18.5% of the population in 1990 to 5% in 2001 and poverty from 56% of the population in 1992 to 35% in 2000. Political leadership and widespread dissemination of the “ABC” package of prevention — i.e. (1) Abstinence, (2) Being Faithful to a partner, or (3) Using Condoms, is seen as a central plank in the fight against HIV/AIDS in Uganda. The Government under President Museveni has also increased the number of children receiving primary education from 3.5 million to 8.0 million in only 4 years.

But there is a major outstanding problem in Uganda. It is the continuing conflict in the North, including the involvement of child soldiers, the displacement of 1.6 million people, extensive human rights abuses, all leading to a massive humanitarian crisis. While it is clear that the high standards in the work done by Minister Kitt and DCI have been widely acknowledged, the crisis in the North must now be given a high priority by both the International Politicians and Donor countries. A greater focus by DCI and the other Donors on this crisis, to complement the present work in the rest of the country, together with a concerted and comprehensive political initiative for peace and reconciliation is needed to bring lasting progress and development in Uganda.

Ireland’s Official Development Assistance at €480 million in 2004 is 0.41% of our Gross National Income and places us 7th highest contributor worldwide on the UN’s list. The UN target is 0.7% of GNI. This is in addition to the personal contributions made to NGO’s, Missionaries and UN organisations. Irish Missionaries, both lay and religious have for generations given their support to the development of the peoples of Sub-Saharan Africa. They are still working there today along with our Non-Governmental Organisations and Development Cooperation Ireland which delivers our Official Development assistance. In addition it is heart warming to note that UNICEF, which funds and supports international projects for children, reports that personal donations from Irish people rank the 2nd highest worldwide on a per capita basis.

The Joint Committee, which represents all Parties and Groupings in Dail and Seanad Eireann, in this study considered the views and experience of all the key stakeholders working in Uganda. The analysis undertaken by the Committee included an examination of existing policies in Ireland and Uganda, discussions with NGO’s, Missionaries and DCI, as well as examination of relevant reports. In this context the Joint Committee is making a series of recommendations to complement the very dedicated and valuable work that is already underway. We trust the work of the Joint Committee will further the great progress already made by the people of Uganda and their leaders. It is our intention to supplement this Report with a special delegation visiting Uganda later this year.

Dr. Michael Woods T.D.

Chairman Joint Committee on Foreign Affairs

July 2004

Joint Committee on Foreign Affairs

Members of the Joint Committee

MEMBERS OF THE JOINT COMMITTEE ON FOREIGN AFFAIRS

Acknowledgements

The Joint Committee wishes to thank those witnesses, from Concern, GOAL, OXFAM, SELF HELP, Trocaire and World Vision Ireland, who made presentations to the Joint Committee on Foreign Affairs. In addition submissions were received from Mill Hill Missionaries and the Medical Missionaries of Mary, who are working in Uganda for many years. These witnesses (see Appendix 1) and many others in their organisations are dedicating their efforts to alleviate the many problems facing the people of Uganda.

In particular the committee wishes to thank Deputy Tom Kitt, Minister of State at the Department of Foreign Affairs, who with his staff from Development Cooperation Ireland (David Donoghue, Frank Sheridan and Damien Boyle) met the committee and provided extensive information on the work being undertaken by the Irish Government in Uganda.

The Committee wishes to acknowledge the particular input and contributions of the following people in the formulation, research and analysis of Project Uganda:

Brian Arnold, Agenda Consulting for extensive work on the report.

John Hamilton, Clerk to the Joint Committee and his excellent staff.

Dermot O’Mahony, Policy Advisor to the Joint Committee.

Contents

Acronyms

Executive Summary

Introduction

Ireland’s development assistance programme is widely recognised as setting high standards and providing strong leadership to the international donor community. Notwithstanding this recognition, it is increasingly the subject of media focus. In this context, Ireland’s bilateral programme with Uganda has been the subject of criticism in recent times. The Project Uganda review provided an opportunity for the Joint Committee on Foreign Affairs to consider the strategies being pursued by key stakeholders in Uganda and to listen to the views of a broad range of organisations that are currently working at grass root level in the country.

Ireland’s economic prosperity stands in sharp contrast to the plight of our bilateral programme countries, each of which is categorised as a Least Developed Country. While Ireland is ranked 10^th in 2004 in the United Nations Human Development Index, Uganda is ranked 146^th. In 2003, Ireland’s GDP per capita was $37,822 as opposed to Uganda’s $248.

The speed with which Uganda can address its ongoing development is determined by the policies that its Government pursues, in harmony with an array of international actors, one of which is Ireland. Its future is being shaped, in line with other developing countries, by international community policies, especially those relating to trade, debt relief and official development assistance policies. Ireland’s policies, which promote improvements in developing and least developed countries, must therefore be viewed in a broader context than just official development assistance.

The Joint Committee recognises the importance of strengthening and deepening the relationships with our bilateral programme countries, while also ensuring that development assistance is effectively administered. The Committee recommendations, which are outlined as part of this review, seek to complement the existing development policy framework.

Ireland’s Official Development Assistance Programme

Ireland’s programme for Official Development Assistance (ODA) is now 30 years in existence. It currently stands at €480 million or 0.41% of Gross National Income (GNI) and will reach nearly €1 billion when Ireland reaches its target of 0.7% of GNI in line with its Millennium Goals. The road to meeting this goal has slipped in recent years and significant increases in ODA will be needed in the next three budgets if Ireland is to achieve its self-imposed development target. The Department of Foreign Affairs, the Advisory Board for Development Cooperation Ireland and the Department of Finance play central roles in achieving this target.

The Department of Foreign Affairs has direct responsibility for both Development Cooperation Ireland (DCI) and the Advisory Board for Development Cooperation Ireland.

Ireland’s partner countries for bilateral aid in Africa include: Ethiopia, Lesotho, Mozambique, Tanzania, Uganda and Zambia. The priorities, which are being applied to these countries, include (a) poverty reduction (b) focus on Sub-Saharan Africa (c) providing untied aid i.e. not conditional on the use of Irish goods or services (d) partnership principles between Ireland and recipient countries, other donors, multilateral organisations, NGO’s and Missionaries (e) ensuring aid effectiveness (f) high standards of accountability and (g) coordinating and aligning development policies to deliver coherence between national, EU and other donor policies. These priorities have been aligned with best international practice and independently approved by the Development Assistance Committee Peer reviews.

The future expansion of the bilateral programme is directly linked to Ireland’s increasing ODA funding. The capacity of Development Cooperation Ireland to manage major expansions in ODA, must also be aligned with the expanding resources and with the organisational decentralisation from Dublin to Limerick. The Joint Committee is conscious of the need for a clear and transparent roadmap to guide these developments.

Focus Uganda

Uganda’s political history has been difficult. Following political instability in the late 1960’s, Idi Amin took control in a coup in 1971 and remained in power until 1979. During this period, massive human rights violations took place and the economic and social fabric of the country was destroyed, leaving Uganda as one of the poorest countries in the world. This was the backdrop facing the National Revolutionary Movement, which seized power in 1986 and has since ruled as a one party system. By 2003 Uganda had achieved a HDI ranking of 147 out of 175 countries. It’s ranking still positions it as one of the Least Developed Countries in the world. Since 1986 the ruling party have brought stability to the country and established what are generally recognised as progressive economic and political policies. It is against this background that Uganda became a bilateral programme country with Ireland in 1994.

Uganda in conjunction with donors, led by the World Bank, has developed a strong economic, social and political policy framework. Its progressive approach has meant that it has consistently been among the top economic performers in Africa. During the 1990’s, it achieved real GDP rates of growth averaging 7%, while the incidence of poverty has dropped from 56% of the population in 1992 to 35% in 2000.

However these achievements are being challenged by a strong population growth rate of about 3%.

The economy has traditionally been heavily dependent on agriculture, although lessening in importance; it still represents almost 40% of GDP. Coffee has been the number one export product for Uganda, but the global downturn in coffee prices has dramatically reduced the significance of coffee to 17% of total exports in 2003/04. While the export product base is being broadened, the economy remains vulnerable to global economic shocks. Developing new trade and value added opportunities with the EU, USA and elsewhere is therefore a key priority for the Government of Uganda.

Despite this economic record, key challenges, which the Government of Uganda must address in order to maintain the continued confidence and trust of the donor community include; addressing problems of corruption in Government and society and moving to a fully fledged democratic multi party system of government.

Uganda’s Policies, Programmes and Progress

The Ugandan Poverty Eradication Action Plan (PEAP) provides the strategic framework for guiding all Government policies. It commits the Government of Uganda to the overriding objective of tackling poverty. Its long-term target is to reduce poverty to less than 10% of the population by 2017. The PEAP is built around five pillars and a series of cross cutting issues.

All policy documents are linked to the PEAP to enhance coherence. Key policies include the Medium Term Competitive Strategy, the Strategic Export Programme, the Programme for Modernisation of Agriculture, Health and Education Strategies and the HIV/AIDS Strategy.

To date, achievements under the PEAP have been impressive and in some cases have nearly reached or even exceeded the 2015 Millennium Development Goals e.g. poverty reduction, net primary education enrolment rate, antenatal HIV/AIDS prevalence, access to safe drinking water (rural). While the Millennium Development Goals provide baseline targets, national targets are being extended in line with the Ugandan programmes.

A Shared Partnership Approach

Ireland’s bilateral partnership integrates with the PEAP strategy. Ireland’s strategy has been recently revised by Development Cooperation Ireland and outlined in a Country Strategy Paper for the period 2004-2006. Total planned expenditure over this period is €96.5 million of which nearly 30% is being directed through the Poverty Action Fund. The Education and Health sectors constitute a further 28% of the expenditure. The DCI strategy aims to deepen engagement on policy dialogue, ensure ongoing assessment of all programmes, focus on a limited number of sectors which are central to poverty reduction, while also expanding influence and collaboration with donor partners. Improved policy coherence will also enable both Ireland and donor partners to exert influence across a broader range of policy areas that may be outside the core focus of the Country Strategy Paper.

The EU (including Member States) accounts for roughly half of global development assistance. The EU has developed a Country Strategy Paper in partnership with the Government of Uganda. Under the European Development Fund, planned expenditure of €363 million will be targeted at transport, rural development and macro-economic support.

The NGO & Missionary Perspective

The role played by Non Governmental Organisations (NGO’s) and Missionaries in development work worldwide is recognised as being both important and complementary to the Irish bilateral programme. Their work and experience brings an extra dimension to Ireland’s contribution to the developing world. In order to maximise the impact of Ireland’s development work, the special role of NGO’s and Missionaries must be integrated into the overall strategic planning of Ireland’s ODA. Recent submissions to the Joint Committee by NGO’s and Missionaries have provided additional perspectives on the their priorities, issues and opportunities facing Uganda and Ireland’s development priorities.

These organisations encompass a variety of organisational models that are targeting the following priorities:

The submissions have highlighted a range of issues that are limiting development potential including; the conflict in the North and associated humanitarian crisis, the impact of HIV/AIDS, limited human and financial resources, poor governance and corruption, weak civil society as well as global terms of trade. Many of these issues are also viewed as the opportunities, which if addressed will accelerate sustainable development in Uganda.

In the context of the broader development priorities for Ireland, the submissions were broadly in support of the DCI Country Strategy Paper approach, however they also provided a checklist of areas that require additional consideration. These headline priorities are listed below:

Regional and International Considerations

Conflict in the Great Lakes region of Africa is an ongoing problem that is a root cause of serious humanitarian crises. The Lords Resistance Army (LRA), which is at the heart of the Northern Uganda conflict, is based in Southern Sudan. Diplomatic relations with Sudan have improved in recent years with the signing of cooperation agreements.

To date conflict resolution initiatives have failed to make progress on a peaceful resolution with the LRA; the main focus is currently on achieving a military victory in conjunction with progress on the Amnesty Act. Calls for third party intervention have been made with a view to moving the Northern Uganda conflict forward. This provides Ireland with an opportunity to play a more active role in seeking a peaceful resolution to this situation.

Uganda’s military involvement in the Democratic Republic of Congo (DRC) has been strongly condemned by donors. Ireland, in association with partner donors, has exercised its influence to (a) have Ugandan troops removed from the DRC and (b) ensure that the Government of Uganda investigates and prosecutes issues relating to illegal exploitation of natural resources from DRC and associated corruption.

HIV/AIDS has blighted the Sub-Sahara region with devastating effects on families, society, government services and economic development. While Uganda has been seriously affected by HIV/AIDS, the Government response has been exemplary. Its policies and political leadership have succeeded in bringing the HIV/AIDS prevalence rate down from an 18.5% rate in 1990 to 5% in 2001.

As with other developing countries, trade is a critical driver of wealth creation. However, the benefits of increased globalisation are not shared equally and the special needs and circumstances of developing countries must therefore be recognised in the context of world trade negotiations. Addressing structural weaknesses within countries such as Uganda, by investing in physical infrastructure, education, health, social and economic institutions, is central to its ability to participate in the global economy. In addition to achieving its ODA commitments, Ireland must also look to establishing multilateral trade rules, which on the one hand facilitate trade with developed countries and on the other match the needs of developing countries.

Recommendations

The Project Uganda review enabled the Joint Committee to consider the broad range of views and policies of stakeholders that are seeking to improve the livelihoods of Ugandans. With this analysis, the Joint Committee recommendations seek to complement the policies being implemented by the Department of Foreign Affairs. A recommendations matrix (Chart 9) has been designed to assist in the positioning of the recommendations in terms of policy and organisational priorities.

The Joint Committee recommendations are presented under four headings (a) Aid Channels (b) Policies on Uganda (c) Regional policies and (d) Organisational & Communication Opportunities.

Aid Channels

1.DCI should continue to use a range of aid modalities including budget support in the implementation of the Ugandan Country Strategy.

2.DCI should maintain a balance between aid modalities and continue to evaluate each channel in terms of effectiveness. Lessons from each channel must be captured in order to guide future policy direction.

3.The Department of Foreign Affairs / DCI should establish triggers for noncompliance with commitments associated with Country Strategy principles and budget support conditions.

4.Ireland should expand its multilateral influence on global issues which will have positive impacts on Uganda and other developing countries.

5.DCI and the Department of Finance should review and update multi-annual budgeting in the context of NGO and Missionary long term programmes.

6.The Department of Finance should map, during 2004, its steps to achieving the 0.7% Millennium Goal.

Policies on Uganda

7.The Department of Foreign Affairs / DCI should actively participate in the peace initiative to address conflict resolution in Northern Uganda.

8.DCI should prioritise humanitarian aid relief for Northern Uganda.

9.DCI should outline its plans for strengthening its emergency response in Northern Uganda.

10.DCI should expand initiatives which focus on agricultural marketing and value added trade opportunities.

11.DCI should review the implications of the privatisation of the agricultural extension service, especially for subsistence farmers.

12.DCI should use it’s influence to promote and facilitate the shift to multi-party government.

13.DCI should outline the Government of Uganda strategy for addressing the high incidence of HIV/AIDS in the military forces.

14.DCI to review with the Government of Uganda the impact of NGO registration.

Regional Policies

15.DCI should place additional focus on expanding regional influence in addition to supporting existing initiatives such as NEPAD.

16.The Advisory Board for Development Cooperation Ireland / DCI should analyse and outline how the progressive expansion of the bilateral aid programme can be used to establish policy, trade and development synergies with existing programme countries.

17.The Department of Foreign Affairs should present current arrangements and future opportunities for mainstreaming development implications across all Government policies.

Organisational & Communication Opportunities

18.DCI should examine opportunities for increased links and understanding between Irish and programme country parliamentarians, with a view to improving parliamentary feedback on issues and opportunities in partner countries.

19.DCI should present an annual update to the Joint Committee on Foreign Affairs by June, for the bilateral aid programme with particular emphasis on programme and activity evaluation.

20.The Advisory Board for Development Cooperation Ireland / DCI should present to the Joint Committee on Foreign Affairs its future organisational strategy in the context of decentralisation and expanding bilateral programme and increasing ODA resources.

Chapter 1

Ireland’s Development Assistance

Background

The relationships and roles of donors, recipient countries and intermediary channels for the delivery of development aid has been extensively reviewed, questioned and debated in recent years. This process has provided new opportunities and challenges for all concerned. The need for achieving increased accountability, efficiencies, improved speed of response and ultimately sustainability of development work has been given additional focus, against a growing demand for development assistance and solutions.

Recognising the primary role of countries to take responsibility for their own development is now widely accepted. Formal recognition of the importance of harmonisation between donors and partner counties was defined in the Rome Declaration on Harmonization¹ in 2003. The streamlining of the various roles and responsibilities has culminated in new Good Practice Guidelines for effective aid delivery. New approaches seek to reduce transaction costs and simplify communication channels between donor and partners in order to increase the effectiveness of programmes. It is in this context that direct budget support has been used with some countries.

Positioning

Ireland’s programme for Official Development Assistance (ODA) commemorates its 30^th year of existence in 2004. The scale of the programme has expanded significantly and currently stands at €480 million. It is planned to increase it to nearly €1 billion by 2007 in line with Ireland’s Millennium Goals.

The main organisational framework for managing Ireland’s ODA policy and operational activities is outlined in Chart 1.

Chart 1

Development Cooperation Ireland (DCI) is positioned as a Division of the Department of Foreign Affairs, thus facilitating strong integration of development cooperation policies within the broader foreign policies being pursued by the Irish Government. The Advisory Board for Development Cooperation Ireland is an independent body established to advise and oversee the ODA programme^*. However, despite the development of a strengthened organisational framework in line with the recommendations of the Ireland Aid Review Committee, JCFA Committee members have concerns about their lack of briefing on progress and developments regarding ODA².

Charts 2 outlines the 2003 positioning of Ireland’s ODA in the context of other Development Assistance Committee (DAC)^† countries. Ireland’s ODA was placed joint 7^th in this ranking for 2003 at 0.41% of Gross National Income (GNI).

Chart 2 NET ODA % Contributions From DAC Countries -2003

In order for Ireland to achieve its ODA Millennium Goal of 0.7% of GNI, significant budgetary increases in the order of 0.1% per annum must be provided for in the next three budgets.

A new measure of commitment to development has been designed by the Center for Global Development^‡ / Foreign Policy. This Commitment to Development Index ranks twenty-one of the world’s richest countries based on their dedication to policies that benefit the 5 billion people living in poorer nations worldwide. The new measure moves beyond standard comparisons of foreign aid volumes, to one, which is both quantitative and qualitative, by rating:

❏Both quantity and quality of foreign aid;

❏Openness to developing-country exports;

❏Policies that influence investment in developing countries;

❏Migration policies based on the net flow of legal immigrants from developing countries as a share of host-country population;

❏Support for creation of new technologies; the measure counts total government subsidies for research and development (R&D)-whether delivered through spending or tax breaks-as a share of GDP;

❏Security policies, based on the financial and personnel contributions that governments have made to peacekeeping operations and forcible humanitarian interventions;

❏Environmental policies are rewarded for high gasoline taxes, ratification of major environmental treaties, and contributions to international funds that assist developing countries in complying with such treaties.

Based on this new measure, Ireland is ranked 18^th in 2004 as per Table 1. This was down from 15^th position in 2003. Areas where Ireland dropped on the index since 2003 included aid, investment, environment and technology.

Table 1 Commitment to Development Ranking 2003-2004

The Irish Presidency of the EU also provided the Irish Government with an opportunity to highlight international development issues via a series of meetings and seminars.³ Key priorities identified for EU development assistance included:

❏The overriding aim of eradicating poverty and attainment of the Millennium Development Goals;

❏Establishing a stronger EU voice in multilateral institutions such as the UN, the international financial institutions and the WTO;

❏To improve coherence in various EU policies to better meet the concerns of developing countries;

❏To continue EU efforts to maximise the effectiveness of its aid, in particular building on the reform of Community aid.

Minister Kitt, when outlining the development initiatives being undertaken during the Irish EU Presidency also noted that⁴:

Much work needs to be done to achieve the millennium development goals and the EU needs to make greater efforts to fulfil its part of the bargain. In 2005, the UN will hold an important stocktaking of progress towards meeting the millennium development goals. At the start of the Irish Presidency we decided the EU should play a leadership role in that stocktaking, given that together we are the largest donor of development assistance worldwide and can, therefore, do much to help the developing world achieve the MDGs.

The Advisory Board for Development Cooperation Ireland

The Advisory Board was established in August 2002 with the mission to:

❏Oversee the expanding development cooperation programme;

❏Provide strategic direction;

❏Work closely with Development Cooperation Ireland to maximise the quality, effectiveness and accountability of the expanding programme.

The 2003 Annual Report for the Advisory Board was published in April 2004. It highlights a range of activities including:

❏Visits to development agencies such as the World Bank, International Monetary Fund, Development Assistance Committee of the OECD and the principal United Nations agencies to which Ireland contributes;

❏Visits to Zambia and Uganda;

❏Presentation of observations and recommendations to the Minister;

❏Engagement with DAC Peer Group Review

❏Liaison and reviewing Audit & Evaluation for ODA

❏Commissioning research as well as visits to research institutes

❏Reviewing staff resources of DCI

Monitoring the commitment to achieving the 0.7% MDG target by 2007, including communications to the Minister for Finance regarding same;

Establishing a Development Forum to enhance dialogue between Non Governmental Organisations (NGO’s) and Development Cooperation Ireland.

Development Cooperation Ireland

In June 2003 the Government’s development assistance programme changed its name from Ireland Aid to Development Cooperation Ireland (DCI). This re-branding places a stronger emphasis on the principle of working closely with developing countries in a partnership relationship in line with international best practice.

Ireland’s partner countries for bilateral aid in Africa include; Ethiopia, Lesotho, Mozambique, Tanzania, Uganda and Zambia. Table 2 outlines their respective Human Development Indices^§ in comparison with Ireland.

Table 2 Human Development Index and Partner Countries

DCI now prepare a country strategy devised in collaboration with the authorities of each programme country, civil society, other donors and a wide range of relevant interests. The strategy is considered and approved by DCI processes and a budget is assigned to cover it. The timeframe typically covers three years and DCI is establishing longer-term commitments with its development partners to assist with long term planning of development activities.

Chart 3 Ireland’s Partner Countries in Africa

The Ireland Aid Review Committee mapped the strategic path of Ireland Aid, now DCI⁵. In this regard a recent DAC Peer Review⁶ noted that:

These guiding principles are consistent with the orientations espoused by the DAC and place Ireland at the cutting edge of international development policy. Ireland consequently continues to set the high standards for its official development co-operation programme...

The key priorities of DCI include:

(a) Poverty Focus

The DCI programme has as its absolute priority the reduction of poverty, inequality and exclusion in developing countries. The Millennium Development Goals** sets international targets, which provides a framework for the setting of DCI’s priorities.

(b) Geographic Focus

Since its inception in 1974, the DCI programme has had a strong geographic focus on Sub-Saharan Africa.

(c) Untied Aid

DCI’s programme has always been untied, i.e. it is not conditional on the use of Irish goods or services.

(d) Partnership

DCI works in close partnership with: recipient countries; other donors; multilateral organisations; and non-governmental organisations and missionaries. The partnership principle seeks to ensure that recipient countries have ownership of their own development.

(e) Effectiveness

DCI is strongly committed to ensuring aid effectiveness, and makes continuous efforts to improve reporting and monitoring and to promote a results-based culture.

(f) Accountability

The management and expenditure of the DCI budget is in accordance with the public financial procedures governing the use of State resources and internal audit procedures in order to ensure full accountability.

(g) Coherence

DCI seeks to ensure programme coherence via donor coordination and alignment of development policies with national and EU policies.

DCI Aid Modalities

DCI uses three channels for administering bilateral aid, i.e. Area Based Programmes, Sector Wide Approaches and Budget Support.

Area Based Programmes (ABP)

These programmes work with district authorities on the development of capacity in all of the services provided at district level and typically encompass health, education, water and sanitation, roads and good governance. Ugandan ABP’s support the Kibaale, Kumi and Kiboga districts with a view to enabling economic, social and local government development.

Sector Wide Approaches (SWAps)

DCI has been using SWAps for administering aid since 1997 in Uganda and Tanzania. SWAps involve a strong partnership relationship with the following characteristics⁷:

...all significant funding for the sector supports a single sector policy and expenditure programme, under Government leadership, adopting common approaches across the sector, and progressing towards relying on Government procedures to disburse and account for all funds.

Budget Support

Budget support is contributed directly to the budget of the partner country. This facilitates donors to cooperate and pool their funding to address a wider range of development needs. This type of support requires strong oversight of the budgetary process and strict controls to ensure that funding is only spent on the elements for which it was agreed with the partner country.

Key benefits of budget support is that, firstly it simplifies the management of aid and sharpens its focus, and secondly by acting in concert donors should be able to bring more influence to bear on the government.

International Best Practices

DCI implements best international experience and practice. In this regard the Development Assistance Committee (DAC) of the OECD have outlined best practice guidelines for harmonising aid⁸. The guiding principles for providing co-ordinated aid are outlined below:

1. Donors should support country-owned, country-led poverty reduction strategies, or equivalent national frameworks, and base their programming on the needs and priorities identified in these.

2. Development assistance should be provided in ways that build, and do not inadvertently undermine, partner countries’ sustainable capacity to develop, implement and account for these policies to their people and legislature.

3. Co-ordination of donor practices enhances the effectiveness of aid, particularly for aid dependent countries. Aid co-ordination should, whenever possible, be led by partner governments.

4. Reliance on partner government systems, where these provide reasonable assurance that co-operation resources are used for agreed purposes, is likely to enhance achievement of sustainable improvements in government performance.

5. Partner countries and donors have a shared interest in ensuring that public funds are used appropriately.

6. Donors should work closely with partner countries to address weaknesses in institutional capacity or other constraints that prevent reasonable assurance on use of co-operation resources.

7. The development of appropriate partner country systems will often be a medium term process. Until donors can rely on these, they should simplify and harmonise their own procedures to reduce the burden placed on partner countries.

8. No single approach is suitable for all countries. The manner in which harmonisation is implemented needs to be adapted to local circumstances and institutional capacities.

9. Assistance to empower civil society and support effective organisations representing the private sector also can enhance improvements in partner government performance.

Sweden has recently developed a new policy for global development. This policy recognises that combat poverty policies are to be considered across all policy areas. International assistance will in future become a task for all policy areas. This approach seeks to ensure consistent and complementary policies between domestic and international affairs⁹.

Ireland’s Future Strategy

The Ireland Aid Review Committee and DAC highlighted the need on the one hand, to plan for the increasing ODA finances that will be available as Ireland achieves its 0.7% Millennium Goal, and on the other hand, to maintain its focus on a limited number of programme countries. The DAC Peer Review 2003 also highlighted the importance of maintaining a regional perspective on development issues. It noted that:

DCI’s HIV/AIDS activities were the first to focus explicitly and substantially on addressing regional dimensions but have also shown up an institutional challenge to doing so because DCI is currently not structured to respond regionally. It can consequently be expected that DCI will be developing its capacity as an institution to address regional issues. In the meantime, and as a minimum, Ireland should continue taking account of the regional implications of its actions at national levels.

It is clear that the recommendations of the DAC Peer Reviews have an important role in directing future strategy. While consideration is being given to extending the bilateral programme to south-east Asia, no decision has yet been taken by the Government regarding any new programme country.

Regarding additional programme countries in Africa, while DCI has examined a number of potential new programme countries in Africa, no absolute front-runner has been identified. However a small office will be opened in Sierra Leone later in 2004 to develop aid activity in both Sierra Leone and Liberia.

David Donoghue (DCI Chief Executive) noted that while there is no obvious expansion planned for the African bilateral programme, any such initiative would be dependent on the availability of resources.^†† The medium to long-term development of the bilateral programme cannot therefore be properly mapped, without a clearer definition of the phased expansion of Ireland’s ODA.

In addition to maintaining a clear focus on the expansion of the Ireland’s ODA, DCI must also ensure that its institutional capacity and effectiveness is maintained while it undergoes decentralisation to Limerick.¹⁰

Chapter 2

Uganda - The Country

Context

A simple comparison between Ireland and Uganda (Table 3) helps to underline the many challenges facing Uganda, were it to mirror the level of development, which Ireland currently enjoys. Uganda is a landlocked country with a population 6.5 times that of Ireland. Its GDP per capita of $248, is over 150 times less than Ireland’s. The underlying poverty and HIV/AIDS problems, shape Uganda’s demographic profile. While the birth rate is three times that of Ireland, the death rate per 1000 is twice Ireland’s.

Table 3 Socio-economic indicators - Ireland and Uganda

Note: See Appendix 2 for a comprehensive list of Ugandan socio economic indicators.

When compared with other African countries, Uganda is generally considered to be a model for economic development. The World Bank described its performance as:

Despite daunting disadvantages - low per capita income, a landlocked location, and high population density - Ugandan growth has averaged 6.3 percent over the past 12 years, inflation has been curbed since 1994, and per capita growth has averaged 3.3 percent annually. Uganda has consistently been among the top economic performers in Africa¹¹.

Evolving Government in Uganda

Uganda has had a turbulent and difficult political history. In 1962 it achieved independence from Britain. However, by the late 1960’s political instability had set in and in 1971 a coup led by Idi Amin took control of the country. The Amin years brought more turbulence and human rights violations. The Amin Government was overthrown in 1979, however it was not until Yoweri Kaguta Museveni assumed power in 1986 that some basis for political stability was established. However Uganda was by this time one of the poorest countries in the world.

Since seizing power, The National Revoluntary Movement (NRM) under the leadership of Museveni, has governed as a one party system. It plans to establish a multi party system, however ongoing concerns are being raised by Uganda’s opposition coalition of the seven main political groups‡‡. The opposition coalition withdrew from the talks with the government on the country’s political transition to a multiparty system in early April 2004¹².

Despite current concerns, significant steps have been taken to establish a democratic framework for the country. In 1995 a new Constitution was adopted; 2000 saw a referendum on the type of political system to be used, resulting in a reaffirmation of the existing movement system; and in 2001 Presidential and Parliamentary elections were held. 2006 will see the next Presidential election.

The Constitutional Review Commission is bringing forward proposals for constitutional change in Uganda. DCI’s Country Strategy Paper notes, “A successful transition to multi party democracy is therefore a prerequisite for donor confidence and for further development.” The transition to multi party politics is now a very important challenge for President Museveni. His willingness to facilitate this democratic process will be seen as a key measure of his legacy.

While positive democratic initiatives are to be welcomed, it is recognised that there is a need to continue supporting efforts that promote human rights and basic democratic patterns¹³.

The Government is faced with ongoing rebel disruption in the north of the country from the Lord’s Resistance Army and their leader Joseph Kony. A Peace Pact signed with the Uganda National Redemption Front (UNRF) II rebel group of West Nile, and an Amnesty Law (Jan 2000) have resulted in significant surrendering of rebels and ending of hostilities¹⁴. Hostilities with neighbouring countries of Sudan and Democratic Republic of Congo (DRC) have added to military expenditure by the Government of Uganda (GOU). The GOU has now withdrawn its forces from the DRC following international protest, although United Nations concerns have been raised about the presence of former Ugandan fighters still in the DRC¹⁵. Uganda continuously affirms its full support to the Lusaka peace process§§.

The LRA has repeatedly attacked refugee camps and sites for internally displaced people (IDP) in Northern Uganda. The human rights violations, child abductions and atrocities are regularly highlighted in the media. This conflict situation has now increased the number of IDP’s to 1.4 million¹⁶ by the end of 2003. This figure is now estimated to have grown to 1.6 million IDP’s.

Economy

During the 1990s, Uganda experienced strong economic performance. In particular, Uganda’s real GDP grew at an average annual rate of nearly 7 percent during the 1990s, supported by sound macroeconomic policies, structural reforms and a more stable internal security throughout much of the country. GDP grew by about 15 percent a year on average between 1990/91 and 1998/99, and the current economic growth prospects are above 5% (Table 4).

Table 4 Economic Indicators

Export earnings were boosted due to favourable terms of trade during the mid-1990s. Coffee exports, which contributed to the positive terms of trade, grew by 17 percent a year on average during this period¹⁷. Along with strong growth in government revenues, inflation was also brought under control, averaging about 5 percent a year over the latter part of the decade. Headline inflation is currently about 6%. (Chart 4).

Chart 4 Inflation Trends 2003

These positive macroeconomic developments contributed to a significant reduction in the incidence of poverty, dropping from 56 percent of the population in 1992 to 35 percent in 2000. Since 1998/99, there has been a slowdown in real GDP growth partly reflecting the negative effect of a collapse in the international price of coffee. Increased donor assistance helped to mitigate the negative impact of the economic slowdown and deteriorating terms of trade. The increased donor assistance helped expand government spending on primary education and other poverty reduction programmes.

Population trends

Uganda’s population increased at a rapid pace of around 3% per annum between 1995 and 2000 from 19.3 to 22.2 million people. If this trend continues, Uganda is projected to have a population of 36.8 million by 2015.¹⁸ This population growth rate is higher than other African countries, such as Tanzania (2.9%), Kenya (2.7%) or Zimbabwe (2.2%).

This high population growth is likely to slow down economic performance and put pressure on service delivery. In particular, poorer families, which have the largest families, will typically suffer most. The Government has developed a population programme, which aims at encouraging a manageable family size in order to reduce poverty and improve the quality of life and raise the standard of living of people.

Trade

2003 estimates for Uganda’s trade indicate a deterioration in the terms of trade (Table 5). This trend is mainly due to a substantial increase in imports estimated at 19 percent compared to the levels registered in the first half of 2002/03. Exports also registered an increase of 21.5 percent during the period.

Table 5 Balance of Payments

Note: See Appendix 3 for listing of exports by product.

Since 1992/93, export earnings have risen steadily, except for the period between 1997/98 and 2000/01, which saw a decline, mainly due to a reduction in coffee receipts. However, non-traditional exports have been increasing, highlighting their potential as a source of foreign exchange. In 2000/01 non-traditional export earnings were higher than traditional exports by US$ 81.3 million. The ratio of coffee receipts to non-traditional exports has been steadily reducing, signifying a gradual diversification of the export sector. Commodities that Government has identified as strategic for exports, based on Uganda’s production potential and World market prospects, include coffee, tea, livestock, fish, cotton, horticulture, and Irish potatoes¹⁹. (Appendix 5 details 2002/03 exports by product line.)

Trade between the EU and Uganda constituted a significant €260.7 million of imports to the EU and €129 million of exports to Uganda in 2002. The 1998-2001 decrease in imports is in large part due to the international slump in coffee prices (Table 6).

Table 6 EU Trade with Uganda 1995-2002

Note: See Appendix 3 for product details of EU Trade with Uganda

Uganda is eligible to trade with the US under the The African Growth and Opportunity Act (AGOA). While US trade with Sub-Saharan Africa in 2002 constituted $6 billion in exports and $18 billion in imports. For Uganda, AGOA exports of only $32,000 were achieved, although this level of trade was projected to increase significantly in 2003.²⁰ President Museveni^*** recently highlighted the importance of AGOA for the Sub-Saharan Region and the urgent need to increase Uganda’s trade under AGOA 3.

Uganda is currently ranked 58^th (Table 7) by UNCTAD in terms of Foreign Direct Investment (FDI). Increasing the level of FDI continues to be a priority for the Government of Uganda. Investment in Uganda rose from 16% of GDP in 1991/92 to 20.7% of GDP in 2001/02, which is one percentage point higher than the average investment rate for African countries between 1991-2001.²¹ However, higher levels of private investment will be required in future to sustain rapid economic growth in Uganda.

Table 7 Foreign Direct Investment Performance

Natural Resources

Uganda’s natural resource base produces cobalt, columbium (niobium), gold, iron ore, steel, tantalum, tin, and tungsten. Uganda also produces industrial minerals such as gypsum, kaolin and other clays, lime, phosphate rock, salt, and vermiculite, as well as building materials i.e. cement, limestone and pozzolanic materials. See Appendix 4 for an outline of the industry structure.

Uganda did not have production facilities for crude petroleum or petroleum products in 2002. It consumed 3.54 million barrels (Mbbl) of imported petroleum products compared with 3.43 Mbbl in 2001 and 2.7 Mbbl in 1997. An exploration well in the Semliki Basin yielded a mixture of hydrocarbons in 2002. Following on from this find, further exploration of the northern part of Lake Albert was planned, as was the conducting of seismic surveys over the entire area of Lake Albert.²²

Agriculture and Food

Agriculture plays a dominant role in Uganda’s economy, with 85% of Ugandans living in rural areas. It represents almost 40 per cent of Gross Domestic Product, 85 per cent of export earnings, and the bulk of raw materials used by the mainly agricultural-based industrial sector. Agriculture therefore plays a central role in poverty reduction. While the Plan for Modernisation of Agriculture aimed to provide a strategic framework for eradicating rural poverty, doubts have been expressed as to whether it will address the fundamental problems of the sector.²³ The 2004 PEAP is prioritising agricultural research and extension services as a route to improving agricultural performance.

As with many other African countries, Uganda also faces food insecurity, despite its abundance of good quality agricultural land. Civil strife and insecurity in the northern and eastern regions of the country continue to hamper food production leading to food shortages as well as significant population displacement. Food distribution by the World Food Programme (WFP) is estimated to reach over 1.4 million displaced persons, 160,000 refugees and other vulnerable persons.²⁴

The cereal crops are planted during the March-May period and harvested during August —December in Uganda^‡‡‡. The 2003/04 second season harvest is expected to be above average due to well distributed rainfall. The medium term forecast for March-May 2004 is also positive with above average rainfall expected over most of the country. Table 8 outlines the 2004 cereal balance sheet. It is estimated that 75,000 tonnes of cereals will be needed in food aid during the year.

Table 8 Cereal Supply/Demand Balance for the 2004 Marketing Year (Jan./Dec.)

Chapter 3

Uganda - Policies & Programmes

Policy Framework

Uganda has developed an impressive framework for the implementation of Government policies. The Poverty Eradication Action Plan (PEAP) is the overarching planning document, which guides medium term sector plans, district plans and the budget process. It also functions as Uganda’s Poverty Reduction Strategy Paper (PRSP). All other policy documents are tied to the PEAP.

A Poverty Status Report (PSR) is used to review and monitor the PEAP on a biannual basis and this document serves to update progress achieved in reducing poverty in Uganda. Annual PRSP Progress Reports are also produced, which provide a more regular monitor of policy impacts. Undertaking these policy documents and reviews involves extensive consultation between Government, donors and civil society organisations.

Policies

Poverty Eradication Action Plan

The first PEAP was launched in 1997. It outlines policies and targets to 2017, while recognising that ongoing revisions and updating of all policies is critical. The PEAP commits the Government of Uganda (GOU) to the overriding objective of tackling poverty in the country. This objective therefore seeks to drive all other policies. The successful implementation of the PEAP aims to reduce absolute poverty^§§§ to less than 10 per cent of the population by 2017 and to increase the well-being of all Ugandans.

The PEAP was revised during 2003/04 and the PEAP 2004 is built on five ‘pillars’ plus a range of associated cross-cutting issues as per Table 9.

In seeking to reduce absolute poverty, the Government is pursuing policies that are ‘pro-poor’. This framework provides a broad policy base, which seeks to drive economic, political and social improvements simultaneously against a background of scarce resources and significant structural problems.

Table 9 PEAP 2004 Pillars

The PEAP identifies the development objectives for the GOU and its development partners. A set of Partnership Principles has been established which are the rules by which each partner is to engage in the process, recognising that each party has a shared commitment.

The Partnership Principles rank the GOU order of preference for donor support modalities as follows:

1.General budget support

2.Budget support earmarked to the Poverty Action Fund

3.Sector budget support

4.Project aid

Donor funds constitute approximately half of the Ugandan budget. Table 10 outlines the current contributors during 2000-2003.

Table 10 Donor Contributions for Uganda

Note [1] Variations in the duration of donor commitments are related to the timing of individual country strategies/plans.

Note [2] The Poverty Action Fund is a forerunner of budget support and funds are contributed both as general and as earmarked contributions. Ireland in 2000 contributed $5 million in funds earmarked for the health and education sectors. Two donors for administrative convenience continue to channel their un-earmarked or general funds through this mechanism.

Government of Uganda Budget 2003-2004

The Ugandan sectoral budget for 2003/2004 amounted to USH2302 billion^****, representing 17.7% of GDP. Education and Public Administration were the largest areas of sector budgets at 4.1% and 2.8% respectively of GDP. Chart 5 maps the importance of the various sectors of the budget. See Appendix 5 for additional breakdown of the 2003/04 budget.

Chart 5 Sectoral Budgets 2003/04

Expenditure by Sector

Uganda has benefited from debt relief under the Heavily Indebted Poor Countries (HIPC) Initiative and the enhanced HIPC. Eligibility for debt relief under the enhanced HIPC Initiative is recognition by the international community of the progress made in implementing economic reforms and poverty reduction. Uganda is one of ten countries to have reached the Completion Point^†††† under the HIPC initiative. It reached its Completion Point under the enhanced HIPC Initiative in May 2000. In Net Present Value (NPV) terms, HIPC assistance amounted to US$347 million under the original framework and US$656 million under the enhanced framework.²⁵ The total debt-service under the HIPC Initiative relief for Uganda will yield roughly $2 billion in nominal terms (see Table 11).

Table 11 HIPC Initiative: Committed Debt Relief —Status February 2004

Economic Growth Strategy

The principles underlying the economic growth strategy include the following:

1.Open trade and exchange rate policies

2.Avoiding distortions to resource allocation

3.Commercialisation of agriculture

4.Building human capacity

5.Ensuring national security

The Medium Term Competitive Strategy (MTCS), the Strategic Export Programme (SEP) and the Programme for Modernisation of Agriculture (PMA) are key elements for pursuing this strategy.

Medium Term Competitive Strategy

The MTCS is a cross cutting programme involving: Infrastructure, Financial Sector, Commercial Justice, Institutional Reforms, Micro and Small Enterprises and Trade/Globalisations.

Strategic Export Programme

Four major commodities, namely coffee, cotton, tea, and tobacco, have traditionally dominated Uganda’s export sector. However, these commodities have typically been exported in raw form without any significant value addition. In recent years, Uganda has seen considerable diversification into non-traditional exports that have higher added value. Non-traditional exports in aggregate now earn more than tea, tobacco and cotton combined, accounting for 64% of all goods exports.²⁶ Uganda’s strategic approach in promoting exports is to ensure that it captures additional value from its traditional export base and further diversifies into higher-value non-traditional export production.

Chart 6 maps the projected growth pattern for the agricultural and horticultural products being targeted under the SEP. While coffee exports are projected to improve, fish exports are planned to be a major export item valued at in excess of $100 million. Flowers have performed well in recent years and this sector is projected to grow exports to nearly $50 million.

Chart 6 Export Trade and Projections

Actual & Projected Export Earnings in SEP Sectors

Programme for Modernisation of Agriculture

The modernisation of the agricultural sector is seen as the fastest way of propelling the economy’s process of structural transformation and poverty reduction, as opposed to strategies such as import substitution, which have a very poor record of promoting economic development. In this regard the GOU is pursuing institutional reforms, to enhance the efficiency and effectiveness of public service provision, that are critical to such a strategy.

Key elements of the PMA include:

❏National Agricultural Advisory Services (NAADS)

❏National Agricultural Research System (NARS)

❏Micro Finance Outreach

❏Marketing and Agro Processing Strategy (MAPS)

❏Physical Infrastructure Development

❏Sustainable Natural Resource Utilization and Management

❏Agricultural Education

❏Cross-Cutting policies

HIV/AIDS Strategy

The National Strategic Framework for HIV/AIDS Activities in Uganda²⁷ spans the period 2000/1 to 2005/6. It sets down the following goals and targets:

Goal 1. Reduce the rate of HIV infection

❏Information, Education and Communication to promote behaviour change and reduce vulnerability;

❏HIV Voluntary Counselling and Testing (VCT);

❏Prevention of blood borne HIV transmission;

❏Sexually Transmitted Disease (STD) prevention and treatment;

❏Prevention of HIV infection through Mother to Child transmission (MTCT);

❏HIV vaccine.

Goal 2. Mitigate the health and socio-economic impact of HIV/AIDS at individual, household and community levels

❏AIDS care and treatment;

❏Socio-economic support.

Goal 3. To strengthen the National capacity to respond to the epidemic

❏Resource mobilisation and institutional capacity building;

❏HIV/AIDS information and research;

❏Training community based health workers in AIDS related surveillance, information collection and recording.

The strategic framework also gives strong focus to the institutional arrangements for implementing the various activities of the strategy, as well as to monitoring and evaluation of the strategy.

Health Strategy

The overarching policy framework for the health sector is the Health Sector Strategic Plan (HSSP). The HSSP is, among other things, designed around a basic minimum health care package, which targets cost effective interventions at the heaviest disease burdens. An important implementation problem of the HSSP is the chronic and substantial under funding of the health sector. The achievement of the minimum health care package has to be phased, because it is not yet affordable in its entirety. Priorities include: immunisation, malaria control, information, education and communication, reproductive health and HIV/AIDS.

Education Strategy

Education is a key component of Uganda’s poverty eradication strategy. Education assists mothers to raise healthier children, while farmers are helped to become more productive. Education is also a means of empowering the poor, especially girls in poor households. The 2001 Uganda Poverty Status Report observed that both the gender gap as well as the poverty gap have been more or less closed after Universal Primary Education (UPE) was introduced. Achievement of UPE remains Government’s top priority. The main challenges remaining are the improvement of quality in order to improve attendance, retention and achievement; ensuring equity of access through facilitation of attendance by the poor and girls; expansion of access to post-primary and tertiary education within tight resource constraints, and ensuring retention and attendance of those already enrolled, particularly girls.

The education sector in the revised PEAP faces the twin challenges of delivering primary education, according to the aspirations of UPE, and strengthening the performance of higher levels of education.

Achievements in Context of MDG’s

Despite facing many serious development issues, the achievements of Uganda in recent years are noteworthy. Table 12 summarises the progress made on a range of MDG and PEAP targets.²⁸ In some cases the progress achieved to date is significantly ahead of the MDG target, e.g. Net Primary Enrolment Rate and Antenatal HIV/AIDS prevalence. While the MDG Goals provide baseline targets, national targets are being extended in line with the Ugandan programmes and these will be incorporated into the revised PEAP.

Table 12 Comparison of MDG Targets and PEAP Targets

Chapter 4

Uganda-Ireland & EU

Shared Agenda

Ireland’s bilateral partnership with Uganda integrates with Uganda’s Poverty Eradication Action Plan (PEAP). 2003 bilateral aid amounted to €32 million and these funds were mainly channelled to programmes for Health, HIV/AIDS, Education and Good Governance, Rural Development and Agriculture.

DCI’s strong commitment to partnership principles has resulted in most of its assistance being administered through three channels:

❏Area-based programmes;

❏SWAps;

❏Budget support.

Since 2001 Budget Support has become an increasingly important channel for distribution of ODA (Chart 7). It constitutes almost one third of the overall expenditure. Budget Support is now being targeted at specific areas of development e.g. poverty action fund, education and health.

Chart 7 DCI Ugandan Expenditure 2000-2003

DCI Expenditure-Uganda

Country Strategy

The current DCI plan for Uganda is outlined in the Country Strategy Paper 2004-2006.²⁹ This strategic plan is build around the Ugandan planning process and is structured to align with the 5 Pillars of the PEAP. The key principles underpinning the CSP are as follows:

❏Sustainable Poverty eradication continues to be the overarching goal;

❏Policy coherence across the programme and with other government policies;

❏Promotion of partnership and local ownership;

❏Quality improvement as central to sustainability;

❏Good governance, gender equality and addressing HIV/AIDS are prerequisites for achieving poverty eradication;

❏Recognition of the central role of civil society^‡‡‡‡ in achieving sustainable development.

The DCI strategy aims to achieve the following outputs:

❏Deeper engagement with policy dialogue and assessment of aid modalities;

❏Assess the poverty focus of all development programmes;

❏Focus on a limited number of sectors/areas which are central to poverty reduction;

❏Increase engagement with the governance area and a more strategic approach to conflict resolution and democratisation;

❏Ensure that district engagement and project-type support contributes to central level analysis, policy development and planning;

❏Develop a clear civil society strategy;

❏Ensure a greater focus on monitoring, documentation and lesson learning from good practices;

❏Contribute to strengthening partnerships;

❏Mainstream crosscutting issues of HIV, Gender, Governance and Environment;

❏Provide strategic process and technical support and enhance promotion of inter-sectoral linkages;

❏Renew focus on quality and effectiveness of expenditure and on performance;

❏Collaboration with donor partners vis a vis joint analysis, studies, reviews etc.

❏Greater focus on policy coherence within DCI and promote linkages and teamwork across programmes and countries.

Budget 2004-2006

DCI expenditure of €30.5 million per annum in real terms is planned for Uganda. Approximately 30% of this expenditure is being channelled to the Poverty Action Fund and ~50% is directed to programmed budget support activities, mainly for education, health, justice and local government development. The main agricultural focus is on the agricultural extension services with 3.1% of the overall budget. Table 13 details the projected budget for Uganda over the 2004 —2006 period.

Table 13 DCI CSP Budget 2004-2006

EU AID

EU ODA (including Member States bilateral programmes) accounts for roughly half of global development assistance. ODA managed by the European Commission amounted to ~€6 billion in 2003. EU aid operates through two channels, (1) the EU budget which is subject to the same parliamentary procedures as other budget programmes and (2) Aid to ACP countries which is funded directly by Member States for the Commission to manage on their behalf. This latter aid is channelled through the European Development Fund (EDF) under the Cotonou Agreement. Africa is the main target for EU ODA, representing 40% of the expenditure, (€2.3 billion in 2002).³⁰

The EU Uganda Country Strategy Paper 2002-2007³¹ outlines the following financial instruments for the programme:

1. EDF 9 — Envelope A (€246 M). This envelope is to cover long-term development operations within the Country Strategy. The indicative allocation of this envelope to the elements of the strategy is as follows:

❏Transport (roads), €93.5 M

❏Rural development, €36.9 M

❏Macro-economic support, €93.5 M

❏Other programmes (governance, non-state actors, reserve), €22.1 M

2. EDF 9 — Envelope B (€117 M). To cover unforeseen needs as indicated in the Cotonou Agreement.

3. EC budget lines could be used to finance specific operations. Finance from this instrument will be decided in accordance with the procedures for the budget line concerned and will depend on availability of funds. Apart from the above-mentioned financial instruments, of which the A-envelope is the main programmable basis for the Indicative Programme, the 9th EDF includes also the “Investment Facility” as a financing instrument managed by the European Investment Bank.

Key focal sectors of the programme include:

❏Transport;

❏Rural development;

❏Macro economic support and economic reform;

❏Capacity building for good governance;

❏Institutional support to non-state actors.

Chapter 5

Uganda — NGO’s & Missionaries

The role played by NGO’s and Missionaries in development work worldwide is recognised as being both important and complementary to the Irish bilateral programme. Their work and experience brings an extra dimension to Ireland’s contribution to the developing world. The Mill Hill Missionaries commenced work in Uganda at the end of the 19^th century, and have been working there ever since. In order to maximise the impact of Irelands development work, the special role of NGO’s and Missionaries must be integrated into the overall strategic planning of Ireland’s ODA. The CEO of DCI recently noted that^§§§§:

Non-governmental agencies are key partners for donors like Ireland. Such organisations have an important contribution to make at the policy and service delivery levels. They have a central role in short-term humanitarian relief and longer-term development. We value them greatly as partners.

This review provided an opportunity to engage with key NGO’s and Missionaries, with a view to determining their perspective on the problems and solutions applicable to Uganda. In addition a briefing on a new University initiative is outlined below.

NGO’s

Six NGO’s (Concern Worldwide, GOAL, OXFAM, SELF HELP, Trocaire and World Vision Ireland) were invited to make submissions to the JCFA vis a vis the Project Uganda review (see Appendix 6). This section summarises the work of these NGO’s in Uganda, as well as their views and comments on priorities for ongoing development work in Uganda.

The submissions highlight considerable strengths in terms of strategic planning, innovativeness of approach and distinctive competencies. Each NGO has a separate identity and organisational model ranging from direct interventions to working with partners, CSO’s and local Government. (Table 14 details the NGO strategic priorities for working in Uganda). This organisational scope adds different solutions, voices and approaches to addressing the issues of Uganda. Notwithstanding this diversity, there is significant agreement amongst the NGO’s in terms of limiting factors and potential opportunities for development (Table 15 a & b).

The Committee acknowledges the significant and important role that NGO’s are undertaking in Uganda. The following analysis is a summary of the detailed NGO submissions to the Joint Committee. The submissions are categorised under:

Strategic priorities; Issues limiting development potential; Opportunities for accelerating sustainable development; and Ireland’s development priorities.

Table 14 Summary of NGO Strategic Priorities

The presentations have highlighted a range of issues that are limiting development potential including; the conflict in the North and associated humanitarian crisis, the impact of HIV/AIDS, limited human and financial resources, poor governance and corruption, weak civil society as well as global terms of trade. Many of these issues are also viewed as the opportunities, which if addressed will accelerate sustainable development in Uganda. Tables 15a and b provide a checklist of issues and opportunities in Uganda from the NGO perspective. The conflict situation in Northern Uganda is a major common theme and concern amongst the NGO’s.

Table 15a Summary of Development Issues and Opportunities

Table 15b Summary of Development Issues and Opportunities

Table 16 provides a summary of the NGO perspective on Ireland’s development priorities for Uganda. This summary categorises the views under a number of functional headings. It provides an overview of the priorities, some of which may have been expressed by more than one NGO.

Table 16 Summary of NGO Views on Ireland’s Development Priorities

Missionaries

The Mill Hill Missionaries, the Medical Missionaries of Mary and the Franciscan Missionary Sisters for Africa are working in Uganda. An outline of the work of the Mill Hill and Medical Missionaries of Mary follows:

Mill Hill Missionaries

The Mill Hill Missionaries have worked in Uganda since the end of the 19^th century. Education has been a primary focus with both primary and secondary schools over the last century. Recent initiatives by the Mill Hill Missionaries in Karamoja is focusing on adult literacy, peace work, primary and secondary schools as well as job training. The Mill Hill Missionaries experience spans over one hundred years of Uganda’s history. It still considers it imperative that we continue to help Uganda. It concludes that, ‘Ireland’s development priorities for Uganda should come from a Ugandan vision, developed in joint study and partnership.’

Medical Missionaries of Mary

The Medical Missionaries of Mary (MMM) are currently working in Southern Uganda in the Masaka, Rakai and Ssembabule districts. They are planning to work in Uganda for the foreseeable future. Their current work is strongly focussed on addressing the problem of HIV/AIDS. This work includes; home care for people with AIDS, teacher training, counselling training, training orphans in sustainable agriculture, HIV testing, pastoral care, food distribution to people with AIDS and orphans, supporting the running of Kitovu Hospital, community based health care, kindergarten school, prison clinics, working with street children, working with alcoholics as well as income generation initiatives for people with HIV/AIDS and orphans.

The MMM’s have highlighted the following limiting issues for development in Uganda:

❏Supplying basic human needs in the face of the HIV/AIDS crisis

❏Corruption at all levels, some of which is related to poverty

❏The inability to keep ‘good’ and well trained staff and in financing proper staff salaries

❏The need to increase the level of professional staff in line with growing programmes

❏Inadequate government financial support to run a hospital.

The MMM’s consider that the need for improved marketing of local produce is a priority. Improved funding channels are also seen as a priority area for Missionaries. Traditionally funds were available through the Irish Embassy in Uganda for the MMM’s, however the new channel is through the DCI co-funding arrangement. While the DCI Missionary Development Fund now covers all funding requests, the funding available has only slightly increased. Improving flexibility and increased financial resources is therefore a priority for the MMM’s both for current work and expanding programmes.

Mountains of the Moon University

The Mountains of the Moon University initiative is currently seeking to establish a new private University in Fort Portal to serve the Western Region of Uganda. This initiative has an Irish connection with its Vice Chancellor and Assistant Academic Register being volunteers from Ireland. The aim of the University (which is awaiting a licence to operate) is to:

❏Educate students in a wide range of disciplines

❏To develop practical, entrepreneurial and ethical skills

The first postgraduate course will be degree courses in: Horticulture, Business Management and Education, as well as Post Graduate Diplomas in: Environmental Management, Agricultural Education and Petroleum Technology. This focus will complement the increasingly intensive use of land for agricultural and horticultural production while also addressing issues such as soil conservation.³²

Chapter 6

Uganda & Africa

Sudan

The LRA attacks on Northern Uganda and the movement of LRA troops between Sudan and Uganda has heightened tensions between both countries for many years. The conflict situation has also caused massive refugee movements between both countries.^*****

The passing of an Amnesty Bill^{†††††} by the Parliament of Uganda and the signing of the Nairobi Agreement (Appendix 7) between Ugandan and Sudanese Governments in December 1999 appeared to offer signs of a breakthrough for resolving the conflict situation in Northern Uganda. Five years on, the reports of child abductions, killings, atrocities and massive population displacements abound.³³ The United Nations Security Council has condemned ‘the appalling atrocities carried out by the so-called Lords Resistance Army (LRA)’ while also stressing ‘the importance of exploring all peaceful avenues to resolve the conflict, including through creating a climate in which a solution based on dialogue might be found’.³⁴

Numerous attempts of conflict resolution since 1999, (facilitated by The Carter Center, the Governments of Canada, Egypt, Libya and UNICEF) have failed.³⁵ Diplomacy seems to have given way to a reliance on a military solution to address the LRA. In June 2002 the Governments of Uganda and Sudan signed ‘Operation Iron Fist’, which allowed the Ugandan army access to Southern Sudan to pursue LRA rebels. In a recent statement³⁶ President Museveni outlined the military successes over the LRA, ‘in spite of the obstructions from the donors in relation to our defence budget (they insisted that it should not exceed 1.9% of GDP)’. He also stated that, ‘I am renewing my readiness to talk with the terrorist leaders, either directly , or through intermediaries, in order to expeditiously resolve this problem’. Relations between Sudan and Uganda took a further positive step on 16^th April 2004 when the 4^th Ministerial Commission³⁷ between Uganda and Sudan signed Cooperation Agreements^{‡‡‡‡‡}.

Achieving conflict resolution and sustained normalisation of diplomatic relations between Uganda and Sudan is essential to solving the range of humanitarian issues blighting the Northern Uganda/Southern Sudan region.

In addition to resolving the Northern Uganda conflict, Sudan must also resolve its long-standing conflict situation in Darfur, Western Sudan. This situation is currently being described as the worst humanitarian situation in the world and could become, within a number of months, the worst man-made humanitarian catastrophe since Rwanda in 1994. Calls for international political and emergency humanitarian measures are urgently being sought in order to address this crisis situation³⁸.

Northern Uganda conflict

Northern Uganda faces unique challenges due to the ongoing social, cultural and economic problems in the region. Key factors include its long period of insecurity; the large influx of internally displaced persons and refugees; the highest levels of poverty in Uganda; the HIV/AIDS threat linked to migrations; human rights challenges; and the tradition of pastoral agriculture. The Ministry of Finance, Planning and Economic Development³⁹ has documented the following policy options for the region:

1.Military option

2.Peaceful means of resolving conflict

❏Amnesty

❏Diplomatic means

❏Involvement of CSO’s in peace solutions especially religious leaders

❏Involvement of traditional leaders

3.Strategic plans and investment

4.Reintegration and settlement

The International Crisis Group⁴⁰ have considered the Northern Uganda conflict and concluded that:

…the government, supported by the international community, needs to develop and implement a comprehensive strategy that encompasses security, political and humanitarian action. It must reform and reorient the army, develop a clear path for negotiating with those insurgents who wish to stop fighting, and advance the country’s transition to greater democracy. It must also work immediately with international and Ugandan partners to alleviate the humanitarian suffering of the approximately 1.5 million persons who have been displaced by the conflict.

A central theme of this analysis is the existence of a North-South divide, which must be addressed, with the active support of the Acholi people, in order to achieve a sustainable solution to the region. The analysis also notes that consideration should be given to invoking a third party facilitator, (perhaps a “troika” of the U.S., Sudan and a neutral country such as Ireland, Austria or Switzerland), in order to prepare the path for direct negotiations between the GOU and the LRA at a suitable time.

Recently the Acholi Religious Leaders Peace Initiative⁴¹ made an appeal for third party mediation to assist with a resolution to the conflict. It stated:

…we now call for a pro-active and deliberate third party mediation process to be put into place. We call upon the Government of Uganda to seek the services of well-known and respected mediator given the goodwill from our development partners to support a peaceful resolution of the conflict.

In addition to the humanitarian dimension to the conflict, there is also a HIV/AIDS dimension. The conflict is not only hampering the combating of HIV/AIDS, but also contributing to the prevalence of HIV/AIDS in the region. Northern Uganda has prevalence rates above the national average. Norbert Mao^§§§§§, when speaking on the relationship between AIDS and conflict, said that, “Among the Ugandan armed forces the infection rate is 66%”. He went on to say: “While there is war, all the retroviral treatments will never reach people. If food convoys are being ambushed, then what of convoys taking anti-retroviral drugs or the various anti-AIDS drugs cocktails? Peace is a major prerequisite for any intervention effort.”

It is clear that while the approach to date has had some success militarily; it has failed to provide sustainable solutions to the underlying problem.

Democratic Republic of Congo

War broke out in the Democratic Republic of Congo (DRC) in 1998 when Rwanda and Uganda invaded the east of the country in order to drive back from their borders the forces held responsible for the 1994 Rwanda genocide. The DRC received military assistance from Zimbabwe, Namibia and Angola.

The formation and inauguration of a transitional national government, consisting of an unprecedented blend of members of the previous government, former rebel groups, unarmed opposition members and representatives from civil society, brought the country’s deadly five-year civil war to an official end in July 2003.

The war in the DRC has led to massive population displacements and as many as 3.3 million people have died as a direct or indirect consequence of the conflict. Some 17 million people, about one-third of the population, do not have enough to eat, with 3 million facing a critical lack of food. This regional conflict has caused massive population displacements, estimated at 2.2 million in the eastern region of DRC.⁴²

Uganda’s involvement in the DRC has been strongly condemned by donors.⁴³ Following UN investigations into illegal exploitation of natural resources in the DRC, the GOU instituted a Judicial Commission of Inquiry into Illegal Exploitation of Natural Resources and other forms of Wealth of the DRC in May 2001, under the Chairmanship of Justice David Porter. This Commission reported in 2003 and subsequently the GOU issued a Government White Paper with recommendations to implement the Porter Commission recommendations.⁴⁴

In September 2003 a joint UN declaration was signed by Uganda, DRC, Rwanda and Burundi on the “Principles on Good Neighbourly Relations and Cooperation” in which the countries pledged not to interfere in each other’s affairs. While the DRC transitional Government has developed greater coherence and authority, the situation requires ongoing monitoring and involvement by the UN.

HIV/AIDS

In the context of the HIV/AIDS pandemic, Sub-Sahara Africa has been most blighted by this disease. It is estimated that by 2020 there will be over 50 million deaths in Sub Sahara Africa and 100 million people will have been infected. The impact of this disease is devastating for Africa in terms of families, society, government services and economic development. A UNAIDS Director has recently said that “AIDS is not a health issue, it is a development issue”.^****** In this context, serious questions are being asked in terms of the adequacy of response from the developed countries. Justin Kilcullen, Director Trocaire said “The answer is simple. This is about people, it is about families. It is about investing in Africa. Is there the political will?”^{††††††}” He concluded that, “The West is not moving quickly enough to own the global problem of HIV/AIDS.”

Against this background, Uganda, although still with a serious HIV/AIDS, has made considerable progress and has shown political leadership in addressing the HIV/AIDS problem. Table 16 outlines the progress made by Uganda in reducing the national level of HIV/AIDS prevalence to 5%.

Table 16 HIV/AIDS Prevalence in Selected African Countries

The response of the Ugandan Government to addressing the epidemic included:⁴⁵

❏Comprehensive co-ordination mechanisms established in the early epidemic stages;

❏Political commitment and support demonstrated from the highest level i.e. from the President down;

❏An openness policy adopted at an early stage;

❏A multiplicity of actors involved in the HIV/AIDS activities;

❏Multisectoral approach to HIV/AIDS control, including Government, CSO’s and Faith-based organisations

❏Driving policies through the decentralisation system of governance

❏Applying the balanced ABC model of HIV/AIDS prevention;

❏Successful minimal socio-economic recovery programme

Chart 8 presents the results of an African survey on the impact of AIDS. Here we see that 85% of the survey respondents in Uganda knew a friend or relative that had died of AIDS.

Chart 8 Research Results on Impact of HIV/AIDS

Loss of Friends or Relatives to AIDS

% Who Know Someone Who Has Died

Source: AFROBAROMETER Briefing Paper No. 12, April 2004

Key challenges facing Uganda due to HIV/AIDS include:

❏Nearly 2.1 million orphans in Uganda and often a child is now the head of the family unit;

❏The high levels of HIV/AIDS prevalence in the army, the northern conflict and its associated humanitarian crisis;

❏Expanding and funding the effective use of antiretroviral drugs;

❏Impact of HIV/AIDS on the productive and service sectors;

❏Care and support for people living with HIV/AIDS;

❏Services for counselling and prevention of transmission from mother to child;

❏Impact on food security and poverty.

HIV/AIDS Response

In seeking to support the prevention of HIV/AIDS and the reduction of its impact in developing countries, DCI is:

❏Strengthening the capacity of DCI as an organisation to respond effectively to HIV/AIDS;

❏Mainstreaming HIV/AIDS into all development programmes supported by DCI;

❏Supporting specific programmes that have been shown to be effective in impacting on the progress of the epidemic.

Specific HIV/AIDS Programmes supported by DCI at a Global level are detailed in Table 17

Table 17 DCI HIV/AIDS Contributions 2003

A recent private initiative is the launch of the REALTA HIV/AIDS Global Foundation.⁴⁶ REALTA is seeking to expand on the success of Irish and African doctors and pharmacists, who are creating uniquely African-sensitive methods for administering the HIV/AIDS medicines. As part of its Drug Therapy Evaluation programme, Realta has completed a pharmacokinetic evaluation of two formulations of the HIV drug saquinavir in Ugandan patients. This study is a collaboration with the Joint Clinical Research Centre, Kampala and Pharmaccess International.

Trade Development

While the growth in globalisation across the world is creating many opportunities, the harnessing of these opportunities for developing countries can often be a serious challenge. The benefits of globalisation have been shared unequally. UNCTAD recognises that, “Most developing countries, … especially African countries and LDC’s, have remained on the margins of the globalization process.⁴⁷” While the positive benefits of trade could in theory outstrip the impact of ODA, trade is not a substitute for ODA when it comes to improving the lot of LDC’s. Due to the structural inadequacies of LDC’s, international trade reform will only have minimal benefit to their economies.

Dr. Michael Woods^{‡‡‡‡‡‡} at Sao Paulo elaborated this policy context when he stated that:

It is essential to address their structural weaknesses through appropriate policies and adequate and sustained investments over time in physical infrastructure, education, health and social and economic institutions. This requires resources that can be only provided by significant and sustained increases in grant ODA….It is of critical importance to understand the practical implications, both positive and negative, for poor countries of the specific trade reform measures we may undertake, such as the reduction or eventual removal of subsidies, to plan for them and where appropriate take measures to mitigate their negative impacts on the poor and vulnerable.

An analysis by UNCTAD⁴⁸ of the role that trade plays in the development of LDC’s outlines the special circumstances affecting the poorest countries and concludes that:

What is required is not simply a process of export expansion, but also the promotion of developmental linkages between growing export activities and the rest of the economy. For an inclusive process of economic growth, it is particularly important that the development complementarities between agriculture and non-agricultural activities be strengthened.

This necessitates the development of other agricultural and non-agricultural value added opportunities, which will not only assist export expansion but also create alternative employment for the changing agricultural industry. Trade restrictions on exports of value added agricultural products from developing countries to the Western World have been highlighted as a key limiting factor in the economic development of developing countries.^§§§§§§

Establishing multilateral trade rules, which on the one hand facilitate trade with developed countries and on the other match the needs of developing countries and in particular LDC’s is therefore critical. Key requirements for this context were outlined at a recent Joint Committee on Foreign Affairs Chairpersons Conference including:^*******

❏Developing trade rules that are biased in favour of developing countries to give them the opportunity to work their way out of poverty;

❏Allowing developing countries protect their agricultural sector markets, in particular to promote and preserve food security;

❏Establishing timetables for meeting the UN 0.7% of GNP in ODA;

❏Shifting from an economic to a human development approach when considering debt sustainability.

In this context UNCTAD⁴⁹ recently agreed in Sao Paulo that:

Enhanced coherence between national development strategies, on the one hand, and international obligations and commitments, on the other, would contribute to the creation of an enabling economic environment for development. There is a need to broaden and strengthen the participation of developing countries and countries with economies in transition in international economic decision-making and norm-setting.

Chapter 7

Conclusions & Recommendations

Conclusions

Ireland has established an impressive overseas development aid programme under the auspices of the Department of Foreign Affairs. Successive Ministers and staff associated with the programme have set high standards. These standards have been independently recognised by the Development Advisory Committee of the OECD. The aim of the programme is to be distinctive and world-class in quality.

In this context, the Taoiseach set Ireland’s target of reaching ODA levels of 0.7% of GNI by 2007 as part of the Government’s Millennium Goals. This commitment was lauded internationally and the achievement of the target is now critical to maintaining Ireland’s world-class positioning. Failure to meet this self-imposed target will raise serious question marks for Irish parliamentarians.

Ireland has strategically focussed on working with Least Developed Countries. Africa is the focal point of Irish development activities, with six partner countries, including Uganda. Development Cooperation Ireland is the central organisation for the administration of ~ €400 million of Ireland’s €480 million 2004 ODA. Expanding ODA levels in line with Ireland’s Millennium Goals has important implications for the organisation and structure of DCI, as well as for the strategic expansion of the bilateral aid programme. Mapping the ongoing priorities and options for DCI and the ODA programme can be used to facilitate parliamentary accountability and public understanding, commitment and participation in the expenditure of significant development public funds.

Ireland’s focus on least developed countries and provision of untied aid are significant and distinctive features. The contrast between Ireland and Uganda is stark in terms of GDP per capita, population and geographical positioning. However, like Ireland, Uganda has in recent years made and continues to make significant economic and social progress. The complexity of the challenges facing Uganda and Africa has meant that new ways of undertaking development activities are needed. New channels for transferring aid to partner countries have been developed and greater cooperation between international donors is now seen as best practice. New practices have necessitated new perspectives e.g. viewing the issues of developing countries from the lens of the developing countries as well as from the developed country lens.

The design of agreed Country Strategy Papers between donors and developing countries is one example of current best practice. The use of Budget Support channels, i.e. transferring aid directly into the budget framework of the developing country, for use through its own administrative infrastructure, has been undertaken by Ireland in line with new ways of undertaking development work. This system has been a learning process, which involves new accounting and monitoring practices. While it may at times be criticised, it is essential to test, monitor, review and adjust new practices with a view to championing better operating procedures for development aid.

Addressing the underlying problems of Uganda involves influencing the very heart of how the country functions. While DCI is implementing a range of specific development programmes over which it has significant control, it also can influence issues, either directly or through the multilateral community, which are strategically important for Uganda. The influence that donors exert can therefore be a strategic driver for change. Negotiations around issues such as budget support can create opportunities for influencing other strands of policy. In this regard Ireland must maximise its influence with Uganda.

Mutual trust is an essential element for good working relations between Ireland and Uganda. This trust is built on the basis of agreeing common development strategies and priorities in a transparent environment. High standards of governance and democracy are central to maintaining this trust. Where these principles are breached, programme and donor triggers are required to censure unacceptable policies and practices. This is an area where additional work is required in order to maintain ongoing confidence in the development programme in Uganda.

The DCI Country Strategy for Uganda places strong emphasis on health and education over the period 2004-2006. It also extends its scope to Justice, Law and Order, Local Government, Agricultural Advice Services, HIV/AIDS and Humanitarian Relief. It is noteworthy that agricultural activities constitute a small element of the programme, against a country background where agriculture employs 80% of the population. Additional agricultural marketing focus could provide a strategic link between this productive resource, added value activities and new trade opportunities for Uganda.

The conflict situation in Northern Uganda has been a recurring theme in this analysis. Increasing defence expenditure and humanitarian relief, human rights abuses, governance and democracy issues, and civil insecurity, are all outputs of this situation. Conflict resolution is therefore a number one priority for the development of Uganda. Ireland should utilise its experience, neutral status and influence with the Government of Uganda and international partners to drive the peace initiative for Northern Uganda. Increasing the emergency response to the worsening humanitarian situation in the North is also a number one priority. Ireland’s response needs to be reviewed in this context.

While aid is a crucial element of Ireland’s development policies, it is only one aspect of the total development toolkit. Improving trade opportunities is of critical importance to Uganda. Ireland should therefore develop its own and EU trade policies with a view creating new trade and foreign direct investment opportunities which will assist developing countries, such as Uganda, to establish sustainable economic growth opportunities in an increasingly global market.

Recommendations

The Project Uganda review enabled the Joint Committee to consider the broad range of views and policies of stakeholders that are seeking to improve the livelihoods of Ugandans. With this analysis, the Joint Committee recommendations seek to complement the policies being implemented by the Department of Foreign Affairs. A recommendations matrix (Chart 9) has been designed to assist in the positioning of the recommendations in terms of policy and organisational priorities. No doubt different actors will apply different priorities and view the organisational implications in different ways. Reviewing and updating the matrix over time will indicate how recommendations are being implemented and integrated into the ODA programme.

Chart 9 Recommendations Matrix

The Joint Committee recommendations are presented under four headings (a) Aid Channels (b) Policies on Uganda (c) Regional policies and (d) Organisational & Communication Opportunities.

Aid Channels

1.DCI should continue to use a range of aid modalities including budget support in the implementation of the Ugandan Country Strategy.

2.DCI should maintain a balance between aid modalities and continue to evaluate each channel in terms of effectiveness. Lessons from each channel must be captured in order to guide future policy direction.

3.The Department of Foreign Affairs / DCI should establish triggers for noncompliance with commitments associated with Country Strategy principles and budget support conditions.

4.Ireland should expand its multilateral influence on global issues which will have positive impacts on Uganda and other developing countries.

5.DCI and the Department of Finance should review and update multi-annual budgeting in the context of NGO and Missionary long term programmes.

6.The Department of Finance should map, during 2004, its steps to achieving the 0.7% Millennium Goal.

Policies on Uganda

7.The Department of Foreign Affairs / DCI should actively participate in the peace initiative to address conflict resolution in Northern Uganda.

8.DCI should prioritise humanitarian aid relief for Northern Uganda.

9.DCI should outline its plans for strengthening its emergency response in Northern Uganda.

10.DCI should expand initiatives which focus on agricultural marketing and value added trade opportunities.

11.DCI should review the implications of the privatisation of the agricultural extension service, especially for subsistence farmers.

12.DCI should use it’s influence to promote and facilitate the shift to multi-party government.

13.DCI should outline the Government of Uganda strategy for addressing the high incidence of HIV/AIDS in the military forces.

14.DCI to review with the Government of Uganda the impact of NGO registration.

Regional Policies

15.DCI should place additional focus on expanding regional influence in addition to supporting existing initiatives such as NEPAD.

16.The Advisory Board for Development Cooperation Ireland / DCI should analyse and outline how the progressive expansion of the bilateral aid programme can be used to establish policy, trade and development synergies with existing programme countries.

17.The Department of Foreign Affairs should present current arrangements and future opportunities for mainstreaming development implications across all Government policies.

Organisational & Communication Opportunities

18.DCI should examine opportunities for increased links and understanding between Irish and programme country parliamentarians, with a view to improving parliamentary feedback on issues and opportunities in partner countries.

19.DCI should present an annual update to the Joint Committee on Foreign Affairs by June, for the bilateral aid programme with particular emphasis on programme and activity evaluation.

20.The Advisory Board for Development Cooperation Ireland / DCI should present to the Joint Committee on Foreign Affairs its future organisational strategy in the context of decentralisation and expanding bilateral programme and increasing ODA resources.

¹ OECD, Rome Declaration On Harmonization, 25 February 2003.

^* The Board is composed of 11 voluntary members and two ex-officio members, i.e. the Minister of the State at the Department of Foreign Affairs with special responsibility for Development Cooperation and Human Rights and the Director-General of Development Cooperation Ireland.

² Joint Committee on Foreign Affairs, Sub-Committee on Development Co-operation, Members contributions to Meeting on Wednesday, 5 May 2004.

^† The Development Assistance Committee (DAC) is the principle body through which the OECD deals with issues related to co-operation with developing countries.

^‡ The Center for Global Development is dedicated to reducing global poverty and inequality through policy-oriented research and active engagement on development issues with the policy community and the public. A principal focus of the Center’s work is the policies of the United States and other industrial countries that affect development prospects in poor countries.

³ Development Cooperation Ireland, Statement by Minister of State for Development Cooperation and Human Rights, Mr Tom Kitt, T.D., to the Development and Cooperation Committee of the European Parliament , 20 Jan 2004

⁴ Joint Committee on Foreign Affairs, Conference of Chairmen of Foreign Affairs Committees, Presentation by Minister Tom Kitt, Dublin Castle, 24^th May 2004

^§ The HDI is compiled by the United Nations Development Programme and it measures country achievements in terms of life expectancy, educational attainment and adjusted real income.

⁵ The Department of Foreign Affairs, Report of the Ireland Aid Review Committee, 2002

⁶ OECD, DAC Peer Review — Ireland, 2003

**The MDG’s seek to: Eradicate extreme poverty and hunger; Achieve universal primary education; Promote gender equality and empower women; Reduce child mortality; Improve maternal health; Combat HIV/AIDS, malaria and other diseases; Ensure environmental sustainability; Develop a global partnership for development.

⁷ Mick Foster, New Approaches to Development Co-operation: What can we learn from experience with implementing Sector Wide Approaches?, Centre For Aid and Public Expenditure, October 2000.

⁸ DAC, Harmonising Donor Practices for Effective Aid Delivery, DAC Guidelines and Reference Series, OECD 2003

⁹ The Swedish Parliament, Sweden’s New Policy For global development, December 2003.

^†† Presentation by David Donoghue to the Joint Committee on Foreign Affairs Sub-Committee on Development Co-Operation on 5^th May 2004

¹⁰ Tom Arnold, CEO Concern, Decentralisation poses threat to effectiveness of Irish overseas aid, Irish Times, 24^th May 2004.

¹¹ World Bank Operations Economic Department, Uganda Policy, Participation, People, May 2001

^‡‡ The opposition coalition (G7) parties include: Uganda People’s Congress, Democratic Party, Conservative Party, Reform Agenda, the Free Movement, Justice Forum and National Democrats Forum.

¹² Nengbiao, W. (2004) Uganda’s multiparty talks nipped in bud, www.chinaview.cn, 6-4-2004

¹³ Government of Uganda European Commission, (2002) Uganda - European Community Country Strategy Paper and National Indicative Programme for the period 2002-2007, Ministry of Finance, Planning and Economic Development

¹⁴ Ministry of Finance, Planning and Economic Development, Uganda Poverty Status Report 2003

¹⁵ Nalugo M. 2,000 Ex-Fighters Still in Congo — UN, www.allafrica.com, 3-4-2004

^§§ The Lusaka Peace agreement was brokered in July 1999 between DRC, Rwanda and Uganda to bring about an end of conflict between the countries. In July and August 2002 , the DRC signed agreements with Rwanda (the Pretoria Agreement) and Uganda (the Luanda Agreement) to initiate the full withdrawal of Rwandan and Ugandan troops from DRC territory.

¹⁶ US Committee for Refugees, World Refugee Survey 2004, 24 May 2004

¹⁷ IMF and The International Development association, UGANDA, Updated Debt Sustainability Analysis and Assessment of Public External Debt Management Capacity, 26 August 2002.

¹⁸ Ministry of Finance, Planning and Economic Development, Uganda Poverty Reduction Strategy Paper Progress Report, March 2002

¹⁹ Ministry of Finance, Planning and Economic Development, Summary of Background to the Budget 2001/2002, March 2002

²⁰ US President Report to Congress, 2003 Comprehensive Report on U.S. Trade and Investment Policy Toward Sub-Saharan Africa and Implementation of the African Growth and Opportunity Act, May 2003

^*** Paper presented at the UNCTAD Conference in Sao Paulo, June 2004.

²¹ Government of Uganda, Strategies to Promote Economic Growth, Progress Report, May 3002

^††† The Performance Index is shown for three-year periods to offset annual fluctuations in the data. The indices cover 140 economies for as much of the period as the data permit.

²² US Geological Survey Minerals Yearbook, The Mineral Industries of Kenya and Uganda, 2002

²³ UNDP, Uganda Human Development Report 2002, The Challenge of HIV/AIDS: Maintaining the Momentum of Success, 2002

²⁴ FAO, Food Supply Situation and Crop Prospects In Sub-Saharan Africa, April 2004

^‡‡‡ The main food crops include cereals, roots, tubers, plantains, pulses, maize, millet and sorghum.

^§§§ PEAP research in Uganda highlighted: insecurity, poor education, poor health, isolation, powerlessness, toiling with little benefit and lack of information as direct experiences or concerns about poverty.

^****The exchange rate for Ugandan Shillings to US Dollars ranged from 1860 to 2010 during June/Dec 2003 period.

^†††† The Completion Point is the point at which a country receives the remaining balance of its assistance that was committed at the qualifying decision point of the scheme. The timing of the Completion Point is linked to the implementation of pre-agreed key structural reforms.

²⁵ International Monetary Fund and International Development Association, Heavily Indebted Poor Countries (HIPC) Initiative—Statistical Update, March 31, 2004

²⁶ Government of Uganda, Strategies to Promote Economic Growth, Progress Report, May 2002

²⁷ Government of Uganda, The National Strategic Framework for HIV/AIDS Activities in Uganda 2000/1-2005/6, March 2000

²⁸ Ministry of Finance, Planning and Economic Development, 2003, Uganda’s Progress in Attaining the PEAP Targets- in the Context of the Millennium Development Goals, Background Paper for The Consultative Group Meeting, Kampala, 14-16 May 2003.

²⁹ Development Cooperation Ireland, Uganda Country Strategy Paper 2004-2006, March 2004

^‡‡‡‡ Civil society constitutes a broad range of organisations in society, which are not part of Government structures. They are typically not-for-profit organisations.

³⁰ House of Lords European Union Committee,EU Development Aid in Transition, Report with Evidence, 12^th Report of Session 2003-04, 29 April 2004.

³¹ Government of Uganda / European Commission, Uganda - European Community Country Strategy Paper and National Indicative Programme for the period 2002-2007,

^§§§§ Presentation by David Donoghue, Director General of DCI, to the Joint Committee on Foreign Affairs Conference of Chairmen of Foreign Affairs Committees. On Monday, 24 May 2004, Dublin.

³² Dr. Patrick Davey, Vice Chancellor, Mountains of the Moon University, Briefing, June 2004

^***** The United Nations refugee agency estimates there is 223,000 Sudanese refugees in Uganda, while more than 250,000 Ugandan refugees who fled to Sudan were repatriated toward the end of the 1980s.

^{†††††} The Amnesty Bill aimed to ensure peace and security for all Ugandans by adopting a policy of reconciliation aimed at pacifying insurgent groups. It offered immunity from prosecution to those who had engaged in ‘armed rebellion’ against the National Resistance Movement government.

³³ Calum Macrae, Uganda’s fallen child rebels, BBC News, 8/4/2004

³⁴ United Nations, Press Statement on Northern Uganda by Security Council President, Press Release SC/8057 AFR/900, 14/4/2004

³⁵ Patrick Oguru Otto, Implementing the 1999 Nairobi Agreement, Conciliation Resources, ACCORD 11, 2002, www.c-r.org

³⁶ The Monitor (Kampala), We Are Sure of Final Victory Soon, Yoweri K. Museveni, President of the Republic of Uganda, 16 April 2004, www.allafrica.com

³⁷ Government of Uganda, 4th Joint Ministerial Commission between Uganda and Sudan, Ministry of Foreign Affairs, Government of Uganda, 16/04/ 2004.

^{‡‡‡‡‡} The Minister of State for Foreign Affairs (International Affairs) holding the Portfolio of Minister of Foreign Affairs Hon. Tom Butime together with his Sudan Minister for Foreign Affairs H.E Mustafa Ismail Osman adopted and signed the report of Senior Officials on the Cooperation between Uganda and Sudan. They also signed four agreements i.e.; 1. Frame Work Cooperation Agreement — 2. Agriculture Cooperation Agreement — 3. Ministry of Foreign Affairs Cooperation — 4.Animal Resource and Fisheries.

³⁸ International Crisis Group, Sudan: Now or Never in Darfur, ICG Africa Report No. 80, 23 May 2004.

³⁹ Ministry of Finance, Planning and Economic Development, Post-conflict Reconstruction, The Case ofr Northern Uganda, Discussion Paper 7 (Draft), April 2003

⁴⁰ International Crisis Group, Northern Uganda: Understanding and Solving the Conflict, 14^th April 2004

⁴¹ Acholi Religious Leaders and Cultural Peace Initiative, Appeal for Third Party Mediation In The Protracted Conflict of Northern Uganda, www.acholipeace.org, 8^th March 2004

^§§§§§ Presentation by Norbert Mao, Ugandan M.P. speaking to the Joint Committee on Foreign Affairs Conference of Chairmen of Foreign Affairs Committees, 24 May 2004, Dublin

⁴² Department of Foreign Affairs, Africa Section, Democratic Republic of the Congo (DRC) —Political Background Note, 10 February 2004

⁴³ Brian Cowen T.D., Minister for Foreign Affairs, Correspondence to Senator Pascal Mooney regarding DRC and Uganda, June 2004

⁴⁴ Government of Uganda, Government White Paper on The Report of the Judicial Commission of Inquiry Into Illegal Exploitation of Natural Resources and Other Forms of Wealth in the DRC,

^****** Presentation by DR. Meskerem Grunitzky Bekele, Director of Africa Division, UNAIDS, speaking on HIV/AIDS: A Governance Challenge at the EU Presidency Seminar on Africa, 22-23 April 2004, Dublin.

^{††††††} Justin Kilcullen, Director Trocaire speaking at ‘Building Political Will and Commitment on HIV/AIDS’ session of EU Presidency Seminar on Africa, 22 April 2004, Dublin.

⁴⁵ Hon. Dr. Elioda Tumwesigye, Good Governance for an Effective Response to HIV/AIDS in Africa, AWEPA EU Presidency Seminar on Africa, 22-23 April, Dublin.

⁴⁶ REALTA HIV/AIDS Global Foundation, www.realtafoundation.com

⁴⁷ UNCTAD, UNCTAD XI-The Spirit of Sao Paulo, 13-18 June 2004

^{‡‡‡‡‡‡}Dr. Michael Woods, Chairperson of Joint Committee on Foreign Affairs speaking at the UNCTAD High Level Roundtable Discussion on Trade and Development in Least Developed Countries, San Paulo, 13-18 June 2004.

⁴⁸ UNCTAD, The Least Developed Countries Report 2003, 27/5/04

^§§§§§§ Address by President Museveni of Uganda at the Center for Strategic and International Studies, 16^th June 2004, www.allafrica.com

^*******, Presentations by Colin Roche, Oxfam Ireland & Oisin Coghlan, Christian Aid Ireland, to the Joint Committee on Foreign Affairs Conference of Chairmen of Foreign Affairs Committees, 24 May 2004, Dublin.

⁴⁹ UNCTAD, Draft Sao Paulo Consensus, Sao Paulo, 16^th June 2004