Ethiopia

Woreda
Studies

(In Three
Volumes)

Volume II: Annexes I — III

November
2001

World Bank
Country Office in Ethiopia

Country
Department 6

Africa
Region

Document
of the World Bank

Annex
1

Terms of
Reference for the Main Phase

Revision of April 10,
2000

1. Background

1.1 In
the five years since the approval of the Ethiopian Constitution, significant
variations have emerged in the capacity of different regions to deliver
services. At the same time, several major programs of decentralized national
service delivery have been initiated (the Education and Health Sector
Development programs) or are in the planning phase (the Food Security Program, a
national HIV/AIDS campaign). Since the impact of these programs relies heavily
on the extent to which decentralization can be made effective, there is a clear
need to understand the mechanics of decentralization in different parts of the
country. Such knowledge is currently fragmented among the various development
partners. In order to build on Ethiopian Government and donor community
knowledge of the formal and actual processes of decentralized planning,
budgeting, and implementation, a Woreda-Level Decentralization Study has been
proposed. This Study will draw on and improve the approaches tested the World
Bank’s Pilot Study of Awabel Woreda in Amhara Region (the Pilot Study is
attached).

2. The Objectives, Scope, and Geographical
Coverage of the Study

2.1 The Main
Phase of the Study (“the Study”) has three objectives:

to gather information on how
decentralization is working in practice, in relation to decentralized planning
and decision-making; woreda-level resource allocation and utilization; and
community-level planning, implementation and management of local
services

to
build on present knowledge of regional and subregional diversity in the
decentralization process.

to
inform Government and donors’ analysis of resource capacities and
constraints at the regional/ subregional levels, and thereby to improve the
future design of decentralized rural and urban development
programs.

2.2 The Study will expand on the scope of
the Awabel Pilot, giving greater emphasis to community dimensions in the
decentralization process.

2.3 The Study will also broaden the
geographical coverage of the Pilot to capture regional/ subregional variations
in the way decentralization is being interpreted and implemented. In addition,
the woredas selected for study will be stratified to permit an analysis of how
decentralization works in areas of settled cultivation, in areas where pastoralism predominates, and in
urban centers. The following sample will be used[1]:

Ec.
systems

Amhara

Oromiya

Afar

S. Nations

Food
surpl/Def.

FS
FD

Settled
cultivation

1
2

1
1

Pastoral

Urban

3.
Methodology

Sources of Information

3.1 The Study will
seek to clarify relations of accountability and authority between different
layers of subnational government, with a particular focus on the structures at
the woreda level and the formal and informal community structures below it. The
Study will gather information on resource flows and the deployment of public
personnel; on priority-setting, resource mobilization, and resource allocation
mechanisms; and on approaches to project implementation.

3.2 Three types
of data will be collected – quantitative,
descriptive, and interpretative. The work will draw on the pool of
existing GOE and donor information, analysis, and data on decentralization, and
will be informed by collective operational experience. Primary data collection
at official levels of enquiry will make use of questionnaires and structured/
semistructured interviews with key informants. This tier of investigation will
follow a similar approach to the work done in the Awabel Pilot. At community
level, consultation and listening techniques will be used, and a reflexive
approach adopted to allow communities’ own agendas to emerge more clearly.

Research Questions

3.3 Inquiries in the regions, zones ,and
woredas will focus on the following:

i)
Resource Flows and the Deployment of Public Personnel. Data of
a quantitative and descriptive nature will be gathered in order
to:

·
track
budgets and expenditures from the region through the zone to the woreda, and
will include estimates of local contributions in cash and
kind;

·
establish inventories of public personnel at the zonal,
woreda, and sub-woreda levels.

In parallel,
and for benchmarking purposes, information will also be compiled at a central
level and through desk study. to review existing Government/donor literature on
decentralization and to establish a baseline of service information from a wider
sample of woredas. This information will be cross-referenced with the data
gathered during fieldwork.

ii) PrioritySetting, Resource Mobilization,
and Resource Allocation Mechanisms.
The formal and informal rules governing the establishment of
priorities and allocations will be explored and attention paid to the extent to
which citizens’ preferences find voice. The accent will be on descriptive and
interpretative data, with a view to:

·
understanding
the regional policies that define the roles/responsibilities of local
governments/sector departments in planning, financing, and management of public
functions and how they contrast with what occurs in
practice;

·
identifying
administrative responsibilities at all levels and the degree of their
devolution;

·
exploring
the degrees of representation and consultation in the planning process, as
between the regional and the various subregional levels;

·
reviewing
the composition of the 1999 woreda plans, where these exist, and the process of
their formalization;

·
assessing
the degree of autonomy given to subnational entities to raise revenues for their
own use, their capacity to implement such provisions, and the details of the
revenue thus generated (for instance, in cash, materials,
labor);

·
examining
the forms of fiscal decentralization in use, and the degree of accountability
associated with them in practice;

·
understanding
how revenue responsibilities are allocated from regional to subregional
levels;

·
assessing
the degree of autonomy of subnational entities to determine how public
expenditures should be allocated.

iii) Approaches to Project Implementation.
The
relationship between authority and accountability in service delivery will be
explored, as will the presence of informal rules and systems of monitoring and
enforcement. Attention will be paid to the roles of communities in project
implementation and in performance monitoring. The data to be collected will
mainly be descriptive and interpretative in nature – with a view
to:

·
looking
at program implementation at woreda and kebele level from the perspective of the
efficiency and relevance of the services provided;

·
examining
the processes of procurement, contract supervision, and fund management and the
levels at which authority for these are located.

·
assessing
the adequacy of the staffing of zonal and woreda sector
bureaus.

This
aspect of the Study will be complemented by additional planned Bank work on
benchmarking service delivery quality using sample survey
instruments.

The Community
Dimension

3.4
Consistent
with the above, inquiries at the community level will focus on the following
issues:

The Needs of Communities and
their Expression

·
the role played by communities in identifying their
needs and the compatibility of expressed needs with woreda plans (where these
exist);

·
the involvement of communities in planning and
decisionmaking at the sub-kebele level and above;

·
the level of interaction/coordination between kebeles in
planning and decisionmaking.

Perceptions of Services and Recourse
Mechanisms

·
the extent of community reliance on government
structures for service delivery;

·
the contribution of alternative/informal/private agents
of service delivery at community level;

·
how communities rate the various services provided to
them;

·
avenues for community demonstration of dissatisfaction
with service delivery (both official and informal procedures).

Community Contributions to
Services

·
the level of community labor and financial contributions
to government and CBO-initiated services, and communities’ expressed
willingness/apparent capacity to make additional contributions;

·
the extent of community management/maintenance of
various types of services.

4.
Logistics

Staffing,
Timeframe

4.1 Continuous, sequential field visits are
planned between the latter part of April and the end of July/early August. Field
work will commence in Southern Nations (April/May) and will move to Afar (June),
then Oromiya (July), and finally to Amhara (August/early
September).

4.2 The size of the field team will vary,
and will consist of a core of World Bank Country Office staff and Federal
Government employees from the Prime Minister’s Office and the Ministry of
Development and Economic Cooperation. Donor technical staff will join the Study
for individual woredas. Team members among them will possess qualifications and
experience in the following areas: rural institutional economics; the analysis
and implementation of decentralization; specific sector knowledge in
agriculture, health, education, and social protection in Ethiopia; pastoralist
systems; and community research competence.

4.4 Data analysis, report writing, review
workshops, and report dissemination should be concluded by the end of
September/early October.

Annex
2

The Pilot: Awabel
Woreda

Summary

A) Planning and
Policy

·
There is evidence
of a process of gradual
decentralization of regional and zonal functions and responsibilities to the
elected officials in Awabel Woreda. Most notably, this includes a degree of
woreda control over the hiring of staff for primary level services, although the
woreda’s shortage of public funds is felt by officials to be constraining this.
On the whole, however, the woreda has yet to fully exercise the rights granted
to it by the Constitution, due in large measure to a failure to mobilize
significant local revenues.

·
There is grassroots participation in the process of
development planning and decision making, which permits communities to identify
their needs at sub-kebele level. However, this is not done within any indicative
resource framework, and development priorities are subsequently cut to fit the
available cloth by government officials at the woreda and zonal levels;
inevitably, this diminishes the decisionmaking input from woreda beneficiaries.

·
The decentralized planning process is also undermined by
the fact that the majority of the resources transferred to the woreda are tied to
specific sectors and projects (the exception being the SIDA grant). This builds
towards a significant divergence between the tentative needs identified at the
grass roots and the public expenditures and development projects approved at a
higher level. Increasing the untied resources at the woreda level could permit
more meaningful community participation and a more responsive approach to addressing community needs.

B) Resource
Mobilization

·
Awabel relies
heavily on budget transfers from the zone. Approximately 33 percent of
the funds (capital and recurrent) transferred to MGZ for the 14 woredas under
its jurisdiction were used at zonal level in 1998-99. Awabel Woreda received
less than 1 percent of the capital resources and less than 3 percent of the
recurrent resources transferred from the region to zone. On a per capita basis,
this amounts to less than US$3 per
annum, an amount which raises questions
about the necessity of such a complex process of decentralized planning. In truth the situation is even more
dramatic: of the regional government funding earmarked for Awabel in
1998-99, only 19 percent was allocated to community-identified projects, whilst
fully 80percent was devoted to the salaries and operating expenditures of
government officers stationed in the woreda.

·
The funds allocated
to the woreda are almost all earmarked for specific sectors/projects because of
a perceived incapacity to manage
funds by woreda inhabitants. Awabel does receive an untied grant from SIDA that
permits the woreda some real discretion in project selection, but this is an
exceptional situation in Ethiopia and only accounts for 14 percent of the woreda
resource envelope, or the equivalent of US$0.40 per capita.

·
Local resource
mobilization by the woreda amounts to another US$1.15 per capita per annum, and
is raised mostly from land use tax. This would appear well below the revenue
potential of the woreda, though more research is needed to confirm such a
hypothesis.

C) Implementation and
Participation

·
Awabel Woreda
reports staff shortages in all sectors, due to limited financial resources. It
would appear that this may contribute to the shortage of project identification
and resource budgeting skills, as compared to needs identification skills (which
are more easily attributed to lesswell qualified staff). The shortage of
manpower for primary level services does appear to be a major problem, though
the team was not able to establish whether the government technical staff are
efficiently used. This said, one measure that appears to have promise would be
to recruit locally and at economic rates from 12^th-grade graduates,
the supply of which is abundant in
Awabel.

·
Community
participation in the implementation of basic services in Awabel is limited to
tax contributions and the provision of labor. Community participation in the
management of schemes and the supervision of development finances was not
observed.

·
However, some
schools and school expansions and church [2]
construction has been undertaken under the direction of CBOs, evincing a
capacity to contribute to the development of projects which communities see as
important. Communities also supply the running costs of such schemes from
resources derived from the voluntary farming of special community plots.

The Woreda Administration and local
communities assume full responsibility for the operation and management of
rural roads and water supply schemes. As yet, though, little if any
maintenance appears to be taking place, and almost no community maintenance
organizations have been created.

·
Most public projects are contracted out to
the private sector, under supervision and payment by the woreda bureaus or the
zonal sector departments. If communities were involved more directly in the
contracting and fund management process, some of the alleged capacity
constraints reported to the team could well be
alleviated
[3].

Main
Findings

Planning
and Decision Making

The Amhara Region Constitution empowers
woredas to formulate and implement their own development plans, administer
primary schools and junior health institutions, direct basic agricultural
development activities, and construct and maintain lower grade rural roads
[4] .

Box 1: Formal Procedure of Development
Planning at Woreda Level

A plan drafting committee comprising nine
members at sub-kebele level (three elders, three women, and three youth)
representing 300-400 households identifies problems needing
action.
Sub-kebele draft proposals are then
aggregated at kebele level through a general meeting to which all households
(800-1200) are invited.
Kebele proposals are then aggregated at
the woreda level by the woreda development committee and sector bureaus.
Before submission to the Woreda Council,
the plan is informally discussed with the zonal authorities/zonal sector
departments to check for consistency with the five year plan, previous
performance, and cost implications [5].
After zonal vetting, the plans are
submitted to the Woreda Council for approval and then forwarded to the zone on
a formal basis.

This process permits different tiers of
representation to participate in defining needs within the process of
development planning. The needs of kebeles in Awabel Woreda during the year
1998-99 prioritized as follows:

Box 2: The Priority Requests Submitted to
Woreda Level by Kebeles

in Awabel Woreda
[6]

Identified as the top development
priority

No. of

kebeles

Water

Veterinary Services

Health clinics

School facilities

Credit service

Soil conservation

There was a significant gap between what was
identified at community level and what was then aggregated at woreda level, as
the community-level process was carried out without any indicative resource
framework. Needs identified at kebele level and below were amended at woreda
level, inter alia to include development agents’ accommodation and woreda
offices. However, in terms of overall priorities the woreda plan approximated
community-identified needs, as shown in Box 3. The woreda plan was then further
amended at zonal level, though, due
to limited financial resources.

Box 3: Capital Projects Requested and
Endorsed for Awabel Woreda in

1998-99 (EFY
1991)

Project Type By
Sector

Requested by
the

Woreda

Endorsed

by the
Zone

Development agent’s
house

Development agent’s
office

Veterinary
post

Veterinary
crush

Construction of rural water
points

New primary village
schools

School facilities
(furniture)

Health post
construction

Source: Information
Compiled from East Gojam, (Department of Planning and Economic
Development)

Resource
Mobilization and
Utlilization

a) The Collection of Finances and the
Process of Distribution

Article 79 of the Amhara National Regional
State Constitution empowers woredas to levy and collect local land use tax,
agricultural income tax and revenue from certain commercial
services[7].
In practice, however, the Regional Government determines tax rates following
discussions with representatives of the woredas and
zones. This was
not, however, interpreted by officials as a process that undermines the ethos of
decentralization, but as a
necessary reality, since woredas are thought to lack the capacity to draft and
promulgate tax laws.

Awabel Woreda was no exception in this
regard. Regional resources for public expenditure are comprised of taxes and
fees collected regionally and an untied block grant from the Federal Government.
The region then distributes the available resources to the zones through a
predetermined process[8].
The zones then distribute financial resources to the woredas through
consultation with woreda officials, according to relative priorities and needs
and woredas’ records in project implementation. Although the flexibility of the
process might create the conditions for resource competition and conflict, this
was not reported to the team as an issue.

As
a general rule, financial resources distributed from zones to woredas are tied
to certain sectors due to the assumed incapacity of the latter to allocate
available resources to priority needs. Officials at regional and zonal levels
expressed their intention to gradually cede autonomy to woredas on this issue,
pending woreda capacity to do so. When questioned about how this process would
go forward,, zonal officials remained vague. It should also be noted that the
woreda officials argued they were already capable of making such determinations
themselves.

b) Awabel Woreda: Expenditure and
Revenue

The revenue and expenditure balance for
Awabel Woreda (EFY 1991) is expressed in the table
below.

Table 1
: Awabel Woreda : Revenues and Expenditures (Million
ETB)

EFY

Local
Revenue

Total Public
Expenditure

% of revenue compared
to

Recurrent

Capital

Total

Recurrent
expenditure

Total
expenditure

1991

1.56

3.11

0.74*

3.85

* Excludes community
contributions.

The expenditure for Awabel Woreda for
1998-99 (EFY1991) was determined by ongoing recurrent cost obligations and the
capital requirements of the new plan.

The total revenue collected in the woreda
(ETB 1.56m) constitutes 41 percent of total official expenditure and 50 percent
of official recurrent expenditure. The zone’s subsidy to Awabel in the same year
was approximately ETB 1.71m, of which 91 percent financed recurrent
expenditures. Thus Awabel Woreda, a relatively prosperous entity, did not raise
sufficient revenue to meet its recurrent expenditure obligations and was highly
dependent on subsidies from above, reflecting a significant vertical imbalance
in revenue potential and expenditure responsibilities[9].

Capital expenditure constitutes 19 percent
of total expenditure. This translates into a very low per capita expenditure of
ETB 4.5, or US$0.50, per annum. A significant proportion of Awabel’s capital
expenditures in EFY1991 comprised SIDA grants, which were used to finance
development projects. However, this did not result in additional resources, as
the SIDA funds were simply offset against a potential equivalent amount from the
regional/zonal transfer. The advantage of the SIDA grant, though, lies in the
fact that the woreda receives an untied block grant of ETB 450,000 annually
through this mechanism. This means that the woreda can select its own projects
according to identified needs, as opposed to receiving earmarked funds and being
overdependent on the mediation process at the zonal level (where any input from
elected officials is minimized). Thus the allocation of untied grants allows for
flexibility at the lower levels and enhances community ownership of the planning
process. Furthermore, the flexibility inherent in the SIDA instrument allows
some schemes to be started on a pilot basis and replicated thereafter based on
lessons experienced. Lastly, the procedures for implementation are relatively
quick and simple when compared with those applicable to tied grants from
government sector bureau.

In
addition to the formal tax contributions of ETB 1.56 million, about 0.8 million
ETB was contributed in labor and material to specific public projects (see Table
2); in addition to this, the community contributed ETB 400,000for a future power
project as well as unquantified amounts to CBO-initiated activities.

Table 2: Financing
Pattern of Awabel Woreda, 1991

Plan Expenditure
(Million ETB)

Source:
Awabel Woreda Administration and Finance Office.

* Actual capital expenditure in 1991 was
only ETB 0.74 million, with the balance either accounted for in 1990 or to be accounted
for in 1992.

**
Community contributions worth ETB 672, 248 in agro-forestry and soil
conservation activities was also recorded in the same
year.

A breakdown of recurrent
expenditure in Awabel Woreda is shown in Table 3 below.

Table
3: Breakdown of Recurrent
Expenditure, (EFY 1991 (Million ETB)

Translated
into percentages, 80 percent of recurrent expenditure was devoted to the
salaries of the 424 staff on the Government payroll, and only 20 percent to
other operating expenses [10]/).
Moreover, less than 1 percent of capital expenditure from the regional grant to
the zone and less than 3 percent of recurrent expenditures transferred to the
zone (comprising 14 woredas) reached Awabel. This is demonstrated in the flow chart
overleaf.

Awabel
Woreda

Financing Pattern Of
Expenditures, EFY 1991

In
conclusion, the procedure for distributing resources to the woreda and
sub-woreda levels is apparently more complex than the actual level of direct
investment involved and the benefits accruing to communities. As shown above,
most resources are siphoned off throughout the bureaucratic process before they
reach sub-woreda levels.

Implementation
and Stakeholder Participation

a) The Role of Woreda
Officers

Woreda level implementation
arrangements involve activities performed through force account, works
contracted out to registered small contractors and local artisans, and those
carried out directly by the community.

Agro-forestry and soil
conservation projects are exceptional as they are undertaken directly by the
community, whereas other projects were awarded to private contractors (full
contracts or labor contracts) or implemented through force account, especially
in the sphere of road construction. In the case of Awabel. the woreda
administration’s force account mechanism was used for the transportation of
material, labor task management, and pipe production.

The tendering and administration
of all small projects (less than ETB 100,000) was undertaken at the woreda
level, with technical assistance provided by zonal sector departments. If the
contracts are larger, the woreda delegates the zone to carry out the contracting
functions. The threshold amounts for such delegation are decided by the Woreda
Council in close consultation with woreda sector departments. The Woreda
Development Committee, which consists of all sector offices and some executive
members of the Woreda Council, has the fiduciary responsibility for the
procurement of goods and works.

Payments
for capital projects financed under the zonal subsidy are effected by the Woreda
Finance Office once payment has been authorized by the respective sector office
at woreda level. ESRDF and SIDA funds are jointly managed by the Woreda
Executive Committee and its respective sector offices, with the sector staff
supervising the construction of infrastructure and submitting monthly reports to
the Executive Committee and to the zonal sector departments. However, transport
and technical limitations often intervene to undermine this timetable. The
Woreda Council also meets every three months and discusses the performance of
each sector.

b) Community Participation

Community participation in
implementation of the aforementioned development projects in Awabel was limited
to the provision of labor, material and cash[11]. The community thus makes a significant
contribution to public resources. Community contributions to projects undertaken
in EFY 1991 accounted for 16.85 percent of total project costs. However, in some
cases, as with the soil conservation and agro-forestry projects, community
participation exceeded the capital funds transferred to the woreda for that
project. Mobilization of the community for such projects is undertaken by 640
mengestawi buden (government teams), each of which is organized around between
30 and 120 households[12].

Community
participation in the management, procurement, and finance in capital projects
undertaken by Awabel Woreda (EFY1991) was less visible[13]. However, there are water user
associations, parent school committees, and health committees which endeavor to
increase grassroots participation in operation and
management.

It does appear that these
grassroots committees, especially in the sphere of water-point management and
maintenance, were largely ineffective. For example, the water committee for the
Gondalit water pump in Enebi Kebele took three years to repair a broken pump and
has yet to collect any user fees. By contrast, there appeared to be a much more
effective show of community action for the schemes initiated and undertaken
through CBOs[14],
which included the construction of a new church and an upgrade for an elementary
school[15].

There is an absence of electric power in the
woreda. Interestingly – in relation to the hypothesis that community resources
remain underexploited — the woreda has already collected approximately ETB
400,000 in voluntary community contributions towards the cost of power
supply.

c) Service Cooperatives
(SCs)

SCs play an important function in marketing
farmers’ produce and supplying agricultural inputs in Awabel Woreda. Although
SCs are quasi-independent voluntary associations of farmers[16],
they are supported by the regional and zonal government levels, which act as
guarantors to the SC for commercial loans for fertilizer purchase and through
employing and funding key SC staff. In Awabel there are 20 SCs. Of these, 7 have
been registered under the new federal Cooperative Law and the others are in the
process of registering.

As an example of structure and services, the
Chifar SC at Enebi Kebele has a 5-member elected executive committee and 1013
household members (889 male- and 124 female-headed households), while there are
710 households from the kebele who are nonmembers of the SC. The one-time
membership fee is ETB 6. The cooperative has 10 employees who are paid between
ETB 15-200 per month. The elected members are not paid[17].
The cooperative provides services such as inputs supply (fertilizer and improved
seed), a grinding mill, credit, veterinary drug supplies, a bakery, and a tea
shop. It also buys some crops from farmers and sells them to traders. To
encourage the use of cooperative services, members shared annual profits in
1998-99 of up to ETB 61 each depending on the use of services. As one would
anticipate, the major activity of this SC is the procurement and distribution of
fertilizer to its members. In 1998-99, the SC distributed fertilizer inputs
worth ETB 241,891.92. The margin for the cooperative is ETB 7 per quintal on
credit sales and ETB 2-3 on cash sales. However, households assert that there is
insufficient credit available to meet all their needs. Given the limitations of
the Pilot, the team is unable to comment on profitability and finances of this
or other SCs, though this will be reviewed in the Main
Phase.

d) The
Private Sector

Private sector activity in Awabel is relatively
welldeveloped, due mainly to the fact that the main Debre Markos – Addis road
runs through the middle of the area. However, despite the number of owned trucks
in the woreda, there are no vehicle maintenance/repair shops, which can be
attributed to a lack of electricity in the woreda.

Box
4. Private Sector Development in
Awabel Woreda

Number

Type of Private Sector
Development

130

unknown

Buses

Trucks

Fuel station

Grinding mills

Hotels

Grain
traders

The Woreda Administration has encouraged private
sector development by training 16 local artisans who, although unlicensed, can
be hired to undertake construction and maintenance of water supply schemes.

e)
Operations and Maintenance

Awabel Woreda officials did not
appear to give high priority to the operation and maintenance of existing
projects, citing a lack of allocated resources. Shortages of trained staff are
cited for all sectors at woreda level[18].
While some skepticism on the use of available funds and staff is permissible in
this regard, the operation of facilities certainly did appear to be compromised
by a lack of supplies (such as furniture, medicines, and school books).

The team visited a number of
nonstandard schools built or upgraded entirely by the community. These include
elementary schools in Wejel, Enebi, Duche, and Yegodana Kebeles. Parents’
committees exist for each school and are usually involved in day-to-day
administration. The schools visited had a self-generated annual income of
between ETB 2,000–8,500, which they retained to cover the operating costs which
appeared absent in most publiclyfunded projects.

In the case of
water supply, the zonal water department decides on the scale and quality of
rural water systems and assists technically in their construction. Although in
principle the woreda and sub-kebele levels are involved in the financing of the
construction, operation, and maintenance of the water schemes, in Awabel this
has not materialized as far as the team could assess. Neither the Sector Woreda
Office nor the Zonal Maintenance Team nor the community appeared to have been
effective in ensuring any systematic maintenance[19].
In many cases, user fees were not even being
collected.

Attachment 1: General Profile of Awabel
Woreda

Awabel Woreda is located in Misrak Gojam Zone (MGZ)
comprising 14 woredas including Debre Makos, the zonal capital. The population
of MGZ is about 1.7 million. The Woreda capital is Lumame, 300 kms. from the
regional capital of Bahir Dar, and about 40 kms. from Debre
Markos.

The
woreda is divided into 37 rural and 3 urban kebeles. Awabel Woreda has a
population of 165,312 people, of whom 81,100 are males and 83,412 are females.
More than 90 percent of the population live in the rural areas. There are 40
agricultural development centers, 32 primary village schools, 5 vet clinics, 5
health stations, 4 health posts, and 20 service cooperatives.

Attachment 2: The
Decentralized Government

Structure in the Amhara
Region

According
to Proclamation No. 2,1995, enacted
to establish the constitution of the ANRS, the Amhara Regional State has a
four-tiered structure, consisting of a regional council, zonal administrations,
woreda councils, and kebele administrations.

The
Regional Structure The
Regional Council is the supreme political and policymaking body and consists of
an Executive Committee, and technical sector bureaus. The council has
legislative and executive powers and an independent judiciary, apart from those
aspects of the legal system which are assigned to the Federal Government.
Members of the Regional Council are elected by the people from each
woreda.

According
to Proclamation No. 4, 1995, the
bureaus implement the policy of the Regional Council under the
supervision and direction of the
Executive Committee. The preparation and implementation of plans and budgets are
also among the duties of the bureaus. The sector bureau heads are accountable to
the Council’s Executive Committee, and to the head of the Regional
State.

The
Zonal Structure The zone is
an administrative structure between the region and the woreda. The Amhara Region
is divided into 11 zones, out of which four are designated as special zones.
Zonal administrations have no council, except in the three nationality zones of
Agew Himra, Awi, and Oromia. The regional capital, Bahir Dar, is also recognized
as a special zone. Seven Zonal Administration members are drawn from the
Regional Council and are nominated by the Executive Committee and approved by
the Regional Council. The zonal level executive structures are composed of the
Zonal Administration, and the sector departments .

The
Woreda Structure The woreda
structure consists of a Council, an Executive Committee, and sector offices. The
Woreda Council members are elected directly by the people from among the woreda
residents. They are accountable to the people by whom they are elected, and to
the executive committee of the Zonal Administration, and through it to the
executive committee of the region.

The major
constitutional powers and duties of the woreda council include:

·
Approving the woreda social service, economic
development, and administrative plans and programs.

·
Levying and collection of land use taxes, agricultural
income revenues, and other local taxes.

·
Utilizing the woreda’s sources of revenues, excluding
such other revenues allocated and administered by the region.

·
Preparing and approving the woreda
budget.

·
construction and maintenance of lower grade rural
roads.

·
Administering primary schools and junior health
institutions within the woreda.

·
Directing basic agricultural development activities and
administering and protecting the natural resources of the woreda.

The
Kebele Structure: The kebele administration consists of the Council of
the kebele, the Executive Committee, the Social Court and various socioeconomic
and security bodies. The kebele is responsible for issuing local social regulations;
following up the implementation of projects; preparing supplementary plans; and
approving the appointment of the judges of social courts. The Kebele Executive
Council is accountable to the Woreda Council. The Executive Committee is not
regularly in office and is not on
the public payroll system. The kebele chairperson is only paid a per diem
of ETB 100/month. A kebele has 800-1000 households. Below a kebele, there are
micro-organizations like the sub-kebele (300-400 households), and the gote
(village) with 30-120 households.

Attachment 3 : The Planning
Process

The
Ethiopian decentralization process accords an important role to the lowest unit
of the government structure (woreda) in the areas of planning and decision
making. The woreda planning and decision process includes various steps
involving the different levels within the woreda structure.

Step 1:
Identification of needs

The identification of needs take place at the
level below the sub-kebele, or at the sub-kebele level itself. This is expected
to broaden the direct participation of communities in the identification of
their own needs. The process is facilitated by three elected members from
development teams (representing 30-120 heads of households), and whenever
possible these teams are supported in their deliberations by government
development agents (DAs). This process brings in various population groups
(youth, the elderly, and women) so that gender- and age-specific problems and
needs can better be identified.

Step 2:
Prioritization and compilation of needs identified

A Plan Drafting Committee composed of nine members
(three elders, three women, and three youth) prioritizes and draw up the
sub-kebele’s proposals. This draft plan preparation is supported by the local
DA. The sub-kebele proposal is submitted to the kebele for consideration. After
compilation by the DA and review by the Kebele Council’s Development Committee, the draft sectoral development proposals
are submitted to the Kebele Council for review and subsequent submission to the Woreda Council for approval
.

Step 3:
Review, compilation and approval process at the woreda
level

The kebele proposals submitted to the Woreda
Administration are sent to the respective sector offices for comment and advice.
The sector offices, after compiling and reviewing kebele proposals, submit their
recommendations to the Woreda Executive Committee for discussion by the Woreda
Development Committee (which is chaired by the chairman of the Woreda Council).
The Development Committee consists of heads of sector offices and the economic
and social sector experts. The recommendations of the development committee are
discussed and approved by the council, which is composed of 222 elected members
(each sub-kebele elects three representatives). The plan approved by the Woreda
Council is submitted to the zonal administration for review. It should, however,
be noted that the draft plans are informally discussed with the zonal
administration and sector departments before submission to the Woreda
Council.

Step 4 –
The compilation and review process by the Zonal Administration.

The Zonal Administration requests its sector
departments to compile and review the woreda plans relevant to their sectors.
The zonal sector departments compile and review the submitted plans for their
consistency with the zonal five-year plan, and in light of the implementation
capacity of each woreda. The zonal sector departments then forward the outcome
of their review to the chairman of the Zonal Administration for consideration by
the Zonal Development Committee (which is composed of sector department heads of
East Gojam Zone). The approved plan is then sent to Amhara Regional State
Council.

Attachment 4: Who is Doing What in Service
Delivery?

(Rural water supply,
primary education, and rural roads in Awabel)

Function

Assignment

Remark

1. Rural Water
Supply

1.1 Decide the scale and quality of water
system

Zonal Water Department staff and
Regional Water Bureau

1.2. Construction of water
system

Local
artisans are contracted out by the Woreda Water Office to undertake
construction

Communities also
participate in labor

1.3.
Construction supervision

Zonal Water Department mainly
supervises the construction

Woreda Sector office staff also participate
in supervision to a limited extent

1.4. Monitor operation of constructed
systems

Basically
users. Rarely done by local sector departments

Currently, there is no
clear defined system for following up and monitoring constructed
systems

1.5.
Construction investment

Intergovernmental
transfers are a common financing mechanism. However, users also
participate in labor during the construction of systems

In the
case of Awabel, donor (SIDA) money is used mainly for the construction of
new systems

1.5. Operation

and
maintenance

Basically the user beneficiaries are
responsible for operation and maintenance through the collection of user
fees. Currently, there is no clear assignment as the zonal/woreda offices
occasionally maintain and make available spare
parts

Currently, there is no
clearly defined responsibility between the users and the local government
in terms of financing operation and maintenance

2. Education
(Primary)

2.1
Primary

school
upgrading

from first
cycle

to second
cycle

The
Woreda Council has the mandate to upgrade schools

2.2
Recruit primary level teachers
for training

The Woreda Government is responsible
for selecting teachers for training

Primary
level teachers are regional government civil servants and the conditions
of service are determined by the regional government civil service
commission, but the woreda government can also recommend
promotion

2.3.
Financing

teacher
training

and
teachers’ salaries

The
Regional Government finances teacher training, mainly through
intergovernmental transfer. Woreda revenues also partially cover the
salaries of teachers. Physical payments are made by the Woreda Education
Office, but from resource transfers and internal revenues that are
meticulously earmarked for salaries

The
schools in Amhara can also keep for their own use whatever internal
revenue they generate. This is not the case for
health

2.4. Setting

primary

education

standards and

monitoring performance.

The
overall curriculum is decided by the center and the elaboration is the
responsibility of the Regional Education Bureaus

2.5.
Curriculum design

and the design

of teaching method

This is
the responsibility of the Regional Education Bureau

2.6. Construction

and maintenance

The Regional Government provides resources
for construction and major rehabilitation. The woreda governments conduct
routine maintenance. In some cases, communities share costs, as in ESRDF
projects

Clear
responsibility on routine maintenance of schools is not
available

3. Rural
roads

3.1
Needs identification

The
ketenas and kebeles facilitate the identification of needs. The DA assists
in the technical identification of needs.

A ketena
includes a number of kebeles affected by the road in
question.

3.2.
Construction

The Woreda Administration uses force account
to transport material, produce pipe, set out the alignment, and
task-manage the labor. The community provides labor, and the private
sector is involved in the construction of drainage
structures

The
Woreda Administration, through its foremen, supervises construction. The
SIDA engineer placed at Awabel also provides technical assistance during
construction

3.3.
Maintenance

and
operation

No
maintenance work has started as the road will only be completed this
year

The
arrangements for maintenance need to be established from the
outset

Annex
3

ETHIOPIA –The Experiences
of Selected Donors/NGOs in Rural Service Delivery –A report submitted to the
World Bank

Tegegne Gebre Egziabher,
Ph.D.

June
2001

Executive Summary

Acronyms and Abbreviations

I. Introduction

II. The Experiences of Donors/NGOs in Service Delivery

2.1
Farm Africa

2.1
The United Nations Capital Development Fund (UNCDF):

The Woreda
Development Fund (WDF) in North Gonder

2.2
GTZ-IFSP(SG)-Integrated Food Security
Program

(South
Gonder)

2. 4
World Vision in Sodo Zuria

2.5 Action Contra la Faim (ACF) in
Afar Region-Dubti

2.6
The SIDA Woreda Based Development in Awabel

II. Key Findings and
Conclusions in Relation to Decentralization

3.1 On Planning

3.2 On Resource Management

3.3 On Service Delivery

3.4 On Popular Participation and
Empowerment

3.5
On Capacity Building

3.6 On Sustainability and Institution
Building

Annexes

1. Terms of
Reference (TOR)

2.
Questionnaire

3.
List of Persons Contacted

4 Projects
Implemented through EGS in Konso Woreda

5. UNCDF : Woreda
Development Fund – Menu of Infrastructure

6. Physical Implementation
Plan and Achievement of WDF Activities

7. World Vision’s Planned
and Accomplished Activities

for 1998 and 1999

8. Achievements of ACF in
Zone 4 and Zone 1 of the

Afar Region* in the Four Quarters of 2000

9. Introductions to
Different Donors/NGOs

References

Acronyms and
Abbreviations

ACF
Action Contra la Faim

ADP
Area Development
Program

ANRS
Amhara National Regional
State

BICA
Baseline Information Collection and Analysis

BoA
Bureau of Agriculture

BoPED
Bureau of Planning and
Economic Development

BoTI
Bureau of Trade and Industry

CIP
Children in Program

DA
Development Agent

DOPED
Department of Planning and Economic Development

DPPB
Disaster Preparedness and Prevention Bureau

DPPC
Disaster Preparedness and Prevention Commission

EGS
Employment Generation Schemes

FFW
Food for Work

GR
Gracious Relief

GTZ
Deutsche Gesellschaft für Technische Zusammenarbeit

IFSP-SG
Integrated Food Security Program-South Gonder

INGO
International Nongovernmental Organization

KDA
Konso Development Association

KDO
Konso Democratic Organization

NGO
Nongovernmental Organization

ODC
Orgut Dangaro Consulting

PADETTS
Participatory Development and Extension Training System

PCC
Program Coordinating Committee

PMU
Program Management Unit

PRA
Participatory Rural Appraisal

PSU
Program Support Unit

SIDA
Swedish International Development Agency

SMS
Subject Matter Specialist

SNNPR
Southern Nation, Nationalities and Peoples Region

TCC
Technical Committee

TOR
Terms of Reference

UNCDF
United Nations Capital Development

UNDP
United Nations Development Program

WAO
Woreda Agricultural Office

WDC
Woreda Development Committee

WDF
Woreda Development Fund

ZDCC
Zonal Development Coordinating Committee

Executive Summary

This study was
undertaken to fill informational gaps in the woreda level decentralization study
carried out by the World Bank. It
has reviewed the experiences of selected donors/NGOs, such as Farm Africa in
Konso, UNCDF in North Gonder, GTZ in South Gonder, World Vision in Sodo Zuria,
ACF in the Afar Region, and SIDA in Awabel.

Farm Africa has a capacity building project in Konso in which
it has implemented training, land use and development planning, water
development, trypanosomiasis control, goat development, animal health, and human
health and sanitation projects. The
Konso Development Association is the main implementing partner in the
woreda. Farm Africa has designed
different procedures in implementing its projects in which the community, line
offices, and woreda council take part. FARM is the main implementing agency with
funding responsibility. Despite its achievements, FARM faces numerous
difficulties, including overwhelming demands and problems in the community and
the woreda, a high rate of staff turnover among officials and technicians, and
limited preparedness of the woreda.

UNCDF has designed a woreda development fund that promotes
the participatory planning process among local actors. The fund is provided to the woreda
development committee which is responsible for overseeing a bottom-up planning
process that involves the community at gote and kebele level. The woreda development committee is the
main implementing organ and is responsible for committing and allocating
resources. The capital fund uses
the existing structures at woreda, zone, and regional level.

GTZ implements a food security program in six woredas of
South Gonder. The method of
planning is log frame: stakeholders participate in the plan formulation
process. The stakeholders are the
Bureau of Agriculture, the Woreda Council, and their zonal and regional
counterparts. The Bureau of
Agriculture is the main implementing agency receiving funding on local subsidy
program. The program office in
Debre Tabor remains the main fund managing organ. In GTZ’s program, community
participation is left to local political leaders and professionals. The main
problems the project faces are lack of commitment by civil servants and little
support from local political leaders.

The World Vision program in Sodo Zuria is run by Damota II
Area Development Program (ADP). It
aims at increasing agricultural production, enhancing off-farm income, improving
socioeconomic infrastructure, and improving child-sponsor relations. Planning is carried out by a program
facilitation team which uses different techniques, such as PRA and focus group
discussions, to identify and prioritize the needs of the community. The ADP is the main implementing agency
with funding responsibilities.
Funds which are directly transferred from the main office are managed by
ADP. Community participation is
fashioned mainly in the form of material and labor contributions. The impediments cited to World Vision’s
developmental work in the area are high turnover of officials, lack of
commitment by line sector offices to the activities of World Vision, woredas’
expectations that they will receive recurrent budgets, and the area’s frequent
droughts. area.

In the Afar region, Action Contra la Faim (ACF) carries out
integrated animal health and water development projects, particularly in zones 1
(Dubti) and 4. Vaccination
programs, an animal health program, and a water development program are
implemented by ACF in cooperation with Water and Agricultural bureaus of the
Afar region. The community, through
its community leaders, particularly engages in the project in selecting paravets
for training and in the
construction of small water points.
As an implementing agency, ACF commits its resources in accordance with
donor policy and systems.

SIDA’s support structure in Awabel is similar to that of
UNCDF in North Gonder, and depends on the existing government structure.

The Woreda Development Committee receives a fixed sum and has
full authority in disbursing it based on participatory planning
procedures

Though donors/NGOs have undoubtedly made immense
contributions in asset building and mitigating emergency situations, it is the
process of democratization and empowerment that sustains their
contributions. From this
perspective, their experiences in planning, resource management, service
delivery, community participation, capacity building, and sustainability vary,
and these experiences can make positive contributions to the
current decentralization process in the country.

I.
Introduction.

Recently Ethiopia has seen the reemergence of civil
societies, such as NGOs and community based organizations. The improvement of the political climate
compared to that under the previous Derg government has also attracted donors
who would like to help Ethiopia. The history of NGOs in Ethiopia indicates they
first emerged in response to the famine crises of 1972-73 and 1983-84 (Adye,
1998). At those times, the sole
objectives of NGOs were relief assistance and saving lives. As the emergency
situations subsided, the NGOs gradually shifted to developmental activity. NGOs
in Ethiopia are now involved in a number of development projects assumed to take
place at grassroots levels with the participation of rural people (Tegegne,
1994). Similarly, donors have also
shown great interest in improving the lives of rural people through a number of
programs designed in isolation or in partnership with responsible government
bodies.

The implications of donors’/NGOs’ activities for the
decentralization policy of the country are immense. Donors/NGOs, in many instances, aim at
bettering the lives of the people at the grassroots level, building the
capacities of the people; and enhancing the efficiency and effectiveness of the
government system at different levels.
These activities assist and take the decentralization process a step
further. In addition, donors/NGOs
design and experiment with different service delivery models that provide a
learning opportunity to improve decentralized rural service delivery in
Ethiopia. Thus, any effort to
improve the decentralization policy of the country need not be confined to the
study of the public sector alone, but should examine the efforts and experiences
of donors and NGOs working in country.

This report was prepared to fill informational gaps in the
woreda level decentralization study carried out by the World Bank. It attempts to review the experiences of
selected donors/NGOs that are working in the Study Woredas of the Bank. The Study examined the experiences of FARM Africa,
World Vision, Action Contra la Faim (ACF), GTZ, SIDA, and UNCDF – who all,
except UNCDF, work in the Study Woredas.[20] The major components of the TOR
for the study were[21]
to undertake a desk study of selected donors/INGO/GOE pilots, experiments, and
analyses of rural decentralized rural service delivery and governance; and to
catalogue donor and NGO programs and inputs in the Study Woredas.

In order to meet the TOR, information was gathered from head
offices in Addis Ababa through unstructured questionnaires[22]
and from reports and reviews of the programs made available by the head
offices.[23]

Section 2 gives a full account of the different donors’ and
NGOs’ activities. This section
presents planning and implementation procedures, planned and implemented
activities, budget and resource management, institutional structure, community
empowerment,and participation aspects of the different NGO/donors. Though it is difficult to generalize
from the various experiences of donors/NGO, Section 3 attempts to highlight some
of the key findings and conclusions in relation to decentralization.

1.1 Challenges of
the Study

The major challenge of the Study was getting access to
different NGOs and donors. Phone
calls and personal appearances did not necessarily result in prompt reception by
the NGOs. It was very common to
receive an appointment no sooner than four to seven days off. Then, quite often,
on the appointed day the contact person would not be available. This resulted in
severe pressure to meet the 15 working days deadline.[24] It was also often common that the
person contacted at the head office knew nothing about project details and was
unhelpful in providing the needed information. For instance, the director and the
contact person in GTZ mentioned that project information could only be gained
from the project sites at Debre Tabor.
We finally resorted to sending the questionnaire by e-mail to Debre
Tabor, meaning we never got the chance to review project documents and reports
regarding GTZ projects—papers that would have filled in our understanding of the
project. Similarly, the contact
persons in UNCDF and Farm Africa did not know about the project details in the
study woredas.[25]

1.2 Limitations of
the Report

This report is entirely based on information gathered from
the head offices of the NGOs/donors.
The information presented thus reflects very much the story presented by
the NGOs/donors. The report does
not consider information, views, and opinions of the beneficiary community or
government agencies. Because of
this, there is no means of
verifying the information presented by the NGO/Donor. In some instances the contact persons
were not able to complete the questionnaire, leaving some questions unanswered.
Cases in point are questions about the influence and mechanisms of party
officials in planning, resource management, and service delivery. In some instances, it was not
possible to separately report budget and activities of a particular woreda,
since the system of data recording is for the whole program region. For instance, the data for ACF are given
for the whole program region rather than woreda by woreda. Some of the data for planned and
achieved activities were too detailed and it became very difficult to report the
details. We have resorted to
presenting a summary of such data.

2. The
Experiences of Donors/NGOs in Service Delivery

2.1 FARM Africa in
Konso

One of FARM’s project areas in Ethiopia is Konso Special
Woreda in SNNPR.    The
basis for Farm Africa’s intervention in Konso Woreda was its previous
involvement in the woreda and requests from Woreda Council and the Konso
Development Association.   Farm
Africa already had been carrying out projects in goat development, farmers’
research, and trypanosomiasis control in the area–successful projects whose results pleased area farmers. In 1996 a written request was received
by FARM Africa from the Konso Woreda Council and the Konso Development
Association (KDA), shortly followed by a letter from the DPPB in the region
asking for an extension of the existing activities and in particular for support
with training in participatory development (FARM Africa, 1998). Farm responded to the request by sending
a group of experts to the area and developing a project proposal.

2.1.1 Planning and Implementation
Procedures of Different Projects

Pre-Project Baseline Research and Project Formulation

Farm Africa’s experts held discussions with Konso and
regional representatives and relevant NGOs to identify the needs of the
community. The team also
reviewed secondary data available from FARM, the woreda, the region, UNDP, and
NGOs. Focus group discussions, key informant discussions, and meetings were
arranged to analyze local needs, local capacity, and government staff competence
and gaps. The challenges and
constraints of the woreda were identified in the presence of woreda and
community representatives (BOPED/SNNPR, 2001). Similarly, objectives and strategies
were developed with the community and woreda representatives (BoPED/SNNPR,
2001)

The major problems of the community, according to the
officials of woreda administration and the Konso Development Associations, were
lack of human resource capacity and water shortages.[26] The capacity problem has two major
components: lack of capacity of personnel working in line offices, Konso
Development Association, and woreda administration; and lack of capacity in
farmers who want to undertake bottom-up planning.

As a result of these
reviews and discussions, Farm
formulated a capacity building and submitted a proposal applying for funds. The project also included livelihood
support activities to enhance the asset base of the Konso people (see Box 1 for
project objectives, purpose, and outputs).
Project outputs were achieved by undertaking a variety of activities and
planning and implementation procedures.
The following is a description of the major projects and their procedures
as communicated by the Konso project leader.

Project
Objective:

A farming and enterprise system in Konso Special Woreda
that can contain and survive the stochastic occurrence of drought.

Project
Purpose:To build up the capacity of Konso People, their leaders and
organizations, to plan and manage those short-term and long-term measures
required for drought-contingent development

Project
outputs:

-An adequate information base, researched and collated
in each kebele;

-The capacity of CBOs, kebele, Woreda Council and
woreda line offices to plan and manage development steps enhanced;

-A
participatory land use and development planning system involving all
players from farmers to region staff in operation in the woreda;

-A partnership model involving Farm Africa and the KDA
established, tested and improved;

-The asset base of vulnerable families increased and
protected;

-Off farm income sources expanded;

-The options for establishing an improved community
water supply identified in 20 of the most drought affected communities in
the woreda and community water supply established in these communities;
and

-A financially sustainable community health service to
safeguard a project development initiatives established and operating at
relevant sites (Farm Africa, 1998).

Box 1: Konso Capacity Building Project:
Objectives, Purpose, and Outputs

Project Execution Procedures

Capacity for woreda line offices, woreda council, KDA staff, and kebele
council to plan and manage development steps

The activities under this output include
management/leadership courses, monitoring and evaluation courses, accounting and
fund management courses, skills training, travel seminars, and surveys. The strategy followed in implementing
these activities is that the KDA, as a partnership agent, approaches the
relevant line offices, councils, or kebeles and communicates with them about
their training needs, the timing of the training, and the selection of the
trainees. Once these issues are
resolved, Farm Africa arranges for trainers, per diems, and other necessary
logistical matters.

Participatory land use and development planning system

The program aims at providing capacity building workshops and
procedures for bottom-up planning in order to improve farmers’ capacity in land
use planning and enhance woreda, kebele, and KDA leaders in planning and
coordination of community development projects. It also has an infrastructural
component.

The program created an institutional structure to facilitate
this process. The institutional
structure comprises a Kanta Planning Committee[27],
a Kebele Planning Committee and a Woreda Planning Committee. The latter is not yet operational. The Kanta and Kebele Planning Committees
have seven members each, including women members. The kebele chairman is the chairman of
the Kebele Planning Committee, while the kanta leader is the chairman of the
Kanta Planning Committee. These
committees include officials from the woreda administration and have
participated in a program orientation, plan coordination, plan formulation, and
resource-planning workshops,[28]
each of 3-4 days duration.

The land-use planning process (Box 2) and the exercise of
prioritization done at kanta and kebele level are seen as experimental work;
they are mainly geared toward raising the awareness of farmers and helping them
voice their needs in terms of land use and infrastructure needs, even if the
projects are not implemented. The
exercise is designed to encourage farmers to use their own resources as much as
possible and to undertake activities within their own reach. In fact Farm Africa, according to the
Konso project leader, believes that all land-use problems could be solved by the
farmers themselves. Hence Farm
Africa has not earmarked any budget
or resources to implement activities (mainly in land use planning) fashioned
through the bottom-up structure.
However, Farm Africa tries to solicit funds from other NGOs to help them
implement some of the activities.

Box 2: Community Land Use Planning Process in
Konso

The land use planning
process starts at kanta level.
At this level farmers discuss and identify suitable land use with
the help of a mosaic map prepared for the purpose. The Kanta Planning
Committee facilitates the meeting, which results in defining projected use
of various plots of land, for instance for forestation or soil
conservation.. As they identify suitable land use, farmers also indicate
which activities they could
do themselves, how the new use could be achieved, and what
assistance they might need from the woreda. Similarly, farmers also identify
their infrastructural needs, such as water development, health stations,
or schools. These requests
are submitted to the kebele on a pre-prepared project submission
format. The Kebele Planning
Committee prioritizes the different needs and submits those activities
which cannot be done by the people to the Woreda Planning Committee. The Woreda Planning Committee is
not yet functional to take up the work.

Water Development

Water development in Konso Woreda
has two components: potable water development and spate irrigation. Potable water development is identified
as a priority area by Woreda Administration and Woreda Water Development
office. The major strategies in
potable water development were to rehabilitate previously built water points and
to modernize sand scratching, spring development, and bore hole
development. Each of these projects
was carried out in collaboration with Woreda Water Development office. Farm
Africa has also attempted to establish water users committees to run potable
water points.[29] Although Farm Africa has rehabilitated
some water points and developed springs and bore holes, the rate of utilization
and the sustainability of the projects are not as expected. It was reported that the community is
not interested in raising money for maintenance and operation of the water
points. There could be two reasons
for this seeming indifference: lack
of awareness about the health and other benefits of clean water; or lack of resources to contribute to
the maintenance of water points. In
both cases, it is important to realize that the provision of services does not
translate into the use of services.
Farm Africa needs to address problems of attitudinal change and needs to
raise people’s incomes in order to ensure service utilization by the
community.

The spate irrigation project was a
culmination of the request made by the community to the Woreda Administration.
Konso’s people are known for their elaborate water and soil conservation
practices. Despite their elaborate
knowledge, however, they face problems in controlling the heavy flooding that
destroys structures, creates wider and deeper gullies, and erodes farmland. Farm Africa has consulted other NGOs,
such as Water Action, and has hired foreign consultants to design spate
irrigation in the area. Farm Africa
is in the process of implementing some of these designs.

Trypanosomiasis control project

This project is an extension of
earlier trypanosomiasis control projects and is mainly carried out in lowland
areas. The project makes use of the
foras, a traditional association that
organizes rotations for tending pastured cattle. Farm Africa has established seven kebele
foras.bringing together the foras within a kebele. Farm Africa provides these foras with
veterinary medicine to treat cattle,
disseminated through a
revolving fund managed by the Konso Development Association, which has a
separate account for the purpose.

Goat development project

The main implementation tool of
the goat development project is wealth ranking to identify project
beneficiaries. Wealth ranking was
first done for kebeles, in which representatives from all kebeles, Agriculture
Office and Wereda Development Committee came together and identified the poorest
kebeles. Six kebeles were
chosen in this manner. Next,
households within those six kebeles were ranked by wealth to identify the target
beneficiaries. This was done by a committee made up of agriculture workers, Farm
Africa workers, and the community.
About 100 target groups with 15 members each were formed. The project then provided ten goats for
five members. The beneficiaries
understand that as the goats give birth, the kids will be given to two other
members of the group, so that everyone in each group eventually
benefits.

Animal health project

The aim of this project is to
train selected farmers in animal health maintenance and to provide veterinary
services to local farmers. Farm
Africa carried out a needs assessment to determine the prevalent diseases in the
woreda. Trainees were selected in
consultation with community leaders.[30] The trainees were provided
with medications which they were allowed to sell to farmers at a 10 percent
markup. Additional markups are kept
by the trainees as an incentive for delivering their services. Drugs were provided through a revolving
fund.[31]

Human health and sanitation

This project has two components:
equipping health clinics and constructing toilets. Under the former, Woreda
Health Office provides standards and identifies the needs of the clinics. The local partner, the Konso Development
Association, advertises bids for the equipment that will be purchased through
the head offices in Addis Ababa and supplied to the respective clinics. Toilet construction is seen mainly as a
demonstration exercise for the community.
Farm Africa uses local materials to build toilets in order to encourage
the community to take up the work on its own.

2.1.2 Planned and Implemented
Activities

In three years, 1998, 1999, and 2000, Farm Africa has
undertaken a number of activities in Konso Woreda, of which the major activity
is training. The training activity
has several components. Line
offices, Woreda Councils, and KDA staff have received training in management courses, accounting
courses, and fundraising courses.
Development agents (DAs) and kebele leaders have received training on PRA
methods. Farmers have received s
training in a variety of skills, such as carpentry, masonry, and resource-use
planning. Hygiene, water management, and administration training have been
provided for water committees. Primary health workers have received health
training; environmental sanitation training was provided for people engaged in
latrine construction; and various planning workshops have been given to woreda,
KDA, and kebele leaders. Studies on
local enterprise, migration, and credit sources were planned, though not
undertaken. The fact that the
project is heavily tilted towards training, workshops, and studies is due to the
project’s emphasis on capacity building.
The project also undertook additional activities, such as equipping
veterinary clinics, preparing photo mosaics and diversion structures, and
building and rehabilitating water points. There are, however, some divergences
between planned and accomplished activities, particularly in employment creation
activities. These divergences are
attributed to insufficiency of funds (BoPED/SNNPR, 2001). It is also quite possible that Farm
Africa might have been too ambitious, planning some activities that were
unachievable and unrealistic activities.

2.1.3 Budget and Resource
Management

The project document states that the total project budget is ETB 7,332,674,
while the project report shows that the total budget is ETB 6,307,920—a
difference of some ETB 1,024,754 (BoPED, 2001) (see Table 1). The total expenditure is only 40 percent
of the total budget, indicating a significant amount of underutilization of
resources. Training activities show the highest utilization of budgets in the
three years. Agricultural
activities, which include aerial photography and mosaic preparation, purchase of
kits and drugs, planning workshops, goat purchases, and equipping veterinary
clinics account for the bulk of the expenditures. There is no utilization of budget for
employment activities, which included studies on enterprises, migration, and
credit sources.

Table 1: Budget and Expenditure of Konso Project for
1998-2000 (ETB).

NO

Activity

Budget

Expenditure

1998

1999

2000

Total

1998

1999

2000

Total

%
Utilization

1 Training

102,747

82,063

205,372

390,182

42,528.9

11,1295

116,100

269,924.6

69.18

2 Agriculture

203,460

304,789.7

894,888.6

1,403,138.3

12,304

90150

307,500.7

409,954.7

29.22

3 Employment

19,600

61,866.8

504,875.1

586,341.9

0.0

4 Water and
health

–

895,950.8

687,811.7

1,583,762.5

–

25,698

341,340.9

367,038.9

23.18

5 Staff
training

19329

38,064.4

62,484.6

11,987

390 30,461

17,397

48,248

40.25

6 Total

666,00.5

2,276,556.4

3,364,863.4

6,307,920.3

219,890.9

11,50,336

1,148,195.1

2,518,422

39.92 Source: BoPED/SNNPR,
2001

The Konso project has two sources of funding. Resources are transferred on a request
basis from the London office and will be kept at the head office, to be
transferred later to the field office, also on a request basis. The field office is entirely responsible
for fund disbursements, while bigger procurements and hiring of staff members
are carried out at the head office in Addis Ababa. FARM Africa keeps the entire funding
under its responsibility and is accountable to donors. However, it provides reports to DPPB,
the Regional Government, Zonal Government and Woreda Government (the latter
however is informed solely as
a courtesy gesture and to provide information). Currently KDA is subcontracted for some
projects, and resources are transferred to it The community contributes labor
and materials for some activities, such as toilet construction, but to date
there is no data available on the worth of these community
contributions.

2.1.4 Institutional Structure and
Relations

FARM Ethiopia’s internal structure is
based at its coordinating office in Addis Ababa, which acts as a bridge between
the program office in London and field offices in Ethiopia. The coordinating office is responsible
for payments, insurance, employment, bid advertisement, and major
procurements. The coordinating
office provides monthly financial reports to donors, a quarterly report to DPPC,
and annual reports to the Ministry of Justice for the purpose of license
renewal. The project office is the executing office of projects. It is responsible for project running
costs and provides physical and financial reports to the regional government,
zonal administration, and woreda administration.

Farm Africa has a working relationship
with line offices, Woreda Council, and Kebele Administration. The line offices are involved regarding
their specific sectors. The Woreda
and Kebele Administrations are involved in Farm Africa work in facilitating the
mobilization of people and sector offices, in providing opinions, and in
consulting about different projects.
At woreda level, the Konso Development Association is a partner
organization responsible for overseeing the implementation of the different
projects of Farm Africa. The KDA
consults with woreda executives about proposals and their implementation. Once the Woreda Administration provides
the green light, the KDA contacts the relevant sector offices for the
implementation of the project.
While the above paints a general picture of the participation of the
woreda and kebele officials and line offices, the nature of each actor’s
involvement varies with the nature of the project. In some projects the involvement takes
the form of kebele and beneficiary selection, while in other projects
involvement takes the form of implementation, support, monitoring, and
control. In goat development, for
example, the selection of beneficiary kebeles was carried out by representatives
from all kebeles, agriculture office, and Woreda Development Committee. At a lower level, representatives of
Agriculture Office and the community were engaged in the selection of
beneficiary households. In water
development projects, the woreda water bureau is the main implementing agency.
In land use and community projects, the kanta and kebele committees are the main
actors formulating the plans.

2.1.5 The Partnership Model and
Sustainability

The question of sustainability
involves the smooth running of functions once the project implementation phase
has ended. The partnership model is
advertised by Farm Africa in order to ensure sustainability.
Unlike the traditional handover of projects to line offices, Farm
Africa has chosen the Konso Development Association as an implementing
partner. Unlike the line offices,
the Woreda Council, or the Kebele Council, KDA is sponsored by the people to
foster community development. It is
accountable to its members and raises revenues through membership
contribution. As a result, KDA is
believed to be a suitable implementing partner. KDA is to assume an executive role
while Farm Africa plays a supporting role.
The development activities proposed for the project–water conservation,
community health service, income generation-have been selected for KDA’s
involvement because each activity calls
for community effort and for KDA’s systematic organization (Farm Africa,
1998). At present KDA advertises
and evaluates bids and signs contracts for implementing activities. It also supervises and monitors the
implementation process. KDA
will also fill another role–taking over
Farm Africa’s activities as Farm’s role winds down. As a result, KDA has been the main
beneficiary of the capacity building project. Currently Farm Africa is following a
strategy of strengthening KDA both in human resources and in funding
responsibilities. Farm Africa has
hired an executive director, a project planner, an engineer, a sociologist, and
an accountant to help improve the technical capability of KDA. KDA is also exercising financial
management as Farm Africa transfers funds to its account. It undertakes disbursement and submits
reports to Farm Africa.

2.1.6 Community Participation and
Empowerment

The thrust of the Konso project is
capacity building. The community
receives a variety of training as a
means of empowerment. Moreover, the
community joins in participatory land use planning through the Kanta Committees,
discussing and identifying local types of land use. In addition, the community participates
in identifying infrastructural needs in the discussion at kanta level or kebele
level. Other projects also are executed on a participatory basis. For instance,
the community has a role in the selection of target groups in the goat
development project and in the selection of animal health trainees in the animal
health project. The human health and sanitation program
also encourages the community in the construction of latrines and toilets using
local material. However, while the Konso project is indeed participatory in
nature, this participation is limited–it does not go beyond needs
identification and land use formulation. At best, it is a means of
basing the different projects on the felt needs of the people. The people still have no say in such
matters as plan implementation, project administration, or budget
utilization. There is also no
mechanism for communities to express their dissatisfaction.

2.1.7 EGS Activities in
Konso

The major project run by Farm Africa in Konso is the
capacity building project described above.
Farm Africa, however, has implemented EGS in Konso Woreda in response to
the severe drought of 1999 and 2000—the result of an early end to the seasonal
rains in Belg in 1999 and 2000 and the underaverage rainfall in Meher during 1999. EGS is a project which will have
long-term benefits, designed to save lives while building infrastructure. The
project was initiated by Farm Africa as a result of a request from Woreda
Council for food assistance in an emergency situation. A number of donors, such as EC, DFID,
CORDAID, Christian Aid, and Ethiopian Aid, responded to Farm Aid’s relief
proposal.

Planning, targeting, and
implementation

One of the preconditions for EGS is the availability of
shelf projects. In the absence of
shelf projects, communities were encouraged to identify their problems,
prioritize them, and draw up action plans using their indigenous knowledge and
PRA skills. Some kebeles were able
to prepare complete action plans, while others created wish lists (FARM Africa
2001). The influence of prominent
people and politicians, however, was acknowledged to be high due to the
emergency situation (FARM Africa, 20001).
Two types of targeting were done: area targeting and beneficiary
targeting. Woreda Council and
Agricultural Office identified the priority kebeles on the basis of their last
three years’ production, land capabilities, land size, alternate income (wage
labor), number of livestock, and other criteria. Beneficiary targeting used two rounds of
screening. The first identified
needy households; the second identified EGS and GR (Gracious Relief )
participants. The project has established EGS committees for each kebele. EGS committees in collaboration with
kanta leaders identified household selection criteria. Those households with adequate numbers
of able-bodied individuals were targeted for EGS, while those with none were
targeted for GR . Those with
insufficient numbers of able-bodied_persons were targeted both for EGS and GR.
Demographic information gathered through these criteria revealed that a total of
28,234 households were targeted for food aid. Of these, 25,872 were targeted for EGS
and 2,362 were targeted for GR.
Later on, however, the numbers increased, to 35,120 for EGS and 4,919 for
GR. The total number of food aid
recipients was 40,039.(Farm Africa,
2001)

Eighteen projects were planned and implemented under the
EGS scheme. These projects included
the construction and repair of
ponds, rural roads, and spate irrigation channels, and the maintenance of
schools (see Annex 5). A total of
26,296 MT of food were distributed.

2.1.8 Problems of Farm Africa in Konso
Project

The major problems Farm Africa encounters are the inability
to meet the multitude of demands and the inability to provide solutions to the
many problems identified by
communities and administrations.
The problems and the demands seem so overwhelming that Farm Africa alone
cannot address them. In this
regard, the assistance provided by the woreda, especially by the Woreda
Agricultural Office, is limited.
For instance the Woreda Agriculture Office cannot supply nursery seed
that farmers may require.
Similarly, the capacity and readiness of the woreda is very low to handle
all developmental works. The other
major problem reported by Farm Africa is the high rate of staff turnover that is
seen both in the Woreda Council and in line offices. As a result of such continual turnover,
it is not possible to make a quick transition from one activity to the
other. In the same way, the
frequent restructuring of kebeles poses problem in such areas as kebele
selection and beneficiary
selection.

2.1.9 Party officials in the work of Farm
Africa

Konso is a special woreda with direct accountability to the
regional government. The Konso
Democratic Organization (KDO), which is a member of EPRDF, is the main political party in the
woreda. Other opposition parties also exist in Konso Woreda, but the KDO is the
ruling party. Woreda council
members are also members of the KDO.
Though Farm Africa has no relationship with KDO office, Farm Africa
believes that it is de facto working with KDO through government bodies, mainly
woreda council. The woreda council
has the ultimate say in the proposal and approval of projects. Farm Africa, however, has never felt the
ruling party is imposing any guidance or
direction on it.

2.2 The United Nations Capital Development
Fund (UNCDF): The Woreda Development Fund (WDF) in North
Gonder

The basis of the project
formulation was a consultative workshop in Gonder in June 1995 in which
representatives from regional, zonal, woreda and kebele levels of government as
well as staff of selected NGOs active within North Gonder zone
participated. The project document
was finalized, submitted, and approved by the UNCDF appraisal committee in
1995.

The long-term objective of the WDF
is sustained poverty alleviation among the rural poor in North Gonder Zone. Its immediate objectives are i) improved
access: reduced workload in meeting essential household needs, increased
agricultural production, and increased access to social services; ii) increased
institutional commitment and capacity at zonal and woreda levels to respond
effectively to the need for small-scale physical infrastructure among rural
communities; and iii) increased empowerment of rural communities through a
participatory approach to rural infrastructure planning (UNDP, 1997).

The proper mix for programs will
be selected from an established menu of investments; the choices will be made on
the basis of local-level participatory planning for some categories of
infrastructure (see Annex 6 for infrastructural menu). The public sector will take the prime
responsibility for planning of other categories of infrastructure. Examples of the latter type of
infrastructure include upgrading tracks to road standard; constructing new
primary schools; and constructing new health facilities. These infrastructural types are
designated as strategic projects and are planned at woreda level. Projects to be planned at community
(kebele) level are designated as kebele level projects. These projects serve only the
community within the kebele.

The project is designed to work
with zonal administration and targeted woredas. Six program woredas–Debark, Adi Arkay,
Janmora, Wegera, Quara, and Metema–were chosen on the basis of such criteria as
neglect by past governments, recurrent food shortages, and potential for
development. The project is
designed to embrace the six woredas in three phases over a period of six
years. Debark and Adi Arkeay are
the pilot woredas where the program has already started its work. Out of a total of 60 kebeles found in
the two woredas, ten kebeles from each woreda were chosen on the basis of kebele
selection criteria set out beforehand

2.2.1 Planning and
Implementation Procedures

After the first year of
preparatory assistance, WDF began by conducting a training on Participatory
Rural Appraisal (PRA) for experts and development agents at zonal, woreda, and
kebele levels. These trained
individuals facilitated the meetings of people at gote and kebele level. Workshops were conducted at gote and
kebele level in the form of group and plenary discussion. Women’s groups, youth groups, and
elders’ groups carried out group discussions. These discussion groups identified and
prioritized demand-driven projects to be financed by WDF. This culminated into a two-year plan for
the 20 kebeles in the two woredas.
These plans were prepared and approved at woreda level. A particular feature of the
community (kebele) plan is that each kebele is allotted a budget for carrying
out planning. Hence the plans
prepared by the community consider the available resources for the next three
years. The kebeles are also
provided with cost estimates for different projects to help them balance their
budget with their demands. Similarly, a plan of action is also prepared in a
participatory way. The Woreda
Development Committee, in the presence of kebele representatives, approves the
plan of action. The plan of action incorporates the monthly implementation
schedule.

Strategic projects are prepared by
theWoreda Technical Committee and are later endorsed by the Woreda Development
Committee. Such plans are submitted
to zonal project steering committees for approval or amendment. These committees are comprised of zonal
administration, department heads,
and program support unit ( PSU) representatives.

Kebele level projects are to be
implemented by the Woreda Development Committee and woreda level sectoral
offices with the participation of the communities. The community is particularly
responsible for executing such small-scale construction projects as school or clinic maintenance and water
projects. In order to increase the
implementing capacity of the community, selected people from the intervention
areas are trained in such construction jobs as masonry and carpentry.

2.2.2 Planned and Implemented
Activities

In the course of two and half
years (1997-1999), WDF completed a number of activities in participation
strategy, capacity building, and infrastructural components. The first year of implementation
(November 1997-June 1998) was devoted mainly to organizating and establishing
PSU office, staff recruitment, and such preparatory works as PRA training,
computer training to DOPED, and experience sharing (Box 3).

Stakeholder workshop

Experience sharing discussions with some bilateral and
organizations such as FINNIDA, SIDA, GTZ and ILDP

Identification of program intervention kebeles and
setting of fund allocation criteria

Capacity building to DOPED through computer training
and provision of equipment

PRA training

Training of 20 development agents at the Woereta
Agricultural Training
Center

Box
3: Major Activities Undertaken November 1997-June 1998

Source: BoPED/ANRS, 1999, p.16

The second year of implementation
(July 1998-June 1999) was the period when most of the physical projects of the
WDF were to be planned and executed.
However, although a number of kebele projects were planned, few were
executed: only nine springs were developed and only six hand-dug wells were
constructed Similarly. among a number of strategic projects, only the
maintenance of a junior secondary school was accomplished during this fiscal
year. The following activities were also carried out in this fiscal year (BoPED,
1999).

Two
manuals on project proposal and report writing were developed;
Five
drama events were conducted to expose the community to participatory
development ideas
Kebele
and gote development committees were established
A
financial project operation manual was prepared
20
masons and carpenters and 20 water technicians were trained.

The period July 1998 – June 1999
did not see much construction work except rollover projects begun in the
previous fiscal year. Thirty-two
participants from zones, woredas. and kebeles, however, have received training
on PRA methods. Annex 6 provides
the physical implementation plan and achievements for the years 1997-1999. As can be seen from the table, most of
the planned activities have not been achieved.

2.2.3 Budget and Resource Management

WDF/PSU is financed by UNDP and
UNCDF. UNDP covers the capacity
building component and salary of PSU staff, while capital expenditures for
infrastructural projects are financed by UNCDF. The total amount of budget allotted for
the three years (1997-1999) was ETB 15,049,093, of which UNDP’s share accounted
for 35 percent and UNCDF’s share accounted for 65 percent. The total expenditure of the project
from both sources was ETB 2,553,784.70, which formed 17 percent of the total
budget (see Table 2). The
utilization of the capital budget was only 8 percent. The UNDP source used for training,
travel, and professionals had about 32 percent utilization. The expenditure figures show that the
total budget for administrative purposes exceeded that of the capital
expenditure.

The pattern of resource flow
indicates that the WDF budget is directly transferred to the PSU office in North
Gonder from Addis Ababa. The PSU
has two accounts: CDF account and UNDP account. The PSU in turn transfers capital
expenditure from CDF account to woreda to the account of the Woreda Development
Committee. The PSU program officer
at woreda level prepared requests and payments to be forwarded to the Woreda
Development Committee. The Woreda Development Committee approves the request and
the money is disbursed according to the finance and purchase rules of the
region. The resources allotted to
the woreda usually cover not only capital expenditures but also overhead
charges. The disbursement and
management of the resources respect the official mandates of the woreda. For instance, bids that exceed ETB
35,000 are delegated to the zone, though the contract is signed at the woreda
level. The PSU office supervises
the disbursement of the fund through the report it receives from the Woreda
Development Committee.

The Woreda Development Committee
is the main body which implements projects and as a result is responsible for
disbursing funds allotted to kebeles.
The kebeles, though they know their resource amount, do not manage the
resources on their own. The woreda,
however, requests their consensus in case of a need to shift resource from one
kebele to another.

Table 2: Budget and Expenditure
of WDF (UNDP and UNCDF sources) (in ETB)

No.

UNDP
source

activity

1997

1998

1999

Total

1997

1998

1999

Total

International
experts

891,197.40

–

Consultants

323,004

–

Administrative
personnel

158,962.75

114417.6

–

4,534.79

98,216.56

72,868.56

175,619.91

Official
travel

276,811.34

163350

–

2,672.35

202,051.93

65341.49

270,065.77

National
professionals

648,92.07

673728

–

78,220.66

575,507.07

412,115.41

1,065,843.14

Sub
contracts

146,820

–

Training

147,275

124,797

371,820.9

643,892.9

–

71,412.2

54,988.88

126,401.08

Local
procurement

63,362

67,904.25

–

131,266.25

–

Operation &
maintenance

17125

36,705

20328

74,158

–

International
procurement

89,050

95,433

–

184,483

–

Miscellaneous

17125

27,882.88

119,064

164,071.88

866.21

16,055.07

16,,991.28

Sub
total

977323.75

2,797,809.69

1,462,708.5

5,237,841.94

85,497.8

948,053.97

621,369.41

1,656,921.2

UNCDF
source

Mission
costs

1,,370,000

14,682

14,520

1,399,202

–

14,080

–

14,080

Local
procurement

200,705

423,539

36,481.50

660,725.5

42,384.13

101,622.83

28,148.54

172,155.5

Transport
equipment

–

165,172.5

217,800

382,972.5

25,628.85

143,327.14

76,184.13

245,140.12

Minor Procurement

372,640

1,225,947

–

1,598,587

–

Miscellaneous

–

40,214

23,820.06

64,034.06

–

4,878.62

11,317.65

16,196.27

Capital
fund

–

734,100

4,971,630

5,705,730

–

271,515.02

179,776.59

451,291.61

Sub
total

1,943,345

2,603,654.5

5,264,251.56

9,811,,251.06

68,012.98

535,423.61

295,426.91

898,863.5

Grand
Total

2,920,668.8

5,401,464.2

6,726,960.1

15,049,093

153,510.8

1,483,477.6

916,796.3

2,555,784.7

Source:
BoPED/ANRS, 1999, pp. 20-21

* no reliable
information is available

Similarly, the Woreda Development
Committee has to notify the zonal counterparts in case there is a need to shift
budgets from one line item to another.
The WDF does not include operating costs. The assumption is that once projects are
completed the relevant line offices will be responsible for the operation and
maintenance of the project.

2.2.4 Institutional structure

The Woreda Development Fund mainly
utilizes the existing formal administrative structures. These are the zonal level Department of
Planning and Economic Development
(DOPED) the Zonal Development Co-coordinating Committee (ZDCC)[32]
at zonal level, and the Woreda Development Committee (WDC) at woreda level. The WDF has its own structure at zonal
level designated as PSU (program support unit). DOPED is responsible for reviewing and
approving reports, work plans, and budgets submitted to it by PSU. In addition, it ensures the
compatibility of the activities with the five-year regional plan, coordinates
government inputs, and conducts mid-term reviews. The ZDCC is comprised of all heads of
counterpart departments, including the two sector heads of the zonal executive
committee, Department of Finance, DPPD, and the national program director of WDF
(BoPED/ANRS, 1999). The ZDCC
provides reviews and approves policy guidelines, resolves WDF-related problems,
approves annual work plans, and facilitates monitoring and evaluation work
(BoPED, 1999). The WDC is
responsible for overseeing all WDF activities in the woreda, including selection
of kebeles to be covered by WDF, allocation of finance for individual kebeles,
and appraisal and approval of micro projects and annual works plans submitted by
kebeles. It also coordinates the
participation of woreda level line offices in WDF activities, conducts bimonthly
reviews of the overall progress of projects, coordinates the contribution of the
community, and prepares proposals with respect to tendering and procurement at
the woreda level (BoPED, 1999).

In addition to these existing
formal structures at zonal and woreda levels, WDF has developed additional institutions to
implement projects: woreda technical committee (TCC), kebele development
committee, gote development committee, and village level development
Committee Each woreda also
has a woreda development coordinator.
The woreda technical committee is the institution that prepares technical
proposals to be submitted to the WDC.

2.2.5 Community Participation and Empowerment

Community empowerment is one of
UNCDF’s objectives. It hopes to
achieve this goal by raising the planning and implementing capacities of
communities. With regard to
planning, sub-groups and plenary discussion groups identify and prioritize
demands. The orientation workshops
about the CDF and different activities, such as drama events, are attempts to
expose communities to the idea of participatory development. On the implementation side, CDF trains
artisans, masons and carpenters to undertake small-scale construction
activities. Though CDF does not
have any policy requiring the participation of the community in terms of labor
or material contribution, it has been suggested that the community has
participated in providing labor and local construction material; however, there
is no quantified information on the subject

2.2. 6 Problems

UNCDF is considered an NGO by the
woreda council and line offices.
Hence, community and government officials expect that planned activities should be
implemented by UNCDF. UNCDF,
however, is a donor and not an implementing agency.

UNCDF programs rely on the
multisectoral development approach.
The inclination and experiences of different sectors in North Gonder,
however, do not foster a multisectoral approach but focus on particular sectors. Such sectoral approaches to development
are now considered an impediment to integrated development.

UNCDF utilizes PRA method to
identify the needs and priorities of the communities. The method, however, requires intensive
training and a thorough understanding of its techniques by those who use them.
As a result, the replicability of the program is dependent on the degree to
which PRA method can be effectively utilized and understood. Since a good understanding and use of
the method involves a long process, the methodology may not be replicable. The
high turnover of officials is also reported as a bottleneck for the smooth
running of the program

In addition, though community
participation is a major goal of UNCDF, there is no mechanism for the community
to be involved decisively in the implementation process. For instance, though each kebele is
allotted a financial resource, the management of the fund is undertaken by
WDC. Similarly there is no
mechanism to provide transparency to the community. The community has no access to records
regarding such matters as budget utilization or expenditures.

2.3 GTZ-IFSP-SG (Integrated
Food Security Program – South Gonder)

The Integrated Food Security Program–South Gonder is
implemented in six food insecure woredas, Tach Gayint, Lay Gayint, Semada,
Libo-Kemekem, Farta, and Este. The latter two woredas were included in2000,
while the program in the other four woredas started in 1996. The program originated with a request
from Amhara National Regional State; the project was subsequently prepared in
1994-95. A complex of
factors,–such as drought, limited access to productive resources, low
production and productivity of the existing farming system, severe land
degradation, inappropriate access to production inputs, lack of markets and
extension services, inadequate physical infrastructure, and limited
nonagricultural income–are believed to be associated with the poor nutritional
status of the South Gonder zone (FDRE and FRE, 2001). The program is now in its second phase
and has outlined overall goals
program purposes and program outputs (listed in Box 4). As a result of its
objectives, the program focuses on such measures as increase and diversify food
production, natural resource management, construction and rehabilitation of
rural roads, and provision of safe
drinking water.

Box 4: Overall goal, program purpose, and outputs of
IFSP-SG

Overall
Goal:
Improving the nutrition situation of food insecure households in South
Gonder.

Program
purpose: Helping food insecure households in South Gonder apply better
methods and techniques to improve their nutritional situation

Program outputs:

·
Improved agricultural approaches for arid?dry land and
areas of lowproductivity are developed, tested, and promoted;

·
Improved techniques in agro-forestry, soil and
water conservation (SWC), and rehabilitation of degraded areas for
improved production are elaborated, tested and promoted;

·
Finalization, monitoring and evaluation of a
regional food security strategy is supported; and

·
Reduction of acute nutritional
shortfalls.

2.3.1 Planning and Implementation

The planning procedure uses a project
cycle management and goal-oriented project planning method. The program organizes planning workshops
in which all stakeholders from woreda, zonal, and regional levels
participate. Program objectives,
outputs, and related indicators are decided jointly, while planning of FFW (food
for work) activities to ease seasonal and chronic food deficits is done on an
annual basis . Yearly work plans are also prepared in a workshop in which woreda
councils and line offices participate.
The plan of operation clearly delineates the activities under each
result/output, the indicators, the time frame, the responsible organization, and
the source and amount of financing for the work. An examination of the plan of operation
for Tach Gayint and Farta woredas for 1999 revealed that except for one activity
in Farta Woreda (the purchase of veterinary equipment) the main responsible
organization is the Office of Agriculture at woreda level, with the Woreda
Council and the Department of Agriculture at zonal level being the cooperating
institutions. The relevant
community is accessed through peasant associations and through the government
structure at zonal, regional, and woreda levels. A progress review has indicated that the
cooperation with most woreda councils and sectoral organizations is at
satisfactory level (FDRE & FRG, 2001).
The department of works helps with bid preparation, advertisement,
evaluation, and selection of contractors.
Contracts are signed by the Bureau of Agriculture. Beneficiary and site selections are
performed by Wereda Council and the Office of Agriculture.

2. 3.2 Project Activities

Table 3 shows the project
activities during 1999 calendar year for Tach Gayint Woreda.[33] It is not possible to separate planned
and achieved projects because the information was obtained from Debre Tabor by
e-mail as presented here. But it
seems that these projects are both planned and implemented activities since the
respondent has referred to the same table when asked about implemented and
planned activities.

The activities include infrastructure, agriculture, soil and
water conservation, rural water development, training, and other services. The table indicates that soil and water
activities have the highest financial outlay, followed by infrastructure and
agricultural activities.

Table 3 : Project
Activities and Financial Outlay for Tach Gayint Woreda

Sector

Type of
project

Number of
projects

Financial outlay
(ETB)

Infrastructure

Road
construction

Including 3 river crossings
and road maintenance

4 different sites;

8 km new
road;

6 km road
maintenance

347,000

(include FFW
grain)

Agriculture

Trials,

demonstrations, Fruit
trees, vegetable nurseries

6
sites/activities

323,500

(include FFW
grain)

Support irrigation
system

Traditional
irrigation

3 sites; pond and river
diversion

240,000

(incl FFW
grain)

SWC
biophysical

Gully
rehabilitation;

Waterways; cutoff drains;
micro basins

Different
sites

ETB 660,000

(incl FFW
grain)

Rural water
development/Potable water

Water points
development

2 sites fro spring and hand
dug well

29,000

Training
courses

Road foremen;

Water artisans;
storekeepers

6 weeks/6
persons

15 days/5
persons

5 days/3
persons

12,000

3,000

1,200

Training course continued
for agriculture sector

Training and visit, crop
production, livestock

45,000

Other
services

Transport; various
materials, such stationery; per diems

Woreda council and office
of agriculture

150,000

Source: Debre Tabor GTZ project
office

2.3.3 Budget management and allocations

The project office in Debre Tabor is responsible for budget
management and disbursement.
There are two ways of channeling resources to the program area: direct
provision of resources—for instance, advice from project staff; transport
(lorries, tractors, station wagons); materials such as stationery, tools, office
equipment, cement, or construction goods;   and direct cash flow in the form
of local financial subsidies. In
the case of the latter, an agreement is made among project staff, Woreda Council
and/or the office of agriculture to finance certain undertakings (such as.
training courses, river crossings, or payment of road foremen), and the agreed
upon amount is paid in cash. ???? Funds not spent must be returned to the
project. The project makes between
50 and 60 such agreements per year with a total value of between ETB 1 and 1.5
million.   The Woreda Council
and the Office of Agriculture have to account to the project with detailed
vouchers for the project’s own
bookkeeping purpose. The
project in turn is accountable to the head office for financial reporting.

With regard to resource allocations, the available budget
is knownduring log frame planning. The budget is then broken down and announced
on a yearly basis for each woreda/department and allocated in activity
planning. When budgeting grain for FFW, the available amount in
person days is allocated per woreda per year. Under the grain allocation
procedure, total available funds and person days are disclosed during a planning
session. Stakeholders then decide
on their own in separate session on woreda allocations and plan
accordingly.

Donor policy is used in accounting
systems, tender, contract administration, procurement, and audit of the
program. Foreign and local
procurements are mostly done by the head office.

2.3.4 Institutional structure and relations

GTZ has established a Program
Management Unit (PMU) headed by a German team leader at zonal level. The PMU provides a facilitating and
supporting role for all program partners in planning, management, capacity
building and monitoring functions.
The main partner institutions for GTZ are the Bureau of Agriculture and
the corresponding departments and offices at zonal and woreda level. Two other committees, a program
coordination and a technical committee, were also established recently at the
zonal level. The later is mainly responsible for coordinating agricultural
activities

2.3.5 Community participation and empowerment

Community participation in IFSP projects is solely left to
the Woreda Council and the Bureau of Agriculture. The professional staffs are expected to
give advice, supervise, and check on the performance of the community. The training given to the communities is
arranged through Woreda Council and the Office of Agriculture. Community contributions to the project
are very limited. Communities get
off free except in water point construction, where a minimum contribution of
local material is required.
It thus seems that the main thrust of IFSP in terms of participation and
empowerment is the Woreda Council and the Office of Agriculture–not the
community.

2.3.6 Problems

The IFSP project leader feels that elected local bodies and
officials pose notable problems.
The elected local bodies are interested in getting as many resources
(such as funds and grains) as possible to the electorate. They neither feel responsible for nor
fear the unintended consequences of too much aid—for instance, dependency
syndrome. In terms of project
selection, there is a tendency among local leaders to prefer new road
construction over projects that maintain infrastructure, such as stone bunds or water points. Local leaders also lack commitment and
full support to particular projects, feeling that if this project fails, the
next donor will come in any case.
Local leaders also may not support a project because they themselves are
heavily loaded with meetings and other commitments.

Civil servants in the project appeared eager to obtain per
diems, but tended to wait for orders from above rather than taking the
initiative regarding project affairs.

2. 4 World Vision in Sodo Zuria

Damota II Area Development Progam (ADP) is
one of the World Vision International Ethiopia ADPs operating in South Nation
Nationalities and Peoples Region in North Omo zone since 1984-85, the period of
massive famine in Ethiopia. The ADP
functions in two woredas of the zone, Sodo Zuria and Humbo. There are 34 kebeles in the two woredas, of which 27
are found in Sodo Zuria. The
inhabitants of Damota II ADP are highly dependent on a traditional agriculture
characterized by poor performance.
The major factors for low performance, among others, are a low rate of
input use, high population pressures, scarcity of land, shortages of draught
oxen and basic farm implements, the erratic nature of rainfall, and a high
prevalence of pests and diseases
(World Vision, 1998). The Damota II
ADP initiated its activities by entering an agreement with SNNPR to undertake
development efforts in Sodo Zuria and Humbo Woredas. It has designed a five-year plan
extending from 1998 to 2003.

2.4.1 Planning and
implementation procedures

World Vision prepares two types of plans: long term plan
and short term. A long-term plan is
a five-year plan, and the short-term plan derives from the long-term plan
annually. The preparation of the plan starts with needs identification at the
grassroots level, using such
techniques as focus group discussions and PRA methods. This leads to the identification of
community needs at gote and kebele levels.
In addition, the target groups–the poorest of the poor–are identified
via wealth ranking methods in consultation with the community. The identification of needs and target
households is carried by a team comprising representatives from the woreda, the
community, and civil society, such as idir.. Each program facilitation team prepares
the plan and submits it to the ADP management. The plan is next submitted to the Woreda
DPPC and Woreda Council for approval.
The agreed plan then goes to the World Vision head office for harmonizing
with its own standards and procedures. The ADP management is the main
implementing organ of activities at woreda level. It receives standards for
different services from line offices. The ADP undertakes purchases up to ETB
100,000, while procurements that exceed ETB 100,000 are made by the central
office. Advertisements and approval
of bids are performed by the central office.

2.4.2 Planned and
Implemented Activities.

The planned and implemented activities for FY1998 and
FY1999were in the areas of agricultural production, off-farm income,
socioeconomic infrastructure, and child well being. In the area of agricultural goals, the
major activities undertaken included training, demonstrations, support for
extension services, support for nursery and livestock, control of crop pests and
diseases, , and control of human epidemics (World Vision, 1998, 1999). Training was provided for selected
farmers[34]
in soil and water conservation, agro-forestry, and techniques for beekeeping and
for raising poultry, enset, maize, coffee, and vegetables. Off-farm activities
mainly focused on credit provision, promotional work (solidarity group formation
and awareness creation), and community training. Out of the total credit
disbursed, 95 percent was allotted to these off-farm activities in 1998. The other notable activity in off-farm
activity was the formation of interest groups, such as weavers, spinners,
beekeepers, and poultry farmers.
These groups will promote the interests of the members.

The activities undertaken undepost r improving
socioeconomic infrastructure and children’s well-being were health-related,
including water development, health post construction, training, food
supplements, and educational activities in the formal and informal sector. The year 1999 also saw some bridge and
road construction and maintenance.
Annex 7 provides the agricultural accomplishments, the off-farm
activities, socioeconomic infrastructure and children’s well-being activities
for 1998 and 1999.

2.4.3 Budget and
Resource Management

The Sodo World Vision program has three sponsorship and
two grants projects. During FY1998 a total budget of US$851,197 was
allotted to the ADPII (for Sodo and
Humbo Woredas together) The financial utilization was US$811,095, with an
aggregate variance of 4.71 percent, which amounts to underspending of
US$40,102. The bulk share was
utilized for socioeconomic infrastructure, accounting for 48.6 percent of the
total expenditure. The second bulk
share (15 percent) went to SRS and child development, while program management
consumed about 12 percent. In
addition to cash expenditure, a total of 147.7 metric tons of wheat and 5.9
metric tons of oil were expended during the same fiscal year. In FY1999, the total budget for Sodo
Zuria Woreda alone was US$530,638, while the total expenditure was
US$535,934. The bulk of the
expenditure was made in the infrastructure sector (see Tables 4 and
5).

Table 4: Cash budget plan and expenditure of World
Vision’s ADPII for fiscal year 1998* (USD)

No.

Sectoral expenditure

Annual Budget

Annual Expenditure

Variance

(%)

Share of total expenditure
(%)

SRS child development

144,124

123,242

14.49

12.3

Agriculture

20,446

14,022

31.42

Economic development

90,954

81,784

10.08

Early warning, M & E
(Baseline)

23,768

4,633

80.51

socioeconomic
infrastructure

296,537

394,511

-33.04

Program management

153,660

100,533

34.57

Capacity building

121,708

92,370

24.11

Total

851,197

811,095

4.71

* includes
both Sodo and Humbo woredas

Source: World Vision, 1988

The budget is transferred to ADP from the central office
upon request. As an implementing
agency ADP does not transfer budget to other parties. It has full responsibility
in disbursing and managing the fund allotted to it. The disbursement is based on World
Vision’s financial manual. The ADP
is accountable to the central office in terms of financial utilization. Financial reports are also sent to the
DPPC on a quarterly basis.

Table 5 : Cash budget and expenditure of World
Vision for Sodo Zuria, FY1999 (USD)*

No.

Activity

Budget

Expenditure

Variance (%)

Health program

3,632

3,634

Quality SRS/education

39,289

39,305

Agriculture program

55,145

44,348

Micro enterprise

3,013

3,014

Relief and rehabilitation

89,827

96,538

Infrastructure

160,512

158,278

Water development

80,002

80,056

Administration and
management

99,218

99,791

Total

530,638

535,964

* The figures are only for Sodo
Woreda

Source: World Vision, 1999

In all World Vision projects, the community is expected to
cover 10 percent of the total cost of the project, either in cash or in
kind. Table 6 provides the
contribution of the community in 1999 to project cost in the form of labor and
materials. The table reveals that the community has
contributed ETB 14,905 worth of labor and ETB 280 worth of eucalyptus
trees.

Table 6: Community labor and material contribution in
1999

Project name

Volume of work done

Number of people involved

Estimated cost of labor
contribution

(ETB)

Material contribution

Estimated cost of material
contribution(ETB)

Gillo Bissara spring

2.3km canal excavation

1,530

10,450

–

Bolloa bridge maintenance

400 meters road

428

1,200

120 Eucalyptus

280

Tebela spring

800 mt excavation

3,255

Source: World Vision 1999 report

2.4.4. Institutional Structure and
Relations

World Vision has its own organizational structure, which
stretches from the national office to the kebele administration. The parts of the structure are the
national office, regional office, ADP, team, and team members. The national office coordinates the
overall activities in the country.
The regional office, which is housed in the national offices, is
responsible for coordinating ADPs within the region. The ADP coordinates the activities at
woreda or group of woredas level.
The team is responsible for the activities of a single woreda and is the
main planning and implementing body of the ADP. The team members operate at kebele level
and are responsible for coordinating the activities undertaken in a group of
kebeles.

The World Vision structure operates in conjunction
with government structure. Zonal DPPC and line offices are the main
government offices with which Sodo Zuria World Vision closely works. DPPC receives quarterly reports and also
asks for justification regarding project implementation. Line offices set standards for different
services provided and are involved in supervising and monitoring the
activities. Line offices also are
involved in screening trainees for different projects on the basis of criteria
established by World Vision. Line offices are in fact responsible for
operating and maintaining projects once they are completed. World Vision has
also established additional program facilitation committees at more local
levels, such as water users committee to run and maintain water
points.

2.4.5 Community
Participation and Empowerment

The participation of the community in World Vision
projects is seen in the needs identification and implementation stages. In the needs identification stage,
community representatives join a needs assessment team. One of the policies of World Vision is
the requirement that each community must contribute to a project’s cost in the
form of cash or materials. This is
assumed to ensure the commitment of the community in project
implementation. The community is
also required to take responsibility for running projects through its own
organizations. The water users
committee established by World
Vision is an example of one such organization. Among the activities of World Vision is
the provision of training for both government staff and the community. Government staff training is given to
development agents and home agents in extension and management to improve their
work with farmers. World Vision
also increases the capacity of Government staff, particularly the DAs, by providing such institutional
facilities as bicycles and altimeters to support field work. Community training enables farmers
to internalize and capitalize the profitable farming practices introduced
through extension activities of bureaus of agriculture; community training also
helps farmers appreciate scientific farming as well as establishing links with
traditional farming methods. Such
training will enhance the implementation capacities of farmers and government
workers in different projects. In
addition, World Vision provided community training sessions and sensitizations
in micronutrients. These sessions
were intended to raise the awareness of the community about food and diet. More informally, World Vision provided
training in such skills as metal working, woodworking, tannery, carpet weaving,
and tailoring, to build the local indigenous capacities of the community and to
widen rural people’s economic
options. World Vision is also
active in forming interest groups and solidarity groups to forward the interests
of different parts of the community.

2.4.6
Problems

The high turnover of officials is sited as a serious
impediment to the activities of World Vision. Whenever someone leaves office,
World Vision finds itself working with
a new official who is unaware of the details of the program. Lack of commitment by the line sector
offices to World Vision projects also hampers the smooth operation of the
projects. It was reported that
personnel in line offices expect higher per diems and incentives as a
precondition for their involvement in the project. Failure to fulfill their expectations
leads to lack of commitment by line office workers. Woredas also expect World Vision to pay
for some of their recurrent budget items, such as stationery or fuel. This,
however, is beyond the mandate of World Vision. Drought is another serious problem
posing a threat to the continuity of development. The program area is highly susceptible
to drought, and its recurrence
erodes farmers’ assets and undermines development activities. This means World Vision cannot build on
its previous achievements. It also
must assemble special programs addressing the specific needs of emergency times.
Another problem comes from the government credit policy, which makes it
difficult to obtain credit for off-farm activities in the project area.[35]

2.5 Action Contra la
Faim (ACF) in Afar Region-Dubti

In the Afar region, ACF works in
zone 4 (Kalouan zone) and zone 1 (Dubti zone). The programs have animal health
and water development components.
The animal health project is carried in four woredas, Dubti, Gulina,
Awra, and Ellina. The program is in
the process of expanding to a fifth woreda. Water development is carried out in wide
areas of the two zones. The aim of
the animal health project is to establish community based animal health services
and a sustainable veterinary medicine supply.

2.5.1 Planning and
Implementation Procedures

Pre project studies and
project formulations

ACF has undertaken baseline studies to investigate the
problems of the area and establish the people’s needs. In November 1996, ACF
conducted an assessment mission in coordination with the Water and Health Bureau
in the Afar Region. Both parties
agreed on the need to focus on zones 1 and 4. In December 1996, a followup mission was
carried out with a hydrologist of ACF and a representative of the French
Veterinary Agricultural Project (FVAPE-CIRAD) to determine the specific needs
from the local population, the elders, and the administrative officials. In April 1997, ACF carried out a
mission to assemble a final proposition for an integrated animal health and
water development project for the Afar Region of zone 1 and 4. In 1998, ACF and the local
administration carried out a further assessment. In 1999, the project document was finally signed
between the Bureau of Agriculture,
Water Resources Development Bureau, DPPB of the Afar National Regional State,
and Action Contra la Faim.

On the basis of the study and the agreement, ACF has
formulated a plan specifying the projects to be implemented and balancing the
needs of the area with available resources. The implementation procedures vary with
the nature of the project.

Project
execution

Animal health
treatment project: The first
step was a sensitization workshop with community leaders and kebele
leaders. The sensitization workshop
covered animal health education, program objectives, and setups. The meeting was facilitated by Afar
nationals working for the project.
The idea of paravets as a
tool to be used in the woreda was also introduced. After the sensitization workshop, the
selection of paravets was carried out by the community leaders (kebele and
traditional leaders). The paravets
were given training on diagnosis, treatment, dosage, and pricing. Paravets buy medications from ACF
suppliers in woredas and sell at a
cost-recovery price that also allows a profit markups.

The vaccination
program: This was implemented
by woreda clinics, under the economic sector of the Woreda Council. A team of experts from clinics go to
selected community sites (for instance, crushes in selected kebeles) and provide
vaccinations. The expert team
especially works to inoculate cattle with vaccines that require refrigeration.
The main role of ACF with regard to the vaccination program is to build up the
capacity of woreda clinics by providing shots and transport and by proposing
different methods of carrying out the program. Vaccines that do not need to be kept
cold are provided by paravets, who obtain the doses from woreda clinics and
bring them to farmers in their community.
Farmers pay ETB 20 cents per animal to receive the service, a sum kept by
the paravets.

Water development
project: The water development project was implemented by ACF, the
community, and the zonal water department.
ACF provided technical and
material inputs in the construction of large and small water points. Small water points or hand-dug wells
were built by the community, while larger water points, such as boreholes, were
undertaken by the zonal water departments.
The zonal water departments supply their own engineers for the
construction of these water points.
In all the projects, ACF is the prime implementing agency, setting
standards, advertising for and selecting bidders, and undertaking
procurements. The central office is
responsible for bid advertising, signing and approving, and procuring goods and
inputs.

2.5.2 Planned and
Implemented Activities

ACF prepares quarterly reports on the way it achieved its
activities. Activities in Annex 8
were achieved during the four quarters of the year 2000. The first quarter was devoted mostly to
initial work, contacts, and opening of project offices. In the remaining
quarters, activities covered the fields of animal health and water components.
Vaccination, training, and water development in different woredas were carried
during these quarters. In Dubti,
activities included opening the project office, providing 3000 l tanks to Dubti School and Mosque,
a vaccination program, sensitization of communities to veterinary services, and
initial discussions with Dubti Woreda on the next phase. Other activities, such as studies on
animal diseases, were also widely carried in zones 4 and 1.

2.5.3 Budget and
Resource Management

The main source of funding for Action Contra la Faim is
the Government of France. Following
the signing of an agreement between the Vice Minister of Finance of FDRE and the
Ambassador of the Republic of France, ETB 3,081,027 (50 percent of the total budget) was transferred to the
Afar Region (account no. GOV 841).
In 1999, when Action Contra la Faim presented its 12-month action plan,
ETB 2,997,333 was transferred from the Afar National Regional State to the
Action Contra la Faim’s account in the CBE Assayita branch (account no.
852). The regional contribution,
amounting to ETB 179,000, was also
transferred to Action Contra la Faim early in 2000.

The total budget for the year 2000 was ETB 6,341,054,
while the expenditure is ETB 2,106,941, 33
percent of the total budget.
In principle about 6 percent of the total budget is used for overhead
(Table 7)

Table 7: Summary of ACF expenditure for the year
2000 (ETB)

Budget title

Project budget
(ANRS/France)

Total expenses

Budget balance

Expatriate staff

292,760

134,853

157,907

Local staff

1,503,764

323,786

1,179,978

Basic equipment

868,988

868,328

660

Program support

836,432

352,743

483,690

Equipment and supplies

1,008,240

165,607

842,633

Works ( hand wells, water tanks, boreholes,
ponds)

1,063,215

59,035

1,004,180

Other items

157,000

1,350

155,650

Indirect costs

5,7309,400

1,905,703

3,824,697

Administrative costs (6%)

333,084

201,238

131,846

Contingency (5%)

277,570

Grand total

6,341,054

2,106,941

4,234,113

Source, ACF Quarterly Report (Oct 2000-Dec
2000)

ACF is an implementing agency; hence it manages its budget
according to its internal rules and plan of operation. The field office is responsible for
committing resources. The money
deposited in Assayta Bank by ANRS was transferred to the head office account in
Addis Ababa. The head office keeps
the amount necessary for procurement and purchases and transfers monies for
field expenses to Dubti. Local
payments are done by field offices, while purchases and procurements are handled
by the central office.

Quarterly budget and expenditure reports are provided to
DPPB, Bureau of Finance, Bureau of Agriculture, Bureau of Water Development,
Bureau of Planning, and the Afar Regional State. Reporting largely provides information
rather than true accountability.
ACF’s financial reports have never been subject to any close examination.
This is especially surprising given that the money ACF is using was originally
granted through Afar Regional State.

ACF does not follow such policies as community
contribution, add on, or fund matching..
The only requirement is the regional contribution to the project (see above). The community, however, provides labor
contributions for small projects, such as hand-dug wells. Such contributions are not recorded and
are difficult to quantify.

2.5.4 Institutional
Structure and Relations

The ACF has its national office in Addis Ababa and its
program office in Dubti. Hence it
does not maintain any of its own structures at woreda or kebele level. However, ACF works with regional administrative
entities at various levels and receives technical support from certain
bureaus. At regional level,
the Bureau of Agriculture (containing the animal health department), the Water
Bureau, DPPB, and the Planning Bureau are involved in ACF work in different
capacities. The Bureau of
Agriculture is asked to send one representative for all the technical work ACF
undertakes regarding animal health.
This representative is to serve as an observer or participant, depending
on the nature of the project and the level of commitment of the
representative. The Water Bureau is
also expected to send a representative to participate in technical work
regarding water development. In
addition, the Water Bureau supplies its experts for the construction of bigger
water boreholes, undertakes surveys, and provides other technical inputs. At
zonal level, the zonal agricultural department mobilizes woreda leaders, but
does not provide technical inputs.
The same role is played by the zonal water bureau. At woreda level the
economic sector and the Woreda Council mobilize the community. Similarly, at the community level, a
woreda contact person mobilizes meetings with kebele leaders and clan
leaders. The kebele and clan
leaders are the main entry points to reach into communities. The clan and kebele leaders are actively
involved in the selection of sites within kebeles and selection of kebeles
within the woredas. Similarly,
people who will undergo paravet training are selected by clan leaders and kebele
leaders.

2.5.5 Community
participation and empowerment

The community participates in the construction of water
points by providing labor for construction. In fact, it is the responsibility of the
community to build and manage
hand-dug wells. . Waters
users committee established at grassroots levels are responsible for managing
water points. Kebele and
traditional leaders participate not only in providing access to the community at
large but also in selecting sites, as well as choosing candidates for paravet
training.

In terms of community empowerment, ACF provides education
and sensitization workshops to raise awareness about animal diseases. It also provides small-scale training
for the community to undertake small and routine maintenance procedures,
especially for hand-dug wells.

2.5.6
Problems

Federal policy on the provision of treatment for animals
is at variancewith regional policy.
The national policy promotes the involvement of private veterinary
services, while the regional government does not want to privatize and in fact
distributes veterinary medicines for free.
Such a conflict of interest has its own bearing on ACF activities
regarding the private treatment services. ACF is supporting the private
provision of veterinary services, a stance that is not welcomed by the regional
government. In addition, ACF
regards the existing veterinary structure, which provides a fixed service at a
fixed location, as a problem since it lacks flexibility. ACF, however, is forced
to work with the existing system.
Other major problems ACF cites are the lack of motivation among different
levels of government workers and the desire of civil servants to receive higher
per diems from ACF projects.

2.6 The SIDA Woreda
Based Development Project in Awabel

Awabel is one of SIDA’s pilot woredas in East Gojjam in the
implementation of Woreda Based Development Project. One of its key goals is to activate the
participatory development process.
It hopes to achieve this by a variety of participatory procedures; in
particular, it aims to strengthen the planning capacities of woreda
administrators by encouraging them to exercise planning and implementation on a
participatory basis. . Another key
component of the Woreda Based Development Project is the woreda development
fund–monies released to each woreda and held under the discretion of the woreda
council. The Woreda Development
Committee (WDC) is responsible for the allocation of the fund.

2.6.1 Planning and
Implementation procedures of the Woreda Based Development
Project

The procedures or operational guidelines of the program are
(ANRS/SIDA, 1996c):

·
The target group uses the community workshop carried out
by the woreda administration office or by the extension service to prioritize
and plan its needs;

·
The people take the initiative to plan utilizing their
own resources; when their resources are insufficient they forward a request for
technical assistance or material support to the woreda administration through
their kebele administration; and

·
The woreda administration decides how to respond to the
various requests coming from local communities and individuals, then allocates
funds, materials, or technical assistance from the woreda development
fund.

A community workshop is the principal instrument to ensure
community participation and to
build up the community’s capacity to plan development activities and
request support from the local governmental institution. In 1998-99 in Awabel a total of
11,050 people participated in the workshop. Of those who participated 4,513 were
youth, 5,137 were men, and 1,200 were women. Eleven per cent of the total
participants were women (ANRS/SIDA,
1999).[36]

In practice, the planning process starts at gote level and
proceeds to kebele and woreda. At gote level a plan formulation committee is
established, comprised of three men, three women, and three youth. Generally the community workshop
is facilitated by a plan formulation committee assisted by the development
agent, woreda council and line offices.
These assisting bodies have received training on participatory
development (PADETTS), gender, and other program issues. In practice, however, it is the
development agent (DA) who seems to do the most to assist the plan formulation
committee.

Issues discussed at sub-kebele level include the problems
of the sub-kebele, ranked in order of importance; the causes of and solutions to
these problems the contribution of the community in undertaking the desired
project; and the assistance needed from the government. The community workshop has two
outputs. The first output is a list
of problems and their causes, and proposed solutions to the problem. The second output is a work program
which specifies the type of work to be undertaken, the contribution of the
community specified by type and quantity, the timetable, and the estimated
number of participants for a particular type of work.

The second level of the meeting is held at kebele
level. The kebele development
committee, which comprises the kebele and sub-kebele executives and development
agent, examines the lists submitted by different sub-kebeles or gotes and
prioritizes the demands. Minutes
are taken by the development agent at the kebele level. The prioritized demands are submitted to
the woreda development committee through kebele executives. The woreda development committee
receives listings of demands from different kebeles in the woreda and
prioritizes them. Decisions
regarding the selection of activities are made at woreda level by the woreda development
committee. The details of the
project are formulated by sector offices.
However, when the woreda office cannot supply the necessary capacity to
formulate the project, assistance is sought from zonal offices.

Implementation and follow up of any project in the woreda
is the responsibility of the woreda development committee. The committee puts out tenders, enters
into a contract for the construction of the project, and follows up the
implementation of the project on the basis of the action plan it has
prepared. The woreda development
committee is eligible to tender for the full amount of the fund, while the
woreda’s tender rights are limited to
no more than ETB 50,000. The work is supervised and followed up by the
woreda development committee once every 15 days. The committee also checks and accepts
projects deemed to be complete. The
kebele administration is responsible for coordinating the contribution of the
community for the operation of the project, which in turn delegates the work to
the mengistaw budens. Thus at the lower end, the mengistaw
budens serve as implementing organs.
The implementation is assisted by timetables and action plans that may be
prepared by the woreda development committee.

2.6.2 Achievements
of the program

The first year of the program was mostly devoted to startup
activities in the pilot woredas, such as introducing the program and providing
training to woreda officials and concerned bodies at zonal and woreda
levels. Community workshops were
also carried out. Many activities
were accomplished in the second and the third years. The physical activities accomplished in
Awabel Woreda under Woreda Based Development for 1998 and 1999 are given in
Table 8.

It can be seen that communities have identified and
implemented projects such as village roads, potable water, maintenance of
elementary schools, and various agricultural projects, including terracing,
planting seedlings, and soil and water conservation activities.

Table 8: Planned and Accomplished Physical Activities of
WDF in Awabel, 1998-99

Activities

Unit

1998

1999*

Activities

Unit

Planned

Accomplished

Potable
water

Hand-dug
well

Spring
development

–

Village
road

14.4

Agricultural
activities

Terracing

Contouring

Finagu

Cut of
drain

Check
dam

Horticulture seeds

Coffee
seedlings

Forestry
seedlings

Soil
bund

500

2.5

–

500

2.5

3.1mill

5.54

2.61

6.37

1250

5.2
mil

School
maintenance

–

Source ANRS,
1999

* planned
activities for 1999 were not available for the document

In the process of implementing these activities, the
program has provided an opportunity for local administrations to handle the
nitty gritty of projects for their successful implementation. For instance, in 1998 recruits from
Awabel received training on reinforced pipe construction. Similarly, the
administration formed a procurement committee that facilitated procurement
procedures and, with the help of employed technicians, has been able to train
artisans for water point
construction. In fact. the
opportunity created for managing and implementing activities by woredas should
be considered as a more valuable contribution of WDF than the physical assets it
builds in the woreda.

2.6.3 Budget and
Resource Management

SIDA’s program resources are provided to the regional
government by the government of Sweden.
The regional government is represented by BoPED. BoPED is responsible for allocating
resources to sectoral offices,[37]
for running such sectoral activities as farm research and credit, and to the
woredas for carrying out Woreda Based Development. The woredas receive a fixed sum of ETB
450,000 for capital expenditure and about ETB 190,000 for capacity building[38]. The fund is directly transferred from
BoPED to woreda council in their account.
The disbursement of the fund is done on quarterly basis. The woreda first
submits a one-year plan based on participatory needs identification; after this,
the first quarter’s monies are released.
The woreda then sends a report on the quarterly budget utilization; this
report forms the basis for the next round of funding. The fund is committed by
the Woreda Development Committee. Sectoral allocation is done on the basis of
priority considerations. The
spatial distribution of the fund is also decided by the Woreda Development
Committee.

In both years, the financial utilization seemed to tilt
heavily toward road construction (Table 9). This may be reflect the popular demand
for road construction in Ethiopia’s largely inaccessible rural areas in
Ethiopia. The community has made a
significant contribution of labor and material towards the implementing these
projects.

Table 9: Total Financial Utilization in Awabel
1998, 1999 (000 ETB)

Activities

Awable

1998

1999

Potable
water

106

148.5

Village
road

377

196.2

Agriculture

42.1

33.7

School maintenance
& furniture

61.0

112.1

Health post
construction

–

Total

586.1

490.5

In 1998, the community contribution amounted to ETB
117,900, about 20 percent of the total financial outlay (Table 10). In 1999, the community contribution was
worth about ETB 444,600, an amount almost equal to the financial outlay of WDF
for the year.

The program has certainly registered some achievements in
providing services and facilities to the community. It also shows it is able to mobilize the
community to make contributions to the construction of local services and
facilities.

Table 10: Community Participation in 1998
and 1999 in Awabel (in 000 ETB).

Activities

Awable

1998

1999

Potable
water

14.0

44.4

Village
road

52.5

75.8

Agriculture

50.0

324.4

School maintenance
& furniture

0.69

–

Health post
construction

–

Total

117.19

444.6

2.6.4 Institutional
Structure and Relations

SIDA is a donor and not an implementing agency. As a donor it does not need to establish
its own planning and implementing organs.
It relies exclusively on the existing administrative structure of
regional councils and woreda councils.
The regional council is represented by BoPED at regional level and DOPED
at zonal level. The woreda council
is represented by the woreda development committee in which the chairman of the
council is the chairman of the woreda development committee. Different coordinating committees,
however, have been established to assist BoPED and DOPED and provide technical
backstopping and advice on the implementation of woreda-based development. At
regional level there is a program coordination committee (PCC) which is composed
of participating sector head and is chaired by the BoPED head. The PCC has an advisory role while BoPED
is the executing agency. The PCC,
however, has significant autonomy and power with regard to decision making,
budget reallocation, and prioritization.
It also ensures whether the overall program is in line with the region’s
Five-Year Plan. A replica of PCC at
zonal level is the Program Coordinating Unit (PCU). The PCU is headed by the zonal
department head and has heads of participating zonal sector departments as
members. The PCU is accountable to the PCC and coordinates activities at woreda
level. At woreda level the
chairman of the woreda council and, through him, the woreda development
committee are responsible for woreda development funds. The SIDA program does not go beyond the
woreda council structurally but the woreda is responsible for forming community
groups to undertake participatory planning. As a result, kebele executives
participate at kebele level, and plan formulation committees at sub-kebele level
are formed in different woredas.
The sectoral offices at regional and zonal levels are implementing
agencies. The sector offices have
two roles: implementing agency and beneficiary. As implementing agency, they are
expected to undertake research and back up front line offices by providing
training and capacity building. As
beneficiary, they not only receive national and overseas training but also
benefit from the provisions of infrastructure, such as office buildings,
computers, transportation vehicles, and motorcycles.

The whole system is backed up by a consulting firm,
Orgut-Dangaor Consulting (ODC). The
ODC has a management team at regional level which assist BoPED and the subject
matter specialists (SMS) at zonal level who are engaged in system
development. The SMSs provide
technical assistance and backstopping for program woredas within the zone. The consulting firm is hired by BoPED,
but SIDA facilitates payments for the consulting firm. SIDA has also hired an accountant to
help BoPED with financial settlements.
The accountant is stationed in BoPED and provides financial services to
program woredas. One of the
services provided was the preparation of a financial manual and training of
woreda council in its use.

The system of accountability in the institutional structure
is that at higher levels in the
hierarchy BoPED is accountable to SIDA through the provision of financial and
narrative reports. At lower levels,
the woreda council is accountable to PCU, while PCU is in turn accountable to
BoPED and through it to the PCC.

2.6.5 Community
Participation and Empowerment

The SIDA model is based on participatory development. The community therefore is the entry
point of planning. The community
identifies and prioritizes needs through the community workshop; these needs are
later aggregated and submitted to the woreda by the kebele executives. The woreda development committee
prepares the plan and commit the resources. Though community participation is
regarded as the hallmark of SIDA projects, such participation does not go beyond
needs identification and project ranking.
Resource envelopesare not disclosed at kebele level, and implementation
procedures are not transparent at community level.

Annex 1. Terms of
Reference (TOR)

1. Undertake a desk study of selected donor/INGO/GOE
pilots, experiments, and analyses of decentralized rural service delivery and
governance in order to draw out the main findings in relation to:

–
the extent of decentralization to elected political bodies
(woredas and kebele councils in particular), as distinct from deconcentration to
zonal, woreda, and kebele based civil servants. Reference should be made to planning;
mobilizing revenue and managing resources; and implementing
services

–
the role of the party apparatus in decisions related to local
economic development activity. This
could be categorized by topicplanning; resource management; and service
delivery

–
the role of nongovernment service providers. The study would consider NGOs, the
private sector, and traditional community organizations; their importance; and
the extent to which the Government recognizes and encourages their
work

The programs of UNCDF in Gonder, Action Aid, and SIDA’s
Woreda Block Grant should be among those experiences reviewed.

2. Catalogue donor and NGO programs and inputs in the nine
study woredas. When gathering this
data:

·
The consultant should especially collect information on
the type and value of these inputs provided in 1998-99.

2.
The purpose, achievements, and problems encountered under the
various program should be reviewed, with particular reference to the experience
of working with local elected structures and civil servants stationed in the
project area.

The programs catalogued should include Farm Africa’s work in
Konso, the GTZ rural development program in Tach Gayint and Farta, the World
Vision program in Sodo Zuria, the Action Contre la Faim program in Dubti, and
the SIDA grant program in Awabel.

Annex
2. Questionnaire

1. Background
Information

1.1 Name of
donor/INGO/GOE; 1.2 Year program
commenced; 1.3 Source of fund;
1.4 Program area: region, zone,
woreda; 1.5 Purpose of program;
1.6 Type of program activities;
1.7 Location of field
offices;1.8 Areas served by
specific field offices.

2. Program
Structure

2.1 What is the structure of program management and
coordination at different levels?

2.2 What are the duties, responsibilities, and accountability
of each and every level of

program
management and coordination?

2.3 What is the role of woreda and regional authorities in
establishing a program office?

2.4 What are the powers, duties, responsibilities, and
accountabilities of the program?

3. Planning,
Prioritization, and Implementation

3.1 Projects planned
in the study woreda for 1998-99

Sector

Type of project

Number of projects

Financial outlay

3.2 What are the steps of the planning process? What is the
involvement of elected political bodies in each step of the planning process
(particularly woreda and kebele councils)?

3.3 What is the relationship between planning and the
resource envelope? Is planning carried

with the knowledge of the resource envelope?

Participation in planning

3.4 What form does community participation take in planning and
prioritizing?

3.5 What
is the mechanism communities, CBOs, the poor, and women use to express their
needs and preferences?3.6. What
problems are encountered in implementing the mechanisms?

3.7 Is
there any official record (for instance, minutes or reports) showing the
participation of the community and CBOs in the identification of needs and
preference?

Implementation

3.8 What is the
implementation status of projects in 1998-99?

Sector

Type of project

Number of projects

Financial implementation

3.9
What is the implementation modality of capital projects?

3.10 What is
the form of participation of communities and CBOs in the implementation
process?

3.11 What
monitoring and evaluation procedures were used?

3.12 What capacity building work is done to improve community
participation in planning and implementation?

3.13 What is the influence of political party officials in
the program area in the planning, prioritization, and implementation process?
What mechanisms do they use?

4. Budgeting,
Resource Mobilization, and Resource Management

4.1 What is the size
and composition of resource flow to the program area by type of

project in
1998-99?

Type of
project

Resources
(1998-99)

Capital

Recurrent

4.2 What is the policy of the agency on cost sharing or
community

contribution towards the project? Is a matching requirement
or add on by the government or the community?

4.3 What was the
amount of community contribution to the program in 1998-99? Are there specific
activities in which community contribution is required?

Type of
activity

Labor

Material

Cash

4.4 What are the
procedures of resource allocations and transfer of funds to local

development actors?

4.5 How are
resources channeled to the program area (resource flow)? Who are
the

major recipients at each level of government?

4.6 Who is
responsible for committing the resources in the program area?

4.7 Are
resources tied to specific activities or are they untied? If resources are
earmarked, at what level are they earmarked (for instance, zonal level, regional
level)?

4.8 Who manages the budget? What is the involvement of local
elected bodies in budget management (for instance, budget reallocation from one
line item to another)?

4.9 What
are the procedures of budget formulation? This includes time frame, priorities,
who prepares the budget and who approves it.

4.10 What is the nature of budget accountability? For
instance, is budgeting accountable to
donors, to the woredas, to the communities?)

4.11 What is the donor policy in the systems of accounts,
tender and contract administration, procurement, and audit of the
programs?

4.12 What is the influence of party officials in setting
budgets and mobilizing resources? What mechanisms do they use?

5. Problems and
Opportunities

5.1 What
problems and advantages has the program encountered in the program
area?

5.2 What is the program’s experience of working with local
elected officials and civil servants in the project area?

5.3 What are the difficulties in practicing decentralized
planning and financing in the program
area?

Annex 3: List of Persons
Contacted

Ato Amare Mengiste, Project
Director in Konso, Farm Africa

W/O Bezwork,Administrator, Farm
Africa

Ato Zerihun, South Project
Officer, World Vision

Ato Desta Abera, South Project
Member, World Vision

Ato Fasil Abate, South Project
Member, World Vision

Mr Jonattan, Dubti Project
leader, Action Contral La Faim

Ato Afework Fekade, Project
Support Unit, UNCDF

Ato Selemon Demeke, SDP,
UNCDF

Ato Aklog, Program Officer,
SIDA

Mr Klaus Feldner, IFSP-SG Team
Leader, GTZ (by e-mail)

Ato Tesfaye, GTZ

Annex 4: Projects Implemented Through EGS
in Konso Woreda

Types
of EGS

Unit of
work

Unit of
work achieved

Total
PD

Total
food distributed through EGS
(MT)

Pond
construction

149

3,211,569

9,409

Pond
maintenance

910,391

2,667

Spate
irrigation channel construction

158

543,584

1,592

Spate
irrigation channel construction

133.40

298,244

873

Road
construction (for car)

293.85

1,692,672

4,959

Road
maintenance (for car)

319.50

783,248

2,294

Road
construction (for footpath)

173,350

507

River
diversion channel construction

110,366

323

River
diversion channel maintenance

155,022

454

School
classroom maintenance

173,429

508

Shallow
hand-dug well and spring development

171

223,942

656

Dry
latrine construction

366

307,309

900

Stone
bund construction on communal land

65,930

193

Residence maintenance for
DA and teachers

188,835

553

Residence construction for
DA and teachers

3,086

EPI
center construction

79,232

232

EPI
center maintenance

516

1.15

School
compound fence maintenance

meter

4,773

55,547

162

Total

8,976,272

26,292

Source, FARM Africa,
2001

Annex 5 : UNCDF : Woreda Development Fund –
Menu of Infrastructure

Subcategory

Remarks

Category A : Improvement
of accessibility and terms of trade

1.
Upgrade track to road

Include
bridge and structure as appropriate

2.
Upgrade foot trail to m/c track

3.
Improve foot trail

4.
Improve local markets

Paved
and covered areas at existing market sites

5. Crop
storage facilities

Principally in the west
for cash crops

Category B: Labor
saving

1.
Domestic water supplies

Possibly combined with
micro sprinkler or drip-feed irrigation

2.Flour
mills and oil presses

Preferably powered by
water and electricity

Agro
forestry-wood fuel trees in alley cropping or silvo pastoral system (see
C.1 below)

4.
Stall-fed animal fodder supplies

Agro
forestry-fodder trees/shrubs in alley cropping or silvopastoral systems
(see C.1 below

5.
Microhydro schemes

Preferably close to small
administrative or trading centers

Category C: Directly
productive

1.
Farming systems intensification

New
varieties, activities, and configuration including agro-forestry, tools,
wages for labor-intensive schemes for vegetative
intensification

2.
Micro-irrigation

Command
areas of 2-20 ha: run of river; no-pump sprinklers or low-lift animal or
microhydro-powered with management by farmers groups or
individuals

3.
Water harvesting

Subcatchments drainage
& earth dam reservoirs with channel or drip distribution to command
areas with management by usergroups or larger
communities

4.
Animal health center

Subject
to availability of staff and recurrent budget
resources.

Category D: Improvement of
human capital

1.
Health posts and equipment

Subject
to availability of staff and recurrent budget
resources

2.
Primary schools and furniture

Includes
reconstruction/rehabilitation, subject to availability of staff and
recurrent budget resources

Source:
UNDP , 1997

Annex 6: Physical Implementation Plan and Achievement of WDF
activities

Number
of Physical projects (EFY 1991-1993) or November 1997-September
1999)

Activity

Unit

Planned

Executed

Kebele
projects

Hand-dug well
construction

Spring
development

13.2

Credit
schemes

–

Grinding mills
installation

–

Small-scale
irrigation

–

Rural
road construction

–

Small
bridges construction

–

New
market place establishment

–

Nursery
sites establishment

–

10.

Agro?
forestation

–

Strategic
projects

Health
post construction

–

Primary
school construction

–

Veterinary clinic
construction

–

Mikara-Adigagra road
construction

–

Maintenance of junior
secondary school

100

Upgrading veterinary
clinic

–

Training

Kebeles

–

*
Successful bidders were identified and the construction work was awarded.

Source:
BoPED/ANRS, 1999, p.20

Annex 7: World Vision’s Planned and Accomplished
Activities for 1998 and 1999

Agriculture

1998

1999

S/N

Activity list

Unit

Plan

Accomp

Plan

Accomp

Training

1.1 Community
training

1.2 Government
staff

596

667

111.91

408.7

1852

1,789

Support demonstration and
research

2.1 Complement demonstration

2.2 Farmers visit

250

237

281.48

94.8

195

248

Support extension

3.1 Bicycle provision

3.2 Provide altimeter

3.3 Soil kit provision

3.4 Seed support

3.5 Farm tools

–

162.5

100

–

100

–

100

Support crop pest and disease
control

4.1 Chemicals

4.2 Manual sprayer

USD

6,948

6,370

91.6

100

1,150
(lt

1,150

100

Nursery support

US$

3,981

2,901

72.87

Support livestock and human epidemic
control

US$

9,979

2,136

21.4

Agricultural loan repayment

(RLS)

US$

51,570

3,091

5.99

Crop Assessment

Nutrition survey

Livestock and market survey

Monitoring and evaluation

Freq

–

100

–

100

Source: Annual progress report, 1998, 1999

Community Activities

1998

1999

S/N

Activity
type

Unit

Plan

Accomp.

Plan

Accomp.

Social
promotion

1.1
Awareness
creation

1.2
SG
formation

1.3
IG
formation

1.4
VB
organization

1,788

110

–

1,632

–

91.28

–

100

314

–

Training

2.1. Book
keeping

149

175

117.45

–

Credit
disbursed

3.1 Off
farm

3.2
Farm

US$

15,042

5,529

5,258

271

36.76

–

Savings of
SGs

US$

4,676

3,280

–

Community training
(enterprise management, fattening, pottery, blacksmith, carpentry,
tannery)

–

529

508

Source Annual progress report
, 1998, 1999

Physical infrastructure, health and education
activities

1998

1999

Activity

Unit

Plan

Accomp

Plan

Accomp

1.1
Bridge
maintenance

1.2
Bridge
construction

1.3
Road
maintenance

–

100

–

Water
development

1.1
Spring
capped

1.2
Water point
construction

1.3
Water line
maintenance

1.4
Reservoir
maintenance

1.5
Bore hole
rehabilitation

1.6
Pond
construction

–

100

–

1.5

–

100

–

Health
construction

2.1 Health post
construction

2.2 Sample latrine
construction

2.3 Health center
construction

–

100

–

324

–

425

–

131

100

Training

3.1 Health (TBA
CHA)*

3.2 Sanitation
(community training)

3.3 Health
professionals

3.4 Student
sensitization

3.5 Govt.
staff

3.5 WV staff
(traditional harmful
practice)

–

140

5,727

100

158

675

574

VAC
supplementation

4.1 No of children
supplemented with preventive VAC ,< 5 years

5-15 years

4.2 No of
outreach

4.3 No of schools
addressed

4.4 No of VAD cases
treated

4.5 Lactating
mothers

4.6
Pregnant

Iron
supplement

< 5
years

5-14
years

Lactating
mothers

Pregnant

Fortification

HH checked for
iodine

–

8,060

2,475

–

19,258

138

–

239

5.6

100

115

–

16,080

4,608

140

1,800

2,556

1,800

378

678

196

38,421

33,338

378

2,995

359

488

101

600

718

238

723

166

587

158

111

Educational
institution

5.1 Formal school
elementary school rehabilitation – Block

-Area

5.2 Informal education,
community skill training center (CSTC) –Block

–
Area

Literacy and basic
education

-Block

-Area

735

126

248

882

126

248

120

100

–

Institutional
facilities

-Desk, office tables, office chairs, shelf

648

100

–

377

Source: Annual progress report

* TBA – Traditional birth attendant, CHA= Community
health agent

VAC =
Vitamin A capsule; VAD = Vitamin A deficiency

Annex 8: Achievements of ACF in zone 4 and zone 1 of
the Afar Region* in the four quarters of 2000

1^st Quarter

(January-March)

2^nd Quarter

(April-June)

3^rd Quarter

(July–September)

4^th Quarter

(October –December)

-Completion of baseline
study

-Hold workshop for the relevant authorities (zonal
meetings and regional-level workshop)

-Identify first target community
groups

-Initiate program activities (meet community,
discuss needs, select location of camp, inventory boreholes, assess water
needs)

-Opening of project office in
Dubti

-Recruitment of key technical
staff

-Setup of Kalouan base (zone
4)

Training camp for animal health (participation of
community in determining training program; selection and training of
paravets; training of community about animal health; training in livestock
marketing; identification of drug vendors)

-Water development in Gullina woreda (needs
assessment; creation of water committee; rehabilitation of 15 wells;
identification of 1 site for new water point

-Completion of birkad and tank rehabilitation in
Elidar woreda

-Completion of steam wells rehabilitation in
Elidar woreda

-Completion of latrine construction in Dubti
school (6 for children, 2 for
adults)

-Completion of 3000 l tank for Dubti
school

-Completion of 3000 l tank for Dubti
Mosque

-Completion of vaccination program (17500 cattle
vaccinated)

-Survey of the incidence of anthrax in zones 1 and
4

-Selection and training of paravets in Gullina
woreda

-Starting rehabilitation of borehole in zone
4

-Assessment concerning shallow wells in Gullina
woreda

-Research of subcontractors for the drilling of 2
boreholes

-Installation of a hand pump on Galah second
borehole

Completion of monitoring of paravets in zone
4

-Completion of training
manual

-Workshop on the future of Gullina’s
paravets

-Completion of anthrax program
report

-Initial discussion with Dubti woreda over the
next phase of the training program

-Vaccination program with Dubti woreda clinic
(10,000 cattle were vaccinated)

-Sensitization of communities in Dubti to the use
of veterinary services (use of PRA)

-Initiation of market surveillance in Assyaita,
Bati, and Eli Whia markets

* Note the activities given are for the whole program
region, zones 4 and 1. The
activities in Dubti are those where Dubti woreda is
indicated.

Annex 9: Introductions to different donors/NGOs

FARM Africa

FARM Africa (FARM in short) was initiated in 1985 and started
field operations in 1988. It
operates in five eastern and southeastern African countries (Ethiopia, Kenya,
South Africa, Tanzania, and Uganda).
The vision of FARM is of a prosperous rural Africa, and its mission is to
reduce poverty by enabling African farmers and herders to make sustainable
improvements to their well being through more effective management of their
natural resources (FARM Ethiopia, 2000).

In Ethiopia, FARM started its operations in 1998 with one
project. Since then, it has
expanded to eight projects.[39]
Its vision is stated as an “empowered rural community where individual and
household livelihoods are improved and secure”; it says its mission is to “
contribute to food security, poverty alleviation and better management of
natural resources through the application of improved practices and indigenous
knowledge” (FARM Ethiopia, 2000).
The following are considered to be the major roles of FARM
Ethiopia:

Capacity building
of beneficiaries and partners
Testing and
disseminating innovative ideas through participatory methods
Facilitating
linkages among research institutions, extensions services, and development
organizations
Promoting family
planning, primary health care, and nutrition programs
Influencing
national and regional government policies, particularly in relation to gender,
the environment and land use; and
Facilitating fund
raising.

The United Nations
Capital Development Fund ( UNCDF) in North Gonder zone

The United Nations Capital
Development Fund and the UNDP in collaboration with Amhara National Regional
States (ANRS) have launched a program of capital and technical assistance in
North Gonder Administrative Zone of the Amhara National Regional State. The program has three components: Woreda
Development Fund (WDF); Natural Resource Conservation and Agro-Forestry; and Rural Roads in North Gonder Zone[40].

The WDF is a fund financing rural
infrastructure and planning them in consultation with local levels of government
and communities. The WDF strategy
is consistent with the decentralization policy of the government.

The program is managed by a
program support unit (PSU) located
in Gonder and financed by UNCDF (for capital goods and reviews consultants,
financed under the Woreda Development Fund) but also by UNDP (training and
salaries) and GANRS (largely for office space). The PSU is entrusted with the
responsibility of facilitating and coordinating the implementation of the
program.

The core problem to be addressed
by the Woreda Development Fund is the low stocks of physical infrastructure of
all types in North Gonder, which represent a severe constraint to increasing
agricultural production and to the general economic and social development of
the zone and its people. The
problem is believed to have various causes, among them disempowerment of the rural people, lack
of institutions to accommodate participatory planning, and the limited financial
and staff resources available to respond adequately to the lack of
infrastructure (UNDP, 1997).

GTZ

GTZ (Deutsche Gesellschaft für Technische Zusammenarbeit) is
a public benefit organization wholly owned by the German Federal
Government. Its goal is to assist
development and form processes in partner countries by promoting projects and programs
(Embassy of the Federal Republic of Ethiopia). In Ethiopia, GTZ runs about 25 projects
in Amhara, Addis Ababa, Oromiya, Tigray, SNNPR, Gambella, and Diredawa
regions.

World
Vision

World Vision International Ethiopia is a philanthropic
organization that receives its resources from sponsorship and grants. It has 106 partnership countries, 16 support
countries with support offices throughout the world. Sponsorship for children is provided by
USA, Australia, Canada, Korea, Germany, United Kingdom, Hong Kong, and
Singapore, while grants are received from USAID, CIDA, and AusAID. The sponsorship and grant monies are
utilized for developmental purposes by World Vision with the aim of reaching the
wider community.

The overall objective of the World Vision program is to
enhance sustainable food security at the household level. As a result it is involved in
agriculture, off-farm activities, health, education, and child well being
projects. In fact, it
considers enhancing food security as an overall goal and identifies five
subgoals: increased agricultural production; increased off-farm activities;
improved household health status; improved access to basic education; and
improved quality SRS (sponsorship relation service). World Vision operates in
five regions: Southern Nations, Nationalities and Peoples (SNNPR); Oromiya; Amhara; Tigray; and Addis Ababa. Within these regions, it operates in a
number of zones and woredas.
Different woredas are served by area development programs (ADP) located
within them. An ADP is a management
unit with a manager, program coordinator, and team leader. Under ADP management,
there are program facilitation teams made up of a team leader and subject
specialists, and finance and administrative coordinating teams with accountants,
cashiers, drivers, and storekeepers.
The program facilitation team is responsible for coordinating program
activities at the grassroots level in different kebeles and providing technical
assistance wherever needed. The
program coordination is carried out by assigning members of program facilitation
team to kebeles.

Action Contra la Faim (ACF) in Afar Region

ACF established its Ethiopian Office in 1985 in response
to the drought and famine. Since
then the program has expanded its activities from relief to integrated
rehabilitation and development.
The objective of ACF in Ethiopia is to support the most vulnerable
communities in strengthening their food security through projects improving
human and animal health, water supplies and agriculture. Action Contra la Faim’s donors are the
European Commission, the Government of France, the Government of Britain (DFID)
and the US Government (OFDA). In
the period between 1985-1996, the program implemented developmental projects in
Tigray, North Shewa, Sidamo, and SNNP regions. The program moved to the peripheral
pastoral lowland areas after 1996 and has projects in Somali (since 1996) and
Afar regions (since 1999). In these
lowland areas ACF aims to promote the food security of pastoral populations
through an integrated approach to water supply, human health, and interventions
strengthening veterinary services and livestock economy.

SIDA Support to Rural
Development in ANRS

SIDA Support to Rural Development in the Amhara National
Regional State started in 1997. The
overall goal is the improvement of living conditions for the rural population of
the ANRS by a sustainable increase in agricultural productivity and natural
resource use as well as economic diversification. The immediate objectives necessary to
achieve the overall goal include raising agricultural productivity; empowerment
and democratization; sustainable use of resources; and economic diversification
(ANRS/IDA, 1996). Numerous
activities, such as training, credit, on-farm research, livestock support,
credit, rural road, institutional support, economic diversification, and woreda
development were envisaged under the different immediate objectives. The program document specifies the
primary and secondary target groups and the activities which respond to their
needs. Accordingly, the primary
target groups include surplus-producing farmers, food self-sufficient farmers,
poor farmers, private sector entrepreneurs, destitute and vulnerable groups,
displaced persons, female heads of households, and handicapped persons, while
the secondary target groups are woreda and kebele administrations which must
respond to popular requests with decision making, fund allocation, technical
assistance, planning, implementing and maintaining basic infrastructure;
agricultural service institutions such as extension and research services,
veterinary clinics, and rural technology centers; regional/ zonal planning and
backstopping functions at BoPED, BoA, RRA, BoTI, ACAO, and WAO. The SIDA support program takes place at
woreda level in the two contagious zones of South Wello and East Gojjam. The
program is envisaged to begin on a small scale and expand as experience is
gained. Within South Wello and East
Gojjam woredas, the program started with four pilot woredas in the first year
and then included another five and seven woredas in the second and third years
respectively. The centerpiece
of the SIDA program is Woreda Based
Development, which is believed to respond to local initiative and priorities;
other SIDA activities complement or support its works.

The woreda-based development approach has undertaken some
startup activities, such as introduction of the program to woreda council and
administration; training in participatory and gender planning for woreda staff
and politicians; study of woreda capacity; baseline information collection and
analysis (BICA); and woreda action and budget planning for SIDA support
(ANRS/SIDA, 1996c).

The implementation of the program started in 1997. In its first year of implementation,
only four woredas participated; in the second year, the program extended to nine
woredas, four in East Gojjam zone and five in South Wello zone. In 1999 the program extended to sixteen
woredas, eight in South Wello and eight in East Gojjam.

References

Action Contra la Faim. 2001.
Quarterly activity progress reports, Addis Ababa.

Adey Abebe. 1998. NGOs
development focus and their research needs in proceeding of IDR.

Asmelash Beyene. 2000.
Decentralization as a tool for resolving the nationality problem: The Ethiopian
experience..”RDD V.21 No.1.

ANRS. 1996 SIDA Support to the
Amhara National Regional State, program document, Bahrdar.

ANRS. (998. ANRS and SIDA
“Cooperation on rural development: Annual Physical and Financial
Report,Bahrdar.

ANRS. 1999. ANRS and SIDA
Cooperation on rural development: Annual Physical and Financial
reportBahrdar.

Bureau of Agriculture. 1998.
Major Results of Plan of Operations workshop,Bahrdar.

BoPED, ANRS. 1999. Mid-term
review report of the Woreda Development Fund program in North Gonder Zone,”
Bahrdar.

BoPED, SNNPR. 2001. Terminal
evaluation report on Konso Capacity building project, Awassa.

Farm Africa. 1998. Capacity
Building in Konso, Ethiopia. A project proposal.

Farm Africa. 2001. Capacity
Building Project: EGS impact assessment study.

FDRE and FRE. 2001. Project
progress review of the integrated food security program: South Gonder,
Bhardar.

Romeo, Leonardo. 1999. “Systems
experimentation in support of decentralized reforms: Reflections on local
development funds.” Regional
Development Dialogue, V.20, No.2.

Tegegne Teka. 1994. INGOs in
rural development in Ethiopia: The case of Welaita province. Ph.d,
dissertation.

World Visions 1999 Annual
Progress Report, Hobecha.

World Vision. 1998 Annual
Progress Report, Hobecha.

UNDP. 1997. Woreda Development
Fund in North Gonder Zone: Project Document.

WB13055

C:DOCUME~1wb13055LOCALS~1TempFinal
Woreda Annex 4.doc

September 27, 2001 3:21
PM

[1] The study would briefly re-visit Awabel
Woreda to complete missing
information sets, rewriting the Pilot as a Main Phase case. In addition, at
least two of the selected Study woredas would be those in which the government
and the World Bank are piloting community-based rural water supply
schemes.

[2]
Churches serve several important community functions. In Awabel,
the Church is active in promoting
AIDS awareness. This is important as AIDS control is viewed as a health issue by
the Woreda Administration. Given the weaknesses of the health system, the HIV/AIDS prevention and care program
is relatively ineffective. The woreda health station has a list of about 15
commercial sex workers and 6 hotels in Lumame that they supply with free
condoms. There are, however, woreda
and kebele level health coordinating committees composed of people from
different walks of life which educate people on the disease at periodic
meetings; this structure represents a source of potential dynamism once a
well-coordinated and targeted AIDS control program has been articulated by the
federal government.

[3] The basic argument here is that many
alleged capacity constraints at the village level are the result of government
procedures and the bureaucratic demands they create — rather than deficiencies
in the planning and implementation capacities of rural societies.

[4] Refer to Annex 3 for structural
procedures governing this in Awabel Woreda in 1998-99. In Awabel, the powers
being exercised at the woreda level include upgrading lower level primary
schools to a higher level; hiring primary level school teachers, frontline
health staff, and development agents; and
contracting out and supervising the construction of small works, and
effecting payment for work performed. However, the Woreda has not been receiving
sufficient untied funds to permit it to exercise those functions.

[5] Our
discussions at the zonal level suggested that one of the purposes of the
informal scan of woreda plans at the zonal level is to ensure that ongoing
projects are fully funded before any new projects are accepted, and that schemes
with future recurrent cost implications were appraised against a capacity to
meet those costs.

[6] See Attachment 4 for full list of
needs.

[7] The 1998
Regional Rural Land Use and Agricultural Income Tax Proclamation sets
the rate for land use tax between 10 – 20 ETB depending on the size of the
holding, and for agricultural income tax at between 10 – 25 ETB per holding,
again on the basis of landholding. In the case of Awabel, indirect taxes include
sales tax and taxes on certain commercial services.

[8] Regional transfer to the zones in Amhara
follow the federal formula for the allocation of federal grants to the regions,
with marginal modification. Factors considered in this transfer are population,
level of development, and planned own revenue. However, when the transfer takes
place from the region to the zone, established costs are taken into
consideration.

[9] Vertical imbalance refers to the mismatch between the
available resources and expenditure responsibilities between the different
levels of government (for example,as between federal and regional levels, or between
zone and woreda).

[10] Of this figure, 303 are technical
personnel (221 teachers, 69 agricultural experts, and 14 health staff).
Currently, there is a purported requirement for 66 additional staff ( 32
teachers, 20 DAs, and 12 health personnel).

[11] In addition, a rural road construction
was carried over from the previous year with community participation.

[12] These teams, organized at
woreda and kebele level, also facilitate revenue collection and undertake a
number of tasks on behalf of service cooperatives.

[13] This was overwhelmingly undertaken by
the sector bureaus at woreda and zonal levels.

[14] Saints’ day celebrations are gatherings
of households or members of
households who worship the same saint. These gatherings are referred to as
“mahber.” When these types of associations are strictly organized for self-help
purposes during funerals, they are also known as “idir.” Mahber and idir are
found in most kebeles in Awabel Woreda.

[15] The church at Enebi-Medhenelem was
constructed for a total of ETB 27,500, collected from households alongside
community labor inputs to the order of ETB 70,000. A further example in this
regard is Wejel Elementary School,
which was selected for upgrading. Under the direction of a local ad-hoc committee, labor support
and ETB 5 was collected from each household in the catchment area, totaling ETB
12,050 over the year. The upgrade was completed after two years at a total cost
of ETB 30,000, although the new rooms still lack furnishings.

[16] Service cooperative staff are not
government members, although they perform some functions on behalf of local
government.

[17]
Information compiled from discussions with Chifar executive members,
employees, and members.

[18] In health there are 14 vacancies, agriculture lacks 20 DAs, and
the education office requires 32 additional teachers.

[19] Annex 4 shows
churches serve several important community functions. In Awabel, the
Catholic?Church is active in promoting AIDS awareness.
This is important as AIDS control is viewed as a serious health issue by the
Woreda Administration. Given the weaknesses of the health system, the HIV/AIDS prevention and care program
is relatively ineffective. The woreda health station has a list of about 15
commercial sex workers and 6 hotels in Lumame that
they supply with free condoms. There are, hoewever, woreda and kebele level health
coordinating committees composed of people from different walks of life which
educate people on the disease at periodic meetings. This structure represents a
source of potential dynamism once a well-coordinated and targeted AIDS control
program has been articulated by the federal government.

[20]
These donors/NGOs were selected for the Study on the basis of recommendations by
World Bank staff leading the consultant

[21]
The TOR is given in annex 1.

[22]
The questionnaire is provided in Annex 2.

[23]
The list of contacted persons are given in Annex 3.

[24]
An agreement was reached to shift the 15 working days to 20 working
days.

[25]
Luckily the Konso project leader for Farm Africa and the UNCDF project leader
from North Gonder came to town on their own and we were able to arrange meetings
with them.

[26]
This was communicated by Konso project leader.

[27]
A kanta is a village in Konso woreda

[28]
The resource planning workshop includes the use of mosaic maps of land use
prepared from aerial photographs.

[29]
Out of 16 water users committees planned to be established in 1999-2000, only
one committee was established due to late release of budget.

[30]
The community leaders nominated traditional healers and those with less
education to be trained as animal health workers. The choice of less educated people by
the community was to minimize the risk of trainees abandoning the village once
the training is completed

[31]
According to the project leader, Farm Africa has noticed a decrease in the
frequency of farmers visit to formal veterinary clinic and overall occurrence of
animal disease

[32]
This is also called the project steering committee

[33]
Farta was not yet in the program in 1999.

[34]
The selection criteria were literacy, willingness, ownership of resources (for
instance, land), and a tendency to work in groups.

[35]
Within the organization, the current structure of
ADP, which in many cases covers more than one woreda, was found to be
inefficient, distributing limited resources widely. A current restructuring within World
Vision will assign one ADP per woreda. Similarly, a physical
decentralization (deconcentration) of offices is also under way. Previously the regional offices were
housed within the national office, and coordination was conducted from the
national office. Currently,
however, regional offices are to be decentralized, moving to their respective
regions with the hope of increasing efficiency and reducing delays. In the case of the southern region, the
office will be located in Awasa town.

[36]
The ANRS/SIDA report attributes the low number of women participating to lack of
awareness both in the community in general and among women in particular.
Education and training is essential to correct this situation.

[37]
Participating sectoral offices at regional level submit their plans concerning
activities to be performed using SIDA assistance. For instance, the bureau of agriculture
is expected to submit a plan regarding different components in the sector such
as on-farm research or livestock support,c which are mostly region-wide
activities. In the same way. The
Bureau of Trade and Industry presents plans regarding the economic
diversification activities it plans to undertake in the coming year.

[38]
The ETB 190,000 capacity building money is to be used for such programs as
training and community workshops
related to enhancing the capacities of line offices or the community as
deemed appropriate by the Woreda Development Committee. However, according to the program officer
of SIDA, woredas have been using the money to build government and line offices
and to purchase such things as transportation vehicles,orelectricity
generators. For instance, Awabel
has constructed administrative building using such funds.

[39]
These projects include a goat project initiated in 1998 and being implemented in
three regional states (Oromiya, Amhara and SNNPR); a farmers’ participatory
research project initiated in 1991 and implemented in all zones and woredas of
SNNPR; the East Langano Development and Conservation Project, started in 1995
and completed in 1997; Chilimo Forestry Conservation and Development Project,
started in 1996 as part of the community Forest and Wildlife Conservation
project and now being implemented in the Oromiya Regional State; Bonga Forest
Conservation and Development Project, similar to Chilimo project, being implemented in SNNPR; a Natural Resource
Conservation Project, an offshoot of the community Forest and Wildlife
Conservation Project, initiated in 1996 and implemented in Amhara, Oromiya, and
SNNPR.; Community Food Security project implemented in the Central Zone of the
Tigray Region since 1994; Konso Capacity Building Project initiated in 1998 and
iimplemented in Konso Special Woreda of SNNPR; and Afar Pastoralist Project,
begun in 1998 and being implemented in Afar Regional State.

[40] WDF has initiated the program. The second project,a natural resource
conservation and agro forestry project, started only six months ago in Adi Arkay
Woreda.

November 2001

Document of the World Bank

Terms of Reference for the Main Phase

Ec. systems

B) Resource Mobilization

Main Findings

Implementation and Stakeholder Participation

Structure in the Amhara Region

Table of Contents

Executive Summary

Acronyms and Abbreviations

2.2 GTZ-IFSP(SG)-Integrated Food Security Program

(South Gonder)

2. 4 World Vision in Sodo Zuria

3.5 On Capacity Building

3.6 On Sustainability and Institution Building

Acronyms and Abbreviations

INGO International Nongovernmental Organization

Executive Summary

1.1 Challenges of the Study

1.2 Limitations of the Report

2.1 FARM Africa in Konso

2.1.1 Planning and Implementation Procedures of Different Projects

Pre-Project Baseline Research and Project Formulation

Project Execution Procedures

Capacity for woreda line offices, woreda council, KDA staff, and kebele council to plan and manage development steps

Participatory land use and development planning system

Water Development

Trypanosomiasis control project

Goat development project

Animal health project

Human health and sanitation

Table 1: Budget and Expenditure of Konso Project for 1998-2000 (ETB).

NO

Activity

Budget

Expenditure

1998

1999

2000

Total

1998

1999

2000

Total

% Utilization

1

Training

102,747

82,063

205,372

390,182

42,528.9

11,1295

116,100

269,924.6

69.18

2

Agriculture

203,460

304,789.7

894,888.6

1,403,138.3

12,304

90150

307,500.7

409,954.7

29.22

3

Employment

19,600

61,866.8

504,875.1

586,341.9

0.0

0.0

0.0

0.0

0.0

4

November
2001

Document
of the World Bank

Terms of
Reference for the Main Phase

Ec.
systems

B) Resource
Mobilization

Main
Findings

Implementation
and Stakeholder Participation

Structure in the Amhara
Region

2.2
GTZ-IFSP(SG)-Integrated Food Security
Program

(South
Gonder)

2. 4
World Vision in Sodo Zuria

3.5
On Capacity Building

3.6 On Sustainability and Institution
Building

Acronyms and
Abbreviations

INGO
International Nongovernmental Organization

1.1 Challenges of
the Study

1.2 Limitations of
the Report

2.1 FARM Africa in
Konso

2.1.1 Planning and Implementation
Procedures of Different Projects

Capacity for woreda line offices, woreda council, KDA staff, and kebele
council to plan and manage development steps

Table 1: Budget and Expenditure of Konso Project for
1998-2000 (ETB).

%
Utilization

Water and
health

Staff
training

Source: BoPED/SNNPR,
2001

2.1.4 Institutional Structure and
Relations