rwanda evaluation of bank assistance in the agricultural ... · signature march-march 1991 may 1991...
TRANSCRIPT
SCCD : G.G.
AFRICAN DEVELOPMENT BANK AFRICAN DEVELOPMENT FUND
THIS REPORT HAS BEEN PRODUCED
FOR THE EXCLUSIVE USE OF THE BANK
OPERATIONS EVALUATION DEPARTMENT
ADB/ADF/OPEV/2002/04 JULY 2002 Original: French Distribution: Limited
RWANDA
EVALUATION OF BANK ASSISTANCE IN THE AGRICULTURAL SECTOR
TABLE OF CONTENTS
Page
ACRONYMS AND ABBREVATIONS, PREFACE, DATA BASE (i-vii)
SUMMARY OF EVALUATION
1. CONTEXT 1
1.1 Objective of the Study and Methodology 1
1.2 Context and Strategies of the Agricultural Sector 1
2. EVALUATION OF BANK ASSISTANCE STRATEGY 4
2.1 Bank Policy on the Sector 4
2.2 Bank Country Strategy for the Country 4
2.3 Relevance and Coherence of Strategy with the Country’s Development Strategy 5
2.4 Quality at the Outset and Coherence with Bank Top Priorities 6
2.5 Inter-sectoral Aspects 7
3. EVALUATION OF RESULTS 8
3.1 Summary of Bank Group Interventions in the Sector 8
3.2 Loan Operations 9
3.3 Non Loan Activities 10
3.4 Coordination of Assistance 12
3.5 Operation of Other Donors 12
4. ANALYSIS OF SUSTAINABILITY 13
4.1 Technical Viability 13
4.2 Economic and Financial Viability 14
4.3 Social Viability 15
4.4 Institutional Aspects 15
4.5 Inter-sectoral Aspects 15
4.6 Repercussions of the AIDS Pandemic 16
5. IMPACT INSTITUTIONAL DEVELOPMENT 16
6. PERFORMANCE 16
6.1 Factors Touching the Performance and Results 17
6.2 Borrower’s Performance in Drawing-up Projects 17
6.3 Borrower’s Performance in Implementation 18
6.4 Bank Performance in Preparation and Appraisal of Projects 19
6.5 Bank Performance in Supervision 20
TABLE OF CONTENTS
Page
7. EVALUATION 20
7.1 Bank Assistance 20
7.2 Borrower’s Performance 20
8. CONCLUSIONS, LESSONS AND RECOMMENDATIONS 20
8.1 Conclusions 20
8.2 Lessons 21
8.3 Recommendations 22
LIST OFANNEXES
No. of Pages
1. Matrix of Recommendations and Monitoring Actions 2
2. Socio-Economic and Sectoral Indicators 1
3. Combined Results of Bank Loan Operations in the Agricultural Sector 1
4. Summary of Bank Projects in the Agricultural Sector 6
5. Evaluation Points 5
6. Effects of HIV/AIDS on the Agricultural Sector 1
This report has been prepared by Mr. R. RANDRIANARISON, Consultant, under the
supervision of Mr. H. RAZAFINDRAMANANA, Principal Evaluation Officer, OPEV,
following the mission to Rwanda in March 2002. Any further question relating to the
report should be addressed to Mr. G.M.B. KARIISA, Director, OPEV (Extension 4052).
ACRONYMS AND ABBREVIATIONS
ADB : African Development Bank
ADF : African Development Fund
AFD : Agence française de développement (French Development Agency)
AIDS : Acquired Immuned Deficiency Syndrome
ARMDP : Agricultural and Rural Markets Development Projects
ASIP : Agricultural Sector Investment Project
CSP : Country Strategy Paper
DES : Detailed Engineering Study
FRW : Rwandan Franc
GDP : Gross Domestic Product GNP : Gross National Product
HIV : Human Immuned Deficiency Virus
IFAD : International Fund for Agricultural Development
OPEC : Organisation of Petroleum Exporting Countries
PAEBL : Projet d’Appui au Développement de l’Elevage Bovin Laitier
PD : Preliminary Design
PDAB II : Byumba Agricultural Development Project II
PDAM : Mutara Agricultural Development Project
(Dairy Cattle Rearing Development Support Project)
PRAUPA : Emergency Agricultural Production Recovery Project
PRSME : Promotion of Rural Small-sized and Micro-Enterprises
PRSP : Poverty Reduction Strategy Paper
RDP : Rural Development Project
TAF : Technical Assistance Fund
TOR : Terms of Reference
UA : Unit of Account
UNAIDS : United Nations Organisations - AIDS
ii
PREFACE
1. The African Development Bank financed agricultural operations in Rwanda between
1994 and 2001. Some of these operations which were approved before 1994, are currently
being implemented or nearing completion. Those approved after 1994, are practically at the
start up stage. All these operations suffered, by far and near, from the negative impact of the
disastrous events which Rwanda witnessed since the beginning of 1990 until 1994, the year
marked by the loss of countless human lives, numerous community infrastructure and very
many plant and animal resources.
2. It is therefore timely now for the Bank, after some retreat, to assess the results of its
assistance and identify the different restrictive factors which might have impeded or could
hinder the impact of the results obtained in setting a real agricultural development in motion.
Since the results aimed at and obtained by the projects, although necessary, are not adequate
for transforming the rural population concerned into true economic operators capable of
gearing up the agricultural development so much sought for, or in other words, intensive,
accelerated, supported and sustainable.
3. The analysis to be carried out should therefore assess whether Bank operations have
contributed substantially to the transformation of the present traditional agriculture into a
modern one. Given that the reports of the projects are exogene by definition, this approach
implies therefore that the internal dynamism of beneficiaries is not a restrictive factor in
implementing the ways and means recommended under the operations concerned by the
assistance. In case of the contrary, the Bank actions will always be limited in intensity and
will not be able to induce the development mechanism sought-after.
4. «The law of minimum», well known principle of agronomists, is therefore applied
here, much more than elsewhere. Its desire is that among all constraints to a given problem,
the one which hinders the solution to others be first resolved. To be set on tackling all the
problems at the same time is neither recommended nor effective and assessment of Bank
assistance should consider the aforementioned principle and determine, if need be, the
existence of a factor limiting the increase in the productivity of different Rwandan agricultural
production. The question for instance may be asked, why the yields of irrigated rice obtained
in Bugarama and Rwamagana hover around 2.5 and 3.5 t/ha, whereas it is possible to obtain
elsewhere 10 t/ha under similar conditions?
5. What needs to be highlighted in this example is not so much the tonnage mentioned,
but rather the very sharp difference noted between the two yields. The big question to ask is
therefore from where does the difference of yields come? from the presence of agricultural
infrastructure, availability of inputs, technical supervision or beneficiaries receptiveness to
technical innovations?
iii
DATA BASE
1. ON THE PROJECT
TITLE PDAB II PDAM PRAUPA PAEBL
Location Byumba Region Mutara Region Bugarama and
Rwamagana
National
Approval October 1990 December 1990 September 1997 October 2000
Signature March-March 1991 May 1991 May 1998
Effectiveness October-May 1991 March 1996 April 1999 July 2001
Closure December 2001 December 2002 December 2003 December 2005
Loan Amount
(ADF)
ADF : UA 3.5 million
TAF : UA 1.3 million
UA 9.938 million UA 4.2 million UA 13.50 million
Executing
Agency
Project Implementation Unit Permanent Secretariat Rural Engineering
Department
Project Implementation Unit
Project
Description
Plant and forestry production,
development of swamps,
livestock, credit and farmers associations, feeder roads
construction
Production of rice, soya,
cassava, sorghum, beans
milk and meat
Rehabilitation of
Bugarama and
Rwamagana, irrigation schemes, and
improvement of
technical supervision
Leadership and extension,
intensification of cattle
rearing, veterinary actions, promotion of livestock
products and institutional
strengthening (constructions and equipment)
Present major
results
Better environmental
protection, rehabilitation of community infrastructure
(health centres, schools etc.)
distribution of diverse inputs (agriculture and livestock),
self-sufficiency in
comparison with major crops grown there, and increase in
cattle heard.
Improvement of livestock
in terms of increase in weight during growth,
production of milk and
reduction of cattle death; distribution of selected
seeds, foodstuff and
forestry, and provision of drinking water supply
composed mainly of 350
km of PVC pipes and 250 standpipes
Productivity gains of
some 0.5 t/ha stemming from the only technical
supervision undertaken
by the project.
No concrete result, in view of
its recent date of effectiveness.
2. ON THE STUDIES
TITLE RDP OF RUHENGERI NSHILI KIVU TEA FACTORY
FEASIBILITY STUDY
DEVELOPMENT OF SWAMPS,
PROTECTION, CATCHMENT
AREAS, SOIL CONSERVATION
Location Ruhengeri Province West Region National
Approval April 1987 December 1989 March 1998
Signature July 1987 May 1990 May 1998
Effectiveness February 1989 October 1993 March 1999
Estimated
Duration
39 months 12 months 24 months
Completion June 1997 December 1999
Amount UA 0.83 million UA 1.53 million UA 1.03 million
Description of
Study
Study of Ruhengeri rural development master plan and
feasibility study of a project
within the framework of the scheme.
(i) feasibility study of installation of a tea factory for the Nshili
Kivu plantation;
(ii) tea sub-sector study, possibility of its privatisation.
Master plan study of development of swamps; protection of catchment areas
and conservation of soils, with a view to
providing the country with a rational operating tools for its land resources in
the medium and long-term, feasibility
study of development of gross 6,000 hectares of swamps.
Present situation The two studies are completed,
but the feasibility study is no
longer a current issue.
Studies completed in 1999. Final
report transmitted to the Bank in
February 2000.
Ongoing : some projects have already
been submitted.
iv
1. Objective of the Study and Approach
1.1 Evaluation of the Bank assistance to the agricultural sector of Rwanda is aimed to
assess the quality and effectiveness of its contribution to reduction of food deficit and
improvement of the welfare of the targeted rural population, so as to enhance its impacts
on the rural agricultural development of the country.
1.2 This evaluation is based on analysis of the major results obtained during the
period between 1994 and 2001. Proposals for improvement aims, on the one hand, at
implementation of projects, but also and especially it aims, on the other hand, at a real and
sustained impact of projects on agricultural and rural development within the framework
of the demands of the Vision of Rwanda by the year 2020 and the Bank Strategy in the
agricultural sector.
2. Background
2.1 The agricultural sector, employing over 90% of the total population and
contributing about 40% to GDP, is the backbone of the Rwandan economy. Agriculture is
diversified thanks to the existence of several agro-climatic areas which are due to the
combined effect of the thermic gradient, varying with altitude and different types of soils.
The cultivable area farmed is estimated at 1,100,000 ha, that is 41% of the total area of the
country (26,338 km2) and represents 80% of cultivable lands (1,385,000 ha). The non-
cultivable lands are the grazing grounds, national parks, afforestation and national forests.
The chances for extension are thus very limited, with the exception of swamps, that is
areas flooded or not, suitable at the bottom of the valleys, which are at present the subject
of a development master plan study. These possibilities work out to about 160,000 ha, but
due to several reasons, the entire area will probably not be used.
2.2 In Rwanda, farms are scattered and small. The typical traditional farming
system which is largely practised in Rwanda limits the yields of food crops and hence is
one of the drawbacks to the development of agriculture. Most crops are grown on the hill
slopes that are often steep, which, whenever erosion-control measures are not taken, result
in the deterioration of the land heritage.
2.3 It is indeed this extreme low yields which are a worry to the various authorities
in view of the area cultivated which is almost exhaustive. The problem is however not in
terms of area, but in terms of productivity and farming intensity and in this area it is
technically possible to do much in Rwanda. It is for example technically possible to
increase by two or three, if not more, the present yields. This nevertheless supposes that
the farmers operate as true professionals, meaning that they will produce for sale with a
view to meeting requirements other than traditional and subsistence.
2.4 The forest resources which were once significant, are now dwindling sharply as
the population pressure increases and the demand for arable lands grow increasingly. The
protection of this forest heritage cannot be actually done except through a national
programme of erosion control and afforestation or reafforestation depending on the case.
v
2.5 Rwanda on the other hand has significant livestock resources, whose
exploitation is essentially traditional. It is therefore hindered by a few constraints
including population pressure which leads to the shrinking of the area earmarked for
grazing. Livestock raising can however be developed in Rwanda through a number of
improvement measures.
Strategy of the Sector
2.6 The sectoral objective consists in developing the entire agricultural potential (in
the large sense) of Rwanda in order to contribute to food security and to the increase in
rural population incomes which are first inevitable to improvement of their living
conditions and well-being. The rational development of this agricultural potential
nevertheless comes up against a number of constraints which need to be identified
beforehand so as to better overcome them. The basic constraint resides in the radical
change and the impetus which must be given the farmers for them to use modern farming
methods and do away with the traditional practices which aim only at subsistence and
which so far characterise Rwandan Agriculture with all the consequences it entails.
2.7 To overcome these difficulties, Rwanda has decided to underscore the
intensification of agriculture which turns out subsequently to be indispensable, on the one
hand, shrinking of the land caused by high population pressure noted especially on the
hills and, on the other hand, of a character still extensive of farms located in the north-
west of the country (Mutara). It proposes to make agriculture professional, which implies
the existence of an effective and efficient marketing system and the continuous search for
profitability.
2.8 The forthright transformation of agriculture in Africa demands passing on to
very diversified agricultural activities, which is focused on subsistence, to a more
commercial agriculture, supported by a better access to markets and a steady but rapid
industrialisation of agricultural produce. It should be based on a rational and balanced
implementation of modern techniques, increasing and continuous use of inputs and
integration of agriculture into other sectors. Against this background, the Bank has
identified, under its development objectives, the significant thematic areas listed hereafter
which represent the constitutive factors of its vision for the agricultural and rural
development : (i) equitable and accelerated economic growth, (ii) poverty reduction and
food security, (iii) management of natural resources and environmental protection and (iv)
human and institutional capacity building.
2.9 The Bank’s current operational strategy in Rwanda relies on revitalisation of
the rural economy and poverty reduction. It aims to promote income generating
production activities and contribute to ensure food security of the population while
preserving the environment. Bank resources have thus been turned on priority basis
towards implementation of integrated and supplementary actions, which in addition to
their socio-economic impacts, will help to safeguard the huge investments already made.
vi
Bank Group Operations in the Sector
2.10 The Bank has financed seven operations in the agricultural sector since 1994
up-to-date. The operations are the following: (i) Byumba Agricultural Development
Project phase II, (ii) Mutara Agricultural Development Project (iii) Emergency
Agricultural Production Recovery Project, (iv) Dairy Cattle Rearing Development Support
Project, (v) Study of a Master Plan for the Rural Development of the Ruhengeri, (vi)
Nshili Kivu Tea Factory Feasibility Study and Tea Sub-sector Study; and (vii) Master
Plan Study of Development of Swamps, Protection of Catchment Areas and Conservation
of Soils. The first two projects are nearing completion, the next two are being
implemented, the first and second studies have been completed while the third one is
under way.
Coordination of Assistance and Donors Operations in the Sector
2.11 Strictly speaking, there is no assistance and donors intervention in the sector,
when in spite of everything occasional contacts are made from time to time between the
different donors. Experience has also confirmed this absence of harmonisation through
the financing of a study which was successfully conducted but which was subsequently no
longer of current interest (ref. para. 5.1.2). This absence of rational coordination stems
from the fact that the country has no prior investment programme drawn up in the
agricultural sector and that it has consequently led to do visual flying according to offers
of financing and pinpoint needs brought to the fore. The solution is therefore in the
drawing up of a master plan for agricultural and rural development plan, and for in-depth
sub-sectoral studies within the framework of Vision 2020 recently adopted by Rwanda.
2.12 IFAD is currently financing an integrated rural development project in the
Mutara region. The project should under normal circumstances go towards strengthening
the Mutara agricultural development project financed by ADB, on parallel basis with the
dairy cattle rearing development support project which is a national project but
implemented in Mutara to reinforce the dairy cattle development project.
3 Conclusions
3.1 Analysis of operations which support Bank assistance in Rwanda during the
period 1994-2001 helps to conclude that the different projects financed have generally
contributed to reduce food deficit of the rural population and to improve the welfare. On
completion of the projects, some constraints were identified. They relate notably to: (i)
sluggishness in the different stages of implementation, (ii) frequent change of senior
officers bringing about incoherence and delays in actions undertaken and (iii) the lack of
human resources with all its implications.
3.2 Beyond these implementation constraints, the actual problems were noted.
They stem probably from relatively low impacts of agricultural projects on the
development of the sector. It would seem that there was a problem of receptiveness which
would need explanation, so as to identify the actual incentives capable of moving the
farmers to be much more sensitive to innovations leading to change, cornerstone of the so
much sought for agricultural development.
vii
4. Lessons
4.1 The first lesson to be drawn from the analysis of these projects financed by the
Bank is the need to be conscious of the important role to be played by the effective use of
the different means of communication presently available and easily accessible both in
Rwanda and at the Bank (telephone, fax, e-mail and express mail including DHL.
4.2 With regard to the relatively frequent change of senior officers involved in
projects, it is obvious that it brings about negative effects on the project through the loss
of some non recorded information and through the lack of coherent monitoring of actions
undertaken. Solution for this must be sought under the general design of a project. It
must underscore a mechanism which enables a project to be more and more rapidly
autonomous.
4.3 The lack of human resources is a general problem in Rwanda. It should be by
and large resolved. Meanwhile, the rational use of technical assistance can be a short and
medium-term solution.
4.4 All planned actions in a project suggest the existence of officers in charge who
are going to implement them. The low results, in terms of productivity, obtained by the
projects analysed seem, however, to show a clear difference between the resources used
(inputs, technology) and the results obtained and this in relation to what one would have
obtained within a true professional framework.
5 Principal recommendations
5.1 To improve Bank assistance in the agricultural sector in Rwanda, the following
is recommended:
(1) To make sure, under every project to be implemented, to provide the ways and
means required to actually facilitate communication between project officers in
Rwanda and those in charge of projects and disbursement in the Bank.
(2) Assist the country to draw up an investment programme in the agricultural
sector, in order to enable it to pursue and achieve the agricultural and rural
development objectives set as part of its poverty reduction strategy paper
(PRSP) and of its Vision 2020. This investment programme in the agricultural
sector must be based on an in-depth study of the sector and the sub-sectors
concerned. Its terms of reference must notably insist on identification of the
basic difficulties of development of the sector, hierarchisation over time and in
the area of qualitative and quantitative objectives to be achieved,
harmonisation and coordination of interventions so as to avoid incoherence and
unnecessary duplication.
(3) Assist the country to conduct feasibility studies of projects that may and must
come under investment programme in the agricultural sector for the purpose of
their financing later on. The terms of reference of these studies put emphasis
on the search for beneficiaries with intrinsic ability to respond positively and
effectively to the different requirements of the project, and thus with a view to
transforming subsistence agriculture into modern agriculture.
EVALUATION OF BANK ASSISTANCE IN THE
AGRICULTURAL SECTOR OF RWANDA
1. CONTEXT
1.1 Objective of the Study and Methodology
1.1.1 Evaluation of Bank assistance in the agricultural sector of Rwanda is aimed to
assess the quality and effectiveness of its contribution in reducing food deficit and
improving the living conditions of the targeted rural population. This is intended to
improve its impacts on agricultural and rural development of the country, and this as part
of its sectoral objectives in conformity with Rwanda’s Vision 2020, country strategy paper
and Bank agricultural and rural development.
1.1.2 This evaluation is based on the examination and analysis (i) of information and
viewpoints expressed during discussions and interactions held with different officers of
both projects mentioned in paragraph 3.1 below and those of the Ministry of Agriculture,
Livestock and Forestry (ii) major results obtained by these projects between 1994 and
2001 and hence (iii) strengths and weaknesses of Bank strategy in agricultural and rural
development in Rwanda as well as assistance during the period under consideration. It
takes into account objective criteria such as relevance, effectiveness, efficiency and
sustainability and takes account of the global context under which the various actions of
the Bank were carried out.
1.1.3 Proposals for improvement, while integrating the major problems identified
during implementation of projects, will be executed within the framework of the demands
of Rwanda’s Vision 2020, Rwanda Agricultural Policy, Bank policy in the agricultural
sector and Country Strategy Paper for Rwanda. All these are intended for the
transformation of subsistence agriculture into modern agriculture, for the purpose of a real
agricultural development, which is intensive and sustainable, and in short, cornerstone of
the development of Rwanda.
1.2 Context and Strategies of the Agricultural Sector
Agricultural Context
1.2.1 The agricultural sector, employing nearly 94% of the total population and
contributing about 40% to GDP, is the backbone of the Rwandan economy. Agriculture is
diversified thanks to the existence of several agro-climatic areas which stem from the
combined effect of temperature gradient, varying with altitude and different types of soils.
The agricultural area cultivated is estimated at 1,100,000 ha, that is 41% of the total area
of the country (26,338 km2) and represents 80% of the arable lands (1,385,000 ha). The
lands that cannot be cultivated are grazing grounds, national parks, afforestations and
natural forests. Possibilities of extension are thus very limited, with the exception of
swamps, that is lands flooded or not, situated in the bottom of valleys, which are currently
the subject of a development master plan. These possibilities work out to about 160,000
ha, but the entire area will probably not be utilised for diverse reasons.
2
1.2.2 Most of the Rwandan agricultural lands (90%) are up to date governed by
customary law, written land tenure law which remains the prerogative of a minority as
well as religious congregations. The non-existence of adequate legal framework can thus
become under some conditions, a real obstacle to rational use of lands. More especially as
according to Rwandan custom, land ownership remains under the management and the
hold of man, land tenure laws transmitted through heritage from father to son. All these
problems and others have nevertheless been taken into account in the ongoing drawing up
of a national land tenure Policy, whose general objective is to set up a safe land tenure
system for the entire Rwandan population, without any discrimination, according to the
principle of equality of citizens enacted by the country’s Constitution.
1.2.3 Before 1990, Rwanda was almost self-sufficient in food. However, after the
war of 1994 food production, although on the increase, covers not more than 70 to 80% of
the population’s requirements. The main food crops, mostly home-consumed production,
are banana, voluble beans, potato, cassava, sweet potato, garden pea, sorghum, maize,
rice, wheat and soya. They are cultivated by women who are concerned normally by the
production of basic items for feeding the family.
1.2.4 Agro-industrial crops, of which coffee and tea notably, play a very important
role in the Rwanda economy since they account for nearly 90% of the country’s foreign
exchange earning. The war had damaged almost all the tea processing factories, but the
majority have now become operational.
1.2.5 In Rwanda farms are characterised by their dispersion and small size. Those
less than 1 ha represent 57% of all the farms and are found in areas with average altitude
and high population density (500 inhab./km2) and those above 2 ha represent only 16% of
farms and are situated in areas above 2,500 m with a population density of about 200
inhab./km2.
1.2.6 The very traditional farming widely practised in Rwanda limits the yield
obtained by food crops and constitutes therefore one of the major constraints to
agricultural development. Most of the crops are grown on the sides of hills often with
deep slopes, which in the absence of erosion control measures, lead to the deterioration of
land heritage. On the other hand the fallow-lands are non existent and inputs such as
selected seeds, fertilizers and pest and fungus control products are little known there,
except in the areas where projects having envisaged the component are located. But even
in these areas where inputs are relatively available and where extension endeavours to
disseminate adequate techniques, the yields remain rather low in comparison with what
could be obtained.
1.2.7 It is indeed these extreme low yields which worry the various officers in view
of the area cultivated which has almost reached its limits. The problem, however, is not in
terms of area, but in terms of productivity and farming intensity and in this area it is
technically possible to do much in Rwanda, for instance to double or triple, if not more,
the present yields (maize, rice, potato etc.). This nevertheless supposes, with notably
availability of diverse agricultural inputs, that the farmers act as true professionals, that is
to say that some transformation could be made to render them highly motivated,
unavoidable condition for receptiveness to technical innovations thereby enabling the
obtention of very high yields.
3
1.2.8 The forestry resources, which in the past were substantial, are dwindling
speedily in the face of excessive galloping population pressure and arable lands which are
increasingly in high demand. The protection of this forest heritage can therefore only be
effected validly through a national programme of erosion control and a programme of
afforestation or reafforestation to which the forestry development support project financed
by ADF and whose loan agreement was signed in December 2001 is going to contribute
effectively.
1.2.9 Rwanda possesses considerable herd whose development is mainly traditional.
It, however, gets entangles with a few constraints including the population pressure which
causes the reduction of the area devoted to grazing, its concentration in the areas far away
from marketing and consumption centres and its traditional character which robs it of
every economic consideration. Livestock can nevertheless be developed in Rwanda
through (i) a number of technical improvements including notably artificial insemination,
rational animal feed and the undertaking of a better animal health monitoring and
especially (ii) actions aimed to transform traditional stockbreeders into modern breeders,
eager for technical innovations.
Strategy of the Sector
1.2.10 The sectoral objective consists in developing every agricultural potential of
Rwanda (ref. agricultural Policy of Rwanda) with a view to contributing to food security
and increasing the rural population incomes, which are obligatory precedents to
improvement of their living conditions and well-being.
1.2.11 The rational development of this agricultural potential, however, comes up
against a number of constraints which is worth identifying first in order to overcome them.
The basic constraints resides in the radical change where-by the farmers must be impelled
to practise a modern agriculture and abandon the traditional methods which aim only at
subsistence that so far marks the Rwandan agriculture. Other constraints have moreover
been identified as well, such as the small size of lands, low utilisation of agricultural
inputs, result of the traditional character of the Rwandan agriculture, the low cultivation of
the areas with high potential like swamps, low productivity of plants and animals of
varieties and local breeds and inadequacy of marketing and processing agricultural
produce.
1.2.12 To overcome the afore-mentioned different constraints of agricultural
development, Rwanda has chosen to put emphasis on the broad directions cited below and
consequently favour corresponding measures and actions.
a) Intensification of agriculture: This intensification is indispensable owing to
the reduction in the size of lands caused by high population pressure, noted
especially on the hills. It concerns all the sub-sectors (plant, forest and
livestock production) and involves (i) increasing use and adequate agricultural
inputs (fertilizers, selected seeds, agricultural tools and equipment and
veterinary products), (ii) regionalisation of crops according to their
agroclimatic demands, facilities provided for their marketing and their
contribution to a better food security, (iii) replacement, in the area of cash
crops, of old plants by high yielding varieties which are more competitive for
export, (iv) improvement of livestock breeding methods in order to increase
4
dairy and meat production (artificial insemination, intensive livestock
breeding), (v) environmental protection and (vi) afforestation of new areas
through agro-forestry and rational use of wood.
b) Professionalisation of agriculture: This professionalisation of agriculture
means the mastery of production and processing techniques, existence of an
effective and efficient marketing system and continuous search for
profitability. It therefore imposes upstream measures and actions gearing
towards transformation of traditional rural area into a modern rural area, that is
to say essentially economic.
2. EVALUATION OF BANK ASSISTANCE STRATEGY
2.1 Bank Policy on the Sector
2.1.1 The actual transformation of agriculture in Africa demands moving from very
diversified agricultural activities and focused on subsistence to a more commercial
agriculture, supported by a better access to markets and a study but rapid industrialisation
of agricultural products. It involves a rational, balanced and effective implementation of
modern techniques, increasing and continuing use of inputs and integration of agriculture
into other sectors. In the process of transformation, the source of growth should no longer
be space or increase in workforce but the increasing use of intensive and effective
technology, improvement of management methods and institutional framework. On the
other hand, the Bank’s vision on agricultural and rural development, hovers mainly
around the need to identify and enlarge the commercial gap, likely to create incentives
which will enable the rural population to participate, as economic agents, for their own
development.
2.1.2 In this aspect, the Bank has identified, as part of its development objectives, the
broad internal areas set out hereafter which represent the constituent factors of its vision
for agricultural and rural developments: (i) equitable and accelerated economic growth,
(ii) poverty reduction and food security, (iii) natural resources management and
environmental protection and (iv) human and institutional capacity building.
2.2 Bank Country Strategy for the Country
2.2.1 Bank operational strategy in Rwanda during the period covered by this
evaluation, relied generally on revamping of the rural economy and poverty reduction.
Examining and analysis of this strategy show that it was an issue of mainly promoting
agricultural production activities, income generators, so as to contribute to guarantee food
security of the population while preserving the environment. It should also, after the war,
assist to face a post-conflictual situation, by relaxing somehow the use of its financing for
actions considered urgent and indispensable.
2.2.2 Bank resources have therefore been directed on priority basis to
implementation of integrated and complementary actions in the following areas: (i)
intensification and diversification of plant and animal production, (ii) mobilisation and
rational use of water resources, (iii) protection of catchment areas and forests, (iv)
development of swamps and (v) technical and financial support to farmers, stock breeders
5
and agro-industries. These actions, in addition to their socio-economic impacts, will help
to safeguard the big investments already made.
2.2.3 Thus, it turns out that the Bank intervened in the agricultural sector of Rwanda
by financing inputs, infrastructure, equipment and materials as well as technical
supervision. All this financing was based on the implicit assumption that the beneficiary
farmers were going to change into modern farmers, that is to say by seeking to obtain the
maximum output permitted by the available inputs. Nevertheless, although the results
obtained (ref. para. 3.2 a) and annex 4) show that the set objectives have on the whole
been achieved, notably qualitatively, their examining ad analysis, given the agricultural
potential of Rwanda and the resources put in, show that they are far below what could
have been achieved in a modern agriculture. It should be noted for this reason that the
Bank’s implicit assumption cited above, is not appropriate and that it raises as a result a
serious constraint, even limiting factor, of real agricultural development of Rwanda.
2.2.4 Bank strategy in Rwanda should, as a result, henceforth take into account this
aspect of its operation so as to improve its assistance in this setor. It will be worthwhile
therefore to underscore research and implementation of ways and means required for
abandonment of traditional practices characterising Rwandan agriculture and which are
the source of weak reaction of farmers to technical innovations for agriculture, which is in
accordance with Rwandan agricultural Policy (ref. para.1.4.9, 1.4.10 and 1.4.11) and with
the top priorities of the Bank.
2.3 Relevance and Coherence of Strategy with the Country’s
Development Strategy
2.3.1 The development strategy of Rwanda is based on development of all its
agricultural potential with a view to improving the living conditions and well-being of the
rural population, through measures and actions which contribute to improve their food
security and their incomes in a sustainable manner. Examining and analysis of Bank
different operations between 1994 and 2001 (ref. para. 3.1) show that the set objectives
are perfectly in keeping with the development of Rwandan agricultural potentials. In fact,
it can be noted that:
(i) the four projects financed which are still being implemented aim at, each in its
sector, the intensive development of available resources through the use notably of
appropriate technical package with a view to increasing productivity of the various farms
envisaged and consequently raise the incomes of the rural population concerned, while
preserving, however, the environment in order that the results obtained can be maintained
for the longest time possible and
(ii) the three other studies, of which one is ongoing and two completed, are
proceeding also in the same manner with a view to increasing the incomes of the targeted
rural population.
2.3.2 It turned out that Bank assistance has been relatively relevant as compared to
the objectives set by both the country and the Bank and that its strategy has been on the
whole in conformity with that of the country.
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2.4 Quality at the Outset and Coherence with Bank top Priorities
2.4.1 Examining and analysis of this Bank assistance during the period under
discussion shows that the design of the projects involved has been dominated by a major
theme which is the search for adequate combinations intended to equip agriculture to
achieve its objectives. The Bank has in fact privileged the inputs supply services before
harvest (supply of seeds and fertilizers, research and extension services) as compared to
assistance after harvest for storage, processing and marketing of the surpluses. In other
words, the projects were supposed to aim at some increase in agricultural inputs,
equipment, materials and infrastructure as well as technical supervision. This strategy,
though necessary turned out to be inadequate in view of the results obtained (cf. para 1.4.6
and 1.4.7). As a matter of fact the different actions of the Bank, considered to be stimuli
meant to make the real players in production react with a view to achieving the set
objectives that have unfortunately not been equal to the resources implemented and the
existing agricultural potential, to create the internal dynamism sought. Bank assistance
which is relatively high performing in respect of supply of inputs, construction and
rehabilitation of agricultural and rural infrastructure (irrigation development, feeder roads,
water supply etc.) and technical supervision (plant and animal production) thus became
weakened in terms of results, because it could not in actual fact translate the urgent need
for changing the traditional comportment of Rwandan farmers into the comportment of
true economic operators.
2.4.2 Moreover, in accordance with the Bank’s agricultural and rural development
Policy, a coherent agricultural sector investment programme drawned up on the basis of in-
depth sectoral and sub-sectoral studies aimed at sectoral objectives defined earlier on,
should normally serve as nurseries for bankable projects. This measure is necessary to
ensure coherence of actions in a given country and avoid financing ad hoc projects
responding to non sectoral demands. But available information does not unfortunately
make it possible, both in Rwanda and in the Bank, to confirm the existence of an
agricultural sector investment project.
2.4.3 In spite of the absence of an agricultural sector investment project, it can,
however, be noted (i) that Byumba II and Mutara agricultural development projects fall
within the scope of strengthening a previous rural development project of the Byumba
(Byumba I) region and master plan development project of the Mutara region respectively,
which aims at optimal use of its natural and human resources, (ii) that the dairy cattle
development support project comes to consolidate what has been done in the general
livestock development and notably in that of Mutara and (iii) that the emergency
agricultural production recovery project is in line with the Rwandan general agricultural
rehabilitation project. These different projects contribute, each in its sphere and according
to its results, in achieving the sectoral objectives of agricultural development in Rwanda, in
accordance with the top priorities of the Bank (ref. para. 2.1.1 and 2.2.1), and even if they
do not form part of any programme precedent to financing.
2.4.4 It should at last and especially be said that the situation in which Rwanda found
itself after the 1994 genocide justified this approach, because the damage caused to
infrastructure, plant and animals, materials as well as to human resources and the shortage
of agricultural inputs of all kinds, with all their immediate and eventual consequences,
show an agricultural production level which is practically non existent. At that time the
situation demanded emergency and rapid interventions. In view of the context then, the
7
objective was to rehabilitate and revive the agricultural sector with as immediate goals (i)
improvement of the food security situation, (ii) rehabilitation of the productive
infrastructure needed for research and supervision activities, (iii) safeguarding production
by developing the swamps, (iv) increase in farmers income, (v) promotion of the private
sector in production activities, processing and marketing, (vi) regeneration of herd and
their genetic improvement and (vii) rehabilitation and protection of natural resources.
2.4.5 Examining and analysis of operations financed by the Bank during the period
1994-2001, including those approved before 1994 (Byumba and Mutara agricultural
development projects) but which have therefore been more or less reformulated to take
account of the new context after 1994, show that all were aimed mainly at loan and non
loan operations, search for food security through the use of plan and animal materials and
inputs that are of higher performance as well as rehabilitation of productive infrastructure.
Despite this approach, projects without precise quantitative objectives, dictated by the
exceptional events which occurred in Rwanda in 1994, it can be noted that the results
obtained by the different operations of the Bank remained generally in conformity with its
top priorities in the agricultural sector, such as increase in productivity, although relative as
compared to the situation after the war, environmental protection and improvement of
welfare in the rural area.
2.5 Inter-sectoral Aspects
2.5.1 Of seven agricultural operations financed by the Bank, that were under
implementation during the period between 1994 and 2001, two agricultural development
projects (Byumba II and Mutara) were without agricultural components. These two
projects were approved by the Board of Directors of the Bank in 1990 and should have
covered five and six years respectively. They have been completed only this year, 2002,
that is within eleven years. Experience has shown that implementation of components of
rural integrated development projects, that are construction of roads and community
infrastructure, and outreach activities, credit, inputs and marketing often registered long
delays owing to their complexity. The concept of integration is indeed a solid base for
formal development, contrary to its limited reach, characteristic of traditional agriculture,
but their organisational complexity demands, however, taking into account adequate
supplementary measures to strengthen the institutional framework in charge, which should
therefore be designed in such a way as to enable the sustainable functioning of all.
2.5.2 More than 70% of the farms are in the mountains where the population density
varies between 200 and 500 inhab. per km2. Now these farms cover very slopping
grounds, which, for this reason, can crumble naturally during the rainy seasons since
weakened by earth works carried out precisely to break down and facilitate growing of
crops there. The different operations of the Bank have taken into consideration this
particular environmental aspect of Rwanda and have therefore envisaged appropriate
erosion control measures to get around this inconvenience. But Bank assistance does not
stop there because these ad hoc measures are not enough for resolving a national problem,
and this is how it became involved also in a forest development support project at the
national level (ref. para. 1.4.8) to contribute to the control of this scourge which threatens
the country in the short, medium and long-terms.
2.5.3 With regard to gender issues, they have not actually been considered by
different operations by the Bank during the period concerned by this evaluation. It
8
however turned out that after the war (ref. para.1.2.3), women accounted for 70% of the
total population of Rwanda. This should have led the Bank to intervene a little more in
their favour, but unfortunately that has not yet been the case for the meantime in the
agricultural sector.
3. EVALUATION OF RESULTS
3.1 Summary of Bank Group Interventions in the Sector (ref. annex 4).
3.1.1 The Bank has so far financed seven operations in the agricultural sector since
1994. These operations are as follows: (i) Byumba agricultural development project phase
II, (ii) Mutara agricultural development project, (iii) Emergency agricultural production
recovery project, (iv) dairy cattle rearing development support project, (v) study of a
Master Plan rural development of Ruhengeri Prefecture, (vi) Nshili Kivu tea factory
feasibility study and tea sub-sector study (vii) Master Plan study on development of
swamps, protection of catchment areas and soil conservation (ref. annex 4).
3.1.2 The four projects cited above have as objectives to increase productivity of the
different food crops concerned and the existing livestock population, with a view to
reducing food deficit in sustainable manner, and increase the income of the targeted
population. To achieve these objectives, a number of actions were therefore planned and
implemented. In concrete terms they have contributed to food self-sufficiency in the
Byumba region and increase in livestock productivity in terms of meat and milk in Mutara.
Regarding the two other projects which are still in process of implementation (Emergency
agricultural production recovery project and livestock support project) and although no
notable execution has been carried out, it turns out that the said projects seem to be on
track of achieving the expected results (ref. annex 4).
3.1.3 Regarding the studies cited in paragraph 2.7.1,two have been completed but
not followed by implementations (ref. annex 4), the third is ongoing and will lead to the
drawing up of a feasibility study on the development of 6 000 ha of swamps, as well as
corresponding preliminary engineering studies and detailed preliminary engineering study.
3.1.4 The major problems encountered can be grouped into three top priorities (i)
slowness in implementation of projects, (ii) suspensions of disbursements and (iii) lack of
human resources. With regard to slowness, they relate to delays in putting into force,
either to reaction on the lapse of time basis or delays in disbursement. The delays in
putting into effect are often long due to diverse reasons either because certain conditions
are relatively long to comply with or because the officers in charge are not familiar with
the steps to take to fulfil them, or because the officers in charge are over-burdened with
work or simply because there are too many conditions precedent to fulfil or because of all
these reasons. Concerning the long delays to reaction on the lapse of time basis and to
demands of disbursement, their reasons seem to be due to inadequate communication
between the different project officers, but at the level of the Bank through excess work, or
at the level of country through the lack of comprehension of the rules and procedures in
force or simply through the lack of communication facilities. Lastly, concerning the lack
of human resource, as a result of the events of 1994, it can bring about a number of
situations (frequent change of officers, incoherence in monitoring actions, non mastery of
certain actions etc.) which hamper the smooth implementation of projects.
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3.2 Loan Operations
a) Efficiency
3.2.1 The two agricultural development projects Byumba and Mutara have set the
same objectives, that is reduction of food deficit, environmental protection, and
enhancement of farmers income and their living conditions, each in its area of operation
and through productive resources that are available there. Though none of the two
projects is at present fully completed, it can be already noted that (i) with regard to
Byumba there has been a better environmental protection, rehabilitation of community
infrastructure (health centres, schools….), distribution of divers inputs (agriculture and
livestock) self-sufficiency in relation to the principal crops grown there, and increase in
cattle population, on the contrary outreach techniques have been adopted faintly both in
plant production and animal production. This is because it seemed that the techniques had
not been seen as real and profound; (ii) for Mutara there is an improvement of livestock
breeding in terms of gain in weight on growth, dairy production and reduction of cattle
death, distribution of selected seeds, both food crops and forestry, and provision of water
supply consisting notably of 350 km of PVC pipeline and 250 standpipes. Viewed from
this angle it can be said that the two projects have on the whole achieved their objectives
from the qualitative standpoint, although operational problems relating to their
implementation have more or less limited their scope.
3.2.2 Analysis of these operational problems shows that there are two types, one
relating to implementation of projects such as it is designed and the other underpinning
them. The problems related to implementation are essentially characterised by the
slowness of different processes used, such as effectiveness of the loan, preparation of
goods and services, demands on the lapse of time basis, disbursements and audits. The
other type of problems which supports implementation of these projects is in the
assumption that is made on their design, that is to say due to the fact that it is supposed
that the beneficiaries are going to make an optimal use of all the resources placed at their
disposal under these operations.
3.2.3 The slowness of the different processes cited above seems to emanate, after
analysis, from the lack of effective communications between the two parties, that is to say
between the Bank and the Borrower. It would be necessary that henceforth different
means of modern communications, such as telephone, fax, e-mail and DHL, be specially
planned in the list of goods and services of projects and procured and implemented later.
On the other hand, with regard to the assumption at the outset upon which the projects are
based, which in actual fact is not verified, it is also time to look for the ways and means
which will help to verify it before implementation of the projects, or alongside their
implementation.
3.2.4 Regarding the Emergency agricultural production recovery project in the two
irrigation schemes of Bugarama and Rwamagama which aims, like the aforementioned
two projects, to ensure food security, but through increase in the only production of white
rice, it is already noted, though the rehabilitation of works planned have not yet been
completed, that the yields of Rwamagama and Bugarama are 3.0 t/ha/crop and 4.0
t/ha/crop, respectively, whereas they were 2.5t/ha/crop and 3t/ha/crop before project. This
productivity gain stem from the only technical supervision provided by the project. In the
light of the foregoing and its present status of implementation, it is therefore justified to
10
assume that this project can be effective, as compared to the objectives set, because it has
already contributed to increase in yield.
3.2.5 Concerning the dairy cattle development project which aims to improve food
security through the satisfaction of domestic demand in milk and meat, while increasing
farmers income, it is not yet possible at the moment to pass a judgement on its
effectiveness, due to the lack of results in concrete terms, because it has just got off the
ground (1st disbursement in December 2001).
b) Efficiency
3.2.6 Only the two agricultural development projects of Byumba phase II and
Mutara can be assessed from the standpoint of efficiency, in view of their present very
advanced status of implementation. The other two projects (Emergency agricultural
production recovery project and dairy cattle development projects) are at the start up stage
of implementation. The present impacts of these projects, each in its region, are for (i)
Byumba phase II: self-sufficiency as regards the major crops, increase in cattle
population, granting of credits for the purchase of inputs and promotion of non
agricultural employments and (ii) Mutara: on the one hand more than 90% of dairy
enterprises of the country come to obtain milk supplies in Mutara for Kigali, which, in
upstream, supposes an increase in livestock, thanks to the project, notably in terms of
improvement of the cattle breed used, animal feed and animal health and, on the other
hand, 250 standpipes have been installed to facilitate drinking water supply from Mutara
region and thereby improve the living conditions of the rural population. Beyond the
physical implementations, directly financed by the Bank, these impacts show clearly the
spillovers of these two operations in Rwanda.
3.2.7 Despite the obvious long delays in implementation of the two projects
therefore, it is possible to say that they have relatively been efficient if the real impacts
mentioned above (ref. para 2.7., 4.1.1 and 4.2.1) are taken account of and especially if the
post-war context in which they were, is considered, context which was neither envisaged
nor sensed during appraisal.
3.3 Non Loan Activities
a) Effectiveness
3.3.1 The principal non loan operational instruments of the Bank in Rwanda during
the period 1994-2001 were first, studies (study of a master plan for the rural development
of the Ruhengeri, feasibility of the tea factory and study of the master plan for the
development of swamps, protection of the catchment areas and conservation of soils), then
country strategy papers (CSP of 1996-1998 and that of 1998-2001) and lastly supervisions
of the different projects concerned by the evaluation.
3.3.2 The first of these studies financed by the Bank is completed and has led to the
identification of the feasibility study of a rural development in Ruhengeri, the second
relating to the tea factory is also completed. With regard to the last, it is at present
ongoing, though the master plan is completed, it remains the conduct of a feasibility study
of a development project covering 6,000 ha, as well as corresponding studies of
preliminary design and detailed engineering design. The first two studies have been
11
completed in conformity with the terms of reference, but one has to wait to assess the third
study.
3.3.3 The country strategy papers (CSP) corresponding to the period covered by this
evaluation have on the whole aimed at revitalizing the rural economy and poverty
reduction through financing of inputs, rural infrastructure, agricultural equipment and
materials and technical supervision (ref. para. 2.2.1 and 2.2.3). These strategies have been
relatively high performing, since their implementation through the projects financed by the
Bank has contributed to achieve the set objectives, that is to say, on the whole procurement
of agricultural inputs, equipment and materials, construction of rural infrastructure and
technical supervision.
3.3.4 The supervision carried out by the Bank were according principles notably
with respect to frequency. They also helped to resolve the problems of implementation,
particularly numerous in Rwanda, owing to the lack of human resources stemming from
the post-conflict situation. Despite these performance, however, the results obtained at the
level of projects implementation could have been better, in terms of delays, if they had not
been limited by inadequate communication between the different project officers (ref.
para.3.1.4).
b) Efficiency
3.3.5 The studies financed by the Bank in Rwanda have all not contributed to the
development of agriculture. This is why the feasibility study for the Ruhengeri rural
development project, although completed, has not taken any shape, because IFAD was
already financing a similar project. The study is therefore not a question of the moment.
Concerning the second study relating to tea, it served as a tool of orientation and definition
of alternatives for privatising this study currently ongoing and which will also serve as
assistance to decision-making of future investors. The third study, as mentioned above (ref.
para. 3.3.1) is ongoing and can still not be evaluated.
3.3.6 The country strategy papers (CSP) have indeed assisted to achieve the
objectives set for the projects financed by the Bank during the period covered by this
evaluation. Their performances, nevertheless, have been limited (ref. para. 2.2.3 and 2.4.1)
by weak reaction of beneficiaries to the stimuli brought about by the projects, and by the
nonchalant attitude to factors of development after harvest (storage, marketing and
processing). The nonchalant attitude to one or several of these factors of development can
in effect constitute a bottleneck for the country’s agricultural production and consequently
for farmers productivity.
3.3.7 With regard to the supervision missions, their implementation has certainly
contributed to improve the results obtained by the projects thanks to the pieces of advice
given by the experts of the Bank. However, real impacts on the development were also
limited, on the one hand, by the same motives as the CSP (ref. para.2.2.3 and 2.4.1) and, on
the other hand, by the lack of power of decisions of Bank experts on mission. These
experts have to act according to a relatively long process before being able to make
materialise the pieces of advice and instructions which they give during their supervisions.
This is likely to reduce the impact of their operations in implementation of projects of
which they are in charge.
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3.4 Coordination of Assistance
Strictly speaking there is formally no assistance and interventions of other
donors in the sector, even when from time to time there have been contacts among them.
Experience has moreover confirmed the absence of harmonisation through financing of a
study which had been completed but which was eventually out-of-date (ref. para. 3.3.2).
This absence of rational coordination is due to the fact that the country has no investments
programme drawn up beforehand in the agricultural sector (ASIP) and that it is
consequently induced to carry out a visual flying according to financing offers and ad hoc
needs that are brought to the fore. The solution therefore finds expression in drawing up
of agricultural and rural development master plan and in-depth sub-sectoral studies under
Vision 2020 recently adopted by Rwanda. It will therefore be easy for the various donors
to understand one another and coordinate their interventions according to their respective
priorities and availability.
3.5 Operation of Other Donors
3.5.1 IFAD is currently financing a project for the promotion of rural small and
microenterprises, a project which, though initiated by the Ministry of Commerce, Industry
and Tourism, presents certain aspects relating to agricultural development, whose support
to the organisation of farmers groupings and micro-finance.
3.5.2 The World Bank, for its part, is at present financing agricultural and rural
markets development project whose main objective is to promote an agricultural inputs
distribution system based on the private sector. This promotion consists in opening a line
of credit for the import of agricultural inputs and to enable private entrepreneurs to stock
up supplies more easily for the purpose of their distribution among the population
concerned.
3.5.3 Moreover, this multilateral institution is also preparing with the Rwandan
authorities a project titled « rural sector support project » under the first phase of its rural
sector support programme of which one of the fundamental objectives is to increase the
rate of adoption of improved agricultural inputs with a view to initiating rapid and
sustainable transformation of agriculture.
3.5.4 Other bilateral donors, such as Belgium, China, Untied States of America or
France intervene in the Rwandan agricultural sector through the supply of diverse
agricultural inputs, deconcentrated credits, development of swamps or preparation of
pedagogic map of Rwanda.
4. ANALYSIS OF SUSTAINABILITY
4.1 Technical Viability
4.1.1 Byumba agricultural development project phase II. The main objectives of this
project were to increase agricultural production while protecting the environment, develop
the economic potentials for the landless, promote livestock development and facilitate
access to credit. They have been achieved thanks mainly to the following outputs (i)
establishment of seed breeders covering 950 ha and distribution of 730t of fertilizers and
13
23t of pest and fungus control products to farmers, (ii) establishment of 150 ha of
agroforestry nurseries and distribution of 15 million forestry plants and distribution of 15
million forest plants, (iii) development of 234 ha swamps (iv) artificial insemination of
cows and (v) easy access to credit.
4.1.2 Thus, it turns out to be that the technical viability of this project depends,
before any other thing, on the continuing use of inputs, monitoring of their distribution by
different officers in charge and easy access to credit for farmers. In order words it
depends on the effective zeal and motivation of decentralised agents of the services as
well as on good handling of the agricultural credit. The officers in charge should
therefore monitor closely the functioning of the system set up and detect the least fault to
be able to react rapidly if need be.
4.1.3 In the present situation, the production obtained helps to ensure some self-
sufficiency in food in the region. However, in a future which is difficult to predict at the
moment, this self-sufficiency is not likely to be guaranteed, because the outputs attained
so far, though they have reached the level of that of pre-war, they are no longer likely to
be adequate later in view of the sharp increase in rural population which characterises
Rwanda. Under these conditions, only an optimal and sustainable increase in productivity,
both in plant and animal production will help to resolve this problem. This increase in
productivity requires technically the use of more high result yielding inputs and increasing
effective protection of environment, hence more and more credits. This is nevertheless
only foreseeable if farmers creditworthiness increases consequently, which is strongly
linked to productivity level, and also depends on the level of motivation of farmers and,
eventually, project lands themselves, that are characterised mostly by sharp slopes,
rendering the erosion control and transport more difficult.
4.1.4 The Mutara agricultural development project. This project aims at reducing the
food deficit and raising farmers income as well as improving their living conditions
mainly through providing them with drinking water. These objectives have induced the
project to carry out notably (i) study of livestock development master plan and its sub-
sector of milk and meat in Rwanda, genetic improvement of its watering, (ii) seeds
multiplication and extension of agricultural techniques and (iii) creation of a network of
drinking water supply to serve 145,000 persons in 2020.
4.1.5 At the technical level, this project’s sustainability requires the continuation of
different actions undertaken so far. The decentralised agricultural services are certainly
going to work according to their functions, but there is especially the fact that farmers,
motivated by increasing marketing of milk to Kigali, are also going to act in such a way
so as to increase their production and thereby facilitate the task of technicians. This
synergy is going to contribute to the technical sustainability of this project and this more
so that, under the Mutara agricultural development project a study has been conducted.
This study which is not only intended to strengthen this project, but concretised also
through the financing of the corresponding project and in which is notably envisaged the
building of milk collection centres in Mutara. These infrastructures are absolutely
necessary in order not to limit the marketing of milk downstream.
4.1.6 Dairy cattle development support project. It aims at satisfying the domestic
cattle milk and meat demand all over the national territory, while increasing farmers
income. It also proposes to make materialise the major outputs cited in annex 4, which
14
consist of (i) improvement of productivity of livestock and (ii) construction and
implementation of infrastructures of collection, storage and marketing of livestock
products.
4.1.7 In view of the fact that this project is not yet completed, it is difficult to assess
its technical sustainability. Nevertheless, given its design which makes it a project meant
to strengthen the Mutara agricultural development project, notably concerning milk and
meat production, it is justified to say that this project has the qualities of being
sustainable.
4.1.8 Emergency agricultural production recovery project. This project aims to
increase production of white rice in its area of intervention and proposes for that reason to
rehabilitate the two schemes mentioned in Annex 4. As the rehabilitation works are not
yet completed it is not possible now to actually talk about sustainability. Although there
is apparently no technical impediment to this sustainability.
4.2 Economic and Financial Viability
4.2.1 Following the damage caused to infrastructure, plant and animal materials as
well as to human resources, shortage of agricultural inputs of all types and agricultural
production practically non-existent which is the aftermath of the war, it turned out that the
different projects ongoing during this period were hailed in Rwanda. It could not have
been otherwise, since it had then to start from the scratch. The pre-war performances
were thus gradually picking up and the financed projects have really contributed to the
reduction of food deficit. But the viability of these projects varies according to the sub-
sector concerned.
4.2.2 On the whole, the economic viability of the food production projects as they
are at the moment, will be limited in the course of time. As a matter of fact, although the
present production are still relatively adequate for the regions concerned, it will not be
long when the high population pressure in Rwanda will demand increasingly high
performances from these projects, which they will find difficult to satisfy due to the
reasons given in paragraph 4.1.3.
4.2.3 From traditionalist agriculture, currently determined by the search for
subsistence, it will then become increasingly modern, through the dictates of events, that
is a change by rather economic demands and hence more effective. But the development
of this process is likely to take a long time if it is not accelerated.
4.2.4 Regarding animal production, it turns out to be more dynamic if one considers
it according to the results attained in the regions concerned by the projects financed by
ADB (ref. para. 3.2.1). It will still be more in future, thanks to predictable development of
this sub-sector through the ongoing dairy cattle development project financed to
strengthen the Mutara agricultural development project’s gains that are already high
performing.
4.2.5 Concerning the financial viability of these projects, the problem does not really
arise in these terms, given the evident high demand as compared to supply, and this for
sufficiently long time until the change of the Rwandan agriculture.
15
4.3 Social Viability
The gains brought about by these projects to the rural population consist
mainly of community infrastructures, such as feeder roads, health centres and schools.
Like all structures, they require maintenance and upkeep and consequently they are not
likely to last if the standard of living of the beneficiary population does not make it
possible to finance the corresponding expenses. It seems also that there is an
interdependence between the different factors of sustainability of the said projects.
4.4 Institutional Aspects
4.4.1 Execution of the different projects financed by the Bank is ensured by either a
project implementation unit, which is created for that purpose, or by the Ministerial
Department concerned. In the two cases, the different officers in charge are motivated
financially and or materially. At the end of the projects, however, these material or
financial motivations stop the financing and consequently the zeal of the officers in charge
is no longer high as before. This is basically likely to reflect adversely on the projects, if
the beneficiaries are themselves not sufficiently motivated to assume responsibility. This
situation is going to be that of Byumba agricultural development project Phase II and
probably also that of the Emergency agricultural production recovery project. The case of
Mutara agricultural development project and the dairy cattle rearing development project,
where the beneficiaries are keenly interested in innovations brought about by the project,
probably because they comprise mainly immigrated population who are seeking for more
than self-sufficiency.
4.4.2 Analysis of the facts shows that sustainability of a project at the institutional
level is linked with its drawing up at the outset. A drawing up exercise which must seek
for the mechanism that ensures its sustainability without any significant assistance from
outside. Such, perhaps, will be the case of the dairy cattle rearing development support
project which will be autonomous, under the existing services, after the normal
completion of the project.
4.5 Inter-sectoral Aspects
4.5.1 Two sectors are touched by implementation of these agricultural projects
financed by the Bank. That of environment and that of industry. Environmental
protection has become an indispensable factor for sustaining the Rwandan agriculture,
whereas the agro-industry stands out as an unavoidable engine factor for its development.
4.5.2 In view of the sharp slope noted on the lands of Rwandan hills, as well as
deforestation observed on both the hills and in the north-west, on low lands, it has become
imperative to check the destruction of the natural heritage by giving a particular attention
to the control of soil degradation, loss of arable lands and destruction of forests. Non
protection would lead to inescapable erosion of hill lands through landslide and steady but
sure devastation of the remaining sparse forest heritage. Against this background
therefore one is obliged to take environmental actions, such as erosion control and
production of forestry seeds which have been integrated into the Rwandan agricultural
projects.
16
4.5.3 The change of agricultural products downstream, which moreover supposes the
existence of a functional marketing system, will contribute considerably to increase in
demand and will accordingly be one of the principal engines of agricultural development,
either in the agricultural sector or in the industrial sector.
4.6 Repercussions of the AIDS Pandemic
4.6.1 It is at present admitted that the HIV/AIDS has become much more a
development than health or human resources problem. In fact, the HIV/AIDS is an
impediment to sustainable development and at the same time a factor of poverty. With the
massive population displacements during the war and the 1994 genocide, Rwanda has
become more vulnerable to the HIV/AIDS pandemic. In 1986 the prevalence rate was
3.6%, in the rural area, it now stands at 10.8%. The rural population is likely to lose a
greater part of its productive members in the long run, if this rate was maintained or
increased.
4.6.2 The numerous orphans left by the war, to which will be added those from
AIDS, could only be toppling over, without the support of their parents, in a permanent
poverty, thereby inducing disastrous consequences on the economic growth of the
country, in general, and agricultural productivity in particular. Appropriate measures are
thus needed to at least alleviate in a significant manner the devastating effects of this
pandemic which thwarts the achievement of agricultural development objectives set.
5. IMPACT ON INSTITUTIONAL DEVELOPMENT
5.1 The implementation Units, differently named according to the projects,
normally ensure implementation of different actions planned during appraisal in
collaboration, both and accordingly, with the conventional services of the Ministry of
Agriculture and other ministries. However, alongside this conventional structure, other
organisations or associations have been created and/or requested for the smooth running
of all and ensure the achievement of the objectives.
5.2 Sales counters have been installed under the Byumba agricultural development
projects phase II and that of Mutara to see to the distribution of different agricultural
inputs which the beneficiaries need. For these procurements, the beneficiaries can get in
contact with cooperative associations grouped into people’s Banks to obtain the needed
credits. At present, there are 147 agencies of people’s banks in Rwanda, each
corresponding to a cooperative association, grouping on the whole 243,455 members with
a deposit of FRW 13,785 million. The borrowers (farmers or not) should compulsorily be
members of the cooperative and be in possession of a material guarantee (farm, house)
and a joint and several guarantees, created by a group of 20 persons. The credits
reimbursement rate was 0% before the war, but now it stands at 80% which manifests a
real zeal in this area.
5.3 The projects financed by the Bank have thus contributed in a way to the
development and strengthening of the people’s banks, widely spread out at present in
Rwanda. On the other hand, they have also, especially those in the stock breeding sector,
initiated the establishment of different centres or organisations needed for the smooth
operating of the sub-sectors concerned, such as the regional laboratories for veterinary
17
analyses, the epidemio-survaillance network and centres for collection and cooling of milk
which will soon be created.
5.4 It is at present difficult to assess the real impact of these institutions on the
development of the Rwandan agricultural sector, but it is easy to affirm that their
extension to the national level depends closely on the level of motivation of farmers to
produce much more than in the past. In other words, development of these institutions is
linked with the production aimed at.
6. PERFORMANCE
6.1 Factors Touching the Performance and Results
6.1.1 The different projects concerned by this evaluation have made it possible to
achieve a number of results which fall within the scope of the set objectives, that is to say
food security and enhancement of the welfare of the rural population. It will probably
hold good for the swamps development project whose study is at present ongoing. On the
whole, therefore, the results have been attained or will be soon attained, but the question
which arises is nevertheless whether the results, though suitable, are adequate to
contribute effectively to the actual development of the agricultural sector?. Experience
seems not to confirm this clear logic, more so that the set objectives remain simply
qualitative and are not often quantified (Ref. para.2.4.5) or more exactly are not
sufficiently ambitious to start a real development.
6.1.2 In other words, the attainment of the results, which are mainly qualitative,
envisaged during appraisal is certainly necessary, but not enough to guarantee their
effective and sustainable contribution to attain the set sectoral objectives which are
reduction of food deficit and enhancement of the welfare of the rural population, as part of
modern and non traditional agriculture. Other factors, already cited in paragraph para.
2.4.1, 4.1.3 and 4.2.2 seem to be the cornerstone of every accelerated and sustainable
agricultural development. The advanced participatory method by donors is not dissimilar,
except that it must be comprehended as a participation of endogenous and not exogenous
origin. The farmers themselves must feel the urgent need to participate in the different
actions, but they should not in any way whatsoever be compelled to do so ; nor by any
sensitization, nor by actions of that nature. It is under such conditions and such conditions
only that the participatory method is capable of boosting a true, accelerated and
sustainable growth, because it is based on a real internal zest. It is under these conditions
also that farmers can effectively take over the different actions envisaged by the project
and act consequently as real economic operators and enter the era of modern agriculture.
6.2 Borrower’s Performance in Drawing-up Projects
6.2.1 The four projects being implemented during the period 1994-2001 drew their
source either from a previous project or from an agricultural development master plan
prepared earlier on, or from a general Rwandan agriculture rehabilitation programme
respectively (Ref. para.2.4.3). These projects aimed at objectives which established their
origin, but in view of the events of 1994 and their outcome which modified the context,
the borrower was obliged to request, with good reasons, for some modifications whose
immediate objectives are to rehabilitate and boost the agricultural sector through (i)
18
improvement of food security, (ii) restoration of livestock population and its genetic
improvement, (iii) rehabilitation of natural resources and (iv) rise in farmers income.
6.2.2 As the projects concerned by this evaluation were designed before 1994 or
followed projects already completed by that time, it is not possible to actually evaluate the
performance of the borrower in the drawing up of projects. Their only intervention
consisted in adapting the ongoing projects to the post-conflict context, with the immediate
objectives of rehabilitation and giving impulse to the agricultural sector.
6.3 Borrower’s Performance in Implementation
6.3.1 The tragic events of 1994 and the disastrous consequences, which ensued, have
seriously weakened the Borrower’s capacity of implementation at all levels. The
destruction of most of the community infrastructure in the rural area, disappearance of
human resources, both in respect of farmers and technicians and professional staff of all
types, massacred or emigrated, have placed the country practically in a situation which
obliged it to manage with the means at its disposal.
6.3.2 The projects financed by the Bank in effect started on this base, characterised
notably by very few infrastructure, due to almost complete absence of inputs, plant and
animal materials and to a glaring inadequate human resources. Despite this environment
which is not conducive to any type of actions, however, the borrower assumed his
responsibilities and got itself organised with available resources to speed up and implement
the different projects which were then still beneficiaries of Bank financing.
6.3.3 Although below what could have been attained in normal times, the results are
there to testify to the positive and courageous efforts of the borrower: (i) the Byumba
region has at present attained the pre-war production level, (ii) that of Mutara supplies over
90% milk from the dairy industries of the country, (iii) the dairy cattle rearing development
support project is consolidating the gains of livestock breeding at the national level in
general and in Mutara in particular, through mainly the establishment of milk collection
and cooling centres, (iv) the Emergency agricultural production recovery project led to
rice production on two schemes (Rwamagama and Bugarama) nearly abandoned because
of being in a bad state and lack of supervision and (v) without forgetting the studies
embarked upon or ongoing (a) of which the study of a master plan for the rural
development of the Ruhengeri Prefecture, that led to the drawing up of a feasibility study
of Ruhengeri, development plan, but unfortunately has no longer been considered to be
current, (b) feasibility study of a tea factory, which is still waiting for its time to find
private financing and (c) swamps development master plan study, already completed and
which opened up onto a feasibility study of the development of 6000 ha which is ongoing
at present.
6.4 Bank Performance in Preparation and Appraisal of Projects
6.4.1 Be it for the Byumba agricultural development project, or that of Mutara, or
dairy cattle rearing development support project, ADB has every time based its
intervention on analysis of available information about similar projects previously
implemented or a master plan for the development of the region concerned. This
procedure has enabled it to draw lessons from the past and to better apprehend the different
constraints which could have been an impediment to the achievement of the objectives set.
19
And it is only out of these analyses that the aforementioned projects were implemented,
each with its own peculiarities. It is a fact that none of these projects stemmed from
coherent investment programme of the agricultural and rural development policy (Ref.
para. 2.4.2), but their qualitative objectives are in conformity with both the top priorities of
the Bank and the objectives set by the country under Rwanda Vision 2020.
6.4.2 Concerning the Emergency agricultural production recovery project, it has
been financed by the Bank to meet a manifested specific need within a post-war context,
certainly apparently ad hoc in the interval and in the past, but which in fact, has earlier on
been identified somehow. The Bank had in fact planned to contribute to the financing of
an irrigated farm development under the Mutara agricultural development project. It was
then its first intervention in the sector in Rwanda, but in view of the withdrawal of other
donors after the 1994 events known to all and sundry, this component has been put aside,
owing to lack of financing. Its interest, however, remains essential, in view of (i) the
reduction in the size of the plots of land in Rwanda and (ii) lands that are too sharp and
sloppy on the hillsides; and the Bank’s decision to go ahead in financing this project, is not
only due to the urgent need to assist the country after the war, but also due to its conviction
that irrigation schemes can become for the country significant assets in its development,
provided that the beneficiaries act as true economic operators so as to draw the maximum
out of them.
6.4.3 Though all these projects are in keeping with the objectives of reduction of
food deficit of the rural population, and enhancement of their welfare and that, moreover,
they are relatively in conformity with Bank top priorities as regards the search for
productivity and environmental protection, it is also true that it is strongly advisable that in
future, an agricultural sector investment programme be first reviewed so that projects
financed become more coherent among themselves and hence more effective for the global
development of the country. The agricultural sector investment programme will be based
on in-depth sectoral and sub-sectoral studies, with a view to identifying the different
potentials and constraints to agricultural and rural development of the country and of which
the analysis will help to draw up a number of projects that are much more coherent among
themselves and which would have as objectives compliance with Rwandan Vision 2020.
Moreover, it is within this spirit that the study of the agricultural sector and sub-sector of
Rwanda, will be conducted on bilateral financing, as part of the work programme of the
Operation Department concerned by the Bank.
6.5 Bank Performance in Supervision
Supervisions carried out by the Bank in terms of quantity are relatively satisfactory
during the period covered by this evaluation. Its supervisions have been carried out
according to Bank patterns. Unfortunately, however, they have still not helped to resolve a
number of complains expressed by the projects and which have generally caused a few
delays. Some of these delays are in effect due to communication problems, but others are
due to the lack of decision-making power attributed to project officers of the Bank.
20
7. EVALUATION NOTES
7.1 Bank Assistance
7.1.1 Bank assistance in Rwanda over the period indicated is relatively satisfactory
regarding the conformity of the qualitative objectives set in relation to top priorities. There
are visible results, but it is not certain that these results can actually contribute to the
transformation of the present subsistence agriculture into modern, economic agriculture,
base of all accelerated, equitable and sustainable agricultural development.
7.1.2 Considerable, indeed fundamental improvements can and must be brought
about so that programmed actions are carried out effectively and that the induced impacts
can unfold towards the desired goal. If the problem, cited notably in paragraphs 1.4.10 and
1.4.11, is not tackled seriously, Bank assistance to the agricultural sector is likely to only
record perpetuation of mediocre results as currently noted, which is characterised by low
productivity, in spite of all the investments made in the sector.
7.2 Borrower’s performance
The efforts made by the borrower to implement the projects concerned by this
evaluation are on the whole satisfactory if the context in which the country was, during that
period, is considered. The post-war demands emergency actions and without delay, but
that has not prevented the borrower to think about the future, testimony of some studies
conducted including that relating to the swamps development master plan, protection of
catchment areas and conservation of soils. It is now time for the borrower to coordinate in
harmonious, precise and coherent manner future actions to be undertaken within the
framework of Rwanda Vision 2020, through the drawing up of the agricultural sector
investment programme.
8. CONCLUSIONS, LESSONS AND RECOMMENDATIONS
8.1 Conclusions
8.1.1 Analysis of operations which underscored Bank assistance in Rwanda between
1994-2001 helps to conclude that the different projects financed have globally contributed
to reduce food deficit of the rural population and to enhance their welfare, despite the
disastrous condition under which they were implemented and where human resources were
desperately lacking.
8.1.2 On completion of these projects, some constraints were identified (ref. Annex
4). They relate mainly to (i) slowness noted at the various stages of their implementation,
(ii) frequent change of officers in charge lead to incoherence and delays in the actions
undertaken and (iii) the lack of human resources with all its implications.
8.1.3 Beyond these implementation constraints it has also been noted (i) the
existence of another type of constraints relating to beneficiaries reaction to diverse national
and technical contribution of projects (ref. para. 1.4.7, 2.2.3, 2.2.4 and 2.4.1) and which is
the origin of low productivity and hence agricultural projects relatively low impacts on the
development of the sector and (ii) absence of coherent investment programme in the
21
agricultural sector (Ref. para. 2.4.2), permitting to better coordinate the operations there
and increase their impacts on the country’s development.
8.2 Lessons
8.2.1 Regarding the problems linked with projets implementation it is advisable to
draw the following lessons:
(i) faced with the slowness noted during the implementation of projects, it is
necessary to be aware of the important role which can be played through the
use of different means of communication currently available and easily
accessible, both in Rwanda and in the Bank (telephone, fax, e-mail, express
mail including DHL), because their continuous use and as often as necessary in
one way or the other, between the project officers in the country and officers in
charge of projects and disbursement in the Bank, will help to resolve this
problem about which the various interested parties are complaining now;
(ii) the relatively frequent change of officers in charge of projects, brings about
adverse effects through the loss of certain non recorded information and
through the lack of coherent monitoring of actions undertaken, implying
therefore the implementation of appropriate measures with a view to
remedying them ; these measures must be sought within the framework of
general drawing up of the project, which must put emphasis on a mechanism
permitting to either mitigate the disadvantages or avoid them.
(iii) the lack of human resources following the events of 1994, was nevertheless a
general problem in Rwanda, it must be rapidly resolved at the projects level, to
avoid the impediments which that can constitute for their smooth
implementation; alongside the short, medium and long-term training, well
targeted technical assistance can also be planned.
8.2.2 Concerning the problem posed by the weak reaction of beneficiaries to the
different contributions financed by the Bank, it is worth henceforth considering it as a real
limiting factor (ref. para. 2.2.3) and to proceed to the feasibility studies of projects that can
and should fall within the scope of agricultural sector investment programme with a view
to financing them later on. The terms of reference of these studies should particularly put
emphasis on the ways and means required for the search and establishment of a group of
beneficiaries with intrinsic capacity to meet positively and effectively the different
demands of the project. Such approach will make the project concerned a real
development nucleus, which can extend over and beyond the area directly concerned, and
in essence, become a sustainable project, because endowed with real endogenous zeal.
This approach will also ensure the change of subsistence agriculture into modern
agriculture, guarantee of a true agricultural and rural development.
8.2.3 On the other hand the absence of agricultural sector investment programme
(Ref. para. 6.4.3) is a shortcoming which must henceforth be made good so that projects to
be implemented should be better drawn up and coordinated with a view to achieving the
objectives of agricultural and rural development which Rwanda has set as part of its
poverty reduction strategy paper and its Vision 2020 for the country. This agricultural
sector investment programme must be based on an in-depth study of the sector and sub-
22
sectors concerned. Its terms of reference should notably insist on identification of basic
constraints to development of the sector (Ref. para 1.4.11), hierarchical organisation in the
course of time and the qualitative and quantitative objectives to be achieved, harmonisation
and coordination of interventions so as to avoid incoherence and actions which hamper
their implementation.
8.3 Recommendations
8.3.1 To improve Bank assistance in the agricultural sector in Rwanda, it is
recommended to:
a) plan, under every project to be implemented, the provision of ways and means
needed to actually facilitate communication and consequently the contact
between project officers in Rwanda and officers in charge of project and
disbursement in the Bank (Ref. para. 8.2.1.i). This will facilitate and
significantly improve projects implementation. Introduction of this measure
becomes the responsibility of the appraisal team.
b) plan, during the drawing up of the project (feasibility or preparatory study by
the Bank), the study of a mechanism (Ref. para. 8.2.1.ii) which enables it to
help (i) to limit the shortcomings of its professional staff or (ii) to provide the
needed and adequate means so that the said professional staff make them
integral part, which would do away with dependency. Implementation of this
recommendation will be the responsibility of Rwanda in collaboration with the
Operation Department concerned.
c) plan, during each project appraisal (i) a « scholarship » component to enable
the short, medium and long-term training of nationals, and attenuate the
immediate requirements (ii) a « technical assistance » component adapted to
each case, which may be of short or medium duration, or in a form of repeated
short-period missions according to need, but each time assisted by nationals
(Ref. para. 8.2.1.iii). This measure is the responsibility of the appraisal team.
d) assist the country to conduct sectoral and sub-sectoral studies with a view to
drawing up an agricultural sector investment programme which is based on the
terms of reference described in paragraph 8.2.3. The responsibility of the
drawing up of this programme goes to the country in collaboration with the
Operation Department concerned.
e) give importance to the financing of project studies, whose terms of reference
are in conformity with those defined in paragraph 8.2.2. The responsibility of
this measure goes to Rwanda in collaboration with the Operation Department
concerned.
8.3.2 These few recommendations aim not only to improve Bank assistance in
implementation, by giving greater place to communication but also and especially the need
to find a new breed of beneficiaries, acting as true economic operators, capable of taking
along their entourage into a real development system, that is to say based on an
accelerated, continuing and sustainable growth.
Annex 1
Page 1 of 2
EVALUATION OF BANK ASSISTANCE TO THE
AGRICULTURAL SECTOR OF RWANDA
MATRIX OF RECOMMENDATIONS AND MONITORING ACTIONS
Principal Observations RECOMMENDATIONS PROPOSED
MONITORING
MEASURES
ORGAN
RESPONSIBLE
PROJECTS IMPLEMENTATION Implementation of the
different actions envisaged to
achieve the set objectives
encountered a number of
obstacles of which the major
ones are presented below:
1. slowness noted at the
different stages of
implementation;
2. lack of human resources.
1. The slowness noted at
the different stages of
implementation of projects
could be corrected by taking
into account, during
appraisal, in each project, a
communication component
endowed with the amount
required for procurement
and implementation of all
the means and equipment
needed, including e-mail, to
facilitate this communication
and thereby reduce the
delays .
2. The lack of human
resources can be mitigated
through the continuous and
discontinuous use of
technical assistance, and can
even be in the form of short-
period missions. But in the
same way, it is equally
advisable that each financed
project envisages a training
of short, medium and long
duration for a number of
young Rwandans in areas
where this shortage is felt.
1. See to its
implementation during
each new appraisal and
supervision or,
according to the case,
modify the list of
current goods and
services, if need be.
2. See to this rational
use of technical
assistance during each
new appraisal or, if
necessary, modify the
list of present goods
and services so as to
find solution to the lack
of possible human
resources.
OCAR
OCAR
Annex 1
Page 2 of 2
Bank Strategy
1. The results attained by the
different projects financed by
the Bank, though showing
shortcomings, can on the
whole be considered to be
fairly satisfactory in
comparison with the specific
qualitative objectives of each
of the projects, but it does not
seem that they can become
the base of modern
agriculture, capable of
initiating an accelerated,
continuing and sustainable
agricultural development.
This doubt originates from the
relative low productivity
obtained, despite the
resources implemented, which
seems to be explained by the
predominance of traditionalist
motivation of beneficiaries.
2 Rwanda has no investment
programme in the agricultural
sector. This can be a weak
point, through the lack of
coherence and harmonisation
of operations, in optimisation
of financings granted to
projects of the sector.
1. To solve the problem of
motivation of beneficiaries,
it is recommended to carry
out studies, whose terms of
reference will put emphasis
on the ways and means
required for research and
forming a group of
beneficiaries having intrinsic
capacity to respond
positively and effectively to
the different demands of the
project.
2. Sectoral and sub-sectoral
studies must be conducted to
support the drawing up of
the agricultural sector
investment programme, on
the other hand all the
projects featuring in it
should have quantitative,
ambitious and well defined
objectives.
1. Prepare the terms of
reference (TOR) of this
study and carry out its
implementation
2. Prepare the TOR of
these sectoral and sub-
sectoral studies and
have them conducted.
Proceed at the right
time to the feasibility
studies of identified
projects.
RWANDA-
OCAR
RWANDA-
OCAR
Annex 2
SOCIO-ECONOMIC AND SECTORAL INDICATORS
Area : 26 338 km2 (2 633 800 ha)
Population : 8.310 million inhab.
Growth Rate : 2.50%
Density : 337 inhab./km2
0-14 years : 44.32%
15-64 years : 53.77%
65 years and above : 1.91%
Fertility index : 5.98 %
Life expectancy : 39.99 %
Literacy rate : 48.3 %
Population below the poverty line : 64.1 %
Urban Population : 6.10 %
Growth rate (urban) : 4.15 %
GDP (2000) : US$1.5 billion
Exports (non goods and services) : US$ 64 million
Imports (non goods and services) : US$272 million
GDP/per capita : US$260
Inflation : 2.1%
Rural Population : 94%
Cultivable area : 1.4 million ha
Cultivated area : 0.840 million ha
Population density/ha cultivated : 9 inhab./ha
Agricultural sector contribution to GNP : 40 %
Agricultural sector contribution to export revenues : 90 %
Annex 3
COMBINED RESULTS OF BANK LOAN OPERATIONS IN THE AGRICULTURAL SECTOR
Bank loan operations in the agricultural sector have on the whole helped to attain the
following major results:
1. In the Byumba region: (i) rehabilitation of most of the buildings and procurement of
means of transport and computer materials (objectives achieved at 90%), (ii) development of
234 ha of swamps (Warufu) and identification of 552 individuals and 10 associations to
benefit from it, (iii) preparation of 150 ha of agroforestry nurseries and distribution of 15
million forest plants, (iv) establishment of a seed-bearer field over 950 ha and distribution of
730t of fertilisers and 23t of pest and fungus control products to farmers, (v) rehabilitation of
32.7 km of earth roads, vi) health cover of all the projects communes, vii) artificial
insemination of cows carried out at about 33% of the set objective and viii) projections of
research/development, support to rural area and training have been realized approximately at
50%, 70% and 80% respectively.
2. In the Mutara province: (i) establishment of a supervision and sensitisation
mechanism, (ii) construction of six hillside reservoirs, (iii) distribution, relatively low, of
selected seeds, (iv) improvement of the performance of cattle, in terms of gain of weight and
quantity of milk produced by cow, (v) afforestation of 6,000 ha in the project area and 5,000
ha outside the area, but of which only 40% only remained in good state due to termites and
damage caused by cattle and (vi) distribution of water in four districts of the Mutara province
with 350 km PVC pipes laid, many reservoirs of which 3 of 400 m3 and 1 of 200 m3 and 250
standpipes for supplying in future about 110,000 people.
3. In the two irrigated schemes of Rwamagana and Bugarama: establishment of adequate
technical supervision has made it possible, although the actual rehabilitation works have not
yet been completed, to recrop the two schemes concerned and obtain a yield of 3t/ha/crop for
Rwamagama and 4t/ha/crop for Bugarama and at double crop a year.
4. At the national level : though at the national level, the dairy cattle rearing development
support project has no result yet, since it has just started. This project is going to consolidate
among other things the results obtained in Mutara.
Annex 4
Page 1 of 5
SUMMARY OF BANK PROJECTS IN THE AGRICULTURAL SECTOR
1. Byumba Agricultural Development Phase II
Objectives
The Byumba agricultural development project phase II, approved in October 1990 and
now nearing completion, had as main objectives to increase agricultural production,
facilitate environmental protection, develop economic possibilities for the landless,
strengthen the associations and ease access to credit, promote livestock breeding,
rehabilitate and establish infrastructure (earth roads and buildings) and establish
community infrastructure.
Expected Outputs
To achieve these objectives it has been planned to implement the following actions: (i)
national capacity building for improved seeds and plants supply and conservation of soils,
(ii) genetic improvement, veterinary care and animal feed, (iii) development and
dissemination of adequate agricultural techniques, (iv) development of swamps so as to
increase availability of arable lands, (v) consolidation of infrastructure and rehabilitation
of the communes principal earth link roads, (vi) organisation of farmers into associations,
development of micro-credit and strengthening of community infrastructure and (vii)
training of project agents and farmers groupings as well as women literacy drive.
Status of Implementation
The physical implementation of the project is presented at present as follows: (i)
rehabilitation of most of the buildings and procurement of means of transport and
computer materials (objectives achieved at 90%), (ii) development of 234 ha of swamps
(Warufu) and identification of 552 individuals and 10 associations to benefit from them,
(iii) establishment of 150 ha of agroforestry nursery and distribution of 15 million of
forest plants, (iv) establishment of seed-breeder fields on 950 ha and distribution of 730t
of fertilisers and 23t of pest and fungus control products to farmers, (v) rehabilitation of
32.7 km earth roads, vi) artificial insemination of cows, carried out at about 33% of the
objective and viii) projections of research/development, support to rural area and training
have been carried out approximately at 50%, 70% and 80%.
Problems Encountered
Implementation of this project encountered a number of problems of which the
principal ones are presented below: (i) frequent change of professional staff (the
coordinator has been changed four times since the start up of the project) who could
therefore not benefit fully from technical assistance, (ii) communication problems
between the project management unit and ADB, leading to some slowness with respect to
disbursement and responses on the lapse of time basis, (iii) difficulties due to the demands
of joint financing of certain components between ADF and IFAD and (iv) suspension of
disbursement in 1997, 1999-2000 and 2000-2001 causing considerable delays in the
payment of entrepreneurs and suppliers.
Annex 4
Page 2 of 5
2. Mutara.Agricultural Development Project
Objectives.
The Mutara agricultural development project aimed at reduction of food deficit and
increase in farmers income and their welfare, including drinking water supply.
Expected Outputs.
After the war and in view of the withdrawal of other donors (Kuwait Fund, OPEC
and CCCE), the project has been reformulated and rescaled. To achieve the
aforementioned objectives, it was therefore planned to implement the following principal
actions: (i) livestock master plan study and its sub-sector milk and meat, genetic
improvement of cattle, its feed, its health and its watering, (ii) multiplication of seeds and
extension of agricultural techniques and (iii) establishment of drinking water supply
network intended to serve 145,000 persons in 2020. It is worth noting that the irrigation
development component, whose cost represented more than half of the project total cost,
was left out after the war, in view of the withdrawal of other donors. This component
would have been the first operation of ADB in the irrigated sub-sector.
Status of Implementation.
This project has made it possible in its area of operation for (i) ) establishment of a
supervision and sensitisation mechanism, (ii) construction of six hillside reservoirs, (iii)
distribution, relatively low, of selected seeds, (iv) improvement of the performance of
cattle, in terms of gain of weight and quantity of milk produced by cow, (v) afforestation
of 6,000 ha in the project area and 5,000 ha outside the area, but of which only 40% only
remained in good state due to termites and damage caused by cattle and (vi) distribution
of water in four districts of the Mutara province with 350 km PVC pipes laid, many
reservoirs of which 3 of 400 m3 and 1 of 200 m3 and 250 standpipes.
Problems Encountered
The major problems encountered during the implementation of this project are
presented hereafter : (i) lack of competent professional staff, (ii) suspension of
disbursement (for almost two years) for non execution of audit reports and non
presentation of draft reformulation of components demanded by the Bank, (iii) delay due
to incompetence of a company which was nevertheless recruited (there was no other one)
and (iv) delays of disbursement both by ADB and the counterpart fund.
3. EMERGENCY AGRICULTURAL PRODUCTION RECOVERY PROJECT
Objectives
The main objective of this project is to increase white rice production in its area of
operations.
Annex 4
Page 3 of 5
Expected Outputs
Increase in rice production will be attained through (i) rehabilitation of the Bugarama
(800 ha) and Rwamagama (450 ha) irrigation schemes to be used for double cropping a
year, (ii) making available for the Rural Engineering and Soils Conservation Department,
qualified human resources including a technical assistant and high performing logistic
resources, (iii) development and exploitation of pilot swamps of Bishenyi (60 ha) and
Rugende (50 ha), (iv) creation of FRW 80 million guarantee fund to support credit
operations for farmers and (v) setting up of a research-development mechanism and
training of national professional staff.
Status of Implementation
Although, strictly speaking, the rehabilitation works are not yet completed, the
carrying out of an adequate technical supervision has made it possible to recrop the two
irrigation schemes concerned and obtain a yield of 3t/ha/crop for Rwamagama and 4
t/ha/crop for Bugarama and double cropping a year. The project officers hope to obtain
1t/ha more for each of the two schemes after completion of the rehabilitation works
scheduled for ending 2002 and ending 2003 for Bugarama and Rwamagama respectively.
Problems Encountered
The major problem encountered since the start up of the project stems from the
slowness of disbursement. The project has benefited from three disbursements (working
capital) since it entered into force on 1-04-99.
4. Dairy Cattle Rearing Development Support Project
Objectives
The objective of the project is to satisfy the domestic demand for cattle milk and meat
throughout the national territory, while increasing farmers income.
Expected Outputs
Achievement of these objectives entails the following outputs: (i) organisation,
equipment, training and supervision of grassroot operators, (ii) local cross-breed with high
performing breed and dissemination of good products, (iii) establishment of appropriate
veterinary services including notably the network of epidemiologic supervision, quality
control, disease prevention campaign and provision of veterinary inputs, (iv) improvement
in the management of grazing land and animal feed, (v) construction and implementation
of collection, storage and livestock products marketing infrastructure, (vi) capacity
building for the national services involved in implementation of the project and (vi)
establishment and implementation of the project management unit.
Status of Implementation
The project was put into effect on 4-07-01 and the first working capital disbursed in
December 2001, and a counterpart fund of FRW 40 million. This is to say that this project
has practically not implemented anything yet, consequently there is no impact to mention.
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Page 4 of 5
Problems Encountered
No particular problem worths pointing out at this stage.
5. Rural Development Master Plan of the Ruhengeri Province.
Objectives.
The objectives of the study is to identify a rural development project in the Ruhengeri
province and study its feasibility
Expected Outputs
This study should first tackle the rural development master plan of the Ruhengeri
province, identify a project under this plan and prepare its feasibility.
Status of Implementation
The study is completed as planned and has led to identification of a project whose
implementation is no longer a current issue, since IFAD is financing a similar project in
the same area.
Problems Encountered
Interruption of the implementation of the study for 23 months due to war, which led to
an amendment for extension of the implementation period. But the whole action is
meaningless, because the study was no longer of current interest.
6. Study of the Nshili Kivu Tea Factory and Tea Sub-sector
Objectives
The objective is to draw up the feasibility study of a tea factory at Nshili Kivu as well
as the possibility of privatizing the tea sub-sector.
Expected Outputs
The outputs expected are (i) a feasibility report concerning installation of a tea factory
for the Nshili Kivu plantations and (ii) a report on the future management of the sub-
sector and notably on the possibilities of its privatisation.
Expected Outputs
The different reports expected were completed in 1999 and transmitted to the bank in
February 2000.
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Problems Encountered
This study was approved in December 1989, signed in May 1990, put into effect in
October 1993 and completed in 1999, that is after its effectiveness, for an implementation
period of 12 months.
7. Master Plan Study for Development of Swamps, Protection of Catchment
Areas and Conservation of Soils.
Objectives.
The objective of the study is to endow Rwanda with a tool for rational development of
the swamps, catchment areas and for conservation of soils
Outputs Expected.
The study should lead to (i) drawing up of a general master plan for development of
swamps and protection of catchment areas and (ii) feasibility studies, preliminary design
and detailed engineering studies of a first portion of 5,000 net hectares, or 6,000 gross
hectares.
Status of Implementation
The master plan for development of swamps and protection of catchment areas is at
present completed. The approach adopted in this study is division of the territory into
agro-climatic zones and into agro-pedologic zones. This division makes it possible to
place the country in categories, which could later on facilitate decision-making in the area.
What remains to be done is feasibility study relating to a portion of 6,000 gross hectares as
well as detailed engineering study and engineering design.
Problems Encountered : Nothing worth pointing out now.
Annex 5
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EVALUATION OF BANK ASSISTANCE TO THE
AGRICULTURAL SECTOR OF RWANDA
POINTS
Interpretation of points:
4 : very satisfactory
3 : satisfactory
2 : unsatisfactory
1 : very unsatisfactory
Evaluation of Bank Strategy
INDICATORS POINT JUSTIFICATIONS
Relevance 3 The strategy adopted by the country in the
1994 context is on the whole in conformity
with that of the Bank.
Effectiveness 2.5 The 1994 context made implementation of
projects difficult, more so that the set
objectives were not precise quantitatively.
GENERAL POINT 2.75 .
Evaluation of Results
INDICATORS POINT JUSTIFICATIONS
Design of projects 2.5 The design of projects has been on the
whole fairly satisfactory, in any case
adapted to the context of the time
Achievement of set objectives 2.5 The major results expected have been on the
whole obtained in terms of quality, but it is
difficult to assess them in terms of quantity
because the objectives were not clearly
quantified.
Probability for these projects to
continue to function after
completion
2.5 Given that these projects are especially
considered by beneficiaries as means to
ensure their subsistence, they will continue,
as well as can be expected, to keep them in
good state. But this sustainability will all
the same be relatively limited eventually..
GENERAL POINT 2.5
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Evaluation of Performance During Implementation
INDICATORS POINTS JUSTIFICATIONS
1. Observance of the general schedule 1 On the whole, the general
implementation plants were not
complied with, for diverse reasons
including the war situation which
prevailed at that time.
2. Observance of the limits of costs 2.5 On the whole there was no cost
overrun, on the contrary, certain
components could not be financed
because some donors withdrew due
to war.
3. Observance of clauses 3 The clauses were generally
respected, despite the delays.
4. Appropriateness of monitoring,
evaluation and preparation of reports
2.5 There was some relatively
satisfactory appropriateness between
monitoring, evaluation and
preparation of reports, but the
prevailing context reduced its
impacts on the quality of
implementation.
5. Satisfactory operations 2.5 The projects concerned by this
evaluation were globally
implemented in a relatively
satisfactory manner, despite the
disastrous context which they found
themselves.
TOTAL 11.5
Global evaluation (average) 2.3
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Global Evaluation of Borrower Performance
INDICATORS POINTS JUSTIFICATIONS
1. Identification 2.5 The projects form part of the
national priorities, but they have
not always considered the PSP
recommendations due to the
prevailing context in 1994
2. Preparation 2 Generally some actions were
undertaken before evaluation but no
logical framework was established.
3. Evaluation 3 No matrix was prepared except for
the dairy project (2000), the
appraisal reports were of good
quality, the risks and assumptions
were globally analysed, although
sometimes partially ; the different
phases of processing of the
appraisal reports were monitored.
4. Supervision 3 At least, one mission was
undertaken a year during
implementation; the supervision
reports were generally in
conformity with the operations
manual; the period for processing
some project documents are
relatively long, but the reasons are
diverse, originating from both the
Borrower and the Bank.
General evaluation (average)
2.6
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Global Evaluation of Borrower Performance
INDICATORS POINTS JUSTIFICATIONS
1. Preparation :
a) relevance of operations in
relation to national policies and
strategies,
3
The operations were on the
whole justified
2. Implementation:
a) quality of measures taken for
implementation.
b) observance of the clauses in
time limit
c) Compliance with the
schedules
d) observance of the limits of
costs.
2.5
2.5
2
3.5
The implementation units often
changed heads, which disturbed
coherence of actions, but overall
everything went on well.
A lot of delays but the clauses
were on the whole complied
with
Some schedules were not
observed, for known reasons
Practically no cost overrun
3. Reports:
a) compliance with guidelines
2.5
Generally complied with
GENERAL POINT 2.66
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Evaluation of Bank Assistance
INDICATORS POINTS JUSTIFICATIONS
1. Global evaluation of results 2.5
The results obtained are on the
whole relatively satisfactory in
relation to the objectives set by
projects.
2. Comparison of results obtained
in terms of yields compared with
the existing potential
2.0 The results obtained are
generally far below the potential
allowed by the resources
implemented.
3. Global quality of strategies
implemented by modernisation of
agriculture
2.0 The strategies implemented to
transform the agriculture are not
satisfactory, because they did
not take account of beneficiaries
reactions to the contributions of
projects.
GRAND TOTAL 6.5
AVERAGE 2.16
Annex 6
EFFECTS OF HIV/AIDS ON THE AGRICULTURAL SECTOR
1. According to UNAIDS statistics, it seems that Rwanda figures among the nine
countries most hit by HIV/AIDS. The seropositivity rates are on the increase in both the
urban centres and the rural areas. In 1999, the results taken from serologic surveys indicated
that over 400,000 Rwandans were living with HIV, of which 180,000 manifested the
symptoms and 40,000 died of them. AIDS has thus become one of the major causes of death
in Rwanda. The incidence of HIV infection was recently calculated at 11.1% in the urban
area and 10.8% in the rural area. The rate of infection is particularly high among the working
population, with more than 20% prevalence among women aged between 25 and 35 years.
By the year 2005, the gross mortality rate will increase by 40% owing to this disease and as
the rate of infection is almost identical in the urban area and in the rural area, the mortality
expressed in absolute value will be much more significant in the rural area than in the urban
area.
2. It is at present admitted that the HIV/AIDS has become much more a development
than health or human resources problem. In fact, the HIV/AIDS is an impediment to
sustainable development and at the same time a factor of poverty. With the massive
population displacements during the war and the 1994 genocide, Rwanda has become more
vulnerable to the HIV/AIDS pandemic. In 1986 the prevalence rate was 3.6%, in the rural
area; it now stands at 10.8%. The rural population is likely to lose, in the long run, a greater
part of its productive members, if this rate is maintained or increases.
3. The numerous orphans left by the war, to which will be added those from AIDS, could
only be swaying about, without the support of their parents, in a permanent poverty, thereby
inducing disastrous consequences on the economic growth of the country, in general, and
agricultural productivity in particular. Appropriate measures are thus needed to at least
alleviate in a significant manner the devastating effects of this pandemic which thwarts the
achievement of agricultural development objectives set.