Towards Transformation? ICT in Post-Conflict Rwanda · Towards Transformation? ICT in Post-Conflict...

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Towards Transformation? ICT in Post-Conflict Rwanda January 2013

Transcript of Towards Transformation? ICT in Post-Conflict Rwanda · Towards Transformation? ICT in Post-Conflict...

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Towards Transformation?ICT in Post-Conflict Rwanda

January 2013

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Towards Transformation? ICT in Post-Conflict Rwanda

 

January  2013          

       

                 

 

 

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The report “Towards Transformat ion? — ICT in Post-Conf l ic t Rwanda” i s avai lable at  http://www.infodev.org/en/Publication.1195.html. © 2013 International Bank for Reconstruction and Development / The World Bank 1818 H Street NW, Washington DC 20433 Telephone: 202-473-1000; Internet: www.worldbank.org Some r ights reserved This work is a product of the staff of The World Bank with external contributions. Note that The World Bank does not necessarily own each component of the content included in the work. The World Bank therefore does not warrant that the use of the content contained in the work will not infringe on the rights of third parties. The risk of claims resulting from such infringement rests solely with you. The findings, interpretations, and conclusions expressed in this work do not necessarily reflect the views of The World Bank, its Board of Executive Directors, or the governments they represent. The World Bank does not guarantee the accuracy of the data included in this work. The boundaries, colors, denominations, and other information shown on any map in this work do not imply any judgment on the part of The World Bank concerning the legal status of any territory or the endorsement or acceptance of such boundaries. Nothing herein shall constitute or be considered to be a limitation upon or waiver of the privileges and immunities of The World Bank, all of which are specifically reserved. R ights and Permiss ions

This work is available under the Creative Commons Attribution 3.0 Unported license (CC BY 3.0) http://creativecommons.org/licenses/by/3.0. Under the Creative Commons Attribution license, you are free to copy, distribute, transmit, and adapt this work, including for commercial purposes, under the following conditions: At t r ibut ion—Please cite the work as follows: Towards Transformation? – ICT in Post-Conflict Rwanda; website: http://www.infodev.org/en/Publication.1195.html. License: Creative Commons Attribution CC BY 3.0 Translat ions—If you create a translation of this work, please add the following disclaimer along with the attribution. This translation was not created by The World Bank and should not be considered an official World Bank translation. The World Bank shall not be liable for any content or error in this translation. All queries on rights and licenses should be addressed to the Office of the Publisher, The World Bank, 1818 H Street NW,Washington, DC 20433, USA; fax: 202-522-2625; e-mail: [email protected]. Cover photographs: Sven Torfinn, Panos. Cover design: infoDev

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About infoDev infoDev is a global partnership program within the World Bank Group which works at the intersection of innovation, technology, and entrepreneurship to create opportunities for inclusive growth, job creation and poverty reduction. infoDev assists governments and technology-focused small and medium sized enterprises (SMEs) to grow jobs, improve capacity and skills, increase access to finance and markets, ensure the appropriate enabling policy and regulatory environment for business to flourish, and test out innovative solu-tions in developing country markets. We do this in partnership with other development programs, with World Bank/IFC colleagues, and with stakeholders from the public, private and civil society sectors in the developing world. For more information visit www.infoDev.org or send an email to [email protected]    

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Acknowledgements This mini case study “Towards Transformation? — ICT in Post-conflict Rwanda” was commissioned by infoDev, a global partnership program within the World Bank. The report adds to four comprehensive case studies on the use of ICTs for post conflict reconstruction, covering Afghanistan, Liberia, Timor-Leste, and Tunisia. The project will conclude with an overview report of the case studies, synthe-sizing early lessons of this emerging research topic. The mini case study was completed by Nicolas Friederici, a consultant for infoDev’s Mobile Innovation program, with support from Kevin Donovan, Research Associate at infoDev, and Abdigani Jama, a Senior ICT consultant based in Kenya. The author team owes special thanks to David Souter for reviewing the study and for his valuable comments. The Task Team Leader on behalf of infoDev is Tim Kelly. The team thanks Elizabeth Swinn for copy-editing. The following ICT and development experts in-country are acknowledged for their contributions and support: Mimi Ladipo, World Bank Country Representative, Rwanda; Jean-Louis Kaliningondo, ICT Advisor in the Ministry of Justice; Lucy Mbabazi, Policy and Strategy Advisor, Rwanda Development Board (RDB); Nkurikiyimfura K. Didier, Division Manager, IT Security Division, Rwanda De-velopment Board (RDB); Protais Kanyankore, Acting Director of ICT Infrastructure Development, Rwanda Utilities Regulatory Authority (RURA); David Kanamugire, PS, Ministry of Information and Communications Technology; SP Elie Mbera Bagabo, Director for Infor-mation and Communication Technology, Rwanda Police; Gatwaza William, Director de l’Unite ICT, Ministry of Justice; Paul Mwangi Maringa, Assoc. Professor of Architecture & Planning, Workforce Development Authority; Mboyo Mukunde Sylvie, Kigali Institute of Science and Technology (KIST); and Diego Camberos, Go to Market Manager, Tigo Rwanda Ltd. The research project was made possible through funding from UKaid.

For further information contact:

infoDev / World Bank 1818 H Street NW Washington, DC 20433 United States www.infodev.org

     

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Table of Contents

Abstract 8 In troduct ion 9 Rwanda’s ICT Reforms 10   Vision 2020: Transformation through Science, Innovation, and Technology 10   The National Information & Communication Infrastructure Plans 11   NICI-2005 11   NICI-2010 11   NICI-2015 12   NICI-2020 13  Rwandan ICT Project Case Studies 14   The Karisimbi Project 14   eRwanda 15   TRACnet 16   OLPC 17  Dist inct ive Factors of Rwanda’s ICT Experience 18   Leadership Commitment and Optimism 18   Engagement of the International Community and Donors 18   Skills as the Only Way Out 18   Emphasis on Private Sector Development 19  Conclus ion 21  References 22   LIST OF BOXES Box 1. Pillars of Vision 2020 Outlined by the Rwandan Government 9  Box 2. Thematic Areas of NICI-2010 10  Box 3. Excerpt of ICT-related Goals Within Vision 2020 12  Box 4. The Long and Winding Road to Connect Mount Karisimbi 14   LIST OF TABLES Table 1. Investment, revenue, and job creation at MTN Rwandacell and Rwandatell 11  

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Abbreviations

 3G Third Generation (mobile telecommunications technology) AIDS Acquired immunodeficiency syndrome ART Antiretroviral therapy CAMERWA Centrale d'Achats des Médicaments Essentiels du Rwanda CDMA Code Division Multiple Access EDGE Enhanced Data for Global Evolution GDP Gross domestic product GNI Gross national income GPRS General Packet Radio Service HIV Human immunodeficiency virus ICT Information and communication technology ICT4D Information and communication technology for development ISP Internet service provider KIST Kigali Institute of Science and Technology NGO Non-governmental organization NICI National Information & Communication Infrastructure NITC National Information Technology Commission OLPC One Laptop Per Child RCIP Regional Communications Infrastructure Program RITA Rwandan Information Technology Authority RURA Rwandan Utilities Regulatory Authority TRAC Plus Center for Treatment and Research on AIDS, Malaria, Tubercolosis

and other Epidemics WiMax Worldwide Interoperability for Microwave Access

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Abstract  Following the violent genocide and civil war in 1994, Rwanda has seen considerable progress on the path towards recovery and sustainable growth. Notable in this effort has been a strong and sustained emphasis on information and communication technology (ICT). Starting from dire conditions, the country has put ICT at the core of a reform agenda geared towards reconstruction and higher levels of development.

This report describes the ICT reform process that Rwanda has begun around 2000, and provides an overview of policies and programs that have shaped the country’s attempts at economic transformation. It recounts the NICI plans in the context of Vision 2020 and highlights four notable case studies of ICT projects, namely the Karisimbi Project, the eRwanda program, TRACnet, and One Laptop Per Child. The report finds that neither the strategies nor the specific programs have been without their troubles, and ICT has certainly not been a cure-all in post-conflict Rwanda. Yet, the manner in which technology has been employed—especially with high-level support—contains lessons for other countries seeking to emerge from difficult situations.

The study concludes that Rwanda’s remaining ICT challenges mainly concern structural and cultural change. For instance, awareness for the benefits of ICT is still not widespread and a labor force highly skilled in ICT is still more an aspiration than a reality. Increasing Internet access and the number of devices used by the population has not delivered the hoped-for results. Finally, a fledgling private sector has not yet grown enough to make the ICT sector broadly independent of government and donor funding.

As other countries seek to use ICT to upgrade their competitiveness, Rwanda provides a rich case study, illustrating both what is possible in the tumult of post-conflict situations and the difficulty of coordinating and enabling widespread economic and social transformation.

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Introduction

Few countries faced the challenges that Rwanda endured following the violent genocide and civil war in 1994. The widespread humanitarian crisis shook the country and region, but the intervening years have seen considerable progress on the path towards recovery and sustainable growth. A series of reforms have been implemented that are beginning to bear fruit: Rwanda has approached average levels for low-income countries in key indicators like gross national income (GNI) per capita and life expectancy at birth (World Bank 2012a). The progress made in the education sector has been particularly commendable, with primary school enrollment rates far above the Sub-Saharan Africa average (World Bank 2012a) and upcoming reforms in the secondary education sector (UNDP 2012). Also of note, in 2010, Rwanda jumped from 143 to 67 in the annual World Bank “Doing Business” ranking, the biggest leap noted in the index (World Bank 2012c). Annual gross domestic product (GDP) growth has been around 7 percent in recent years, while poverty dropped about 12 percent between 2006 (56.7 percent) and 2011 (44.9 percent) (National Institute of Statistics of Rwanda 2012).

Notable in this effort has been a strong and sustained emphasis on the role that information and communication technology (ICT) can play in improving the lives of Rwandans. Significant challenges remain—both within the sector and more broadly—but for policymakers and stakeholders seeking to understand the role of ICT in post-conflict situations, Rwanda represents an interesting and enlightening case study.

This report provides an overview of the experience. It begins with a discussion of Vision 2020, the national government’s foundational strategy document, which has set ambitious goals of reaching middle-income status by 2020 through a transformation of Rwanda’s competitive capacity. Closely connected to this are four successive National Information and Communication Infrastructure plans that, as the report will discuss, reformed the policy space through privatization and liberalization, developed the communications infrastructure and supported promising initiatives in a variety of sectors. Following this discussion, the report turns to four case studies of ICT projects that shaped Rwanda. The Karisimbi Project is a storied example of infrastructure development that seeks to improve connectivity for the country. The World Bank-funded eRwanda program provided expertise and implementation of programs aimed at specific connectivity and productivity enhancements. TRACnet is an example of using both high and low-tech measures to improve healthcare, and One Laptop Per Child is a novel, if not perfect, attempt to improve education through low-cost computers.

Neither the strategies nor the specific programs have been without their troubles, and ICT has certainly not been a cure-all in post-conflict Rwanda, but the manner in which it has been implemented—especially with high-level support—contains lessons for other countries seeking to emerge from difficult situations.

 

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Rwanda’s ICT Reforms

Vis ion 2020: Transformation through Science, Innovation, and Technology

As basic humanitarian aid wound down at the end of the 1990s, Rwanda faced the daunting task of rebuilding its economy and society on sustainable pillars. Faced with difficulties similar to those of other small, landlocked nations lacking significant natural resources, political leaders and citizens pushed to adopt a bold vision for the country’s development. It was clear that relying on the agricultural sector to generate the needed economic and employment growth would be futile.

Instead, the country adopted a reform framework dubbed Vision 2020. In general terms, it aimed to set Rwanda on a path “from a subsistence agriculture economy to a knowledge-based society, with high levels of savings and private investment” (MINECOFIN 2000). While Vision 2020 has evolved, the core goal has remained the same: to transform Rwanda into a middle-income country while embracing inclusive growth, and political stability, as well as unity and non-discrimination.

Current developments show that these ambitious benchmarks could actually be exceeded: at the most recent government leadership retreat in 2012, targets for the year 2020 were upgraded to increase GDP to US$1,240 per capita (up from US$900) and to reduce the percentage of people living in poverty to 20 percent of the country (down from 30 percent) (Karinganire 2012).

Naturally, high ambitions like these cannot be achieved by a single-pronged approach. Vision 2020 builds on several pillars (see box 1), assigning government the mission to create a favorable environment for the private sector and to invest in human resources, promote high-value businesses, and build infrastructure. ICTs play a multi-layered and cross-cutting role in this endeavor: They are used to set up a basic communication infrastructure, to support education, and to improve operations of businesses across various sectors.

Box 1: P i l lars of V is ion 2020 Out l ined by the Rwandan Government

• Reconstruction of the nation and its social capital anchored on good governance, underpinned by a capable state

• Transformation of agriculture into a productive, high value, market oriented sector, with forward linkages to other sectors

• Development of an efficient private sector spearheaded by competitiveness and entrepreneurship

• Comprehensive human resources development, encompassing education, health, and ICT skills aimed at public sector, private sector and civil society. To be integrated with demographic, health and gender issues

• Infrastructural development, entailing improved transport links, energy and water supplies and ICT networks

• Promotion of regional economic integration and cooperation

Source: MINECOFIN (2000).

 

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The National Information & Communicat ion Infrastructure Plans

In addition to Vision 2020, key strategies for Rwanda’s ICT sector were outlined in the National Information and Communication Infrastructure (NICI) plans. These four plans—each spanning five of the twenty years of Vision 2020—have guided the government’s efforts in reforming and upgrading the sector.

NICI-2005 NICI-2005 (from 2001 to 2005) primarily focused on building institutional and policy structures for future ICT growth. During this period, the government undertook a process of privatization and market liberalization, resulting in the establishment of two mobile network operators—Rwandatel and MTN-owned Rwandacell—and three Internet service providers. Management of the ICT sector was delegated to the Rwandan Utilities Regulatory Authority (RURA) and the Rwandan Information Technology Authority (RITA). In addition, the National Information Technology Commission (NITC) was set up to serve as an advisory group and think tank. Finally, a universal service fund was established to promote access among rural and poor populations, with resources allocated from a collection that is not to exceed two percent of cumulative turnover of mobile network operators. Specific infrastructure investments—such as a 150 kilometer fiber-optic network concentrated in Kigali—were also made. Finally, in efforts to boost ICT skills, a national training center was created at the Kigali Institute of Science & Technology, and ICT training was offered at the National University of Rwanda.

Over all, the ICT framework was deemed to be well-crafted, and Rwanda was named the country with the best ICT Policy Framework in Africa for 2006. Later on, however, the government conceded several pitfalls in the implementation of NICI-2005, saying it suffered from both lack of infrastructure and lack of human resources. In general, both the population and government officials showed low ICT awareness and readiness (World Bank 2011). Indeed, ICT indicators showed little progress: in 2005, fixed-line penetration was at 0.3 percent of the population and mobile penetration at 2.5 percent. Only 0.6 percent of the population used the Internet.

NICI-2010 The second major policy for ICT in Rwanda, NICI-2010, was active for about another five years1. With the ultimate goals of wealth creation, poverty reduction and employment generation, NICI-2010 placed emphasis on programs in ten thematic areas (see Box 2). With a budget of US$500 million, it also sought to enable an upgrade Rwanda’s ICT infrastructure, including a national ID smartcard program, a national data center, and greater access to international bandwidth. In Kigali, the municipal government partnered with RURA, RDB and the Ministry of Infrastructure to begin piloting wireless broadband. Improved access to information was supported through the World Bank-financed eRwanda program (discussed further below). In 2009, a third mobile operator, Millicom/Tigo, joined the market, leading to lower tariffs and a hike in subscriber numbers (Budde.com 2012).

                                                                                                               1 See Rwanda Information Technology Authority (2006) for the full plan.

Box 2: Themat ic Areas of NICI-2010

 

• Infrastructure

• Education

• Human capacity

• Economic development

• Social development

• Rural and community access

• Private sector development

• Policy & regulation

• National security, law & order

• e-government

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In its evaluation of NICI-2010, the Rwandan government highlights several shortcomings related to implementation governance, such as leadership, project management, and coordination issues, as well as the lack of systematic monitoring and evaluation (Dzidonu 2005). Nonetheless, at the end of NICI-2010, many ICT indicators pointed in a positive direction. Fueled by rising investments in the mid-2000s (see table 1), by the end of NICI-2010, mobile telephony and Internet uptake had grown substantially. In 2011, Rwanda had eleven Internet Service Providers (ISPs), 700,000 Internet users, and nearly six million mobile phone subscriptions (Musoni 2012). In that year, according to government data, ICT sector revenues amounted to about RF100 billion.

 Table 1: Investment, revenue, and job creation at MTN Rwandacell and Rwandatell (2003-2006)

2003 2004 2005 2006

Total infrastructure investmenta 3,723,085,000 2,306,143,000 5,665,153,000 5,026,461,000

Annual revenuea 15,663,469,000 20,056,201,000 18,812,518,000 33,144,313,000

Direct job creation 428 481 545 352

Indirect job creation — — — 5,820

Source: Nsengiyumva & Habumuremyi (2009). a. In Rwandan francs, based on MTN Rwandacell and Rwandatel data.

NICI-2015 The third NICI plan, which will run until 2015, was adopted by the Rwandan government in spring 20112. As the first and second plans provided for the policy and infrastructure environment, NICI-2015 focuses more directly on ICT service delivery and targets local communities (ORINFOR 2011). The five themes that the plan focuses on are (1) skills development; (2) community development; (3) private sector development of the ICT sector; (4) cyber security and (5) e-government. These themes are no longer described as pillars or thematic areas, but as clusters. The change is due to lessons learned from NICI-2005 and NICI-2010 plan implementation was not flexible enough and work groups organized by pillar did not interact or cooperate effectively. As a result, NICI-2015 will be implemented by four cluster groups of experts, working within two-year implementation frameworks and discussing synergies between the five themes on a regular basis (Barera 2010).

                                                                                                               2 For the full plan, see Rwanda Information Technology Authority (2011).

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All four clusters were organized around specific projects. Details can be found in the full NICI-2015 document (Rwanda Information Technology Authority 2011). Notably, strong emphasis is given to capacity development of both local and rural communities and individual users, for instance through open and distance learning (Kanyesigye 2011b). This is expected to enhance private-sector development, as surveys among firm representatives show that lack of qualified staff for ICT jobs has held back growth. In addition, the private sector will be supported through the rollout of electronic payment systems, as well as improved access to finance and entrepreneurial and business training for ICT providers (Musoni 2012).

NICI-2020 The fourth plan, NICI-2020, will consolidate the NICI process towards achieving the overall goal of the NICI series and Vision 2020: turning Rwanda into a middle-income country and “an information-rich knowledge-based society and economy by modernizing its key sectors using information and communication technologies” (Rwanda Information Technology Authority 2006, p. 18). It remains to be seen whether Rwanda can indeed achieve these far-reaching ambitions (see box 3).

   

Box 3: Excerpt of ICT-re lated Goals Vis ion 2020

“[T]he government committed itself to developing and implementing ICT4D policies and action plans within the context of the Vision for Rwanda to transform Rwanda’s predominantly agricultural economy by the year 2020 into:

• A high-income economy dominated by trading in ICT products and services

• An economy characterized by a large commercial services sector with a reasonably large and vibrant ICT services sub-sector and industry.

• An economy characterized by a technology-based and knowledge-driven industrial sector.

• An economy with a globally competitive industrial and services sector which is, to a large extent, driven by cutting-edge R&D activities.

• An economy based on a rich pool of highly skilled human resources in critical skill areas relevant for developing and maintaining a competitive edge on the global market.”

Source: Rwanda Information Technology Authority (2006, p. 18).

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Rwandan ICT Project Case Studies  

Rwanda has become a vibrant playground for many government-led or coordinated ICT for Development (ICT4D) projects. In line with the roadmap laid out by the NICI plans, efforts first focused on creating an ICT-friendly environment. This translates into more than building physical ICT infrastructure such as fiber cables and transmission towers. From the beginning, the Rwandan government emphasized the role of investment in human resources and education. As a result, many initiatives addressed infrastructure, content and applications, and/or users’ skills at the same time. Four such projects that had substantial development and reconstruction impact will be highlighted in more detail3.

The Karis imbi Project

Given the explicit role of inclusiveness in Vision 2020, the government had an obligation to reach out to rural as well as urban populations to provide access to communications and media. As the highest physical location in the country, Mount Karisimbi became the setting for a key government-funded ICT initiative. At the core of the project was the construction of a 50-meter telecommunication mast on the summit of the mountain, connected to the nation’s optical fiber backbone (ITU 2007).

The infrastructure project had multiple goals:

• To provide cheap and effective infrastructure for communication services to beneficiaries in the country and in cities

• To enhance cell phone coverage and access to TV and radio

• To establish an infrastructure hub for mobile Internet and mobile broadband access, including WiMax, CDMA, GPRS/EDGE, etc., with an open access policy for network providers

• To support several electronic applications, such as Virtual Tourism, e-learning, e-health, e-commerce, e-government, tracking of supply chains, etc.

• To bolster broadcasting capacity, including digital broadcasting

• To introduce an air safety, surveillance, and traffic management system

• To collect data for meteorological information and disaster management

                                                                                                               3 Indicative listings of projects can be found at http://www.rwandagateway.org/spip.php?article115 or in an infoDev report on ICT and education in Rwanda (Farrell 2007).

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As one specific target, the cost of communication in Rwanda was supposed to be lowered by an average of 50 percent (Habumuremyi 2008). The mast was also expected to boost web and mobile application development in the region, given the decrease in cost and increase in reach it provides for developers (Kanyesigye 2011a).

Even though it was to be a pillar of the nation’s infrastructure investments, the project faced significant obstacles and delays (see box 4). Despite these, one notable outcome of the project was the choice of Rwanda as host of a regional air-traffic surveillance center, backed with a US$8.6 million grant to the Karisimbi project by the African Development Bank (Kabera 2011). Otherwise, although the tower was completed in late 2011, the mid- and long-term impact of the project has yet to be fully assessed.

eRwanda

A significant component of NICI-2010 was eRwanda, a US$10 million program beginning in 2005 and funded by the World Bank at the request of the government of Rwanda. The Bank designed the project to also work towards the four goals of its Country Assistance Strategy at the time: (1) revitalizing the rural economy; (2) creating jobs through an enhanced private sector; (3) improving human and social development; and (4) upgrading the governance and effectiveness of the public sector. Tight integration with both the government’s and the Bank’s objectives and with other programs enabled the small program to have a big impact: the World Bank’s implementation completion report states that eRwanda “created a solid foundation for a knowledge-based economy, and [was] well synergized with other [NICI-2010] projects,” bolstering all ten pillars of the NICI-2010 plan (World Bank 2011).

In detail, eRwanda aimed to (a) develop e-government applications and interconnect public offices; (b) train public servants and private citizens in the use of ICT so they could actually benefit from the e-government applications developed; and finally (c) set up telecenters and ICT buses to enhance ICT services (and awareness for ICT) for rural populations. Notably, these three tracks were designed to complement each other, in that they expanded public service delivery while also spurring demand and usage capacity for e-government services as well as other ICT applications.

Box 4: The Long and Winding Road to Connect Mount Kar is imbi

1985 – 1988: Rwandan government plans construction of an FM antenna on Mount Karisimbi.

1994: The power infrastructure is destroyed in the events around the conflict.

1994 - 2001: The first initiatives are created to restore energy supply to the summit.

2003: A first design report for the new Karisimbi project, in line with Vision 2020, is completed.

2004: The project is confirmed and assigned high priority by the government.

2005: The government contracts with TERRACOM for electrification of the Karisimbi project.

2006: Electrification of the Karisimbi summit is completed.

2007: Reports surface of quarrels among construction teams, slowing down electrification of the mast.

2011: Construction of a regional air-traffic surveillance center with an $8.6 million grant from the African Development Bank is awarded to the Karisimbi project.

2011: Delay in completion of the project is explained to parliament with coordination issues between the many stakeholders of the project.

2011: In November, the construction of the infrastructure is declared completed.

Sources: Akanga & Agaba (2007), Buhura (2011), ITU (2007), Kabera (2011).

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One successful eRwanda project was the ICT application eSoko, created to reach rural populations, particularly farmers. The application delivers agricultural market prices to farmers’ phones via SMS and interactive voice response, providing them with more accurate and timely information. In addition, it gives the Ministry of Agriculture a way to interact with farmers and traders as well as to monitor market activities. In 2011, eSoko sent and received 27,293 text messages, covering 77 commodity prices in 50 markets across Rwanda (World Bank 2011). It also won the Technology-in-Government in Africa (TIGA) awards in June of the same year (TIGA Awards 2011).

Another innovative and successful eRwanda initiative was an ICT Bus program that created telecenters on wheels. Four buses were sent to rural communities, where they set up shop for 2 to 3 months, delivering short seminars and training to locals. Each bus was equipped with 20 Internet-connected laptops, as well as projectors, TV monitors, and other equipment. From late 2009 to 2011, 1,044 people visited ICT buses in 33 of 49 sectors in four remote districts of Rwanda (World Bank 2011).

TRACnet

AIDS/HIV can be managed with anti-retroviral therapy (ART), but in order for it to be effective, it is critical that patients regularly take their medication and that their progress be closely monitored. TRACnet has become a success story on how to use an integrated ICT system to facilitate ART, with positive effects for accountability and tracking on a national scale.

In simple terms, the system connects local health clinics overseeing ART with national institutions, including the government’s Center for Treatment and Research on AIDS, Malaria, Tubercolosis and other Epidemics (TRAC Plus), the National Laboratory, and CAMERWA, a pharmaceutical company administering ART drug stocks across the country. After a short 15-to-30 minute training session, local health care workers can access the system through their computers or mobile phones and get test results and drug stocks, as well as report patient data and needs. TRACnet also helps the national institutions monitor epidemics, manage drug supply chains, and improve accountability and incentivization of local institutions.

Strong adoption rates have driven TRACnet’s success:

• By 2011, nearly all of the country’s health centers had adopted TRACnet (Terrill 2011). From early on, 100 percent of the health centers providing ART were participating (UN 2008, Voxiva 2006, 2010).

• In 2011, about 1,200 health care workers using the system reached more than 100,000 registered patients receiving HIV/AIDS care or treatment (Nyemazi 2011).

• Coverage for Rwandan patients eligible for ART rose to 79 percent in 2010 from 13 percent in 2005 (Nsanzimana, Ruton, Lowrance et al. 2012).

In the next step, the implementing company, Voxiva, is set to expand TRACnet to monitor 19 additional infectious medical conditions, including malaria, cholera, measles, and swine flu (Terrill 2011). In sum, TRACnet can be seen as a remarkable success model for a government-driven multi-stakeholder approach: Through the system, several agencies of the health ministry collaborate with local clinics, donors, universities, and private companies.

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OLPC

The global impact of the One Laptop Per Child (OLPC) project, especially compared to its lofty original goals, is contested (Kraemer, Dedrick, & Sharma 2009). However, the Rwandan government and President Kagame have frequently renewed their support for the initiative. Trials started in 2007 (Gahigi 2008), followed by distribution of 80,000 XO computers and deployment of 60,000 of them as of this writing (OLPC Wiki 2012). An additional shipment of 100,000 devices was scheduled for summer 2012, to cover schools in all of the country’s 416 administrative sectors (OLPC Rwanda Blog 2012). In the process, about 1,500 teachers have been trained to work with students using the laptop, with another 1,200 to follow (OLPC Rwanda Blog 2012).

Despite the positive results of early, small-scale evaluations done by the government (Nugroho & Lonsdale 2010), the project continues to face problems. For one, at a price of $181 the laptops may be cheap by Western standards, but the cost is about half the yearly average income of Rwandans—a steep price to pay even for a committed government (Wadhams 2010). In addition, many schools lack electricity and laptops usually cannot be taken to students’ homes as the risk that the computers will be lost, stolen, or sold is too high (Wadhams 2010).

Comprehensive evaluation of the OLPC project in Rwanda has yet to be completed. For now, the government is committed to providing students with hands-on technology experience during primary education. The basic assertion is that early exposure to technology leads to quick self-learning, especially when complemented by training, and that the laptops will help the students build their ICT capacities and be more productive. Children receiving an XO are certainly enthusiastic, and interestingly, some results show that they in fact learn to use the laptops more quickly than their teachers (Nugroho & Lonsdale 2010).

             

         

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Distinctive Factors of Rwanda’s ICT Experience

Leadership Commitment and Optimism

Many observers have rightly noted the importance of committed leadership to the advances in Rwanda’s ICT sector. Since his inauguration in 2000, President Paul Kagame has continuously stressed his commitment to Vision 2020 and explicitly highlighted the role of ICT and skills development. Rwanda’s political leadership was repeatedly recognized for its achievement in pushing favorable ICT policies, with Kagame receiving the “Best Head of State in Africa in Support of ICT Award” for 2005 and 2006. Also, institutionally Rwanda made great strides to put ICT at the forefront of the nation’s development with Vision 2020. The Ministry of Science, Technology and Scientific Research, together with RURA, RITA and NITC, received substantial political leeway and resources to encourage reforms.

What differentiates Rwanda’s reconstruction effort from others is that ICTs have always been considered key tools for development. The early insistence on a clear ICT strategy signaled a commitment to sector development. ICTs were not seen as an incidental set of technologies, secondary to traditional economic sectors with regard to employment opportunities, but as a key, direct driver of economic growth.

Engagement of the Internat ional Community and Donors

The second factor that stimulated ICT development in Rwanda was a massive inflow of funds from the international community and donors, which provided the financial backbone of project implementations and reforms. Many of Rwanda’s ICT initiatives were large-scale efforts, such as improving the nation-wide fiber backbone or tackling fundamental skills deficits through resource-intensive training measures. This was only possible through large commitments by donor countries (mainly the United States of America and the United Kingdom) and international organizations like the World Bank. For instance, the Bank’s RCIP program contributed US$24 million to Rwanda, supporting e-government and telecommunication infrastructure while integrating the nation’s backbone with regional infrastructure and Eastern African submarine optical fiber cables (World Bank 2012b). Rwanda’s aid dependency has declined significantly over past few years (Ndaka 2012), but it still remains high in absolute terms: In 2011, about 40 percent of the nation’s budget (or 11 percent of GDP) was financed by grants (World Bank 2012b). This dependence on aid is becoming a risk in view of the European debt crisis; several infrastructure projects are already facing unexpected funding shortages (Namata 2012).

Ski l ls as the Only Way Out

A third distinctive factor of Rwanda’s ICT-led reconstruction effort is a strong emphasis on training and skills development. As noted in Vision 2020, modernizing agriculture would certainly help to materialize short to mid-term economic growth, but it wouldn’t be enough to do away with the structural challenges that arise in the absence of strong institutions and of an educated workforce. In simple terms, for the country to make a leap out of poverty, policymakers saw few alternatives other than developing the country’s human resources.

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The Kigali Institute of Science, Technology and Management (KIST) has successfully contributed to this approach4.4 The government and donor-funded KIST is directly integrated in the reconstruction efforts of Vision 2020, focusing on technology rather than offering a general course portfolio. Its mission is threefold: develop highly skilled manpower, create and disseminate high-quality research, and deliver direct technical assistance and ICT training to the people of Rwanda (Juma 2006). By 2002, KIST was already able to cover 35 percent of its budget autonomously through entrepreneurial activities such as technology transfer projects, product development, and the KIST ICT Service Centre (Butare 2004, Farrell 2007). Between 2001 and 2011, KIST has had about 2,700 students a year on average (KIST 2011). In 2012, 750 of its students graduated (Kwizera 2011). Recently, an ICT e-learning facility was added (Kaitesi 2012).

However, efforts to tackle the underlying reasons for a shortage of ICT skills have seen rather sobering results compared to ambitious goals declared in Vision 2020 and the NICI plans. Diffusion of ICTs in education, fueled through the large investments of donors and NGOs such as OLPC, has risen dramatically throughout the mid-2000s (Farrell 2007). Yet the development of ICT skills in a broad share of the population still lags behind. For instance, researchers found that the provision of devices and resources was insufficient to reach marginalized groups like girls and rural students (Rubagiza, Were, & Sutherland 2011, Were, Rubagiza, & Sutherland 2009). Limited awareness of the potential of ICTs was identified as a key hindrance to greater adoption rates in rural communities (Farrell 2007). Similarly, providing distance learning for teachers by central institutions has turned out to be more challenging to implement than expected (Mukamusoni 2006).

It is commendable that the Rwandan government understood that mere access to ICT (achieved by expanding the infrastructure) does not mean that ICT usage is effective and productive. Policymakers realized that they would also have to reform an education system that didn’t prepare students for the ICT labor market, as well as invest in specific ICT training initiatives for government workers or marginalized communities.

Emphasis on Private Sector Development

The Rwandan government has certainly played a very active role in the country’s transformation, including large government and donor-funded projects, directly creating demand. However, a major goal in doing so was to unleash private-sector transformation. As Vision 2020 affirms, “The Government of Rwanda will not be involved in providing services and products that can be delivered more efficiently by the private sector, [...] [t]he State will only act as a catalyst” (MINECOFIN 2000, p. 14).

Kagame’s administration has achieved its goal of developing a policy environment that is favorable for the private sector. Yet private sector investment remains low (10.9 percent of GDP in 2010, compared to 14.4 percent in the Sub-Saharan region overall) (World Bank 2012b). Mostly, this is blamed on the lack of a skilled labor force. Following this argument, the success of Rwanda’s private sector development agenda is dependent on achievements in education and training.

Propping up the private sector until dynamic growth is possible is as much a long-term endeavor as transforming people’s capacity. The Rwandan private sector mostly consists of an informal economy and suffers from a lack of basic infrastructure. ICT entrepreneurs still find developing and growing new businesses to be difficult. The Rwandan government’s expansionary policy and political reform thus far have helped the private sector take its first steps, but it will be several years until the sector is thriving and contributing substantially to Rwanda’s economic output. Kagame has acknowledged that the private sector is still small, and has urged donors to work together with private companies and entrepreneurs to push development (The New Times 2012).

                                                                                                               4 In 2011, KIST published a comprehensive report on past performance and future strategy – see KIST (2011).

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Rwanda must continue to walk the fine line between handing out government money and services in ICT for quick development gains and letting a weak private sector do its job. For instance, KIST’s ICT Center effectively works as an Internet service provider (ISP), meaning that a partially government-subsidized entity provides valuable services to customers—but also competes with other ISPs. Privatization and liberalization of the mobile network market also has had ups and downs: MTN’s monopoly was only ended in 2006, and it took another three years until a third operator entered the market5. It seems that now is the time for the Rwandan administration to shift gears in private-sector development. This means fostering public-private partnerships to enhance entrepreneurship and private sector growth, but also looking to scale down and phase out public funding where possible.

                                                                                                               5 Later, Rwandatel’s mobile license was cancelled in 2011 and the company’s Libyan-owned assets were frozen, before Bharti Airtel of India entered the market as a new third provider (Budde.com 2012).

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Conclusion    Development does not occur quickly. However, since the 1994 genocide and civil war, Rwanda has made considerable progress. A strong Rwandan government has pursued a bold agenda for prosperity, with a clear emphasis on ICT as a key driver. Putting ICT at the core of a broad political endeavor distinguishes Rwanda from many other countries. There is hardly a stronger example of policymakers’ determination to turn a country into a regional and worldwide “ICT hub” than the Rwandan case (Kagame Paul Fan Club 2010).

Rwanda’s ICT effort is now showing results. Mobile subscriptions have skyrocketed, 3G networks have begun to be deployed, and consumer prices are set to fall further with improving infrastructure and bandwidth. Large-scale software applications have been deployed with significant development impact, for instance in e-government and m-health.

As might be expected, Rwanda’s remaining ICT challenges mainly concern structural and cultural change. Many Rwandans are still unaware of the benefits of ICT. The country’s human resources have not yet been improved enough to generate a highly skilled labor force, particularly in ICT. Increasing Internet access and the number of devices used by the population has not delivered the hoped-for results. Finally, a fledgling private sector has not yet grown enough to make the ICT sector broadly independent of government and donor funding. As other countries seek to use ICT to upgrade their competitiveness, Rwanda provides a rich case study, illustrating both what is possible in the tumult of post-conflict situations and the difficulty of coordinating and enabling widespread economic and social transformation.

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©2013 infoDev / The World Bank | 1818 H Street, NW | Washington DC, 20433 Email: [email protected] | Tel + 1 202 458 8831 | Twitter: @infoDevwww.infodev.org

Following the violent genocide and civil war in 1994, Rwanda has seen considerable progress on the path towards recovery and sustainable growth. Notable in this effort has been a strong and sustained emphasis on information and communication technology (ICT). Starting from dire conditions, the country has put ICT at the core of a reform agenda geared towards reconstruction and higher levels of development.

This report describes the ICT reform process that Rwanda has begun around 2000, and provides an overview of policies and programs that have shaped the country’s attempts at economic transformation. It recounts the NICI plans in the context of Vision 2020 and highlights four notable case studies of ICT projects, namely the Karisimbi Project, the eRwanda program, TRACnet, and One Laptop Per Child. The report finds that neither the strategies nor the specific programs have been without their troubles, and ICT has certainly not been a cure-all in post-conflict Rwanda. Yet, the manner in which technology has been employed—especially with high-level support—contains lessons for other countries seeking to emerge from difficult situations.

The study concludes that Rwanda’s remaining ICT challenges mainly concern structural and cultural change. For instance, awareness for the benefits of ICT is still not widespread and a labor force highly skilled in ICT is still more an aspiration than a reality. Increasing Internet access and the number of devices used by the population has not delivered the hoped-for results. Finally, a fledgling private sector has not yet grown enough to make the ICT sector broadly independent of government and donor funding.

As other countries seek to use ICT to upgrade their competitiveness, Rwanda provides a rich case study, illustrating both what is possible in the tumult of post-conflict situations and the difficulty of coordinating and enabling widespread economic and social transformation.