What‟s agricultural reform got to do with a Ministry of Agriculture?
Lunchtime Meeting Series
ODI, 25 November 2005
Peter Bazeley
Context• Failure!
– Dismal – have to question the paradigm
– Insufficient (scope, scale) response to• technology
• institutions
• policy
• Concurrent processes of:• Aid effectiveness and
• Policy & institutional reform
SIPs, SWAps & PBAs as principal instruments (*)
• Agriculture - esp. pro-poor agriculture - not really making it in era of PRSPs, budgetary support, etc.,– Despite rhetoric, money
• Why not?
Substance and Process
• Substance– Not today
– Few big things since structural adjustment & liberalisation
– But (Dorward, Kydd & Poulton):• “Development Coordination”: technical, market &
institutional, and policy fixes
• More politically nuanced
• Interlocking local, national & international factors
• Link substance to process
Process
• Largely still (still!) talking SWAps (in practice)
• „Sector‟ deemed to = a Ministry– Boundaries
– Assumptions
– Capacity
• Approaches and instruments effectively = ends in themselves – Targets
– Time horizon (esp. donors)
• Much ado about financing
Agricultural SWAps• Haven‟t worked
– ct (?) Health, Education,
• Predictable reasons
• In particular, failure to capture:
– Non-agricultural determinants of agricultural productivity & growth
– Private sector
• Impatience: re-starts, re-orientations
• Process over substance
• Lowest common denominator
– Dev‟t Partners; Political & Admin Capacity; Pace
Determinants of agricultural livelihoods, productivity, growth
• Frequently fall outside mandate of core agriculture sector ministries
Malawi
1. Security
2. Markets / terms of trade
3. Capital
4. Infrastructure
5. Production technology
6. Land shortage / degradation
7. Weak institutions / policies
8. Irrigation & drainage
9. Business culture
Mozambique
1. Finance2. Roads3. Markets4. Technology5. Farmer
organisation6. Enabling
business environment
Uganda
1. Technology & information
2. Financial services
3. Markets4. Rural agric.
education5. Infrastructure6. Sustainable
natural resource utilisation
etc.
All these things ultimately determined by policies on (e.g.) …
• Land tenure & administration
• Subsidies, incentives & taxation
• Input and market interventions
• Public investment & services
• Energy and transport costs
• Exchange & interest rates
• Security & justice & contract enforcement
• Monopolies, monopsonies & corruption
• And they somehow need to be configured, balanced and sequenced across sectors for the purposes of achieving a particular outcome (agricultural productivity & growth) in one „sector‟
• Various attempts …
UgandaPlan for the Modernisation of Agriculture
• Reconfiguring governance of rural sector
(Originally, anyway)
• Led by Ministry of Finance
• Superimposed with decentralisation
Districts
Infra
struct
Rural
$$
H2O
Loc
GovLand
Agric
Law
FPED
PMA
Sectoral
Interpretations
$ € Sh
Sector
plans &
progs
- NAAS
- NARO
- etc.
Agricultural
Livelihood
RESULTS
$$$
$$$
Non sectoral policy
and investment forum
Production
Committees
Learning for
policy formulation
‘Rule Book’
Zambia“Enabling Environment for Business with a
Particular Emphasis on Agriculture”
• Capability of the private sector and civil society to demand better policy
• New „owners‟ of knowledge, information and process
• Management Unit located independently of major stakeholders (govt., private sector, civil society)
• Public-private trusts
KenyaStrategy for Revitalizing Agriculture
• Politically-endorsed cross-sectoral strategy
• 3 - 5 Ministries
– But still limited coverage
• Agriculture Sector Coordination Unit
– Questions – What, Where, Who, How
– Still no „hard‟ cross-sectoral coordination mechanism
• Work in Progress
Kenya GJLOSGovernance, Justice, Law & Order Sector
• Fresh start at cross-sectoral constraints and reforms
• Emphasis on novel cross-sectoral coordination mechanism, linked to priority-setting & allocation of resources via MTEF
• Political dimensions recognised & internalised
• New, parallel, non-statutory, institutions
GJLOS – MOVING FROM AN INSTITUTIONAL TO SECTOR-WIDE PERSPECTIVE
Adapted/simplified from: GJLOS MDA Strategic Plans, Administrative Data and Internal Reports
JUDICIARY
350 Professionals, 110 Courts,
2,700 Support Staff
293,000 cases
filed, 268,000 determined
TOTAL PENDING – 270,000
(Civil cases – 100,000)
PRISONS
Capacity 16,000, Occupancy 50,000,
- 48% remand, 39% petty offences,
13% > 3 years, Officer: Prisoner ratio
= 1:5, 5 out of 92 prisons for women
KENYA POLICE
Police: Population ratio = 1:10,
Reported crime rate: Population = 1:400;
10% of cases dismissed, 36% convicted,
47% awaiting trial
PUBLIC PROSECUTORS
53 counsel, 3,000 cases per annum
CIVIL LITIGATORS
37 professionals, 2,500-3,000 cases
per annum, 150 disposed
COMPLAINTS COMMISSION
12 professionals
13,000 pending complaints
2,000 complaints lodged, 1,000 disposed,
per annum.
PUBLIC TRUSTEE
40 staff, 12 offices, 47,000 accounts,
KShs 40 billion paid pa
LEGISLATIVE DRAFTING
12 professionals (3 trained),
Current workload – 50 laws
TREATIES & AGREEMENTS
17 professionals - TREATIES, CONTRACTS
REGISTRAR-GENERAL
39 lawyers
PROBATION AND AFTER-CARE
250 professionals, 90 stations,
Typically, 12,000 probation orders
or 40 orders supervised per staff
COMMUNITY SERVICE ORDERS
3 full-time staff, use Probation staff
55,769 order in 2004 or ratio
of 1 staff per 223 CSOs
PROVINCIAL ADMINISTRATION
10,000 field staff, 11,000
units
ADMINISTRATION POLICE
18,000 officers, 11,000
units
CHILDREN SERVICES
670 staff, 1 Children’s Court
NATIONAL YOUTH SERVICE
2,200 staff; 6,800 servicepersons
1,500 annual throughput
MoJCA (COORDINATING MINISTRY)
GJLOS GOVERNANCE FRAMEWORK
Inter-Agency Steering Committee
(Cabinet-level Committee)
Technical Coordination Committee
Executive Stakeholder Forum
TCC Management Sub-Committee
THEMATIC GROUPSGJLOS MDAs
(Ministries, Departments
& Agencies)
GJLOS-DG
(Donor Group)
Programme
Coordination
Office
Financial Management
Agency (BASKET
DONORS ONLY)
Civil
Society
Forum
Private
Sector
Forum
Adapted/simplified from: GJLOS Presentation
MTEF
• Not just a spreadsheet
• Cross-governmental statement of medium term priorities and actions
• Point where govt policy is translated into accountable action
• Meeting of top-down & bottom-up planning
– But critical elements are above sector ministries
• Fundamental to contemporary PFM & aid instruments
Strategic Budget Framework
Statement of government objectives & priorities
Analysis of cross-cutting issues
Macro fiscal framework
Analysis of inter sectoral resource allocation issues
Sector resource ceilings
Sector MTEF strategies
Programme resource allocation
Identification of new efficiency measures
Review of expenditure programmes
Resource implications of sector policies
Construction of MTEFs
Happens
above
sector
ministries
Happens
within
sector
ministries
Source: Adapted from ‘Training for Development’
MTEF (cont.)
• Isn‟t this above-line stuff what we‟re trying to achieve?– But we all work below the line
• Agriculture sector generally poorly represented in MTEFs– Incremental budgeting
• Inability to pitch high enough
• Assumptions about where authority lies– Delegation to sector ministries
Ponderings
• Ability to harness, balance and reconfigure resources and policies across governmentis what we‟re lacking
• Sectoral ministries don‟t have the necessary cross-sectoral clout
• Agriculture sector woefully bad at engaging with contemporary policy and financing instruments
Ponderings (2)
• Capacity to do anything beyond coping?
• Validity of covering transaction costs of change; of moving from State A to State B
– Non-statutory, parallel institutions
• Can we go overboard on „ownership‟ if political & top management commitment is already strong?
Ponderings (3)
• Vision & strategy has to outlive short political and donor cycles
– In absence of solid evidence
• Accept that agricultural outcomes will be negotiated outcomes, in highly politicised environment
– People and instruments for that
• Political & administrative impatience
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