Joint Supervision Mission Report

Transcription

1 Joint Supervision Mission Report October 10-28, 2004 MDRP Secretariat The Wolrd Bank Africa Region

2 Joint Supervision Mission Report October 10-28, 2004 TABLE OF CONTENTS Aide Mémoire...1 Annex I Angola Country Report...12 Annex II Burundi Country Report...21 Annex III Central African Republic Country Report...40 Annex IV Democratic Republic of Congo Country Report...46 Annex V Republic of Congo Country Report...58 Annex VI Rwanda Country Report...63 Annex VII Uganda Country Report...73 Annex VIII Statement of Mission Objectives...83 Annex IX Wrap-up Meeting Agenda...87 Annex X Wrap-up meeting participants...88

3 Joint Supervision Mission October 10-28, 2004 I. Introduction Aide Mémoire 1. Within the framework of the Multi-Country Demobilization and Reintegration Program (MDRP) for the greater Great Lakes Region, a joint supervision mission of MDRP partners visited Angola, Burundi, the Central African Republic (CAR), the Republic of the Congo, the Democratic Republic of Congo (DRC), Rwanda and Uganda between October 10-28, 2004, to assess progress in the realization of the objectives of the MDRP partnership. A wrap-up meeting held in Kigali from November 1-3, 2004, reviewed the individual country reports, synthesized key findings and made recommendations for future MDRP policy and activities. 2. Key recommendations and follow-up actions are described in the tables below. II. Regional Situation 3. Overall, the political situation in all MDRP countries has continued to improve, although it remains fragile. In Burundi and the DRC, the implementation of electoral preparations, army integration and disarmament, demobilization and reintegration (DDR) will be key to maintaining the momentum of the respective peace processes. Continuing instability and violence in the eastern DRC remains a significant cause for concern, as does the long standing refusal of the PALIPEHUTU FNL to join the peace process in Burundi. Uganda and the CAR will face important tests as elections approach in the next two years, while insecurity in parts of these countries continues to hamper progress. In the Republic of Congo, the overall situation appears to be improving, with the exception of parts of the Pool region. The political and security situation in Angola and Rwanda remains stable. 4. The mission welcomed the establishment of a regular mechanism for meetings of foreign ministers agreed by the Governments of the DRC, Rwanda and Uganda in October It also looked forward to the operationalization of the Joint Verification Mechanism (JVM) agreed between the DRC and Rwanda in Abuja in June III. Development and Implementation of National Programs 5. The development and implementation of national programs within the MDRP framework have advanced substantially in the past year. In Angola and Rwanda, the implementation of national programs is ongoing. The mission welcomed the strengthening of the reintegration assistance planning, coordination and monitoring capacity of the Institute for the Socio- Professional Reintegration of Ex-Combatants (IRSEM) of the Government of Angola and the Rwanda Demobilization and Reintegration Commission. The transitional governments of the Aide Mémoire 1

4 DRC and Burundi have established and staffed national institutions to develop and implement their respective national programs. In the latter case, the mission believes that there is room for improvement in the management of the Executive Secretariat of the National Commission for Demobilization, Reinsertion and Reintegration (ES/NCDRR). The national program in the CAR (implemented as a special project) has become effective in October The mission concluded that a more concrete dialogue between the MDRP and the Government of Uganda about a national program would be useful only if the current situation and Government s plans change noticeably. The mission encouraged the national institutions and the MDRP Secretariat to ensure the deployment of effective and timely technical assistance where required. IV. Special projects 6. The joint supervision mission examined progress to date of the 12 special projects in Angola, Burundi, CAR, DRC and Uganda. Approximately 50% of the current MDRP commitments to special projects has been disbursed to date (US$16.4 million). The Angola special project is approaching completion and the mission recommended an end-of-project evaluation to identify lessons learned. Readiness for implementation of the CAR special project is progressing satisfactorily, with the recruitment of key personnel and disbursement of the first tranche from the MDTF in October The grant agreement of the Uganda special project is approaching effectiveness with the recruitment of a financial management firm. The Amnesty Commission of the Government of Uganda has enhanced its capacity and preparations for the provision of resettlement assistance to ex-combatants of former rebel movements with the support of the MDRP Secretariat. 7. Implementation of two UNDP-implemented special projects in DRC is ongoing. The demobilization and reintegration of child ex-combatants is progressing in the DRC, with the MDRP financing five special projects with various NGOs for this target group. However, grant agreements with UNICEF in Burundi and the DRC, and the disbursement of associated resources, have been delayed due to extended grant negotiations between UNICEF and the World Bank. The Burundi grant agreement was finally signed in August 2004, and the first disbursement is anticipated shortly. 8. All implementing partners in DRC are in the process of completing Memoranda of Understanding (MoUs) with CONADER to ensure coordination, coherence with national program implementation and proper reporting lines. The mission encourages these partners and CONADER to finalize these MoUs as soon as possible. In addition, the mission urges the National Structure for Child Soldier Demobilization and the ES/NCDRR in Burundi to finalize a similar MoU, and encourages the MDRP Local Ad Hoc Committee to facilitate this process if required. 9. Some donors expressed frustration with perceived administrative bottlenecks within the World Bank and with some implementing partners, which have compromised the speed of disbursement and implementation of special projects. It was recommended that a lessons learned exercise on this particular modality of MDRP operations be undertaken. Aide Mémoire 2

5 V. Functioning of partnership 10. Generally, the partnership has continued to function well in MDRP countries, although there are significant variations within the region with regard to the presence of partners, participation and division of labor. In Burundi and the DRC, the MDRP partnership is working closely with the respective UN peacekeeping operations (ONUB and MONUC). Mission members stressed the importance of MONUC and ONUB s mandates for the overall coordination of support to DDR and security sector reform (SSR) activities. The JSM regretted that ONUB was not represented at its wrap-up session. The mission also expressed concern about the proposal of the Transitional Government of Burundi to double the planned reinsertion benefits under the national program with financing from national budgetary resources. The mission noted that this proposal had been made without consultation of MDRP partners. 11. Some partners emphasized the need to further strengthen the MDRP Secretariat in the region. At the same time, the MDRP Secretariat indicated that communication between and within partner organizations could be improved further. VI. Cross-cutting programmatic issues 12. Flexible use of Multi-Donor Trust Fund (MDTF) resources: Within the current legal and administrative framework governing the MDTF of the MDRP, expenditures for predisarmament activities are ineligible and are expected to be covered from complementary bilateral and national resources. Nevertheless, some MDRP donors felt that there was a rationale to provide such funding from the MDTF to avoid a rupture of DDR and the larger peace processes. However, it was not possible to establish unanimity among donors as to whether the proposed activities fall within Overseas Development Assistance (ODA) criteria established by the Development Assistance Committee (DAC) of the Organization for Economic Cooperation and Development (OECD). Donors agreed that discussion on these ODA criteria will continue in the context of the forthcoming meetings of the DAC. One possible way forward for funding pre-disarmament activities would be to use of a buffer or fiscal agent. However, this would require a waiver by the World Bank s Board of Directors. Furthermore, the MDRP Secretariat noted that the proposed financing of measures targeted only combatants to be demobilized, versus those who seek to be integrated into the military, could create serious targeting problems. 13. As MDTF funding could not be made available for pre-disarmament activities, the Government of the Netherlands announced that it would reduce its contribution to the MDRP MDTF by EURO 5 million. These resources would be redirected to support pre-disarmament and SSR activities. The MDRP Secretariat noted that effective consultation and meaningful joint planning for activities that involve both military integration and demobilization could lead to approaches that the MDTF could finance, as was recently demonstrated in the provision of assistance to the centres de orientation in the DRC. The MDRP Secretariat also mentioned that, in general, an improved dialogue between political and technical dimensions could lead to a better shared understanding of available options, thus avoiding disappointment when the chosen option falls outside existing funding windows. 14. Monitoring and evaluation, lessons learned and best practices: The mission believes that timely monitoring and evaluation at both national and regional levels is critical to the successful implementation of national programs and special projects, as well as for the regional success of Aide Mémoire 3

6 the MDRP. The mission welcomed the application of lessons learned in the re-design of national programs in the Republic of Congo and the CAR in particular. The mission encouraged the Rwanda Demobilization and Reintegration Commission and the MDRP Secretariat to integrate the lessons learned from its recent evaluation studies into its reintegration strategy and to document and share the lessons learned from the implementation experience of the Rwanda Program. This recommendation equally applies to proposed monitoring efforts under the Angola program. 15. The mission recommended that the MDRP Secretariat help national partners ensure that a similar standard of qualitative and quantitative monitoring and evaluation (e.g. baseline studies, tracer surveys) activities are put in place from the start of new national programs and special projects. Finally, the mission encouraged the MDRP Secretariat to strengthen the consistency and comparability of reporting across programs. 16. Reintegration assistance: Implementation of reintegration support in Angola and Rwanda is well under way. The missions observed that the design and start up of implementation of reintegration assistance have generally taken longer than desired. It is acknowledged that the national institutions that take on the implementation of demobilization and reintegration programs are inclined to devote much of their resources during the early phases of project preparation on the politically sensitive and logistically intensive upstream aspects of the continuum (e.g., negotiations, disarmament procedures, and logistical demobilization preparations). In addition, partners recognized that the establishment of decentralized reintegration assistance capacity requires time. Several partners mentioned the importance of establishing early links with the PRSP process and the need to bear in mind the downstream transition to broader reintegration efforts targeted at other war-affected groups and the population at large. 17. The MDRP Secretariat and its national partners have taken steps to address the reintegration support earlier in the process, such as through the stakeholders conference held by CONADER in the DRC in August The national program in Burundi will ensure that the core principles and mechanisms for reintegration support be finalized before the start of demobilization in late November The partnership reconfirmed that the Position Paper on Targeting of MDRP Assistance (January 2004) will continue to guide its efforts to balance targeted and broader assistance efforts. 18. Cross-border disarmament, demobilization and repatriation activities: Following recommendations made by several JSM country missions, partners discussed options to more effectively address the question of ex-combatants on foreign soil, which remains a source of instability for the region. The mission recognized that this was an issue affecting all countries in the region. However, many partners made clear that the presence of Rwandan ex-combatants (ex-far/interahamwe) in eastern DRC continues to be one of the main causes of instability for the region and should therefore be given priority. MONUC was encouraged by partners to step up its efforts in this regard, including through the use of the MDRP-financed rapid response mechanism in the DRC, which had been designed with this objective in mind. In addition, wrapup meeting participants believed that the MDRP partnership should do more to contribute towards resolving this problem. The MDRP Secretariat proposed that MDRP countries be approached to provide information on foreign ex-combatants on their soil as well as on the Aide Mémoire 4

7 presence of their ex-combatants nationals abroad. The compiled results of this process would be discussed at a dedicated (and possibly extended) TCG meeting that would also look at a plan of action, including the provision of support through a special project. MDRP partners also encouraged the MDRP Secretariat to stay in close touch with the International Conference on the Great Lakes, and to participate in its meetings. 19. Child soldiers: The demobilization and reintegration of child soldiers remains a key concern of all MDRP partners. The mission welcomed progress made in the demobilization and reintegration of child soldiers in the DRC and Burundi in the last year and looks forward to continued support of MDRP special project financing. The mission strongly encouraged the Armed Political Parties and Movements in Burundi and the DRC, as well as the Lord s Resistance Army (LRA) and government-backed militias in Uganda to demobilize all remaining child soldiers in their respective ranks as soon as possible, as required under international law. The mission welcomed the efforts undertaken by UNICEF to develop an overall policy framework for the demobilization and reintegration of child soldiers, and encouraged UNICEF to fully take into account the recent lessons learned from the MDRP partnership. The mission also noted the fact that, in agreement with the MDRP Secretariat, UNICEF had pre-financed a number of activities. 20. Gender issues: By and large, the country missions did not express a concern about how gender issues were addressed in MDRP funded activities. The mission in Angola noted that the IRSEM has initiated work under the special project for wives and widows of UNITA excombatants in various reintegration opportunities. The mission to Rwanda welcomed the RDRC s relationship with Ndabaga Women s Association, the Ministry of Gender and Family Promotion and UNIFEM as an encouraging sign in the development of gender-sensitivity and appropriateness in demobilization and reintegration activities. In Uganda, the mission recommended that the Amnesty Commission enhance its capacity to address gender issues within its activities. The MDRP partnership expressed an interest to work more closely with gender experts, and will explore the possibility of developing joint activities with UNIFEM. These would seek to promote the participation of women associations and to reduce the risk of exclusion of women from the programs and the negative impact of reintegration processes on women. 21. Institutional responsibilities; absorption of special projects into national programs and the relationship between MDRP and implementing agencies: It was agreed that this question should be viewed in light of the fact that national programs are in progress and that Governments are leading the process in nearly all MDRP countries. In this context, the role of the MDRP is to provide timely and effective assistance to these national efforts. It was also noted that the partnership functioned flexibly in each country, depending on the presence and related activities of the various partners and the conditions on the ground. Mission members also discussed, in an open and constructive manner, the fact that the partnership also provided a forum for partners to promote their mostly overlapping, but sometimes contradicting, national and institutional interests. On the relationship between special projects and national programs, the mission reiterated the importance of placing their coordination under national responsibility once a national program and/or appropriate institution is in place. Aide Mémoire 5

8 22. Mid-term review: mission members received a briefing from the team conducting the midterm review of the MDRP partnership. The briefing touched upon the main areas of review, that included current thinking on DDR, the nature and identity of the MDRP, national ownership, regional aspects, the set-up and working methods of the MDRP, special projects, political dimensions, intra-partnership communication, as well as internal/external management issues. The mission recommended that a meeting of the partnership be devoted to the conclusions of the mid-term review once they are available in early VII. Key Regional Issues Next steps a) Repatriation of ex-combatants on foreign soil, with priority given to the return of Rwandan ex-combatants from the DRC - Immediate funding of MONUC activities, in particular through the MDRP-financed Rapid Response Mechanism - Letter to MDRP countries - Countries assessment of numbers/creation of database - Draft report on the issue - TCG meeting development of regional special project Responsible party MONUC and UNDP MDRP Sec National commissions/mfas MDRP Sec Org by MDRP Sec Target dates ASAP Nov 19 Dec 1 Dec 31 Jan 2005 b) Further develop and implement joint cross-border information and sensitization campaigns MDRP Sec (to coordinate), RDRC, GoDRC, MONUC, and other MDRP countries c) Harmonized monitoring and evaluation reporting formats All national programs & MDRP Sec d) Increased exchanges with and participation in the MDRP Sec International Conference on the Great Lakes - Participate in forthcoming planning meetings e) Continue facilitation of regional exchanges and learning activities, including cross program exchange visits and workshops on DDR program management issues. MDRP Sec and TCG January 2005 April 2005 November 2004 January 2005 VIII. National Program Achievements and Challenges Angola Key achievements in the covered period (May-November 2004) 97,000 combatants of UNITA demobilized, approximately 60,000 have received reinsertion assistance The special project has provided subsistence agricultural support to 50% of the current target group Three independent studies on reintegration have been conducted and provide insights into the reintegration process, which will further inform IRSEM reintegration assistance Key challenges / Recommendations IRSEM to propose a strategy to enhance coordination with strategic and implementing partners assisting other war-affected population IRSEM to start assistance to disabled ex-combatants Launch a lessons learned study of the UNDP special project Responsibilities / Target dates IRSEM; by November 26, 2004 January 2005 December 2004 Aide Mémoire 6

9 Burundi Key Achievements - May Oct Responsible Parties Timeframe 1. Staffing of ES/NCDRR and put in place material preparations for demob activities 2. Disbursement of IDA and MDTF grants for national program ES/NCDRR Sept World Bank & MDRP Sec. Sept Transfer from AMIB to ONUB and Deployment of ONUB Key Challenges & Next Steps Nov May 2005 AMIB, ONUB Responsible Parties May Oct Timeframe 1. Finalization of critical path analysis. ONUB Nov Plan for sensitization program, including expanded radio broadcasts, visits to pre-disarmament assembly areas and barracks, and community outreach activities 3. Finalization of rank determination and harmonization agreement 4. Confirm the starting date for demobilization activities. After the JSM was concluded, the Government of Burundi announced the date: 29 November. 5. Finalization and dissemination of reintegration strategy. 6. a. Finalization of child soldier MoU b. finalize disbursement arrangements for UNICEF special project. c. start of child soldier withdrawal from assembly areas ES/NCDRR, with support from MDRP secretariat and ONUB. MDRP partners to be invited to participate in field visits Nov 30/ongoing EMG, EMGI & JCC Nov 22 President to confirm start date. ES/NCDRR& ONUB to confirm technical readiness. ES/NCDRR in consultation with key partners. MDRP Secretariat to provide short-term technical assistance ES/NCDRR & SNES, with support of MDRP Secr. & UNICEF UNICEF, MDRP Secretariat ES/NCDDR/UNICEF As soon as possible Nov 30 Nov 15 Nov 15 As soon as possible 7. Request support for financing of pre-disarmament assembly areas MINECOFIN As soon as possible 8. Release children from PDAAs APPMs ASAP Aide Mémoire 7

10 Central African Republic Key achievements in the covered period (May-November 2004) Grant agreement signed (July) Establishment of a broad based National Commission (October) Recruitment of key project personnel and start with premises refurbishment (ongoing) Project encouraged other engagements by donors (ongoing) First disbursement made (October) Key challenges Responsibilities Target dates CNDDR to hold its opening session Launch of sensitization campaign and project implementation Preparation of a letter of disarmament policy Increased donor/agencies coordination with regard to wider development assistance programs Government Government/UNDP Government Donors/agencies November 2004 December 2004 Early 2005 Ongoing Democratic Republic of Congo Key achievements in the covered period (May-November 2004) IDA and MDTF grant agreements signed CONADER significantly expanding planning and implementation capacity JOP finalized by all partners and JOC established Signing of MoUs between CONADER and special project implementing partners 25 centres d orientation identified Key challenges Responsibilities Target dates Prepare a proposal for the financing of army integration Resolve outstanding DDR harmonization concerns in Ituri, including the fast track integration process Establishment of 6 CBs and 12 COs Finalize interim fiduciary arrangements Identification of implementation partners for the provision of reinsertion assistance and finalization of their contracting Continued development of detailed logistical plan for DDR Implementation of information and sensitization strategy Increased use of UNDP s rapid response mechanism by MONUC and CONADER Ensure coordination between DDRRR, DDR, SSR and devise a coherent strategy for DDRRR; encourage regional Governments to make full use of available international support GoDRC and donors UNDP, CONADER, and other partners CONADER CGFDR and BCECO, CONADER and CGFDR, CONADER, with TA from MDRP Sec CONADER, MONUC and MDRP partners. CONADER MONUC, CONADER MONUC, Governments of the DRC, Rwanda, Uganda, Burundi, ONUB Nov 20, 2004 by Nov 09, 2004 by Nov 15, 2004 Ongoing Ongoing End 2004 End 2004 As soon as possible As soon as possible Aide Mémoire 8

11 Republic of Congo Key achievements in the covered period (May-November 2004) MDRP pre -appraisal mission (July) Preparation of new national program for ex-combatants (ongoing) Agreement on tightened criteria and procedures (October) Key challenges Responsibilities Target dates Finalize national DDR program, that includes strategy for DDR in affected parts of Pool region Provision of technical assistance Development of child soldiers component Preparation of funding proposal to donors Start of disarmament program Government/CONADER MDRP Sec/ partners Government, UNICEF, ILO MDRP Sec./ World Bank UNDP, HCREC November 2004 Ongoing December 2004 January 2005 December 2004 Rwanda Key Achievements May Oct Responsible Parties Timeframe Beginning implementation of bilateral reintegration assistance developed by KFW/GTZ RDRC with GTZ & KFW May 2004 Strengthening of RDRC M&E and reintegration assistance capacity RDRC June 2004 Completion of key monitoring and evaluation studies RDRC Oct Key Challenges & Next Steps Nov May 2005 Responsible Parties Timeframe Complete mid-term review of the RDRP RDRC & World Bank Dec Integrate findings of M&E studies into RDRP reintegration strategy Impact evaluation of GTZ skills and vocational training Document RDRP experience and share with MDRP partners DDRRR to be concluded RDRC RDRC/GTZ Jan February 2005 RDRC & MDRP Sec. April 2005 Gvts of Rwanda, DRC, MONUC. MDRP partners GTZ bilateral program to be evaluated Govt/GTZ? Next 5 to 12 months Aide Mémoire 9

12 Uganda Key achievements in the covered period (May-November 2004) Government expressed its intention to develop a National Demobilization and Reintegration Program (NDRP), but also that the time is not yet ripe for demobilization. The grant agreement for the Special Project in support of the Amnesty Commission was signed in August Key challenges Fulfilling the conditions of effectiveness for the MDRP Special Project. Processing for the first payment to the Special project Start of provision of packages to backlog of reporters. Staying prepared to reassume discussion with the GoU on a possible national D&R program. Responsibilities / Target dates Amnesty Commission / November 10, 2004 MDRP Secretariat / World Bank / November 2004 Amnesty Commission / late November 2004 MDRP Secretariat / GoU / 2005 IX. Cross-cutting Programmatic Issues Next steps M&E - Development of standardized reporting formats - Review of Rwanda/RoC for lessons learned for other programs - Lessons learned exercise on the use of special projects. Gender - Incorporating gender into DDR activities - assessment of number of female ex-combatants - consultations between UNIFEM and national commissions HIV/AIDS - Review of HIV/AIDS strategies and experiences within MDRP to date - Ensures linkages between national DR programs and HIV/AIDS programs Responsible party MDRP Sect. MDRP Sect./Midterm review MDRP Sect./Rwanda Midterm review; UNDP/Angola (Nov/Dec 04) National commissions with specialized partners MDRP Secr./ National commissions National commissions Target dates March 2005 April 2005 April 2005 March 2005 March 2005 As soon as possible Institutional arrangements Review roles and responsibilities of the MDRP Secr. MDRP Secr./ MDTF meeting Dec. 15 TCG capacity building Development of plan for future TCG events MDRP Secr., in consultation w TCG Nov 30 Mid-term review Present and discuss findings of MTR at partners meeting MDRP Secr., mid-term review team, partners Jan 2005 Aide Mémoire 10

13 Joint Supervision Mission October 10-28, 2004 ANNEXES Aide Mémoire 11

14 Annex I Angola Country Report October 11-14, 2004 A. Introduction 1. The Multi-country Demobilization and Reintegration Program (MDRP) Joint Supervision Mission (JSM) visited Angola from October 11 to 14, 2004, in order to assess the overall progress made in implementing the MDRP and related Angola Demobilization and Reintegration Project (ADRP). The specific objectives for the Angola mission, as shown in Attachment 1, were to assess: (i) coordination between national program and other reintegration efforts, (ii) support to vulnerable groups, (iii) the establishment of appropriate implementation structures at national and provincial levels, (iv) Government plans for the demobilization of the armed forces, (v) the status of complementary efforts, and (vi) the status of the MDRP special project. 2. The members of the mission 1 wish to thank the representatives of the Government of Angola (both at national and provincial level), NGOs and other partners who assisted the mission to better understand the current situation and challenges for the MDRP in Angola. 2 The remainder of this document contains the main findings and recommendations of the JSM mission to Angola. B. Country Context 3. There is broad consensus that the peace process, which was restarted with the signing of the April 2002 Memorandum of Understanding (MOU) between the Government and UNITA, was instrumental in facilitating the return of approximately 4 million people (including demobilized soldiers and families) has had, overall, a positive impact on human security, has help to revive the local level economy through, particularly, the agricultural sector, 3 and is unlikely to be reversed. It is widely accepted that the country has passed through the post-conflict emergency phase and is now in a transitional period that will lay the ground for longer-term economic recovery as proposed in the Government s draft Poverty Reduction Strategy ( ). 4. Political progress has been more uneven with long delays and concerns regarding national elections. In May, UNITA walked out of the Constitutional Commission, which had been deliberating on the need for a new constitution as a pre-condition to national elections. However, in August the Council of the Republic recommended that elections be held by September 2006, a date which has now been widely accepted by the MPLA and the opposition 1 The mission was led by the MDRP Secretariat of the World Bank, and included representatives of the Government of Angola, France, Germany, Netherlands, Norway, Sweden, and the UK; of DFID, the EC, UNDP and UNITA (see Attachment 1). 2 The mission met with the Minister of Social Reintegration and Assistance, Chief of Operations and Chief of Personnel of the Forças Armadas Angolanas (FAA), Commissioner of Police, UNITA Secretary for Social Reintegration, the Vice Governor of Benguela, military attachés of several diplomatic missions, representatives of MINARS, IRSEM, UNICEF, USAID, NGOs in Luanda and Benguela, UNITA delegate and staff in Benguela, and demobilized combatants and community representatives in Ganda municipality, Benguela. 3 According to WFP ( Vulnerability Assessment in Rural Areas Luanda, June 2004), a marked expansion of agricultural activities by returnees, and favorable harvests, have led to a more than 50% decrease in the numbers of families considered food insecure. Annex I - Angola Country Report 12

15 parties. There are some indications of increases in freedom of expression for citizens and opposition parties, however, these improvements are more evident in Luanda and the larger cities along the coast. Furthermore, there have been instances of violence targeting opposition activists, UNITA party offices and officials, and returnees associated with UNITA. And while the conflict in Cabinda appears to be fizzling out, there are accusations of civil liberties and human rights abuses there. Previously, tensions were also raised with the DRC through Government of Angola actions to forcibly expel illegal immigrants under Operação Brilhante. 5. On the other hand, the Government s dialogue with the international financial institutions has progressed considerably since the last JSM, and a possible IMF Staff Monitoring Program aimed at supporting macroeconomic stabilization is expected to be agreed upon by early This would pave the way for greater international support for the Government s priority national reconstruction program estimated to cost $2 billion. 4 Both the IMF and the World Bank s recently completed Public Expenditure Management and Financial Accountability Review (June 2004) also point to improvements in transparency regarding the source and use of Government revenues, particularly related to oil revenue and Sonangol accounts, and the external debt. However, Government is still faced with a number of challenges in consolidating these gains and moving into a phase of broad economic recovery and growth. Though GDP has grown by 3.4% in 2003 and is projected to grow by another 10% in 2004, the Government s fiscal position remains weak and vulnerable to oil price changes, which will continue to constrain national commitment to finance approximately 55% of the priority national reconstruction program. C. Meeting Program Eligibility Criteria and Application of MDRP Guiding Principles 6. The Government of Angola has met all eligibility criteria to receive support under the MDRP for a national program, including continuing to participate in the regional peace process, in addition to the bilateral Luena Agreement with UNITA. The Government has received Presidents Kagame and Kabila during the past year, and will be participating in the International Great Lakes Conference as well as in regional peacekeeping operations. The Government has also prepared a letter of demobilization policy acceptable to the World Bank and MDRP partners; and has developed an appropriate national program consistent and in harmony with other demobilization and reintegration efforts in the region. National ownership of the program remains high as exhibited by the estimated $155 million that Government has invested in the disarmament, demobilization and reinsertion phases of the program, and other parallel reintegration efforts being undertaken by several Government ministries. 7. Appropriate institutional framework and structures to oversee and execute the national program are in place, though capacity constraints of the national executing agency, the Institute for Social and Productive Reinsertion of Ex-combatants (IRSEM), remain. These constraints are being addressed through the World Bank/MDRP financed project, and the mission found some progress in areas such as training, recruitment of some key staff, and technical assistance. Nonetheless, more is needed to further strengthen IRSEM and to ensure a rapid expansion of reintegration opportunities. In particular, addressing the delays in contracting strategic partners to support program management as agreed to in the program document is thought to be key by 4 The World Bank is currently appraising the $205 million Emergency Multi-sector Recovery Project, which would contribute to this priority national program. Annex I - Angola Country Report 13

16 many partners. Suitable fiduciary safeguards are in place through the Financial Management and Procurement Unit, which, combined with the project s M&E and management information system that is being finalized, will ensure transparency in the delivery of program benefits and management of MDRP resources. Appropriate social and environmental safeguards are being installed through the reintegration sub-project review and approval process. 8. IRSEM has recently drafted a strategy for supporting special target groups (women, children and disabled) under the national program, and is now seeking to harmonize this strategy with those agencies that take the lead in assisting these groups. Finalizing and operationalizing this strategy is critical, not least because the FAA has indicated its readiness to discharge 8,000 to 10,000 disabled soldiers as part of their commitment under the program to demobilize 33,000 combatants. This issue is currently with the government. Nonetheless, IRSEM has initiated work under the special project for wives and widows of UNITA ex-combatants in micro-credit, business advisory skills and other reintegration opportunities. The mission also welcomed the news that the EC (on behalf of the EU member states) proposes to provide Euro 15 million for vulnerable group reintegration support through the program framework (of which Euro 13.5 million will be implemented through IRSEM). The program design remains sufficiently flexible to allow for these and other accommodations to arising needs and the local context. 9. Coordination of the national program with parallel efforts targeting ex-combatants, as well as more general support to returning populations has, to date not been as strong as desired. However IRSEM s efforts to enter into cooperation protocols with key line ministries, and proposal to establish reintegration coordination committees at both national and provincial levels, are welcomed. Closer coordination between the ADRP and GTZ s Local Development and Reintegration Program was evident and the further actions proposed were also welcomed. These efforts should prove useful in harmonizing assistance for different war-affected groups and in addressing concerns that assistance provided exclusively to ex-combatants may create or exacerbate local-level tensions. 10. A special project executed by UNDP and FAO (and to close in December 2004) has served well as a pilot initiative to facilitate the provision of subsistence agricultural support to approximately 45,000 ex-combatants, to test economic reintegration strategies (with an additional 4,700 beneficiaries), and to establish the systems for the review and approval of reintegration sub-projects. The UNDP capacity building technical assistance has performed well and has been well-integrated into the ADRP, and which IRSEM is in the process of contracting for directly. IRSEM also has initiated discussions with FAO to extend their assistance for the next planting season. Nonetheless, delays in releasing funds to reintegration sub-projects, purchasing key inputs such as toolkits, and in paying project consultants risks undermining the success and delaying the closure of the special project. The partners recommended an end-ofproject evaluation that would identify key lessons learned to be used in the implementation of the ADRP. 11. The partners agreed that the rumors that program benefits were being used for political purposes, though unconfirmed, were a serious matter and clearly in contradiction of the Luena MOU and the guiding principles of the MDRP. It is strongly recommended that IRSEM investigate such rumors when they arise and report to partners on the findings. Annex I - Angola Country Report 14

17 D. Program Performance Indicators 12. While the World Bank financed portion of the national program (MDRP/ADRP) was only declared effective in March 2004, the program has been operational since the signing of the Luena MOU in 2002 through direct Government funding, an advance on the IDA grant, the MDRP special project, and parallel financing from other partners. To date, of the 97,138 UNITA ex-combatants demobilized, 5 Government estimates that 62,418 have received resettlement kits and 49,778 have received a reinsertion payment worth approximately $100. In addition, 4,450 have received vocational training from the Ministry of Public Administration, Employment and Social Security; approximately 6,500 have been hired by the Ministries of Health and of Education; and an estimated 8,000 ex-combatants have been hired by both public and private entities. However, these latter reintegration opportunities include both the target beneficiary group of the ADRP (demobilized under the Luena agreement) and those excombatants previously demobilized under the Bicesse and Lusaka agreements. In addition, more than 50,000 are being assisted in subsistence agriculture and economic reintegration opportunities through the special project; additional assistance is being provided through parallel efforts supported by Canada, Germany and Spain; and project proposals for an additional 22,000 reintegration opportunities are currently being processed and will be contracted under the national program. 13. The ending of the war in 2002 led to the relatively rapid return of more than 4 million IDPs, refugees, demobilized soldiers and families. While there remain an estimated 300,000 displaced in the country, the Government s technical coordination unit for humanitarian affairs (UCTAH) estimates that all but perhaps 50,000 will stay where they currently are, and the Government has announced that, as of the end of 2004, those that remain will cease to be considered displaced. While this massive return was accomplished surprisingly peacefully, it is still estimated that significant areas of return lack minimum basic services. While the overall economy has experienced strong positive growth over the last two years, limitations on the movement of goods and services are still being reported in some instances due to the presence of land mines and deteriorated/destroyed infrastructure. 14. The end of the war has not, as of yet, had the expected or desired result of reducing defense and internal security expenditures in favor of social sectors. And, ironically, with the significant improvements in public sector financial management, the overall percentage of Government expenditures absorbed for defense and public order in 2003 dramatically increased to 36.7% of the national budget versus the previous estimate of 13.4% at the time of the last JSM. This change is due primarily to the capture of previously unclassified, or unaccounted for expenditures. Moreover, the analysis is further complicated by the fact that this category of expenditure includes the police and judiciary, areas of expense that should logically increase while defense expenditures come down. E. Efforts Complementary to the MDRP 15. A number of important complementary efforts are on-going in Angola that support the overall objectives of ADRP. This includes de-mining, which is coordinated by CNIDAH, 5 n.b., the mission learned that of these registered ex-combatants eligible for reintegration benefits, the FAA had only processed and distributed 87,763 ID cards usually an indicator of formal demo bilization. Annex I - Angola Country Report 15

18 undertaken principally by NGO partners, and financed primarily by the international community (including among others MDRP partners Italy and the UK). The national program includes two phases running through 2010, with the focus of the current first phase on the updating of mapping information on location of landmines and national NGO capacity building. The government has also initiated a program of civilian disarmament that is entering into a second phase. First phase activities focused on the sensitization of the civilian population, during which time, over 16,000 weapons were collected in Second and third phases of this program will target the collection of voluntarily delivered weapons and search/forced retrieval operations respectively. Ad hoc external assistance is being provided to the military in reforming and modernizing different aspects of the armed forces, but no comprehensive externally-supported security sector reform program is underway. Finally, work in important complementary areas such as food security, rehabilitation of social and economic infrastructure, and peace and reconciliation activities are also supported by numerous donors and implementing partners. F. Risks and Mitigation Measures 16. No partner feels that there is any significant risk that the peace process will be reversed in Angola. Nonetheless, there remains concern that local-level tensions and conflicts may arise as a result of disenchanted ex-combatants demanding undelivered benefits, competition over land or other local assets, inequitable treatment of different groups, or as a result of organized or spontaneous oppression of local activists or political parties. Some concern was also expressed that the program was overlooking urban-based ex-combatants who could become a potential source of unrest in the capital and larger provincial cities such as Benguela and Huambo. A number of studies are looking at the issue of land access and IRSEM will continue to monitor this issue and other potential flash points through its regular opinion poll surveys. There continues to exist a risk that the demobilization and reintegration program is not sufficiently well-linked with efforts to support a wider population of displaced, however, IRSEM is also developing protocols of cooperation with Government agencies and strategies to coordinate their assistance with other partners to reduce perceptions of inequity among different groups. UNITA s limited direct involvement in the national program to date has also created misunderstandings and misgivings that could undermine the credibility of the program. However, their participation in the newly formed provincial and national project evaluation committees should help address this risk. 17. There is no evidence that the existence of the MDRP has lessened significantly the cost of the war (and the peace) to Government nor an indication that the program has created a perverse incentive for increased participation in armed conflict. With the finalization of the MDRP Trust Fund grant in September, and the proposed support of the EC for vulnerable groups, the projected funding gap for the program in Angola has been closed. There remains instances of less well harmonized reintegration support by partners, however, IRSEM is looking to address this through internal arrangements (in the case of GTZ), coordination mechanisms, as well as protocols of cooperation with Government agencies. G. Recommendations and/or Agreed-upon Next Steps IRSEM to further enhance coordination mechanisms at institutional, national and provincial levels to harmonize reintegration support activities and beneficiary tracking, and to encourage linkages between ADRP and programs assisting other war-affected populations; Annex I - Angola Country Report 16

19 partners expressed a willingness to help support these efforts with additional financing if necessary; IRSEM to finalize its strategy for vulnerable groups and launch a process of soliciting proposals from both strategic and implementation partners, in particular for disabled given the proposed demobilization of up to 10,000 disabled FAA soldiers; End-of-project evaluation for UNDP special project emphasize lessons learned to best instruct adjustments and improvements to national program implementation; IRSEM to prioritize processing of reintegration project proposals for an estimated 22,000 opportunities so that work may begin under these projects in early 2005, and restart the process of contracting with strategic partners in those sectoral or geographic areas where program management capabilities and coverage remain weak; IRSEM to look into rumors of project benefits being used for party political purposes and report to partners. Annex I - Angola Country Report 17

20 Attachment 1: Angola JSM List of participants Mission Member Antonio Francisco de Andrade Domingos José da Costa Elliot Ekdelo Sean Bradley Marcelo Fabre Olivier Lambert Lisa Maier François Croville Cédric Nouvel Olaf Handloegten Geerd Wurthmann Hans-Ulrich von Schroedter Giuseppe Copola Robert Brinks and Nicole Maes Alida Endresen Cecilia Gjerdrman John Thompson Walter Viegas Robert Steinlechner Iolanda Fortes Martin Johnston Partner Organization IRSEM IRSEM UNITA MDRP Secretariat/World Bank MDRP Secretariat World Bank World Bank France France Germany (GTZ) Germany (BMZ) Germany (Embassy) Italy Netherlands Norway/NORAD Sweden/SIDA United Kingdom European Commission European Commission UNDP DFID Annex I - Angola Country Report 18

21 Attachment 2: Angola JSM Terms of Reference and Mission Organization A. Mission Terms of Reference The overall terms of reference for the Joint Supervision Mission is to jointly assess, with major partners, progress made in implementing the Multi-country Demobilization and Reintegration Program (MDRP), including national program and/or special project efforts. All missions will: Assess and update as appropriate the status of MDRP criteria and indicators regarding program (i) benefits, (ii) risks and mitigation measures, (iii) eligibility criteria, (iv) guiding principles, (v) performance, and (vi) complementary efforts as outlined in the MDRP Strategy document and detailed in the attachment to these SMOs; and Prepare country-specific reports summarizing status of program and identifying key issues and recommendations for consideration by the Government and MDRP partners. Specifically in Angola, the mission will assess: coordination between the national program and other reintegration efforts; support to vulnerable groups; the establishment of appropriate implementation structures at national and provincial levels, Government plans for demobilization of FAA forces; status of complementary efforts in areas of security sector reform, mine action, and general reintegration support to general displaced populations; and the status of assistance provided under the special project. B. Mission Schedule Monday, October 11: Mission organizing meeting (UK, France, Norway, Italy, Germany) OCHA (Philip Lazarini), UTCAH (Maria Assis) IRSEM (General Andrade, Brig. da Costa, Joao Ventura) Ministry of Social Reintegration (Minister Kussumua) Tuesday, October 12: UNITA, Secretary for Social Reintegration (Isaias Celestino Chitombi), Resp. for Agriculture (Antonio Chicapa) Ministry of Social Reintegration; National Directorate for Assistance to Children and Adolescents (Ana Alfonso), Dra. Conceicao, National Directorate for Assistance to disabled (Dr. Nzinga), representatives of UNICEF, Norway, Germany, EC, IRSEM. Development Workshop, Peacebuilding Unit (Carlos Figueirido) FAA (General Andrade, General Furtado, Admiral Carvalho) GTZ (Olaf Handloegten), BMZ (Geerd Wurthmann), USAID (Allan Dwyer) National Police (Sub-Commissioner Chingufo) with UNDP (Iolanda Fortes and Juan Carlos Cordon) Annex I - Angola Country Report 19