Diagnostic & Planning Tools: addressing power conflicts in NFPs Scott Geller Power & Partnerships Seminar 27 September 2004

Diagnostic & Planning Tools: addressing power conflicts in NFPs

Scott GellerPower & Partnerships Seminar

27 September 2004

Power & Partnerships Seminar

Today’s interactive session

• Power aspect of NFP processes

• General overview of the Uganda NFP process (1999-2004)

• A 6-step process or “tool” to help address power issues in Uganda


The “power context” of NFPs….

• Macro-policy building• Forest sector planning• Public expenditure budgeting

where the national forest programme (NFP) influences the poverty

reduction strategy (PRS)


The “power play” often found in NFP processes….

• Forestry is an integral part of national development & everyday life issues for ordinary people = high development importance….but….

• Is a land issue, ‘politically hot’, and rarely gains positive press in developing countries = poor public image…..plus…

• Forest authorities are often marginalised and / or corrupted = inefficiency..…so…


.…the implications for forestry advocates….

• The forest sector struggles to show its real economic contribution to wider society = ineffective advocacy ….and therefore…

• Is horrifically under funded = SUSTAINABILITY ISSUE

Forests disappear at faster rates than we can afford


The “power players” in an NFP….

• Forest governors (policy builders, ‘nfp convenors’, technocrats in high places, civil society)

• Lead public agencies (ministers, boards, planners, budget holders)

• Fiscal reformers (finance ministries, World Bank)• Development strategists (macro-economic

planners, aid agencies)• Data managers (poverty units, statistical

departments)• Politicians (representatives, parliamentary

members)


Uganda NFP background

• There was a recognised need for a sector-wide strategy between GoU and interested donors

• The NFP concept was developed by GoU in 1997/8


Uganda NFP purpose

- to create a positive, effective and sustainable policy and institutional environment for the forest sector in Uganda


Uganda NFP context

• Forest resources– decline in forest cover – demand exceeds supply– loss of agricultural productivity

• Poverty– dependence on forests by the poor– lack of poverty focus in the sector– poor understanding of forestry livelihoods


….more context….

• Forestry in the economy– 6% of GDP– employment for 1

million– 95% of energy

requirements– substantial potential

for economic growth


Uganda's Forest Sector Co-ordination Committee

Minis try of W ater, Lands &Environm ent

NEMA

W orking Groups on:National Forestry Authority;Policy & Legal Reform ;Com m erc ial Plantations; etc

PrivateSector

SupportingSecretariat

Uganda's Forest Sector Co-ordination Framew ork

National Governm ent representation:Min of W LE (Chairm an)

Min of FinanceMin of Tourism

Min of EducationMin of Agriculture

Min of Public Service

Local Governm ent representation:

Min of Local GovtLocal Authorities Ass 'n

P rivate sec tor representation:

UFIDA (processors)UW FA (growers)

UNFACivil soc iety (2)

Forest Sector Co-ordination Secretariat

ConsultativeConference

Donor Co-ordinationGroup

ForestryDept.

LocalCouncils

UW A

Consultativeand W ork ing

G roups

UgandanAgencies

ExecutiveCom m ittee

M inis try

SupportingDonors &

NG O sGTZ DFIDNO RAD FINNIDAEU, FAO

ADB, JICA,SIDA, etc

NGO s,CBO s

UNDP

FO RI Univers ityetc .


Planning & Diagnostic Tool

• A 6-step process that provides a mixed bag of “ideas”:– Strategies– Methodologies– Tactics – Tips– Checklists– Questionnaires– Indicators


IIED Power Tool SeriesMarshalling Evidence to Raise the

Poverty-Forestry Profile

Step 1. Inventory pro-poor forestry initiatives

Step 2. Establish forestry-poverty linkages

Step 3. Define data collection requirements

Step 4. Develop forestry indicators

Step 5. Harmonise PRSP/NFPs frameworks

Step 6. Sell forestry



• ‘Review of initiatives’ – build on field activities, views of the less powerful, tangible evidence for politicians, establish foundation for indicators, action based

• Analysis - what are the initiatives, problems being addressed, purpose, impact, outputs, activities, SWOT



• Livelihood issues / strategies – ask the poor – and maybe use the livelihoods framework

• Knowledge – awareness and attitude survey techniques

• Service provision – available or not, adequate

• Potential opportunities – what are they


Step 3. Define data collection requirements

• Types of data – economic/social, environmental, policy/institutional

• Methods – aggregated adminstrative, sample survey, register, remote sensing, inventories, etc.

• Responsibilities – various tiers



• Be participatory – get the right institutions involved – who are they?

• Good indicators – WB sourcebook– Direct and unambiguous– Measures factors that deal with objectives– Various across groups, time and is sensitive

to changes– Can be tracked, not too costly– Geared toward the strategic objective


Step 5. Harmonise PRSP/NFP frameworks

• NFP M&E strategy should be developed within national policies & frameworks for M&E

• Communicate the PRSP/NFP linkages in one M&E framework



• Identify entry points where decisions are being made– High-level x-sectoral committees (eg, PRSC,

agric/energy, decentralistion), Sector Working Groups (eg, ENR), etc.

• Prepare for your audience – Analyse cross-sectoral problems, objectives,

strategies, actions, etc.


A look back on what was used and worked….

…..post facto, of course….


Review of ForestInitiatives

Forest SectorReview (FSR)

New ForestryPolicy

National ForestryAuthority (NFA)

Planning

NationalForest Plan

Process

NFA Launch

New ForestAct

Implementation of NFP

Outputs from the process

New ForestRegulations



Some attributes– Forest sector review process = lots of

studies– Masterlist of forestry-related initiatives

was produced– Demonstrates forestry extends beyond

FD– Geographic coverage, motivations and

needs, livelihood links


“Review of Initiatives”

Type of organisation involved no. Region no.

NGO 403 East 172CBO 132 West 160Private 62 North 126Religious organisations 36 South 104Central government 22 Central 83Local government 13 National 28Schools 5 Total 673

Total 673



• Forests provide income – employment & sale of products

• Fuelwood energy – 90% of consumption• Forest products - “free goods”• Safety nets - against food shortages• Cultural and spiritual values


Step 3. Define data requirements

Types of data• Economic/social (employment, income

generation, consumption, production, trade, market prices, investments, tree planting, access, firewood collection, biomass energy

• Environmental (forest cover, deforestation, inventory, growth, protected areas)

• Policy/institutional (GoU budget, ownership/management, civil society, districts, advisory services, research, training, awareness)


Data (2)

Methods• UNHS, NFA, LG, MWLE, districts, NAADs

Institutions• UBOS, MWLE, URA, MTTI, NARO …..


Institutional delivery framework TITLE: Key institutional relationships in the forest sector

PRODUCERS & USERS

Forestowners

DELIVERYINSTITUTIONS

Funds, policies, regulations, standards &guidelines, information

ENABLINGINSTITUTIONS

MWLECC &PMA Other

institutions

UWA

LocalGovernments

Service Providers:NARO, NFC, MUK

NGOs, ContractorsReligious organisations

Plans, service demands,quality control

policy feedback

accountabilitypolicy feedback

MFPEDDonors

NFA

Communities

Forestproducttraders

Forestrybusinesses

Farmers

FIDCivil

society



• Participating in Uganda Participatory Poverty Assessment Project

• Drafting indicators with Poverty Monitoring & Analysis Unit

• Integrating forestry into UBOS Integrated Household Survey


Evidence for ‘finance’

Average distance to collect fuelwood (.06 km in 1992 to .73 km in 2000)

0

0.2

0.4

0.6

0.8

1

1.2

1.4

Central Eastern Northern Western Uganda

km

1992

1999/2000


Step 5. Harmonise PRSP/NFP frameworks

See table in paper….



• Forest Sector Co-ordination Secretariat - high-level inter-ministerial steering (1999-2001)

• Poverty Eradication Action Plan– ENR Sector Working Group– PMA & NAADs

Sub-Committees that Count!


Challenges faced….

• Poor information

• Not seeing the wood for the trees

• Slow committees

• Immediate needs vs longterm benefits

• Political support


The clear message we used….

Forestry is not just about trees, it is only trees in so far as trees serve the needs of the people

Does this make sense?


Leveraging power to our advantage….

• Sound intelligence & knowledge management systems

• Active participation, networking, consultation• Lobbying, ‘selling’, advocacy• Disseminating lessons - communications• Finding ‘political ‘space’, instilling ownership• Being tactful

Are ‘foresters’ good at this?


Final thoughts….

• Understand and fully engage with the political and economic realities in a broad public dialogue

• Facilitate agreement on a viable path of linking forestry & poverty, rather than simply listing what change is needed


Documents

Diagnostic & Planning Tools: addressing power conflicts in NFPs Scott Geller Power & Partnerships Seminar 27 September 2004