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Programme for Strengthening Good Governance
End of Programme Report 2007-2011
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End of Programme Report
Reporting Agency: UNDP Country: Rwanda
Project title: Programme for Strengthening Good Governance (PSGG)
Implementation partners:
The Media High Council (MHC) The National Human Rights Commission (NHRC) The National Unity and Reconciliation Commission (NURC) The National Women’s Council (NWC) The Office of the Ombudsman (OO) National Electoral Commission (NEC) Parliament
Development partners: DFID and UNDP
Award number, UNDP: 00047525, 00040750
Total budget (2007- 2011): USD $ 10,179,4751
Funding sources:
DFID: GBP 4.4M2 UNDP (TRAC): USD 1,875,000 DFID gender component: GBP 400,000 UNDP gender component: USD 200,000
Reporting period: April 2007 – November 2011
1 Estimated budget using actual exchanges rate for transfers to date. A forecast rate of £1 = $1.5000 has been used to estimate the value of the two remaining DFID transfers of £550,000 each. The estimated total value of these remaining transfers is $1,650,000 (i.e. 2 x $825,000). 2 This equated to USD $8,384,856 at project inception.
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Contents
1 Introduction ......................................................................................................................................... 3
1.1 Scope of report ..........................................................................................................................................3
2 Executive Summary ........................................................................................................................... 4
3 Background of PSGG .......................................................................................................................... 5
3.1 Context .........................................................................................................................................................5
3.2 Purpose ........................................................................................................................................................5
3.3 Relevance ....................................................................................................................................................6
3.4 Programme Structure .............................................................................................................................6
3.5 Strategy ........................................................................................................................................................8
4 Outcomes Achieved ........................................................................................................................... 9
5 Financial Implementation ........................................................................................................... 32
6 Strategies for ensuring sustainability ..................................................................................... 36
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1 Introduction In April 2007, the United Kingdom, Department for International Development (DFID) and the United
Nations Development Programme (UNDP), jointly initiated the Programme for Strengthening Good
Governance (PSGG). The programme was based on a shared commitment between the two developing
partners and the Government of Rwanda (GoR) to address critical issues of good governance as a
means to advancing development. The PSGG has systematically addressed capacity needs of
constitutionally mandated institutions in an effort to strengthen the accountability and responsiveness
in order to deliver on the Economic Development Poverty Reduction Strategy (EDPRS) objectives and
Vision 2020.
The target institutions and implementing partner are seven constitutionally mandated institutions:
The Media High Council (MHC);
The National Human Rights Commission (NHRC);
The National Unity and Reconciliation Commission (NURC);
The Office of the Ombudsman (OO); and
The Parliament;
National Electoral Commission
National Women’s Council
The programme has address capacity needs of the institutions related to accountability, policy
framework, monitoring and evaluation systems and gender mainstreaming, among other aspects.
In this final report the achievement and challenges of the programme will be elaborated.
1.1 Scope of report
This report has been prepared by UNDP as the managing agent for PSGG in collaboration with the
implementing partners. The purpose of the report is to justify the expenditure and to report on
achievements of the Programme to Strengthen Good Governance (PSGG) at the end of the programme
period. Furthermore, to reflect on challenges and propose recommendations for future programming.
The report is based on periodic reports and evaluation from the programme period as well as the End
of Project Reports from the six implementing partners which are active at the time of project closure.
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2 Executive Summary
This report highlights the key achievements of the Programme for Strengthening Good Governance
(2007-2011) which is the result of a partnership between the Government of Rwanda, DFID and
UNDP. Overall the implementing partners of PSGG have through the programme seen a
professionalization of the institution in the effectiveness they are delivering on their respective
mandates. This has been evident in particular in three overarching thematic areas:
1) Organizational Capacity
The organizational capacity of the PSGG implementing partners has been strengthened through
development of strategic documents and the revision of internal structures. The case handling
capacity has been strengthened by revising the processes and acquiring appropriate software.
Development of strategy documents for the institutions has also been an element that has contributed
to strengthening the organizational capacity. The strategy documents have focused the organization
around a common vision and clear objectives. Strategic documents have also been developed on a
subsector levels such as the strategic plan for itorero or on cross cutting themes as the Gender
Mainstreaming Strategies for all IPs.
The capacity of the staff has been strengthened through targeted thematic trainings focusing on the
needs of the institution and the staff’s respective roles within the institution.
2) Evidence Based Planning
The capacity of evidence based planning has been strengthened through the PSGG mainly through two
entry points; 1) establishment of baselines through research 2) establishment of result oriented M&E
systems.
Through the PSGG the implementing partner institutions have improved the capacity for evidence
based planning. The establishment of baselines for key governance indicators have been done through
important national research as well as institution specific studies. The baselines have been integrated
in the Programme Monitoring and Evaluation Plans (PMEPs) that have been developed to improve the
result oriented planning of the institutions.
The evidence planning capacity has enabled the institutions to spearhead policy development in a
number of areas; media sector policy reform and the draft corruption policy among others.
3) Accountability and Participation
PSGG institutions have improved the mechanism of consultation and interaction with the right holders
in the community. Through the establishment of consultative forums, association and national
dialogues the PSGG institution has been able to engage large parts of the population.
The programme has also supported the Parliament to undertake a number of oversight visits to the
district in order to verify and assess the impact of national development policies. These visits
alongside the research that has been conducted through PSGG has been pivotal to policy development
in central governance areas.
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3 Background of PSGG
3.1 Context
The Programme for Strengthening Good Governance (PSGG) is built around a shared agenda between
the Government of Rwanda, DFID and UNDP giving weight to the need for good governance –in the
development of a responsive and accountable state. A state which enters into a social contract with its
citizens, listens to citizens’ voice, allows itself to be held accountable for the way in which it develops
its policies and delivers its services, and a state which protects and upholds the rights of all. The basic
assumption is that good governance is central to the development process, and that it needs state
capability, responsiveness and accountability as prerequisites.
The challenges that this project has addressed is one of how to constructively engage with an
emerging governance agenda, shared by the Government of Rwanda and key partners, including DFID
and UNDP. Specifically, the agenda advocates the strengthening of government accountability and
responsiveness, with particular reference to delivering the objectives of Rwanda’s Economic
Development and Poverty Reduction Strategy (EDPRS). Coupled with this is another challenge
identified at the initiation of the programme; how to build capacity in a society that still suffers the
aftermath of the complete melt-down of the state after the 1994 genocide, where capable civil servants
and intellectuals were killed.
A third challenge identified relates to the political environment in which the programme operates.
Capacity development does not operate in a vacuum and it is simplistic to argue that if capacity gaps at
institutional level are addressed all problems are solved. Debates about political freedom are ever
present in Rwanda and in the international community and influences the agenda of capacity
development for advancing good governance.
In capacity development processes timing is pivotal. During the programme period there has been
increasing attention on good governance and capacity development. This has facilitated the process of
achieving the results now evident at the end of the programme period. The commitment by
government to build an effective and responsive state is visual through the development of
organisations such as Parliament, the Office of the Ombudsman, the Commissions of National Unity &
Reconciliation and Human Rights And the best way of supporting the accountability and
responsiveness agenda is to help build the capacity of the main actors charged with taking forward
this agenda, whilst at the same time engaging with government on issues around political freedom and
pluralism.
3.2 Purpose
The PSGG aimed at strengthening the accountability and responsiveness of key state actors in order to
improve the capacity to deliver on the EDPRS objectives. The main purpose as stated in the project
document is to “Enhance effectiveness and capacities of key national institutions mandated to
promote state accountability and responsiveness” and the project goal is stated as “Strengthening
accountability and responsiveness of key stakeholders for delivering EDPRS objectives”.
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Through the programme development process, specific purpose statements were formulated for each
of the implementing partners linking the programme purpose statement to the respective institutions.
The purpose is for each institution to effectively discharge its mandate:
For National Human Rights Commission to strengthen the Rule of Law through the
Promotion & Protection of Human Rights
For the Ombudsman’s Office to effectively promote and enforce the Rule of Law and
Contribute to Good Governance Practice
For the National Parliament to effectively conduct Legislative drafting, executive oversight
and Citizen Representation
For the National Women Council to effectively empower women to more effectively
participate in the social, economic and political development of the country at all levels
For the National Unity & Reconciliation Commission to ensure that Rwandans are active
participants in National Unity and Reconciliation Initiatives
For Media High Council to effectively ensure media freedom and implementing a sustainable
media regulatory system
3.3 Relevance
The PSGG programme is linked to the UNDAF Result area 1: Good Governance Strengthened and
enhanced. In Rwanda, the UNDAF is directly derived and linked to the EDPRS hence the goals of the
UNDAF reflect the goals and priorities of the Government of Rwanda. The specific UNDAF outcomes
that have been addressed are:
A peaceful state where freedoms and human rights are fully protected and respected
Effective, accountable and transparent management of public resources and services at
national and decentralized levels
Peoples Participation in democratic processes and structures at national and decentralized
levels
Results frameworks developed for each of the implementing partners of the programme are linked to
the institutions strategic objectives and planning instruments. It has been a priority for the
programme to ensure ownership of the programme interventions within the institutions, from the
head of institutions to the technical and administrative staff.
During the programme period we have seen the mandates change for some of the implementing
partners. To ensure that the programme remains relevant continued dialogue has been an important
strategy. This has ensured that the programme has been on track towards the specific objectives,
while at the same time keeping in line with developing partners’ priorities and the objectives of the
implementing partners’ institutions.
3.4 Programme Structure
The programme structure was developed to ensure broad ownership of the programme as well as
maximizing synergies and learning between the implementing partners.
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Through the Steering Committee the partner institutions have been able to share experiences and
harmonize interventions. This has improved accountability and transparency.
Each Implementing Partner has had a Project coordinator responsible for coordination of activities as
well as reporting on progress towards targets and financial reporting.
UNDP as the managing agent has hosted a Programme Manager and Programme Associate to provide
technical assistance to implementing partners and to facilitate the consolidation of achievements.
Figure 1: Programme Governance Structure
Benefits to the governance structure
During the End of Programme retreat the PSGG partners reflected on the programme structure in
terms of how it has facilitated the achievements and the governance of the programme. The conclusion
was that the governance structure has allowed for improved communication and exchange between
the implementing partners of the PSGG. It has increased the cooperation on key activities and
contributed to synergies that would not have otherwise occurred.
National Steering Committee
Technical Committee
Programme Manager
OO NHRC
Parliament
NURC
MHC NWC
Project Coordinators
Heads of Institutions
Advisory Input DFID and UNDP
NWC MHC
NURC Parliament NHRC OO
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3.5 Strategy
The PSGG has largely been based on the capacity development framework
where capacity development is the process through which the abilities of
individuals, institutions and societies to perform functions, solve
problems, and set and achieve objectives in a sustainable manner, are
obtained, strengthened, adapted and maintained over time.
Capacity development is seen by UNDP as a primarily endogenous and
domestically driven process. It is an inherently political and complex
process that cannot be rushed, and outcomes cannot be expected to
evolve in a controlled and linear fashion. UNDP recognizes that a country’s capacity resides at the
enabling environment, organisational and individual levels, and its policy, programme and
implementation support addresses capacity assets and needs at all three levels. Experience shows that
attempts to address capacity issues at any one level, without taking into account the others, are likely
to result in developments that are skewed, inefficient, and in the end, unsustainable.
The PSGG has focused on capacity gaps identified by the PSGG institutions or facilitated capacity
assessments following which consensus on priorities in the respective institutions have been made.
Capacity development has taken place on three levels:
Enabling environment
Capacity at this level includes overall policies, rules and norms, values governing the mandates,
priorities, modes of operation, civic engagement, etc. within and across sectors. These factors
determine the “rules of the game” for interaction between and among organisations.
Through availing data and baselines the PSGG has contributed to evidence based policy
dialogue and development
Policy dialogue
Bridging the gap between demand and supply side
Capacity building at Organisational level
Within the institutional framework of the PSGG institution the capacities to efficiently fulfil the
mandates of the institutions has been improved through “soft and hard” investments.
Equipment to enhance the efficiency, responsiveness and accountability
Development of Strategic documents and plans
Capacity assessments
Capacity building at the Individual level
PSGG has also invested in the individuals within the institutions in order to strengthen their capacity
to perform their roles within the institutions.
Technical skills training
General capacities strengthening
Capacity is the ability of individuals, institutions and societies to perform functions, solve problems, and set and achieve objectives in a sustainable manner
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4 Outcomes Achieved To start out this section an overview of the expected results and the corresponding expenditures will
be presented. Following this the results will be described per PSGG institution. The results will be
organized using the Project Monitoring and Evaluation Plans (PMEP) that were developed for each
institution through the PSGG. The PMEPs map out the different levels of expected results for each
institution with corresponding indicators and targets. Under each institution’s sub-chapter a narrative
of the key results and achievements will be linked to the expected outcomes.
The expected outcomes of the PSGG are highlighted in the table below, alongside the expenditure per
outcome:
Table 1: Outcomes and Expenditure for PSGG programme period PSGG Outcomes
Expenditure (USD)
Purpose: Enhancing effectiveness and capacities of key national institutions, mandated to promote state accountability, responsiveness and transparency Ombudsman’s Office effectively promote and enforce the Rule of Law and Contribute to Good Governance Practice
1,651,687
National Unity & Reconciliation Commission ensure that Rwandans are active participants in National Unity and Reconciliation Initiatives
1,996,756
National Parliament effective Legislative drafting, executive oversight and Citizen Representation strengthened
2,106,031
Media High Council effectively ensure media freedom and implement a sustainable media regulatory system
1,179,140
National Human Rights Commission strengthening the Rule of Law through the Promotion & Protection of Human Rights
1,457,966
National Women Council effectively empower women to more effectively participate in the social, economic and political development of the country at all levels
508,165
Strengthen constitutionally mandated institutions increase state accountability, responsiveness and transparency in an engendered manner
306,640
In addition to the cost attributed directly to the outcomes, the management of the programme by
UNDP has supported the coordination, monitoring and evaluation of the programme. These costs and
the cost for strategic support and technical advice is of a total amount of: 1,025,645 USD
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Ombudsman’s Office
The OO has made significant progress towards achieving the outcome of the PSGG as it refers to
effective promotion and enforcement of rule of law and good governance practice. This section will be
structured in line with the three levels of capacity development; enabling environment; organizational
capacity and individual capacity. Coordinated capacity development on each of these levels has been
central to the level of achievement of OO through the PSGG.
Outcome 1: Decreased incidents of injustice, including corruption, achieved, through OO investigations and referral to Prosecutor
When the PSGG started in 2007 the Office of the Ombudsman, charged with fighting corruption and
injustice, faced the challenge of lack of a baseline for corruption in Rwanda. In order to establish data
on the scale of corruption in Rwanda and to improve the knowledge of the forms that exists OO with
the support of PSGG commissioned a nationwide study on this topic. The study was undertaken in
2008/2009 and held the title: “Study on the forms, levels and mechanisms of internal control of
corruption within public institutions“. Quantitative data was collected on household as well as
institutional levels. This was complemented by document analysis and focus group discussions.
Key findings in the study included:
That corruption is more present in public sector than in private sector.
Most common form of corruption include favouritism in access to employment and other
benefits
Main causes of corruption were listed as inefficient administration in local governments,
poverty, low-wage or non-paid work, and the desire for quick gains,
The OO has also through the support of PSGG been able to undertake specific investigations into
corrupt practices in national development programmes. The OO has investigated the “One Cow per
family” programme and the “mutuelle de santé” (community health insurance with the objective to see
whether the implementation of this program is efficient and respect the rules established by the
central government.
The studies and investigations have highlighted the level of corruption in various institutions, public
and private, and classified them. This has been fundamental for identifying priority areas of
interventions for OO. Further to this it has led OO to spearhead a draft corruption policy that has
been debated and is now transmitted to the Cabinet.
The main components of the draft Corruption Policy are the role of state organs, the role of civil
society and private sector in fighting corruption. It addresses the gender dimension of corruption and
proposes anti-corruption strategies and measures for implementation.
Through the support of PSGG the OO have established a national baseline for forms and scale of
corruption which will better enable OO to monitor and track changes in the scale and forms of
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corruption in the county. This has been an important first step to track the incidences of corruption in
the country.
Capacity building initiatives have improved the professionalism and the efficiency in which the OO
staffs investigates and treats cases of injustice and corruption. Several investigations on corruption
cases have been conducted and completed successfully from 2008, and most of the cases investigated
were sent to Courts for further legal actions. In this regard, a list of 110 persons definitively convicted
by courts for corruption has been published in the first and second quarter 2010, while in the third
quarter, the list is not yet published. What is important here is that most cases were spontaneously
reported by citizens, which is an indication that people are aware now on the action of the Office of the
Ombudsman and they begin to take their responsibilities in the fight against corruption. The strong
action done by the Office of the Ombudsman allowed the institution to get the prosecution powers.
Operational audits conducted by the Office of the Ombudsman to check internal control systems of
public institutions in order to determine deficiencies that can enhance the practice of corruption and
injustice in their day-to-day service delivery to the citizens. The target was, after the audit, to provide
with recommendations and to produce reports, sometimes to transmit them to the concerned
institutions for a legal action where offenses were very serious. More important, those audits
permitted the institutions to update their internal regulations in order to improve their service
delivery.
Outcome 2: Relations between citizens and public & private institutions improved (through OO intermediation / mediation)
After identifying the key factors enabling corruption to proliferate OO developed sensitization
programmes targeting specific groups that can be regarded as catalysts in the fight against
corruption. Media professionals and journalists were one of the groups that received targeted training
on their specific role in fighting corruption and injustices. As a result OO registered that local
newspapers contained more articles on the fight against corruption and injustice, and local radios
broadcasted interviews, opinions and talk show, in a professional manner, on corruption fighting,
based on OOs vision and techniques as received from this training.
The OO has emphasized the role of citizens in the messages of fighting corruption and injustices. All
results achieved by the Office of the Ombudsman have been through collaboration with the population,
and this collaboration has been developed through several campaigns conducted by the Office. The
media, popular dramas, advertisement, live talk show and many other channels have been used for
this purpose. The main result is a change in behaviour of the population against corruption practices.
Through PSGG, the Ombudsman’s Office has been able to organise a range of events that aim to raise
awareness of the detrimental effect of corruption. 30 theatrical performances have been performed
across the country, with around 2000 people attending each performance. Radio dramas have also
been produced to ensure that the whole country could be reached. In addition, the Ombudsman’s
Office has worked with 865 educational establishments to provide training to school/university staff
and students on the impact of corruption and how they can make a complaint to the Ombudsman’s
Office.
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Further to improving the communication and sensitization among the citizens the capacity of OO staff
to mediate cases of conflict and complaints have significantly improved through the support of PSGG.
Outcome 3: Accountability & transparency of Public Officials in their role of managing public resources increased: Oversight of public officials increased, including assets declarations
Following the baseline study on corruption in Rwanda a draft policy was drafted. The policy
recommends the establishment of a specialized anti-corruption chamber in ordinary courts. These
would help to avoid some of the delays usually associated with criminal cases and civil litigation. In the
policy it is recommended that anti-corruption agencies particularly the Ombudsman should conduct
regular research and surveys on corruption which will enable the discovery of new facts, correct
interpretation and practical application. The policy aims at improving the framework for cooperating
with citizens, victims of corruption and civil society. The important role of investigative journalist is
also emphasized including an effort to strengthen these capacities.
In order to, among other things, improve the international rankings and perceptions of corruption in
Rwanda addressing high level of corruption should be a priority and a law regulating E-procurement
needs to be developed to eliminate and/or avoid irregularities in tender processes. The policy also
recommends that a national corruption index is established to give an annual picture of corruption
prevalence.
Increase accountability and transparency of public officials in their role of public resource
management: one of the important results achieved by the Office of the Ombudsman made possible by
PSGG’s fund support is the verification of declaration of assets made annually by concerned public
officials. Indeed, the intensification of the verifications, in terms of people covered by this action vis-à-
vis before PSGG, has improved the veracity of statements, with a direct result being better
management of public property by these agents of the state executive.
Training has been provided to a range of public servants, e.g. 240 police officers were trained on anti-
corruption legislation and service delivery and 2,700 local officials were trained on anti-corruption
and judicial procedures. Training of the police and local leaders is key to ensuring that they have a
good understanding of anti-corruption legislation, their role and responsibilities, and know how to
respond when citizens make complaints or raise issues relating to corruption.
It should be noted that partly due to the PSGG activities cited above, there has been a 42% increase in
the number of complaints of injustices received and investigated by the Ombudsman Office.
Outcome 4: OO’s institutional capacity to undertake its mandate strengthened
The PSGG supported the OO to improve the database and the capacity to disaggregate the data in
terms of category of complaint and sex of complainant. The remaining challenge is to make the
disaggregation automatic and to include other variables such as geographic distribution of complaints.
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For the Office of the Ombudsman two fundamental trainings for the staff were conducted. Firstly,
training in mediation techniques was conducted for all staff. The main objective was to improve the
professionalism of staff by improving their capacities to utilize mediation techniques with high
standards. As a result of the training OO has seen an increase in the number of cases of injustices
which are investigated and concluded at the level of OO while the number of cases referred to other
instances are continuously decreasing.
The second training targeted investigation techniques for OO staff. The focus of the training was on
modern techniques of investigation, particularly in detecting cases of corruption, mainly the new
methods used to fight electronic crimes, including those related to corruption. Combining these two
comprehensive skills development trainings have brought about a professionalization of OO as an
institution and has led to an increase in the powers to resolve cases without referring to other
instances.
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Table 2: PMEP for Office of the Ombudsman
Goal: Strengthened OO as one of the constitutionally mandated institutions to increase state accountability, responsiveness and transparency in the making and implementing of public policy. Result Indicator Year Planned Actual
Purpose: The OO effectively delivers its
mandate, To Promote and Enforce the Rule of
Law and Contribute to Good Governance Practice
P1 The percentage of citizens who perceive the OO as
principle means for ensuring state accountability,
responsiveness and transparency in discharging its
public functions.
(data collected via a PSGG JGA survey report )
2008
2009
2010
2011
2012
90.9%
(baseline)
P2 Per cent of population that has directly experienced a
corrupt activity (Comprehensive survey of incidence of
corruption)
(data to be collected via a PSGG wide qualitative survey)
2008
2009
2010
2011
2012
4% (baseline)
P3 The number of reports of public institutions audited
by the Anti-Corruption Unit that are forwarded to the
concerned institutions under the OO law (audited
institution, concerned Ministry (Mutelle), the prime
minister’s office and then the president’s office)
(data to be collected via the Anti-Corruption Unit on an
annual basis)
2008
2009
2010
2011
2012
20
22
25
27
-
baseline
13 (-9)
15 (-10)
Outcome 1: Decreased incidents of injustice,
including corruption, achieved, through OO
investigations and referral to Prosecutor.
O1.1 The number of complaints of injustice forwarded
by OO to the concerned justice institutions
disaggregated by institution (e.g., Police, Tribunals,
prosecutor general, District Council)
(data to be collected by the Ombudsman’s Office and
2008
2009
2010
2011
2012
35
40
45
50
-
baseline
10 (-30)
987 (+942)
1
disaggregated by institution)
O1.2 The number of complaints of injustices received at
the Office and addressed by the staff of the Prevention
Unit, disaggregated by: investigated or forwarded to the
concerned institution; and disaggregated by: institution
against which complaint was lodged
(data to be collected by the Ombudsman’s Office)
2007
2008
2009
2010
2011
2012
1191
1400
1600
1900
2200
baseline
1366 (-44)
1363 (-247)
6769
(+4869)
O1.3 The number of registered complaints in connection
with corruption practices received and investigated at
the OO and disposed of by the staff of the Anti-
Corruption Unit, disaggregated by justice institutions
(e.g., Police, PG, Tribunal)
(data to be collected by the Ombudsman’s Office every 6
months)
2007
2008
2009
2010
2011
2012
42
50
55
60
65
-
baseline
50
105 (+50)
128 (+68)
Outcome 2: Relations between citizens and
public & private institutions improved (through
OO intermediation / mediation)
O2.1 The per cent of people who believe there are
improved societal relationships as a result of OO
interventions disaggregated; between citizens, between
citizens & private companies, between citizens & local
government, between citizens & central government
(data to be collected by the Ombudsman’s Office)
2008
2009
2010
2011
2012
47% (baseline)
O2.2 The number of intermediation efforts undertaken
by OO at the sub-national (local) level, disaggregated by
District, Section, Cell, etc. and disaggregated by: the
participants in the mediation efforts; between citizens,
between citizens & private companies, between citizens
& local government, between citizens & national
government
2008
2009
2010
2011
2012
90
81
73
66
90 (baseline)
25
27
2
(data to be collected annually by the Ombudsman’s
Office)
O2.3 The per cent of disputes received that are resolved
as result of OO interventions disaggregated; between
citizens, between citizens and private companies,
between citizens & local government, between citizens &
national government
(data to be collected annually by the Ombudsman’s
Office)
2008
2009
2010
2011
2012
43%
79% (baseline)
Outcome 3: Accountability & transparency of
Public Officials in their role of managing public
resources increased: Oversight of public officials
increased, including assets declarations
O3.1 The per cent of citizens who have increased
confidence in the integrity of their elected and appointed
leaders as a result of OO oversight and investigations
(data to be collected via a PSGG wide qualitative survey)
2008
2009
2010
2011
2012
46% (baseline)
O3.2 The per cent of public servants covered under the
law of declaration of assets that complete their
statements and return them on time
(data to be collected annually by the Ombudsman’s
Office)
2008
2009
2010
2011
2012
89%
92%
96%
100%
89% (baseline)
95% (+3%)
98.5% (+2.5%)
O3.3 The number of verification on field of statements
received by the staff of the Declaration Unit
(data to be collected annually by the Ombudsman’s
Office)
2008
2009
2010
2011
2012
227
724
1230
baseline
487 (-743)
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National Unity and Reconciliation Commission
One of the most noticeable results of the PSGG is The Rwanda Reconciliation Barometer (RRB) that
was finalized in October 2010. The study has emerged from the need for a quantitative monitoring tool
that would allow the Commission to access the most current public opinion on the progress and
pitfalls of the country’s national reconciliation programme, Such a tool would allow it to respond in a
more targeted way to social fault lines and, in the longer term, may serve as an early warning system
to potential sources of societal friction. Public opinion around national reconciliation has, thus far,
been an under-researched aspect in the search to understand national unity and reconciliation
processes in Rwanda, and this report presents the results of exploratory research on this area3.
Through PSGG NURC has seen concrete results in the terms of citizen’s engagement in unity and
reconciliation activities. Further to this the improvements in organizational capacity has strengthened
the ability to effectively coordinate and deliver on the institutions mandate in an effective and efficient
manner. Establishment of school and community clubs and committees that join together to
strengthen processes of unity and reconciliation on the one hand and national civic education
programmes such as itorero and ingando on the other hand.
Outcome 1: Citizens become informed actors in areas related to Unity and Reconciliation
Through the PSGG NURC has promoted unity and reconciliation amongst the citizens through a
number of different programmes. Ingando and Itorero have been priorities for the commission as well
as focusing on youth groups and schools.
The Ingando, peace camps, initiative has provided an opportunity for people under 18 years old to
discuss national development and promote peace. In 2007, 4,600 students attended Ingando, in 2008
(6,800) and in 2009 (8,250). From the Ingando initiative, 333 unity and reconciliation clubs have been
established in schools and universities across the country with the aim of promoting peace to ensure
that events like the 1994 genocide are not repeated; 1,064 U & R associations were also formed
Teachers and head teachers have been targeted in sensitization and education programmes to
emphasise their role in peace building (in 1994, educational professionals played a significant role in
perpetrating and spreading genocide ideology). 602 head teachers were trained to ensure that
genocide ideology is not promoted in schools and to support the implementation of unity and
reconciliation clubs for students.
In order to ensure continued support to unity and reconciliation activities NURC through PSGG has
trained 2,142 Trainers of Trainers (ToTs) in the area of Civic Education who are engaged in local level
civic education initiatives and ingando.
3 Rwanda Reconciliation Barometer 2010, 11
4
Outcome 2: Effective Conflict management and resolution efforts contribute to unity and reconciliation results
PSGG has supporting the establishment of early warning committees in five provinces with the specific
remit to identify sources of conflict within communities so that such conflicts can be proactively
managed. The establishment of the early warning system ensures that possible conflicts, e.g. physical
attacks on genocide survivors or the promotion of genocide ideology are dealt with effectively, before
such conflicts have time to escalate. The committees were established in early 2009, and evidence
from the field suggests that they are already contributing to increasing security and stability at the
provincial level.
In a country recovering from the 1994 genocide, the role of the NURC in building peace within the
country takes on a particular significance. From a survey of Rwandan citizens undertaken in 2008,
94% of those surveyed agreed that NURC’s interventions contributed to a reduction in conflict.
Outcome 3: Government, civil society organizations, and Private Sector organs actively participate in unity & reconciliation initiatives
In the area of expanding partnerships to promote unity and reconciliation NURC has especially made progress in the areas of engaging local government. NURC & local Government administrations (Districts & Sectors) has planned and implemented unity and reconciliation programmes at district & sector levels. A joint action plan was developed that is in operation now At the decentralized level sensitization programmes have also had positive effects for the targeted groups; religious institutions, district women, youth, media and artist. NURC has through advocacy and targeted sensitization programmes ensured that private sector has improved the mainstreaming of U& R in their activities. 1064 U & R associations were formed
Outcome 4: NURC coordinates effectively interventions and actions promoting Rwandan Unity and reconciliation
80.6% of actors involved in U&R perceive that coordination mechanisms implemented by the NURC
are efficient (source PMEP survey 2010). In the area of coordination of activities NURC has improved
the effectiveness in which the activities are being conducted. Several lower level results/achievements
have contributed to this. Strengthening the individual capacity of NURC staff has been important, both
for technical and administrative staff. The annual reconciliation week has been conducted highlighting
the impact of activities undertaken by partners as well as showing the value added of NURC as an
institution.
5
Completion of strategic documents including NURC strategic plan, communication strategy,
partnership strategy, Itorero ry’Igihugu strategic plan have been achieved through the PSGG and
has contributed to the evidence base and the strategic direction of the organizations interventions.
In the area of improving the evidence base for unity and reconciliation interventions thus
strengthening the coordination and the strategic orientation of the activities, the PMEP and the RRB
have been pivotal (key findings of RRB in Annex).
6
Table 3: PMEP for National Unity and Reconciliation Commission Goal Strengthened NURC as one of the constitutionally mandated institutions to increase state accountability, responsiveness and transparency in the making and implementing of public policy. Purpose The NURC effectively discharges its mandate in an engendered way. Rwandan citizens are active participants in NURC initiatives. Outcome 1: Citizens become informed actors in
areas related to Unity and Reconciliation
O1.1 The % of citizens who feel there is change in social cohesion resulting from NURC initiatives (source RRB Survey 2010)
2008
2009 ------
2010 10% 82.1%
2011 -------
2012 20%
O1.2 The % of people reached by the NURC’s civic education activities who are actively engaged in unity and reconciliation initiatives/actions in their communities. (Source NURC reports20010)
2008
2009 --------
2010 +5% 95.5%
2011 -------
2012 +10%
Outcome 2: Effective Conflict management and
resolution efforts contribute to unity and
reconciliation results
O2.1 The % of Rwandan citizens who perceive NURC’s interventions contribute to a reduction/change in conflicts (source RRB Survey 2010)
2008
2009
2010 +15% 85.4%
2011 --------
2012 +20%
O2.2 The % of community members who perceive that actions of Conciliators (Abunzi) and GACACA structures efficiently contribute in promoting unity and
2008
2009
7
reconciliation. (source RRB Survey 2010)
2010 +15% 82.8%
2011 --------
2012 +20%
Outcome 3: Government, civil society organizations, and Private Sector organs actively participate in unity & reconciliation initiatives
O3.1 Number of associations and/or clubs participating in unity and reconciliation initiatives (disaggregated by school clubs, community associations, individual initiatives) (source RRB Survey 2010)
2008
2009 1,036
2010 1,088 1,040
2011 1,143
2012 1,200
O3.2 Number of activities that are jointly planned and conducted with NURC partners (Data Not Available)
2008
2009 ----- DNA
2010 +10% DNA
2011 +20% DNA
2012 +30% DNA
Outcome 4: NURC coordinates effectively
interventions and actions promoting Rwandan Unity
and reconciliation
O4.1 Annual status report on unity and reconciliation
(Data Not Available)
2008
2009 1 DNA
2010 1 DNA
2011 1 DNA
2012 1 DNA
O4.2 % of actors involved in U & R which perceive that
coordination mechanisms implemented by the NURC are
efficient
(source RRB Survey 2010)
2008 DNA
2009 ------
2010 >70% 80.6%
2011 >80%
2012 >90%
8
National Parliament
The capacities of the National Parliament in the areas of effectively conducting legislative drafting,
executive oversight and citizen representation have been strengthened through improved
organizational capacities and individual capacities. Additionally, the enabling environment for
evidence based legislation, dialogue with the population and oversight has been strengthened.
The establishment of the Research Unit and important studies such as the study on Political Pluralism
and Power Sharing was funded/ co-funded through PSGG. This has contributed to the evidence base
for policy and oversight of the Parliament.
Through the PSGG the Parliament Strategic Plan 2006-2010 was evaluated and the plan for 2010-
2015 was developed. The plan sets priorities and action plans as well as anticipated results for the five
years, based on a clear assessment of the existing resources and capacities. The Strategic plan has been
validated and is now operational.
Outcome 1: Legislative drafting and policy analysis capacity strengthened
The extent to which Parliament is able to hold the Executive to account is a function of many factors,
among them, the research and analytical support resources available to Parliamentarians and
committees. The impact of this has been to improve parliamentary scrutiny of the executive branch of
government. In particular through the support to the research unit, to first of all strengthen its
capacity to independently respond to research related requests from the Bureau and Parliamentary
Committees. Secondly to coordinate the provision of support to the Chamber of Deputies in the
analysis of bills and policies and monitor and evaluate government programs and projects, to
supervise activities related to the examination and writing of opinions and observations on reports
submitted to Parliament by institutions stipulated in the Constitution (Office of the Auditor General,
Ombudsman, NURC, Public Service Commission etc).
The PSGG supported technical assistance in the form of 3 research experts who provided various
services to Members of Parliament including
1) Analysing the National Budget: A comprehensive analysis of the budget was done and report
was used by Senators to make different amendments on the budget as indicated in the
Constitution.
2) Analysing the research on health Sector Policy, Strategic Plan, Family Planning Policy,
Reproductive Health Policy and Norms and Standards for Health Services and Service Delivery.
This research was commissioned by the Senate committee of Social affairs and Human Rights
before it started the field visits to 11 districts to follow up government effort to combat high
population density, reduction of maternity death and infant mortality.
Through the PSGG the Parliament has strengthened its capacity in legislative drafting and policy
analysis. A legislative drafting manual was developed to enhance the capacity of both staff and
Members of Parliament to initiate and review legislation. The manual has provided an overview of the
basics of legislative drafting and has improved the technical knowhow of both parliamentarians and
technical support staff.
9
At the Parliament, the committee clerks are tasked to review and analyse the reports that are
submitted to Parliament from government institutions. The training aimed at enhancing the capacity
in Policy Analysis, Documents Review, Reports Review and Analysis in order to improve the
service delivery to Commissions and provide a better basis for committee and parliamentary debates.
The training also improved the awareness of the committees as a platform to discuss and examine the
critical issues impacting on the effectiveness of Commissions in their oversight work. As a result of the
training members of parliament are in a better position to scrutinize the incoming reports.
The organisational capacity development part of the PSGG has emphasised result oriented planning
and reporting. In this regards the PSGG has supported implementing partners in developing strategic
plans and tools to improve the capacity in these areas. Parliament technical staff received training,
improved their understanding and capacity to advice in matters of ratification of treaties. The
objective was to strengthen their capacities in international instruments ratification process analysis
and follow up. Another important dimension of the training was to develop the understanding of the
particular role of the Parliament in negotiation, signature, and ratification and follow up of
international agreements and instruments.
Through the PSGG the Parliament Strategic Plan 2006-2010 was evaluated and the plan for 2010-
2015 was developed. The plan sets priorities and action plans as well as anticipated results for the five
years, based on a clear assessment of the existing resources and capacities. The Strategic plan has been
validated and is now operational.
Outcome 2: Executive oversight capacity strengthened including Senatorial mandates
In the exercise of their oversight mandate, Parliamentary Committees conduct field visits to
monitor the implementation of government programmes, and prepare evaluation reports, which are
presented to Parliament as one mechanism through which Parliament holds the Executive to account.
PSGG has provided funds to enable the Parliamentary Committees to undertake field visits to monitor
the implementation of government policy in a range of areas, e.g. economic and social development.
The impact of this has been improvement in parliamentary scrutiny of government spending, and
additionally to allow parliamentarians to interact with the general public. These oversight committees
have formulated questions to the respective government institutions sin charge and developed
concrete recommendations.
Oversight missions were undertaken by Agriculture, Livestock development and Environment
standing committee at the Chamber of Deputies in district to review government program “Vision
2020 Umurenge Program”. The objective was to assess to what extent this government programme
is achieving its objective of reducing poverty and inequality in Rwanda. All districts were visited and
subsequent recommendations were made.
Some of the findings from the oversight missions were that some of the districts have not fully engaged
in the program VUP. Other shortcomings focused on procedures, such as the funds taking long to reach
the target population at the districts; that the procedure manuals were not known or used in some
districts and that the evaluation reports were produced at the level of the Ministry. These findings
10
among others have led to some concrete procedure changes. Now the vice mayor in charge of finance
of the district is taking the lead for programme implementation, the manuals of VUP has been
circulated to all districts and the Ministry works more closely with the district when it comes to
evaluation.
The retreat of the budget committee members to assess the 2008 Auditor General report established
some key findings of the assessment including the failure of some institutions to follow guidelines of
public tender procedure law; contracts awarded without the approval of Rwanda public procurement
agency as it is stipulated by the law. The recommendations of the committee were to focus on capacity
development in the area of financial management of local leaders and promotion of the use of web
based public financial management software.
In the area of improving the evidence base for the parliament to take informed decision PSGG has
contributed to some key studies. Launching ceremony of the study on “Political Pluralism and
Power Sharing in Rwanda” was conceived by the Senate: PSGG supported 3 guest speakers from CPA
(Common wealth Parliamentary Association), CSO and private sectors were invited to join debates
(See key findings in the Annex).
Outcome 3: Citizen Representation capacity strengthened (increasing citizen voice in public decision-making)
The Parliamentary Radio that has been developed with the support of both Parliamentary chambers.
The radio station aims at improving access to information on on-going debates and activities in
Parliament to citizens. The PSGG has supported the setting up of the radio, though not yet on air. The
Parliamentary radio will also serve as a platform for other constitutional institutions to relay their
messages and engage citizens in discussion thus contributing to increase government accountability
and responsiveness.
As the PSGG institution performance survey indicates there are differences among the institutions
when it comes to citizen participation, awareness about the institutions and accountability. Through
the PSGG some mechanisms for participation and accountability have been established or
strengthened.
11
Table 4: PMEP for the National Parliament Goal Strengthened Parliament as one of the constitutionally mandated institutions to increase state accountability, responsiveness and transparency in the making and implementing of public policy Purpose Parliament effectively discharges its mandate: Legislative drafting, executive oversight and citizen representation (voice). Parliament effectively Discharges its Mandate: Legislative drafting, executive oversight and Citizen Representation
P1: The percentage of citizens who perceive the national parliament as effectively discharging its mandate disaggregated by: a) drafting laws, b) executive oversight, and c) citizen representation (Barometer survey)
2008
2009
2010
Baseline 2010:
-Drafting laws: 83.9%
- Executive oversight:
77.8%
- Citizen representation:
80.2%
P2 The percentage of citizens listening to Parliament Broadcasts on Radio and Television disaggregated by age and sex
2008
2009
2010
2011
Outcome 1: Legislative drafting & policy analysis capacity strengthened
The number of Commissions of Inquiries established by Chamber of Deputies that report back to the Chamber
2008
2009
2010
2011
-
-
+1
Baseline:3
1
3
Percentage of legislative bills initiated by Parliament as percentage of all legislation passed by Parliament. (disaggregated by CoD and Executive)
2008
2009
2010
Baseline:7.08%
3.5%
4.5%
12
2011
Outcome 2: Executive oversight capacity strengthened including Senatorial mandates
The numbers of reports by the Senate relative to its mandate to ensure constitutional principles are observed.
2008
2009
2010
2011
Baseline:2
2
2
Percentage of legislative bills drafted by the executive that are substantively amended by the Chamber of Deputies
2008
2009
2010
2011
80%
80%
Baseline: 76.47%
78.94%
86%
90%
The number of oversight reports prepared by parliament (disaggregated by concerned commissions or the plenary) that assess the effectiveness of government strategies and plans of action
2008 2009 2010 2011
Baseline: 5 Sen:2 CD:2 Sen:3 CD:3 Sen: 6 CD:8
Outcome 3: Citizen representation capacity strengthened (increasing citizen voice in public decision-making)
Number of committee meetings in which nongovernmental actors are invited to participate disaggregated by civil society, private sector and individual citizens
2008
2009
2010
-
-
+14
Baseline:3
3
17
13
2011
40
The number of Citizens accessing Parliamentary information disaggregated by copies of parliament’s monthly magazine distributed
2008
2009
2010
2011
6 000
10 000
15 000
Baseline: 6 000 Magazines
are printed monthly
6 000
10 000
15 000
14
Media High Council
MHC’s mandate has changed in the course of the programme period. This has required capacity
development on different areas, some technical skills and some professional skills development in
order to allow staff to perform their duties more efficiently. In order to improve the professionalism
of the way the MHC executes its mandate the PSGG has invested in developing the MHC’s staff capacity.
Four Media High Council (MHC) staff studied and completed master’s programmes in management,
communication and law which are relevant to their job responsibilities at the MHC. Also an induction
programme aimed at orienting the newly recruited MHC staff was also held and equipped not only the
new but also the old staff on media regulation and international best practices.
A baseline for media development has been established through the PSGG and the media monitoring
team have improved the way they perform their monitoring functions and report writing. With an aim
to strengthen the media monitors’ capacity of analysis so as to produce reports with tangible
recommendation to the media practitioners and the general public especially during election and
genocide commemoration periods.
Outcome 1: Media freedom promoted and protected
The Media Sector Assessment was conducted in 2011 and describes the two different positions held
on media freedom in Rwanda; those who say the freedom exists and those who say the freedom is very
limited. (see annex for more information). For MHC this study gives an indication of where there are
gaps in the capacity and where perception of weaknesses in the media sector is for various
stakeholder groups.
Under the PSGG various debates, studies and assessments were undertaken to assess the status of
media freedom and professionalism and perceptions about the media. The purpose of these processes
was to establish baselines for the media sector as a whole to determine progress and identify gaps.
Debates on radio and television have provided an opportunity for media practitioners to
discuss/debate the issues surrounding media freedom in Rwanda.. Public debates on radio on media
freedom and access to information have been conducted through the PSGG.
Media freedom has been promoted and protected through a number of events that have brought
together key stakeholders of the media sector. 641 local government officials (mayors, districts and
sector executive secretaries), representatives of security agencies at district level have improved their
knowledge on media and its role in fast tracking development of local government. The workshops
focused on themes regarding the rights and responsibilities of journalists, the rights and
responsibilities of local leaders in the Media, the Role of the media in promoting Good Governance and
development, and the role of media regulations. The presence of women in this sensitization was very
low compared to male counterparts. The short term outcome from the sensitization (according to the
80% local government leaders participated in the event) is that the workshops added value to their
daily practices. In order to fully facilitate journalists to access news, however, they proposed the MHC
15
to start the introduction of this culture with central government leaders who are most of the time the
ones to influence the local government leaders’ practices.
National Media Dialogues have promoted increased openness and consultation in the media sector.
The annual event has been catalytic for media reform and has brought together media, government,
thematic experts and other media stakeholders to discuss issues in media and in general and on how
media can be a developed to be a business oriented industry. The 1st & 2nd National Media Dialogues on
media freedom and media development held respectively in 2009 and 2010 at Kigali bringing together
senior government officials, media stakeholders with good governance and press freedom and human
rights in their remit. The dialogues provided a platform for open debate by all stakeholders on the
challenges of media development, professionalism and media freedom in Rwanda and agreeing on
appropriate strategies to ensure a free, responsible and sustainable press.
Outcome 2: Media professionalism and development promoted
A re-occurring complaint of media practitioners and government has been lack of common
understanding of the language when it comes to describing the 1994 genocide events and the
aftermath. To address this, guidelines on appropriate journalistic language in relation to the 1994
genocide were developed in consultation with CNLG, IBUKA, NURC, INTEKO IZIRIKANA, media
practitioners and linguists.
A capacity assessment of media associations was undertaken through PSGG, and subsequent
capacity development plans with strategic orientations were developed. Based on the plan, trainings
and knowledge sharing activities were undertaken. Media associations (ARJ, Press House, RFEM and
RMEC) have been supported to improve their knowledge on professional rights and promote
professional ethics through study tours.
The role of MHC during elections has been to sensitize the public on political organizations’ access to
information and official communication channels. Secondly media practitioners have been targeted for
sensitization on how to ensure fair election coverage and informative and educative documentary film
on the media role and the code of conduct during the electoral period, produced and aired on TVR in
2008.
Outcome 3: A sustainable media regulation system implemented
The MHC is mandated to ensure that all political parties, organisations, and private candidates have
equal access to public media organisations. With PSGG funding, the MHC designed regulation
governing access to public media by political organisations for the 2008 Parliamentary elections. The
development of regulations governing access to public media by political organisations is a major
achievement for the MHC. These regulations are critical to ensure that media coverage is even across
all political parties and contributes to free and fair elections. Through PSGG, MHC ensured that
political organizations (parties) and independent candidates have equal access to public media, esp.
during electoral period as a mandate given to the institution by article 74 (1&2) of Law No 18/2002 of
11/05/2002 and Presidential Order No 99/01 of 11/12/2002.
16
The MHC website was supported through PSGG and is now available to provide the public with an
opportunity to access all information on services they can get at the MHC, various regulations and
procedures used in licensing media houses, documentation on state of media in Rwanda, online
library, submission of complaints online and other relevant information on media sector in Rwanda.
Through the website the public can also provide feedback to MHC, in addition to social media,
feedback forms and by sending e-mails to the staff in charge of the service of their interest.
MHC board members have improved their knowledge of how different media regulation systems
function through participation in study tours to Ghana, Benin, Ivory Coast and Botswana as well as
training courses on media regulation. Knowledge on the functioning of regulatory bodies guided the
MHC in establishing various regulations required to be implemented by the law especially during
elections. These learning processes have been undertaken as south-south partnerships.
Outcome 4: Monitoring and Evaluation
Gender audit in May 2009, left the Media High Council with a clear picture of the level of gender
practices within the institution and the way forward for a gender mainstreaming process. Staff of MHC
has improved their capacity in the area of gender mainstreaming. This has contributed to and
improvement of the gender sensitivity of the planning for 2011/2012. An MoU between MHC & GMO
has been initiated to spearhead gender mainstreaming in media sector and further strengthen the
MHC capacity in fostering gender sensitive accountability by designing and implementing the Gender
Mainstreaming Strategy by December 2010.
MHC conducted various studies sponsored by PSGG whose purpose was mainly to establish baselines
on PMEP’s indicators and to provide some information on the various issues related to Media
Freedom, media professionalism and media development. Among these studies the Media Sector
Assessment was finalised in June 2011, an audience Survey in 2009, Feasibility Study for the
establishment of a media subvention fund in 2008, etc. All these tools helped a lot in the monitoring
and evaluation of MHC’s activities, due to tangible indicators and informed decisions.
17
Table 5: PMEP for Media High Council Goal Strengthened MHC as one of the constitutionally mandated institutions to increase state accountability, responsiveness and transparency in the making and implementing of public policy Purpose MHC effectively discharges its mandate:
ensuring media freedom and implementing a
sustainable media regulatory system.
P1 Points improvement in IREX rating in the Media
Sustainability Index (MSI). IREX rates countries against 5
media objectives, e.g. freedom of speech; plurality of news
sources, etc.
(data to be collected via a PSGG wide qualitative survey)
2008
2009
2010
2011
2012
2.29
2.49
2.79
3.19
3.64
2.29
Not available
Not available
Not available
P2 The percentage of citizens who perceive the local media
as the principle means for ensuring state accountability,
responsiveness and transparency in discharging its public
functions
(data to be collected via a PSGG wide qualitative survey)
2008
2009
2010
2011
2012
-
-
-
33.7
50
-
-
33.7
Not available
Outcome 1: Media freedom promoted and protected
O1.1 The percentage of media practitioners registered with MHC that perceives the current environment as promoting and protecting media freedom.
2008
2009
2010
2011
2012
-
-
-
41.3
75%
-
-
41.3%
66%
O1.2 The number of media outlets disaggregated by print, radio, TV that provide Rwandans with information on public matters, (social, economic and political matters) (media assessment to be carried out by individual experts contracted by the Media High Council)
2008
2009
2010
2011
-
-
-
33.6
-
-
33.6 (baseline)
Not available
18
2012 50
O1.3 Legal framework protects and promotes media freedom disaggregated by free speech and access to public information. As measured by % level of compliance to international standards. (this media legal framework assessment to be carried out by independent experts contracted by the Media High Council)
2008
2009
2010
2011
2012
-
-
-
-
76%
-
-
-
66% (baseline)
O1.4 The number of reported cases found to be violating media (journalists) rights and freedoms as percentage overall cases reported disaggregated by MHC or RMEC, Police and by print, radio and TV. (Media High Council will collect this data and report to PSGG)
2008
2009
2010
2011
2012
-
-
-
-
90%
-
-
-
73%
Outcome 2: Media professionalism and development promoted
O2.1 Journalism/journalists meet professional standards of quality. As measured by the improvement in the rating by IREX in terms of the IREX scores specifically on the component of professional journalism. (as measured by IREX score)
2008
2009
2010
2011
2012
2.70
2.80
2.95
-
50%
-
-
-
35%*
O2.2 Number of sustainable media outlets (ratings by IREX) (as measured by IREX score)Following the 2010 PSGG/JGA/GAC survey findings, this indicator baseline should be the figure in % in Actual column which will be confirmed after validating the GAC survey report.
2008
2009
2010
2011
2012
2.01
2.06
2.12
-
70%
-
-
-
58%*
O2.3 % of citizens that perceive that the media exercises professionalism and integrity in reporting on
2008 - -
19
national and local matters (data to be collected via a PSGG wide qualitative survey)
2009
2010
2011
2012
-
-
34.9
50
-
34.9 (baseline)
34.9
O2.4 Support institutions effectively providing services to independent media outlets (as measured by IREX score)
2008
2009
2010
2011
2012
1.95
2.00
2.07
2.15
2.25
-
-
Not available
Not available
Outcome 3: A sustainable media regulation system implemented
O3.1 Stakeholders appreciation of the MHC as an effective professional media regulatory organisation (data to be collected via a PSGG wide qualitative survey)
2008
2009
2010
2011
2012
-
-
-
>60%
70%
-
-
> 60%
Not available
O3.2 No of reported cases and complaints on media law, ethics and deontology resolved by the MHC and self regulatory organisations as a percentage of total complaints against the media (Media High Council will collect this data and report to PSGG)
2008
2009
2010
2011
2012
-
-
-
-
90%
-
-
-
80%
20
National Human Rights Commission
Through the support of PSGG the National Human Rights Commission has been able to extensively
promote and sensitize target groups on human rights. This forms part of the mandate of the NHRC,
but also part of the strategy; Creating a critical mass that is aware of human rights as it relates to
themselves and their communities as well as the mechanisms in place for protecting human rights.
During the period of PSGG the following stakeholders have been targeted, with the objective of
creating a critical mass that has knowledge of human rights principles and mechanisms in Rwanda.
The identification of the target groups which facilitate the Commission to propagate knowledge on the
human rights is based on the group structure ramification as well as capacity of Influence The trained
group leaders become trainers of the members of their groups
The main target groups have been 1) Religious leaders, 2) Teachers, 3) Police and 4) Local Authorities.
Other groups have been identified by virtue of meeting a big number of persons in their daily work. In
this context the trainings in human rights were given to the prison supervisors and to the
representatives of associations of youth, women, farmers, craftsmen, people with disabilities and
historically marginalized people.
In order to improve retention of information and to verify if the training has reached its objectives,
NHRC undertakes follow-up visits with participants three months after the trainings. During this
follow-up an evaluation is conducted. NHRC’s report shows that around 80% of the participants have
improved their knowledge of human rights. There have been some challenges related to evaluating the
participants who are illiterate, as the training modules are text based.
The improved availability of data has facilitated NHRC’s capacity to advocate for key human rights
issues. The NHRC have been actively involved in legislative processes and reviewed text to ensure
conformity with the human rights principles (2007/2008).
Outcome 1: NHRC effectively conducts human rights promotion, with a particular focus on public sector agencies
The NHRC has effectively conducted a series of human rights promotion interventions that have led to
increased awareness and activities on human rights. 22 897 primary school teachers, 697 religious
leaders ,300 police officers, 1159 youth associations representatives , 236 Executive secretaries of
sectors , 599 members of National Women Consul and 1579 local defence forces have been trained on
human rights and have made a commitment to cascade training in human rights down to their
communities. 1037 members of COPORWA Association (historically marginalized group) and 145
people with disabilities acquired knowledge about their human rights to assist them in coming out of
their marginalization & participate with other Rwandese in the development of the country
In addition, in order to protect the rights of those living in rural areas, training has been provided to
1000 volunteers who were tasked with monitoring and reporting on human rights violations within
their communities. Developing a network of trained volunteers provides a cost effective mechanism
21
for the Rwandan public to report cases of human rights violations within their communities, which
may not otherwise be reported.
The NHRC strengthened its capacity to effectively promote the human rights through the public
institutions and through working closely with priority stakeholder groups. Leaders of selected public
institutions and the target groups have improved their knowledge on human rights as well as their
ability to train and advocate for human rights issues within their respective fields.
Outcome 2: NHRC effectively ensure human rights protection through investigation of received complaints and monitoring of human rights respect
The NHRC’s capacity to investigate complaints and monitor the respect of human rights has been
strengthened. Through the establishment of an information management system and case handling
mechanism the capacity to monitor, promote and protect human rights has been strengthened. The
application of the new system has reduced the time for the NHRC to process cases to 30 days. It has
also provided an improved overview of the scale and forms of violations in the country.
Since the beginning of PSGG the case handling capacity of NHRC has increased significantly, from 842
in 2006 to 2743 in 2010-2011. This can be attributed to the improved individual capacity
development of the staff members as well as the mechanisms for case-handling that have been
institutionalized.
NHRC has also been able to ensure regular monitoring of prisoner files and prison facilities and of
elections and election campaigns.
Outcome 3: NHRC institutional capacity to undertake HR’s mandates strengthened
NHRC’s institutional capacity has been strengthened through the PSGG. The institution has invested in
capacity building of staff through national and international trainings and consultative meetings.
The relationship and the mechanisms for consultations with civil society (“Consultative Meeting) have
been strengthened through the PSGG. This forum provides the opportunity to share experiences and
lessons that will help to build a culture of human rights, peace and development by working together.
The consultative meetings have reinforced collaboration between national, regional and international
actors and provided the opportunity to share the human rights situation with representatives from
other countries.
NHRCs capacity has also been strengthened through the provision of equipment and materials that
have facilitated the work of staff and volunteers of the institution to better and more efficiently
perform their tasks.
22
Table 6: PMEP for National Human Rights Commission Goal Strengthened NHRC as one of the constitutionally mandated institutions to increase state accountability, responsiveness and transparency in the making and implementing of public policy. Purpose: The NHRC effectively discharges its mandate: Strengthening the rule of law through the promotion &
protection of human rights
P1 The percentage of human rights complaints resolved
by NHRC (from the total of complaints received)
(data collected by NHRC)
2008
2009
2010
2011
85%
95%
98%
98%
62%
63%
77 %
P2 The percentage of implementation reports on
recommendations reports (concerning UN Human Rights
instruments to which Rwanda is signatory) from treaty
bodies
2008
2009
2010
2011
2012
100%
100%
100%
100%
100%
0%
100%
100%
P3 The percent of citizens who believe that the National
Human Rights Commission widely contributes to human
rights protection and promotion
(JGA Survey report :February 2010 and Rwanda
barometer survey report September 2010)
2008
2009
2010
2011
2012
-
-
90%
95 %
80 %
Outcome 1: NHRC effectively conducts human rights promotion, with a particular focus on public sector agencies
O1.1 Number of activities implemented in partnership with institutions (NGOs, GoR, and Private Sector) for HR promotion disaggregated by type of institution.
2008
2009
2010
2011
2012
10
15
20
-
-
12
13
12
23
O1.2 Number of reported human rights abuses that are submitted by the NCHR to competent / concerned authorities ( Procurer General, Relevant Ministers)
2007
2008
2009
2010
2011
2012
-
-
-
-
250
128
295
432
362
Outcome 2: NHRC effectively ensure human rights protection through investigation of received complaints and monitoring of human rights respect.
O2.1 The time it takes to record and investigate human rights violations
2008
2009
2010
2011
2012
30 days
average per
case
O2.2 Number of files / cases related to human rights violation received and investigated by the Commission (data collected by NHRC)
2008
2009
2010
2011
2012
-
-
-
1500
1066
1220
1019
Outcome 3: NHRC’s institutional capacity to undertake HR’s mandates strengthened
O3.1 Number of staff who state that they are performing their jobs as a result of the knowledge and/or skills acquired through training (provided by PSGG) (staff survey undertaken by NHRC)
2008
2009
2010
2011
2012
-
-
90
95
92
O3.2 Number of NHRC Partners who are satisfied with received training and equipment in order to improve their work (partners survey undertaken by NHRC)
2008
2009
2010
-
-
90
91
24
2011
2012
95
25
National Women’s Council
PSGG has strengthened the capacity of NWC to effectively coordinate and collaborate with public,
private and nongovernmental organizations to promote women’s political empowerment. This has
been achieved through capacity building interventions at the institutional and individual levels.
Capacity of core staff, members and the population at large have benefitted from these interventions.
For the NWC to strengthen its capacity to efficiently deliver its mandate it was important to address
the issue of gender. The gender policy of 2004 was revised in 2010 by the cabinet ministers and the
emphasis here was put on women’s empowerment.
Outcome 1: Targeted public, private and non-governmental organizations effectively promote the social, economic and political empowerment of women
For National Women’s Council a challenge to effectively execute their mandate was identified as lack of
clarity of actors and interventions in the area of women’s empowerment. To respond to this challenge
a mapping of organizations was undertaken. The final mapping document indicates the profiles of all
organizations working in the area of women promotion and will help to reduce wastage of resources
that was formally used by the organizations that do the same activities at the same time and to the
same people.
Another challenge identified by NWC was communication internally and externally. PSGG supported
NWC to develop a clear communication strategy. This Communication strategy has enabled NWC to
disseminate information more effectively among members and partners.
Through the support of PSGG, there was increased capacity in NWC to promote and influence
improvement to gender equity and women’s empowerment. Spouses were able to attain trainings on
various topics of; family law; property law, law of succession, family planning. District staffs were also
sensitized on legislation relating to gender equity and women empowerment.
Outcome 2: Women effectively participate in good governance including the making and implementing of public policies
NWC has emphasised training and individual capacity building of the members from national level to
cell level. In order to create a critical mass who understand the EDPRS, its concepts and goals, NWC
has conducted training in EDPRS monitoring and evaluation. This has strengthened the capacity of
women to lobby local and central government for gender sensitive social economic development.
Women groups are now better equipped to monitor the progress of EDPRS within their own
communities. PSGG supported in the capacity building of institutions involved in EDPRS
implementation, monitoring and evaluation in order to meet women's needs and raise awareness. This
awareness raising enabled women’s groups to lobby government to ensure that their interests (social,
political and economic) are represented. Through this program, around 3,000 women were targeted in
30 districts.
26
In order to strengthen the implementation of public policy and good governance, PSGG supported the
creation of Gender Committees within the Joint Action Development Forum in the Districts. The
members of this Joint action development Forum are the District staffs, Civil society, private sector and
any other stake holder (partner) in the development of the District. The creation of this gender
committee will help to assess how effectively gender has been mainstreamed in every stake holder’s
plans and programs working within the District.
Through NWC advocacy National Women’s Council Executive Committees are now members of the
Consultative Councils at the district level and other members participate in security and coordination
meetings at the district and province levels. The result of this is more active participation of women in
the key sectors at the district and provincial levels. This ensures greater input of women in the
decision-making process.
Following NWC elections in 2011 the newly elected women committee members were trained in
leadership skills, good governance and result based planning. The training has enabled the new
committee members at national level and decentralized levels to better understand the role of women
leaders in the development process and to improve the knowledge on the law that governs NWC.
Outcome 3: NWC promotes the economic, social and political interests of women
NWC capacity to systematically and strategically promote women’s rights has been strengthened
through development of a gender mainstreaming strategy with an action plan that targets obstacles to
promotion of women’s rights.
The National Women’s Council gender mainstreaming strategy was established with the assistance
of PSGG and this will provide a guide to mainstream gender across the institution and enable NWC to
better represent the needs of women. This strategy was organized at the PSGG central level for
reasons of efficiency and cost effectiveness.
Gender capacity building plan in all IPs was also developed and implemented with the help of PSGG.
A gender capacity needs assessment was first developed for all PSGG institutions and It was then
followed by the special training given to all staff of the IPs on gender mainstreaming and gender
concepts. After the training, gender gaps existing within the IPs were identified and hence a gender
capacity building plan (GAP) developed.
27
Table 7: PMEP for National Women’s Council Goal Strengthened NWC as one of the constitutionally mandated institutions to increase state accountability, responsiveness and transparency in the making and implementing of public policy. Purpose : The National Women Council Effectively Discharges its mandate in an engendered way: Empowering women to more effectively participate in the social, economic and political development of the country at all levels
P1 Equality of all Rwandans (men and women) reflected by ensuring that women are granted at least 30 percent of positions in decision making organs, disaggregated by Senator / Deputies, Cabinet Members and Judges
April 2010 % Men % Women
Ministers 72 28
State Ministers 33 67
Deputies 49 51
Senators 63 37
Supreme Court judges
50 50
High Court 50 50
Com. High Court 62 38
Higher Courts 63 37
Lower Courts 64 36
2010
2011
-
50%
-
100%
P2 Number of key decisions makers from the national to district levels that believe that the NWC has empowered women to more effectively participate in the country’s social, economic and political development at national and district levels
2010
2011
80%
80%
90.5%
28
P3 Number of key women decision makers who feel they are effectively representing women’s interests from the national and district levels
2010
2011
85%
85%
92.9%
Outcome 1: Targeted public, private and non-governmental organizations effectively promote the social, economic and political empowerment of women
O1.1 Number of targeted public, private and non-Governmental organizations who have mainstreamed gender in their organizational strategic plans, programs and budgets (disaggregated by public and non-governmental
2010
2011
35
35
80
O1.2 Number of targeted laws and policies that are implemented by concerned public agencies in conformance with gender equality principles. (An index of key laws/policies: Land organic law, inheritance law, Gender based violence law, Girls’ education Policy, and engendered budget)
2010
2011
8
8
7
Outcome 2: Women effectively participate in good governance including the making and implementing of public policies
O2.1 Percentage of women who are members of important decentralized Government organs from the Provincial to the sector levels (e.g., Provincial coordination committees, District and Sector Executive Committees)
March 2011
% Men
% Women
Districts Executive Committee
67 33
Members of the Districts
55 45
2010
2011
35%
35%
39%
29
Consultative Committees
O2.2 The number of targeted EDPRS sector policies and programmes that mainstream gender equality
2010
2011
8
8
All 11 sectors because gender is cross cutting
O2.3 The number of targeted EDPRS implementing partners (e.g., concerned ministries) that mainstream gender equality in their programs and projects
2010
2011
100%
100%
100%
30
Gender Component
In August 2008, as part of an effort to promote gender equity, the gender component was introduced
into the PSGG. This saw a sixth implementing partner being brought on board, enlarging the scope of
the programme’s interventions to include the National Women’s Council (NWC). The gender
component has had certain common activities and certain activities for the respective IPs. The
awareness of the
Results for all the implementing partners:
Gender Audits conducted for all the implementing partners identifying the gender gaps for the
respective institutions
Gender Teams have been established to support and oversee the gender mainstreaming
process of the institutions
Gender Mainstreaming Strategies have been developed for all IPs
Programme Monitoring and Evaluation plans (result formulations and indicator formulations)
have been gender mainstreamed.
An important aspect of the gender component has been to build the capacity of staff from the PSGG
institutions in the area of gender mainstreaming. A consultant was hired to conduct the trainings
based on the gender mainstreaming training needs assessment done in the previous period. The target
has been to ensure that professional staff members have enough skills to mainstream gender in their
daily work. All IP staff has benefitted from the gender capacity development programmes and the
training manuals have also been developed and distributed to the IPs to be used for further reference
for the participants.
Some of the recommendations that have come out of the trainings are to continue the training on the
practical sides of gender mainstreaming, with a special focus of gender responsive planning and
budgeting. Furthermore, support should be provided to the gender teams to facilitate gender
mainstreaming within their institution.
In order to ensure sustainability and to strengthen the commitment of institutions to the gender
mainstreaming process a consultant was recruited to assist the PSGG institutions to develop gender
mainstreaming strategies. The main objectives were:
To help clarify the vision of key constitutionally mandated institutions responsible for
promoting state accountability and responsiveness to mainstream gender equality in their
work.
To provide a strategic paper for each of six Implementing Partner (IP) agencies that outlines
how they should position themselves relative to wider government processes to help foster
gender equality.
To identify key gaps in gender equality for particular sectors covered by IP mandates, thereby
stressing areas where IPs may make strategic contributions to reducing gender inequalities.
At the time of reporting the gender mainstreaming strategies have been developed for all
implementing partners of IPs.
31
Programme Monitoring and Evaluation Plans (PMEPs)
A strategic adviser was recruited to strengthen the monitoring and evaluation framework of the
programme, and to support this function within each of the implementing partners institutions. As a
result of the collaboration between the strategic adviser and the PSGG partners PMEPs were
developed for each of the IPs with the overall objective of moving PSGG from its early emphasis of
reporting on outputs, to a results based management approach, with a focus on outcomes.
Implementing partners worked with the PSGG Strategic Adviser and the Programme Manager to
review and reduce the number of indicators to be monitored to around 10-12 per institution. This
activity was essential to ensure that monitoring and evaluation activities were both manageable and
cost effective.
With the support of the International Gender Adviser, an additional set of gender indicators were also
developed and included for measurement. Three performance indicators at the level of PSGG were
developed and incorporated into the PMEPs. Each of the implementing partner’s previously
formulated indicators were reviewed and where appropriate, were gender disaggregated.
The baselines for the indicators have been populated through national comprehensive research such
as the Joint Governance Assessment and the Rwanda Reconciliation Barometer as well as individual
IPs studies in their respective sectors (e.g Media Sector Assessment). Currently implementing partners
have baselines for most PMEPs indicators and are committed to either
During the End of Programme retreat the implementing partners reflected on the ways in which the
PMEPs have strengthened the institutions as well as the challenges. The outcomes of the session was
that the PMEPs and the baselines collected for them has helped all the institutions to better
comprehend how the institutions are perceived by the public, it helped for instance the parliament to
become more result oriented and eventually equipped the parliament with the necessary skills to
collect data.
As for challenges, the lack of a comprehensive participatory approach in developing the indicators
complicated the integration of the tool into the institution. The parliament argued that the PMEP, as a
consequence of the before mentioned, was not properly embedded in the Parliament and that only a
limited number of the staff was aware of its existence. A second challenge has been to ensure that the
tool is seen as beneficial to the whole institution and not just for the sections involved in the PSGG on a
daily basis.
32
5 Financial Implementation
Management cost and General Management Support fee (GMS)
According to UNDP regulations all funds mobilized from partners in country is subjected to
overhead cost calculated in percentage of the received funds this percentage is determined at
the level of the Executive Committee and governs UNDP globaly. These 7% are not to be
considered as part of the programme budget and are deducted from UNDP Rwanda accounts
and redistributed to Regional Offices, HQ, and country office according to UNDP rules and
regulations and are not to be considered as part of the programme activities budget. The
management cost that appears in the financial overview of this section refers to management
and coordination cost of the project at the level of the managing agent and the implementing
partners.
Management budget to support implementation
In UNDPs financial management system no separate projects have been created for the
management funds as these are considered as support to the implementation of the
implementing partners separate projects. In order to easily be able to extract the budget and
expenditures from implementing partner projects in UNDPs financial management system this
budget has been allocated as a specific activity. 2010 management expenditure can therefore
easily be identified. However, in the case of this report the carry-over of amount of funds from
2009 to 2010 is presented together with the Parliament project.
As a consequence of the period without a programme manager paid over the PSGG budget the
balance on this budget is higher than for other projects. However, as the last section on financial
implementation plan for 2011 will show, this balance will be redistributed among implementing
partners to achieve the planned targets for PSGG.
The following two tables show a breakdown of the expenditure per fund. T
33
Table 8: Expenditure for DFID funds (Cost Sharing) (USD)
IP 2007 2008 2009 2010 2011 Total GMS of total
CS-DFID CS-DFID CS-DFID CS-DFID CS-DFID CS-DFID
Parliament-57139 55,199.90
188,739.11
334,085.23
284,899.80
397,212.56
1,260,136.60
55,064.20
NEC-57729 497,770.91
260,289.81
- - -
758,060.72
36,098.13
NURC-57833 219,920.50
484,838.68
354,083.35
351,951.56
270,303.36
1,681,097.45
95,330.64
OO-59293 106,346.12
559,933.40
298,928.55
284,328.97
1,249,537.04
51,653.35
NHRC-46259 208,428.85
379,450.88
114,041.95
(3,460.36)
30,459.87
728,921.19
32,676.46
MHC-60184 239,285.39
215,298.51
63,352.96 -
517,936.86
24,579.29
NWC-69910 - -
63,834.05
47,304.16
183,593.62
294,731.83
16,515.20
Gender Component
- -
77,610.36
247,483.27
(18,453.61)
306,640.02
14,096.83
Management 69,454.16
497,361.96
156,345.11
67,886.79
135,180.10
926,228.12
45,437.76
TOTAL 1,050,774.32
2,156,311.95
1,875,231.96
1,358,346.73
1,282,624.87
7,723,289.83
371,451.86
34
Table 9: Expenditure for UNDP- Trac funds (USD)
IP 2007 2008 2009 2010 2011 Total
TRAC-UNDP TRAC-UNDP TRAC-UNDP TRAC-UNDP
TRAC-UNDP TRAC-UNDP
Parliament-57139 81,504.08
47,458.81
138,830.22
343,596.22
234,505.12
845,894.45
NEC-57729 27,001.94
103,925.25
- -
-
130,927.19
NURC-57833 0 99,663.61
91,096.24
38,419.32
86,480.26
315,659.43
OO-59293 37,899.46
96,175.19
127,421.16
121,380.41
19,274.49
402,150.71
NHRC-46259 141,537.87
110,183.17
90,479.38
205,324.89
181,519.80
729,045.11
MHC-60184 96,410.34
130,921.79
181,853.92
252,617.80
661,803.85
NWC-69910 -
-
-
162,243.56
51,189.68
213,433.24
Gender Component
-
-
- -
- -
Management -
-
-
29,942.75
69,498.93
99,441.68
TOTAL 287,943.35
553,816.37
578,748.79
1,082,761.07
895,086.08
3,398,355.66
35
Table 10: Total Expenditure per implementing partners in USD Total expenditure per IP
Parliament-57139 2,106,031.05
NEC-57729 888,987.91
NURC-57833 1,996,756.88
OO-59293 1,651,687.75
NHRC-46259 1,457,966.30
MHC-60184 1,179,740.71
NWC-69910 508,165.07
Gender Component 306,640.02
Management 1,025,669.80
TOTAL 11,121,645.49
Balance of DFID Funds
Due to delayed implementation of some activities in particular the follow- up study of the
Rwanda Reconciliation Barometer, not all funds made available from DFID to the PSGG work
plan for 2011 have been utilized.
As part of the programme closure Implementing partners have returned all unused funds to
UNDP. The remaining balance of DFID funds with UNDP 124,255. From this the GMS for Q4
payments will be deducted (13,570 USD), leaving final balance of funds at 110,684 USD.
36
6 Strategies for ensuring sustainability
The concern of the sustainability of the results achieved through the PSGG has been addressed by the steering committee. The level of commitment of the Steering committee members (heads of institutions) has been noticeable to the ways ensuring that programme activities are not seen as separate from the institutions core programme. The End of Programme Retreat worked on strategic actions for each institution to ensure sustainability of achievements, see Annex.
37
Annex 1: Action oriented plan for ensuring sustainability
Achievement Strategy/action Responsible
OO
Internal regulation improved Operational audit to ensure their implementation Director/prevention and fighting corruption Transmission of injustice and corruption cases to courts
Improve quality of case reports Gathering and keeping evidence Adaption of investigation tools
Management team
Citizens involved in fighting injustice and corruption
Support anti-corruption clubs Involve civil society Improve communication with citizen
Management team
Increase accountability and transparency Improve the verification of assets Scope Quality
Director / asset declaration
Strengthening staff capacity Training on special skills Investigation techniques e-crimes investigation
Management team
NURC
Citizens become informed actors in areas related to unity and reconciliation
Training of SCUR committees’ development of their actions and reporting
Training of heads associations in development of their actions and reporting
1. Ensuring that local Gov. has put activities of U&R in their service contracts (sensitization).
Director for C.E
Capacity building 2. Continued training of research unit so that they can uphold all NURC’s undertakings in different researches
3. Training of NURC staff on gender component in their process of planning, budgeting and execution of NURC action plan
Human resource officer
38
Parliament
Research unit has been strengthened Needs assessment of unit capacities. Clerk Technical skills of staff improved Needs assessment.
Build capacities of technical staff. Clerk
Oversight mission constructed Build capacity of PAC (technical capacity of staff & system) Clerk Establishing radio Sensitization programs for citizens to access the radio
(marketing strategies) Competent journalists to run the radio Sustainability of radio (Business plan) Resource mobilization – donors and parliament.
Clerk
MHC
Public awareness of media rights and responsibilities contributing to the establishment of an environment for free practice and media development
Continuing organizing sensitization sessions on journalists’ rights and responsibilities not only on local government level but also to the central government
Director of Media Development and professional & Media Freedom Advisor
Engaging the civil society organization in the organizing the national dialogue on media freedom/ development
Executive secretary
Increasing new dialogue platforms to better reach the grassroots level
Dialogue and culture diversities officer
Training of the public/media practitioners in using the case handling software
Quality assurance Officer
Establishing a media development index for Rwanda (MDI)
Ensuring that the MDI steering committee is meeting regularly and that data collection to measure progress is done at a regular basis.
Research and statistics officer
Ensuring that the MDI data are gender sensitive Gender team Training manual for professional skills development through short term courses and a programme for implementing a series of media development workshops and a
Partnering with media stakeholders to implement the training manual
Sensitize the media practitioners on the benefits they can get from the short courses
39
forum on professional media management established
Considering media association enhancement to help them professionally advocate for their professional
NWC
Capacity of staff and committee members to monitor the progress of EDPRS strengthened
Continuous training on EDPRS among the new elected NWC Executive committee members at different levels
NWC Secretariat and executive committee at the national level.
Creation of gender committee within JADF in some districts
Continuous advocacy for the establishment of gender committees in JADF in the districts training of the NWC Executive Committee at the district level
Mapping of stakeholders in gender and women promotion.
Reinforce proper coordination by conducting regular meeting on planning and evaluation of activities
Result based planning and SMART indicators
Training NWC staff on planning processes and applying these indicators to all NWC relevant activities and participation of all stake holders in all activities targeting women promotion
NWC Secretariat and other stake holders
Communication strategy developed with concrete recommendations to disseminate information on NWC roles and responsibilities to the public.
Implementing the recommendations developed Dissemination of communication strategy within the
NWC committees at different levels
NWC Secretariat and Executive Committee at the national level.
NWC gender strategy was developed Implementation of the recommendation formulated in the gender strategy.
Dissemination of the gender strategy with the NWC executive committee at different levels
NWC Secretariat and Executive Committee at the national level.
40
Annex 2: Key findings of the Rwanda Reconciliation Barometer
The Rwanda Reconciliation Barometer (RRB) was finalized in October 2010. The study has
emerged from the need for a quantitative monitoring tool that would allow the Commission to
access the most current public opinion on the progress and pitfalls of the country’s national
reconciliation programme, Such a tool would allow it to respond in a more targeted way to
social fault lines and, in the longer term, may serve as an early warning system to potential
sources of societal friction. Public opinion around national reconciliation has, thus far, been an
under-researched aspect in the search to understand national unity and reconciliation
processes in Rwanda, and this report presents the results of exploratory research on this area4.
Some of the findings have in the report been linked to key areas that are critical to the state of-,
and future prospects for national unity and reconciliation in the country.
Political Culture: Survey questions and statements therefore measured confidence in public
institutions, trust in leadership, and the respect of rule of law and courts. In brief, the results
indicate moderate to high levels ( more than 90%) of trust in public institutions overall
(compared to generally lower levels of trust in non-governmental- and private institutions), in
the country’s political leadership. The survey also recorded significantly high percentages of
respondents who indicated participation or willingness to participate in citizen forums (more
than 85%). The major exception to this has been in regard with the willingness to participate in
actions closely associated with protest or dispute (less than 50%).
Citizenship and Identity: Respondents exhibited a strong preference for a national Rwandan
identity (more than 97% overall) and national values, but many participants also incorrectly
believed that references to ethnicity or ethnic groups are prohibited by law or instruction in
Rwanda.
Social Cohesion: The data suggests that citizens sense significant progress in terms of forging
social cohesion in the wake of the 1994 genocide (more than 92% overall). Responses suggest
positive development (more than 80% overall) in terms of inter-ethnic relations and
interactions, as well as the levels of trust that exist between communities that found themselves
on different sides during the genocide.
Human Security: This hypothesis is based on the contention that under conditions of scarcity
in a society with a history of ethnic friction, conflict is more likely to arise along such ethnic
lines. The indicators that were used included: physical security; economic security; equality of
treatment and access; freedom of expression; and respondents’ hope for the future.
Respondents reported relatively high levels of physical and economic security; a majority felt
that great strides have been made in all respects since 1994; and there was significant approval
of the overall direction of the country (more than 90% overall). It was, however, evident that
positive public evaluation for human security was less emphatic than that for most other
hypotheses tested.
4 Rwanda Reconciliation Barometer 2010, 11
41
Transitional Justice: Most respondents felt that significant strides were made in terms of the
creation of domestic transitional justice measures. As far as the International Criminal Tribunal
for Rwanda (ICTR) is concerned, the survey found that although most Rwandans were aware of
its purpose and evaluated it positive (nearly 60%), close to a quarter were not in a position to
wage an opinion on its effectiveness.
Understanding the past: The results show that the majority (87.0%) agreed that in the sixteen
years following the genocide, most of the major issues related to its causes and consequences
have been frankly discussed and understood. However, a significant percentage of respondents
(almost 39.9%) believe that there are people in Rwandan society that would still perpetrate acts
of genocide if given the opportunity.
The RRB instrument has set baseline indicators for future surveys. The results that it has
rendered should, as a result, also be regarded as baseline findings that do not point to an
improvement or decline in the evaluation of the particular indicators. This can only be done
when subsequent surveys are being compared against this first round. The report, therefore,
recommends that the NURC endeavours to ensure a regular update of this instrument in order
to track the current, but also new indicators, should emerge. In addition, and as mentioned
above, it is recommended that this quantitative data should be supplemented by qualitative
approaches, such as focus groups, to further probe the factors that inform these survey
responses.
42
Annex 3: Political Pluralism and Power sharing- key findings
The study on Political Pluralism and Power Sharing in Rwanda was mainly funded by the Senate
but also funded by the PSGG. Pluralism and power sharing are among the constitutional
principles to which Rwanda has committed itself to uphold through the Constitution. It is within
the Senate mandate to supervise the application of these principles.
Power sharing is defined as set of principles that, when carried out through practices and
institutions provide every significant identity group or segment in a society representation and
decision making on common issues. The political space boundaries were extended to capture all
political parties and other strata of society such as women and youth, persons marginalized as a
result of our history. People with disabilities, the media and civil society organizations were also
brought on board.
The study was commissioned by the Senate as a means of investigate the application of the
principles. The Centre for Conflict Management at the National University of Rwanda was
recruited to undertake the study. Two major research approaches were applied in collecting
the data necessary to evaluate the progress of the application of the principles of political
pluralism and power sharing in the country. The first approach entailed literature review which
focused on the theoretical aspects of the two democratic principles in question and the
documented practice of these same principles in pre- 1994 and post-1994 Rwanda. The second
approach involved conducting a survey on Rwandans’ views and perceptions on the concepts of
political pluralism, democracy and power sharing and gathers opinions of the Rwandan people
on the implementation of political pluralism and power sharing in the country today
The findings reflect perceptions of the population on political pluralism and power sharing
reveal the following key issues. Findings indicate that the majority of Rwandans (80%)
interviewed agree with statements confirming that there is political space in our country. 13%
are not satisfied with the extent to which it is exercised in the current context of Rwanda. The
survey reveals that there is a visible variation of citizens’ appreciation on the issue of political
pluralism, political space and power sharing issues depending on their demographic variables.
The study shows that citizens’ level of net satisfaction on the state of principles of democracy in
Rwanda is generally high and ranges between 70% and 87% for all 4 democratic principles.
The majority of our respondents have clearly indicated that the people of Rwanda generally
recognize the independence of both the Parliament (72%) and the Judiciary (69%). However,
15% and 16% of them assert that the Parliament and the Judiciary enjoy partial independence
respectively. Only 4% in the case of Parliament and 6% in the case of the Judiciary are of the
view that these two institutions are not independent at all.
The study formulated recommendations for various stakeholders as strategic measures to
consolidate and sustain political pluralism and democracy towards peace and sustainable
development:
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Building Capable Political Parties: It was recommended to political parties and other
concerned institutions to increase political parties’ capabilities in both human and
financial resources in order for political parties to be able to catalyze political pluralism.
Strengthening Institutions of good governance for greater Impact: It was
recommended that institutions put emphasis in closely monitoring good governance
principles, especially at local level, and design programs aiming at improving good
governance for national development.
Annex 4: Baselines for Media Development and Freedom- key findings
Under the PSGG various studies and assessments were undertaken to assess the status of media
freedom and professionalism and perceptions about the media were conducted. The purpose of
these processes was to establish baselines for the media sector as a whole to determine
progress and identify gaps.
The Media Sector Assessment (2011) addressed issues of media freedom, media
professionalism and media development and was presented and validated at a stakeholder
forum in June 2011. The study described the two different positions held on media freedom in
Rwanda; those who say the freedom exists and those who say the freedom is very limited for.
Findings from the report include:
- 67% of journalists believe that the law promotes and protects media freedom compared
to 24% who do not think so while 9% declined to give opinion.
- 41% of journalists believe that the law does not clearly define limits on media freedom
compared 36% who say it does and 23% who declined to answer.
- 70% of journalists believe that the law promotes and protects the right to seek, receive
and impart information compared to 21% who say it does not and 9% who declined to
give opinion.
- 44% of journalists think that the law is designed to protect public officials from scrutiny
compared to 35% who do not think so (and 21% who declined to give opinion).
- 51% of journalists believe that they freely express their opinions without the fear of
persecution from anyone compared to 43% who say they do not and 6% who declined
to give an opinion.
- 49% believe that public officials and security agents contribute to the protection of
media freedom compared to 37% who do not believe so and 14% who declined to give
opinion.
- 60% believe ORINFOR journalists are given more access to information than
independent journalists compared 27% who believe its equal access.
- 32% of journalists believe that journalism is a respected profession in Rwanda
compared to 57% who say it is not and 11% who declined to give opinion.
Another study that has influenced the capacity of the media sector at large to address capacity
gaps is the 2009 Rwanda Media Audience Survey, whose objective was to examine the state of
media as a platform and create a baseline for audience opinion. Key outcomes of the Audience
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Survey include qualitative analysis of the needs of the audience versus the inputs of the media.
Secondly, it identifies the media needs of different socio- economic groups in Rwanda. The study
also gives recommendations to media outlets to more clearly identify their target audience
which would enable them to better respond to needs and develop specific niches in the sector.
Lastly, there is significant emphasise on improving and increasing the local content of news
outlets to better resonate with the public.
In addition to providing baselines PSGG has facilitated dialogue within the media sector and
between media sector and other stakeholders (government, civil society etc.) The 1st and the
second National Media Dialogues on media freedom and media development held respectively
on the November 2009 and from the November 2010 at Kigali bringing together senior
government officials, media owners and editors, MHC, Representatives of the civil society
organisation and international human rights NGOs. The dialogues attended at the high level
provided a platform for open debate by all stakeholders on the challenges of media
development, professionalism and media freedom in Rwanda and agreeing on appropriate
strategies to ensure a free, responsible and sustainable press.
The recommendations of the National Media Dialogue were:
- Decriminalize libel and slander (defamation) starting from the penal code;
- Journalists consolidate and support their professional associations to promote ethical
and professional code of conduct and self-regulation;
- Speed up the process of installing the web machine and reduce costs of printing;
- Government should enact and implement the access to information law;
- Ministry of education should prioritize journalism training including offering
scholarships to reduce the skills gaps in the profession;
- Repeal the public procurement law to ensure equity and equality between private and
public media organs in adverts;
- Capacity for Public relations Officers should be strengthened so as to decentralise
information and not the latter be limited to the top officials within an institution.
- MHC should endeavour to be seen more independent in practice as the constitution
provides and that deliberate efforts be adopted to move towards media self-regulation
(especially print).
Following the studies, dialogue sessions and extensive consultation with key stakeholders MHC
has spearheaded a Media Reform Process. The media reform process, currently ongoing,
addresses media self-regulation, privatisation of media, access to information among other
elements. These changes in the legal and policy environment can be seen as directly related to
the dialogue and data collection processes supported by the PSGG.
Currently, the following processes are being discussed at either cabinet or parliament level:
Repeal the penal code article 391 on criminal defamation;
Expedite the process to enact the “Access to Information” law;
Encourage higher institutions of learning to establish departments of journalism to cater
for the increasing demand;
Revision of Media law, MHC law, and media policy
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In an effort to build a strong national base for promoting the mandate of MHC, “promoting
media freedom and media development and professionalism in the sector “, the institution has
undertaken considerable sensitization measures among leaders at the decentralized levels as
well as among media sector stakeholders. From MHC findings the understanding of journalist
rights were not well understood at the decentralized level. The major challenges in relation to
media freedom and access to information in Rwanda that has been identified as being hinder by
ignorance of officials and the general public of the role of journalists in national development.
Hence, in 2008 and again in 2010/11 a campaign targeting government officials to sensitize
them on the rights and responsibilities of journalists was conducted. As a result opinion leaders
and local leaders at the decentralized levels have improved their awareness of journalist rights
and responsibilities. Local government and public relations officials believe in progressively
improving the way to access to public information at various levels of public and private sectors,
however, they believe that the fulfilment of access to information is possible when it starts at
the policy level and top level public officials.
To better understand the capacity gaps of media associations capacity assessments were
undertaken of media associations; 1) the Rwandan Women’s Journalist Association (ARFEM) 2)
the Rwandan Editors Forum (REFO), 3) Rwandan Journalist Association (ARJ), 4) and the
Rwandan Media Ethics Commission (RMEC) to determine the principal constraints which
inhibit the organisations from delivering on their mandates
Media capacity gaps are the following among others:
- Media associations are perceived to be weak, divided, ineffective, poorly managed,
fragmented and lacking focus;
- Media associations are not enough capable of advocating for promoting and protection
of media freedom;
- Journalist associations lack permanent premises to work from, lack funds to recruit and
retain permanent staff and a number of print media outlets lack offices, no donor or
development partner is interested or willing to fund these ventures that would ensure
sustainability;
- Most of Media Associations do not have internal rules and regulations and they are not
legally recognised.
