Report No. 12182-MAU

MauritaniaPoverty AssessmentSeptember 23,1994

Africa RegionSahelian DepartmentCountry Operations Division

MICROGRAPHICS

Document of the World Bank

Report No: 12182 MAUType: SEC

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CURRENCY EQUIVALENTS

Curecy Unit: Mauritania Ouguiya (UM)Official Rate: US$1.00 = UM 123.32 (May 1994)

ACRONYMS AND ABBREVIATIONS

ADB Afican Development BankAMEXTIPE Agence Mauitanienne pour l'Ex6cution des Travaux Public et de l'EmploiCCGO Cellule de Coordination Gouvernement-ONGCHN Cetre Hospitalier NationalCMSN Militay Committee of National SecurityCPF Centre pour la Promotion FeminineCPI Consumer Price indexCSA Commissaiat à la Sécurite AlimentaireCUE Catch per Unit of EffortDPT Diphteria, Whooping Cough, TetanusFAO Food and Agriculture OrganiationFEWS Famine Early Warning SystemFFW Food-for-WorkFIRVA Ponds à l'Insertion et à la Reinsertion dans la Vie ActiveFOM Fdration des ONGs MauritaniennesODP Cross Domestie ProductGNP Gross National ProductmIV Humnn Immunodeficiency VirusIDA International Development AgencyImR Infant Mortality RateLSMS Living Standards Measurement SurveyMDRE Ministère du Développement Rural et de l'EnvronnementNGO Nongoverumental OrgaizatonOMVS Organition pour la Mise en Valeur du Fleuve SenegalONS Office National de la StatistiquePAP Priority Action ProgramPIP Public Investment ProgramPIV Périmètres Inigudi VillageoisePNMIVCT Progrmme National des Micro-r"alisations/Vivre contre TravailSAP Systeme d'Alerte PrécoceSDA Social Dimensions of AdjustmentSSA Sub-Sahan AfricaSMAG Salaire Minimum Agricole GarnutiSMCP Soci6td Mauritanienne pour la Commerciaisation de la PêcheSMIG Salaire Minimum Interprofessionel GarantiSNTN Société Nationale des Transports de NouakchottSONADER Socîft6 Nationale pour le Développement RuralSPPAM Soci&t6 pour la Promotion de la Pêche Artisanale en MauritanieSTD Sexually-transmitted DiseaUBD Union des Banques de DéveloppementUNDP United Nations Development ProgramUNICEF United Nations Children's FundUSAID United States Agency for International DevelopmentWDR World Development Report

Prlorty Poverty Indicators

Powerty nhes

Upper: UM 32,800US$ 370

Lower: UM 24,400US$ 275

S7on-ten Income Indkator (1992)

SMIG (hourly, UM) 24.46SMAG (houdy, UM) 24.46Public sector teachers (monthly) 15,701

CPI 1991 (1985=100): Food 157

Socia Indicators

Share of public expenditures for human 38resources, 1991 (%)

Groas primay enroilmt 1990 (% age group)Total 51Girls 42

Under 5 mortality (1991) 204immunization 1991 (% oblidrea 12-23 mont)

DPT 83Polio 37Measles 58

Child malutrion 1988 (under 5)Sunting (X) 34Wasting (%) 17

Female-to-male life expectuq (1991) 1.09Total ferility rate (1991) 6.8Mata mortality 1991 (Per 100,000 live 800

births)

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TABLE OF CONTEN73

UrE Cuim sΠiIqRy .............. ...... *U

PoaveSyinMaRYwd ............................. 5L JNNRO»UC1e ON ..Ca *.... a..* E .. *.. ...... .......... I

IL , EPVERTYROFLE. . .. . *. * X**. .* * * ,* *.* * * * * *v* ** * * * * v@*** 4FPrvrrj li >I'auritan.. .*. . *.. * * * * 5

Houshold CWbsg elnlmd................... ............... 5

Deographlc and Social Osaacwsls ........ ...... ............ 10E opkymasen(Ysawa etesaic.s.... ... ................ 14

JIL TlE ECONOMIC AD SECTORAL POULCY FAMWORK ...... ..... 17

Lou-Term Polldes teoStmulat~oenomlcGrowth ................ 19LaoT 4He areanllgartonDewelopment ......... ......... 19

Ranged ><axnane . . .................. -; 22

Non-AgrlouhtuaEmplymtn and WagePolcle- ........ ... ; 24cedJPolj ...................................... 25

Improvlng gtbeDeliv«y and n iSng ofSoServlo .............. 26HU .............................. ......... . 26Educatlon ... . ..................................... 27Ifasuc*r: )aortpo and WateS ; ... .............. . 28

d lto nals ayNs........................... 30Food Securly: lie Rote of Food Ald ........................... . 30l>hntory Si#ty Nes:h Renwron Proramns ............................ . . 31

lhe Roke f NGOs .. .. ............................ 32

V.ELEMENIS OF A POVERTY REDUCrION SRATEGY ............... 34

qnpod OpprtultesJbr Rural nom Geaionk . ................. 35bspowd >ppouklsfor Urban Poor ............. 36hqwwn lns Aocatiw Effidm aind Eqsry.- Socia Sem*esandb0asucsnr ................................... 36lie RoleofNGOs . ......... .......... 38Moutn .ystymn of LIvlng Cond . . . . . . .... * . . . . . . . . . . .e . . 38IM cxtSes ................ 38

BLIOGRAPY .. .. ..... ..... . 47

STATIÇICAILAiEX ............ ...... 1

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1 Outqfofdiees... . .. ........................................*. 92 lAadDLpues-I&Smega1-laCo>jl ................... 153 C'27sfrb ladbdeossto my ancetor.................. 204 Food&ure and Food Aid .. .................. 315 Food'-Woi*b> *P>gni . .......... .... .......... 32

Grapbs

1 Sasloa,1965-88 2.... ......... 22 2TradUiIonalSdcl archy .............. .... ......... 443 Socia SMnwure-Bldaood le aad Soildark. .45

Tut Tables

1 HousehodUaaaaaerstIabyE pWedkwe Qukai,1990 .62 AverageEwxpaduehaWsbyRegloan,1989M ......................... 73 SocslIndica ..o.. Il4 Employment. 198 and 1988 155 Per C eaj>ita Iuise Gn, 198092 .186 Roansfor aPowveReduct*lnSty.t.. 40

AnUn

lhe radltlonal Soia Stutue ..... .... ........ 44

StWcMad Appedix Tablas

1.1 PoversldlcesbyLabrForce Pardaton,1990 2... 521.2 Pin" Indic by Region,990 .. . .521.3 Aeage Ex Mdou Shares by Fedür Quitie, 1990 . . 53L4 NtEna oeat Rata la P**ay Scho by Localty, <eder and Eqpedle

Qulsiek,1990 .......... 541.5 Leracy aad Scho Aukeda Rates by Lo«ity, <lder and EWndhe

QuInlle 19S4........ ...... 541.6 E» lmweSm Saw ofldMas Aged 15-6 by F8xdur Quudle,990 1 .. 55L.7 lqomaSecotrE,plye,abyAWty,1980and1988.... . .. 562.1 IrrigaoeRloeProduauloa, 1988/87991.... . . 5722 CompolofifePubic ExpedlwsbySedor,198&91 .... 58

Map

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PREFACE

lho World Banu's World Development Report 1990 on poverty hbiigte it facttbat economic growt alone does not necesry reduce poverty. To be effectve, ecowomicand soci policies have to addr also the needs and concers of those, who, becus ofstructural, social, and culta factors, have litle voice in the development are InMau4itania, this demands particular atention because of the phenoml socia aoic sfsdmat have transpired over the last two decades-from a largely madi to a sedentysociety-and yet where the traditional social structure and hierarchy remain s8tngyinrained.

Che Government of M tna has recently made poverty reduction a key objective ofis development strategy. It has prepared a poverty reduction stratgy and an action plan,which it presented at a Consultative Group maeting ln May 1994. Since 1985, tieGovernmeat has adopted and implemented an economic stabilization program based on tigbfiscal sud monetay policies and a lirzed econoy. -While ese roms have 4esbmaroeconomie balances, long-terni rorms designed tooster co pe and dowthhave faced major difficulties, particularly luh agrictUture sector. With regard to soialservices, Mauraa has singled out education and heàlth as top priortiy, yet budgetayallocations have stagnated or increased only slightly. However, progress is being made inpromoting decentralization of social services and experimental comt recovery for edrugs. The Asument concludes that a poverty reduction sategy must take ilmo account tierpid socioocoomic ges occuring-urbanization and sehtrioand 1edisit-gation of traditional social safety nets in the face of these changes. Focal point are areexam i naton of the agtre strategy, improved opportunities for ural incomogeneration, employment creation for the growing urban poor, and imprwemes iln theeffidency and equity i the provision of social services.

Ihe assessment was drafted by a team from tihe Oxford Food Studies Group,composed of Simon Hunt, Andrew McKay, and James Cpeta, und« the supervision ofAdriana De Leva (Task Manager, AF5CO). Ie fin report was prepared by Ms. De Levaand beuefitted greatly from the contibution of John Elder (Sociologist, AFSPH) and edoialassistance from Susa Chas. (Consultant). lhe peer reviewer was Jacques van HolstPeUekuan (AFTHR). Jean-Louis Sarbib, Fraunois Laporte and Katherine Maal are theManaging Division Chief, the Lead Economist and the Depatment Director, respectively.

Ihe Asesmt was preseted at the Cosultative Group meeting of May 4-6, 1994.The grey version of tie report includes a summary of the Gov«nmeWs fve-year actionprogtam to combat poverty, which was presented at dhe CG meeting.

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EXECUTIVE SUMARY

1. Over tih past tventy-five years, drought bave transforand Mauuitai from a nomadic to a_ety society-from au estimated 78% nomadic in 1965 to 12% in 1988-aud to an economymot qually plit betweem nural and urbu. Tio rpidity of thoes phenomea bas disrupted viuy

every aspect of the lives of this ancient society, deeply rooted ia the traditions of its rgigWdcucture. Living conditions of most Muitani bave worseed, and, mor iportan, vuhrbhty

to poverty and tihe tla of pv.ety loom pesteutly ia the bacground. l socioeonomicamifications of tus sedetaizatio and urbanization ar enoe»ua and leav no on untouched.Alaough Mawrim ae adaptng to ther cbang worUd, the traditional social structurs mayimpode a swift. tansition te tohs new realifies.

2. lb. issues st the cote of Mauitan's poverty cbaUlbeg OaQ be n as f1llows:

Tn loal ecommic roles are caging. Pastosalis bave bad te become fh meaPastoralists and faines bave migrated to the cities wiier tbeir akils are not mnaetablWomes now prform tasks formly dons by mem la addition to their owa traditial rele.The repattes from Senegal in 1989, mostly merbants, bave not bees able to fill th gap leftby the skmed wocekrs who fled Munaia.-

Traditioal ownesbp of land is wrow4ht vith conflict ad ew Id use practices arethreeg thu envfronnient Lad urightsae being dispute bbwea custo yowusamd modem ainvestor- and bewooen sdentay friners aiùd pasteiss. Tihe intupfio innaturai flood regims, both drought-causod and followlag couletipo of the mma dam baadversely affected faers who practice reeoon agriculture. Becauso of drougit pastlidsbave had to sel their hrds to absente. livestock ownes edentarization is co_ntingpopulation pressure la aeas with Limited natui resources leading to rpid 1usd degraat.most visibly sand dune encrsoacent. Tme deveopments also appear to b. accentutg tIh.issues r.laIed to herd and ngelad maagement and land tre rghts.

Traditional social safety nes are oeumbling. Although blood ties and soidaty st11 prvailduring inmes of need, taditional safety nets linled to the extnded fimily or trib. affiliationae becs wealœned wii drougbts and bsequ nt "bang festyle. lIe sale of assos,

may livestck, has roduced houseolda' wealt and future income base Migon, a"ugan iunce agmanat food insecurity aid a source of housebold icome, is caUslag seasonallabor shortages la nrculture and placag heavier bunfen on womea.

Soial sevices are not able to meet grwng dsasnd. Urba squalor witbis squattercommuntiee-communities wbicih lack water, sanitation, schools and healtii Scilities-is beingprecipitated by tie influx of nural migrants especiaüy aroud Noucott, te capital Yet,public resourJce have not bee allocated quicldy e.ough to meet the galloping socia needs ofthe urasl areas Public vestinnt sd11 favors capita-intens progrns rathe tm labor-itnive activities lbo mismtch of 8kills betwees those lamed ia t education ystem aidthoss required in t.e marketplace is wideaing.

3. Tim Pomr PRoPL8z Of the two million Mauritanians, tiose cmnsidered poor finm astraight acon perpective rpresent about 57% of the population (spend lems tbdn US$370 a year),and the veay poor r_reent 44% of tihe popuafion (spend leus tb US$275 a year). lhe US$275povety lino (defimed ia th. 1990 WDR) may reflect the level of poverty more tccurately 8mac

households below that expeuditure level consme less tdu 80% of the reconmended daily calorierqurent of 2,300 calories. Hlgh rates of malntrition (34% robnic and 17% acute) wv foundtirougiout the country and for aU income groupa dung te period 1987-90.

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4. Povety appoan more sever in nu uai (parculaly in the esat sud the Suegall RiverVaiey) ba in rma. Povuray iu urba arms, excluding the main ecomia centes ofNcakott, Nouadhibou and Zouerate, appoals the national average. Neuary 30% cf Mawitainbomolds are bied by wome, pardy explaieid by bige divorce rates sud leing long-tmigation; tho rate ia loer amog poor rups. Altog data udicates dbat the levl of averexpoiture for femaded housdbolda is sinmilr to tht of mule-headed housoaold, f*ctora su asiger deedny atios, low« ecaton levels, lower pardiipatihon u formai enployment, sud avy

reiancm ouome t fansfs, suggea that the vunerbty of femalebhoaded household is greatbr.

S. Despite a bihg GNP pe capita (US$S20 in 1992) by Sabelian standra, Mautitnia is plaguedwith poor health cnditions imilar to its neighbQts-life expectacy averago 47 yean, oue out f fvchide die. before tb. ae of five, and oae chd in tire is unurid" Piay school

_mu althoug higber tdai in moet SabeLu ounties, includes oDly half of tlie ahoolagepo n (Koramo schools fill somo of the gap). Yet, two ont of tluee adult are ilhite. Supplyfactors snob as convenloat accou9 and rdiable quality of bealth center sud ahools ame degfactor lu te us of dbmus facilities. la oducation, demaud factoas, SUC] as noncty ansd opponunitycomt, houseold income level, and tbe level of parel ducation, also play a crucialo mt enr_omemra8es.

6. Siuce 1980 tbe ifonmal sector las beu sweling as a result of ubmuiaton-grwiug ut msanua rate of 8% sd ln 1988 reproeeut two-irds of thb non-i al labor force laf of dosctor is employed iu petty bade, followed by samal artis activities sud contction Over *e pastfive yars the ocomic pe aons (pariculy tbe Seegal-Mauritania dispute) hbe probabyincrosaed h.e âare of the informa sector, prticulay m ubm aea

7. Tam cRrvm maD REOIJLORY FRAMwomC li 1985 Mauritani sdrted impl_entiug ameconomic sabli on g t bas hliberizd the eoomy and moved it towrs marotPrnTciples- Il to dmese efforts, GDP grew at a rat of 3.4% a year up to 1989, implying a posivepet capita income growth after sevenul yeaus of negative growt Disnuptive itnd ad exteraabook, howcver, bampered dbis giw durng 1990-92 sating into a drati drop m pet caqt oiincome of -2% a yar.

8. Lng-ter rform doge to faster comptties and growth will crtaiy be d_oedingud diffict. Irrigation dsevupmnut alogg tie Senega! River basin, undertalen iu dte mid-1970a as a

way of maximizhg tm fertile sud producdve lsud asound the flood plai of the River, and ofpromotng tie agruture sectr lu M tua, uas produced mLied resuits to date M. ar bsactt a number of pva80 invoost to develop irrigated schemes. Yét, grvu the hli t cofd.lcping sud main g ew ites, epnsin of rigated lud is plrDng dowly. Forwdproduction ILanges into th nuad economy tend to be smaIl, givon the monopolisti and capital-intenive structure of tdm procesog, transporbato and maaiceting of the zice crcp, tbeby glmingdLe impact of irigati ou poverty. Moreover, the d.veopment of tie River valley for iie lbasgvea is. to laud diputes- cvators cl" to bave becs inaccquay lemp for dloir lud adfarmera pct ecossin agrulture bave experio»ced produon losse fron irigatic lo_iooFualy, tho impoit evy on c, intoduced as protection for locsl rice produ d ihud dm incwmtiveto pdivate tauqm to exploit tihe pota of iigated land, may be baving negative effectauoepoor bouseholds. This. considreions sugget bst t the _ mic of the iigatio seai, particuardyof tice ud of the maageien of ie dam, th. impt of irigated agriculture on poor h lds mddo imported tir levy on odior cereal prices, conmption paueas, and agricultual ac*vitty nod to b._oeaueL Fiashy, the pilot laud tomte rformi progam desiged to gmnnt stabity of Isud tmre

sud to protect tuditiund laid dijpts diou"d be puwsued wath vgor but closdy monitor

9. Douglba have fooed pass tgoel large duaros of <beir livoetoc to weduMauitanin, most of whom reside i Nott and want <oit herds kept near uba maket fercommeal puposes bis bas led to higbl bord concentri limited aras, sud appeara to be

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accentutn sd dune »vemv nts. To improvo the sutan ty of angelad wat- poitmanagemet a concertd oot to promot» pastord asoclationas underwy Md it is paoposed diethey be given the log rigt to ontrol open accosa and guard against overxzploitation of tie rang.Tho eipowermont of the pastor asociations, however, bas met resis from t pd werf lobby ofabsentee owns, who caim tdat the Isamic analaah law diat alows opon acoms dteumie the lgSframework foi ngehland accoea. Given the high dope. of ngplad degdton, it is impaive ettii objectives of the associations bc tranted into action.

10. Despite a policy of ptomoting small- and medium-se enteps", the lIvestment Codeconnues to favot large capital-intemsive nenprise. The Govement bas not defied a lngtem.nployment policy. For ti.e dsort tern, it is impl.mting a abor-intenaive progam ta sabinstitutioul" capacity and to geneate employment in the construcion industry in uba arsea, TMmQovezment hAs also doclarod atial fiung a pnicrity as a mesus of auing incomes aud gene_atingmpîcyment. Yet, despit duis doclatio, whici would, among oher tge, grt mal cue

fsiemm excluive fishing right incertain in-shm locaities and provi8dm with finnalreâources, progroSs in inploentatiol bas been slow.

11. With regard to the fnncing of sociad sevice8, the Covm ent am nglod Ut Oducation aidheath as pniornty sectr. However, the abate of rscurrnt expendituues dovoted to umn asure-around 40%-bas esæentially remained uuhaiged (with slght incrases l roeal ten) over an oxtdedpeiod. Public ivestmet l secta oter man rural devpment and hfasuct basaraed o*y12% of total investm ures, of wbich 2.5% for education ad 3.5% forheali Over tie pasttwo years, however, the dse of pdmauy education la iti tota educain budgo baslaeasd tg 36%.M. Covermet's resutring proam forprmary dûcatioen bas shown progres, as reflected in thncase n sgro primry esoroent from 49% in 1987 to 57% ia 1992-maWnlys aruat of tIh shoolconstuton proganm tbat provides matcbing fonds to local coumities for ti cotucto of low-cost casoos Proposa is also being mnade for seCOdary aid iger sducaton, whe td quaUty ofsen teabing ia bein8 improved and tobihcal oducation is beconng mom relevaimt Effols to curbbudgetary inceases to bigber education, however, have been stiflid by pressure froxm uiversitystudentsd admmenstor I Govmmenmat's heulth se a directed towads the pvsn ofpreventive and prmy car services to tih largest proportion of the population by mpving acceaid quality of ha&th services. Dentlization and the introduction of pilot oost reovy scio inNouabkhott and svon wilayas ae pogressmg w.1l. T.he mentis lao piloting an osseal drusaprogpa that provides essential generic daigp at ti distriet health level in vsen wilasy Tlisprogan is a success and will be .xpaided. A sudy to define a monitong systn on tie use of hficilitie8 by poor households is under way.

12. SOCIAL SAPY Nus. Traditional solidanity tWo It$w failed to adpt to tl» clmgnoeae and cicmnancos bg about by tie rapid oCioononmi¢ transfomation New socia groups,such as ieigibohood-based womn's groupa, have emerod in e oe to t i acy of thesnetwonks. Food aid, coveoing 40% of Mauuitania's ceroa reqomonet duriag noal piod, hasoesred food for largo segments of tdo pouation. Yet, tho sale and distaibution of food aid _poblatie, and a fmie monitaring system to idetify and targat food-deficit arms is not SmcoingweIL Foodfor-work prog_m, in opoae since 1985, us. food aid as a means of eacougiagon_munity participation latim v.dopment of amaIul infstructr WuIo t_. progn icroatempory employmoe and respond to commity neodo, t&y bave ovheed tio quanity ofinfrsructur bilt and paid ittle attenton to eithier short-te issues (impact on tho food ioe_) orte aong-tem effecb (impact on te incoes of the poor).

13. ELMoem OF A PovuRTY REDUCnoN STRATWY. Thb Govorment of M taa bas dofedth. elments of a powrty reduction sateagy and proposed a five-year action. pla for combattingpoverty, both of wbich it prent at the Cansultatve <roup meeting in Ma 1994. Thb proposedstategy is largely in lin. with t.eo ai outlned ain t Poverty ATii cm len gof such a sategy is to dofine poicies and actions thât addess both nra and urban dovukopntin a

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coimty tuat bas imdergone dmmtic demogrphie sufts. Tin. overmet as implementlng policiesaimed et creating a climat codive to economie gwt-hlbeizaion of t economy andpromotiof labor-mt.ive progm-and at improving tdm populations accses to sociaSrls-micreslnlg budgeary allocations to pray educaion aud helth mmd the promotion ofessentid generic dsiags 1 i8 also promotimg dcn zation in ihiai and eduton by eouraglucommunity paricipation and introducing cost recovery schems. Greater effort is needed, howverv, toacoelrate the implemetati n of tiiese policies.

14. More specifically, a povet reduction strategy meeda to focus on urai come emation andrinceased agecultural productivity; employmt creation for tihe ban poor and efficient and equitable

accu to basic social serices. An expansion of the wrd imetmot program in producive capitdl,physical and socil idftutr, and agricturl services is justifiable c poverty reducto groundsumd, indiecly, on slowing ubaizatio Such a progn wuld need to inlude adaptivo remr (80chas rlay and maixed crepping mad more double cropping in urlgatud areas), expmmded exten effort(«at miso mddress fene agriculu and household activities), and experima iformal creditschemes, all of wbicb would contibuto lu bigher agnocultual yields and grter demnd for semmaoulocal labor. With regard to inpoved opporities for the ura poor, Ibor-iteive activities need tobe puowed as a short-tem solution, while tecbnical mmd vocationd training relevant to maket dmdr,mins a long-trm callenge.

15. Il the finmmng and delivery of social seMices, a poverty allevtion statogy need to addruuathe adequacy of overai resource ellocationas, the approraten of intra.bdget allocations, thepotentil for mobulizing non-governmumtal resources, and th. efficiency witii wbich t sevices ruachte. poo. To increase tie poorWa acces8 to oducation and to enaue relevant aulis to the labor madret,priwy edtioo and tcnical and vocational training require a greater sbire of budge.uy rsouastab secmday and terlmay education. Simry, the he sector, the priorties neoed to bo puiayeulth cre, particublady lu the nrr arms, and lu miatmining a balade in reurrt expm_urus

betwue prsonnel coslts and otier operating costa, especially drugs. Tie cot recovay in tiieducation a heaslth sotos are progresn well and should be continued. A system tc moaitoriioueolds' use of theme servics needs to be put in place in tii near fuure in order to eme that thecost-recovery ciimes do not block accesa to poorer segments of the popation.

16. MONRoMNO SYSTM OF VIN CONDMIONS. In 1987 Mauitas laumbed a pemanemontrg system of social conditions, whicii the Nationa Statistical Office (ONS) is s_yceuyimp _ng (a household budget survey for te sedutary and ncaic popaions wuas onducted in1992 and anothur one is planwed for 1994). Ibo data colection mad proces.W capability of the ONS ilstrong, but its analytial cability is limited. Tho ONS has proposd tdm creation of an ualysis uâitthat wvd maintuin a sociomic dat base for policy ycs-n idea ruquring seriousconsideration un effort to rap maximum benefit from the epensive and e collectionactivities To complement quantitative data wi&th te sociological aspects of poverty, it i prepoued thatqualitative a_es b undertikun lu m mmci as the dyames atd «opig of femaleieaded houwholds and the living conditions of squaer neighboboo of Nouakchott.

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|~~ LII blil'|it!#4rt 11h s;.:l |~~~~

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1. Poverty Il wlesrad In Mautital and Inome ls unequally dstributed, despite arelativly high per capita GDP ($520 in 1992 versus a SuSabaran average of $380).' lbibigh leve1 of poverty is relectd ln te fact tat one out of five childr diaes beforthe age ofIlve, one out of thtsreo severdy mnalousbed, l}fo uxpcmcy at brh ls 47 yer,and -thds of te popuaon is IDterate. ne populton growtb re is 2.9% and theura growth rate ls 7.8%, Bmg the highest ia the world. Poverty ls most commo la miraareas, although bi levels are found la lmaer urbm cear and tie perlrban areassur_rnilng NouakchotL Poor houseolds are genaly leu wel educated and less rky tosend thei chdren to school t are non-poor bouseholds. lhey also bave poorer housingand less acce to clean water.

2. Over Ihe past two des Maurn soclety has undergone a serles of trasitions-s_dentarfr.atlon bas bad a pwroud Impact on ils n sucture(Graph 1). lhese transi , also occrrhg la other developing counies, bave benezt dlnariy swlft due to svere drghts.

Graph1

Sedentarlzatlon, 1965-88

801 omadc60. Rural Sedenxtiy

1965 - 1977 1988

ma,tanlhas .lfted frm being am eusively ru and pastora o bdng 50% urbanand 90% sedettry. Wd lMde exception, tousnd of Mataians iund thieveu ilummilla roles. Former pD*oalit now egapge lu sedentry agrictue work or work lucilles; forme agria ve matd to ubmteas ln Mauana or to other countiesin se" of work Miis migration lu tu bas pronte a shit lu roles among thoserema lu rura arel . Speciflcly, women now perfrm tsks trdlonally doue by men(Smale 1980). la 1989, bord« disbac betwe Muania and Seoega forced larm_bes of Mmitm sIote fie eiher foi or to Seuega-both of wbich put addtionalpres on a aleady suressd econmy. Overall, tese tsitions havw ieft large sgmetsof the population nbaslngy vuluecabbe. Tradllon safety nets bave not been able to cope

'Mur _ a is a lrp (1.03 mill M), nselypopultd oeuti7 wA a hostile muas_ BItp t of ib aM a put of dmn Sdm Doe«t aid te owt's 2 mio popi% as oao ua_ in lb _uhn,sehiAd (20-700 mm of zudym) zoms Only a uarow *tp of lmad aloug tho Smegul River in dbo wiaa ofOorgd, Guid&m, A4 ba ad Hé&de dObarby aoeives SOO mm or moms of rainfai pet year. AbJog dxy-four peot of <h. Jabor Ixce ae uo>cain the_adIwàmio mtor, Uvtck rstg accou=M fr 20% ofGDP Md cM eullatlc lem am S%.

-3 -

wlth lthi multiple stresses and mauy have colpsed under pressure fom drougl, migradoio,sedentaatioaand urbanization.

3. blh World Bank's WorldDeeopmnt RepoÀ n (WDR) on poverty hWllghts thateconomic growth abloe does not reduce poverty. Economic and soci policies mut addraskthe needs of those who, because of strucual, social, sd cull faoi have litdevoice innional decislou-maklzg. Ibis le pardcularly true in MUltan wlh t widespread povertyand sharp «tic differemces. The WDR reoommad that a poverty reduction stategy beelaborated along thres objectives: (O ecouomlc growth wlt a accen on employmentg°euatbo, (O) aess to basic social ervices to improve the stanard of living of te pootsud lucrease hr abilty to respond to incomeonlng oppotis, d (i) » ility ofsocil safety nets. Ibo objective of dts aseessment is to ldeutfy the poor and aw theces of their poverty (Part 11), analyze the Impact of goveamnt economl policies andpublic spendlng on tihe poor (Part III), review extlng social sety nets (Part V), sndpropose elemets for the elabontion of a possible stateg to reduce poverty (Part V).'

4. lhe data upon which this assessment le based result û*om two rounds of a ationLiving Stands Meumen Survey (LSMS) conducted lu 1987/88 and 1989190, whoseanaltys was supervised by tiie World Bank's Social Dimensio of Adjustnent (SDA) unitlhe number of households lu te sample is small (c. 1,600), maldng detaWled analysis ofsubgroups difficit. Data are complemented by a.variety of uatatIvC sources. lhe LSMS,which covered only the sédeutay populotliû, provides iorlaon on te patr ofhouseiold icorme and expenditre, on te diff«etation of te Population W particulproduction systems, and the implications of that differeniation for wéJm.'

lheuotas used tlou_ot ibis xrop1 havw beoo exuaced fom At *s Dam', dge. a &badon of oeloes frio the SaI colend by N;4el Cross md hinnoc BDa, odt, PANOWSOS Sahd 1992.

mhnong them are: a deud povoty profio by MoKay tud Abdas Ould loubb (1992), studs of causes of kvW by Coulmbo, MoXay aid Abda oflud Houib (1992 asd CoImbe aod MOKay (1993),studios of fod sonity by Hunt (1992), t siaa of womoe ud cbUu by UNICEP (1992), w inalulureby Spuig (1993), sud woueu a diclopou by Blder (1992). For Ib dys of the poloyfraanok sud public secor cipeuo do prioipe r_lam do_um a e inltanis ' lSaco-

moocmi UpdFto-S da Atuatment aid Ddop"m u, Wo ckd la, a 1993, ad Mimo:Revu de Ddposc Pubbpqu«,- Wonld Bank, Novowe*r 1992

4 lb aulys of SDA Pdon SurvMey fr tie sodetary sd tMd dioulatis l Y uway. Its, how.v«, is prmsdy dooumcntcd en the veihoods of Mala nomadl. populauon, dopirqpneæutig about 10% of do ttal popation.

3 It l impotnit to oonsder tbs tming of t. two uvs a roDaton ta loaem paSm of bouold maaccumlato ud deplatioo, and ti* relaion to ourop lacomos, mupeadhar., and wdla 0*1o ud aillitproutionbqoa su upwad oyo. in 1985, wlc wtualy ped w thoi baws of 1990. lw srvoys of1987/88 ad 1989190 wee dhe, colbstee in m d ai ** peak fo a- cyol, aoo icu adiauprovoo _ auSW wifr. Aindi ibi, bow.ev, tbe impat on mit om_esuss ofho cro cfthod 5 bordera19S9mun be bkclaeoou

-4-

Il. POVERTY PROF"LE

!fl bus h 0Wo hon,, ve teel lost lu th. c1ty.0

'One w aew a Mawada rida ln crmns, oeiê, Mhoep and goa. à ow bruueglo <qDoA a, wc k4q* maW goa. We wee nwmad, movlng asu la w t>oJldfJh paau We waadaWfmm place to plae, liWng ln nwhlda womzwvewam worL w dsed uw aon m k duwng e ai hera w w cdule mmwilJWf, OdA md nikl *wdeayn We bought mos f ogaurz Eu . md t,*sn dh, wEhaU h* ais 51Ww als. 2lsoee oenesog o_ouusaaSter ddwu orpald p hordn to nd dir vUt

Mm ani wamIk woe* wmu deorEy divdei 27 wam u oked, edmW dWdaldaUa ad www vay oadWw la ràaldng motsv drw bed plan mmav audplesL ofkadur. Me load o/*w odu thea or woed lu .heJWé, d*e wM ga h&egwfl.sjfr ehelforllesw Ioau

Dap.te du bgl lmu deow hu (dw t te dtoughs), nos <w sUfud.pdsnot,aboe A.W. bw aoitS <sun Aorqg wvuJw t bag c 1 &i M w ihur, 1w bu lu Ag hope Au wga&lm wrt tevr aoughjbr w is to ranu ouamadio iV#I O*f An. earbag afoetmr la »*oru ccomwmec slfl samy in omm Yul wuve wn mad oe dirmct »wdhg <ou sson", àts lMué? A wm ctme A

teê w# ratur wo Au &&bath w mii buau. wo cam 'i apud aW ldms mwi,'isg about

nbb àa «* dàèdr. am poq Mq la M hm9 wâ*Md

ue SoA <w Nb. got_io som c »hw mm w c il dw sW la twiws te j.Usuailu ko Am wins aaha sé M e mm* * (aroup of puo_i0, Doubdidi,Noua_woe

Souro« Cou ad DBadr 1992.

Pot En Min

5. lie Goverament of Maitanla has deflned poverty wl_ refn to the twoepeodtu-based pouverty line adopted by tei WDR 1990-US$370 and US$275 per capitepet annum, ln constant 1985 pricu.6 lheso figur transata no UM 32,800 and UM24,400, respclvely, in constant 1988 prices. Ihe leveIs seem valid l tho Martancota because households wlth axpenditr lea dm US$275 also coma lus liw 80%of ti. recomm endd lOvai cf calories (2,300 per day), based on of corilconsumption (par 10) (HIunt 1992). Mm US$370 povarty ca-off poit ls bihge dIm teaavgw levea of per capita expedio la tIh first year (1987188) of the survy. Ibs cut-ofpoint reprosa a high povery line, with rafeece to which the majorlty of Ihe population ldefined as poor, maklpg is useiUnesa for operatonal purpos quesonable. Aldig bc*poverty fines wi be consdered, greater emphasls wil be on tha lower li Discussion wMfocus on the second year survey resuta sinoe thaes were collected aft.r ti 1989With Seg.

6. At the national level, 57% of houseiolds are elassified as poor witreferenoe to teupper poverty lino and 44% for die lower lina 7 (Appendux Tables 1.1-1.2). For bothpoverty ihs, the dqt of poverty at tie n leva la mo. than 45%, lndcatlng diammong pour households therea are many who are very poor. A regonalddit poverty il Màutana is mor severe in nrur dth ln uban ireas, boh l ncidence anddepth (Appendu Table 1.2). Cari, however, should b. exercised in usadg tbh me povetylina for urban c omparisons, aven if adjusted for cost df living difèrences. Wldam -;areas, the incidence and depth of poverty are mulch lower in the main econoie cent_rs ofcentral Nouakchott, Nouadhbou and Zoueratean d l other urban a (Includgg tdeperlpherdl ars of Noukdoaott). here ls not, however, much differ among the tbroua areas idalenfied, either la incidence or dep&.

Hoshold Uaracgefs a.d EVndkures

hasbad MW ar <du owUi maom, MW dcdg A w*a tgo hsy. &go a*w dudua At bl dus. Me pwka c1 ftod mad due chilx asroeb. * (A wb' Moor wmm)

7. lb. demogrpc structure of the houscold a clearly relatd bO poverty. Weultbarhosbolds tend to have more people of workig ago and lower d _aday raos (Table 1).By contrMst poorer households have high dependency rates, wbich combined wlth their low-inoe acvites (for examle, agricull sef-employma), make them unable to meot theïrbasic needs.

The pvuty s u lM ibis rp bav. bo ded by tde Natoa Ma*" Oic PM aMau ltaa in b oautax of te propuiin of a povoy profi (MoKy and »dDb Oul Houl-b, 1992).1I ONS zer4sd "i cousiu of a povouta li,n boeus.of b. lhk of oo _« mw todWfiu a mhwmum bsk of oods sos to b. on-poor ud beme of do lrg hInorm demndrequfd for d Sumula a absow povoty liH once a mim boske bus born dofiod, snob a us ao-equivto nsption lvevs. pd% lude sbsn ad o« ld cosumpdo, Md a .u .dfor rjogn diffen in td.o t of lving

7 Tmn emctbsu of povt cat be dotetd uslig a povcsy liH: 1ho hcdece of povue-d.fppopo of e. popui olaflsd as poor, sud dm dp of povueu-u msa popnoi by wh ihmaous f tii. or Avils sor f (h. ovsyln..

-6-

Tabla 1: 1O li bj Expendue Qudi MM--

lot 2d.3rd Moue houuohold 5.4 6.2 5.5 53 40Dqoendency uts 62.6 68.0 66.7 64.1 52.Pcma_lo-headdhouschold 32.7 27.0 35.3 30.6 18.0

8. Tbe gender of Ihe houold head is ot slgnlflcaty assolated wth livhing dor povrty stau, except pethaps among the poorest 20% of households wheeted pvc geof housolds headed by fmaes (32%) ls higher dtahe average for ie county.8 FWehouseiold headedness per se is mot an indication d a household is morm likely to b.poor-the average per capita expenditure level of female-headed households is similar to athof male-headed households. Despite relatively equal average expenditu, there is asificant minrity of very poor female-headed households, many of which are hooldswith high dependency rates. lhU, wbile tiere le nO jusficadon for Identiflng female-headed households as a target group, there may be a case for idkentfyîn te subgrcW ofpoor, nom-active female-headed housebolds whose depemdency rates are too high I entereffectively the labor force. In view of the difficulty of devising income-gemneang progrfor such households, tiey may benefit from free food aid and odier transfers.

9. Ihe results of tie 1989190 survey indicate tdt food exenditur, imcudgg animputed value for uo-comon, account for about 65% of total household exp__this proportion being higher in rural dma in urban areas (able 2 and Appendix Table 1.3.)However, the proportion devoted to food does not change slgnlficaiy betwoe poor md non-poor households. Furtier, tie commodity composition of food edi does mot dapsigficantly-tbt is, nO importamt commodities are predominay purchased by te poor.Even inferlor fooda, such as milet or sorghum, are consumed by non-poor households insignificant quantities. Some commodities are more importat in the budget of dhe poor damof the non-poor, notably tea, sugar, and bread in both urban and rural area, sud powderedmflk in urban areas. Such diffetences in the relative importance of commodities between poorand non-poor households are smal' however, sugesting dit price inerventions ia cerainmarkets are unlikely to be effective in allevlating poverty.

10. National average caloric consumption is above the recommeded level, but thedistribution of this consumptdon between households is hghly inequitable. lhe poorest 40%of the popation fal short of creals suffciency; on average their exp_e on cerelsrepres le dman 80% of their nom ive requirements, stromnly suggesdng food inslty.As mentioned above, these households correspond to those below the extreme poverty Hle($275) (para. 5). There le a reasonably close correlation between households classlfled as

8 Givcn tl. bigh mevWd of POlyiy (li pnc. of tOD ng on mm dm om wih) in M audalfib 6fng may b. pury expaivd by an ioect definion of hcad of housebod by dm wn_yta=. r. co.won may hbe boen co_cd as Inividu b of a houabold, espocay who te bund M.d boe abêd *rsou. ti.

-7 -

etmely poor and those classmfied as food insee, according to an expenditure-based8p.

11. Rurl dwellems, predomnaty famers, are heavily dependent upon marlke for foodand other consumpdon goods. Ouly ln rat households along tihe Senegal River do non-

arwket tracDons approach 10% of tie toal value of expenditure (Table 2). lI rral areasfood expenditr comprise nearly 70% of total expendiures, yet the value of auto-cosumpton by the household ranges from 5% to 9% of the total value of expenditures. lbisimplies a heavy market dependence for rural housebolds in product and factor markets. Pricelnstability contributes considerably t1 seasonal food poverty, particularly food price instabiltythat results in low prices at harvest time and high prices before the harvest.

Tablelào2»eB_remSha by IMMI-Nomdu lcott OwrU-e R«. Rivr Ruga.C*r*

Food lEnditi 60 57 67 69 41Food AutCps - 9 5Noan-ood Auoo n 3 2 - 2Nc«4%Wod EH dior 33 32 22 23FMily Suppoit 2 4 1 1bmpuc Vljnu cf Pa8 3 S 1 1

TOTAL 100 100 100 100

| owe Mclb and dd alu"b 12

12. Food aid contributes signlficanty to household food consumption. According to thesurv.y data, 34% of housebolds surveyed ln 1988 and 13% in 1990 recedved some foum offood aid. In these years, the propordon of houseiolds receiving food aid were generalyhigier ln rur than in urban areas. Within the rural areas, however, the targeting of food aidwas very ineffective: the proportion of nur households i the highest exendiur groupreceving fbod aid diffired only slighdy from that in the lowest group. Whîle thls ls partydue to the logWc difficulties iu ansorlg food aid to remote localities (gerally thepoorest), it also raises serious questions about the administeive arrangements for distlbtlngfood aid in rur areas (para. 60-61). In urban areas, the targeting bas been more effcive inreaching the poorest.

-8-

Household Coping MedanLms9

-' awmid my coula, a commnoa pracdc in Uawla. Sa4*, rAb auiage#ad, so 1 lfMY ilge and moWd to Ws MW dime l trveied, I wmw i0ve In SagaL Jf vlllogewu wasandald becau, gradNoa*, wwm do not mipra. a (A .m.i pCtY mecba iu acamp 8 km boim Noua»kot0

13. Understanding the ooping meChÏisms of poor households to manae risk, stainlivelihoods, and ensure food serity in the face of esvironmental ess, rapid populationgrowth, migration, and urbanzaion will facilitate efots to alleViate povertY. PovertY InM ita appears to have been aggravated by the inability of traditional coplng mechanimto witbstnd the droughts of the 1970s and 1980s. Household tepolnSes to these drousInvolve: the sale of assets; sedentarizaon as th avallability of pasture dersed andlives holdings declied; migraton to urban areas and abroad in search of work andsolidarity networks. Overtime, frequent recourse to thess mechanisms bas made it moredlmcult for households to recover from periods of economic stress. Asset sales also affectt11e housbold's ability to cope with subsequent stress. During periods of drought, manybouseholds sold or lost most of their livestock which led to sedzation ad the need toadapt to new production systems.

14. Wgation to urban areas due to drought has resulted in a large part of the populationliing where their traditional sklis are not marketable (Box 1). Former pastoralists mndsedntary farmers with very low levels of education are not equipped to compete in urbanlabor markets where economie opporunities are already limited. A 1990 UNICEF study ofire. k6bbWs (peripheral neighborhoods, mainly squaers) around Noukchot found only 26%

of the household heads, male or female, were working and only 5% of ail women were activeIn the labor force (Issagba 1990). Clearly, women experence more difficuty in finding workIn urban areas than men. Intially, migration to urban aas was a male phenomenon, but inthe past ten yeais female migration has increased significandy.

15. Migon abroad, origiatlly a short-term strategy for income generation, has becomewo wel established hnat, la certain groups (such as the Sonink6, a majority of young menmigxate to West Afica and Fran Mgrant remias help the household and communtymeet their needs, principally food, since locally-generated income was insufficienL Ihesetranfs often represent the principal means by wbich households are able to acquire assets,

umulate savigs, and, in many cases, repay consumption nd lvemsent oans. lbeyprovide iurne against food insecity and at times are the main source of capital foragriculture.t Yet evidence shows tIb the migration of one household member redces thearea cultivated and, therefore, the amount of income that can be geneaed. Seasonal laborshortages are frequentiy a problem in rafed and irrigated areas. Morewver, maleoutmlratlon bas shifted the responslility of many agricultura tasks to women, reducing ihe

Am9 1 presa a snmge desooa of the vosy omptez UtdWioal socil d nand ils nl as ai- aurivals s rat a met Mm.

U It bas boo esimalod tdat about -Wus of hoizeold k=comes a dteid bom t oa" tmno Md- (HO owkm iaMd d 1993).

-9 -

m=E m r~~~~Soe I. C4fl gw

~~~~~~~~~~~~~~~~~~~~~~~~~. .....Éi B....

dm valale ortrdiiona femo e t as h~l suchiIoas foody~u~ prep onfil and wate cllecdon

and fmflyhodt (Kae 1988). ~ooodjooiyo Ient 48~~t~~'hi ~

16. Custm requies htw otpiero Maur tb an suppor proo rer meli. so o fdI~' tueir scl

groupin Mwtams f rWs,and inth 4ret ê, those reevn hel m bi o ea h

benfta wit labr its,and olîtecal supprt.â H~ owevr th aiueo h Umsd b h rogt a ovrhelImedtheaiiyo else mid to help. At the~

smti, ur Bmdzsio a c ino v a ha e w eaiepe

Bg,p ui~yml In~m iinwig SoI* UB B=__ ewst êmoi oWn.~ny4tfli ' '~

~ WUf~ I~Z~ L~**t z.itt.Ja U ~,ê~ MMps >;.u%*:*u$*M

=:= w~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~....

~~~~a ~owusoislu ehto ut~~lè*~~um1

_3!~~ g~,. ar4 LEL .a~~ry~ * iuh~pk

_ V_.# oGpl4ç4t=t4=omtgto tn*t4Ia

_y~bsI m*~1apu~~u oI~I

33*UêSW mp DY :~$*r4 k~.e~r ~ $ ~._~.w4s~I~#Ia , >44dI*mt4dq$

ureaalbefrtaiinlfeaetsssc sfo rprtin _e n ae olcinmdfml hat Kae18)

imare tvire, uorbtadiationa fm aleo tasksn schangs hio prodcie activiifes have weater olecdo

- 10-

tradidona socia ties tlrough physical distce and a shift ln the needs of wevlthierlauitanians. fle most common method poor Mauritanlans had of repayhng socia

obligations was through labor, but ln urban areas wealthier Maurians' need for labor hasdemreaed drmatlcally. Consequently, wealthier Maudtunls are less able to help byproviding work and feel less need to help because they see fewer advantages ln doing so.

Demographc ad Social awa ùrts

Ilgi b a bad qag mm and womew no lbngr éat each other with rée et k as laprotecUv banr beww thém ha brokn do Dorce rates ha resü hecaus womhmay masmm neee l7aed toe Cé cat h w hcbag ndfoo4w aow ty akforMore. Soe baé dir hsbjor wéer m-shyaref. Miàdyo, emenderir sduiws éw yéu of mawdagéfor a yomager was= * (A mal midont ofNouakho rm 1rBkua

17. Rapid population growth is not nccessaly related to incremed poverty, but it cau anddoes strain the Goverment's ability to deliver necessary social services. Tlhe desired numberof children by women Is still quite high at seven, which is reflected in a fertility rate of 6.5.Whîle tihe demand for children is somewhat lower ln urban than rur areas, demand decmeasesas education rises. Only 10% of women in urban areas and 6% in rur areas have used anyform of contraception and, of this number, less than 25% have used a modern method.

18. A 1990 UNICEF survey ln the k6bbds around Nouakchott found that 62% of thewomen were married before 16 years of age, and 20% before l9 years of age (Jssagha 1990).Mariages among the Moors are usually monogamous, but are quite unstable. Divorce iscommon and can quickly shift women below the poverty lino as they lose their spouse'sincome. Of the women surveyed in the k6bb6s, 45% had been married two or more timesand one quarter were currently dvorced. Ife instabllity of marriage and the consequentconomic treat is one of women's most comon complains. Among Black Africans,polygyny is common, but divorce is munc less fruent.

0 tradtin ahodi Aad naaprduem Todaysm bb.oders maedichSoe;ed UkbJatdw és eas w f ay a tdp on w tIé wf A&H ha tdhposwto curé aU daagéroadeas Evo so, t b good t hoQ caforth sdi& I (Anéidday wom ia Nouakbou)

19. Reliable infrmation on the relationship between poverty and health in Maurtana iklacklng (Table 3). The hig nadonal rat of in and under five mortalîty-119 and 201,resecvely-are probably even higher among poor groups. The UMCEF survey of thekbbEs la Nouakchott found an in mortality rate (IMR) of 245, more dmai double thenationl avrage and a 1991 study in tihe ral river valley found an M of 176. Ibe moatcommon causes of death among chuidren under five are diariheal diseuses, mlaria, measdes,and acute respratory ifeons-al of which can be prevented or successyll treated. lhesehigh mortality rates lndicate a lack of access to health care, particularly ln poorer areas,e -acerbated by high levels of malition that make chUdren susceptible to diseuse. High

U la utb anue, om gtoupe at h bonto ofth dodl pad iad duat Ulr «movica aa no loraaemr (c.g. blosmte

-ll-

materna morality rates (800 per 100,000 live bWlrs) usualy due to eclampaia, h.morhnhae,and infections are also linked tolack of accessto health care. geueral, the aorinfluence on the patter of health facllty use ls convmenlece of access, notably proximity, aMdtihe availability of transport ln rui areas. Ihe gqulity of serAce, lncluding availiity ofdrugs, is also important Data indicates tat t lkelihood that an indvdual costlng healthpersonnel ln tie event of iliness ls higier ln urban areas, suggestng that polcies need tofocus on improved acces to health facities in nrul areas.

Table 3: SoIa ladkats

' 1970 1991

GNPper apita(US$) 180 S10

Toa Populalo (milions) 122 2.1

popuatio Growth Rate 22 2.9

Pataity Rdt 6.5 6.8

Uzab Popula as % of Total 14 48

Urban Gwtb Rat. 10.4 (197040 7.3 (198091)

Infat IMoutality (pet 1,00011v. bith) , 166 121

Under 5 Mortay (pet 1000 live bigla) i.a. 204

duk Jltray Sa L 66

Adut enale. Dtao n.. 74

Gr=o Enrollmoat Ratio-Prima (X)Total 14 S1Girls 8 42

Gro) EnoDn.t Pago-SeondayTotal 2 16Girl 0 10

Sources: Wodt Bank 1993 and UNICEF 1992.

20. Ibe frequency of disease varies by reLon. alaria, Guinea worm andschtosomiasis are endemie ln 'the river valUey, whte vkamln deficiencl, aid eyo adrespiratory infections are common ia the central aid northem areas.»2 HIV raes are low,but given the high rates of sexuly-tasotd diseases (STDs), tne potta exists lbr a

1e Mm matemal mnsoitay is p>robly rreficei mutly d_,ess at hospals aad beaNfaciwir*. Excision apparu to be widet la MauitaniL. Sev. fo,q heal b problas, sé as msing aeasocktd wit the acual cirunuioon, as e nveasea la materi roflhL du te compliaton duintchhlilth, amd inreses in te lkihhood of inflion.

Tle prev . of seaistosomiasis in ho Rivor VaIy aem te bc inbd thd cl olog of tb Damdam Befe the dam, periodi safinzation of thc watr, whloh ooarot up to 290 km ftom th mo at Sgt.Loui, &d ot fao rthe suriva of frosb h mails that caus th pu site. Ts ails nsw tbdu ln theahtfroe wam and iration cans. Over 8,300 cas of Ouiwa Wonm wm ropoded in tih Gorgol,ukdlakha,Asabj, Hodb el Chai, ad Hodh el Ohad during a UNICEF sre betwa Peua} 1990 Io Pelauq1991. Mme fit U wilayu in at River Valy oordd 90% of the cases.

- 12-

povety, but Guuam worn and ss s are assocted with poor water quallty andthe is stxng evidn tat the poor have lesu accesu to cean water. la urban areas, accuto top water is related to hiîger levels of wealth whUle riance on expensive, poor qualityw *om water sellers ls assoclat wth lower expenditure levels. It is estnuatd tht water*om water vendors la two to five tmes more expensive (depending on the season anddisane) ta water fom the water company.^ Recent urban surveys show tht accems towate in Nouakchot has doced by about 20% durig the period 198691, malnly due totbo largo ilnow of rural migrants. Survey data also indicate that at any given expenditurelvel, fe-headed households ae leus likely to have access to clean water. In ural areasmor than 80% of houholds obtain ther drlnkng water from a weil without a pump (themot impornt source) or tom rivers and streams.0 These percentages, however, are notvy strongy asocat with poverty. 'Me sanitation system ls based on ai individual wastowatr ystem, ensistgg of latrines, sempage pits, and septic tanks. Rapid and unplamned

i ion a creating potenta emnironmental problems, such as lack of sanitation andInadequat wasto disposal. la Nouakchott, for example, only about 4% of the population issrved by the current santation system.

21. Malnutition ls wlespmd, with 34% of children under five years of age s8ringftom chronic malnution (stuntlg) and 17% from acuto malnriion (wastlng). Ihese ratesdo not vary much according to region, nor do they vary much by level of expendiure, wlthhigl leovls of malnutrition occuTring even among the most wealthy, among whom 28% ofchudren are stuntd and 11% wasted. Larger households have lower instances of sunting buthave higeer instances of wastng thai lmaler households, and children in fmae-headedhousolds have worse mntnitiona outcomes than heir counterparts in male-headedo -seholds. Nutritional stats appears te be the resit of a combination of factors, some

related te icorne and some not, such as accus to sufficient calories (partculaly duriug thepre-arest period), clean water and health care, and practicing appropriate weaningtehnqes. 1°

u Whl. dwi qualily of wate is an important healt isse, low quanit of avalable wnat an ficquoely_at.d fa b rats of moality.

" ISo oh issw. in ti prwion of watr in Mauritn is llnked to td oenvoemet n, amy the ftat-roadat or oesouro ae fiit ad aon-r9wblo amd tat potial for swar inlrueon io ie aqufr is

_oin&. M oeils for mom effiet use of wat and btr magemn pracia for gpourdwatormoumoe.Ibis Is is boing sddad in dm Wer Supply PojeA uWppod by the Wodd Bant pan 58).

u l a malus ody of dm Amb Ch:ild HoU Poje, World Vsion 1itRa l found tut, aîhougoeoe 80% of td molhas pacidb fcedlg for & ret four mwdnis, only half ofthe motus gave

O_O lit fbod to cb fein cv. mo onw*rd. Al mothen atempt to bnt hod c bu unbiltf yCa of ag, as prdlbe by the Koran, b my JtOp if they becom. prgnan

- 13-

'C4y Usè hms coerM base, &wecia beur occess to a good eduaon r aur chdra.We nemwrhad ahi, dace ha ny day. ihave sh chehld Fovr <thons go to Qsr'<uilc ,chookt)se othrn ae toeyosmg. ?lsLl kisonaaa. si~otnc die Qar~ t dsero qi eewiytigsawe do. * (A pawrau fiom Trm)

22. Nationally, tihe net primary enrollment rate (childrea aged 6 to 11 enrlled in Swh)is about 30%-tihe proportion being bigher In umban areas than rural areas (Appendix Table1.4).t? Within urban areas, net enrollment rat do not differ significany by gender, andare not a function of household income; by conat, in nrurl armas, rates are higher for boysthan girls (especially among tihe pooret groups) and do increase with household bion. Forsecondary school, the net enrollmeut rate for tie 12 to 17 age group ls less dman 20%-agaînsigniflcantly higher in urban than in rural areas. At this level, enrollment rates revea botigender discrimination and a household income correlation. 'le low eorolliment rates forfemales reflect tihe young age at wbich Maitanian girls mnay, but the net enrollment rtesare low for boys as well. Ihe sîgnificant rrluban discrepancy l ilndicative of themonetary, opporunlty and other costs to rurl houseliolds of sending their children tosecondary school, most of which are urban-based. Ihe need to send chiildren to urban mrusto attend secondary school may also explain low enroLment rates for females in rural mrs.

23. Both demand- and supply-side factors are llkely to accoumt for the low rates of schoolatendance in rura ar-as, Ihe former includes ie cost of attending school, both monetary(for example, trfnporuion) and opportunity, parental income and level of educatlon (which..may influence their preferences for educaing their children). Income and price fors aredetected by the increase in net enrollment rates in higher expenditur qnes; theopporunity cost of sending children is high in lower expenditure quhtles where housekoldsmust engage heavily mi production actlvities (for example, agiculture). lbe influence ofparental education on preferences for sending their children to school also explains this ted.Tiie most important factors, however, underlying the low levels of prlmauy school enrollmtli rural areas are supply-side. A community survey, conducted close to the time of tiehousehold budget survey, higblighted that many rura villages do not have modem schools;children mut travel to neighboring localites to attend school which increases tramspr -i

aid time costs. Taking bito account all of these factors, thicrease i in'ret énrollment'rateswith the expenditr. quile reflects the fact that the poorest households live in the mostremote locations. For peri-ura areas, lack of facilities and lack of parental education(especially in the case of those recenlly migrated from rural arus) play an Important role.

24. lhe quality of the education provided by the Mauritanlu education sstem and thesyatem's ability at the secondary and trtary levels to supply the relevant sailla are two majorissues. As regards quality, the repeater rate in primary school is high (18.3% of theenrollment in 1985), malkng the gross significantly higher thae th. net enrollment rate, andcompletion rates are low (Table 3). At the secondary and higher education levals, graduatesin the humanities and social sciences predomlnte, among whom unemployment rates arehigh. At the same tdme, tiere la an acute shortage of technicaly aid scientlfically trahedgaduates. At all levels, Mritu suffers from weak techncal ad vocational tadnlng, theprovision of which will build the skilis necessay-pardculary for the urbai unemployed and

t7 lua lkw pcentage rafole ony the publire saol ste. Mamy obir a auoed a ono awooo atsome satg of thefr schooling-du. 1988 ceous repoztd that acly onefoust of the populatiom had _atdod oechools for a w yeau sud tbat gouder patclpatn re we simir. Not snob is kn abo« tho quay ofCoranic schools and har impart oen genmi cducation leveL

- 14-

non-active households-to escape poverty para. 55). As to fumctional literacy, the 1988189survey found that about 60% of men can read, compared with 40% of women (AppendixTable 1.6). Besides this gender distinction, evident in each expenditure category, a sharprurallurban discrepancy in literacy rates also exists-with the rural rate being 40% lower.Literacy rates, however, increase with income for all groups.

FmnpIoymeia COaraaeruics

DVswù hfsume, our COmW * rs aod osa, Me tod oeacd mdpeopl bcaw Aw. Wwdeced so c~ to dws cIy ha ordr to auy aUve suil t rai ree Hlere in dm ce. wesrtuggle sojlnd was of mahlng mrnon.. JM hlbndfood Omn woe* loadag and taDoo&rucb ....l wax hqy tofld work as a swro..bw realied l wmm mglecing ny chtidre...gaw sp Jatob d atrted a an1 reieraut, cookgfmn he...1 dot as mwh ha thel4u me Io keep aow. e (A mWcagd womu aowly-ed (om Mbour)

25. lhe primary sector (agriculture, livestock, fisieries, and forestry) employa 40% of thelabor force, of which 35% (200,000 persons) are engaged in livestock and agriculture."albo sector accounts for about one-fifth of GDP, or 85% of ural sector GDP. Growth inaecultural employment has been slow, however, due to drought and migration, and futuredemand for the skilled labor required in commercial fisheries (preseniy 1.5% of totalemployment) is expected to increase only marginally. lhe secondary setor (mining,industry, and construction) employs 47,000 people (8% of toW employment). Some incresseLn labor demand for this sector is expected as a result of the exodus of sllled Senegalesefollowing the 1989 conflict, but there ls litde scope for large increases in employment (Box2). 'Me Government and public enterprises employ about 30,000 people (5% of totalemployment), but since 1987 the budget freeze and privatization have limited the scope forincreasing employment in this area, especially for higher education graduates.1' lhe rest ofthe labor force is either in the informal sectr or is unemployed.

26. Poverty is more widespread among independent agricultural households, who accountfor approxiamtly 40 to 45% of the tota population, than among the other groups (AppendixTabe 1.6). lihe depth of poverty among tbls group is 52%. The groups least affcted bypoverty are public sector employees and non-farm self-employed households. 'Ihe incrse inthe importance of non-farm self-emloyment as income rises auggesta a potentily imptrole for non-farm income-generating activities as part of a poverty alleviation tategyi ruralareas. Although the incidence of poverty among non-active households is not particulaybigh, their depth of poverty is imortant, suggestng a higi deg. of Iueqity within thisgroup.w Female heads of households are less likely to work than male heads (79% of maleheads work as against 34% of females heads in 1988), and female-headed houholds are

8 Definitions of gVoulp cate the pncpal ooonemo aivity of thc household sud arc defind by tdieo_uo actity to w th ioioe devotos moat of its dimc. Houacholda not worsidg in tho roeh

yeiod arwe ëifed a uuomplyed or non-"i de=*g on wheer aay mumber sesd for ompcoymaotduiig diat p«iod.

'9 Overlhe paid 1989-91, Ihe Govcrnmpa coyed 142 awyer and 92 economisb, compared b tieava_ability of 1,451 graduat in Uhem fi"Ha.

l Hous«wWc mû. up a g nnbcr of thoso repoid as nacUve in both ual snd urban mmos. In u*banamasa, inactve houwwives, as a roup, a more Ihkcly to bc poot« hoaad otr iactive groups, polly explodby Imw leveb of dion of women and bigh oporhnity coat.

- 15-

genera}ly more reliant on Income transfers than male-headed households. Both of tds facissuggest that female-headed households are more vulnerable than their male-beadedcounterparu and may well be heavfly constrained by available time resources.

O P ..........~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~ ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~..4 i'

27. Inurban reas uemployent îsrif Mi a *oud3%o lab< or. florc rpar.4Maipmants nunempl4oyed wqg, these unempoyed areu m éobireduate taiiulavea<7%bvn ne

andorb a mmao btwe 4I required~gw andUI those avana able. Btuepoe woe n ne

.t i hgly likely that there Us ignfc undew emplome4 t ln rothe sdf.lo..tad s

27.like urban areas thempcideneenf lplirifunemporoun d 3% ofs naor force patopat areuysematioally wcth hese nomi oe d s art mrusuae ha vrg-7% vngatne28om eliabole and c0% shavinformt tinons ona tchooe imformal sectoristey jobnt oppotuane

leaxmWs edcate sdyta unelyd tmen, pay n the Gvrment an192 uisad nage forjoahatble omeyapopilaateo Exlc it hunehodneploy meet n rr entrprselanmuc sooler gian l pranaeas, prtovgidei ksighty as ket thatiz o thrs asImnporcant s derofplnoymen loamcho the peopumlatment (Cactvti1992ke Tablen sheoss that inciec 19f texpiitnfompsoyme repsrfotsetedmal to varteyf hstoteatlclaborfoce buth eprcnmed staotus. ftenngiuwa mloe ouain

Nou.k ReLiGDbletn cnpistan information one ti %uinformai saeto lp erodpuy sefaet.Yethanlo otbto o h rwn nformal sector stdo nGDrtkenbytni avernetl192usag aalbe 1 %Asurexpctd(popultatio sellngsuoo, lotheso, andpsoyon)t, etherprise ndciopgal prviyofite flnmec)tprovdepoinsghta tovter soehl of the tmortal, sourwed 0f smcoml forts mucif e tii. ) po atind(hre1992).o ( % (peni Table 4 sows t lv198 the inomisctor erosnomed pearly aonmqare of theSiecem p980, the ssectoroliasebienogmalisg at aarateuofr8% anythe,gsowihglu bagime,las

NoaChot D a aialeasdoe 1 ulg th an eid atyrfeta u

lo cotibto 0ftegoigifra etrt D-naeae1% septdpett trd (slla fod lte,ads n ati rnia ciiy0 i nomiSctr

rec n ra aesunmlyent pass rife sroude9 of ti laforma sector parcuallat.gow ng ur an aas, bas

- 16-

Incmsed& the resuts of an informal sector survey urdertaken in 1992 should provide fuiier

MM 4: ElonqU 1980 and 1Ma J~~ ~ ~~~~~980 lmU,_

LAbo force 452,268 1I.669 383Apiouw257. 530 22970 -1.0Infom 73,9540 133,013 787

blb ~~~ ~ ~ ~~~~~16,3 227Infb* a"onaicuturo employed 54.3 64.9

Labr roe 65,1S0 127,066 8,7Jgmw 1,820 3,899 lQ0.

lafonnal 20,970 41,130 8,8

bI_ talNO 32,2` 32,4

- 17 -

II. TE ECONOMIC AND SECTORAL POLICY FRAMEWORK

Life in a Elsbhlg Viae

'Wle I maried, I came to lwve ia lhwl by tie sea I bsew noohlq abo dJhUag.lsere wer msay d ewat Rnds of psh, marL camginfm dte nor Mulet w

our main catch, but moito boo ts Sean h ma sov off nsmany t>el <fai. D(omotor boats, peopk caghtflph by swmmiag or wadlg la the haUlow wl asmmadefrom local plman.

Marabous played an lponant rok lnfJshng by hiWng tie face etie wter wtbwoodn bos to auract dolphbW--thq, do oiserjfh btwo thwe huow. -To rq.ytie mrabous, eacdflshhmaa gaue*aa a shar of hislcatdh. 2lsoy dqwnld onsud gfts..

lW7 dtieflshing nefs wereful, men brought tisn to thse isn whee womeeoued me oh/om tef, cwt off tieir isead, ad ld tA quaVy b<ow éer.-e la te heat. Peopk buy ourfh boter to heast ai mm of < mach mplaand beae t Lv good for m/mile weons Drled fiai were sold to pubg nonsad oeue occasionl Euopea la a car.

Only men fsh here and wom are ropoasiblefor errydting eue, W. wed to ei.-t wood f ttihe sunmusdlng oeqd& lM*e tdureum ast eough, wu aI

Jish head bonss. Today, mawyfhs arc sent dlreaiy to to»m, so therw are ew fiaheadi and Intead w me carcdu or caor gtu. GCm Es quc and eoa but, at yuoam seefnt the bura on my daughterts ana, It cn be daeo a.

Bfore tefamne,fewpepk liwd la TlhJlt. Then may of disra War WSenegal arrtwd to kearafshlagfrom u. tie Imrauu, who wre bonm gan w gtpby thedomea

Lge was better la the olddcys. We had meat, ml aid mns ea se"JWm Si.LouEs. We aU had dorak> o tooUec wanterJom the wIfr. Today, waoter Ir on*found ln Nouakott-oo far away evn for our dmp&--ad wteeil d wuay high prlcs. ' (An 80-yc old womsin }fli)

Somoe: O and Bae 1992.

- 18 -

29. Mauritania shares the problematlc chaactristics of many other small, opea Aficaneconomies which include: an underdeveloped Industrial sector, an occupational structuredominated by agdculture and an Inforai sector of low producdvity, roliance on few exports(ion ore and fish) for foreigp exdhange, weak public sector management, and heavy exteraslindebteduesa. These weaknesses have been exacrbated since the late 1970s by creepingdeserificatlon, stagnation ln the world pvice for Iron ore, wastefi investments, and conflictswith neighbors.

30. In 1985 the Mauritanlan Goverment adopted an economic stabilization progmbased on tigbt fiscal and monetary policies and on a frec market economy. Consequendy, allprice contols and utitatdve import restrictions have been removed, the import tarifF regimerationaized, and the tax stucture simplified and revised. To restore competitiveness andencourage diversification of Mauanla's export base, the Governmet is implementing anappropriate excange rate policy, which promotes the liberalization of the excbaage and tradesystem and is su rted by restrictive fiscal and monetary policies.Y Ihe investment codebas been modernized and the Govermnent has greatly reduced its role in employment andwage sefing. State involvement in the economy bas dlminished with the privatzatio ofcoarse grains marketing and other public enteises. Although these measures should set thestage for labor-intensive growth necessaty for poverty reduction, they have not done so yet,and capital-intensie investments are still being favored.

31. Pardy as a result of these refbrm measures, macroeconomic performance improvedconsiderably until 1989-real GDP grew at a rat of 3.4% per year, implying an average of05% aInl per capita growth in real income (Table 5). Yet, over the following three years,economic per«frmae encountered a number of disruptive interai and eten shocks,which seriously affected ouput Im agriculture, mining and fisheries. Economic growthaveraged only 0.8% a year, transiating into a drastic drop in per capita real income of -2.1%a year.

Table S: Pe Cashs lsosie Gmwt&. 1980-92

CDP rowd p o Gr P«e X

198044 :6 2.4 -1.8198549 3.4 2.9 05199092 _ 8 2.9 .2.1

32. Ihe progress achieved by te stabilization efforts bas reestablished keymacroeconomic balances. Long-term refrms designed to foster competitiveness and growthhave faced major difficulties, one of which occurred during the 1980s when the fisbing secorwas placed in the hands of a number of businessmen who bad little knowledge or experiencein the sector. Gradually this led to overinvestment In on-shorefacilities and fisbing boaut,overfishig and eventually to lack of maintnce--all sverely affecting the profetability ofthe sector.

33. Wit the main objective of ecraging nvestmeat irrigation in the Sezegal RivValley though the protecdon of local production, tihe Covernment has, since eatly 1990,

ne hovoemot dqiemd to .cange ra of i. ougiya by 27 percset ia ens of US dolars onOctobe« 4, 1992.

- 19-

imposed a variable import levy on rice, and from lune 1992, one on wheat& LevnBg addotihe compedtiveneis of rice ln a sahelian climte, the Impact of the import levy on pricesshould be seen from the perspective of Its potential impact on tIh poor a,d food insecuro.TI resits of the 1990 huusehold survey suggest that for the poor, tie lmport levy on rice(60% of tihe border price) represenls on average 2.5% of total housiold expendtur, withlittle difference between rur and urba ara-almost double woat they spend on healthi andeducation. Infomation to measure the impact of the vaibe vmport levy on cereals demandis not available. However, evidence from Mii and Burklna Faso indicates t hgiher pricesfor imported rice reduces not only tihe demand for rice but also for corse grais. ForMauu=tania, ths may mean tfiat tihe higier retail price of r.ce will neither increase the demandfor locally-produced rice nor increase the consmption of otier cereals, thus ireasg Ihelevels of food insecuity. Closer examination of tie economie implications of the importlevy's Impact on other cereal prices, on consumption patb, and on agnicutral acvlty isrecommended.

LONG-TERM POLCICS TO STlMtLATE ECONOMIC GROWTH

Land Te,ure and Irrigadon Dewlopment

"l7y ied w toake ldfraum w and m»ue lt tIwuulm, bt favd oppmUon-she idls se nch a pan i pof le ldwmhwesn d ty wlU lot gi. lt p au*. syou wAh ...frdtior( hsed lid WlIfot les ~tg. to sbirs. 27 aut bai no poan aw laihsvfdilgpeopkWs rlght go moan l laodP (A islet of Nouakhoi)

34. The Laid Reform Act of 1983 empowered tie Govenment to take over and grant titleofundemtilized land to anyone willing and able to improve t (Box 3). Its liten, however,was more speeic. lhe flood plain of the Senegal River and its tnibuaes are tie most fertileand productive agricukural zone in Mauritania. From tIhe mid-1970s, kt was the area witigreatst growth potentiul. Expansion of the area under irrigation was proposed by a jointriver basin development plan with Mali and Senegal, which entailed construction of majordams at Diama and Manantalin By the 1990191 seson, an estmated 33,607 hectr wereuider irrigation, of which 21,400 iecares were developed by private investors, includlgMoor busineusmen and goverment officias with litte or no previous Inwolvement withagriculture in tih Senegal Valley and the rest by large public or cooperative vilae-levelschemes (pbmres rrigu&s vigeois or PIVs)' Ns rapid growth has been hailed as a

2 Jnigüoo dvebpmcn vwho. po bau quikoed hos th.e may 190, à - w on of h fwaHlcsnv. *teM oppoztn*iuela m_ e ooaiy. Loca u, howet, remin uncompclv vk4.vbhnotd nos. A pont, dm prcducopcpo. of oal dm i UM 28kg id . rMi pdoo UM 30M&, whio <batof npoft.d "ic is UM 1ckg amd UM 3/g, rpcwy.

$ Thc Orsanisai pour la Mis.o e Vdeur du Fleuve Seuqa (OMVS) la rospol for dm ulw baid.vsbpnieu plan

"'Thetcnt irigable ar is asmatd at 135,O0to 155,000 ha. Of do ar ady d.eoped, roughlythre-fou is bcing pobd. 'nie National Agcacy fr Ruml Dc.lMm (ONADER) is sespolble fordevdoplng le iriaon scae foranil rma.

- 20 -

~~~~~~~~.- -2 |-. a i1 CWWIU hâ= 6 ;lt*%M4 ftu R Lirv3.jrb ~aitioM1 bo 4otlr bydX iut".'.''. ' . .tR >a U*ug 1nEv4 a@os r >4 i4 bàw :u

btwa aoS OfUUWs&uw u4wa t*o. iMult f4i4U4tit K4ony . * ibr

Amf*htMoE~sU* io w1g~ko~~daro1um

. ~~o~êoIem ada1~ooeàê

= ! _ __t4~ _a *4 w _ p4utIl~u :44*~«oi adh fh ~éIh 1ndtm

_o~a~y~ phi~h t~h u~t

*_ _ ~#fm4*tco~d~ii.~dpsu t~uo

___~~~~ osekd4pa4 1gt iuo 1 M ê

~r~bt~buj~ dd`iùflg,>,. b~nd h gSm=:m:

4

_ E

__F_~~~L ~~ ~~E*=~~~~ ' _ rf~ir

_wn~w 2 ~j

_~ ar_Wi akd

W'E _ eiêk sihgWdy omI J +

___k_~~~~Md ~so@w~~ uI_=_~~~~~~

__~V#~ .

- 21 -

successUl example of prvate sector dynamism, paricuarly as many of the privateplMèspappeared to bc more productive than public schemes and PIVs, according to ovidenc from1984-92.

35. Ibo impact of irigated agricultre on tihe income of the rural poor l sot easrlymeasurable. Ihb Agricu Sector Adjustment Credit, supported by the World Bank, hasbegun a pilot land tenure refrn in the Trarza-Est area in the Senegal Valley Delta deslgeto grat fixty of tenure and to protect traditional land rights. The dual objective of ensingthe survival of the "indigenous* sedentary population and allowing for large-se Ivestifrom Moutiders' is a tremendous challenge, since traditional rights are difficult to ascertain.

36. Farmers who practice décrue or recession agiculture along the Seegal River on landmoistened by annuel flooding of the river bave also lost from the expansion of irrigation ithe Senegal Valley. In a good year up to 100,000 hectares may be cultivatd in this way onthe Mauitania bank. Construction of the major dams at Diama and Mananli bas enabledthe River Basin Authority (OMVS) to regulate the river flow, but ft has falled to accept theneed for a large and tîmely flood as a policy priority-emphasizing instead the Importance ofirigaion and hydroelectric power. At a donor meeting on the Senegal Valley development iMay 1993, the Government espoused an integrated approach in ternis of types of productiontat would place less emphasis on irrigation ad more on flood refsson, livestockproduction, and.forest production. ibis needss.to be followed up by an action plan to ensrethe efficient management of ti. artificiel flood regime from the Maantali reservoir.

37. In addition to the social concerns, the debate over the optimum use of Senegal Riverwater hinges on economic and environmental questions. Although water in rigaed areas lsavailable for expansion of up to 120,000 double-cropped hectares in MauiUnma, tIhe rate ofexpansion ls constrained by increasing costs of developing new sites. Yet, in these new sts,recurrent costs of canal maint ce and desilting are likely to be high. Failure to carry outsuch work may contnbute to the declining trend in paddy yield-from an average of five tonsper hectare in 1986187 to 2.8 tons per hectare in 1991/92. Other facors which conlibuted tothis fall include: delayed planting due to late arrival of inputs, which has occurred onprivately as well as publicly operated perimeters (Appendix Table 2.1); limited acreageallocated to double cropping; and slow growth of private investment in new perimeters-allof which suggest that the economics of the irrigation system should be r.2-.xme5Enlviroumental concerna revolve around the salinization that is affectdng rice irrigationschemes, and which, ls in tutu, destabullzing sand dunes on river banks.

38. With an esdmate of only 7,000 househoids operating 'largescale irrigationpermeters and marketing approximately 90% of the rice crop, the forward productionlinages into the nrual economy are likely to be small. Transportation, processlng, niling,storage, handling, wholesallng, and retailing are thougbt to be dominated by capital intemive,mwwpolistic and clientelistic structres. fiese inpediments, If they exist, are difficuit toaddress. A first step is to undertake the study recommended under the Agricultural StrucAdjustment Credit to measure, describe, and analyze the structure of the grain marketingsystn Thereafter, policy recommendations to reduce the barriers to market entry ud thm

2 Pulh«oe we4 to suc a _emino is Sivm by omwrkz c aL (op.dt.) who suggsatu haioermhing systs baupon reoeso arluli, pulry coudcdng ltb oevionW exd_ealit of

p_ nmanotir dhm bae beme& dt hae bo am£oay mun tù

- 22 -

increase the potential for poverty reduction, principally relylng on more labor-iensivetechniques, need to be identified.

39. Determining whether demand for locally-produced goods has increased o the part ofrice cultivators is imperative. The large rigaed holdings, and hence cash income from rice,are owned by about 150 families, and the expenditure patterm of these middle-incomecultivators wil probably stress imported goods rather than domaestically-produced ones. Higbcapital and management cost, especially for maitenmce wil constrain smallbolder farm«s(former sharecroppers and landless slaves) in expanding investmeuts in the long term(Horowitz and Salem-Murdock 1993).

Lleock and Rangeland Management

40. Livestock bas been a traditional form of savings lor Moors, since it bas proven moreprofitable than bank deposits. 'Me droughts of the past :wo decades have foroed pastoralsto sell large shares of their livestock to wealthier Moors, namely traders, civil servants, andlarge farmers. Preious owners are hired as herders by this elite who now control thelivestock capital and the marketing of livestock products.6 Iboe herds of the absenteeowners, often kept near urban markets (partlcularly Nouakchott), provide milk to urbaresidents. Sucb herd concentration (estimated at 100,000 camels around the capital) in limltedareas with open access may be contributing to sand dune mobilization. Yet, for owners, largeherd size is an asset and a social prestige thus more important than rangeland quaity.

41. To improve rangeland management and the productivity of livestock, the Gover,ume,with World Bank assistance, has supported the creation of Pastoral Associions (PA). Aprincipai objective is to improve the sustainabilty of rangeland and water point managementby giving the PA the legal right and technical support to control open access and guardagainst over-exploitation of the range. 'Ie empowerment of the PA has proven difficult'Mbe Government, under strong pressure from wealthy absentee owns (a powerfil lobby),has resisted granting the PA legal recognition and acess rights to specified teitores. lheabsentee owners laim that the Isiamic shariah law allowing open aocess to all should apply,while the pastoral associations maintain that traditional access should be the basis of accessrights; as for land tenure rights, it is not easy to define traditional transhumant and waterrights. Despite this legal issue, the creation of the PA bas raîsed awareness of rangelanddegradaion, and pastoralista recognize te need to limit overgrazing, stabilize sand dunes,proect trees and manage areas around villages-all of which would contribute t greaterproductivity and income in the long run. Tibs consciousness has yet to be translated hmosignificant action.

Rislng A4grcu l Produvky: Exeson SerWies

'Edwa nm be delW a8eg eaiy progm o Al Aohfame how dw problau fehdfrlaid bufr dmai oe, aid how to ge die bt bmnedl remks.., hq daio st ha bnl8teom mnagemnsi d .. Abo, hey need ckar gsancIn the un ofaew t da golmaus*e lu benefu M&oufarmuers are repdw to Mew eA, as long as t / cm clrtee #dir poal beun. ' (A Puli living in Nouakchl)

2 la 1986, i wu estimuted dm about 40% of the 6agoml bord wu ownd by absout. ow

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42. Given the nomadic nature of the population, agricultural extension services bave beenlimited and have not developed as quickly as the sedentarization process. At present,extension training covers less than lÔ% of farmers and herders. The Ministry of RuralDevelopment (MDRE) has overall responsibility for agricultural and livestock etension, butin practice several organizations have carried out extension using different approaches.YExtension in the livestock sector is minimal, mostly linked to animal health campaigns and theorganization of pastoral associations. As in many countries, the existing extension servicesIgnore women producers, and women are under-represented in extension contact groups.Messages detivered to farmers neglect the areas where women are most active-the productionof vegetables and cereals and the aring and feeding of small ruminants.

43. To address the remarkable shifts in economic roles among the population, theGovernment has elaborated a five-year national progr;m to upgrade the supply of agriculturalservices, focussing on strengthening the linkages between extension, research, and agriculturaltraining. A World Bank, multi-donor project, now in its pilot stage, expects to: consolidateand improve extension services for crop and livestock production and natural resourcemanagement; provide training of extension agents and researchers, and functional literacyprograms for farmers; and ensure that research is adapted to the socioeconomic milieu and isresponsive to farmers' needs. 'he project gives particular attention to addressing the needs ofwomen farmers and to increasing the number of female extension agents.

Promoion of Arsanal Fishing

44. 'he modern fishing sector has relatively little direct bearing on the poor.? Yet, itsimportance as a principal export earner and a source of government revenue means that adecline in the sector would have significant negative impact on macroeconomicdevelopment.Y Artisanal fishing, on the other hand, has been restricted by the lack of afishing and sea-going culture. The only traditional fishing community-the Imnraguen-hasalso proved relatively resistant to Government efforts to increase its productivity and marketorientation-in contrast to immigrant Wolofs using similar techniques ÇI'vedten and Hersoug1992). While artisanal fishermen catch a small proportion of the national production, theircontribution is far from negligible, and considerably labor-intensive (employing about 2,000-

27 SONADBR has used the ttaining and visir approach sinc 1992 in tihe Senegal River VaUey, Ihe MDRErelies on a upafticipatory extension approach supported by the UNDPIPAO, and AGETA (Association desGroupements d'Exploitanb et d'Elevcurs pour l'Etude et lEmploi des Techniques Azn6liorées Agricoles etAnimales), financoed by the French Coopuaion, rins a small private extension service.

2 Household surveys, however, uggest that half the urban and Senegal Vanley population eut fish onoe awek FPsh also substiutes for mest in the diet of the poor, and consumption is likely to increase with anydteioat« in thec national povcrty profile.

" The World Bank tirsheties Se«tor Revicw of December 1992 outlines the stops required for establishmentof a coberent national flsh mnagment regime, based upon promoting private investment in production andpoemgwh strahentheing Govenment latory capacty - patiulady to prevent ovcrflshing. It wams,howcevr, that prhatizaon of thc national fDect bc considered only if buyers can be found with proves expetienceand sdlls in fisheries managemnt. hie repoit also observes that the more successfud the inplementation offishing controls, thc harder thy are to sustain because of the resulting increase in profitability as atch-punit-of-efMbrt (CUE) recovrs.

- 24 -

3,000).3 Artisanal fish yields are poorly documented, but it is estimated that ardsanalproduction peaked in 1988 at 22,000 tons, declined in 1990 to 13,000, as a result of faillngcatch-per-unit-of-effort (CUE) and the departure of a many Senegalese fishermen, butecovered in 1991 to 18,000 tons.

45. Artisanal fishing bas been officially accorded 'absolute priorityu by the Goverument,in its Declaration on Fisheries Sector Policy (Article 33), but progress toward this end hasbeea slow. lhe Declaration outlines some requirements to fuif i this objective, namely tiheprovision of: exclusive fishing grounds for artisanal vessels; modernized fishing vessels;financial resources for small-scale fishermen; training; and new infrastructure, such as portfacilities. Internal price controls were to be lifted and the export of products outside theconol of the Mauritanian Fish Marketing Company (SMCP) were to be liberalized. lheGovermment has been slow to implement this policy. Granting small scale fishermenexclusive fishing rights in certain in-shore localities would contribute to small-se fisheries,and aUlow selective fish-stock recovery. Artisanal fishermen also face limited access to crediLAlthough past credit schemes have not succeeded because of repayment difficulties, ways toaddress the specific credit needs of artisanal fishermen require immediate attention. IlbCompany for Promotion of Artsanal Fisheries in Mauritania (SPPAM) was established in1983 as a public cooperative with Danish financial and technical assistance, but its finmciallosses and poor management preclude its potential leadership in the artisanal sector.

Non-Agrictual EWloyment and Wage Policles

2,L, n, aot a marke. We are not doing commerce. is ; a way to spend tnte,Waderen«Ioym. (A mnchant in KMa)

46. Ihe construction industry employs about a quarter of the secondary sector and is apoteti area for furither employment, especially of the poor. 'Me Government has recentlybegun implementing a labor-intensive project to strengthen institudonal capacity and togenerate employment in the construction industry i urban areas.3' lhe 1989 conflict withSenegal is continuing to have a disastrous impact on arisanal fishing and has creat.d ashortage of technical workers (Box 2). lhe repatriated Mauritanians, on the other hand, havehad difficulty insertng themselves lu the highly competitive petty commerce sector. Adiscussion of the program to help repatriated Mauritanians and laid-off employees is found inthe section entitled Transitory Safety Nets: Reinsertion Programs.

47. Despite the Government's policy of promoting small- and medium-scale enterprises,the Iuvestment Code ls biased in favor of large capital-intensive enterprises. Whilesedentarization will allow some expansion of light industry in secondary urban centers,partlcularly for food processing, beverages, construction materials, and housebold chemical

3 al fislt«iue are dfined in Maurian using techniques otlter dm tmawling, baving no deep-*oezo faiti, md relying on a motor (if any) of bus dman 200 horse power. Yet, most artnal fisdg vue"sin Maurtn are large canos (pirogues), many of which arm equipped with ouboard motors.

3' The Consutio and Hmploymcnt Project (AMETPE), suppotted by the Word Bank, as hoompod hopflot opeaions in Nouakohott. Tes activides moluded the constucton and rebabl of achoel clasaoosand heah fliities, the constuction of drainage wel}s, sand removal from major roads, and duoe repair in a urlarum noir Nouakchott, and rted mainly on unskid labor. Tne projest, effecdve Augut 1993, sared ope«ationsia euay 1994.

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products, this expansion wil develop only if constraints such as Inadequate tranportin&astructure, expensive energy sources, and scarcity of skilled manpower are m ized.

48. Ibe officiai minimum wage of UM 24.46 per hour has been frozen since 1982 andhas been difficult to enforce outide the public sector. This suggests that officiai wagerestrictions are not discouraging employment. Civil service salaries were frozen in nominaterms between 1985 and 1992, implying a fall in real terms of roughly one-third, althoughincreases in fringe benefits and allowances have offset this fail for some groups.?2 Despite astrong tradition of collective bargaining, Mauritania's public enterprises and modem privatesector tend to follow wage adjustments of the public sector.

C>edlt Policy

a we camaa Noukchot, ny >uw s2 sq a imail aOAn a boan sy.. He Hgtradm to lend him goods. We sol Uhm, tJweh hu paid he tradars. n tb swoy, ha ddnoneed mach caaL a (dely woman from Traa)

49. Until the recent past, the Union Development Bank (UBD) with the National RuraDevelopment Agency was the only bank providing rural credit in Mauritana. hs crediteffts were not successful because of repayment difficulties and high adIministratve costs.SONADER stopped providing credit in 1988 and UBD in 1992 (It was liquidated in 1993).li 1992 the Goverament, with donor iavolvement, established a rural muual credit systembased on cooperative principles. Thus far, two cooperatives have been set up in Rosso andKaedi. Commercial banks have extended some credit to large-scale operators but not to smallfarmers.

50. As in most Sahelian countries, small entrepreneurs have little access to formai creditwhich forces them to rely on their animals as a store of value and for cash needs. Yet, theLSMS shows that both rural and urban households frequently use informd credit-40%surveyed i 1988 and 28% in 1990. These percentages do not vary much by region nor bysocioeconomic group. However, fewer female-headed households have outstanding lons thanmale-headed households. The data does not specify whether this reflects differential accees tocredit or differential demand for credit. It is clear, however, that about 90% of ail infoirmaloans are for corÀumption not production. Informal loans compensate for shortfills inconsumption expenditures ratner than for purchasing inputs and productive assets for licome-generating acdvities. This reflects a lack of credit demand and the difficulty in attainingcredit through formal financial institutions and intermediaries. 'Me informai system carniesvery high interest rates and ofren functions on a barter system, where a good, such as nice, isborrowed and repayment is in the form of another good, such as animals in a quantitysufficiext to include interesi charges. Another method of recovering interest charges is tolend a good such as rice during an abundant season and then recelve payment of the samequantity of the good during a period when it is scarce. Effective interests rates in theinformal credit system appear to be quite high-40% to 100% or more.

31 Alowaeus and fiinge becofits for eachon, doctors, and public entepris. employes arm bigh,con_tutig a subsa sharo of their incore. For some teas, theso non-salary benet oa actualy bcgrea4:r than their airy -monthly houaing alowanccs vaying fiom UM 1,0006,000 for thoso who are notprovidod with a houa., monthly incentie bonus ranging from UM 3,000-12,000, and monthly aUowanoes ded toposition of UM 2,000-9,000.

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51. To avoid the expensive informai credit of moneylenders, women have adoptedinformai group savings mechanisms (Smale 1980). Many of these schemes are organlzedaround group production. Women groups market agricultura products, produce handicrafts,and farm collectively. In Toucouleur and Peuh groups, a tradition of age-cohort and caste-based groupS are responsible for organizing ceremonies and providing gifts. Group swpingaare also accessible to individuals ln the group (similar to 'tontines'). Women often use themoney to purchase goods to be resold in the village or to purchase clothing and gold. 'leGovernment's Center for the Promotion of Women (CPF) theoretica11y provides technicaltraining and support to women's groups who have organized themselves into cooperatives, butthere are many groups throughout the country that the CPF could assist. lhese groupsrepresent a potentially dynamic source of economic entrepreneurship. In urban areus,membership to these types of savings groups is not strictly tied to age or caste. lhese groupaare used to generate revenue for petty trading and to purchase supplies for handicrafts. Inaddition, they are used as support mechanisms for divorced women and women whosehusbands are unemployed. Group savings are also a source of funds for retur visits to thehome village where substantial presents are obligatory to mainain status.

IMROVING TUE FINANCING AND DELIVERY OF SOCIAL SERVICES

52. Recurrent expenditures are dominated by three sectors: human resources, defense andsecurity and sovereignty (Appendix Table 2.2).3 The social sectors of education and healthhave been singled out as priority areas by the Govermment. Yet, the share of recurrentexpenditures devoted to husman resources remained unchanged over the period 1986-91(averaging around 40%), and actually fell between 1989 and 1991. Ihe share increased onlyslowly in real terms, as did intra-sectoral allocations to primary education (from 32% to 36%of total education budget between 1988 and 1992). On the other hand, the share of mUltaryexpenditures has fallen significantly in real terns (5% p.a.); in current terms, however, thelevel remains high-25% of total recurrent expenditures compared to other Sub-SabaranAfrican countries (12% on average). With regard to expenditures on transfers and subsidies,educational scholarships are the largest item.

53. During 1986-91, public investment la the social sectors averaged 12% of totalinvestment expenditures, of which 2.5% was allocated for education and 3.5% for health,despite these having been targeted as priority under the 1989-91 recovery program (AppendixTable 2.2). In fact, investmenes in the social sectors actualy represented half the amountplanned due to financing problems. Investments in rural development went to agriculturalprojects, notably the development of irrigated agriculture on the rigit bank of the SenegalRiver (para. 34), and rural water supply. la infrastructure, priority has been given to roadsand urban development, a result of rapid sedentarization. In all years more than 80%, andprior to 1989 more than 90%, of the realized lnvestments in the Public Investment Program(PIP) were externally financed, primarily by loans but also by grants.

Health

54. Since the 1980s the Govermments health strategy has been directed towards providingpreventive and primary care services to the largest proportion of the population by limproving

3 Expenditure on aovere include mainly aLoct to tih Pn sidency and the m=ninit of FinsaOc,Trade, Plan, Poregn Affaira, and Maghrb Affaira.

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accs and quality of heath srvices. In its 1991-94 Health Plan the Govermnt foc1 on(O decentralization; V) resource mobilization in favor of regional health centers; <II)strengthening cel plnning capacity; and ffv) establishing an essetial drugs program.Progress bas been positive. lhe Govnment is addressing the drug availabîlity problem byintroducing essetial gerenlo drugs ut the district health level on a pilot bais in seveu wilayas.flese drugs will be purchase by international competitive bidding and distnbted througbthe boalth cena. At the ume time, it bas begun to decetalize health services andintroduce a cost recovery echeme for district health services, primarily based on cost recoveryfor gerenic drung. An experimetal cost recovery system bas been introduced in Nouakchotand is flctional hi seven wilayas, where basic medicines are sold at a lower pnice tm ianprivate pharmacies. IL the remalning wilayas, tie provision of basic dmrg is progrengwell. Ibis policy, supported and pardy flnanced by tie World Bank, ls a success and uhouldbe encouraged. A study to defin a monitoring system on the use of health facilities by thepworer segments of the populatio is under way.

Educadon

55. In 1987 the Govermment Inîdated a restructuring program for education and training,which has shown progress over the last two years by increasing the sharo of primaryeducation ir it tot .eduaion budgeL For primary education, tie progrm called fr <0)inersing ac-es' to.education by assisthi local .oumumities tlirough matchlug comtibuioin the construction of low-cost classrooms; (il) improving the quality of education tbrough thoprovision of ttbooks and teachers' guides; and (ii) promoting efficiency by introdùcngmuit-gade teaching techniques in rural areas and double-shift teaching practices in udrareas. Demand from communities to participate in the school constuction progrs has beengreater than expected-gross primary enrollment increased from 49% in 1987 to 57% in1992, and is epeced to reach 70% in 1996. Recruitment of teachers has increasedconsiderably, and the textbook development and distribution program, after inidl delays, isprogressing rapidly. In addition, the experimental program for multi-grade d roo anddouble-shift schooling is being evaluated to assess its effectiveness. As regads secondary andhigher educadon, effosr are under way to improve its efficiency by: (j) improvlng tho qualltyof science teaching; Cii) improving the relevance of technical education; and (ii) controlllngbudgetary increases to higier education. Progress is being made on the first two frot, butpressure from university studeu and administaors forced the Govermt to reconsider itsplanned resource cut ad to re-examine higher education issues."

3' A Toe«nl Bducao and Vocaton Tafi*ng Support Projeot, fina by di Wor au ad tiePronch Coopeoal, aima t tabslbuni a coheot, unffie tainmg aeau wbIr would xapond to lautdmanda. Do o_mponea lludo: ) (iO caion of a Rosoure Ceer to support profosio l ul O indudoso a to maitan tiio qualty ud imprv t oienoy of technical oduoaao; O _etburing . Nadon

Vocaonal Tsinlng Cer aid providig it witb a fund fobrinf mor niWn (al) oonstucton of aNatoa Mafi Tru School aid auppot for devoIop its propm; and ()v) s of

uioais _po for traig ivtw. pons m dung t.second Watf of 1994.

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f rastae: mranort and Water Supply

'Du watwr and .lec*rjy coneWa n.d to pro" waaerfrfm a pwu*ado plat, but b robedovm trw yors ag. SJwr A., wevw ds< reseae weUs aid biOA dumnb to brigwciterfoa wh &tm ta bure di ? r aoqwhk Aparfom wau bmght by me hsantaaorgonors, w, hae padfor al our water: I rememberpayg b«Nâfor UU 10,0001. Vew*ser plan ddat coJllsefor want of moyl (A rsidont of shaaty towa samr Nouakbhott)

56. In principle, 'opening up' nura areas by lnvesting in tasport facflities woudcontuibute to alleviating poverty, as access to markets and social infastructure wowldimprove. However, the cost of doing so in a country of Mauritanla's size and low populondensity ls immense; the desert topography also means high levels of maintenance endituresare required. In the urban areas, the issue is less one of large scate Investment in roadconstrucdon and maintenance (as in rural areas) but rather one of ensur£ng adequate trnportservices, provided elther by the public or the private sector.

57. Ile Government has not yet deflned a road transport policy. In 1990, it begalconsidering a policy that would focs on road maintenance rather tda construction, promelabot-intensive road works, and rely on private enterprises for their implementAon, butextnal developments int pted the dialogue with donors. Under tie Agence Mauritiennepour I'ExEcution des Travaux et de l'Emploi (AMEXIPE) project, the Govermnt hasagreed to establish, a programming unit for road works, whose primary task is to elaborate afive-year road investment program that would pick up on the 1990 criteria. It is hoped tdatthis program would pave the way for an eventuat road sector policy, supported by uxternalflnancing.

58. As regards urban water supply, tie Governments objective ls to ensure tat by theyear 2000 all water will be supplied by private connections and standpipes, at least liNouakchott and Nouadhibou. Given the current pattern of water sources, espeially in theperipheral areas which are largely reliant on water vendors, this ls very ambitious. lIeGovernment's 1992-96 plan, totalling $97.6 million, covers mainty Nouakchott and tensecondary conters (10% of total cost). To achieve this will require. a substia extensionof the existing network as wel as laIge-scale cost recovery from the beneficiaries in order tofinance this extension of the network. The costs involved in the provision of hygienicdriing water to al ihibabitants are much bigher, and the costs of collecting tif revenuesalso high. Tie Goverament proposes to significantly enhance the role of the private secor inthe provision of drinkng water in rural areas tbrough local-level inidatives, though whetherthis cm be done cost-effectively-providing a minimum guarantee of hygiene and at pricestbat ra inhabitants can afford (given tihe likely high capital costs lnvolved)-is open toquestion.

35 A fri phase of this jvetasou pgmm, beiang fioaaoed vwh IDA _isuos, covere b most lumtrebabilottln and exteasio wk and tecohnial oundworck for fAturc wors. lIi projeet exped to met thedemnd for wer in Nouak until tho yr 2000 and to eahane a mo equlab distibutiof of wateo,aIobwg oasier aocus te a piped water suwly sysmul for tho poor.

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IV: SOCIAL SAFErY NETS

Go to Xh peopleLive sg dura.IAM frei 1hoenStait with what they kuW,Build oen wbh tb.y have

Te" by showiug,Le by doing,Not a8 howca but a pae!â,Not odds edMds but a 8yste,

of fli boute ,W heilr taak is _omplshednhe peoo a rema&t*Wk hAe donw b oimb ^

(by Dr. Immes Y.>

Soc:Wod r uloa Inte on1992

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T>adWonal sQtly net

59. Traditional safety nets associated with the extended family or tribe have bs unableto cope wth the series of droughts and subsequent changes ln lifestyles (para. 13-16). Uralifestyles lhibit may of the socil relationsbips and labor exchanges that used to act as saetyne in rural areas. For example, many artisanal groups no longer pursue traditionaloccupations due to lack of demand for their goods or services. Although threatensd, tIhesafety nets baued on soci ties stl1 continue to be Import for many people ia mral andurban area. Mombes of an exteded family assist each other when necessary ndMiduals ln a particdu fration or clan can still expect support fom other members of the

sme group (Annex 1). However, new mechaniss, such as neigbborhood-based women'sgroup, are developing in urban areas to replace the blood ties lost in the move to the city(ssagba 1990). lhe vital Importance of migration on household income has already beemdisssed under ti. section Household Coping Mecanisms para. 14-15). Other mechamsswch a food aid and the participation of NGOs are replacing social safety nets weM ened as aresut of Muitaas cutura, social, and demographic transformation.

Fo&d Securiry: te Role of Food Ad

60. 'iMe high levels of malnutrition and child mortality, the fane-related deaths reporedlu te ffirst half of 1993, and the low absolute standard of living recorded by the LSMSIndicate tht food secrty contnues to plague Mauritania. Moreover, the LSMS reveal dtwealy households receive almost the same proportion of food aid as do poor housciolds.'le administrative aangements for distrhbuting food aid ln rural areas and tihe ineffectivenessof existlng policies îl reaching the most vulnerable groups puts in question the role of theFood Security Commsion (CSA).' lhe importance of food aid to overall food securty adescribed in more detail in Box 4.

61. Whîlo large quantities of donor fünds, often la the forn of food aid, have been usedto finance fre food, food-for-work programs, and child nutrition programs, these programshave overemphaslzed the quatty of the infrstructre built and paid littie attention to eithet*ort-term Issues (impact on consumption) or to long-term effects (impact on the incomes oftiie poor) (Box 5). At presn, a poverty and welfare monloring system that identifies and

36 lhe Commisiat à la SWoAit Ailma (CSA) was vored in 1982 to mae fod aid, wiffcouddnbls iqnp fi= eh don oommuIhy. la 1992 a tuw dece mandatd tbathe CSA woud be respoasfr (O deborting On Impeting a *bod sorty poliey, (h) maaing a bemaon oma o h caoeamau sd (i) povldlng support te d promoting onumity-basdactivties. h foin lde: (O) "h.pwtbs mmd oollcco of 1cal oeA produon; Oii) th. of fod ad; ( th. orgnzo dsbutin offm food aid; (iv) dut povson of fwod ad via Poodefr-Work (PPM) pmo; (v) th. seetg up of aufnn_a" oma*edng syta; sud "v» dm. _ of a food seurty doc. Bulaly, oly h bat th Wb

dlffcr fion Ih. 1982 mandat. M4jor obhaes ia h new da:roo ame luiu on, namldy () hd donon aao lng_ reproend la . adm_ tsttiv am of tdm CSA (de Csil de Surwvuio), dsoe y foty M tW dav ot w aken inb aouat la th. ma_gemen of progm, amcountng, proceduraltsrs, and so on; asdOil) tu a CSA.Ioa bs bom ea h. satu of a mpubio e.ntprisw with ommercianee (EPMC), but iamangmt sd prooedur folow dbs of a _catrled ttutic-foils adminaaiv uder eho PimobMtnas Offic and fmiafy uade h. Mdo ustry of Fmasm As an EPIC, "h. CSA bus o mobili Îa o-ruoucs Io naneoh. opaling ooss ud pa ofis lvhmemue cos of its actvio. Ptior Io 1992, oportiagsipese sd fmd coSu w ' l'Id fi. th. alu of fod dd (otoehd wi. aermauked to tDh CSA). nr basbom muas deba on vauous ms of ctig th. budet of eh. CSA betwa Coverumatsd daos, to thepcb«o i. 1993 bwdt bu yt to b adoptod.

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targets beneficearios is not fincdonng well and a parallel system that would monitot theperformmce of the food aid program against ht own operaional targets and againstmeasmrable improve lnts welfare does not exist.Y'

i~~~~~~~o 4#1o3IfLyn .4M

2 i i i i 2 i E i E i i bd"' B1i , E = | E E %îQN s Wh 1

, E i u Zi > g g I1, W î

Transgory Sptby Neuts oRa«fdon Programs

62. To mitgate the hm* .ups of uneWmloyme due to the reforIs under the StruhcAdjutm Progratm, in 1985 the Govemument creaWe a reinsertion fumd (Fonds à l'Insertionet à la Réwint don ds li Vie Active sfflVA», withi the aim of dhelping gra. a ,k retiredciMi srvan d ramgran worlcers reutmig to Mabutania set up economîc acsdvities. Underthe program, retrenched workers were provided with employment counselling, acces totrinhg, ad fmancia assisue for the establishment of smllI businesses in priority sectors.Demand for the program was relatively low, pardly due to inadequate followup of theprogram's operaons, aggçaated by a low loan-recovery ratio.

63. Subsequent to the large shift în popultons due to te April/May 1989 disubw cesnd the consequent economic and soca l problems, in 1990 the Govnment put in place a

rsertion program for the repatiad from Senegal, which provided subsidized credit adtining to re e. lbe loans were intended for aticutural and artisatal fwling projects

37 The WIP has a moboudn sysa Iht cda. to od dm a i iven Sipmead of f1e1 food aid s dev loa ghen lation, bu it dms noa v. it dt.ibutio, aecep .tuugb dounting do.uçmen and #otominter of be kos Oued on en uvdfiedo lis of amm). In sho.t, the, WPPs syv.em dm na hav thezPaitYr to cary out cith« syc o folww of frec food aid dist.ibution ot to urgtpopulations in mod offic food aid.

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to lmit- tei influx into Nouakchiott and otheri _. = urban aeas. lbe program spent

..... ; . ^: consid"rable resources, but the economiein us| Xb. X~ v.mmsu _tcda ~ and finmaial impact of these efforts has yet

p*~ ~rê d kiatm%ofÂ,o i~. .1 Mdto be measured. Many, if not most, of the.O i i E remnees are stilI poor.

64. In 1992, the Government caurred out.1ay w«.t 2 .. . =.«'.X. a survey to trace the laid-off workers from

ooiutM1~t ~ê*dai p i1w .a to i thie public enterprises ln order to measuretIIftI I *tt t'S.~ the progress of the reinserton program.

| . ; _ 4434 Preliminary resuits of ths survey indicate.that of tihe 837 persons traced (out of 1,235

*1n4oetuls =choe~ _ = laid-off employees) 24% have found otheremployment and over 80% romain

| W4t~fnfdio _ood4br~Wok _unemployed and live in Nouakchott|l~t<WV<1~* | ;*,~etO4 _. Former administators and sklled laborers

IghO K rît: have found employment more readily.| | _ X _ W Almost a quarter of those who did find new

.g mqSu~mçat.tooet*yeu_x ~jobs were back in the public sector in either| } ~u~àe*d~MdAiruec the civil service or public enterprises. Ihe

| I~~1l.ot*w~o*u~a.14m, llaid-off who did not find jobs have probablyg y PbI~P.~Is.~ib~l~and slipped into the informal sector.

7he Me Of Naos 6mhro

IforgmWnav~oW aUmp. pp m fordmpi*t cUu lqgu. a

and $ee-sosnelhne eve clohe, rkce or buer ...l7eI main ahu waus to 1a4p wu m< p asaietgardens..0 oncew dldwefeel laidoi.uly m-iwnjfod hadouls were opped Dsadsey

Iola wd "0a a othm needed h4lp more dan oursefre ad we coUd now 1frhsdeende~,'(An owner of a vcgeeablD gardesin a shanty town ouW&id of Nouakcott)

65. Unhike most Sub-Saharan African (SSA) countries, Mauritnia does not bave a long orextesive tradition of NGO iavolvement. There are only twelve Interational NGOs presntly

- 33 -

acdve ln the coutry and seven local NGOs.8 Since 1988, the Goverament has being trylgto increase NOO involvement snd the move to a more parelcipatory approach in commnunlydevelopment In 1989 the Fédratlon des ONGs (FOM) was formed as a bumanian asidand an economic and social development association; it is not an executing agency, but ratheran norma Insument to promote communication and agreement between NGOs and theGovernment. lbe POM coordinates with the Cellule de Coordination Gouvernement-ONG(CCGO) which was offlcially created in October 1992 to serve as a permanent contactbetween the Govemment and NGOs. Ibis coordination ensures that the activities of theNGOs are consistent with tie priorites of tie Government. A legal instiuonal rameworkdeflning the Involvement of NGO has been elaborated. In general, the international NGOsare receptive to this collaboration with the Government, but empbasize dat they cmn contnto be effective oaly If their autonomy from public intervention is assured.

66. Most international NGOs are involved in emergency relief assistance for drougbtvictims, refugees, and food insecure populations. NGOs othenvise concenta on a particularregion of the country, gig attenion given to iated rural development projects, healthcare including nutritional and hygiene education, and support to micro-entises (home andco3m0_ty gardeus, tnning, dying, embroidery). By their natre, NGOs work at thegrassroots level and ebrae the particlpatory approach. In Maurtnia, given the veay rigidsocial saucture.md the s«rong tribal differences, the participatory movement ls a concept thtlas not been easily ccepd an-d has encountered resistance. Ibis is less true in the soutienpart of the country, whore there ls a longer bistory of.community orgaizions. 'IeGover's opening to greater NGO involvement, a move toward decentralization andcommunlty participation, is a positive development that needs to bc encouraged andsupported.

M 'lii emi atio NGOs inolude: AMei 70, AssoItion Fnas des Volontaies du PMmoD ,Calu, Commmai« DOULOS, Pddation Luim Mondial, Ien"n Union for the Conion ofNate (IUCN), OXPAM-U, Phamacies sn Prontièr, T«ere des Homms (Lausann), and Wodd VYismIntheaoL local NOs fou on heh proxmoion of "h. family and women, and proie asusisaneo ded.PPC

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V: ELEMENTS OF A POVERTY REDUCTION STRATEGY

"ffow to inpve Ouw Sif Ou,.... a

'In the Senegal Rlver reglon, I belleve man has been the mojor detuslveforce on tie environment: we are to blamefor desen#fl caon. Too much wood ha,been usedfor construction and coolkng. lhat's why some NOs hav reconededenergy efficent stowv. We hope Mhuee wfU help preservw our environment. NGOs cnhep us cofo%nt and improve our stuation but if they are to do thf succeifly, theymsus wom* directy wlth the peope fnvolved-othe,wmse their effors wl be ln bein As regards the serious problemsfacing agriculture, pastorairsm andfishing, I wouldadvise NGOs to put theJr energfes Into peasant education and Into t*e bnroduton of

vw, ap tprime techologaes Io fmprove effieqy.

E4uatlon nust be thefirit stage of any NGO programn Altsoughfannewbsow the problens of thefr anud better than anyone, and how to get tie bast Immedlateresmusfrom one harvest to the net, they do not have long-tern management Xkils:hoW tOan more for thefuiure, how Io save their money and resources, how to adopta more muanable approa& Aiso, they naed ctear gudance ln tse use of newtechnology to mawmize its benqfis. Mostfamu are receptive to new dmea, as longas they can ceary ee thsefr potentia bene,flt. 7hqy have alrady seen some ben#ftsof dewlopment work, especialy welcomfng tie newfast-growlng seed w iaes.7hey're cailng outfor new tecJmology to incease production. < (A rcired diplonat inNouakchott)

Source: Cross and Barker 1992.

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67. Mauritania bas undergone and continues to undergo dramailc shifts in demographibpatterns. A poverty reduction strategy, therefore, must address both the dilemma betweerural and urban developmen within short- and long-term perspectives. Poverty seems to bemore prevalent in the rural areas, yet the dire needs of the urban poor cannot be ignored.Rural exodus is suffocating te urban areas, yet droughts and limited economic opportnuiesin the rural areas are daily realities. Promoting lrrigated agriculture is one solution foreconomic growt, but past ats at irrigated rice-a low-value, water-intensive crop-areproving unsustainable and capital-intensive. As sketched out in Table 6, a su-ategy to flgEtpoverty needs to include: (i) improved opportuities for rural income generation andlacreasing agricultural productivity; (i) employment creation for the urban poor; and (iii)improvements in the alocative efficiency and equity with which social services are provided.In the long tern, the sustainability of irrigated agriculture, especially with regard to rice andthe management of the dams, warants serious examinat on. Human resource developmentrequires adapting technical education to the relevancy of the market place demands. Ihemovement towards decentralization, implying greater community participation, is a welcomedinitiative and needs to be fui*er explored. T'e implementation of a poverty monitorngsystem of living conditions is an essential element of an overall poverty reduction strate.

Improved Oppo=nw es for Rural Income Generation

68. While urban and international migration provide opportunities for rural housebolda togenerate additional incomes, more inumediate attention needs to be given to the expansion ofemployment and income effects of the growing irrigation sector (paras. 34-39). Forward andbackward linkages from irrigation into the rural economy are likely to be weak, and as suchdo not offer the dynamie growth opportunities they claimed. However, while the objective ofimproving such linkages may be clear, the means of achieving it are by no means obvious. Inthe medium terna it would appear, a priori, that improved linkages between the traionalrural economy and the rice sector will be best achieved through research and extension eftbttiiat reduce the competition for seasonal labor. In this respect, later cropping or earliercropping varieties, relay cropping and mixed cropping, and an expansion of double croppingmay have a significant increase on local labor demand. Similarly, interventions that incasethe attractiveness of irrigated cropping to smalLholders (i.e. fewer capital requirements, fmwercropping and marketing risks) wiW tend to broaden the consumption linkages and the forwardand backward production linkages into the traditional economy.

69. Successful smal;holder irrigated agriculture will depend on secure land tenurearrangements, thereby requirlng that tie ongoing land temre reform be pursued, but closelymonitored. In a similar vein, land use rights for pastoral groups need to be ensured in tdiareas where recession agriculture is curremly being practiced. Ihese areas are vital toD tesegroups during the dry season.

70. An expansion of the rural investment program in productive capital, physical andsocial infarucure, and agriculura services can be justifled as a way of reducing povertyand indirectly as a way of slowing down the rate of urbanization. More speclflaclly, theproposed expansion and decentralization of health anud education services to rural areas willhave a reduced Impact and yield lower investment retrs if the primary incomes of the ruapoor are not increased. 'Me need for increased rural investment is easy to justify, but thechoice of investment and their implementation are not straigtfbrward.

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71. A rural investm program needs to be accompanied by a rural services program,1hat lncludes 0) adaptive research, which addresses those area of household activities that eauyield te greatest lncome and welfare benefits; Qii) agricultur extension, complen by awide range of commnity and household extension activities; and (ifi) experimental nomasavinga and credit schemes. Given the rural sedentarization and its consequent change lu therole of women as farmers, extension services need to target women'8 agricultu activites goas to increase te ret on their labor, and to increase the nmber of female extnusionagents. Measures that reduce time constraints such as the introduction of improved stoves andeasier access to water points area also important elements of a rural strategy.

JWroved Opporfidesfor Ur*a Poor

72. A rural development sStegy may increase lncomes and thus slow rural exodus, but itwill not stem the inevitable draw of the city even though tihe living conditions of tIhe urbanpoor, especiaily in the periphery of Nouakchott, may be worse dban ln the rura areas. Thehigh rate of urbanization in Maritania poses the difficult chalenge of identifying economicopportnities in a limited market environmentL Labor-intensive activities, such as those in theconstruction lndustry (AMBXIPIE), are cerainly a solution for increasing incomes in theshort term. Functionad literacy programs may go a long way in improving the wel-being ofthe family, as well as increasing the marketabilty of the urban poor, particuarly women-headed households. For the long term, techuical and vocational education programs that trainthe labor force in skills required by the market need to be implemented. In term of urbanservices, the inevitable growth of cities wilt necessitate increased investnent in water supplyand infastructure, particutarly schools and health faciities.

Imwr vments ln Aloca*w Effilen and Eulty.: Soci Series ad l

73. Decisions on budgetary allocation also bave an impact on the rutb dilemma.hie Government has made some progress in improving: (i) the level of resources made

available to the education and health sectors tbrough increased budgetary shae, and prihsector resource mobiization; and (il) tie techmical efficiency with which these services areprovided. Less attention has, however, been paid to altocative efficiency and equit. Sinceexpenditures ln education, health, and physical Inhastrucre have the most direct Impact onpoverty, a poverty alleviation strategy needs to address: CI) the adequacy of the overil levelof resources; (iV) the poial for moblllzing non-governmental resources; (di) ieappropriateness of the inbudget allocation of expenditures; and (iv) the efficency wldiwhich the services succeed in reaching the poor.

74. Health conditions in Muia clearly poit to the need for greater public spendingin the health sector-the proportion of both recurrent and invesment expdtes neds to beincreased substnly. As regatds recurrent expenditures, targets of 55% to health carm in1992 with annual increases of 0.5% to reach 7.5% in 1996 have been set. Efforts are underway to determine if these objectives are being met 'Me level of capital exp_ndiu nedalso to be lucrmased to canel fomns to streugthen deceization by rehabiltkatg reglonahealth facilities and trainlug medical personnel. Besides inresing the proporton ofGovernent spending to tihe health sector, the level of reoure being made available for Ihesector is increasing through cost recovery (para 54).

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75. lb. priorlty issues to lmprove efficiency and equlty la the health sector are to icothe number of prlmary health care facilities in ural areas (dispensaries aid healgti cera),while decreasing the emphasis on hospitals in urban areas (especialy the Centre HospitalierNational (CHN) in Nouakchott). la this regard, the dectization of health fcilities (wltintihe context of tihe hierarchical health care system) and of administrave units should contine.Ihe allocation of the recuhrent heath budget to personnel costs must remain comparable tothat of drugs and other current expenditures on facilities and equipment. Public spending ondrugs should be less biased towards the CHN. Preventive health care may, in tihe long rni,save money on curative health care. lbis policy is relevant in rural and urban areas wlerewidespread malnutrition snd ignorance of family planning are prevalent. Informationcampaips on these issues are required.

Fducadon

76. 'le poverty profile demonstrates a large ruralurban differet as well as a genderdifferential in primary and secondary school attendance, aud in literacy rates. bhe goa is,therefore, to increase school attendance, especially for girls, in the rural areas. Tbeproportion of public recurrent and capital expenditures devoted to primary education andvocational and technical training need to be increased, while the corresponding proportionsdevoted to secondary and higher education should be allowed to fail. Mis re-allocation wilincrease the access to education by the poor.und will provide the sldlls that are relevant to1thelabor market Cost recovery should bo eXplored further to tcilitate expansion of educatofacilities and their qtality and should minimize the burden on tie poor by eiabllng them tomake paymetlu in kind rather da in monetary terns. A system to monitor tihe ability offamilles or communities to pay for education needs to be establisbhed.

77. 'be systen of educatonal solarships, biased towards secondary aud higiereducation, should be retargeted towards meeting labor market manpower needs and based onability-to-pay. TIe provision of peferental scholarships to increase secondary schoolenrollment among girls may also be desirable. Secondary and terdary curricula need to be re-directed towards technical and scientifc trauing, formerly underemphiasized. Due to the highlevel of urban unemployment and the increasing number of unsled workers, technical andvocational education should continue tb be a priority. lbe types of trainng to be provlded,especially for the growing urban female labor force, need to be examined.

I*tasmtucre. Water Supply and Dwport

78. bastructure needs in Maurnia are enormous given the vastness of the country.Ihe provision of safe water, a pretequisite for improving health aid hygieuic livingconditions, remains a priority, pardcularly in rural areas. For urban areas, the quality ofdrinking water and wastewater treatuent, specifically its disposal and enlconsequences, reqcire continued monitoring (as envisaged under the ongoing Water SupplyProject supported by the World Bank). Transpot budgetary resources need to be sllocatd tothe maintenance of existig roads rather than the construction of new ones. l'Tis wilcontribute tb greater efficlency of the xising system and reduce tansport costs. Investmaentresources for new road construction wLi be reconsidered once the Government defines itsmedium- to long-term economic strategy (pars. 57). Maintece of the road systm luremote nrual areas requires particular attention as a means of increasing access to markets andeducation and health facilities. For thess areas, priority rests on guaranteed accus t roads,rather thad on speed (for example, high-grade roads).

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lhe Role of NGOs

79. The experience of NGOs in development activities at the grassrous level renders themvaluable actors in the design and implementation of a poverty reduction stuategy. Since 1988the Mauritanian Government has been encouraging NGO involvement and moving towardsgreater commumity participation mi tie development process. lbhs is a posive step whichneeds to be encouraged. NGOs' autonomy from public Intervention has proven to b. a key totheir success and should be ensured.

Mon orlng System of Ling Condions

80. In 1987 Mauritania launched a permanent monitoring system of social conditions. In1992 under the guidance of the SDA unit (supported by the World Bank, the GermasGovernment and the African Development Bank), the National Statistical Office (ONS)conducted a household budget survey (a priority survey) for the sedentary and nomadicpopulations with minimal technical assistance. Ibis survey complements the two rounds ofthe LSMS which covered the period 1987-90. Tie data collection and processing capabilityof the ONS in carrying out survey work is strong compared to other SSA counries, however,its analytical capability iE limited. The ONS has proposed to create an analysis unit thatwould maintain a socio conomic data base for policymnakers and researchers to undertakemore in-depth analysi; Strengthening the analytical capacity of the ONS warants seriousconsideration in an t. ort to reap the maximum benefit resulting from theisepensive and time-consuming data collection activities. lhe Inter-ministerial unit could be placed at a centallevel, namely the Ministry of Plan, and be responsible for an issuing annual Review onPoverty and Social Trends.' Tie review would become the basis for transladng the findingsof analysis into policies, programs, and projects.

81. To complement quantitativé resuits of these surveys with the sociological aspects ofpoverty, qualitative forms of investigation, such as beneficlary assessments, rapid nrulappraisals, and sentinel sites, also need to be considered.3 As a follow-up to thisassessment, candidates for this approach could be: an in-depth assesament of the dynamics andcoping mechanisms of female-headed households; the impact of cost recovery measures forprimary education and health care on poorer groups; and an assessment of living conditionsfor the inhabitants of the peripheral neighboihoods of Nouakchott.

Neut steps

82. Tie Government of Mauritania presented a strategy to flight poverty and a sketch ofan accompanying five-year action program to donors at the Consultative Group meetg miMay 1994. rhe proposed strategy is in line with the recommendations proposed above. TIeaction program pursues the objectives of income generation, promotion of labor-inteiveworks, community participation, and demand-driven programs. Tbe implementation of theprogram would be based on a study-action" approach, under which all interventions wouldbe carried out in three phases over a five-year period and would be annually reviewed so as torespond better to local conditions and needs. These pilot Interventions would include mainytihe construction and rehabilitation of infatucture (dams, classrooms, roads) and promotion

3 Soain c Suvoy montor tho Impact of apmeif&o sapoet of a polloy or projet on precImted situ.

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of micro-enterprise progm rocessing of livestock by-products, weaving and dydng, tmut-

making) la both rural and urban areas. The program proposes geographic targe*tlg, basea onthe findings of the 1988/90 LSMS: i tihe mral areas, aiall farmers and lsolated ommuaof Guidima (the rural area around the Senegad River), North Brakua and South Tapi (thecentral rura zone), and the southeasteru area of the region of Hodh Chargui (the eastem wrr

zone); and for the urban centers, bouseholds in outlylng neighbothoods of Nouakchott (the"unofflcial refuge sections) and in the city of Aleg. lThe poverty strate and actionprogram emphasizes a "bottom-up approach throughout tihe cycle of the projects. Ye, the

action program ls not very clear as to the selection criterla of requested project, tIhe selcXonof groups to execute the works, the finaclng mechanisms between th cetral unit ln chagof the poverty action program and the communities, and the project review prs. Iheseare critical areas for an effective and transparent program and which require ftiherrefinement, perhaps in a detailed manual of procedures.

83. To disaeminate the poverty reduction strategy and ensure a more efficientimplemenation, it is proposed that, if the Govermment so wishes, a series ofseminars/workshops be organized during which the sttegy, the findings of thiss_and any related work be discussed with a larger audience including public officials, donors,and representatives of NGOs and the private sector. TIe discussions would aim atcoordinating interventions i various areas, and at.integatng Mauita and theirdevelopment partners in i comprehensive.poverty alleviation strategy.

*40.

Table 6: MAURANU - V fer a Pivet Kouedmo Skat

Aron OWeclvs -

ECONONIC GROITHOmmute Imoom aMd Ro_mn omomino of riltd .omP crpping pttssd pcd to lbor aval :

nà *ment la mra sIter apreadi or untcropping vaeogs-ry roppng d miid croppingexpai of double «opping

. Examnine, e impact of tbe va l bnpot vy cn mo on poor bouadiod

. Roduoc apil rqmient mmd nib to oanct aulhold te iorgmd egdltr* mp n _tegmd aep c to pro n sysn, placeg 1s mphs oniniption and mot on bod resison, hveock produefiom, and fmst prction

nsui lad teni arangmen Pwu with cloe momloimg ongolmg pâot land temmerifonm in Tm BEt ln Scenaaid addaes mwiicmem Vally DelceoucosF e lad use ndght to pasoal groups wheie rumson agrclte a practlcd

.rnt lee recogoon md aooms igbt te spoci uaiftius to PAs, o tb imptovsumabiliy of mend and water points and gutd apis of

Impuoe cuployment opportunitls Pmmte adapte re".c addrug houod iaahffor tadiwml rut conomy (eg., vegetbbl paning aid food pos

Fou on cmension nouds of women formos and anai mmber of fnQgnb* Exndnidformal sin Md crdi ad i. Assum possbilities of hbortnonsive aciv u nin ar«ms. Impoeve argeting of foodbfrwork paogn"o uoms to mn popibo aid tmely

dr_nop ds o of imdeod _bzuito

Prmoto nUs,d i bShing . plement meur outM in Decianon on FPsm Sectr Polly, pancipal thegrting of fing ing cema a-Sboie oclte to fa-aih

. Identify crodit scbcane taloaed te flshormes mecdi

Geuem inc aid temdante empbyment informai Enurg bboa4ntmoive constuction worsmnbymug in u m sunto. Revis lavement Code to pronote mmanll md m_ducm entapses

u - Expor posbi of ettlng op informal creit s eb io te spqCito moudsof m_u-ee

amos mad_mbilty of uab . Piovide tang pmto topoor . d f r P , paady in p eW"I . .. . .______ *. Prom tdonced ad vocatimm euducation to meae Mubr ma" demad

f- -

X~~i . I -J

io t Il...... .... ... + .r

. jlilll tIi[,ts~~~I il

_____

�i 'III [t

___

1:iii it[il., 't i I[f[Il I I o

I I

h [1111 _ _ 1. �ÇIi� L�* o W

't � i h ''I E' o

'j j: 111111 i i1' r i r

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Ira .bedo ___ _ _ _ _ _ _ _ _ _ _ _

SIRENGTREMNG OF Ineas. involvemo of NOO amd E ou Govene opeesa to NGO pacipation ml d eopog mmatDBCONOMIC AND cal _mmuny goupe Issuo lgud doe on satue of NGOSOCIAL mo e. aricpat of NGO in prqject deeg ad ImnpleotIN S TIT U TO N S _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _ _

MONrIORING Provido up d infrmation on Main" teliable braon on povty indkatoSYb7M OF S9C1O pov«ty fr uwe in polrcy ing ._ae the fie sd ary waning eyam to improw e of cna-BCONOMIC dei zonme sud distrutiou of fie fod aidCONDMONS n. yi of 1988 coe dma and publicize ueulta lu futr

. publieh resu of priorit uy uvy of nomdi popuao.oàc rgrhubold budga suntef

.udb qualiabo «sesM6 to cobmpeta _uub d«a

Improvo analyisdE of dat s n to steagt ba cf* conider cuing auly uit to syncui ad analyd surqy rmeucourag anuel RNvi;w of Poverty ad Soci Tres

. diese_n povty rodution sratgy te a S -j auioe via_, m~~ichum & ft4empd

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ANNEX iUs~ l>wfdWoaa S.d.i Stumew

h wvok sca ca styaodtm s so mp X or _ Ma * wkwUIMksa loag dme todLWppear. - (A 60-yar old Peulh fom th8 Secne River Valley)

1. Consanguinity and solidarity form tihe basis of Mauritanlan soclety-two fumdamentalcharacteristica in understandng the nature and scope of poverty and the suvival strategies ofthis very tadional seting. Mauritanian society is organized along ethnic lines, and, withmost ethnic groups, along a fairly rigid hieachy of ascrlbed social status. Tihe rapid chugesaffecting Maritmaan soclety are not saing thi traditional social structur, whicb is asoevolving. The strength of traditional relations does, however, constitute both an addltonaconstaint to rapld adaptation to change and a source of stability and a coping mechanlsm.;raphs 2 and 3 depiet, in a simplified manner, the traditional social hilerarchy and structure of

the complex Mauritaian society-the 'pyramld structre of the Moors and tie vilageconcept cf the Black Africans. The most important ethnic split is between Moot and BlackAfricans. The Moors are split between the Arabs/Berbers (White Moors) and the Haratins(Black Moors), reputed to be descendants of former slaves of the White Moors. Iio BlackcAfricans are divided between tie Toucouleurs, the Peulhs, the Sonincés and the Wolofs.Despite ethnic differences, the Moors, the Toucouleurs and tihe Soninkés share similarhierarchical social structures dominated by a noble elite (warrlors and marabouts). Underthese two groups are a non-noble group of frec persons, followed by arts caste groups,serfs or freed slaves and udependents.a Among some groups, during certain perioda oftime, the relative position of the warrior and marabouts (religlous leaders) changod, but thebasic hierarchy renuaned intact. Sedentarizaion and urbanization have had an impact on thishierarchy by sapning social class distinction and wealening the bases for ethnic soLidarity.Higher social classes are pushing for policies that benefit them uniquely, ignoring the impactof these policies on poorer members of their own ethnie group (para. 16).

Graph 2.: Tradilla Soeiad Hiearcy ta

zg~~~~~~~~î ... M ~ ~ . ..... ''.....

..

Slavery was off5oisy abod in Maurj in th 1940s. Howevr, eadwaul soo;l pamsooiad with d gjq Ajg OD_ep*m< (ex-aves) me pe«s who hae b wih fâiu ower a lug

pcdod of tan md roceiv payat in kind (housihg, food, social assi ).

-45 -

2. WVA this structure, Moor society ls organized along extended family lines. EveayMoor blong to a clan. Each clan consist of a large umber of people descended fm aco=mon, possibly fictitious, ancestor. The leader of each clan is the decision-maker oneconomic and Insdtutional matters, partclarly on distibution of land and berds. For manyissues, more impora than the clan is the sub-group, orfakhd, also theoreticay comsstingof people with a common ancesor. Ibis ubop often fnctions as an organlzed ltogroup. Eachflahd consista of extended patineal familles, aal, whichi form the basieonizaonal units of Moor soci structure. Ihe non-noble groups of Moor soccety-freepeople, ardsas, ex-slaves-alip themselves wth a pardcuar noble fraction or etendedfamy. lhe smallest unit f organfadon is tie tent, including the. nuclear famly of theowner, as well as servans and slaves. Most decisions are made at the ended fmiy levelwhose interests are represented by thefakM which guaratees the social security of hamembers. Fractions within a single clan may be in conflict and may unite wlh subgfrusfrom other cans to achiwve their goals. Black African society ls aw organized alongextended family lines. n this milieu, the Individual houseiold is part of a compound headedby a senior male who represents ti. interests of the compound in village discuskos.Similarly, the senior village head represents village interests in larger-scale clan diussions.Age i an important aspect of this social orgnizaion. In fact, identification wlti an agecobort can cut across other social distinctions, such as noble and non-noble. Age-basedgroups in the vilage act as work groups, organize ceremonies and provide support inemrencies.. ....

Graph 3: Soeial S&udtr-Blood fles and SoUdarity

TUE ELAcCKAMECANS'

THE MOORSQABILA <ClAN)

lide aMd msoeAl mattus(e,g. dismrulwn of 14 Iwsi)

\~~~ Fk'd«l / /C|| ompounld -- Wakh=t (dmt (.eadl familLe

deceda of amm aRolt-

Mai" Oouf MM tuais>lamilir_of' ms .ua-.

uaMgemefttOfIUfd ~ ~ ~ ~ ~ ~ ~ iiftu t

* ncuos" &ia Toucoulcur Mud "h souiukE.

-46-

3. Social srcture demlnes acoua to productve resources. l'o mauy overlaidil -l boetwm amd wlt pa have made kt difficit to apply Wesn concept ofowmbp, pulady fbr lad. Pach etc group bas a different method of sgigacces to laid aid crdera for drmninag the amouat of land, length of time divduals use11 md ào extent to whlcb o sldgnei use b cm tran fer ture to otdes (Orayze1988. As oconowCh Mt d_c«chge, direct acces to land has become hmpotait andomllct o tb of id n hp bas iacreasod. WbIle survy data do noti_ud Infomato on iecky and socia groups, antbropologlcal evide licates dbapoplee l the lowest socWa goup-ardsans aid ex-slaves-are the poorest and bave the leastacoa to land aid other producive aets (Gry,ze 1988, Maizardo 1981 and Smae 1980).

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BIBLIOGRAPHY

AbeIt, B. 1979. A Sdy ofFem*le Lft ln Mariana. U. S. Agency for InternationalDvelopment, Wasbington, D.C.

Bennett, O. 1991. GreenHwan: ndronmnt and CoRfict. London: Panos Publications.

Charmes, Jacques. 1992. La Contrbutio du secter frnnel l 'emploi et auprmdnaional n Maurwd.;, 1977-92. Islamic Republic of Maurtna (GIRM), Mnlstryof Pl. NouakchotL

Com6t Engeing. 1990. -Muritani Country Assessment Paper. World Batk,Wasbhg, D.C.

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Horowitz, M. 1989. 'Vicdns of Devlopmo"t. DewlopmenAnthapologNawo, 7(2).

.i991. 'Victims Upstm md Down'. Joural ofRefPgee tudaes, 4(2).

orowîtz, M. and M. Salem-Murdock. 1993. -Development Induced Food swecurity l theMmddle Sefoa Valey.W GeoJournal, 30).

.1993. 'River Basin Dvelopment Policy, Women and Chuldren: A Case Studyfrom tih. Seiega River Valley". Women and Oldren Rm: En hronmet, Powyaid Suaiable Dewlopmen. Rochester, Vemont

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Huit, Simon. 1992. Maditanla: Towards a Food Seurlty Strategy.u Oxford Food StusGroup. Report prepared for 1Ihe World Bank, Washingon. D.C.

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.50 -

D.C1994. AgihoIu. Se e FrJea. Appt" ROu, Wodt BEaa, WaubIngD.C.

Word VIsIo JUmoenato. 1992. FPM AMnu Repoel <md &rarL Vpdat. Draft

-51 -

SIWATLSTICAL APPNDI

* * * . .*

-52 -

Table 1.1:Poverty Idices for Mbbuit by Labor-Force hdicpm I90

Wago Wag Ag*i. Nu-faum Uamployd Noscive AUesm -as sif soif(jfiv.) <pub.) nloyed employed

Povert, lhie-$275

icidence: 0.43 0.27 0.63 0.28 0.43 0.42 0.44Dep» 0.38 0.38 0.52 0.35 0.42 0.4S 0.46

Soure: Coulomo aud McKay 1993.

Table 1.2Poverty Indic for Mitaa by Rei (9)

Urban Other Rund Rumdl eat Ruwl AUeoconomic uba river cuiterceitera

Pvrty aUne $370

Incid. e: 0.18 0.54 0.74 0.75 0.62 0.57DeP 0.29 0.40 0.53 0.57 0.54 0.50

Povoery BUe $275

lniod : 0.10 0.40 0.61 0.65 0.49 0.44Depe 0.24 0.34 0.48 052 0.53 0.46

Souwo: ColomI0 sud McKay 1993.

-53 -

Tabl 1.3Avenue Exmnditur Sharum by Expeditur Qutile, IM

URBAN

lot 2ad 3rd 4th Sth Total

Food 62.1 71.8 74.9 72.2 67.4 70.4Cdtbiug 7.6 8.2 7.8 8.3 6.6 7.4Housîna 4.2 1.5 3.3 4.9 8.9 6.2E3Uogy 7.2 7.0 5.4 6.4 7.3 6.7Water 9.7 4.6 2.9 2.6 2.3 2.7Hemldt 1.2 1.9 1.0 1.0 0.9 1.0ducati -4.6, 1,?2. 0.9 0.8 0.4 0.7

Other 3.4 3.8. 3.8 3.8 6.i 4.9

RURAL

lst 20d 3rd 4ta 5th Tota

Food 68.7 79.6 83.7 79.9 82.9 80.7a so*iqg 18.4 11.9 8.1 7.2 5.5 8.SHoumig 0.9 0.5 0.8 0.9 2.2 1.2Bbe 3.8 2.7 3.4 8.3 4.3 5.0Waler 0.4 0.5 0.4 0.6 0.5 0.5HeWlt 0.4 0.9 0.6 0Q5 0.6 0.6EducatkoQ 0.5 0.6 0.3 0.2 0.2 0.3Ot° , 6.9 3.3 2.7 2.4 3.8 3.2

Soum elMS 1990.

.54-

Table .4 Net eZormet Rates la rma Schol by Leulay, Geder ad Exp _d Qu_k 1990

lot 2nd 3rd 4*h Sdi AU

Urbam

BoYs 40.0 44.8 36.7 57.1 43.7 45.0

Girs 46.2 44.7 33.3 45.7 51.9 43.7

Rural

Boys 21.2 29.0 30.3 38.1 58.3 29.2

Girls 13.7 22.2 3.3 38.3 28.0 22.9

Soure: Mocay amd Abdafabi Ould Houdbib 1992.

Table 1t5 ltaraq Mmd Sebool Attuo Rats by l.calty, Gmder Expuiure QultIle 15

lst 2nd 3rd 4th Sdi AIl

Urban

M^-4 50.9 71.3 78.7 79.6 80.2 76.7

F 37.8 44.0 S0.2 S9.8 5S.7 S2.0

AUcdanc_

M 60.9 68.3 73.0 75.7 78.0 73.4

F 61.1 60.2 65.4 76.8 76.0 69.2

Rura

M 27.9 44.1 56.2 S9.4 68.5 46.1

P 17.7 25.6 32.4 41.8 54.4 29.9

AUcodance

M 32.2 46.7 62.9 60.3 65.0 48.3

P 26.7 39.1 50.8 S2.0 62.1 41.2

Source: LSMS 1990.

Tbl 1.6: Euplyme.t statue of Idlua Ag_l 1545 b_ bpdkm Q_hb lm

lot 2ad 3,d 4dh i AuRual: .Waop emloymMt (publ.) 1.6 1.9 3.4 43 4.1 2.7

W q. .aoyma (priv.) 4.8 35 3.4 2.6 4.5 3.8Apo. usf.gploymoe 49.8 37.7 30.1 39* 266 30Non-ftu al-pomt 3.0 6.0 6.8 7.2 9.9 5.9Unm4doyam 8.3 9.7 12.1 5.? 7.2 8Non-activ 32.6 412 442 40.2 47.7 39.8

Tolb 1.0 100.0 10.0 10.00 100.0 100.0Uba WaP emlynuat (pb) 6.7 8.8 7.9 11. 20 14

WAP wploy.mt(P.) . 4.8 53. 5.6 52 10.6 68

Agpo. sOf eapl<yuat 4.8 3.8 - .3. : 1.0 l. 2.2Non-hm If omplopy t 6.7 9.9 1O.4 il.6 11.6 10.7Umlyumm 17.3 21.3 21.6 22. 17.9 2M4Noo-otiv. 59.6 50.9 51.4 4«3 38 47.4

Total 10n.0 100.0 1MA.0 100o. 100.0 10

Sou LSM1 l990.

-56 -

al'ble 1.7: Infornna Sector Employment by acdvlty, 1980 end 198

1980 1988 Amnual Growth

Indus"lm nuftcturng 11,470 4,564 -122

Constructfn 8,120 13,829 6.9

Commerce 38,510 74,756 8.6

TranMspot 4,490 5,923 3.5

Services ai 9,230 31,25S 16.6

lnfrnud seor, tota 73,540 133,013 7.7

Nouakchott

hndustial maufcturng 2,840` 1,068 -13.0

Construction 4,660 4,281 -1.1Commerce 10,000 28,304 13.9

Transport 850 1,656 8.7

Senvces ai 2lO0 5,130 8.8

Infomai secor, total 20,970 41,130 8.8

ai Excludes domkesie servuas.

Source: Charmues 1992.

-57 -

Table 21: Dr%"gatd Rice rhoduction, 1988189-1991192

Aiea (ha) Producton (tons) Yidld (ton/ha)

88189 89/90 91192 88189 89190 91/92 88189 89190 91/92

SONADER 4350 4707 7395 19575 18828 22185 4.5 4.0 3.0

M'Pourie 730 806 - 2774 2821 - 3.8 3.5 -

Piaive 7150 8140 5202 28600 30932 13941 4.0 3.8 2.7

Second 2221 5553 2.5

Totd 12230 13653 14818 50949 52581 41679

Sou=oe Hunt 1992.

-58 -

Tabl 22: C( pouplti Cd Pubc Expenditure by Sectoer, 1986-91(%)

Cumyt Expenditu

1986 1987 1988 1989 1990 1991

SoVoe»UY 14 IS IS 17 20 20

Dhdu8 and u.cuty 33 31 30 27 26 25

RIulddSvdop eut 3 3 3 3 3 3

ERuurbona _ 38 39 41 41 40 38

Capit EXPetw

Rutal vdopmâut 24 24 30 33 22 23

Jnfotaiructu. - 27 14 13 18 25 25

OIioe(tn. eduçation= 12 il 13 13 13 10hoh)

Meo.ta.u

Tota cunuit.xpeudi"utu oo.tu. 10167 9645 9769 9590 10160 10169.uilliu mJM 1985

Total iuvsut.xpmndi . lOSS10557 11393 9533 8796 8487 10261c CI't en!mkm UM_ ,

Souroe World Bank 1992.

IBRD 25382

MAURIT.NA 12 re/ MAURffANIA ~~~~~~~~~~~~~~~~~~~~~~~~~ALGERIAPOPULATION DENSffY BY REGION r A.

PERSONS PER SQUARE KILOMETR

F-1 O <1 NoeMAUR\TAN(A j -

[8' MOO1-<3 C C MALI _

É] ~~~~~~~~~~~~~~~~~~~~~~~8 3IlNI *~R GI/ I,ANIA

PAVEDROADS r AitANCLx 1

PAVEDROADSUNDERCONSUCN ____________________-2 OC-AN -WERITE/EARTH R-O-:

TRAAS8

---- ' RAILROADS J "I !) m ALGERIA

- R/ r----),N rINTEIUAMONBOUNES To j

R-CJ5TES nE TERROFOXHE A d { .

sw ) FORMER j rSPANISH j i j

0 50 100 150 200 250 j SAHARA . I 24'

,OME- Z zE M M o U R ", - -i'

| oit '------- MALI

, -j. ,,, 'I

zz;N i- E. a L ~~~~~, - ', "-o ' n

DAKHLET A/ A D R A R

NOUADHIBOU{ N C H 1 R21\ 2

ATLANTIC ArlANTlc . "Z . _ .. _ . ,TAGANT H O D H

OCEAN r R. "

NKH* # -. " G H A R B II .- Odi.l ' , , .. GHAHA

16 ..r \ HOHE Mm _ ' I .du M AtI

ne. bq~~Amqw. =ïm,r cq,. d M,o~oy, dqs m,qoioof é~.s

16' 29

NOVEMBER 1993