269 Social Development 38206 December 2006 Findings reports on ongoing operational, economic, and sector work carried out by the World Bank and its member governments in the Africa Region. It is published periodically by the Operations Results and Learning Unit on behalf of the Region. The views expressed in Findings are those of the author/s and should not be attributed to the World Bank Group. The Northern Uganda Social Action Fund: Community Reconciliation and Conflict Management empower communities in a post-conflict setting Development efforts in Northern ability have been at the center of Uganda have been stifled by both these processes, leading to: (i) bet- local and international cross-bor- ter leadership at all levels, espe- der conflicts, as well as inter and cially the community level. The intra-tribal conflicts for the last two project has four components; (i) decades. The five year, US$100 Community Reconciliation and million, Northern Uganda Social Conflict Management (CRCM), (ii) Action Fund (NUSAF), being imple- Community Driven Initiatives mented since 2003. is meant to (CDI), (iii) Vulnerable Groups Sup- assist government in its efforts to port (VGS) and (iv) Institutional tackle poverty and bring about de- Development (ID). This article fo- velopment that utilizes and builds cuses largely on the role of com- on community value systems munity reconciliation and conflict (which are particularly strong in management processes in the the family, clan and cattle rearing implementation of the Northern culture found in Northern Uganda). Uganda Social Action Fund. As part of the broader efforts to re- construct Northern Uganda, NUSAF, as a project, and through Community Reconciliation and direct grants to communities, is Conflict Management (CRCM) intended to: overcome underdevel- CRCM is a community-driven opment through community ac- initiative that creates an enabling tion, leadership development, re- environment for sustainable devel- source mobilization, strengthening opment by enhancing the capacity the ongoing reconciliation pro- of communities to identify and suc- cesses in the region, and make it cessfully apply approaches that possible for communities to articu- achieve peaceful coexistence and Findings late and prioritize their specific reconciliation based on community needs and manage processes and needs and value systems. The idea outcomes, there by enhancing good is that sustainable investments in governance for peace and develop- a post- conflict environment, re- ment. Community Reconciliation quire reconciled communities, and Conflict Management, im- peace promotion and the minimiz- proved transparency and account- ing of potential or/and latent con- Uganda, sometimes as stand alone approach has been recommended flicts. CRCM initiatives, there- sub-projects. As a complementary as part of the M&E process. When fore, are aimed at providing sup- activity, communities accessing implemented, it will strengthen port to traditional and non tradi- other project interventions benefit the regular reporting by CPMCs to tional approaches to peace build- from CRCM as value addition in- communities, thereby improving ing and conflict management. Tra- terventions necessary to enable transparency and accountability at ditional approaches supported by them overcome constraining fac- community level. the CRCM component include sup- tors caused by an underlying con- porting: clan leaders and chiefs to flict. As a stand alone activity, Civic engagement: Out of an hold community reconciliation CRCM supports activities that help estimated 500 Civic Organizations meetings; inter-tribal dialogue in- individuals and communities that needed to be mobilized, 96 cluding visits to other districts; move through the transition from have been successfully brought on cleansing of reporters and return- conflicts to sustainable peace and board to actively participate in the ees; counseling and psycho-social take the communities through the program, especially as community support to returnees, ex- process of healing and recovery. mediators. Many of these CSOs abductees, "gun drop outs" and the have become active in supporting receiving communities. Non tra- Results so far: District Technical Planning Com- ditional methods include participa- Three indicators of measuring mittees (DTPCs) in their work (ap- tory rural appraisals (PRA's) to en- progress and success were iden- praisal, training, monitoring, etc.) hance community dialogue and tified during the October 2005 in activities funded through facilitate social capital resuscita- Rapid Results Initiative for CRCM NUSAF; showing a steady improve- tion, sports and drama for the including; (i) monthly Community ment in the quality of support pro- youth especially promoted by tra- Sub-project Management Commit- vided. The main challenges have ditional and local authorities, re- tee (CPMC) reporting to communi- been (a) resistance by some CSOs ligious leaders, and CSOs operat- ties, (ii) Civic Engagement and (iii) wishing for NUSAF to finance plans ing at all levels. These players are supporting traditional institutions. developed without community in- provided with skills and resources volvement, (b) low capacities com- to enable them promote healing pounded by the narrow mandates and recovery. Monthly CPMC reporting to of some of the CSOs who are un- communities: Out of the total able to respond to the broad range 4,900 CPMC implementing NUSAF- of concerns raised by communi- funded sub-projects in June 2006, ties. it is estimated that 30 % have met this requirement, while others have done their progress reports on Traditional institutions a quarterly basis. The main suc- strengthened: It was expected cess has been the successful in- that 6 such institutions would be tegration of CPMC activities into supported, and 3 have so far pro- regular reporting at the commu- duced plans that can be funded. nity level, with some evidence of These institutions are holding improved transparency at commu- regular monthly meetings and nity level. There have been chal- have shown great willingness to lenges: (i) poor CPMC cohesion involve communities in their day- While originally designed as a among its members, especially to-day activities. The main chal- pilot/entry point to other project where geography leads to problems lenges noted are (a) low technical components in the three sub-re- with logistics; and (ii) slow progress capacities and inability to access gions of Northern Uganda (West in the roll-out of Participatory this technical capacity, and (b) Nile, Acholi and Karamoja) using Monitoring & Evaluation (PM&E) growing fragmentation of tradi- mainly traditional mechanisms, practices. Participatory M&E in- tional institutions in response to CRCM activities are now popular cluding a community score card various pressures. in all sub-regions of Northern One can argue that through the sources for funds while increasing ing vulnerable groups, local au- CRCM initiatives, the organiza- their sustainability. thorities, civil society organiza- tional integrity of traditional insti- tions and other institutions that tutions, especially in the Acholi ii). Community Development directly work with Vulnerable sub-region is beginning to be Initiatives Unit (CDI) Groups (VGS) to develop interven- strengthened, enabling them to tions that contribute to improve- Poverty, feelings of start influencing local government ments in the livelihood of these marginalization, poor service de- structures to deliver services to the communities. By March 2006, the livery and inequity are some of the needy and to promote positive syn- project had funded 2,633 VGS sub- factors that fuel conflict. CDI at- ergies between the state, civil so- projects that serve approximately tempts to address these issues ciety and the poor. CRCM is begin- 108,982 direct beneficiaries. through community empower- ning to prove critical for effective These sub-projects include: 1,992 ment and improving access to ser- and sustainable community cohe- in income generation; 355 in time- vices. This component is meant sion and participation. By March and labor-saving technologies; 92 to support small-scale community 2006, the component had funded in vocation skills training; 161 in driven initiatives that improve 548 CRCM sub-projects that have family support; and 33 in counsel- accessibility to socio-economic promoted social interaction and ing projects. By category, beneficia- services and enhance the capaci- cohesion. The sub-projects have ries include 5,277 orphans, 1,724 ties of the communities and other also been geared towards strength- foster parents, 45,307 youths, stakeholders involved in the pro- ening community interaction, con- 5,216 female headed households, cess. By March 2006, the compo- sensus building and enhancement 31,318 Internally Displaced People nent had completed 263 borehole of social capital. Communities, via (IDPs), 4,931 elderly, 2,242 People sub-projects that serve over 15,780 monthly public accountability with Disabilities (PWD), 6,865 HIV/ households (or 78,900 people); com- meetings, have been empowered, AIDS infected or affected persons pleted 32 pit latrine blocks that thus strengthening the communi- and 2,370 formerly abducted chil- serve 1,152 households (or 5,760 ties' sense of ownership of the in- dren. people); completed 321 sub-projects terventions and the need to de- in the education sector that ben- mand for better services. By con- iv). Institutional Development (ID) - efit 6,966 pupils directly and tributing to community harmony, supporting Local Government 34,830 family members indirectly; the CRCM initiatives have contrib- and completed 37 health sector fa- NUSAF was designed and is be- uted to achieving of results of other cilities (27 health centers and 10 ing implemented within the de- components (community driven medical staff houses) that have the centralized local government initiative, vulnerable group support potential to directly serve approxi- framework. Local Governments and institutional development) as mately 195,000 people. are in charge of facilitating project outlined in sections (ii) and (iii) implementation processes, under- below. iii). Vulnerable Groups Support taking field and desk appraisals There are sustainability con- Unit (VGS) and sub-project approvals. Commu- cerns regarding the CRCM strat- nities are responsible for identify- egy. Many institutions have Reconciling and re-integrating: ing, prioritizing planning and emerged to complement traditional (i) returnees, (ii) ex-combantants, implementing sustainable devel- ones, and it is not clear how the (iii) "gundrop outs" etc. gainfully opment initiatives, while civil so- current CRCM strategy can be into their communities is a way of ciety, traditional institutions and adapted to accommodate these new reducing conflict. This component the private sector are responsible institutions. Discussions are go- is meant to use targeted interven- for supporting the appropriate agen- ing on over how some Traditional tions in a participatory, equitable cies i.e. either local governments Authorities can be assisted to de- and sustainable manner to reduce or communities. This arrange- velop Community Foundations that vulnerability among the disadvan- ment requires local governments can give these institutions an op- taged members of the community. not only to provide technical sup- portunity to tap into various This is being achieved by support- port to communities, but also to be more accommodating to civil soci- mixture of inaccurate reporting emphasized. The date for review- ety, traditional institutions and and occasional facts hit the news ing progress was agreed upon and private sector, and to involve them on a regular basis. In response, a press release prepared and is- in project implementation activi- IDA mounted a development com- sued. Within 55 days, more than ties. It also requires that all stake- munication mission in May 2004 1,214 sub-projects had been for- holders understand and implement that agreed with government on a warded to the Management Unit for their roles and responsibilities Rapid Results Approach1 to rolling funding and the process of learn- within the project guidelines. out the project. ing by doing had taken root. While Though, initially not well under- The RRI was preceded by a work- the project roll-out had started, a stood and appreciated by various shop involving Local Council V, number of lessons were learnt. stakeholders, the approach has Chairpersons (LCV), Chief Admin- · The momentum of the RRI needs started bearing fruits. Not only are istrative Officers (CAOs), District to be maintained. IDA has used communities being empowered Planners (DP), NUSAF District subsequent implementation but also their supporting agencies. Technical Officers (NDTOs), Dis- support missions to review re- This Public-Private Partnership trict Information Officers (DIO), the sults achieved by each districts Approach also contributing to the Northern Uganda Management in an open forum (workshop) and potential for deepening decentrali- Unit (NUMU), NGOs and IDA. Work- to make recommendations that zation. Though slowly, Local Gov- shop participants identified chal- enhance implementation. ernments are appreciating the role lenges to project roll-out. These · More political support was re- of NGOs and CBOs in project imple- included: the slow take-off of com- quired from the Local Govern- mentation and communities have munity mobilization; poor involve- ments rather than from the cen- began to slowly appreciate the role ment of NGOs and CSOs; slow ter. Local Council Chairpersons of the Local Government technical identification and involvement of were assigned responsibility for staff. Overall, one may argue that community facilitators; poor roll- overall oversight of the results. in terms of institutional strength- out of development communication · The Rapid Results Approach has ening, the project is demonstrat- to trigger community demand; in- also been useful in boosting the ing that it is possible to make Lo- adequate distribution of sub-inter- implementation of components cal Governments responsive to est forms and other project mate- that tend to lag behind others. community demands. rials and lack of clarity on the roles and responsibilities of the elected Speeding up implementation ­ the leaders. Based on the identified Rapid Results Initiative (RRI) challenges, the target of RRI was 1 A Rapid Results Approach is a set of management tools, then agreed upon; i.e. to mobilize processes and skills that help leaders in organizations use While the results of the project communities to generate 1214 sub- a series of short-term projects to translate long-term goals are now promising, implementa- projects to funding levels within 55 into concrete action, results and impact. The engine of tion, start-up and rolling out was days following the sub-project cycle this approach is the rapid results initiative not easy. Design was preceded by procedures. The rapid results team ­ a 100-day stretch agenda designed to unleash the a community needs assessment of each district included : (i) the capacity and creativity of teams in pursuit of a strategi- and a thorough stakeholder consul- LCV Chairperson, (ii) Chief Admin- cally critical goal that delivers a result and ties tative process, the new staff hired istrative Officer , (iii) NUSAF Dis- strategically to a long-term plan. Each RRI becomes a to implement the project were not trict Technical Officer, and District vehicle for achievement, learning and advancement of familiar with a multi-sectoral op- Information Officer . Each district eration. Development communica- long-term goals. Teams start by developing the areas they team based its planning on the tion that was meant to trigger de- want to impact and develop capacity as they go number of PRA teams they could mand from communities did not ­ in the context of the 100-day result. The approach mobilize. A capacitation resource effectively take off. The initial emphasizes that implementation and learning by doing are envelope was also agreed upon. engagement of the project man- integral parts of the policy development process and the The role of the elected leaders, both agement unit with local govern- means to assess the capacity for, and the political will to, during the RRI and the entire ments was not effective, triggering undertaking larger policy reforms through achieving project period was reviewed and re- a lot of anxiety from the leaders. A tangible results. Collaboration with Other opera- · National Agricultural Advisory Conclusion and Challenges tions Services (NAADS) and the World Food Program. To date, most of The project is on track, although While NUSAF is at the moment the community sub-projects un- still faced with some challenges in- the single biggest operation in der VGS/CRCM are of a produc- cluding: (i) the overwhelming de- Northern Uganda, the Project Man- tive nature and are agricultural/ mand for sub-projects from commu- agers recognized the need to work crop-, livestock- or fisheries-re- nities, (ii) the need to strengthen and collaborate with other actors lated. The majority of VGS sub- monitoring and supervision by dis- in the project area. Collaboration projects are in livestock produc- trict technical staff and lower-level is meant to harmonize implemen- tion followed by crop production. local government staff, (iii) the tation procedures, leverage on re- Collaboration with NAADS and challenging political climate and sources, thus covering a wider area WFP is seen to be critical to fa- in- and out-of-conflict environment and increasing results on the cilitating the selection processes in Northern Uganda. ground. Accordingly, NUSAF has for enterprises and technology for signed collaborative protocols with demonstration and adoption that the following. often require considerable tech- This article is written by Chris · The Uganda AIDS Control nical inputs. Laker, Executive Director, NUSAF Project to support People Living and Suleiman Namara, Social Protec- · The Amnesty Commission: The with HIV/AIDS . With the near- tion Specialist, World Bank Country Amnesty Commission, among completion of the UAC Project, Office, Uganda. For more informa- other things, is responsible for NUSAF has taken over the fund- tion, e-mail snamara@worldbank.org the reintegration of former LRA ing of HIV/AIDs infected and af- combatants into civilian life. fected persons in the region and NUSAF considers these a special adopted the successful opera- category of vulnerable people, tional modalities of UACP. More requiring special handling and than 250 communities have al- treatment. This collaboration ready been financed through this ensures that the ex-rebels re- arrangement. ceive amnesty certificates and additional reintegration support over and above what the Commis- sion provides.