República de Moçambique

Ministério da Agricultura

FINAL EVALUATION OF THE FIRST PHASE OF NATIONAL AGRICULTURE DEVELOPMENT PROGRAMME PROAGRI (1999-2005)

VOLUME II-B: NORTHERN PROVINCIAL REPORTS

MARÇO de 2007 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Table of Contents Page PART A: BACKGROUND ...... 1

PART B: REPORTS...... 4

APPENDIX XI: ZAMBEZIA PROVINCE...... 4 Introduction...... 5 Summary of Key Issues ...... 5 Provincial Assessment ...... 8 District Assessment...... 21 Producer Level Assessment ...... 29 Lessons Learned and Conclusions ...... 32

APPENDIX XII: NAMPULA PROVINCE ...... 34 Introduction...... 35 Summary of Key Issues ...... 35 Institutional Development...... 38 Support to Agricultural Development ...... 44 Livestock Development ...... 49 Extension Services...... 52 Research ...... 59 Land Management ...... 61 Irrigation ...... 62 Forestry and Wildlife...... 63 Cross-cutting Issues...... 64 Lessons Learned and Recommendations...... 65

APPENDIX XIII: NIASSA PROVINCE...... 76 Introduction...... 77 Summary of Key Issues ...... 77 Institutional Development...... 80 Support to Agricultural Development ...... 86 Livestock Development ...... 91 Extension Services...... 95 Research ...... 101 Land Management ...... 103 Irrigation ...... 103 Forestry and Wildlife...... 104 Cross-cutting Issues...... 105 Lessons Learned and Recommendations...... 107

i Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Table of Contents Page APPENDIX XIV: CABO DELGADO PROVINCE...... 116 Introduction...... 117 Summary of Key Issues ...... 117 Institutional Development...... 120 Support to Agricultural Development ...... 126 Livestock Development ...... 131 Extension Services...... 135 Research ...... 142 Land Management ...... 143 Irrigation ...... 144 Forestry and Wildlife...... 145 Cross-cutting Issues...... 146 Lessons Learned and Recommendations...... 148

VOLUME I MAIN REPORT

VOLUME II-A SOUTHERN PROVINCIAL REPORTS

VOLUME II-C CASE STUDIES

VOLUME III PROGRAMME BASELINE ANALYSIS AND SURVEY INSTRUMENTS

ii Volume II-B Evaluation of the First Phase of National Agriculture Development Program

PART A: BACKGROUND

The PROAGRI Coordination Group has requested PriceWaterhouseCoopers, under the agreed upon Terms of Reference in the bid proposal, to provide a final evaluation of the first five-year phase of PROAGRI, the country’s first Sector Wide Approach (SWAp) Programme, which supported agricultural development. Accordingly, a team was fielded in Maputo at the beginning of August. The team consisted of five consultants; three locally based, and two regionally based (see Appendix IV in Volume I for complete list of consultants).

The objective of the evaluation mission was to assess the impact of PROAGRI at both the institutional level and at the level of the basic users of agricultural services provided by the Ministry of Agriculture. Through the objectives stated in the two main documents of the programme, the efficiency of the activities, effectiveness of the results and the sustainability of outcomes were analyzed.

The evaluation team held its initial meeting with the Comité de Acompanhamento (CA) on 27 July in Maputo, where they were briefed on the background of PROAGRI, its activities, and the intent of the PROAGRI management and the CA in proposing the mission being undertaken. The CA comprises representatives from MINAG, relevant other ministries and donors contributing to the PROAGRI SWAp (see Volume I, Appendix II for complete list of CA members). The Evaluation Team took full advantage of the supervision of the CA at all stages: adjusting the initial survey documents to include observations by the CA members, arranging for CA members to accompany the survey field activities at certain points, and conferring with the CA at an early stage of the document’s development to ensure the report had fully absorbed all points of view.

A detailed review of current documentation and initial interviews of key MINAG departments and donors followed the initial briefing, to allow the team to develop the full view of the situation as PROAGRI was started. Using the information obtained, the team developed a work programme and drafted some initial survey guidelines and questionnaires for the various levels of information collection.

The methodologies, draft survey instruments, proposed timetable and proposed report layout were collected into a draft Inception Report and presented to the CA on 16 August. The CA met several times to discuss the issues raised in the Inception Report, and delivered a detailed assessment to the team in a report delivered on 13 September, followed by a meeting on 14 September. The issues raised were included in the revised programme of activities, which then continued into field work.

A major part of the evaluation process was a series of stakeholder surveys that obtained information on the perception of PROAGRI among the different stakeholders – ministry officials, technicians, donors, NGOs, private

1 Volume II-B Evaluation of the First Phase of National Agriculture Development Program businessmen, and producers. The survey format included a mixture of both quantitative questions and qualitative interviews (see Volume III for copies of the formats used).

Field surveys were carried out at the provincial administrative level, the district administrative level, the private sector interface and the basic producer level in each province. The various survey instruments covered all stakeholders and looked at opinion and perception of PROAGRI. A full range of administrative officers at the provincial and district levels were contacted and interviewed for the survey, including both qualitative and quantitative sections. Other stakeholders (NGOs, private traders, input suppliers, micro-lending institutes, local donor offices, etc.) were included as found available in the areas visited, and were questioned using the main qualitative question guidelines developed for the other survey participants. Visits with farmers were extensively organized in each area. A wide range of types of farmers was looked for, depending on availability at the time of the survey: individuals, associations, smallholder, commercial, women’s groups, youth groups, etc. These surveys concentrated on problems faced, changes in operating environment and access/impact of MINAG field operations.

Separate compilations of financial, administrative and statistical data provided an inventory of inputs as a comparison. It was physically impossible to travel to all districts, but approximately 30% of districts in each province were visited. Individual provincial reports are included as appendices to the main report (see Volume II-A as well as this volume).

At the same time, an extensive survey of central MINAG activities was carried out. PROAGRI activities and results were identified and integrated into the overall programme analysis. Financial tracking was of particular concern, especially in watching the delivery of funds to the field activities.

As well as the provincial reports identifying specific factors in each province, certain component areas were identified as focal evaluation areas and given in-depth study by part of the evaluation team. The areas identified for special study were Human Resources and Extension/Research. Each of the special case studies has its individual report included as an appendix. Data from all appendices are, of course, fully included in the main report.

The following caution regarding data must, however, be made: as mentioned in both the audit reports and the mid-term review, data obtained, even from official sources, is not very reliable. It can serve as a broad indicator, but must be viewed with critical scepticism. The status of field data is exemplified by a comment from a provincial DAF when specific data was requested, “we just abstracted that data for you yesterday and sent it through Central DAF. Please get it from them, because if we abstract it again, the figure will be different than the original.”

Continuous contact with the CA, and PROAGRI administration, was maintained throughout, including arrangements for CA members to accompany team members on portions of the provincial surveys. A draft

2 Volume II-B Evaluation of the First Phase of National Agriculture Development Program report was made available to the CA on 22 December 2006 for comment. A wider stakeholder workshop was held on 30 January 2007. Comments were incorporated into the final report, which was delivered to MINAG at the end of March 2007.

This document is Volume II-B of the Final Evaluation of the First Phase of the National Agricultural Development Programme (PROAGRI I), containing the Northern Provincial Reports.

3 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

PART B: REPORTS APPENDIX XI: ZAMBEZIA PROVINCE

4 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Introduction

PROAGRI, the agricultural sectoral investment programme designed by the Government and a consortium of interested donors, was put into place in 1999. The programme was established to address the fact that the economic and social environment, and the nature of the agricultural sector itself, had been rapidly changing and looked to continue its rapid pace of change in the future. The Government needed to adjust its strategies to ensure maximum development of the agricultural sector; PROAGRI was the policy statement to indicate the direction of that change.

The provincial and district offices of the Ministry represent the leading edge of all activities. It is here that the interface with the main clients (i.e. small farmers, farmer associations, community groups, local private entrepreneurs, NGOs, etc.) takes place. It is also here that the ground level impact of the programme will be visible. Therefore, as part of the end-of-programme evaluation, interviews have been conducted in each province. This report is the field survey of Zambézia Province.

Summary of Key Issues

This section is intended to provide a brief presentation of the key issues that emerged from the team assessment at provincial level on PROAGRI I intervention. It does not necessarily follow the organization or the sequence of the eight components, but it does follow the PROAGRI I principles (of institutional reform and modernization, reinforcement and development of capacity of the civil services support to agriculture, livestock production, forests and wildlife and sustainable management of the natural resources -- farming land, forests; wildlife and water) and the immediate objectives and strategies defined in the Master Document:

a) transforming MAP into a modern structure of public agrarian management focusing on activities of formulation, regulation and implementing sector policies in order to create an environment which is favorable to the development of the family sector and the consolidation of the entrepreneur sector;

b) Increase the levels of production and productivity in agriculture, livestock, forests, and wildlife in order to increase the rural family’s income and promote food security while preventing the degradation of the natural resources, and;

c) Protect, preserve, develop and ensure the population access to the natural resources for the rational and sustainable utilization for the economic, social and ecological benefit of the present and the future.

The first observation is that during its implementation, PROAGRI I was more concentrated on the first immediate objective and, at some extent with third

5 Volume II-B Evaluation of the First Phase of National Agriculture Development Program immediate objective and very little on the second. Therefore, the evaluation team assessment is that the expectation of increased production and productivity was not addressed in a significant manner. The general assessment by components is presented in the next sections as follows:

Policy

The Agricultural Policy and Implementation Strategy (PAEI) translated by PROAGRI I indicated that government should have a facilitating role (regulations and policy formulation) without direct intervention in the production function. This principle, though theoretically good, was prone to different interpretations on the one hand (some implementers would tend to look strictly and follow these guidelines), on the other hand others would try to follow but at same time would try to respond to the PAEI guidelines of promoting field activities to meet the political directives of increasing production and productivity as a contribution to reduce food insecurity, alleviate poverty and move subsistence into commercial farming. This conflict seems to have been overlooked during the functional analysis exercise and during the conceptualization of the PAAOs. As such, it is important to clarify right at the inception of the evaluation exercise what approach is going to be followed. According to the TOR, the role of the evaluation team is to the look into the PROAGRI I implementation in the light of its eight components, functional analysis and basic principles. In so doing, however, it should be emphasized that PROAGRI I design, overlooked its mother instrument, PAEI. This apparent contradiction, should be taken into account during the evaluation process of PROAGRI I. Furthermore, the environment in which PROAGRI I was designed and implemented was such that by the time when centralized economy “was phased out and the market oriented economy in the country was established”, neither the private sector nor the small scale farmers were prepared to take over the production function left by government and an institutional vacuum was created.

Reorganization of MADER

As a consequence of functional analysis in 2001, the restructuring of MADER was proposed in order to substitute current technical components with others having less directorates. The new structure was to be based on policy, regulation, inspection and service provision. However this was never materialized due to lack of consensus within MADER/Government in general.

Coordination

Coordination between MADER and donors provided tools for negotiations and changes in attitudes and procedures in both parties. This allowed the implementation of PROAGRI I with tangible results but the transfer of responsibilities from donors to MINAG is thought by government to be moving at a slow pace. Despite this point (between donors and MADER), the same

6 Volume II-B Evaluation of the First Phase of National Agriculture Development Program cannot be said for other stakeholders. Indeed, during the implementation of PROAGRI I there was lack of a concerted empowerment in other agricultural related stakeholders like credit, marketing and input suppliers. Under these circumstances, internal institutional development of MADER alone was not able to be effective and resolve all the problems of the production chain and food security.

Context

Being a new experience of the kind in the country coupled with the weak coordination and lack of a holistic approach, the implementing administration of PROAGRI I tended to do whatever they felt as most appropriate. Some interviewees compared this process to the seven billion Meticais allocated to the districts where some Administrators started building houses and purchasing vehicles due to lack of experience and clarification on proper use.

Human Resources Management

There was significant progress in the management of human resources during PROAGRI I in terms of training and recruitment. The allocation of staff was largely dependent on the ministry’s structuring process. The activities undertaken by staff still depended on the area of training or are planned at sectoral level with no clear institutional common vision as to where the training was targeted. The absence of a human resources policy in the Ministry was and continues to be a serious constraint to further progress in the definition and management of human resources in terms of task assignment, salaries and incentives.

Decentralization

PROAGRI I increased the capacity of DPAs and DDAs in terms of local planning and execution capacity to meet its mandate of institutional development. However, this decentralization was only partial, given the fact that all procedures were determined at central level including the financial ceilings. The definition of the budget at the central level at most times failed to consider sectoral and local priorities. According to our survey, the distribution of budgets at provincial level was also too concentrated in the hands of the Provincial Director. Therefore, some districts continued with no capacity to undertake their own procurement. This was largely due to the lack of related services (input markets, equipment, office supplies and banks). Nonetheless, the introduction of the planning and budgeting Model (MPFP) for PAAOs, is considered by as a good example of PROAGRI I success.

7 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Administrative Management

The introduction of common planning, budgeting, and implementation mechanisms was key to the development of administrative capacity and management within MADER to meet its institutional development goal as indicated in the basic principles of transparent management of financial, patrimonial and procurement using donors and government funds. However, our interviewees considered the Software utilized during PROAGRI I (Arco Iris) to be inflexible and did not allow the inclusion of field activities. Plans under PROAGRI were too concentrated on indicators like number of families assisted, CDRs, vaccinations, community pharmacies with no emphasis on eventual results generated.

Patrimony Management

During the course of PROAGRI I, 58.470.577 Meticais were spent for the acquisition of materials and equipment. As indicated on Table 1, above most of investment was used for infrastructure (32.49%) followed by transport (29.93%) and office equipment (25.57%). The imbalance in allocation of PROAGRI I expenditures as related to institutional capacity (87.99%) as opposed to less than 15% for field activities is a clear indication that PROAGRI I was oriented to meet the objective of institutional building and not increased production and productivity in any significant manner.

Basic Principles

There is a general view that the basic principles set by PROAGRI were too rigid and could not be exceeded. “A significant number of people said that a window to accommodate aspects not predicted in the basic principles” should have been created.

Duration

A significant number of survey respondents were of the view that the first five years of PROAGRI I implementation should be seen only as a preparatory phase as it was too short to yield greater results than those achieved. Therefore, it was too ambitious to expect other other than the institutional development already achieved. In analyzing PROAGRI I achievements, we observed that right from its inception, there were too many expectations, especially from people outside MADER that PROAGRI was going to provide funds for other entities (credit, inputs, equipment etc). Because of these high expectations there was a considerable amount of pressure and subjectivity.

Provincial Assessment

Perception of PROAGRI I The general opinion in Zambezia Province was that:

8 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

 From its inception, PROAGRI I created in most of its interested parties the expectation that they would have direct benefit as was the case when other “mega projects” were implemented in the country. However, most of these expectations were not met.

 PROAGRI I increased the capacity of the DPA and DDAs through the provision of infrastructure, transport, materials and office supplies; human resources; more qualified staff and financial resources.

 Only 20% of those people interviewed participated in one way or another in the development of PROAGRI I and all took part in its implementation. There was a common view that there were no changes in PROAGRI philosophy along its implementation. It is agreed that throughout there is an understanding that PROAGRI brought significant improvements in planning and financial management.

 Only 25% of staff holding a position as head of department/services worked in the current (September 2006) position at DPA HQ before 1999. Staff indicated that their responsibilities were well defined, however the majority (75%) were not fully integrated into the system. There was high turnover of staff during PROAGRI I implementation with the consequent failure in keeping the institutional memory.

 In terms of working conditions, all managerial staff at DPA HQs indicated having access to computers, fax and e-mail/internet for their work. According to their information this equipment was acquired during the period from 1996 (25%) and from 2000 to 2006 (75%) as a result of PROAGRI intervention in improving working conditions. However, only two of the interviewees had access to internet and fax since 2005. All interviewed staff had means of transport during the period 1999 to 2005 and said they had enough fuel to perform their normal field activities.

 All interviewees indicated that besides their training programmes, they received technical backstopping from their “mother institutions1” in Maputo headquaters.This was only source of technical information because there is no updated technical documentation center at DPA.

 Regarding restructuring of MADER, the high staff turnover as a serious constraint to keeping institutional capacity and memory.

 Interviewees indicated that that most of staff have enough experience for their respective functions. However there is need for further and specific training for sustainable and improved level of implementation

1 Mother institutions like DINA, DRH, DNFFB and INIA

9 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

activities. Such training would be in areas like irrigation, monitoring and evaluation, personnel management and, monitoring of forest concessions.

 For cross cutting issues, all informants said they incorporated HIV issues in their normal work including gender aspects. Most of these interventions were done through coordination with the respective focal points established at DPA.

 Despite these achievements, concerned people considered the disbursement process as not satisfactory. The procurement process was indicated as not working well in field conditions.

 There is also an understanding that being the first experience, plans continued to be directed to basic indicators such as number of families assisted, CDRs, number of animals vaccinated, but with no indication on how much these contributed to increased production and productivity and food security. The majority however, considered that PROAGRI I improved their working conditions.

 Regarding the Institutional Development of MADER, the understanding of interviewees was that there was an improvement of communication, coordination, financial flows, accountability, rules and procedures, equipment and quality of services. This is witnessed by the level of expenditures in communication materials indicated in Table 1.

 The PAAOs, were considered useful planning and implementation tools and helped in the improvement of management and coordination within different DPA and DDA sectors. A main concern continued to be late disbursements, with particular emphasis in the first quarter which is crucial for agricultural field activities.

 There is also perception that despite the usefulness of the MPFP due to its participatory approach, it continued to be very time consuming and inflexible – unable to allow any event not predicted at the planning process, which is done about 8 months prior to implementation. The hope was that with the introduction of PTAOs, this situation could eventually be improved.

 Another perception concerning PROAGRI I is the fact that the national political principle of poverty alleviation seems to be contradictory with MADER’s principle of confining its interventions to nuclear functions (policy formulation and regulations). People want goverment to continue to provide free production inputs and credit for field activities.

10 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Human Resources

Institutional. There were reforms in the sector. New posts were created and procured through public tender, however the 2004 tender failed due to lack of funds. Personnel control is done through “livros de ponto”. Information about staff is obtained through the use of SIP. A full time employee is responsible to collect data from the districts. The salary sheet is also used as a tool to control presence and absence of staff.There is a plan for training eight members of staff at the Catholic University of Cuamba and five staff members at ISPU.

Integration. The integration of personnel as civil servants was based on decree 36/20042, with salaries payment changing from internal PROAGRI funds to OGE currently. There are still 36 people in the process of being integrated. Staff responsibilities were defined by respective sectors or training.

Objectives and Implementation of PROAGRI I

Objectives

The objectives defined at the outset of PROAGRI I remained in terms of philosophy but there was a considerable change in its implementation along with the realization of the functional analysis, especially in the decentralization of functions to the private sector and farmer associations.

Basic Principles

There is a general understanding that the implementation of PROAGRI I brought a positive change in terms of coordination and procedures for both parties, i. e., MADER and the development partners. There is also a consensus that MADER improved its internal institutional capacity to perform its basic undertakings but it failed to translate this capacity in creating the conducive environment to meet the governments major objectives of improved agricultural production through better public services and improved sustainability in management of natural resources.

Therefore, despite these achievements, the design of PROAGRI I did not address the issue and challenges of triggering the participation of other actors outside the agriculture sector. As such PROAGRI I missed the challenge of developing a system that is efficient, market driven, and responsive to farmers’ needs. Building such a system would require a holistic approach to address several critical components of the system concurrently. It should have focused on creating a conducive policy environment, improving import mechanisms, building dealer networks, developing information on inputs and

2 This decree states that all employees in post until 1998 should be integrated as full time civil servants

11 Volume II-B Evaluation of the First Phase of National Agriculture Development Program outputs and transferring this information to farmers, cultivating demand for cash and food crops at smallholder level, developing a credit system responsive to the needs of inputs dealers and farmers, managing donor- funded inputs (fertilizers, seeds, pesticides) and improving market transparency. It is important to emphasize that these interventions should occur concurrently. The failure to involve partner institutions linked to agricultural production on the part of both MADER and donors was a major shortcoming in the implementation of PROAGRI I policies and programs.

Decentralization, was probably one of the most visible aspects of PROAGRI I due to the creation of capacity and allocation of resources (including financial) at central, provincial and district level. At a later stage, the planning process took place from the districts. However, the set up of MADER by components, was also reflected in the planning process at district and provincial level. .

Institutional Development

In terms of integration, only 25% of the interviewed staff holding a position as head of department/services, worked in the current (September 2006) position at DPA HQ before 1999. Although they indicated that their responsibilities were well defined, the majority (75%) are not fully integrated into the system. This has resulted in high turnover of staff and the consequent failure in keeping the institutional memory and capacity.

The high turnover and the lack of staff integration makes it difficult to judge performance of the institution of the pre and post PROAGRI I. Human resources capacity created in Zambezia Province deserves close monitoring to be able to perform the objectives set. If the high turnover continues, the sustainability in terms continuation and effectiveness of activities in the future is jeopardized.

The planning process during the first years of PROAGRI implementation followed the classic planning procedure. Each sector planned what the managers thought, with little or no involvement of farmers’ and their concerns. Planning was concentrated at the provincial level, with involvement of districts. In 2003 an integrated planning system began but the understanding of tools and processes such as logframes was minimal. Indicators included beneficiary families, associations assisted and number of CDRs. The survey indicated that planning started from extension agents based on their contacts with farmers. These were consolidated at the district and provincial level. Unfortunately, this planning process was mostly to comply with what had been planned centrally and not always on what has been suggested by farmers.

Furthermore, planning continued to be based on the components mainly to get the sectors organized in terms of institutional building which received 45% of the budget. Budget support for field activities was 30% and the rest received 25% for other activities.

In terms of PAAOs achievements, everything was based on PTAOs on technical aspects like CDRs, number of vaccinations, community pharmacies

12 Volume II-B Evaluation of the First Phase of National Agriculture Development Program but never oriented for food production or food security. The evaluation of CDRs began in 2002/03 with the introduction of field days. The indicators were standardized.

In terms of decentralization, there was an allocation of University graduate staff as DDA in districts with high potential (Milange, Morrumbala, Gurue, Mocuba, Alto Molocue and Nicoadala) as a means of creating human resource capacity. There was also provision of scholarships for Cuamba University and ISPU with the view of allocating qualified staff in the districts upon the completion of their degree.

In terms of infrastructure, there was a decision to build a house in each district for the Director and one office for DDA and place a vehicle for each DDA for monitoring and evaluation (M&E). M&E began from the extension model based on CDRs and early warning models. It was unfortunate that TIA never had a direct role as it just brought some statistics, like number of farmers using fertilizers, but never was used as a monitoring tool. TIA has been been used neither as a planning or monitoring instrument nor as a decision making tool. The concept of TIA is good but with very little use at the grassroot level. “It is very difficult to use the numbers arising from TIA”. It does not reflect farmers’ reality, so far.

As far as restructuring of MADER as the result of functional analysis3, the perception of interviewed staff was that the analysis was simply an academic exercise, as subsystems were not prepared to absorb the load coming from the functional analysis. “There were too many theoretical concepts”. However, after the functional analysis “we started to consider possible risks involved with the implementation of planned activities”. They started to realize that just looking at opportunities and constraints was not enough. There was no visible resistance to institutional changes beyond the normal reactions. Even with changes in technology there was a natural skepticism with people not aware of where the changes were heading. Later people understood the new situation, and were more accepting. The functional analysis was good in principle, but the implementation was weak and had almost no impact.

Data on procurement provided by DPA during the period of 1999 to 2005 (see Table 1)4, shows categorically the focus of PROAGRI I investments with 88% for institutional development. Infrastructure took most, of the budget resources followed by transport and office furniture. The production sectors received a total of 12%, whilst field equipment received the least (less than that 5%). It is apparent that conditions to change subsistence into commercial

3 The functional analysis that took in the Ministry of Agriculture aimed at promoting agricultural development through the identified nuclear functions, marginal functions and non nuclear functions (policy analysis and formulation; regulation and inspection mechanisms; and, provision of public services). as well as actions to be transferred to other institutions, privatized or outsourced or even removed

4 We were not provided with desegregated data per year of expenditure

13 Volume II-B Evaluation of the First Phase of National Agriculture Development Program agriculture were no not created by PROAGRI I. stakeholders carry the view that procurement was in line with the planned activities.

Table 1 Summary of PROAGRI I Expenditure for Zambezia Province (Meticais) from 1999 to 2005 Total Designation/Year % (Mt) 1. Infrastructure 19.000.000,00 32,49 2. Transport 17.500.000,00 29,93 3. Office Equipment 14.950.000,00 25,57 4. Field Equip 2.000.000,00 3,42 5. Seed 4.402.762,00 7,53 6. Rehabilitation of Irrigation Infrastructure 617.815,00 1,06 TOTAL 58.470.577,00 100,00

Source: Direcção Provincial de Agricultura e Desenvolvimento Rural da Zambézia

General Evaluation

The general evaluation was that, in Zambézia Province, PROAGRI I created the capacity in terms of human resources to perform the objectives set. Although the PAAOs, were considered useful planning, implementation, management and coordination tools within different DPA and DDA sectors. They generated concern about late disbursements and particular emphasis.

A major concerning aspect with PROAGRI I is the fact that the political concern with poverty alleviation seems to be contradictory with MINAG’s principle of confining its interventions to its core functions (policy formulation and regulations) without direct intervention in the provision of production inputs and credit for field activities. It is felt there should be some phasing of the changes in functions to allow the environment the Ministry operates within to evolve with it.

Most agricultural players in Zambezia said that the common vision created by PROAGRI I in the agricultural sector as a whole, has allowed then to be aware of what is taking place, even when they are unable to solve farmer problems The conditions have been created to respond the challenges of PARPA as a result of PROAGRI institutional development.

The ceilings coming from basic principles helped better management of resources, as there were guidelines to comply with. However, related government institutions depending only on the national budget (OGE) did not have the capacity to catch up with MADER even in aspects of coordination that required additional funding

In the planning process, there was participation of partners (like NGOs, private sector, Associations) in the definition of priorities and evaluation. The police participated in the inspection of forestry activities, which was a commendable achievement. The roads sector could not cope with the needs for marketing of farmers’ produce. The availability of market information was

14 Volume II-B Evaluation of the First Phase of National Agriculture Development Program helpful. However all these developments did not result in a significant agricultural production increase.

Support to Agricultural Production

To analyse agricultural production, maize was utilized as a reference crop by being one of the major staple food crops grown by the majority of farmers, and a strategic cereal crop under agricultural policies. The production of this commodity has increased during the period under analysis as indicated on Table 2. However, it is difficult to establish a direct linkage of these results to the achievements indicated on the institutional development. Table 2 indicates the area, production, and, yield of maize crop during the period 1999 to 2004 cropping seasons.

Table 2 Maize Production in Zambézia Province (Small holder Farmers) Year 99/00 00/01 01/02 02/03 03/04 04/05 Cultivated 187,874 205,175 207,965 213,318 218,624 222,920 Area (ha) Harvested 187,874 199,905 207,965 212,493 218,624 219,160 Area (ha) Prod (ton) 164,574 192,080 257,137 262,354 273,547 259,084

Yield (ton/ha) 0.88 0.96 1.24 1.23 1.25 1.18

Source: National Early Warning System for Food Security; MADER - DINA

As can be observed from Table 2, the objective of increased production was achieved mainly due to area expansion, but this was not accompanied by any increase in yield per unit of area. In fact, the yields per unit of area remained steady over the whole period.

On the other hand, there were considerable losses in average cultivated area as compared to the corresponding harvested area ranging from 0% (crop seasons 99/00, 01/02 and 03/04) to 3.4% (crop season 04/05). If we consider a lump sum of US$405 for land preparation and seed alone, these losses would imply US$302,360 in the crop season 04/05. These results constitute sufficient evidence that the objective of increased productivity (efficiency) was not attained, neither in terms of yield per unit area nor in terms of labour. Increase in cropped area and production can be attributed to other factors like return of refugees due to the advent of peace, and good climatic.

In the area of plant protection, there has been monitoring/survey of pests and diseases with the use of pesticides were appropriately justified with involvement of communties as occurred in Chinde and Inhassunge. DPA has also been involved in the removal of obsolete pesticides in collaboration central level teams. For coconut tree yellow lethal disease there is a lack of

5 Manual model of production

15 Volume II-B Evaluation of the First Phase of National Agriculture Development Program coordination with IIAM as no one from there has been involved: SPA tested 20 lines for resistance to it but so far there are no consistent results.

In the area of seed a decision that all districts should produce certified seed was taken The examples are rice in Maganja da Costa and Mopeia; and Cassava in Mocuba through farmer associations. The private sector buys the seed in seed fairs for redistribution. Farmers keep their own reserves of seed except for years of scarce rainfall. However, there are no accurate estimates of seed reserves kept by the farmers. People have started to buy quality seed from seed shops. PROAGRI and FAO have financed local seed production.

The early warning system has been instrumental in recording rainfall patterns that allowed for planning of next cropping seasons including the recommendations for crops and varieties tolerant to drought (in case of forecast of dry season). The promotion of small ruminants (goats) is another strategy for dry zones. People were also encouraged to produce cash crops (tobacco, cotton) as strategic activity for food security. Early warning also had weaknesses, especially in the determination of yield per unit area. There is a need to refine the system. The results from actual yield, most of the times, show significant discrepancies that can mislead all the planning processes by reporting either too high or too little production with consequences in the subsequent need for marketing or for importation to support possible deficits.

Extension

In terms of institutional development, there were changes in academic levels. There were also scholarships tenable at the Cuamba Catholic University. There was lots of confusion in the implementation of the Extension Master Plan. Since 2003, there were directives to expand activities to districts without extension networks, which implied the need to dismantle some networks given the fact that the number of extension agents was not increased.

For technology dissemination, basic information delivered included animal traction, fish culture, drought tolerant crops (sweet potato, pineapple, upland rice-NERICA), participatory extension and, FFS. Although extension messages were not tailored by gender some partners preferred to devote messages like animal traction for men and vegetable production for women. Issues of HIV/AIDS were normally included in common technical messages. Only about 3 to 4 times per year there were specific messages for HIV through extension agent training. Radio Paz (missionary radio based in Quelimane) has been collaborating with extension in disseminating technical messages.

The unified extension system has been working for about four years. It included aspects of livestock (animal traction, restocking, animal health); forestry (community nurseries, shade trees, bush fire); and cultural practices for food and cash crops; fairs for inputs, and post harvest.

16 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Joint planning with different sectors started in 2002/03 through the consultative council with the participation of all district directorates. The process consisted of presentation of district and sector drafts. DE consolidated all proposals to be approved by the council before sending them to Maputo. The local management committees also were instrumental in proposing specific field activities but current PAAO software could not accommodate them.

Linkage with research started in 2005 with the allocation of one researcher from IIAM in Zambézia, who established direct linkage through SPER and SPA. This was a positive achievement

In terms of marketing, the extension services did surveys on yield and production estimates and contacted potential buyers who went to the markets for purchasing. In the case of rice there were pre-determined buyers.

M&E of extension results was done through three monthly reports from the public and private extension services, field visits and meetings with partners one to two times per year. Farmers participated in the evaluation of field activities. Farmers expressed their opinion in regular meetings and during field visits 2 to 4 times per year.

The World Bank outsourcing programme implemented in Nicoadala through AGEMA was conceived on a centralized basis. As a consequence, there was no clear linkage between the implementer and DPA. Supervision for this activity in Zambézia was centralized from DNER in Maputo. DPA only followed field activities. Disbursements also came from the central level, until the last two years when it changed to come through DPA. It is difficult to judge the performance of this initiative but there is general feeling that results were not encouraging for the money spent on the exercise. This, coupled with lack of inspection, makes it seem that the implementation did not correspond to the expectations.

On the other hand, the EU outsourcing programme began in a different way, with the appointment of a provincial supervisor for monitoring and supervision. It is being implemented in Pebane and Ile and expected to be expanded to Chinde through WVI (Pebane); Solidariedade/Action Aid (Ile) and ORAM/HPI (Chinde). Funds are managed from the provincial level with participation of concerned districts, so it is anticipated that results will be better than the World Bank Project.

General Evaluation

In the area of marketing, there has been a programme to convince farmers not to sell all their produce at harvesting time, because of low prices offered and to prevent hunger in subsequent periods. This work involves the community leaders. This approach is good only for the short term as it encourages people to be self-sufficient, but in the long run it does not help the general government’s development objective of transforming subsistence into commercial farmers.

17 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Research

As mentioned under the extension component, research in Zambézia Province started only in 2005, with the allocation of one researcher from IIAM in Zambézia who establishes direct linkage through SPER and SPA. There have been some initiatives through experimental trials on rice, maize and root & tubers through the central level from IIAM HQ.

General Evaluation

The establishment of a formal research station in Zambézia as an extension of the Central Research Zone can be regarded as significant step given the potential of some commodities grown in the province, such as rice, cassava, maize, coconut, cashewnut, and tea.

Livestock

During the implementation of PROAGRI I, there has been attention to specific problems. Some problems are similar across the province and others are location specific. In dry areas, for example, there was a need to include drinking points/infrastructure while in other districts that is not a problem.

The Institutional changes in the “encarregados de tanque carracicida” was seen as negative decision. The strategy of establishing Associations/Committees to manage the dip tanks did not meet the expectations. These organizations received the initial kits but they did not know how to proceed when finished. Also, there were no shops selling animal drugs except at the provincial capital. With the dismissal of government employees at the dip tanks, the animals were left with no protection. As a result, the trypanosomes reached levels of 30% in 2004 (LRV. 2006).

PROAGRI I stopped subsidies to farmers (livestock raisers) as a result of MADER functional analysis. Theoretically, this was a good decision. However, since there was no substitute for government, the decision has been questioned. Although staff was able to visit more locations with PROAGRI I resources, this was not translated in better assistance, as farmers had no resources to implement the recommendations provided. The therapy recommended after Laboratory analysis were not followed by availability of appropriate medicines. The Veterinary Pharmacies did not develop in any significant fashion.

Therefore, it seems that the government failed to find a good exit strategy to step away from assistance to farmers, as there was no one prepared to take over the task neither the farmers themselves nor the private sector. Therefore farmers had no incentive to invest in the treatment of their animals. Some DPA staff even suggested that government should consider returning to the mode of production that was in place during the pre independence era, i.e. providing services that were charged in the form of taxes. Table 4 shows the evolution of cattle production during the period under analysis in Zambezia Province.

18 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Table 4 Cattle Production in Zambézia Province Year 1999 2000 2001 2002 2003 2004 Cattle Nr 16,176 17.206 17,206 14,303 14,908 12,821 Meat (ton) 161 173 179 142 164 126 Extraction rate 6.6 6.7 7.7 4.5 9.7 6.0 Carca Av. 151 149 136 128 119 158 weight Birth rate 37.3 53.9 33.7 50.8 46.8 N/A Deep Tanks Nr Total 156 Total 156 Total 156 Total 155 Total 156 Total 156 Op Non Op Non Op Non Op Non Op Non Op Non 66 90 66 90 66 90 65 90 66 90 66 90

Source: Annual Report 2002, 2003, 2004, DINAP

The table above shows a steady increase in numbers of cattle during the period from 1999 to 2004, but there is no evidence to indicate that was a result of PROAGRI I intervention, as indicated by most of our interviewees in the provinces and at central level. They claimed that technical assistance declined with the “abandonment” of basic services like animal treatment and most diseases increased, especially tick and tick-borne diseases, brucellosis and others.

For mortality rates the evaluation team was only able to find generic data for 2003, which indicates that this was not a normal task for DINAP. Despite the interest shown to include this aspect in annual reports, the provinces have not yet initiated its implementation. Other available indicators (3.0% in Chobela. Morgado, 1994; 19.9%, CAP, 2000 and 12.6%, TIA, 2002) are not conclusive. This also supports the idea that there is no evidence to show that the increase in numbers of cattle can be attributed to any improved management as a result of PROAGRI I intervention.

The report from LRV6, indicates that trypanosomes constitutes a serious constraint to the cattle production in the family sector during the last few years in the central region of the country. This situation became worse in these years due the lack of dip tank drugs, the privatization of dip tanks and, the refusal of farmers to pay for animal health services. This, in part, can be attributed to the fact that most of the livestock raisers in the family sector had a free of charge service for a long period of time, and they did not understand why this time it should be any different.

PROAGRI I (besides the livestock restocking programme7) did not allocate enough resources to transform the production mode into a more commercial mode of production.

Marketing was relegated as the role only of farmers and buyers, with some assistance from district delegates who organize trade fairs. “But in general this activity was left as a producers’ affair”. The services, however, do record the number of animals moving out of the province every three months. For

6 Elisabeth Specht. 2006. P.P. presentation for the meeting with SPP (unpolished) 7 The livestock restocking program was not financed by PROAGRI I

19 Volume II-B Evaluation of the First Phase of National Agriculture Development Program the meat consumption in the province, the information was collected from the butcheries. The critical point is the lack of an appropriate strategy to encourage farmers to enter the commercial production system.

The system established for monitoring and evaluation under DE provides consolidated data that only for the so-called impact activities, which are not disaggregated by sectors and makes their use difficult. The ideal would be to work on the basis of each district and sector. However lack of funds constitutes a serious constraint to realize sectoral specific data collection that would be more useful for related services. For the same reason, the Veterinary medical services were forced to only address emergency situations like vaccinations and not following any planned activities. The lack of funds was particularly critical in the last two years when there were no disbursements at all. The services cannot involve farmers to participate in the evaluation process, especially after decentralization of dip tanks.

SUE was implemented through SMS. There was training of extension agents for vaccination of chickens, cattle and dogs against rabies. The system also helped in the dissemination of information to producers, especially on hay production for feeding supplement during the dry season, animal traction as well as on animal health against Newcastle Disease and rabies

Forestry and Wildlife

The legislation concerning prevention of exporting raw timber (Chanfuta, Jambire and Umbila), the reduction simple licences and encouragement of concessions and the demand for creation of related agro processing of forestry resources associated with concessions was major achievement for a sustainable exploration of forestry resources undertaken during PROAGRI I.

The inspection has helped in the improvement of revenue for the communities through the 20% fee for the communities. Passing of responsibilities to MICOA and MICTUR had no impact at all; staff from DPA continued to do what they had done in the past. For example, when the Gilé Project ended and everything also stopped, but MICTUR did nothing to improve the situation. MICOA on the other hand `is doing nothing to prevent degradation of the mangrove forest in Zalala. The resettlement of populations on the seashore should be the responsibility of MICOA, but in real terms DPA continued to do the job. The separation of management of wildlife and its habitat (forestry) seems to be serving only political agendas.

The engagement of communities is based on law 93/2005 in two ways. The first covering the 20% of fees to benefit the communities, and district licensing for small explorations for five years.

Progress achieved can be judged by the reduction in the levels of exploration, which allows for regeneration to take place. Now there is more respect for the 50,000 m³ plan per year. The reinforcement of inspection increased the control; now there are only 90 licensed operators against 240 in 1999.

20 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Licenses now are provided only in areas where there is the capacity to control. In 1999 there were 6 and now there 16 concessions.

A major weakness in this sector was the lack of a national strategy for regeneration of forestry resources. There were no guidelines to support the activity. Therefore, the concessionaries sometimes refused to support regeneration because there was no legal instrument to oblige them to do so. It is a large flaw in the system.

The private sector view was that while PROAGRI I helped farmers, it did nothing with the forestry area. Nonetheless, there was recognition that the improvement on the inspection sub sector helped to control non-licensed explorers, and reduced unauthorized explorers by 80%. This was possible due to joint planning with DPA. The private and public sectors worked together in the field to identify opportunities for business, but they considered the target of 100 to 150 m³ to be too small and suggested the target of 200 to 250 m³ for precious timber (Madeira preciosa). For other species they posed no problem as there is no limit.

Land Management

According to provincial staff involved in the land registration process, before the adoption of land law and respective regulation, it took more than one year for the land registration process, to go through now it takes no more than 90 days. The long wait was due to the necessity to deal with many authorities, while now, only one authority is required. Another aspect that explains the reduction of time is the clarification of the process through the land law. The steps to follow are now clearly established.

Irrigation

Activities from the department at central level were not active enough to influence the provinces to develop local strategies. The old hydraulic nucleus were dismantled and everything depended on the central level. Lack of action at the local level destroyed the whole system. Even the Projecto de Irrigação de Pequena Escala lacks proper follow up from provinces to guarantee sustainability. PAAOs also did not include the irrigation component. Therefore, it can be anticipated that after the termination of the indicated project one and a half year from now, everything will stagnate if appropriate decisions are not taken now.

District Assessment

Maganja da Costa District

Institutional Development

In Maganja da Costa District, only 25% of staff holding a position as head of services worked in the current (September 2006) position at DDA before

21 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

1999. However, they indicated that their responsibilities were well defined, but the majority (75%) were not fully integrated into the system.

Only 25% of staff at DDA HQ indicated they had access to computers for their work. According to their information this equipment was acquired during the 2005 as a result of PROAGRI intervention in improving working conditions. There is no access to internet and fax in the district. Only 25% of staff had means of transport during the period 1999 to 2005, and said they had enough fuel to perform their normal field activities

All interviewees, besides their training programmes, received technical backstopping from their “mother institutions8” at Quelimane HQ as the only source of information because there is no technical documentation center at DDA.

All informants said they incorporate HIV issues in their normal work (also including gender aspects). Most of these interventions are done through coordination with the respective focal points established at DPA HQ.

Forestry and Wildlife

There was a creation of 5 management committees for forestry and wildlife resources. Community members were trained in management of natural resources (bush fire, soil erosion, dissemination of forestry law 10/99). There is a concession of 33,000ha for the community, including its management plans (fish culture, carpentry) in partnership with Radeza Project.

The objective is to reduce the impact of over-exploitation of forestry. Inspections are one of the approaches. In 2005 the State recovered 500 Million Meticais in penalties (of which, 50% have been paid). There has been identification and recovery of timber cut and abandoned; this is collected and sold. In 2005 revenue was collected from timber was 35 Million Meticais. Twenty percent of fees is being channelled back to the communities through the management community committees. In the case of Maganja da Costa no funds have yet been received by the communities because they still do not have a bank accounts. It was mentioned that when the funds become available, the community intends to buy a maize mill for Mocubela Locality and develop a well for water; as well as the rehabilitate one school in Murrabicua.

There is monitoring of activities to assess how forestry are being utilized, with an inventory developed by teams from Maputo central.

There is intersectoral coordination is between the land unit , extension services and NGOs for land use planning; for sensitization of communities on the best use of natural resources. ORAM and Action Aid in the organization and legalization of associations; the procedures for community concessions and preparation of community plans

8 Mother institutions like DINA, DRH, DNFFB and INIA

22 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Mocuba District

Institutional

In Mocuba District, 29% of interviewed staff holding a position as head of services worked in the current (September 2006) position at DDA before 1999 and 57% were fully integrated into the system. Their responsibilities are well defined, there is high staff turnover.

About 86% of interviewed staff had access to computers during the period 1999 to 2005, but they had no access to fax or e-mail in DDA. Only 29% of staff had means of transport and said they had enough fuel to perform their normal field activities.

About 71% of interviewees, they received technical backstopping from their “mother institutions9” in Quelimane HQ.

All informants said they incorporate HIV issues in their normal work (also including gender aspects). Most of these interventions are done through the coordination with the respective focal points established at DPA HQ.

Those interviewed did not think highly of the restructuring programme. Most did not seem concerned about structural reforms, were unaware of the changes and felt it did not affect them. However, they mentioned that the merging of Forestry and DINAGECA did not improve efficiency of operation and things seemed to have become worse off than in the previous structure.

There is internal planning by sector, followed by consolidation at district level and approval from DPA to set the budget ceiling. Approved plans come back to DDA and there is harmonization with district plans. The implementation is done in collaboration with partners like ADRA, HPI and IITA.

The PAAO assessment was done through three monthly reports and annual reports at the district, provincial and central level. Targets were based on the relevance of each activity, such as the number of beneficiaries and budget.

With the decentralization there was more involvement of the district. Centralization meant waste of resources by addressing issues not relevant to the district. There is no gender distinction in implementation of activities except in the distribution of goats, where 75% of the total was given to households headed by women.

Support to Agricultural Production

There has been pest and disease control using pesticides like Baythroid in collaboration with extension, community leaders and churches to mobilize people and depending on the financial capacity of farmers. Mechanical control (by removing and burning infected plants) has also been extensively used.

9 Mother institutions like DINA, DRH, DNFFB and INIA

23 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Previously, people used to buy seed at DDA, but now there is a lack of seed in the district. Major seed companies (SEMOC and PANNAR) are not represented in Mocuba. Farmers were encouraged to do local seed production, in the process, good farmers were identified. These would then receive quality seed from DDA for multiplication. After harvesting, the seed farmers would keep part of the seed with the rest being collected and given to other farmers. This seed is not certified as there no seed certifying body in the district. There is no seed reserve in Mocuba

General Evaluation

PROAGRI’s definition and scope was not clear to stakeholders at the beginning “There was an expectation for a focused project (e.g. rehabilitation of certain irrigation schemes or any other strategic aspect)” In the province PROAGRI I is synonymous with big money despite late disbursements.”

Extension

With the termination of the IBIS Project there was a considerable reduction in the number of frontline extension agents. With PROAGRI only people with Diploma level could be accepted as extension agents. Therefore, the coverage of extension services diminished.

Information disseminated consisted of cultural practices, soil conservation, post harvest mainly in the “casas agrarias”, but when the casas agrarias” went private the post harvest work almost disappeared. Technology did not differ by gender. Groups are mixed (men and women) except in some specific meetings to deal specifically with HIV issues. The Mocuba extension network looks at all aspects like livestock, forestry and agriculture in coordination with research for dissemination of new technologies through CDRs. New varieties have been introduced including Sussuma for maize and Chinyembwe for cassava. For wider coverage there was a contract with community radio (2 times/week) for the programme called “campo e desenvolvimento” Unfortunately this programme was stopped due to lack of money.

For programme design, extension worked with community councils for priority setting. Unfortunately most activities selected were not accommodated by PAAO’s system.

In the area of marketing, the main activity was to encourage people to keep part of their production as food reserves.

For monitoring and evaluation of extension results the methodology used consisted of field days and three monthly reports.

Livestock

Private players are involved in this sector raising cattle, goats and poultry. Overall numbers have however not changed due to regular slaughtering. The

24 Volume II-B Evaluation of the First Phase of National Agriculture Development Program private sector is almost autonomous and does not require assistance except for the livestock census. For smallholders it was recommended that everyone acquire his/her own drugs.

A livestock sector programme was designed discussed with the Director and sent to SPP. There was an increase in sales as the extension services recommended selling of livestock for cash.

Forestry and Wildlife

Communities were engaged in licensing processes. The community of Chimboa has already received the 20% revenue from the payment of a concession from the “Sociedade Moveis de Licungo”. The community is planning to build a school, wells for drinking water and a hospital. The activities are done in collaboration with NGOs like Prodec/MICOA aiming at establishing nurseries whose plants are distributed in schools and communities. So far, 4ha of forest regeneration have been planted. The concessionaries are also supposed to have their own nurseries

Inspection was only done two times in 2005 due to lack of transport. There were 8 cases of penalties due several transgressions.

Land Management and Cadastre

Significant efforts have been put in to sensitise people on the land law. As a result, there are more requests for legalization. However there are no maps at district level. The number of people with land rights, significantly increased over the programme period.

Nicoadala District

Institutional Development

In Nicoadala District, 60% of interviewed staff holding a position as head of services worked in the current (September 2006) position at DDA before 1999 and were fully integrated into the system. Their responsibilities were well defined.

Only 40% indicated they had access to computers from the period from 2003 to 2005 and no one had access to e-mail, fax or internet. Only 60% of staff had means of transport during the period 1999 to 2005 and said they had enough fuel to perform their normal field activities.

About 80% of interviewees mentioned that, besides their training programmes, they received technical backstopping from their “mother institutions10” from Quelimane HQ as the only source of information because there is no technical documentation center at DDA.

10 Mother institutions like DINA, DRH, DNFFB and INIA

25 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

All informants said they incorporate HIV issues in their normal work (also including gender aspects). Most of these interventions are done through coordination with the respective focal points established at DPA HQ.

Despite the fact that most of staff had enough experience in their respective functions, it was a general understanding that for sustainable continuation of current or improved level of implementation of activities, there would be a need for further training in areas like mapping and topography (DINAGECA), human resources management (DRH), meat inspection (DINAP), planning (DE) and legislation (DNFFB).

Those interviewed were generally not impressed by the restructuring efforts. Many were not concerned and were unaware of the impact on them.

With assistance from partners, (IBIS, ZAPDP for agriculture; Solidariedade for livestock restocking; FAO/SPFS; OTVA/WVI for agriculture in the components of vegetables and irrigation; AGEMA for Outsourcing; ORAM for land legalization, MSU for orange sweet potato) DDA tried to merge public extension with private and to redesign the “casas agrarias”. All these were integrated into PROAGRI except FAO/SPFS.

There is a forum that NGOs and community leaders attend. But before 2003 plans came from DPA; but now planning is more local. From 2004, plans started to reflect PDD. After the PAAOs started, PTAOs come next. Disbursements are done through PTAOs., followed by performance reports. Activities that did not enter one PTAO, if well justified could be included in the next PTAO. Targets were established on the basis of availability of resources, not only on the needs or problems to be resolved.

Although not very regular, there have been monitoring missions from DPA and from central level including financial audits.

Functional analysis was seen as useful to organize the human resources, most felt that their functions became clearer. A Unified Extension System was put in place with the definition of DDA responsibilities. The process was participatory. Previously, the districts used to send proposals to DPA, with long delays before a response. Even then not all requests were granted, despite the delays. The major impact of decentralization was passing more responsibilities to DDA.

General Evaluation

PROAGRI was good for institutional organization of DDA and provision of transport means, recruitment of staff and financial resources. Some farmers benefited from financial resources to produce vegetables, forestry inspection and animal health.

26 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Livestock

Livestock increased in Nicoadala, making the district the leader in livestock production in Zambézia Province. Cattle increased from 3,000 in 2002, and to 7,000 in 2006 for both private and small scale. With the restocking programme, new breeds were introduced. Control of trypanosomes, tuberculosis and brucellosis improved. There was good coordination with NGOs engaged with livestock restocking (HPI, WVI, INAS) for goats and poultry.

The plans and programmes were designed based on needs and possibilities. Most of the livestock farmers in Nicoadala District, are civil servants and do not collaborate in planning exercises.

Technical assistance (TA) received in the district, consisted of the work with 4 Indian experts for rice and vegetable cultivation. This TA was reported as being useful in terms of transferring knowledge to local technicians.

In terms of technology dissemination, our interviewees indicated that PROAGRI I did not promote and boost field activities. For example, the launching of the rice initiative was not followed by the necessary investments. Zambézia Province, the most important rice growing region in the country, not have a single agronomist for rice development at field level. Computers were thus used to write reports and “bureaucratic” notes. They should be used to write technical papers and agricultural magazines. At this time, there are more agronomists in Quelimane than in the rest of the province.

It was also felt that when there are surveys like TIA and CAP extension agents should be given priority as an incentive and creation of internal capacity. This would be another way of institutional building. It is their view that management posts like those of district directors and heads of services and departments should be filled by fully integrated personnel as opposed to “short termers” as was often the case with the consequent results of poor sustainability.

Forestry and Wildlife

New regulations increased the liaison with communities. Communities became more powerful on land management. For example Madal had to give away parts of its land to the community. There are more people requesting land registration now.

Land Management and Cadastre

The community has been involved in the management of forestry resources. For example, in the DERE game park, conservation is being handled by community inspectors. Their remuneration comes from the 20% charge on the private sector explorers. Community leaders worked with SDFFB. ORAM

27 Volume II-B Evaluation of the First Phase of National Agriculture Development Program also assisted in the sensitization of the communities on conservation of forestry resources, particularly in aspects like bush fire, prevention of cutting of non-permissible diameters and species (Pau Ferro, Umbila, Mungu, Jambire) and hunting. From the tax received from explorers, 20% goes to help running the service, 30% for the inspectors (as an incentive) and 50% for FFA. There are two inspection methods in Nicoadala: one station in Nicoadala HQ and, one mobile covering the rest of the district.

Mopeia District

Institutional

In Mopeia District, all interviewed staff holding a position as head of services worked in the current (September 2006) position at DDA before 1999 and were fully integrated into the system. However, they indicated that their responsibilities were not well defined. This is one sign of high rotation of staff with the consequent failure in keeping the institutional memory.

There is no access to computers, fax or e-mail in DDA. Only half of staff had means of transport during the period 1999 to 2005 and said they had enough fuel to perform their normal field activities.

All informants said they incorporate HIV issues in their normal work (also including gender aspects). Most of these interventions are done through the coordination with the respective focal points established at DPA HQ.

Despite the fact that most staff had enough experience in their respective functions, it was a general understanding that for sustainable continuation of current or improved level of implementation of activities, there would be a need for further and specific training in areas like animal nutrition (DINAP) and rice production (DINA).

Planning was based on PDD, PARPA and, PES followed by three monthly reports with participation from farmers’ associations.

Assessment was based on DPA missions, monthly and three monthly reports. Targets were based on impact needs for example distribution of motor and treadle pumps, livestock restocking (cattle and goats).

Support to crop production

The main activities with plant protection included surveys and information to DPA. When there were problems, provincial staff assisted the district in terms of control of insects.

There is rice seed multiplication in Tewe with involvement of Associations (Associacao da Paz, Chverano, Limane and São Francisco de Assiz) with financial assistance from GPZ. Unfortunately, despite the good quality of produced seed there was no certification from SNS. In 2005 Associação da

28 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Paz Association produced 125 tons of the Chupa variety and 11 tons of C4 63 variety. Unfortunately, São Francisco Association lost everything to drought. DDA helped with informing those interested in availability of seeds in Mopeia, and Mopeia has become self sufficient in rice seed there has been even surplus for marketing.

The early warning system in Mopeia has helped in recording rainfall data and predicting next season’s weather conditions. This information was passed on to farmers for better planning in terms of crops and planting time. Besides this, the early warning system has been involved in yield estimates of available fields.

Livestock

There were 10 private livestock farmers (with more than 50 cattle). The number of cattle farmers has been increasing with the restocking programme for private and small scale farmers. There was no significant slaughtering in Mopeia due to lack of markets.

For animal health, technicians from Quelimane were called to assist the district whenever there was a disease whenever there was a disease outbreak However, farmers do not have money to pay for the drugs or for the therapy recommended by experts. The DDA managed to secure drugs only for the restocking programme. Chimuara is the worst affected in terms of unavailability of animal drugs; there is not a single veterinary pharmacy in this district. Drugs have to be requested from Quelimane, whenever they are needed.

In terms of marketing, the only important point is Chimuara where there is a unit for selling live animals for people in transit from northern to southern Mozambique, or vice versa across the Zambezi River.

Producer Level Assessment

Mocuba District

Production System

The predominant cropping system continues to be rainfed, attained despite the fact that 50% of the farmers have received some information about the importance and use of irrigation technology. This may partly explain the low yields

Technical Information

From the survey conducted in Mocuba District, 71% of interviewees declared that they have received some sort of support from agricultural services in the last five years, in the form of technical messages (crop husbandry) and land preparation (64%) and improved seed (71%) but they received no support in terms of fertilizers and only 7% used pesticides. The increase in production

29 Volume II-B Evaluation of the First Phase of National Agriculture Development Program indicated by 71% of interviewees would have been greater if a balanced technology package was used.

Livestock

About 40% of farmers own cattle, but this is not enough for animal traction in land preparation. The use of pesticides is quite common (80%) mainly insecticides. Only 43% of farmers declared they had some sort of animal treatment and 29% received technical assistance from veterinary services from DDA. This only referred to poultry vaccination as there are no cattle in the area.

Inputs

The lack of input distributors has been a serious constraint to meeting demand, even for those farmers who are willing to adopt technical messages delivered by extension services. The farmers who received inputs (57%) declared that these come from private companies like Mocotex, a cotton concession company.

Post Harvest

About 50% of interviewees declared they were exposed to technologies related to post harvest handling like processing and conservation. In terms of marketing, only 29% had support especially those farmers who are close to the main road linking Quelimane and Nampula. The question of prices was indicated as unsatisfactory. 93% of interviewees mention an increase in the area cropped from year to year in this district.

Forestry and Wildlife

In Mocuba District, less than 50% of interviewed farmers were members of communities of association and they have not received any benefit from the exploration of forestry resources.

Maganja da Costa District

Production System

The predominant cropping system continues to be rainfed. However, 36% of interviewed farmers use irrigation agriculture and received technical information on water management from DPA, especially for rice production.

Technical Information

30 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

From the survey conducted in Maganja da Costa District, only 29% of interviewees declared that they have received some sort of support from agricultural services in the last five years in the form of technical messages (crop husbandry) and land preparation (50%) and improved seed (50%) and 7% received support in terms of fertilizers (only 7% used pesticides). The increase in production indicated by 36% of interviewees would have been greater if a balanced technology package was used.

About 40% of farmers own cattle, but this is not enough for animal traction in land preparation. The use of pesticides is quite common (80%) mainly insecticides as a result of influence from neighboring Zimbabwean farmers across the border.

Inputs

The lack of input distributors has been a serious constraint to meet the demand even for those farmers who are willing to adopt technical messages delivered by extension services. The farmers who received inputs (21%) declared that these come from NGOs and GPZ.

Post Harvest

About 21% of interviewees declared they were exposed to technologies related to post harvest handling like processing and conservation. In terms of marketing, 43% had support, especially those farmers who are assisted by NGOs like ORAM and GPZ. The question of prices was mentioned as unsatisfactory. 79% of interviewees indicated that they increased the area cropped from year to year.

Livestock

About 40% of farmers own cattle, but this is not enough for animal traction in land preparation. The use of pesticides is quite common (80%). Only 21% of farmers declared they had some sort of animal treatment but they have received no technical assistance from veterinary services from DDA. This only refers to poultry vaccination, as there are no cattle reported in the area.

Forestry

In Mocuba District, most of interviewed farmers (71%) were community members or belonged to farmers’ associations, but they have not received any benefit from the exploration of forestry resources.

Mopeia District

Production System

The predominant cropping system continues to be rainfed.

31 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Technical Information

From the survey conducted in Mopeia District, only 33% of interviewees declared that they have received some sort of support from agricultural services in the last five years – mainly in the form of technical messages (crop husbandry) and land preparation, fertilizers and, improved seed (89%). However, they used no pesticides at all. The increase in production referred to by 44% of interviewees would have been greater if a balanced technology package was used. Specifically the use of herbicides would have alleviated weeding which constitutes a major constraint to increased yields.

Livestock

None of interviewees had cattle but 33 to 67% had goats and chickens reared on a traditional production system.

Inputs

The lack of input distributors has been a serious constraint to meeting demand, even for those farmers who are willing to adopt technical messages delivered by extension services. The farmers who received inputs (33%) declared that these come from private companies like SEMOC.

Post Harvest

There were no post harvest interventions like processing and conservation for small scale farmers. However, farmers engaged in Associations like Associação da Paz and São Francisco de Assiz received technical assistance for rice milling, cleaning and packaging (which can be considered one of the best examples in the country). In terms of marketing, only 33% had support, especially those farmers who are organized in farmer associations. Prices were mentioned as unsatisfactory but the intervention of support institutions like ORAM and GPZ have been instrumental for a better bargaining capacity. This fact may explain the increase in the area cropped from year to year in this district as mentioned by 89% of interviewees.

Forestry and Wildlife

In Mopeia District, 33% of interviewed farmers were members of community committees or members of farmers’ associations (100%) but they have not received any benefit from the exploration of forestry resources.

Lessons Learned and Conclusions

Recommendations:

- For better performance in the next stages of PROAGRI, it is recommended that MINAG should work in coordination with other concerned ministries.

32 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

- There is a need to empower agricultural related services (input providers, credit, agricultural equipment) with financial support so as to allow the implementation of local bankable projects. Some of these activities could be done through the utilization of Agricultural Promotion Funds (FFA), among other mechanisms. - The next phase of PROAGRI should be clearly focused on to increased production and productivity. - For technology demonstration at the field level like CDRs, PROAGRI II should take into consideration plots not smaller than half a hectare for easy extrapolation from farmers. - PRAOAGRI II should be based on local development projects involving communities and the eventual emerging private sector. - Development actions like institutional development, field activities and creation of related services need to be undertaken concurrently and not on a rank basis. - There is a need to revisit the strategy about food reserves by way of using schemes such as those used in the past (like ICM). - PROAGRI II should be more transparent in the utilization of funds, create management bodies like what happen at central level and avoid too much concentration on the DPA Director. - Institutional building should continue in order to cope with new developments and sustain the results achieved. It should also take into consideration that some of equipment and materials acquired during PROAGRI I became obsolete and will need replacement. - PROAGRI II should encourage projects in agricultural areas or related services aimed at agricultural development. Examples of such projects include water harvesting, marketing, agro processing, mechanization and credit for inputs. For the problems that may arise with lack of capital and skills, the government is called to play a role. But PROAGRI II needs to be more flexible to avoid too rigid procedures like in PROAGRI I. - There is need of helping farmers to access credit or the creation of concrete material conditions for increased production and productivity.

33 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

APPENDIX XII: NAMPULA PROVINCE

34 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Introduction

PROAGRI, the agricultural sectoral investment programme designed by the Government and a consortium of interested donors, was put into place in 1999. The programme was established to address the fact that the economic and social environment, and the nature of the agricultural sector itself, had been rapidly changing and looked to continue its rapid pace of change in the future. The Government needed to adjust its strategies to ensure maximum development of the agricultural sector; PROAGRI was the policy statement to indicate the direction of that change.

The provincial and district offices of the Ministry represent the leading edge of all activities. It is here that the interface with the main clients (i.e. small farmers, farmer associations, community groups, local private entrepreneurs, NGOs, etc.) takes place. It is also here that the ground level impact of the programme will be visible. Therefore, as part of the end-of-programme evaluation, interviews have been conducted in each province. This report is the field survey of Nampula Province.

Summary of Key Issues

Core Functions

It was expected that MINAG activities be restricted to core function. However, the enquiries made among the farmer evidence that the DDA’s are still the main providers of inputs and services (see Annex 3).

The enquiries made among the farmers indicates that the DDAs are still the main providers of inputs and services (see Annex 3 ). The farmers that use pesticides mostly get them from DDA. For fertilizers, the situation is similar. DDA also make animal vaccinations, except where there is no extension agent, then small farmers are trained to do so. Since the last one or two agriculture campaigns, improved seeds are distributed by the DDA on a credit basis. The farmers are supposed to return twice the quantity they received.

However, the work with the groups shows that the provision of services and inputs from DDA is not satisfactory (see Annexes 1 and 2 ). The vaccines for animals that DPA receives are not sufficient for the numbers of animals.

The improved seeds distributed by DDA do not cover the needs, and the private providers of certified seeds are located in the provincial capital and not in all provinces (in other words, very far from productive areas). Except the private firms that provide improved seeds and pesticides to cotton or tobacco producers, very few agriculture inputs are available in production areas. The inputs or equipment for horticulture, for example, are not available in the production area.

The problem of access of inputs is partly overcome by the initiative of the agricultural services to organise subsidised rural fairs that began the last year

35 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

of PROAGRI I, in some districts in each province. There the farmers can get tools, seeds and sometime agro-chemicals at ten times less than their price.

The implementation of the goal that Ministry activities should shift from services and inputs provider to the elaboration of policy and regulations and the control of their application is not easily carried out in the field for the following reasons: i) In low productive areas, most part of farmers cannot afford the cost of the few agro-chemicals that are available in shops and appropriate tools other than the ones made in the villages. The farmer groups interviewed, 6 groups of women and 7 groups of young farmers, emphasized this concern. ii) Linked to the above, private services or inputs provision is not sustainable. To date, in the three northernmost provinces (in all visited districts) there is no private veterinary service and the only case of private sales of storage product for post-harvest storage in Namuno is subsidised by a NGO. iii) In some cases, the farmers can afford agricultural inputs, but face difficulty in finding some. It is very rare to have private sales in production areas, most are only in provincial capitals. iv) The few services and have problems with agricultural inputs provided by the private sector are not satisfactory and the DPA/DDA have no clear mandate to control them. Farmers have problems with seeds that do not germinate and inefficient agro-chemicals. In regards to private service provided, many farmers complain about the discount made for the inputs provided on credit for cotton production, the grading of tobacco (which is never favourable for farmers), and the delays in cotton marketing.

As a result farmers are unable to overcome production limitation factors, principally pests and diseases. Interviewed groups consider pest and disease issues, and post harvest as the most important limiting factors to production .

Probably linked to the improvement of marketing, there appears to be a desire to improve production, that has been hampered by lack of access to production means (improved seeds, appropriate tools, agro-chemicals). Without improving their production, most farmers remain unable to afford to private services, has in turn limited the growth of the private sector in the provinces.

Decision Making Process for Activities to be Implemented by DDAs

The decentralization process tried to allow appropriate decision taking, and thereby better addressing farmers’ needs and concerns. Two main factors worked against this objective in practical terms:

36 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

i) decisions are taken during the approval process of PAAO without consulting the staff, who are in contact with farmers and better know their requirments; ii) the low budget allocations to provincial services and DDAs which does not correspond to the approved budget, and arrives late.

The decentralized planning and implementing system established by PROAGRI does not allow the implementation of activities such as seed or animal distribution on credit. However, such activities are implemented out of the decentralized planning system, through central decision making process. In many cases that has led to poor results due to the incapacity of DDA to provide the required technical assistance because there are no funds available for fuel and per diem for activities not included in the PAAOs, or the inappropriateness of the technology.

Planning Instrument

PROAGRI I developed a new planning instrument (PAAO) that is not integrated in the government planning system and duplicates the task of planning. Furthermore, as it has pre-determined activities and a top-down approach, the PAAO does not fully correspond to the needs of the communities. Therefore, the sustainability of the institutional capacity of planning and budgeting developed during PROAGRI I is compromised. Furthermore, concentration during the institutional strengthening on a new instrument contributed to neglecting improvement of the instrument in use by the rest of government services. As the PAAO is not integrated in the approval process of the Republic Assembly, neither in the district planning process, it is doubtful that it will survive after the withdrawal of the main donors of PROAGRI.

Planning at District Level

The PAAOs are supposed to be developed on the basis of the PAAOs made by DDAs, integrating farmers’ consultations. In reality, the DDAs have little possibility to actually address the local production limitations for two main reasons: i) They do not have reliable data on which to base the summary of the agricultural campaign (TIA is not specified at district level); ii) They cannot integrate most of the farmers’ concerns because those are not part of the Ministry’s core functions and are rejected by the planning software. Some are integrated and then cancelled at provincial or central level reviews.

The planning frame (software) is established centrally and tends to promote a standardization of DDAs activities, not allowing the development of specific development strategies according to the socioeconomic context and agriculture potential, which can be very different from one district to the other.

37 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

That is in contradiction with the purpose of decentralization which tries to better address farmers’ needs. For example, the strategy cannot be the same in districts with high agricultural potential situated near a main road, (where the farmers could be supported to increase their farming area and develop new production), and an area of high potential situated in a remote area, (where the farmers could be supported to transform their production locally (to make oil, for example) to mitigate the impact of high cost of manufactured products. Also areas characterized by rainfall irregularity should have specific support to overcome this climate limitation.

Seed Issues

The development of a strategic seed reserve is hampered by storage problems linked to the difficult access to appropriate stores by both the producers and the DDA, especially in the coastal area. As a result, the producers tend to sell all their production quickly, at low price, preferring this option than losing the opportunity to sell anything. They are not able to store the produce in good condition. When they need seeds, they face a serious problem of access to seeds, due to high prices, unavailability or bad quality seeds. The seeds distributed by the DDA are appreciated for their quality (good varieties, well conserved), but the quantities are far from enough. As a result, no strategic seed stock is available and the improvement of quality of seeds produced by the farmers is compromised. This situation does not allow the development of strategic seed reserves, or improvement of quality of the seeds.

Institutional Development

Decentralization

In terms of institutional development, PROAGRI I introduced a decentralization process, consisting of the transfer to district and province level of implementation and decision making authority. The efficiency of the decentralization process (activities achieved compared to the results foreseen) is assessed here, on the basis of the following results: i) Decision making and implementation authority transferred to province and district level; ii) Priorities and budget ceiling defined; PAAO prepared and approved at province level; iii) Timely allocation of the financial and material resources.

The effectiveness of the decentralization process (if the results achieved allowed the reaching of specific objectives) is assessed considering the following objectives: i) Strengthening planning capacities at district and province level; ii) Improving the performance of the interventions undertaken at province and district levels.

38 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Efficiency of Decentralization at Provincial Level

Result foreseen: decision making and implementation authority transferred to province level.

Decision-making and implementation authority have been transferred to the provincial level. Decision making authority transfer is linked to the decentralization of planning, which allowed the DPA to decide what activity or investment should be included in the annual plan (PAAO). However, the transfer of decision making authority is not complete since some priorities are established by central level, such as vaccination of chickens, fish production, treadle pump development or jatropha crop support. Also some components are framed by policies, as is the case with the livestock development policy which predefined the activities to be undertaken.

The transfer of implementation authority is linked to the decentralization of budget management. The DPA is allocated a budget for operations and investments and is free to decide its redistribution and funding modalities among provincial services and DDAs. The differences of the DDAs decentralization process among the provinces demonstrate the relative autonomy acquired by the DPAs.

Result foreseen: priorities and budget ceiling defined. PAAO prepared and approved at provincial levels.

Budget ceilings are established at central level and communicated to DPA. DPA determines the distribution of budget ceilings among the provincial departments and services, as well as among the DDAs.

The provincial services make their PAAO on the basis of the DDAs’ PAAOs for the corresponding component. In Nampula Province, the DDAs make their PAAOs without knowing the budget ceiling. This resulted in major subsequent adjustments to fit within the budget limits, which were set by the DPA. Harmonization was done at the provincial level, this included the determination of activities to be undertaken by the provincial services and by the DDA level. Once approved by the central level, each provincial service and DDA was informed about its approved PAAO.

In Nampula Province, the DPA supports the DDAs for the development of PAAO, each DDA is assigned an advisor from DPA.

Result foreseen: timely allocation of the financial and material resources

Once DPA received the funds, they were distributed to the provincial services and DDAs, and material were purchased. Funds were allocated to DPA four times a year to allow the funding of the PTAOs. In Nampula Province many heads of provincial services complain about the late allocation of funds. In most instances funds arrived at the end of the quarter giving little time to spend and justify expenditures.

39 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Effectiveness of Decentralization at Provincial Level

Estimate if the decentralization led to strengthening of planning capacities

Planning capacity can be assessed as the capacity to plan activities according to foreseen results of the programme, taking into account the human, material and financial resources. As the provincial PAAOs integrate the district PAAOs, the planning capacity of the DPA must also be assessed by its capacity to insure that the activities planned by the DDAs contribute to achieving the foreseen results of the programme, as well as that DDAs should be able to implement the planned activities.

At province level, the evaluation of the DDAs’ PAAOs is done by the agricultural economy and planning department.

In a decentralized planning and implementation context, the decision making process regarding the adjustment of the DDAs’ PAAOs is of critical importance as that will influence the motivation of the DDAs to actively contribute to the implementation of the plan.

In Nampula Province, the staff interviewed said that the decisions were taken at the DPA level without consultation. As a result, the changes made in the DDAs’ PAAOs are not well accepted by the DDAs’ staff. This did not create the right conditions for a motivated contribution for the implementation.

Estimate if decentralization led to improving the performance of the institution at province level

Some provincial services such as the economic department, livestock service or rural extension service complain not only about the late provision of funds, but also about the cuts of approved budgets.

Late allocation of financial resources was the most important factor hampering the performance of provincial services. In Nampula Province, the late provision of funds did not allow the provincial services to undertake all the planned activities, since they was only a short time to spend and justify expenditures. For example, the zonal research center was unable to develop long duration field research activities. When they received the funds, they would spend it on equipment rather than on research activities. Some activities could not be effectively undertaken due to the late provision of funds. This is the case of seed and vaccine distribution which should be done at a specific time of the year.

40 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Efficiency of Decentralization at District Level

Result foreseen: decision making and implementation authority transferred to district level.

Decision making has been transferred to DDA through their contribution in the development of the PAAOs. The provincial PAAO includes the PAAOs made by the DDA, which were developed from information collected from the farmers.

In Nampula Province, until the end of PROAGRI I, only five DDA were decentralized, having their own bank accounts where they received funds for implementation of the PTAO each quarter. The provincial services and DDAs that were not decentralized must request funds for each budget line. The DDA of Memba is in this situation. DPA makes cheques addressed to the providers whenever possible (for fuel, or stationary providers for example). The DDAs of Nacala a Velha and Lalaua have no bank account but receive the whole budget for the implementation of the PTAO since 2005. The DDA of Monapo has its own bank account since 2001. Some of the items necessary to undertake activities are bought by the DDA, others are requested from the DPA (vaccines, seeds for multiplication, etc.).

Timely allocation of the financial and material resources

All surveyed DDAs complain that the funds and materials for activities (seeds, vaccines, etc.) never arrive on time, especially for the agricultural season period which is the first quarter of the year. As a result, the DDA team has a limited capacity to implement the scheduled activities at the proper times: The application of the first vaccination against Newcastle must be done in March, which is not always possible raising problems of efficiency of the treatment. Also the monitoring of the agricultural season (detection of pests and diseases, state of the plants, etc.) which peaks in February, cannot be undertaken properly.

Effectiveness of Decentralization at District Level

Estimate if decentralization led to strengthened planning capacity at district level

Apart from the capacity to plan activities according to foreseen results of the programme, taking into account human, material and finance resources, the planning capacity of the DDAs must be assessed by their capacity to address the farmers’ needs and concerns.

Regarding the first aspect, most DDA staff have no knowledge of PROAGRI and did not contribute to its development. Also, they are not informed of central office orientations, nor of the budget ceiling at the time they carry out their annual planning. As a result, many budget activities must be removed, including the priorities defined with the farmers. Upon central decision,

41 Volume II-B Evaluation of the First Phase of National Agriculture Development Program activities not planned by DDAs are added, such as fish production, treadle pumps for irrigation, etc. It was also reported that the budget ceilings given to DDAs from the province level were subsequently reduced by Maputo, which also re-examined activities approved at the provincial level.

This meant that part of the planning developed through farmer consultation could not be considered, this does not promote the development of participatory planning capacity and initiatives appropriate to local context.

DDAs were asked to carry out a participatory planning process without knowledge of the programme and financial limits. This did not promote the development of planning capacity, and contributed to keeping them dependant on the DPA. It also created a lot of frustration among staff and farmers.

Furthermore, to be able to plan there is need for data, but the data on which the DDAs based their planning activities was not reliable. For livestock , the DDA were told to use TIA data, which did not have district level information. Regarding crop production, the DDAs based their planning on the agriculture season reviews, which were done with the farmers. Farmers were consulted at Administrative Post level, through contact farmers, community leaders, Head of Administrative Post and farmers’ associations. An estimation of the areas to be planted for each crop in the next agricultural season was collected from the farmers. Other activities such as water retention infrastructure required were also agreed with the farmers. The result was a list of production means and infrastructure which was included in the DDA PAAO.

Estimate if the decentralization process led to improve the performance of the institution at district level

The decisions taken without consulting the DDAs, which understood the local context led to inefficient service provision of extension agents and to the planning of activities impossible to implement. For example, some farmers cannot use the treadle pumps distributed by the DDA (upon a centrally-taken decision) because it is necessary to have boots to operate them and they cannot afford. Lack of appropriate training of the extension agents in implementing centrally-decided activities can led to mistakes like the inability to choose a proper location for a fish tank, resulting in the tank drying up during the dry season. In Lalaua DDA, budget cuts made without consultation contributed to ineffective decisions in the livestock component: the livestock stocking included by the DDA in the PAAO had been removed by the DPA, and replaced with animal traction, whilst there was a deficit of cattle in this district.

The late provision of funds was also a constraint for all DDA, affecting their capacity to implement the scheduled activities. However, the DDA of Nacala a Velha is managing the funds in order to have a sufficient fuel reserve to be able to function until the next funds were provided. The extension agents generally have a negative impression of decentralization, saying that they are

42 Volume II-B Evaluation of the First Phase of National Agriculture Development Program not informed about the budget received for the implementation of PTAO or that they never have the necessary budget to undertake the planned activities.

The performance of the DDA was also affected by the problem of links between planning and budgeting. DDAs complained about the cuts in the approved PTAO’s budget. In the PAAOs, the funds for operations are linked to planned activities. Until 2002, the DDAs had a district operational fund for per diems and fuel to undertake activities not included in the PAAO.

Another negative factor from decentralisation was the the limited exchange of experience among the provinces. Some DDAs or provincial services succeeded to overcome difficulties related to management (the case of fuel in Nacala a Velha DDA) or technical issues (seed production by farmers, creation of association) that others did not. There was generally lack of mechanism for the promotion of best practices.

Human Resources

According to a technician of the human resources sector of Nampula DPA, staff management improved a lot during PROAGRI I. The academic level of the staff in charge of human resources management was increased from basic to medium or superior level and the sector was provided with computers. That allowed the realization of an exhaustive data collection and permanent update of the staff working in the different institutions linked to MINAG in Nampula Province.

Training is not managed, nor co-ordinated by the human resources department. Each sector includes training proposals in the PAAO and the decision is taken by head of sector services.

Result foreseen: staff integrated, responsibilities defined, working conditions improved

In Nampula Province, special attention has been given to the integration process of staff. Presently, among the 1067 persons working in DPA, DDA and subordinate institutions (INCAJU, research centers, CIMSAN, cotton institute), 707 are integrated.

Staff surveys show that the definition of responsibilities is much better at province level (all said that they have clear definition) than at district level, where 28%11 of staff interviewed staff feel that their responsibilities are not well defined.

11 The percentages indicated in the report are the percentages of the interviewed population. That gives an ideia of the situation based on the data collected in the visited district. The extrapolation to the whole province must be done with caution as the sample of interviewed persons has not been established in a strictly statistical approach. When reffering farmers, one must keep in mind it is a sample of assisted farmers.

43 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Regarding the working conditions, there was a huge improvement in terms of computer equipment at DPA level than at DDA level. At the provincial level, 100% of interviewed staff had access to a computer, among which 25% have internet access; against 40% and 14% respectively at district level. In terms of transport means, districts are better provisioned (86% of interviewed have transport means) than the province (50%). Communication is made by cellphone, fixed phone or radio (see Annexes 4, 5 and 6).

The extension agents saw a deterioration of their working conditions since the launch of PROAGRI I. Before PROGRI I, extension services benefited from the support of the PRDSA project that provided them, on a regular basis, full equipment sets (boots, uniform, bicycle with spare parts, extensionist kit, etc.). With PROAGRI, some received equipment once or twice, even then it was not complete or inadequate. Previously there was also an annual award provided for the best extension agent, this was scapped since PROAGRI I started.

Result foreseen: additional necessary staff recruited

It was not possible to get exhaustive data on staff at provincial level. The interviews showed that that there was staff recruitment in the human resource and research sectors. Among the DDAs visited there was recruitment of staff mainly for planning (Memba and Nacala a Velha) and accounting (Monapo).

Result foreseen: staff professional training defined and implemented

Training of the extension teams was reduced under PROAGRI: Previously they used to have training every 3 months, including refresher courses. During PROAGRI I, only a few had short term trainings limited to specific techniques.

Support to Agricultural Development

Post Harvest Issues

Regarding the improvement of storage techniques, the DDA of Lalaua and Nacala a Velha said that they provide chemicals for storage. The other surveyed DDAs do not and advise the farmers to use local products. These local techniques are not considered effective against insects that are carried from the field with the harvest.

Rural fairs were organized by DDAs to improve the access to market for farmers. In some cases, as in Memba District, subsidized rural fairs were organized where seed providers participated, allowing the farmers to buy inputs at ten times below their normal prices.

Nothing has been done for the development of agro-industries, no post- harvest development committees were created and none of the extension agents have received training in the area of economics and markets.

44 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

In the districts of Memba, Nacala a Velha and Monapo, storage as a problem most of the partner groups. As a result so they do not even keep seeds for the following agricultural campaign. The surveys indicated a very high rate of loss in Nacala a Velha District (90% of interviewed small scale farmers said they have storage problems), while around 70% are in this situation in Memba District, as well as 61% of male small scale farmers of Monapo District. Storage is not so important for the female farmers of Monapo District, and for all categories of farmers of Lalaua District. There is no evident correlation between the fact of receiving technical advice to improve the storage, and the perceived importance of seed loss. For example, in Nacala a Velha District, 60% of interviewed female farmers and only 30% of interviewed male farmers were trained in seed storage, but both cases 90% of farmers have seed loss problems. The group that benefited least from training for improved storage (women farmers in Lalaua District, were only 33% of those interviewed have received technical advice on storage) has the least reported storage problems (17%) (see Annexes 1, 2 and 3).

The dissemination of market information is good in Memba District where 90% of interviewed females and 74% of interviewed male small scale farmers said they received this information.More than 90% said they were supported by DDA for marketing of their products. While in Nacala a Velha District only 40% of interviewed male and 60% of interviewed female small scale farmers get the information on markets and less than 20% considered that they are supported by DDA for the marketing of their products. In Lalaua District, the situation is even worse. Only 17% of female farmers and 58% of male small scale farmers in sample receive information on markets.In the same District, 8% of men and 17% of women said they were supported by DDA for the marketing of their products, 58% of male farmers receive information on prices, but most of them from private sources and not DDA (see Annex 3).

The participation in rural fairs is very good in Memba District where all the interviewed farmers said they participated in such events. This is not the case in the districts of Lalaua and Nacala a Velha, especially for the women (only 17% of women in Lalaua and none in Nacala a Velha; and 50% and 30% for men in Lalaua and Nacala a Velha) respectively. The result of the rural fairs is reflected in the access to improved seeds. The rural fair in Memba, where seed providers were participating, allowed 100% access to improved seed by the interviewed farmers of that district. In the other districts, the rural fairs did not help to overcome the problem of access to agriculture inputs. The lack of seeds or their high price is a major cause of concern for farmers of Nacala a Velha District .Access to tools, due to high prices, remains a problem in all visited districts except in Lalaua District (see Annexes 1, 2 and 3).

Marketing is not a major problem for the farmers, but the low prices they receive is a major matter of concern for the surveyed groups of women and young farmers.

45 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Plant Protection

Regarding plant protection, there is a major need to detect and control the spread of pests and diseases.

Result foreseen: survey and evaluation of the pests, diseases and other parasites Guarantee of health inspection and product quarantine Development of a phyto-sanitary campaign for the controlling of migratory pests

All the DDA used to survey pests and diseases and report to the DPA, but the DPA rarely provided the necessary treatment products. The province is affected by a cassava disease and the agronomic post of Nampula is multiplying a resistant variety, but the quantity produced is far from sufficient to overcome the problem.

The DDA of Monapo has not received any plant health products since 2003 and the DDA of Lalaua said they never received any products ever, even if there is a major pest outbreak reported and confirmed by farmer groups.

The weakness of assistance from DDAs, as well as the lack of pesticides or insecticides on the market led to turn pests and diseases a matter of concern for the surveyed groups of farmers. A cassava disease has been mentioned by most of the groups of farmers in the districts of Memba, Nacala a Velha and Monapo as a major matter of concern. Rats (in Nacala a Velha District) and insects are affecting the crops in all the visited districts (see Annexes 1 and 2).

Result foreseen: dissemination among farmers of integrated pest and diseases control systems Adoption by farmers Adoption by farmers of technological packages for treatment of crops

Most extension agents had received no training regarding an integrated pest and disease control system. In Monapo, one extensionist is said to be using and promoting physical method (killing manually the insects and take out the sick plants). In Lalaua, farmers are advised to catch rats, and use local products to repel the insects. In Nacala a Velha, the DDA makes chemical treatments.

The fight against pests and diseases, using pesticides or other techniques is well developed in Memba District (more than 95% of farmers adopted a technological package for treatment of crop disease and 100% of women, 83% of men use pesticides). The rate is much lower in Nacala a Velha, where only around 50% of farmers adopted a pest and disease control system and in Lalaua District (around 20%). This is reflected in the importance attributed by the group to the issue of pests and diseases (higher in Lalaua

46 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

District than in Nacala a Velha or Monapo). In Memba, only the cassava disease has been mentioned, which has no treatment (see Annexes 1, 2 and 3).

Result expected: Environment mitigation and connecting measures implemented in co-ordination with MICOA Measures to mitigate toxicological effects of the application of pesticides in food crops implemented

Awareness on toxicity of phyto-sanitary products is well spread, especially among the male farmers (more than 90% know that those products are dangerous, 78% of female small scale farmers). However, not all are informed about the measures to adopt to avoid poisoning, especially the female small scale farmers, only 54% were informed, while 78% of male small scale farmers, 100% of female private farmers and 75% male private farmers are aware of the measures to follow.

Seeds

Regarding seeds, the objective of PROAGRI was to improve access, improve the quality of seeds, as well as to control the quality of seeds produced.

Result foreseen: seed certification and quality control services developed Strategic seed reserve created

People interviewed knew nothing about seed certification and quality control service.

In an attempt to increase seeds stocks, the extension agents teach the farmers techniques of improved storage and the provincial service for agriculture has provided improved seeds to the DDA to be multiplied and distributed to farmers on credit since 2003. That has been done for beans, maize and cassava. In Nacala a Velha District the first campaign the credit system has been implemented, the DDA did not get back anything and just a little the following campaign. Drought is said to be the cause of the bad return on seeds distributed on credit.

There is no accurate and systematic data on the quantities that have been received, produced or stored by the DDA, but none of the surveyed DDAs had established a significant seed stock, while the quantity of seeds distributed were sometimes very important, as shown in the 2003 activities report of Nacala a Velha DDA (5 tons of maize, enough to plant for 250ha, 5 tons of beans, 2.5 tons of sorghum – quantity for 278ha, 6kg of onions seeds, 13kg of paprika seeds, 8kg of tomato seeds). In other cases, limited quantities were distributed, as indicated in the 2005 activities report of Lalaua DDA (50kg of maize, 4kg of vegetable seeds).

The major problem faced by DDA and farmers in the attempt to constitute a seed reserve is the storage, due to the lack of appropriate stores.

47 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The only surveyed district where access to seeds was not mentioned as a problem by the farmers is Lalaua. In the others, the high cost of seeds and unavailability of seeds. The seeds distributed by the DDA are considered insufficient by most of the farmers.

Result foreseen: role of research reinforced in the improvement of plants in the public sector Production of seeds and material for vegetative dissemination that is not included in the commercial sector’s priority made by public sector Adoption and production of improved seeds by family farmers

The agronomic post of Nampula is involved in adaptability tests of improved varieties of seeds in the Northeast agro-ecological zone. Research is currently being carried out to develop and multiply cassava varieties resistant to the disease that is spreading in the coastal areas of the province. The new varieties are tested by the agronomic post and then given to DDA for on-farm research. The qualities of the new varieties are demonstrated in demonstration fields with the producers. In 2003, the DDA of Lalaua made 28 demonstration fields of maize, 5 of beans, 4 of cassava and 5 of peanuts. Once approved, the varieties are multiplied either by the research centers or by the farmers.

The only provider of improved seeds for the farmers is the DDA. The seeds are distributed on credit, but in most cases the quantities are not sufficient according to the farmers.

The fact the farmers complain of the unavailability of seed is a sign of adoption of those improved varieties. In Nacala a Velha District more than 60% of farmers said that they use improved seeds. All the farmers interviewed are in Memba Distric use improved seeds, in Lalaua.

The number of men using improved seeds in the last two districts is 75% and 78% respectively. The production of improved seeds by the family farmers is varies from one district to the other. In Lalaua and Monapo Districts, farmer produces improved seeds, while between 20 and 30% to farmers produce in the districts of Nacala a Velha and Memba respectively (see Annexes 1, 2 and 3).

Result foreseen: early-warning system institutionalised and consolidated Dissemination of early-warning information among the users

In all DDAs visited, there is one person responsible for the collection of data for the early-warning system. The data is then transmitted to the DPA. . Information transmitted include rainfall amounts and other climatic data; and production estimates crop growth. Production data is collected from meetings with influential farmers and local leaders. In the DDA of Nacala a Velha District, the person in charge of the data collection complained about the lack of transport to go to the villages.

48 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Not all DDA receive early-warning information to be transmitted to the farmers or if it is transmitted to the DDA, the staff which is in contact with the producers has no knowledge of it.

Each DDA received training to gather data on the crop season, rains and prices. Information on produce marketing is not very accurate due to the existence of informal traders and the reluctance of private farmers to communicate the volumes really marketed.

In Nampula Province, most farmers receive information about the next agricultural season climatic conditions from DDA, except in Nacala a Velha.

Livestock Development

The objectives regarding livestock production were not clearly defined at the time PROAGRI I was developed. The development of a livestock production strategy, with clear goals to promote the involvement of the private sector was made in 200312. The livestock development policy establishes that it is necessary to shift from a situation of total State responsibility to a situation which includes the participation of other actors, while the State responsibility is to promote a favourable economy and provide an institutional environment for the contribution of the private sector and the civil society. In other words, the State role is :

 To formulate, analyse, monitor and evaluate politics, strategies and programmes and insure correct interpretation  Articulate and coordinate the different institutions involved  Create and adequate the legal framework and insure its application  Promote the development of private sector for the provision of veterinary services  Develop partnership with private sector and civil society  Promote the preservation of natural resources and biodiversity

The livestock policy introduces the notions of competition and exclusion in order to determine which services should be financed by the public sector. Services with low competition (that can benefit many) and that require high investment, such as laboratory or parasite control tanks could be financed by the State and eventually managed by private sector.

The respective responsibilities of private and public sector for the financing and execution of the different functions to be developed for livestock production, have been established. Some, such as epidemiology control must be financed and implemented by the public sector. Others, such as vaccination should be financed, coordinated and monitored by the public sector but implemented by private sector under contract or partnership. The provision of veterinary assistance is under the responsibility of private sector, or eventually partnership private-public sector and should be paid for by the users.

12 MADER. 2003. política de desenvolvimento pecuário.

49 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

According to the livestock development policy, the public sector should:

 Train technicians  Control epidemic diseases  Execute epidemic vaccinations  Disseminate techniques to small scale farmers

Other functions should be undertaken by private sector, such as provision of veterinary assistance or treatment of ticks.

Others could be conducted by both private and public sectors:

 Control emergence of diseases  Laboratory diagnosis  Execute obligatory vaccination  Animal repopulation

Results foreseen: link and coordination among players

According to the provincial head of livestock production, planning regarding this component is made in coordination with the rural extension component and, since 2003 with NGOs. There still is a problem of monitoring NGO activities, since these organizations do not transmit accurate data on the activities they actually undertake. The link with research is weak, limited to diagnosis of diseases, with no contribution to livestock production issues. The DDA of Monapo confirmed the coordinated planning with NGOs, especially for livestock restocking. NGOs also request services of the DDA in livestock production.

Result foreseen: Support in accordance with core functions

All functions that the public sector is supposed to do in line with the livestock production development policy are undertaken (training of technicians, control of epidemic diseases, vaccination, dissemination of techniques to small scale farmers). No private services were developed. Some attempts to give the management of rehabilitated infrastructure to private sector (dip tank for example) were made but failed because the farmers did not pay for the service. According to the DPA, private sector showed little interest in managing infrastructure due to the high costs involved and lack of sustainability. In Nampula Province, DDAs promoted the management of services, such as dip tanks, basic treatments or veterinary pharmacies by farmers’ groups or associations. A technician that worked in Mongovola District indicated that the DDA rehabilitated three dip tanks which are managed by farmers associations. Association members were also trained to make basic treatments to animals and five community pharmacies were created, where the producers can find various products.

All the interviewed farmers said there are no private services regarding livestock (see Annex 3).

Result foreseen: infrastructure rehabilitated

50 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Little has been done regarding the rehabilitation of infrastructure. According to the provincial head of livestock production in Nampula Province, PROAGRI I did not allow any rehabilitation. Only in 2005, they received funds from IFAD to finance infrastructure. In Mongovola District the DDA rehabilitated 3 dip tanks and the 2005 activities report of Monapo DDA shows that 2 dip tanks were rehabilitated. Most of the DDA support the farmer for the construction of improved cowsheds.

In Nampula Province, none of the interviewed farmers mentioned any rehabilitation for livestock production.

Result foreseen: increase of animal population

Very little data could be collected at DPA and DDA levels regarding the animal population. In Nacala a Velha District, the animal population increased significantly between 2001 and 2004. The population of cattle passed from 267 to 880; the goats were 12034 in 2001 and 25000 in 2004 and the sheep population from 2248 to 4850. Those numbers must be interpreted with care since they may reflect better monitoring of animal population.

None of the interviewed farmers said that they received animals. Lalaua is a district where the number of cattle is very low (35), belonging to one only farmer. The number of goats is also reduced (1999 in year 2005), as well as the bird population (7104), while the pigs are comparatively in important number (19050). 17% of female small-scale farmers (0% of male) said to have received animals from NGOs in this district.

In Memba District, 14% of female small-scale farmers and 35% of male small- scale farmers said to have received animal from NGOs or DDA, while in the district of Monapo, none of the interviewed farmers had received any animals (see annexe 3).

Result foreseen: decrease of specific diseases

The province had serious problems of access to treatment products and vaccines up to 2005, due to budget restrictions. The 2003 activities report of the DDA of Monapo underlines the lack of equipment and technicians for assistance to livestock production. Only 717 vaccinations were done out of estimated population of 37600. The 2004 activities report of the same DDA indicates that only 51 chickens were vaccinated and 8 cattle. In 2005, the situation improved a little. 938 chickens were vaccinated, as well as 73 cattle, 74 goats and 54 sheep.De-parasitation was done only 63 goats and 43 pigs. Still, the report underlines the lack of vaccines and treatment products.

In the DDA of Lalaua, the situation has not been better. The 2001 activities report says that only 13% of the chickens were vaccinated. In 2002, the vaccines arrived late and even less than in 2001. In 2003 and 2004 the DDA did not received any vaccines against the Newcastle disease and in 2005, the

51 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

DDA did not received any de-parasitization product and had just enough vaccines to treat 693 chickens among a population of 7104.

The poor assistance to livestock production affected the farmers as shown by the problems mentioned by the groups of farmers. Chicken mortality was mentioned by 3 groups of women and one group of young farmers in the district of Memba, as well as disease of goats by one group of women. In the district of Nacala a Velha, the chicken mortality was also mentioned by 2 groups of women and 2 groups of young farmers and one group of young farmers mentioned this problem in Lalaua District (see Annexes 1 and 2).

Extension Services

Before PROAGRI I

Previous Support for Consolidation of the Extension Network

Between 1993 and 1997, Mozambique saw its geographical coverage of public extension network increased from forty to forty nine due to the support of three new international partners: World Bank (Agricultural Rehabilitation and Agricultural Services Rehabilitation and Development Project -PRDA and PRDSA), FAO and Sasakawa Global 2000. The extension service was consolidated and equipped with vehicles and field equipment. In addition, in 18 districts, public extension operated in partnership with international agencies, such as the then EEC, GTZ and UNICEF that were financing extension activities in areas receiving humanitarian assistance.

As a result, in Nampula Province, the number of districts covered by public extension expanded, especially in Nampula Province, with the inclusion of Monapo, Muecate, Erati, Lalaua, Namapa and Mecuburi.

During the same period there was a quick emergence and rapid expansion of NGO extension activities. In the whole country, the number of international NGOs increased from 30 in 1994 to 67 in 1997. The rapid expansion of extension services was achieved through a series of fragmented projects funded by a variety of donors, with little interaction with the public extension managers. As a result, the number of extensionists and the areas covered increased, but with variation among the different networks, in term of number of technicians per district, available resources, as well as in term of approach13.

Private extension emerged in 1990 and 1991 in the northern provinces with the goal of expanding cotton production. Private firms formed joint venture companies in large area and provided support to farmers through voluntary contractual partnerships. The companies provided seeds and pesticides to farmers, who would in turn sell their produce to them. The companies also provided technical assistance through field monitors.

13 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press.

52 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Extension Strategy and Master Plan

In reaction to the lack of coherence of the extension services the government first developed a long term strategic plan that began in 1993-94. A year later the preliminary extension master plan was prepared, along with guidelines for coordinating its implementation. Those two documents laid out five central features of public extension: i) Geographic concentration (operating in half of the districts of the country); ii) Agro-ecology (give priority to high potential areas); iii) Two approaches, one regarding food crops, the other cash crops; iv) Decentralization: gives responsibility to the provincial service of extension; v) Pluralism, that aims to promote private sector extension, private enterprises and NGOs.

In 1997, the public extension service prepared the first Extension Master Plan covering 1998 to 2003 that included a number of innovations. A unified extension programme was adopted, involving crop production, livestock and natural resource management. The plan also called for a functional partnership between public and private extension services, including outsourcing and increased links with other institutions such as research, agriculture service and marketing14. The orientation of the Master Plan is reflected in the master document.

Unified extension started in the 1998-99 agricultural season involving the collaboration and coordination of activities among the extension service and other Ministry of Agriculture services, such as livestock, forestry and irrigation. Practically, that implies multipurpose extensionists in the field, assisted by experienced Subject Matter Specialists, as well as strong linkages between farmers, extension and research15.

Methodology

The public extension adopted the Training and Visit model that consisted of working with one contact farmer per village, doing experiments in his/her field with visits every two weeks. DNER decided to modify the Training and Visit system in order to adapt it to Mozambique conditions and the different environments in the extension networks. Two main changes were made. Instead of working with one contact farmer per village, the extensionists were directed to work with groups of farmers in order to increase the number of farmers directly involved and increase the possibility of identifying more talented farmers. Each extensionist had to work with 8 to 16 groups with an

14 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press. 15 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press.

53 Volume II-B Evaluation of the First Phase of National Agriculture Development Program average of 225 farmers per extension agent. The rigid timetable of one visit every 15 days was removed, allowing the extensionists to develop more flexible meeting times.

The extension Master Plan has been integrated in the extension component of PROAGRI I.

Extension in PROAGRI I

Efficiency of Extension

Results foreseen : Producer’s knowledge strengthen on the better utilization of work force and agricultural inputs, as well as soil and water resources. Established and consolidated farmer’s organizations. Market oriented extension

The techniques that the extension agents said they disseminated are: agricultural calendar, spacing, crop rotation, seed beds in line, seed selection, improved seeds, fight against pests, production storage, improved livestock production, building of improved store, animal care. Some extension agents mentioned also support to the consolidation of associations, vegetable and fruit production.

The number of assisted farmers varies from 1000 to 4000 per district. The extension agents disseminate technical messages through farmers groups of 15 to 25 members. In the DDA of Monapo a team of 16 extension agents assisted 1951 farmers organized in 75 groups in 2003. In 2004, the team was reduced to 8 extension agents and the number of assisted farmers dropped to 1266 and 1331 in 2005, organized in 46 groups. Each extension agent works with 8 farmers’ groups of around 24 members.

In Lalaua District, 1541 farmers were assisted in 2003; 975 in 2004 and 2005. Like in the DDA of Monapo, the reduction of the number of assisted farmers is linked to the reduction of extension team that passed from 16 to 7 extension agents.

Organization of farmers is one area in which the provincial extension service trains the extension agents and monitors the related activities in the field. The DPA also organized exchanges of experiences among DDAs regarding the creation and support of farmers’ organizations.

Activities reports show that there were seven farmers’ associations in 2004 and six in 2005 in Memba District; 2 farmers’ associations have been created in Lalaua District in 2003.

Those associations are supported for vegetable production, crops in humid zones, as well as participation in rural fairs, where they can get means of production at low prices. The associated farmers also generally receive improved seeds, fertilizers and pesticides from DDA. They generally have a

54 Volume II-B Evaluation of the First Phase of National Agriculture Development Program common field where they receive technical assistance from extension and the income allows the group to invest in production means.

No market oriented extension was developed. The farmers’ associations were not trained to negotiate with traders. They were just advised to bulk their production to sell at a better price. No link was established with traders, nor with credit institutions to allow the associations to bulk their production. The activities implemented by extension regarding marketing are limited to advising the farmers to keep the production until the prices increase, as well as to transmit market prices, although not in all districts.

Results foreseen: decentralized extension system in place where the farmers are fully engaged in the design, implementation and evaluation of the service

The definition of technical messages is not made in a participatory way. In many cases, they are predefined or are the result of a meeting of the extension team. At the end of the agriculture campaign, the farmers are invited to compare the result of the demonstration field with the result of a farmer that did not apply the improved techniques. Some initiatives like the extension management groups created in Nampula Province, allow a participation of farmers in the design of extension activities. Those groups include farmers and the farmers concerns are identified and mitigation measures developed. However, none of the visited DDA mentioned those structures.

Result foreseen: extension relevant to the different technology and socio- economic constraints of farmer, especially women and young farmers

Extension addresses mainly technical constraints (which seeds, how to save, how to treat, etc.) without considering social issues. Most of the interviewed extensionists said that the technical messages are the same for all categories of farmers. No training was given for inclusion of socio-economic approach of extension. Some DDA, such as in Memba, constituted groups of youth and groups of women for extension purposes. This allowed a better communication with these categories of farmers, as well as helped developing specific activities and support. Focus areas in these groups were vegetable production and sometimes animal traction.

Result foreseen: Unified and consolidated extension system. Dissemination of information among extension agents and regular training. Qualified supervisors and all extensionists with medium or superior level.

A unified extension system has been established, mainly by the integration of livestock production issues that are systematically included in extension programmes with technical support from technicians specialised in this area. In some DDA wildlife and forestry issues are also included in extension programmes, such as uncontrolled fires or community management of natural resources. However, there is no specialised technician to assist extension in this area. Other issues are included, such as plant protection, post-harvest

55 Volume II-B Evaluation of the First Phase of National Agriculture Development Program issues, and in some cases, small scale irrigation, cashew and association consolidation.

According to the provincial head of rural extension of Nampula, between 1999 and 2004, Nampula Province had 10 extension networks distributed in 10 DDAs, including 1 supervisor. One more network was added in 2004. In 3 DDAs, where there is no extension network, there was an extension line, composed of 2 to 3 extension agents, without a supervisor. Before PROAGRI, the extension network was more developed, having 2 to 3 networks per DDA, instead of 1. Each network had a supervisor and there was a team supervisor. The lack of means of transport (the supervisors have a motorbike, while the extension agents have a bicycle) led to the reduction in number of supervisors.

In the DDA of Monapo, the number of extension agents reduced from 16 (including 3 supervisors) in 2003 to 8 (included 2 supervisors) in 2004 and 2005. A similar situation occurred in the DDA of Lalaua where the team was reduced from 16 extension agents in 2002 to 7 since 2003. One explanation of the reduction of extension teams is that many extension agents were promoted to district director of agriculture or responsible for production in the DDA.

Only 43% of extensionists consider that they have the technical information they require. All the interviewed extensionists said that they have access to technical documents.

Training is the way the technical information is disseminated among the extension agents. This activity used to take place every 3 months, including recycling training before PROAGRI I. It has been dramatically reduced since the launch of PROAGRI I. Training took place only once a year on specific techniques, such as livestock production, association development, soil conservation; correct use of pesticides or fruit tree production. One extension agent of the DDA of Memba District said that only the supervisor had training; in the DDA of Monapo, the extension team did not have training since 2002, while before, they annually had training in the center of Namialo to prepare each agricultural campaign. In the Lalaua DDA, there was no training at all, they just received brochures.

The improvement of academic level occurred only when new teams were constituted, as in Balama. However according to SPER, it was not easy to find many technicians of middle level education ready to be extension agents. Experience rather than academic level was the criteria used for supervisor selection. Most of them are former extensionists of basic level education.

Many extension agents complained about the deterioration of their work conditions in terms of equipment. Before PROAGRI I they had a complete extension kit, meters and uniform, and these were renewed annually. Since the launch of PROAGRI I, the bicycles are not provided with spare parts and they are not systematically renewed each year; they never receive a complete extension kit, uniform and meter, and there is no more award to the best

56 Volume II-B Evaluation of the First Phase of National Agriculture Development Program extension agent. In Memba and Monapo Districts extenson staff travel by bicycle on sady or stony roads covering distances of up to 50 km.

Result foreseen: reinforcement and systematization of collaboration between extension and research staff. Joint farming analysis, on-farm research, training and technology review meetings

The reduced budget of PROAGRI did not allow the activities that would promote the systematization of links between research and extension. The activities were planned but budget cuts did not allow their implementation. However, some activities took place, for instance on-farm research, the dissemination of adapted improved seeds and eventually the dissemination of techniques to overcome some of the problems of the farmers.

According to the provincial service of rural extension, the link between extension and research is made through regular meetings, field days, work review and planning of agricultural campaigns, on-farm research, as well as regular evaluation and training programmes (REPET). According to the provincial service for livestock there is no research – extension link in this component, except for laboratory diagnosis.

Among the extension agents of the DDA of Memba, interviewed one said that the link between research and extension is made through on-farm research and the teaching of new techniques, such as organic compost. The supervisor of the extension team confirms this, but two other extension agents consider that there are no links. None of them mentioned the field days, joint work review and planning or REPET. The DDA of Lalaua and Monapo mentioned on-farm research and seed multiplication in Monapo District. In the DDA of Nacala a Velha District, the only link mentioned is the provision of improved vegetal material that already stopped.

The director of the agronomic post of Nampula (zonal research center) confirmed the weakness of the links between extension and research since the launch of PROAGRI I, stating that it used to be stronger at the time PRDSA was supporting extension. There was a joint diagnosis of the problems. However due to the late provision of funds and the cuts during PROAGRI I, nothing was done for research to address and the farmers to test

Effectiveness of Extension

The extension service never received the budget necessary to implement all the required activities. Activities prioritized by DDAs are systematically reduced during the approval process at the DPA level. Furthermore, the effectiveness of extension is affected by the late provision of funds that inhibits undertaking all the approved activities.

57 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

If extension contributed to improve production techniques of farmers

The acquisition of knowledge is effective among the farmers and very well disseminated in some districts, such as Memba or Nacala a Velha, where more than 90% of farmers said they have learnt new techniques through DDA services and in radio transmissions. Fewer farmers (around 40%) benefited from knowledge acquisition in other districts such as Lalaua (see Annex 3).

The extension service was successful in promoting the use of improved seeds, herbicides or fertilizers. Many began to produce vegetable crops. Although the farmers are convinced of the need to use agrochemicals, they face the problem of access to these inputs because they are not available on the market, or unaffordable. In Nampula Province, most of those inputs are provided by DDAs in reduced quantities and are not available in the market. As a result the number of farmers that apply the techniques is small, relative to the number of farmers that have learnt new techniques. For example, in Nacala a Velha District, 90% of farmers said learned techniques from DDA, but they are only 48% techniques to fight against plant diseases; 45% use pesticides and 15% use fertilizers.All still work manually. The same happens in Monapo District. From around 70% of farmers that learned new techniques, 20% use pesticides or other technical package to fight against pests and diseases or fertilizers.

Fertilizers are mainly used for vegetable production, although the number of farmers that use this input is small (20% of female and 27% of male small scale farmers). According to groups of women and youth, the use of improved seeds is quite well disseminated. About 70% of small scale farmers, use improved aids the quantity provided by DDA however is not sufficient.

If extension contributed to more effectively market farmers products at better price

In Nampula Province, the farmers of Memba District (90%) are much more supported by DDA services for marketing than those of Nacala a Velha (less than 20%), Lalaua (less than 15%) and Monapo Districts (around 50%). The information on market prices is also better disseminated among the farmers of Memba District (90% of female and 74% of male small scale farmers) than in Nacala a Velha District (60% of female and 40% of male small scale farmers).

Marketing of produce is not a problem. However, the low prices are a major of concern for most of the farmers, 7 groups of women and 7 groups of young farmers in Nampula Province mentioned this problem. Monapo District is the only area where low prices do not seem to be a problem. The advice to hold onto produce until prices improve is generally difficult to follow, because farmers need money straight after harvest. Farmers do not have storage to keep the produce for long (see Annexes 1 and 2).

If extension addressed farmers concerns, especially youth and women

58 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Through the use of participatory techniques with groups of women and young farmers, the quality of communication between those categories of farmers and the extension agents was assessed.

In some districts, there is evidence that youth and women farmers face many problems that are not submitted to the extension agents, such as pests and diseases or production storage, which is the case of Lalaua District (33% of women and 50% of men). However in most cases there is no significant differences between the sexes.The situation is differed, in Monapo District where 61% of male small scale farmers and 75% of female small scale farmers said they learnt from the extension service. The groups of women and young farmers confirmed that most of their concerns were addressed by DDA services, although not always with satisfactory answers. The districts of Monapo and Lalaua are the ones where the communication between the farmers and extension agent is very bad. Most of the problems faced by the farmers are not identified, or when they are, the DDAs have no answer to propose. In Lalaua District only 33% of the farmers said they were consulted by the extension agent about their problems (see Annexes 1, 2 and 3).

In most instances where farmers are be consulted about their problems, the extension agents do not address the issues. Concerns indicated as important, such as pests and diseases or post harvest storage, are not properly addressed by extension. Pest and disease issues have been mentioned, as a major problem by 2 groups of women and 3 groups of young farmers. In some districts such as Memba, problems related to drought were not overcome. 2 groups of young farmers and 2 groups of women mentioned the irregularity of the rains. 3 groups among 4 mentioned the fact that the cashew trees are not treated in the districts of Lalaua and Monapo.

Farmers face a variety of problems, some of which are technical. The general tendency of extension and research is to consider agro-chemical as the only solution. However most of recommended chemical are not available, and therefore cannot solve the problems. There are no alternative technological packages.

Other needs such as animals, tools, agro-chemical acquisition could not be addressed by extension due to the limitations of the PROAGRI planning system, although they are major concerns for farmers. These are clearly production-limiting factors, especially in high agricultural potential areas like the part of Nampula Province.

The activities of technical assistance to farmers are similar from one area to the other in terms of strategy. Agricultural potential is not a factor considered in planning production expansion.

Research

The agronomic post of Nampula coordinates the research activities in the different research institutions that constitute the northeast research center,

59 Volume II-B Evaluation of the First Phase of National Agriculture Development Program which includes the provinces of Nampula and Cabo Delgado and part of Niassa Province.

Result foreseen: close integration in the field between extension and research with the use of common dissemination vehicle

Before the launch of PROAGRI I, at the end of each agricultural season, a periodical technical review was done, jointly by research, extension and farmers (REPET). Since the beginning of PROAGRI that is no longer carried out. Instead, when funds areavailable, a field day is held extension once or twice a year by the combination extension service, research farmers, NGOs and local leaders. The research centres present the experiments carried out, and eventually receive suggestions from the participants.

The results of the research are disseminated in coordination with extension through the implementation of demonstration fields (CDR), as well as on-farm research with the contribution of farmers. However not with the same intensity as before, mainly due to late provision of funds and cuts in budgets limits fieldwork.

Result foreseen: research institutes propose technology focused on small scale farmers and women’s issues

Some research programmes developed in coordination with NGOs that work with small scale farmers. Extension also brought to research centers concerns collected from the small scale farmers. Other research programmes were determined from the link with research centers of other countries or other provinces of Mozambique.Transversal themes, such as soil fertility, crops protection, spacing or crops association were also the object of research.

In the Northeast research centre, there were no clear socio-economic approaches in the definition of the research programmes, hence no development of women related issues. The clear objective of research programmes is to increase the production considering only the technical aspects of production and not socio-economic issues.

Our surveys show that many concerns, such as storage of production, pests or drought were not addressed and most are not included in research programmes. Pests are one research theme undertaken by the research centres, but no satisfactory solutions for small scale farmers have been proposed. In some cases, resistant varieties are identified but the seed or planting material multiplication activities do not cover the needs.

Until the recent decentralization of this sector, there were many difficulties to access the approved funds that were allocated to the DPA.

Representation by stakeholders, in particular farmers at zonal council level in research programmes

60 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

In the northeast research centre, before the launch of PROAGRI, there were a group of partners composed of NGOs, DPA, provincial services and farmers representatives that contributed in the definition of research programmes. However, this group has stopped functioning since the launch of PROAGRI I due to lack of funds. During PROAGRI I research programmes,were developed in coordination with DPAs and NGOs.

The field days and seminars at the end of each agriculture campaign were an opportunity to determine research subjects with the stakeholders.

Rehabilitation and establishment of regional research center Training and development of human resources

Four agro-ecological zones have been defined: south, center, northeast and northwest. The northeast zone includes Cabo Delgado and Nampula Provinces, as well as part of Niassa, Zambezia and Tete Provinces.

The northeast zonal center was created in 2000/01 and is composed of the agronomic post of Nampula; the agronomic center of Matuale in Malema District; the research and multiplication center of cotton seeds of Namialo; the research center of Mapupulo and the agronomic post of Namapa, as well as the training unit of Namialo. The rehabilitation of those establishments began with the support of PRDSA. This allowed the rehabilitation of the agronomic post of Nampula, the research and multiplication center of cotton seed of Namialo and the research center of Mapupulo. The other establishments are not fully operational (November 2006).

Currently the agronomic post of Nampula is manned by very qualified staff including human resources, having one PhD and three master degrees (in crop protection, peanuts and cashew diseases holders). Ten engineers are included in all the establishments comprising the zonal center.

Land Management

Result foreseen: geographic information available in the province

The provincial geography and cadastre unit has not produced any maps throughout the PROAGRI period and relies on Maputo DINAGECA for map provision. Training for mapping land occupation only began at the end of 2006.

Trained and motivated DINAGECA staff in the province

Nothing has been done at this respect in Nampula Province.

Land registration process simplified

61 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

According to provincial and district staff involved in the land registration process, before the adoption of land law and respective regulation, it took 6 months to one year for the land registration process, now it is reduced to not more than 90 days. The long wait was due to the necessity to deal with many authorities, only one authority is required now. Another aspect that explains the reduction of time is the clarification of the process through the land law. The steps to follow are now clear and well understood.

Socio-economic study on land use conducted

A first phase was conducted centrally in 2002-2003. Then the province submitted a proposal to undertake the provincial level, which was never approved. The result of the study conducted by Maputo staff was never published.

Increased income generation

The heads of geography and cadastre sections had a meeting regarding the process for tax collection for land use right (DUAT). A means of allocating taxes among different services (finance, agricultural funds, district government and provincial service) was established. No data could be collected regarding the collection of taxes by the geography and cadastre service of Nampula DPA.

Irrigation

All DDA received treadle pumps to be sold to farmers. The number of pumps received by DDA varied from less than 10 to more than 100 (when a project supported the initiative). Two models were provided, one large and one small.

The results, in general, are not very positive for many reasons: - Some DDAs did not received the complete equipment, missing the connection tube

- The connection tube of the large model of pump is flexible and easily frayed by rats or during the emplacement;

- The women cannot operate the big model and have to hire young men; - Farmers say it is necessary to wear shoes to operate the pumps, which is an item that few can afford;

- In many cases, the spare parts are not available in the province.

The rehabilitation of irrigation schemes began in 2006.

62 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Forestry and Wildlife

Leasing to private sector or communities through contacts that include specific provision for the protection against fire and for the control of natural regeneration

The regulation function of MINAG was promoted through the elaboration of Law and respective regulation for land16 and Forest and Wildlife17. According the provincial head of wild life and forest the regulation emitted in 2002 clarified the procedures for forest exploration and its control.

The forest and wild life legislation includes measures that tend to control the sustainability of the natural resources exploration. It required elaboration of inventory of resources by the proponent, as well as submission of exploration plan. An increase of the number of licenses of forest exploration was observed.

Since 2005, 20% of exploration fees are supposed to be given to the communities included in the concession area.

Result foreseen: community in charge of sustainable management of game, timber or eco/tourism areas

The newly developed Forestry and Wildlife Law and Land Management Law and corresponding bylaws are emphasizing and transferring the management of natural resources to communities. There are zones where the communities have official land rights and the related power to decide on it. When anyone wants to undertake activities it is up to the community to authorize. The communities are the real owners of the resources. In the case of request for exploration by private operator, the community has to approve. Otherwise, the operator has to go and look for alternative areas to undertake the activity. In case of approval, the rule of 20% is applied. The community has the right to decide on how to use the 20% revenue. This process however has to start the evaluation of the potential by provincial services with participation of the communities. The communities have to be trained for this. The community leaders are key to this process. A business plan has to be developed for the activities to take place.

Sustainable Development Centres of the Ministry of Environment and the Mozambican Agricultural Research Institute (IIAM) of MINAG provide policy, strategic and technical support for NRM matters. The development of integrated district plans provides an opportunity for mainstreaming NRM priorities into the provision of agricultural extension services.

16 Lei nº19/97 de 1 de Outubro, Decreto nº66/98 de 8 de Dezembro e, Diploma Ministerial nº 29-A/2000 17 Lei 10/99, de 7 de Julho, Decreto n.º 12/2002, de 6 de Junho, e Decreto 11/2003, de 25 de Março

63 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The routine activities of the service is the transmission of land, forestry and wildlife laws to communities, as well as the mobilisation of community leaders for the control of illegal hunting or uncontrolled fires. There was a technical assistance between 2005 and 2004 in charge of capacity building and strategy elaboration for animal/human conflict. But that was not very helpful for the provincial service.

Land clearing practices for agricultural expansion, deforestation due to the increased demand for charcoal and fuel wood for consumption in urban areas have continued. Indiscriminate bush burning for hunting or grazing purposes (or because of out-of control slash and burn practices), as well as poor farming practices, physical and chemical soil erosion, due to poor crop cover and exploitative use of steep sloping land are typical additional hazards, as is poaching (IFAD, 2005)18.

Cross-cutting Issues

Gender

Gender issues are included in the current activities of more than 80% of extension agents, but consist mainly of including women in the activities, such as vaccination, or vegetable production. However, there are no specific activities directed towards women, based on an understanding of women’s concerns.

In Nampula Province, the DDA of Memba promotes diversification of activities for the women and advises them to join their fields in one block. The extension agents tend to have at least 30% women participating in all activities. Groups of women were also organized for extension. In the districts of Monapo, Nacala a Velha and Memba, oursurveys that the women benefit as much and sometimes more than the men, from the services provided by the DDA. Among the visited districts, Lalaua is the only one where the women are not involved as much as the men in the activities undertaken by the DDA. The work with the groups in that district also shows that the contact between the women and the extension agent is not effective, since most of the concerns are not collected (see Annexes 1 and 2).

There are also activities that exclude women in a variety of ways. This is the case of the model of treadle pumps that was distributed to farmers for vegetable production.Women cannot use it, contradicting the assertion by technicians who indicated that vegetable production as a woman-directed activity.

18 AGRICULTURAL SUPPORT PROGRAMME, FORMULATION REPORT. WORKING PAPER 2: AGRICULTURAL DEVELOPMENT. 2005

64 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

HIV

In Nampula Province, 86% of staff said they integrate AIDS related issues into their work. However, most of them said that they received instructions to transmit messages regarding AIDS to farmers, without having any training. As a result, they do not prioritize the issue.

100% of private farmers were of HIV issues.More than 95% of small scale farmers say that most of the training is provided by health staff and not agricultural staff. Among the visited districts, Nacala a Velha is the only one where 30% of the farmers said they heard about AIDS from agriculture services . In the other districts the source of information is mainly from school or health services (see Annex 3).

Environment

According to the DPA, environment related activities developed in the province include health education, carried out when animal traction is introduced (people shouldn’t drink where cattle drink), training to mitigate erosion and proper use of chemicals. The DDA of Memba disseminates techniques to make organic compost and planting of trees, and advise against uncontrolled fires.

In the DDA of Nacala a Velha and Lalaua, the interviewed staff said that they do not implement any activity related to environment. Only 14% of the staff said that they integrate environment related issues in their work. Most could not comment on regarding this issue (see Annexes 4, 5 and 6).

Except in Lalaua District, most farmers are aware about the toxicity of agro- chemicals (see Annex 5).

Lessons Learned and Recommendations

Decision making process for activities implemented by DDAs

As indicated in the key issues section, the decentralization process implemented during PROAGRI I did not contribute to improving the appropriateness of decision taking in terms of better answering farmers’ needs and concerns. The centrally-directed PAAO approval process and the deficient budget allocations are the main cause of this problem.

All decisions related to activities to be implemented by DDAs should involve the DDAs in the decision making process to allow appropriate technology choice, better collaboration in implementation and to insure the availability of required human, financial and material resources for technical assistance.

Improvement is required in financial and material resource allocation to better fit with the planned activities. To mitigate the consequences of late allocation of resources the first quarter, a provisional budget could be allocated the 4th

65 Volume II-B Evaluation of the First Phase of National Agriculture Development Program quarter to be used/justified the following first quarter. Mechanisms to link budget to plan should be implemented at central and province level.

Planning Instrument

As mentioned, the fact that the planning instrument conceived during PROAGRI I (PAAO) is not integrated into the government planning system compromises its sustainability, furthermore, as it has pre-determined activities and a top-down approach, the PAAO does not help the integration in the district planning process adopted by government.

The Planning and Development Ministry is improving the planning process, developing a participatory , decentralized and inter-sectoral approach at district level. Agriculture being the main activity of district residents, the DDAs have a major role to play in district planning. It would be advisable to restructure the use of PAAO to strengthen the institutional capacity of MINAG to contribute to the development of the strategic and annual plans at province and district levels and their integration into the national PES.

Planning at District Level

The centrally-developed planning framework (software) and the lack of reliable data that DDAs receive does not allow the consideration of specific development strategies according to socioeconomic context and agriculture potential.

DDAs should be given the means (in terms of data and human resource capacity) to conduct planning based on a cross analysis (technical, based on reliable data, and participatory, based on farmers contributions) of the agricultural campaign. The development of district agronomic development strategies should be promoted, based on the analysis of limiting factors, taking into account the socio-economic context and agricultural potential.

Pests and Diseases

Pests are still a major matter of concern for most of the farmers and the agriculture service has not developed a clear and efficient strategy to overcome this problem. The issue of pests and diseases should be addressed more systematically and seriously, by research and extension. The different categories of pests (from insect to elephant), should be considered in order to develop specific strategies.

For animal pests, experiences of farmers, extension agents, NGOs, game parks or research centers from other countries should be solicited, taking into account (but not limited to) the cases of cultivated areas situated in natural reserves. Regarding insect pests, alternative technology packages should be developed, mobilizing knowledge from NGOs, research institutes or internet.

66 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Seed Issues

The PROAGRI I objectives to create a strategic seed reserve and improve the quality of seeds is hampered by storage problems linked to the problems access to appropriate stores by both the producers and the DDA, especially in the coastal area.

The objective of developing a strategic seed reserve requires a clear strategy and means to implement it. There should be different strategies, according to the agro-ecologic conditions. Where rains are irregular, there is the necessity for short season and drought resistant varieties of seeds or vegetable seeds. This operation can only be undertaken by public services in coordination with NGOs (where these exist). The objective of the operation should be to improve the production capacity of the farmers that would lead to the constitution of seed stocks. The farmers should be informed that this support will not be renewed.

Where the climatic conditions are favourable, the objective is different since access to seeds is already assured. There, when a new variety of seed has to be introduced, the strategy initiated in Niassa Province could be developed: teach selected farmers how to produce seeds that will be sold to other farmers.

The issue of maintenance of seed quality should be addressed through availability of seeds at reasonable prices (the production of seeds by farmers is a good solution at that respect).

When there is problem of storage, like in coastal areas, before introduction of new varieties, the first constraint to overcome is the improvement of storage techniques for seeds by the farmers. It has been demonstrated that the techniques presently disseminated are not efficient, which means that there is need to develop other technical packages, not limited to agro-chemical, especially where these are not available. The surveys among the farmers show that in some districts, there is no problem of storage, even where extension did not disseminated technical messages regarding storage. Research could investigate what are the factors in cause and from that, propose techniques to be tested by in-field research. Even in districts where storage is not presently a problem, the promotion of seed production by farmers might raise storage problems.

Livestock Production

Animal acquisition is no longer a major problem for the farmers, except in some districts due to the livestock restocking programmes conducted during PROAGRI I. The major challenge for farmers now is the mortality of animals. Animals are expensive to obtain, and are considered as insurance to provide against any difficulties faced by the farmers. The loss of an animal is, for that reason, a major concern for farmers.

67 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The only veterinary service available in the northern provinces remains the DDAs, but with reduced means to provide the required services.

The experience of transferring some services to farmers groups, associations or communities should be evaluated in order to estimate their capacity to provide, in a sustainable way, services necessary to reduce animal mortality.

68 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 1

Interview Groups of Women, Nampula Province

Problems Nº of Ratio Nº of groups that gave the following answers presented groups related DDA services that Do not Waiting Unsatisfactory No present consult for the answer answer the DDA answer problem Production and post harvest problems Goat diseases 1 1.4 1 Storage of 7 1.3 3 1 1 production Goats and pigs 1 1 1 spoil the crops Irregular rains 2 1.2 1 Cassava disease 4 1.3 2 2 No treatment for 4 0.6 1 2 cashew trees Low fertility of 1 2.3 1 soils Chicken mortality 5 0.5 1 1 1 Pests 5 0.8 Marketing problems Cotton bought late Low prices 7 1.6 3 1

Access to inputs Lack of seeds in 1 0.2 1 the market Planting material 1 0.5 insufficient and arrived late Improved seeds 6 0.5 1 1 2 insufficient Lack of insecticide 1 0,3 1 for horticulture Cannot afford 1 0.1 1 animals Access to inputs Horticulture seeds 2 0.3 arrived late Cannot afford to 1 0 1 buy seeds for horticulture Cannot afford 5 1.3 4 tools High price of 5 0.9 3 1 seeds Land issue Lack of land to 1 0.8 make fields in block

69 Volume II-B Evaluation of the First Phase of National Agriculture Development Program Annex 2

Interview Groups of Young Farmers, Nampula Province

Problems Nº of groups Ratio Nº of groups that gave the following answers regarding DDA services presented that Do not DDA has no Unsatisfactory Didn’t follow Presented the Cannot afford presented consult response answer the advice problem and the cost of DDA the problem DDA wait for the service response Production and post – harvest problems Cashew trees not 2 0.4 1 1 treated Chicken mortality 4 0.6 1 1 Cattle spoil the 1 0.6 1 crops Pests and diseases 5 0.8 2 1 Animal pests 1 1.2 1 Irregular rains 2 1.6 1 Water sources for 2 1 2 irrigation dried up Lack of support for water 1 0 conservation Production 3 0.2 3 storage Lack of technical assistance for 1 0.5 1 horticulture Access to inputs Lack of equipment 1 1.2 1 for horticulture High cost of seeds 3 0.6 1 1 Horticulture seeds 1 0.7 arrived late Cannot afford 6 1.2 1 3 tools Lack of preservation 1 0.8 1 product for seeds Marketing Low prices 8 1 1 2 3 1 Lack of formal 2 1 1 buyers Other Cannot afford 5 0.9 2 2 animals

70 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 3 Analysis of Producer Surveys: Women Smallholder Farmers Province: Nampula Total respondents: 59 yes no %yes %no

Did his /her knowledge increase due to the extension services? 51 8 86% 14% Does she/he receive a technical message by radio? 57 2 97% 3% Is she/he member of a producer organization? 44 15 75% 25% Do the extension agents help for marketing of her/his production? 27 32 46% 54% Do the extension agents consult about his/her problems? 47 12 80% 20% Do the extension agents give answer to her/his problems? 37 22 63% 37% Did he/she adopt a technological package for treatment of crop 33 26 56% 44% disease? Does he/she use pesticide 33 26 56% 44% Who teach MINAG 33 100% NGO Private Where pesticides are bought MINAG 33 100% NGO Private Does she/he use fertilizer? 28 31 47% 53% Who teachs MINAG 28 100% NGO Private Where fertilizers are bought MINAG 28 100% NGO Pivate Did she/he hear about environmental issues related to agro-chemical? 48 11 81% 19% Does she/he know the effect of those products on food crops? 46 13 78% 22% Does she/he learn techniques from a demonstration farm? 51 8 86% 14% Does he /she currently participate in rural fairs? 33 26 56% 44% Does she/he get market information 43 16 73% 27% From where he gets market information MINAG 42 98% ONG Private 1 2% Does she/he use animal traction or tractor? 0 59 0 100% Did she /he receive any root or tuber planting material? 39 20 66% 34% Does she/he have loss when conserving seeds? 43 16 73% 27% Was she/he taught improved storage of seed? 36 23 61% 39% Does she/he get improved seed? 48 11 81% 19% Does she/he produce improved seed? 8 51 14% 86% Does he/she currently receive information about next season’s climatic 40 19 68% 32% condition? From where MINAG 40 100% NGO Private Is there private veterinary 0 59 0 100% Is there others private services for livestock producers 0 59 0 100% Received livestock form agriculture or NGO 4 55 7% 93% Received orientation to avoid pastures degradation 17 42 29% 71% Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 59 0 100% Parasite control tanks? 0 59 0 100% Animal pens? 0 59 0 100% Testing and diagnosis laboratories? 0 59 0 100% Has he/she received information about HIV/AIDS prevention? 59 0 100% 0 from whom MINAG 24 41% NGO Other 35 59%

71 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Analysis of Producer Surveys: Men Smallholder Farmers Province: Nampula Total respondents: 73 yes no %yes %no

Did his /her knowledge increase due to the extension services? 58 15 79% 21% Does she/he receive a technical message by radio? 66 7 90% 10% Is she/he member of a producer organization? 53 20 73% 27% Do the extension agents help for marketing of her/his production? 37 36 51% 49% Do the extension agents consult about his/her problems? 60 13 82% 18% Do the extension agents give answer to her/his problems? 52 21 71% 29% Did he/she adopt a technological package for treatment of crop 45 28 62% 38% disease? Does he/she use pesticide 37 36 51% 49% Who teach MINAG 37 100% NGO Private Where pesticides are bought MINAG NGO Private Does she/he use fertilizer? 26 47 36% 64% Who teachs MINAG 25 96% NGO Private 1 4% Where fertilizers are bought MINAG 25 96% NGO Private 1 4% Did she/he hear about environmental issues related to agro-chemical? 60 13 82% 18% Does she/he know the effect of those products on food crops? 48 25 66% 34% Does she/he learn techniques from a demonstration farm? 63 10 86% 14% Does he /she currently participate in rural fairs? 51 22 70% 30% Does she/he get market information 46 27 63% 37% From where he gets market information MINAG 36 80% ONG Private 10 20% Does she/he use animal traction or tractor? 0 73 0 100% Did she /he receive any root or tuber planting material? 37 36 51% 49% Does she/he have loss when conserving seeds? 49 24 67% 33% Was she/he taught improved storage of seed? 42 31 56% 44% Does she/he get improved seed? 59 14 81% 19% Does she/he produce improved seed? 12 61 16% 84% Does he/she currently receive information about next season’s climatic 51 22 70% 30% condition? From where MINAG 51 100% NGO Private Is there private veterinary 0 73 0 100% Is there others private services for livestock producers 0 73 0 100% Received livestock form agriculture or NGO 8 65 11% 89% Received orientation to avoid pastures degradation 21 52 29% 71% Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 73 0 100% Parasite control tanks? 0 73 0 100% Animal pens? 0 73 0 100% Testing and diagnosis laboratories? 0 73 0 100% Has he/she received information about HIV/AIDS prevention? 72 1 97% 3% from who MINAG 19 26% NGO Other 53 74%

72 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 4 Nampula Provincial Analysis: Extension Agents

total respondents 7

Are his/her responsibilities clearly defined? yes no 43% 57%

Is he/she integrated yes no 28% 72%

Has she/he easy access to computer at work yes no 0% 100%

Has he/she access to internet and mail yes no 0% 100%

Has he/she access to fax yes no 0% 100%

Does he/she have transport means between Still has 1999 & 2005 yes no yes no 100% 0% 43% 57%

Get the information she/he needs to answer issues raised by farmers yes no 43% 57%

Does she/he have access to any library/technical documents yes no 100% 0%

Does he/she use to go / consult Does she/he find what she need yes no yes no 100% 0% 71% 29%

Integrate environment aspect in his/her work yes no 86% 14%

Has access to the book about environment mitigation measures yes no 43% 57%

Integrate gender aspects in his work yes no 86% 14%

Integrate AIDS aspect in his/her work yes no 86% 14%

73 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 5 Provincial Analysis -- Nampula Province total respondents 4

Are his/her responsibilities clearly defined? yes no 100% 0%

Is he/she integrated yes no 100% 0%

Has she/he easy access to computer at work yes no 100% 0%

Has he/she access to internet and mail yes no 25% 75%

Has he/she access to fax yes no 50% 50%

Can he/she communicate with (other) provinces by radio yes no 75% 25%

Can he/she communicate with (other) provinces by e-mail yes no 50% 50%

Can he/she communicate with (other) districts by radio yes no 100% 0%

Does he/she have transport means between 1999 & 2005 Still has yes no yes no 50% 50% 0% 100%

Has budget for fuel for field work yes no 25% 75%

Get the information she/he needs to answer issues raised by farmers yes no 50% 50%

Does she/he have access to any library/technical documents yes no 75% 25%

74 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 6 District Analysis -- Nampula Province

total respondents 7

Are his/her responsibilities clearly defined? yes no 43% 57%

Is he/she integrated yes no 28% 72%

Has she/he easy access to computer at work yes no 40% 60%

Has he/she access to internet and mail yes no 14% 86%

Has he/she access to fax yes no 14% 86%

Can he/she communicate with (other) provinces by radio yes no 100% 0%

Can he/she communicate with (other) provinces by e-mail yes no 0% 100%

Can he/she communicate with (other) districts by radio yes no 100% 0%

Does he/she have transport means between 1999 & 2005 Still has yes no yes no 86% 14% 86% 14%

Has budget for fuel for field work yes no 86% 14%

Get the information she/he needs to answer issues raised by farmers yes no 71% 29%

Does she/he have access to any library/technical documents yes no 86% 14%

Does he/she use to go / consult Does she/he find what she need yes no yes no 86% 14% 40% 60%

Integrate environment aspect in his/her work yes no 14% 86%

Has access to the book about environment mitigation measures yes no 14% 86%

Integrate gender aspects in his work yes no 86% 14%

Integrate AIDS aspect in his/her work yes no 86% 14%

75 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

APPENDIX XIII: NIASSA PROVINCE

76 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Introduction

PROAGRI, the agricultural sectoral investment programme designed by the Government and a consortium of interested donors, was put into place in 1999. The programme was established to address the fact that the economic and social environment, and the nature of the agricultural sector itself, had been rapidly changing and looked to continue its rapid pace of change in the future. The Government needed to adjust its strategies to ensure maximum development of the agricultural sector; PROAGRI was the policy statement to indicate the direction of that change.

The provincial and district offices of the Ministry represent the leading edge of all activities. It is here that the interface with the main clients (i.e. small farmers, farmer associations, community groups, local private entrepreneurs, NGOs, etc.) takes place. It is also here that the ground level impact of the programme will be visible. Therefore, as part of the end-of-programme evaluation, interviews have been conducted in each province. This report is the field survey of Niassa Province.

Summary of Key Issues

Core Functions

The surveys made among the farmers indicate that the DDAs are still the main providers of inputs and services (see Annex 3 ). Production means access relates to interaction between the buying power of farmers and availability in the market. In Niassa Province, the districts near the Malawian border (Lichinga, Lago) have access to Malawian agriculture inputs and, due to favourable agro- climatic conditions, 30 to 40%19 of farmers can afford to buy them. So, in those districts, a lot of inputs are acquired from the private sector. About 40% small scale farmers acquire pesticides and fertilizers from the private sector in Lichinga District. All farmers that use fertilizers (29%) get them from the private sector in Lago District.All female farmers and 50% of male small scale farmers use pesticides get them from the private sector.

DDA carries out animal vaccinations, except where there are no extension agents, then small farmers are trained to do so. In the last one or two agriculture seasons, improved seeds were distributed by the DDA on a credit basis. Farmers are supposed to return twice the quantity they received.

However, the work with the groups shows that the provision of services and inputs from DDA is not satisfactory (see Annexes 1 and 2). The vaccines for animals that the DPA receive are not sufficient for the numbers of animals. In Niassa Province, farmers complained about the lack of veterinary assistance, even in districts where there is a technician for livestock production like Lago.

19 19 The percentages indicated in the report are the percentages of the interviewed population. That gives an ideia of the situation based on the data collected in the visited districts. The extrapolation to the whole province must be done with caution as the sample of interviewed persons has not been established in a strictly statistical approach. When reffering farmers, one must keep in mind it is a sample of assisted farmers.

77 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The technicians have no fuel to do the field work and the provincial laboratory are not functioning.

The improved seeds distributed by DDA are not enough to meet the needs. In Niassa province, the farmers have no problem of access to seed but wish to improve their production, using improved seeds. The only seed providers are the DDAs. The private providers of certified seeds are located in the provincial capital and not in all provinces, in other words very far from productive areas. Except for the private firms that provide improved seeds and pesticides to cotton or tobacco producers, very little agriculture inputs are available in production areas. The inputs or equipment for vegetable production, for example, are not available in the production area. In Niassa Province, the farmers can afford agriculture inputs, but there are no good quality tools, herbicides and grain storage chemicals available on the market.

The problem of access of inputs has partly been overcome by the initiative of agricultural services to organise subsidised rural fairs. This began in the last year of PROAGRI I. In some districts of the province. At the fairs the farmers can get tools, seeds and sometimes agro-chemicals at less than their market price.

The shift in orientation of the Ministry from services and inputs provision to the elaboration of policy and regulations and the control of their application is not obvious on the field for the following reasons:

 In Niassa Province, the farmers can afford agriculture inputs, but face the difficulty to find any, since it is very rare to have private companies in production areas; most are in provincial capitals.

 the few services and agriculture inputs provided by the private sector are not satisfactory. DPA/DDA have no clear mandate to control. Farmers indicated that seeds bought do not germinate, agro-chemical are inefficient. In choosing the appropriate products (in Malawi for example). There are many complains about the discount given for the inputs provided on credit for cotton production, the grading of tobacco which is never favourable for farmer, and delays in cotton marketing by companies.

The result is falure by farmers to overcome production limitation factors, principally pests and diseases in animals and plants. Pests and diseases are the most impotant production limiting factor.

Probably linked to the improvement of marketing, there is a need to improve the techniques of production that cannot be satisfied due to the problem of access to production means (improved seeds, appropriate tools, agro-chemicals). Without improving their production, most farmers remain unable to access private services (which further hampers the emergence of those activities).

Decision Making Process for Activities to be Implemented by DDAs

The decentralization process tried to allow the making of appropriate decisions which answered farmers’ needs and concerns. Two main factors seem to compromise this objective:

78 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

 decisions taken during the approval process of PAAO without consulting the field staff who are in contact with local farmers;  the deficient budget allocation to provincial services and DDAs, which does not correspond to the approved budget and arrives late.

The decentralized planning and implementing system established by PROAGRI does not allow the implementation of activities such as seed or animal distribution on credit. However, such activities are implemented out of the decentralized planning system, through central decision making process. In many cases this has led to poor results due to the failure by the DDA to provide the required technical assistance because there are no funds available for fuel and per diems for activities not included in the PAAOs.

Planning instrument

PROAGRI I developed a new planning instrument (PAAO) that is not integrated into the government planning system and duplicates the task of planning. Furthermore, as it has pre-determined activities entrenching a top-down approach.The PAAO conflicts with the integration in the district planning process adopted by the government. Therefore, the sustainability of the institutional capacity of planning and budgeting developed during PROAGRI I is compromised. As the PAAO is not integrated in the approval process of the Republic Assembly, nor in the district planning process, it is doubtful that it will survive after the withdrawal of the main donors of PROAGRI.

Planning at District Level

The PAAOs are supposed to be developed on the basis of the PAAOs made by DDAs, integrating farmers’ consultations. In reality, the DDAs cannot actually fully address the local production limitations for two main reasons:

 They do not have reliable data on which to base the summary of the agricultural campaign (TIA is not specified at district level);

 They cannot integrate most of the farmers’ concerns because those are rejected by the planning software, and some that are integrated are later cancelled at the provincial or central levels.

The planning framework (software) is centreally established. It promotes a standardization of DDAs activities based on core activities, and does not allow the development of specific development strategies according to the socioeconomic context and agriculture potential, which varies from one district to the other. This contradicts with the decentralization objective sought to address farmers’ concerns. For example, the strategy cannot be the same in districts with high agricultural potential situated near a main road, where the farmers could be supported to increase their farming area and develop new production, and an area of high potential situated in a remote area, where the farmers could be supported to transform their production locally (to make oil, for example) to mitigate the impact of high cost of manufactured products. Also areas characterized by rainfall irregularity should have specific support to overcome this climate limitation.

79 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Seed Issues

The development of a strategic seed reserve is hampered by storage problems linked to the difficult access to appropriate stores by both the producers and the DDA, especially in the coastal area. As a result, the producers tend to sell all their produce quickly, at low price, preferring this option than losing the opportunity to sell anything. They are not able to store the produce in good condition for long. When they need seeds, they face a serious problem of access to seeds, due to high prices, unavailability or bad quality seeds. The seeds distributed by the DDA are appreciated for their quality (good varieties, well conserved), but the quantities are far from enough. As a result, no strategic seed stock is available and the improvement of quality of seeds produced by the farmers is compromised. This situation does not allow the development of strategic seed reserves, or improvement of quality of the seeds.

Institutional Development

Decentralization

In terms of institutional development, PROAGRI I introduced a decentralization process, consisting in the transfer to district and province level of implementation and decision making authority at province and district levels. The efficiency of the decentralization process (activities achieved compared to the results foreseen) is assessed here, on the basis of the following results:

 Decision making and implementation authority transferred to province and district level;

 Priorities and budget ceiling defined, PAAO prepared and approved at province level;

 Timely allocation of the financial and material resources.

The effectiveness of the decentralization process is assessed considering the following objectives:

 Strengthening planning capacities at district and provincial level;

 Improving the performance of the interventions undertaken at provincial and district levels.

Efficiency of Decentralization at Provincial Level

Result foreseen :decision making and implementation authority transferred to province level.

Decision making and implementation authority have been transferred to province level. Decision making authority transfer is linked to the decentralization of planning, which allowed the DPA to decide what activity or investment should be included in the annual plan (PAAO). However, the transfer of decision making authority is not complete since some priorities are imposed by central level, such as vaccination of chickens, fish production, treadle pumps or jatropha crop. Also some components are framed by policies, which is the case of the livestock development policy. 80 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The transfer of implementation authority is linked to the decentralization of budget management. The DPA is being allocated a budget for functioning and investments and is free to decide its redistribution and funding modalities among provincial services and DDAs. The differences of the DDAs decentralization process among the provinces demonstrate the relative autonomy acquired by the DPAs.

Result foreseen: priorities and budget ceiling defined. PAAO prepared and approved at province levels

Budget ceilings are established at central level and communicated to DPA. DPA determines the distribution of budget ceilings among the provincial departments and services, as well as among the DDAs.

The provincial services make their PAAO on the basis of the DDA PAAO for the corresponding component. In Niassa Province, the DDAs make their PAAO before knowing their allocated budget. This necessitates important adjustments sometimes to fit within the budget limits, which are set by respective DDAs. Harmonization is then made at province level, which includes the determination of which activities should be undertaken by the provincial services and which at DDA level. Once approved by the central level, each provincial service and DDA is informed about its approved PAAO.

Result foreseen: timely allocation of the financial and material resources

Once DPA receives the funds, they are distributed among the provincial services and DDAs and material is purchased. The funds are allocated to DPA four times a year to allow the funding of the PTAOs.

According to DAF of DPA Niassa, principally it is in the first quarter that the funds arrive late, due to the fact that the annual accounts are closed in January. So, before March it is not possible to receive the budget of the first quarter. Another reason for the delay of financial allocation is the time taken by services to justify expenses since they cannot receive the budget of the following quarter before having accounted for previous all expenses. Activities such as that often delays acquittal process. In general terms, the justification of the field work (mainly per diem) is not done on time by the technicians who have to present many items of justification (reports, authorisations, etc.).

Effectiveness of Decentralization at Provincial Level

Estimate if the decentralization led to strengthening of planning capacities

Planning capacity can be assessed as the capacity to plan activities according to foreseen results of the programme, taking into account the human, material and financial resources. As the provincial PAAOs incorporate the district PAAOs, the planning capacity of the DPA must also be assessed by its capacity to insure that the activities planned by the DDAs contribute to achieving the foreseen results of the programme, and that DDAs are able to implement the planned activities. At 81 Volume II-B Evaluation of the First Phase of National Agriculture Development Program province level, the evaluation of the DDAs’ PAAOs is made by the agricultural economy and planning department.

In a decentralized planning and implementation context, the decision making process regarding the adjustment of the DDAs’ PAAOs is of main importance as that will influence the motivation of the DDAs to actively contribute to the implementation of the plan.

In the province of Niassa, the decision to keep, change or add activities planned by the DDA were made in a consensual way, involving the DDA staff. That allowed the contribution of persons that knew the local context better in the decision making process, insuring appropriate choices.

Estimate if decentralization led to improving the performance of the institution at province level

Performance of the provincial services was most affected by the late allocation of financial resources. Some activities cannot be effectively undertaken due to the late provision of funds. This is the case with seeds or vaccines distribution that should be done at a specific time of the year.

Another factor that negatively affects the performance of the DPA is that the annual budget of the province is divided in 4 equal parts, without reference to the respective activity plans (PTAO). Activities scheduled for each quarter are different and require different amounts. Problems arise when costly investments have to be made, such as acquisition of transport means. This resulted in lack of funds for other scheduled activities. As a result, some provincial services such as the economic department, livestock service or rural extension service complain not only about the late provision of funds, but also about the cuts of approved budgets.

Efficiency of Decentralization at District Level

Result foreseen: decision making and implementation authority transferred to district level.

Decision making has been transferred to DDA by their contribution in the development of the PAAOs. The provincial PAAO includes the PAAOs made by the DDA, which are developed from data collected from the farmers.

In Niassa Province, all DDAs were decentralised since 2003. Each receives a budget quarterly, essentially for functioning (stationeries, fuel, per diem). The acquisition of most material for activities and investments is made at provincial level (vehicle, seeds, vaccines and other inputs). The decentralization of the DDAs was made while none had bank accounts, and still today, five do not yet have one, and work with the assistance of DPA (DAF). Also some do not have power and, hence, cannot use their computer. Furthermore, most districts have no banking institutions.

Timely allocation of the financial and material resources 82 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

All the visited DDAs complain that the funds and material for activities (seeds, vaccines, etc.) never arrive on time, especially for the agricultural campaign period which is the first quarter of the year. As a result, the DDA team has a limited capacity to implement the scheduled activities at the proper time (i.e. the application of the first vaccination against Newcastle which must be done in March) which is not always possible, and can raise a problem of the efficiency of the treatment. The monitoring of the agricultural campaign (detection of pests and diseases, state of the plants, etc.) which peaks in February, is also affected cannot be undertaken properly. The late provision of improved seeds or planting material for demonstration was mentioned. The farmers are asked to prepare fields, but no seed or plants are provided at the proper time to sow.

Effectiveness of Decentralization at District Level

Estimate if decentralization led to strengthened planning capacity at district level

Apart from the capacity to plan activities according to foreseen results of the programme, taking into account human, material and finance resources, the planning capacity of the DDAs must be assessed by their capacity to address the farmers’ needs and concerns.

Regarding the first aspect, most of DDAs’ staff have no knowledge of the PROAGRI programme and did not contribute to its development. They were not informed of central office plans, nor of the budget ceiling at the time they made their annual plan. As a result, many budget activities had to be removed, including the priorities defined with the farmers, and others were added, such as fish production, treadle pumps for irrigation, etc. Lago District many activities could not be included in the PAAO due to the software that rejected non-core activities. The budget ceilings, the DDA at provincial level were subsequently reduced by Maputo, which also re-examined activities approved at the provincial level.

This meant that part of the plans developed with farmer consultation could not be considered, which was unfavourable for the development of participatory planning capacity, and initiatives appropriate to the local context. There were activities that a provincial outsourcing project could do to meet the farmers needs, such as animal distribution on credit, provision of agriculture inputs to be sold by farmers’ organisations (casa agrarian) that DDA could not, due to the PAAO software.

DDAs were asked to carry out participatory planning processes without knowledge of the programme and financial framework, this did not promote the development of planning capacity, and contributes to keeping them dependant on the DPA. It also created a lot of frustration among field staff and farmers.

Furthermore, data is required to be able to plan but the data on which the DDAs based their planning activities was not reliable. For livestock , the DDAs were told to use TIA data, which does not provide data at district level. With regards to crop production, the DDAs based their plan on agriculture season summaries. 83 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Farmers were consulted at Administrative Post level, through contact farmers, community leaders, Head of Administrative Post and farmers’ associations. In a number of cases farmers consultation was limited. One extensionist of Lichinga DDA said that the PAAO are developed by a technical council, where sometimes only one farmer is invited. However, before this meeting, the extension agents make the summary of the agriculture season with the farmers, where they collect their contributions. The extension service collected from farmers information to be planted for each crop the next agricultural campaign. Other activities such as water storage infrastructure were worked out with the farmers. The result was a list of production means and infrastructure, which is included in the DDA PAAO.

Estimate if the decentralization process led to improve the performance of the institution at district level

The decisions taken without consulting the DDAs which know the local context better led to ineffective service provision of extension agents and the planning of activities that were that were difficult to implement. Lack of appropriate training of the extension agents in implementing centrally-decided activities also led to mistakes (for instance, the inability to choose a proper location for a fish ponds, resulting in the ponds drying up during the dry season). In another case, the required technical assistance to properly conduct an activity decided centrally couldn’t be provided by the DDA, because of unavailability of funds for activities that are not included in the PAAOs. This is also the case for cattle distribution for drought power in Lago District. The technician for livestock production could not make field visits, even when informed by the farmers about health problems. The consequence was that, from nine cattle distributed, two died and four are in a very bad state.

The late provision of funds is also a constraint for all DDAs affecting their capacity to implement the scheduled activities. The extension agents generally have a negative impression of decentralization, saying that they are not informed about the budget received for the implementation of PTAO and never have the necessary budget to undertake the planned activities.

The performance of the DDA was also affected by the problem of links between planning and budgeting. DDAs complained about the cuts in the approved PTAO’s budget that resulted in them being unable them to undertake the scheduled activities. In the PAAOs, the funds for operations were linked to planned activities. Until 2002, the DDAs had a district operational fund for per diem and fuel to undertake activities not included in the PAAO. The removal of this budget caused implementation problems in the DDA of Lichinga, reducing their ability to realise routine activities. The 2004 activities report of Lago DDA also reports the removal of this fund, as well as the 2003 activity report of Muembe DDA.

Another negative factor of decentralisation regarding the improvement of performance is the limited exchange of experience among the provinces. Some DDA or provincial services overcame difficulties related to management or technical issues (seed production by farmers, creation of association) that others did not. There is a lack of mechanism for the promotion of best practices.

84 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Human Resources

The department of human resources in Niassa DPA improved also during PROAGRI I. Two computers were acquired (one is broken down). A SIP was undertaken and is permanently up-dated while the staff information system of MINAG (SIRH) is not yet installed.

Training is not managed, nor co-ordinated by the human resources department. Each sector includes training proposals in the PAAO, final decision are taken by head of sector services.

Result foreseen: staff integrated, responsibilities defined, working conditions improved

Regarding the working conditions in Niassa Province, Lichinga District, and the extension system had the support of PDAN (Niassa Agriculture Development Programme) until 2004, which provided complete extension kits, motorbikes to each extension agent, including assistance for maintenance, houses for each extension agent, etc. Since the end of the programme there is no more support for fuel and maintenance of the motorbikes.

While all visited districts have transport means, the availability of fuel for fieldwork is not assured, field work is seriously handicapped. The DDA of Lichinga is equipped with computers and has power. In Lago District, the DDA received a second-hand computer without a UPS, while the DDA of Muembe and Mavago have no computers – and no source of power. Most districts have no cell connection and among the visited ones, two had the radio out of order for several months (see Annexes 4 and 6).

Extension agents are the most important agents of the agriculture ministry, since they are the ones in daily contact with the farmers. But they are the ones that benefited least from the institutional reform of the Ministry. While they see the improvement of the working conditions of DDA/DPA office staff, their own situation is worsening, particularly in terms of transport.

Result foreseen: additional necessary staff recruited

In Niassa, there was an increase in the level of training and not much academic recruitment occurred. Many persons benefited from scholarships to study in Cuamba University or in the Institute of Chimoio. The Economic Department of the DPA was boosted by one technician in 2004 coming from central level. In Lichinga DDA, 2 technicians of middle level education were recruited but ended their contracts after one year; one went to study, the other to work at a NGO. As they do not have an extension network the staff of the DDAs of Lago, Muembe and Mavago Districts did not receive any formal training. The recruitments made were limited to administrative staff (accountants) in order to manage decentralised funds. In the DDA of Lago and Muembe Districts (except the director and the accountant) most of the technical staff was hired around 20 years ago, with very low qualifications. Some retired during PROAGRI I but were not replaced. Most were integrated before PROAGRI I. In Mavago DDA, a technician of middle level education was contracted. 85 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Result foreseen: staff professional training defined and implemented

In Niassa Province, with support of PDAN, formal training took place to increase the academic level of the staff. In the DDA of Lichinga, one extensionist of middle academic level and the Director were sent to Cuamba University in 2003 to get superior academic levels. In addition, many training sessions were attended by the directors of the DDAs and some technicians (planning, HIV and gender issues, early-warning system, production storage techniques, fish production, etc.). In general terms, each category of staff received training according to their function, except perhaps the heads of secretarial staff that had training in human resources management while they do not really undertake that activity.

Support to Agricultural Development

Post Harvest Issues

The support to the agriculture production component includes many aspects. The first considered relates to activities that aim to improve the capacity of farmers to constitute stock of agriculture production, as well as to increase the opportunities of income generation. The strengthening of human resources capacity, as well as the increased understanding of marketing related issues are also considered.

Result foreseen: creation of post-harvest development committee; increased stock of agricultural products by farmers; increased number of mills; rural fairs, market information and cooperation among farmers; increase private investments Training in the areas of technologies, economics and markets Social and economic and markets studies

In Niassa Province, Lichinga District, the PDAN supported the establishment of agricultural houses (casas agrarias), managed by farmers’ associations. Produce of farmers is kept and sold from the houses the houses are equipped with grain mills. Oil presses were also provided finance from agricultural funds (FFA).

According to the DDA of Lichinga, improved storage techniques were disseminated among the farmers, however they were not well accepted. No chemical preservatives were provided by the DDAs. One technician of Muembe DDA said that he received training on improved storage but no dissemination was made to the farmers. They were advised to use chemical preservatives. In order to insure continued production, the DDA advised the farmers to estimate the quantity of product they needed for food until the next harvest including seeds and to sell all the excess production.

In the DDAs of Lago, Muembe and Mavago, nothing was done regarding agro- industry promotion.

Five subsidized rural fairs were organised in Niassa Province in 2005, which three with FAO support. Farmers got tools, seeds and other inputs at reduced prices. In Lago District, apart from subsidized fairs, each season rural fairs are 86 Volume II-B Evaluation of the First Phase of National Agriculture Development Program organised, with the support of NGOs, to allow the farmers to present their products and traders from Lichinga are also invited to sell necessary products. In the 2004 activities report, it mentions the participation of 133 farmers in the fair. In Muembe District, no rural fairs have been organised from 2004 as Irish Aid has ceased its support.

No post-harvest development committee has been created.

Marketing is not considered a problem by the DPA of Niassa, which is confirmed by the farmers in the districts of Lichinga and Muembe (except for some remote areas). On the other hand, in the district of Lago, farmers have problems selling vegetable and receive low prices in Mavago, farmers say that the lack of buyers is a major matter of concern.

In the visited DDAs, there was no communication of market prices among the farmers. None of the technicians were trained in agricultural technology, economic and marketing.

The information about the prices of the agricultural products is medium in Niassa Province (around 40% of farmers get this information). Even when organised in a district, the rural fairs do not benefit all farmers of that district. One extension agent of Lichinga DDA complained that the rural fairs are always organised far (around 60km) from the place where he is working, while the farmers of that area can afford the agricultural inputs they cannot find them in the market.

In Lichinga District, around 60% of small scale farmers participated in rural fairs. In Lago District a 100% of male and only 29% of female small scale farmers have participated in rural fairs. In that district, the cost of production tools is a major concern for farmers. Participation in rural fairs is good in Muembe District for the women (100% participated) however only 28% of men participate. Almost none of the interviewed farmers of Mavago District participated in rural fairs, while lack of transport is a serious problem in that district.

Around 65% of farmers said that they face seed storage problems. A very low proportion of farmers were taught improved seed storage.

The lack of agro-industries, especially presses to make oil is a matter of concern for remote areas like Mavago District for two main reasons. First, manufactured products are very expensive in this area, which justifies local production; second, this is a way to get money from the production in places where marketing is very low (see Annexes 1, 2 and 3).

Plant Protection

Regarding plant protection, one set of results is concerned with the detection and control of pests and diseases.

87 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Result foreseen: survey and evaluation of the pests, diseases and other parasites Guarantee of health inspection and product quarantine Development of a phyto-sanitary campaign for the controlling of migratory pests

According to SPA, DDAs detect pests and diseases and when necessary have the DDA treat them. However, there are not enough chemicals to handle cases massive invasion. There was only one migratory pest invasion in recent times, along the at the border with Malawi and the alert was transmitted by radio.

Health inspections are made at the border with Malawi for cotton pests and DPA makes phyto-sanitary certification. Quarantine is carried out when necessary for imported planting materials.

Lago District mention that the main ‘pests’ are hippopotamus, pigs and monkeys. The DDA wanted to distribute, on credit, dogs to farmers, which is an effective way to repel pigs and monkeys, but the PAAO software rejected the proposal. To control these animals, the DDA of Muembe and Mavago used guns. Ants are also problematic and in 2002 the DDA applied a chemical treatment to combat them. For two years, the DDA of Lago did not have any treatment products. The same occurred in the DDA of Muembe, added to a lack of fuel and per diem to carry out the phyto-sanitary inspection.

Some technicians were trained in pest and disease detection and received a manual to help them in pest identification, and selection of appropriate chemical treatment products.

Pests and diseases were mentioned by most of the interview groups as an important problem that is not properly addressed by the DDA technician (see Annexes 1 and 2).

Result foreseen: dissemination among farmers of integrated pest and diseases control systems Adoption by farmers Adoption by farmers of technological packages for treatment of crops

One extension agent in the Lichinga DDA makes demonstrations of use of pesticides and insecticides in CDR, while another said that they did not receive any treatment product, even for demonstration. Mavago DDA provides treatment product for demonstrations, while the DDA of Lago and Muembe Districts have none.

In Lichinga District, around 90% of farmers said that they use techniques to fight against pests and 73% of women small scale farmers and 100% of male small scale farmers use pesticides. In the groups, women mentioned pests in maize but not as an important problem. In Lago District, 43% of small scale farmers use techniques to fight against pests and 29% use pesticides. This issue was ranked among the more important problems for women groups but of medium importance for young farmers. In Muembe and Mavago Districts, a minority of farmers use techniques of control pests and even less (around 22%) use pesticides. In Muembe District pests are a major matter of concern for young 88 Volume II-B Evaluation of the First Phase of National Agriculture Development Program farmers but not for women. In Mavago District the pests that preoccupy the women are the buffalo and monkeys (see Annexes 1, 2 and 3).

Result expected: Environment mitigation and connecting measures implemented in co-ordination with MICOA Measures to mitigate toxicological effects of the application of pesticides in food crops implemented

According to the SPA of Niassa Province, when pesticides or insecticides are provided to farmers, they are informed about the measures to take.

The DDA of Lago District work in collaboration with MICOA. The use of a dip tank has been forbidden because of its negative environmental impact, as assessed by MICOA. No toxicology information was disseminated to farmers by DDA of Muembe District. In the district of Mavago, the difference between the farmers that are aware of the toxicity and those who know the measures to take is not significant (46% and 38% respectively).

Awareness on toxicity of phyto-sanitary products is well disseminated, especially among the male farmers (more than 90% know that those products are dangerous, 78% of female small scale farmers). However, not all are informed about the measures to adopt to avoid poisoning, especially the female small scale farmers, only 54% informed. 78% of male small scale farmers, 100% female private farmers and 75% male private farmers are aware of the measures to follow.

In Lichinga District, 100% of small-scale women farmers and 86% of male small scale farmers said they are aware of the toxicity of agro-chemicals, but while the same number of males know the measures to take, only 93% of women are informed. In Lago and Muembe Districts around 60% of farmers are aware about the toxicity of agro-chemicals, but half know the measures to take (see Annex 3).

Seeds

Regarding seeds, the objective of PROAGRI was to improve the access to seeds, improve the quality of seeds, as well as to control the quality of seeds produced.

Result foreseen: seed certification and quality control services developed Strategic seed reserve created

The SPA emergency Niassa explained that seeds have been distributed for many years, mainly in situations. This, however, does not allow distribution of large quantities, and there is no monitoring of impact. According to him, it is only since the 2005/6 agriculture campaign that the objectives of the activities related to seeds were clarified (diversification of seed varieties, specialisation by districts on specific crops, intensification of seed production). Seeds were distributed to farmers on credit. The farmers were shown how to preserve seed qualities without mixing varieties in the field). They were also told that they will not receive more seeds from agriculture services in the future.

89 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

In the DDA of Lichinga, one extensionist confirmed that the DDA received a new variety of seed that has been tested in CDR and then distributed to farmers for multiplication, but not on credit. He had given seeds to 3 farmers. Whenever new farmers want improved seeds, they have to negotiate with the farmers that received improved seeds from DDA.

In the DDA of Lago District, some technicians received training in seed production and in recent seasons family farmers produced 1 ton of maize seeds. Farmers save the seeds and DDA buys for distribution to others. In Muembe, the farmers do not produce seeds and in Mavago, one association received seeds of rice and maize for 17 ha each.

In the surveyed districts, seed access is not as a problem.

Result foreseen: role of research reinforced in the improvement of plants in the public sector Production of seeds and material for vegetative dissemination that is not included in the commercial sector’s priority made by public sector Adoption and production of improved seeds by family farmers

The agricultural station of Lichinga carries out a variety of adaptation tests in the districts and farmers are invited to appreciate the quality of seed. After approval these seeds are then distributed to farmers for multiplication. It is only in the 2005/06 agriculture campaign that farmers received improved seeds for multiplication. For the 2006/07 season, family sector farmers have been identified for improved seed production.

In Lago District the 2005/06 agriculture season, 3 farmers received 20kg of maize each and produced one ton of seed. The agricultural station of Lichinga and the DPA provided seeds to Muembe DDA for demonstration and multiplication for maize, sunflower, soya and potato. Around 10 CDR and 5 multiplication fields (CMS) are sown each year by DDA/farmers. The DDA of Mavago during the last campaign also began the production of improved seeds, and receiving 400kg of maize seeds that were given to a farmers’ association for multiplication, three tons were produced. The DDA also received potato seeds which arrived late and spoiled, so they were not distributed.

In Niassa Province, access to seeds is not a problem since the production is good and storage satisfactory. However, in Lago District some farmers groups complained about insufficient improved seeds, which that the DDAs succeeded to convince them about the comparative advantage of those varieties.

In Lago District, 100% of farmers have access to improved seeds at satisfactory quantities. In Lichinga District, the male small-scale farmers are better provided with improved seeds than the women (87% and 79% respectively) and one group of women complained about the lack of improved seeds. In the district of Mavago, only 54% of the male small-scale farmers have access to improved seeds (none of the women) but only the male young farmers complained about the insufficient improved seeds. This might indicate that the women are not aware about the comparative advantage of improved seeds. In Muembe District,

90 Volume II-B Evaluation of the First Phase of National Agriculture Development Program all groups mentioned the lack of improved seeds, while 71% of male and 60% of women have access to them (see Annexes 1, 2 and 3).

Result foreseen: early-warning system institutionalised and consolidated Dissemination of early-warning information among the users

In all DDAs visited, there is one person responsible for the collection of information for the early-warning system, which is then transmitted to the DPA. Instructions are provided and some had a specific training. Information transmitted includes rainfall and and other climatic phenomena; the estimation of production and the state of growth. Production data is collected through meetings with influential farmers and local leaders.

In the DDA of Muembe District, the person in charge of the data collection complained about the lack of transport to go to the villages.

Not all DDA receive early-warning information to be transmitted to the farmers. if it is transmitted to the DDA, the staff which are contact with the producers have no knowledge of it. In the DDA of Lago, it is only since 2005 that the weather condition forecast is transmitted on time to the DDA to be disseminated through the local radio station or farmer meetings.

Each DDA received training to gather data on the crop season, rains and prices. Marketing information is not very accurate because of the reluctance of private farmers to communicate the volumes really marketed.

In the district of Lichinga, around 70% of farmers received information from DDA about the climatic forecast for the next agriculture campaign. While 86% of men are informed about climatic conditions for next agriculture campaign, in Lago District, only 4% of women small-scale farmer receive this information.

Livestock Development

The objectives regarding livestock production were not clearly defined at the time PROAGRI I was developed. The development of a livestock production strategy, with clear goals to promote the involvement of the private sector was made in 200320. The livestock development policy establishes that it is necessary to shift from a situation of total State responsibility to a situation which includes the participation of other actors, while the State responsibility is to promote a favourable economy and provide an institutional environment for the contribution of the private sector and the civil society. In other words, the State role is:

 To formulate, analyse, monitor and evaluate politics, strategies and programmes and insure correct interpretation

 Articulate and coordinate the different institutions involved

 Create and adequate the legal framework and insure its application

 Promote the development of private sector for the provision of veterinary services

20 MADER. 2003. política de desenvolvimento pecuário. 91 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

 Develop partnership with private sector and civil society

 Promote the preservation of natural resources and biodiversity

The livestock policy introduces the notions of competition and exclusion in order to determine which services should be financed by the public sector. Services with low competition (that can benefit many) and that require high investment, such as laboratory or parasite control tanks could be financed by the State and eventually managed by private sector.

The respective responsibilities of private and public sector for the financing and execution of the different functions to be develop for the development of livestock production, have been established. Some, such as epidemiology control must be financed and implemented by the public sector. Others, such as vaccination should be financed, coordinated and monitored by the public sector but implemented by private sector under contract or partnership. The provision of veterinary assistance is under the responsibility of private sector, or eventually private-public sector partnership and should be paid for by the users.

According to the livestock development policy, the public sector should:

 Train technicians

 Control epidemic diseases

 Execute epidemic vaccinations

 Disseminate techniques to small scale farmers

Other functions should be undertaken by private sector, such as provision of veterinary assistance or treatment of ticks.

Others could be conducted by both private and public sectors such as:

 Control emergence of diseases

 Laboratory diagnosis

 Execute obligatory vaccination

 Animal repopulation

Results foreseen: link and coordination among players

In Lago District, when NGOs distribute animals, they require the support of the DDA to select the beneficiaries. In Muembe District the DDA is also involved in training oxen for draught power, support beneficiaries of animal distribution by NGOs, as well as for the provision of kit and treatment products to community promoters of animal care. Kit and treatment products are acquired with provincial outsourcing funds. In Mavago District, there is a provincial outsourcing project that distributes goats. The NGO informs the DDA about its distribution activity and DDA technicians are requested to vaccinate with the NGO team, using their vaccines, as well as to ensure animal care. However, the DDA has no treatment products.

Result foreseen: Support in accordance with core functions

92 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

All functions that the public sector is supposed to do according to the livestock production development policy are undertaken (training of technicians, control of epidemic diseases, vaccination, dissemination of techniques to small scale farmers). No private services were developed. Some attempts to give the management of rehabilitated infrastructure to private sector (dip tank for example) were made but failed because the farmers did not pay for the service. According to the DPA, the private sector has shown little interest in managing infrastructure due to the high costs involved. In 2005 in Niassa Province, , provincial outsourcing projects were promoting community animal care providers.

In all the surveyed districts, none of the interviewed farmers knew about such private services (see Annex 3).

In Muembe District, a provincial outsourcing project promoted the training and equipment of community animal care providers by DDA, financing kit and drug acquisition.

Result foreseen: infrastructure rehabilitated

Little has been done regarding the rehabilitation of infrastructure. In Lago District one dip tank has been rehabilitated in 2000 by the DDA, but MICOA did not allow its use because of poor environmental impact. According to the technician in charge of livestock production in the DDA of Lago. No infrastructure, was developed even with local material. In Muembe District, no infrastructure was rehabilitated, while in Mavago District, DDA technicians promoted the construction of improved corrals in coordination of the outsourcing project.

None of the farmers interviewed mentioned any rehabilitation of infrastructure for livestock production.

Result foreseen: increase of animal population

In Lago District in 2004, NGOs distributed animals with the help of DDA for selection of beneficiaries. In 2005, the DDA received 9 cattle for animal power, which were distributed to 2 farmers associations with respective equipment, on credit. But one year after, none of the associations is using animal traction. One, because they do not have the chain to pull the plough, added to the fact that only one of the animals is in a state to work. The other, because the training of the animals is just beginning. Each association has already lost one animal and of the others, 4 are in a very bad state. The technician for livestock production has been asked many times by the farmers to treat the animals. He either could not go because of lack of fuel (as this is not a planned activity) or went but could not make any diagnosis because the provincial laboratory was not working.

In Muembe District, the activities report informs that Irish Aid financed goat distribution (25 goats distributed to 3 families in 2000; 75 sheep for 25 families in 2003). The DPA/SPP distributed 11 cattle to 3 families in 2003 and NGOs distributed goats and sheep. In 2005, an NGO distributed oxen for animal traction.

93 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

In Mavago District, the 2005 activities report mentions the distribution of 55 goats to 9 associations. The 2005/06 campaign balance report mentioned the distribution of 90 goats to 30 families with the support of the outsourcing project.

In Lago District, the number of cattle increased to 500, the goats grew from 9440 to 12000 and pigs from 250 to 3000 between 2005 and 2006. In Muembe District, the number of cattle grew from 52 to 63 between 2003 and 2005.

In Lihinga District, none of the interviewed farmers had received animals from the DDA or NGOs, while in Lago District 29% of male small scale farmers received animals, no women received any. In Mavago District also, the distribution of animals was directed to men exclusively (21%), while, in Muembe District the same proportion of women and men received animals (13%) (see annex 20 north).

Result foreseen: decrease of specific diseases

In 2006, the DDA of Lago received 12000 vaccines against Newcastle Disease for a chicken population estimated at 15000. 8000 vaccinations were carried out. Community members were trained to do vaccinations. The products for external treatment were not sufficient. Being a border area, the DDA of Lago insures epidemic vigilance and makes health campaigns in the villages when necessary.

One extensionist of the DDA of Lichinga said that they did not receive any goat vaccines for 2 years. The amount of vaccines received for chickens in Lago, Muembe or Lichinga Districts corresponded to the needs, according to the technicians, but arrived late. As a result, the first dose of Newcastle vaccination did not meet the needs although the amount of vaccine was sufficient. The 2004 activities reports informs that only 91 chickens received the first dose, while 2479 received the second dose. In Mavago District one extensionist said that they do not have problem of late allocation of Newcastle vaccines, but that there were expired medicines, which induced a high chicken mortality. According to the activities report, the vaccinations made did not meet the needs. The 2005 activities report shows that 3739 chickens were vaccinated against Newcastle among a population estimated at 12000. In 2005/06, 1175 chickens were vaccinated.

None of the groups of Lichinga District mentioned any problem of animal mortality. However, one extensionist explained that all the cattle of the district died in 2004. The farmers complained about the lack of mechanisation. Lack of veterinary assistance was mentioned by the 2 groups of farmers, as a major matter of concern for women.

In Muembe District, the 2000 activities report mentions the lack of veterinary assistance that induced animal mortality. In Mavago District, Newcastle disease killed most of the chickens and it is now difficult to find any (even to see one). This problem is presented as a major matter of concern for the women and young farmers as it is the only way they have to get money regularly since marketing is very weak, being a remote area with bad road access (see annexes 1, 2).

94 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Extension Services

Before PROAGRI I

Previous Support for Consolidation of the Extension Network

Between 1993 and 1997, Mozambique saw its geographical coverage of public extension network increased from forty to forty nine due to the support of three new international partners: World Bank (Agricultural Rehabilitation and Agricultural Services Rehabilitation and Development Project -PRDA and PRDSA), FAO and Sasakawa Global 2000. The extension service was consolidated and equipped with vehicles and field equipment. In addition, in 18 districts, public extension operated in partnership with international agencies, such as the then EEC, GTZ and UNICEF that were financing extension activities in areas receiving humanitarian assistance.

During the same period, there was a quick emergence and rapid expansion of NGO extension activities. In the whole country, the number of international NGOs increased from 30 in 1994 to 67 in 1997. The rapid expansion of extension services was achieved through a series of fragmented projects funded by a variety of donors, with little interaction with the public extension managers. As a result, the number of extensionists and the areas covered increased, but with variation among the different networks, in term of number of technicians per district, available resources, as well as in term of approach21.

Private extension emerged in 1990 and 1991 in the northern provinces with the goal of expanding cotton production. Private firms formed joint venture companies in a large area and provided support to farmers through voluntary contractual partnerships. The companies provided seeds and pesticides to farmers who sell them their production. The companies also provided technical assistance through field monitors.

Extension Strategy and Master Plan

In reaction to the lack of coherence of the extension services the government first developed a long term strategic plan that began in 1993-94. A year later the preliminary extension master plan was prepared, along with guidelines for coordinating its implementation. Those two documents laid out five central features of public extension:

 Geographic concentration (operating in half of the districts of the country);

 Agro-ecology (give priority to high potential areas);

 Two approaches, one regarding food crops, the other cash crops;

 Decentralization: gives responsibility to the provincial service of extension;

 Pluralism, that aims to promote private sector extension, private enterprises and NGOs.

21 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press. 95 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

In 1997, the public extension service prepared the first Extension Master Plan covering 1998 to 2003 that included a number of innovations. A unified extension programme was adopted, involving crop production, livestock and natural resource management. The plan also called for a functional partnership between public and private extension services, including outsourcing and increased links with other institutions such as research, agriculture service and marketing22. The orientation of the Master Plan are reflected in the master document.

Unified extension started in the 1998-99 agricultural season involving the collaboration and coordination of activities among the extension service and other Ministry of Agriculture services, such as livestock, forestry and irrigation. Practically, that implies multipurpose extensionists in the field, assisted by experienced Subject Matter Specialists, as well as strong linkages between farmers, extension and research23.

Methodology

The public extension adopted the Training and Visit model that consisted of working with one contact farmer per village, doing experiments in his /her field with visits every two weeks. DNER decided to modify the Training and Visit system in order to adapt it to Mozambique conditions and the different environments in the extension networks. Two main changes were made. Instead of working with one contact farmer per village, the extensionists were directed to work with groups of farmers in order to increase the number of farmers directly involved and increase the possibility of identifying more talented farmers. Each extensionist had to work with 8 to 16 groups with an average of 225 farmers per extension agent. The rigid timetable of one visit every 15 days was removed, allowing the extensionists to develop more flexible meeting times.

The extension Master Plan has been integrated in the extension component of PROAGRI I.

Extension in PROAGRI I

Efficiency of Extension

Results foreseen : producers knowledge strengthen on the better utilization of work force and agricultural inputs, as well as soil and water resources. Established and consolidated farmers organizations. Market oriented extension

The techniques that the extension agents said they disseminated are: agricultural calendar, spacing, crop rotation, seed beds in line, seed selection, improved seeds, fight against pests, production storage, improved livestock production, building of improved grain stores, animal care. Extension agents indicated that they also support the consolidation of associations, vegetable crop and fruit production.

22 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press. 23 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press. 96 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The number of farmers assisted varies from 1000 to 4000 per district. Extension agents disseminate technical messages through farmers groups of 15 to 25 members.

In Lichinga District the number of extension agents was reduced from 20 to 10 and the number of farmers assisted in 2005 was 832, organized in 44 groups, an average of less than 5 groups per extension agent.

Organization of farmers is one area in which the provincial extension service trains the extension agents and monitors the related activities in the field. The DPA also organized exchanges of experiences among DDAs regarding the creation and support of farmers’ organizations.

In some districts of Niassa Province, the number of associations is high due to the work done by NGOs. In Lichinga District there are 45 associations, according to one extension agent (67 according to SPER); while in Lago District, where the DDA has no extension network, the number of associations created is only 6. There is no mention of creation of associations in Muembe DDA, which has no extension network either. In Mavago District, in 2004 and 2005, 4 farmers’ associations only were created for specific activities such as cassava or fish production and a total membership of 32.

Those associations are supported for vegetable production, crop production in wet areas, as well as participation in rural fairs, where they can get inputs at low prices. The associated farmers also receive improved seeds, fertilizers and pesticides from DDA. They generally have a common field where they receive technical assistance from extension and the income allows the group to invest in production means.

No market oriented extension was developed. Farmers’ associations were not trained to negotiate with traders. They were just advised to bulk their produce to sell at a better price. No link was established with traders, nor with credit institutions to allow the associations to bulk their production. The activities implemented by extension regarding marketing limited to advising the farmers to keep the produce until the prices increased, and to market prices.

Results foreseen: decentralized extension system in place where the farmers are fully engaged in the design, implementation and evaluation of the service

The definitions of technical messages are not made in a participatory way. In many cases, they are predefined or are the result of a meeting of the extension team. At the end of the agriculture season, the farmers are invited to compare the result of the demonstration field with the result of a farmer that did not apply the improved techniques.

Result foreseen: extension relevant to the different technology and socio- economic constraints of farmer, especially women and young farmers

Extension addresses mainly technical constraints (which seeds, how to save, how to treat, etc.) without considering social issues. Most of the extension agents interviewed extensionists said that the technical messages are the same 97 Volume II-B Evaluation of the First Phase of National Agriculture Development Program for all categories of farmers. No orientation or training was developed to guide a social and-economic approach to extension.

Result foreseen: Unified and consolidated extension system. Dissemination of information among extension agents and regular training. Qualified supervisors and all extensionists with medium or superior level.

A unified extension system has been established, mainly by the integration of livestock production issues that are systematically included in extension programmes with technical support from technicians specialised in this area. In some DDA wildlife and forestry issues are also included in extension programmes, for example uncontrolled fires or community management of natural resources. But there is no specialised technician to assist extension in this area. Other issues included, are plant protection, post-harvest issues, as well as, in some cases, small scale irrigation, cashew and association consolidation.

In Niassa Province, between 2000 and 2005, the number of extension agents of the DDA in Lichinga was reduced from 20 (among which are 3 supervisors) to 10 (including one supervisor). Only two have middle academic level.

Most extension agents consider that they receive the technical information they require to deal with farmers concerns, with variation among the provinces and districts.

All extensionists in the survey said that they have also access to technical documents. In the DDA of Lichinga all extension agents consider that they have the technical information they require.

Training is the way the technical information is disseminated among the extension agents. This activity used to take place every 3 months, including refresher training before PROAGRI I. It has been dramatically reduced since the launch of PROAGRI I. Training took place only once a year on specific techniques, such as livestock production, association development, soil conservation; correct use of pesticides or fruit tree production.

With the support of PDAN, some extensionists received formal training to increase their academic level. Some extension agents of superior academic level, but many quit their contracts to work with NGOs, which are numerous in the province. In Lichinga DDA, one extensionist was sent to Cuamba University in 2003 to upgrade from middle to superior level. In 2000 one supervisor of superior academic levelwas recruited. However, in that DDA 4 extensionists quit their contracts, one who was of superior academic level and two of middle academic level, to work with NGOs, and one to be permanent secretary of the district government. To date, they have not been replaced due to the difficulty to find technicians of the superior academic level.

Many extension agents complained about the decline of their work conditions in terms of equipment. Before PROAGRI I they had a complete extension kit, tape measure and uniform, and these were renewed annually and each extension agent was provided with a motorbike by PDAN, that they still have. Since the launch of PROAGRI I, DDAs does not provide fuel or maintenance. 98 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Result foreseen: reinforcement and systematization of collaboration between extension and research staff. Joint farming analysis, on-farm research, training and technology review meetings

The reduced budget of PROAGRI did not allow the activities that would promote the systematization of links between research and extension. Activities were planned but budget cuts did not allow their implementation. However, some activities took place, for instance on-farm research, the dissemination of adapted improved seeds and eventually the dissemination of techniques to overcome some of the problems of the farmers.

Two extension agents of the DDA of Lichinga mentioned that relationship with the research center was good. Regularly, technicians of research center come to consult extension about their problems. Also, when the extension agent has a problem, he/she consults the research center. Where there is no extension, the link is more limited. For example, in Lago District, the link with research was limited to the training in seed production.

Effectiveness of Extension

Extension never received the budget necessary to implement all the required activities. Activities prioritized by DDAs are systematically reduced during the approval process at the DPA level. Furthermore, the effectiveness of extension is affected by the late provision of funds that inhibits undertaking all the approved activities.

If extension contributed to improve production techniques of farmers

The acquisition of knowledge is effective among the farmers and very well disseminated in some districts, such as Lichinga, where more than 90% of farmers said they have learned new techniques through DDA services and in radio transmissions (see Annex 3).

The data obtained from the groups of farmers interviewed confirmed that the extension work succeeded in convincing the assisted farmers that the use of improved seeds, as well as the use of herbicides or fertilizers leads to higher production. Many began to produce vegetable crops.

In Niassa Province, the farmers in the districts near the border with Malawi manage to get agro-chemicals from the private sector (around 40% of farmers that use agro-chemicals get them from private dealers in Lichinga District). In Lichinga District, 100% of small scale farmerswere taught about agrochemicals and now, use pesticides and fertilizers. 87% of female small scale farmers learnt new techniques and 73% use pesticides, 80% use fertilizers. Some farmers use animal power or rent tractor (14% of male, 7% of female). In Lago District, there is no extension network, but around 50% learned techniques from DDA. The use of pesticides and fertilizers has been promoted by private sector to the majority of farmers that now use this input. However, only a small proportion of farmers use those inputs (29% use pesticides and less than 40% use fertilizers). All use 99 Volume II-B Evaluation of the First Phase of National Agriculture Development Program improved seeds that are provided by the DDA, but none use tractors or animal power.

If extension contributed to more effectively market farmers products at better price

In the district of Lichinga, the support of DDA for marketing is quite weak. However, marketing is not a matter of concern for farmers since no mention of it was made by the groups (see Annexes 1 and 2).

If extension addressed farmers concerns, especially youth and women

Through the use of participatory techniques with groups of women and young farmers, the quality of communication between those categories of farmers and the extension agents was assessed.

In Niassa Province, where there is an extension team (like in Lichinga District), 100% of farmers said they were consulted about their problems. In one village visited, the work with the groups showed a good communication between the farmers and extension agent. In the other village, the extension had interrupted its assistance for some months and consequently none of the concerns were collected (see Annexes1, 2, 3, 4, 5 and 6).

Though farmers were storage consulted about their problems, most of the time, the extension agents did not address them. Major farmer concerns were pests and diseases, produce and advice on which treatment products to buy (in Malawi for Niassa Province). These are no properly addressed by extension. Pests and diseases issues have been mentioned, as a major matter of concern by groups of women and young farmers.

Among the problems faced by the farmers, some might have technical answers but the general tendency of extension and research is to consider agro-chemical as the only answer and as those products are not available, that does not solve the problems. There is no proposal of alternative technological packages. This is the case of the problem of pests, weeds, compaction of the soil by the rains in Lichinga District. However, the agricultural station of Lichinga said that alternative technology was proposed but was not utilized by the farmers. Also the Lichinga DDA transmitted to the agricultural station of Lichinga two problems of pests in maize, and did not receive any answer.

Other needs such as livestock tools, agro-chemical acquisition could not be addressed by extension due to the limitations of the PROAGRI planning system for farmers. These are clearly production-limiting factors, especially in high agricultural potential areas like the Niassa Province.

The activities of technical assistance to farmers are similar from one area to the other in terms of strategy. Agricultural potential is not a factor considered in planning production expansion. Proposals are not made to overcome production limiting factors, such as the weed issue in Niassa Province limits the extension of cultivated areas and cannot be addressed by mechnical means.

100 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Research

There are two zonal research centers are in the Northern provinces. The agronomic post of Nampula coordinates the research activities in the different research institutions that constitute the Northeast research center, which includes the provinces of Nampula and Cabo Delgado and part of Niassa Province. The agricultural station of Lichinga coordinates the research activities of the institutions which comprise the Northwest research center, which includes the highlands of Niassa Province, as well as the highland of Zambezia and Manica Provinces.

Result foreseen: close integration in the field between extension and research with the use of common dissemination vehicle

The results of the research are disseminated in coordination with extension through the implementation of demonstration fields (CDR), as well as on-farm research with the contribution of farmers. Service provsion was weaker than before, because of late provision of funds and cuts in budgets limiting fieldwork.

In Niassa Province, during the support of PDAN (until 2004), the extension agents of the DDA of Lichinga received referesher training and courses on new techniques at the beginning of each season at the agricultural station of Lichinga. At that time the technical package to be disseminated to farmers was defined. Periodical technology reviews (REPET) were also regularly organised. All those activities stopped at the end of the PDAN support.

Result foreseen: research institutes propose technology focused on small scale farmers and women’s issues

Some of the research programmes are made in coordination with NGOs that work with small scale farmers. Extension also brings to research centers concerns collected from the small scale farmers. Other research programmes are determined by the link with research centers of other countries or other provinces of Mozambique, particularly research on adaptability of new varieties. Transversal themes are also the object of research, such as soil fertility, crops protection, spacing or crops associations.

In the Northeast research centre, there is no clear socio-economic approach in the definition of the research programmes, hence no development of women related issues. The clear objective of research programmes is to increase the production considering only the technical aspects of production and not socio- economic issues. The Northwest research centre conducted production systems diagnosis aiming to address the limitation factors, with gender distinction. Economic analysis of technologies is also undertaken, with determination of the technologies most appropriate to small scale farmers.

The results of the surveys and participatory techniques applied to groups of farmers show that many concerns, such as storage of production, pests, animal adaptation to different agro-climatic conditions, weed removal or soil compactation are not addressed and most are not included in research programmes. Pests are one research theme undertaken by the research 101 Volume II-B Evaluation of the First Phase of National Agriculture Development Program centres, but no satisfactory solutions for small scale farmers have been proposed.

Until the recent decentralization of this sector, there were many difficulties to access the approved funds that were allocated to the DPA. The Director of the Northwest research center estimates that only 10% of the approved budget was actually released.

Representation by stakeholders, in particular farmers at zonal council level in research programmes

In the Northeast research centre, before the launch of PROAGRI, there were a group of partners composed of NGOs, DPA, provincial services and farmers representatives that contributed in the definition of research programmes. However, this group has stopped functioning since the launch of PROAGRI I due to lack of funds. During PROAGRI I research programmes were designed in coordination with DPAs and NGOs.

Field days and seminars at the end of each agriculture season were used as an opportunity to determine research subjects with the stakeholders.

Rehabilitation and establishment of regional research center Training and development of human resources

Four agro-ecologic zones have been defined: south, center, northeast and northwest. The northeast zone includes Cabo Delgado and Nampula Provinces, as well as part of Niassa, Zambezia and Tete Provinces.

The Northwest research centre is composed of 5 buildings, of which 3 are in Niassa Province and were rehabilitated and equipped with the support of PDAN and are functioning: the agricultural station of Lichinga, the technology transfer and training centre and the agricultural province training centre. The centres for animal and forestry research are not functioning due to lack of human resources, equipment and laboratory. Presently, the Northwest research centre has no master degree staff. The technical staff is composed of 5 technicians of superior level education, 9 of medium level and 8 of basic level. With the support of PDAN, two people had formal training in the University of Cuamba and two in the Institute of Chimoio. Many informal training sessions were provided (research techniques, recycling, participatory techniques, etc.).

102 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Land Management

Result foreseen: geographic information available in the province

The geography and cadastre service of Niassa DPA does not produce maps, although the staff is trained and the service equipped with computers and GPS (due to the support of Irish cooperation). The service lacks space to develop its activities, having only three rooms. The requirement to survey land boundaries is done manually.

Trained and motivated DINAGECA staff in province

In Niassa Province, only one technician came from DINAGECA but then was transferred to Sofala Province in 2005. Four technicians were contracted.

Land registration process simplified

The number of land registrations is steadily increasing. In 2004, 86 were undertaken by the service, 111 in 2005, according to the director of this section.

Increased income generation

Land taxes and payment for the services provided by the geography and cadastre section constitute the main means of income generation for this sector.

Irrigation

All DDA received treadle pumps to be sold to farmers. The number of pumps received by DDA varied from less than 10 to more than 100, when a project supported the initiative. Two models were provided, one large and one small.

The results, in general, are not very positive for many reasons:

 Some DDA did not receive the complete equipment, missing the connection tube

 The connection tube of the large model of pump is flexible and easily frayed by rats or during the emplacement;

 Women cannot operate the big model and have to hire young men;

 It is necessary to wear shoes to operate the pumps, which is an item that few farmers can afford;

 In many cases, the spare parts are not available in the province. However, according to the SPA, an agreement was made with local traders to provide the pumps with spare parts.

In 2006, the rehabilitation of irrigation schemes began. According to SPA 150ha in Niassa Province were rehabilitated. In the same province, the agriculture services also provide technical assistance to farmers that are using gravity irrigation.

103 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Forestry and Wildlife

Leasing to private sector or communities through contacts that include specific provision for the protection against fire and for the control of natural regeneration

The regulation function of MINAG was promoted through the elaboration of Law and respective regulation for land24 and Forest and Wildlife25. According the provincial head of wild life and forest the regulation emitted in 2002 clarified the procedures for forest exploration and its control.

The forest and wild life legislation includes measures that tend to control the sustainability of the natural resources exploration. It is required the elaboration of inventory of resources by the proponent, as well as the submission of exploration plan. There was an increase of the number of licenses of forest exploration by contract of forest concession.

Since 2005, 20% of exploration fees should revert to the communities included in the concession area.

Part of Mavago District in Niassa Province is included in the Niassa Reserve. Two blocks were allocated to private operators for hunting. But the administration of the DDA has no information of the management of the reserve, nor about the quota of animals that the private management is allowed to kill per year, nor about the decisions taken during the community consultation. The administration of the Mavago DDA did not receive any clear guidance about the control they were supposed to undertake regarding this reserve.

Result foreseen: community in charge of sustainable management of game, timber or eco/tourism areas

The newly developed Forestry and Wildlife Law and Land Management Law and corresponding bylaws are emphasizing and transferring the management of natural resources to communities. There are zones where the communities have official land rights and the related power to decide on it. When anyone wants to undertake activities it is up to the community to authorize. The communities are the real owners of the resources. In the case of request for exploration by private operator, the community has to approve. Otherwise, the operator has to go and look for alternative areas to undertake the activity. In case of approval, the community has the right to decide on how to use the 20% revenue. This process however has to start with the evaluation of the potential by provincial services with participation of the communities. The communities have to be trained for this. The community leaders are key to this process. A business plan has to be developed for the activities to take place.

Sustainable Development Centres of the Ministry of Environment and the Mozambican Agricultural Research Institute (IIAM) of MINAG provide policy,

24 Lei nº19/97 de 1 de Outubro, Decreto nº66/98 de 8 de Dezembro e, Diploma Ministerial nº 29- A/2000 25 Lei 10/99, de 7 de Julho, Decreto n.º 12/2002, de 6 de Junho, e Decreto 11/2003, de 25 de Março

104 Volume II-B Evaluation of the First Phase of National Agriculture Development Program strategic and technical support for NRM matters. The development of integrated district plans provides an opportunity for mainstreaming NRM priorities into the provision of agricultural extension services.

The routine activities of the service are the dissemination of land, forestry and wildlife laws to communities, as well as the mobilisation of community leaders for the control of illegal hunting or uncontrolled fires. In Muembe District, Niassa Province, the technician of forestry and wildlife is organising associations of charcoal producers, in order to allow control of the activity by themselves and ensure a sustainable use of this natural resource.

Land clearing practices for agricultural expansion, deforestation due to the increased demand for charcoal and fuel wood for consumption in urban areas have continued as well as indiscriminate bush burning for hunting or grazing purposes or because of out-of control slash and burn practices, as well as poor farming practices, physical and chemical soil erosion, due to poor crop cover and exploitative use of steep sloping land are typical additional hazards, as is poaching (IFAD, 2005)26.

Cross-cutting Issues

Gender

Gender issues are included in the activities of more than 80% of the extension agents, but consist mainly of including women in the activities, such as vaccination, or vegetable production. However, there are no specific activities directed towards women, based on an understanding of women’s concerns.

Women’s associations were created in Lichinga District for vegetable production.

In Niassa Province, in some districts, the women are clearly excluded from some activities, as shown by the results of surveys made among the farmers in Lago and Mavago Districts. In Lago District, only men benefited from animal distribution. Only 14% of women are consulted by the DDA technicians and none are satisfied by DDA services, against respectively 71% and 29% for men. None of the women were taught by DDA services how to use pesticides or fertilizers, while 50% of men were. None of the women received planting material against 29% of men. None of the women was taught seed storage against 14% of men. In Mavago District, none of the women learnt techniques from agricultural services, while 71% of men were taught in demonstration fields; none received planting material, while 13% of men did; none received improved seeds or animals, against 54% and 21% of men respectively. In Muembe District, the gender discrimination was in favour of women who benefited more than the men from services provided by the DDA. 71% of women were taught techniques in demonstration fields against 32% of men; 71% of women were consulted by DDA technicians, while only 28% of men were. The distribution of planting material

26 AGRICULTURAL SUPPORT PROGRAMME, FORMULATION REPORT. WORKING PAPER 2: AGRICULTURAL DEVELOPMENT. 2005

105 Volume II-B Evaluation of the First Phase of National Agriculture Development Program and animals benefited the women more (29% and 4% respectively) than the men (8% received planting materials and none, animals).

However in Lichinga District, the situation is more balanced (but still in favour of women in some cases), such as for distribution of planting material (60% of women received, 43% of men) or awareness regarding agro-chemicals toxicity (see Annex 5).

There are activities that exclude women in a certain ways. This is the case of the model of treadle pumps that was distributed to farmers for vegetable crop production and that women cannot use, which contradicts the view of many technicians who gave the example of vegetable production as a woman-directed activity.

HIV

In Niassa Province, 70% of staff integrate AIDS related issues into their work, but only 33% of extension agents (see Annex 6).

100% of private farmers were taught about HIV issues and more than 95% of small scale farmers but most was not informed by agricultural staff, but by health staff, school or health services or NGOs (see Annex 3).

Environment

90% of staff said that they integrate environmental issues in their activities, but this consists mainly of activities related to uncontrolled fires, reforestation (with NGO support), erosion mitigation, advice to preserve pasture, and correct use of pesticides. Few (40%) have the handbook regarding the mitigation of environmental impact edited by MINAG (see Annexes 4 and 6).

In Muembe DDA, the forestry and wildlife technicians work with communities where there are charcoal producers, in order to organise them to promote the sustainability of this activity in terms of natural resource exploitation. The objective is to allow communities to control its own natural resources exploitation.

The awareness regarding the toxicity of agro-chemicals is not as well spread in Niassa Province. The district of Mavago is the one where the awareness is the lowest. In that province also, even when they know that the agro-chemicals are toxic, not all farmers are informed about the measures to.

106 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Lessons Learned and Recommendations

Decision Making Process for Activities to be implemented by DDAs

The decentralization process tried to allow appropriate decision making and better address farmers’ needs and concerns. Two main factors compromised this objective:

 the approval process of PAAO without consulting the field staff who are in contact with local farmers;

 the low budget allocation to provincial services and DDAs which did not correspond to the approved budget and arrived late.

The decentralised planning and implementing system established by PROAGRI did not allow the implementation of activities such as seed or animal distribution on credit. However, such activities are implemented out of the decentralised planning system, through central decision making process. In many cases that has led to poor results due to the failure of DDA to provide the required technical assistance because there are no funds available for fuel and per diem for activities not included in the PAAOs, or the inappropriateness of the technology.

All decisions related to activities to be implemented by DDAs should involve the DDAs in the decision making process to allow appropriate technology choice, better collaboration in implementation and to insure the availability of required human, financial and material resources for technical assistance.

Improvement is required in financial and material resource allocation to better fit with the planned activities. To mitigate the consequences of late before the allocation of resources the first quarter, a provisional budget could be allocated, before the the 4th quarter budget. Mechanisms to link budget to plan should be implemented at central and province level.

Planning at District Level

The PAAOs are supposed to be developed on the basis of the PAAOs made by DDAs, integrating farmers’ consultations. In reality, the DDAs have little possibility to actually address the local production limitations for two main reasons:

 They do not have reliable data on which to base the review of the agricultural campaign (TIA is not specified at district level);

 They cannot integrate most of the farmers concerns’ because those are rejected by the planning software and some that are integrated are then cancelled at province or central levels.

The planning framework (software) is established centrally and tends to promote a standardization of DDAs’ activities, not allowing the development of specific development strategies according to the socioeconomic context and agriculture potential, which can be very different from one district to the other. That is in contradiction with the purpose of decentralization which tries to better answer farmers’ concerns. For example, the strategy cannot be the same in districts with 107 Volume II-B Evaluation of the First Phase of National Agriculture Development Program high agricultural potential situated near a main road, where the farmers could be supported to increase their farming area and develop new production, compared to an area of high potential situated in a remote area, where the farmers could be supported to transform their production locally (to make oil, for example) to mitigate the impact of high cost of manufactured products. Also areas characterised by rainfall irregularity should have specific support to overcome this climate limitation.

The PAAO software rejects activities that provincial outsourcing projects are implementing (animal or seed distribution).

DDAs should be given the means (in terms of data and human resource capacity) to conduct planning based on a cross analysis (technical, based on reliable data, and participatory, based on farmers contributions) of the agricultural campaign. The development of district agricultural development strategies should be promoted, based on the analysis of limiting factors, taking into account the socio- economic context and agricultural potential.

Pests and Diseases

Pests are still a major matter of concern for most of the farmers and the agriculture services has not developed a clear and efficient strategy to overcome this problem. The issue of pests and diseases should be addressed more systematically and seriously, by research and extension. The different categories of pests (from insect to elephant), should be considered in order to develop specific strategies. For animal pests, experiences of farmers, extension agents, NGOs, game parks or research centers from other countries should be solicited, taking into account but not limited to the cases of cultivated areas situated in natural reserves.

Regarding insects pests, alternative technology packages should be developed, mobilizing knowledge from NGOs, research institutes or internet.

Seed Issues

The seeds distributed by the DDA are appreciated for their quality (good varieties, well conserved), but the quantities are far from enough. As a result, the improvement of quality of seeds produced by the farmers is compromised. This situation does not allow the improvement of quality of the seeds.

The objective of developing a strategic seed reserve needs a clear strategy and means to implement it. There should be different strategies, according to the agro-ecologic conditions.

Where the climatic conditions are favourable, when a new variety of seed has to be introduced, the strategy initiated in Niassa Province could be developed: teach selected farmers how to produce seeds that will be sold to other farmers.

108 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The issue of maintenance of seed quality should be addressed through availability of seeds at reasonable prices (the production of seeds by farmers is a good solution at that respect).

Livestock Production

Animal acquisition is no longer a major problem for the farmers, except in some districts due to the livestock restocking programmes conducted during PROAGRI I. What affects the farmers most now is the death of animals. Animals are expensive to obtain, and are considered as an insurance to provide against any difficulties faced by the farmers. The loss of an animal is, for this reason, a major matter of concern for farmers.

The only veterinary service available in the northern provinces remains the DDAs, but with reduced means to provide the required services.

The experience of transferring some services to farmers groups, associations or communities should be evaluated in order to estimate their capacity to provide, in a sustainable way, services necessary to reduce animal mortality.

109 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 1

Interview Groups of Women, Niassa Province

Problems Nº of ratio Nº of groups that gave the following answers presented groups related to DDA services that Do not Waiting Unsatisfactory No presented consult for the answer answer the DDA answer problem

Production and post harvest problems Lack of technical 2 0.5 2 assistance for livestock production Animal pests 1 1 1 Pests and 5 0.4 2 3 diseases Animal mortality 2 0.3 1 Lack of oil press 1 0 Lack of grain mill 2 1 Lack of tractor or 4 0.8 1 1 animal pulling power Seed conservation 2 0.05 1 1 Tough to remove 3 1.3 2 1 weeds Marketing problems Low prices 1 0.6 Lack of buyers 2 0.3 1 Access to inputs Improved seeds 1 1.2 1 insufficient Improved seeds arrived 1 1.3 1 late Lack of fertilizer 2 0.6 1 Lack of wheat seeds 1 0.3 High cost of tools 2 0.6 Lack of good quality 1 0.8 1 tools Access to inputs Lack of seed 2 0.6 2 conservation product Lack of improved seeds 1 0.4 1 Can’t afford fertilizer 1 0 Other No support to create 1 1.2 1 farmers association Can’t afford chicken 1 1.4 1

110 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 2

Interview Groups of Young Farmers, Niassa Province

Problems presented Nº of groups that Nº of groups that gave the following answers regarding DDA Ratio presented the services problem Do not consult DDA has no unsatisfactory waiting for the DDA response answer response Production and post-harvest problems Tough to remove weeds 2 2 1 Lack of tractor or animal pulling 1 0.3 1 power Lack of veterinary assistance 3 0.2 1 Lack of technical assistance 2 0.7 Pests and diseases 4 0.9 1 1 Lack of pump for horticulture 1 0 Lack of oil press 1 0.7 Production conservation 1 0 1 Animal pests 1 1 1 Marketing Low prices 1 0.6 Lack of buyers 3 0.3 1 Access to inputs Lack of horticulture seeds 1 0.3 1 Can’t afford animals 1 0 1 Lack of improved seeds 4 1.1 3 Lack of fertilizer 1 0 High cost of tools 2 0.1 1 No hoe in market 2 1.4 Other Only old farmers received goats 1 1.3 1 Lack of chickens 1 0.7 Promised cattle didn’t arrive 1 0

111 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 3

Analysis of Producer Surveys: Women Smallholder Farmers

Province: Niassa Total respondents: 32 yes no %yes %no

Did his /her knowledge increase due to the extension services? 21 11 66% 34% Does she/he receive a technical message by radio? 28 4 88% 12% Is she/he member of a producer organization? 30 2 94% 6% Do the extension agents help for marketing of her/his production? 10 22 31% 69% Do the extension agents consult about his/her problems? 22 10 69% 31% Do the extension agents give answer to her/his problems? 15 17 47% 53% Did he/she adopt a technological package for treatment of crop 18 14 56% 44% disease? Does he/she use pesticide 15 17 47% 53% Who teach MINAG 9 60% NGO Private 6 40% Where pesticides are bought MINAG 9 60% NGO Private 6 40%

Does she/he use fertilizer? 19 13 59% 41% Who teachs MINAG 10 53% NGO Private 9 47% Where fertilizers are bought MINAG 10 53% NGO Private 9 47%

Did she/he hear about environmental issues related to agro-chemical? 25 7 78% 22% Does she/he know the effect of those products on food crops? 20 12 63% 37% Does she/he learn techniques from a demonstration farm? 23 9 72% 28% Does he /she currently participate in rural fairs? 19 13 59% 41% Does she/he get market information 11 21 34% 66% Does she/he use animal traction or tractor? 1 31 3% 97% Did she /he receive any root or tuber planting material? 11 21 34% 66% Does she/he have loss when conserving seeds? 20 12 63% 37% Was she/he taught improved storage of seed? 14 18 44% 56% Does she/he get improved seed? 25 7 78% 22% Does she/he produce improved seed? 0 32 0 100% Does he/she currently receive information about next season’s climatic 17 15 53% 47% condition? From where MINAG 17 100% NGO Private Is there private veterinary 0 32 0 100% Is there others private services for livestock producers 0 32 0 100% Received livestock form agriculture or NGO 1 31 3% 97% Received orientation to avoid pastures degradation 4 28 12% 88% Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 32 0 100% Parasite control tanks? 0 32 0 100% Animal pens? 0 32 0 100% Testing and diagnosis laboratories? 0 32 0 100% Has he/she received information about HIV/AIDS prevention? 31 1 97% 3% from who MINAG NGO 5 16% Other 26 84%

112 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Analysis of Producer Surveys: Men Smallholder Farmers Province: Niassa Total respondents: 70

yes no %yes %no

Did his /her knowledge increase due to the extension services? 31 39 44% 56% Does she/he receive a technical message by radio? 48 22 69% 31% Is she/he member of a producer organization? 53 17 76% 24% Do the extension agents help for marketing of her/his production? 20 50 29% 71% Do the extension agents consult about his/her problems? 39 31 56% 44% Do the extension agents give answer to her/his problems? 30 40 43% 57% Did he/she adopt a technological package for treatment of crop 30 40 43% 57% disease? Does he/she use pesticide 27 43 39% 61% Who teach MINAG 19 70% NGO Private 8 30% Where pesticides are bought MINAG 19 70% NGO Private 8 30% Does she/he use fertilizer? 30 40 43% 57% Who teachs MINAG 12 40% NGO Private 18 60% Where fertilizers are bought MINAG 12 40% NGO Private 18 60% Did she/he hear about environmental issues related to agro-chemical? 41 29 59% 41% Does she/he know the effect of those products on food crops? 33 37 47% 53% Does she/he learn techniques from a demonstration farm? 42 28 60% 40% Does he /she currently participate in rural fairs? 23 47 33% 67% Does she/he get market information 27 43 39% 61% Does she/he use animal traction or tractor? 2 68 3% 97% Did she /he receive any root or tuber planting material? 13 57 19% 81% Does she/he have loss when conserving seeds? 38 32 54% 46% Was she/he taught improved storage of seed? 29 41 41% 59% Does she/he get improved seed? 41 29 59% 41% Does she/he produce improved seed? 1 69 1% 99% Does he/she currently receive information about next season’s climatic 42 28 60% 40% condition? From where MINAG 42 100% NGO Private Is there private veterinary 0 70 0 100% Is there others private services for livestock producers 0 70 0 100% Received livestock form agriculture or NGO 10 60 14% 86% Received orientation to avoid pastures degradation 10 60 14% 86% Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 70 0 100% Parasite control tanks? 0 70 0 100% Animal pens? 0 70 0 100% Testing and diagnosis laboratories? 0 70 0 100% Has he/she received information about HIV/AIDS prevention? 70 0 100% 0 from who MINAG 3 4% NGO 13 19% Other 54 77%

113 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 4 Niassa Provincial Analysis: Extension Agents total respondents 3

Are his/her responsibilities clearly defined? yes no 33% 66%

Is he/she integrated yes no 100% 0%

Has she/he easy access to computer at work yes no 0% 100%

Has he/she access to internet and mail yes no 0% 100%

Has he/she access to fax yes no 0% 100%

Does he/she have transport means between 1999 & 2005 Still has yes no yes no 100% 0% 70% 30%

Get the information she/he needs to answer issues raised by farmers yes no 100% 0%

Does she/he have access to any library/technical documents yes no 100% 0%

Does he/she use to go / consult Does she/he find what needed yes no yes no 100% 0% 33% 66%

Integrate environment aspect in his/her work yes no 66% 33%

Has access to the book about environment mitigation measures yes no 100% 0%

Integrate gender aspects in his work yes no 100% 0%

Integrate AIDS aspect in his/her work yes no 33% 66%

114 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 6 District Analysis -- Niassa Province

total respondents 10

Are his/her responsibilities clearly defined? yes no 20% 80%

Is he/she integrated yes no 70% 30%

Has she/he easy access to computer at work yes no 20% 80%

Has he/she access to internet and mail yes no 0% 100%

Has he/she access to fax yes no 0% 100%

Can he/she communicate with (other) provinces by radio yes no 60% 40%

Can he/she communicate with (other) provinces by E-mail yes no 0% 100%

Can he/she communicate with (other) districts by radio yes no 50% 50%

Does he/she have transport means between 1999 & 2005 Still has yes no yes no 80% 20% 70% 30%

Has budget for fuel for field work yes no 40% 60%

Get the information she/he needs to answer issues raised by farmers yes no 60% 40%

Does she/he have access to any library/technical documents yes no 50% 50%

Does he/she use to go / consult Does she/he find what needed yes no yes no 50% 50% 20% 80%

Integrate environment aspect in his/her work yes no 90% 10%

Has access to the book about environment mitigation measures yes no 40% 60%

Integrate gender aspects in his work yes no 70% 30%

Integrate AIDS aspect in his/her work yes no 70% 30%

115 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

APPENDIX XIV: CABO DELGADO PROVINCE

116 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Introduction

PROAGRI, the agricultural sectoral investment programme designed by the Government and a consortium of interested donors, was put into place in 1999. The programme was established to address the fact that the economic and social environment, and the nature of the agricultural sector itself, had been rapidly changing and looked to continue its rapid pace of change in the future. The Government needed to adjust its strategies to ensure maximum development of the agricultural sector; PROAGRI was the policy statement to indicate the direction of that change.

The provincial and district offices of the Ministry represent the leading edge of all activities. It is here that the interface with the main clients (i.e. small farmers, farmer associations, community groups, local private entrepreneurs, NGOs, etc.) takes place. It is also here that the ground level impact of the programme will be visible. Therefore, as part of the end-of-programme evaluation, interviews have been conducted in each province. This report is the field survey of Cabo Delgado Province.

Summary of Key Issues

Core Functions

It was expected that MINAG activities be restricted to core functions. However, the enquiries made among the farmers indicate that the DDAs are still the main providers of inputs and services (see Annex 3).

In Cabo Delgado Province, among the farmers that use pesticides, more than 80%27 get them from DDA. For the fertilizers, the situation is similar. DDA also makes animal vaccinations, except where there is no extension agent, then small farmers are trained to do so. Since the last one or two agriculture campaigns, improved seeds are distributed by the DDA on a credit basis. The farmers are supposed to return twice the quantity they received.

However, the work with the groups shows that the provision of services and inputs from DDA is not satisfactory (see Annexes 1 and 2 ). The vaccines for animals that the DPA receive are not sufficient for the numbers of animals. The improved seeds distributed by DDA are unable to cover the needs. In Cabo Delgado due to difficulty in keeping seeds in good condition, most producers have to receive seeds when the agricultural season begins. The ones available in the local market are expensive and not certified. Some interview groups mentioned the problem of quality of the seeds available in the market. The providers of certified seeds are located in the provincial

27 The percentages indicated in the report are the percentages of the interviewed population. That gives an ideia of the situation based on the data collected in the visited district. The extrapolation to the whole province must be done with caution as the sample of interviewed persons has not been established in a strictly statistical approach. When reffering farmers, one must keep in mind it is a sample of assisted farmers.

117 Volume II-B Evaluation of the First Phase of National Agriculture Development Program capital and not in all provinces (in other words, very far from productive areas). Except for the private firms that provide improved seeds and pesticides to cotton or tobacco producers, very few agriculture inputs are available in production areas. The inputs or equipment for vegetable production, for example, are not available in the production area. Some attempts have been undertaken to sell agro-chemicals in Namuno District, even at low prices, but this reached few farmers. Most cannot afford their acquisition.

The problem of access of inputs is partly overcome by the initiative of the agricultural services to organize subsidized rural fairs that began the last year of PROAGRI I, in some districts. There, the farmers can get tools, seeds and sometimes agro-chemicals at less than their normal price.

The shift in orientation of that Ministry from services and inputs provision to the elaboration of policy and regulations and the control of their application is not obvious on the field for the following reasons:

 In low productive areas, most farmers cannot afford the cost of the few agro-chemicals that are available in shops or even more appropriate tools than the one made in the villages.Groups of women groups of young farmers emphasized this concern, and indicated that it was a high priority for them.

 Linked to the above, private services or inputs provision is not sustainable. In all surveyed districts, there is no private veterinary service and the only case of private sales of storage chemicals for post- harvest storage in Namuno is subsidized by a NGO.

 The few services or provision of agriculture inputs provided by the private sector are not satisfactory and the DPA/DDA have no clear mandate to control them. Farmers mentioned seeds that do not germinate and inefficient agro-chemicals as the main problems. However, in Namuno, a post-harvest storage chemical has been tested by the DDA and approved for the private traders to sell. Regarding private service provided, many farmers complain about the discount made for the inputs provided on credit for cotton production, the grading of tobacco (which is never favorable for farmer), or the fact that the companies delay the cotton sales.

As a result farmers cannot overcome production limiting factors, principally pests and diseases in animals and plants and have low yields.

In addition to improvement of marketing, there is a need to improve the production techniques so that yields can be improved. Without improving their production, most farmers remain unable to access private services, which continues to hamper the development of the private sector in the production areas.

118 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Decision Making Process for Activities to be Implemented by DDAs

The decentralization efforts wer hampered by lack of consultation and inadequate late arrival of budgets.

The decentralized planning and implementing system established by PROAGRI does not allow the implementation of activities such as seed or animal distribution on credit. However, such activities are implemented out of the decentralized planning system, through central decision making process. In many cases that has led to poor results due to the failure by DDA to provide the required technical assistance because there are no funds available for fuel and per diem for activities not included in the PAAOs.

Planning Instrument

PROAGRI I developed a new planning instrument (PAAO) that is not integrated in the government planning system and duplicate the task of planning. The instrument has pre-determined activities and top-down approaches hinders the integration in the district planning process adopted by the government. The sustainability of the institutional capacity of planning and budgeting developed during PROAGRI I is compromised. As the PAAO is not integrated in the approval process of the Republic Assembly, nor in the district planning process, it is unlikely that it will survive after the withdrawal of the main donors of PROAGRI.

Planning at District Level

The PAAOs are supposed to be developed on the basis of the PAAOs made by DDAs, integrating farmers’ consultations. In reality, the DDAs have little possibility to actually address the local production limitations for two main reasons:

 They do not have reliable data on which to base the summary of the agricultural season;

 They cannot integrate most of the farmers’ concerns because those are are not core functions, and some that are integrated are then cancelled at the provincial or central levels.

The planning framework (software) is established centrally and tends to promote a standardization of DDAs activities. It does not allowing the development of specific development strategies according to the socioeconomic context and agricultural potential, which is different from one district to the other. That is in contradiction with the purpose of decentralization which tries to better address farmers’ concerns. For example, the strategy cannot be the same in districts with high agricultural potential situated near a main road, where the farmers could be supported to increase their farming area and develop new production, compared to an area of high potential situated in a remote area, where the farmers could be supported to transform their production locally (to make oil, for example) to

119 Volume II-B Evaluation of the First Phase of National Agriculture Development Program mitigate the impact of high cost of manufactured products. Also areas characterized by rainfall irregularity should have specific support to overcome this climate limitation.

Seed Issues

The development of a strategic seed reserve is hampered by storage problems linked to the problems of access to appropriate stores by both the producers and the DDA, especially in the coastal area. As a result, the producers tend to sell all their production quickly, at low price, preferring this option to losing everything. They are not able to store the agriculltural produce in good condition for long. When they need seeds, they face a serious problem of access to seeds, due to high prices, unavailability or bad quality seeds. The seeds distributed by the DDA are appreciated for their quality (good varieties, well conserved), but the quantities are far from enough. As a result, no strategic seed stock is available and the improvement of quality of seeds produced by the farmers is compromised. This situation does not allow the development of strategic seed reserves, or improvement of quality of the seeds.

Institutional Development

Decentralization

In terms of institutional involving, PROAGRI I introduced a decentralization process, the transfer to district and province level of implementation and decision making authority. The efficiency of the decentralization process (activities achieved compared to the results foreseen) is assessed here, on the basis of the following results:

 Decision making and implementation authority transferred to province and district level;

 Priorities and budget ceiling defined, PAAO prepared and approved at province level;

 Timely allocation of the financial and material resources.

The effectiveness of the decentralization process (if the results achieved allowed the reaching of specific objectives) is assessed considering the following objectives:

 Strengthening planning capacities at district and provincial level;

 Improving the performance of the interventions undertaken at provincial and district levels.

Efficiency of Decentralization at Provincial Level

Result foreseen :decision making and implementation authority transferred to province level.

120 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Decision making and implementation authority have been transferred to province level. Decision making authority transfer is linked to the decentralization of planning, which allowed the DPA to decide what activity or investment should be included in the annual plan (PAAO). However, the transfer of decision making authority is not complete since some priorities are imposed by central level, such as vaccination of chickens, fish production, treadle pumps or jatropha culture. Also some components are defined by policies, case of the livestock development .

The transfer of implementation authority is linked to the decentralization of budget management. The DPA is being allocated a budget for operation and investments and is free to decide its redistribution and funding modalities among provincial services and DDAs. The differences of the DDAs decentralization process among the provinces demonstrate the relative autonomy acquired by the DPAs.

Result foreseen: priorities and budget ceiling defined. PAAO prepared and approved at provincial levels

Budget ceilings are established at central level and communicated to DPA. DPA determines the distribution of budget ceilings among the provincial departments and services, as well as among the DDAs.

In Cabo Delgado, the budget ceiling varies from one district to the other. It is determined according to the performance of agricultural production the previous year, estimated through the data of TIA.

The provincial services make their PAAO on the basis of the DDA PAAO for the corresponding component. Adjustments to fit within the budget limits are set by the respective DDA. Harmonization is then made at province level, which includes the determination of which activities should be undertaken by the provincial services and which at DDA level. Once approved by the central level, each provincial service and DDA is informed about its approved PAAO.

Result foreseen: timely allocation of the financial and material resources

Once DPA receives the funds, they are distributed among the provincial services and DDAs and material is purchased. The funds are allocated to DPA four times a year to allow the funding of the PTAOs.

Effectiveness of Decentralization at Province Level

Estimate if the decentralization led to strengthening of planning capacities

Planning capacity can be assessed as the capacity to plan activities according to foreseen results of the programme, taking into account the human, material and financial resources. As the provincial PAAOs integrate the district PAAOs, the planning capacity of the DPA must also be assessed by its capacity to ensure that the activities planned by the DDAs contribute to

121 Volume II-B Evaluation of the First Phase of National Agriculture Development Program achieving the foreseen results of the programme, that DDAs are able to implement the planned activities.

At provincial level, agricultural economy and planning department evaluate the DDAs’ PAAOs In Cabo Delgado, this evaluation consists of checking whether the scheduled activities fit in the budget ceilings established for the DDA and checking that the activities are planned in accordance with the government programme. It also checks that the DDA team has the capacity to achieve them.

In a decentralized planning and implementation context, the decision making process regarding the adjustment of the DDAs’ PAAOs is of main importance as it influences the motivation of the DDAs to actively contribute to the implementation of the plan.

In the province of Cabo Delgado, the decision to keep, change or add activities planned by the DDA is made in a consensual way, involving the DDA staff. This allows the contribution of persons that know the local context better in the decision making process, ensuring appropriate choices.

Estimate if decentralization led to improving the performance of the institution at province level

Performance of the provincial services hampered most by the late allocation of financial resources. Some activities cannot be effectively undertaken due to the late provision of funds. This is the case of seed or vaccines distribution that should be done at a specific time of the year.

In Cabo Delgado Province, many people at provincial level said that the decentralization made their work more effective due to easier access to funds, especially to do field work. However, a provincial technician working in veterinary laboratory explained that before decentralization each laboratory had its own fund to be justified to the North zonal laboratory in Nampula. Now, for each expense the laboratory must request funds from DAF and the process is time consuming.

Efficiency of Decentralization at District Level

Result foreseen: decision making and implementation authority transferred to district level.

Decision making has been transferred to DDA by making the contribution to the development of the PAAOs. The provincial PAAO includes the PAAOs made by the DDA, which are developed from information collected from the farmers.

The transfer of implementation authority to DDA, through the management of budget, began in five pilot districts in Cabo Delgado Province. DDAs are

122 Volume II-B Evaluation of the First Phase of National Agriculture Development Program required to make a district PAAO, which is split into quarterly PAAO (PTAO). Each quarter the decentralised DDA receive a budget to implement the activities scheduled for the corresponding quarter. In 2004, most DDA’s had a decentralized budget, principally for operations. Items, such as vaccines and seeds are purchased by the respective provincial services. According to the agricultural economy and planning provincial department of Cabo Delgado DPA, the goods are acquired at province level only on specific request by the DDA.

Timely allocation of the financial and material resources

All the surveyed DDAs complain that the funds and material for activities (seeds, vaccines, etc.) never arrive on time, especially for the agricultural campaign period which is the first quarter of the year. As a result, the DDA team has a limited capacity to implement the scheduled activities at the proper time For instance the application of the first vaccination against Newcastle must be done in March, which is not always possible, raising problems of low efficiency of the treatment. Monitoring of the agricultural season (detection of pests and diseases, state of the plants, etc.) particularly the peak period in February, cannot be undertaken properly. In the 2002 annual activity report of Namuno DDA, it is mentioned that activities planned for the first quarter, such as extension agent training, farmer participation in extension and research activities, could not be undertaken because the funds were not released. Irregular fund availability has been also mentioned by Montepuez DDA.

On the other hand, in Cabo Delgado Province, many concurred that the main benefit of decentralization is the easier access to funds which facilitates field work and good contact with farmers. Others, especially technical staff (extension agents, FFB technicians, topographers), see no change in their work since DDAs have been decentralized.

Effectiveness of Decentralization at District Level

Estimate if decentralization led to strengthened planning capacity at district level

Apart from the capacity to plan activities according to foreseen results of the programme, taking into account human, material and finance resources, the planning capacity of the DDAs must be assessed by their capacity to address the farmers’ needs and concerns.

Regarding the first aspect, most DDA staff have no knowledge of the PROAGRI programme and did not contribute to its development. Many activities planned were removed, including the priorities defined with the farmers, and others are added, such as fish production, treadle pumps for irrigation, etc.

123 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

This mean that some of the plans developed. This is against through farmer consultation could not be considered. This is against the development of participatory planning capacity and initiatives appropriate to local context.

DDAs are asked to carry out a participatory planning processes without knowledge of the programme details. This also does not promote the development of planning capacity, and contributes to keeping them dependant on the DPA, and creates a lot of frustration.

Furthermore, to be able to plan an entity needs information, however the data on which the DDAs base their planning activities is not reliable. For livestock , the DDA were told to use TIA data, which does not provide information at district level. Regarding crop production, the DDAs base their plan on the agriculture campaign summaries, done with the farmers. Farmers are consulted at Administrative Post level, through the head of production (one exists per village), community leaders, Head of Administrative Post and farmers association. Estimates of the areas to be planted for each crop in the next agricultural campaign were collected from the farmers. Other activities such as water retention infrastructure were also determined with the farmers. The result is a list of production means and infrastructure that was to be included in the DDA PAAO.

Estimate if the decentralization process led to improve the performance of the institution at district level

The late provision of funds is a constraint for all DDA that affect their capacity to implement the scheduled activities. The extension agents generally have a negative impression of decentralization, saying that they are not informed about the budget received for the implementation of PTAO or that they never have the necessary budget to undertake the planned activities.

The performance of the DDA is also affected by the problem of links between planning and budgeting. DDAs complain about the cuts in the approved PTAO’s budget that does not allow them to undertake the schedule activities.

Human Resources

Result foreseen: staff integrated, responsibilities defined, working conditions improved

The integration of staff varies among districts. Namuno and Montepuez Districts are the ones where most of the staff is integrated: 100% of extension agents of Namuno DDA are integrated and 80% of the staff of Montepuez DDA. In Meluco DDA, only 33% are integrated and 50% in Ancuabe DDA. At the provincial level, 71% of staff are integrated.

The definition of responsibilities of staff is very good in Namuno DDA where 100% of interviewed staff said their responsibilities have been established by

124 Volume II-B Evaluation of the First Phase of National Agriculture Development Program terms of references, which is not the case in the other DDAs. In Meluco and Ancuabe DDAs, none of the staff met considered their responsibilities clearly defined and only 16% of Montepuez staff say thisis the case. At the provincial level, in the DPA, 57% of staff said they have a clear definition of their responsibilities .

In terms of equipment, the working conditions improved much more at the provincial level than at district level. In the DPA 71% have access to a computer against 18% in the DDAs. 29% of DPA staff have access to internet against none at district level and 43% of DPA staff have access to fax against none at district level. Regarding transport means, the situation is similar at province and district level. Around 50% of staff has access to a means of transport (see Annexes 4 and 6).

For the districts equipped with a cell phone network, the communication with provinces and among districts is made through this system. This is the case of Montepuez, Mocimboa da Praia, Palma and Macomia. Some also have fixed phone lines. The others use radio communication.

For the extension agents of Namuno and Montepuez DDAs, the working conditions have worsened since the launch of PROAGRI I. Before they benefited from the PRDSA project that provided to them full equipment, including bicycle, regularly renewed with spare parts. They were also provided with a full extensionist kit. During PROAGRI I, only 50% of extension agents had transport means. Recently, some received bicycles and they are now 70% provided with means of transport.

Result foreseen: additional necessary staff recruited

The component that benefited from qualitative and quantitative additions of staff are Wildlife and Forestry; Livestock and Land Management. The wildlife and forestry provincial service saw its staff increased in terms of number of controllers and one technician has been recruited for forestry. The livestock services recruited two veterinarians, based at province level and one based in Montepuez, covering the southern region of Cabo Delgado Province, as well as one technician, medium level in Mecufi DDA. The geography and cadastre provincial sector recruited trained a team from central level (DINAGECA) that contributed to the modernization of the services offered (this was done with the support of Spanish cooperation). Extension has recruited eight extension agents of middle level education.

The extension teams, in the visited districts were already constituted, with the support of the PRDSA project before the launch of PROAGRI I and there were no major alterations during PROAGRI I.

Result foreseen: staff professional training defined and implemented

In Cabo Delgado Province, most of the staff said they have received training in their area of responsibility. The extension agents had training in many areas in order to establish the unified extension system. 70% affirmed that

125 Volume II-B Evaluation of the First Phase of National Agriculture Development Program they have the technical capacity to address the concerns of the producers, however most of them feel the need for complementary training in specific issues, such as the knowledge about seed varieties; disease treatment for animal; pests and diseases, or pesticides.

Support to Agricultural Development

Post Harvest Issues

The support to the agriculture production component includes many aspects. The first considered relates to activities that aim to improve the capacity of farmers to constitute stock of agriculture production, as well as to increase the opportunities of income generation. The strengthening of human resources capacity, as well as the increased understanding of marketing related issues are also considered.

Result foreseen: creation of post-harvest development committee; increased stock of agricultural products by farmers; increased number of mills; rural fairs, market information and cooperation among farmers; increase private investments Training in the areas of technologies, economics and markets Social and economic and markets studies

The activities related to post-harvest issues undertaken by DDAs are : 1. The dissemination of improved storage techniques and advice to keep stock until the following harvest. 2. The collection and transmission to DPA of data related to marketing. Namuno DDA also informs the producers about the prices for cotton, cashew nut and peanuts. The DDA of Ancuabe transmits to farmers the prices of cotton. 3. Montepuez DDA organizes one rural fair per year, changing the district each year. A model farmer is elected at that time. Namuno DDA organized rural fairs in 2002, 2003 and 2004. The last one benefited from a subsidy by FAO, allowing the farmers to purchase inputs for ten times less than their market prices. Not much has been done regarding agro-industries and no post-harvest committees have been created.

In terms of institutional strengthening, only one extension agent of Namuno DDA is said to have received training in marketing, and no social and economic and market studies have been done.

Effectiveness of Activities

The dissemination of improved storage techniques made by DDAs did not lead to the increased capacity of producers to stock agriculture products. The surveys made among farmers show that the storage of production remains a

126 Volume II-B Evaluation of the First Phase of National Agriculture Development Program major problem, especially for the small scale farmers (88% of female and 81% of male small scale farmers said that they face production storage problems), while only 25% of male private farmers mentioned this issue and none of female private farmers. The importance of this issue is confirmed by the groups of young farmers (seven mentioned the storage problem) and of women (six groups mentioned the storage problem as a major matter of concern). The dissemination of techniques to improve the storage of production reached only 29% of female small scale farmers, 45% male small scale farmers, 100% and 50% of private female and male farmers respectively (see Annexes 1, 2 and 3).

Market information is quite well delivered, especially among the female private farmers (100%), as well as the male small scale producers (70%). While only 54% of female small scale farmers and 50% of male private farmers receive information on market prices. However, those activities did not help much for marketing.None of the private farmers, 31% of female small scale farmers and 53% of male small scale farmers consider that DDA support them to market their products. The main problem most of farmers face is the low prices, which was mentioned by five groups of women and five groups of young farmers (see Annexes 1, 2 and 3).

The rural fairs organised did not help most of the farmers. The surveys made among private farmers (limited to Montepuez District) indicate that 50% of women and 25% of men participated in rural fairs. The number of small scale farmers that participated in rural fairs is even lower: 11% of women and 34% of men (see Annex 3).

To rely on the farmers to maintain a strategic stock might not be the best strategy, since they face storage problems and they need cash money. In the 2005/6 season, maize production was very good and that could have been the opportunity to develop a significant stockpile, but the production was progressively sold to Malawian traders to meet various cash needs during the season.

Plant Protection

Result foreseen: survey and evaluation of the pests, diseases and other parasites Guarantee of health inspection and product quarantine Development of a phyto-sanitary campaign for the controlling of migratory pests

For Montepuez DDA, the monitoring of pests and diseases is an activity that used to be undertaken by extension agents even before PROAGRI I. However, PROAGRI allowed an easier access to the necessary means to do the field inspections. Whenever a pest or disease is detected, DPA is informed and eventually makes an inspection and provides the required treatment products to DDA.

127 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Namuno DDA practices a similar monitoring approach. However, the activities report of 2002 mentioned that disease monitoring couldn’t take place because of lack of funds. No monitoring of pests and diseases is done by Ancuabe DDA and they do not have the capacity to intervene whenever pests or diseases are detected by farmers. None of the visited DDAs in the province does health inspection and quarantine, as there is no border with a foreign country.

The activities developed by the DDA did not overcome the pest problems of the farmers. Pests are a major matter of concern for all groups of women, especially in Montepuez and Meluco Districts. Young farmers also mentioned this issue in those two districts. In Meluco and Ancuabe Districts, the main pest is elephants which is worsening since Quirimba Park has been established, including some productive areas. Before the existence of the park, farmers could request guns to kill or repeal elephants when in excess; this is not possible any more due to the protection of game promoted by the park. Fences have been tried, but have not solved the problem (see Annexes 1 and 2).

Result foreseen: dissemination among farmers of integrated pest and diseases control systems Adoption by farmers Adoption by farmers of technological packages for treatment of crops

In Montepuez DDA, no integrated pest and disease control systems is disseminated among the farmers. In Namuno DDA, only one extension agent mentioned an integrated pests and diseases control system, consisting of crop rotation, destruction of affected plants, while the extension team supervisor did not mentioned even that approach.

The techniques for treatment of crops that were more often mentioned were the application of pesticides, insecticides or local products. Some DDAs receive the necessary treatment products for the demonstration camps and sometime a surplus is sold to the farmers.

Most interviewed farmers said that they currently use pesticides (100% of female private; 75% of male private; 40% of female small scale farmers and 72% of male small scale farmers). In the cotton production area, the private sector plays an important role in the introduction of this treatment. 67% of male private and 23% of female small scale farmers have been taught by a private company.

However, this practice is not extended far and concerns mainly cotton and associated crops such as beans. Furthermore, the use of pesticides does not solve the problem of pests, which, as referred, is a major matter of concern for many farmers (see Annexes 1 and 2).

128 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Result expected: Environment mitigation and connecting measures implemented in co-ordination with MICOA Measures to mitigate toxicological effects of the application of pesticides in food crops implemented

Montepuez and Namuno DDA said that they disseminate information regarding the toxicity of pesticides and insecticides; Montepuez DDA received support of a private company for this campaign.

Awareness on toxicity of phyto-sanitary products is well spread, especially among the male farmers (more than 90% know that those products are dangerous, 78% of female small scale farmers). However, not all are informed about the measures to adopt to avoid poisoning, especially the female small scale farmers that are only 54% informed, while 78% of male small scale farmers, 100% female private farmers and 75% male private farmers are aware of the measures to follow.

Seeds

Regarding seeds, the objective of PROAGRI was to improve the access to seeds, improve the quality of seeds, as well as to control the quality of seeds produced.

Result foreseen: seed certification and quality control services developed Strategic seed reserve created

Regarding seed certification and quality control services, people interviewed know nothing about it.

In Montepuez DDA, the constitution of a strategic seed reserve is an activity that began at the end of PROAGRI I, in 2004. The DDA receives seeds from the DPA or the research center of Mapupulo, which are distributed to farmers. Farmers are supposed to return twice the quantity they received.

There is no accurate and systematic data on the quantities distributed by the DDAs, but the activities reports show low quantities of most of the seeds. For example, the DDA of Namuno received 900kg of beans and 100kg of maize (just enough for around 5ha) in 2002. The DDA of Meluco received, in 2003, 825kg of maize that has been distributed to 177 families (less than 5kg per family, 15 to 25kg are necessary for 1 ha); 60kg of peanuts that helped 30 families (while 60kg is the quantity necessary for 1 ha); 50kg of sorghum (less than 10ha) and 96kg of beans for 292 families. In 2004, the same DDA received only 117kg of maize (quantity for less than 6ha); 85kg of beans and 45 kg of sorghum (quantity for 5ha).

To encourage the farmers to establish a reserve of seeds, the extension agents disseminate techniques of improved storage in Montepuez and Namuno. Meluco also sells improved seeds.

129 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Until September 2006, there was no strategic seed reserve established due to the low quantities distributed. This did not allow sufficient yields to satisfy producers’ food needs and building the seed stock. Furthermore, the techniques for improved storage disseminated by DDA are not giving satisfactory results. More than 80% of interviewees said they have problems of storage six groups of women expressed major concern with this issue. The techniques of improved storage, according to the farmers, only work with insecticides that they cannot afford to buy, even if such chemicals are available at the DDA or in shops. As a result, the farmers face the problem of difficult access to seeds for each agricultural season. Access to seeds is a matter of concern for four groups of women and five groups of young farmers. Most of the seeds they keep are lost and the seeds available in the market are not germinating according to two groups of young farmers and one group of women (see Annexes 1, 2 and 3).

Result foreseen: role of research reinforced in the improvement of plants in the public sector Production of seeds and material for vegetative dissemination that is not included in the commercial sector’s priority made by public sector Adoption and production of improved seeds by family farmers

In Montepuez District the agricultural research center of Mapupulo has been rehabilitated in 2003 (with the support of Spanish cooperation). The two main activities of this center are to test varieties provided by the agronomic post of Nampula, as well as to multiply improved seeds that are then given to the DDAs of Cabo Delgado Province, or even directly to farmers associations on credit. The quantities of seeds produced in 2006 by the research center were 4750 tons of maize, 4710 tons of sorghum and 2650 tons of beans.

The DDAs test some of the varieties in demonstration fields with the farmers, multiply improved seeds and distribute improved seeds to farmers on credit.

In Namuno District there is also the research center of Nacaca which is providing new varieties to the DDA of Namuno to be tested in demonstration fields with the producers. The number of demonstration fields made by the DDA was 102 in 2000; 94 in 2001 and then the number stabilized around 40 demonstration fields per year until 2005.

The multiplication of improved seeds is an activity that is gaining importance since 2000 in the DDA of Namuno, especially for maize. From 3 multiplication fields in 2002, it reached 34 in 2005.

The adoption of improved seeds by farmers is quite high for the private sector (100% of female; 75% of male). The female small scale farmers is the group which benefits least from improved seeds (and in some districts such as Ancuabe, none has access to improved seeds), while 58% of male small scale farmers has access. In other districts, such as Meluco, just a minority (18%) of female small scale farmers has access to improved seeds (55% of male small scale farmers). However, Namuno District benefits from the seeds

130 Volume II-B Evaluation of the First Phase of National Agriculture Development Program produced by the research center of Nacaca, 79% of female small scale farmers use improved seeds (87% of male small scale).

The fact that the farmers adopt improved seeds does not mean that the quantity they get is enough.

The production of improved seeds by farmers began in 2005 in Montepuez District with 4 privates farmers, according to Montepuez DDA. In the whole province, 25% of private farmers, 11% of female small scale farmers and 30% of male small scale farmers said they produce improved seeds. Meluco is the only visited district where none of interviewed farmers produce improved seeds.

The distribution of material for vegetative propagation is not very effective, being only 30% of male small scale farmers, 25% of male private and 11% of female small scale farmers that said to have received cassava or sweet potato material (see annexe 3).

Result foreseen: early-warning system institutionalised and consolidated Dissemination of early-warning information among the users

In all DDAs visited, there is one person responsible for the collection of data for the early-warning system, which are transmitted to the DPA. Instructions are provided and some had a specific training. Information on rainfall and other climatic phenomena; the estimation of production and the state of growth is transmitted. Production information is collected through meetings with influential farmers and local leaders.

Not all DDA receive early-warning information from farmers. In some cases DDA staff which is in contact with the producers have no knowledge of the transmitted information.

Each DDA received training on how to gather data on the crop season, rainfall and prices. Marketing information is not very accurate due to the existence of informal traders and the reluctance of private farmers to communicate the volumes really marketed.

Around 50% of the farmers said they receive information about the rains of the next agricultural season.

Livestock Development

The objectives regarding livestock production were not clearly defined at the time PROAGRI I was developed. The development of a livestock production strategy, with clear goals to promote the involvement of the private sector was made in 200328. The livestock development policy establishes that it is necessary to shift from a situation of total State responsibility to a situation which includes the participation of other actors, while the State responsibility

28 MADER. 2003. política de desenvolvimento pecuário.

131 Volume II-B Evaluation of the First Phase of National Agriculture Development Program is to promote a favourable economy and provide an institutional environment for the contribution of the private sector and the civil society. In other words, the State role is :

 To formulate, analyse, monitor and evaluate politics, strategies and programmes and insure correct interpretation

 Articulate and coordinate the different institutions involved

 Create and adequate the legal framework and insure its application

 Promote the development of private sector for the provision of veterinary services

 Develop partnership with private sector and civil society

 Promote the preservation of natural resources and biodiversity

The livestock policy introduces the notions of competition and exclusion in order to determine which services should be financed by the public sector. Services with low competition (that can benefit many) and that require high investment, such as laboratory or parasite control tanks could be financed by the State and eventually managed by private sector.

The respective responsibilities of private and public sector for the financing and execution of the different functions for the development of livestock production, have been established. Some, such as epidemiology control must be financed and implemented by the public sector. Others, such as vaccination should be financed, coordinated and monitored by the public sector but implemented by private sector under contract or partnership. The provision of veterinary assistance is under the responsibility of private sector, or eventually partnership private-public sector and should be paid for by the users.

According to the livestock development policy, the public sector should:

 Train technicians

 Control epidemic diseases

 Execute epidemic vaccinations

 Disseminate techniques to small scale farmers

Other functions should be undertaken by private sector, such as provision of veterinary assistance or treatment of ticks.

Others could be conducted by both private and public sectors:

 Control emergence of diseases

 Laboratory diagnosis

 Execute obligatory vaccination

 Animal repopulation

Results foreseen: link and coordination among players

132 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Provincial livestock services coordinate with many institutions, apart from extension services that disseminate techniques and make some vaccinations. In Cabo Delgado Province, the institutions involved in livestock production are:

 Some NGOs such as Helvetas or German Agricultural Action (AAA) finance livestock programmes implemented by DDAs. Most NGO contribute in animal restocking and training of farmers. According to the livestock provincial service, coordination is good, except for the transmission of data regarding numbers of animals distributed or number of vaccinations made.

 The agricultural Funds (FFA) is also involved in animal distribution and financing of livestock projects.

 The private sector contributes to animal distribution, changing male for female.

 Research institutes (INIV) carries out diagnosis that the provincial laboratory cannot do and trains technicians for disease control. IPA provides technical advice regarding breeds adapted to the agro- ecological context and trains technicians in artificial insemination.

 Since 2005 the livestock provincial services coordinate with veterinary faculty for the training of technicians.

Result foreseen: Support in accordance with core functions

All functions that the public sector is supposed to do according to the livestock production development policy are undertaken (training of technicians, control of epidemic diseases, vaccination, dissemination of techniques to small scale farmers). No private services were developed. Some attempts to give the management of rehabilitated infrastructure to private sector (dip tank for example) were made but failed because the farmers did not pay for the service. According to the DPA, the private sector shows little interest in managing infrastructure due to the high costs involved and lack of sustainability. The attempt to involve farmers’ associations for the management of infrastructure also failed.

In Namuno and Montepuez District, one private farmer said that a private veterinary is available. All the other interviewed farmers said there are no private services regarding livestock. In all the other visited districts, none of the interviewed farmers knew about such private services (see Annex 3).

Result foreseen: infrastructure rehabilitated

Little has been done regarding the rehabilitation of infrastructure. The activity report of the livestock provincial service of Cabo Delgado indicates that 2 slaughterhouses have been rehabilitated in Pemba and one built in Pemba- Metuge in 2002. One dip tank belonging to a private farmer has been rehabilitated in Mecufi District, in 2003 and 2 water retentions have been built for animal drinking points purpose, in 2004 in Ancuabe and Pemba-Metuge Districts. Those rehabilitations have been made in districts that were not

133 Volume II-B Evaluation of the First Phase of National Agriculture Development Program selected for the fieldwork, except Ancuabe. But in Ancuabe District, none of the farmers said that any infrastructure had been rehabilitated or built. In Montepuez District, few farmers said that the animal pens and laboratory have been rehabilitated.

Result foreseen: increase of animal population

Animal distribution on credit has been an intensive activity in the province of Cabo Delgado, with the contribution of many NGOs, as well as the FFA. In 2002, 99 oxen have been distributed to 27 families and 1050 goats have been distributed to 223 families. In 2003, 124 oxen have been distributed to 32 families and 2448 goats to 870 families. In 2004, 54 oxen were distributed to 12 families and 3617 goats were distributed to 1168 families. The return rate in 2004 was 67.3%.

In the visited districts, very few farmers said they received animals. None of the male private farmers, nor the female small scale farmers (only 7% of male small scale farmers and 100% of female private farmers).

Statistics on livestock show an increase in all animal categories between 2000 and 2005, as shown in the table below. However this increase of number can be biased by a better coverage of monitoring of animal population.

Animals 2000 2001 2002 2003 2004 2005 Oxen for 8.089 8.105 8.350 8.843 9.198 8.980 meat Cows for - - - 12 12 17 milk Goats 47.884 96.661 117.476 291.258 292.497 346.630 Sheep 3.662 8.957 18.256 19.315 198.373 254.373 Pigs 2.113 41.482 418.252 66.670 53.859 56.451 Chicken 273.926 437.045 438.531 725.225 837.518 980.094 Ducks 22.063 44.193 54.955 192.436 208.316 244.860

Result foreseen: decrease of specific diseases

According to the provincial annual reports, the activities conducted by the province and district services regarding the prevention and treatment of diseases are, among others: vaccinations of brucellosis, carbuncular symptomatic and carbuncular hematique; Newcastle, as well as treatments with pestcides, prophylaxis and treatment of trypanosomiasis. Those activities have been increasing between 2002 and 2004.

The report of the provincial service for livestock informs about difficulties in the acquisition of vaccines and treatment products. In 2002, for example, the DPA did not receive vaccines against new castle and brucellosis the last quarter, while they paid the enterprise BIOMED. The acquisition process is

134 Volume II-B Evaluation of the First Phase of National Agriculture Development Program reported as time consuming. In 2004, the annual report informs that they did not receive any treatment products.

Most of vaccination and treatments activities undertaken by the DDAs cannot cover all the animals existing in the province. For example, in 2003, while there were 8843 oxen bit only 550 vaccines of brucellosis have been done. 3729 vaccines of carbuncular symptomatic and the prophylaxis of tripanosomias have been done on 171 oxen. Only 66 500 vaccines have been used on chickens in 2004 while the number of chickens was estimated at 837 518. However, the number of chemical treatments covers all the different types of livestock.

Data regarding the incidence of diseases of the provincial livestock service show a decreased incidence of some diseases such as tripanosomiasis (60% of prevalence in 2003, 10.5% of prevalence in 2004) or diseases transmitted by ticks. Other diseases such as Newcastle in chicken are endemic, due to the bad coverage of vaccination. This is reflected in the concerns expressed by the farmers interviewed. The groups of farmers (11 groups of young producers and 11 groups of women) expressed a major concern regarding the mortality of animals, especially chickens, due to the lack of vaccination (see Annexes 1 and 2).

Extension Services

Before PROAGRI I

Previous Support for Consolidation of the Extension Network

Between 1993 and 1997, Mozambique saw its geographical coverage of extension network increased from forty to forty nine due to the support of three new international partners: World Bank (Agricultural Rehabilitation and Agricultural Services Rehabilitation and Development Project -PRDA and PRDSA), FAO and Sasakawa Global 2000. The extension service was consolidated and equipped with vehicles and field equipment. In addition, in 18 districts, public extension operated in partnership with international agencies, such as the then EEC, GTZ and UNICEF that were financing extension activities in areas receiving humanitarian assistance.

As a result, the number of districts covered by public extension expanded, especially in Nampula Province, with the inclusion of Monapo, Muecate, Erati, Lalaua, Namapa and Mecuburi and Cabo Delgado Province with the inclusion of Nangade and Muidumbe.

During the same period there was a quick emergence and rapid expansion of NGO extension activities. In the whole country, the number of international NGOs increased from 30 in 1994 to 67 in 1997. The rapid expansion of extension services was achieved through a series of fragmented projects funded by a variety of donors, with little interaction with the public extension managers. As a result, the number of extensionists and the areas covered increased, but with variation among the different networks, in term of number

135 Volume II-B Evaluation of the First Phase of National Agriculture Development Program of technicians per district, available resources, as well as in term of approach29.

Private extension emerged in 1990 and 1991 in the Northern provinces with the goal of expanding cotton production. Private firms formed joint venture companies in a large area and provided support to farmers through voluntary contractual partnerships. The companies provided seeds and pesticides to farmers who sell them their production. The companies also provided technical assistance through field monitors.

Extension Strategy and Master Plan

In reaction to the lack of coherence of the extension services the government first developed a long term strategic plan that began in 1993-94. A year later the preliminary extension master plan was prepared, along with guidelines for coordinating its implementation. Those two documents laid out five central features of public extension:

 Geographic concentration (operating in half of the districts of the country);

 Agro-ecology (give priority to high potential areas);

 Two approaches, one regarding food crops, the other cash crops;

 Decentralization: gives responsibility to the provincial service of extension;

 Pluralism, that aims to promote private sector extension, private enterprises and NGOs.

In 1997, the public extension service prepared the first Extension Master Plan covering 1998 to 2003 that included a number of innovations. A unified extension programme was adopted, involving crop production, livestock and natural resource management. The plan also called for a functional partnership between public and private extension services, including outsourcing and increased links with other institutions such as research, agriculture service and marketing30. The orientation of the Master Plan are reflected in the master document.

Unified extension started in the 1998-99 agricultural season involving the collaboration and coordination of activities among the extension service and other Ministry of Agriculture services, such as livestock, forestry and irrigation. Practically, that implies multipurpose extensionists in the field, assisted by experienced Subject Matter Specialists, as well as strong linkages between farmers, extension and research31.

29 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press. 30 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press. 31 Gemo H. And al. 2005. Mozambique experience in building a national extension system. Michingan University press.

136 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Methodology

The public extension adopted the Training and Visit model that consisted of working with one contact farmer per village, doing experiments in his /her field with visits every two weeks. DNER decided to modify the Training and Visit system in order to adapt it to Mozambique conditions and the different environments in the extension networks. Two main changes were made. Instead of working with one contact farmer per village, the extensionists were directed to work with groups of farmers in order to increase the number of farmers directly involved and increase the possibility of identifying more talented farmers. Each extensionist had to work with 8 to 16 groups with an average of 225 farmers per extension agent. The rigid timetable of one visit every 15 days was removed, allowing the extensionists to develop more flexible meeting times.

The extension Master Plan has been integrated in the extension component of PROAGRI I.

Extension in PROAGRI I

Efficiency of Extension Results foreseen : producers knowledge strengthen on the better utilization of work force and agricultural inputs, as well as soil and water resources. Established and consolidated farmers organizations. Market oriented extension

The techniques disseminated by the extension agents are: agricultural calendar, spacing, crop rotation, seed beds in line, seed selection, improved seeds, fight against pests, production storage, improved livestock production, building of improved store, animal care. In addition support to the consolidation of associations, vegetable and fruit production promotion is also being done.

The number of assisted farmers varies from 1000 to 4000 per district. The extension agents disseminate technical messages through farmers groups of 15 to 25 members. The Namuno DDA activities reports show that in 2000, the extension network composed of 14 extensionists assisted 3788 farmers to form 237 groups, an average of 16 groups of around 15 farmers per extensionist. In 2001, the assisted farmers was 656 lower, with 188 groups. In 2002, the number of assisted farmers increased and reached 4047, in 212 groups.

Organization of farmers is one area in which the provincial extension service trains the extension agents and monitors the related activities in the field. The DPA also organized exchanges of experiences among DDAs regarding the creation and support of farmers’ organizations. According to the SPER, all extension network received training on how to form and consolidate associations and each extensionist was due to create one association per

137 Volume II-B Evaluation of the First Phase of National Agriculture Development Program year. Activities reports show that 16 farmers’ association have been created with 173 men and 13 women in Namuno District.

Those associations are supported in vegetable production, growing crops in humid zones. The groups also participate in rural fairs, where they can get production at low prices. The associated farmers also generally receive improved seeds, fertilizers and pesticides from DDA. They generally have a common field where they receive technical assistance from extension and the income allows the group to invest in production means.

No market oriented extension was developed. The farmers’ associations were not trained to negotiate with traders. They were just advised to bulk their production to sell at a better price. No link was established with traders, nor with credit institutions to allow the associations to bulk their production. The activities implemented by extension service regarding marketing are limited to advising the farmers to keep the produce until the prices increased, as well as to transmit market prices, although not in all districts.

Results foreseen: decentralized extension system in place where the farmers are fully engaged in the design, implementation and evaluation of the service

The definitions of technical messages are not made in a participatory way. In many cases, they are predefined or are the result of a meeting of the extension team. At the end of the agriculture campaign, the farmers are invited to compare the result of the demonstration field with the result of a farmer that did not apply the improved techniques. According to the SPER, from the summary of the agriculture campaign, the extension team determines which technical package should be disseminated the following campaign.

Result foreseen: extension relevant to the different technology and socio- economic constraints of farmer, especially women and young farmers

Extension addresses mainly technical constraints (which seeds, how to save, how to treat, etc.) without considering social issues. Most of the interviewed extensionists said that the technical messages are the same for all categories of farmers. No orientation or training was developed to guide a socio- economic approach of extension.

Result foreseen: Unified and consolidated extension system. dissemination of information among extension agents and regular training. qualified supervisors and all extensionists with medium or superior level.

A unified extension system has been established, mainly by the integration of livestock production issues that are systematically included in extension programmes with technical support from technicians specialised in this area. In some DDA wildlife and forestry issues are also included in extension programmes, such as uncontrolled fires or community management of natural resources. But there is no specialised technician to assist extension in this

138 Volume II-B Evaluation of the First Phase of National Agriculture Development Program area. Other issues are included, such as plant protection, post-harvest issues, as well as, in some cases, small scale irrigation, cashew and association consolidation.

According to the head of SPER, a new network of extension in Balama District, composed of 8 extension agents, all of middle level education was created during PROAGRI I. In all the visited DDA, there were no consolidation of extension staff during PROAGRI I, neither in quantity nor in quality. In Montepuez and Namuno DDA, the extension team was constituted during the PRDSA support before the launch of PROAGRI I. One explanation of the reduction of extension teams is that many extension agents were promoted to district director of agriculture or responsible for production in the DDA.

Most of the extension agents interviewed consider that they receive the technical information they require to deal with farmers concerns, with variation among the districts. In Namuno DDA, 83% are in this case, while in Montepuez DDA, 50% said they have the required technical information. All the interviewed extensionists said that they have also access to technical documents.

Training is the way the technical information is disseminated among the extension agents. This activity used to take place every 3 months, including training before PROAGRI I. It has been dramatically reduced since the launch of PROAGRI I. Training took place only once a year on specific techniques, such as livestock production, association development, soil conservation; correct use of pesticides or fruit tree production. In Montepuez DDA, training occurred only when a new technology had to be disseminated to the farmers. Only two extensionists of Namuno DDA said they received training during PROAGRI.

The improvement of academic level occurred only when new teams were constituted, as in Balama. However according to the SPER, it was not easy to find many technicians of middle level education ready to be extension agents. Experience rather than academic level was the criteria used for supervisor selection. Most of them are former extensionists are of basic level education.

Many extension agents complained about the decline of their work conditions in terms of equipment. Before PROAGRI I they had a complete extension kit, tape measures and uniform, and these were renewed annually. Since the launch of PROAGRI I, the bicycles are not provided with spare parts and they are not systematically renewed each year; they never receive a complete extension kit, uniform and tape measure, and there is no longer an award for the best extension agent.

Result foreseen: reinforcement and systematization of collaboration between extension and research staff. Joint farming analysis, on-farm research, training and technology review meetings

139 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The reduced budget of PROAGRI did not allow the activities that would promote the systematization of links between research and extension. Activities were planned but budget cuts did not allow their implementation. However, some activities took place, for instance on-farm research, the dissemination of adapted improved seeds and eventually the dissemination of techniques to overcome some of the problems of the farmers.

The link between research and extension was stronger during the support of PRDSA, when periodic training and technology reviews were conducted, involving extension and farmers (REPET). The DDA of Montepuez is linked to the experimental center of Mapupulo. The main involvement is the experimentation on-farm of new varieties. According to the SPER (thanks to the support of French cooperation) research regarding storage of production was conducted, comparing the effect between local products with chemicals. That was undertaken in the districts of Balama, Montepuez and Namuno. Only one extensionist said that problems of farmers, such as pests or difficult access to fertilizers, were submitted to the experimental center (which proposed the use of local products to fight or the promoted use of organic compost). Once a year a field day is organized joining extensionists, farmers, NGOs and community leaders.

Namuno DDA is linked to the research center of Nacaca. Two extensionists said that problems of pests and disease have been submitted to the research center which proposed local products to mitigate the pest and a new disease resistant variety. The research center also proposed new varieties to test on- farm or multiply. No field day is organized in this district.

Effectiveness of Extension

The extension section never received the budget necessary to implement all the required activities. Activities prioritized by DDAs are systematically reduced during the approval process at the DPA level. Furthermore, the effectiveness of extension is affected by the late provision of funds that inhibits undertaking all the approved activities.

If extension contributed to improve production techniques of farmers

The acquisition of knowledge is effective among the farmers and very well disseminated (see Annex 3). Farmers confirmed that the extension efforts succeeded in convincing the them to use of improved seeds, herbicides fertilizers for higher yields. Many began to produce vegetable crops. Although the farmers are convinced, they face the problem of access to those inputs that are not available in the market, or at unaffordable prices. However, the access to some inputs is better in Cabo Delgado Province due to the intervention of some private companies involved in cotton production. Cotton production is supported by private firms (PLEXUS in Cabo Delgado Province) that provide pesticides on credit. As a result, fhalf of those trained actually use pesticides (mainly in the districts that produce cotton) (see Annex 3).

140 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Fertilizers are mainly used for vegetable production. The number of farmers that use this input is more small (20% of female and 27% of male small scale farmers). The use of improved seeds is quite well disseminated, being used by around 70% of small-scale farmers, although the quantity provided by DDA is not sufficient according to the groups of farmers.

If extension contributed to more effectively market farmers products at better price

53% of male small scale farmers and 31% of female small scale farmers said that the extension agents facilitate the marketing of their products, while the private farmers consider that they receive no help at all. 70% of male small scale producers and 54% of female small scale farmers and 50% of male private farmers receive information on market prices (see Annex 3).

The work with the groups of farmers shows that marketing of produce is not a problem. The lack of buyers was mentioned by only 2 groups in the remote administrative post of Meluco District. However, the low prices are a major matter of concern for most of the farmers. 5 groups of young farmers and 5 groups of women, mainly in the districts of Namuno and Meluco were higher, mentioned this problem. The advice to keep harvested crops until prices is difficult to follow because after harvest they need money, moreover they do not have access to storage facilities to keep the product in good condition (see Annexes 1 and 2).

If extension addressed farmers concerns, especially youth and women

Through the use of participatory techniques with groups of women and young farmers, the quality of communication between those categories of farmers and the extension agents was assessed.

There is evidence that, in most cases, youth and women farmers face many problems that are not submitted to the extension agents, such as pests and diseases, erosion or production storage. This is confirmed by the results of the quantitative surveys that establish that the male small scale farmers are those that benefit more from extension services in terms of acquisition of knowledge. 73% said they have learned new techniques from extension agents, while only 48% of small scale female farmers and 50% of private farmers did so (see Annexes 1, 2 and 3).

The farmers might be consulted about their problems, but most of the time, the extension agents do not address them. Concerns referred as important by the farmers, such as pests and diseases or storage of production are not properly addressed by extension. Pests and diseases issues have been mentioned, as a major matter of concern by 2 groups of women and 3 groups of young farmers.

Among the problems faced by the farmers, some might have technical answers but the general tendency of extension and research is to consider agro-chemical as the only answer and as those products are not available,

141 Volume II-B Evaluation of the First Phase of National Agriculture Development Program that does not solve the problems. There are no proposals of alternative technological packages. This is the case of the problem of pests and conservation.

Other needs such as livestock, tools, agro-chemical acquisition cannot be addressed by extension due to the limitations of the PROAGRI planning system as referred, while they are major matter of concern for farmers.

Research

The agronomic post of Nampula coordinates the research activities in the different research institutions that constitute the Northeast research center, which includes the provinces of Nampula and Cabo Delgado and part of Niassa Province.

Result foreseen: close integration in the field between extension and research with the use of common dissemination vehicle

Before the launch of PROAGRI I, at the end of each agricultural season, a periodical technical review was made, joining research, extension and farmers (REPET). Since the beginning of PROAGRI, that is no longer carried out .Instead, when funds are available, once or twice a year, a field day is held that joins extension and research, as well as farmers, NGOs and local leaders. The research centres present the experiments carried out, and eventually receive suggestions from the participants.

The results of the research are disseminated in coordination with extension through the implementation of demonstration fields (CDR), as well as on-farm research with the contribution of farmers. Although not with the same intensity as before, mainly due to late provision of funds and cuts in budgets that limits fieldwork.

Result foreseen: research institutes propose technology focused on small scale farmers and women’s issues

Some of the research programmes are drawn in coordination with NGOs that work with small scale farmers. Extension also brings to research centers concerns collected from the small scale farmers. Other research programmes are determined by the link with research centers of other countries or other provinces of Mozambique, consisting of the investigation in adaptability of new varieties. Transversal themes are also the object of research, such as soil fertility, crops protection, spacing or crops associations.

In the Northeast research centre, there is no clear socio-economic approach in the definition of the research programmes, hence no development of women related issues. The clear objective of research programmes is to increase the production considering only the technical aspects of production and not socio-economic issues.

142 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

The results of the surveys and participatory techniques applied to groups of farmers show that many concerns, such as storage of production, pests, animal adaptation to different agro-climatic conditions or erosion are not addressed and most are not included in research programmes. Pests are one research theme undertaken by the research centres, but no satisfactory solutions for small scale farmers have been proposed. In some cases, resistant varieties are identified but the seed or vegetal planting material multiplication activities do not cover the needs.

Until the recent decentralization of this sector, there were many difficulties to access the approved funds that were allocated to the DPA.

Representation by stakeholders, in particular farmers at zonal council level in research programmes

At the Northeast research centre, before the launch of PROAGRI I, there were a group of partners composed of NGOs, DPA, provincial services and farmers representatives that contributed in the definition of research programmes. However, this group has stopped functioning since the launch of PROAGRI I due to lack of funds. During PROAGRI I research programmes were designed in coordination with DPAs and NGOs.

Field days and seminars were held at the end of each agriculture season and used as an opportunity to determine research subjects with the stakeholders.

Rehabilitation and establishment of regional research center Training and development of human resources

The northeast zonal center was created in 2000/01 and is composed of the agronomic post of Nampula; the agronomic center of Matuale in Malema District; the research and multiplication center of cotton seeds of Namialo; the research center of Mapupulo and the agronomic post of Namapa, as well as the training unit of Namialo. The rehabilitation of those establishments began with the support of PRDSA and allowed the rehabilitation of the agronomic post of Nampula, the research and multiplication center of cotton seed of Namialo and the research center of Mapupulo. The other establishments are not fully functioning at this time (November 2006).

The agronomic post of Nampula is well established in terms of qualified human resources, having one PhD and three master degrees (in crop protection, peanuts and cashew diseases). There are ten engineers are collected in all the establishments comprising the zonal center.

Land Management

Result foreseen: geographic information available in the province

143 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Since 2002, the geography and cadastre service produced locally a variety of maps such as water source maps to identify water sources that can be explored to make mineral water; roads maps; wildlife maps of Quirimba Park or cash crops potential area maps.

Trained and motivated DINAGECA staff in province

In 2001, the geography and cadastre section of Cabo Delgado received a trained technician from DINAGECA Maputo, as well as modern equipment (GPS, computers, map software), from Spanish Aid.

Land registration process simplified

All interviewed staff at province or district level agree on the fact that the land law clarified the land licensing and registration process, and the conflicts reduced thanks to the community consultation.

Socio-economic study on land use conducted

Socio-economic studies have been conducted by Maputo staff in some Cabo Delgado districts, in order to get an understanding of the land occupation situation. The result of the studies have not been published yet.

Increased income generation

The collection of taxes by the geographic and cadastre service increased notably since 2002 (around ten times more in 2004 compared to 2000), land taxes and sale of maps.

Irrigation

All DDA received treadle pumps to be sold to farmers. The number of pumps received by DDA varied from less than 10 to more than 100. Two models were provided, one large and one small.

The results, in general, are not very positive for many reasons:

 Some DDA did not received the complete equipment, missing the connection tube (the case in Meluco, for example);

 The connection tube of the large model of pump is flexible and easily frayed by rats or during the emplacement;

 The women cannot operate the big model and have to hire young men;

 Farmers say it is necessary to wear shoes to operate the pumps, which they cannot afford;

 In many cases, the spare parts are not available in the province.

The rehabilitation of irrigation schemes began in 2006.

144 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Forestry and Wildlife

Leasing to private sector or communities through contacts that include specific provision for the protection against fire and for the control of natural regeneration

The regulation function of MINAG was promoted through the elaboration of Law and respective regulation for land32 and Forest and Wildlife33. According the provincial head of wild life and forest the regulation emitted in 2002 clarified the procedures for forest exploration and its control.

The forest and wild life legislation includes measures that tend to control the sustainability of the natural resources exploration. Elaboration of inventory of resources by the proponent, is required as well as the submission of exploration plan. An increase of the number of licenses of forest exploration by contract of forest concession was observed. To date 3 enterprises in Cabo Delgado are under contract of forest concession.

Since 2002, there were an improvement in terms of material and human resources for the control of natural resources exploration and transport. 20 administrative staff were recruited and trained, and 2 cars were bought. However, according to the provincial head of Wildlife and Forestry, the resources are still insufficient.

Since 2005, 20% of exploration fees should be reverted to the communities included in the concession area.

Result foreseen: community in charge of sustainable management of game, timber or eco/tourism areas

The newly developed Forestry and Wildlife Law and Land Management Law and corresponding bylaws are emphasizing and transferring the management of natural resources to communities. There are zones where the communities have official land rights and the related power to decide on it. When anyone wants to undertake activities it is up to the community to authorize it. The communities are the real owners of the resources. In the case of a request for exploration by a private operator, the community has to approve. Otherwise, the operator has to go and look for alternative areas to undertake the activity. In case of approval, the rule of 20% is applied. The community has the right to decide on how to use the 20% revenue. This process however requires the evaluation of potential by provincial services with participation of the communities. The communities have to be trained for this. The community leaders are key to this process. A business plan has to be developed for the activities to take place. Community management units

32 Lei nº19/97 de 1 de Outubro, Decreto nº66/98 de 8 de Dezembro e, Diploma Ministerial nº 29-A/2000 33 Lei 10/99, de 7 de Julho, Decreto n.º 12/2002, de 6 de Junho, e Decreto 11/2003, de 25 de Março

145 Volume II-B Evaluation of the First Phase of National Agriculture Development Program were created in the province in order to promote the sustainable use of natural resources, such as straw for building.

Sustainable Development Centres of the Ministry of Environment and the Mozambican Agricultural Research Institute (IIAM) of MINAG provide policy, strategic and technical support for NRM matters. The development of integrated district plans provides an opportunity for mainstreaming NRM priorities into the provision of agricultural extension services.

The routine activities of the service are the transmission of land, forestry and wildlife laws to communities, as well as the mobilisation of community leaders for the control of illegal hunting or uncontrolled fires. There was technical assistant between 2004 and 2005 in charge of capacity building and strategy development for animal/human conflict. However, this was not very helpful for the provincial service.

Land clearing practices for agricultural expansion, deforestation due to the increased demand for charcoal and fuel wood for consumption in urban areas have continued as well as indiscriminate bush burning for hunting or grazing purposes or because of out-of control slash and burn practices, as well as poor farming practices, physical and chemical soil erosion, due to poor crop cover and exploitative use of steep sloping land are typical additional hazards, as is poaching (IFAD, 2005)34.

In Cabo Delgado Province wildlife is perceived as a pest in many districts. Before the creation of Quirimba Reserve, the financial administrators of the DDAs were addressing the issue of men/animals conflicts. In Meluco, the DDA, with the support of an NGO conducted various activities in order to mitigate the impact of animals on crop production. Fences were made and a mapping of elephant roads was initiated when Quirimba Park was created in 2002. Since then, the park has its own financial administration depending on MICTUR, which deals with this issue.

Cross-cutting Issues

Gender

Gender issues are included in the activities of more than 80% of extension agents, but consist mainly of including women in the activities, such as vaccination, or vegetable production. Some women’s associations were created in Cabo Delgado Province, but the lack of funds did not allow development of any activities for them. However, there are no specific activities directed towards women, based on an understanding of women’s concerns.

34 AGRICULTURAL SUPPORT PROGRAMME, FORMULATION REPORT. WORKING PAPER 2: AGRICULTURAL DEVELOPMENT. 2005

146 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Few people received training about gender issues. In Cabo Delgado Province, the trained technician from DPA that was supposed to be the focal point then nominated district director of agriculture in Mueda and subsequently nominated permanent secretary of district government. Therefore she did not have much time to transmit gender issues to the staff.

The surveys among the farmers show that the small scale farmers benefit less that the small scale farmers from the technical assistance of DDA. 73% of men learnt new techniques from DDA, while only 48% of women did. The extension agents have more contacts with the men than the women, which is demonstrated by the fact that 74% of men said they were consulted by extension agents and 65% that the extensionist propose solution about their problems against 45% and 35% of women respectively. 78% of men said they learned techniques from demonstration fields while only 49% of women did (see Annex 6).

There are activities that exclude women in a certain ways. This is the case of the model of treadle pumps that was distributed to farmers for vegetable production and that women cannot use, which contradicts the affirmation of many technicians who gave the example of vegetable production as a woman-directed activity.

HIV

63% of staff at DDA level integrate HIV issues into their work, and 100% of extension agents do so. Those in contact with farmers said that they systematically give messages on that issue to farmers (see annexes 4 and 6).

100% of private farmers were taught about HIV issues and more than 95% of small scale farmers but most was not informed by agricultural staff, but by health staff. However, the source of information is mainly from school or health services (see Annex 3).

Environment

Environmental issues are not very well assimilated by most of the staff. Only 36% of the DDA staff, 40% of extension agents and 29% of DPA staff said they integrate environmental aspects into their work. The booklet edited by the Ministry, regarding mitigation of environmental impact was not well distributed, since none of the staff at provincial level has access to this document and only 18% of DDA staff, 40% of extension agent do. The most commonly mentioned as environment activities are the control of fires, and sometimes the proper use of pesticides. According to SPER in the districts that face erosion, a grass (vetiver) that helps retain the soils was disseminated (see Annexes 4, 5 and 6).

Awareness of the toxicity of agro-chemicals has been spread well among the farmers, except for the women in Ancuabe District (only 50% are aware).

147 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

However, 20% of farmers that know the danger, do not know how to prevent poisoning (see Annex 5).

Lessons Learned and Recommendations

Decision Making Process for Activities to be Implemented by DDAs

As reffered in the key issues section, the decentralization process implemented during PROAGRI I did not contribute to improve the appropriateness of decision taking in terms of addressing better farmers’ needs and concerns. The centrallized PAAO approval process and the deficient budget allocation are the main cause of this problem.

All decisions related to activities to be implemented by DDAs should involve the DDAs in the decision making process to allow appropriate choices of technology choice, better collaboration in implementation and to insure the availability of required human, financial and material resources for technical assistance.

Improvement is required in financial and material resource allocation to match the planned activities. To mitigate the consequences of late allocation of resources the first quarter, a provisional budget could be allocated the before full justification of the last quarter activities. Mechanisms to link budget to plan should be implemented at central and province level.

Planning instrument

The planning instrument conceived during PROAGRI I (PAAO) is not integrated into the government planning system, is not particularly sustainable. Furthermore, as it has pre-determined activities and a top-down approach, the PAAO hinders the integration in the district planning process adopted by the government.

The Planning and Development Ministry is improving the planning process, developing a participatory, decentralized and inter-sectorial approach at district level. Agriculture being the main activity of district residents, the DDAs have a major role to play in district planning. It would be advisable to strengthen the institutional capacity of MINAG to contribute to the development of the strategic and annual plans at province and district levels and their integration in the national PES.

148 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Planning at District Level

As earlier mentioned the centrally conceived planning framework (software) and the lack of reliable data that DDAs can get does not allow the elaboration of specific development strategies in line with the socioeconomic context and agriculture potential.

DDAs should be given the means (in terms of data and human resource capacity) to conduct planning based on a cross analysis (technical, based on reliable data, and participatory, based on farmers contributions) of the agricultural campaign. The development of district agronomic development strategies should be promoted, based on the analysis of limiting factors, taking into account the socio-economic context and agricultural potential.

Pests and Diseases

Pests are still a major matter of concern for most of the farmers and the agriculture services has not developed a clear and efficient strategy to overcome this problem. The issue of pests and diseases should be addressed more systematically and seriously, by research and extension. The different categories of pests (from insect to elephant), should be considered in order to develop specific strategies. For animal pests, experiences of farmers, extension agents, NGOs, game parks or research centers from other countries should be solicited, taking into account but not limited to the cases of cultivated areas situated in natural reserves.

Regarding insects pests, alternative technology packages should be developed, mobilizing knowledge from NGOs, research institutes or internet.

Seed Issues

PROAGRI I objectives to create a strategic seed reserve and improve the quality of seeds are hampered by storage problems linked to the difficult access to appropriate stores by both the producers and the DDA, especially in the coastal area.

The objective of developing a strategic seed reserve needs a clear strategy and means to implement it. There should be different strategies, for each agro-ecologic region. Where rains are irregular, there is the necessity of massive and punctual distribution of short cycle and drought resistant varieties of seeds or vegetal planting materials. This operation can only be undertaken by public services in coordination with NGOs (where these exist). The objective of the operation should be to improve the production capacity of the farmers that would lead to the constitution of seed stocks. The farmers should be informed that this support will not be renewed.

Where the climatic conditions are favourable, the objective is different since access to seeds is already assured. There, when a new variety of seed has

149 Volume II-B Evaluation of the First Phase of National Agriculture Development Program to be introduced, the strategy initiated in Niassa Province could be developed: teach selected farmers how to produce seeds that will be sold to other farmers.

The issue of maintenance of seed quality should be addressed through availability of seeds at reasonable prices (the production of seeds by farmers is a good solution in this respect).

When there is problem of storage, like in coastal areas, before introduction of new varieties, the first constraint to overcome is the improvement of storage techniques for seeds by the farmers. It has been demonstrated that the techniques presently disseminated are not efficient, which means that there is need to develop other technical packages, not limited to agro-chemical, especially where these are not available. The surveys among the farmers show that in some districts, there is no problem of storage, even where extension did not disseminated technical messages regarding storage. Research could investigate what are the causative factors and from that, propose techniques to be tested by in-field research. Even in districts where storage is not presently a problem, the promotion of seed production by farmers might raise storage problems.

Livestock Production

Animal acquisition is no longer a major problem for the farmers, except in some districts due to the animal restocking programmes conducted during PROAGRI I. Farmers are most concerned now with the high mortality of animals. Animals are expensive to obtain, and are considered as insurance to provide against any difficulties faced by the farmers. The loss of an animal is, for that reason, a major matter of concern for them.

The only veterinarian service available in the northern provinces remains the DDAs, but with reduced means to provide the required services.

The experience of transferring some services to farmers groups, associations or communities should be evaluated in order to estimate their capacity to provide, in a sustainable way, services necessary to reduce animal mortality.

150 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 1

Interview Groups of Women, Cabo Delgado Province

Problems Nº of groups ratio Nº of groups that gave the following answers regarding DDA services presented that Do not DDA has no Presented the Only the Presented the Cannot afford presented consult response problem to DDA contact farmer problem and the cost of DDA the problem DDA but got consulted the waiting for the service unsatisfactory extension response answer agent and got satisfaction Production and post-harvest problems Pests 10 1,3 3 4 2 Problem of production 6 1,2 2 1 1 storage Animal mortality 11 0,4 2 8 Erosion 1 2,5 1 Drought 1 0,6 Access to inputs Cannot afford animal 2 0,1 2 acquisition Cannot afford tools and 6 0,8 1 2 equipment acquisition Cannot afford 1 0,3 1 herbicide Access to inputs Improved seeds 4 0,3 1 1 insufficient DDA improved seeds arrived 2 0,4 1 late Lack of fertilizers 1 0 1 Lack of insecticides Problems of quality of services provided by private sector Seeds sold do 1 1,5 1 not germinate Cotton bought 1 1,2 late Problem of marketing Low prices 5 0,5 2 Lack of buyers 2 0,7 1 Other problems Animal/plants 5 0,4 1 stolen

151 Volume II-B Evaluation of the First Phase of National Agriculture Development Program Annex 2

Interview Groups of Young Farmers, Cabo Delgado Province

Problems Nº of Ratio Nº of groups that gave the following answers regarding DDA services presented groups that Do not DDA has no Presented the Only the Presented the Cannot afford presented consult response problem to DDA contact farmer problem and the cost of DDA the problem DDA but got consulted the waiting for the service unsatisfactory extension response answer agent and got satisfaction Production and post-harvest problems Pests 6 1,2 4 1 Problem of production 7 0,8 2 1 1 1 storage Animal mortality 11 0,4 1 8 Erosion 1 1,2 1 Difficulty to 1 0 1 irrigate Lack of means to improve the production Cannot afford animal 2 0,7 1 1 acquisition Cannot afford tools and 7 1,5 1 1 equipment acquisition Lack of means to increase the 2 0,7 1 1 fields Lack of or insufficient production inputs Improved seeds 5 0,4 1 1 1 1 insufficient Lack of fertilizers 2 1,1 1 1 Difficulty to get 1 0 1 cashew trees Lack of 2 0,8 1 1 insecticides

152 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Interview Groups of Young Farmers, Cabo Delgado Province (continued)

Problems Nº of Ratio Nº of groups that gave the following answers regarding DDA services presented groups that Do not DDA has no Presented the Only the Presented the Cannot afford presented consult response problem to DDA contact farmer problem and the cost of DDA the problem DDA but got consulted the waiting for the service unsatisfactory extension response answer agent and got satisfaction Problems of quality of services provided by private sector Cotton Treatment 1 0 inefficient Seeds sold do 2 0,6 1 not germinate Problem of marketing Low prices 5 1,4 2 2 1 Other problems Animal/plants 4 0,7 stolen Insufficient support to the 1 1,1 1 association Lack of grain mill 1 0,3 1

153 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 3 Analysis of Producer Surveys: Women Commercial Farmers Province: Cabo Delgado Total respondents: 2 yes no % yes % no

Did his /her knowledge increase due to the extension services? 1 1 50% 50% Does she/he receive a technical message by radio? 2 0 100% 0 Is she/he member of a producer organization? 0 2 0 100% Do the extension agents help for marketing of her/his production? 0 2 0 100% Do the extension agents consult about his/her problems? 2 0 100% 0 Do the extension agents give answer to her/his problems? 0 2 0 100% Did he/she adopt a technological package for treatment of crop 2 0 100% 0 disease? Does he/she use pesticide 2 0 100% 0 Who teach MINAG 2 100% NGO 0 Private 0 Where pesticides are bought MINAG 2 100% NGO Private Does she/he use fertilizer? 0 2 0 100% Who teachs MINAG NGO Private Where fertilizers are bought MINAG NGO Pivate Did she/he hear about environmental issues related to agro-chemical? 2 0 100% 0 Does she/he know the effect of those products on food crops? 2 0 100% 0 Does she/he learn techniques from a demonstration farm? 2 0 100% 0 Does he /she currently participate in rural fairs? 1 1 50% 50% Does she/he get market information 2 0 100% 0 From where he gets market information MINAG 2 100% ONG Private Does she/he use animal traction or tractor? 1 1 50% 50% Did she /he receive any root or tuber planting material? 0 2 0 100% Does she/he have loss when conserving seeds? 0 2 0 100% Was she/he taught improved storage of seed? 2 0 100% 0 Does she/he get improved seed? 2 0 100% 0 Does she/he produce improved seed? 0 2 0 100% Does he/she receive information about next season’s climatic 1 1 50% 50% condition? From where MINAG 2 100% NGO Private Is there private veterinary 1 1 50% 50% Is there others private services for livestock producers 0 2 0 100% Received livestock form agriculture or NGO 2 0 100% 0 Received orientation to avoid pastures degradation 2 0 100% 0 Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 2 0 100% Parasite control tanks? 1 1 50% 50% Animal pens? 0 2 0 100% Testing and diagnosis laboratories? 2 0 100% 0 Has he/she received information about HIV/AIDS prevention? 2 0 100% 0 from whom MINAG 24 41% NGO Other 35 59%

154 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Analysis of Producer Surveys: Men Commercial Farmers Province: Cabo Delgado Total respondents: 4 yes no %yes % no Did his /her knowledge increase due to the extension services? 2 2 50% 50% Does she/he receive a technical message by radio? 1 3 25% 75% Is she/he member of a producer organization? 0 4 0 100% Do the extension agents help for marketing of her/his production? 0 4 0 100% Do the extension agents consult about his/her problems? 0 4 0 100% Do the extension agents give answer to her/his problems? 0 4 0 100% Did he/she adopt a technological package for treatment of crop 3 1 75% 25% disease? Does he/she use pesticide 3 1 75% 25% Who teach MINAG NGO Private 2 77% Where pesticides are bought MINAG 2 77% NGO Private 1 33% Does she/he use fertilizer? 3 1 75% 25% Who teachs MINAG 2 50% NGO Private Where fertilizers are bought MINAG 2 50% NGO Pivate Did she/he hear about environmental issues related to agro-chemical? 4 0 100% 0 Does she/he know the effect of those products on food crops? 3 1 75% 25% Does she/he learn techniques from a demonstration farm? 1 3 25% 75% Does he /she currently participate in rural fairs? 1 3 25% 75% Does she/he get market information 2 2 50% 50% From where he gets market information MINAG 2 100% ONG Private Does she/he use animal traction or tractor? 3 1 75% 25% Did she /he receive any root or tuber planting material? 0 4 0 100% Does she/he have loss when conserving seeds? 1 3 25% 75% Was she/he taught improved storage of seed? 2 2 50% 50% Does she/he get improved seed? 3 1 75% 25% Does she/he produce improved seed? 1 3 25% 75% Does he/she currently receive information about next season’s climatic 2 2 50% 50% condition? From where MINAG NGO Private Other 2 100% Is there private veterinary 0 4 0 100% Is there others private services for livestock producers 0 4 0 100% Received livestock form agriculture or NGO 0 4 0 100% Received orientation to avoid pastures degradation 0 4 0 100% Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 4 0 100% Parasite control tanks? 0 4 0 100% Animal pens? 1 3 25% 75% Testing and diagnosis laboratories? 1 3 25% 75% Has he/she received information about HIV/AIDS prevention? 4 0 100% 0 from who MINAG NGO Other 4 100%

155 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Analysis of Producer Surveys: Women Smallholder Farmers Province: Cabo Delgado Total respondents: 65

yes no %yes % no Did his /her knowledge increase due to the extension services? 31 34 48% 52% Does she/he receive a technical message by radio? 48 17 74% 26% Is she/he member of a producer organization? 47 18 72% 28% Do the extension agents help for marketing of her/his production? 20 45 31% 69% Do the extension agents consult about his/her problems? 29 36 45% 55% Do the extension agents give answer to her/his problems? 23 42 35% 65% Did he/she adopt a technological package for treatment of crop 23 42 35% 65% disease? Does he/she use pesticide 26 39 40% 60% Who teach MINAG 20 77% NGO Private 6 23% Where pesticides are bought MINAG 20 77% NGO Private 6 23% Does she/he use fertilizer? 13 52 20% 80% Who teachs MINAG 13 100% NGO Private Where fertilizers are bought MINAG 13 100% NGO Pivate Did she/he hear about environmental issues related to agro-chemical? 51 14 78% 22% Does she/he know the effect of those products on food crops? 35 30 54% 46% Does she/he learn techniques from a demonstration farm? 32 33 49% 51% Does he /she currently participate in rural fairs? 7 58 11% 89% Does she/he get market information 35 30 54% 46% From where he gets market information MINAG 32 91% ONG Private 3 9% Does she/he use animal traction or tractor? 1 64 2% 98% Did she /he receive any root or tuber planting material? 18 47 28% 72% Does she/he have loss when conserving seeds? 57 8 88% 12% Was she/he taught improved storage of seed? 19 46 29% 71% Does she/he get improved seed? 23 42 35% 65% Does she/he produce improved seed? 7 58 11% 89% Does he/she currently receive information about next season’s climatic 29 36 45 55 condition? From where MINAG 29 100% NGO Private Other Is there private veterinary 0 65 0 100% Is there others private services for livestock producers 0 65 0 100% Received livestock form agriculture or NGO 0 65 0 100% Received orientation to avoid pastures degradation 2 63 3 97% Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 65 0 100% Parasite control tanks? 0 65 0 100% Animal pens? 0 65 0 100% Testing and diagnosis laboratories? 17 48 26% 74% Has he/she received information about HIV/AIDS prevention? 63 2 97% 3% from who MINAG 3 4% NGO Other 60 96%

156 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Analysis of Producer Surveys: Men Smallholder Farmers Province: Cabo Delgado Total respondents: 74 yes no %yes % no Did his /her knowledge increase due to the extension services? 54 20 73% 27% Does she/he receive a technical message by radio? 67 7 91% 9% Is she/he member of a producer organization? 58 16 78% 22% Do the extension agents help for marketing of her/his production? 39 35 53% 47% Do the extension agents consult about his/her problems? 55 19 74% 26% Do the extension agents give answer to her/his problems? 48 26 65% 35% Did he/she adopt a technological package for treatment of crop 54 20 73% 27% disease? Does he/she use pesticide 53 21 72% 28% Who teach MINAG 48 96% NGO Private 1 2% Where pesticides are bought MINAG 46 92% NGO Private 9 6% Does she/he use fertilizer? 20 54 27% 73% Who teachs MINAG 20 100% NGO Private Where fertilizers are bought MINAG 25 89% NGO Pivate Did she/he hear about environmental issues related to agro-chemical? 67 7 91% 9% Does she/he know the effect of those products on food crops? 58 16 78% 22% Does she/he learn techniques from a demonstration farm? 58 16 78% 22% Does he /she currently participate in rural fairs? 25 49 34% 66% Does she/he get market information 52 22 70% 30% From where he gets market information MINAG 43 82% ONG Private 4 8% Does she/he use animal traction or tractor? 3 71 4% 96% Did she /he receive any root or tuber planting material? 22 52 30% 70% Does she/he have loss when conserving seeds? 60 14 81% 19% Was she/he taught improved storage of seed? 33 41 45% 55% Does she/he get improved seed? 48 26 65% 35% Does she/he produce improved seed? 22 52 30% 70% Does he/she currently receive information about next season’s climatic 41 33 55% 45% condition? From where MINAG 41 100% NGO Private Other Is there private veterinary 1 73 1% 99% Is there others private services for livestock producers 1 73 15% 99% Received livestock form agriculture or NGO 5 69 7% 93% Received orientation to avoid pastures degradation 9 65 12% 88% Were the following infrastructure for livestock rehabilitated or constructed: Drinking point? 0 74 0 100% Parasite control tanks? 0 74 0 100% Animal pens? 0 74 0 100% Testing and diagnosis laboratories? 0 74 0 100% Testing and diagnosis laboratories? 0 74 0 100% Has he/she received information about HIV/AIDS prevention? 71 3 96% 4% from who MINAG 2 3% NGO Other 69 97%

157 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 4 Cabo Delgado Provincial Analysis: Extension Agents total respondents 10

Are his/her responsibilities clearly defined? yes no 60% 40%

Is he/she integrated yes no 90% 10%

Has she/he easy access to computer at work yes no 0% 100%

Has he/she access to internet and mail yes no 0% 100%

Has he/she access to fax yes no 0% 100%

Does he/she have transport means between 1999 & 2005 Still has yes no yes no 50% 50% 70% 30%

Get the information she/he needs to answer issues raised by farmers yes no 70% 30%

Does she/he have access to any library/technical documents yes no 50% 50%

Does he/she use to go / consult Does she/he find what she need yes no yes no 50% 50% 40% 60%

Integrate environment aspect in his/her work yes no 40% 60%

Has access to the book about environment mitigation measures yes no 40% 60%

Integrate gender aspects in his work yes no 80% 20%

Integrate AIDS aspect in his/her work yes no 100% 0%

158 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 5 Provincial Analysis – Cabo Delgado Province total respondents 7

Are his/her responsibilities clearly defined? yes no 57% 43%

Is he/she integrated yes no 71% 29%

Has she/he easy access to computer at work yes no 71% 29%

Has he/she access to internet and mail yes no 29% 71%

Has he/she access to fax yes no 43% 57%

Can he/she communicate with (other) provinces by radio yes no 100% 0%

Can he/she communicate with (other) provinces by e-mail yes no 29% 71%

Can he/she communicate with (other) districts by radio yes no 100% 0%

Does he/she have transport means between 1999 & 2005 Still has yes no yes no 43% 57% 29% 71%

Has budget for fuel for field work yes no 29% 71%

Get the information she/he needs to answer issues raised by farmers yes no 50% 50%

Does she/he have access to any library/technical documents yes no 0% 100%

Does he/she use to go Does she/he find what she/he needs yes no yes no 0% 100% 0% 100%

Integrate environment aspect in his/her work yes no 29% 71%

Has access to the book about environment mitigation measures yes no 0% 100%

Integrate gender aspects in his work yes no 29% 71%

Integrate AIDS aspect in his/her work yes no 29% 71%

159 Volume II-B Evaluation of the First Phase of National Agriculture Development Program

Annex 6 District Analysis – Cabo Delgado Province

total respondents 11

Are his/her responsibilities clearly defined? yes no 9% 91%

Is he/she integrated yes no 63% 37%

Has she/he easy access to computer at work yes no 18% 82%

Has he/she access to internet and mail yes no 0% 100%

Has he/she access to fax yes no 0% 100%

Can he/she communicate with (other) provinces by radio yes no 72% 28%

Can he/she communicate with (other) provinces by e-mail yes no 0% 100%

Can he/she communicate with (other) districts by radio yes no 72% 28%

Does he/she have transport means between 1999 & 2005 Still has yes no yes no 36% 64% 36% 64%

Has budget for fuel for field work yes no 18% 82%

Get the information she/he needs to answer issues raised by farmers yes no 72% 28%

Does she/he have access to any library/technical documents yes no 18% 82%

Does he/she use to go / consult Does she/he find what is needed yes no yes no 9% 91% 9% 91%

Integrate environment aspect in his/her work yes no 36% 64%

Has access to the book about environment mitigation measures yes no 18% 82%

Integrate gender aspects in his work yes no 54% 46%

Integrate AIDS aspect in his/her work yes no 63% 37%

160