Focus Group Discussion under the Climate Change Agriculture and Food Security Programme Topic: Identifying power brokers in climate change adaptation policy and decision making in Uganda Date 30th August 2010 Start time 9:00am End time 1:00pm Stakeholders Present 1. Godber Tumushabe, Advocates Coalition for Development and Environment 2. Edith Kateme-Kasajja, National Planning Authority 3. Christine Nantongo, Environmental Alert 4. Paul Isabirye, Climate Change Unit (Ministry of Water and Environment) 5. Sara Namirembe, Katomba Group 6. Bashir Twesigye, Advocates Coalition for Development and Environment 7. Beatrice Anywar, Parliament of Uganda 8. Morrison Rwakakamba, Uganda National Chamber of Commerce and Industry 9. Sonja Vermeulen, Climate Change, Agriculture and Food Security. The Challenge Program The Challenge Program on Climate Change, Agriculture and Food Security (CCAFS) is a strategic collaboration between the Consultative Group on International Agricultural Research (CGIAR) and the Earth System Science Partnership (ESSP). The overall goal of the programme is contribute to global efforts in overcoming threats posed by climate change to achieving food security, livelihoods and environmental management. It is implementing scientific research to help farmers, policy makers, researchers and donors improve food security. This program is challenged by disjuncture between scientific research and policy making. In many cases, scientific research and knowledge has not aided policy processes in many parts of the world, for a number of reasons including poor lobby and policy influence tactics, limited knowledge of policy processes and power structures through which policy decisions are made. This programme seeks to create channels through which scientific research on climate change will inform policy and decision making. The Advocates Coalition for Development and Environment (ACODE), a policy research and advocacy think-tank based in Uganda was approached to help organize a Focus Group Discussion (FGD) on power brokering in the climate change sector in Uganda. The objective of the FGD was to map out organizations, groups and individuals that influence climate change, agriculture and food security related policy making processes in the present (2010) setting. Methodology This exercise was carried out using a tool for stakeholder influence mapping (http://www.policy- powertools.org/Tools/Understanding/SIM.html). ‘Stakeholder influence mapping’ is a visual technique that enables better understanding and explicit discussion of who influences policy. It is especially useful as an aid for discussion among several people. Participants arrange different policy players within a triangle or ‘pyramid’ to determine the level of policy influence. The closer to the policy at the top of the pyramid, the more influential one is to the policy in question. Findings of Stakeholder influence mapping Configuration of policy brokers There are numerous policy brokers of varying strength and influence in the climate change, agriculture and food security nexus. The exercise did not and perhaps needn’t exhaust all of them. The following categories were identified as being most influential: (a) government technical bodies; (b) local administration structures; and (c) central political authorities. There are several other actors of marginal influence, albeit with immense potential. These include global cooperative frameworks like UN agencies, bi-lateral donor groups and civil society organizations. Government Technical bodies Policy is primarily a making of the government. Government technical bodies have the primary responsibility of identifying the country’s policy needs, design, policy formulation, stakeholder consultations, policy implementation, monitoring and evaluation. In the climate change, agriculture and food security nexus, influential agencies include the National Agricultural Advisory Services (NAADS) and the National Agricultural Research Organization (NARO) in the ministry of Agriculture, and the Metrology Department and the Climate Change Unit in the Ministry of Water and Environment. In doing all this, central government agencies are assisted by local/ district authorities who are locally present and working with farmers on a day-to-day basis. Local Administration structures Over the last ten years, government has devolved many of the administration responsibilities to local authorities called local governments/ districts. They potentially wield a considerable amount of power in administration and budget allocation. They employ production officers and environmental officers who are responsible for agriculture and natural resources conservation respectively. However, policy influence is limited as the power of districts is in practice not there. Districts look to the central government for funding and policy direction and have almost been reduced to political stooges of the ruling government. Central Political Authorities Political actors in the central government are most influential across all levels of administrative function. Political meddling and patronage have tended to blur the divide of political authority and technical work. As a result, often times, we have seen a usurpation of technical roles by political authorities. Within the legislature, the NRM caucus (caucus of the ruling party) is most influential, working at the behest of the president, who is arguably most influential in both political and administrative decision making. As a result, many technical functions have been suffocated by overzealous political leaders. Other categories of policy brokers Civil Society Organizations: Although it is widely held that Civil Society Organizations (CSOs) play a pivotal role, they are thinly spread on the ground. They hold only very limited constituencies in either a limited geographical area or narrow scope of work. Generally, they have not managed to mobilize a big section of farmers to better demand for services. They have also not been able to deliver extension services to farmers’ at larger scales. Parliamentary bodies: Parliament plays important legislative and oversight roles. However, many times, parliamentary bodies are uninformed in issues of production and food security. In addition, many members are most times inclined to their party positions. In addition, parliament is most of the time preoccupied with political debate, with very limited time for issues like climate change and food security. Private sector: For about twenty years now, the private sector has been growing. Some of the private sector institutions include the Uganda National Chamber of Commerce and Industry, the Uganda Commodities Exchange and the Private Sector Foundation. But these are still thinly spread on the ground. Donor agencies: There was an argument amongst the group on the level of influence of donors. For the most part, donors have merely extended financial support with no specific agenda of influencing policy. They prefer diplomacy to engagement. Even if they wanted to, their space of influence has narrowed as government no longer feels obliged to listen. Some members disagreed, contending that donors lead in power brokering and government has not choice but to listen. Increasing influence POLICY BROKERS IN  CLIMATE CHANGE  AND FOOD SECURITY  SECTORS: 2010  NARO  Farmers &  Agencies use  CC Knowledge  and CC support  PF DPO P NRM  Caucu NAADS  MD CCU MAAIF  MFPED  NEMA NPA  LGs CL Farmers  SACOS RI  RDC  WFP  CAADP  PFC C  PCA ENRC MOH  MLHUD  DLB  NFA  UNCCI UCE FIT  ACO DE  AA EA  World  Bank  Acronyms AA Action Aid: An international NGO doing agriculture and climate change related work in Uganda ACODE Advocates Coalition for Development and Environment: an NGO doing related work focusing on Uganda and the eastern Africa region CAADP Comprehensive Africa Agricultural Development Programme: a programme under the New Partnership for Africa Development (NEPAD) that supports agriculture CCU Climate Change Unit: a newly created unit in the ministry responsible for environment, responsible for coordinating climate change related work CL Cultural Leaders: kings, chiefs, clan leaders etc who hold cultural authority under Uganda’s diverse traditional settings DLB District Land Board: spread out across all districts and are responsible for land allocations DPO District Production Officer: officer responsible for managing agriculture related work at the local government/ district level EA Environmental Alert: an NGO working on environmental issues in Uganda ENRC Environment and Natural Resources Committee: a committee in parliament that oversee issues of environment and natural resources FIT Uganda FIT Uganda is a consultancy firm in business development, which has before been contracted by government and donors to support farmers LGs Local Governments: Uganda is divided into local administrative units called local governments/ districts MAAIF Ministry of Agriculture Animal Industries and Fisheries: responsible for agriculture development MD Metrology Department: responsible for climate research and providing climate related information MFPED Ministry of Finance Planning and Economic Development: manages budget and budget allocations MLHUD Ministry of Lands, Housing and Urban Development: ministry responsible for regulating land tenure and land access MOH Ministry of Health: the environmental health department in this ministry is particularly relevant in climate change and food security issues NAADS National Agricultural Advisory Services: a programme on agricultural advisory and support services e.g. supplying farm inputs NARO National Agricultural Research Organization: government agency responsible for carrying out agricultural research NEMA National Environment Management Authority: government agency responsible for coordinating all work on environment NFA National Forestry Authority: government agency that is responsible for conservation and promoting forestry NPA National Planning Authority: a public agency that is responsible for developing national plans including the Poverty Reduction Strategy Plan NRM Caucus National Resistance Movement caucus: caucus of the ruling party, which also holds the majority in parliament. PCA Parliamentary Committee on Agriculture: a committee that oversees the agriculture sector PF President of the Uganda National Farmers Federation: head of the farmer organization PFCC Parliamentary Forum on Climate Change: a loose network of members of parliament working on climate change issues P President of Uganda: head of government; fountain of political and administrative authority. Many times, he works through the NRM caucus to have decision made. RDCs Resident District Commissioners: presidential appointees that oversee affairs in districts on behalf of the president RI Religious Institutions: such as churches-based institutions and mosques SACOS Savings and Cooperative Schemes: initiative to promote culture of savings but also a way through which government channels capital support to local people including farmers. UCE Uganda Commodities Exchange: a private sector institution that promotes ware house functions for producers UNCCI Uganda National Chamber of Commerce and Industry: an advocacy platform for workers and the private sector UNFFE Uganda National Farmers Federation: a farmers’ lobby group WFP World Food Programme: global agency on food, and very active in Uganda Recommendations for better policy processes for agriculture and climate change in Uganda In reality, the present configuration of power brokers in climate change and agriculture sectors, where political authorities and technical agencies of government wield most power is both adhoc, ineffective and conflictual. This is because the mandates are not well spelt and collaboration amongst the different technical agencies is either inexistent or unharnessed. In addition, the policy process is some times unpredictable with no defined timelines or consultation of relevant stakeholders. Technical agencies seem to be weaker than the individuals at their behest. According to the Participants in the FGD, such a configuration simply does not work. In the long run, this configuration needs to be re-aligned. Farmers have not gotten the right services because they have not demanded for them. They neither know the appropriate channels for contributing to policy processes nor how to get their voices heard. CSOs, extension workers and other stakeholders with similar mandate can play an important role of raising the civic capacity of farmers to demand for better governance. CSOs in particular are well positioned to create channels for scientific research into policy and decision making processes. An example is when CSOs adopted scientific research to prove to government that the benefit of retaining Mabira forest was superior to benefits that accrue from sugar production. Agriculture research institutions do not influence investment of government budgets and donor budgets, but they could via coalitions with farmers, local governments & extension agents (NAADS), which in turn provide a loud and legitimate political constituency. Furthermore, research institutions like NARO is purely technical and is currently delinked from policy research. Cogent links between NARO technical research and MAAIF/EPRC/IFPRI policy research would go a long way to increasing the chances for impacts in practice. The risk however is that, while this would mean that technical research would get into policy content such as the NAMA, there would be little guarantee that this would translate into practice on the ground (development of policies and plans at national level is a business in itself, and there are not strong incentives in place to make sure that policy gets implemented). Recommendations for CCAFS to engage successfully CCAFS has three routes to influence Ugandan policy and implementation: 1. Via participation in coalitions among national-level research organizations, farmers’ organizations (notably the Farmers’ Federation), agricultural extension agencies and supportive civil society organizations – building strong partnerships with likeminded bodies that in turn are linked with legitimate political constituencies 2. Via talking to active individuals in the agencies closest to policy influence (see diagram and see table below for contact details) but not forgetting some of the agencies that are not presently influential but have great untapped potential (e.g. the Farmers’ Federation, Climate Change Unit, and the National Planning Authority) 3. Via argumentation at the international level – basically the technocratic route only works at the international level; it is not directly influential at the national level but does filter through from international processes Other than civil society organizations, the group identified four other specific institutions of policy influencing potential, which has not been optimally harnessed. These are donor agencies – WFP and CAADP, the Climate Change Unit, and the National Planning Authority. These should be empowered to maximize their potential. In the short run, mapping individual policy brokers and talking to them could be useful in influencing policy. Power brokers in climate change policy, agriculture and food security in Uganda Institution/ Organization Individual Contact details (a) Government Institutions President’s office Prof. JJ Otim Senior Presidential Adviser on Agriculture State House Nakasero P.O.Box 24594, Kampala Tel: 256-41-234 522 info@statehouse.go.ug Ministry of Finance Planning and Economic Development C.M Kasami Permanent Secretary and Secretary to the Treasury Plot 2/12 Apollo Kaggwa Road P.O. Box 8147 Kampala (256)-414-707000, 235051/4 Ministry of Finance Planning and Economic Development Keith J Muhakanizi Deputy Secretary to the Treasury Plot 2/12 Apollo Kaggwa Road P.O. Box 8147 Kampala keith.muhakanizi@finance.go.ug 0414-230290 National Agricultural Research Organization Dr. Denis T. Kyetere Director General Plot 3, Lugard Avenue, Entebbe P.O.Box 295, Entebbe Tel: 256 -41- 320512, 256 -41- 320341, 256 -41- 320178 Fax: 256 -41- 321070 Email: dgnaro@infocom.co.ug; dgnaro@naro.go.ug National Agricultural Advisory Services Salim M. Nahdy, Executive Director Plot 39A Lumumba avenue, 2nd Floor Mukwasi House, Nakasero P.O. Box 25235, Kampala Tel: +256-41-345440/345065/345066 Fax: +256-41-347843 info@naads.or.ug ; naads@iwayafrica.com; naads@utlonline.co.ug Ministry of Water and Environment Gershom Onyango Director, Environmental Affairs Plot 21/28 Port Bell Road, Luzira P.O. Box 20026 Kampala Uganda Email: ggonyango@yahoo.co.uk Tel: 0414-505942 Mobile: 0772491807 Climate Change Unit Paul Isabirye, UNFCCC National Focal Point/Ag. Coordinator- Climate Change Unit Ministry of Water and Environment P.O. Box 28119 Kampala, Uganda Tel: +256-414-237690 Mob. +256-772-592032 Fax: +256-414-346530 Metrology Department Paul Isabirye, Assistant Commissioner Department of Meteorology, 10th floor, Postel Building Clement Hill Road, P.O.Box 7025 Kampala, Uganda Tel: 256-414-251798 Mob. +256-772 592032 Fax: +256-414-251797 National Environment Management Authority Dr. Aryamanya Mugisha, Executive Director Executive Director, National Environment Management Authority (NEMA) NEMA House, Jinja Rd, P.O Box 22255, Kampala 0414 251064 Tel.0772477556 haryamanya@nemaug.org National Forestry Authority Hudson Andrua, A.g. Executive Director National Forestry Authority Head Office Plot 10/20, Spring Road, P.O. Box 70863, Kampala Tel +256-414-230365/6, +256-414- 360400, 264035/6 Fax +256-414-230369 Email: hudsona@nfa.org.ug Mobile: +256-772-451354 National Forestry Authority Xavier Mugumya, National Focal Person for REDD initiatives National Forestry Authority Head Office Plot 10/20, Spring Road, P.O. Box 70863, Kampala Tel +256-414-230365/6, +256-414- 360400, 264035/6 Fax +256-414-230369 xavierm_1962@yahoo.com Mobile: 0712408396 Ministry of Health National Planning Authority Dr. Kisamba Mugerwa, 3rd Floor, Crested Towers, Short Tower P. Chairperson O. Box 21434, Kampala 0414 250 211 Ministry of Lands, Housing and Urban Development Richard Oput Commissioner Land Management oputjr@aim.com 0414251794 (b) Cultural leaders Kingdom of Buganda Eng. J.B Walusimbi Kingdom of Bunyoro Eng. Yabezi Kiiza Prime Minister primeminister.bunyorokitara@ymail.com (c) Parliamentary bodies Parliamentary Forum on Climate change Hon. Arimpa John Kigyagi Vice Chairperson, Parliamentary Forum on Climate Change Parliament of Uganda P.O Box 7178 Kampala jkigyagi@parliament.go.ug kigyayi@yahoo.com 0772 482528 0414 343356/7 Committee on Natural Resources Bukeni Gyabi Chairperson, Committee on Natural Resources Parliament of Uganda P.O Box 7178, Kampala fgbukeni@parliament.go.ug 0772-403200 / 0712-403200 041 373 293 Committee on Agriculture Kabonesa Juliet, Chairperson Committee on Agriculture, Animal Industry and Fisheries Parliament of Uganda P.O Box 7178, Kampala ksekitoleko@parliament.go.ug 0312-276555; 0772-683684 Shadow Minister for Agriculture Hon. Christine Bako, Shadow Minister for Agriculture, Animal Industries and Fisheries acbako@parliament.go.ug 0782-497483 (d) Civil society organizations Action Aid Charles Mbeeta Businge Country Director P. O. Box 676 Kampala, Kansanga Ggaba Road aaiuganda.info@actionaid.org Tel: +256 392220002 Advocates Coalition for Development and Environment Godber Tumushabe, Executive Director Plot 96, Kanjokya Street, Kamwokya P.O Box 29836 Kampala g.tumushabe@acode-u.org Mobile: 0752841312 Environmental Alert Christine Nantongo, Executive Director Environmental Alert Gaba Road, Kabalagala, P.O. BOX 11259, Kampala cnantongo@envalert.org 0712 941720 VECO Uganda Agnes P.O Box 7844, Kampala Email: veco-ug@vecouganda.org 041- 533855/6 Uganda National Farmers Federation Charles Ogang, President Plot 27, Nakasero Road P.O Box 6213, Kampala +256-414-340249 / 230705 +256-414-230748 (e) Local Governments Uganda Local Governments Association Ms. Gertrude Rose Gamwera Secretary General ULGA House, Plot 136a Najjanankumbi Entebbe Road. P O Box 23120 Kampala, Uganda Tel: +256-772-446-668 Rose Gamwera@ULGA.Org Kampala City Council Al Hajj Nasser Ntege Sebaggala Mayor and Secretary for Finance, Planning, Administration & Investment Tel : 0752-420741/ 0772460986 Kampala City Council Doreen Naakatya Nsamba Sec. for Production, Agriculture, Livestock, Fisheries, Forestry, Environment & Marketing 0712 187956 Hoima District Local Government Tinkamanyire Bagonza Chairperson L.C.V and Secretary for Production, Environment and Natural Resources. bagonzageorge@yahoo.com 0773 277279 Hoima District Local Government Joseline Nyangooma District Environment Officer 0772628153 Ntungamo District Local Government Karazaarwe John W Chairman LC V 0772 484328 Ntungamo District Local Government Singahakye Denis District Speaker 0772 569883 (f) Religious Institutions Uganda Inter-religious Council Joshua Kitakule, Secretary General Inter-Religious Council of Uganda Plot 884, Centenary Road, Namirembe Hill P.O. Box 7502 Kampala +256 414 342877, +256 312 265670 ircu@ircu.or.ug Mobile: 0782551108 Uganda Muslim Supreme Council Sheikh Shaban Ramadhan Mubajje P.O Box 1146, Kampala umsc@utlonline.co.ug +256- 41- 256500; +256-41-344499 Uganda Joint Christian Council (UJCC) John Mary Oday P.O Box 30154 Kampala 0414 254219, 0414 344250 honoday@yahoo.com, joday@ujcc.org 0782457990 Justice and Peace Commission Sophie Schrowange Mercier, Civil Peace Service Advisor P.O Box 3051, Kampala Jandp.aok@gmail.com 0414-577494, 0785-235173 Catholic Church of Uganda Rt. Rev. Cyprian Kizito Lwanga Kampala Archdiocese P.O Box 14125, Kampala cklwanga@africaonline.co.ug 041 245441 270183/4 0772 400850 Church of Uganda Rt. Rev. Henry Luke Orombi, Archbishop) P.O Box 14123/335, Kampala abpcou@gmail.com orombih@yahoo.com 041-271128, 0717112211 Church of Uganda Rt. Rev. Dr. Zac Niringiye, Suffragan Bishop Of Kampala Diocese Of Kampala All Saints Cathedral P.O Box 335, Kampala bishopdzac@yahoo.com 0772 653977 (g) Private Sector Uganda Commodity Jinja Road Exchange Social Security House (Former Udyam House), 1st Floor, Northern Wing, P. O. Box 2215 Kampala, Uganda Tel: +256 312 262922 Fax: +256 412 258556 uce@uce.co.ug Uganda National Chamber of Commerce and Industry Morrison Rwakakamba, Chief Executive Officer Plot 27, Nakasero Road P.O Box 6213, Kampala (U) rwakakamba@yahoo.co.uk Tel. 0712070181 (h) Donor Agencies The World Bank Country Director Martin Fodo, Senior Environmental Adviser Rwenzori House 1 Lumumba Avenue P.O. Box 4463 Kampala, Uganda Phone: 0414302215 Fax: (256) 414-230-092 mfodor@worldbank.org Mobile: 0774-198268 The World Bank Ms. Kundhavi Kadiresan Country Manager Uganda Rwenzori House 1 Lumumba Avenue P.O. Box 4463 Kampala, Uganda Phone: (256) 414-230-094/ 256-312-221- 416/7 Fax: (256) 414-230-092 World Food Programme Clement Hill Road, Plot 17-19 P.O. Box 7159, Kampala, Uganda Fax: +256 41 250485 Phone: +256 31 242000 Annex: photo of stakeholder influence mapping