IBIS in Mozambique Country Strategy 2013-17

Transcription

IBIS in Mozambique
Country Strategy 2013-17
20 November 2012
PDF 58 pages
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Acronyms
AC
ADE
AI
AM
ANCEFA
CBO
CC
CE
CEDER
CEDESC
CIMU
CIP
CNJ
CO
COCIM
CS
CSO
CSR
DKK
DP
EFA
EITI
EPAC
FASE
FDD
FDI
FM
FO
FOCAD
FOFEN
FONGZA
FORASC
GBS
GCE
GDP
HDI
HO
ICT
IESE
IFP
INE
INGO
MDG
M&E
MFA
MIRAC
MJD
NAFEZA
NGO
NSA
ODA
OJM
OLEs
OMM
PAP
PJ
SBC
SIDA
SDEJT
UNDP
USD
WILP
WIP
ZIP
Agents for Change
Apoio Directo à Escola
Access to Information
Assembleia Municipal
Africa Network Campaign on Education For All
Community Based Organization
Conselho Consultivo
Conselhos da Escola
Centro de Desenvolvimento de Recursos
Centro de Desenvolvimento da Sociedade Civil
Cidadão e Mudança
Centro de Integridade Pública
Conselho Nacional da Juventude
Country Office
Constructing Citizenship in Mozambique
Country Strategy
Civil Society Organization
Corporate Social Responsibility
Danish Crown
Development Partners
Education for All
Extractive Industries Transparency Initiative
Educação Participativa para a Comunidade
Fundo de Apoio ao Sector de Educação
Fundo de Desenvolvimento Distrital
Foreign Direct Investment
Fórum Mulher
Field Office
Fórum das Associações de Cabo Delgado
Fórum das Organizações Femininas de Niassa
Fórum das Organizações Não Governamentais da Zambézia
Fórum das Associações da Sociedade Civil de Cuamba
General Budget Support
General Certificate of Education
Gross National Product
Human Development Index
Head Office
Information and Communication Technology
Instituto de Estudos Sociais e Económicos
Instituto de Formação de Professores
Instituto Nacional de Estatística
International Non Governmental Organization
Millennium Development Goals
Monitoring and Evaluation
Ministry of Foreign Affairs
Media in Rural Community Development and Civil Society Empowerment
Ministério de Juventude e Desporto
Núcleo das Associações Femininas da Zambézia
Non Governmental Organization
Non State Actors
Official Development Assistance
Organização da Juventude Moçambicana
Órgãos Locais do Estado
Organização Moçambicana de Mulheres
Programme Assistance Partners
Parlamento Juvenil
Sector Budget Support
Swedish International Development Agency
Serviço Distrital de Educação, Juventude e Tecnologia
United Nations Development Programme
United States Dollar
Women and Youth in Leadership and Politics
Women in Politics
Zonas da Influência Pedagógica
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Acronyms ............................................................................................................................................................................ 3
0
Executive Summary .................................................................................................................................................... 6
1
Introduction ............................................................................................................................................................... 7
2
Context analysis ......................................................................................................................................................... 9
2.1
Overall context .................................................................................................................................................. 9
2.2
IBIS history in the country ................................................................................................................................. 9
2.3
Education......................................................................................................................................................... 10
2.4
Governance ..................................................................................................................................................... 12
2.4.1
Transparency and accountability ............................................................................................................ 12
2.4.2
Decentralization...................................................................................................................................... 13
2.4.3
Human Rights and Access to information............................................................................................... 14
2.4.4
Poverty and CSOs .................................................................................................................................... 14
2.4.5
State of Rights and Responsibilities within IBIS core areas of work; education and governance .......... 15
2.5
Gender and Equality ........................................................................................................................................ 16
2.6
Youth ............................................................................................................................................................... 17
2.7
State of HIV-AIDS ............................................................................................................................................. 18
2.8
Climate change risks ........................................................................................................................................ 19
2.9
Extractive industries ........................................................................................................................................ 19
2.10
The national civil society – strengths and responses ...................................................................................... 20
3
IBIS’ strength, response capacity; new challenges ................................................................................................... 21
3.1
IBIS’ comparative advantages, added value, approaches and competencies ................................................. 21
3.1.1
Rights based approach and orientation by the MDG and national poverty reduction programmes ..... 21
3.1.2
Linking the global, national, provincial and local levels .......................................................................... 22
3.1.3
IBIS’ Social and Human Capital ............................................................................................................... 22
3.1.4
Strategic and implementation tools ....................................................................................................... 22
3.2
New Challenges ............................................................................................................................................... 23
4
Programme strategy outline .................................................................................................................................... 23
4.1
Programme focus, target groups and geographical focus............................................................................... 23
4.1.1
Programmatic Pillars ............................................................................................................................... 23
4.1.2
Main strategic lines of action ................................................................................................................. 25
4.1.3
Geographical Focus................................................................................................................................. 29
4.1.4
Target groups and beneficiaries ............................................................................................................. 30
4.2
Partner approach and development ............................................................................................................... 30
4.3
Cross cutting Issues ......................................................................................................................................... 31
4.3.1
Advocacy ................................................................................................................................................. 31
4.3.2
Gender and HIV- AIDS ............................................................................................................................. 31
4.3.3
Youth ...................................................................................................................................................... 31
4.3.4
Extractive Industries ............................................................................................................................... 31
4.3.5
Climate Change ....................................................................................................................................... 31
4.3.6
Documentation, Dissemination and Communication............................................................................. 32
5
Hierarchy of objectives and areas of intervention ................................................................................................... 32
6
Synergy of interventions .......................................................................................................................................... 33
7
Alliance 2015 ............................................................................................................................................................ 33
8
Programme Budget and Programme Funding Strategy ........................................................................................... 33
8.1
Funding resources ........................................................................................................................................... 33
8.2
Fundraising ...................................................................................................................................................... 34
8.2.1
Strategy and targets ............................................................................................................................... 34
8.2.2
Mobilization of non-frame funding ........................................................................................................ 34
8.2.3
Support to private fundraising by Head Office ....................................................................................... 34
9
Management for Change ......................................................................................................................................... 35
9.1
Result based management .............................................................................................................................. 35
9.2
Monitoring and evaluation .............................................................................................................................. 35
4
9.2.1
Learning and knowledge management .................................................................................................. 35
9.3
Human resources and development ............................................................................................................... 36
10 Programme Organisation ......................................................................................................................................... 36
10.1
Structure .......................................................................................................................................................... 36
10.2
Staff and Positions ........................................................................................................................................... 36
10.3
Collaboration and relations with other IBIS countries in the region and HO / global groups ......................... 37
11 Annexes .................................................................................................................................................................... 38
Annex I: INGOS, NGOs and change in aid paradigm ..................................................................................................... 38
Annex II: Geographical target areas and extractive industry-- Strategic choices ......................................................... 39
Annex III: AIDS / HIV among youth ............................................................................................................................... 41
Annex IV: Features of target areas for IBIS Interventions ............................................................................................ 41
Annex V: Target groups and beneficiaries by programmatic pillar and level of activity .............................................. 42
Annex VI: IBIS’ CEDESC - Quelimane ............................................................................................................................. 43
Annex VII: IBIS value chain for documentation, information, dissemination ............................................................... 45
Annex VIII: Country Strategy Plan 2013-2017: Hierarchy of Objectives ....................................................................... 47
Annex IX: Knowledge Management -Virtual structure (2013 -2017) ........................................................................... 50
Annex X: Organization and Staff ................................................................................................................................... 51
Annex XI: Implementation Plan for the Country Strategy 2013-17 .............................................................................. 53
Annex XII: Phase Out plan for Niassa………………………………………………………………………………………………………………………54
Annex XIII:
Bibliography…………………………………………………………………………………………………………………………………………..546
Tables and Figures
Table 1: Frame funding (DANIDA), Non Frame Funding and Fundraising (in DKK) ........................................................... 33
Table 2: Ranking Exercise at staff Workshop, IBIS Maputo, 12 July, 2012 ....................................................................... 39
Table 3: Options for IBIS geographical Interventions ....................................................................................................... 40
Figure 1: IBIS linking the global to the community level ................................................................................................... 22
Figure 2: Time line of present Thematic Programmes ...................................................................................................... 23
Figure 3: CS 2013-17- Pillars and Programmes ................................................................................................................. 24
Figure 4: IBIS Mozambique- organizational structure...................................................................................................... 36
Figure 5: Extractive Economy and change in aid environment ......................................................................................... 38
Figure 6: Zambézia: primary school supply and demand ................................................................................................. 41
Figure 7: Institutional Knowledge Management .............................................................................................................. 50
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0
Executive Summary
Mozambique, one of the countries in Sub-Sahara Africa with a low and rather stagnant Human Development Index is
on its path towards a mineral resource-led economy after, among others vast reserves of coal and gas (offshore) and
heavy sands, have been discovered and major investments in their exploitation and export are being made. The expected investment of up to US$ 90 billion USD over the coming years in gas alone dwarfs the present Gross National
Product of about US$ 12, 6 billion at present. This trajectory has considerable consequences for the country’s hitherto
dependence on aid, its revenues and, above all the political economy of power relations and thus access to employment, income and socio-economic development.
Whether or not the mineral riches can successfully be transformed in wealth and development for the whole nation or
turns out to be a curse, benefitting only a small rent-seeking coalition of elites, will depend on three key variables,
which will strongly Influence IBIS’ work in Mozambique during the implementation of its present Country Strategy (CS)
2013-17. This are, firstly, the macroeconomic policy and budget decisions on economic and human development,
notably education, health and social welfare; secondly, the strengthening and reform of institutions of state and government at all levels of the political-administrative system, the access to information for the public and the fight
against corruption, and, thirdly, the successful transition from the ‘aid for development ’to a ‘resources for development’ paradigm, in which donors play a lesser role in favour of national and international companies, government and
the Mozambican society and her organizations as a whole.
IBIS with its long experience in Mozambique, its diverse array of partners and competencies, its lines of action built on
the two Pillars of ‘Education for All’ and ‘Governance and Citizenship’ and supported by well formulated policies and
strategies is in a good position to continue to support the Mozambican civil society, educational authorities and specifically the underprivileged sections of society, women, girls and youth, in rural communities and towns. Based on a
rights and citizen –based approach, these will be empowered to facing up to the above transformation processes and
playing an increasingly active, conscious and engaging role in conquering political space and the necessarily social and
economic capabilities to make developmental choices.
Responding to the above challenges the CS 2013-17 will consolidate the IBIS’ past achievements and be innovative in
introducing the following changes:
1. The systematic incorporation of Extractive Industries (EI) as a new national program component in the Governance Pillar, requiring specific foci, approaches and activities related to taxation and land rights and use,
with special reference to acquired community and women’s rights.
2. A stronger focus on corporate social responsibility (CSR) of Foreign Direct Investment, and in the case of conflicts between corporate, government and community interests, on conflict mitigation and prevention;
3. The shift, in the first year, from the present geographical intervention area for the Governance Pillar, Niassa,
to Zambézia, with prevision of focussed governance activities in the area of EI in Nampula and Cabo Delgado.
This permits drastically improved synergies with the education pillar (‘governance in basic education’), notably concerning the monitoring of budgets, sector plans and institutional performance, with a focus on School
Boards, Agents of Change, and Consultative Councils (CCs). The basic education programme EPAC, notably its
flagship Escola Feliz and the focus on School boards is to be up scaled to district and provincial level also to
gain more leverage for advocacy campaigns towards education for all and improved performance of the sector.
4. A stronger focus of local governance activities on municipalities, without, however discontinuing the strategic
line of capacity building of change agents and members of CCs in selected districts. This includes a gendered
approach to women and youth in politics and leadership.
5. The recognition that the ‘Access to Information’ component, although formally part of the Governance Pillar,
as a crucial cross cutting line of action relevant for all components of IBIS’ thematic areas (Basic Education,
Women in Leadership and Politics, Local Governance and EI).
6. The gradual decrease of the share of frame funding in the overall budget composition in favour of non frame
institutional funding and private and corporate institutional funding sources, which necessitates the assessment of IBIS Mozambique’s fundraising capacity and modalities and major efforts to substantiate fund raising
through documentation and dissemination of IBIS’ and its partners’ successes and achievement .
IBIS will continue with its healthy and risk-conscious mix of direct and indirect implementation of its Programmes.
Especially the latter places a premium on result-based approaches to partnership agreements, and stresses the importance of capacity building, monitoring and coaching the Mozambican partners of civil society, both streamlined
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into IBIS Mozambique’s management and partnership approach. The Zambézia-based Centre for the Development of
Civil Society (CEDESC) will serve as hub for training, capacity building, research-based dialogue and documentation.
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Introduction
What are the challenges, which IBIS- Mozambique will face during the period for its present Country Strategy (CS)
2013-17? Answering this question is analysing the major transformations, its host country Mozambique and her society and economy are undergoing at present. In a way, the Mozambican political economy is at a crossroads, characterized by the following four interlinked issues:
a) The political economy is turning into one driven by (mineral and energy) resource extraction, after having
passed through previous phases of a service economy, i.e. for the neighbouring states, a war economy and an
open, mercantilist trading economy without much of own production. In the next few years approximately 90
billion USD will be invested in the extractive industries (gas, coal, oil, hydro-electric power) and associated infrastructure (railways, ports, airports, roads etc.), mostly in the form of Foreign Direct Investment (FDI). This
1
will dwarf the present GDP of 12.4 billion USD . The outcome of the beginning debate on resource blessing
vs. resource curse notwithstanding: What will be the socio-economic, political, fiscal, security and environmental implications of these profound changes and how are these adequately addressed in a national governance agenda?
b) There is little evidence of tangible progress towards improvement of the socioeconomic situation of the large
majority of the population, as measured, for example, by the Human Development Index (HDI) poverty reduction indicators. The resource gap between growing expenditure in the social sectors, notably education
and health and the tendency of decreasing spending via the state budget has been made up, to a large extent, by donor support. On the other hand, the basic national resources available for poverty alleviation, such
as water and land, have suffered enormous pressures attributable to privatization and concessioning. Does
this mean that high poverty rates are to stay amidst an ever wealthier small stratum made up of economic
and political elite linked to the predominant party?
c) The economic effects of the crisis of public finances in Europe and, as it were, of the underlying economic
growth model has been negatively affecting already the capacity and inclination of major providers of Official
Development Assistance (ODA)to Mozambique to continue with ‘business as usual’ concerning guaranteeing
the aid rent, to which the Mozambican political economy is accustomed. What will be the implications of a
volatility of ODA and possibly a declining tendency, notably for the social sectors? Can the ‘losses’ be compensated by increased spending financed through the expected growth of own fiscal resources generated
through the resource extraction economy?
d) The aforementioned points will certainly affect Frelimo, the dominant party governing the country since Independence, its leadership, internal dynamics and its relations with the electorate and ‘clients’. Will the party
and government manage to transform itself into a dominant force with more, or with less encompassing interest, subject to more or less institutional checks and balances? Will it succeed to put the political economy
on a trajectory towards a democratic developmental state or transform and consolidate itself as a rent seeking ‘enterprise’ for the ruling elites, without much of a broad based national agenda for more inclusive developmental transformation?
IBIS Mozambique as a (Danish) International Non Governmental Organization (NGO) operating in Mozambique since
more than 30 years and its partners in the Mozambican civil society and government will not be spared to address
those questions. The present CS 2013-17 will help the organization to find answers and to review its strategic positioning, adjust and reinforce its programmes, foster strategic alliances and mobilize its own and external resources aimed
at empowering its Mozambican civil society partners to face up to those challenges. Thus, the CS 2013-17 will address
the implications of the extractive economy, the possible drop in ODA, the increasing gap between rich and poor and
the need for inclusive development and growth of Mozambique. It will do so, by supporting civil society organisations
(CSOs) in monitoring the economic and social impact of Extractive Industries (EI) as well as advocate for transparency
and accountability, and by influencing the legal framework under revision, advocating for inclusive policies, the economic redistribution of benefits of the extractive economy and the renegotiation of contracts. These strategic lines of
actions combined with the monitoring of local governments’ budgets and plans, notably in the education sector are
assumed to produce a positive impact on the social sectors and compensate for the expected drop in ODA. The strategic lines of action will be democratic reforms and economic redistribution, women’s political participation as well as a
strong focus on access to information (including social media) and freedom of expression.
The CS 2013-17 will see four major changes. The first is the gradual withdrawal from Niassa as one of the long term
geographical areas of IBIS interventions, given a significant drop in poverty levels in that province. The second, related
1 EIU, Mozambique Country Report. London March 2012
7
challenge is the dovetailing and mutual reinforcement of the Governance Pillar (Pillar I) with the Education Pillar (Pillar
II) in Zambézia, with elements of both ‘spilling over’ into the adjacent Nampula Province and beyond (Cabo Delgado).
Thirdly, two thematic issues merit particular emphasis. The first is Access to Information (AI), which, although technically part of Pillar I, is considered a topic broadly relevant for both Pillars and their components. The second is the
inclusion into the CS of ‘Extractive Economy / Industries’, reflecting Mozambique’s transition to a resource economy.
Finally, concerning capacity building and support for its Mozambican partners IBIS aims at considerably improving
their organizational quality and competence, notably of those operating at sub national level.
Based on its excellent track record and reputation as innovative and flexible partner for all relevant stakeholders,
including government, IBIS Mozambique is well positioned for contributing to make the Mozambican citizens and their
organizations to exercise their constitutional and human rights, intervene in policy debate and pro-poor social change
in an informed and evidence based way, and enable them to produce impacts on the policies and development trajectory in their quality as countervailing, informed societal power, electorate and taxpayers. This will help reminding
the dominating coalitions of economic and political power as well as other national and international stakeholders
that the constitutional sovereign of Mozambique is its peoples and citizens and that social justice is a key ingredient
for sustained and democratic development.
On the part of IBIS Mozambique this will imply a creative and persistent way of aligning the programme not only to
new needs emerging from the change dynamics, mobilize funding and identifying and seizing new opportunities.
Based on its own track record of excellent, its thematic competence and innovative management approach (results
cum resource based) at present under review to increase its functionality and performance outcomes, coupled with
maturing national and local partners and well designed and executed programmes IBIS Mozambique is in a good position to navigate its way through the challenges and produce tangible and sustainable results and outcomes.
The monitoring of the following key indicators enables IBIS to periodically gauge if it is on the right track during the
implementation of its five year Country Programme:
1. The increased maturity and capacity of IBIS local and national partners as measured by tangible changes in
the classification of IBIS Mozambican partners, i.e. a decrease of the number of weak partners (‘hand holding’ category) and the corresponding increase of more mature (‘arms length’ category) and highly professional partners;
2. The successful design of a successor project for COCIM in mid 2013, composed by the two selected global
lines of actions, namely ‘Democratic reforms and economic redistribution” (including advocate for fiscal decentralisation and devolution, taxation on natural resources revenues and the FDI corporate responsibility,
resource tracking and budget monitoring at national and local level) , and “Political participation” (including
Women in Politics as well as the use of information technologies and social media to mobilize especially
youth political participation). ;
3. The design and successful financing of successor programmes of Access to Information subcomponent ( form
January 2015 onwards) and for EPAC (from October 2016 onwards);
4. The shift, in the first year, from the present geographical intervention area for the Governance Pillar, Niassa,
to Zambézia, with prevision of focussed governance activities in the area of EI in Nampula and Cabo Delgado2;
5. The progress made in incorporating systematically extractive industries as a new key component requiring
specific approaches and activities;
6. The gradual decrease of the share of frame funding in the overall budget composition in favour of non frame
institutional funding and private and corporate institutional funding sources. and the assessment of IBIS
Mozambique’s fundraising capacity and modalities In year 1)
7. The results of the revision of the Danish government’s support strategy towards Civil Society Organizations
(CSO) and Danish NGOs, expected to be concluded in early 2013.
The indicators will be monitored through the annual Performance Agreements with program directors. ‘Criteria of
Success’ for each of the programmatic components of each Pillar will be formulated in the context of the development of a Performance Measuring Framework, as foreseen in Phase 2 of the Implementation Plan for the CS 2013-17
(see Annex XI).
With the present Country Strategy 2013-17 IBIS Mozambique the framework is laid out which will enable IBIS Mozambique to prove in the key strategic areas of intervention, that the organization and its national partners are capable to
adjust themselves to a changing operational environment and, at the same time, continue to be ‘advocates of those
who do not have a voice’, committed to ‘Fungula Masso [opening the eyes] of the Mozambican citizens and communi3
ties’ .
2
Extractive industry component will be formulated as a national program allowing for strategic intervention in provinces of interest.
3 terms used in Niassa Province in interviews with partner organizations
8
2
2.1
Context analysis
Overall context
Mozambique has a land area of 799.390 km² with a population (2007) of 20.366.795 inhabitants according to the 2007
2
census (thereof 51, 7% woman, average population density: 25 persons / km ), distributed across its 10 provinces.
About 45% of the population is younger than 18 years of age. Population growth is 2, 4% p.a. The cultural diversity is
reflected by the more than 16 local languages in use, in addition to Portuguese, the official language. The country’s
capital Maputo, has approximately 1, 1 million inhabitants (2007), and is situated in the extreme South of the country.
Together with the adjacent industrial town of Matola (approx 675.000 in 2007) it accommodates almost one tenth of
the country’s population and the bulk of the country’s industrial, commercial and administrative installed capacity.
After Independence in 1975 the ex- liberation movement the Frelimo party, pursued unsuccessfully the construction
of a socialist society with a centrally planned development trajectory. A war of destabilization coupled with features
of internal armed opposition to the Frelimo regime ravaged the country during 1977 and 1992, the year when a peace
th
agreement with the Rebel movement Renamo was signed in Rome on October 4 . This ushered in a formal multi party
democracy in which the former rebel movement is the strongest opposition party. Frelimo, however holds on to its
claim of the predominant political force and increasingly controls the state, bureaucracy and economy to secure its
domination, a trend recently confirmed at the X Congress of the party. The political and economic elite are seen to be
as largely rent seeking. The party and its discourse of power politics are aimed at enhancing its social and political base
by extending its clientelist system to the rural and urban societies where it is not necessarily firmly rooted (Weimer,
Macuane, Buur, 2012).
Ever since the signing of the Peace Agreement in Rome in 1992, Mozambique has been considered by donors as a
success story of peace consolidation, reform and economic development. In the first decade after the founding multi
party elections of 1994, the World Bank estimates a mean annual GDP growth rate of 8.6% (World Bank, 2005),
4
producing a doubling of the GDP per capita from 1994 to 2004 (Virtanen & Ehrenpreis, 2007). Thereafter the
Mozambican economy continued to grow by an annual average just below 8%, driven partly by very high levels of
foreign aid, which in 2012 still accounts for over 40% of the state budget, making Mozambique one of the poorest
and most aid-depended countries in Sub Sahara Africa. However, growth has occurred with little sustained formal
employment creation or broad-based poverty reduction. Foreign Direct Investment (FDI) has been continually increasing over the past ten years, primarily channelled to megaprojects in the energy, mineral and gas sectors. Over the next
ten years, investment in gas exploration and production alone is estimated to be about 90 billion USD (for comparison: the GDP in 2011: 12.4 billion USD), followed by investment in power generation, coal production and transport
infrastructure. The natural resources boom is likely to bring along additional revenue streams: New resource rents,
based on coal mining in Tete province, will begin to have a significant impact on state revenue from 2013 onwards,
while off shore gas extraction in the Rovuma basin of Cabo Delgado Province, although potentially more lucrative, will
not start before 5 to 7 years from now (EIU, 2012). The impact of that investment and the mineral resource hype on
poverty reduction and employment creation is yet to be seen 5.
6
As several authors , the outcome of the exploitation of Mozambique’s mineral and energy resources, either in the
sense of a blessing, or a curse, depends on a combination of two key variables. The first are economic factors (macro
economic framework, investment, infrastructure and fiscal policies, stabilization and distribution policies etc.), and the
second are institutional factors (e.g. the maturity of governmental and state institutions), and matters associated with
good governance (efficacy and effectiveness of PFM, institutional checks and balances, transparency, absence of corruption, responsiveness to society etc.). Mozambique has much to offer concerning the elements of the first variable.
However, the institutional factors of the second variable are deemed too weak and underdeveloped, with the potential effect of tilting the trajectory towards the resource curse scenario. This was confirmed by recent analyses of scenarios for Mozambique’s development trajectory (Anon, 2011; Levy, 2010) These also point out that continued social
exclusion may breed political violence, as happened in 2008 and 2010, unless a less elitist, more encompassing development strategy is pursued.
2.2
IBIS history in the country
Since 1976, IBIS’ work in Mozambique has in a way mirrored the developments sketched above, always in support and
as advocate of the less privileged parts of the Mozambican society, notably children, youth and women in rural areas,
in which the majority of the population lives, but which are less well covered with public goods and services. After the
Peace Accords of 1992, IBIS concentrated its work on the rehabilitation of schools, secondary roads, health posts and
water supply systems, in partnership with rural communities and the local administrations, with a focus on decentral-
4 The exception to these trends has been 2000 when flooding made all indicators fall, and the present economic crisis, where growth is expected to
fall to about 6% per year
5 http://www.nytimes.com/2012/11/11/world/africa/as-coal-boosts-mozambique-the-rural-poor-are-left-behind.html?hp&_r=0
6 see, for example, Mulder and Bucuane (2008)
9
ized district development planning until up to 2003, the year in which the legislation on Órgãos Locais do Estado
(OLEs) was enacted. Since then the IBIS’ programmatic architecture has been characterized by two main programmatic pillars, Education and Governance / Citizenship, with a rights based approach and topics such as AIDS / HIV gender
equality and women empowerment, and youth cutting across both. IBIS is one of the few International NGOs (INGOs)
systematically linking all levels of the Mozambican public administration , i.e. community, district, municipal, provincial and national levels, with a strong bias towards the sub-national levels, seizing the opportunities created by the
ongoing public sector reform and decentralization (since the late nineties).
During that period, IBIS geographical target areas, Niassa and Zambézia Provinces, have not changed a situation which
will come to an end during the implementation of the present CS.
IBIS’ education- centred efforts revolved around the thematic programme Education for Change in Rural Communities
(ECRC), which ran from 2003- 2007, followed by Educaçao para Desenvolvimento da Comunidade (EDEC) (2008-2011).
The present education programme, Educação Particpativa para a Comunidade (EPAC) runs until October 2016. Education, different from schooling is understood in a holistic way. Achieving the expected learning outcomes requires involving state institutions, the students (learners), their parents and communities as stakeholders and encompassing
curriculum development, teacher training (educators), justice in access to education, policy development and a civil
society active in monitoring of education sector plans and budgets as well as engaging in relevant advocacy efforts, i.e.
involving state institutions, the students (learners), their parents and communities as stakeholders and encompassing
curriculum development, teacher training (educators), justice in access to education and policy development.
Responding to the need of empowerment of communities and the transformation of subjects into citizens which have
an informed say in the development policies of their country, IBIS has been implementing the Constructing Citizenship
in Mozambique (COCIM) since 2009, with a focus on Niassa Province. It targets communities, community based organizations (CBOs) and Civil Society Organizations (CSO) at district and sub district level and aims at promoting individual
and collective Agentes de Mudança (Agents for Change- AC) as nuclei for the interaction with local and provincial
governments towards more accountability and responsiveness. It uses its well defined rights based approach to capacity building and advocacy as point of departure. A specific project, Media in Rural Community Development and Civil
Society Empowerment (MIRAC) supporting community radios running from 2003 to 2007 has been phased out, respectively integrated in the Access to Information (AI) programme. Together with Women in Politics (WIP) which focuses on elected members of municipal and provincial assemblies, they are part of the Governance Pillar.
Looking ahead, the CS 2013-17 foresees the geographical focus of both Pillars, much more dovetailed than in the
past, will be Zambézia, with elements such as EI and WIP ‘spilling over’ into Nampula and Cabo Delgado Provinces.
The strong vertical links from the local, national to international levels, and vice versa, in both Pillars continues to a
brand mark of the CS. The following sections describe and analyze in more details the specific contexts in which IBIS’
two Pillars, Education and Governance, operate.
2.3
Education
During the past 30 years, Mozambique has seen considerable progress in Education – despite the devastating effects
of the civil war on the education system. Enrolment in public primary schools (step 1 and 2, i.e. from grade 1 to grade
7) has risen dramatically from about 1.5 million in the early eighties to just below 5 million (2009), with girls representing about half of enrolled students. Education is one of the drivers of change towards decentralization. Increasingly
resources are allocated and managed at sub-national level. The recent years witnessed a dramatic increase in school
construction and a ‘fast track’ production of primary school teachers, the distribution of school books and direct support to schools (Apoio Directo à Escola – ADE), the monitoring of which is one of the tasks of the School boards (Conselhos de Escola- CE) established in 2003. The Education budget is financed to the tune of 25% by donor support in the
7
form of Sector Budget Support (SBC) , however with decreasing tendency and a number of donors dropping out of this
support modality.
8
Yet, according to recent studies (CEF, 2008: AfriMAP & OSISA, 2012) and educational statistics , the impact of policies
and investment cannot be considered satisfactory. The noble objectives of (quality) education for all is far from being
achieved: the high rate of drop outs, high student / teacher ratio, the poor performance of teachers (educators), and
the annual drama of children neither finding placement in schools nor getting access to schoolbooks allegedly distributed for free speaks a clear language. The low quality of educational standards is a major concern to the authorities,
students (learners) and parents alike. It is linked to the low quality of (fast track) training of teachers; as well the latter’s lack of motivation and school attendance, often attributed to low salaries and often remote localization of primary schools.
7 Via the Fundo de Apoio ao Sector da Educação (FASE)
8 in comparison to other countries in Sothern Africa, Mozambique does not score favourably on indicators such as adult literacy rate, net enrolment,
GNP per capita (primary education per pupil-PPP), recurrent expenditure (PPP) and survival rate grad 5, among other ( See: Spaull, 2011)
http://www.sacmeq.org/downloads/Working%20Papers/08_Comparison_Final_18Oct2011.pdf.
10
The existing differences in terms of human resources (teachers) and infrastructure (buildings) affect educational outcomes across (and within) provinces. Planning and budgeting from bottom up, i.e. from the levels of the school via the
regions (Zonas da Influência Pedagógica- ZIP) and from the province to the central government is considered to be
9
ineffective and not sufficiently addressing the equity issues in education . The management of the ADE Funds as well
as the recruitment criteria for teachers and school directors (for which the local district governments are in charge)
are considered to be lacking transparency. And the CEs still have space to improve on the monitoring of school affairs,
the management of ADE Funds and the performance of teachers
While this diagnosis looks at the aspect of the public supply of educational services, the demand side plays an important role in the assessment of (primary) education and its outcomes, too. Here two factors are particularly relevant: Firstly, the often low degree of identification of parents and the community with the public school system. In
10
rural Mozambique it is often perceived as ‘theirs’ (i.e. of the ‘structures ), with little sense of ownership by and utility
for the community, due to the teaching medium (Portuguese), little local contextual content in the curricula, poor
management of schools, low quality of teacher training, high degree of absenteeism as well as incorrect behaviour of
teachers, such as sexual abuse of girls and other corrupt practises regarding promotion of students (AfriMAP & OSISA,
2012: 22). The other factor is that children in school age are considered a productive force or ‘commodity’ for the
sustenance of the family, especially in social settings with high poverty incidences. The consequence is that parents
‘transact’ children into activities expected to bring immediate gains: working as diggers in gold and gemstone excavations, participating in the weeding and harvesting of cotton, or the use of girl labour for household chores together
with the handing over of young girls as brides and wives to ‘wealthy’ grooms and husbands against receipt of ‘lobola’
(dowry), both leading to premature marriage and child birth and high dropout rates among girls.
Thus the right and duty of education as enshrined in the Constitution, and the ground work this lays for acquiring basic
skills necessary for improved livelihood and potential employment at a later stage in the lives of the young (rural)
Mozambican generations is not always recognized by parents, with their children thus missing out opportunities and
the laying of the groundwork. In the case of Zambézia Province, there are indications of mismatch between the (increasing) supply of primary school services, and a (decreasing) demand (see Figure 6, Annex IV).
The afore-cited independent and comprehensive assessment of the primary education in Mozambique makes a num11
ber of recommendations. It corroborates IBIS’ own analysis and endorses the organization’s strategic choices and
approach reflected in the CS 2013-17 in general and specifically in the EPAC programmatic document and the activities
foreseen (IBIS Moz, 2011). It also serves for enhancing, by design, the complimentarily and dovetailing of the two IBIS
Pillars (Education and Governance) in mainly one Province, Zambézia, as outlined below (Chapter 5).
IBIS is thus well placed to continue to be a major and innovative player in basic education in Mozambique. The organization will add value to primary education due to its own assets and acquired competence, which can be resumed in
three points. Firstly, IBIS’ education department can count on excellent, nationally and internationally recognized
human resources. The staff is technically and methodologically competent, institutionally well positioned in the education sector, having strong links to the Ministry of Education and nongovernmental stakeholders. It thus has and uses
convening power and lobbying capacity which impacts positively not only on the organization and its programmes, but
also on policy formation. Secondly, IBIS uses a holistic approach to education as described above. And thirdly, IBIS
provides added value for its partners, through its resources, own facilities (CEDESC) and adequate and relevant methods (coaching, mentoring, etc.) to increase the partners’ capacity, both organisational and programmatic.
From its wealth of experiences in education, the following lessons learned are particularly relevant for the CS 201317:
 Teacher training for improved educational quality through innovative, interactive and multi stakeholder approaches takes time for changing mindsets and overcome initial resistance of teachers and the educational
bureaucracy involved, and thus depends on a continued backing by government and the collaboration with
the Institutos de Formação de Professores (IFPs) for maintaining momentum and success.
 The concept of Escola Feliz has turned into IBIS’ flagship. Developed in selected schools serving as ‘laboratories’, it smartly introduces the school as a place where there is a good learning environment, creating the
9 The Mozambican planning and budgeting systems are not organically dovetailed with each other and the incremental approach to annual budgeting
and resource allocation perpetuates regional distortions , to the detriment of the most populous and needy provinces.
10 In Mozambique’s rural context ‘structures’ denote representatives of the Frelimo party, respectively the state.
11 Concerning educational policies and programmes the report recommends, among others, to include a)human rights issues in curricula and enact
legislation which provides the right to education as a public service to all free of charge; b)improve the quality of education through improved and
extended teacher training, improved monitoring and inspections; c)Increased the teacher / pupil ratio. (educators/learners ratio). With regard to governance issues in education, the following recommendations have been selected: d) better monitoring of planning and budgeting and resource allocation and distribution in (primary) education at district, provincial and national level e)improved production of and access to educational statistics ,
including on cost of education per student and per family unit; f) improved accountability and transparency with regard to the use of ADE, the quality
of school infrastructure and the selection of teachers and school headmasters g)wider coverage of School boards and enhanced capacity building for
them in matters of educational rights, school management, and monitoring and accountability procedures, in collaboration of civil society.
11

2.4
possibility of experiencing what a quality education can be: a functional and healthy school building, democratic management of the school, active participation of the community in school life, teachers engaged and
able to stimulate learning and conduct student centred teaching, children actively learning and playing in and
outside the classroom, producing a strong appeal to and sense of ownership by learners, educators and
community;
The School boards, and the creation of a representative structure at the district level in the form of School
Board Associations/ and Forums provide an opportunity not only for dialogue and learning among all stakeholders, but also a stimulus for the democratization, through the participation of parents and the community
in educational matters, and the monitoring of the local school budget (ADE). For purposes of advocacy, lobbying and discussions of educational policy the organizational support to local and national CSOs proved most
relevant. They also serve well for addressing issues such as gender inequalities and dropout rates of school
girls, notably via the increasing female members of the CEs, duly capacitated as ‘multipliers’ of the message,
that girls should be on equal footing with boys as far as education and livelihoods are concerned. Concerning
HIV/AIDS, the method ‘Escadas para Vida’ was successfully introduced, and broadly accepted, not only by
the people directly affected by the disease, but also by parents (community) and the government. Its use is
now standard practice and will continue to be mainstreamed in the IBIS programs (both education and governance).
Governance
2.4.1
Transparency and accountability
A political economy based on rent seeking faces major challenges concerning good governance and inclusive socioeconomic development. Mozambique is not a case to question this observation. In the words of the IESE Director of
the Instituto de Estudos Sociais e Económicos (IESE), Carlos N Castel Branco, Mozambique has turned into a ‘rent seeking’ society at all levels and in all spheres, the CSO and NGOs included. According to international indices, Mozambique has consistently featured among the most corrupt countries in Africa during the past few years (TI, 2012), and
the Development Partners (DPs) have raised governance issues several times and again in the Annual Joint Reviews of
programme aid in the logic of the Paris, Accra and Busan Declarations on Aid Effectiveness. In November 2012 Finland
announced that it will cut aid, justifying this step with continued corruption in the public sector. Evidence of illicit
forms of rent seeking and ‘grand corruption’ , trafficking of influence in the allocation of land concessions for mining,
forestry and fisheries, has been produced, among others by IBIS’ strategic partner in the Governance Pillar, the Centro
de Integridade Público (CIP). There is equally evidence of common, widespread petty corruption, in the form of bribing
bureaucrats, teachers, medical staff, police and customs officers for getting access to public services and posts, and
for obtaining documents, promotions and school and career advancement, and better and faster medical treatment.
The distinction between private sector and public sector becomes blurred since both are interlinked and permeated
by members of the ruling elites. This may lead to conflicts of interests in procurement, legislation, concessioning of
12
land use titles etc. .
Another causes for Mozambique’s perceived low governance performance, are the weak and under structured state
institutions, notably those charged with supervision and control of the executive: the Parliament, the Auditor‘s Office
(in the Administrative Tribunal), the Internal Control sections of the ministries and the Central and Provincial Offices of
the Fight Against Corruption (Gabinete Central de Combate à Corrupção- GCCC). Important pieces of legislation are still
missing, such as on conflict of interest of office bearers. For these reasons, CSOs and the media need to play an in13
creasing role as whistle blowers, addressing governance issues and submitting proposals for mitigating measures .
Formal accountability of the executive to those institutions of control and supervision is still limited but has improved
over the past years with the Auditor General (Tribunal Administrativo) and Parliament becoming more assertive. The
same is true, to some extent, for the municipal assemblies. However, the (informal) upward accountability to the
ruling party hierarchy is prevailing, since the Frelimo Party’s supreme decision making bodies, notably the Political
14
Commission dominated by the Chairman of the Party consider themselves above government .
Since 2002 the public sector reform produced an increasingly sophisticated and operational Public Finance Management (PFM) instrument (‘e-sistafe’) whose key functionalities are budgeting and expenditure management. Other
functionalities such as procurement and asset and revenue management are in the process of being developed. DPs
12 Notably the Public enterprises, many of them subsidised by government and with low capital productivity, are neither linked, as yet, to the Public
Financial Management System (PFM) [e-sistafe] nor subject to the procurement rules for public goods and services. From the perspective of transparency and accountability they are considered by Development Partners (DP) a ‘black hole’ (Weimer & Macuane, 2011).
13 Probably the most relevant and nationally and internationally recognized CSO in the advocacy for more transparency and accountability and the
fight against corruption is the Centro de Integridade Publica (CIP)13, one of IBIS’ key partners at national level. Parliament and notably its Head of
the Planning and Budget Commission and the GCCC see CSOs as allies rather than as obstacles in exercising the constitutionally enshrined control
functions.
14 According to the Frelimo statutes the President of the country may sit on the Political Commission, however without vote.
12
have increasingly trust in the PFM system and have been providing budget support through it. However, internal control and audit of public accounting is still weak. Access to the periodical e-sistafe reports, necessary for budget tracking and comparison between planned and executed budget lines still is very limited.
2.4.2 Decentralization
After the Rome Peace Agreement decentralization and local government reform gained momentum, aimed at
strengthening (and democratizing) district and municipal governments and their role of service providers. The reform
outcome is, a ‘bifurcated system’ (Weimer, 2012): at present, 43 municipalities with devolved powers, fiscal autonomy
and regular elections of the mayor and a Municipal Assembly, co-exist with 128 District governments and 11 provincial
governments on the other. The latter considered ‘deconcentrated ‘Local Branches of the State’ (Órgãos Locais do
Estado- OLEs) have little political and fiscal autonomy and no electoral local democracy. The legislation (Law 8/2003)
established local Consultative Councils (CC) at various sub provincial levels, tasked to participate in the elaboration of
District Strategic Development Plans (PEDD) and annual District Plans and Budgets (PESOD), as well as in the monitoring of their implementation. They are also involved in consultations with the District governments concerning the
allocation and selection of beneficiaries / projects for the District Development Fund (FDD), a highly discretionary rotational local finance instrument on credit basis, aimed at rural livelihood improvement. Reimbursement rates have
been low, jeopardizing its functionality as a rotational fund. A recent studies concluded that the logic and priorities of
PESOD and FDD are considerably interfered with by the populist approach to government and consultation embraced
by the president, known as Open and Inclusive Presidency (PAI), considered to weaken the effectiveness and legitimacy of the local governments (CIP, 2012; Leininger et al., 2012).
The endowment of both types of local governments with financial resources is low. The municipalities receive approximately 1%; of the annual domestic revenue in forms of transfers while another approximately 3% of the budget is
spent at district level. The municipalities’ capability to generate their own revenues – the legislation gives them a wide
ranging revenue base of their own - is below their potential, for political and technical reasons. Phenomena of local
elite capture, i.e. reaping benefits from public investments and procurement of services and goods and corrupt practises by local political and functional elites is widespread, however increasingly monitored and brought to public at15
tention by citizens and NGOs such as Centro de Integridade Pública (CIP) and others.
In 2008 provincial parliaments were created and elections for their members held for the first time (coinciding with
16
the general elections) . These parliaments can be regarded as a type of CC rather than true legislative bodies at provincial level since they have no power over budgets and accounts. They hold little clout vis-à-vis the provincial government headed by a governor nominated by the President. They are expected to monitor and comment upon the
execution of the National Social and Economic Plan (PES) and the annual State Budget (OE) at the provincial level.
17
Concerning ‘local arenas‘ , the focus of advocacy and empowerment work in IBIS’ main pillars (education and governance), a conducive institutional framework and political rhetoric exists as a result of the government’s decentralization
policies, both with regard to municipalities and the local state agencies (Órgãos Locais do Estado-OLEs). Yet, there are
missing pieces such as the operationalization of the principle of ‘gradualism’ (i.e. the increase of the number of municipalities and the shift of functions and resources from district to municipal governments). Progress in decentralization
is thus considerably influenced by political and electoral opportunities and needs of the dominant party and the government of the day (Buur, 2009). During the past two government mandates, a certain recentralization has been observed, associated with a stronger emphasis on extending the reach and influence of the dominant party to local governments (Weimer, 2012). For example, the spending of FDD livelihood credits, known for their low rate of reimbursement, has been biased toward members of Frelimo and its mass organizations (Orre & Forquilha, 2012). Local
power dynamics are thus favouring firstly, the central holders of political, budgetary, economic, discursive and coercive power, and, secondly, the local elites linked to and dependent on the central state and the party. Downward
accountability, for example of the educational institutions to the members of communities, parents, students and
local CBO is little pronounced. The latter need to be understood as subjects rather than citizens. This is particularly
true in the district OLEs, where they have little access to information relevant to their livelihoods and where they
cannot elect their representatives in regular multi party elections.
This does, however, not mean that the ‘subjects’ are powerless, despite the given structural and material disadvantages: they have legally enshrined political rights and thus the powers to freely associate, obtain information and
15 CIP has systematically been publishing local expenditure tracking surveys of District Government budgets and the FDD in selected districts. It also
has promoted corruption surveys in municipalities. For more details, see: http://www.cip.org.mz
16 These elections were not considered by the national media and international observers to have had a level playing field for all parties, since a
number of the candidates of the Movimento Democrático de Moçambique (MDM) were not admitted to run for elections.
17 This term circumscribes the institutional space, in which local communities and its members interact with their local governments and other key
stakeholders (private and public business, religious denominations) on matters of planning and budgeting, public services and goods (education,
health, security etc.), economic activities and investment, justice and issues. The local arena perspective differs substantially from a ‘ministerial
perspective’ of central government and thus is most relevant for the socio-economic livelihood and cultural practises of local communities. The
ministerial perspective represents, by and large, the interests of the central state or of the ‘nation as it is commonly referred to by local populations.
13
lobbying and to claim political voice and space in the engagement with government and other stakeholders such businesses and investors. And they have the (formal) power of the vote in general elections in favour of opposition parties
or of abstaining, as well as the informal ‘power of veto’, by not fully adhering to government decisions or outright
18
rejecting them. Another form of (violent) veto power of the poor and excluded are demonstrations, road blocks and
vandalism, effectively laying siege to the Capital City in September 2010, succeeding in forcing government to cancel
the planned increase of food and fuel prices.
It is in this context, that IBIS has made major and generally recognized strides in turning subjects into citizens and
empowering them by access to information and building their capacities as ACs articulate opinion and make choices in
their engagement with local authorities. Thus, despite the constraints to local governments highlighted above, the
local arenas, both municipal and district, continue to provide most relevant entry points for the CS.
2.4.3 Human Rights and Access to information
Mozambique’s Human rights records have improved over the past few years, with certain exception concerning police, justice and prisons authorities. Parliament has established a HR Commission and has ratified most of the International HR instruments, and a number of NGOs monitor the abuse of human rights (including children’s rights) and
intervene proactively in the justice process. With the formal justice system being weak both institutionally and in
terms of coverage, a legal pluralism prevails in Mozambique, and justice is dispensed both in informal and formal
ways.
19
Woman’s rights are enshrined in the constitution and subordinate legislation, such as the Legislation on the family
or on domestic violence. Various international Human Rights instruments have been adopted, and, Mozambique has
ratified the United Nations Convention on the Elimination of all Forms of Discrimination against women in 1993. Thus,
in formal terms, female citizens share the same rights and duties with their male counterparts. Therefore the times
are gone, in which women were discriminated against, e.g. losing citizenship when married to foreigners or being
prevented to have legal access to lands. Women are well represented in public life and Mozambique is known to have
women / men ratio in parliament, government and other institutions above the average of other African countries.
Despite being the majority, their formal rights and gender equality enshrined in the constitution, women play a secondary role in society, economy and politics, and are often discriminated against. The participation of women in politics are weak in terms of effectively influencing the decision making, in promoting gender sensitive development as
well in being accountable to the constituencies (see Section 2.5 below).
Access to information is most crucial for both the critical, politically engaged citizen and for the public institutions
charged with the control and supervision of the executive in a constitutional democracy based on the separation of
the three powers. The same is true for the forth power, the media. In Mozambique, however, the situation is quite far
from this ideal, despite progressive media legislation. Information, which ought to be public by its very nature (e.g. on
public finances, or on private assets of public office bearers), is largely restricted to the inner circles of the executive
bureaucracy, and the dominant party. Even Parliament, local governments and other institutions are often ill or not
informed about important government decisions, budget allocations, land concessions etc. Women and youth seem to
be particularly disadvantaged in having access to information, e.g. on FDD resources, land titles, scholarships and
other matters. IBIS’ AI component in the Pillar I thus is a most crucial building block of the CS 2013-17 also for Education and all components of both Pillars. Its relative weight is even increasing given the county’s trajectory to a resource driven economy, in which key decisions, taken in closed shops and with little public and institutional scrutiny,
have long term and potentially dramatic effects on social and economic development of the country and its societies.
2.4.4 Poverty and CSOs
Poverty reduction policies have been the matter of the central government and the DPs and the Programme Assis20
tance Partners (PAP) during the end of the civil war in 1992. Negotiated between the government and donors, three
21
poverty reduction Strategy Papers (PRSP) financed by the latter have been implemented during the past 15 years,
with the civil society pretty much at the margin of the process. They only participate in the Annual Joint Review process in a consultative capacity through the Group of 20 (G-20), an informal agglomeration of CSO s and NGOs, mostly
operating at national level, and with few dynamic provincial poverty monitoring forum (Nampula). Their role and effectiveness in those ’invited spaces’ has been limited, with government being more accountable to donors than to the
Mozambican Parliament and society at large.
At national level the wealth gap between a high income stratum of society and the large majority of Mozambicans, as
measured by the Gini index for income distribution, is widening. The index is in a range typical for societies with high
18 this is, for example, the case of large scale land concessions for forestry in Niassa Province in whose negotiations the communities have been
marginalized or not involved at all (see: Kaarhaus & Martins, 2012).
19 Article 67 of the Constitution of the Republic of Mozambique provides that women and men are equal before the law in all domains of economic,
social, political and cultural life
20 at present 19 bi and multilateral donors
21 Programa Acelerada de Redução da Pobreza Absoluta (PARPA) I and II, Programa Acelerada da Pobreza (PARP), at present
14
potential for social tensions (APP, 2012: 16). While levels of absolute poverty declined from more than 70 to about
55% up to 2005, the period thereafter witnessed a period of stagnation, with the Poverty Reduction Policies producing
little impact, notably in urban areas. Price rises for basic goods and services led to popular revolt in Maputo in Sep22
tember 2010. On various occasions civil society organizations, the media and religious institutions have warned of a
rising social conflict potential due to lack of employment opportunities and inequality in wealth distribution, a point
23
also highlighted by the Report of the African Governance Peer Review Mechanism published in 2010 . Civil society,
professional and vocational interest groups, trade unions and civic associations in a country that vast as Mozambique
are considered as institutionally too weak and fragmented to be able to engage in collective bargaining and action for
substantially changing the country’s patterns of access to wealth and income, notably under the resource economy
scenario. Unless supported by foreign partners (DP, INGOs) and better organized and articulated among themselves
the Mozambican CSOs will have little clout, unity of purpose and leverage to decisively influence or even change the
country’s policies and development trajectory. Good examples for successful Mozambican CSOs are CIP and IESE (see
below).
Historical evidence also speaks against CSO driven collective action for change (see section 2.10). Only twice in the
recent history of Mozambique, did the ruling coalition’s substantially change the course the country had taken: the
post Nkomati Accord liberalization and privatization (i.e. a switch from a socialist and state centred model to a private
business model) and in the Rome Peace Accord, to accommodate and at the same time neutralize Renamo rebels). In
both cases, the primary moving forces were war, violence and misery rather than CSO interventions. Observers therefore warn of a potential for political violence that may accompany the trajectory towards a resource economy if not
mitigated by effective policies to lessen poverty, improve coverage and quality of public services and to address stark
inequalities in the vertical (incomes) and horizontal (geographical) distribution of wealth and opportunities. Studies by
the African Peer Review Mechanism and World Bank specialists warn of this conflict potential if the present rather
exclusionary socio-economic and political system continues unabated without social redistribution (Levy, 2010 a;
2010b, APRM, 2010).
2.4.5
State of Rights and Responsibilities within IBIS core areas of work; education and governance
IBIS’ rights based empowerment approach for citizens towards a full exercise of citizenship and towards more democratic, inclusive and transparent decision making continues to find fertile ground in Mozambique. Its own CS 2013-17
and its partners’ own programmes and strategic orientation serve as good points of departure to empower communities and their mandated CSOs.
They meet a legal - institutional environment with the Mozambican Constitution of 2004 at its core, which is democratic and pluralist in nature and defines the rights and responsibilities of Mozambican citizens on the basis of modern
approach to separation of powers and a bill of rights.
In education, access to the National Education System (Sistema Nacional de Educação –SNE), is considered as right
and duty of all Mozambicans by the constitution, in alignment with the Universal Declaration of Human Rights and the
African Charta of Human and Peoples Rights and other relevant international Instruments (IBIS Moz, 2011). The priority for Education and the achievement of the MDG in Education is also reflected in Mozambique’s adherence to the
Movement Education for All (EFA) Fast Track Initiative and the various policy instruments in place, which cover also
private educational institutions. It is generally recognized that government is politically committed to promote education for all, and that there has been considerable progress notwithstanding the challenges highlighted in the context
analysis above. IBIS entry points in education and strategic line of actions are described below in Section 4. :
Concerning governance, the African Governance Peer Review Mechanisms (APRM) and other studies (Ecorys, 2008)
highlight progress made in terms of consolidating citizens’ rights and socio-economic policy and legal framework for
democratic development. At the same time, a number of major obstacles on the path to democratic and accountable governance> These are: i) the weak rule of law and dispensation of justice, ii) unclear separation of powers (notably between the legislative and executive) and between functions of the dominant party the state; iii) a electoral
accountability and institutions, often subject to party interference, and with an uneven playing field for the political
parties which favours Frelimo; iv) the lack of access of information relevant to the public, coupled with ineffective
accountability of the executive to parliament, the Auditor General and the public in general, and, finally, v) the stark
regional disparities in budget allocation and economic opportunities, linked to accentuated poverty and unequal
income distribution. These issues may pose a long term threat to peace and stability of the country.
From a citizens’ perspective the major concerns are access to meaningful and economically rewarding livelihood activities and to employment, to public goods and services of quality and wide coverage as well as better protection
22 There are also stark regional disparities in poverty indices and allocation of public resources and services, including in education and health, with
population rich provinces such as Nampula and Zambézia poorer and less favourably endowed in comparison to Maputo city and province.
23 Civil society organizations, and independent media having conquered their democratic space, have considerably contributed to the public debate
of social economic and governance issues , including of wide spread corruption. The country’s media legislation is considered progressive.
15
against abuse of power, corrupt and arbitrary practices in its various forms, i.e. the putting into practice of political
and socio- economic rights and the rule of law.
IBIS’ governance entry points are therefore most pertinent in its strategic lines of actions described in Section 4 below.
In addressing the challenges enumerated in this section in the Country Strategy 2013-17 IBIS is able to count on and
mobilize its comparative advantages which add value to the programme. As an organization whose competence lies in
a broad topical spectre (education, social change, community development, local governance and gender) and methodological soundness recognized by government and CSO alike, it has an enviable track record in working with CSOs in
building their organizational capacity and thematic competence and in inducing institutional change at local level,
inter alia through ‘agents of change’. As emphasized elsewhere in more detail, IBIS links the local with the national
and bases its work on the overall philosophy of aid effectiveness (Agenda of Paris, Accra and Busan). Its gendered
empowerment approach to local communities and institutions it dovetailed with advocacy for open democratic debate which leads to policy changes. The organization thus has sufficient experience and social and technical capital to
face the challenges identified above and transforms them in opportunities for change.
IBIS’ experiences, lessons learned and capacity to add value to governance can be attributed to:
 The systematic capacity building of individual Agents of Change in Niassa Province leading to a democratization of local CBOs and CSOs and to a more competent, critical and courageous interaction with local governments and consultative bodies, both municipal and district. It helped in extending their ‘claimed space‘, institutionalizing inclusive procedures and making government more responsive;
 The coherent curriculum for capacity building of IBIS’ partners at the CEDER in Lichinga, based on its conceptual model of ‘change triangle’ . This resulted in their increased management and planning capacity as
well as capacity, including improved internal governance;
 The growth of a sense of citizenry among CSOs, due to the systematic interaction , dialogue, exchange of information etc. between them, government and the private sector on matters of mutual concern, facilitated
by IBIS. , This led to up scaling effects (for a and dialogue at provincial level), and the reduction of governments mistrust vis-à-vis NGOs and INGOs;
 WIP allowed for the quantitative and qualitative evolution of awareness of gender issues, influencing planning and monitoring agendas, reflecting women’s needs in the communities as well as being accountable to
constituencies.
 Municipalities (in Zambézia) will provide additional entry points for the interventions under the governance
pillar, together with the ongoing work with CCs in selected districts;
 The project Access to Information (AI) turning itself into a rallying point for governance and education, i.e.
on matters concerning budgeting, monitoring of ADE, PES and OE, fight against corruption and extractive industry , education policy and financing, etc. which reinforce a civic movement advocating access to information as an expression of the exercise of citizens’ rights.
2.5
Gender and Equality
The gender equality enshrined in the Mozambican constitution has already been referred to in section 2.4.3 above.
Yet, women play a secondary role in, political, economic and social life, their opportunities for qualitative participation
in the public sphere is limited to few women in leadership positions. Reasons for this can be found, firstly, in the education system, where higher dropout rates for girls and less chances for them to benefit from secondary and higher
education prevail., despite some recent progress. Secondly, in terms of economic rights, formally there is no gender
discrimination. Yet, in daily life, women’s access to economic opportunity, land, credit and business opportunities
most often depend on the consent of husbands in an institutional environment, which so far has little inclination towards reflecting gender issues in policies, planning and budgeting. For example, women groups continuously complain
about their project applications for the FDD being rejected or simply ignored and good practices in gender budgeting
are scant. Concerning land rights, women have the same rights and entitlements to land, which is owned by the state.
However, these rights are often not sufficiently known to and exercised by women, given a complicated administration process and customary land tenure systems, in which it is the men in institutions and family, who most often
regulate and decide upon women’ access to land. Exceptions exist in ethnicities such as Makhua in Northern Mozambique organized in a matrilineal way. Often it occurs that land rights of men, women and communities are infringed
upon by the custodians of land themselves, i.e. the very state and government, especially when major land concessions and leases for mineral extraction of large scale agro forestry projects are approved centrally with no or little
consolations on the ground.
Thirdly, like in other African countries, women are underrepresented in local politics, do not hold many leadership
posts and are rarely active agents in political life. Female office bearers and deputies often have little links to the female members of their constituencies. Given the predominance of the Frelimo party, gender issues in politics, policy
and the solidarity among women are generally strongly influenced by party politics, with the country’s largest women’s organization, the Organização Moçambicana de Mulheres (OMM), de facto being a branch of the dominant party.
16
Finally, despite their formal equality, women (and children) continue to often be discriminated against, in the name of
culture and customs. Although a new family law passed in 2007 puts men and women on equal footing with regard
with regard to reciprocal rights and duties towards their children, even in case of divorce, the practise is often that
men abandon their families without paying for their children. Polygamous customary marriages, although banned by
legislation, are frequent, especially in rural settings. The same is true for premature marriages, despite the Family Law
establishing the age of 18 as minimum marriage age for both sexes, allowing, however, for premature marriage based
on consent. A UN report, based on 2003 data, concludes that 43 per cent of girls between 15 and 19 years of age
24
were married, divorced or widowed in Mozambique, compared to 3 percent of boys in the same age range .
Concerning the Millennium Development Goal (MDG) 3 – ‘Achieve Gender Equality and Empower Women’, the trends
in education indicate that the goal is likely to be achieved in Mozambique by 2015. The net schooling rate for primary
school level, according to government data, was 94.1% in 2007 and 90.1% for girls. This fact reveals an improvement
compared to previous years. There is a distinct tendency for the gender gap at the primary education level (EP1) to
narrow. In some provinces in the Southern Mozambique, the completion rates of girls in public schools are higher than
25
those for boys. However a wide gender gap continues to exist in secondary education . Adult literacy in women has
dropped significantly in the past years, and Mozambique is among those countries, which has an increasing and relative high percentage of female members of the national parliament (close to 40% during its 2004-2009 mandates).
In 2011, the Human Development Index for Mozambique was 0.322, placing the country at 184 out of 187 countries.
For the Gender Inequality Index Mozambique received a score of 0.602, placing the country at 125 out of 146 countries for which data is available. In 2011, the World Economic Forum ranked Mozambique 26 out of 135 countries in
26
its 2011 Global Gender Gap Report, with a score of 0.7251 where 0 represents inequality and 1 represents equality .
Concerning the 2009 Gender Equality Index for 157 countries, which measures women’s relative economic activity,
education and empowerment, Mozambique, with a score of 64, holds rank 73, being in the same bracket with Italy,
27
Lesotho, Slovenia and Singapore .
With regard to extractive industries and gender, little information and data is available. The Ministry of Energy with
NORAD support have been considering an energy and gender programme with a Dutch NGO, Energia
(http://www.energia-africa.org/), in a backstopping role.
IBIS stresses gender as a cross cutting issue in all its programmes and component. WIP is part of the governance pillar.
In education, IBIS has gained valuable experience and achieved impact in addressing gender equality in primary education, inter alia through targeted capacity building of female members of CEs, considered as ‘multipliers’ of the gender
equality message. The same approach is used in WIP for targeting members (of both genders) in provincial Parliaments and AMs. Specific studies, e.g. on gender aspects of distribution of district resources (IBIS, 2010 a) help IBIS to
conduct training, advocacy and dialog activities on an informed basis.
IBIS approach recognizes ‘gender mainstreaming’ as the key strategy to promote gender equality, understood as a
developmental goal in its own right. This approach partially replaces the earlier practices to target activities and resources specifically to women’s groups. This strategic approach is reflected in IBIS’ strategy documents on gender (IBIS
Moz, 2009a) and mirrored in all programmatic components of the CS. Increasing women’s voices in public affairs (e.g.
in education), promoting informed policy dialogue on gender issues and targeting specific capacity building for women’s and men’s groups on gender for institutional and policy change are important instruments for implementing IBIS’
gender strategy.
2.6
Youth
As many societies in the developing world the age groups up to 18 years represents more than half of the Mozambican population . However, the youth’s chances and access to welfare and wealth do not correspond to its demographic weight – nor does it have much voice in policy and public matters. In fact, chances are quite dim concerning quality
schooling (primary, secondary and especially in professional and vocational education), employment perspectives, and
decent and inexpensive (urban) housing. A study on rural youth suggests that it has significantly lost not only a (local)
cultural perspective (where do we come from, where do we go?) but also is increasingly subject to global trends: they
“...look at images of worlds that they have never seen in reality, that are an enormous contrast to their everyday life.
At the same time, many values in rural communities have shifted or are about to disappear“ (Holzhausen, 2007: 36).
Modernisation and poverty combined, it appears, make the young generation to crave for immediate material and
monetary gains, gradually eroding social coherence and a sense of solidarity.
The rapid social changes, the armed conflict in the eighties, high growth rates without much of economic development, the globalized media (including telenovelas, and proselytizing programmes by religious denominations) and
24 source: http://wikigender.org/index.php/Gender_Equality_in_Mozambique
25 Source: http://mz.one.un.org/eng/What-we-do/MDG-3-Achieve-Gender-Equality
26 Source: http://wikigender.org/index.php/Gender_Equality_in_Mozambique
27 Source: http://wikigender.org/index.php/wikigender.org:Variables_Gender_Equity_Index
17
globalisation have changed the youth’s attitudes towards their own culture and values. The consequences of this dynamic coupled with persistent urban and rural poverty are often a breakdown of social and sexual barriers, a spread of
Sexually Transmitted Diseases (STDs), including AIDS / HIV as well as alcoholism. In political terms, the dominant party
clearly attempts to co-opt the youth and their associations, via the Organização da Juventude Moçambicana (OJM)
suggesting that children and youth are the Continuadores da Revolução of Frelimo. Together with smaller youth organizations OJM is part of the Conselho Nacional da Juventude (CNJ). However, independent youth associations out28
side the OJM mainstream have had difficulties of being registered; some have been ostracized and ‘given names’ .
Rhetorically, youth and youth matters feature increasingly prominently in party programmes, but little in substance
has happened in practice, notably concerning the youth’s major concerns enumerated above. . At present (Mid 2012)
a Youth Policy and Strategy is being drafted
Institutionally speaking youth matters are welded together with sports, in the Ministério de Juventude e Desporto
(MJD). Public policies have been focussing on physical education in schools and communities (Moçambique em Movimento), promotion of football (Fute 21, in association with the national Football Federation), and AIDS/HIV campaigns (Geração Biz). Funds for youth initiatives (Pro-Jovens) and for Sports (Fundo de Promoção Desportiva) have
been created, but do not seem to have produced widespread impact so far. Cultural and music festivals, concerts and
TV shows by artists – (often openly linked to Frelimo and or enterprises associated with the state and the nomenklatura e.g. in telecommunication) only reach a small fracture of urban, well-to-do youth. At the local level, youth matters
have been integrated in the Serviço Distrital de Educação, Juventude é Tecnologia (SDEJT). Particularly the youth part
of this Service is notoriously under resourced; activities boil down to promotion of sports. Each District also has also a
‘Técnico de Cultura’, equally under resourced, to cater for and promote cultural activities, especially among youths.
Few Initiatives outside the public sector and the OJM target the youth. In recent years, the Youth Parliament (Par29
lamento Juvenil - PJ) has become a notable exception. Seeing in themselves analogies to the early Frelimo’s rebellion
against the established (colonial) system, they have been engaging the ruling establishment (party and government),
through debates, media programmes. Issues addressed include constitutional reform, local democracy, gender equality, and youth matters in general. Apart from OJM it is the only organization with a national coverage (via local partners).
The Maputo Office of the (German) Friedrich Ebert Foundation has been running a successful Young Leaders Training
Programme (YLTP) for a couple of years. The one year multidisciplinary training program brings together young people
(age between 24 and 35) with different institutional backgrounds (political parties, ministries, NGOs, trade unions
etc.), focussing on issues such as politics and democracy, public administration and governance, economics, media and
communication, management skills, and touches on gender and HIV/Aids issues.
IBIS holds that engaging with youth in conquering and defending its space in public policy and developmental programmes is not only an opportunity, but is indeed a must. According to its Position Paper on Youths (IBIS, 2011), the
organization will ‘ apply a rights-based approach to youth by strengthening the inclusion of youth and empowerment
of their rights where it is relevant - rather than mainstreaming youth into all aspects of IBIS’ work.’ This means, in
practical terms, this means continued attention to the articulated interests of youth groups such as Parlamento Infantil (PI) and Parlamento Juvenil (PJ), as suggested in section 4.3.3 below.
2.7
State of HIV-AIDS
According to a UNDP report, the infection rate with AIDS-HIV among young women in the age group between 15 and
19 years has been dramatically increasing and in the past decade and is almost triple that of young men in the same
bracket (UNDP, 2007). In the age group below (children between 1 and 14 years), the disease also has spread, from
about 14.000 (in 2008) to 154.00 (2010). The number of orphans attributable to AIDS increased from 463.000 to
30
557.500 in the same period.
31
More recent data show that AIDS / HIV prevalence is significantly higher among women in both age groups and
across all settings (national, urban and rural), which might also explain that women are more inclined to have a test
made and receive the results. It also shows that AIDS is predominantly an urban phenomenon, for both men and
women.
For its Country Strategy 2013-17 IBIS continues to bank on its experiences with a well formulated approach to the
HIV/AIDS, mainstreamed in all programmes as a cross cutting issue. Key to it is the method ‘Escadas para Vida’ which
can easily be understood and managed and is widely accepted by all its partners and stakeholders, government included.
28 an euphemism often heard in the interviews , meaning being in opposition to the ruling party
29 Mainly supported by Konrad Adenauer Foundation (KAS), Germany, USAID, and The Dutch Institute for Multiparty Democracy, as well as IBIS.
30 All data from INE. http://196.22.54.18/hiv/ipcthivmz
31 see table in Annex III
18
2.8
Climate change risks
A study produced by the National Institute of Disaster Management predicts a significant increase of natural disaster
risks for the next 20 years resulting from climate change (INGC, 2009). With a coastline of more than 2200 km
Mozambican coastal areas are exposed to expected sea level rises caused by the green house effect due do global
carbon dioxide emissions and melting of polar ice. This will have negative consequences for population centres along
the coast, notably coastal cities, including the capital, which will be exposed to flooding and erosion. This in turn could
cause migration to the hinterland; especially those areas regarded relatively save, including provinces in the interior
with rich agricultural potential, Zambézia included. This, in turn could lead to conflicts with resident farming communities and large-scale agro-industrial farming and forestry projects Average temperature is expected to rise, and weather variations are expected to occur, with wetter rainy seasons and dryer dry seasons, the latter impacting on the
spread of prevalent wild fires (Weimer, 2012). Cyclone activity is predicted to increase, again affecting predominately
settlements in coastal areas. In January 2012 the cyclone Funso ravaged Zambézia Province (including the city and
region of Quelimane); 65,000 people have lost their homes, 21 people have died. Both factors of weather changes
may demand more emergency interventions.
2.9
Extractive industries
Mozambique is on a path towards a typical resource economy based on the extraction and exportation of mineral and
energetic resources, including heavy sands, coal, gas, hydro and coal fired electrical power, precious and semi precious stones and potentially oil. So far generous tax holidays have prevented most of the mega projects (including the
Aluminium Smelter MOZAL in Maputo Province and the Sasol Natural gas production in Inhambane province) from
significantly contributing to domestic revenue generation. The mega projects and extractive industries with very high
capital outlays distort the economic structure and growth of GNP and trade and contribute very little to employment
and to revenue, leading to the phenomenon of ‘growth without development’ (Sæbye, 2012). Already in 2008, it was
estimated, that the direct taxation of five megaprojects (including MOZAL, Sasol-gas, Kenmare Resources heavy sands)
would have increased the tax yield by 60%. This, in turn would have pushed the tax ratio well above 20% from 2012
onwards, with an additional net contribution to GNP through taxation of megaprojects in the range from 1.7% (2009)
to more than 5% (2012) (Ecorys, 2008: 24f). Given the coming on stream of coal production, the additional revenue
could be more than the equivalent of the present donor support to the government budget. In October 2012 Mozambique has achieved compliance with the standards of the Extractive Industries Transparency Initiative (EITI) for transparency EI32. . EITI membership will eventually contribute to a more transparent management of public finances and
resource extraction and implies for the public access to information on revenue from oil, gas and mineral wealth. Yet,
contrary to other countries, concession contracts and the modalities to calculate revenue and profit in the EI remain
secret in Mozambique.
In a wider sense, the term ‘extractive economy’ may be applied to the economic model underlining resource extraction and (largely unprocessed export) of soil, subsoil and marine resources. This concept includes large scale agroforestry and logging concessions, as well EIs (mineral and energy resources) in the more narrow sense. Both, already a
reality in Zambézia and adjacent provinces, have, as a precondition, the concession of large tracts of land, making
monitoring of land concessions an important part of IBIS’ engagement in this sector.
Large scale land concessions for the extractive economy are granted by the Council of Ministers. The degree of transparency is considered low by local stakeholders. Downstream administrative bodies (provincial and district governments) are often not previously involved in negotiating such concessions and are usually informed after the deals are
signed. The local communities and individuals are usually the last ones to learn about the concessions, usually through
consultations promoted by the local governments in which they are informed about the deals already struck. Communities are sometimes ‘bought over’ by promises of employment, and material benefits (e.g. housing). Their position is
weak, since individuals and the community, especially women, often do not hold specifically granted individual or
collective land use titles (DUAT). This is due to lack of knowledge about their rights and procedures to register their
traditional claims, or a result of cumbersome bureaucratic procedures. As a result, land conflicts prevail in many parts
of Mozambique. For example, in Niassa, the concessioning of vast land areas for forestry to international investors
without adequate consultation of local stakeholders has resulted in hundreds of hectares of newly planted forests
having been burned down by affected local communities (Kaarhus, Martins, 2012).
The monitoring of land concessions and ‘land grabbing’ by international businesses and the implications for the communities is an important area of governance, which cuts across all levels at which IBIS operates. One important entry
point and tool for IBIS work on extractive economy / industry could be the Land Portal on land governance, which
documents land deals by country, type of use, investors etc. (http://landportal.info/landmatrix).
32
http://eiti.org/news-events/mozambique-declared-eiti-compliant.
19
In Tete province, where major coal reserves are being exploited by multinational mineral companies such as Vale do
Rio Doce and Rio Tinto, parts of the communities had to resettle on a large scale, which affected their livelihood and
access to all types of public services, including schooling. Resettlement and the construction of new houses have
largely been assumed, nilly willy, by the international corporations, with government playing a lesser role. A recent
report on the resettlement of community members to Cateme near Tete City comes to the conclusion, that “The impression that this model gives is that uneducated and unemployed members of a community can be dumped anywhere” (Kabembe & Nhancale, 2012).
Addressing land and associated social issues in the context EIs therefore represents a new entry point in the CS, since
it helps to get a clearer comprehension of the dimensions of CSR of international investors. IBIS’ own experiences
(e.g., in West African countries) provide important references. (see: section 4.1.2 b) below).
The relationship between EI and education is another topic of interest to IBIS. For example, in Zambézia, there is clear
evidence that natural resource exploitation affects negatively schooling of children. The quest for immediate gains
contributes significantly to parents withdrawing their children from school attendance and, market their children’s
labour or ‘use value’. A point in case is the artisanal digging for gemstones in Mutala in Alto Molócue District, where
33
boys, do the daily hard work in the pits, instead of going to school . Thus children are deprived of access to one of the
basic preconditions of a decent livelihood and potential future employment as an adult, namely reading, writing and
arithmetic. In Niassa both cases, the exercise of corporate responsibility by mining and forestry companies has been
little pronounced or forthcoming only after community or international pressure.
At the macroeconomic level, i.e., studies on extractive economies have shown that governments’ quest for immediate
gains of mineral exploitation is positively correlated with insufficient investment in education, especially of girls (Gylfason, 2000). Under these circumstances the diminishing relative weight of public spending on education suggests not
only leads to a crowding out of human capital development in favour of immediate economic gains, but also implies a
perspective of stunted economic development due to underdeveloped human resources.
2.10 The national civil society – strengths and responses
Concerning civil society organizations (CSOs) and their role in public policy and governance, different and divergent
views have been expressed. Civil Society (CS) has been characterizes as:
 ‘paper tiger’ in monitoring of policies, plans and budgets and their outcomes through the G-20 in the annual
Joint Review (da Silva Francisco, Matter, 2007), occupying ‘invited spaces’ for information sharing. That way
it serves primarily the interest of government to legitimize its decisions and thus controlling debate on poverty, democratization and governance rather than opening and enhancing it in an agenda of empowerment
of CS (Topsøe- Jensen et al., 2012);
34
 Lacking ‘domestic credibility’ and a ‘genuine national project’ of its own , independent of donor influence
and support, thus ending up ‘to align their activities with donor priorities’ From this point of view CSO´s opportunities for implementing their own agendas are relatively limited, with the ‘frequent change of development partner policies according to new trends prompting CSOs to align their core activities and management
and delivery approaches to match donor priorities’ Topsøe-Jensen, 2012;
 Having little space for growth and manoeuvre in a setting dominated by a predominant party, which tends to
control the state and absorb civil society, and in which CSOs have their space defined by Frelimo as either
‘mass organizations linked to or co-opted by the party (e.g. OMM, OJM, trade unions) or as Government Organized NGOs (GONGOs)(ECORYS, 2009:20). As a consequence self censoring is widespread.
 Growing in number and areas of activity, especially after the enactment of the Associations Act in 1991 (law
8/91), however remaining structurally weak. The weaknesses include lack of internal management and democratic governance, lack of capacity to empower local communities and of having a mandate from them and
of financial self sufficiency (ECORYS, 2008: 88; Francisco et al. 2007). For critical observers CSOs are also rent
seeking in nature, not deviating from one of the general features of Mozambique’s political economy as a
whole (Weimer, Macuane, Buur, 2012).
These limitations do not however, prevent CSOs to struggle for more voice and pushing the boundaries of their
‘claimed space’ further. A good example for this is the emergence of a provincial Poverty Observatory in Nampula
Province, which has influenced poverty reduction strategies in favour of citizens’ interest and the poor, and has monitored the effects of such policies, attempting to hold government accountable. The Observatory is institutionalized as
a formal dialogue platform between CSO and the Provincial Government, which finances its secretariat and activi35
ties . Despite their high degree of organization, voice and formal legitimacy the CSOs in Nampula have had little
33 Interviews with Padre Carlitos, and Director of SDEJT Alto Molócùe, 14 May, 2012. in the case of girls, their early ‘trading’ by their parents for
the purpose of (premature) marriages against material gains has analogous effects.
34 Victoria Diogo, Minister of Public Service, cited in Isaksen, Weimer, 2010:16
35 Through Unidade de Coordenação do Desenvolvimento Integrado de Nampula- UCODIN
20
overall success in decisively tilting development and poverty reduction policies in that province in towards a more
encompassing and effective trajectory (Macuane et al. 2012).
The bottom line is that CS is slowly growing and diversifying, but is rather weak in organizational and financial management and monitoring, dependent on donor support and concentrated in Maputo. The CSU’s strength and reputation is often associated with one single person, e.g. its director, the demise or unavailability of whom negatively affects the whole organization and its performance. Their successes in influencing policy and debate are seen in fields
where ‘advocacy undertaken by largely national or provincial CSOs (…) bring research-based evidence into dialogue’
(Topsøe-Jensen et al., 2012). Religious groups and a few highly specialized, professional and competent NGOs with a
strong research component such as Instituto de Estudos Sociais e Económicos (IESE) or Centro de Integridade Pública
(CIP) may be considered a certain exception from the general picture sketched above. Their influence on policy or
36
legislation is well documented
These general shortcomings of a structural nature will need to be taken into consideration when IBIS is addressing the
specific challenges and designing activities in the programmatic Pillars during the implementation of the present country strategy.
3
IBIS’ strength, response capacity; new challenges
Implementing the programmes and components defined in the Country Strategy 2013 -17 requires IBIS to take its
lessons learned as points of departure. It also takes into account a narrowing space for CSOs and the emergence of
the new development paradigm focusing on the extractive economy alluded to above. Therefore IBIS will continue to
focus on institutional capacity building for strengthening internal governance, management and thematic competencies of its partners, the (e.g. with regard to extractive industry), access to information, specifically at the sub national
level of government. The Strategy will give special attention to issues of socio-economic inclusion of interests of children youth and women in , public policies, plans and budgets the safeguarding the constitutional rights of citizens in
the emerging natural resource hype, as well as in the defence of the independence of media.
New strategic line of actions in the CS 2013-17 are:
a) the stronger focus of local governance activities on municipalities, without, however discontinuing the strategic line of capacity building of change agents members of Conselhos Consultivos (CC) in selected districts
b) A stronger focus on CS (school boards, change agents, CC’s, Base groups and partners) institutionalized participation in planning and monitoring of local budgets and expenditures;
c) the dovetailing of good governance with support to basic education (‘governance in basic education’)
d) A stronger focus on land rights / land legislation and on governance of land concessioning and land use, notably in the extractive economy (but also agriculture and forestry) with special reference to acquired community and women’s rights.
e) extractive industries and their consequences for taxation and PFM, expenditure pattern and effects on
communities, social policies and inclusive governance
f) A stronger focus on corporate social responsibility (CSR) of FDI, and in the case of conflicts between corporate, government and community interests, on conflict mitigation and prevention.
g) A concentration of activities of both governance and education Pillars in Zambézia province.
3.1
IBIS’ comparative advantages, added value, approaches and competencies
With regard to its two main pillars, Education and Governance, IBIS is well placed and endowed to provide competence, relevant approaches and programmatic components for meeting the challenges sketched above. The organization can draw on its locally, nationally and internationally recognized reputation and convening power as an institution of advocacy for the empowerment of communities and its civil society partners, aimed at conquering and defending a societal space for democratic change and more encompassing, just and gender balanced socio- economic development. Added to this is IBIS’ impressive track record in Mozambique. The newly emerging challenges addressed in
section 4.2 notwithstanding, IBIS’ following strengths need to be highlighted.
3.1.1 Rights based approach and orientation by the MDG and national poverty reduction programmes
IBIS’ programmes follow a rights-based approach defined in an IBIS position paper (IBIS, 2007). This approach is central to IBIS’ work in that it establishes a relationship between rights holders and duty bearers’. It makes the poor and
marginalized aware of these rights and ‘… opens the political space for demanding these rights vis-à-vis duty bearers’
(IBIS, 2007: 2). In combining rights with empowerment of the socially and economically weaker strata of society to
demand their rights, IBIS and its partners help to establish a relationship between those who govern and those gov-
36 Examples are the Christian churches which were successfully involved in the facilitation of the peace process and negotiations in the Eighties and
early Nineties. In the case of IESE this institution was the first ever organization to raise the issue of taxation of Mega Projects, a point gradually
taken up in the government discourse, and CIP was very successful in pushing anti-corruption legislation and the government’s adherence to EITI.
21
erned bound by obligations. This approach is founded on and commensurate with both international human rights
instruments, such as the UN Charta of Human Rights and the African Charta on Human and Peoples Rights, and the
Mozambican Constitution, which defines the rights and duties of citizens. Thus the rights based approach promoted
by IBIS has full national and international legal coverage. In analogy, the very same logic applies to IBIS ‘rights based
approach concerning the achievement of the Millennium Development Goals (MDG) which is reflected in the national
poverty reduction policies and programmes.
Given the new interrelated challenges concerning the changing aid environment and the trajectory towards a mineral
resource based economy, the further development of the IBIS rights based approach is necessary: more emphasis
will be given to right to solidarity, quality of life, and environmental protection etc. also for future generations, or, in
rd
th
other word , on ‘Human Rights of the ‘3 and 4 generation’, as well as on national and international regimes for
Corporate Responsibility of major foreign investors in Mozambique.
3.1.2 Linking the global, national, provincial and local levels
IBIS and its partners represent one of the few Mozambique-based NGOs which have cultivated an implementation
approach which effectively bridges the wide span between the global, national (i.e. central, Maputo- based), provincial and local level. The figure below exemplifies this link.
Figure 1: IBIS linking the global to the community level
EPAC
COCIM
(examples)
(examples)
IBIS DK
Extractive
Industries
(examples)
International level
GCE, ANCEFA,
SACMEQ
Africa Against
Poverty (AAP)
PWYP, EITI
Central / National level
MEPT,
MDG-Moz
CIP, Forum
Mulher
CIP / EITI –Moz
/ EI Platform
Provincial level
LDC, IFP, DPE,
LDH, UCA
ACEAM, SDEJT
FORASC,
AMIREMO
School
Councils
Agents of
change
District level
Community level
IBIS
MOZAMBIQUE
IBIS studies
3.1.3 IBIS’ Social and Human Capital
Over the years the IBIS Country Office and its regional branches have consolidated considerable human and social
capital and knowledge. Not many an international NGO can ‘boast’ of such advantages. One of IBIS’ major strength
resides in an excellent, technically competent, gender balanced team at the IBIS Maputo office and the offices in
Quelimane (CEDESC – Centro de Desenvolvimento da Sociedade Civil) and Lichinga (CEDER- Centro de Desenvolvimento
de Recursos). The team has demonstrated its capacity to adjust to changing external environments and internal managerial necessities. Part of IBIS’ social capital is the wealth of technical and contextual knowledge the organization has
accumulated along the years. Unfortunately this knowledge is little documented and not easily accessible.
Those well equipped Centres also represent hubs of wider networks. Apart from housing the provincial teams and
administrations, these Centres serve a fourfold purpose, namely a) capacity building of CSOs and NSAs (with occasional government participation); b) generating and documenting studies and research for evidence-based advocacy and
dialogue, and, c) venues for public and pluralistic debate on issues related to IBIS programmes and beyond and
.providing training and capacity development not only for organisations but also for individuals/youth. With the gradual exit from Niassa Province the human and social capital and competence of CEDER is to be transplanted to CEDESC,
whose structure, functions, activities and challenges are described in detail in Annex VI.
Everybody who knows the effort it takes in Mozambique to build up the human resources and social capital, under
considerable market and institutional constraints, will appreciate and value the human resources and physical infrastructure IBIS has to its avail. These resources will be put to good use during the duration of this CS, e.g. through a
carefully considered mix of direct and partner implementation modality (see Chapter 4.2).
3.1.4 Strategic and implementation tools
Implementing the CS 2012-17, the Country Office (CO) will be guided and supported by a considerable number of
well defined policies, strategies, position papers and tools. These circumscribe IBIS’ worldwide experiences and lessons learned and help the organization and its partners to implement programmes with solid technical grounding and
strategic vision, without, however demanding dogmatic ‘application’, but rather promoting a pragmatic, flexible adjustment to the country specific contexts. The most relevant policy and strategic papers are:
 Partner strategy ( IBIS, 2008)
 Education for Change strategy (IBIS, 2012a)
 IBIS’ Global Strategy for Democratic Governance, Citizens’ Rights and Economic Justice 2012 – 2017 (IBIS,
2012)
22

IBIS Organizational Development Strategy 2010-2015 (IBIS, 2010a)
 IBIS Policy on Extractive Industries (IBIS, 2009)
 IBIS Policy on Gender equality (IBIS, 2005);
 Position paper on Youth (IBIS 2011).
Not only from the partner’s point of view the IBIS Change Triangle represents one of the most useful tools for the
development of thematic competencies and programme implementation. It can be easily adapted to IBIS’ thematic
37
work, partner needs and the contexts the organization and its partners works in (IBIS, n.d.) .
3.2
New Challenges
There are four interlinked major challenges which IBIS-Mozambique will increasingly be facing in the CS’ five year
planning perspective. These are analysed in more detail in Annex I and can be summarized as follows:
a) A shift in the structure of aid for development away from the classical ‘aid for development paradigm ’ to
that of ‘resource for development’;
b) A redefinition of the political space and role of national and international NGO´s;
c) A dilemma between direct and partner implementation as a result of the Paris Aid Agenda and
d) The exit of governance pillar from Niassa Province38, and the design of a new governance programme with a
focus on Zambézia Province. This refocus represents IBIS’ effort to dovetail governance with education in the
same political and geographical space, aimed at enhancing synergies between the two pillars and at implementing the CS 2013-17 in a more cost-effective manner.
With its proven flexibility and capacity of innovation and adjustments, IBIS Mozambique, on the basis of the CS 201317, will continue to find its way through a more demanding policy and institutional environment, without jeopardizing
its vision and mission. It has all the ingredients to add value to its partners’ profiles and competencies as well as to its
own profile.
4
Programme strategy outline
4.1
Programme focus, target groups and geographical focus
4.1.1 Programmatic Pillars
Concerning the Programmatic Pillars, the CS 2013-17 reflects important strategic shifts, which include a restructuring
of the Governance Pillar and a territorial clustering of programmatic activities in Zambézia Province. These are reflected in the Implementation Plan for the CS (Annex XI).
The ending of two programmes in early 2013 (COCIM and WIP) provide the opportunity for the engineering of that
shift and the re-design the programmatic pillars and their sub-components. The figure below shows the time lines of
the present thematic programmes. The need to align the new Governance Programme (to start in 2013) with the
ongoing Education Programme is evident. An alignment will be developed in the ongoing programmes AI and Education before they end in December 2014 and October 2016, respectively.
Figure 2: Time line of present Thematic Programmes
Pillar
Programme
Education
EPAC
COCIM / CIMU (incl. EI)
Governance
WIP
2013
2014
2015
2016
2017
2018
Q 1 Q2 Q3 Q4 Q 1 Q2 Q3 Q4 Q 1 Q2 Q3 Q4 Q 1 Q2 Q3 Q4 Q 1 Q2 Q3 Q4 Q 1 Q2 Q3 Q4
C
I
M
U
W
I
L
P
AI
Concerning education, EPAC will continue to operate based in Zambézia, however with an inter face, by design, with
the Governance Pillar and its components. The reasons are obvious: governance is an essential part of public policies
and finances for educational development as outlined in IBIS new Global EfC strategy 2013 - 17. Specific reference is
made to the CEs, which administer direct budget allocations, the Apoio Directo à Escola (ADE). The CEs are also potential Agents of Change, notably when they have a clear mandate by the local community and are proactively monitoring
the schools and their function. In this context the COCIM experience of capacity building of Change Agents in Niassa is
most relevant. Although operations in Niassa are coming to an end during the first year of the CS 2013-17, the COCIM
experiences will be made available to EPAC and vice versa.
A stronger focus on municipalities in the new governance program also permits to dovetail governance with education, by building on the experiences gained in the COCIM ‘Women in Politics’ sub- programme. The education program
37 This point was made by various interviewees during the diagnostic phase of the elaboration of this report.
38
IBIS will close her Field Office in Niassa. However be aware that Access to Information program, Women in Politics and Extractive Industry are
seen as national sub programmes in the governance pillar allowing for strategic intervention in various provinces of specific interest. E.g. the AI will
embark on a Human Rights and Access to Information project in Niassa and Maputo (youth and social media) in 2013 financed by EC.
23
will develop a new focus on municipal budgets for primary education, ADE to schools in the municipal territory and
the mandating and monitoring of CEs by the elected members of the municipal assemblies.
Concerning the governance pillar, the CS foresees two main -components, Access to Information (AI) and CIMU, the
successor programme to COCIM. CIMU will further consist of 3 sub-components: Woman in Politics, Extractive Industries and Local Governance. AI is seen as most relevant to both the education and the governance Pillar, as both thematic pillars and their sub-components are facing problems the AI Programme is seeking to address. Thus, AI is a provider of information into the programmes of the 2 main pillars, while it acts, at the same time, as a capacity building
service to qualify and strengthen the structurally weak CSOs in Mozambique. AI thus has a special role to play in both
governance and education for all programmatic components and thus will have its own statute and visibility within the
governance pillar (see figure 3).
The first sub component is Access to Information (AI). Both its strategic programme objectives, namely the one related to the topic itself (improved access to and use of information, press freedom etc.) and the one related to capacity
building of CSO in Mozambique, are not only the key elements of AI in their own right, but are also seen as most relevant to both education and the other sub components in the governance Pillar (i.e. Woman in Politics, Extractive Industries and CIMU, the successor programme to COCIM). These programmes, independent of their thematically orientation, struggle with the very same problems the AI Programme is seeking to address. Thus, AI is a provider of information into the programmes of the main pillars, while it acts, at the same time, as a kind of capacity building service
to ‘beef up’ the structurally weak CSOs in Mozambique. It could be argued, that such a programme could be a pillar of
its own, which, however, is not possible within the overall IBIS policy framework. The point here is that AI has a special
role to play for all other programmatic components and thus will have its own statute and visibility within the governance pillar.
The programmatic component WIP as part of the governance pillar concerns itself with mainstreaming gender in decision making institutions and contributing to the removal of obstacles to gender balance in public policies at the level
of legislative bodies at provincial and municipal level. It attempts to promote women empowerment beyond party
political lines, and to strengthen the female deputies’ mandate via linking them to their electoral base, via Grupos de
Base focussing on issues specifically relevant to women (access to resources, education, gender budgeting etc.) Im39
plemented by Forum Mulher and three local partners this programme component pursues its strategic objectives by
promoting four field of activities, namely i) capacity building aimed at women and men in the Provincial and Municipal
Assemblies, ii) strengthening the relationship between elected female representatives and organized female interest
as well as iii) the (female) electorate at district and municipal level, and iv) sensitization of the target group concerning gender aspects in planning and budgeting. In implementing this programmatic component IBIS and its partners
are aware of the formidable obstacles which they face, the dominance of party politics even in women and gender
affairs and the large social distance between women in parliament and in the community being the most notable
ones. WIP will be redefined and enhanced by Woman and Youth in Leadership and Politics (WILP), from early 2013
onwards
The third sub component, Cidadão e Mudança (CIMU) will be designed to succeed COCIM, ending in April 2013. Its
strategic lines of interventions are elaborated in the section 4.2. b) below.
The architecture of the CP 2013-17 will look as follows:
Figure 3: CS 2013-17- Pillars and Programmes
39 FOCAD in Cabo Delgado, FOFEN in Niassa and NAFEZA in Zambézia
24
IBIS CS 2013-17
PILLAR I
PILLAR II
EDUCATION
GOVERNANCE
Women and Youth in
Local Governance
EPAC
Quality Education
AI
Democratic reform & red
Education Policy and Financing
Extractive industry
Citdadão e Mudan,ca (CIMU)
Leadership and Politics
Cross Cutting Issues (Gender, HIV-SIDA, Youth)
IBIS Mozambique has most of the necessary preconditions for the CIMU in place with its strategic orientation and
experiences, the well defined and result-oriented partnership approach and its own human and institutional capital
(at global, national and sub national level),. Additional competencies (e.g. in budget analysis and resource tracking,
monitoring, taxation, land rights and tenure issues as well as conflict mitigation will gradually be acquired.
The figure also reflects the intended budgetary weight of the new CP. The budget volume foreseen for Pillar II is double that of Pillar I and the two governance components will have the same relative volume each. The same balance is
intended for the three sub-components in the CIMU Governance component.
4.1.2 Main strategic lines of action
Following the logic of the CS’ new programmatic composition its main strategic lines of action are presented by Pillar I
and Pillar II and their respective components and sub-components.
a) Pillar I: Education
The education programme EPAC is well designed (IBIS Moz, 2011) and on track. During the first part of its life span it
will be consolidated and its outputs and planned results produced, as foreseen. During that phase, there is a strong
need to invest considerably in documentation and dissemination of lessons learned.
By EPAC’s end in September 2016, a successor programme will have been designed, which seeks to secure both
DANIDA core funding and institutional funding sources identified by IBIS Mozambique, as well as through private
fundraising, i.e. with companies in line with their Corporate Social Responsibility (CSR) policies.
Some adjustments to the present EPAC in five interrelated areas are to be made during the implementation of the
current CS, which will serve as strategic directions of the successor programme to EPAC. These adjustments build on
aspects which are already under implementation in EPAC, but merit emphasis for reasons of up scaling, taking into
consideration IBIS’ strength of linking local, provincial, national and international levels. Documentation and dissemination and, for the purpose for replication, mainstreaming and fundraising will also receive special emphasis (see
4.3.6). The key elements are:
 Quality education and up scaling the concept of Escola Feliz, from district and municipal level to provincial
and national policy level. This does not only require to orient partners and stakeholders to focus on this model and be familiar with its key elements but will also entails active advocacy at the ministerial level through
participation in the technical groups under the ministry as well as tailor-made campaigns and documentation.
40
Supporting key partners in their advocacy role for quality education by influencing national education re-
40 Promoting of Escola Felizes entails various interventions such as local content in curricula, well functioning School Boards and
school management with internal governance and accountability, increase ownership by the communities, better qualified teachers
and innovative teaching method, improved equipment (e.g. battery powered micro beamers for film and PowerPoint projection) and
supply of didactical material and school books. It also requires to specifically document the concept and approach, lessons learnt and
results, of Escola Feliz as well as ‘telling the story’ via films, TV shows, radio programmes etc.. And it needs to be recognized that
each teacher at such schools acquires and maintains a high sense of motivation and identification with the ‘Escola Feliz’ concept,
thus turning her or himself into its best “ambassador” and multiplier - across other schools, districts and provinces, at Teacher Training colleges, at ministerial level etc.
25




forms, content and implementation will be prioritized. In this, research and studies on specific education issues and their discussion and dissemination are crucial to influence national policies and strategies (evidence
based advocacy by partners). Linking local level to global level advocacy will be dovetailed through the network organisation MEPT and its participation in the global education campaigns, Including ‘Education for All’.
Strengthen accountability and transparency of the sector by strengthening CEs and their institutional capacity as agents for change, including Capacity building and up scaling of School Boards and School Boards Associations. The aim is that of turning such associations into competent and well organized bodies with sufficient convening power and capacity to engage municipal, district and provincial educational authorities in
matters of education, capable of influencing policy decisions and programmes. In other words, the transformation of these Boards and their associations into a viable and well organized national lobby is based on the
premise, that the Movement of Education for All is not some organization sitting in Maputo, but they themselves. This will turn them into collective or institutional change agents.
Education policy and financing: IBIS will support its partners in monitoring of quantitative and qualitative
output of basic education for evidence based advocacy and in dovetailing the corresponding activities with
those in the governance pillar by promoting good governance in education and advocate for access to information for education data (Education financing, resource allocation and use, expenditure tracking etc.). This
support goes hand in hand with the strengthen the internal structures and functioning of local and national
education coalitions and networks, enabling and empowering them to monitoring government spending pat41
terns and the quality of education strategic plans and their implementation .
CEDESC represents the core of the direct implementation of the IBIS education and governance program
through facilitation of high quality capacity building programmes for partners in education and governance,
42
organizing public debates and conduct studies relevant for implementation of the programs . Another direct
implementation activity is the technical supervision of IBIS’ CSO partners and the IFPs, the latter to be carried
out in their installations in Alto Molócùe, Quelimane and Maputo, as well as advocacy activities through participation in technical working groups at ministerial level;
Education and school attendance in relation to EIs represents yet another area for potential synergies between the two main pillars, including AI. Research on this nexus could be carried out in partnership with other INGOs, e.g. in the framework of GIG (see section 7 below).
b) Pillar II: Governance - Political participation, Democratic Reforms and Redistribution, Extractive In-
dustry and Access to Information
COCIM ends in April 2013 and Woman in Politics in July 2013. This provides an obvious opportunity for redesign of the
programmes to develop and operationalize lessons learned and to reflect IBIS new governance and education strategies 2013 – 17. The new sub-component in the governance pillar, complementing the AI component, will address local
governance issues such as political and democratic participation and reform, budget planning and monitoring, transparency, taxation and redistribution, it will enhance participation of women and youth in governance, and focus on
Extractive Industries (EI) and Access to information (A) I on a local, provincial and national scale.
Cidadão e Mudança (CIMU) will encompass three strategic lines of intervention:
43
a) Local governance with a focus on 2-4 districts and municipalities in Zambézia , and with a continuation of
governance work with CCs in selected districts based on and developing the solid experience from the
COCIM programme . The programme focuses on local democratic participation and governance in matters of
budget management cycles, fiscal decentralization and devolution and redistribution of power and resources
to lower tiers and government.
b) The successor programme to Woman in Politics (WIP), named Women and Youth in Leadership and Politics
(WILP) with a focus on democratization and political participation in politics and policy making of women and
youth. It includes the use of social media platforms and will be formulated as a national program intervention
allowing for strategic interventions in provinces of interest.
41 Thus issues such as budget analysis (taxation and expenditure) for the State budget and the District annual plans and budgets
(PESOD), review of criteria and methods for geographical budgetary resource allocation , expenditure tracking at provincial and
district level (PESODS, ADE etc.), review of accountability procedures and lobbying for changes in favour of increased resource
allocation for education and more equitable distribution of such resources will become part of the adjustment and the design of the
future education programme..
42 It is the intention that CEDESC will become a centre of excellence for advocacy activities where IBIS partners will participate in
debates, plan advocacy campaigns, and suggest studies to be carried out on topics of particular advocacy interest to partners.
43 Quelimane, Alto Molócùè, Mocuba and Gurúè. The 5th municipality in Zambézia, Milange, could be included if additional funding turns out to be
available.
26
c)
Extractive Industries with focussed activities in more provinces (e.g. Nampula and Cabo Delgado), including
the crucial issue of advocacy for taxation of natural resources and transparency of land concessioning for resource exploitation. This component is considered to be a line of intervention with a national dimension and
with a link to international best practice.
The suggested choice of the designation of the programme Citizen and Change (CIMU) epitomizes the challenges the
Mozambican citizen is facing to comprehend and relate to the socio-economic and political changes Mozambique’s
path to a resource economy is bringing about. The design of CIMU will start in December 2012. The strategic considerations with regard to the new element, Extractive Industry, are presented below.
CIMU will build on and consolidate what has been successfully achieved in IBIS’ previous work in COCIM in Niassa
Province. The following experiences and lessons learned will be brought to bear upon the new programme with its
focus on Zambézia:
 The strengthening of a rights based approach through capacity building of community-based Agents of
Change (women and men), anchored in the Consultative Councils has delivered tangible results, relevant for
enhancing citizens participation and influence, for democratizing local affairs and for increased accountability
to the constituents;
 Tracking of local budgets and plans for advocacy around transparency and accountability has proven a most
relevant and suitable method to improve local governance; using the experiences from Cuamba (FORASC) to
support civil society organisations in holding local (municipal and district) governments accountable;
 CEDER as a focal ‘service’ institution for partner CSOs and Change Agents in the fields of capacity building,
research and dialogue, added considerable value to IBIS’ partnership strategy ;
 A coherent curriculum, linked to the understanding and operationalization of local change dynamics
(‘Change Triangle’) and addressing the technical, thematic and managerial needs of partners, accompanied
by mentoring and coaching, has proven a powerful instrument for building capacity of partners;
 Credibility based on access to information, and dialogue has facilitated mutual understanding and results between community, government and private sector in matters of extractive economy (e.g. large scale forestry)
experience to be used in extractive industry program. Activities hinges on a clear mandate and on technical,
social and methodological competence and skills
 Women in politics and the accountability towards electorates has yielded results in 3 provinces and will be
feed in to the new CIMU program emphasising the women and youth agenda in political participation and the
use of social media.
Local Governance
The Local Governance component of CIMU will particularly, but not exclusively ensure the following strategic line of
actions:
 Capacity building of Change Agents in a number of topical issues (governance, budget cycles and accountability, relations between taxation, services and representation, EI). In complementarily to EPAC, change agents
e.g. in School boards will embrace monitoring of education sector plans and budgets and school governance
as some of their most relevant fields of action.
 Organizational consolidation of Change Agents. The entry point will be the CC in the districts and the base
groups established under the WIP programme in Zambézia in the municipalities. The government’s poverty
reduction programme for urban areas (PERPU) also foresees CCs in the municipalities44. These groups can be
considered as embryonic local community development committees. A strong link between the local governance component and the women and youth in leadership and politics component is thus given. The link to
CEs will be prioritized.
 Thematic Support to CSOs in advocating for
 Democratic reforms and redistribution and devolution of resources,
 Change of regional expenditure patterns and fiscal decentralization
 Monitoring of budget cycles for improved accountability and transparency in local governance as well as
expenditure tracking, including in education and regarding ADE;
 Access to information on public sector planning and budgeting, resource allocation criteria, and, finally,
th
 Electoral accountability and transparency, taking into consideration that 2013 will see Mozambique’s 4
cycle of local government elections and 2014 general elections
 Up scaling of Consultative council and Local Community Development Committee representatives to provincial level and Organization of Provincial civil society/CBO platforms. In analogy to and complementarity with
44
The Programa Estratégica para a Redução da Pobreza Urbana (PERPU) was approved by the Council of Ministers in November 2010 and implemented in 2011 for the first time, in provincial capitals only.
27
the up- scaling of CE and their associations (see: EPAC, above) a Provincial Consultative Development Forum
or ‘Provincial Development Observatory’) will be created in Quelimane, seeking to establish a clear mandate
of the CC’s / Local Committees with elected delegates. Other CSOs and NGOs could and should be part of the
Forum.
Women and youth in leadership and politics (WILP)
Concerning WILP, the successor programme of WIP, the new programme seeks to empower women and youth in
terms of developing their capacity to be able to fully engage in decision making and policy processes concerning matters relevant to them, such as, for example, representation, access to land titles, education, employment and productive work. WILP will be a national programme with strong links to Zambézia and Cabo Delgado, Niassa (and possibly
Nampula), where IBIS has already partners and base groups with well-built potential. In terms of partners, WILP is
likely to continue collaborating with partners with whom it has had good experience so far. Among them are Fórum
Mulher (FM), an umbrella CSO on women and gender issues. A new partner is the Frente Feminina of the Youth Parliament (Parlamento Juvenil- PJ) based in Maputo, with representation in all provinces. This linkage is essential in
terms of advocacy purposes towards gender equality.
Regarding strategic lines of actions WILP component will:
 Capacity building of women and men in the Provincial and Municipal Assemblies;
 Strengthening the relationship between elected female representatives and organized female CBOs / CSOs
CCs and (base groups);
 Support CSO advocating for including gender aspects in planning and budgeting at the district and municipal
level;
 Capacity building of women and youth to actively participate in leadership and political participation;
 Supporting CSO´s advocacy and lobbying strategies for inclusion of women and youth in leadership and political participation, aimed at conquering public space for women and young people in the political debate;
 Strengthen women and girls access to information through the use of Information and Communication Technology (ICT) with special focus on community radios, cell phones and computers, to get and share information on opportunities and facilities relevant to their livelihood, education and progression, particularly at
local level (e.g. FDD, scholarships, land rights, entrepreneurship, etc.);
 Reinforce female leadership and political participation in decision bodies, such as, school boards, consultative
councils, municipal assemblies and councils, in order to actively stand for women interests and needs;
 Looking at the forthcoming electoral process (2013/2014), empower women and youth to actively participate
in election processes and actively influence political agendas (specially, the inclusion of gender considerations).
Extractive Economy / Industry
The growing economic and political importance of increasingly resource based economy in general and of extractive
industries in particular, as well as their impact on the aid for development paradigm has been stressed in the context
analysis above. IBIS has recognized this shift and has produced a global policy and strategic analyses and guidance on
the extractive industry (IBIS, 2009; Sæbye, 2012). This is complemented by IBIS’ own experiences in other extractive
economies in Africa (Ghana, Sierra Leone, and Liberia). The subcomponent EI is part of the governance pillar and will
be designed as a national program allowing for strategic interventions at national, provincial and local level in
Mozambique and with strong links to the international level.
The choice of Zambézia as IBIS ‘main geographical area of intervention will enable IBIS to focus on the whole production and exportation chain related to extraction of mineral and energetic resources e.g. heavy sands, coal, gemstones,
oil, gas) in that Province and the adjacent provinces. Less emphasis is given to large scale agricultural or forestry ‘extraction’ projects. Zambézia will be affected not only by the planned exploration of its heavy sands deposits, but also
by coal exports through the planned rail line and the deep water port at Namacurra. The link to Nampula (heavy
sands) and Cabo Delgado (oil, gas) is also relevant.
Designed to represent a national programme, the following strategic line of actions in EI will be:
 Support to evidence based research. Collecting analysing and summarising , in close collaboration with partners such as CIP and IESE information, studies , research results on extractive economy and its impacts (e.g.
on taxation, resource allocation, expenditure patterns ) , in the EITI framework, for use in capacity building,
in house and with partners;
 Support organisations that advocate for taxation of natural resources, monitor revenues and spending, advocate for inclusive growth and renegotiation of contracts as well as monitor Foreign Direct Investment (FDI)
corporate social responsibility. Further to this special attention will be given to land rights and management
of land including conflict management and mitigation.
28

Planned Advocacy Processes /Campaigns. Generating and publishing research based evidence and documentation on the implications of extractive industry (e.g. mining of coal and heavy sands, artisanal mining large
scale forestry or cash crop projects) on land use patterns and rights, and on children, youth, education
(school attendance, drop outs etc) and feeding them into debates , media etc.
 Provision of specific technical, conceptual or analytical assistance to CIP, IESE etc. on matters where there is
no national CSO competence through visits, inputs by IBIS partners in extractive economies etc.
 The incipient ‘plataforma’ for extractive industries , an advocacy forum for NGOs, INGOS and CSOs, will receive IBIS’ continued support for that purpose thus being able to provide a competent national stage for informed dialogue on matters related to the societies and communities interest affected by the extractive
economy
Finally, IBIS sees in the governance pillar subcomponent of extractive industry a field, where it feels confident to add
value through mustering its manifold competencies in advocacy at global and regional level and bring to bear its experience and knowledge gained in projects in West African Countries and elsewhere.
Access to Information (AI)
AI has as its strategic programme objectives the improved access to and use of information, press freedom, as well as
capacity building of CSOs in Mozambique. These objective are not only the key elements of AI in their own right, but
are also seen as a crucial cross-cutting component for the whole CS 2013-17, including Education and all components
of the Governance Pillar. It hinges on the recognition that, firstly, access to information is a fundamental right of
Mozambican citizens. Secondly, AI holds considerable potential for enhancing the notion of citizen (in the sense of
well informed citizen) while it, thirdly, also gives clout and substance to advocacy campaigns. These three aspects are
at the core of IBIS’ strategy. Despite the specificity of content of each of the programmatic components AI provides
crucial common links between them. Good examples are the national conferences on ‘Extractive Economy, Access to
Information and Citizenry45, Access to Information concerning Educational budgets or the on Gender and Human
Rights46. During the CS 2013-17 IBIS will strengthen the thematic links and synergies between the programme components, with AI playing a decisive role also in boosting the effectiveness of its support to advocacy.
The present AI thematic programme will be consolidated and transformed into a new programme from 2016 onwards.
Design work will start at end of 2014 accompanied by a campaign to secure funding for the period 2015-2018 on the
basis of the present CS and the new IBIS Moz fundraising strategy of 2012. The present programme structure and log
frame provide a good basis for the design. The future AI programme will incorporate, test and explore innovative
methods of generating and disseminating information such as social media for governance, e.g. political participation
of young women and the use of social platforms. In education the AI will be linked to strategic lines of actions related
to monitoring school and teachers’ performance, advocacy effort related to education policy and financing as well as
47
quality education. At the end of 2012, IBIS has submitted two proposals for the raising of non-core funding : one
focuses on social media and ICT for youth and women, and the other on AI in the field of EI, with a specific emphasis
on Tete Province.
4.1.3 Geographical Focus
After a thorough discussion among senior staff of IBIS Mozambique and between the Mozambique team and the HO
48
in Copenhagen , IBIS Mozambique took a decision, at the end of August 2012, to concentrate the bulk of its work in
Mozambique on one Province only: Zambézia. This decision, which also looked at the new EI component in the Governance Pillar, and whose run up process is well documented (see Annex II), took the following key aspects into consideration:
a) Poverty levels, one of IBIS’ key criteria for the choice of its geographical intervention areas, have substantially decreased in Niassa, but not so in Zambézia;
b) Zambézia, with EPAC in full implementation, provides conducive framework conditions to link up and complement the education and governance pillars according to the intervention logic presented above;
c) The existence of CEDESC in Quelimane permits an easy ‘transplant’ of the CEDER experiences in Niassa;
d) The running cost of IBIS’ presence and operations in Niassa are considerable higher than in Zambézia, while
the cost-effectiveness of IBIS programmes and the likelihood of positive impact in Niassa are lower, given the
Province’s geographical, demographic and administrative features. This aspect gains importance when possible future budget constraints are taken into account;
45 held in Tete, Oct 2011 and Quelimane, November 2011, jointly organized by AI and COCIM
46 jointly organized with COCIM and WIP
47 from SIDA, Stockholm
48 in the course of the consultations for the elaboration of the present CS 2013-17, two WS were held, at the IBIS Country Office as
well as in Niassa and Zambezia.
29
e)
The endeavour for increased synergy between the thematic areas of governance and education in the area of
policy and finance as rolled out in the recently approved thematic strategies 2013 – 17.
The choice is technically, thematically and economically well justified and will help IBIS to concentrate its efforts and
thus produce economies of scale and a more tangible and visible impact.
A sustainable and flexible phase out plan from Niassa is currently being drafted, please refer annex XII.
4.1.4 Target groups and beneficiaries
The new CS will maintain, by and large, the target groups and direct beneficiaries the previous CS and the respective
programmatic pillars. These may be distinguished by programmatic pillars and levels of activity (national, provincial
and local), with a certain overlap between those in the various programmatic pillars. In education, the target groups
will be teachers (educators) and students (learners), school boards and school managers and educational authorities,
whereas in the governance the target groups represent a broader spectrum of society and comprise individual Change
Agents at community level and their associations (consultative councils, local community councils, provincial CS platforms),; CSOs and CBOs at national, provincial and local level, female and male parliamentarians at municipal and
provincial levels with their links to the ‘base groups’ (in WIP), media producers and broadcasters, members of provincial and local governments as well as of Consultative Councils and CSO´s monitoring 4 municipalities. One important
target groups in both Pillars is the youth. The table in Annex IV gives a more detailed overview.
The indirect beneficiaries will be the institutions of which the direct beneficiaries are part: the community and its
members as well as CBOs at large, the schools, the local government institutions, the base groups, the municipal assemblies and councils together with provincial parliaments, provincial and district associations and, at national level,
the national program for decentralized planning and finance (PNPFD) and the National Educational System (SNE).
4.2
Partner approach and development
Given the sociology and institutional features of IBIS’ partners sketched above makes the continuing building of their
capacity a primary activity of high priority in the implementation of the thematic programmes. Aligned with IBIS’ global partnership strategy, IBIS Mozambique has developed a sophisticated approach based on explicit rules shared with
its approximately 28 partners. It is fully implemented in COCIM, EPAC and AI at present.
49
The principles and rules, defined in two IBIS documents , foresee an assessment and classification of its partners
before an agreement (Convénio) is signed. There are three types of partners classified by the degree of their institutional maturity, namely a) the institutionally weak ‘hand holding’ partners, b) the semi professional partners at ‘arms
lengths’ and c) the fully professional partners. The latter are characterized by having their own approved Country
Strategy, functioning internal governance (i.e. regular renovation of the leadership’s mandate, accountability to members and stakeholders) and a standard accounting and internal control system which permits the periodic production.
The convénio defines IBIS’ financial exposure to the partners which varies with the classification both in terms of maximum volume and frequency of funding. Obviously the hand holding partners are entitled to less financial support
(max 50.000 USD/ year) in comparison to the ‘arms length’ partners’(maximum: 100.000 USD / year) and the professional ones. The latter are qualified for pool funding for up to 2 years covering up to 30 % of their overall budget. The
convénio also establishes the forms and frequency of accountability and reporting as well as the capacity building
50
measures for the weaker partners.
This requires major investment in the partners’ capacity building and the monitoring of the outcomes, using the results- based framework, as well as into IBIS institutional capacity to do so.
From cost-efficiency and an effectiveness perspective, the present number of national CSO partners (approx 12) may
appear rather high, especially if one takes into consideration the low (financial) management capacity and degree of
organization of most of them located in the periphery. Thus maintaining a high number of weak partners clearly poses
the challenge of high transaction and opportunity cost to IBIS. This might be one of the reasons for its perceived low
51
absorption capacity of additional project funding from MASC, where IBIS-Moz is said to be a poor performer . For
overcoming this challenge IBIS may consider the signing of ‘tandem agreements’ with strong partners who would
adopt a weak partner and accept taking care of that junior’s capacity building and coaching needs. This scheme could
be coupled to a bonus system for the stronger partner in case of success. In the last resort IBIS may see itself forced to
reduce the high number of weak partners in the early phase of the Country Strategy, ‘separating the wheat from the
chaff’.
49 the ‘Partner Manual’(IBIS Moz, 2012a) and ‘Partner Tools’ (IBIS-Moz, 2012b)
50 In 2012 only very few partners qualified for the third category of professional partners, most of them at national level. The weakest ones are at
local level, mostly in Niassa Province. For the first half of the present CP’ implementation IBIS’ strategic goal execution period is to not only considerably increase the number of partners in the middle and top level categories, but also to spend some 75% of overall funding with and through partners at provincial and sub provincial, and only 25% at national level50. An exception will be the Access to Information program due to the fact that
the program mainly operates at the national level.
51 Interview with MASC Director.
30
Increasing implementation of programme activities by partners, however will not fully substitute direct implementation of some activities by IBIS. In previous sections a strong argument has been made in favour of a mix of direct and
partner implementation of the programmatic activities foreseen in this CS. In this way, the advantages of both modalities can be maximized, while minimizing their disadvantages. Direct implementation, the rational and advantages of
which have been described above, will rest on IBIS Moz human and social capital and competencies, and the infrastructure investment of previous years, notably in CEDESC. It includes capacity building and coaching by IBIS staff of
CAs and the monitoring of their performance.
Partner implementation will continue to merit IBIS’ full support, as sketched above. Both modalities of implementation need as a prerequisite solid project documents and log frames, within a well defined planning cycle. The Pro Docs
and Annual Plans presently in use show different qualities and IBIS will make an effort to harmonize and possibly
standardize the structure, format and templates of such documents, important for result based management. The
same is true for the monitoring instruments (see below). In the case of the weaker partners, coaching and mentoring
are part of IBIS strategy to help improve their performance. IBIS will continue to be accountable to its partners
through the Annual Partner Forum, the regular sharing of reports and evaluations and through its website and quarterly newsletter (‘Chitukuku’), which provide all partners with valuable insights into IBIS’ activities, results and challenges
4.3
Cross cutting Issues
4.3.1 Advocacy
The present CS does no longer consider this field as a cross cutting issue, since it has been integrated in the governance and education pillars.
4.3.2 Gender and HIV- AIDS
IBIS Mozambique has a well defined strategy on mainstreaming of gender and HIV-AIDS cross cutting issues, building
on the strategic framework provided by IBIS Head Office.
The gender mainstreaming is integrated in the 2 pillars, Education and Governance. Further to this IBIS Mozambique
will continue to allocate more that 10% of the budget taken into account the Women in Politics sub programme. Regarding HIV/AIDS the tool “Escada para Vida” will continue to be mainstreamed in the programmes.
4.3.3 Youth
Taking into consideration the IBIS position paper and the above analysis, youth merits much more attention than it
has received so far. As the position paper suggest, work with youth provides an ‘opportunity not to be missed’ (IBIS,
2011). Ideally, IBIS could assume the role as a champion in promoting voice and influence of youth in public matters.
Thus special attention and specific programmatic activities targeting youth will be continued, consolidated and enhanced, taking into account that they complement and enhance IBIS’ work in the pillars. Thus youth issues are already
being addressed in the WILP governance component. Given the demographic and societal weight which the Mozambican youth represents, on the one hand, and the challenges they face, on the other, the elaboration of a specific
youth strategy for Mozambique will be considered, during the first two years of the CS, based on analytical studies
and / or surveys which address youth matters and serve as inputs for their necessary debate. A separate sub programme either under the Education or the Governance Pillar could eventually grow out of this. The end of EPAC and
WILP in 2016 provides a window of opportunity.
Concerning ongoing activities and their consolidation, the partnership with Parlamento Juvenil will be enhanced and
consolidated. The organization is mature enough to merit consideration for basket funding once they produce a Strategic plan and demonstrate sound (fiscal) management, implementation and monitoring capacity. The work with PJ
will be dovetailed with the IBIS thematic work in CIMU, EPAC and WILP through institutional capacity building and
support for campaigning and advocacy in both Pillars, with a focus on younger members of CEs, base groups etc. The
use of social media will be of specific appeal to the target groups and highly effective in transmitting contents. As a
planned result, IBIS sees youth organizations more competent and empowered to act as AC for public policy to increasingly reflect an agenda which meets material and cultural interests of the Mozambican youth.
The IBIS Centre Quelimane, CEDESC, provide ideal spaces for youth to meet, learn, debate etc. in their free time. Three
specific strategic line of action will be prioritized:
 Leadership training and capacity building in political participation with a strong focus on female participation.
 Music and Popular theatre on IBIS topical issues by youth theatre- and music groups
 Studies on youth issues for public debate and advocacy. Topics could include: a)Youth and employment / job
perspectives ; b) Youth, culture and power ; c) Youth in leadership and political participation
4.3.4 Extractive Industries
The present CS does no longer consider this field as a cross cutting issue, since it has been integrated in the governance pillar as an integral part (see section 4.1 above).
4.3.5 Climate Change
IBIS has a climate change policy in place which focuses on reducing emissions, renewable energy and restoring climate
justice - support to developing countries (IBIS, 2012b: 3). However, concrete climate change issues have not yet
31
cropped up of presented by partners in Mozambique, suggesting that for the time being they appear to be of relatively less importance to their strategic orientation. This may change quickly with the growing awareness and knowledge
about the multiple consequences climate change may bring about in Mozambique. Thus, IBIS Mozambique will better
prepare itself in dealing with climate change issues, by increasing its internal competence on the matter, with the
assistance of its HO in Copenhagen and possibly in synergy with DANIDA in Mozambique, which supports the Mozambican government in a major climate change mitigation programme, hosted in MICOA. More specific cross cutting
activities may include a focus on
 monitoring the effects of climate change phenomena (e.g. ocean level rises, increased cyclic activity) on migration patterns to the interior and subsequent pressure on land and water resources;
 the impact of large scale land use by agro businesses (cash crops, bio fuel crops , forestry projects etc.), wild
52
fires, agricultural crop spraying, irrigation etc. on renewable energy and change of micro and meso climate ;
 the impact of emissions of large scale extractive industries (e.g. coal, gas) on the atmosphere and local climatic patterns, and
 The trade in carbon emissions, taking into consideration that Niassa and Zambézia provinces are among those
in Mozambique with the high carbon stocks (Mabunda, 2012).
4.3.6 Documentation, Dissemination and Communication
According to many stakeholders consulted during the preparation of this Country Strategy, the lack of an effective
strategy and practice of documentation, dissemination and communication inside Mozambique is one of the organization most apparent weaknesses. It is difficult to find outside IBIS and its closest partners and stakeholders substantial
and easily accessible information about the success stories IBIS Mozambique has written during the past years, e.g.
with regard to the “Escolas Felizes’ or the Change Agents in Niassa, their history, the difference they make and the
impact on social change they produce.
The present Country Strategy therefore foresees considerable effort to mitigate this weakness. A major emphasis on
documentation and dissemination requires a more systematic approach to the management of information flows.
Annex VII gives an overview of IBIS’ innovative approach. The chosen approach, takes the present outward oriented
communication strategy focussing primarily on the Danish and European public (IBIS, 2010) further. The strategy will
need adjustment. The general idea is that a Country communication plan shall be developed according to the format
created for this in IBIS in West Africa, presented at the MG meeting in Copenhagen June 2012. The expected final
products will be dovetailed in annual targets and work plans and monitored in the annual performance agreement.
Concerning the allocation of human and financial resources IBIS Moz will need a minimum a specialist for documentation and communication based in Maputo. To keep the cost structure balanced IBIS will address this matter creatively,
e.g. via internships and the support from the communication department at the home office in Denmark, as well as
selected partnerships with media partners in the AI component in the Governance Pillar.
5
Hierarchy of objectives and areas of intervention
The strategic orientation of the previous IBIS Country Strategy for Mozambique with two key areas of intervention (or
Pillars), Education and Governance remain relevant for addressing the challenges analysed in the previous sections.
These two Pillars are characterizing the IBIS Profile, not only in Mozambique. In line with the IBIS strategic consideration presented above the two ongoing medium term components, EPAC and AI, will be maintained and extended
beyond their present duration period. The successor programme to COCIM preliminarily referred to as Cidadão e
Mudança-CIMU) will be designed as of 2013. Its components are Women and Youth in Leadership and Politics, Local
governance and Extractive Industry. Both Pillars will be implemented in Zambézia Province, with mirror effects into
Nampula and Cabo Delgado.
The hierarchy of objectives reflects the new IBIS programmatic architecture and provides a common planning framework for the two main pillars and all present and planned sub components.
Thus, IBIS’ vision, expressed as a development objective (at impact level) reads:
Contribution by IBIS and its partners towards a more just, democratic and wealthy society in Mozambique
IBIS mission (or expected outcome) can be formulated as the following strategic objective
Mozambican civil society and citizens with capacity, competence and information to exercise human and constitutional
rights, increased freedom to make choices and to engage the Mozambican government and state towards policies and
programmes leading to a more socially, economically and politically more equitable, gender balanced society in
Mozambique
At the programmatic level the tactical c objectives of the ongoing programmes have been maintained for the period
of their lives. The same is true for the objectives at the level of Planned Results. For the period thereafter, formula-
52 It is known that the intensive cultivation of spray cotton, e.g. in Kazakhstan or of large scale forestry projects (e.g. in Swaziland) has had devastating effects on the local ecology, climate and settlement pattern.
32
tions for these objectives are offered, which take the (strategic) intervention logic described in section 5 above into
consideration.
Concerning expected outputs, activities and inputs, the Country Strategy 2013-17 is tacit, given the fact that their
formulation and operationalization is done in the annual work plans and thus subject to frequent changes.
The hierarchy of objectives bringing the Pillars together under one common harmonized and logical framework is
reflected in Annex VIII.
6
Synergy of interventions
As suggested earlier, one of the changes in the present Country Strategy is the complementarity of and synergy between Pillar I and II by design, and its materialization in one single geographical intervention area. During the previous
CS period, the two programmatic Pillars operated in two different provinces. In this way synergy effects, in the sense
that the whole is more than the sum of the parts, will be maximized. A good case can be made for synergies between
budget tracking in education and support for reform in primary education and empowerment for School Councils. But
also in-house synergies between, for example IBIS Africa Against Poverty (AAP) in West Africa and IBIS Mozambique
in the field of extractive industries (see section 5.1.2 above) will be promoted through exchanges and mutual learning
on lessons learned, approaches etc. Another example of potential synergies is in the field of Climate Change Adaption where IBIS can identify and use a synergy potential existing with the Environmental Sector Programme, which is
part of DANIDA’s support to the government of Mozambique. A third example is the synergy potential existing in relation to FASE donors in general and the future DFID funded CEP project in particular, both in the field of education.
7
Alliance 2015
Alliance 2015 represents a partnership of seven like-minded non-government organisations from various European
countries working in the field of development cooperation. Its purpose is to join hands in the fight against poverty and
achieving the MDGs, generating and utilizing synergies in developing countries, campaigning jointly to influence public
and political opinion and lobbying with donors. Examples of its lobbying and advocacy strategy in Europe are the EUfunded Stop Child Labour campaign and the, 2015-Watch Reports series monitoring EU progress toward the MDGs
and the Hunger Campaign, in its early phase of implementation. IBIS has led Alliance 2015 on the issue of the Paris,
53
Accra and Busan Declarations on aid effectiveness, whose basic principles also inspire the members of Alliance 2015.
In Mozambique, the Alliance 2015 with IBIS as lead agency, faces the challenge that the members’ programmes and
interventions are thematically and geographically rather dispersed, imposing high transaction costs for regular coordination meetings (Alliance 2015, 2011). Nevertheless IBIS has used this network to share experiences, strategies,
methodologies. Thus members benefit from information of a strategic nature. The Members have made a principled
strategic choice to do studies and strategic analyses together. Two studies have been produced so far, supported by
54
Grupo Informal de Governação (GIG) (Informal Governance Group and funded by the Alliance .
From an IBIS Mozambique- specific programmatic perspective the Maputo- based GIG of international NGOs is and
will be of particular practical relevance. However, most of its members, who meet in 6 to 8 weeks periods, are not
part of the Alliance 2105. This informal forum serves for discussing legal and strategic aspects concerning the presence
of the organizations in Mozambique and obtaining work permits for their foreign staff; exchanging views on governance issues, access to information etc., as well as sharing studies and cost for research see above).
8
8.1
Programme Budget and Programme Funding Strategy
Funding resources
The tables below give an overview of the expected funding of programs planned by IBIS Mozambique.
The DANIDA frame funding is according to the latest frame budget proposal (2013-2016) received from HO (June
2012). The 2017 figures are estimates made by IBIS Mozambique. The institutional fundraising target (Non-Frame) is
calculated according to the global IBIS targets. The current institutional fundraising amounts brake down by donor
shows funds already raised. In order to raise the funds regarding the remaining gap, IBIS Mozambique will put in place
a fundraising strategy for the years indicated.
The private fundraising included in the table below relates to HO regarding the agreed funding of the Criança Feliz
Centre (guaranteed on the global frame). Other private fundraising is not included.
It should be mentioned that respectively DKK 60.000 in 2013 and DKK 15.000 in 2014 are allocated to AAP activities in
Mozambique (not included in the table).
Table 1: Frame funding (DANIDA), Non Frame Funding and Fundraising (in DKK)
FRAME FUNDING
Education
Governance
2013
18,500,000
8,500,000
10,000,000
2014
17,500,000
9,000,000
8,500,000
53 Harmonization, Ownership, Alignment, Accountability and Managing for Results
54 On ‘CSO in PARP in Mozambique’ and on ‘Budget and Aid Transparency at local level.
33
2015
17,000,000
9,000,000
8,000,000
2016
17,000,000
9,000,000
8,000,000
2017 1)
17,000,000
9,000,000
8,000,000
Institutional Fundraising 2)
Target
Current
Difference
NON FRAME FUNDING
Project
Women in Politics 3)
Women in Politics
TOTAL
PRIVATE FUNDING
Criança Feliz
Donor
SIDA
MFA-DK
NORAD
HO
12,333,333
17,418,790
5,085,457
11,666,667
12,458,460
791,793
17,000,000
0
-17,000,000
17,000,000
0
-17,000,000
17,000,000
0
-17,000,000
13,918,790
600,000
2,900,000
17,418,790
12,458,460
0
0
12,458,460
0
0
0
0
0
0
0
0
0
0
0
0
1,276,751
1,394,591
0
0
0
1) DANIDA Frame turnover for 2017 is estimated
2) Target is 40% in 2013 and 2014 and 50% in 2015 - 2017 of frame funds
3) no-cost extension
8.2
Fundraising
8.2.1 Strategy and targets
IBIS’ fundraising is guided by the global targets as outlined in the Organisational Development Strategy 2010-2015
(IBIS, 2010a). It aims at 40% of the budget to be funded by DANIDA (Frame funding), 40% by institutional resources
mobilized by IBIS Mozambique (non frame funding), 10% by private donors and 10% by humanitarian funds.
IBIS Mozambique has a well defined fundraising strategy, which is formulated in a ‘living document’ subject to regular
updating by the Maputo Office (IBIS, 2012). Since 2008 the country office has a fundraising team in place, as well as an
internal position of a coordinator, responsible for both the institutional and private fundraising. The link between
fundraising and communication is stressed.
In a midterm perspective, IBIS Mozambique aims to increase locally generated funding from 40% to 50%, thus reducing the DANIDA base funding from at present 60% to 50 %. At the same time, IBIS Mozambique endeavours to support
IBIS Head office in reaching the 10% target for private fund raising. The planned garnering of additional funding in
Mozambique will require an assessment of the CO’s fundraising capacity and modalities, and possibly the addition of
extra personnel the assessment will take place within in the first year of implementation of the country strategy.
8.2.2 Mobilization of non-frame funding
From a risk management and sustainability perspective, IBIS would not only need to diversify its sources of financing,
but also monitor the emergence and existence of windows of opportunity arising from the substitution of aid to state
55
actors by that to Non-State Actors (NSA) . Specifically concerning EPAC, IBIS donor diversification strategy would
need to further explore the possibilities of fund raising with bi and multilateral Development Partners who provide
sector support to education through the pool funded Fundo de Apoio ao Sector de Educação (FASE) (IBIS Moz,
56
2009:12), and or who have a specific programmatic interests in the areas in which IBIS works, such as DFID . Funding
should also be sought from – non-traditional sources such as foundations and business companies engaged in the
57
educational sector , e.g. in the production and distribution of school books and other educational services Tackling
international companies engaged in mineral resource extraction under CSR provisions as a new source of funding has
already been mentioned above.
Both WILP and the AI programmes will need to raise funds to secure its program activities beyond 2013/2014. However, because of its strategic importance the funding modalities and allocation for the governance pillar will be reviewed
with the perspective to secure some frame funding to WILP (from July 2013) and AI (from January 2015).
8.2.3 Support to private fundraising by Head Office
Private fundraising by Head Office can be based on independent projects as well as on specific thematic programme
components. Unless otherwise informed, the money raised will be part of the yearly frame allocation to IBIS Mozambique, and must be implemented without additional funds. As such, it is essential to ensure that the thematic programs are involved and informed about fundraising initiatives by Head Office, so that IBIS Mozambique later will be
able to account for the implementation of funds received in Denmark. Reporting is usually done directly to Head Office.
To facilitate and inspire the idea development in Head Office, IBIS is effective and responsive to requests from Head
Office regarding information, proposals, photos, etc. IBIS Mozambique sends the project proposals developed for local
fundraising, and where feasible can also provide easily digestible information on program components, such as Happy
55 this possibility was indicated in the interview with The SIDA representative
56 at the time of writing, DFID has launched a tender for the Citizens Empowerment Programme (CEP) focussing on primary education and primary
health care. In one of the technical proposals reference is made to IBIS excellent track record.
57 Specific reference is made to the Pearson Educational Trust http://www.pearson.com.br/ which is engaged in many field such as (school) book
production and distribution (Longmans, Penguin), news and media (Financial Times) and educational testing and exams (EDEXEL). The company
has a representation in Mozambique.
34
Schools. The IBIS Mozambique Bulletin and website is also important in feeding Head Office with ideas and news
about program activities and achieved results.
During the duration of the CS the following activities will be in focus:
 IBIS Mozambique participates actively in the Global Group for Communication and Fundraising;
 Head Office will have received regular information on all project proposals developed locally.
9
Management for Change
Management for Change is generally guided by global strategies and policies such as the organisational Strategy, partnership strategy, monitoring and evaluation systems as well as global performance systems. It is embodied in the
Implementation Plan for the CS 2013-17 (Annex XI).
9.1
Result based management
The management is inspired by three approaches to management, namely leadership, result-based management and
coaching. Leadership refers to the strategic level decision taking and steering, dealing with the overall direction of the
organization, strategies and policies. Management refers to the “how” of getting there, indicating resources available
to reach the strategic goal (programme objectives and budget) and the “the rule of the game”, e.g. manuals and
guidelines framing the program implementation and financial management. In accordance with IBIS globally, IBIS
Mozambique has two main tools to ensure that the organization can document results: (i) the Performance Agreements (PA), and (ii), the Organizational Performance System (OPS). Where the PAs are mainly an internal management
tool to define and measure program and organizational outputs as well as individual targets, the OPS serves as a tool
to document internally as well as externally achieved program results mainly at the outcome and impact level. Lastly
coaching refers to the individual level where staff members are offered coaching from their line managers, e.g. direct
influence on how to organize his or her work in order to reach the targets.
Since 2008 IBIS Mozambique has strengthened its Results Based Management approach in order to strengthen the
performance focusing on results related to objectives. Management by Objectives (MOB) has been the point of departure focusing on the following principles:
- Cascading of organizational and program targets and objectives
- Performance agreements (PA) with between the country director and program directors and head of finance
and administration (annually)
- Strengthen participative and inclusive decision decision-making through Program Management Team meeting structures
- Coaching and supervision of program directors, managers and program officers (weekly)
- Performance evaluation and feedback
Since 2011 the Performance Agreement has been adopted at the global level and is today a well integrated RBM tool
to measure performance and strengthen accountability and transparency upwards in the organization. E.g. each country director as well as head of departments at HO is measured by annual performance agreements agreed with the
Secretary General of IBIS.
The monitoring of the PA between the country director and the program directors has been integrated in the semiand annual reporting. The PA as a management tool will be further strengthened downwards in the organization in
the five year lifetime of the currently country strategy, e.g. each program director will put in place PA for each staff
member defining specific performance targets annually. This is already taken place in the Education program and will
be implemented in the governance programme in the first year of implementation of this strategy. The coaching of
programme directors done by the country director will be systematically implemented downwards in the organization,
e.g. program directors to provide coaching opportunities to centre managers and program officers. During the first
year of the CS an implementation plan will be developed.
9.2
Monitoring and evaluation
Monitoring is an important tool for increasing the accountability of actors in a given programme – both partners and
donors. Moreover, monitoring is used as a strategic management tool, designed to document and improve the quality
of work done by the programme. Lastly, monitoring provides an excellent opportunity for learning and reflection and
subsequent adjustment of programme strategies. IBIS monitoring system consist of internal as well as external monitoring. IBIS Mozambique monitoring and evaluation is guided by the global M&E systems, Partnership strategy as well
as IBIS Mozambique Partnership Manual. IBIS Mozambican has a comprehensive monitoring and evaluation system in
place.
9.2.1 Learning and knowledge management
The IBIS Mozambique programme provides various spaces and levels for individual and organisational learning. The
monitoring system and the information collected feed into to the ongoing reflection on programme performance and
development of the programmes. The outcomes of these reflections on programme performance help the programme
management and staff to achieve better results in line with the objectives defined in the thematic programme document. Key spaces for organisational learning are; Program management team meeting; individual coaching of program
35
directors; program meetings with all staff; Partner forums; Participation in networks. IBIS’ approach to institutional
knowledge management and organizational coordination is spelled out in great detail in Annex IX.
The new organisational setup foreseen in Quelimane is to effectively facilitate an even stronger learning environment
and create synergies between education and governance, not only at the provincial level but at CO level as well. It
opens new doors for strengthening the knowledge management within IBIS Mozambique and these new opportunities will be assessed during the implementation of the CS.
9.3
Human resources and development
With a stronger focus on governance (also in EPAC), extractive resource industry, public finance issues, and taking into
consideration a increased potential for social conflict, there is a need to complement and enhance the competencies
of the IBIS team and that of its partners in the field of human and constitutional rights by capacity, competencies and
knowledge in the following fields:
 Public finances, i.e. budget cycles, planning and budgeting, revenues and expenditure, expenditure tracking
and analysis, accountability mechanisms (auditor, parliament etc.), gender budgeting etc.
 Extractive industry & land rights and land use, requisition, registration and concessioning of land use titles;
land conflicts, environmental aspects; economics and operation mode of large scale land concessions; taxation of natural resources & inclusive growth.
 Mitigation and moderation of conflicts (experiences, approaches methods etc.). FDI Corporate social responsibility.
The new challenges highlighted in this Country Strategy, notably in the areas of intervention and in the field of documentation, dissemination and communication, as well as in monitoring require adjustments of the professional profile
of IBIS staff and possibly their TOR, which reflect these changes.
10 Programme Organisation
10.1 Structure
The figure below reflects IBIS organizational structure, which takes into consideration the shift of Governance Pillar
to Zambézia. One of the members of the Quelimane-based governance team will have the functions of team coordinator.
Figure 4: IBIS Mozambique- organizational structure
National director
Maputo (1)
Communication and
Fundraising (2)
Programme Director
Education,
Quelimane (1)
Education Team (3)
Programme Director
Governance,
Maputo (1)
Programme Director
Maputo (1)
Governance Team (1)
Team (3)
Head of Finance
and Administration
Maputo (1)
Finance Team (3)
Administration Team (4)
Governance Team (4)
Education
P. O. Maputo (1)
CEDESC& Partner
Team (3)
Administration. Team (4)
10.2 Staff and Positions
With the decision to refocus the geographical scope and establish both thematic programs in Zambézia province the
need for restructuring the organisational setup is evident. IBIS Mozambique will maintain the CO in Maputo and upscale the Field Office (FO) in Quelimane to accommodate both education and governance programs. The office in
st
Niassa will be closed within the 1 half year of 2013. The total numbers of staff will be reduced from 62 to 44 (29%),
58
including in the component Criança Feliz . Looking strictly at CO and FO the numbers of staff will decrease from 51 to
33 (35%).
58 The Happy Children Centre is considered as a project on its own
36
The management group consists of three Programme Directors (Education, Governance and AI), Head of Finance and
the Country Director. The program management group at CO includes program directors, program officers, head of
finance and CD. The directors of the new governance program (CIMU) and the AI program will continue to be based in
Maputo. The director of education will be based in Quelimane but allocate around 25% of her time at CO, thus securing a strong vertical link. Finance and administration at CO will continue the process of centralisation initiated since
59
2011, e.g. centralise all staff salary payments, all partner transfers etc. The CO program staff will be responsible for
all national partners, national advocacy initiatives and secure the vertical link at local, national and internal levels.
The new organisation setup operates with teams, both at CO/Maputo and FO/Quelimane. The team organisation
secures a strong learning environment as well as a strong vertical and horizontal link in and between the programs.
The office in Quelimane will represent the bulk/heart of the program implementation at the provincial level. Around
70% of all program activities will take place from the Quelimane office, including links to Nampula and Cabo Delgado
provinces). There is therefore a need to strengthen the management in Quelimane and it has been decided that the
director of the education program will be based in Quelimane and have the overall responsibility for the Quelimane
office including human resource for all staff. Further to this the finance and administration will be strengthened
through a full time administrator. The office in Quelimane is characterized by 4 teams; Education, Governance,
CEDESC, Partner & Gender Team and lastly Administration. The director of governance based in Maputo will uphold
the professional supervision/management of the governance team in Quelimane and will be responsible for achieving
program objectives and results. And the governance team in Quelimane will have a Team coordinator, for which a
new post will be established. Responsible to the Director, he/she will assure professional programme implementation
on a daily basis. The CEDESC, Partner & Gender team should also be highlighted. The team will operate with 3 PO
positions, namely i) a Daily coordinator of CEDESC, ii) a Partnership and M&E specialist (Coaching/supervision of staff
60
in how to facilitate and manage partnerships as well as quality control related to the Partnership Manual) , and iii) a
Gender advisor (currently placed at CO but will move to Quelimane to be placed closer to staff and partners).
10.3 Collaboration and relations with other IBIS countries in the region and HO / global
groups
IBIS Mozambique will collaborate with HO and other IBIS countries in the various global groups within governance,
education and communication and fundraising. IBIS Mozambique will also seek to establish a closer collaboration with
West Africa both within Governance and Education. We will focus our collaboration on extractive industries, including
taxation, mitigation of conflict, child labour and abandon of school, the taxation regime and the civil society platform.
Further to this we will focus on Women in Politics, especially in relation to Ghana. Regarding Liberia and Sierra Leone
we also see possibilities for link up on issues related to vocational training and life skills.
59 “From direct implementation to partnership driven programmes - The restructuring of IBIS Mozambique. New Structure 2013. “ December 2010,
Maputo .
60 In Niassa IBIS Mozambique has since 2010 had a similar PO position. The experience is very positive and it has therefore been decided to include
the position in the new organizational setup in Quelimane. The gist of the position is to support colleagues managing their partner portfolio as well as
secure that the quality of the work and its adherence to the Partnership Manual. The position will be strengthening the M&E component.
37
11 Annexes
Annex I: INGOS, NGOs and change in aid paradigm
One of the underlying assumptions for this CS 2013-17 is that IBIS will meet new challenges, which are analyzed here
in more detail.
a) A shift in the structure of aid for development
The present Country Strategy covers a period, in which the international aid policies and architecture of delivery are
likely to change dramatically, both in Africa in general and in Mozambique in particular. The time of ‘aid abundance’
will most likely be a phenomenon of the past, taking into account the economic, financial and fiscal crises in many
donor countries and the tendency of the private sector (of developed countries), i.e. foreign direct investment playing
an increasingly dominating role, especially in resource rich countries such as Mozambique (Klingebiel, 2012). New
cooperation partners such as China, India and Brazil, with much less emphasis on good governance and human rights
also contribute to the change.
In Mozambique, both a tendency of downscaling of or even exit from General Budget Support (GBS) and possibly ODA
and the dramatic increase of Foreign Direct Investment (FDI) in natural resources and extractive economy investment
are observable. At the same time, it is likely that the extractive economy gives much more emphasis on the state actors, including public enterprises, possibly to the detriment of Non State Actors. These tendencies will force IBIS and
its partners to reposition themselves, notably but not exclusively with regard to financing, but also the political and
social space in which they act.
The following Figure may serve as an illustration of these tendencies and their consequence.
Figure 5: Extractive Economy and change in
aid environment
From a financing perspective, IBIS may face
a tendency of generally decreasing resource
allocation for aid in general and for NGOFDI
support in particular by its ‘traditional’
funders. On the other hand, the reduction
of ODA and GBS, motivated by continued
???
challenges in the field of good governance
IBIS
(transparency, corruption) and inadequate
IBIS
effectiveness) may prompt an increase of
support to INGOs, notably those like IBIS
ODA
which focus on governance, citizen rights
and social justice.
State Actors
Non State Actors
b) What political space and role for
(I)NGOs?
There are also political and policy consequences of the change of patterns of the flow and delivery modalities of aid. In
a way they have a tendency to politicize and even expose the work of NGOs such as IBIS with a strong focus on governance. It has been noted that various forms of pressure on INGOs were applied by the Mozambican government, in
the wake of the persistent criticism by the G-19 DPs concerning the lack of progress in governance, leading to the
‘donor strike’ in 2010, i.e. the late disbursement of funds for DBS. Would, under such circumstances, the government
welcome increased engagement and critical stance of NSA in the field of governance, transparency and accountability
in the resource extraction economy, considered crucial for rent seeking? Would International NGOs need to seek
(again) the protection of their embassies to ensure that conditions are created for them to operate legally in the country and for their international staff to get work permits?
Concerning the foreign investors, especially those in the field of extractive industries and related to large scale occupation of land for agro-industries and forestry (and therein, especially those from Scandinavian countries), lines of
conflicts are already visible, which juxtapose IBIS’ local partners and communities’ interest to those of the investors
and their national partners (government and / or members of the political and economic elite). Donor countries home
to foreign investors may not necessarily view activities and campaigns of international NGOs and their national partners related to governance issues (e.g. land and workers rights, transparency and accountability) with a favourable
61
attitude, or rather seeing such activities as ‘complicating’ matters for the companies’ smooth operations .
In other words a looming conflict potential with international business and the embassies of their home countries
might again put pressure on IBIS to reposition it politically and in terms of partnership balancing. IBIS, with its institutional strengths and advantages alluded to above might see such conflict potential as an opportunity to complement
2013-17
2008-12
61 This point was explicitly made by staff of various embassies in Maputo interviewed during the consultations for the elaboration of the CS.
38
its advocacy role with a conflict mitigation role, taking into consideration that both the local state and the international investors have shown little capacity to negotiate and dialogue with the community and its organizations. This, in
turn, may have consequences for the self understanding of IBIS as an organization, its vision and mission. It would
also require an emphasis on issues and methods of conflict mediation within the organization and corresponding
capacity building of the staff and that of its partners.
c) Dilemma between direct and partner implementation as a result of the Paris Aid Agenda
IBIS is increasingly considered an ‘intermediary’ between a donor, DP or funding agency and a national NGO, seen as
implementers of programmes .g. in the Programme ‘Access to Information ‘funded by SIDA (IBIS Moz, 2010). This
approach is defined as ‘partner implementation’ and entails a division of labour between the intermediary and the
implementer is modelled after the logic of the Paris, Accra and Busan Declaration on Aid Efficiency: the national CSO
does the implementation based on its own Country Strategy, whereas the INGO, or IBIS in this case, provides due
diligence assessment of ‘partners or implementers, the financial means and a sound framework allowing for result
based monitoring.
As a recent study concludes, “Indirect support via harmonised donor funding mechanisms has been increasingly used.
However, such support is still tied to projects and DP priorities, and alignment to CSOs’ strategic priorities is limited.
The joint mechanisms still suffer from many of the problems known from bilateral support: donor-specific priorities,
special reporting and accounting formats and short-term project funding rather than longer-term core funding”
(Topsøe-Jensen, 2012: v).
However, some of the underlying core assumptions of this delivery model are doubtful. Given the structural weaknesses of Mozambican CSOs analysed above, only few of IBIS’ partners meet the necessary preconditions for this type
of approach: a Country Strategy, sufficient (financial) management and monitoring capacity, internal audits, and the
necessary link to the provincial and local level. Under these circumstances he intermediary is forced to invest considerable time and resources in building or improving the management and intervention capacity of its partners, in
coaching, mentoring and monitoring its management and administrative performance. This is, for example the case in
the Access to Information sub-programme of the Governance Pillar, financed by SIDA, where the objectives related to
civil society strengthening have almost the same weight as the thematic objectives. This can be seen as an opportunity to suggest a redesign of the IBIS architecture in Mozambique, in the medium term (see section below and Annex I).
This refocus of effort may lead to a deviation of the raison d’être of the organization, which, instead of assuring the
timely delivery of results, needs to act as a ‘company’ for organizational and management assistance. This in turn may
not only ‘violate’ the interests of the INGO’s stakeholders and members enshrined in its statutes, but also have counterproductive effects on the organization’s relationship with the funding agency. Far from producing the expected
results in which the agency is primarily interested, partner implementation may effectively prevent the results from
being efficiently and effectively produced, due to the shift of focus and resources on management and organizational
issues.
For this reason, and for reason of the ‘already ‘installed capacity ‘in terms of human resources and social capital available to IBIS (see above), a strong case can be made for a smart mix of partner and direct implementation. Such a mix
would reduce the risks associated with both, while maximizing and mutually reinforcing the advantages of each.
Annex II: Geographical target areas and extractive industry-- Strategic choices
The selection of the geographical focus of IBIS interventions in the CS 2013-17 was thoroughly discussed during the
preparation of the CS, both among the IBIS Mozambique team between them and HO. It took into consideration criteria for the selection of interventions and produced options. The debate was triggered by the observation that per
capita poverty levels in Niassa have been reduced significantly and is much lower than in Zambézia and Nampula,
which have very high values, making them potential candidates for IBIS interventions. The underlying assumptions
was that IBIS would continue to focus on a maximum of two provinces only (and the national level), for reasons of cost
effectiveness and resource endowment and would not leave Zambézia, where EPAC has been running successfully,
ending only in the third quarter of 2016.
Based on the discussion of selection criteria, a ranking of provinces emerged as follows:
Table 2: Ranking Exercise at staff Workshop, IBIS Maputo, 12 July, 2012
Criteria
1
2
3
4
5
6
7
8
Per Capita Poverty levels
Cost effectiveness of IBIS operations
Capacity of Partners (across IBIS' 3 categories)
Likelihood for effective vertical link (local-national-international)
Likelihood to influence policies
Presence of other INGOs/ donors
Opportunity cost of exit from province
favourable circumstances for achieving project outcomes
39
Niassa
1
1
1
1
1
2
3
1
Provinces
Zambézia
3
2
2
2
2
2
2
3
Nampula
2
3
3
3
3
2
0
3
9
Likelihood of successful fundraising
Total
3
14
2
20
1
20
Notes:
a) The criteria are unweighted.
b) Attribution of values is based on some empirical evidence and informed estimates
c) Ranking system:
1: low
2: medium
3: high
Based on this ranking, the following options emerged:
Table 3: Options for IBIS geographical Interventions
Option
I
Niassa,
Provinces
Zambézia
II
Nampula
Zambézia
III
Zambézia
0
Observations
status quo 2012
Implies closing of activities and presence in
Niassa
with selected activities extended to Nampula, from Quelimane / Zambézia
The Option I entails maintaining for the CS 2013 – 2018, the geographical focus on Niassa and Zambézia provinces for
both pillars. This would include both present Pillars and the new aspect of extractive industry / economy (see above).
It is in these provinces, that IBIS has most of its accumulated experience and social good will, and is best known.
Option II would imply a closing of the Niassa– based programme (COCIM) and a move to Nampula Province, of both
Pillar I and II. IBIS would thus work in both Zambézia and Nampula simultaneously. The latter Province, in which IBIS
has worked previously (from to 2005 to 2008 with an own office), has specific features and is considered to have a
more conducive institutional environment than Niassa province, making the success of IBIS projects more likely.
Option III would imply a concentration of IBIS activities in Zambézia Province only, with selective activities (e.g. in the
field of extractive industries) extended to Nampula Province, without, however, an own office and/or training centre
there. The possibility of an alliance and office sharing with established CSO in Nampula exists.
The reading of the ranking exercise suggests an inclination of IBIS Mozambique towards Option II, implying a closure
of Activities in Niassa. If this is to happen, it would be done in a phased way over one year, to minimize the effects of
this step and to allow the preparation of activities in Nampula province.
The peculiar features which distinguish the Provinces are presented in Annex IV.
Continuing to working indifferent provinces with their different features provides IBIS with a demanding environment
for the testing of its working approaches and methodologies towards advocacy for change.
The debate around the choice of geographical intervention areas was to some extent triggered by IBIS Mozambique’s
need to make also a strategic choice on how to incorporate Extractive Economy / Industry into the CS 2013-17. One
option discussed was to extend the CS’ geographically reach or broaden its programme to include provinces such as
Tete (coal resources) and Cabo Delgado (Gas, potentially oil), where investments in the resource extraction economy
and associated sectors (transport, construction, security) are booming. The other option considered was to continue
focussing on the partner provinces Zambézia, and at the time of the discussions, Niassa, where there is no mineral
62
resource boom for the time being , and to incorporate selectively activities related to the resource extraction economy in other provinces. The discussion of the choice between the two options needed to take into account not only
the cost and opportunity cost of closing IBIS presence in one of the provinces (Niassa) and its move to another one(,
Zambézia, Tete or Cabo Delgado), but also the potential opportunity cost of leaving Niassa.
Initially the discussions considered favourably the second option, i.e. incorporating and mainstreaming extractive
economy in the governance pillar, without changing the geographical focus. This would require a broader approach to
and understanding of ‘extractive economy ‘and its modus operandi, with a specific focus on land resources ( rights and
concessioning, use, access,) large scale agriculture, forestry etc. as well as on extractive industries in the more narrow
sense (mining).
It was also assumed that mineral exploitation in both Niassa (coal) and Zambézia (heavy sands) is bound to occur during the implementation period of the CS. Irrespective of the preferred option, the new CS would need to safeguarded
the important link between local, provincial, national and international levels in the extractive economy, which reflects IBIS strategic thinking on this matter. Further, IBIS will add value by fostering the hitherto missing or weak link
62 At present, exploration studies conducted by the major investors in the Tete coal fields, Riversdale / Rio Tinto and Vale do Rio Doce, are far
advanced regarding major coal reserves in Niassa Province (Maniamba / Lago District, and Lugela Basin / Ngaúma District). These are estimated to
equal the deposits in Tete. http://www.trademarksa.org/news/coal-reserves-niassa-province-may-be-big-those-tete). In Zambézia Province the London
based Pathfinder Minerals in a partnership with the Mozambican Naburi Mining Company have plans to exploit and export heavy sands from an area
along the coast, which covers 23.000 hectares (http://www.pathfinderminerals.com/).
40
by conducting studies, providing expertise and information and building capacity for partners, at national and local
level (e.g. via partnership with CIP) and by promoting the exchange of experiences among partners working in Tete
(Coal), Nampula and Zambézia (heavy sands) and Cabo Delgado (Gas, oil).A study commissioned by IBIS Mozambique
on EI produces valuable inputs into the debate (Sæbye, 2012).
Annex III: AIDS / HIV among youth
Indicator
Age group
Adults
15-49 years
Youths
14-24 years
Youths
14-24 years
Youth
14-24 years
AIDS-HIV Prevalence
Use of condom in last
sexual relation
Sexual relations in last
12 months with HIV
test and results received
Source: UNFPA, 2012
Gender
male
female
male
female
male
female
male
National
9.2
13.1
3.7
11.1
43.5
45.2
10.1
Urban
12.8
18.4
5.3
14.3
59.2
56.0
16.7
Rural
7.2
10.7
2.5
9.2
24.9
24.3
5.1
22.8
31.9
17.5
female
Annex IV: Features of target areas for IBIS Interventions
Zambézia Province, with its rather homogenous population in ethno linguistic terms, is administratively sub divided in
16 Districts and 4 municipalities (Alto Molócùe, Milange, Mocuba, and the capital Quelimane. Mocuba is one of the
best managed municipalities in the country. The economic mainstay of the province is cash crop agriculture (rice,
cashews, sugarcane, coconuts, citrus, cotton, and tea), and rice, maize and manioc as food crops. The Province endeavours to become the breadbasket of the country. Large scale farming in Zambézia went through many positive
(high productivity) and negative (forced labour, sidelining of peasants interests and land use) experiences during colonial times and after independence which still have an impact today. The country's tea estates are in Gurúè District.
Fishery resources (prawn), the mining of gemstones and an incipient tourism industry complement its economic resources. Manufacturing is not much developed. A case in point is timber, which lost its erstwhile importance through
well documented logging and export without processing. Prawn-farming operating in and around Quelimane suffers at
present from a disease of the animals and a consequent drop of production and marketing.
Zambézia is among those Provinces in Mozambique (together with Nampula), which are characterized by a high population size and a high rate of poverty. Although the latter, , dropped between 1996/97 and 2002/03, as indicated by
headcounts and the poverty gap measures, it increased again between 2002/03 and 2008/09 to a level comparable to
that of 1996/97. In other words, the government’s poverty reduction strategy epitomized by the Planos de Acção para
a Redução da Pobreza Absoluta (PARPA I (2001-2005) and PARPA II (2006-2009) had overall very mixed results. The
province is also disadvantaged in terms of resource allocation through the budget. To take the example of health, the
province is among those with the lowest per capita allocations of expenditure (recurrent and capital) and doctors.
63
In primary education, there are first indications that the demand is decreasing, while supply is increasing :
Figure 6: Zambézia: primary school supply and demand
4.000
3.500
3.000
2.500
2.000
1.500
1.000
500
0
No of
primary
schools
(EP1+EP2)
2010
2011
Source: DNE, Quelimane
Governance problems have been documented, for example in the field of forestry governance (illegal logging and
exports), which are attributed to crony capitalism, i.e. the emergence of entrepreneurs linked to the dominant party,
with the ability to evade bureaucratic regulations and restrictions and have easy access to licences etc. (Mackenzie,
63 It should be noted that this table is of illustrative rather than analytical nature, since there was no longer time series for the data available. The
phenomenon presented here may yet warrant a deeper analysis.
41
2006). Numerous NGOs coordinated by FONGZA operate in the province. Their relationship with the government is
64
said to be positive.
As a result of perceived poor governance and the high poverty rates, Zambézia’s politics and electoral results have
been tilted towards the opposition, even in the 2009 general elections, when Frelimo won for the first time in multi
party elections in that Province. However, the candidate of the opposition party MDM won the mayoral by-elections
in the province’s capital Quelimane in 2012, ending the 14 year reign of the former Frelimo mayor. Historically the
peoples of Zambézia have been sidelined from mainstream Frelimo politics and have during the civil war held sympathies for Renamo, and suffered the war related consequences thereof (e.g. considerable land mine hazard).
Niassa Province, to the east of Malawi and bordering Lake Niassa, shows a substantially different picture, despite a
size comparable to Zambézia, an almost equal number of Districts (15) and similar economic features, i.e. agriculture,
fisheries and forestry as predominant economic activity .The province with its culturally and linguistically rather heterogeneous population has the lowest population density of any of Mozambique’s provinces. And contrary to Zambézia, poverty rates between 1996/97 and 2008/09 have been more than halved. This is not only attributable to specific
territorially based support for Niassa by important DPs such as Sweden and Ireland, but also a more favourable allocation of central government resources for in health and education over the past decades, with the province being perceived as a ‘darling’ of the ruling party. As a consequence, it can count on the electorate’s support.
Nampula Province, predominately populated by the matrilineal Makhua ethnicity is known for its cultural homogeneity, but also for its ethic, linguistic and religious cleavages between the Muslim dominated littoral and the Christian
hinterland. Economically it ranks on third place in terms of GDP contribution by any one province, due to dynamic
agricultural activity (cassava and cereal production) and export (cashew, Sesame, Chiquita Banana, Cotton), industries
( cement in Nacala, heavy sands in Moma District) and the growing importance of transport and trade via the Nacala
railway and road Corridor (to Malawi and Niassa), as well as its Special Economic Zone around the Nacala Port, privileged as one of the best deep water port on the East African coast. Tourism along the coast (beach resorts) and on and
around Ilha de Moçambique, the ancient capital of the country and UNESCO world heritage site plays an increasing
economic role. Major new investment projects, e.g. the Japanese- Brazilian investment in large scale agriculture (‘Pro
Savana’) along the Nacala Corridor, a new railway line across Malawi to Tete and a new Port in Memba District (for
export of coal) and a phosphate mine (Monapo) are foreseen in the short run.
Paradoxically, despite the economic boom, the poverty rates are high, pointing to the phenomenon of growth without
development. Nampula has is also the province, which successfully piloted district planning and finance, which was
up-scaled to become a national programme (in 2010). It has a strong NGO track record and the relationship between
NGOs and the government is constructive, coordinated through UCODIN (Unidade de Coordenação do Desenvolvimento Integrado de Nampula). A Mapping exercise done by IBIS in August 2012 shows more than 20 active national
NGOs, by area of intervention and geographical location (district) of its projects. The However, the population appears
to not yet reaping the fruits of the economic and local governance dynamics, making the province a politically ‘critical’
province. Oppositions to Frelimo is strong (with the majority of the electorate voting for Renamo in 1994 and 1999),
and the Renamo leader Dhlakama chose the Provincial capital for establishing the headquarters of the party 65. From
1999 until 2008 three out of its five municipalities at the time (along the coast) were led by a Renamo majority and
mayor. Political violence has occurred in a number of times.
Annex V: Target groups and beneficiaries by programmatic pillar and level of activity
Pillars
Level
Central
Provincial
Education
Citizenship / local governance
 Ministry of Education of
Mozambique
 1 Teacher Training
Institute (IFP) including
staff and students.
 School managers,
School Boards and Children’s Parliament in 5
Schools in the city of
Maputo.
 national CSO, Asso-
 2 Teacher Training
 provincial CSO , asso-
Governance
Women in Development
and Politics


ciations and fora

None



 elected female politicians


Parliamentarians
Ministries (e.g. Education and culture)
media houses (TV,
Radio, Print)
Supreme Media Council,
Government Media
Institute
Journalists (male and
female)
musicians / artists
Journalists (male and
64 http://www.verdade.co.mz/nacional/25702-governo-da-zambezia-satisfeito-com-o-desempenho-das-ongs
65
in October Dhlakama moved to the Gorongosa Mountain in Sofala Province, where he is said to set up a military training camp for his ‘body
guards’, as a move to allegedly meant to pressurize the President of Mozambique to negotiate ‘unfinished business’ from the Rome Peace Treaty.
42
Local
Institutes (IFP) including
staff and students
 Provincial Education
and Culture Directorate
of Zambezia (DPEC)
ciations and fora
 School managers,
School Boards and Children’s Parliament in 15
schools in 4 districts.
 15 Zones of Pedagogical
Influence (ZIPs)
 4 District Services for
Education, Youth and
Technology Directorates
(SDEJT)
 individual citizens
identified by the
community;
 change agents
 local CBOs and CSOs
in Provincial Assemblies
in various provinces (at
present: Niassa , Zambezia, Cabo Delgado)
 selected male members
in Provincial and Municipal Assemblies
 selected female members / leaders of provincial associations, NGOs
etc.
 elected female members
of Municipal Assemblies
 selected male members
in Municipal Assemblies
 female representatives of
CSO and CBO e.g. CC,
School Boards etc. in
selected Districts provinces







female)
Musicians, performing
artists
Provincial governments and parliamentarians
Community radio
members and management
journalists and
broadcasters
musicians and theatre groups
Listeners groups
youth groups
Annex VI: IBIS’ CEDESC - Quelimane
1. Introduction
From 2008 to 2011 IBIS Mozambique has been running two Community Development Centres (CDC) in Zambézia (Alto
Molócùe and Milange) as well as one Centre for Civic Education and Development of Human Resources (CEDER 2008
to date) in Niassa-Lichinga. During the process of designing the new structure for IBIS Mozambique, the positive experiences and lessons learned from these centres were recognized as a big potential to bring into the future organization
of IBIS Mozambique’s activities.
Through those centres, CS, IBIS partners and local communities have access to comprehensive packages of training
programs; both in program thematic areas and in financial management, as well as life skills training for the beneficiaries. Further to this the centres offer a space for participating in public debates, using an internet connection and
library.
The centres are contributing significantly in strengthening the institutional and organizational capacity of the partners;
strategic planning and management, program management, solid knowledge on thematic issues and more and better
access to information are associated with the centres. Concrete examples of results for partners and IBIS are:




In the last 3 years CEDER was responsible for more than 25 training session on topics such as management
and leadership of CSO’s, financial management, project cycle, strategic planning, monitoring and evaluation,
evidence based advocacy, gender and HIV-AIDS, basics of local governance and its legal framework, etc.
About 30 public debates were organized in CEDER covering issues related to citizenship, such as citizen participation on decision making process, public sector reforms and power decentralization, poverty observatory in
Niassa, sharing experiences on budget monitoring and tracking initiatives as well as topics related to women
in politics.
3 research studies were conducted at the CEDER covering issues related to composition and performance
66
analyses of district consultative forums in Niassa, gender perspective on FDD access and analysis of women’s participation in politics.
Community development centres in Alto Molócùe and Milange were well known due to their contribution to
local development agenda, including providing life skills training. CDC’s are acknowledged for helping vulnerable girls and boys in obtaining the necessary skills and competencies they need to be well integrated in the
in society. CDC’s IT centre is mainly used for IT training of young people where as the library is mainly used by
teachers looking for additional training material. The meeting rooms are regularly used by partners for workshops and debates.
Based on the above experiences, IBIS Mozambique has conceptualized the creation of CEDESC. The move for CEDESC
is based both on the staff contribution for the new IBIS structure, and IBIS background and experiences working on
education, rural development and citizenship. The general feedback from partners, local communities, local govern-
66 Fundo de Desenvolvimento Distrital (District Development Fund)
43
ment institution and other stakeholders have been very positive. A similar Civil Society Centre does not exist in the
Zambezia Province.
2. CEDESC – Context and Concept
Since 2008, IBIS Mozambique has been focusing on implementing program gradually more through partner organisations. Nevertheless, IBIS has recognized that a precondition to implement a partnership driven program at provincial
in Zambezia is the establishment of a strong support structure with the capacity to provide assistance to local partners. This is due to the fact that organizations at provincial and district level are very weak and the surrounding environment (government and the ruling party) is not favourable towards creating strong and independent civil society
organization.
By defining the support structures as Civil Society centres we expect to establish a methodology and environment for
a comprehensive support for local civil society at provincial and district level. Our experience with working in partnership with local organizations in Niassa, Zambezia and Cabo Delgado, demonstrate that in order to empower local partners we need a long and comprehensive support plan that combine different components of technical support and
financial assistance with solid facilitation, mentoring and coaching efforts.
The CEDESC is seen as an investment and mean to reach the strategic objectives outlined in the Country Strategy. In
this context, the CEDESC has 4 specific objectives:
a.
b.
c.
d.
To be a source of various capacity building opportunities for IBIS partners and others
To coordinate the conduction of studies in issues of concern common to a group of IBIS partners and other
relevant stakeholders (Evidence based advocacy)
To conduct regular Public debates on issues of common concern to the IBIS partners and other relevant
stakeholders
To contribute for improvement of public policies on education and governance sector at provincial and district level.
3. Activities at CEDESC
The objectives will guide the following activities at the centre:
 Partners attend regularly capacity building courses in the centre, depending on their needs (See Curriculum
further down). Courses are also open to other CSOs’ participation upon application, and where relevant, also
to staff from relevant government institutions.
 At least once a month the centre opens its doors to the public to a debate.
 Research is conducted from the centre. The topic of the research is decided by IBIS and the partners, focusing
on an issue of common concern for this group of partners. Researcher will often be contracted consultants.
The centre contains an office for ad-hoc researchers that work from the centre.
 IBIS’ partners also use the centre beyond participating in the capacity building courses. The Centre offers facilities for the partners to use in their work: Meeting room, Internet café, Library. These facilities are also
open to other CSOs and others (e.g. students), upon signing in.
 The IBIS POs have their office space in the centre, where they prepare their work and follow the partners.
The POs will work closely together with the internal coordinator of CEDESC and will be responsible for a
number of the capacity building courses.
 The centre has a rather big, open space outdoors, which is suitable for theatre plays, concerts and other public performances and gatherings.
Example of courses offered as part of the curriculum of Organizational Development is:
 Management and Leadership of CSO´s – Get the Basics Right
 Financial Management
 Strategic management and development of Strategic Plans
 Planning, Monitoring and Evaluation
 Project Development
 Advocacy and Public Communication
Examples of courses offered as part of the curriculum of Thematic Areas are:
 Local Governance
 Women’s political influence and Gender
44





Children’s Rights and Youth
HIV/AIDS Prevention/Escada para Vida
Democratic School Governance
Teacher training – Local Curriculum, Didactics, Participative methods, Bilingual Education.
Local Natural resource and other local environmental issues.
Target groups of the Centre:
 Partners of IBIS
 Other CSOs
 Government institutions
 Students and other in the public
Sustainability of the CEDESC:
The CEDESC is seen as an effective IBIS support structure to partnership driven programmes. The CEDESC represents
the concrete and visible materialization of the added value that IBIS represent towards donors and partners. Even
though we will strive to handover the partnership centres to local civil society organizations/partners in the long term
perspective, the assessment of the sustainability beyond the presents of IBIS is most likely limited. Therefore the sustainability should rather be seen as a stronger civil society movement supported and capacitated by IBIS through the
presence of CEDESC.
4. Management Structure and Staffing
The centre is the IBIS’ field office in Quelimane. The overall responsibility for the management of the Centre is with
the Program Director of Education who will be based in Quelimane. The CEDESC will have an internal coordinator who
refers to the PD. The internal coordinator will work closely with the various teams at FO as well as CO in defining training sessions, public debates and studies.
The Centre will have an advisory board consisting of representatives from IBIS partners, strategic partners and possibly the critical friends of the relevant thematic program. Representatives of the IBIS Partners will be elected on the
annual partner forum, and the strategic partners will be suggested by the partners, but appointed by IBIS.
5. Challenges for the CEDESC
Some of the challenges that IBIS has faced in its work with the existing centres, both CEDER and CDC’s, have been
linked to (1) staff with limited abilities and competencies to deal with partners demands in terms of training, (2) optimize the use of centre facilities by partners and other relevant stakeholders such as the library, meeting room, internet service, (3) the ownership of the centre by the partners.
In order to deal with those challenges, partners will be included in the overall management of the centres (Conselho
de Gestão), with enough space to influence and participate in decision making regarding the various activities. Looking
into the future the issue of partner’s, and other relevant stakeholders, ownership to the centres will be a key issue and
special attention will be drawn to this. The Angola experience will also be useful in the design of training approaches,
e.g. “innovative training approach to capacity building”.
When it comes to the challenges regarding the staff competencies, this will be dealt with partly through focused capacity building of core staff and partly by using external professionals with specific technical expertise. The core staff
will have competencies to respond to trainings in the areas of education, governance, financial management, and
organizational development. A resource base will be built, containing trainers and consultants that can be drawn upon
to complement the competencies of IBIS core staff.
With the decision of moving the governance program to Zambezia IBIS Mozambique sees great potential in creating a
strong learning environment for staff, partners and other stakeholders with special interest in education and governance.
Annex VII: IBIS value chain for documentation, information, dissemination
Phase I
Generation of Info
Type
Who?
Phase II
Processing / Production / Documentation
Activity
Who?
45
Phase III
Dissemination / Marketing
Final products
Media




stories/ narratives
reports/
summaries
films / videos
photos





IBIS local staff
Project directors
partners
evaluators
consultants







selection
editing
processing /
production
quality control
archiving

IBIS Maputo
support from
IBIS DK
selected AI
partners (e.g.
media producers)






newsletter
features
films / videos
reports
handouts,
pamphlets
posters




46
local national,
International
Media (print,
visual, audio)
websites
(Moz, DK)
social media
(e.g. face
book)
other
Annex VIII: Country Strategy Plan 2013-2017: Hierarchy of Objectives
I
Vision: Development Objective (Impact)
Mission:
Strategic Objective (Outcome)
Pillars
Programme
level
Programmatic
tactical objective (per Pillar)
67
II
III
IV
V
VI
VII
VIII
IX
Contribution by IBIS and its partners towards a more just, democratic and wealthy society in Mozambique
Mozambican civil society and citizens with capacity, competence and information to exercise human and constitutional rights, increased freedom to make choices
and to engage the Mozambican government and state towards policies and programmes leading to a more socially, economically and politically more equitable,
gender balanced society in Mozambique
I: EDUCATION
II: GOVERNANCE
Proposal: Local Arena:
Access to InforProposal: Access to
EPAC
COCIM
Women in Politics
Citizens ‘Response to
mation (AI)
Information (AI)
Change (tbd)
current phase
new phase
current phase 2009current phase
new phase 05/2013current phase: 2011- phase 2015-2018
20092015-2018
04/2013
12/2018
12/2014
10/201667
(Proposal,
tbd)
By the end of 2016, children and Citizens and the orWomen’s political conThe collective interests of
Active citizens and a see: AI current
young people of both sexes
ganisations represent- cerns and issues are
Local citizens and CSO
strong, vibrant civil
phase
enjoy their educational rights,
ing their interests
being represented by
are increasingly articulated society participate in
fulfil their duties and participate participate in and
female politicians at
and negotiated at provinand influence the
actively in the development of
influence the demomunicipal and provincial cial and national level with democratic process
their communities, and civil
cratic process tolevel in three Northern
competence, capacity (tbd) contributing to more
society actors are drivers for
wards socially, ecoMozambican provinces.
accountable governchange in the educational sector. nomically and politiance, deepened decally equitable develmocracy, gender
opment of society in
equity and human
Mozambique.
rights in Mozambique.
taken from IBIS Moz, 2011 (EPAC).
Planned Results
(PR)
PR 1:
By the end of
2016, the
schools supported by EPAC
provide relevant
and quality
education to
pupils, and are
used as a model
for replication
and advocacy.
PR 1:
By the end of
2018 the Escola
Feliz Model is
mainstreamed in
Zambezia province and partially replicated in
other provinces
/ and anchored
at policy level
(MINED)
PR 1:
Active citizens use their
capacities and voice to
participate in and influence the social, economic and political
development of their
communities
PR 1:
Female politicians are
aware of gender issues and
barriers to gender inequality
and advocate gender considerations in their work
and decisions making
PR 1:
Women in leadership and
political positions at provincial and local level are
empowered and act in the
interested of the stakeholders whose mandate
they represent (tbd)
PR 1: Thematic objectives:
PR 2:
By the end of
2016, the
schools supported by EPAC are
managed by an
inclusive school
management and
a democratically
elected School
Board, whose
members
demonstrate
good internal
governance and
influence local
governance.
PR 2:
By the end of
2018, the Associations of
School Boards
at district level
are mainstreamed and up
scaled to provincial level
and effectively
act as lobbying
and pressure
groups vis a vis
the authorities
in educational
matters
PR 2:
Civil society organisations that are representative, participate in,
influence and monitor
development of matters
related to decentralisation, gender equity and
sustainable economic
policies at local and
national levels.
PR 2:
Female Politicians actively
interact and communicate
with their female constituencies and women’s CSO in
the process of preparing for
decisions in their Assemblies and Councils. h
PR 2:
Local citizens, individual
and institutional change
agents (e.g. school boards)
and CBO hold their local
governments accountable
with regard to effective
and transparent planning,
budgeting and budget
execution (tbd).
PR 2:
Civil society strengthening objectives
48
see: AI current
phase
1.
Citizens are empowered to demand accountability from public
bodies
2. Citizens across
Mozambique have
access to quality information from a plural
media.
3. Citizens’ right to
public information is
respected and supported by a strong legal
framework.
4. Freedom of expression and of the
press is systematically
defended by public
bodies.
1.
Civil society organisations are democratic, representative, well governed
and managed, and
are seen as legitimate by their members and support
base
2. Civil Society organisations are effective
creative, dynamic, networked and learning
organisations, increasingly able to fulfil their
mission at and between
various levels
see: AI current
phase
3. CSOs benefit from
increased alignment and
the application of principles of good donorship.
PR 3:
By the end of
2016, IBIS
partners and
relevant civil
society organizations are
influencing
national educational policies.
expected outputs
68
see: IBIS
Moz, 2011:
25ff68
PR 3:
School Boards ,
their associations and other
CSOs have
capacity and
competence to
monitor and
evaluate PFM
instruments
(revenue, expenditure;) in
the educational
sector and
influence allocation distribution and management of
public resources
PR 3:
Male politicians are
aware of gender issues
and barriers to gender
inequality, and include
and support gender considerations in their work.
see: IBIS Moz,
2009:23
PR 3:
Local citizens and local
governments are aware of
the changes induced by
extractive economy investments , and are capable to articulate and defend
their rights (tbd)
see: IBIS Project doc
in the Pro Doc the expected outputs are considered as outcomes, which is not entirely correct in the design and analysis of the hierarchy of objectives.
49
See: IBIS Moz, 2010
See: IBIS Moz, 2010
Annex IX: Knowledge Management -Virtual structure (2013 -2017)
This annex will outline how institutional knowledge management and organizational coordination will take
place, and what will be the technical requirements for it to operate smoothly.
It is envisioned that IBIS Mozambique to a larger extent will use web-based solutions for increasing communication internally in the organization, as well as externally with Head Office, donors and other stakeholders.
However, this change in communication need to be carefully planned and organized to be used efficiently, and
must be supported by the appropriate technical solutions.
Below is described the coordination processes and knowledge exchange that are envisioned to work across
physical units (IBIS CO, IBIS FO/CEDESC and IBIS HO), and that will require a technical solution to facilitate this
type of coordination. Also included are regular coordination meetings that will take place in the same physical
units.
Figure 7: Institutional Knowledge Management
VIRTUAL STRUCTURE
TECHNICAL REQUIREMENTS
Institutional Knowledge Management
Electronic Archive – An electronic archive for all program Access to a common server and privileged access to
and administrative activities is set up on a common
reading and uploading documents.
server, with a structure set up for each department
(Program, Finance/Admin and Management Group.)
An archival structure in place (folders) for each departCompulsory archiving there for both CO and FO staff.
ment.
Uploading responsibilities divided between relevant staff.
AHS/GLS - program managers and advisers are responsiAccess to a quick and stable internet connection
ble for uploading in their particular area. All program
staff at country office and FO/CEDESC have access to the
AHS/GLS.
Global Groups – program managers and advisers particiAccess to a quick and stable internet connection.
pate continuously in relevant groups.
Access to email, Skype and equipped with a headset and
camera in the computer.
Libraries - FO/ CEDESC and the CO maintains a library
Access to a common server.
with essential books in the area of governance and education, and designate a person responsible for keeping
an updated record of their books and reports, which is
shared on the common server.
Team Leader Meetings – Bi-annual meetings for inforNone – physical meeting.
mation sharing, coordination, team building and training.
Participation from all program staff
External & Internal Communication – IBIS Mozambique
Access to a quick and stable internet connection, emailmaintains its part of the IBIS global platform website.
mailing posting system, and a person with knowledge of
Newsletter and annual report is distributed electronicalworking with CMS (Content Management System) of the
ly. Website, newsletter and annual report serve to share
website.
documented results among IBIS staff, partners and donors. Folders about the organization informs about onAn additional software requirement is the program Pubgoing activities. Designing and printing of folders is outlisher or something similar, for producing Newsletter and
sourced.
other small publications.
Organizational Coordination
Internal Communication - All IBIS staff have an IBIS
All IBIS staff have functioning IBIS emails and access to
email, and uses this for all work related matter. CO main- webmail also
tains and email list with all current staff.
Organizational Planning – All meetings and other events
All staff has access through their IBIS email to Outlook
are planned and shared through Outlook Calendar. CO
Calendar and knows how to use it.
maintains a joint calendar with events relevant for the
organization (vacation, travels, big events, etc)
Program Management Team Meetings – Video conferAccess to a quick and stable internet connection.
ence meetings through Skype with participation of program staff at CO and FO/CEDESC. Take place every secAccess to email, Skype and equipped with a headset and
ond week, agenda and minutes made by CO.
Fundraising Meetings - Video conference meetings
through Skype with participation of program staff at CO
and CEDESC. Take place on a monthly basis.
Technical collaboration – Video conference meetings
through Skype are also used for continuous collaborative
processes in other areas (M&E, Gender, etc) or for ad hoc
tasks like the elaboration of a fundraising proposal, a
manual, or workshop content.
Administration and Finance - Video conference meetings
through Skype are set up on a regular basis between CO
and CEDESC, and Navision is a web-based tool used.
Access to a quick and stable internet connection.
Functioning of Navision and common use of server for
archiving.
Access to a quick and stable internet connection.
Coordination with Head Office – Takes place through
email, web conference and Skype, coordinated by relevant staff.
Management Meetings– weekly meetings in the Management Group at CO.
Meetings of Administration and Financial Department –
Weekly meetings in CO.
FO/CEDESC - Coordination and Planning meeting –
Weekly meetings
None – physical meetings.
Some of the key spaces and events facilitating individual and organisational learning are:
 Programme Management Team Meetings: These meetings provide a space every two weeks for exchange between the thematic programs at country office level. The exchange of learning, challenges
or ideas revolves around results achieved, partnership development, monitoring, advocacy and financial management.
 Individual coaching of programme directors: the Country Director coaches program directors in both
management and leadership of the thematic programme. This coaching provides the space for programme directors to bring management/leadership or technical issues to the table for further reflection, supervision and decision. The coaching is scheduled on a weekly basis.
 Program meetings for all program staff: the bi-annual meetings for all programme staff are spaces for
learning and reflection and take the shape of sharing of information and lessons learned and specific
staff training.
 Partner Forums: The annual partner forums for each thematic programme provide a space for learning between the different partners, not only through exchanging information about activities, but also
through the common discussion and reflection on how to reach program objectives.
 CEDESC: has an Advisory Board consisting of representatives from IBIS partners, strategic partners.
Representatives of the IBIS Partners are elected on the annual partner forum, and the strategic partners are suggested by the partners, but appointed by IBIS. The advisory board represents a space for
joint reflection with board members on programme activities and performance in the context of Governance and Education. Lesson learned from CEDER´s Advisory Board will feed into CEDESC.
 Participation in Networks: an important external space for learning for the organisation as a whole is
through the participation of programme staff in networks like Alliance 2015, the Informal Governance
Group, and MEPT etc.
Annex X: Organization and Staff
Country Office Maputo (18 staff):
Crianza
Feliz
11 employees
Team
Education
Programme Director 25%
Programme Officer
National
Director
Team
Finance and
Administration
Head of Fin. & Adm.
Senior Controller
Financial advisor
Administrative Assistant
IT’ supporter
Logistic, Cashier
Servant
Team
Access to
Information
Team
Communication and
Fundraising
Programme Director
2 Programme officers
Financial Advisor
Communication Officer
Fundraising Officer
Team
Governance
Programme Director
Programme Officer
51
Field Office, Quelimane (15 staff):
Team
Administration
Team
Education
2 Programme Officers
1 Financial Advisor
Administrator
Receptionist
Logistics
Servant
Programme
Director
75%
Team
Governance
Internal Project Coordinator
2 Programme officers
Financial Advisor
CEDESC& Partner
Team
Internal CEDESC coordinator
1 P. O. Partners & M. E..
Gender Advisor
52
Annex XI: Implementation Plan for the Country Strategy 2013-17
The next steps for moving the CS forward in Mozambique is to develop an overall Implementation Plan for its five year period. This includes a transition plan for the exit from Niassa and a
Performance Measurement Framework with expected results and areas of focus as to build activities in to Annual Plans and monitoring and reporting systems.
Phase 1
Country Strategy and Organizational
Restructuring
1
• Share CS 2013-17 with all staff, organize group
discussion in all offices
• Develop abridged version for sharing with partners and
donors and publish (brochure and web)
• Develop organizational restructuring plan for IBIS
Mozambique dovetailed to the functional needs and
thrust of the CS 2013-17 to ensure effective
implementation
• Design and implement exit strategy from Niassa,
including operational plan, timeline and exit indicators
Phase 2
Development of Performance Measuring
Framework
2
• Use Hierarchy of Objectives (Annex VIII) and
consultations with partners to validate Outcomes and
Planned Results of CS 2013-17
• Verify adapt and, where necessary, develop Log Frame
and indicators for Pillars and components of CS 201317 , including cross cutting issues, fund raising and
management performance
• Update and, where necessary, develop base line for
measuring Planned Results, taking into account
'tangible' and 'intangible results'( change of mind set)
• Set annual targets and procedures, including
Performaance Agreements with staff, for monitoring
and measuring
• Develop and update realistic Annual Implementation
Plan as a basis for Annual Work Plans, quarterly
planning and reporting
3
Phase 3
Areas of Focus to Build on and Develop
• Elaborate organizational and thematic capacity buiilding
plan
• Establish teams and synergy promoting collaboration
modalities for addressing cross-cuttin issues and
thematic areas of focus
• build documentation, competence, capacity and
networks on thematic focus : Extractive Industries
• Enhance and adapt, where necessary, Result-Based
Managment Plan and Performance Agreements
• Design, discuss and approve new programmatic
components for Governance and Citizenship, and
Women in Leadership and Politics (in Year 1), Access to
Information (in Year 2) and and Basic Education (in
year 4).
• Shift efforts and performance monitoring to Result Based Indirect implemetation outside Maputo and
review capacity of partners
• Introduce and monitor new evidence-based
documentation and marketing cum dissemination
approach, linked to fund raising ; 'document and tell the
story'
• Enhance partner and IBIS oriented knowlegde sharing ,
with focus on CEDESC and IBIS website
• Visualize, strategize and operationalize Corporate Social
Responsability approach for Mozambique
• Share, internalize and contribute to IBIS policy
approaches and strategies , e.g, on Rights- Based
Approaches, gender, EI
• keep mind and plans open for innovations, new
opportunities and partners.
Annex XII: Phase out plan for Niassa
No quadro da nova estratégia nacional da IBIS vai encerrar seu escritório e suas actividades em Niassa e concentrar o grosso das actividades do pilar governação na Zambézia, lado a lado com o Programa de Educação- EPAC. Este exercício coincide com o término do programa COCIM em Abril de 2013.
Portanto entre Outubro de 2012 e Abril de 2013, a IBIS estará implementar o seu programa de saída que inclui decisões
sobre 1) património, nomeadamente a gestão dos acampamentos em Niassa e casa da IBIS em Lichinga, 2) recursos humanos, com destaque para a rescisão de contratos com o pessoal de apoio (guardas), pessoal administrativo e programático,
3) conclusão e encerramento dos projectos com todos parceiros em Niassa, cujo os convénios terminam em Dezembro de
2012, 4) liderar o processo de avaliação externa e interna do COCIM, 5) Comunicação com o governo e outros intervenientes chave e 6) a mudança para Zambézia.
Em conjunto com estas prioridades a IBIS deverá ainda assegurar a sustentabilidade do investimento feito ao longo dos
últimos 4 anos, nomeadamente ao nível do CEDER, com as organizações da sociedade civil parcerias e agentes de mudança
espalhados pelos vários distritos alvo do programa COCIM.
1.
O FUTURO DO CEDER: No quadro do programa COCIM, a IBIS instalou e equipou um Centro de Desenvolvimento de recursos em Lichinga- CEDER. O centro mostrou-se estratégico na aplicação dos planos de fortalecimento de capacidades organizacionais e temáticas das organizações parcerias em Niassa, como também,
na construção de um diálogo estratégico com outras organizações nacionais, internacionais e sobretudo com
os governos provincial, distritais e assembleia provincial em torno dos processos de governação provincial e
local. Ao longo destes 4 anos de existência o CEDER mostrou o seu potencial, ao se tornar num elemento catalisador e dinamizador da sociedade civil em Niassa em assuntos da governação e democracia. Portanto
uma estratégia de saída de Niassa deve encontrar as melhores formas de preservar os ganhos e capitalizar o
potencial existente, permitindo que, o processo de desenvolvimento e fortalecimento da sociedade civil em
Niassa perdure e floresça, mesmo depois da saída da IBIS. Esse potencial inclui uma rede de formadores temáticos da IBIS que poderão não ser todos absorvidos para o novo programa, e que poderão estar interessados e disponíveis em continuar a trabalhar em Niassa, dando seu contributo para os processos acima
mencionados.
A este respeito um grupo de formadores temáticos da IBIS comprometidos com Niassa, estão numa fase
avançada de reflexões, debates, decisões e acções concretas visando constituir uma associação local de âmbito provincial.
A referida associação com a denominação Kuthandiza que na língua local significa: Apoiar e Facilitar. Nos
primeiros contactos havidos entre a direcção do COCIM e o staff proponente da referida associação ficou
expresso o interesse da associação em dar continuidade ao trabalho desenvolvido no CEDER e nos distritos
junto dos agentes de mudança. Nesta base, caso o interesse da associação se fortifique, a IBIS poderá apoiar
a criação e desenvolvimento de actividades da associação nos termos apresentados mais adiante.
Em paralelo com possibilidade acima colocada, existe uma segunda possibilidade de parte das instalações do
CEDER serem utilizadas pelo programa de Acesso a Informação, que deverá entre 2013 e 2014, implementar
um projecto de Promoção do Acesso a Informação em Niassa e que inclui uma componente considerável de
treinamentos e debates na cidade de Lichinga.
A combinação destas possibilidades poderá manter o CEDER operacional por um período de 2 anos, tempo
suficiente para que sejam identificadas soluções mais estruturadas para o CEDER.
2.
AGENTES DE MUDANÇA: Entre 2008 e 2012 a IBIS trabalhou numa base regular com uma média de 236 cidadãos nos 9 distritos alvo do programa COCIM, também conhecidos por agentes de mudança- AM. Apesar
dos riscos associados a esta actividade, abordagem AM mostrou-se estratégica, relevante e muito bemsucedida. Muitas da mudanças mais significativas ocorridas no ambiente de implementação do programa estão associadas as acções destes AM nos seus distritos alvo, seja em actividades individuais ou em grupos,
como por via dos espaços formais de participação e consulta comunitária. Dentre os agentes de mudança
reina um sentimento de confiança e cometimento para com o trabalho que tem estado a que pretendem
continuar a realizar.
No entanto, o ambiente de governação distrital é bastante hostil a figuras como os AM, sendo que numa situação de saída da IBIS, pode significar também o fim deste inovador método de promoção de cidadania local. Isto porque a IBIS mais do que os capacitar e assistir tecnicamente, actuava por um lado como motivador e estimular, e por outro, como protector perante as tentativas de intimidação, ameaças e estigmatização das forças anti democracia.
Entretanto, das consultas até então realizadas, prevalece entre os agentes de mudança um firme cometimento em continuar com o trabalho que vinham realizando. No caso de Cuamba, Mecanhelas, Sanga e Majune onde os agentes de mudança estão devidamente integrados nas actividades do FORASC, AMIREMO,
UCA e LDH, é quase certo que eles vão continuar activos.
Finalmente existe a forte possibilidade da futura associação poder vir a desenvolver actividades que incluam
ou integrem os agentes de mudança nos vários distritos de Niassa.
3.
PARCEIROS: Entre 2008 e 2012 o COCIM estabeleceu parcerias com 8 organizações locais para implementarem em conjunto o programa COCIM. Num contexto de alto risco, o COCIM logrou transformar estas organizações interna e externamente, estando todas elas suficientemente capacitadas e conscientes da importância e desafios de uma participação activa para influência nos processos de governação.
Num universo de 8 organizações 3 delas (FORASC, UCA, LDH) se destacaram bastantes e estão muito alinhadas com a filosofia da IBIS e em particular com suas crenças sobre governação. Portanto mesmo numa situação de saída, a visão da IBIS sobre governação e desenvolvimento continuará a ser advogada em Niassa por
via destes e outros parceiros. Ademais, a experiência acumulada destes parceiros poderá por um lado, contribuir para o reforço das capacidades organizacionais e temáticas dos novos parceiros da IBIS na Zambézia,
como, também, constituir o ponto de entrada da IBIS em Niassa, numa situação futura de mudança de enfoque estratégico.
No primeiro caso, Zambézia (apesar da experiência acumulada da IBIS por via do programa de educação)
continua a ser um ambiente desconhecido para o programa de Governação, pelo que envolver alguns parceiros do COCIM no processo de divulgação do programa e disseminação dos ideais e das boas práticas do
COCIM é fundamental para nossa penetração no ambiente local (distritos e municípios).
Assim sendo prevê-se apoiar pelo menos 3 parceiros do COCIM no desenho de seus planos estratégicos e na
mobilização de fundos visando a continuidade de suas acções no domínio da governação na província de
Niassa.
Finalmente uma vez concluída a instalação do novo programa de governação na Zambézia, estão previstas
actividades de troca de experiências e transferência de conhecimento envolvendo organizações como a
UCA, FORASC e LDH e os parceiros da Zambézia.
55
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Relatório publicado pela AfriMAP e Open Society Initiative for Southern Africa. Johannesburg, April 2012.
Alliance 2015. Alliance2015 Annual Country Report Mozambique - Year 2011. Maputo.
Anon, 2012, Political Economy Analysis Mozambique. September 2012. ADE, Louvain-La-Neuve, Belgique
António Francisco, Albertina Mucavele, Paula Monjane e Sónia Seuane, 2007;. Indice da Sociedade Civil em
Moçambique. Maputo. Fundação para o Desenvolvimento da Comunidade (FDC) com Aga Khan Foundation,
Civicus, EU, UNDP.
APP (Africa Progress Panel), 2012. Africa Progress Report 2012. Jobs, Justice and Equity Seizing opportunities in
times of global change.
Bucuane, Aurélio, & Mulder, Peter, 2008. Expanding exploitation of natural resources in Mozambique: Will
there be a blessing or a curse? In: de Brito, Luís; Castel-Branco, Carlos N.; Chichava, Sergio, & Francisco, António, (Eds.). Reflecting about economic questions: Papers presented at the inaugural conference of the Institute
for Social and Economic Studies (IESE). Maputo: IESE, pp. 104-139.
Buur, Lars, 2009. The politics of gradualismo: popular participation and decentralised governance in Mozambique. In: Törnquist, Olle; Webster, Neil, & Stokke, Kristian (Eds.). Rethinking Popular Representation. Basingstoke/New York: Palgrave Macmillan, pp. 99-118.
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IBIS in Mozambique Country Strategy 2013-17

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