UNITED NATIONS  DEVELOPMENT PROGRAMME Emergencies Unit for Ethiopia

Historical development

The South-East Rangelands Development Project was established as a part of the Third National Livestock Development Project (TLDP) which also included the Southern rangelands (SORDU) and the Afar rangelands (ARP). SERP has been 80% financed by a loan from the African Development Bank with 20% counterpart funds from the Government of Ethiopia, totaling $39.63 million to be used over a period of six years starting in 1989. The primary goals of the project were to develop programmes for delivery of animal health, rangeland management and livestock water resources to the region.

The project has made considerable progress towards the projected goals despite civil turmoil and high administrative turnover. Overall, 75% of the target goals have been reached with 70% of the budget spent. A total of 25 development centres have been constructed and staffed in eight of the nine zones. Covering an area of 245,000 square kilometers, the project delivered veterinary drugs and services, constructed roads and ponds, established women’s groups and explored improvements in rangeland resources.

With the following five technical sections:

• Animal health and production;
• Land use and rangeland management;
• Extension training and Institutional development;
• Infrastructures and water resources development; and

Livestock marketing survey and development

Present status of the project

As of the June 1996 review, 75% of the project targets had been reached, although about 30% of the ADB funds remained unused. Of the Ethiopian government share, which was to cover local salaries and wages of the project staff, only 20% of budget was expended. Recent capital purchases of vehicles, motorcycles and heavy machinery will expend 80% of the African Development Bank budgeted funds. A representative of the Prime Minister's office recently visited the SERP headquarters with the objective of initiating the plan for the conclusion of the project. The project administrator and the Ethiopian Somali National regional administration appealed to the representative to allow continuation of the project in 1997 with non-utilized funds, allowing time for identification of alternative funding sources and/or orderly absorption of the project into appropriate line ministries.

SERP has an impressive array of technical staff. With 18 veterinarians, eight second degree (M.Sc.) holders and 49 first degree (B.Sc.) holders from a total staffing of 927, the organisation covers the rangelands with a range of expertise. While accused of being top-heavy, many staff are now taking up positions in the development centres that were recently completed. In addition, the administrative services section, with over 500 employees, appears overly large except that over 200 are employed as security guards in this somewhat insecure region. In actuality, only 90 of the 500 are administrators, secretaries and clerk/typists. Plans are presently in hand to reduce the total number of staff to a target of 550 by the end of the first quarter of 1997, emphasising technical capacity while reducing administrative overheads.

Although programme implementation was completely disrupted in its first two years, and bidding procedures stalled procurements for another two, SERP has accumulated an extensive line of logistical equipment. About 100 light vehicles are operational including four mobile vet clinics. Forty four motorcycles will soon arrive to complement the 25 already in use. Heavy machinery, which is used for road and pond construction, includes 3 bulldozers, 3 graders, 4 dump trucks and 2 water tankers. Farm machinery includes 3 tractors, ploughs, discs, and a hay baler. Computers, GIS equipment, 21 communication radios and a reference herbarium containing 4063 specimens compliment the project.

Although SERP operations have been impeded by numerous factors, it is the primary and sole organisation universally recognised by the community. The initial phase of the programme coincided with civil unrest in the Ethiopian Somali region, the change of government in Ethiopia and, in recent years, the move towards regionalisation. Activities associated with returnee/refugee movements created population and livestock pressures on the rangeland ecology and did not present an enabling environment for SERP to address even the most basic needs of the agro-pastoralists. Moreover, their area of operation covers rugged terrain, mostly in remote areas with difficult access and extremely rough roads, no public communications and strictly limited facilities hindering contact with the nomadic population. As a result of insecurity, the development of appropriate input technologies and basic infrastructure services was neglected. There have been six project directors since the programme began in 1989; whereas the regional administration has seen the passing of several presidents. Nevertheless, during recent peace and reconciliation meetings, SERP was acknowledged as the main representative of the government among the participating communities.

This fact was very apparent when the consultant visited one of the closest development centres, Aw Bare in Teferi Ber (See Figure 1). The newly constructed centre consists of a 200 square meter compound with a services centre, 4 staff and 2 servant quarters, independent water and electric supply and animal treatment/demonstration areas. The services centre consists of extension offices, veterinary clinic and drugstore as well as a general agricultural supply sales store. The 17 staff members in this centre comprises the following:

In summary, the basic strengths of the SERP organisation that should be conserved are:

the well trained and largely Somali staff, the 25 development centres and the supporting vehicles/equipment of the present SERP organisation, which is capable of continued service delivery to the agro-pastoral culture.

the widespread coverage of SERP and it’s bottom-up approach is highly appreciated by the community and would enable the organisation to continue reaching the remote areas with consumer designed/consumer friendly development programmes.

solutions to the problems and the potential for development of livestock holdings, the rangelands ecology and women’s groups already identified by the SERP organisation.

entry points for the delivery of programmes in animal health, production and marketing, rangeland management, and women’s concerns already established by SERP.

the monitoring of ever-changing conditions of animal epidemiology, of rangeland water and grazing availability and of marketing mechanisms being undertaken by SERP staff.

the ongoing construction and infrastructural development programmes accompanied by sociological and ecological impact considerations and necessary engineering components.

the experience and capacity of the SERP organisation to enable community development through programmes involving voluntary work, food/cash for work or employment generation.

A number of organisations have been working with SERP in the delivery of aid and services to the Somali National Regional State. The UNHCR has been involved in several areas impacted by returnees and refugees but is not anticipating additional support at this time. Save the Children Fund (UK) carried out a two-year programme in cooperation with SERP to deliver animal drugs, collect data on animal disease epidemiology and train para-vets, but will now turn its resources to support the same kind of private veterinary drug businesses that ICRC has found successful in Somalia. Oxfam (UK) has worked together with SERP in the distribution of seeds and a study on important rangeland plant species, but is not expected to make further commitments at this time. The UNDP programme on Disaster Prevention, Preparedness and Mitigation (Programme 4), the European Union 1997 programme of food/cash-for-work and several other donor agencies are potential short-term sources of funding, although absorption into the line ministries is probably the best long-term solution if substantial direct donor funding does not materialise.

Currently, the national government is organising the budgetary allocations of regional line ministries along prescribed functional structures with subject specialty being of secondary priority. Therefore, of the main departments in the regional bureaus of agriculture, i.e. research, extension and regulatory, the extension department, with emphasis on the SG2000 approach to crop husbandry, is the strongest division in the four highland regions of Ethiopia. However, in the lowland pastoral regions, the animal health and husbandry section of the extension department should take precedence. Regions or zones that are primarily pastoral or agro-pastoral should develop their own agenda around their predominantly livestock economy, with crop production given a proportionately smaller budget.

The Oromia Region is currently developing animal husbandry packages for both the highlands as well as the lowlands, recognizing the economic importance of its livestock sector. After studying the successes and failures of the SORDU project design, conversion to a zonal ministry was rejected. Also, SORDU was found to possess specialised skilled staff who could handle those factors critical to pastoral culture, such as: drilling of water wells and the strategic placing of water points; treating diseased animals and delivering animal health programmes in remote areas; and, unlike the highland areas which have developed markets, SORDU itself acted as the main market for the pastoralists. For this reason, it is being proposed that in former Borena, SORDU should become the Bureau of Agriculture and be strengthened in whatever field cropping expertise is needed. In fact, the Oromia Region is now studying the possibility of including the lowland areas of Arsi, Bale and Shewa into multiple SORDU-type structures. Also being considered is formulation of a macro-level policy that would include the delivery of social services such as health within the structure of a SORDU-type organisation since capacities at the rural areas are limited and contact with pastoralists is most frequently made through the SORDU staff.

In the Oromia Region, particularly, former staff of the SORDU project could be adsorbed into the appropriate line ministry but still remain as programme staff, which means that those concerned with road construction could become members of the road department and those working in well drilling/pond construction could become members of the water department. Instead of relying on project funds, however, former SORDU staff are now covered by the line budget at standardized salaries. This could conceivably result in the loss of seniority and also concurrent salary reductions, but would bring long-term security to the programme.

With the above listed strengths of the SERP organisation, and in the absence of significant external donor support, SERP should explore the possibility of a satisfactory merger with the Bureau of Agriculture and other appropriate line ministries. This would allow maintenance of vital SERP services, would boost the credibility of the Bureau of Agriculture and would facilitate continuation of contact with the community.

The following are the recommendations of the consultant for the present continuation of SERP while pursuing potential donors and a final decision on a possible merger with the line ministries:
 

• Continue the current restructuring of SERP with emphasis on moving those staff to development centres who are responsible for livestock production, animal health and land use/rangeland management. It may also be possible to combine some units within divisions, especially at the branch level. Other staff involved in veterinary research, livestock marketing and administration may need to remain centrally located while crop and extension personnel will ultimately need to merge with current staff of the BoA in areas where their services are needed. Infrastructure personnel should continue as is, pending differentiation of what additional construction and services are needed in agriculture development and which are better transferred to respective water and road ministries.

• While the budget for SERP seems large, it has been primarily due to capital expenditures. Operations and maintenance expenditures that are quite low could be further minimized during an interim period. The following has been the operations/maintenance budget for the last six months of 1996 and could be further modified for the interim period:

• Stretch the remaining ADB funds, reported to be 70,000,000 Birr, to last as long as one year. Re-organise each departmental expense budget to accommodate the availability and restrictions of the remaining funds so that no department is completely excluded or inactive;

• Hold new capital investment to a minimum but include the completion of already undertaken, committed developments or those considered necessary for delivery of services to critically needy areas/communities. Infrastructure projects that were planned but have not yet been undertaken may have to be delayed. These include:

• Development centres at
Kelafo, Mustahil and Ferfer in the Ogaden branch
Bohho and Dhun in the Hararghe branch
• 12 Water ponds at a cost of 20,000 Birr each
• 20 shallow wells at a cost of 6,600 Birr each
• 150 km of RR 10 and 100 km of RR 30 roads
• Seed cleaning/bank, fuel storage/station and car sheds
• 25 pond rehabilitations

• Begin cooperating with other line ministries to avoid duplication of efforts. Responsibilities for flood recession, armyworm control or other emergencies can be divided or shared. SERP’s cooperation with the BoA should not extend to SERP’s involvement in crop production; whereas the BoA should not overlap with SERP on animal health/production.

1. UNDP's Fifth Country Programme

A number of individual project or sector funds could be available to supplement/compliment SERP’s role in the Ethiopian Somali National Regional State, either on an ongoing or an interim basis. First is the UNDP 5th country programme for strengthening agriculture extension. As previously mentioned, this is already operational in the Oromia Region through the former SORDU programme. It is recommended that the planning/programme director of the Ethiopian Somali National Regional State consult with the relevant officials of the Oromia Region as to how this project transformation was accomplished. It may not mean that an identical transformation is necessary but one adapted to the role and existing structure of SERP in the Somali Region.

Since the region is sparsely populated but poorly interconnected communication wise, it may be that Development Centre facilities could be shared with other United Nations and donor-sponsored programmes such as health and education. The excellent relationship SERP has with the community would be helpful in bringing integrated services to remote areas where independent facilities may not be needed.

2. The European Union food/cash-for-work programme in 1997

Most community development projects involving indigenous labour could be financed by food/cash for work. SERP, having already catalogued and "screened community development requests," could collaborate with local administrations to organise FFW/CFW projects especially adapted to the agro-pastoral community. SERP expertise in surveying, water use and sociological impact assessment could be instrumental in community improvement. Projects could not only include traditional soil/water conservation activities like gully arresting and terracing but could include community well/birka construction, water harvesting/spreading, soil/grass bund construction, tree nursery/fuelwood/orchard plantations, public health/sanitation facilities, road improvement or even school/recreational sport facility construction. Cash given to the participants could be pooled to purchase needed inputs of the project since it would ultimately benefit the participants.

3. Donor supported development programmes

(a) SCF/ICRC animal health and private drug business

The ICRC has funded development of private veterinary drug dealerships and para-vet treatment of prevalent livestock diseases in Somalia in order to ensure disbursed drug availability and treatment in light of the disrupted infrastructure currently prevalent. It is apparent that with low equity loans, private dealerships have been successful in providing drugs at lower costs, though also at questionable quality. Also, para-vet services are more mobile than those provided by organisations. It is felt that if these services were also available in this country, the quality of drugs and services would improve as there would be little incentive to alter or sell contraband across the border.

SCF (UK) has applied for Overseas Development Aid (ODA) assistance to continue animal health programmes through the development of private vet/drug dealerships, training additional para-vets and continued monitoring of disease epidemiology. As in the past, SERP could continue cooperating with the NGO in implementation of such a programme, although more strict accountability would be desired.

(b) Donor supported animal health research

SCF (UK) has indicated that SERP should be involved more directly in the specific animal health research needs of the area. Diagnosis, applied research, monitoring and epidemiology are the mandate that SERP should specialise in. Particular research needs that are currently evident are:

• Camel disease - a respiratory influenza that causes low mortality but high morbidity;

• Camel Trypanosomiasis - mechanically transmitted by the horse fly, it is primarily an Ethiopian Somali and Somalia regional disease that could be controlled when moving camels into infected areas identified by surveys. SERP recently found 15% infestation in the Chinile zone where cattle infestation was 12%. It was also established that 10% of the cattle were infested by Trypanosomiasis in Gursum wereda. Mobile labs and equipment are available but chemicals are needed;

• Heartwater outbreak in sheep - a Rickettsial disease carried by ticks that causes fever, muscle in-coordination and morbidity ;

• Acaricide/antihelmintic drug resistance policy - Drugs are available against the common intestinal parasites but drug resistance is prevalent. Since grazing pastures are held to be commonly available and migration for grazing is natural, drug resistant forms are spreading easily and quickly. A policy on regional deployment of different acaricides/antihelmintics needs to be formulated and implemented to suppress the development of resistant strains.

The value of livestock marketed through Berbera and Bosasso has been estimated by FAO to be about US$ 115 million per annum, the majority of which are thought to come from the Fafen and Jerer valleys. As some of the livestock have been bartered for incoming goods, the government has considered this to be a contraband operation. In any case, it is likely that middle merchants are taking a large portion of the pastoralists income. There is a definite need to develop direct marketing of live or carcass animals to the Arab countries. It is reputed that one operation slaughters and ships 700 goats and sheep daily from Somalia. The development of appropriate marketing mechanisms could definitely bring increased revenue to the pastoralists. Therefore, the regional government should negotiate with the central government to allow the present form of export trading until accommodating government marketing channels are established.
 

SERP desired development needs not covered by the remaining ADB funding

1. Training for the development of integrated livestock meat processing and marketing to the worlds' markets.

The annual movement of live animals from the southeast rangelands to consumption markets is thought to be in excess of US$ 100 million. While this market continues to grow, the revenue collected by the pastoralists remains small because of the live marketing and inefficient trading mechanisms. Development of cooperative marketing structures could streamline the process. Development of slaughtering businesses and carcass marketing could also greatly increase the hard currency revenue into the area and the country. Moreover, the development and marketing of processed meats world-wide would buffer the area against droughts and fluctuating demands for fresh meat.

SERP marketing staff should become aware of the potentials for world marketing and be instrumental in developing the potentials of the Region.

2. Extension of SERP services to Shinile and Liban zones

These two zones are part of the Ethiopian Somali National Region but were not part of the original SERP project area. However, they are pastoral areas with livestock and community services needs similar to the other zones served by SERP.

UNDP Programme 4 funds are planned for use in the construction of two development centres in Shinile zone, but two centres are also needed in Liban zone. In addition, veterinary clinics are needed in both zones and funds are required to adequately staff the centres and clinics. The addition of these two zones to those already planned for intervention with ADB funds would allow SERP to cover the entire region with animal and community development services for the pastoralists.

3. Development programmes for conservation of natural resources and environmental protection

At the national level natural resources fall under the Ministry of Agriculture, whereas environmental protection is a separate agency. However, for the scattered population of the southeast rangelands, SERP could adequately cover both areas along with its programme for rangelands management.

As about 40% of the population in SERP’s operational area are returnees, much of the delicate natural resources have been badly abused and need restorative programmes. Degradation and desertification have been caused as a result of population pressures and unrestricted use of resources, including unsanitary well and cistern maintenance, cutting of firewood and charcoal production, and settlement without consideration to area capacity and consequent overgrazing.

The villages and areas most affected by land degradation are Kebri Beyah, Hartishek, Harshen and Gashamo. For example, Shimbiralle village near Gashamo was abandoned due to desertification when dunes covered the water supplies.

SERP, with limited funding from GTZ, has had some experience with tree nursery establishment, shelter-belt planting, reforestation and awareness education programmes in two zones. However, it is imperative that conservation programmes be established throughout the region for these measures as well as construction of gully arresting and erosion control structures.

SERP staff are trained and experienced in these disciplines and could lead community developed plans for control of natural resource conservation programmes through food/cash for work programmes.

4. Staff and community capacity building programmes

In addition to the technical knowledge of the staff, updating and extension is needed is some areas to assure continued growth of community capability. These training programmes could also help other line ministries and include:

Small communities are not completely self-sustaining and need small business opportunities to remain viable. While livestock remains the main-stay, associated and alternative businesses could support the community, better enabling it to survive droughts and fluctuating cattle prices. Such businesses as beekeeping, incense collecting and trading could be better organised and enlarged to include other non-livestock dependent businesses. For instance, beekeeping could be organised into cooperatives which was done at Fik to introduce newer methods, better husbandry and safer operation.

Finally, in conclusion, the Oromia Region intends to hold a workshop in 1997 to determine the model of service delivery and the role of a SORDU-type organisation in that model. It would be helpful if the Somali National Regional Sate held a similar meeting. It should also be recognised that such a meeting should not be overly ‘loaded’ with agronomists since the target community is largely pastoralist. Until a suitable agreement is reached on its longer term future, it should be recognised that as a project, ministry or - as recently suggested - an independent development association, and the single most effective agent for development in the Somali Region of Ethiopia, SERP cannot be allowed to simply fade away.
 

February 1997

DISCLAIMER

The designations employed and the presentation of material in this document do not imply the expression of any opinion whatsoever of the UN concerning the legal status of any country, territory, city or area of its authorities, or concerning the delimitation of its frontiers or boundaries.