ACDR

[2013-2015]

Geoffrey NDASHIMYE

National CD Expert Rwanda

[RGB Nyagatare and Gatsibo Capacity

Building Coach in Plan M&E 2014 2015

RWANDA CAPACITY

DEVELOPMENT COUNTRY

OUTLOOK REPORT

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Contents

Acronyms and Abbreviations................................................................................................ 3

Glossary of Kinyarwanda Terms and Home Grown Solutions ............................................. 4

1. BACKGROUND ........................................................................................................... 5

1.1. Country profile (Geopolitical, economic, demographic status) ................................. 5

1.2. Where Rwanda is coming from as far as Capacity Development is concerned ......... 6

1.3. Africa-wide agenda on Capacity Development ........................................................ 8

1.3.1. Capacity Development Strategic Framework ....................................................... 9 1.4. Achieving the National Vision ................................................................................. 9

1.4.1. National Development plans and development Results ....................................... 10

1.4.2. Human Resource Policies & Plans..................................................................... 10 1.4.3. National policy environment .............................................................................. 12

1.5. National Capacity Development (CD) Status ......................................................... 12

1.5.1. SWOT Analysis on Capacity Development in Rwanda ........................................ 13 1.5.2. National/sectoral Capacity development strategies/policies .............................. 13

1.5.3. CD approaches and Actors ................................................................................ 15 1.5.4. Investments in CD .............................................................................................. 18

1.5.5. National CD challenges in regard to development results .................................. 18

2.0 ABOUT AFRICA CAPACITY DEVELOPMENT REPORT (ACDR)........................ 19

2.1. The link between ACDR and Capacity Development Strategic Framework (CDSF) .. 19

2.2. Purpose and objectives of the report ......................................................................... 20

2.3. Rationale (adding value to the existing country CD initiatives) ................................. 21

2.4. Approaches to the study ............................................................................................ 21

2.5. Definitions: Institutional capacities, interfaces of planning and implementation: ...... 23

3. FINDINGS ................................................................................................................. 25

3.1. Sectoral Knowledge. ................................................................................................. 25

3.2. Demand Side Capacities for Ownership and Supply Side Capacities for

Responsiveness ................................................................................................................ 26

3.2.1. Justice: .............................................................................................................. 26 3.2.2. Local government: Accountability, transparency and citizens’ participation; ..... 29

3.2.3. Health: .............................................................................................................. 30

4. ANALYSIS ................................................................................................................. 31

4.1. Set of interface Issues at both Demand and Supply Side (in the light of CDSF with

examples and evidences to support the argument/statement)............................................ 31

4.1.1. Justice: .............................................................................................................. 31

4.1.2. Health ................................................................................................................ 34 4.1. Set of interface issues beyond Demand and Supply Side (i.e. political commitment,

policy climate, economic crisis, instability) ..................................................................... 35

5. CONCLUSIONS-Lessons Learnt ............................................................................... 36

5.1. Overcoming capacity challenges (for better results) ................................................. 36

5.2. Lessons Learned - (what is working and areas for improvement, new approaches) ... 37

5.3. Recommendations/key messages (policy environment, human capacity dimension) ... 38

5.4. Suggestions for implementation of CDSF .................................................................. 38

References .......................................................................................................................... 39

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Acronyms and Abbreviations

GoR Government of Rwanda

CB Capacity Building

PSCBS Public Sector Capacity Building Secretariat

EDPRS Economic development poverty reduction strategy

SCBI Strategic Capacity building Initiative

MDGs Millennium Development Goals

CD Capacity development

CDSF Capacity development strategic framework

AU African Union

NEPAD New partnership for Africa Development

APDev Africa platform for development

AUC African Union Commission

RDB Rwanda development Board

RIAM Rwanda Institute of management

OTP Office of the president

NUR National University of Rwanda

MINIJUST Ministry of Justice

ITORERO Rwandan school of culture

AfDB African development Bank

EWSA Energy water and sanitation

UNDP United nations development programme

MINIRENA Ministry of natural resources and environment

WB World Bank

IPRC Integrated polytechnic regional centre

CD Capacity development

Ombudsman Office of the inspectorate of government-IGG

SSP Sector strategic Plans

DDP District development plans

NPCA National planning and coordinating agency of Nepad

SWGs Sector working groups

RAMA La Rwandaise d’Assurance Maladie

MMI Military medical insurance

CBHI Community basic health Insurance

MIFOTRA Ministry of Public service and Labor

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Glossary of Kinyarwanda Terms and Home Grown Solutions

Agaciro: Self worth/dignity

Abunzi: Stems from the word ‘Kwunga’, to reconcile. These are elected

officials at the community level who manage minor social

conflicts, and reconcile people and thereby reducing tensions in

the community.

Gacaca: Literally, ‘on the lawn’. This is the traditional reconciliatory

justice adopted by the Government of Rwanda to handle some

categories of genocide cases. It is based on the traditional

practice of community conflict resolution carried out openly

with the participation of the whole community.

Ubupfura: Noble/Nobility - a term from ancient times with which every

adult Rwandan - men and women – aspire (d) to be identified

for.

Imihigo : A performance contract containing development targets at the

district level based on priorities identified by the people. It is

based on a traditional practice of setting achievement goals in a

public forum.

Imirimo nsimbura gifungo: General community work carried out by released genocide

prisoners, in lieu of some sentences.

Inyangamugayo: People of integrity. This term is used for the elected

community judges in Gacaca courts.

I-Yakure : Literally= from far. Relates to distance learning

Kubaza Bitera Kumenya: Literally, ‘inquiry leads knowledge’. Popular radio and

television phone-in programme on which national issues and

international concerns are debated.

Ubudehe: A traditional form of collective action of solidarity and mutual

help.

Umudugudu: Village. Community regrouped settlement and smallest

administrative unit.

Umuganda: Community work at village level of general common interest

loosely translated as ‘collection of efforts put together’

Umurenge: Administrative unit below the district level

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1. BACKGROUND

1.1. Country profile (Geopolitical, economic, demographic status)

Rwanda is a landlocked country with an estimated population of 10.4 million living within an

area of 26,338 km2. With 395 people per km, it is the most densely populated country in

Africa. The population growth rate is currently 2.9% and it is estimated that Rwanda will

attain a population of 14 million by 2020 if the population growth rate remains unchanged-

NISR report 2010.

With an average annual rate of economic growth of 7%, Rwanda was one of the top 10

fastest growing economies of the last decade. The country was also ranked one of the top ten

global reformers in the World Bank Doing Business Survey 2010, and is on track to achieve

its target of middle-income status by 2020.

The real GDP at constant prices of 2006 grew by 7.5% in 2010, against 6.1% in 2009. This

growth emanated mainly from the recovery of industry and services sectors which recorded

respectively increase of 8.4% and 9.6% of the value added. Agriculture sector also grew by

4.9%. GDP per capita in nominal terms improved by 10.4% as it rose from Rwf 295,600 to

315,200, while in terms of USD, GDP per capita registered an increase of 3.9%, from USD

520.1 in 2009 to 540.5 in 2010.

In 2010, the Services sector maintained its first position in the structure of GDP with 46.7%

of GDP at constant prices of 2006, followed by the Agriculture sector that accounts for

32.2% and then the Industry sector that took 15.0% of GDP.

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Figure 1: Resources Structure (in percentage of GDP, at 2006 constant prices)

The first Poverty Reduction Strategy (PRSP 1) was implemented from 2002 to 2005 and its

objective was to manage the transitional period of rehabilitation and reconstruction. It was

introduced at a critical time since the country was still struggling with the aftermath of the

war and genocide of 1994.

In 2008, Rwanda embarked on the implementation of the second generation poverty

reduction strategy termed as the ‘Economic Development and Poverty Reduction Strategy

(EDPRS). The EDPRS covers the period 2008-2012 and sets the country’s capacity

developmental objectives. The EDPRS is fully supported by country level stakeholders,

including development partners, and assigns high priority to accelerating private sector-led

growth. After Rwanda joined the East African Community (EAC), the fiscal year was aligned

to the EAC calendar beginning 1st July and ending on 30th June. The EDPRS is therefore

expected to end in June 2013.

The Government of Rwanda (GoR) priority is to strengthen capacity development in public

and private institutions to achieve EDPRS targets. The achievement of the targets enshrined

in the Vision 2020, the Economic Development and Poverty Reduction Strategy (EDPRS)

and Sectors Strategies are impeded by capacity challenges across the private and public

sector. The Government of Rwanda established the Public Sector Capacity Building

Secretariat (PSCBS) as a strategic response to tackle the challenges with a mandate to

coordinate capacity building (CB) activities in the public sector and manage the national

capacity building fund to boost performance for results and service delivery in Rwanda. The

above framework works effectively because it is supported by a willing leadership which

rewards results from these plans by signing performance contracts- Imihigo.

1.2. Where Rwanda is coming from as far as Capacity Development is concerned

Through the years, a primary concern of the Government of Rwanda (GoR), and H.E.

President Paul Kagame in person, is to develop state institutions so that they have capacity to

rapidly and sustainably develop Rwanda and deliver high quality services to the citizens. This

concern underpinned the Government’s launch of the ambitious Multi-Sector Capacity

Building Programme (MSCBP), which was home grown, long-term Government Strategic

Framework meant to guide and direct the preparation and implementation of capacity

building actions in Rwanda. The programme was formally launched in 2005. It targeted

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developing human resources and improving institutional work environment, to enhance

capacity in public sector institutions, the private sector and civil society organizations, in

order to render them more efficient, effective, transparent and accountable, in the course of

performing their roles, as the main actors in the country's development process. MSCBP was

designed with the focus to enable public sector institutions to efficiently and effectively

implement national development plans, and especially the priority sector programmes

envisaged in Rwanda Vision 2020.

The Human Resources and Institutional Capacity Building Agency (HIDA) was then

established in 2005 to coordinate implementation of MSCBP activities. In 2008, however, in

line with Government’s efforts to carry out restructuring of public institutions for better

service delivery, HIDA was merged together with six other public agencies to form the

Rwanda Development Board (RDB). Subsequently, Government separated the private sector

component of the MSCBP from HIDA and placed it under the RDB. The public sector

capacity building programmes and projects were under a new legal and institutional

arrangement in form of the Public Sector Capacity Building Secretariat (PSCBS). The

Secretariat was to serve as a specialized agency for coordinating capacity building activities

in the public sector. The PSCBS was established under a Prime Minister’s Order N°56/03 of

14/8/2009, published in the Official Gazette N°35 of 31/8/2009. PSCBS was then placed

under the tutelage of the Ministry of Public Service and Labour (MIFOTRA).

Since the launch of MSCBP, under HIDA’s management, a number of capacity building

interventions have been initiated which include, but not limited to, supporting public

financial management reforms; civil service reforms; justice sector reforms; strengthening

local training institutions; strengthening Parliament; enhancing capacities of local

government entities; supporting private sector and civil society interface with the public

sector; and supporting ICT development. However, Government has not been satisfied at the

pace of public sector capacity building. The MSCBP was not implemented as designed – a

strategic framework for ensuring a holistic and coordinated approach national capacity

building. The main shortcoming was that HIDA was side-tracked away from its strategic

oversight and coordination role to the implementation of projects. Also, instead of a demand-

driven approach to interventions, HIDA operations were oriented to an unsustainable and

non-strategic supply-driven approach. Consequently, Government has been making

comparatively frequent changes in the mandate, structure and institutional locus of the

agency responsible for public sector capacity building, i.e. HIDA and PSCBS. In June 2010,

Cabinet decided to place PSCBS under the tutelage of MINECOFIN.

PSCBS has a legal and administrative autonomous status. Its functions are specified to

include the following:

To manage the national Capacity Building Fund (CBF) and oversee capacity building

pooled funds in the public sector and serve as a Secretariat for the Capacity Building

Fund Committee;

To coordinate capacity building activities across the public sector;

To carry out regular human and institutional audit of public institutions to identify

their capacity gaps and provide appropriate mechanisms to closing the gaps;

To develop guidelines and provide quality assurance for capacity needs assessments

in public sector institutions;

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To establish and update a national database for skills available and skills required for

implementation of activities in the public sector;

To monitor progress, assess impact and value for money of capacity building

activities in the public sector;

To prepare and present an annual report on the state of capacity in the public sector;

and

To provide technical support in mobilizing resources required for implementation of

capacity building programmes in the public sector.

Rwanda’s public sector capacity building needs and challenges strategically derive from the

goals and strategies in the EDPRS. The EDPRS provides a “medium term framework for

achieving the country’s long term development goals and aspirations as embodied in Rwanda

Vision 2020 and the Millennium Development Goals (MDGs). Therefore, PSCBS is

challenged to have a strategy that ensures that its role and functions serve to support the

implementation of the current and future EDPRS and in particular the national development

priorities.

1.3. Africa-wide agenda on Capacity Development

Africa’s collective leadership places Capacity Development (CD) at the heart of overall

development in Africa. At the 14th African Union Assembly of February 2010, the Heads of

States and Governments endorsed the African Union/NEPAD Capacity Development

Strategic Framework (CDSF) as a common reference approach to capacity development on

the Continent. The CDSF serves as a policy-setting framework and instrument focusing on

enhancing national and regional capacities for better policy design, alignment and

implementation. Based on six key cornerstones which reflect CD priorities in the African

context, the framework is premised on the need for fundamental transformation, re-

orientation, and re-alignment of society-wide capacities as a basis for inclusive and results-

oriented development. This vision anticipates a different development trajectory where the

comprehensive integration of CD into Africa’s mainstream development systems becomes

standard practice.

The AU Commission (AUC) and the NEPAD Planning and Coordinating Agency (NPCA)

therefore accord top priority to Capacity Development based on the tenets of the CDSF and

the AUC Strategic Plan: 2009-2012, particularly Pillar 4 on Institutional and Capacity

Building. A topmost priority under this agenda is to enhance the capacity of key African

national and regional institutions underpinned by an effective utilization of endogenous

resources for robust and results-oriented public policy design, implementation, monitoring

and evaluation to drive the Continent’s transformation agenda effectively. Hence, the great

need for a knowledge-based product to assist in tracking, monitoring and evaluating CD

outcomes for continuous learning in building and nurturing capable institutions. The State

of Capacity Development in Africa Report (Africa-CDR) aims to fulfil this need and

focuses on effective institutions for development implementation.

As a flagship AU knowledge resource on Capacity Development in Africa, the Africa-CDR,

through the above, will serve as a mechanism to further the effective operationalization of

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the CDSF in Africa. Currently, the process of continuous improvement through evidence-

based systems is hampered by insufficient and inadequate knowledge and information on

the actual state of capacities at various levels and in sectors.

Therefore, under the auspices of the AU, and within the context of the Africa Platform for

Development Effectiveness (APDev), African stakeholders and CD actors,1 as well as

partners, are collectively engaging in a process to develop and publish an annual Africa-

CDR. Importantly, the process is using an iterative approach that also draws on on-going

work.

Overall, as a multi-agency product, the Africa-CDR is being steered through the technical

leadership of the NPCA, with key support from the UNDP. The maiden Africa-CDR will

be published at the end of 2012.

1.3.1. Capacity Development Strategic Framework

The CDSF was developed under the auspices of the Capacity Development Programme

(CDP) of the NEPAD Planning and Coordinating Agency (NPCA). It is an African-owned

and led initiative. The consultations to define a new continental capacity development agenda

began in 2006 with the full participation of African stakeholders and partners. The

consultative process spanned all spheres of governance from community to local, national,

regional and continental. The CDSF is built on stakeholders' experience and resourcefulness,

and takes into account existing capacity development efforts.

The framework consists of six cornerstones which need to be in place for sustainable capacity

development in Africa. These cornerstones emerged in a series of consultations in 2006 and

2007. The consultation process set off with a high-level meeting to assess the real capacity

issues, then was further developed together with strategic partners at pan-African level and

country level and was validated with country processes. In total more than 300 participants

were involved and brought out these cornerstones as the most critical success factors for a

sustainable African capacity. Built on six cornerstones, the CDSF is a paradigm shift in

addressing capacity development. The cornerstones are capacity development priorities for

Africa, namely:

1. Leadership Transformation

2. Citizenship Transformation

3. Evidence-based Knowledge and Innovation

4. Utilizing African Potential, Skills and Resources

5. Developing Capacity of Capacity Developers

6. Integrated Planning and Implementation for Results.

Overall, the CDSF seeks to galvanize effective implementation of Africa's development

priority programmes, for the attainment of the MDGs and the AU/NEPAD agenda. The

implementation of the CDSF will impact sector and institutional capacities and advance the

actualization of Africa's reform agenda.

1.4. Achieving the National Vision

‘My vision of Rwanda is a united country that feels itself as an integral part of the

international family of nations, a country that is developed and has eradicated poverty, a

1 Primary target audience for Africa-CDR include: African-level leaders, Political leaders at different levels,

academics, in-country policy-makers, CSOs, other national, regional and international agencies and partners… it should have a broad readership.

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country that is democratic and, above all, a stable country at peace with itself as well as with

its neighbors’.’ H.E President Paul Kagame, President of the Republic of Rwanda.

Rwanda has consistently pursued accelerated growth and an agenda for building a capable

nation which should be seen in the light of the historical and recent developments, including

the impact of the 1994 Genocide, and its aftermath of insecurity and the spread of the

genocide ideology, not only in the country but throughout the region. In spite of the

formidable task of reconstructing and rebuilding the fabric of a shattered nation, the

Government of Rwanda has undertaken a number of measures to build a stable and capable

state, based on the principles of democratic governance and respect for human rights.

Rwanda’s greatest asset in this process has been having visionary and committed leadership.

The quest for a capable nation has been defined as one that is able to maintain peace, stability

and security and to ensure the economic well-being of its citizens and also to effectively and

efficiently deliver basic services to the people. Rwanda deems adequate and capable human

resources and capable institutions essential to carry this out.

The National Constitution of 2003 is the corner-stone of democratic governance. It provides

for equality and equity for all Rwandans and sets the basis for the rule of law. Democracy has

played and ushered in a renewed energy to achieving the set vision. There havr been systemic

universal elections at all levels of government providing the people of Rwanda with

representatives of their own choice and channels for effective participation in their own

governance, planning and development. Constitutional and legislative reforms have laid the

foundation for peace, security and stability.

A comprehensive programme of decentralization and local government reforms is geared

towards giving the people a say in their own governance and development, with major

responsibilities for planning and development implementation and basic services provision

being devolved to the districts and lower administrative units, right down to the village level

(umudugudu). Concerted efforts have been invested in building the institutional and legal

frameworks for capacity development at all levels, including the review of relevant laws.

1.4.1. National Development plans and development Results

The EDPRS guides the development of Sector Strategic Plans (SSPs) and District

Development Plans (DDPs), which are both five year strategic plans. They are detailed

documents, which support implementation of national priority programs at sector and District

levels. The SSPs contain sector level (national) priorities while DDPs contain District (local

and grassroots) priorities. The DDPs balance and link national with local capacity

development priorities. The SSPs guide line ministries and agencies in elaborating their

annual work plans while DDPs do the same for Districts. Both SSPs and DDPs are developed

through a participatory process engaging various stakeholders in Sector Working Groups

(SWGs) and Joint Action Development Forums (JADFs). These platforms have been used

regularly to discuss capacity development issues among others in the country and promote

dialogue at central and district levels during EDPRS implementation.

1.4.2. Human Resource Policies & Plans

The Government of Rwanda recognizes the need for qualified and skilled human resources to

address the imbalance in the supply and demand of skilled labor and to guarantee that there

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are skilled workers available in the labour market to meet the actual demands from

employers. Rwanda’s Economic Development and Poverty Reduction Strategy 2008-2012

(EDPRS), Rwanda’s Vision 2020 Umurenge (VUP), and the National Skills Audit Report all

unambiguously define the lack of skills as one of the main constraints complicating

accelerated national growth. While momentous progress has been made over the past years in

the areas of education and skills development in Rwanda, some barriers still remain

preventing better matching of skills and opportunities in the labor market.

To address this, the government has developed human capital and skills strategy 2012 which

seeks to develop the skills, knowledge and attitudes needed to support Rwanda’s transition to

a middle income country as well as to develop a coherent and comprehensive response to the

capacity challenges facing Rwanda and enable the country to achieve the Vision 2020 and

middle income status.

The Government of Rwanda based its broad sense of capacity development on three pillars:

Human resources development which equips individuals and enables them to perform

effectively;

Organizational development including management structure, processes and

procedures;

Institutional development and legal frameworks, enabling environment, partnerships

and networking.

This is perceived as a long-term and dynamic process that builds upon and respects the

existing value system while fostering self-esteem among the players in development.

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However surveys in the country have revealed significant gaps in human resource capacity,

particularly in technical specializations in technology, health, energy, mining and the

agricultural sector. Reasons for this partly lie in the effects of genocide, which considerably

reduced national human capital and in previous education systems which were not adapted to

providing required skills linking the supply and demand sides of these capacities required to

drive economic development.

1.4.3. National policy environment

In the past, capacity building efforts in Rwanda had been characterized by standalone,

overlapping and duplicative interventions, leading to inefficiency and wastage of resources.

Rwanda’s response to this challenge was the establishment of Public Sector Capacity

Building Secretariat (PSCBS), after wide consultation with stakeholders. The institution is

geared to address five capacity building problem areas:

Policy and programme formulation, planning, implementation and monitoring;

Human resource development;

Institutional capacity building;

Information generation, sharing and dissemination and

Promotion of private-public partnership.

The agency is currently coordinating a number of national capacity development initiatives,

in collaboration with development partners and government institutions building capacity for

effective coordination of capacity building programmes and interventions.

The purpose of setting up of PSCBS was to ensure adequate consultation, harmonization,

proper needs assessment, planning and implementation, as well as value-for money initiatives

in order to avoid the pitfalls of supply-driven and to demand uncoordinated initiatives

affecting CD environment in the country.

1.5. National Capacity Development (CD) Status

Rwanda has made remarkable progress in delivering on its development aspirations enshrined

in the MDGs; Vision 2020; Economic Development Poverty Reduction Strategy (EDPRS)

and Seven Year Government Action Plan. However as mentioned earlier there are still

challenges in service delivery due to capacity challenges in critical areas. It has therefore

become imperative to depart from the traditional way of capacity building to a more strategic

and focused approach that is aligned to achieving national priorities.

Apart from introducing the Strategic Capacity Building Initiative (SCBI) as one of the

strategic responses to tackling the capacity challenges in prioritised sectors, the GoR has

initiated a series of high level consultations to discuss the critical skills gaps in the priority

sectors and strategies to bridge the gaps in the short, medium and long-term from 2012 –

2017. In this regard, the identified Priority Sectors to-date include: (i) Health; (ii)

Infrastructure; (iii) Agriculture; (iv) Natural Resources; (v) ICT; (vi) Financial Services

Sector (vii) Education; (viii) Decentralization Sector; (ix) Justice Sector; and (x) Private

Sector Development. The Centre of Government (Office of the President and Prime Minister)

has also been included due to the need to link the national leadership’s vision and strategic

direction with sector policies and delivery of outcomes.

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1.5.1. SWOT Analysis on Capacity Development in Rwanda

STRENGTHS OPPORTUNITIES

A good resource base provided by the

Government and several development

partners

A team of highly qualified and

committed staff

Tutelage of MINECOFIN/Strategic

positioning

Dynamic and committed leadership

Management of the Capacity Building

Fund

Strong governance arrangement

(Steering Committee Composition)

Autonomy, clear mandate, responsibility

and scope

Strong political will from top

government leaders

Prospect of more development partners

and increased support

Government drive for better use CB

resources across sectors (division of

labour among donor partners)

An enabling structural framework for

coordination of CB interventions

(SWGs, clusters, PSCB stakeholders’

forum, etc.)

Opportunity to forge regional and global

partnerships

New tools for coordinating CB

including a new assessment framework

WEAKNESSES THREATS

Limited data information and knowledge

about capacity needs of public, private

and civil society institutions

No resource mobilisation strategy

Robust M&E system is not in place

(outcome and impact not being tracked)

Limited capacity to fully and effectively

engage all stakeholders

Stakeholders high expectations

Conflicting priorities and expectations

of stakeholders (GoR and DPs)

Dependency on projects with limited life

span

Risk of overlapping roles with other

existing institutions (fiefdoms and turf

wars)

Frequent changes in policy and

institutions

Limited capacity and ownership by

beneficiary institutions to implement CD

interventions

High staff turnover in Public Sector

Government policy on CB scattered

1.5.2. National/sectoral Capacity development strategies/policies

Health Sector

The Ministry of Health elaborated the national priorities that are defined in its Human

Resources for Health (HRH) strategic plan and one of the key components is to build the

health education and structural infrastructure as well as health workforce necessary to create

a high quality, sustainable healthcare system in Rwanda.

Infrastructure-Transport

The transport sector is composed of road, railway, air and maritime transport. The GoR

formed the Road Transport Development Authority-RTDA; its objective is to construct

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enough transport infrastructures to reduce considerably the cost of transport which is

considered the engine of growth in almost all sectors.

Agriculture

The core mandate of the agricultural sector is to develop and manage programmes to

modernize agriculture and livestock husbandry in order to ensure food security, improve

livelihoods of the citizens and contribute to the national economy. In order to achieve this,

currently specific areas of focus have been emphasized and a lot of investment has been put

into:

o Crop Intensification Program (CIP),

o Livestock improvement,

o Girinka program- one cow per family which has uplifted many people from poverty,

o Increased investments in irrigation,

o Mechanization,

o Promotion of high value export crops,

o Processing,

o Post-harvest handling and storage that have enabled increased trade in agricultural

produce,

o The tea sector has been privatized and the tea factories do their own trading but need

supervision to ensure standards are maintained.

Justice

Given the sector’s overall mandate to ensure Justice and the Rule of Law in the country; the

Justice, Reconciliation, Law and Order Sector (JRLOS), has its own mid-term strategic plan

2009-2012. Holistically critical skills reported by the Justice Sector were such as

Criminology; Scene of crime officers; Judicial police officers; Forensic Technicians;

Forensic Analysts; International criminal law; Certified Mediators and arbitrators; Witness

protection; other areas of law: (Court procedures - Judicial policing; Prosecution; Contract

drafting; Legislative drafting; Cyber crime; E-commerce; Administrative law; Droit social;

Property rights; Intellectual property; Insurance law; Taxes law and Banking and

finance….)

The strategy envisages that by 2017, The Rwandan Justice Sector must diminish its

Consultancy Dependency and develop its own policies based on academic skills (evidence

based, multi-disciplinary and investigative minds).

Decentralisation

The Government of Rwanda is dedicated to providing quality services to its citizens and the

entire public. To achieve this, the Government has created an enabling environment in which

norms and values at all levels (performance contracts- imihigo, service charters, Citizen

Report Cards, and Community Score Cards) for public services delivery have been put in

place; capacity building assessments for public service providers are done regularly. A

number of skills gaps were identified across all sectors for sustainability of service delivery

as follows:

Policy Level

Economic Development - Knowledge in Community Development & Participatory planning;

Economic Development; Fiscal decentralization; ICT for community development;

Economics; Evidenced based planning and statistics; Local Governance and Planning;

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Integrated development planning , M&E framework; Local economic development; Rural

Development; Project management.

Social Protection - Social Economics

Good Governnance - Political Science; Research and Policy development; Criminology and

security

Media Development - Media and information development; Communication and facilitation

skills

Elected Leaders

Communication and facilitation skills; critical analysis and conflict resolution on local

community issues, social mobilisation and rural economic development, paternship and

stakeholder management , strategic planning and visioning.

Private Sector Development /RDB

This is the sector that is envisaged to drive the economy so the GOR established Rwanda

Development Board-RDB to transform Rwanda into a dynamic global hub for business,

investment, and innovation through fast tracking economic development for private sector

growth. Major critical skills that were identified here include: Hotel and Restaurant

Management and Operations especially in the following areas: (Language proficiency, food

preparation, customer care); Conference and Convention management, biodiversity,

Geographical Information Systems Management applied to Agriculture; Investment

Promotion and Management Tools, SMEs development and Entrepreneurship development;

International trade, International marketing and market research skills and Financial &

Valuation.

RDB’s human capacity and institutional development is facilitating the formation of a strong

forum for the private sector and Institutions of higher learning to dialogue on the way

forward to ensuring that education is updated with the current market & industry agenda

linking demand with the supply side. This is promoting greater private sector participation in

skills development, to share and learn from best practices & strategies for addressing skills

shortages.

1.5.3. CD approaches and Actors

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Rwanda’s capacity development agenda and approach is holistically modeled on the above

three dimensions.

Actors: African Capacity Building Foundation, (ACBF)

Rwanda is member of ACBF- ACBF started its supportive role in capacity building in

Rwanda in 1999, when it initiated a needs assessment and formulation of a capacity building

strategy for Rwanda’s economic management institutions. In light of past experience and the

capacity building needs, ACBF recommended that Rwanda needed a different approach to

capacity building and more specifically focused public financial management.

African Development Bank, (AfDB)

The AfDB has supported the Policy and Strategy Development Project (SPSD) which is to

contribute to competitiveness through an efficient and effective public sector while the

project objective is to strengthen strategic leadership capability in Rwanda. The project will

support capacity building activities for policy analysis and oversight at the Strategy and

Policy Unit (SPU), Office of The President and the Institute for Policy Analysis and Research

(IPAR), an independent think tank and research institution. This support is leveraging key

initiatives deriving from the National Leadership Retreat and Presidential Advisory Council,

with a view to catalyzing strategic actions to enhance competitiveness. The Public Sector

Capacity Building Secretariat (PSCBS) – is the Executing Agency.

Belgian Development Agency (BTC)

17

The BTC has been active in Rwanda since 2000. It implements projects as defined in the

successive Indicative Cooperation Programmes (ICPs). ICPs are negotiated between the

Government of Rwanda and the Government of Belgium based on Rwanda’s Aid policy

principals. Projects and programmes as well as sector budget support provided by the BTC in

Rwanda focus on four priority sectors: health, education, good governance and rural

development taken in a broad sense.

The general objective of the BTC-PSCBS “Support to Capacity Development” project is to

contribute to the realization of the Economic Development and Poverty Reduction Strategy in

the framework of Rwanda's vision 2020. Its specific objective is to strengthen the capacity of

public institutions and civil servants to improve service delivery in Rwanda.

In the Indicative Cooperation Program (ICP) 2007 – 2010, 9% of the budget was allocated

for multi-sector programs such as scholarships and traineeships, micro-projects, funds for

studies and expertise, capacity development program and microfinance sector development.

The next ICP is in the project preparation process.

World Bank

World Bank support to capacity development is to ensure that Public Sector entities have the

capacity for more efficient, transparent and accountable performance in their defined roles

and functions and to achieve their strategic objectives of contributing to the implementation

of the EDPRS. The focus is on the Ministries, Government Departments and Agencies

(MDAs) benefiting from the PSCBP which are those responsible for implementing cross

cutting reforms (Ministry of Finance and Economic Development – MINECOFIN & Ministry

of Public Service and Labour - MIFOTRA). Also includedare four sector ministries (Ministry

of Education - MINEDUC, Ministry of Health - MINISANTE, Ministry of Infrastructure –

MININFRA, MINICOM and Ministry of Lands - MINIRENA).

United Nations Development Programme (UNDP)

The Government of Rwanda, with support from the World Bank, the African Development

Bank and UNDP, has committed fundsto a unique approach for capacity development in

Rwanda using a model of the Strategic Capacity Building Initiative (SCBI) focusing on

priority sectors namely; Agriculture, Energy, Mining and Investment; this creates an exciting

opportunity to contribute to Rwanda’s success story.

African governance initiative-AGI

Tony Blair’s Africa Governance Initiative (AGI) team working in Rwanda are based

permanently in-country, and work to strengthen the government’s capacity to deliver

programmes that will change ordinary people’s lives for the better. The AGI’s approach to

capacity building is to work alongside our partner governments, starting with the specific

development outcome the government is trying to achieve and working back to the kind of

support needed to deliver on objectives. Support in Rwanda by the AGI is implementing the

strategic capacity building initiative-SCBI.

18

1.5.4. Investments in CD

The total budget requirement for five years (2012-2017) for capacity development in Rwanda

is illustrated below. The approach has defined and mainstreamed CD in the budgeting and

planning process.

Grand total in five years for all sectors is 96,789,714,002 Rwf

Source: critical skills gap report: 2012

1.5.5. National CD challenges in regard to development results

Some sectors still lack exhaustive and well articulated strategies, including financing and

capacity mobilization strategies, although they have played a crucial role in guiding

implementation, ensuring coordination and alignment of stakeholders.

Some structures are still not functioning as expected. Roles and responsibilities are not well

defined in some areas and more reforms are needed. In JADF, participation of various

stakeholders has not been at the desired level in some districts, making coordination of all

interventions difficult.

Also there has been insufficient coordination and communication across sectors as well as

between central and local government entities. In general, Districts experience a need for

strengthened and improved coordination and communication with the central level in

Transport and Private sector

A lesson in transport is that this sector needs a single transport sector strategy

including a reporting system and sector monitoring strategy, while in the area of

private sector development, the lack of an overarching sector strategy has

hindered coordination efforts for policy and strategy formulation and

implementation, as well as priority setting and development.

19

preparing their capacity building plans. A best practice of clear policy orientations provided

by the Ministry of Health facilitated the planning process and implementation of health sector

programmes at the District level. There is also a need for a clear communications strategy for

capacity development.

Insufficient involvement of the private sector and cooperatives (NGOs/CSOs) in some areas

has affected the quality of policy dialogue, especially at the District level. Some sectors have

also highlighted this as a challenge and expressed the desire for stronger engagement with the

civil society and private sector in the elaboration of strategies and plans for capacity

development.

Weak M&E systems: districts and sectors have pointed out the need for an integrated M&E

system that links the different sub-systems. This important as proven by the well-functioning

Management Information Systems (MISs) in the health and education sectors leading to

improved sector management. A participatory approach played a pivotal role in indicator

development and assessment at the Sector level and should be strengthened at the District

level also. A clear process for defining, collecting and sharing information on indicators,

especially from the District level, and ensuring quality are other important elements of a fully

integrated M&E system.

Important projects are sometimes delayed due to poor procurement planning and insufficient

capacity of private contractors. Some lengthy and protracted national procurement procedures

have impeded rapid implementation. In other cases low capacity of private contractors caused

delays. This is mainly the case in infrastructure, but other sectors and even Districts have

reported this as an issue.

Quality of service delivery in both public and private sectors has also been noted as one of

the key areas for improvement. It is evident from the numbers that achievements are being

registered in health, education, governance and the private sector (hotels and services) as

well as in Districts to mention but a few. However, improving the quality of service delivery

remains a challenge.

2.0 ABOUT AFRICA CAPACITY DEVELOPMENT REPORT (ACDR)

2.1. The link between ACDR and Capacity Development Strategic Framework (CDSF)

The New Partnership for Africa’s Development (NEPAD) is a pledge by African leaders

based on a common vision and firm conviction that Africans have the responsibility,

individually and collectively, for extricating the continent from the malaise of poverty.

NEPAD places a high priority on harnessing African resources, including its human capital,

as well as on forging partnerships amongst Africans and with the global community, guided

by a committed, innovative and decisive leadership committed to achieving the NEPAD

objectives.

NEPAD recognizes the centrality of capacity development, with a view to empowering

Africans to embark on the set development agenda, and for them to fulfill their creative

potential. Much of Africa’s inability to implement programmes with far-reaching impact

stems from systemic weaknesses at the levels of the state, the region, and the continent as

well as at the institutional and individual levels. The inter-relationship amongst these levels

of governance has created vicious cycles in which poverty, limited capacity, and bad

20

governance are mutually supportive. The resultant effect of this has been further

marginalization of the continent. There is also a realization that previous efforts and

approaches to capacity building have not delivered the desired results and that capacity

constraints still remain one of the major obstacles to development and specifically to the

achievement of the AU Vision and NEPAD Priorities. Overall, implementing capacities still

remain a challenge.

This Strategic Framework is a result of a large participatory and team effort, both in

conceptualizing the content, and drafting it over a period of three years, which involved

RECs, civil society, the private sector and academia. Consultations were also held with

Ministers of Public/Civil Services and with countries that had completed their APRM

reviews, countries that participated in the national processes for NEPAD implementation, as

well as strategic partners.

As a guiding framework for capacity development, the framework offers methodologies and

tools for identifying and addressing fundamental systemic and individual capacity challenges.

The Framework calls for a necessary paradigm shift in how capacity development is

approached. It emphasizes the need to capitalize on African resourcefulness, and solutions

and impact-based innovation.

The CDSF is adaptable to many situations and contexts. It is also a living document, which

will be updated on the basis of experiences and lessons learnt from its initial implementation.

Further, the Framework creates opportunities for individuals, institutions, countries, and

regions to partner in innovative ways to address specific development challenges. Finally, it

builds on many previous and ongoing efforts on capacity development in Africa, and

globally. Stakeholders are being called upon to support NEPAD in the implementation of the

Framework, and to adapt its cornerstones in the implementation of their programmes.

Overall, as a multi-agency initiative, the Africa-CDR is being steered through the technical

leadership of the NPCA, with key support from the UNDP. The maiden Africa-CDR will be

published at the end of 2012.

2.2. Purpose and objectives of the report

Primarily, the Report will help bridge the CD knowledge and practice gaps, and highlight

ongoing capacity enhancement interventions and results by various stakeholders and

development partners. This will provide individual countries, regional economic communities

and the Continent with a means of measuring progress registered in the pursuit of Capacity

Development as a key component to actualize development effectiveness.

The core objectives of the Africa-CDR are therefore to:

1. Systematically document Capacity Development efforts, outcomes and persisting

challenges as well as on-going efforts towards informing policy at various levels for

continuous improvement in CD results and outlook;

2. Track CD interventions along the CDSF priorities and establish baseline information

for the growth of essential capacities;

3. Provide guidelines and standards for M & E from baseline information, as well as

serve as a catalyst for the development and strengthening of requisite measurement

approaches and tools;

4. Foster CD work in alignment with defined priorities at various levels and facilitate

forecasting and planning of key capacity initiatives.

21

The purpose of this 2013 Africa-CDR is to examine institutional capacities that are essential

to create efficiently operating interfaces between planning and implementation for

development results. The report will identify bottlenecks that may currently exist that impede

efforts to deliver sustainable development results and propose solutions to improve the

likelihood of better implementation outcomes.

The pertinent question to consider in the preparation of this report is why well-articulated

strategic plans that are designed to implement national visions fail to deliver the desired

results. To answer this question, the report restricts the institutional space to the key

institutions that form the interface between planning and implementation, through

consideration of the following questions:

a. What are the key institutions that form the interface between planning and

implementation that should be instrumental in transforming policy into results?

b. What capacities are required to enable institutions to transform planning into results?

c. What are the capacity bottlenecks or constraints that hinder implementation and

achievement of stated development outcomes?

2.3. Rationale (adding value to the existing country CD initiatives)

Rwanda’s approach to capacity development blends international best practices with home-

grown strategies that have worked well and with others in situations and comes up with a

final approach best suited for the Rwandan context. An example is the current Strategic

capacity building Initiative-SCBI rolled out in four priority areas to increase government

revenues from mining, improving investment and deal conversion and increasing access and

distribution of electricity as well as enhancing agricultural production.

Therefore the foundations and aspirations of ACDR will feed into such innovations to tackle

capacity challenges for Rwanda, using best practices that will be highlighted as success

stories from the ACDR studies from country profiles to add value to the existing country CD

initiatives.

Rwanda belongs to Africa, and much of her developmental challenges have been common

to other countries; thus adopting commendable practices of interventions that have worked

well in other African countries could accelerate many of her needed innovations to

developmental programmes already in place.

In addition, this study will be a two way benefit for the country in that it will likely influence

the way things have been done because of new concepts introduced

Finally it is worth mentioning that CDSF will leave an enduring foot print for African

countries including Rwanda by sharpening the CD policy-setting framework and enhancing

national capacities for better policy design, alignment and implementation.

2.4. Approaches to the study

The assessment was conducted using the attached questionnaire developed and based on the

workshop of capacity building experts organized by UNDP-NEPAD in South Africa in July

2012. The data collected from the identified institutions are meant to provide a general

22

indication of an organization’s capacity development level, in order to identify gaps and

challenges for improvement in service delivery to Rwandan citizens. The results of the

exercise have been interpreted in the context of the demand and supply side institutions.

The CD National Expert identified key institutions which are partof the national ‘interface

mechanism’ for national planning and implementation strategies to transform development

interventions into results to be interviewed under the AUC/NEPAD CDR Consultancy

framework. Institutions that are responsible for the interfaces mentioned at the national level

are too many to include in this report, so the consultants focused on the health, justice and

local governance sectors. The institutions identified formed the basis of the interviews for

analysis of Rwanda’s CDR.

Preparation, literature and document review

The consultant communicated with the identified institutions through telephone and email

and requested relevant documents for review before visiting the organizations. The

institutions provided the consultant with sector strategic plans through emails and hard

copies, and the consultant were able to review them before the inception visit. The consultant

also visited the institutions websites and reviewed Rwanda CD publications and policies.

Inception visit

The Consultant communicated with the respondents through email and telephone to agree on

the most suitable dates for the study visit. It was agreed that the schedule for the visit would

be drawn up on the first day after the Consultant explained the project background and it

objectives to the management team at the Public Sector capacity building secretariat under

which this study was anchored. Key contacts and involved stakeholders were staff working in

the technical services unit at the PSCBS, as they form the GoR CB Implementation interface

mechanism.

Actual data collection was done through a number of interviews and responses to

questionnaires sent to the different organizations. Individual sessions were held with

management team members following an initial session with the management team and the

actual data collection commenced. Interviewed were the directors, community leaders and the

key heads of departments individually. All described their roles and responsibilities with

regard to managing programmes and their experiences at the organization. Also discussed

general questions around the demand side and supply side in the capacity development

framework to get a general overview of the capacity gaps and challenges.

Conducted sessions with the institutional staff, coordinators of projects, directors of planning,

leaders of community empowerment and Advocacy projects, staff in charge of local

development projects and development partners in capacity development support.

Session with local government and representatives of community organization associations

also took place. The consultant had a long session with RALGA, the civil society and

membership organization that brings together local governments in Rwanda; it also works

with a number of different community groups in their different programmes.

The discussions were guided by a number of relevant questions prepared by the consultants

based on the capacity development questionnaire framework. The conversations focused on

23

respondents’ experiences with their organizations, their level of involvement in the capacity

building programmes in Rwanda, advocacy and lobbying as suggested by their mandates and

the challenges they face, among other issues. Planning and interface issues were discussed as

well. Staff representatives included a community mobilizers, a capacity development officer,

two members of the school Parents-Teachers Association, a member of a self-help group

(ubudehe), the patron of a home-based care group, a community coach during umuganda and

a abunzi local community judge .

Sessions with the partners

The consultant visited and distributed the questionnaire to the key main partners that support

capacity development in Rwanda: the World Bank officer in charge of CD in Rwanda and the

GIZ officer in charge of CD for Rwanda local government. Two officers at PSCBS in charge

of UNDP Projects for CD who are responsible for the program on capacity building were also

interviewed. The other partners were out of Kigali, however one – namely the BTC Rwanda

officer – was interviewed by telephone and provided useful information for the capacity

development report.

2.5. Definitions: Institutional capacities, interfaces of planning and implementation:

The institutions of study shown in the following table have been identified as aligned–policy

institutions which all have been taught the values of emphasizing three main principles:

effective and efficient services delivery − through service charters of 2011;

improving governance and transparency in all aspects – according to the prevailing

regulatory and performance mechanisms especially Imihigo;

identifying the necessary skills to fulfill their mandates using capacity building

tools(the CAN handbook was disseminated in 2010 for use by all institutions).

Institutions identified in the CD profiling

Supply side Institutions Demand side Institutions Support Organizations

Governance cluster Economic Cluster Governance cluster Economic Cluster

Local

PSCB

Minecofin

OAG

EWSA

Mushyikirano/L

eadership

Reatreats

RALGA

International

UNDP

World bank

AfDB

BTC

Ministry of local

government

Parliament

MINIJUST

Ministry of health

Ministry of infrastructure

Ministry of Agriculture

Workforce development

Authority

Rwanda development

Board School of Finance

and Banking

Rwanda school of

Tourism.

Ralga-Rwanda

association of Local

governance

Muganda/Community

Villages

District local

courts/GACACA

National Police

Districts hospitals and

centers

Institute of legal

practice

Institute of policy

analysis and research

School of Finance

and Banking

Rwanda school of

Tourism.

District

cooperatives

District private

firms

District Market

operators

25 | P a g e

3. FINDINGS

In general, the responses are rich in information and participants spent considerable time and

effort to generate the requested information from the questionnaires. However, the level and

depth of analysis is uneven across the identified institutions and sectors. In most cases

narratives and data are provided to illustrate the lessons learned across the different areas of

the assessment. However there was a challenge as some respondents were not familiar with

some English terms in the questionnaire.

3.1. Sectoral Knowledge.

The sector strategies are fully aligned to the EDPRS and Vision 2020. Some such as the

education, health and social protection base their planning and results yardsticks on the seven

year government plan (7YGP)2and the Millennium Development Goals (MDGs). Strategies

also refer to various international agreements and regional policies, for example as in areas of

education and health.

Various mechanisms exist to implement strategies and some sectors have developed

overarching frameworks, including sector-wide approaches (SWAps) to improve

coordination and delivery. These frameworks are further broken down into core activities,

annual work and action plans, including targets and outputs and are accompanied by

implementation plans. Some sectors expressed interest in developing a SWAp, seeing it as a

way to move the institutional capacity development forward in Rwanda

Rwanda has established institutional and regulatory frameworks to track implementation

results and accountability for better results. New agencies were established in form of Boards

(RDB, REMA, RHA, RBC REB etc.) which facilitate smooth implementation while, at the

same time various laws were developed and endorsed by the parliament with an impact on

the communities such as the land law allowing progress to be made.

However some sectors experience coordination difficulties at the decentralized levels;

consequently more active participation is needed between the central government and

decentralized levels in program formulation and implementation, as well as participation in

planning and budgeting exercises to avoid duplication and maximize efficiency.

Communication and coordination between central and decentralized levels was mentioned as

critical to ensuring synergy of policy, strategies and District plans. PSCBS is currently

playing a key role here to bridge this gap, facilitating better coordination between the two

levels to improve capacity development implementation in Rwanda.

Also the M&E system is weak, and there is a lack of (or inappropriate) indicators in the

capacity development strategy. Few sectors have fully operational M&E frameworks beyond

the framework provided by the EDPRS at the national level. Additionally, many sectors

would like to conduct more studies and evaluations and do research in order to be able to

track progress and results, determine impacts and adjust national programmes and capacity

development holistically

2 The 7YGP was launched in 2010, a 7-year program to bolster Rwanda’s economic activity, including increasing

electricity generation and providing financial services that reach at least 80 percent of the country’s population

26 | P a g e

3.2. Demand Side Capacities for Ownership and Supply Side Capacities for

Responsiveness

3.2.1. Justice

The genocide that took place in Rwanda against the Tutsi and moderate Hutus nearly

completely destroyed the Rwandan society. Its harmful effects in Rwanda included the death

of more than a million people. Many others were maimed. Many people were left highly

vulnerable − orphans and widows and a very large number of traumatized survivors and

others with various illnesses, some interminable. The genocide also destroyed basic

infrastructure and property. Many people participated in the genocide. One million people

were prosecuted for it. After the genocide, the issue of justice became a top priority for the

Government of National Unity because justice institutions had been destroyed. The judicial

system which was already vulnerable had difficulties in facing the realities of the post-

genocide situation.

These priorities required tackling the roots of genocide and the culture of impunity.

According to Rutayisire (2007)-The solution of a general amnesty was immediately pushed

aside and it was recognized either by the government or the international community that all

responsible « of the genocide should be judged».

The major challenge was to judge the large number of presumed “genocidals” who were

inside or outside the country while reconciling the Rwandan people at the same time. The

challenge was how to succeed in the fight against impunity when the persons who

participated in the crime were so many, How could the culprits be found, especially those

who planned the genocide and were either at large or peacefully settled in foreign countries.

This called for urgent action both in Rwanda and internationally. This is what RPF and the

Government of national unity established Gacaca courts through Organic Law Nº 40/2000 of

January 26, 2001. This law was only used in the pilot phase. After the pilot, it was replaced

by Organic Law Nº16/2004 of June 19, 2004. This law was also revised and complemented

by other organic laws to improve the functioning of Gacaca courts.

Gacaca courts were assigned five broad aims:

1.To shed light on the genocide against Tutsi;

2.To speed up genocide trials;

3.To eradicate impunity;

4.To strengthen unity and reconciliation among Rwandans and as well demonstrate the

capacity of Rwandan society to solve its own problems.

Once the law was in place, the activities of the Gacaca courts began. Their activities were

carried out at three levels of jurisdiction: the Gacaca Court of the Cell, the Gacaca Court of

the Sector, and the Gacaca Court of Appeals. Nationwide there were 9013 Cell courts, 1545

Sector courts and 1545 courts of appeal. Each court had several benches depending on the

number of cases it had to try. In order to achieve the objectives of the Gacaca courts, two

guiding principles were used: the first was to put each suspect in a category that corresponded

to the seriousness of the accusations. The second guiding principle was confession, pleading

guilty, repentance and apology. This principle helped a convicted person receive a reduced

punishment; if the person was in the second category, s/he was sentenced to community

27 | P a g e

service instead of serving prison time. Minors (those under the age of 14) who committed

genocide were not to receive sentences; instead they were sent to a correction centre in

Bugersera.

How Gacaca courts worked

The Organic Law gave Gacaca courts the full competence that other judicial systems have.

However, it added a special competence to investigate the manner in which crimes had been

committed, a task normally carried out by the prosecution department.

i. Inyangamugayo Judges in Gacaca Courts:

The public elected the judges who presided over the hearings in Gacaca Courts, based on

their known personal integrity; this explains why they were known as Inyangamugayo

(people of known integrity) judges.

The elections of Inyangamugayo judges were conducted countrywide from 4th to 7th

October, 2001; subsequent elections were held to replace Inyangamugayo judges who

died, moved elsewhereor became ill and incapacitated.

34.3% of the Inyangamugayo judges were women, and 65.7% men.

ii. Analysis of files

After information was obtained, files were analysed by the persons of integrity of the Gacaca

Court of the Cell, who then prepared a file for everybody who had been alleged to have

committed crimes. Based on the seriousness of the crimes he/she had allegedly committed,

the suspects were put in one of three categories.

After the Gacaca court had prepared the file and put it in the appropriate category, it was then

submitted to the Gacaca court with a competent judge to judge it. Files of the first and second

categories were submitted to the Gacaca Court of the Sector, while those in the third category

remained in the Gacaca Court of the Cell.

A large number of genocide suspects of the first category were transferred into the second

category. Furthermore, the majority of those who remained in the first category were tried by

Gacaca courts in order to speed up the trials; these were tried by ordinary courts . It is,

therefore, in this framework that genocide suspects of the first category, subcategories 3º, 4º

and 5º were tried by Gacaca courts, while those in 1º and 2º subcategories remained in the

ordinary courts. In addition, based on the category of the suspect, cases which were supposed

to be tried by ordinary and military courts on which the last decision had yet to be reached,

were transferred to the Gacaca courts which were competent to try them.

The overseeing body – the National Service of Gacaca Courts – was given autonomy over

human resources and financial management.

Human resources management

The National Service of Gacaca Courts hired staff for day-to-day monitoring, distributing of

required materials, advising and training of Inyangamugayo judges on laws and legal

procedure, as well as sensitizing and mobilizing the Rwandan people to understand and

participate in the Gacaca Courts process. This was done through coordinated and

complementary action by the Executive Secretariat, the legal affairs unit and the department

for sensitization and training. The legal affairs unit had specialists charged with monitoring

28 | P a g e

district Gacaca Courts and coordinators ensuring compliance with the provisions of the

relevant laws.

The National Service of Gacaca Courts also had a unit responsible for collaboration with

other government institutions and another unit was in charge of administration and finance.

At the closure of its activities, the National Service of Gacaca Courts had 17 employees

under the terms of the general statute relating to Government employees and 70 contractual

employees.

Financial and property management

Financial and property management was done in accordance with the laws and instructions

relating to the management of public finances and property in Government institutions in

Rwanda. The National Service of Gacaca Courts used funds from the Government of Rwanda

and from various partners. The total of all funds contributed since 2001 amounts to

29,665,828,0923 Rwanda francs consisting of grants amounting to 18,612,253,199 RWF

(62.74%) from the Government of Rwanda and 11.053.574.893 RWF (37.26%) from

partners.

Unity and Reconciliation:

In the process of fostering unity and reconciliation among Rwandans, different strategies

were put in place as follows:

• Civic education;

• Peace building and conflict management program;

• Partnership with other organizations/institutions and

• Unity and reconciliation oriented research.

From the above strategies, the following was achieved: training of trainers of Itorero was

organized for 1,681 persons on District and Sector level, 35,783 students that finished

secondary schools, 1,306 university students and 2,478 motorcyclists. 500 students in India

and 85 in Belgium graduated in Itorero while 734 heads of schools were trained in fighting

divisionism and building the culture of peace.

3 More than US$47 million.

29 | P a g e

Itorero of motorcyclists concludes civic and political education course (Ingando) that started

on 02-26/06/2011 at Nkumba Peace and Leadership Centre in Burera

According to the Rwanda Reconciliation barometer a tool for continuous and future

assessments, majorities of Rwandans (more than 80%) feel that they have experienced

individual healing. In general, the respondents agree that Gacaca courts contributed

significantly to reconciliation.

3.2.2. Local government: Accountability, transparency and citizens’ participation;

The Ministry of Local Government defines decentralization and community development

policy through empowering citizens and providing them with space to participate fully in

their own political, social and economic development. Mechanisms for all-inclusive citizens-

participation in local decision-making and governance processes have been reinforced at

various levels. Particular emphasis has been placed on ensuring citizens’ voices are heard as

clients of local government, paying particular attention to the needs of women, youth,

children and disadvantaged groups.

Awareness and civic education campaigns have been conducted to inform the population; this

has been facilitated by the fact that the country speaks one language which simplifies the

transmission and comprehension of messages so citizens know about their electoral

processes, freedom of expression, political rights, civil liberties, duties and responsibilities. A

sound regulatory environment for civil society is constantly being improved to encourage

development and the implementation of effective public/private partnerships for development

and to create a dynamic and engaged society. Capacity for data collection, analysis and

management has been developed, including Citizens’ Report Cards and Community Score

Cards.

There is continuous dialogue with non-state actors. A civil society policy has been drafted to

strengthen civil society participation in design, implementation and monitoring of

development. In the civil society sector, strict internal regulations and codes of conduct and

ethics are strictly observed and the sector has a forum to exchange and address any

constraints that may arise.

30 | P a g e

Accountability and transparency initiatives and institutions have been set up in various

sectors. They include the Auditor General’s Office, an independent parliament and the Office

of the Ombudsman; strict planning, budgeting, procurement and public expenditure

procedures are supported by appropriate manuals and regulations to reinforce the culture of

transparency and accountability. This has kept corruption to a minimum and as such Rwanda

has been consistently ranked first as a corruption-free country in the East African region.

The GoR remains committed to the successful implementation of decentralization, and the

3rd phase Decentralization Implementation Plan (DIP) activities, outputs and outcomes cover

a wide range of development and governance areas.

DIP deliverables are monitored and evaluated primarily through semi-annual and annual

reports and the Rwanda Governance Board is central to the implementation and monitoring

of the DIP. The overall coordination of the DIP is done through the Program Steering

Committee (PSC). The PSC conducts annual reviews if needed.

Freedom of the press and media development: In order to give citizens a voice and access to

public information, and in order to promote development and unity and reconciliation, the

press and media sector has been liberalized and strengthened under the Ministry of Local

Government. The sector has been further strengthened by the setting up of the High Council

of the Press, which monitors all issues of press freedom and development.

Imihigo:

Everyone involved in development in Rwanda, at all levels including parliamentarians, all

sign imihigo – performance contract. Imihigo, dating back to pre-colonial times is a cultural

practice in the ancient tradition of Rwanda in which an individual would set himself/herself

targets to be achieved within a specific period of time, following certain principles and with

determination to overcome all possible challenges.

In modern day Rwanda, the Imihigo practice was adopted as a means of planning, to

accelerate the progress towards economic development and poverty reduction. Imihigo has a

strong focus on results, which makes it an invaluable tool in the planning, accountability and

monitoring and evaluation processes of all undertakings in the country. Imihigo is at the heart

of development so far witnessed in Rwanda.

3.2.3. Health:

In 2004 the MOH revised its health policy, based on Vision 2020and the PRSP (2002) andin

2009 the Government of Rwanda developed a health financing policy. The goal of the health

financing policy is to ensure that quality essential health services and particularly MDG-related

interventions are financially accessible to the whole population in an equitable, efficient and

sustainable manner under a results-based financing framework.

The supply side channels of the health financing frameworks are strengthened through

interventions to improve efficiency in the allocation and use of resources and the coverage of

high impact interventions. These two pillars of the health financing framework are

strengthened by policy initiatives to increase internal resource mobilization, to improve the

effectiveness of external assistance and to strengthen the institutional environment for

sustainable financing of the health sector.

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The emphasis of this study is the community basic health Insurance (Mutuelle de santé). In

Rwanda, CBHI was identified as a vital channel to ensure financial accessibility to health

services in both rural settings and in the informal sector. CBHI should in particular allow the

most vulnerable and poorest segments of the population to be fully integrated into the health

insurance system, thus guaranteeing participation of the whole community and avoiding any

stigmatization. As CBHI is a mechanism which aims to limit the exclusion of the most destitute

segments of the population from health services, CBHI should play a key role in building and

strengthening the foundations for the concept of equity in access to various packages supplied by

the health system.

Presently, all operational health centers of the country shelter a CBHI section; this provides 100

% geographic coverage. CBHI is regulated under the law n°62 / 2007 of 30/12/2007 relating to

the creation, organization, functioning and management of CBHI, published on March 20th, 2008

in the official gazette.

The growth of CBHI, along with anti-malaria and HIV programmes, performance-based

financing, community health and the quality assurance programme have led to dramatic

improvements in key health indicators as shown in the 2007-08 IDHS: i) the rate of assisted

deliveries rose from 39% in 2000 to 52% in 2008; ii) infant mortality declined from 139/1000 in

2005 to 62/1000 in 2008; and the under-five mortality rate fell from 152/1000 in 2005 to

103/1000 in 2008 according to Rwanda National Health Report 2010. Strong mechanisms have

been put in place enabled by a strong adapting community. The major contributing factor here is

that the benefits the communities envisage/have reaped from the Mutuelle de santé engenders

strong support for the initiative.

4. ANALYSIS

4.1. Set of interface Issues at both Demand and Supply Side (in the light of CDSF with

examples and evidences to support the argument/statement)

4.1.1. Justice:

Activities of Gacaca

The competencies of Gacaca can be seen in the way how their processes of implementation

unfolded as summarized. The activities of Gacaca courts were carried out in two phases:

information gathering on genocide crimes; and trying the cases.

Information gathering

The competence of collecting information was given to Cell level Gacaca courts, aided by the

people in the respective areas of the jurisdiction. These people met in the “General Assembly

of the Cell Gacaca Court”. The implementation of Gacaca courts’ activities started with a

pilot phase; its aim was to familiarize both Rwandans and foreigners with the Gacaca system

to. This phase essentially focused on collecting information about genocide crimes in the

areas covered by every Gacaca Court of Cell. It was divided into two sub-phases.

The first sub-phase was launched on June 18, 2002 in twelve sectors: one sector was selected

in each province and in Kigali City, for a total of 79 courts.

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The second sub-phase was launched on November 25, 2002 in 106 sectors: one sector was

selected from each district and in Kigali City. In these sectors there were 672 Cell Gacaca

Courts.

In all, the pilot phase was conducted in 118 sectors, comprising 751 Cell Gacaca Courts. The

pilot phase lasted 18 months and was very productive as shown in the table below

Listed genocide suspects The first category The second category The third category

54 573 5 841 35 993 12 688

After the pilot phase, the activities of Gacaca Courts were extended across the country. These

also started with information gathering on January 15, 2006. The results of this activity are

shown in the table below.

Listed genocide

suspects

The first category The second category The third category

818 564 77 269 4327 3088

Gacaca succeeded primarily because of a committed leadership, the shared vision to return

the country to normalcy and collective efforts from all the implementation levels especially

from the communities. These set the country on a confidence agenda of believing in its

primary resource - the people. It is impossible to overstate the importance of the tenacity of

Gacaca courts and the capacities displayed that moved the country out of the abyss.

The trials judged by Gacaca courts

Overall the trials handled by the Gacaca Courts have totaled 1,958,634; of these cases 14%

were acquitted and 9% were sent to the courts of appeals.

Reintegration of prisoners back into the community is through community work in lieu of

certain categories of sentences (Imirimo nsimbura gifungo), managed by Travaux d’intêret

général (TIG). This process has had tremendous impact on the reconciliation process and

national cohesion. Large numbers of suspects have confessed their crimes and sought pardon

from victims and the nation as a whole. The process has also provided a lot of information

on events during the genocide, thereby contributing to healing through truth. These processes

exhibited rare capacities in planning and implementation as well as invaluable outcomes for

the country with minimum resources.

The processes involved government meeting the need of the communities and one would

rightly say that even in adversity the Gacaca system worked.One would rightly term this as

innate capacities: There were no established or efficient systems in place prior to this even in

the country; today it is different because of this experience. Africa can borrow a leaf from

this experience that demonstrates that commitment and conviction is a prerequisite for any

efficient and effective undertaking as well as looking inward for solutions to overcome

problems. Communication played a significant role in the success of Gacaca. A major

challenge was that most of the Gacaca judges were accomplices to the genocidal crimes

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committed so Government had to monitor and evaluate the progress of the process very

closely.

District Administration;

Rwanda’s decentralization and community development policy focuses on creating a

dynamic local economy through the ability of communities to drive their own development

under dynamic local governments. However it is noted that that though the people have all

embraced the spirit of hard work, they lack many necessary skills as most of them are not

literate, having not gone to school. The consultant notes, however, that given the levels of

efficient performance required to implement many programmes, one does not really need

high technical skills to perform his/her duties.

There have been capacities exhibited at these levels especially in the area of development

planning, budgeting and implementation activities because these have been devolved to the

district and sector levels, while the ministry and provincial level play the coordination role to

ensure that government policies are appropriately implemented. Apparently these have

achieved tremendous progress and are contributing enormously to overall country

development outcomes.

Joint Action Forums bring together all local development actors, including community-based

organizations, donors, district committees and NGOs to discuss development needs, set

priorities and define strategies. RALGA noted that these forums have enabled inclusive and

holistic development planning and implementation by bringing together all development

stakeholders at district and sector levels to ensure coherence and demand–driven rather than

supply-driven development initiatives.

Capacity aspects:

Local administrations in Rwanda have demonstrated special capacities to harness creativity

and innovation, self-dignity (agaciro), and self-motivating potentials. Rwandans are

displaying a “sky-is-the-limit attitude” and determination never-again to repeat what

happened in the past and these are values that have spurred rapid development and made it

possible for the leadership to realize positive impacts from development programmes.

Role of leadership

In any situation leaders need capacity and commitment to inspire, motivate and embrace

integrity. They must be visionary, entrepreneurial, seek solutions from within and

demonstrate respect for people as the greatest resource. These qualities of leadership have

been eroded in most of post-independence Africa and this has continued to erode much-

needed development on the continent.

In Rwanda the leadership has not disappointed on these values. The country has been rallied

to believe and espouse the above-mentioned virtues for self-realization. Slogans have been

institutionalized like Inyangamugayo, Agaciro (self-dignity) gukunda umurimo and ubupfura

and many others. These have created the needed environment to foster ownership, unity and

confidence beginning to develop capacities for and in Rwanda’s communities.

Imihigo

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Paul KAGAME, in recognition of good performance to one of the mayors in Rwanda in 2010-

2011 performance contracts

As depicted above, imihigo is a deliberate initiative supported by the leadership. In the

ceremony above President Kagame said <Imihigo have transformed the mechanisms under

which leaders perform their functions>.

Accountability

In addition to the institutions that curb corruption, enforce accountability like the office of

the Auditor General, Ombudsman office and the Anti-corruption unit of Rwanda’s police

force, Umushyikirano (annual national forum where leaders are held in addition to discussion

on state of affairs in the country is always chaired by the President) and parliament corruption

has been kept at minimum making Rwanda the least corrupt state in the region, fourth least

corrupt in Africa and among the fifty clean nations in the world- Transparency International

2011 .

It is also important to note that majority of the respondents and Rwandans in this context

generally feel that the leadership in Rwanda under President Kagame have played a key role

in institutionalizing the anti- corruption mentality and also this leadership fully embodies the

key components of transformational leadership as specified and elaborated in the NEPAD’s

CDSF.

4.1.2. Health

In terms of financial accessibility to health services, most of the population is enrolled in

health insurance schemes. By end of June 2010, the percentage of enrollment in Mutuelle de

santé (Community Based Health Insurance/CBHI) was 91% and the total enrollment in all

health insurance schemes was 97%, including RAMA-Rwanda medical insurance, MMI and

private insurances which totals 6% of the ninety seven above.

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As the reporting year for the Community Based Health Insurance changed from the calendar

year to the Government of Rwanda financial year, the current membership rate of 83%,

covering only six months, was reported at the end of May 2011.

Figure: 2 Trends in Mutuelle de Santé coverage and utilization of health care services

Source: MINISANTE Annual report, 2010/11

The pooling function is organized at three levels. The Community Risk Pool is managed by

the CBHI at the sub-district level (Umurenge) and covers primary level of services. The

District Risk pool is a fund at the district level that brings together a proportional contribution

from the community pool as well as subsidies from the Local Government. The National Pool

for CBHI is a second level re-insurance mechanism to pay for tertiary care. The RAMA pool

serves public workers and private workers in the formal sector and MMI pool serves the

military personnel.

The CBHI Community Risk Pool brings together premiums from beneficiaries as well as the

public subsidy and external funds. The District Risk Pool is funded by a contribution from

Community Pools based on their respective population composition and district

contributions. Also, a mechanism is to be elaborated to ensure risk-equalization among the

different CBHI sections within a district. The National Pool is funded by national revenues,

contribution from the district pools based on their compositions as well as a cross-subsidy

from RAMA; MMI and private insurances and external funds.

Because of the success of Mutuelle de santé, the child mortality rate has fallen drastically and

life expectancy has risen from 43 years to 58 years (CIA world fact book 2012)

4.1. Set of interface issues beyond Demand and Supply Side (i.e. political commitment,

policy climate, economic crisis, instability)

It is worth mentioning that in Rwanda the commitment from the political leadership has

fostered a committed spirit for a collective transformation of the country through

participating communities. While it has been hard to measure what it takes to make all

citizens own or possess this spirit it is evident that consistent commitment from leadership

was key.

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Rwanda operates in the wider developing region of the East Africa Community (EAC).

Rwanda joined in 2009 and is now aligning all her policies with its regional partner countries

(Kenya, Uganda, Burundi and Tanzania)

The country has continued to pursue vigorously on development interventions geared at

alleviating poverty and uplifting the living standards of the general population. In this same

context, Rwanda has recently launched the AgDf- Agaciro development fund which has hit

the record high of over 20 billion as of October 2012 five weeks after its launch; a

supplementary development fund to other national resources, Agaciro development fund is

also meant to instill a self-sustaining culture among Rwandans . This is another of the

country’s numerous innovations.

As the above diagram indicates, political commitment is at the centre of the current trends

and largely looks beyond the supply side of CD. This philosophy has led to Rwanda

receiving international recognitions like World economic forum report-most competitive in

E.Africa 2012, and United Nations Public Award (UNPSA) 2012 for “Promoting Gender

Responsive Delivery” of Public Services as well as being cited for being the African country

with minimum corruption successively by the Business community to mention but a few.

Regarding the engagement of the Rwandan Government diaspora and friends of Rwanda, a

special day dubbed “Rwanda Day” has been adopted. It occurs on an annual basis with

varying themes but more prominently on “Agaciro” meaning. Rwanda rallies these the

‘’Diaspora” to be involved and take part in building their state as well as upholding

harmonious relationships with other regional groupings like CPGL.

5. CONCLUSIONS-Lessons Learnt

5.1. Overcoming capacity challenges (for better results)

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Rwanda has already achieved certain targets of the MDGs, such as gender equality in primary

school enrolment and reducing HIV prevalence, and the country is on track to attain several

others.

With regard to Vision 2020 targets, the country is on track for several indicators, including

the aggregate investment rate, the growth of industry and services, the growth of the urban

population, the use of chemical and organic fertilizers, literacy, life expectancy, and gender

equality in tertiary education and in parliamentary representation.

Ubudehe, a traditional culture of collective action of solidarity and mutual help, has been

adopted by the Government of Rwanda as an appropriate approach to fight poverty at the

community level. This system of communal work, which is embedded in the Rwanda mind-

set, benefits the poor and promotes social dialogue, solidarity and unity. It increases

opportunities for people to participate in planning and decision-making and empowers

women and other vulnerable groups.

In addition to the above, public/private partnerships with the private sector and civil society

and engaging them in development processes is an area on which the GoR has put much

emphasis as a basis for inclusive and sustainable development.

5.2. Lessons Learned - (what is working and areas for improvement, new approaches)

A strong national identity and vision were identified as essential, central components if there

is to be any successful capacity development. The Government of Rwanda has adopted a

number of programmes based on Rwanda’s cultural heritage to tackle key development

issues by engaging the people and ensuring accountability.

Imihigo contains development targets for the districts during a given period. These targets are

based on development priorities identified by the people themselves, through all the different

consultative levels of local government. The contracts are signed between the President of the

republic and district mayors, who have to report regularly to the President and the people on

progress in implementing these contracts. This has greatly enhanced people’s participation in

their own development and reinforced the concept of results-oriented governance. It is also

an effective mechanism for evaluating and monitoring development activities.

Umuganda is the term for community work carried out at the village level throughout the

country on the last Saturday of every month. During Umuganda all inhabitants come together

to carry out activities that are beneficial to the community and to discuss issues of national

and local interest and plan for development. This provides a good forum to transmit public

information and gives the people a voice in governance.

Vision 2020 Umurenge, is the specifically planned vision to eradicate extreme poverty by

2020, by addressing the issues confronting the very poor and most vulnerable in order to

unleash their productive capacity and provide them opportunities to participate fully in their

own development.

Healing and reconciliatory justice; The traditional community-based justice system,

Gacaca, has played a key role in rendering justice in the aftermath of genocide and the social

dislocation caused by its effects. Accelerated tried cases provided invaluable information that

will be useful in formulating strategies for eliminating genocide and related ideologies. Most

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importantly, however, it has contributed enormously to the healing process and the promotion

of unity and reconciliation, as perpetrators confess their crimes and ask for pardon, both to

the victims and the nation as a whole. Another conflict resolution mechanism, Abunzi, are

elected by the people at community level to manage minor social conflicts and reconcile the

those engaged in disputes, thereby reducing tensions in the community and forestalling the

development of conflict situations.

Gender equality and women’s empowerment; Rwanda’s gender equality and equity

policies are enshrined in the national Constitution which sets a minimum of 30% for women

in parliament and in other decision-making instances. As a result of this and the political

leadership’s commitment to equality, Rwanda is currently in the number one position world-

wide in terms of women’s representation in parliament with 48.8%, It also occupies one of

the highest rankings for the number of women holding decision–making positions and

heading some of the country’s most technical institutions.

Transparency and accountability; A culture of accountability and transparency provides a

solid foundation for a stable and democratic state. This requires the support of strong

oversight institutions. The setting up and reinforcing of independent institutions such as the

office of the Auditor General, the Office of the Ombudsman and other similar institutions has

greatly enhanced accountability, justice and the war on corruption. It is pertinent to note that

Leadership should espouse such values if the communities are to nurture and uphold

accountability for their leaders.

Deliberate promotion of ICT and other technologies is intended to ensure the development

of a modern and self-reliant state and to position Rwanda for competitiveness in the

integrated regional economies and globalized world.

5.3. Recommendations/key messages (policy environment, human capacity dimension)

The capacity of a country or her people cannot be discussed without considering the enabling

environment within which each operates. Rwanda has come to rely strongly on rallying the

citizens into believing in self-worth-AGACIRO. This has unleashed immense potential for

Rwandans to believe in themselves in attaining any aspirations they aspire to achieve.

In addition to the above the government has inaugurated the Agaciro development Fund-

AgDF intended to improve the level of financial autonomy of Rwanda as a nation. The

uniqueness of the fund is that Rwandans themselves will finance it. The Agaciro

Development Fund sets the tone that Rwandans will work together to drive their own

development, giving the entire Rwandan population a higher level of direct ownership in the

nation's projects. It is important also to note that such initiatives build soft capacities that are

immensely needed to drive out the pitiable mentality.

5.4. Suggestions for implementation of CDSF

The consultant suggests that at a national level CDSF can be implemented through the

following mechanisms:

1. Consensus and mutual understanding and partnerships with CD centres of excellence

in countries that share common values

2. Harmonisation, mainstreaming and integrating CD into national sector strategies

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3. Developing national advocacy forums and a visibility plan to make it known

throughout the AU for ownership purposes.

References

1. Government of Rwanda – 2006 – 2010, 392p, An Integrated ICT led Socio-Economic

Development Plan for Rwanda, NICI Plan.

2. WB, 2003- The Vision and Strategic Framework for the multi-sector capacity

Building Programme in Rwanda.

3. Raporo ya Guverinoma mu mwaka wa Gatatu wa manda ya Nyakubahwa Perezida

Paul Kagame, Imprimerie Nouvelle, Kigali, January 2007,

4. Ahmad Tijan B. Jallow 2007 Concept, challenges and lessons on “Capacity

Development in Africa”: Notes presented on the AGF VII National Consultative

Workshop on the theme: Building the capable state in Africa in the context of

preparation of AGF VII, Kigali Rwanda.

5. Rwanda’s consultations outcome report for experience sharing on the implementation

of APRM, Kigali, Rwanda 2006.

6. 2010 Annual Report and 2012 Action Plan, Ministry of Local Government, Good

Governance, Community Development and Social Affairs.

7. Ministry of Health, 2005-2009-Health Sector Strategic Plan.

8. MINALOC, 2005-Rwanda’s Decentralization Governance Reform Policy, August.

9. NEPAD in Perspective: A New Development Agenda for the Peoples of Africa, 3rd

Edition, 2007, 40p.

10. PSCBS and MIFOTRA- 2012-Rwanda report for critical skills gap for the public and

private sector.

11. GoR, 1998 Vision 2020

12. GoR-2010 G7Y implementation Plan

13. GoR, 2012 Public sector reform strategic framework

14. RUTAYISIRE (2007)- “The process of Gacaca Jurisdictions in Rwanda: “from

inception to institutionalization of Renovated Gacaca

15. NSGC- Gacaca Courts in Rwanda, June 2012

16. Reconfiguration and Transformation of Rwandan Public Administration: Strategies

and Implementation,

17. Rwanda Women Parliamentarian Forum. Rwanda’s Progress towards a Gender

Equitable Society,

18. PSCBS-2011:Strategic capacity building Initiative framework and implementation

strategy

19. Minisante-Human Resource for Health strategic plan 2011-2017

20. GoR-Leadership retreat resolutions 2012

21. GoR-National ICT strategy and plan- up to2015

22. HIDA- 2008 Skills Audit

23. MIFOTRA-2011 Human capital and skills strategy

24. Minecofin- EDPRS lessons learnt 2008-2011

25. PSCBS-2011- State of Monitoring and evaluation assessment

26. GoR- Government report 2010/11

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Appendixes-questionnaire used,

List of participants validation at the PSCBS

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