Sigman, Vickie - Extension Policy Development in Liberia
Presentation given at the GFRAS side event on Rural Extension Policy, Manila 2012_09_25. More info at http://www.meas-extension.org/meas-offers/best-practice/policy
1. Liberia’s National Policy
for Agricultural Extension
and Advisory Services
Dr. Vickie A. Sigman
MEAS Project
University of Illinois at Urbana Champaign
2. Provide information and engage in
discussion on the process in which Liberia
was involved in developing its AEAS policy
So that others can build on and potentially
learn from the Liberian experience.
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3. 1. Context
2. Policy development and validation process
3. Post policy follow-on
4. Status of policy and follow-on
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4. My Involvement
◦ 2009-2011 Ag & Enterprise Dev Advisor at USAID
Mission Liberia
◦ 2012 invited back, through USAID-funded
Modernizing Extension and Advisory Services
(MEAS), to facilitate MOA to develop its AEAS policy
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5. Post-conflict country
◦ Decades of mismanagement
◦ 14 years of brutal civil war
◦ Fragile state
◦ President Eleanor Johnson Sirleaf (since 2006)
moving forward
Agriculture sector: Smallholder subsistence
agriculture
◦ 2/3rds of 4 mil population engaged
◦ Reliance on food imports
◦ Yields; post-harvest losses; value chains
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6. History
◦ Ag Ext Service established 1960, top-down, tech
transfer; T&V ineffective relative to cost; complete
collapse due to Civil War; afterwards international
community provided most ag extension services
Current status
◦ Rebuilding public system – challenged by lack of
Accessible improved technologies and practices
Client-based program planning, implementation, M&E
Adequate human, infrastructural, institutional capacities
Sufficient funding
◦ Many NGOs, limited private sector
◦ Legacy of preoccupation with distribution of inputs
◦ Uncoordinated, fragmented, duplicative services of
varying quality
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7. Extension landscape is changing
No existing ag extension policy (incomplete 2009 draft)
National and sector policies call for a new direction to
improve ag production and gain food security (PRS 2008;
FAPS 2008; LASIP 2010)
MOA response to President’s request for specific
agricultural policies (ag ext, gender, seed sector, etc.)
Donor investments encouraged by having a formal policy
Underpinned by Nairobi Declaration
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8. Key actions taken
Key decisions made
Key lessons learned
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9. Appoint Task Force (MOA/USAID/FED; revise 2009 policy)
Engage Facilitator
Prepare Task Force (schedule; policy definition/purpose; global
trends in extension reform; other country policies)
Obtain Additional Stakeholder Input (Deputy Minister written
request; individual/group meetings; e-mail survey; field visits)
Discuss and Debate
Draft and Revise Policy (iterative process)
Hold Stakeholder Validation Workshop (day-long; participants
and participant preparation; process; results)
Finalize Policy Document (incorporate stakeholder input)
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10. Policy name: AE, EAS, RAS, AEAS
Document detail and length
To include/not include the ―how‖ of the
policy and why/why not
The extent to which stakeholder input is to
be incorporated in the policy
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11. Areas of policy intervention to include,
which areas to emphasize or de-emphasize, and why
Emphasized
◦ System characteristics
◦ Client stakeholders and geographic coverage
◦ Content, approach, and methods
◦ Actor roles and responsibilities
◦ Coordination and consultation of all stakeholders
Best Practices Group (alternative to r-e-f linkages)
◦ Coordination mechanisms – to be detailed – existing mechanism ACC, 3 platforms
Less emphasis on
◦ Funding
◦ Staffing
◦ Capacity Development
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12. Importance of a committed Task Force
Usefulness of Task Force learning, particularly via review of
other country policies
Necessity of allocating sufficient time and resources to
obtain stakeholder input
Facilitating policy development requires more time than
writing policy
Value of framing process within overall phases:
◦ policy development and validation (agenda setting and formulation)
policy adoption policy implementation policy evaluation
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13. Recommendations for next steps:
◦ Initiate process of formal adoption by the Government of Liberia
◦ Develop and implement an Outreach Campaign to create
awareness and understanding of the policy at county and district
levels
◦ Develop the Implementation Strategy for the policy as a matter of
priority
◦ Prepare plans for and initiate implementation of selected
components of the Policy
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14. Design program to strengthen AEAS
◦ Respond to Next Steps Recommendation to plan/implement components
of the policy
Design a program which would support the actualization of parts of the
policy
To be funded by a donor, or different donors
To consider ongoing efforts to strengthen AEAS , (USAID via FED and other
projects coordinated by MOA Project Management Unit – AfDB, IFAD)
◦ Designed by Task Force with virtual support by facilitator
◦ Resulted in a program description (proposal) to be submitted by MOA to
donors
◦ Includes Outreach Campaign and development of Implementation Strategy
(horse/carriage or chicken/egg)
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15. Minister of Agriculture submitting the policy
to the Government of Liberia for review and
ultimately adoption
Program to strengthen AEAS receives full
support from Deputy Minister of Rural
Development, Extension, and Research who
advocates with the Minister of Agriculture for
its submission to donors for funding
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18. Disclaimer
This presentation was made possible by the generous
support of the American people through the United
States Agency for International Development, USAID.
The contents are the responsibility of the author(s)
and do not necessarily reflect the views of USAID or
the United States Government.
Notes de l'éditeur
BackgroundPost-conflict countryRecovering from decades of mismanagement and 14 years of brutal civil warRemains a fragile statePresident Eleanor Johnson Sirleaf moving the country forward since 2006, re-elected in 2011More than 2/3rds of 4 million population engaged directly or indirectly in smallholder subsistence agricultureHeavy reliance on food imports (2009 – 30% of total imports; of this rice = 40% of food imports)Ag yields low (rice=1 MT/ha); post-harvest losses high; value chains severely underdeveloped
History:Ag Ext Service established 1960; top-down system, focus on technology transfer T&V less effective than cost warrantedAll extension services completely collapsed due to Civil War; following the war, the international community (primarily UN agencies and NGOs) provided extension assistanceCurrent StatusRebuilding public system – challenged by lack ofAccessible improved technologies and practicesClient-based program planning, implementation, M&EAdequate human, infrastructural, institutional capacities – limited human capacity, limited equipment for offices and demonstrations, and very poor infrastructure such as roads, market places, etc.; Sufficient fundingMany NGOs, limited private sector (rubber, oil palm)Preoccupation with distribution of inputs – often for freeUncoordinated, duplicative services of varying quality
Appoint Task Force MOA/USAID/FED membersTask force revises 2009 draft policyEngage FacilitatorPrepare Task ForceIdentify time-frame and develop meeting/products scheduleInform the process:-Review definition and purpose of policy: A policy is a formal statement of a principle or rule that members of an organization must follow. Policies address issues important to the organization’s mission or operations. At its most basic, policy is a course or principle of action, adopted or proposed by a government part business or individual (Australian Concise Oxford Dictionary). Common to most policies: state matters of principle,; focus on action, identifying what is to be done and by whom (NOT NECESSARILY HOW); provide an authoritative statement, made by a person or body with power to do so; and are a tool which makes administration easier, and allows peple to get the core business work of the organization done more efficiently and effectively. -Examine global trends in extension reform – decentralization, pluralistic, demand-driven, farmer-led, participatory-Examine other country policies (few other policies from Africa available at that time – reviewed the Malawi, Ghana, and Bangladesh policies)Obtain Additional Stakeholder InputMOA HQ staff: Deputy Minister written request to MOA staff for inputNGO representatives, agriculture educators, donors, private sector actors:Face-to-face formal and informal individual and group discussions and meetings E-mail survey (what are the particular agricultural extension and advisory services related policy issues that you believe should be addressed in the policy?)County-level officials (elected, appointed, other ministry) and field staff (MOA, project): Field visitsDiscuss and Debate Draft and Revise Policy – numerous revisions and drafts Hold Stakeholder Validation WorkshopDay-long workshopDraft document sent for their review prior to the workshopParticipants: lawmakers, donors and international technical institution representatives , agriculture educators, NGOs, other ministry staff, MOA field staff, private sector representatives, farmers, representatives of cooperativesOrganized by the Task Force into different groups to discuss and provide feedback on different parts of the policyFinalize Policy Document – incorporate input from workshop
Policy name: AE, EAS, RAS, AEASDocument detail and lengthTo include/not include the “how” of the policy and why/why notThe extent to which stakeholder input was incorporated in the policy Decision based on relevance and direction of policy: e.g., inclusion of donors as stakeholders; emphasis on ag education; some stakeholders wanted specifics of approaches mandated – decided not to mandate a specific approach
Areas of policy intervention (elements) to include and which to emphasize or de-emphasize and whyEmphasizedSystem characteristics (pluralistic, decentralized, demand-driven, market-oriented, cross-cutting issues of priority to Liberia: gender, HIV/AIDS, special needs farmers, climate change, NRM)Client stakeholders and geographic coverage (stakeholders: all engaged in AEAS – receiving and/or providing; coverage – national)Content, approach, and methods – content: all aspects of agriculture including livestock and fisheries; emphasizing importance of framing content within the context of farming as a business. Approach and methods – specific approach/methods not mandated but strongly encouraged group based approaches, use of ICT, and approaches/methods that are grounded in best practices, participatory, empower clients, and are sustainableActor roles and responsibilities (MOA, local county authorities, private sector including firms and women, men, and young farmers and their organizations; civil society including NGOs, CBOs, ag ed institutions, donors and technical agencies)Important statement regarding MOA role of coordinating, M&E, and regulating – gradually withdrawing from direct service delivery – but continuing to provide in the absence of others – difficult issue: MOA is, in some ways, the least able to reach clients, particularly those most vulnerable, yet the MOA is the default providerCoordination and consultation of farmers, providers, other civil society and private sector actors (researchers)Best Practices Group (alternative to r-e-f links) – new way of sourcing/identifing information on new or improved techs and practices and packaging them for ease-of-use by extension providers, producers, processors, etc. Involve anyone who has access to, or knowledge of, these new or improved techs and practices – farmers, researchers, experts from NGOs, teachers, donors, technical agencies, input suppliers, etc. Not only r-e-f linkages. Which, apologies, but I have rarely, if ever, seen actually work except in situations where the ag sector is higly-developedCoordination mechanisms – to be detailed – existing ACC, 3 platforms (1-farmers; 2-AEAS providers; 3-anyone having access to remunerative new or improved at tech and practices Given Less Emphasis-FundingPolicy states MOA will provide adequate funding – Liberia is working toward the CAADP goal of 10% of national budget to agriculture – The GOL is committed to agriculture development and is working hard to revitalize agriculture as the bedrock of the economy. Due to the prolonged social, economic, and human crisis due to the war, the cost of rebuilding the country is enormous. Un 2008/2009 the country was able to allocate 2.3% of its national budget to agriculture. It was decided that because of the situation, it would not be productive to try and provide further details of public sector funding for AEAS.-StaffingTension between MOA desire to staff-up at the county and district levels and the subsequent recurrent costs plus the limited pool of qualified applicants-Capacity DevelopmentPolicy recognizes the critical importance of capacity development yet leaves the details to be developed in the implementation strategy for the policy