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Climate, Food, TradeAnalysis of Institutional Interplay and

Information Exchange

Tanzania

Climate, Food, TradeAnalysis of Institutional Interplay and Information Exchange

Tanzania

Published by:

CUTS International, Geneva37-39 rue de Vermont, 1202 Geneva, SwitzerlandPh: +41(0)22 734 6080 | Fax: +41(0)22 734 3914Email: [email protected] | Web: www.cuts-geneva-orgSkype: cuts.grc

Authors:Dr. Oswald Mashindano andSolomon Baregu

In Partnership with:Economic and Social Research Foundation (ESRF)51 Uporoto Street (Off. Ali Hassan Mwinyi Rd.) Ursino EstateP.O.Box 31226 Da es SalaamPh: +255 2926084-90, Fax: +255 22 292683Web: www.esrftz.org

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Swedish International DevelopmentCooperation Agency (Sida)

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ISBN: 978-81-8257-226-3

© CUTS International 2015

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Contents

Acknowledgments ........................................................................................................................ i

Note on Authors ......................................................................................................................... iii

Acronyms .................................................................................................................................... v

Executive Summary ................................................................................................................... vii

1. Introduction .......................................................................................................................... 1

1.1 Background and Context ................................................................................................ 1

1.2 Problem .......................................................................................................................... 1

1.3 Objectives ....................................................................................................................... 2

1.4 Rationale ........................................................................................................................ 3

2. Study Findings ....................................................................................................................... 4

2.1 Local Government Organisation Structure ..................................................................... 4

2.2 Case Studies ................................................................................................................... 8

2.3 Realities of Institutional Coordination, Legal and Budgetary Processes .......................... 9

2.4 Interactions of Different Institutions Involved in Agriculture,Climate Change and Trade ........................................................................................... 12

2.5 Formal and Informal Linkages Between District Councils andthe Central Government ............................................................................................... 15

2.6 Existing Gaps and Challenges ....................................................................................... 17

3. Conclusions and Recommendations .................................................................................... 20

3.1 Conclusions .................................................................................................................. 20

3.2 Recommendations ........................................................................................................ 20

Appendices ................................................................................................................................ 24

References ................................................................................................................................. 33

Endnotes .................................................................................................................................... 34

List of Tables, Figures and Boxes

Table 1 Selected Respondents ............................................................................................. 25

Figure 2.1 The Local Government: Central Government Linkage .............................................5

Figure 2.2 Map of Study Areas ................................................................................................. 8

Figure 2.3 Tea Estate in Njombe Rural District ........................................................................ 9

Figure 2.4 Sesame at Masasi District ........................................................................................9

Figure 2.5 The Agriculture, Climate and Trade Institutional Interactions ............................... 12

Box 2.1 Information Sharing System .................................................................................... 11

Box 2.2 Farmers Shift to Charcoal ...................................................................................... 11

Box 2.3 Transparency of NSAs Projects .............................................................................. 15

Box 2.4 Resource Gap ........................................................................................................ 18

Acknowledgements

The research team would like to express their gratitude to everyone who has beenhelpful in making the research a reality. We are truly thankful to the Director of CUTSInternational in Geneva, Rashid S. Kaukab, for his guidance and thoughtful advice; thePACT EAC Project management team in Geneva, Nairobi, and Jaipur namely JulianMukiibi, Clement Onyango, Julien Grollier, Samantha Pinsak, and Munu M. Luther.

Our sincere appreciation also goes to the Executive Director of the Economic andSocial Research Foundation, Hosseana B. Lunogelo for his tireless efforts in ensuringthat the project is a success. We are also indebted and equally grateful for all the supportprovided by colleagues at the Economic and Social Research Foundation (ESRF) with anotable mention of Tausi Kida, Donatilla Kaino and Jacqueline Mwijage.

We would sincerely like to mention that we have no definite illusions on how thispublication will serve Tanzania. However, it is our hope that it will give an impetus tothought provoking discussion on how to improve the institutional interplay onagriculture, climate and trade related issues.

iClimate, Food, Trade: Analysis of Institutional Interplay and Information Exchange

iiiClimate, Food, Trade: Analysis of Institutional Interplay and Information Exchange

Note on Authors

Oswald Mashindano holds a Ph.D. degree in Economics from the University of Dar-es-Salaam, Tanzania (1998). He is currently a Lecturer of Economics at the same University.He also worked with the Economic and Social Research Foundation (ESRF) for fiveyears as a Senior Research Fellow and Coordinator of Research and Monitoring. He isthe author of research reports, papers and books in the areas of agriculture, food security,rural development, climate change, policy analysis, growth and public expenditure.

Solomon Baregu is a young and vibrant expert in trade and regional integration issuesand an Assistant Research Fellow at ESRF. He has acquired extensive experience inother research areas such as in agriculture, climate change and food security in theEastern Africa region. He has also been involved in the analysis of agricultural commodityprices since 2011, analysing different agricultural commodities produced and traded inTanzania and across the world. Among the most recent publications that he has co-authored a chapter is titled �The Istanbul Programme of Action for the LDCs: MonitoringDeliverables, Tracking Progress� published by the Commonwealth Secretariat. Bareguholds a Master�s Degree of Business Administration in International Business from IndiaInstitute of Foreign Trade (IIFT) in collaboration with Institute of Finance Management(IFM) in Tanzania and a Bachelor degree of Business Administration in Economics fromTumaini University- Iringa University College.

vClimate, Food, Trade: Analysis of Institutional Interplay and Information Exchange

Acronyms

ACT: Trade, Climate Change and Food Security

ASLMs: Agricultural Sector Lead Ministries

BO: Beekeeping Officer

CAVA: Cassava Adding Value for Africa

CBOs: Community Based Organisations

CC: Climate Change

CMT: Council Management Team

CSOs: Civil Society Organisations

DAICO: District Agricultural, Irrigation and Cooperatives Officer

DLFO: District Livestock and Fisheries Officer

DAS: District Administrative Secretary

DC: District Commissioner

DCCs: District Consultative Council

DCDO: District Community Development Officer

DHRO: District Human Resources Officer

DLO: District Legal Officer

DRO: District Reforms Officer

DDPs: District Development Plans

DED: District Executive Director

DESO: District Environmental and Sanitation Officer

DLNRO: District Land and Natural Resources Officer

DPLO: District Planning Officer

DSAs: Daily Subsistence Allowances

EMA: Environmental Management Act

ESRF: Economic and Social Research Foundation

FBOs: Faith Based Organisations

FFS: Farmer Field Schools

FIP-Africa: Farmer Input Promotion Africa

GDP: Gross Domestic Product

LGA: Local Government Authority

M&E: Monitoring and Evaluation

MAFC: Ministry of Agriculture, Food Security and Cooperatives

MDGs: Millennium Development Goals

MoIT: Ministry of Industries and Trade

vi Climate, Food, Trade: Analysis of Institutional Interplay and Information Exchange

MoU: Memorandum of Understanding

MP: Member of Parliament

NADO: Njombe Agricultural Development Organisation

NAP: National Agricultural Policy

NAPA: National Adaptation Programme of Action

NCCS: National Climate Change Strategy

NEMC: National Environmental Management Council

NEP: National Environmental Policy

NFRA: National Food Reserve Agency

NFSP: National Food Security Policy

NGOs: Non-governmental Organisations

NSAs: Non State Actors

NSGRP: National Strategy for Growth and Reduction of Poverty

NTP: National Trade Policy

O&OD: Opportunities and Obstacles for Development

PACT-EAC: Promoting Agriculture, Climate, Trade Linkages in the East AfricanCommunity

PFM: Participatory Forest Management

PFP: Private Forest Programme

PMO-RALG: Prime Minister�s Office Regional Administration and Local Government

RAS: Regional Administrative Secretary

RC: Regional Commissioner

RCC: Regional Consultative Council

REDD: Reduced Emissions from Deforestation and Forest Degradation

SDGs: Sustainable Development Goals

SUA: Sokoine University of Agriculture

TAHA: Tanzania Horticultural Association

TANESCO: Tanzania Electric Supply Company

TASAF: Tanzania Social Action Fund

TRA: Tanzania Revenue Authority

UDSM: University of Dar-es-Salaam

VEOs: Village Executive Officers

WDC: Ward Development Committee

WEOs: Ward Executive Officers

WRS: Warehouse Receipt System

Executive Summary

As the link between Agriculture, Climate, and Trade (ACT) proves to be strong inTanzania, different non state actors with close relationships with the government ofTanzania have continued initiating new activities that aim to facilitate smooth interplaybetween different institutions involved in ACT. The government has put forth severalnational policy frameworks that act as a blueprint towards attaining inclusive and socio-economic growth. However, major challenges or gaps (weaknesses) exist that hamperimplementation of these National Policy Frameworks, such as low involvement orparticipation and limited capacity of the key players and institutions, particularly thoseat lower levels.

In view of the limited involvement and implementation capacity of key players at lowerlevels, poorly adopted institutional framework and its interplay, and therefore overallperformance of the ACT at District Council levels led to an urgent need to addressimplementation challenges at lower levels by way of understanding the functioning ofthe institutions as well as the challenges they face.

This study therefore has attempted to identify, understand and suggest improvements ofthe institutional interplay from the local to the national level for the holistic tackling ofthe three issues of climate change, food security and trade. To do so, the study focuseson institutional, legal, financial bottlenecks and skills gaps in planning, budgeting, andimplementation of ACT-related plans. It also seeks to acknowledge and support thecurrent efforts by the government and various stakeholders in mainstreaming theenvironment, climate change, food security, and trade initiatives in the planning andbudgeting processes at different levels.

It is envisaged that through the study recommendations and conclusions highlighted inthis publication, the relevant stakeholders including the government, non state actors,farmers, traders and even environmentalists would agree on a framework that wouldenable each one of them work in a well-coordinated manner that would eventually helppromote agriculture, climate and trade-related issues.

viiClimate, Food, Trade: Analysis of Institutional Interplay and Information Exchange

1Climate, Food, Trade: Analysis of Institutional Interplay and Information Exchange

Chapter 1

Introduction

1.1 Background and ContextThrough the project titled, �PromotingAgriculture, Climate, Trade Linkages in the EastAfrican Community (PACT EAC),� nationalstudies were conducted from 2011 up to 2013in the five East African countries of Tanzania,Kenya, Rwanda, Burundi and Uganda. Thesestudies focused mainly on understanding howagriculture (food security), climate change, andtrade (ACT) relate to each other, as well asbuilding the capacity of key stakeholders andinstitutions to develop and implement holisticresponses in the context of relevant internationalregimes, particularly those related to trade,agriculture and climate change.

For each country, the studies identified key policyrecommendations. A common need for ensuringinter-institutional coordination and policycoherence on the three critical issues of climatechange, food security, and trade is paramountand discernable. In Tanzania, the studyrecommendations included the need to align tradepolicy to climate change and food securitychallenges. Thus, issues related to institutionalframework (functioning of institutions)coordination, linkages, surveillance andmonitoring, as well as the legal and regulatoryframework governing various levels of thegovernment are among the major pertinent areas.

Building on the above recommendations, it wasfelt and agreed that there is a need for furtherfocussed studies to identify, understand, andimprove the institutional interplay from the localto the national level for a holistic tackling of thethree issues of climate change, food security and

trade. As noted earlier, Tanzanian researchfindings published in 2013 show clearly thatclimate change as a global phenomenon is hereto stay, and its effects on all aspects of humanlife are manifesting themselves across all walksof life in the country. It is also recognised thatthe fight against harmful climate change impactsis a shared responsibility among all the countriesas well as stakeholders.

Accordingly, as we shall see in section 1.3,understanding and analysing institutionalinterplay and the associated link to ACT is thefocus of this study, and emphasis has been madein regards to both vertical as well as horizontalinstitutional interplay.

This study has therefore focussed on two districtsas case studies (See Chapter 2, Section 2.2).

1.2 ProblemAmong the major challenges or gaps(weaknesses) facing implementation of theNational Policy Frameworks (such as theNational Five years Development Plan � 2011-12 to 2015-16), National Strategy for Growthand Reduction of Poverty (NSGRP) andMillennium Development Goals (MDGs), andtherefore inclusive economic growth in Tanzania,are the low involvement or participation, andlimited capacity, of the key players andinstitutions, particularly those at lower levels,namely the District Councils (District, Ward andVillage levels), but also higher institutional levels,namely the regional Secretariat and centralgovernment levels. Players, actors andinstitutions at lower levels are the key

2 Climate, Food, Trade: Analysis of Institutional Interplay and Information Exchange

implementers of all the National PolicyFrameworks (See also Figure 2.1). Thus,successful implementation of any plan, policy,strategy, or programme will largely depend onplayers at the local government level (incollaboration with central government), yet thereis not only limited involvement, but also limitedcapacity (including skill, competencies andresources) of these important stakeholders,which is largely caused by a poor institutionalframework as well as institutional interplaygoverning the national development framework.

For most District Councils, not all the ACTcomponents (e.g. environmental related activitiessuch as management and conservation of forestresources, enforcement of rules and regulation,agricultural extension services and budgets, aswell as trade facilitation through reduction oftariff and non-tariff barriers) appear to be partof the priority projects or activities identifiedduring the planning and budgeting processesdespite their strong influence on national foodsecurity, the mitigation of climate changeimpacts, and trade. The national planning processin Tanzania begins at lower or community levelsand it is guided by an Opportunities andObstacles for Development (O&OD) planningtool. O&OD is a planning instrument that wascreated by the government during the early2000s. This tool allows community members toprioritise activities for implementation. Theprocess entails a few District Officials comingto the villages and organise sessions where, undertheir guidance, community members identify andmake a list of obstacles (challenges) andopportunities they have experienced over the pastyear in the village, discuss them, and finally comeup with the priority list of activities (projects)which they propose should be taken on board.The agreed proposal of priorities is afterwardssubmitted to the higher level, i.e. Warddevelopment Committee (WDC), for furthersteps.

However, whenever the ACT related projectsor activities such as gender, agriculturalextension and support services, afforestation,non-tariff barriers, etc. are integrated in theDistrict Development Plans (DDPs), the

necessary resources (budgets) from the centralgovernment are not forthcoming as requested,thus making it difficult to implement the projects.In some cases, this has a serious implication onfood security, climate change, as well as tradeperformance.

In view of the limited involvement andimplementation capacity of key players at lowerlevels, poorly adopted institutional frameworkand its interplay, and therefore overallperformance of the ACT at District Councillevels, there is an urgent need to addressimplementation challenges at lower levels by wayof understanding the functioning of theinstitutions as well as the challenges they face.The interventions must include buildingcapacities necessary at various levels toimplement ACT related plans and policiescoherently and cognizant of their inter-relation,including financing the respective budgets.

1.3 ObjectivesThis survey therefore is intended to identify,understand and suggest improvements of theinstitutional interplay from the local to thenational level for the holistic tackling of the threeissues of climate change, food security and trade.The inquiry focuses on institutional, legal,financial bottlenecks, and skills gaps in planning,budgeting, and implementation of ACT- relatedplans.

The specific objectives of this study are thereforeas follows:

(a) To identify and examine the differentinstitutions (both public and private), aswell as their interactions in relation toACT in Tanzania, with a view to outliningthe current status of institutional interplayrelated to ACT at the district level

(b) To examine the formal and informallinkages between district and nationalpolicy-making and implementationrelated to ACT, with a view to outliningthe current status of the flow ofinformation/inputs from the district level


to the national level, and of the flow ofpolicy directions/explanations from thenational to district level

(c) To identify existing gaps andshortcomings both at the vertical (i.e.between the district and national level)and horizontal (i.e. between the localgovernments, e.g. districts, wards andvillages) levels, and makerecommendations to address them forbetter policy and institutional coherence.

1.4 RationaleThe rationale for this study is three-fold. First,because Tanzania is largely dependent on naturalresources, or natural environment, for food andtrade, a study on the institutional capacity inrelation to climate change, food security and

trade is not only relevant but also pertinent tothe country. Secondly, the note seeks toacknowledge and support the current efforts bythe government and various stakeholders inmainstreaming the environment, climate change,food security, and trade initiatives in the planningand budgeting processes at different levels. Lastly,it should identify institutional weaknesses andexisting gaps in integration (and implementation)of the natural environment and climate change,food security, and trade components in planning,budgeting processes and implementation. Theseobjectives are critical in improving and ensuringall environmental and climate change, foodsecurity and trade components are adequatelytaken on board in planning and budgeting as wellas implementation, thus improving therelationship, quantity, and quality of ACTperformance.


Chapter 2

Study Findings

2.1 Local Government OrganisationStructure

2.1.1 District Council�s OrganisationStructure, Leadership, and Public ServiceDeliveryEach District Council in Tanzania is made up ofdivisions, which are then further sub-divided intowards, village councils and streets (the smallestgovernment administrative unit). Though limited,the District Councils have autonomy in theirgeographic area. These Councils coordinate theactivities of the township authorities, ward andvillage councils, which are accountable to thedistrict for all revenues received for day-to-dayadministration. The village, ward, and townshipcouncils have the responsibility of formulatingplans for their areas.

There are also a number of democratic bodiesthat debate local development needs. Theleadership in the ward, village, and streets iscomposed of an elected chairperson (villages andstreet), Executive Officers (wards and villages),and other members, all of whom serve on anadvisory committee.

Democratic elections for the Councils are heldevery five years. Elected members of theirrespective authorities indirectly elect thechairpersons and mayors. The village assembly,comprised of all adults over the age of 18, electsthe members of village councils. The DistrictCouncil is made up of the members elected fromeach ward (Councilors) and the Member ofParliament (MP) representing the constituency.The number of women appointed to the Council

is not less than one-third of ward representativesand the MPs combined.

District Council management is a multi-sectoraland cross-sectoral organ that requires a holisticapproach and multi-level operation. The day-to-day activities are run by the Council ManagementTeam. The Council management is headed andled by a District Executive Director (DED) whois assisted by the following Heads ofDepartments: District Planning Officer (DPLO),District Agricultural, Irrigation and CooperativesOfficer (DAICO), District Livestock andFisheries Officers (DLFO), Beekeeping Officer(BO), District Land and Natural ResourcesOfficer (DLNRO), District Environmental andSanitation Officer (DESO), District CommunityDevelopment Officer (DCDO), District HumanResources Officer (DHRO), District LegalOfficer (DLO), District Reforms Officer (DRO),Ward Executive Officers (WEOs), VillageExecutive Officers (VEOs) and VillageChairperson. The other supporting functionsinclude the following sections: Procurement,Legal, Audit, Information and CommunicationTechnology, and Supplies.

The current legislation assigns the following basicfunctions to the Council: (a) Maintenance of law,order and good governance (which are criticalfor facilitating development programmesincluding ACT related projects); (b) Promotionof economic and social welfare of the peoplewithin its area of jurisdiction; and (c) ensuringeffective and equitable delivery of qualitative andquantitative services to the people within its areaof jurisdiction. In addition to the basic functions,


the Council is charged with seven other functionsand duties, as follows: (a) Formulation,coordination and supervision of theimplementation of all plans for economic,industrial and social development in its area ofjurisdiction; (b) Monitoring and controlling theperformance of duties and functions of theCouncil and its staff; (c) Ensuring the collectionand proper utilisation of the revenues of theCouncil; (d) Making by-laws applicablethroughout their areas of jurisdiction, andconsidering and improving by-laws made byVillage Councils within its area of jurisdiction;(e) Ensuring, regulating, and coordinatingdevelopment plans, projects, and programmes ofvillages and township authorities; (f) Regulatingand monitoring the collection and utilisation ofrevenue of village councils and townshipauthorities; and (g) Subject to the laws in force,doing all such acts and things as may be done bya people�s government. Although in the currentlegislation the above functions have been assignedto the Council, this study found that some of theservices and infrastructure are still beingprovided by the central government or itsexecutive agencies. Also, most of the funding(about 90 percent) still comes from the centralgovernment.

Most of the District Council�s income comesfrom the central government allocations (throughthe Prime Minister�s Office RegionalAdministration and Local Government (PMO-RALG), which on average account for about 90percent of the entire Council�s approved budget.The Councils also raise revenue locally. The mainsources of local income come from: fees includingtaxi registration, bus stands, forestry products,valuation, scaffolding, inoculation andambulance; licenses, including road and liquor;property taxes and rent; charges, including forrefuse collection, crop cess, hire of vehicles,markets; fines; and others including sale of assetsand recovery of public funds. Generally speaking,the revenue base of the Councils is weak (lessthan 10 percent of approved budget), and isgetting weaker as some of the revenue is shiftedto the central government through the TanzaniaRevenue Authority (TRA). In addition, therecent requirement by the ParliamentaryCommittee that 60 percent of the internalrevenue should be directed to developmentprojects is constraining even further the effectiveimplementation of the Councils� operations andservice delivery functions.

Source: Author�s Elaborations

Figure 2.1: The Local Government - Central Government Linkage


2.1.2 Institutional Coordination, Legal, andBudgetary Processes

(a) Institutional CoordinationThe District Councils� governance system isholistic, i.e. multi-sectoral, government unitswith a legal status (body corporate) operatingon the basis of discretionary, but general, powersunder the legal framework constituted by thenational legislation, Local Government Authority(LGA) Act of 1982. As pointed out earlier, thelocal government has the responsibility for socialdevelopment and public provision within itsjurisdiction, facilitation of maintenance of lawand order and issues of national importance suchas education, health, water, trade, managementof the natural environment, roads, agriculture,livestock, and fisheries, and is the legal owner ofthese assets. The local government has aconstituted unitary governance system based onelected counsellors and committees and aprofessional administration. However, water andnational truck roads services are not under theresponsibility of the district. The Ministry ofWater owns and operates water intakes,treatment and distribution facilities.TANROADS develops and maintains thenational road system. The supply and distributionof electricity in Tanzania is the responsibility ofthe Tanzania Electric Supply Company(TANESCO). Other civil works have beenfinanced and directly implemented by the centralgovernment, though the ownership of theresulting assets remains local. Local governmentresponsibilities include: local planning,development control, provision of local roads,and environmental management (such asdrainage and solid waste management, andenvironmental health functions). Trade and foodproduction cut across both the centralgovernment authority and the local government.

Overall, the District Councils� staff reportedthat, with the exception of some areas, theinstitutional framework is satisfactorilysupportive and to some extent enablesimplementation of DDPs at the district levelincluding wards and village level. Nonetheless,it was revealed that the Council would like tohave more autonomy, specifically financial

discretionary powers (i.e. more powers todetermine and levy local taxes and generate moreown resources). These Councils would also likethe central government to supply adequate andtimely grants. The late and unstabledisbursements are hindering the effectiveimplementation of DDPs. In addition, theCouncils� inability to recruit personnel is creatinga perpetual human resource gap.

As to the role of the central government vis-a-vis the Councils, the inter-governmental relationswith central government are good. However,sometimes the over-riding powers and ordersfrom the Sectoral Ministries and GovernmentAgencies cause confusion and unease during theDDP implementation. A typical case is theconflict between the implementation of certaincomponents of the Environmental ManagementAct, 2004 (EMA, 2004), and the Councils� by-laws. Since developmental issues are expectedto be more complex with the onset of greeneconomic growth and the designed SustainableDevelopment Goals (SDGs), there is a need toreview the role and functions of the Council andharmonise certain legislation of line ministrieswith those of the Councils� by-laws. With thisrespect, ministries responsible for agriculture,trade, as well as the environment must have away to integrate their activities directly withrespective district departments so as to ensureeffective implementation of the set national goalsand objectives.

For instance, the EMA, 2004, and by-laws onthe environment need to be harmonized.Furthermore, there is a need to redefine and makeclear the role of non-governmental organisations(NGOs), Community Based Organisations(CBOs), and other non-state actors (NSAs) inthe governance system of the Councils to increasethe efficiency and effectiveness of mainstreamingand implementing the natural environment,climate change (CC), food production and tradeactivities, mobilisation of resources, monitoringand evaluation, and reporting. Currently, theNSAs are invited to participate in the annualplanning process when it is in the midstream,but some do not respond.


(b) Legal FrameworkAll local government authorities were establishedunder the LGA Act of 1982. LGAs exist for thepurpose of consolidating and giving more powerto people to competently participate in theplanning and implementation of developmentprogrammes within their respective areas and onthe national level. In fulfilling the basic functionof economic and social welfare of the people, itis crucial to have in place laws that facilitate foodproduction, trade, and protect the environment.As elaborated in the institutional framework andits structure, the LGA is positioned as animplementer of policy and directives from thecentral government through the respectivedepartments. This includes inter alia legal issuesand environmental laws in particular.

The existing legal framework allows for twolevels: national law (Parliamentary Act �sheriamama) and the by-laws. The by-laws are set atthe district and the village levels. The importantthing to note here is that the district level by-laws are supposed to be consistent with thenational laws under the Parliamentary Act. Thevillage by-laws are also supposed to be consistentwith the District Council by-laws, and areapproved by the counselors through the FullCouncil Meeting.

(c) Budget ProcessThe budget preparation process uses theguidelines from the central government (Ministryof Finance) and follows the normal agreednational budget cycle. As per budget guidelines,the budget processes are supposed to start fromthe lower level through the O&OD principles.This approach requires all the processes to startfrom the grassroots (hamlet or street level),through the Village, Ward, District Council,Regional Councils, and finally to the nationallevel. The exercise of prioritising developmentprojects starts at the hamlet (Kitongoji) level,which is comprised of a number of households.The agreed priority projects are then submittedto the village level to form village priority projectsfor that period. The village general meeting isthe level where agreed development priorityprojects are approved. Village plans are thensubmitted and analysed at the ward level to form

the ward plans that are approved by the WDC.Some of the priorities, however, areconceptualised and agreed at the ward level.

Priority development projects and plans approvedat the WDC are then submitted to the DistrictCouncil level. These development priorities arethen discussed through the respectivedepartments at the district level, and thesynthesised report is discussed and approved bythe Council Management Team (CMT).1 At thelevel of District Council the planning processgoes through various stages before the approvalby the Full Council. These levels include thedepartment level, where ward plans are receivedand analysed and synthesised into district plans.These plans are analysed and discussed in variousdepartments of the Council, and thendepartmental plans are harmonised to formdistrict plans. The latter are then discussed inthe Workers� Council to see whether all matterspertaining to workers� affairs are adequatelyaddressed. Then the Stakeholders2 meeting iscalled upon by the Council to discuss the districtplans and include issues from NSAs, and thenthe plan is eventually reviewed by various districtcommittees which are all chaired by theCouncilors. The committees are: Financial,Administration and Planning; Economic,Infrastructure, and Environment (this includesgender issues); Education, Health, and Water;Coordination, Control, and HIV/AIDS; andEthics. As noted earlier, trade and foodproduction cut across various committees, suchas Planning, Economic, Infrastructure andWater. Finally, the plan is discussed and votedupon by the Full Council. The Full Council isthe highest governance organ at the district levelfor approving plans and the budgets. It is worthmentioning here that, like in committees, the FullCouncil is also chaired by a Councilor, and inthe four committees and the Full Council, thedecisions are made by the Councilors only (thetechnical cadre/district subject matter specialistsare not allowed to vote).

The plan is then submitted to the RegionalCouncil, where all district plans are consolidatedinto a regional plan, and finally submitted to theMinistry of Finance through PMO-RALG. The


Ministry of Finance then submits the ceilings(maximum budget levels per district) to districts,and the districts review and scale down theirbudget levels so that they are in line with theceilings (some priorities and projects are normallyabandoned at this stage).

2.2 Case Studies

2.2.1 Observation AreasThis study has been undertaken through casestudies of two district councils. These districtsare Njombe Rural in Njombe Region and Masasiin Mtwara Region (See Figure 2.2).

These two districts have been purposivelyselected due to their potential for agriculturalexports that has been, and would be, affected by

climate change over time. While Njombe RuralDistrict has potential in the production ofcommercial crops such as flowers, tea, fruits andvegetables as well as forest products, Masasi isone of the major producers of cashew nuts andsesame.

Other crops produced in Njombe Rural aresunflower, round potatoes, maize, paddy, coffee,beans, and a variety of horticulture products.Other crops grown in Masasi are: maize,groundnuts, beans, fruits, etc. Also important tomention is the fact that these districts arecharacterised by not only the environmentaldegradation, such as deforestation, but alsoclimate change impacts, food insecurity, andtrade deficiencies.

Figure 2.2: Map of Study Areas


There are also high levels of poverty, genderdisparities, and the opportunities to reducepoverty through sustainable management ofdomestic natural resources, climate changeadaption (and mitigation), and especiallysustainable trade of forest products. Note alsothat the selection of the two districts wasmotivated by an active presence ofcomplimentary interventions and local actors�readiness to engage in the natural environmentaland ACT activities, as well as the goal tointegrate them in the DDP and budgeting.

In Njombe for example, a joint programmebetween the Government of Tanzania and theFinnish Government was launched in January2014. This programme is commonly known asPrivate Forest Programme (PFP) and is initiallyimplemented in the six districts of the SouthernHighlands. These are Njombe, Makete, Ludewa(in Njombe Region), Kilolo and Mufindi Districtsin Iringa Region, and Kilombero District inMorogoro Region. The programme is intendedto promote commercial tree planting throughfarmers groups.

2.3 Realities of InstitutionalCoordination, Legal, and BudgetaryProcesses

2.3.1 NjombeAccording to the DESO and the DAICO, thefollowing are the legal challenges facing the LGAsin implementing environmental, trade, and foodproduction initiatives. For District Council by-laws to work, they need approval from theministry (PMO-RALG). Experience has shownthat it takes a long time to achieve this approval,sometimes more than a year. With such a delayand the fact that people at the local level (village)do not have the capacity (skills in particular) toprepare their own by-laws, any decisions thatare to cater to ACT are often hampered. Forexample, when there is low agricultureproduction due to a number of tariffs imposedat the district level, traders often find it costly totrade. Thus, for such district by-laws to bewaived to allow for movement of the crops, thetime taken would eventually reach the nextcropping season, making them not useful.

The DPLO was of the view that, in some areas,government parastatals and NSAs were notresponsive because of the conservative thinkingthat they are independent entities outside theCouncil�s loop. On the other hand, the NSAsinvite the Councils in their planning processes,but rarely share their plans or progress reports,making collaborative arrangements difficult,sometimes leading to duplication of efforts.Although the Councils and NSAs work withcommunities in assisting and advising them onall aspects of social economic development andenvironmental protection, food security andtrade, the challenge remains on how to identifyeconomically attractive projects, how tooptimally share the resources, and how toharmonise the implementation process, since theCouncils and NSAs have different missions,objectives, and reporting systems.

Another major challenge comes through theimplementation of these by-laws both at thedistrict and village level. This part requires,among other things, commitment and financialresources, which are lacking to a large extent.

Figure 2.3: Tea Estate in Njombe Rural District

Figure 2.4: Sesame at Masasi District


For the successful implementation ofenvironmental by-laws, commitment of leadersat different levels is very crucial. Financialresources to facilitate implementation, such astransport, daily subsistence allowances (DSAs),and other incidental allowances for environmentofficers� visits, are very important. Officialbudget statistics have shown that substantial gapsexist between approved and disbursed funds.

Note also that despite some persisting gaps andweaknesses, institutional processes andmechanisms for coordination of developmentplanning and implementation are fairlysupportive and enable the implementation ofDDPs at district level, including wards and villagelevel. The key challenges however are theinadequate financial and human resources andworking tools. Some examples of these are a lackof appropriate and reliable software and datamanagement facilities for management,coordination, performance review, monitoringand evaluation (M&E), quality assurance, impactevaluation, lack of access to fast internetconnection, and limited transportation facilities.

The district planning specialists mentioned thatone of the major challenges in the budgetpreparation cycle is that the budget ceilingusually comes very late from the Ministry ofFinance, which makes repackaging the budgetextremely difficult.

Though the budgeting and planning processes arestandard as shown in the guidelines, the mostchallenging part is in implementation, M&E andreporting. The following are some of thechallenges identified at the focus groupdiscussions involving selected heads ofdepartments and sections in of the Councils:

(a) Inadequate internal revenue sources,which account for less than 10 percentof the budget. Internal revenue sourceswere previously used to cover internalexpenditures (which were mostlyrecurrent), but for the current budget(2014-15), the Districts were instructedby the Parliamentary Committee that 60percent of the internal revenue should beallocated for development projects. The

challenge here is how to fill the gap as faras internal expenditure is concerned.

(b) Miss-match between the budget approvedby Full Council and regional level versusthe ceiling received from the centralgovernment, which is normally at thelower end. In order to accommodate theceiling, a number of identified prioritieshave to be dropped. To a large extent thishas raised questions at lower levels aboutthe relevance of the processes since onlya few (if any) of their priorities arenormally considered, but even thoseconsidered are not all fully implemented.All these demoralise the people at thegrassroots, especially when they havelaboured to make their contributions(mostly in terms of materials and ownlabour)

(c) Very late disbursement of the approvedresources to the District Councils makesit impossible to implement some of theplans given the time constraints. There isalways a gap between the budgetallocated and the amount of fundsreleased, and sometimes the process ofdisbursement is unreliable and not timely.

2.3.2 MasasiIn Masasi, every year a meeting is held, bringingtogether all relevant agriculture stakeholdersfrom the regional offices to the lower localgovernment authorities. People like the chairmenof all farmer groups, the Regional Commissioner(RC), District Commissioner (DC), RegionalAdministrative Secretary (RAS), DistrictAdministrative Secretary (DAS), and NSAs aresome of those attending such meetings. The soleaim and purpose of the meeting is to have opendiscussions on existing pertinent problems facingthe agriculture sector and all other cross cuttingsectors. Issues, such as agriculture prices forcashewnuts and the payment modality to befollowed, are discussed. However, the study wasinformed that these meetings do not often reacha compromise, and farmers blame thegovernment for making decisions that do notfavour farmers.


During the interviews, a member of ChikukweAMCOS claimed that this kind of platform andother information sharing systems that exist atthe local government authorities level can bedeemed more political due to lack ofimplementation on the agreed issues discussedin these meetings. This is precisely why mostfarmers lose hope and opt to engage in othereconomic activities, such as charcoal burning.Embarking on charcoal business in many districts,and Masasi in particular, is considered as anactivity that needs relatively low or no capital,with only the axe (panga) and the furnace to burnthe wood for charcoal production.

An observation was also made that, in somecases, farmers delivered their problems to theirMembers of Parliament (MPs), but to theirdismay, no concrete actions were taken toaddress their problems. With this, some claimedthat both the Councilors and MPs are people notto be trusted at all.

Among the main challenges reported by farmersare local taxes which are imposed on theiragriculture products in Masasi district, andMtwara region as a whole. For instance localtaxes imposed on sesame farmers was reportedto reduce producers� income by TZS 476 per kg,which is equivalent to 34 percent of the finalsesame price per kg. Such charges are adisincentive to farmers.

The Masasi District Planning Officer claims thatinstitutional processes and mechanisms forcoordination of development planning andimplementation at district, ward and villagelevels are supportive. However, the DAICOstates that for the case of agriculture andenvironment, there is yet clear demarcation ofresponsibilities between his department and thatof the environment. Such contradiction occursoften during the planting season when theEnvironment Department restricts farmers fromusing fertilisers for their crops. To theAgriculture Officer, this is viewed as steppinginto agriculture matters, which are none of theEnvironment Department�s concern.

Late disbursement of funds and payment forfarmers� agriculture produce from the Centralgovernment is among the major challengesreported to compromise agriculture and tradeperformance in Masasi district. This wasexpressed by farmers who cried foul play for latepayment by the government for their cashewnutproduce stored in the warehouses through theWare-house Receipt System (WRS). As such,farmers are demoralised and become incapableof investing more in the sector due to lack ofsufficient finances.

With overdependence on the central governmentfor the disbursement of funds, the Masasi TownCouncil Economist reported that it becomesextremely difficult for the district plans to beeffectively executed due to the financialdependency. The district is deemed to dependon more than 90 percent of its finances from thegovernment and development partners� projects- a situation very unlikely to facilitate ACT-related activities in the region.

Box 2.1: Information Sharing System

Information can be channeled right up to thedecision makers, but what next? Nothinghappens, it just becomes a formality to showthat all stakeholders have been involved butall pertinent issues that the government mayview as not beneficial to them will be dropped.

Chikukwe AMCOS, 21stDecember 2014

Box 2.2: Farmers shift to Charcoal

As farmers� concerns are used for otherpeople�s gain, nowadays many farmers are inthe charcoal business simply because there isan assurance of market and income isguaranteed instantly not after some time.

Farmer in Chikukwe ward, Masasi, 21st

December 2014


2.4 Interactions of DifferentInstitutions involved in Agriculture,Climate Change and TradeTanzania has attracted a number of players andinstitutions working in the area of ACT. Apartfrom the public institutions � such as the DistrictDepartment of Agriculture, Irrigation andCooperatives; Department of Lands and NaturalResources; Department of Environment andSanitation; and Department of Trade. There arealso NSAs, such as private organisations, CivilSociety Organisations (CSOs), CBOs, FaithBased Organisations (FBOs), InternationalOrganisations and Development Partners.

Existing public institutions, modes of interaction,information sharing, and networking aregenerally uniform across district councils mainlybecause they use the same guidelines that areissued by the central government. Thus, thedifference between one district council andanother mainly depend on the available NSAs andthe approach they use in the respective districts,such as the area (sector) and agricultural cropsof focus, as well as type and number of

beneficiaries. Experiences from Njombe Ruraland Masasi Districts are presented below.

The linkage between Njombe rural (and Masasi)district Councils, on one hand, and the CentralGovernment, on the other, exist through variousroutes, which move in both directions (two waytraffic). All of the proposed annual plans andbudgets (where ACT projects are integrated),including the feedbacks, are routed through thisinstitutional system.

Other district councils� institutions that areclosely involved in ACT, according to the DPLO,include the District Agriculture, Irrigation andCooperatives, Department of Lands and NaturalResources, Department of Environment andSanitation, and the Department of Trade. Theseare among key respondents who wereinterviewed in Njombe rural and Masasi districts,where researchers collected views from the headof Lands and Natural Resources, head ofEnvironment and Sanitation, head of Agriculture,Irrigation and Cooperatives and head of Trade.Other respondents have been presented in Table2.1. Other departments include lands, water,livestock, etc. at different administrative levels.

Figure 2.5: The Agriculture, Climate and Trade Institutional Interactions

Source: Author�s elaboration


The process of institutional interplay, in regardsto ACT linkage, is illustrated in Figure 2.5.Farmers (agricultural production) communicatewith the DAICO, DLNRO, and the DESO.DAICO provides the required support andextension services to farmers from the first stageof the production cycle, namely farmpreparation, through planting (or seedling),fertiliser application, and weeding, up to theharvesting and storage stages. DLNRO andDESO are responsible for ensuring that allenvironmental requirements (rules andregulations) are integrated during the farmingprocess. For example, it is DAICO�sresponsibility to ensure that fertilisers andimproved seeds reach farmers in good time andin adequate amounts.

The DLNRO and the DESO are both responsiblefor ensuring that farming does not accelerateenvironmental degradation, such as deforestationand invasion of wetlands and water sources.These rules are meant to ensure, for example,that crop production or farming does not un-necessarily harm vegetation, and that treeplantations do not harm crop husbandry. Inaddition, the district councils, through theirLands and Natural Resources Department,ensure that farming is not practiced near watersources (it must be 60 meters away from watersources).3 The three departments alsocollaborate in organising capacity-buildingtraining for farmers through Farmer Field Schools(FFS).

Evidence from the field data reveals thatinteraction of different institutions involved inACT linkage has influenced agriculture, climatechange as well as trade in the two districts andthe country at large. Njombe region, for example,has witnessed climate change resulting in bothnegative as well as positive changes. For example,increased temperature has led to the emergenceof the tropical borne insects, bacteria anddiseases, such as malaria, which were notcommon in the past. The outcome of changingclimate in Njombe is diverse because, on thepositive side, a number of new crops that respondbetter to tropical weather such as watermelon,pineapples, flowers, mangoes and avocados are

now produced in large quantities. This is a newsource of income to farmers, which has a positiveimplication to food security in Njombe and thecountry as a whole. Institutional support hasplayed a greater role towards this success. Thepublic institutions, particularly the NjombeDistrict Councils and the Regional Secretariat,have created an atmosphere that attracts NSAsto invest in the horticulture sub sector. Masasihas made a significant improvement in the areaof agricultural marketing by creating a uniqueMarketing Model using the Warehouse ReceiptSystem. To a larger extent, unnecessarily largenumbers of players in the sesame and cashewnutmarketing chain have been cut down, thuseliminating transaction costs which used to pushproduction down.

Despite ACT related institutional collaboration,unsustainable trade in forest products is currentlymushrooming, where huge stocks of logs andtimber are harvested and transported to otherparts of Tanzania as well as in the neighbouringcountries. The booming trade has acceleratedboth afforestation and immature tree harvestingin Njombe region.

2.4.1 Njombe Rural DistrictIn addition to the public institutions related toACT, Njombe rural district council has alsoattracted many NSAs who are working in thearea of ACT. NSAs provide support services tofarmers in the area of agriculture or the naturalenvironment. Others are working under contractwith farmers in the area of marketing and trade.For example, a joint programme between thegovernment of Tanzania and the Finnishgovernment was launched in January 2014. Thisprogramme is commonly known as PFP and isinitially implemented in the six districts of theSouthern Highlands. These are Njombe, Makete,Ludewa (in Njombe Region), Kilolo and MufindiDistricts in Iringa Region, and KilomberoDistrict in Morogoro Region. The programmeis intended to promote commercial tree plantingthrough farmers groups.

In 2013, Njombe Region Secretariat (whereNjombe Rural District Council belongs), enteredinto an agreement with the Economic and Social


Research Foundation (ESRF), which requiredthat the Foundation prepare a Njombe RegionalStrategic Plan using the following scope of work:

(a) Compile a situation analysis of the region(b) Review District Plans and hold

discussions with key informants (howthey were prepared, status, challenges)

(c) Identify clearly the tools (e.g. logframe,results, framework, etc.) and processesthat will be used in developing thestrategic plan and facilitators at theDistrict who would produce the draftDistrict Strategic Plan. This will appearas sub-strategies in the Regional StrategicPlan.

(d) Present the draft Regional Strategic Planto the District Consultative Council(DCC) and the Regional ConsultativeCouncil (RCC)

(e) Incorporate the feedback from DCC andRCC and submit the final RegionalStrategic Plan including the presentationthat was made at the RCC.

Other NSAs within and outside the district thatare currently collaborating with Njombe RuralDistrict Council include Tanzania HorticulturalAssociation (TAHA), Njombe AgriculturalDevelopment Organisation (NADO), FarmerInput Promotion Africa (FIPs � Africa), etc. Inaddition Njome rural District works withSokoine University of Agriculture (SUA),University of Dar-es-Salaam (UDSM), NationalEnvironmental Management Council (NEMC),Vice President�s Office � Division ofEnvironment, National Food Reserve Agency(NFRA), Ministry of Agriculture, Food Securityand Cooperatives (MAFC), ESRF, Ministry ofIndustries and Trade (MoIT), and otherAgricultural Sector Lead Ministries (ASLMs).Note that, all collaborations under this windoware formalised through agreements such ascontracts, Memorandums of Understanding(MoUs), etc. It was understood that, unlike inthe past, in the Njombe Rural District, NSAs,mainly private sector players as well as CSOs,are now involved in the council in the preparation

of DDPs, budgeting and other districtprogrammes and policies, despite the fact thatthe response of NSAs is still low and that thetwo parties still do not trust each other. This isquite contrary to Masasi district council, below,where NSAs are only consulted duringimplementation of the district programmes andpolicies.

2.4.2 Masasi DistrictMasasi district council�s institutions, which areworking closely in agriculture, climate changeand trade according to the Masasi DPLO, arethe same as Njombe rural institutions. As pointedout earlier, this similarity is not an accident. AllDistrict Councils in Tanzania use the sameguidelines issued by the central governmentthrough the National Policy Frameworks, suchas the Village Land Policy, National AdaptationProgramme of Action (NAPA), National Strategyfor Reduced Emissions from Deforestation andForest Degradation (REDD), NationalAgricultural Policy, National Food SecurityPolicy, National Climate Change Strategy,National Trade Policy, and NationalEnvironmental Policy (NEP).

The officers in respective departments andadministrative levels are well aware of thecoordinated efforts needed in the implementationof ACT related activities. When asked on thematter, these officers confirmed that goodworking relations between these officers exist,and they often assist each other when need be.In order to coordinate effective and efficientimplementation of activities in thesedepartments, it was observed that theDepartment of Planning at the district level hasa sole purpose and mandate to make sure thatall these departments receive funds according tothe allocated budgets.

In case there are any initiatives, the districtcouncil collaborates with projects andprogrammes from the private sector, CSOs andNGOs, to ensure effective delivery of theseprojects. The DLNRO said it all:


The study further realised that there is a greatacknowledgement and appreciation from thelocal government on various initiatives beingundertaken by NSAs in their respective districts.NSAs are working in various areas such aseducation, agriculture, trade and theenvironment. For example, Participatory ForestManagement (PFM) is among the projects inMasasi District funded by Tanzania Social ActionFund (TASAF). Due to different challenges thatexist at the local government authority level, theparticipation of different players in developmentinitiatives is very much welcomed.

Other NSAs working in Masasi District in thearea of ACT include, Lindi and MtwaraAgribusiness Support funded by Tanzaniangovernment in collaboration with FinnishGovernment. There is also CONCERNWorldwide, who provides support for growingnutrious food crops and other community basedactivities; CARE Tanzania, who have beenimplementing a five year project on women�sempowerment: improving resilience, income andfood security, WE-RISE is aimed at increasingfood security for over 20,000 direct beneficiaries;and Cassava Adding Value for Africa (CAVA)who work with micro-processor groups byproviding farm implements and capacity buildingthrough training.

The interplay between farmers, CSOs, privatesector and the local government co-exist togetherin development. With the local governmentlacking sufficient human and financial resources,

projects from CSOs and the private sector tendto assist implementation of differentdevelopment activities in these districts. Sinceone of the challenges facing implementation ofthe District Plans is resource gaps or limitedbudgets, NSA projects are critical windows formobilising additional resources, which can beused to bridge the existing resource gap andsubsequently be able to finance and implementthe District Development Plans.

2.5 Formal and Informal Linkagesbetween District Councils and theCentral GovernmentAs noted earlier, with exception of the privatelyowned institutions, the public institutionalinterplay in Tanzania is guided and governed bythe same framework issued by the centralgovernment. The guidelines from the centralgovernment are issued through differentwindows, including policy directives, nationalpolicy, and strategy frameworks, which are alldrawn from the National Vision 2025. Thus,institutional structure and interplay for all thedistrict councils in Tanzania are uniform. Thedifference between one district council andanother is mainly due to the type of NSAs�projects implemented in the respective district.

The linkages between the Rural District Councilsand the national policy making andimplementation processes related to ACTlinkage is therefore clearly defined, despite thefact that amendments need to be made to makethe system more robust. This linkage thereforemakes it easy to understand the flow ofinformation and inputs from the district level tothe national level, and the flow of policydirectives from the national to district level(vertical institutional interplay).

The institutional and legal framework (processesand mechanisms for coordination of developmentplanning and implementation) in Njombe Ruraland Masasi is not unique. The two districtcouncils use the same frameworks, which otherdistrict councils in the country use. To someextent the institutional and frameworks used byNjombe Rural and Masasi District Councils are

Box 2.3: Transparency of NSAs Projects

To avoid duplication of efforts, the districtcouncil ensures that all new projects andprogrammes designed and implemented bydifferent stakeholders in the district must gothrough the council and particularly therespective and mandated departments mustbe involved for transparency and easymonitoring.

Head of the DLNR: 20th December 2014


said to be supportive and enable theimplementation of the DDPs and objectives atdistrict levels, including wards and village levels.However, implementation challenges exist, themain ones being inadequate financial and humanresources and working tools, e.g. the lack ofappropriate and reliable software and datamanagement facilities for management,coordination, performance review, monitoringand evaluation (M&E), quality assurance, andimpact evaluation, lack of access to fast internetconnections, and limited transportation facilities.Other factors constraining smooth institutionalinterplay include the double reporting system,where individual sectors at district level areforced to report to the respective parentministries, yet all the sectors must also report tothe PMO-RALG, which is the LGAs� custodianand umbrella ministry. In addition, the districtcouncils are not autonomous, despite a long timeimplementation of the Local GovernmentReform Programme and the Decentralisation byDevolution (D by D) programme. This hasaffected the district ACT execution andperformance. For example, district councils arenot free to assess the local ACT linkage statusand take measures, such as adopt by-laws, toimprove the situation without the concert fromthe central government. The following sectionspresent the different forms of both formal andinformal institutional interplay in Njombe ruraland Masasi districts.

2.5.1 Njombe Rural District

Involvement of Non State Actors in NjombeRuralExamples of NSAs working in Njombe ruraldistrict have been presented earlier in section2.4.1. In Njombe rural District Council the NSAsare encouraged and involved in all of the districtdevelopment processes, such as formulation ofthe district strategic plans, district socialeconomic profiles, district investment profilesand plans, DDPs and budgeting. For example,during the district planning and budgetingprocess, NSAs are involved fully during theDistrict Stakeholders� Assembly (or meeting) todiscuss and give their views on the DDPs andbudgeting. All NSAs operating in Njombe Rural

District are required, not only to register withthe District Council, but also submit their annualwork plans and progress reports to the Council,etc. This initiative is intended to encouragecollaboration and boost involvement of privatesector in the implementation of the DDPs. Inaddition, it enables the district to internalise theoutputs by NSAs, thus enabling the council tocapture it or include it in the district GrossDomestic Product (GDP).

The main challenge related to this collaborationis that very few NSAs abide by these regulations.According to the DPLO in Njombe Ruraldistrict, some of the NSAs do not trust theCouncil. The interviewed NSAs, for example,claim that although they interact with the DistrictCouncil, they have the feeling that the DistrictCouncil is not supportive enough to make NSAsconfident with the Council. Others still fear thedistrict council because they associate suchcollaborations with taxes, i.e. more transparencymeans more taxes charged by district councilsto NSAs.

It is also important to note that, in Njombedistrict, not many of the NSAs, namely privatesector players, civil society organisations (CSOs),non governmental organisations (NGOs), etc.,are aware and conversant of the system underwhich the district council operates, which, inessence, hampers smooth institutional interplayand therefore implementation of the developmentprogrammes, including the ACT activities in thedistrict.

2.5.2 Masasi District

Involvement of Non State Actors in MasasiJudging from the responses collected during thesurvey in Masasi, the district council is makingefforts to enable NSA participation in districtdevelopment planning, budgeting andimplementation. Apart from inviting them duringthe district stakeholders planning and budgetingmeeting, Masasi district has been dedicated toensuring that all private investors in the districtare registered with the district council. This isnecessary to enable the council to monitor theoperations and progress made by NSAs.


Masasi district council has also been supportingNSAs in areas of agricultural extension services,environmental as well as trade regulations. Allthe districts in the region meet annually duringthe agricultural exhibition, where individualdistricts display their products and theachievement they have made during the year,promoting both agriculture and trade. LikeNjombe rural district, it should be noted that thehorizontal institutional interplay is not as strongand common as the vertical linkage. In Masasi,the horizontal linkage involves mainlycollaboration or association with other districtssuch as Tandahimba and Newala districts oninformation such as agricultural performance,pests and diseases, and trade opportunities. It isalso a tradition to organise meetings orworkshops that draw members from all thedistricts in the region.

2.6 Existing Gaps and ChallengeInstitutional interplay and linkages between theRural District Councils and national policy-making and implementation related to ACT hasnot been without some gaps and challenges thatneed to be addressed. Among the challenges andgaps that have tended to disrupt implementationof the DDPs and affect the smooth andmeaningful institutional linkage related to ACTare presented below:

2.6.1 Njombe District Council(a) The resource gap: The district

experiences a huge gap between thebudget requests and approved budget aswell as approved budgets anddisbursement. Most of the plannedactivities are abandoned (notimplemented) due to the resource gaps.To a large extent this has raised questionsat lower levels on the relevance of theprocesses since only few (sometimesnone) of their priorities have beenconsidered. Members of the communitieswho are the implementers of mostNational Policies, Plans and Strategies (andtherefore the National Vision 2025) aretherefore demoralised;

(b) The budget ceiling usually comes very late(when Njombe Rural District Councilshave already completed their budgetpreparations) which makes its re-budgeting extremely laborious andtherefore not carefully done because ofrushing to beat the deadline, etc;

(c) Inadequate internal revenue sources andtherefore revenue from own sources, aswell as the re-direction of the localsourced revenues from recurrent todevelopment expenditure. Revenuesources were previously used to coverinternal expenditures (which were mostlyrecurrent). It was instructed that from thecurrent budget (2014-15) 60 percent ofthe internal revenue should cover fordevelopment projects. The challenge hereis how to fill the left gap as far as internalexpenditure is concerned;

(d) Inefficient approval process of the villageand district by-laws because these by-lawstake very long to be approved by PMO-RALG;

(e) Poor and weak participation of the NSAsin the implementation of DDPs inNjombe Rural District, and shortage ofbudgets for monitoring and evaluation ofthe NSAs� activities in the district. Asshown earlier, the NSAs play a great rolein assisting farmers to sell their agricultureproduce to local and international markets,hence the government�s withdrawal fromdirect participation in the productiveactivities (leaving it to the NSAs) makesit very difficult for these actors toeffectively perform their roles. Note that,to some extent, private players havealready responded positively, and they arecurrently all over the country operatingand/or working in different areas. Inother words, NSAs will be able to play amajor and significant role in not onlyfinancing, but also implementing thedistrict plans if the relationship betweenlocal governments and NSAs is improved.


(f) Njombe rural district council hasexperienced shortages of staff at districtcouncil headquarters, ward level andvillage level due to these budgetconstraints. Without an innovative staff,it is difficult for the district council toappreciate the efficacy of horizontalinstitutional interplay, e.g. initiate study-visits or learn from best practices in otherdistricts.

2.6.2 Masasi District Council(a) Resource Gap: With the existing

institutional framework, most of therespondents emphasised that one of themain challenges that the local governmentauthorities face is insufficient financialand human resources. Masasi townEconomist stated that:

Box 2.4: Resource Gap

The district council is not independent. 90percent of its finances come from othersources such as the central government (60percent) and development partners (30percent), while only 10 percent is from ownsource collection� this means that the localgovernment authorities are totally dependent.

Masasi Economist, 19th December 2014

Although the government reports to have takena lot of efforts and measures in empowering thelocal government authorities through promotionof fiscal decentralisation, legal harmonisation,and human resources autonomy, in practice, thisseems to be impractical. These authoritiesdepend to a large extent on financial supportfrom the central government, and apparently, inmany cases, not all that is budgeted is usuallydisbursed, and what is disbursed does not oftencome on time.

With late financial disbursement, the agriculturesector is always affected. As the sector alwaysdepend on the calendar year to determine theagriculture season, late disbursement of financial

resources to support agriculture activities makesit very difficult to promote growth of the sector.

(b) Uncoordinated reporting mechanism: Itwas also revealed that there iscontradiction in terms of whom to reportto.

�For example, when it comes to status offood security, you may find the PMO-RALG office, Ministry of Agriculture andVice President�s office may all demandthe status report at different times. Dueto this, you may find that depending onwho needs the report, the informationmay be different.�

0With such lack of specific reporting authority, itis viewed that this often leads to misreportingand misinforming relevant authorities. Withbetter coordination from the central governmentauthority level to the local government level,information sharing systems can be improved.With the district council departments allchanneling their issues to the PMO-RALG ratherthan to the specific ministries responsible fortheir sectors, these delays to great extent blockthe flow of information and decision-makingprocesses.

Masasi District has experienced a number ofhiccups in relation to information and decisionmaking mechanism, with the Masasi DAICOacknowledging that the current mechanism isquite ineffective in ensuring effective andimmediate transfer of information from localauthority departments to respective ministries.

�The mechanism doesn�t allow ourdepartment to meet with ministry dealingwith agriculture issues direct, thereforemany technical issues are not solvedimmediately as there is long chain insending and receiving information fromdistrict level to national level�

With respect to working with the private sector,small coverage of their activities has been viewedas a challenge.


(c) Shortage of adequate staff in agriculture,trade and environment departments fromthe district level, ward and village levelhas been explained to be among thebiggest challenges facing the localgovernment authorities, not only inMasasi districts, but also otherneighbouring districts in Mtwara region.In many cases, the respondents revealedthat they were forced to undertakeactivities that were not under theirjurisdiction and mandate but had to doso due to a shortage of staff. A goodexample was from the DLNRO ofMasasi, who clearly elaborated that heheads the department at the district level,but is also forced to multitask and workin three to four other localities in thedistrict. The DLNRO stressed a point thathandling different projects brought byNSAs and other government institutions,such as the Tanzania Forest Service(TFS), makes it very difficult to beefficient and reliable to meet their setobjectives.


3.1 ConclusionsThis study was undertaken as part of the projectintended to investigate the relationship betweenagriculture (food security), climate change andtrade (ACT) in Tanzania. This survey wastherefore meant to identify, understand, andimprove the institutional interplay from the localto the national level for the holistic tackling ofthe three issues. This inquiry focused mainly oninstitutional, legal, financial bottlenecks and skillsgaps in planning, budgeting and implementationof the climate change (natural environment), foodsecurity and trade related plans. Evidence showsthat the institutional and legal frameworks aresupportive and enabling for the implementationof the DDPs and objectives at district level,including wards and village level. However, theDistrict Councils are facing a number ofchallenges that undermine institutional interplayand linkages between them and the nationalpolicy-making and implementation of the ACTactivities.

The challenges common in most district councilsin Tanzania, including Njombe and MasasiDistrict Councils, need to be addressed if theinstitutional interplay and linkages are to makea meaningful outcome (through the DDPs,district budgeting processes etc). The most seriouschallenges include inadequate resources forexecution of the DDPs, lack of districtautonomy, lack of the requisite skills andcompetencies, shortage of staff, and the poorinvolvement of NSAs. There is an urgent needtherefore to take appropriate measures toaddress these challenges to build capacity of theDistrict Councils to undertake the District

Development Plans related to ACT linkagessuccessfully.

3.2 RecommendationsA number of recommendations have been madebased on the above discussions and conclusions.

(a) Integration of the agriculture-climatechange-trade (ACT) components into districtplanning and budgetingIt is evident that, in the past, some of thecomponents of the ACT linkage were notidentified by villages and wards as priorities dueto limited knowledge of its respectivecomponents. This is a calamity that threatensefforts to attain ACT objectives in Tanzania. TheDistrict Council, through the bottom-upplanning, can easily handle this intervention andbudgeting process largely managed by thecouncil.

During the Opportunities and Obstacles forDevelopment (O&OD) process, the lower levelcommunities, where planning and budgetingprocess begin (ward and village levels), therefore,need to be guided by technical experts from theDistrict Council to enable them to understandand consider ACT related priorities. In addition,members of the communities must be educatedthrough training and awareness creationprogrammes.

(b) Resource MobilisationNjombe and Masasi District Councils haveproven to be highly dependent on the CentralGovernment budget allocations, just like many

Chapter 3

Conclusions and Recommendations


other district councils in Tanzania, depending onmore than 90 percent from central governmentbudget allocations. It has also been proven thatwith such extreme dependency and lacking othersources of funding affects the agriculture, climateand trade related activities since budgetaryallocation from central government are neversufficient and often target other priorities suchas health, education, etc. It is also specificallywhy the planned district activities are often notimplemented, as was pointed out by therespondents.

Furthermore, the current institutional and legalframeworks governing the operations of DistrictCouncils in Tanzania do not provide space forthe district executives to become proactive andmobilise resources for their districts. Existingopportunities for additional resources havevirtually not been utilised. There is, therefore, aneed for the councils to change this attitude sothat the council considers itself as a resourcemobiliser. They must mobilise resources tocomplement and bridge the resource gap so asto be able to effectively manage and conservethe environment, deploy enough extensionofficers to assist farmers, as well as facilitatesmooth trade of the agriculture commoditiesproduced.

Therefore, this study further recommends that,in order to bridge the financial resource gap thatexists within the districts so as to further financeother activities such as those related to ACT,these districts should mobilise resources bydeveloping bankable or fundable projects,especially focusing in ACT; attracting local andforeign investors to invest in their districts;improve financial and resource management soas to be able to prudently allocate and managethe resources accordingly.

(c) By-lawsThe two District Councils are mandated toformulate by-laws and pass them through PMO-RALG for approval before its use. This is anuntapped opportunity for District Councils. Moreby-laws should therefore be formulated and passthem through for approval. Specifically, these by-laws should target the ACT components, such

as the restriction of illegal harvesting of forestproducts that contribute to environmentaldegradation. By-laws that would direct reductionof excessive taxes charged to farmers would, toa great extent, promote agriculture production;farmers would earn more and be able to adoptgood farm practices such as the use of improvedseeds and fertilisers, and such trade in agriculturecommodities would be enhanced.

(d) Political Will and Government CommitmentAs noted earlier, the smooth institutionalinterplay and linkages between different levelsrequires sustainable funding. Resources musttherefore be mobilised (from all possible sources)adequately and be timely allocated. In addition,the councils must have competent and skilledpersonnel working under a well-organised andcompetent management team.

(e) Monitoring and EvaluationMonitoring and evaluation must be one of thecomponents of the district implementationframework. This tool should be used regularlyto follow up and evaluate implementation ofprojects as well proper allocation of financialresources. A commendable job is done by theNational Audit Office of Tanzania, whichconducts audits to public offices. The 2012-2013report highlighted that the Cashew Board ofTanzania paid for inputs worth TZS 223.8million, but were yet to supply to farmers in fouryears.4 With such practices, it is very difficult tosee that agriculture, climate and trade ispromoted as farmers fail to increase productionas they do not use the required inputsconsequently result to environmentaldegradation and low trade in agriculturecommodities. The necessary steps shouldsubsequently be taken whenever the M&Efindings make such suggestions. The DistrictCouncils must therefore ensure that the DDPsare successfully implemented, i.e. the activitiesresults are realised and are inclusive.

(f) The District AutonomyDistrict Councils in Tanzania are notautonomous, thus making it difficult for them toprudently plan and efficiently allocate and utilisetheir resources for the development of their


respective districts. District technical teams arenot free to make key decisions on resourceallocation and utilisation. Masasi and NjombeDistricts are not exceptions to this problem.District plans, which are bottom-up, are designedand coordinated by technical personnel who arenot only the architects, but are also skilled peoplewho undertake the district planning andbudgeting processes. However, key decisions andapproval of these critical DDPs documents aremade by councilors (politicians) who are not inmany cases acquainted with such technicalprocesses. As if this is not enough, there is noevidence that any of the technical personnel ismandated to vote or influence the final decisionsmade by councilors. This is a disquietinginstitutional system in need of reform. As in manycases, the councilors will put priority on thingsthat would add credit to their names rather thansolve the very pertinent issues that exist inagriculture, the environment and climate, as wellas in trade. Therefore, by ensuring that districtcouncils have the requisite capacity andautonomy to manage the DDP processes, we aremore likely to see commendable improvementsin ACT related issues. With greater concernbeing voiced about local government authoritiesnot being independent, it is highly recommendedthat these authorities be enabled to plan theiractivities and become capacitated not only inresource mobilisation but as mentioned earlierin the planning processes. The centralgovernment should also let these authoritiesemploy labourers in case of shortages in certainareas, especially those related with ACT.

(g) Political Interferences and Conflict ofInterestsImplementation of some of the strategic plans inmany District Councils are negatively affectedby persistent conflict of interests, wherebypolitical interests (individual and short term)undermine economic interests, and thereforeeconomic gains, which are long term in nature.This claim is evidenced by the fact that unlikeeconomic decisions, in many cases politicaldecisions are primarily for personal interest andindividual stature rather than the interests of thepeople. These decisions are often in conflict with

technical decisions. Such conflicts of interestpresent a serious drawback to the successfulimplementation of DDPs related to ACTcomponents in the respective districts. Politicaldisagreements affect some of the districts morethan others because of these specific politicalinterests.

There is, therefore, a need for the districtcouncils to escape from this catastrophe byensuring that politicians observe set boundaries.It is also important for the government to reviewand elevate the minimum education qualificationsof both councillors and Members of Parliaments(MPs) in Tanzania.

(h) Timely Release of Budget CeilingOne of the major challenges in the budgetpreparation cycle is that the budget ceilingusually comes very late (when District Councilshave already completed their budgets), makingrepackaging and re-budgeting extremelylaborious and therefore not carefully donebecause of the rush to beat deadlines, etc. Inaddition, the agriculture sector in Tanzania goeswith seasons, hence funds are needed duringploughing and sowing time, and these funds getreleased afterwards then this becomes less usefulduring that time. Hence, the central governmentneeds to ensure that the budget ceilings arereleased well in time in order to avoid repackagingand rushed budget preparations, as well aspromote agriculture activities. Otherwise, it notonly unnecessarily doubles the work of theDistrict Councils, but is demoralising to farmers.

To squarely address the persistent problem oflate disbursement of budgets (which is reportedlyexacerbated by delayed government revenuecollection), the government needs to use anyviable and effective means and create a fundsubstantial enough to finance one-year LGA plansin Tanzania. During a one-year period, thegovernment should guarantee revenue collectionsufficient to finance LGA plans of the succeedingyear, thus breaking the current vicious budgetcircle caused by delays in revenue collection (cashbudget).


(i) Promote linkages and interaction betweendistrict council departmentsVery few regional governments, district councils,wards or villages in Tanzania have beenconsistently interacting with each other.Although different institutions interact with eachother within the district, it is also very importantfor instance one district visits any other bestpractice district to learn from best practiceswhich have made the latter successful in attainingits objectives and targets. In many cases, this hasnot been taking place due to resource limitation,but also because of lack of innovations by staffof the district councils. There is a need tocultivate this culture, which has not been therefor many years.

Tanzania has a number of best practice districtsin ACT areas. They include Ikungi district inSingida, Peapea Village in Kilosa district,Morogoro region, and Chololo Village inDodoma municipal, Dodoma Region. Njomberural district has not taken any initiatives in thepast to organise a study visit in such best practice

villages and districts, which is disquieting.Horizontal institutional interplay is thereforeuncommon in Njombe rural district.

(j) Move from planning to implementation ofset policiesIt is clear that, on paper, the policy frameworksput in place are well articulated; the only problemis the proper and effective implementation ofthese set frameworks. Respondents weregenerally discontent, as they would see and readall of these policies, yet actual changes moveslowly.

(k) Promote linkage between local governmentdepartments and respective ministriesIt has been observed that, as most of thedepartments are not linked with ministriesresponsible for their activities, it becomesdifficult to effectively implement the intendeddevelopment activities. Indeed, this createsproblems as plans set at the local level mayimpede those at the ministry level, and hencecreate confusion for the communities concerned.


Data Types and Data SourcesData was collected through desktop research(literature review), field surveys and interviewswith relevant stakeholders in the selecteddistricts, and inputs and feedback from somemembers of the National Reference Group(NRG).5 Both Focus Group Discussions (FGDs)and individual interviews were used to collectrelevant information. In both Njombe Rural andMasasi District Councils, six Heads ofDepartments were consulted. These are theDPLO, DLNRO, DAICO, District Trade Officer(DTO), District Community DevelopmentOfficer (DCDO), and District Public RelationsOfficer (DPRO). At the community level, twovillages were visited in each district, where ineach village six farmers and traders were alsointerviewed, including community leaders.During the survey various data was collected.These data included particulars of therespondents, institutions and their interactions,linkages between the District Council and thecentral government, institutional gaps,weaknesses and challenges, as well as suggestedremedial measures. In addition, various successfulinitiatives related to the environment and climatechange, food security and trade experienced inthe past in the two districts were also discussed.

Others were the current status (situationanalysis) of selected indicators such as theexisting institutional framework, legalframework, planning and budgeting processes,both vertical and horizontal linkage, strengthsand the challenges facing District Council in theareas of regulations, human resources, andresource availability and mobilisation.

Sampling and Data Collection MethodsAs pointed out earlier, to accomplish this survey,information was also collected from the officialdistrict reports, District Council Heads ofDepartments (Management of the DistrictCouncils), community members and leaders.With the exception of community members whowere selected randomly, District Heads ofDepartment and community leaders weresampled purposively because the survey targetedthese respondents. The information was collectedusing interview checklists.

Sample SizeAt District Headquarters and community levels,the following respondents were consulted (Headsof Departments; Community Leaders; andCommunity Members):

Appendices

Appendix I: The Approach


Table 1: Selected Respondents

In total from each district, 50 respondents were consulted, as shown in Table 1.

Sn Respondents

1 District Executive Director (DED)

2 District Agricultural, Irrigationand Cooperatives Officer(DAICO)

3 District Planning Officers(DESOs)

4 District Land and NaturalResources Officer (DLNRO)

5 District Environment andSanitation Officer (DESO)

6 District Trade Officer (DTO)

7 District Community DevelopmentOfficer (DCDO), including theDistrict Public Relations Officer(DPRO)

8 Community Leaders (e.g. WardCouncilors; Ward ExecutiveOfficers (WEO); VillageExecutive Officers (VEO); andVillage Chairpersons)

9 Community Members(Farmers, Traders, CSOs)

10 District Administrative Secretary

11 Total

Type of Information

Mainly Courtesy Call. But also discussion on thelegal framework, Institutional Framework andDistrict Development Plans (DDP) as well asbudgeting

Agriculture, Institutional Interplay, legalframework and District Development Plans (DDP)and budgeting

Institutional Interplay, legal framework, DistrictDevelopment Plans (DDP) and Budgeting Processes

Land, Natural Resources, Environment,Institutional Interplay and District DevelopmentPlans (DDP) and budgeting

Land, Natural Resources, Environment,Institutional Interplay and District DevelopmentPlans (DDP) and budgeting

Trade, Institutional Interplay and DistrictDevelopment Plans (DDP)

Community Development, Institutional Interplayand District Development Plans (DDP) andbudgeting

Agriculture, Climate Change, Trade, InstitutionalInterplay, legal framework and DistrictDevelopment Plans (DDP) and budgeting

Agriculture, Climate Change, Trade, InstitutionalInterplay and District Development Plans (DDP)and budgeting

Institutional Framework and District DevelopmentPlans (DDP) and budgeting

Number

2

3

2

1

1

4

4

5

27

1

50


Information collected during the survey wasprocessed using Microsoft Excel computerprogramme and comparable responsessummarised by category. For data analysis,Microsoft Excel (MS-Excel) computer softwarewas used. Immediately after the successfulsurvey, the data set was cleaned and organisedfor analysis. Data analysis entailed calculationsof various statistical parameters such asfrequencies and cross tabulation. These weresubsequently used for comparative analysis, aswell as to test the claim that institutionalinterplay in Tanzania is weak.

This data (mostly qualitative) gathered fromrespondents was carefully transcribed. These

Appendix II: Analytical Framework

transcriptions were afterwards read and re-readto interpret and identify the key messages. Fromthese transcriptions, key themes or patterns ofideas, concepts, behaviour, interactions, facts,incidents, terminologies, or phrases wereidentified. Furthermore, as the way to gain moreinsights abbreviated codes such as few letters,words, or symbols were assigned to key themesand placed near them. This was meant to helpresearchers organise data into common themesemerging from the responses. Afterwards, thesethemes were organised into coherent categoriesthat were also summarised to study and extractkey messages in order to answer the studyquestions.


Focus Group Discussion Guide- Farmers

Introduction and background

Under the project �Promoting Agriculture, Climate, Trade Linkages in the East African Community(PACT EAC)�, CUTS International is conducting a study in Masasi and Njombe districts. Thestudy, under the theme on �food-climate-trade linkages: understanding and improving institutionalinterplay�builds on the previous study examining the Climate, Food, Trade policy nexus in Tanzania.As such, this follow up study seeks to identify, understand and improve the institutional interplayfrom the local to the national level for the holistic tackling of the three issues of climate change, foodsecurity and trade. We would like to thank you for your time and clarify that his FGD is only forstudy purposes.

1. List all the County Ministries in charge of Agriculture, trade and climate change/environment.

2. Do you work with other Ministries in the County to address the issues of agriculture/trade/environment or climate change? If so, please explain and give examples.

3. What challenges do you find in collaborating with the ministries?

4. How can inter-ministerial collaboration be improved at County level to; Promote Agriculture/food security Promote Trade Address climate change?

5. Do you work with the private sector players to promote trade, agriculture and climate changeresponses? If yes, explain.

6. What challenges do you find in collaborating with the private sector?

7. How do you work with other farmers/farmer groups to promote trade, agriculture and climatechange responses?

What challenges do you find in collaborating with other farmers/farmer groups?

Appendix III: Data Collection Instruments


8. Do you work with Civil Society Organisations to promote trade, agriculture and climate changeresponses? If yes, explain.

9. What challenges do you find in collaborating with Civil Society Organisations?

10. How can collaboration with the private sector, other farmers and civil society be promoted inorder to address the agriculture, trade and climate change challenges?

11. At the administrative level, what is the link between your group and the County/Nationalgovernment?

12. What institutional mechanisms do you use to ensure that agriculture, climate and trade issues/challenges you face are represented at the district/National Government policy level?

13. What other means do you use to provide/receive information from the district/NationalGovernment?

14. Do you feel the current mechanisms in place are effective in information sharing betweenfarmers, the district and the National government? Explain.

15. How can the linkages between farmers, National government and the district government beimproved to promote agriculture, trade and address climate change?

16. Please mention other recommendations you think can be helpful in promoting better policyand institutional coherence at both district and National levels?


Interview Guide (Government Departments-Ministries in charge of agriculture,trade and environment/climate change)

Personal information

Name

Sex Male Female

Organisation

Position

Tel Email

County Masasi Njombe

No. Question Response

Part one: institutions and their interaction at County level

1. List all the departments in charge of Agriculture, tradeand climate change/environment

2. What is the responsibility of your department in regardto agriculture/trade/environment or climate change inyour County?

3. Do you work with other departments in the districts toaddress the issues of agriculture/trade/environment orclimate change? If so, please explain and give examples.

4. What challenges do you find in collaborating withother ministries?

5. Please choose the level of collaboration with otherdepartments dealing with the issues of agriculture/trade/environment or climate change?

6. How can inter-ministerial collaboration be improved atdistrict level to;

Promote Agriculture/food securityPromote Trade

Address climate change

7. How do you work with the private sector players topromote trade, agriculture and climate change responses

8. What challenges do you find in collaborating withthe private sector?

Excellent Very good Good Poor Very Poor Not sure


9. Please choose the level of collaboration with the privatesector on the issues of agriculture/trade/environment orclimate change?

10. How do you work with the farmers/farmer groups topromote trade, agriculture and climate change responses?

11. What challenges do you find in collaborating withfarmers/farmer groups?

12. Please choose the level of collaboration with the farmers/farmer groups on the issues of agriculture/trade/environment or climate change?

13. How do you work with Civil Society Organisations topromote trade, agriculture and climate change responses?

14. What challenges do you find in collaborating with CivilSociety Organisations?

15. Please choose the level of collaboration with CivilSociety Organisations on the issues of agriculture/trade/environment or climate change?Excellent

16. How can collaboration with the private sector, farmersand civil society be promoted in order to address theagriculture, trade and climate change challenges?

Part two: linkages between the County and National Government

17. What policy frameworks guide your operation at theCounty level?

18. At the administrative level, what is the link between yourdepartment and the National government?

19. What institutional mechanisms do you use to ensure thatCounty issues are represented at the NationalGovernment policy level?

20. What other means do you use to provide/receiveinformation from the National government?

21. Do you feel the current mechanisms in place are effectivein information sharing between the County and theNational government? Explain.

22. How can the linkages between National government andthe County government be improved to promoteagriculture, trade and address climate change?

Part three: Recommendations

23. Please mention other recommendations you think can behelpful in promoting better policy and institutionalcoherence at both County and National levels?

Excellent Poor Very good Very Poor Good Not sure




Interview Guide (Civil Society Organisations-CSOs involved in agriculture, tradeand environment/climate change)

Personal information

Name

Sex Male Female

Organisation

Position

Tel Email

County Masasi Njombe

No. Question Response

Part one: institutions and their interaction at County level

1. List all the institutions in charge of Agriculture, tradeand climate change/environment

2. What is the mandate of your organisation/institution inregard to agriculture/trade/environment or climatechange in the County?

3. Do you work with other Ministries in the district toaddress the issues of agriculture/trade/environment orclimate change? If so, please explain and give examples.

4. What challenges do you find in collaborating with theministries?

5. Please choose the level of collaboration with theMinistries/departments in the district dealing with theissues of agriculture/trade/environment or climatechange?

6. How can inter-ministerial collaboration be improved atdistrict level to;

Promote Agriculture/food security

Promote Trade

Address climate change

7. Do you work with the private sector players topromote trade, agriculture and climate change responses?If yes, explain.

8. What challenges do you find in collaborating with theprivate sector?

Excellent Very good Good Poor Very Poor Not sure


9. Please choose the level of collaboration with the privatesector on the issues of agriculture/trade/environment orclimate change?

10. How do you work with the farmers/farmer groups topromote trade, agriculture and climate change responses?

11. What challenges do you find in collaborating with farmers/farmer groups?

12. Please choose the level of collaboration with thefarmers/farmer groups on the issues of agriculture/trade/environment or climate change?

13. Do you work with other Civil Society Organisations topromote trade, agriculture and climate change responses?If yes, explain.

14. What challenges do you find in collaborating with otherCivil Society Organisations?

15. Please choose the level of collaboration with other CivilSociety Organisations on the issues of agriculture/trade/environment or climate change?

16. How can collaboration with the private sector, farmers andcivil society be promoted in order to address the agriculture,trade and climate change challenges?

Part two: linkages between the County and National Government

17. What policy frameworks guide your operation at the districtlevel?

18. At the administrative level, what is the link between yourorganisation and the County/National government?

19. What institutional mechanisms do you use to ensure thatagriculture, climate and trade issues are represented at thedistrict/National Government policy level?

20. What other means do you use to provide/receiveinformation from the district/National Government?

21. Do you feel the current mechanisms in place are effective ininformation sharing between the district and NationalGovernment? Explain.

22. How can the linkages between National government andthe Local government be improved to promote agriculture,trade and address climate change?

Part three: Recommendations

23. Please mention other recommendations you think can behelpful in promoting better policy and institutionalcoherence at both LGA and National levels?





Malimbwi, R.E. & E.M. Zahabu (2008). Woodlands and the charcoal trade: the case of Dar esSalaam City, Working Papers of the Finnish Forest Research Institute 98: 93�114

Njombe Region Social and Economic Profile; Draft Report Submitted to Njombe RegionSecretariat, Njombe, Tanzania

United Republic of Tanzania (URT), 2003.National Trade Policy, Ministry of Industry and Trade,Dar es Salaam, Tanzania.

United Republic of Tanzania (URT), 2010. National Strategy for Reduced Emissions fromDeforestation and forest Degradation, Dar es Salaam, Tanzania

United Republic of Tanzania (URT), 2011.Njombe Region Social and Economic Profile; DraftReport Submitted to Njombe Region Secretariat, Njombe Region, Tanzania

United Republic of Tanzania (URT), 2013. District Social Economic Profile-Njombe Rural

United Republic of Tanzania (URT), 2013. Preparation of Njombe Region Strategic Plan:Situation Analysis, Draft Report Submitted to Njombe Regional Secretariat, Njombe Region,Tanzania

References


Endnotes

1 This committee is formed by technical staffs of the council from different departments

2 This includes NSAs

3 Note that there are cases where farmers are allowed to undertake farming in less than 60 meters fromwater sources � especially in areas experiencing land shortages etc.

4 See http://nao.go.tz/?wpfb_dl=104

5 National Reference Group (NRG) is a national network of the Promoting Agriculture, Climate andTrade linkages in EAC project in Tanzania; which represents all relevant stakeholders from thegovernment, business, farming communities, CSOs, media and think tanks. This team provides advisoryrole to the project in making East African policy making processes more inclusive in addressing climate-related hunger through trade.

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