STRATEGIES
FOR INTEGRATED RURAL DEVELOPMENT IN TUVALU
Highlights
of Proceedings and Conference Outputs
Prepared
by:
NESTOR
M. PESTELOS
UNDP/OPS
INTEGRATED ATOLL DEVLELOPMENT PROJECT (IADP)
INTRODUCTION
At the request of the government of Tuvalu, the Integrated Atoll Development Project (IADP) fielded a mission comprising of Jeff Liew, Project coordinator, and Nestor Pestelos, Community Development Specialist/Trainer, to Funafuti in July 1991 to conduct a series of consultative meetings with officials of agencies delivering services to the outer islands. Two tasks were given the mission:
1) to
propose strategies for outer islands development suited to the unique Tuvalu
situation; and
2) to
assess the role of the Integrated Island Development Office (IIDO) taking into
account the recent creation of the Ministry of Home Affairs and Rural
Development.
Rather
than merely submit a written report to government, the mission opted to present
its recommendations to the policy-makers, development planners and project
implementors of Tuvalu in a national consultation conference held on 8 October
in Funafuti. It was attended by 30
participants, which included the Prime Minister and members of the Cabinet,
Secretaries and Directors of the various departments and representatives of the
private sector and non-governmental organizations.
Also, as designed, the conference
included a working session which determined the specific actions, as well as
time frame for each activity, to ensure the immediate implementation of the
conference resolutions.
The Prime Minister, Rt. Hon. Bikenibeu
Paeniu, presided over the deliberations on the recommendations and the general
work plan.
This Report contains the highlights of
proceedings and the various conference outputs. The participants formulated, based on the mission’s
recommendations, a total of 13 resolutions for formal submission to the Cabinet
in support or rural development.
The Government of Tuvalu, in its
desire to place renewed emphasis on commitment to rural development, conducted on
8 October 1991, in cooperation with the UNDP-OPS Integrated Atoll Development
Project, a national consultation conference, and now endorses the following
resolutions designed to locate outer islands development I the mainstream of
national concerns:
1. That the
underlying philosophy of rural development in Tuvalu is to bring development
closer to the people through greater participation of the people in the
development process.
2. That an
Integrated Island Development programme (IIDP) be prepared for each of the 8
islands.
3. That in
recognition of its critical role, the Island Development Planning Process
(IDPP) team be formally reconstituted as a multi-disciplinary team which must
be actively supported by all agencies involved in rural development.
4. That the
determination of national priorities take into account local priorities as
reflected in the island development plans.
5. That
Secretaries and Directors of the various departments should schedule at least
one visit to the outer islands per year to familiarize and update themselves
with the developmental situations at the local level.
6. That the
various IIDPs be consolidated into a National Integrated Rural Development
Programme (NIRDP) with the participation of all agencies and NGOs involved in
rural development, as coordinated by the Department of Planning and Statistics
(DPS).
7. That the
Department of Rural Development (DRD) be established with the functions of the
Integrated Island Development Office (IIDO) integrated into it, and that the
newly defined structure, including its roles and tasks, be submitted to Cabinet
for formal approval.
8. That a
framework for the implementation of the NIRDP be developed jointly by the DRD
and DPS in close consultation with other agencies and NGOs involved in rural
development.
9. That the
structure of DRD should reflect its linkage to the Island Councils and its
programme should include strengthening of these councils and other local
institutions and organizations involved in rural development.
10. That the
DRD deal directly with donor agencies and organizations after the aid
allocations for rural development have been finalized, and that relevant
procedures regarding this matter be prepared by the Departments of Rural
Development and Planning and Statistics.
11. That
policies for integrated rural development be formulated by the DRD with the
assistance of the Integrated Atoll Development Project in close consolation
with all other agencies and NGOs involved in rural development.
12. That the
Government values highly the technical assistance inputs of the UNDP/ADP in
strengthening national and local capabilities for sustainable integrated rural
development and requests the continuation of IADP’s critical assistance in the
area of institution building in support of DRD and NIRDP, and in the actual
implementation of integrated rural development projects.
13. That in
recognition of the differing absorptive capacities of each of the respective,
rural development should proceed in an equitable and fair manner to all islands
but with the flexibility to be responsive to islands which demonstrate greater
development activity and potential.
1.0
Participants.
The
Manager of the IIDO, Seve Lausaveve, in his preliminary remarks as master of
ceremonies, said the conference would result in “valuable inputs to the
nation,” noting that virtually all sectors of government at the highest levels
were represented. A total of 30
participants attended, including the Prime Minster and the Cabinet and
representatives from non-governmental organizations.
2.0
Opening Prayer.
The
Secretary of Natural Resources Development, Pokia Tihala, in his opening
prayer, sought the Lord’s blessings to guide the participants during the
consultation.
3.0
Welcome Remarks.
The
Minister of Hoe Affairs and Rural Development, the Hon. Toomu Sione, noted that
previous attempts have been undertaken to strengthen the IIDO. It has become obvious that such attempts
should have been done within a framework of strategies for the entire rural
sector.
3.1
He expressed appreciation of the support extended by the
various sectors in conducting the consultation prior to the implementation of
IRD strategies.
4.0
Keynote Speech
The
Prime Minister, the Rt. Hon. Bikenibeu Paeniu, emphasized the importance of a “consultation
mechanism” to thresh out issues affecting the nation as a whole.
4.1
He said a “well-organized way” is needed to improve the
quality of life in the outer islands.
Efforts to coordinate the delivery of services to the remote islands
have met with “very little success.”
For one reason or another, the ministries have not responded well to the
coordinative efforts undertaken by the IIDO.
4.2
He reiterated the policy that Funafuti is part of the
country’s rural areas.
4.3
The government remains committed t rural development. The development of the outer islands is the
primary responsibility of the government and that the actions of government
officials and functionaries must be consistent with this commitment. He suggested that Secretaries and directors should
schedule a visit to the outer islands at least once a year.
4.4
Rural development programmes fail due to lack of people’s
involvement. Somehow programmes and
projects have not come up with effective ways to involve the people. He said to ensure participation; the
community must be able to identify its own needs.
4.5
Rural development involves all aspects, and local
governments are only one part of it.
Previous have been directed to imparting skills to the Island council,
but these attempts have not been too successful. The Council, however, has taken greater local responsibilities,
such as the care and maintenance of buildings.
Due to budgetary limitations, local government officers are still
lacking for all islands.
4.6
He said it had been proposed before to make the Council
the coordinating authority for all the civil servants in the island. This proposal has to be looked into more
systematically in the future as part of the search for effective strategies in
planning and managing local development.
5.0
Presentation of IADP Recommendations.
IADP Regional coordinator, Jeff Liew, presented the recommendations of the IADP Mission which was undertaken in July to determine effective strategies to improve the delivery of services to the outer islands.
5.1
He said the proposed strategies concern basically the
mainstreaming of rural development in accordance with a government mandate to
improve the quality of life in the rural areas. They seek to locate the relevant programmes, projects and
structures or mechanisms for island-based planning, implementation and
monitoring of outer islands development prominently within the routine concerns
of government at various levels.
5.2
Thus the proposed strategies deal with defining the
programme thrust, which will involve the formulation of the National Integrated
Rural Development Programme (NIRDP) based on the community-evolved island
development plans; and institutional mechanism, which will ensure multi-agency
programme coordination and monitoring; and the provision of relevant policy
support, which will facilitate programme measures or administrative reforms
required for smooth NIRDP implementation.
5.3
He further observed that in Tuvalu much headway has been
done in building structures with potential to be tapped to carry out a comprehensive
integrated rural development programme, i.e. Island Development Planning
Process (IDPP) team; Integrated island Development Office (IIDO); the National
Development Strategy Committee (NDSC); and the newly-created Ministry of Home
Affairs and Rural Development
5.4
He noted that more donors are now stressing preference for
grassroots development.
6.0
Discussion on the Recommendations.
6.1
On the formulation of the Integrated Island
Development Project (IIDP)
·
It was clarified that since Funafuti is composed mostly of
rural villages, the main island should be included within rural development
concerns. Hence, the IIDP will have to
be prepared for each of the 8 islands.
The IIDP will have a definite time frame “since by definition, a project
has a specific duration.”
·
It was suggested that instead of Project, it should be
termed Programme to avoid possible confusion, since the IIDP would contain a
compilation of projects.
·
It was pointed out that the IIDP concept would make
possible the identification of the sectoral thrust for each island. Thus the IIDP for Nukufetau could have more
projects for fisheries if the profiling exercise had identified more problems
in this sector and less in agriculture, if problems were not so significant in
this area. The reverse could be true in
other islands.
·
With the IIDP formulated for each island, there would be a
clearer geographic focus for sectoral programmes and projects. Each Ministry would know what it would be
contributing to the development of a particular island. There would be a direct link between the
projects and the specific developmental problems being addressed in a
particular island.
·
It was further pointed out that with the IIDP, there is a
comprehensive basis for negotiations between each island and central government
on priority needs and projects. Each
agency would have a basis for programming assistance for each island.
·
The IIDP would be based on the outputs of the
Participatory Island Profiling and Development Planning (PIPDP). Due to scarcity of resources, ranking of
problems and determination of priorities would be undertaken as part of PIPDP.
·
It was noted that the Island Development Planning Process
(IDPP) team plays a crucial role in the conduct of PIPDP. Most agencies, however, were not able to
send regular representatives t the team.
All agencies were enjoined to support the IDPP team.
·
The importance of considering national priorities in local
planning was expressed. National
Priorities were actually drawn up by the Department of Planning and Statistics
(DPS) in conjunction with other agencies.
It was stressed that national priorities should take into account local
priorities as reflected in the island development plans.
6.2
On the consolidation of IIDPs into a National
Integrated Rural Development Programme (NIRDP)
· It was stressed that a national programme based on the IIDPs would result in mainstreaming rural development, locating it right at the center of national concerns. The NIRDP could serve as the framework for delivering services to the outer islands. Monitoring of inputs on a nation-wide basis could readily be effected with this programme framework indicating sectoral responsibilities with regards to local-level development.
·
Resource mobilization could be facilitated with an
on-going national programme on the development of the outer islands. It would be easy for donors to see the
impact of their respective assistance to community-identified problems.
·
The duplication of ad hoc projects which waste resources
would be minimized.
6.3
On the institutional mechanism for the coordination
and monitoring of NIRD
·
It was suggested that programme coordination and
monitoring be vested instead with the National Development Strategy Committee
(NDSC) chaired by the prime Minister, rather than with the Office of the
Secretary to Government as recommended.
This is to avoid “cumbersome bureaucracy” and to facilitate immediate
action by the departments concerned represented in the committee by the
Secretaries.
·
The proposed Department of Rural Development (DRD) would
backstop the committee. The integration
of the functions of the Integrated Island Development Office (IIDO) to the new
department was unanimously approved.
The Integrated Atoll Development project (IADP) was requested to assist
in defining the structure and functions of the new department and the tasks of
its key personnel for submission to the Cabinet as soon as possible.
·
It was suggested that the structure of the new department
reflect its linkage to the island Councils and that its programme should
include measures to strengthen the councils and other local institutions and
organizations involved in rural development.
·
Direct dealing with donor agencies by the DRD after the
aid allocations for rural development have been finalized was recommended and
supported by the participants.
6.4
On the provision of policy support t the effective
planning, implementation and management of NIRDP
·
It was suggested that a policy statement on the rural
development strategies for Tuvalu be formulated based on the conference
resolutions.
·
The need was also expressed for the NDSC to review
policies related to IRD t identify existing gaps. The consolidation of all relevant policies into a comprehensive policy
framework was also considered an important task for the NDSC to undertake. A periodic assessment of IRD policy
requirements by the committee would have to be done to ensure adequate support
to the NIRDP.
·
IADP was requested to provide technical assistance in the
conduct of these activities.
6.5
Other issues discussed
·
Need to involve the church
It was
observed that the church has been more effective than the government in
mobilizing resources. People tend to
support church-related activities than development projects. The need to involve religious leaders was
emphasized.
·
Role of NDSC
Having a
programme coordination and monitoring center for NIRDP will not involve setting
up a separate office. It only means
defining NDSC as the focal point for such functions, which are in themselves
within the committee’s mandate, in addition to its policy formulation
tasks. There is no need to formalize
links with the DRD since its Ministry is represented in the committee by the
Secretary. Operationally, all that is
needed will be for the DRD to furnish progress reports on the NIRDP for
discussion during the periodic meetings of the NDSC.
·
Strengthening local government
There is
a need to look into the structure, functions and linkages of the Island
Councils. A major function of the new
Ministry of Home Affairs and Rural Development is to strengthen them as focal
points for decision making on local-level development. It was noted that sectoral agencies have a
tendency to ignore the councils in implementing projects. There is also a need to realign the tasks
and functions of the Island Executive Officers (IEOs) to transform them from an
overburdened administrative functionally into a committed development
agent. It was stressed that local-level
training should include traditional leaders as well women and youth.
·
Linkage with donors
It was noted that the national planning office spends more than half of its time in aid administration. To reduce this trend, the DPS now encourages sectoral agencies to deal directly with donors after budgetary allocations have been finalized and initial negotiations facilitated by the department. Procedures will have t be prepared between the DPS and the concerned agency.
·
Policy on equitable development
The
government reiterated its policy on equitable development. While in the past it was taken to mean that
no island would be better off than the rest and that the benefits of
development should be shared by all the islands, now it has been modified to
reflect development priorities. The
national government recognizes that the needs of each islands are equally
important and each island differs as to their priority needs, as conditioned by
varying factors, i.e. geography, size of the population, structure of the
lagoon. A project for one island may
not be feasible for some other islands.
It was also pointed out that an island’s level of responsiveness and
comparative development potential should be taken into account in planning
projects.
6.6
Preparation of the work programme
- The participants, under the chairmanship of
the Prime Minister, identified the key activities and determine the time frame
for each activity to ensure immediate implementation of the conference resolutions.