EN
This action is funded by the European Union
ANNEX 1
of the Commission Decision on the Annual Action Programme 2016 for Uganda
to be financed from the 11th European Development Fund
Action Document for the Development initiative for Northern Uganda
1. Title/basic act/
CRIS number

Development initiative for Northern Uganda (DINU) - CRIS number:
FED/2015/38781 financed under the 11th European Development Fund (EDF)

2. Zone benefiting
from the
action/location

Uganda
The action shall be carried out in Northern Uganda, in the following subregions: Karamoja, Lango, West Nile, Acholi, Teso.

3. Programming
document

Uganda - 11th EDF – National Indicative Programme (NIP) 2014-2020

4.
Sector
concentration/
thematic area

of 1) Transport Infrastructure; 2) Food
Security and Agriculture; 3) Good
Governance

5. Amounts
concerned

DEV. Aid: YES-1

Total estimated cost: EUR 150 632 542
Total amount of EDF contribution EUR 132 800 000
This action is co-financed in joint co-financing by:
 The Government of Uganda for an amount of EUR 11 953 840;
 The United Nations Capital Development Fund (UNCDF) for an amount of
EUR 352 174;
 The United Nations Children's Fund (UNICEF) for an amount of EUR 1
056 528;
 The Gesellschaft für Internationale Zusammenarbeit (GIZ) for an amount
of EUR 1 800 000;
 The UK Department For International Development (DFID) for an amount
of EUR 2 670 000;
This action is co-financed by potential grant beneficiaries for an indicative
amount of EUR 3 000 000.

6. Aid modalities
and implementation
modalities

1

Project Modality:






Indirect management with the Government of Uganda
Indirect management with the UNCDF
Indirect management with the UNICEF
Indirect management with GIZ
Indirect management with the DFID

Official Development Aid is administered with the promotion of the economic development and welfare of
developing countries as its main objective.

1

 7. DAC code(s)

43040 – Rural development - 100%; 31120 – Agricultural development
- 18%; 31130 – Agricultural land resources - 6%; 31140 – Agricultural
water resources - 3%; 31150 – Agricultural inputs - 4% ; 31161 – Food
crop production - 9%; 31162 – Industrial crops/export crops - 4%;
31163 – Livestock - 4%; 31166 – Agricultural extension - 4%; 23630 –
Electric power transmission and distribution - 3%; 12240 – Basic
nutrition - 4%; 13030 – Family planning - 3%; 15112 –
Decentralisation and support to subnational government - 7%; 15150 –
Democratic participation and civil society - 1%; 21020 – Road transport
- 48%; 21061 – Storage - 2%;

8. Markers (from
CRIS DAC form)

General policy objective

Not
targeted

Significant
objective

Main
objective

Participation development/good
governance
Aid to environment

☐

☐

☒

☐

☒

☐

Gender equality (including Women
In Development)
Trade Development

☐

☒

☐

☐

☒

☐

Reproductive, Maternal, New born
and child health
RIO Convention markers

☐

☒

☐

Not
targeted

Significant
objective

Main
objective

Biological diversity

☒

☐

☐

Combat desertification

☒

☐

☐

Climate change mitigation

☐

☒

☐

Climate change adaptation

☐

☒

☐

9. Global Public
Goods and
Challenges

n/a

10. Sustainable
Development Goals
(SDGs)

SDG 1"End poverty in all its forms everywhere"
SDG 2 "End hunger, achieve food security and improved nutrition, and
promote sustainable agriculture"

SUMMARY
Northern Uganda, which has been suffering from the combined effects of long and violent conflicts,
extreme weather conditions and insecurity, is still lagging behind the rest of the country in terms of most
human development indicators, with women being disproportionately affected. Poverty indicators are still
among the worst on the continent, at 43.7% (twice the national average), while stunting rates of children
under five are around 37% in Karamoja.2 Conflict drivers, such as land rights, youth unemployment and
access to land and water are still threatening the consolidation of the post-conflict recovery. Despite the
high potential of agriculture in the region, the contribution of the sector to poverty reduction and improved
nutrition has been disappointing, notably as a result of poor nutrition knowledge, malfunctioning value
2

Data from Uganda Demographic Health Survey – source: http://www.ubos.org/onlinefiles/uploads/ubos/UDHS/UDHS2011.pdf

2

 chains, poor transport infrastructures (despite its proximity to major export markets in the region, the North
only accounts for 4.5% of Uganda’s exports) and lack of capacities of local governments, who are only to a
limited extent capable of fulfilling their mandates (both core mandate and broad general mandate), which
hampers their ability to respond to local needs and capacity to deliver quality services to its citizens.
The programme aims to steer a paradigm shift from a sector-oriented support to an integrated territorial
approach, and 'connect the dots' between key sectors and areas for an inclusive and sustainable socioeconomic development of the region, by supporting a selection of relevant value-chains (taking into
account the respective agro-ecological zone types of the sub-regions), addressing notably the identified
bottlenecks, and working with local private sector. This will not be possible without a crucial facilitating
role played by local authorities who will be specifically supported to better fulfil their core and broad
mandates (notably in relation to the other sectors targeted by this programme) and better respond to local
needs and deliver quality services to its citizens, improving upwards and downwards accountability
mechanisms. Local authorities are responsible for local economic development. They are thus expected to
play a key role in planning and overseeing the implementation of programme activities, as the programme
adopts an integrated, place-based approach to development planning and implementation and
operationalises it through the formulation of jurisdiction-specific territorial development strategies,
developing both vertical partnerships (local authorities-central state) and horizontal partnerships (local
authorities - local private, non-profit and community-based organisation), and leveraging place-specific
resources. This will be complemented by activities aimed at unlocking trade within the region, within the
country, and with neighbouring countries through the improvement of transport infrastructures. These
activities will contribute to the reaching of the objectives of the Economic Partnership Agreement (EPA)3
signed by the East African Countries (EAC) block and the EU in July 2016, and notably those relating to
regional integration and economic cooperation in the EAC and the structural transformation of Uganda
economy and its diversification and competitiveness.
Furthermore, the programme will address the root causes of irregular migration and instability, contributing
to the development of sustainable livelihood of poor communities living in the north, building their
resilience to climate change through improved farming techniques and promoting the economic and social
integration of current refugee communities living the northern region.4
In terms of geographic focus, there is a first set of four districts (Amudat, Adjumani, Abim, Moyo), which
were selected for their agriculture potential but limited access to the market, in accordance with the
outcome of the scoping studies and prioritised by the Government's master plan for rehabilitation and
upgrading of community access roads. Overall the objective is to focus the integrated interventions in
approximatively fifteen districts. In addition, the district of Gulu had already been selected by the
Government for the construction of a logistic hub that will facilitate the shipping of cargo to/from Northern
Uganda, and seven districts of Karamoja had been identified to benefit in priority from support to police
forces. The choice of connecting roads has also been made to unlock the whole West Nile region.
As mentioned, West Nile is one of the sub-regions targeted. This is also where the project funded by the
EU Trust-Fund that aims at reducing irregular migration strengthening the resilience of refugee and host
communities is implemented. Synergies potential include fostering economic exchanges and trade between
refugee and host communities, supporting farmers groups to ensure that they are able to benefit from the
increased demand for food products triggered by the influx of South Sundanese refugees in the North and
by the transition from food to cash distribution; furthermore, transport infrastructures that will be built in
the framework of this programme – notably the logistic hub in Gulu - will greatly facilitate the shipping of
products and equipment to refuges settlements located in the districts of Adjumani, Arua and Kiryandongo,
leading to important savings for development partners.
3
4

Listed in Article 2 of the agreement
By early November 2015, Uganda was hosting more than 507,000 refugees and asylum-seekers, the majority of whom were from the Democratic
Republic of Congo (DRC) and South Sudan

3

 The general objective of the programme is to consolidate stability in Northern Uganda, eradicate poverty
and under-nutrition and strengthen the foundations for sustainable and inclusive socio-economic
development. It will focus on the sub-region of West Nile, Acholi, Lango, Teso5 and Karamoja. Adopting a
multi-sectorial approach, support will be provided in the three focal sectors identified in the NIP.
The programme will also take into account that (1) women have a key role in the socio-economic sphere in
Northern Uganda, both as potential entrepreneurs, and as key drivers in addressing food insecurity and poor
nutrition; (2) natural resources constitute the primary source of livelihood for the majority of Ugandans; (3)
Northern Uganda’s population is set to double by 2040, presenting a massive poverty reduction and job
creation challenges. Youth will be targeted whenever possible.
The programme will thus aim to support environmentally sustainable/climate-smart practices and valuechains development selected for their combined potential (1) to improve food security and nutrition of
targeted communities; (2) to foster rural economic diversification and transformation; to create inclusive
and sustainable jobs; (3) to improve livelihoods; (4) to tap into the Green Economy potential (in terms of
new opportunities of income-generating activities).
This programme is building on past political economy analysis and a recent Integrated Decentralisation
Diagnostic Framework diagnostic.
1

CONTEXT

1.1

Sector/Country/Regional context/Thematic area

Uganda is striving to become a middle income country by 2020, and overall indicators show significant
progress during the last two decades. Reduction in the absolute number of poor people is marginal due to
population growth, and hides substantial spatial variation (with Northern Uganda still lacgging behind) and
rising inequality. Northern Uganda, which has been suffering from the combined effects of conflicts,
extreme weather conditions and insecurity, is still lagging behind the rest of the country in terms of most
human development indicators (notably poverty and the number of undernourished children has increased),
with women being disproportionately affected. While the potential of the agriculture sector in terms of
poverty reduction is important, this is still largely untapped.
1.1.1

Public Policy Assessment and EU Policy Framework

Public Policy Assessment
At national level, the Uganda's Vision 2040 describes long term policy objectives for the country and
envisions a transformed society from a predominantly peasant and low income country to a competitive
upper middle income country. The 2nd National Development Plan 2015/16 – 2019/20 is the overarching
planning guide for Uganda and provides strategic direction to the sectors so that they can contribute to
“propel the country towards middle income status by 2020”. Other relevant frameworks and policies
include the Public Finance Management Act6 (PFMA) 2015, the National Gender Policy (2007) and
National Action Plan on Women (NAPW)7, the National Climate Change Policy8 (2014).

5

Districts of Katakwi and Amuria
The Public Finance Management Act 2015 provides for public financial management and macroeconomic management embracing Gender
Responsive Budgeting (GRB) while mandating all the Budget Framework Paper and the Policy Statement to be certified with a Gender and
Equity Certificate. By this Act, all ministries, agencies and local governments are required to ensure that their plans and budgets are gender and
equity responsive and specify measures taken to equalise opportunities for women, men, persons with disabilities and other marginalised groups
7
It guides at all levels planning, resource allocation and implementation of development programmes how to integrate a gender perspective
8
The National Climate Change Policy aims at to mainstreaming climate change adaptation and mitigation measures in all government acts and
policies, and guides planning at central and local level towards an environmental and climate-sensitive approach of formulation and
implementation of programmes and activities.
6

4

 At regional level, the main policy for reconstruction of Northern Uganda is the 3rd Peace Recovery and
Development Plan which provides a strategic framework against which the Government of Uganda,
Development Partners, Civil Society Organisations and the Private Sector can prioritise and align their
action to increase coordination and maximise impact for the region9. At sub-regional level, the 2nd
Karamoja Integrated Development Plan is a medium-term development framework specifically tailored to
address the unique context and development challenges faced in Karamoja in the period 2015-2020.

EU Policy Framework
The overarching policy framework is the 2011 Agenda for change which supports pro-poor and inclusive
socio-economic development with sustainable practices, including the safeguarding of ecosystem services
giving priority to locally-developed practices. Relevant Communications include: the 2012 Communication
on Resilience; the 2013 Communication on Local Authorities; the 2012 Communication on Civil Society;
the 2010 Communication on Food Security;10 the 2013 Communication on Maternal and Child Nutrition;
the 2014 Communication on private sector,11 the Communication on the State of Play of Implementation of
the Priority Actions under the European Agenda on Migration. The programme is also in line with the
recent (June 2016) Communication on establishing a new Partnership Framework with third countries
under the European Agenda on Migration. Relevant Action Plans include: the Nutrition Action Plan;12 the
Gender Action Plan 2016-2020.
1.1.2

Stakeholder analysis

The programme will target vulnerable households in the sub-regions of West Nile, Acholi, Lango, Teso13
and Karamoja. Particular priority will be given to women recognising their role in the agricultural sector
and their potential to influence nutrition within the household. Children below 5 years old will be
specifically targeted considering the importance of good nutrition during the first years of life, while youth,
given the nature of the age pyramid in the region and their potential in terms of socio-economic
development, will be the main target of activities aimed at increasing skills development, job opportunities
and reproductive health.
The key stakeholders include: National and sub-national authorities - the Office of the Prime Minister is
the main counterpart for this action, together with the local governments at district and sub-county levels
and all relevant line ministries/agencies at national level; Civil society organisations - especially nongovernmental, community-based organisations and women and youth-led organisations to mobilise and
empower communities to participate in planning, implementation and monitoring of project activities and
to participate in local governance; Citizens of Northern Uganda; Private sector/private sector-based
organisations - input and service providers, business associations, traders upstream and downstream the
value chain, financial institutions both formal and informal and farmer based organisations.

9

All the districts targeted under this programme are all included in the zone covered by Peace, Recovery and Development Plan for Northern
Uganda
10
Which aims to contribute to increased availability of food, improved access to food, nutritional adequacy of food intake, and enhanced crisis
prevention and management.
11
Which sets out key role of private sector at the forefront of international development in its partner countries
12
Which outlines how the Commission plans to reach its commitment to reduce Child Nutrition highlighting the need to increase support in the
areas of governance, scaled up interventions and research.
13
Districts of Katakwi and Amuria.

5

 1.1.3

Priority areas for support/problem analysis

A. Problem analysis
Fighting under-nutrition and poverty in Northern Uganda is a complex task calling for changes in food
production and consumption patterns and multi-dimensional efforts to promote sustainable development.
The United Nations Children's Fund (UNICEF) conceptual framework described in the figure adjacent
describes the multi-layered causes of malnutrition and poverty in Northern Uganda. It highlights the
interactions between malnutrition and poverty – poverty being a cause of malnutrition through the food
security/health pathway, and malnutrition being a major contributor to poverty through its impact on the
labour forces; and articulates the role of various type agents (private and institutional) in fighting causes of
undernutrition and promoting poverty reduction.
Economic cost of child malnutrition represents 5,6% of GDP annually

Short term: mortality,
morbidity, disability
Socio-economic
Socio-economic
environment
environment

Long terms:
intellectual ability, economic
productivity, reproductive
performances, metabolic and
cardiovascular disease

Maternal and child undernutrition

Immediate
Immediate causes
causes

Underlying
Underlying causes
causes

Basic
Basic causes
causes

Inadequate dietary
intake access

Diseases burden

Underlying cause 1:

Underlying cause 2:

Underlying cause 3:

vulnerability to
food insecurity

Inadequate care
for children and
women

Insufficient health
services and
access to WASH

Institutional and economic context
(inadequate service delivery to create an
enabling environment)

Despite a relatively high growth rate of the national gross domestic product (GDP), the performance of the
agriculture sector in the North has been disappointing over the past. The shift from subsistence to
commercial agriculture that has been experienced at national level over the past ten years has been
insufficient in the North, notably in Karamoja and did not enable small-scale farming household to break
out of the reinforcing circle linking under-nutrition to poverty. As a result, together with other factors,
under-nutrition remains high and is seen as a major obstacle to sustained economic development for the
region.14 Poverty and chronic under-nutrition15 indicators have evolved in parallel; whilst progresses have
been experience in relative terms for both poverty indicator16 and under-nutrition,17 progresses were
insufficient in view of the high growth of the population.18 Besides stunting, micro-nutrient deficiency19 is

A study conducted by the World Food Programme showed that the cost of children under-nutrition alone is equivalent to 5.6% of Uganda’s Gross
domestic product, as a result of loss of potential of labour and skills due to poor cognitive development of children – sources:http://npa.ug/wpcontent/themes/npatheme/documents/Publications/Cost%20of%20Hunger%20report%20summary%20version_Final%20Edition.pdf
15
Referred as stunting.
16
73,5% of the population living in the North were poor in 1993, 43.7% in 2013; for the East figures are 58.8% in 1993 and 24.5% in 2013 –
source: http://www.finance.go.ug/index.php?option=com_docman&task=doc_details&gid=423&Itemid=7
17
Stunting rates went from 44% in 1995 to 37% in 2016 in the North, figures for the East are 46% for 1995 and 40% for 2016 north – source:
http://www.fantaproject.org/sites/default/files/resources/Uganda_NSA_May2010.pdf
18
Over the past decades the number of people living below the poverty line has increased and in the same manner, children under five affected by
undernutrition are expected to rise by a quarter million by 2025 if no further effort is provided.
19
lack of vitamins and minerals, also known as “hidden-hunger”.
14

6

 also high20 and forecasts do not show hopes of significant improvement in the near future. Women have
been disproportionately affected by these phenomena.21
In Uganda disease burden and inadequate dietary intake are the immediate causes of malnutrition in
children under 5. Diseases such as malaria,22 Diarrhoeal disease and Acute Respiratory Infections23 pose an
immediate threat to nutrition outcomes among pregnant women and children. Beside, inadequate dietary
intake remains an important problem. Across all sub-regions, children tend not to be fed on any food other
than that eaten by other family members. This is linked to issues related to inadequate care for children and
women empowerment further developed below.
The underlying causes of under-nutrition are diverse and inter-linked and include:
Vulnerability to food insecurity: food insecurity in Northern Uganda is triggered by poor agricultural
production, insufficient income at household level,24 and inappropriate food utilisation/consumption.
Despite the favourable agro-ecological conditions in the region, the potential of the agriculture sector to
alleviate food and nutrition insecurity in the region remains largely untapped. This can notably be
explained by a number of challenges and bottlenecks encountered at various levels of agricultural value
chains.
Inadequate care for children and women: Only 7% of the children in Northern Uganda are benefitting
from infant and young child feeding standards. Whilst breastfeeding is nearly universal, exclusive
breastfeeding tapers off rapidly over the initial six months. Many children are weaned too early. This
happens most frequently among mothers who conceive within six months of a delivery and believe that the
pregnancy/unborn child will affect the health of the breastfeeding baby. Complementary feeding of
children from 6 to 23 months falls well below the minimum standards for a nutritious diet.
Insufficient health services and access to Water, Sanitation and Hygiene: Community-based and
community-led nutrition promotion interventions are weak and their scope too limited to bridge the gap
between communities and health facilities, which results in poor nutrition awareness of mothers and
children, notably on issues related to child spacing25 and family planning. 26 Besides, the limited access to
safe water and hygiene in Northern Uganda remains an important factor to under-nutrition. 27
Basic causes for under-nutrition can be traced back from the inadequate institutional environment and the
failure of local governments to ensure a minimum level of service delivery to tackle underlying causes
listed above.
Inadequate service delivery is prevalent across the entire spectrum of local government's mandate.
Nutrition governance and support to agriculture is fragmented and needs to be fully integrated and better
coordinated across different services. Basic resources such as water, land and infrastructures are not
adequately managed to maximise economic development.
20

With one in two children and one in four women suffering from iron-deficiency anaemia, and one in five children and women of reproductive age
are deficient in vitamin A.
21
The poverty status report for 2014 found that 43% of Ugandan’s are at risk to return to poverty during economic shocks or other natural
emergencies such as droughts and floods, with higher risk for female-headed households living in Northern Uganda - UDHS 2011 and Situation
of Women Report, chapter 4 and 5, Uganda Ministry of Gender, Labour and Social Development 2014.
22
88% of the population is exposed to moderate to very high malaria transmission.
23
Prevalence of diarrhoea and ARI symptoms in young children are at respectively 21/36% in the North, 6/22 in West Nile, 19/29 in Karamoja,
24
Although there is no regional statics for Northern Uganda, studies conducted at national level – which can provide a proxy of phenomena - show
that 66% of households are net buyers of food and rely on the market for over 25 percent of the value of the food they consume, even in rural
areas – sources: http://ebrary.ifpri.org/cdm/ref/collection/p15738coll2/id/129164
25
The nutrition statute of children and mothers is greatly affected by the high fertility rate in rural Uganda estimated at 7.1 children per women Data from UDHS 2011: http://dhsprogram.com/publications/publication-FR264-DHS-Final-Reports.cfm
26
According to a study commissioned by the EUD, 76.3% of married women aged 15-49 living in Karamoja, North and West Nile sub-regions
were not using any contraceptive method; non-usage was highest in Karamoja and West Nile sub-regions (Karamoja 92.2%, West Nile 85.4%) Data from the Health Management Information Systems (not available online).
27
Karamoja and West Nile are among the worst performing sub-regions as regard to water access; most district in Karamoja and West Nile have
less than 50% of inhabitant living within 1km of an improved water source, while national average is 65%. As regards to sanitation and hygiene,
Karamoja and Acholi scores the worst in terms of latrine coverage; most districts in Karamoja and Acholi have a latrine coverage of [0-40%]
while national average is at 69% - data from the Ministry of Water and Environment: http://www.rural-watersupply.net/_ressources/documents/default/1-627-34-1413793157.pdf

7

 The proliferation of new districts and the absence of mechanisms to mutualise resources have jeopardised
the financial sustainability of decentralised structures of government. With own source revenues dwindling,
local governments have increasingly had to rely on central government grants, which in turn have become
complex and unpredictable.
This resulting poor performance, exacerbated by the deterioration in both internal and external
accountability systems, has resulted in a fragmentary and often dysfunctional triangular relationship
between local stakeholders, local government and central government. Local communities have little
involvement in local planning decisions, which leads to weak demand for accountability and therefore poor
compliance. Local authorities lack the capacity to keep pace with reforms – notably those that lead to a
decrease of their revenue - and are unable to meet their statutory requirements to central government and
national accountability agencies. Central government is unable to properly measure and assess
performance, and lacks suitable control mechanisms and centralises decision making.
B. Areas for support
The programme aims to steer a paradigm shift from a sector-oriented support to an integrated territorial
approach, and 'connect the dots' between key sectors and areas for an inclusive and sustainable socioeconomic development of the region, by supporting a selection of relevant value-chains (taking into
account the respective agro-ecological zone types of the sub-regions), addressing notably the identified
bottlenecks, and working with local private sector. This will not be possible without a crucial facilitating
role played by local authorities who will be specifically supported to better fulfil their core and broad
mandates (notably in relation to the other sectors targeted by this programme) and better respond to local
needs and deliver quality services to its citizens, improving upwards and downwards accountability
mechanisms. Local authorities are responsible for local economic development. They are thus expected to
play a key role in planning and overseeing the implementation of programme activities, as the programme
adopts an integrated, place-based approach to development planning and implementation and
operationalises it through the formulation of jurisdiction-specific territorial development strategies,
developing both vertical and horizontal partnerships, and leveraging place-specific resources. This will be
complemented by activities aimed at unlocking trade within the region, within the country, and with
neighbouring countries through the improvement of transport infrastructures.
1. Food security and nutrition: the programme will respond to the above-mentioned problem analysis
using value chain development as an entry point to improve under-nutrition. Private operators will be
incentivised to work with small scale farmers. Support to agriculture will be complemented by a set of
nutrition-specific interventions implemented at community level. Research conducted in Uganda has
provided evidence that agriculture affects nutrition and poverty through three main pathways: 28
 Diverse food production leading to increased food access for household consumption as well as the
availability of a range of foods at competitive prices in local markets: the programme will seek to reduce
under-nutrition by (i) promoting a range of food and animal products that contribute to a more nutritious
diet; and (ii) supporting distribution strategies that allow poor consumers access to more diverse and
nutritious foods including biofortified varieties.
 Agricultural income for expenditure on nutritious food and non-food items: the programme will aim at
increasing the income of small-scale farming households, facilitating their interactions with market
players and strengthening their ability to secure profitable commercial relationships with other operators.

28

The study “Leveraging Agriculture for Nutrition in East Africa” led by the International Food Policy Research Institute (IFPRI) provides a
systematic literature review aligning research studies to agriculture-nutrition pathways, for Uganda, Ethiopia and Kenya – source:
http://ebrary.ifpri.org/cdm/ref/collection/p15738coll2/id/129164

8

 Recognising that the pathway linking increased income to better nutrition is not automatic, 29 attention will
be paid to the potential negative side effects of promoting commercial agriculture.30
 Women’s empowerment as a trigger for improved nutrition: studies show the importance of promoting
gender equality in the agriculture sector as a mean of strengthening food and nutrition security. 31 The
programme will seek to empower women on various dimensions32 and will notably target women for a
number of nutrition-specific activities,33 notably on issues relating to young child feeding practices,
hygiene and sanitation for children, knowledge and access to family planning methods which will both
address nutrition and unsustainable population growth issues.
2. Transport infrastructures: this component will facilitate the transport of commodities in and out of the
region, providing farmers with the opportunity of accessing regional, national and international markets,34
and facilitating the importation of agriculture inputs and other consumer goods. It will be complemented by
support provided to relevant levels of governments ensuring the sustainability of the investment. The
programme will respond to three identified gaps that restrict access to markets:
Absence of reliable carriage ways connecting rural communities with local/regional markets: the
programme will support the rehabilitation of district and community access roads, aiming at ensuring all
weather accessibility to services and markets for population and commodities.35
Limited connectivity of a number of Northern districts to the national road network: the programme will
support the rehabilitation and construction of the road Atiak-Laropi connecting western districts to the
national network and ensuring a stable, all weather connection with the rest of the country.
The absence of logistics platforms and cargo distribution systems: the programme will support the
construction and operation of a logistic hub in Gulu, strategically located along the Tororo-Gulu-NimuleJuba corridor, which will facilitate the handling of cargo including humanitarian food from the World Food
Programme, leading to a reduction of cost of transport.
3. Local governance: improvements in the above levels of service provision will ultimately depend on the
capacity of local governments to carry out their core processes. Interventions on public finance
management will focus on compliance with government regulations. Local revenue mobilisation plans will
be developed in cooperation with local communities, creating a compact on revenue generation linked to
improved service delivery. Looking to the future, structured partnerships will be established between local
government associations and central government departments, for research and advocacy on institutional
and policy reforms relating to their core mandates.
Improved performance of local governments requires both internal and external monitoring, and support
will be given to 'Upward Accountability' – local government interactions with national accountability
institutions and line ministries; revitalisation and implementation of the annual performance system; and
the provision of EU funded performance based 'top up grants', aiming to incentivise local authorities and to
stimulate community involvement. 'Downward Accountability' of local authorities - to their constituents,
civil society, media and other relevant stakeholders - is of equal if not more importance. The programme
29

Limits of this pathway has been described in a study conducted by the World Bank : source :
http://siteresources.worldbank.org/INTARD/825826-1111134598204/21608903/January2008Final.pdf
30
Notably through a shift from staple to cash crops, increased workload of women, decrease of women’s control over income, access to natural
resources etc.
31
A statistical correlation between women’s relative decision making power and child weight-for-age in Uganda has notably been established in the
framework of the study “The Importance of Women’s Status for Child Nutrition in Developing countries” – source IFPRI:
http://ageconsearch.umn.edu/bitstream/16526/1/rr030131.pdf
32
Including increase their influence on household decisions about agricultural production, increase their access over productive resources - notably
land, credit and technology, increase their control over use of income and ensure adequate allocation of their time to productive and domestic
tasks.
33
Though not exclusive, men will be involved too.
34
Imports for neighbouring countries are on the rise : +70% for South Sudan from 2011-2016; +38% for DRC over the same period - source
African Economic Outlook: http://www.africaneconomicoutlook.org/en/country-notes/
35
Within 4 targeted districts - Adjumani, Moyo, Amudat and Abim - selected for their agriculture potential but limited access to the market.

9

 will aim to enhance transparency, consultation and participation, and emphasise periodic monitoring of
public expenditure and service delivery performance by non-state actors.
In parallel, interventions will aim at supporting the capacities of local government structures to deliver
efficient and accountable services in selected sectors. This support will focus on the sectors of interventions
tackled in the framework of the other programme components – production, nutrition, road maintenance,
water and land governance - where local governments have the mandate to deliver services. Although not
directly under the administration of district governments, support will be provided to local police forces in
Karamoja to ensure minimum presence. Though peace has been brought through a successful government
disarmament process initiated in 2012 and the signature of a cease fire with the Lord Resistance Army, this
remains fragile, particularly in Karamoja where police presence is very limited.36
2

RISKS AND ASSUMPTIONS

Risks

Risk
level

Mitigating measures

Worsening of security situation and Low
insecurity in the region

Mitigation measures will include continued support to
Uganda Police Force in the region and mainstreaming of
community based conflict resolution systems.

Climate/environment deteriorates

Medium

Foster the adoption of sustainable farming practices (climate
smart, water-scarce, etc.) that also contribute to the resilience
of agro-ecosystems, and efficient water and energy
management techniques.

Local elites capture project results

High

Reinforce downward accountability through grassroots
community-based gender-responsive organisations.

Lack of complementary funding High
from the government of Uganda:
staffing,
running
costs,
maintenance, etc.

Mitigating measure will include relying on low maintenance
designs, increased resource generation for local governments,
seek local Private-Public Partnerships models when
appropriate, and ensure close collaboration with the Office of
the Prime Minister and the Ministry of Finance, Planning and
Economic Development.

Emphasis on production and Low
productivity
for
commercial
purposes
may
compromise
nutritional outputs

Use nutrition-sensitive indicators at all levels to ensure that
project activities are nutrition-sensitive and that measures to
mitigate negative impacts of commercial agriculture (shift
from staple to cash crops, use of pesticides, increased
workload of women, decrease of women’s control over
income, pressure on natural resources etc.) are identified and
implemented.

Lack
of
transparency
/ High
mismanagement in procurement /
financial management by local
governments

Upward and downward accountability and monitoring
systems will be strengthened increasing community pressure
on non performing local governments. Strong technical
assistance component of the project and strong monitoring
system

36

A number of districts have only one police station with limited transport.

10

 Unfavourable and insufficient Medium
collaboration/coordination among
the participating partners and
project components

Strengthen coordination at national, district and community
levels to build linkages. The supervising/coordination role of
the Office of the Prime Minister and the political support of
the Prime Minister are confirmed.

Lack of support of men and women Medium
in activities aimed at fighting
harmful cultural practices targeting
women and girls compromising
minimum standards of Infant and
Young Child Feeding

Nutrition specific interventions will be jointly organised with
other types of activities which may raise more interest from
small-scale farmers.

Assumptions
 Conflict in South Sudan will not intensify and will not lead to a new wave of refugees which could possibly
increase tensions in West Nile.
 Northern Uganda will not experience extreme weather events which could possibly undermine programme
results in the agriculture/livestock sectors.
 Private sector value chain champions will find the financial support framework sufficiently attractive to
submit concept papers and full proposals for the private sector funding scheme.
 Government policies and strategies will continue encouraging trade and agriculture development in
Northern Uganda.
3

LESSONS LEARNT, COMPLEMENTARITY AND CROSS-CUTTING ISSUES

3.1

Lessons learnt

Lessons learnt in the area of Local Governance: (i) Lack of accountability of decentralised structures of
government calls for the adoption of different approaches to ensure accountability relying on established
national procedures37and on a combination of external upward accountability mechanisms38 and
downwards control; 39 (ii) Strengthening the technical capacities of sectorial team at local governments
level will not lead to improved service delivery should the ability of district council to undertake core
processes in not improved (participatory planning and budgeting, issuing of ordinances and bylaws,
procurement, reporting etc.).
Lessons learnt in the area of agriculture and food security/nutrition: (i) Climate change jeopardies the
entire economic agricultural model in Northern Uganda and requires the adoption of climate smart, waterscarce sustainable farming practices; (ii) farmers in Northern Uganda are able to engage with market
players when adequately supported along the whole value chain to improve quality and quantity of
production; (iii) considering the lack of security of land tenures and related land conflicts, long term growth
of the agricultural sector in the target region remains fragile, and conflict drivers such as land grabbing and
archaic traditional practices which deny women the right to own land, have to be adequately addressed; (iv)
women are key agents of change and women empowerment will lead to increased agricultural productivity
and improved nutrition.
Lessons learnt in the area of transport infrastructures: (i) new technologies such as low cost sealing can
reduce the cost of road maintenance; (ii) inadequate funding of preparatory studies has expensive technical
37
38
39

Such as PPDA - The Public Procurement and Disposal of Public Assets.
Office of the Auditor General, MoLG, external technical assistance and auditors, NGOs.
Community control through initiatives such as barazas up to SMS/social networks based applications.

11

 and legal repercussions at the projects implementation stage; (iii) inadequate funding and delays in the
implementation of the resettlements action plans and delayed acquisition of the Right of Way slows down,
leads to obstruction of construction works and delays implementation of the projects.
3.2 Complementarity, synergy and donor coordination
Development partners operating in the region are: the United Kingdom Department for International
Development, Irish Aid, United States Agency for International Development, Deutsche Gesellschaft für
Internationale Zusammenarbeit, Danish International Development Agency, Embassy of the Kingdom of
the Netherlands, Japan International Cooperation Agency, Swedish International Development Agency,
United Nations agencies and the World Bank.
The Office of the Prime Minister has the mandate to lead and coordinate the activities in Northern Uganda,
at both political level (the Minister for Karamoja and the Ministers of State for Karamoja, Northern Uganda
Affairs and Teso Affairs) and technical level, through the teams in the field. An important role of the Office
of the Prime minister is to coordinate the interventions of the Development Partners, to create coherence
and synergies between programmes all the way from the design to the implementation phase.
The programme's coordination at national level will be achieved through the extended Steering Committee
and through various donor coordination platforms that include: 1) Northern Uganda Group; 2) Karamoja
Development Partners Group; 3) Nutrition Development Partners Group; 4) Agriculture Development
Partners Group; 5) Karamoja Integrated Development Plan –Technical Working Group; 6) Peace Recovery
and Development Plan -Technical Working Group; 7) Transport Development Partners' Group chaired by
the EU; 8) Environment and Natural Resources Development Partners' Group; 9) Gender development
Partners’ Group, 10) Land Development Partner's Group chaired by the EU.
At local level, the main elements of coordination will be the District Development Plans. In each District,
the project management will ensure that the requested support will be included in the District Development
Plans, alongside with all main complementary programmes.
The project will look for synergies and complementarities especially with the following actions:


The EU Trust Fund-funded Support programme to the refugee settlements and host communities in
Northern Uganda, which will support livelihoods and increase income for refugees and host
communities in Adjumani, Arua and Kiryandongo.



The Financial Management and Accountability Programme (FINMAP III) is a Multi-donor funded
Government of Uganda’s flagship framework for the implementation of its public financial
management reform strategy (July 2014 - June 2018) with the aim of achieving effective, efficient and
accountable use of public resources as a basis for improved service delivery,and target, inter alia,
external oversight and public finance management in local governments.



The World Bank funded Uganda Support to Municipal Infrastructure Development Programme, aims
to enhance institutional capacity of selected municipalities to address urban service delivery gaps, and
Fiscal Decentralisation, Governance, and Service Delivery Development Policy Operations targets
implementation of policy reforms aiming at enhancement of fiscal decentralisation framework and
improving selected dimensions of governance and service delivery.



The Democratic Governance Facility, co-funded by the EU and several EU Members States which
aims at creating a more pluralistic, representative and accountable governance based on democratic
values, institutions and processes in Uganda.



The EU-funded Civil Society in Uganda Support Programme (CUSP), which aims at strengthening the
capacity and efficiency of civil society in Uganda, and the Government of Uganda – civil society
organisations (CSOs) engagement in support of Uganda’s national development goals. Whilst CUSP's
scope is broader than the engagement with CSOs foreseen under this action. CUSP focus will be on

12

 targeted capacity building of CSO platforms and members, as well as the policy and legal environment
in which they operate.
The United States Agency for International Development funded programme Community Connector,
which aims at reducing poverty, food insecurity and under-nutrition through a comprehensive and
multi-sectoral approach, and Strengthening Governance, Accountability, Participation and
Performance, which supports the creation of more equitable, efficient and effective service delivery.





FAO/Ministry of local government Programme for Restoration of Livelihoods in the North, which aims
at increasing sustainable production, productivity and climate resilience of small holder farmers with
increased and profitable access to domestic and export markets.



United Kingdom Department for International Development's Enhancing Resilience in Karamoja,
which aims at increasing resilience in Karamoja through strengthening nutrition programmes,
livelihoods and food security, and Northern Uganda: Transforming the Economy through Climate
Smart Agribusiness which aims at increase the resilience to climate change of poor farmers in Northern
Uganda.



United Nations Food and Agricultural Organisation/World Bank/Ministry of Agriculture Animal
Industries and Fisheries Regional Pastoral Livelihoods Resilience Project, which aims at increase
resilience of pastoral communities.



World Bank/Office of the Prime Minister programme Northern Uganda Social Action Plan III, which
seeks to improve access to income-earning opportunities and better socio-economic services in
Northern Uganda.



The Information for Nutrition Food Security and Resilience for Decision Making programme will
contribute to strengthening resilience to withstand food crises as a result of human-induced and natural
disasters. Providing regular, timely and evidence-based information to decision-makers is one of the
means to achieve this goal.



Regional programmes under the Intergovernmental Authority on Development (IGAD) Drought
Resilience and Sustainability Initiative (IDDRSI) Strategy which is aiming at addressing the effects of
drought and related shocks in the IGAD region in a sustainable and holistic manner.



Danish International Development Agency's Rural Transport infrastructure project, which aims at
rehabilitating district and community access roads, supporting the Ministry of Works and Transport in
planning and monitoring roads maintenance at district level and training of district staff and contractors
through the Mount Elgon Labour Based Training Centre.

3.3

Cross-cutting and other issues

The strengthening of peaceful dispute resolution mechanisms is key to promoting harmonised
development in a region that has experienced violent conflicts, leaving an important share of its inhabitants
traumatised. Promoting peaceful resolution of notably land-related conflicts, which are widespread in the
region and often leads to physical violence and gender injustice, is key to ensuring social cohesion and
promoting economic development. While the recent influx of South Sudanese in West Nile provides large
opportunities for farmers in terms of increased demand for food products, 40 it has tremendously modified
the demography of some districts,41 causing frictions with host communities over resources.
The programme, which aims at reducing poverty and improving nutrition through the agriculture sector,
will have a strong gender dimension and this for three reasons: the workforce involved in agriculture in
Northern Uganda is largely female; poverty rates are higher for women and girls and they are most affected
40

41

Around 100 000 South Sudanese refugees live in refugee settlement Northern Uganda, and cash distribution is gradually replacing food
distribution.
In Adjumani, refugees now account for 30% of the district population.

13

 by under-nutrition and food insecurity; gender inequality is a root cause of persistent poverty and food
insecurity in Uganda and women’s empowerment is a strong pathway to improved child under-nutrition. In
the targeted region, social culture underlies a number of prevailing norms and values creating and then
dictating differential rights, responsibilities and privileges between women and men, which shape societal
expectations of women and men. According to the Uganda Social Institutions and Gender Index Country
Report, women experience very high levels of discrimination across many fronts (including, in particular,
in terms of land rights)42. Gender equity will therefore be mainstreamed in all programme activities
ensuring that transport infrastructures are responsive to women and girls’ rights, decentralised structures of
government are able to deliver gender-sensitive services; women and girls have a fair access to productive
assets; women and girls have increased control over the decision making process within households and at
community level; women and girls have access to gender-specific services, are not denied of their sexual
rights and are respected in their physical integrity.
Climate change adaptation and mitigation through the promotion of climate-smart and environmentallysustainable practices, sectors that are central to efforts aimed at alleviating poverty in Northern Uganda and
strengthening resilience of farming households. Uganda is highly vulnerable to climate change and
variability – its economy and the wellbeing of its people are tightly bound to climate. Human-induced
climate change (mostly through massive deforestation, mining practices, misuse of land, etc.) has the
potential to halt or reverse the country’s development trajectory. Climate change hazards such as prolonged
droughts and floods have the potential to radically increase food insecurity, under-nutrition and poverty
levels. It will be the poor and vulnerable who feel these impacts the hardest. Project activities will be
implemented following the guidelines on the Integration of Environment and Climate Change in
Development Cooperation and will aim at supporting the development of climate-smart/water-efficient
practices (including through pilots). Regarding the infrastructure component, Environmental Impact
Assessments for all roads will be conducted, as per national and EU regulations/guidelines, to identify and
mitigate environmental risks caused by the construction activities of the proposed infrastructure such as
environmental degradation of borrow areas, pollution (noise, air, and water), etc. In addition, climate
proofing of the designed infrastructure, to cater for the flash floods in Northern Uganda, will be central in
the preparation of the detailed designs.
4

DESCRIPTION OF THE ACTION

4.1

Objectives/results

This programme is relevant for the Agenda 2030. It contributes primarily to the progressive achievement of
SDG 2 ‘End hunger, achieve food security and improved nutrition, and promote sustainable agriculture’ but
also promotes progress towards SDG 1’End poverty in all its forms everywhere’. This does not imply a
commitment by the Republic of Uganda
This territorial programme cuts across the three focal sectors identified in the National Indicative
Programme.
The general objective of the programme is to consolidate stability in Northern Uganda, eradicate poverty
and under-nutrition and strengthen the foundations for sustainable and inclusive socio-economic
development.
Under this general objective, three specific interlinked objectives:

42

Including Discriminatory family code, Restricted physical integrity, Son preference, Restricted resources and assets, Restricted civil liberties –
source: https://www.oecd.org/countries/uganda/The%20Uganda%20SIGI%20Country%20Study.pdf

14

 Specific objective 1: to increase food security, improve maternal and child nutrition, and enhance
household incomes through support to diversified food production and commercial agriculture and through
improving household resilience (notably to climate change) and women empowerment.
Result 1.1: increased production of diversified food; Result 1.2: increase market accessibility;
Result 1.3: nutrition-specific interventions.
Specific objective 2: to increase trade of commodities within the region, within the country, and with
neighbouring countries through the improvement of transport infrastructures.
Result 2.1: transport infrastructures in the regions are improved and climate-resilient; Result 2.2:
Cargo distribution system and storage capacities are improved in Northern Uganda.
Specific objective 3: to strengthen capacity, gender-responsive good governance (core mandate and
general broad mandate) and the rule of law at the level of local government authorities and empower
communities to participate in improved local service delivery.
Result 3.1: Capacities of Local governments to manage core public financial processes is
strengthened to improve service delivery and local development; Result 3.2: Upward accountability
of Local Governments increased; Result 3.3: Downward accountability of Local Governments to its
constituents is strengthened by empowering citizens, civil society, media, NSAs, private sectors in
their interaction with Local Government; Result 3.4: capacities of local government to deliver
services to communities strengthened.
4.2

Main activities

Specific objective 1: to increase food security, improve maternal and child nutrition, and enhance
household incomes through support to diversified food production and commercial agriculture and through
improving household resilience (notably to climate change) and women empowerment”
Result 1.1: increased production of diversified food


Activity 1.1.1-facilitate the adoption and production of diverse food crops and animal products
through training, and through linkages of farmers organisations with other extension services (public –
single spine national extension service, private – notably through long term contractual arrangements
such as contract farming, Civil Society Organisations (CSOs): increasing the use of appropriate crop
mixes and agro-silvo-pastoral systems43 and practices, promoting the adoption of relevant biofortified
crops, encouraging effective nutrient cycling over space and time and promoting soil and water
conservation measures and other methods such as livestock diet intensification. Traditional women’s
agriculture activities such as the production of vegetables as well as small husbandry production
(poultry and goat) will be promoted to increase availability and access to nutritious food at the
household level, and increase income that women can access from off-farm sales.



Activity 1.1.2-facilitate access to key inputs and output markets for women and men small-scale
farmers including improved drought, pest and disease tolerant crop varieties of nutritious value, agroecology practices, low-input practices trainings, improved livestock breeds, animal drugs and
medicated feeds; this will be achieved by building the capacity of agro-input dealers and increase their
access to farmers, sensitisation and training in use of the inputs, in low-input and agro-ecological
practices, and supporting pest, disease and vector control.

43

Such as Banana-coffee intercropping which can contribute to mitigation through storing an additional 15–30 t of carbon per ha in the soil, reduce
incidence of coffee leaf rust and increase incomes.

15

 

Activity 1.1.3-train farmer groups and other small market operators along the value chain in
community saving and credit schemes (business action planning, financial literacy, record keeping,
and savings mobilisation, business development training), support the registration of mature Village
Savings and Loan Associations (VSLA) groups under local government, facilitate partnership building
between VSLAs and other economic operators notably financial service providers and/or existing
agricultural and rural finance projects and ensure the full participation of women through the schemes
and on governance structures.



Activity 1.1.4-support vocational training institutes, to train disadvantaged youth in the skills
needed to find employment opportunities; and encourage cooperation between vocational training
institutes and the private sector to increase the relevance of curriculum taught as well as facilitating
placements of graduates at the end of training programmes.



Activity 1.1.5-Sustainable climate proofed water infrastructure built in Karamoja: the programme
will increase the availability of water for production through the construction of strategic water
reservoirs (valley tanks, dams, wind-powered water systems, etc.) to better use seasonal water for crop
irrigation and livestock production and through the rehabilitate water points (catchment/river works).



Activity 1.1.6 - support the land registration of Communal Land: stimulate demand for Certificate
of Customary Ownership registration and provide support to farming communities in going through the
process of registration and insuring that women have a fair access to land.

Result 1.2: increase market accessibility


Activity 1.2.1-foster linkages between smallholder farmers, agro-processors and market
operators: provide training to framers groups in efficient processing, storage, packaging and handling
techniques and facilitate value-addition activities and support entrepreneurs – notably women and
youth - with business development and incubation services (development of business plans, marketing
strategy, financial and organisational management, corporate relationships and strategic planning).
Also support to access innovative market information systems and market linkages and provide market
infrastructure such as abattoirs, slaughter slabs, cattle markets, produce markets, etc.



Activity 1.2.2-Providing seed capital to incubation projects: design and implement a mechanism for
providing Business Development Services and seed capital in the form of loans, grants and
reimbursable grants to promising projects. Women and youth will be deliberately targeted, and projects
that aim at reducing environmental risks and ecological scarcities (green economy) will be promoted.



Activity 1.2.3-support the private sector in developing decentralised rural electrification projects
to increase the number of households and businesses having access to electricity in 15 villages or
clusters of village in the Electricity Northern Territory (especially in Lamwo and Kaabong districts).
The activity will consist in providing technical assistance to the Ministry of Energy and Mineral
Development, Electricity Regulatory Authority (ERA) and the Rural Electrification Authority (REA) to
develop an off-grid Electrification Strategy, develop instruments to select and license eligible
concessionaires for the implementation and operation of decentralised mini-grid based on the use of
photovoltaic panels; support the ERA and the REA in licensing, concessioning and supervising the
private operator who will build and operate the decentralised mini-grid (mini-grid will be financed by
REA and the power plant co-financed by the private developer in a public-private-partnership
mechanism) ; and maximising the benefits of the electrification in promoting productive uses of
electricity.



Activity 1.2.4-assess and identify market opportunities and product niches along the stages of the
value chain and facilitate market exchanges and contractual agreements between farmer organisations
and processors/bulk buyers through contract farming systems, collective marketing (increasing

16

 bargaining power) and assist to sell in non-local markets (where demand is higher and therefore easier
to achieve higher prices).
Result 1.3: improved nutritional status


Activity 1.3.1-Developing and promoting community based nutrition initiatives including micro
nutrient supplementation & deworming, promotion of maternal and young child feeding
practices, hygiene and sanitation and child care. This will be done conducting knowledge attitude
and practice surveys aimed at complementing our understanding of region-specific barriers and
solutions to improving child care practices, providing training and capacity building of existing
community extension workers and conducting behaviour change communication campaigns.



Activity 1.3.2-Increase the use of effective family planning methods with the aim of decreasing
the number of teenage pregnancies and increasing child spacing which address both nutrition
and population growth issues. This will notably be done increasing awareness and knowledge of
family planning and sexual and reproductive health-care services at the individual, household and
community levels, and provision of family planning products in health centres.

Specific objective 2: To increase trade of commodities within the region, within the country, and with
neighbouring country through improved transport and logistic infrastructures
Result 2.1: transport infrastructures in the regions are improved




Activity 2.1.1-Rehabilitation and construction of selected roads connecting remote and
disadvantaged districts to the main road network (connecting roads): rehabilitation and upgrading
to the bituminous standard of the Atiak- Adjumani- Moyo- South Sudan Border Road, Atiak- Laropi
section (Km 65,8). In addition, the following activities need to be implemented by the Government of
Uganda as a pre-condition for the procurement and signature of works contract for " connecting roads"
component:
o

The Government of Uganda shall ensure sufficient budget and timely implementation of the
Resettlement Action Plan (RAP) necessary for this component.

o

No procurement for works shall commence before the RAP implementation process has
started and no works contract shall be signed without evident advanced progress of RAP
implementation, thus allowing the contractor to work in an economic way according to the
work programme."

Activity 2.1.2-Rehabilitation and upgrading of selected numbers of priority districts and
community access roads within 4 priority districts (Amudat, Adjumani, Abim, Moyo): as part of
the preparatory activities for the programme, the preliminary studies44 are expected to start in July 2016
and finalised in January 2017. 45 The activity will then consist of: i) organise a participatory process46
led by district councils to identify the final selection of roads to be rehabilitated within the 4 priority
districts, ii) technical assistance (TA) in the implementation of the districts works rehabilitation

44

Identification, feasibility and preliminary design study.
It will notably confirm the preliminary list of the roads to be subject of studies in each selected district, assess for each preselected road the scope
of the rehabilitation requirements by section, and methods to be used, including, where adequate, the labour based methods and low cost sealing;
and where available, the alternatives for treatments, iii) proceed with the preliminary environmental and social impact assessment of the
proposed activities, iv)proceed with the preliminary designs and provide the preliminary cost estimations, propose the optimal set of the roads
and road type improvement to be included within rehabilitation program for each district.
46
Notably involving sub-counties and parishes.
45

17

 component,47 iii) realisation of the districts` by the districts of their road works rehabilitation
implementation programs with TA support.
Result 2.2: cargo distribution system and storage capacities are improved in Northern Uganda


Activity 2.2.1-Construction of a logistic hub in Gulu:48 the logistic hub will be utilised by local
processors of agricultural products, regional and local manufacturers and will also serve transporters
and traders moving cargo to and from south Sudan and eastern democratic Republic of Congo. A
prefeasibility study has been conducted by Trade Mark East Africa (TMEA) with DFID financing.
Final design carried under the same arrangement will be completed by December 2016, TMEA
working as an implementing partner. Available land closed to Gulu railway station has been identified
by the Ministry of Work and Transport (MoWT) and the Uganda Railway Corporation with very
limited encroachment. This will be done through the support to the multi-sectoral task force for the
development of the business model, the implementation and the operation of the facility under a PPP
mechanism (MoWT, Rift Valley railway, Uganda Railway Corporation, Apex Freight Forwarders
Association, Apex Transport Associations and the private sector etc), and the support to the
construction of the facility and the supervision of the works.

Specific objective 3: To strengthen capacity, gender-responsive good governance and the rule of law at the
level of local government authorities and empower communities to participate in improved local service
delivery.
Result 3.1: Capacities of Local governments to manage core public financial processes is
strengthened to improve service delivery and local development


Activity 3.1.1 - Strengthen capacities of Local Governments49 in public financial management;
provide capacity building to local government units, 50 leaders51 and other actors to identify service
delivery deficits, plan52, budget,53 implement and monitor public programmes in a gender-responsive
manner and in compliance with the legal requirements notably in terms of procurement and internal
audit functions.54



Activity 3.1.2: Strengthen capacities of mandated local government units to efficiently mobilise
and equitably allocate and utilise local revenue and resources: support will be provided to
initiatives aimed at enhancing revenue mobilisation by local governments and facilitate the transition of
funds to lower local governments efficiently and in a timely manner. The will include the establishment
of functional asset registers, partnership building with national agencies55 or other local authorities that
have been more successful at local revenue generation.56



Activity 3.1.3-Structured partnership with Associations of Local Authorities and key relevant
institutions for research and advocacy on institutional and policy reforms relating to core
mandates of local governments. Through structured partnerships aimed at strengthening the capacity

47

Formulation of their rehabilitation program at each district level, assistance in the detailed designs, tender documents preparation, tendering
process and supervision of works, monitoring activities.
48
Inland container depot – Rail/Road-Road/Road port and inland deposit.
49
Targeting both the higher and lower local governments.
50
Through peer-to-peer placements, twinning, coaching or structured courses by training institutions such as Uganda Management Institute or Civil
Service College, technical support etc.
51
Both political and technical.
52
The 4th African Peer Review Mechanism (APRM) draft report (2015, p.47) recommended an increase in resources to facilitate building of
capacity for participatory district planning and strengthening of links between centralised and decentralised planning.
53
Including gender-responsive budgeting as stipulated in the Public Finance Management Act (2015).
54
Overall, the intervention under the sub-component will involve collaboration with key institutions including Ministry of Local Government,
National Planning Authority, Equal Opportunities Commission, Local Government Finance Commission.
55
Such as Uganda Revenue Authority, business registration bureau.
56
Such as the Kampala Capital City Authority.

18

 associations of local authorities and Ministries, Departments and Agencies (MDAs),57 the programme
will also support research and advocacy on policy and institution reforms aimed at strengthening
decentralisation by protecting and promoting local government financing, enhancing orderliness and
control in the management of inter-government fiscal relations and increasing discretion in local
government decision making. In addition, implementation of key recommendations from the local
government forums will be supported.
Result 3.2: Upward accountability of Local Governments increased:


Activity 3.2.1-support and strengthen local governments' accountability institutions in their
interaction with line ministries and national accountability institutions. While reinforcing
interventions in Activity 1.1.1, the programme will support adherence by relevant units of local
government to national procurement and accountability standards and requirements as well as local
government accountability structures. Particular emphasis will be placed on timely and full
implementation of recommendations of Office of Auditor General, Public Procurement and Disposal of
Public Assets Authority, Local Governments Account Committees or other accountability institutions,
and the capacity of local governments to enforce sanctions and recovery of funds in cases of breaches
of the applicable regulations and standards.



Activity 3.2.2 – support the reform and pilot implementation of the Government of Uganda's own
annual performance assessment framework for local governments on key indicators such as
stakeholders participation in planning and budgeting, local revenue mobilisation and compliance with
Public Financial Management (PFM) related rules and regulation.



Activity 3.2.3-incentivise performance of local governments and to stimulate community
involvement through provision of top-up grants based on a reformed performance assessment and
aligned to the intergovernmental transfer and grants system.

Result 3.3: Downward accountability of Local Governments to its constituents is strengthened by
empowering citizens, civil society, media, NSAs, private sectors in their interaction with Local
Government


Activity 3.3.1-Increase downward accountability mechanisms through strengthening the role of
CSOs, media, and other local actors (media, private sector etc) in local governance58 and promotion of
accountable and, responsive services delivery.59



Activity 3.3.2-Support initiatives Office of Prime Ministers' Baraza60 as complemented by public
expenditure tracking and budget transparency initiatives of Ministry of Finance, Planning and
Economic Development aimed at fostering accountability and transparency in service delivery and
management of public finances.



Activity 3.3.3-Foster the oversight role of CSOs (and other actors) by strengthening their
collaboration with local governments to undertake local governments' performance assessments and
coordinated approaches to monitoring of service delivery and implementation of local government
plans or national programmes.

Result 3.4: capacities of local government to deliver services to communities strengthened

57

Such as The Ministry of Finance, Planning and Economic Development, Ministry of Local Government, the Local Government Finance
Commission.
Including in planning and budgeting processes, revenue mobilisation and implementation of local government programmes.
59
Interventions will be complementary to the baraza or budget transparency initiatives as well as platforms for real-time monitoring on development
projects (including road works) and the state of the local infrastructure.
60
This may include procurement barazas in collaboration with PPDA.
58

19

 

Activity 3.4.1-strengthen the capacities of Uganda Police Forces and other Justice, Law and
Order institutions to consolidate peace and security in Karamoja: support the deployment of
Uganda Police Force in the Karamoja sub-region through the constructing of police posts in selected
districts and sub-counties and provide trainings including in community policing, human rights, etc.



Activity 3.4.2-support nutrition governance at decentralised level: build the capacity of
decentralised multisectoral structures to effectively plan, monitor and coordinate the scale up of
multisectoral nutrition-specific and nutrition-sensitive interventions (notable support information
systems on food and nutrition security; integrate nutrition into district development planning; enhance
coordination of nutrition response across different, relevant sectors; and integrate nutrition into
monitoring and evaluation (M&E) frameworks); strengthen system in the form of capacity building of
sectoral service providers in terms of training, supervision and provision of tools and equipment to
adequately manage under-nutrition according to the national nutrition protocol and the community
based nutrition programme



Activity 3.4.3-support districts and communities in road maintenance: provide support to district
authorities to improve their capacities to plan investment and maintenance programmes, identify and
implement appropriate technologies and approaches such as low cost sealing and labour based
methods, draft appropriate technical specifications and prepare designs and manage road assets.



Activity 3.4.4-Strengthen integrated catchment-based planning, management and development of
water resources in Karamoja: strengthen catchment management structures through technical
advisory support at national, zonal, and local level and support the implementation of water
conservation activities such as restoration of the river banks by re-vegetating and establishing new
vegetation cover through planting of drought resistant trees and up-scaling.



Activity 3.4.5-improve land governance and facilitate the registration of Certificate of Customary
Ownership: provide infrastructures and equipment to the relevant authorities to implement and
facilitate the registration Certificate of Customary Ownership (office space, equipment, IT equipment,
maps, laws, etc.) and provide capacity building to relevant local land governance structures in the use
of alternative dispute resolution and mediation mechanisms to resolve land conflicts faster.



Activity 3.4.6-Build Capacity of Production Departments in Local Government at District and
Sub-County levels: provision of technical and logistic support and training to District and Sub-County
production departments for project implementation, coordination, monitoring and supervision.

4.3

Intervention logic

This programme is rooted in the multi-sectoral and multi-stakeholders dimensions of the interrelated
phenomenon of poverty and under-nutrition, which call for a holistic approach aims at changing food
production and consumption patterns to promote a sustainable and inclusive socio-economic development
in Northern Uganda. It will promote systemic change through a territorial approach involving all
stakeholders under the leadership of national and decentralised structures in line with the respective
mandate of each layer of government.
The broad and diverse list of activities in the preceding paragraph (4.2) provides an illustration of the multisectoral scope of the programme. It also suggests the involvement of multiple actors, including central and
local government agencies operating at various tiers of the Uganda public sector administrations. This
raises critical issues of programme management, as the often competing objectives of optimum
coordination, and efficient execution, of specific activities will need to be pursued simultaneously. To this
end the programme will adopt a balanced approach.

20

 The programme is logically structured around three sectoral components of the NIP, which are
interconnected and should complement each other.
Based on lessons from fragmented sector interventions in the past, this programme will adopt an integrative
territorial approach, through which interventions of implementing organisations across multiple sectors
will be planned and coordinated for maximum synergy through a series of place-based strategies for food
security and agriculture development to be developed for all participating territorial jurisdictions.
Coordinating the preparation and overseeing the implementation of such strategies will be the
responsibility of the concerned local authorities, and a major opportunity for building their capacity and
helping them comply with the broad mandate for promotion of ‘local economic development’ (LED) that
the Uganda national decentralisation policy has recently and explicitly assigned to them.
The preparation of the place-based strategies, through a broad based local deliberative process, will be
informed by a detailed assessment conducted at sub-regional level at inception during which the specific
challenges and opportunities of all participating jurisdictions will be identified taking into consideration
their economic, social, political and agro-ecological environment. The diagnostic assessment will have a
dual focus.
First, it will take the form of detailed value chain analysis which will identify specific bottlenecks that are
constraining the development of the agriculture and livestock sector in Northern Uganda. This is to help
leverage the interface between value chain and territorial development, recognising, as noted in a recent
study conducted by the International Fund for Agricultural Development (IGAD), that value chains
development is “one of the most promising drivers of successful territorial approaches” but also that “often
the value chain approaches that have been adopted have not been informed by territorial considerations
and in some cases this has led to the financing of value chains that are productive, but that can also extract
value from local territories with negative implications for food security and nutrition”. 61
Second, the assessment should also provide a comprehensive diagnostic of the functioning of local
government structures whose capacities and needs are extremely divers across the targeted regions, to
determine the extent to which , beyond their planning coordination and oversight role, local authorities can
also take responsibility for delivering specific sector interventions, consistently with their mandates and
either by their own initiative or under contractual delegation arrangements with concerned national
agencies. This is to ensure the institutional sustainability of the programme by both placing local authorities
at the centre of its management and making them operate effectively as part of a multi-level governance
system.
5
5.1

IMPLEMENTATION
Financing agreement

In order to implement this action, it is foreseen to conclude a financing agreement with the partner country,
referred to in Article 17 of Annex IV to the ACP-EU Partnership Agreement.
5.2

Indicative implementation period

The indicative operational implementation period of this action, during which the activities described in
section 4.2 will be carried out and the corresponding contracts and agreements implemented, is 84 months
from the date of entry into force of the financing agreement.

61

See IFAD (2016), Territorial approaches, rural-urban linkages and inclusive rural transformation
https://www.ifad.org/documents/10180/36a5e671-b321-4ba9-9d60-49b3cee1c0d2

21

 Extensions of the implementation period may be agreed by the Commission’s authorising officer
responsible by amending this decision and the relevant contracts and agreements; such amendments to this
decision constitute non-substantial amendment in the sense of Article 9(4) of Regulation (EU) 2015/322.
5.4

Implementation modalities

Implementing partners have been identified according to their specific added-value, existing (successful)
partnerships with the relevant line ministries and ability to foster synergies among different components.

5.4.1

Indirect management with Gesellschaft für Internationale Zusammenarbeit (GIZ )

A part of this action may be implemented in indirect management with Gesellschaft für Internationale
Zusammenarbeit (GIZ) in accordance with Article 58(1)(c) of Regulation (EU, Euratom) No 966/2012
applicable in accordance with Article 17 of Regulation (EU) 2015/323. This implementation entails the
creation of Mini-grids in Northern Uganda (activity 1.2.3) . This implementation is justified by the long
experience of GIZ working with relevant ministries and agencies (Ministry for Energy and Mineral
Development, the Electricity Regulatory Authority and the Rural Electrification Agency) and by their
technical expertise and understanding of challenges and opportunities present in the Ugandan context in the
sector electricity and especially their long involvement in the promotion of electricity off-grid systems in
Uganda.
The entrusted entity would carry out the following budget-implementation tasks: notably launching calls
for tenders and for proposals; definition of eligibility, selection and award criteria; evaluation of tenders
and proposals; award of grants, contracts; acting as contracting authority concluding, monitoring and
managing contracts, carrying out payments, and recovering moneys due.
The Commission authorises that the costs incurred by the entrusted entity may be recognised as eligible as
of 01/07/2016. This is justified considering that preparatory activities for the implementation of the cofinancing (e.g. site analyses and feasibility studies) shall be conducted.

5.4.2

Indirect management with Gesellschaft für Internationale Zusammenarbeit (GIZ )

A part of this action may be implemented in indirect management with Gesellschaft für Internationale
Zusammenarbeit (GIZ) in accordance with Article 58(1)(c) of Regulation (EU, Euratom) No 966/2012
applicable in accordance with Article 17 of Regulation (EU) 2015/323. This implementation entails the
support to the water governance structures and to oversee the implementation of water infrastructures in
Karamoja sub-region (activities 1.1.5 and 3.4.4). This implementation is justified by the long experience of
GIZ working with relevant ministries and agencies (Ministry for Water and Environment), and by their
technical expertise and understanding of challenges and opportunities present in the Ugandan context in the
sector of water.
The entrusted entity would carry out the following budget-implementation tasks: notably launching calls
for tenders and for proposals; definition of eligibility, selection and award criteria; evaluation of tenders
and proposals; award of grants, contracts; acting as contracting authority concluding, monitoring and
managing contracts, carrying out payments, and recovering moneys due.

5.4.3

Indirect management with the UK Department for International Development (DFID)

A part of this action may be implemented in indirect management with the UK Department For
International Development (DFID) in accordance with Article 58(1)(c) of Regulation (EU, Euratom) No
966/2012 applicable in accordance with Article 17 of Regulation (EU) 2015/323. This implementation
entails providing EU funds to DFID for the development of the Gulu Logistic Hub managed by Trade Mark
East Africa (Activity 2.2.1). This implementation is justified because DFID has a long experience working
with Trade mark East Africa (TMEA) in Uganda on trade development through inter alia actions in the

22

 transport and logistic sector. DFID has provided £ 37 200 000 to TMEA under TMEA strategy 1 (20102016) and considers funding a Strategy 2 (2017-2024) with £ 27 000 000. USD 3 000 000 have been
earmarked for the development of the Gulu Logistic Hub: funding the pre-feasibility study (completed), the
full design and Environmental and Social Impact assessment and co-financing the construction. More funds
could be provided by DFID in case of increase of the cost after feasibility study.
The entrusted entity would carry out the following budget-implementation tasks: notably launching calls
for tenders and for proposals; definition of eligibility, selection and award criteria; evaluation of tenders
and proposals; award of grants, contracts; acting as contracting authority concluding, monitoring and
managing contracts, carrying out payments, and recovering moneys due.
The Commission authorises that the costs incurred by the entrusted entity may be recognised as eligible as
of 01/01/2016 because the cofinancing provided by DFID to TMEA covers also the preparatory studies
which started in January 2016.

5.4.4

Indirect management with the United Nations Children's Fund - UNICEF

A part of this action may be implemented in indirect management with United Nations Children's Fund
(UNICEF) in accordance with Article 58(1)(c) of Regulation (EU, Euratom) No 966/2012 applicable in
accordance with Article 17 of Regulation (EU) 2015/323. This implementation entails strengthening
nutrition governance and supporting decentralised systems that have the capacity to prevent, identify, and
manage under-nutrition among children under-five and pregnant and lactating women (activity 3.4.2). This
implementation is justified because of the core expertise and mandate of the organisation, their relationship
with national and decentralised structure of government, and their wide coverage/outreach in the targeted
region.
The entrusted entity would carry out the following budget-implementation tasks: notably launching calls
for tenders and for proposals; definition of eligibility, selection and award criteria; evaluation of tenders
and proposals; award of grants, contracts; acting as contracting authority concluding, monitoring and
managing contracts, carrying out payments, and recovering moneys due.

5.4.5

Indirect management with United Nations Capital Development Fund – UNCDF

A part of this action may be implemented in indirect management with United Nations Capital
Development Fund (UNCDF) in accordance with Article 58(1)(c) of Regulation (EU, Euratom) No
966/2012 applicable in accordance with Article 17 of Regulation (EU) 2015/323. This implementation
entails UNCDF to strengthen capacities of local governments in selected districts; improving their
accountability to national institutions as well their ability to deliver services in a number of sectors
(activities 1.2.2, 2.1.2, 3.1.1, 3.1.2, 3.1.3, 3.2.1, 3.2.2, 3.2.3, 3.4.3 and 3.4.5). This implementation is
justified because i) through the District Development Programmes (1997 – 2007), UNCDF was among
partners who pioneered support to Uganda's then newly created decentralisation framework and as such, it
has established relationship with key government entities such as Ministry of Local Government, Local
Government Finance Commission, Associations of Local Authorities, ii) through its interventions in
successive years in decentralisation, food security, climate change adaptation, women's empowerment,
local economic development, UNCDF has strong technical competencies in DINU's areas as focus; and
consequently iii) its role would foster internal programme coherence as well as increase likelihood of
successful implementation.
The entrusted entity would carry out the following budget-implementation tasks: notably launching calls
for tenders and for proposals; definition of eligibility, selection and award criteria; evaluation of tenders
and proposals; award of grants, contracts and financial instruments; acting as contracting authority
concluding, monitoring and managing contracts, carrying out payments, and recovering moneys due.

23

 5.4.6

Indirect management with the Government of Uganda

A part of this action with the objective of implementing Activity 1.1.1, Activity 1.1.2, Activity 1.1.3,
Activity 1.1.6, Activity 1.2.1, Activity 1.2.4, Activity 1.3.1, Activity 1.3.2, Activity 3.3.1, Activity 3.3.3,
Activity 1.1.4, Activity 3.4.1, Activity 3.3.2, Activity 3.4.6, Activity 2.1.1 may be implemented in indirect
management with the Government of Uganda in accordance with Article 58(1)(c) of the Regulation (EU,
Euratom) No 966/2012 applicable in accordance with Article 17 of Regulation (EU) 2015/323 according to
the following modalities:
The partner country will act as the contracting authority for the procurement and grant procedures. The
Commission will control ex ante all the procurement procedures except in cases where programme
estimates are applied, under which the Commission applies ex ante control for procurement contracts above
EUR 100 000 (or lower, based on a risk assessment) and may apply ex post control for procurement
contracts up to that threshold. The Commission will control ex ante the grant procedures for all grant
contracts.
Payments are executed by the Commission except in cases where programmes estimates are applied, under
which payments are executed by the partner country for ordinary operating costs, direct labour and
contracts below EUR 300 000 for procurement and up to EUR 100 000 for grants.
The financial contribution covers, for an amount of EUR 1 287 500, the ordinary operating costs incurred
under the programme estimates.
In accordance with Article 190(2)(b) of Regulation (EU, Euratom) No 966/2012 and Article 262(3) of
Delegated Regulation (EU) No 1268/2012 applicable in accordance with Article 36 of Regulation (EU)
2015/323 and Article 19c(1) of Annex IV to the ACP-EU Partnership Agreement, the partner country shall
apply procurement rules of Chapter 3 of Title IV of Part Two of Regulation (EU, Euratom) No 966/2012.
These rules, as well as rules on grant procedures in accordance with Article 193 of Regulation (EU,
Euratom) No 966/2012 applicable in accordance with Article 17 of Regulation (EU) 2015/323, will be laid
down in the financing agreement concluded with the partner country.
5.5

Scope of geographical eligibility for procurement and grants

The geographical eligibility in terms of place of establishment for participating in procurement and grant
award procedures and in terms of origin of supplies purchased as established in the basic act and set out in
the relevant contractual documents shall apply.
The Commission’s authorising officer responsible may extend the geographical eligibility in accordance
with Article 22(1)(b) of Annex IV to the ACP-EU Partnership Agreement on the basis of urgency or of
unavailability of products and services in the markets of the countries concerned, or in other duly
substantiated cases where the eligibility rules would make the realisation of this action impossible or
exceedingly difficult.

24

 5.6

Indicative budget
Activities

EU contribution (amount
in EUR)

Indicative third party
contribution in
currency identified62

5.4.1 Indirect management with GIZ
Activity 1.2.3

3 000 000

800 000

4 000 000

1 000 000

5 000 000

2 670 000

5 000 000

1 056 528

25 500 000

352 174

5.4.2 Indirect management with GIZ
Activity 1.1.5, Activity 3.4.4
5.4.3 Indirect management with DFID
Activity 2.2.1
5.4.4 Indirect management with UNICEF
Activity 3.4.2
5.4.5 Indirect management with UNCDF
Activity 1.2.2, Activity 2.1.2, Activity 3.1.1, Activity
3.1.2, Activity 3.1.3, Activity 3.2.1, Activity 3.2.2,
Activity 3.2.3 Activity 3.4.3, Activity 3.4.5
5.4.6 Indirect management with the Government of Uganda through:
Call for proposals (indirect management)
Activity 1.1.1, Activity 1.1.2, Activity 1.1.3, Activity
1.1.6, Activity 1.2.1, Activity 1.2.4, Activity 1.3.1,
Activity 1.3.2, Activity 3.3.1, Activity 3.3.3

27 000 000

-

Programme Estimate (indirect management)
Activity 1.1.4, Activity 3.4.1, Activity 3.3.2, Activity
3.4.6

5 150 000

-

Work and service contracts (indirect management)
Activity 2.1.1

50 000 000

One service contract (indirect management)
TA to the Supervising authority

11 953 840

7 500 000

-

5.9 Evaluation – 5.10 Audit

550 000

-

5.11 Communication

100 000

-

Totals

5.7

132 800 000

17 832 542

Organisational set-up and responsibilities

For the components implemented in indirect management with the partner country, the contracting
authority shall be the National Authorising Office for Ugandan (the Ministry of Finance and Economic
Development) and the Office of the Prime Minister shall act as the programme supervisor in view of its
mandate to coordinate the implementation of the Peace, Recovery and Development Plan (PRDP) for
Northern Uganda).

62

Some of the pledges were made in foreign currencies, the info euro conversation rate of May 2016 was used.

25

 A Programme Steering Committee shall be set up to oversee and validate the overall direction and policy of
the programme. It will notably have the following responsibilities: Review and validate work plans,
budgets, programme performance of the programme in terms of the foreseen targets; Ensure overall
coherence amongst the different components and implementing agencies; Inform the programme about
relevant and complementary activities implemented in the framework of other donor-funded programme or
government initiatives. The Steering Committee will meet at least twice a year (quarterly during the first
year of implementation), will be chaired by a representative from the Office of the Prime Minister and will
be comprised of a representative of the Head of the EU Delegation to Uganda, a representative of the
Ministry of Finance and Economic Development, a representative from the Uganda Local Government
Association; relevant agencies, donors/international organisations and representatives from the civil society
can be invited to attend steering committee meetings as deemed necessary by the full members of the
Steering Committee.
Multi-stakeholders technical committees will be set-up and coordination platforms at district level sought.
This will aim to foster dialogue between all stakeholders, facilitate the learning curve of actors concerned
by the horizontal and vertical partnerships, reflect, identify policy and institutional impediments, and feed
the policy level with lessons learnt ‘from the ground’ and good practices.
The Programme Management Unit, hosted within the supervising authority (the Office of the Prime
Minister), will be in charge of the overall coordination of the programme activities. It will ensure a
technical and financial monitoring of commitments signed in indirect management and for those signed
outside the imprest account of the Programme Estimate, will advise the National Authorising Officer in
decisions related to contract management (award, report approval, payment, closure), and will act as a
convener supporting districts in coordinating the action of the various implementing partners (notably
M&E), and act as a learning platform promoting the exchange of good practice. The Programme
Management Unit will be assisted by a Technical Assistance Team recruited through a service contract
signed in indirect management mode by the National Authorising Officer. The Technical Assistance Team
will assist the supervising authority (Office of the Prime Minister) in the implementation of the project,
including the provision of technical advice and prepare all the necessary operational documentation, such
as operational plans, M&E guidelines and framework.
5.8

Performance monitoring and reporting

Programme performance monitoring will be aligned as much as possible to national reporting systems.
The day-to-day technical and financial monitoring of the implementation of this action will be a continuous
process and part of the implementing partner’s responsibilities. To this aim, the implementing partner shall
establish a permanent internal, technical and financial monitoring system for the action and elaborate
regular progress reports (not less than annual) and final reports. Every report shall provide an accurate
account of implementation of the action, difficulties encountered, changes introduced, as well as the degree
of achievement of its results (outputs and direct outcomes) as measured by corresponding indicators, using
as reference the logframe matrix. The report shall be laid out in such a way as to allow monitoring of the
means envisaged and employed and of the budget details for the action. The final report, narrative and
financial, will cover the entire period of the action implementation.
The Commission may undertake additional project monitoring visits both through its own staff and through
independent consultants recruited directly by the Commission for independent monitoring reviews - resultsoriented monitoring (ROM) (or recruited by the responsible agent contracted by the Commission for
implementing such reviews).

26

 5.9

Evaluation

Having regard to the importance and nature of the action, a mid-term and a final evaluation will be carried
out for this action or its components contracted by the Commission.
The mid-term evaluation will be carried out for problem solving, learning purposes, in particular with
respect to the manner implementing partners, including decentralised level of governments, are performing.
A final evaluation will be carried out for accountability and learning purposes at various levels (including
for policy revision), taking into account in particular the manner programme components have reinforced
each-other.
The Commission shall inform the implementing partner at least one month in advance of the dates foreseen
for the evaluation missions. The implementing partner shall collaborate efficiently and effectively with the
evaluation experts, and inter alia provide them with all necessary information and documentation, as well
as access to the project premises and activities.
The evaluation reports shall be shared with the partner country and other key stakeholders. The
implementing partner and the Commission shall analyse the conclusions and recommendations of the
evaluations and, where appropriate, in agreement with the partner country, jointly decide on the follow-up
actions to be taken and any adjustments necessary, including, if indicated, the reorientation of the project.
Indicatively, two contracts for evaluation services shall be concluded under a framework contract, one is
expected to be signed at mid-term, the other one at completion.
5.10

Audit

Without prejudice to the obligations applicable to contracts concluded for the implementation of this
action, the Commission may, on the basis of a risk assessment, contract independent audits or expenditure
verification assignments for one or several contracts or agreements.
Indicatively, six contracts for audit services shall be concluded under a framework contract toward the end
of the first year of implementation of the Programme Estimate. Four financial audits will be conducted on
the programme estimate, while a technical audits will focused on the connecting road and the District,
Urban and Community Access Roads components.
5.11 Communication and visibility
Communication and visibility of the EU is a legal obligation for all external actions funded by the EU.
This action shall contain communication and visibility measures which shall be based on a specific
Communication and Visibility Plan of the Action, to be elaborated at the start of implementation and
supported with the budget indicated in section 5.6 above.
In terms of legal obligations on communication and visibility, the measures shall be implemented by the
Commission, the partner country, contractors, grant beneficiaries and/or entrusted entities. Appropriate
contractual obligations shall be included in, respectively, the financing agreement, procurement and grant
contracts, and delegation agreements.
The Communication and Visibility Manual for European Union External Action shall be used to establish
the Communication and Visibility Plan of the Action and the appropriate contractual obligations.
One specific service contract will be signed through the use of the framework contract beneficiary to
provide communication and visibility services, under direct management. The overall budget allocation
will be EUR 100 000, and the contract will be tentatively launched during the first semester of the
programme.

27

 APPENDIX – LOGFRAME63
Intervention logic

To consolidate stability in
Northern Uganda, eradicate
poverty and under-nutrition and
strengthen the foundations for
sustainable development

Specific objective 1:

Overall
objective:
Impact

To change food security,
improve maternal and child
nutrition,
and
enhance
household incomes through
support to diversified food
production and commercial
agriculture
and
through
improving household resilience
(notably to climate change) and
women empowerment

Indicators

1. % reduction in poverty rates in
targeted regions**
2. % change in the prevalence of
stunting amongst children under
five years of age or change in the
number of children under five
years of age affected by stunting
(this better conforms to the WHA
targets)**

1. Change in agricultural value
added per hectare**
2. Evolution of incomes in targeted
villages
3. Evolution of the Women’s
Empowerment in Agriculture
Index
4. % of women that consume food
from five or more of the ten food
groups during the last 24 hours
(MDD-W)65
5. % of children 6-23 months of age
who receive foods from four or
more food groups during the

Sources and means of
verification

Assumptions

Realistic targets will
be drawn from the
upcoming
Peace
Recovery
and
Development Plan 3
and
Karamoja
Integrated
Development Plan 3
and
National
Development Plan 2

1. Poverty
Status
Report,
2. Demographic Health
Surveys

Northern Uganda will
remain an important area
for the government and
no major conflict or
extreme weather events
will affect programme
activities.

Realistic target will
be drawn at inception
for indicator 1-6

1. Uganda Bureau of
Statistics / Office of
the Prime Minister
annual reporting and
UNICEF/World
Food
Programme
/United Nations Food
and
Agriculture
Organisation reports

No major conflict or
extreme weather event
will trigger a food and
nutrition
crisis
at
regional level.

Baselines
(incl. reference year)

Targets
(incl.
year)

Poverty Status report 2014:
1.1.Karamoja: 74.2%
1.2.West Nile: 42.3%
1.3.North (Acholi & Lango:
35.2%
1.4.Eastern (including Teso):
24.7%
Demographic Health Survey
(DHS) 2011:64
2.1. Karamoja: 36.7%
2.2. West Nile: 31%
2.3. North (Acholi &
Lango): 19.6%
2.4.
Eastern
(including
Teso): 21.7%
Data from baseline surveys
conducted by grantees will
be used for indicator 1-5
DHS
2011
(women/children): 67
6.1.
Karamoja:
(43.3%/69.5%)
6.2.
West
Nile:
(32.3%/64.4%)
6.3. North (Acholi &
Lango): (13,1%/34%)
6.4.
Eastern
(including
Teso): (27.9%/57.6%)

63

reference

Indicators 1-6:
 Programme reporting
documents
 Surveys by grantees

The indicators, targets and baselines included in the logframe matrix are indicative and may be updated during the implementation of the action, no amendment being required to the financing decision.
Data will be updated with the figure from the 2016 DHS
65
Minimum Dietary Diversity in women
64

28

Electricity as well as
promotion of productive
uses stimulate economic
growth by creating new
business opportunities,
improving
livelihoods
and adding value to
goods
and
services
already existing in the

 (agriculture call – cf
heading 5.4.16)

previous day (MDD-6 to 23
months)66
6. Prevalence of anaemia in children
aged 6-59 months and women

market

Production of nutritious food
increased

1. % of farmers (Sex disaggregated)
supported
by
programme
participating to saving scheme
2. Amount of Certificate of
Customary Ownership registered
with programme support

Data from baseline surveys
conducted by grantees will
be used for indicator 1-2

Realistic target will Indicators 1-2:
be drawn at inception  Programme reporting
for indicator 1-2
documents
 Surveys by grantees
(agriculture call – cf
heading 5.4.16)

Authorities at various
levels (MDA at national
level
and
local
governments) support the
creation of an enabling
environment in targeted
region.

Increase market accessibility

1. % of farmers (Sex disaggregated)
supported
by
programme
providing value addition to their
products
2. % of entrepreneurs that received
seed capital still in business at
programme completion
3. Number of rural households and
businesses
supplied
with
electricity in districts selected
(Kaabong and Lamwo) **
4. Energy generated from private
sector-operated renewable energy
based mini-grid**

1. Data
from
baseline
surveys conducted by
grantees
2. Zero
3. Census 2014 Kaabong and
Lamwo districts: 2121 HH
4. 2016: zero

Realistic target will Indicators 1-2:
be drawn at inception  Programme reporting
for indicator 1-2
documents
3. End of 2018, up to  Surveys by grantees
1200
HH
and
(agriculture call – cf
businesses
heading 5.4.16)
connected or 6000
beneficiaries
Indicators 2-3:
4. Up to 450 KWc (or
1387 MWh per  Rural Electrification
Authority
and
year) (2019)
Electricity
Regulatory Authority
report

Customers adopt as
quickly as possible new
technology, compared to
old subsistence type
activities
thanks
to
affordable tariffs and the
promotion of productive
uses of electricity

Nutrition-specific interventions

1. Number
of
women
of
reproductive age and children
under 5 benefiting from nutritionspecifc interventions**
2. Total demand for family planning
(sum of total unmet need plus
total contraceptive use)

1. Zero

Realistic target will Indicators 1-2:
be drawn at inception  Demographic Health
for indicator 1-2
Survey

Result 1.1

Result 1.2

Result 1.3

DHS 2011:68
2.1. Karamoja: 28.3%
2.2. West Nile: 57.5%
2.3. North (Acholi &
Lango): 66.4%
2.4.
Eastern
(including
Teso): 73.8%

67

Data will be updated with the figure from the 2016 DHS
Minimum Dietary Diversity in children
68
Data will be updated with the figure from the 2016 DHS
66

29

 Specific objective 2:

Increase trade of commodities
within the region, within the
country, and with neighbouring
country as well service delivery
at the local and national
governments level through
improved
transport
infrastructures

1. Change in OPD utilisation ratio69
2. Change in primary and secondary
school education enrolment, in
particular girls, in project`s
districts**
3. Trade costs on the Northern
Corridor Mombasa – Juba section
and Kampala –Juba section (USD
per 20" container) (% change)*
4. Road Service Level - Travel
Time
on
National
Roads
improved (minutes/ km)*

District Local Government
Statistical
Abstracts
2012/2013, Heath Sector
Annual Performance Review
Report 212/2013:
1.1.Abim: 2.9
1.2.Adjumani::1.3
1.3.Amudat: 0.4
1.4.Moyo: 0.82
District Local Government
Statistical
abstracts
2012/2013:
2.1.Abim: primary school 28
418 (50% girls), secondary
school: 3110 (44% girls)
2.2.Adjumani:
primary
school 43 948 (54% girls);
secondary school: 3 397
(%girls: no data)
2.3.Amudat: primary school
22 900 (girls: 42.7%)
secondary school: 221 (girls:
27.6%)

Realistic target will
be drawn at inception
for indicator 1-2
3. 10% reduction of
trade costs
4. 2021:
1.05
(minutes/km)

Indicators
1-2:
National
statistics
(UBOS),
Annual
Sector
Performance
Review Reports of
Sector
Ministers,
Districts departments
of
planning,
engineering,
agriculture, education
and health reports.
3. Observatory of the
Northern
Corridor
Transit and Transport
Coordination
Authority (quarterly
updated data)
TMEA70 monitoring
reports.
4. Annual
Sector
Performance Report.
MoWT

2.4.Moyo: primary school:
31 280 (49.1 % girls),
secondary school: 1 492
(36.3% girls)
3. Baseline 2015: KampalaJuba:
USD
3200:
Mombasa-Juba:
USD
5030
4. Annual
Sector
Performance Report MoWT 2014/2015: 1.15
69
70

OPD – Outpatient Department Utilisation -measures the usage of health services in both government and non-government health facilities by the population. It is used as proxy for access to health care services
Trademark East Africa

30

Demand for commodities
remains
stable
in
neighbouring countries

 1. Number
of
kilometre
of
connecting roads upgraded to
paved standard**
2. Number of kilometre of District
Community
Access
Roads
rehabilitated
using
labour
intensive methods and low cost
sealing methods**
3. Change
of
districts
and
community priority access roads
in fair and good condition in
selected project districts. *
4. Change in number of rural
population living within 2 km of
all-weather road**

1. : 0 km
2. : 0 km

Cargo distribution system and
storage capacities are improved
in Northern Uganda

1. Change in cargo shipped in/out of
the region
2. Change in use of containers for
cargo transportation in the
region*
3. Change in break-bulk goods
transferred to South Sudan.

Strengthen capacity, genderresponsive good governance and
rule of law at the level of local
governments, and empower
communities to participate in
improved local service delivery

1. Quality of service delivery and
consultative processes at local
level
2. Level
of
satisfaction
of
community-based organisations –
including women's rights and
empowerment organisations that are consulted by Local
Authorities
while
planning,
budgeting, implementing and
monitoring
3. Level of local revenues and
autonomy of local governments

Specific objective 3:

Output 2.2

Output 2.1

Transport infrastructures in the
regions are improved

1. Uganda
National
Roads
Authority
reports.
2. Programme reporting
documents
3. Programme reporting
documents
4. Ministry of Works
and
Transport
Annual
Sector
Performance Report

Central
Government
timely and sufficiently
releases funds for local
government related to the
roads maintenance and
rehabilitation

Data from baseline surveys
conducted by grantees will
be used for indicator 1-3

Realistic target will Indicators 1-3:
be drawn at inception  Surveys by grantees
for indicator 1-3
(TMEA)

Freight
forwarder,
traders, trucks owners
use the facility

1. General
levels
of
satisfaction with service
delivery
2. Weak accountability of
Local Governments
3. Low locally generated
revenue base and limited
fiscal autonomy of Local
Governments

1. Improved service Indicators 1-3:
delivery and local  Programme reporting
development
documents,
2. Increased
 Reports
of
accountability of
Relevant
bodies
and transparency in
(Office of the
Local Governments
Prime
Minister,
3. Increased locally
Ministry of Local
generated revenue
Government,, The
and increased fiscal
Ministry
of
autonomy of Local
Finance, Planning
Governments
and
Economic
Development,
Office
of
the
Auditor General ,
CSOs etc)

The Government will
keep the commitment to
involve
more
civil
society organisations in
the governance process
at local level

Geographical
Information
Systems Based Intervention
Prioritisation Analysis for
Abim, Adjumani, Amudat
and Moyo Districts – 2015:
3.1. Abim:52.7%
3.2. Amudat: 82.48%
3.3. Adjumani:78.2%
3.4. Moyo: 50.7%

1. 2021: 65.8 km of
the
rehabilitated
and upgraded to the
bituminous
standard of AtiakAdjumani- MoyoSouth
Sudan
Border Road (Atiak
Laropi section)
Realistic target will
be drawn at inception
for indicator 2-4

4. Annual
Sector
Performance
Report
MoWT - 2014/2015:
Baseline: 83%

31

 1. % of budget framework papers in
targeted sub-regions issued with
gender and equity certificate in
compliance with the provisions of
the PFMA
2. % of budget framework papers
in targeted sub-regions issued
with NPA's certificate on
compliance with the provisions of
the PFMA
3. % of local own source revenue
(projected and collected) as a
ratio of transfers from central
government

Baseline values for indicator
1-2 will be proposed during
the inception phase

Upward
accountability
mechanisms are strengthened
through improved interactions
between local government and
national
accountability
institutions

1. %
of
compliance
with
accountability
regulations
governing local governments

Baseline values for indicator
1 will be proposed during
the inception phase

2. %
of
implementation
of
recommendations
mandated
accountability
institutions
governments

2. 56% (2015) of Uganda
Procurement, Disposal of
Public Assets (PPDA)
recommendations
are
implemented

Downward
accountability
mechanisms are strengthened by
supporting civil society, media
and other non-state actors
including private sector in their
interaction
with
local
government,
and
complementary
national
initiatives aimed at fostering
accountability to the citizenry

1. % of citizens' (sex disaggregated)
satisfaction with delivery of
public services, accountability
and governance, disaggregated by
sex
2. Number of public reviews of the
budget, financial performance
and
implementation
of
programmes
3. Level of stakeholder participation
in planning, budgeting and
monitoring local government
programmes

Baseline values for indicator
1-3 will be proposed during
the inception phase

Output 3.3

Output 3.2

Output 3.1

Local governments in targeted
districts are strengthened in their
ability to manage core processes

3. 3-5% (2015) are locally
generated

71

The Ministry of Finance, Planning and Economic Development
Public Procurement And Disposal of Public Assets Authority
Office of the Auditor General
74
Public Procurement And Disposal of Public Assets Authority
72
73

32

Realistic target will Indicators 1-3:
be drawn at inception  Budget performance
for indicator 1-3
analysis and reports
of MoFPED71 and
the Ministry of Local
3. 10-15% (2019) of
Government
Local
Governments'
 Reports of the Equal
revenues
are
Opportunities
locally generated
Commission
and
National
Planning
Authority

Central
Governments
releases funds for local
government, respecting
the
principle
of
additionally of the Peace
Recovery
and
Development
funding
plan

Realistic target will Indicators 1-2:
be drawn at inception  Ministry of Local
for indicator 1
Government's
Assessments,
2. 80% of annual OAG73 Reports
recommendations
 PPDA74
Reports
of PPDA72 and
including Integrity
OAG
are
Surveys
implemented

Local Governments have
the
capacity
to
effectively execute their
mandate
Local Governments are
responsive to statutory
,reporting
and
assessment requirements

Realistic target will Indicators 1-3:
be drawn at inception  Local Government
for indicator 1-3
Council Scorecard
Assessments
 Service
Delivery
Surveys

Local Governments will
embrace the oversight
role of NSA and are
willing
to
create
conducive environment
for their operation and
partner with them
Interest
of
local
stakeholders in local
governance
is
reinvigorated

 Output 3.4

Capacities of local government
to
deliver
services
to
communities strengthened

1. Quality of service delivery and
consultative processes at local
level,

1. General
dissatisfaction
with service delivery

33

1. Improved service
delivery and local
development

Programme
documents,

reporting

The Government will
keep the commitment to
involve
more
civil
society organisations in
the governance process
at local level