REGIONAL INTEGRATION SUPPORT
PROGRAMME (RISP II)
CONTINUATION
TERMS OF REFERENCE (TORs) FOR CONSULTANCY TO DEVELOP THE PROTOCOL
FOR THE ESTABLISHMENT OF THE IGAD CENTRE FOR PASTORAL AREAS AND
LIVESTOCK DEVELOPMENT (ICPALD)
The Intergovernmental Authority on Development (IGAD) has received funds from the
European Union (10th EDF) through the Regional Integration Support Programme (RISP II). The
funding is to support IGADs integration agenda to be coherent and in line with other regional
integration activities in the ESA-IO region.
The Secretariat intends to use part of the funds to recruit a consultant or a firm to develop a
Protocol for the establishment of an IGAD Centre for Pastoral areas and Livestock
Development.
Applications are invited from suitably qualified individuals or firms from the ESA-IO region an
EU and ACP region to participate in the bid.
1.0Introduction
Economic integration in the Eastern and Southern Africa-Indian Ocean (ESA-IO) region is
driven by the Common Market for Eastern and Southern Africa (COMESA), the East African
Community (EAC), the Inter-Governmental Authority for Development (IGAD) and the Indian
Ocean Commission (IOC) through a wide array of initiatives which aim at addressing both
common issues such as trade, investment and supply-side constraints and sub-regional
specificities as well as specific sectors such as renewable energy, bio-diversity and marine
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resources. COMESA and EAC are both in the process of harmonising trade, investment and
macro-economic policies with the ultimate aim of establishing a fully fledged Common Market
and a Monetary Union. The two organisations are also engaged, together with the Southern
African Development Community (SADC), in the Tripartite Process, which aims at establishing
a single market encompassing all their twenty-six Member Countries. IGAD is championing the
Horn of Africa Initiative, which is an integrated response strategy to promote peace, security
and development in the sub-region. IOC is leading on sustainable development programmes,
especially aimed at island economies.
Since 2002, the four Regional Organisations have decided to join-up their efforts, through the
Inter-Regional Committee (IRCC) in the programming and implementation of regional
programmes and projects under the European Development Fund (EDF), with a view to
improve coordination in the implementation of regional integration programmes, especially in
order to avoid the duplication of activities. The Regional Integration Support Programme (RISP)
is one of the key regional economic integration programmes implemented under the 9th EDF
following that principle. The purpose of the RISP was to develop the capacity of the ROs and
their Member/Partner States in policy formulation, implementation and monitoring of regional
integration as well as multilateral and regional trade. The RISP was implemented jointly by
COMESA and EAC and contributed significantly in furthering the integration road maps of the
two organisations, namely by facilitating the launching of the COMESA Customs Union and the
EAC Common Market in 2009.
The 10th EDF RISP Continuation aims at consolidating the achievements made through the 9 th
EDF while expanding support to all four Regional Organisations in contributing to the
economic integration in the ESA-IO region. The RISP continuation focuses directly upon the
agreed economic integration agenda of COMESA and EAC, by assisting the ROs in fulfilling
their mandates of progressing towards FTAs and CUs. Through the IOC, the inclusion of island
state specificity in the COMESA agenda will be ensured, while IGAD’s functional cooperation
programme in support of the Regional Integration agenda of the ESA region will also be
included.
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The programme is expected to achieve six results to attain its specific objective:
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RESULT 1: Regional policies and regulations for the implementation of the regional
integration mandates and agenda are designed and/or adjusted;
-
RESULT 2: Trade development, trade facilitation instruments and strategic, regulatory
and technical preparatory works of trade related infrastructure designed and/or adjusted;
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RESULT 3: Regional institutions established and strengthened to implement and monitor
regional policies and regulations, including institutions that service private sector at
regional level;
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RESULT 4: Management capacities of the ROs improved to meet international recognised
standards of governance;
-
RESULT 5: Member/Partner States capacity to address trade related issues and to
implement their trade liberalisation and regional integration commitments is enhanced;
-
RESULT 6: Capacity of the region to negotiate and implement multilateral trade
agreements is enhanced.
As a regional institution, the proposed IGAD Centre for Pastoral Areas and Livestock
Development (ICPALD), will be established under result 3.
1.0
Background
One of the major development challenges in IGAD Member States is allocating adequate
financial, human and physical resources to ever increasing priority needs. As a result, in
vulnerable, pastoral areas, the management of natural resources, the environment and the key
productive sectors such as livestock and dryland farming have not been adequately addressed.
As a consequence, most of the pastoral areas in the IGAD region are trapped in a vicious cycle
of poverty and environmental degradation exacerbated by increasing and recurrent disasters
due to climate extremes, animal diseases and conflict, chronically poor access to resources and
services. The escalating grain prices, competition for resources only serve to aggravate the
situation which is underpinned by weak and poorly harmonised policy and institutional
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environment at both national and regional levels. There is, therefore, an urgent and widely
acknowledged need to complement national initiatives with a regional approach to these issues.
Until recently, development strategies have focused largely on development of the livestock
sector as an economic enterprise. While these strategies have been successful, delivering an
average growth rate of 4% per annum throughout the region since the mid 1990’s, their impact
on wealth generation and employment creation at producer level has been disappointing.
There is now consensus that the guiding principle for such development strategies should be
the emphasis on people - their welfare and livelihoods. To this end, through its Livestock Policy
Initiative, IGAD has established multi-sectoral and multidisciplinary policy hubs in all its
member states as advisory bodies to ministers, to foster inclusive, evidence based and
participatory policy making. Through improved representation of the voice of the poor and
women livestock keepers a new policy agenda is emerging in the livestock sector which reflects
the broad services that livestock provide to the livelihoods of women and men and that
emphasises livestock’s regional dimensions.
Moreover, results from IGAD’s Livestock Policy Initiative show that livestock’s economic
contribution has been seriously underestimated. For instance, results from Ethiopia show the
contribution of livestock to the national economy to be higher than previous GDP figures
indicate by a factor of 350%. The Ministry of Finance and Economic Development of Ethiopia is
currently chairing a task force to revisit its methodology. Throughout the region, both
government and non-government stakeholders to the livestock sector are strongly of the
opinion that with the growing recognition of (i) livestock’s true economic importance and (ii)
the potential for poverty reduction through the emerging, people focused policy and
development agenda, the time is right to address the above shortfalls in the resources allocated
to the sector and provide the necessary policy and institutional environment to enable inclusive
and employment and wealth creation focussed growth.
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To familiarise policy makers with the above development challenges and opportunities in arid
and semi-arid lands (ASALs) the IGAD Secretariat organised a tour for IGAD parliamentarians
and journalists to three conservation sites in Northern Kenya in 2009. Following the tour and a
thorough briefing by IGAD and Kenya government officials, the parliamentarians
recommended that the IGAD Secretariat identifies and supports a pastoralist development
institute/dryland training institution to promote eco- and bio-enterprises in arid and semi-arid
lands.
The IGAD ES presented these recommendations during the 33rd Council of Ministers meeting in
Djibouti in December 2009. The Council took note and supported the recommendations, urging
the Secretariat to explore the viability of establishing such an institution in the Horn of Africa.
Also in December 2009, the region’s ministers responsible for livestock signed a regional policy
framework on animal health in the context of trade and vulnerability, in which they also called
upon the ES to establish a Livestock Development Centre to support and coordinate
implementation of regional livestock policies. It is against this background that the ES decided
to set up a select committee of experts to assess the viability of establishing a Drylands and
Livestock Centre.
The Committee considered the instructions of the IGAD ES and responded by splitting the
assignment into two, namely:a. Establishing an eco and bio-enterprises training institution: This is to be accomplished by
the adoption of Sheikh Technical Veterinary School (STVS), an existing Pastoral/Drylands
institution for training and research in Somaliland, which will subsequently be supported
to include eco and bio-enterprises training as part of its curriculum. Documentation
supporting the adoption of STVS and its planned growth are contained in a separate
portfolio, to be presented separately.
b. Assessing or determining the viability of establishing a drylands and livestock
development Centre (Institute) as a specialised institution of IGAD.
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The narrative below focuses on establishing one centre to cater for both drylands and livestock
development issues in the region as a specialised institution of IGAD.
Drawing from the mandate of IGAD the proposed Centre will promote and facilitate
sustainable and equitable development of drylands and livestock in the region. The Centre will
support dryland and livestock development agenda including policy and legal reform
processes, in member states. It will increase awareness of the true contribution of the livestock
sector to national economies. In addition the Centre will champion the development and
implementation of internationally acceptable regional animal health inspection and certification
system supported by appropriate livestock production services and marketing infrastructure
and services. It will build on lessons learned and best practices in the fields of drylands farming,
disaster risk management, wealth and employment creation and gender focussed development
in the ASALs.
3. Rationale for establishing a drylands and livestock development institution
The select committee believes there to be a compelling case for the establishment of the Centre,
on several grounds, namely:i.
The Centre would respond to the recommendations made to IGAD in 2009 by a group of
IGAD
parliamentarians
to
identify
and
support
a
pastoralist
development
institute/dryland training institution to promote eco- and bio-enterprises in arid and semiarid lands.
ii.
The Centre would respond to the recommendations made by the (then) ministers
responsible for livestock, in signing the IGAD Regional Policy Framework on Animal
Health in the Context of Trade and Vulnerability (December 2009), to the Council of
Ministers to instruct the Executive Secretary to establish a livestock unit under the IGAD
Secretariat.
iii.
The Centre would respond to the growing acceptance of the need for IGAD Member States
to manage regional public goods issues with regional economies of scale, some issues of
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knowledge management and issues that require prompt coordination and decision making,
relating to the livestock and drylands sectors, at the IGAD level.
iv.
Newly emerging livelihoods and gender focussed policy and development agendas, the
growing recognition of livestock’s economic importance and experience from other RECs
led the select committee to conclude that the complexity and scale of the issues under
consideration would exceed the capacity of any individual and therefore warrant the
establishment of a multidisciplinary team operating from within a specialised institution of
IGAD.
v.
The IGAD region’s endowment of livestock is unrivalled throughout the world and as such
has become a vanguard sector in the region’s moves towards regional economic
integration. This is process requires further institutional capacity at the level of IGAD.
4. Past experiences in IGAD and other RECs that informed the discussions
4.1 Lessons learnt from IGAD and other RECs
To better inform discussions on the viability of the proposed Centre the Committee reviewed
some of the lessons learnt by IGAD and other AUC RECs while establishing similar institutions.
Some of the key lessons are presented below:i.
Human and financial resource constraints
The mandate of the RECs have expanded over the years without corresponding expansion in
their capacity in terms of professional staff and finances, thus overstretching the available
financial, physical and human resources. This has had negative implications on effectiveness
and efficiency of delivery of services required for administration and programme
implementation. It is suggested that the IGAD Secretariat facilitates the proposed Centre to
recruit and retain a critical number of qualified and experienced core staff and essential physical
resources (premises, office equipment and utilities) and supports the Centre to source for funds
to ensure a strong foundation.
ii.
Clearly defined institutional arrangements including roles and responsibilities
Poorly defined terms of reference and institutional arrangements including roles and
responsibilities in the development, implementation and follow up of programmes and projects
have contributed to some of the observed inefficiencies and low effectiveness. It is important
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from the outset for the proposed Centre, IGAD and member states agree on roles,
responsibilities and operational procedures to ensure efficient and effective delivery on
programmes and services by the centre.
iii.
Establishing functional linkages within IGAD and member states
To avoid duplication and the associated resource wastage the Committee proposed that the
Centre creates functional linkages and uses the existing AUC, IGAD and member state
institutions to develop, implement and evaluate projects. It was also suggested that the
proposed Centre adopts a simple project/programme development, implementation,
monitoring and evaluation strategy working with existing IGAD and national public and
private sector institutions.
iv.
Programming, monitoring, evaluation and adjustment functions
A functional programming, monitoring, evaluation and adjustment programme/unit and
procurement system should be put in place and be linked with the Planning Division and
monitoring and evaluation system at IGAD Secretariat from the outset.
4.2 Past experiences in IGAD
Since its inception IGAD has adopted the IGAD Climate Prediction and Applications Centre
(ICPAC) and established the Conflict Early Warning and Response Mechanism (CEWARN)
based on its mandate enshrined in articles 12 and 13 of the Agreement establishing IGAD
supported by appropriate protocols (article 17). IGAD Secretariat has also used a variety of legal
instruments and pathways to establish:–
a) Regional Coordinating Offices.
b) Projects and programmes and
c) Political Liaison Offices
Given these precedents and the experiences gained while developing the protocols establishing
ICPAC and CEWARN, the Committee proposed that the foundation and legal construction of
the Drylands and Livestock Development Centre be based on the agreement establishing IGAD,
supported by:8
i.
The Decision of the 33rd Council of Ministers (December 2009) – item 89.
ii.
The recommendations of Ministers at the time responsible for livestock in the IGAD
region (December 2009) – article 5.
iii. The stated desire of the IGAD Secretariat to establish an institution to address livestock
and drylands issues especially those in pastoral areas.
4.3 Estimating the cost of establishing the Centre
To estimate the cost of establishing the Centre, the Committee relied on IGAD’s mandate
(Article 13 A) to develop the Centre’s mandate, vision, mission, objectives and core functions.
The later enabled the Committee to determine the required core human resource and their
relationships – a functional organogramme. The mandate, vision, mission, objectives and
functions are presented here below:i. The Mandate of the Centre would therefore be to: “Promote and facilitate sustainable and
equitable drylands and livestock development in the IGAD region”
ii. The vision of the Centre is to: “Be the premier centre of excellence for promoting drylands and
livestock development policies”
iii. The Mission of the Centre is to: “Compliment efforts of IGAD member states to sustainably
generate wealth and act as regional policy institution for livestock and drylands”
iv. The overall objective of the Centre will be to: “Promote and facilitate Regional Policy
framework and advocate for people centered and gender responsive sustainable development of
drylands and livestock in the IGAD region”
To achieve the stated objective of the Centre the strategic objectives of the Centre include:i.
Promote and facilitate the elaboration and harmonization of policies and development
initiatives in livestock and drylands development in member states at regional level to
integrate the region with the international standards.
ii.
Facilitate appropriate and applicable research and technology development, including
domestication, adoption and transfer, in drylands and livestock development,
iii.
Act as an interface between the extension, research, policymaking and execution through
developing Regional policies frameworks and networking with like-minded institutions
at regional and international level to coordinate implementation
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iv.
Establish linkages with relevant IGAD especially ICPAC and CEWARN, and member
state institutions and create synergy with international, continental and regional
institutions’ programs and projects on issues pertaining to drylands and livestock
development.
i.
Promote and facilitate need driven capacity building including training of all actors in
drylands and livestock sectors in member states through organize conferences, seminars
and workshops on key developmental issues related to livestock and dryland.
To realize the stated objectives the following core functions are proposed:i.
Undertake situational analysis including policy review and support the analysis and
harmonization of regional/national policy in standard issues, legal, regulatory and
institutional frameworks relating to drylands and livestock development in member
states,
ii.
Collaborate with ICPAC, in downscaling climate prediction products, and CEWARN, in
the application of conflict early warning in drylands and livestock development,
iii.
Promote and facilitate knowledge management services including information sharing
and documentation, on issues relevant to its mandate,
iv.
Support member states to create an enabling environment for Public-Private Partnerships
(PPPs) in drylands and livestock development and marketing,
v.
Establish linkages with relevant member state institutions and create synergy with
international, continental and regional institutions’ programs and projects on issues
pertaining to drylands and livestock development,
vi.
Support and facilitate the establishment of linkages between producers, Extension,
marketing, research, policy making and execution while promoting extension and
research and use of appropriate technology for drylands and livestock development,
vii.
Support and facilitate capacity building of all actors in drylands and livestock
development,
viii.
Support diversification of livelihoods, employment and wealth generation options
including fisheries, non-wood forest products among others.
ix.
Provide consultancy and advisory services to member states regarding livestock and
drylands including bio and eco-enterprises,
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Based on the proposed core functions and the preferred programme/project and
implementation strategy the committee proposed three main programme areas i.e. drylands
development, livestock and fisheries development and socio-economics, gender and policy
support. The Committee further proposed that the Centre be headed by a Director and four
coordinators, one for each of the programmes. These core staff shall be supported by and
equally lean programming (with M&E), procurement and logistics service units (Figure 1).
Executive
Secretary
Advisory
Committee
Director
Program, M & E
Coordinator
Socio-economic,
gender and Policy
Support Coordinator
Admin & Fin
Coordinator
Drylands Development
Coordinator
Livestock and fisheries
Development
Coordinator
Figure 1: The proposed initial structure of the Centre
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5.0 Viability of the institution
In evaluating the viability of the centre, the committee considered the following factors:a. Political good will: This has been amply demonstrated by the decision of the 33rd session
of the Council, the decision of December 2009 by the ministers of livestock and the support
provided to date by the ES, the Secretariat and member states
b. Availability of support systems and structures in member states and IGAD:
i.
Most of the IGAD member states have departments/divisions/ministries responsible for
livestock and drylands.
ii.
At IGAD level the Centre will work very closely with divisions of IGAD, ICPAC, IRRAP,
CEWARN, ICPAT and the REFORM programme as it builds on structures and practices
put in place by the IGAD LPI in form of Policy Hubs.
iii. At AUC level the Centre will collaborate closely with EAC, COMESA, SADC and DREA
(and its organs including AU-IBAR).
c. Availability of trained, skilled and experienced human resource: The region is endowed
with a pool of highly trained, skilled, experienced and seasoned technical and
administrative human resource to establish and manage the Centre. To exploit this great
potential, however, it is important that the positions in the Centre are competitively filled.
d. Physical infrastructure: The host country, as determined by the Summit as soon as the
Centre is fully operational, shall be charged with the responsibility of providing safe and
secure physical infrastructure including office space and utilities (water, power and
internet) and basic services.
e. Financial resources: The Centre will be initially, in the first three (3) years, be funded from
development partner funded project before its core budget is provided for by MS through
IGAD.
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6.0 Overall objective, specific objectives and purpose of the protocol
6.1
The overall objective of the Draft Protocol on the Free Movement of Persons in the
IGAD Region
The overall objective of the draft protocol on the establishment of the IGAD Centre for Pastoral
Areas and Livestock Development (ICPALD) is to provide tools and instruments for the
establishment of the Centre as an IGAD Satellite Institution.
6.2
Approach and methodology
It is suggested that the consultant(s) develops a prototype protocol which will be enriched by
the information and data collected from all the relevant Government Ministries/Institutions
responsible for pastoral areas and livestock development and dryland farming in Member
States. The evolving protocol will, of necessity be informed by the existing policies and
supporting legal frameworks and practices. The consultant(s) is expected to provide detailed
approach and methodology in their response to this TORs.
6.3
Specific tasks
The consultant will be expected to produce a well documented/researched Protocol for the
establishment of ICPALD clearly indicating the role that IGAD member states should play in
implementing the activities, projects and programmes of the Centre. The consultant will be
required to undertake, but will not be limited to, the following specific activities:
Review protocols of IGAD satellite programmes and organs and the existing regional
pastoral and livestock development programmes in other RECs, i.e. SADC, COMESA
and EAC with a view of harnessing their strengths and minimizing any inherent
weaknesses.

Identify administrative and policy measures and instruments required to facilitate intraregional projects and programmes.

Identify measures to strengthen institutional capacity building programmes for pastoral
areas and livestock development.

Build provisions within the protocol for the Centre to dock into activities, projects and
programmes by other IGAD Satellite organs

Develop an Action Plan and Timeframe for implementation of the agreed Protocol.
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6.4
Deliverables
The consultant will be required to:a. A consolidated report of the consultative meetings with all the relevant Government
Ministries/Institutions, IGAD Focal Points and other sector stakeholders in Member
States.
b. A review of the existing IGAD member states policies and legal frameworks supporting
and guiding pastoral areas and livestock development.
c. A draft Protocol for the establishment of ICPALD.
d. An elaborate Action Plan for implementation of the agreed Protocol by the IGAD member
states and the IGAD Secretariat.
(The final Protocol and documents to be submitted shall be in English and French languages).
7. Timeframe for the consultancy
The consultant will be required to undertake the exercise within 90 days and produce the
deliverables outlined above.
The consultant may wish to distribute the workload and time available in all the activities
stipulated hereunder in the TORs of the consultancy between the IGAD Secretariat, the member
states, consultative meetings/workshops, and drafting of the Protocol as deemed appropriate
but with consultations with the IGAD Secretariat.
8. Consultant(s) qualifications
The consultant(s) should possess working experience in the IGAD region and/or at least three
of the IGAD Member States. Preference will be given to individuals or organizations with
proven relevant experience in undertaking a task of similar magnitude, and shall preferably
among others, have the following qualifications and experience:a. Possess at least an LLM. Degree or an M.A (degree in Agricultural or Livestock Economics
or International Relations) with specialization in regional economic integration. Masters
and PhD in various specialization of law are definite advantages.
b. Proven formal training and experience in legal drafting at national and/or regional levels
are definite advantages
c. At least 10 years of professional working experience at national or regional levels on
national and regional matters.
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d. Adequate knowledge and exposure to Regional Economic Communities (RECs), and
regional cooperation initiatives.
e. Proven track record to work in a multi-cultural and multi-disciplinary environment is
necessary.
f. Strong computer skills and analytical skills with ability to write and review technical
reports will be required.
g. Fluency in English or French will be required.
9. Location
This is a home-based assignment managed from the IGAD Secretariat Headquarters in Djibouti
and coordinated by ICPALD, Nairobi, Kenya.
10.
Evaluation Criteria and weight
The consultant will be evaluated against a combination of technical and financial criteria.
The technical evaluation will include the following:
• Background and Education (CVs of the consultants) - 25%
• Practical previous experience relevant – based on the brief proposal submitted with the
application - 30%
• Practical previous experience relevant to working with regional and international
organizations -15%
• Practical previous experience relevant to working in the IGAD region -5%
• English language fluency in both oral and written -5%
Financial : 20
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11.
Submission of applications
Interested persons should submit their applications in a sealed envelope marked “ICPALD
PROTOCOL” to contain two other envelops inside containing one original and three copies( to
be clearly marked), one marked technical bid and a second one marked financial bid to the
Procurement officer, Administration and Finance, IGAD Secretariat, BP 2653 Djibouti, A copy of
the forwarding letter should be emailed to: igad@igad.int with a copy to the Program Manager
Trade, Industry and Tourism, email: joseph.rwanshote@igad.int and to IGAD RISPII
Coordinator: Yufnalis.okubo@igad.int. The deadline for submissions is 2nd June, 2012.
Applications are open to nationals from all ACP and EU member States
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