Releasing Our Full Potential: The ASAL Policy, its Promise and Challenges

Transcription

1 RECONCILE Releasing Our Full Potential: The ASAL Policy, its Promise and Challenges A Briefing Note for Members of County Assemblies, Community Representatives, Leaders, CSO and ASAL stakeholders Prepared by Michael Ochieng Odhiambo The purpose of this policy brief is to disseminate key pillars on which the policy is anchored, outline the policy priorities, objectives and financing mechanism to enable local level stakeholders effectively participate in the implementation, monitoring, evaluation and feedback as provided for by the policy itself. Nakuru, May 2013

2 Table of Contents Acronyms Introduction ASALs important but marginalized since colonial times Policy shifts in favour of the ASALs NARC and ERS Kenya Vision 2030: ASALs integral to inclusive development Constitution of Kenya 2010: a constitutional foundation for ASALs development The ASAL Policy: an analytical presentation Introductory chapters: setting the stage Goal and objectives of the policy Elements of the policy: specific interventions to realize the objectives Institutional and legal framework Financing Realizing benefits of the ASAL Policy: challenge to stakeholders Endnotes P a g e

3 ASALs ERS GoK ICT IIED MNKOAL NARC NDDCF NDMA NESC NGOs PTG SACCOs Acronyms Arid and Semi-Arid Lands Economic Recovery Strategy for Wealth and Employment Creation Government of Kenya Information and Communications Technology International Institute for Environment and Development Ministry of State for Development of Northern Kenya and other Arid Lands National Alliance Rainbow Coalition National Drought and Disaster Contingency Fund National Drought Management Authority National Economic and Social Council Non-Governmental Organizations Pastoralists Thematic Group Savings and Credit Cooperative Organizations 3 P a g e

4 The arid and semi-arid lands of Kenya have much to offer our country. It is time that we looked at them differently, recognizing their strengths and resources and understanding what makes them distinct. By doing so, we will remove the injustices from which they have suffered for too long, contribute to achieving our national development goals, and act in accordance with the spirit and commitments of our Constitution 1 1. Introduction Sessional Paper No. 8 of 2012 on the National Policy for the Sustainable Development of Northern Kenya and other Arid Lands was launched at a public function in Nairobi on 5th February 2013 presided over by the Minister of State for Development of Northern Kenya and other Arid Lands. The ceremony marked the climax of a two decades long struggle for a national policy instrument for the arid and semi-arid lands (ASALs). The institutional framework for the ASALs was also launched at the same ceremony. Adoption of the ASAL Policy is a critical achievement in terms of the institutionalization of appropriate policy responses to the marginalization and underdevelopment of the ASALs. It will probably be remembered as the most significant achievement of the Ministry of State for Development of Northern Kenya and other Arid Lands (MNKOAL) created by President Kibaki in April While announcing the creation of the new Ministry, the President reaffirmed his commitment to direct more resources to the development of the ASALs which have in the past suffered neglect due to inadequate resource provisions and poor infrastructure. The ASAL Policy reinforces other positive policy options articulated in Kenya Vision 2030, the Constitution of Kenya, 2010 and the National Land Policy. Together these documents constitute a strong foundation for the sustainable development of the ASALs. Backed by the institutional framework that the MNKOAL has promoted over the period of its existence, there now exists an appropriate policy and institutional framework for addressing the livelihoods and development challenges of the ASALs. This Briefing Note presents the ASAL Policy, explains its main provisions, and analyzes how they respond to critical challenges that have historically undermined the development of the ASALs. It locates the ASAL Policy within the context of ongoing policy and institutional reforms underpinned by the new constitutional dispensation introduced by the Constitution of Kenya, Hon. Mohamed Ibrahim Elmi, Minister of State for Development of Northern Kenya and other Arid Lands, Foreword to the ASAL Policy, p.x 4 P a g e

5 The Briefing Note concludes that adoption of the ASAL Policy and institutional framework signals the mainstreaming of ASALs concerns into the national development policy architecture - a significant achievement that brings to fruition a quest spreading over two decades. However, it cautions that the real challenge lies in implementation of the Policy in order to translate the positive policy stipulations into programmes and projects that will deliver to the citizens the benefits that it promises. In this connection, it recommends continued engagement of stakeholders with government to support, monitor, and evaluate implementation of the Policy. 1. ASALs important but marginalized since colonial times The ASALs cover nearly 90% of the country s land mass and are home to nearly 30% of its population. In addition, they hold approximately 70% of the national livestock herd and are home to most of the country s national parks that are the foundation of its thriving wildlife tourism. Yet the ASALs have not received policy attention commensurate with their status in the country. Instead, they have historically been marginalized in terms of resource allocation, infrastructure development, social service delivery and economic transformation. Residents of the ASALs have had little or no participation in political leadership and thus no opportunity to influence policy decisions and actions in their favour. The marginalization of the ASALs dates back to colonial times when government policy was informed by imperatives of containment which saw much of area designated closed districts, movement in and out of which was strictly regulated. The colonial government used laws such as the Outlying Districts Ordinance, 1902 and the Special Districts (Administration) Ordinance, 1934 to restrict movement into and out of the territory that now constitute the counties of Wajir, Mandera, Garissa, Isiolo, Marsabit, Tana River, Lamu, Samburu, and Kajiado. This approach to the ASALs continued well into the era of independence. Indeed, for ASALs that lie within North Eastern Province, the situation worsened with independence, as the new government introduced measures to counter the threat of Somali secession. The measures included declaration of a state of emergency, which would last for nearly three decades, providing an excuse for pervasive violation of human rights, marginalization and underdevelopment. Ultimately, the state of emergency came to define the relations between government and citizens in North Eastern Province. 5 P a g e

6 Post-colonial marginalization of the ASALs was institutionalized in Sessional Paper No. 10 of 1965 on African Socialism and its Application to Planning in Kenya, which focused national economic development strategies towards agriculture, investing resources in the so-called high potential areas. The Sessional Paper made a deliberate policy choice to starve the ASALs of resources (see Box). As a direct consequence of this marginalization, the ASALs were at the beginning of the 21 st Century characterized by the poorest indicators in all spheres of social and economic development. The areas lacked physical and social infrastructure, were poorly integrated into the national economy, and local citizens felt isolated and alienated from the rest of the country. 2. Policy shifts in favour of the ASALs Government began to acknowledge the need for special attention to the ASALs in development planning in the 1990s thanks in large measure to pressure from civil society organizations. Thus, pastoralism was identified as a separate theme in the preparation of the Poverty Reduction Strategy Paper and a Pastoral Thematic Group established to work on the specific concerns and strategies for addressing One of our problems is to decide how much priority we should give in investing in less developed provinces. To make the economy as a whole grow as fast as possible, development money should be invested where it will yield the largest increase in net output. This approach will clearly favour the development of areas having abundant natural resources, good land and rainfall, transport and power facilities and, people receptive to and active in development. (Sessional Paper No. 10 of 1965, para 133) poverty among pastoralists. The Group developed a Pastoral Poverty Reduction Strategy the key tenets of which were ultimately incorporated into the PRSP, marking the first time specific attention was paid to pastoralist concerns in a national development policy NARC and ERS However, it was with the publication in June 2003 of the Economic Recovery Strategy for Wealth and Employment Creation (ERS) by the National Alliance Rainbow Coalition (NARC) government that the policy shift over the ASALs became most manifest. The ERS acknowledged the failure of past governments to confront development challenges of the ASALs, highlighted the potential of the ASALs in livestock production, fishing, mining, tourism 6 P a g e

7 development, trade and industry, and identified challenges to be addressed in order for the potential to be realized Kenya Vision 2030: ASALs integral to inclusive development Kenya Vision 2030 was published and came into operation even as the constitutional review process was ongoing. Its three pillars of economic, social and political governance are of direct relevance to the ASALs. The economic pillar seeks to achieve and sustain an average economic growth rate of 10 per cent per annum. The social pillar seeks to create a just, cohesive and equitable social development in a clean and secure environment ; while the political pillar seeks to build an issue-based, people-centered, result-oriented and accountable democratic system in Kenya (GoK, 2007: vii). All these are objectives which, if realized and applied to the ASALs, will address their core livelihood and development challenges. Vision 2030 recognizes the importance of livestock production in the ASALs and seeks to exploit the potential for the benefit of the region and the national economy at large. In this connection, it asserts that: The arid and semi-arid lands (ASAL), representing 84 per cent of the total land mass of the country, remain largely underexploited. There are 24 million hectares in the ASAL that can be used for livestock production, but only 50 per cent of the carrying capacity of the land is currently being exploited. Additionally, there are 9.2 million hectares in ASAL which have the potential for crop production if irrigated. This irrigable area is equivalent to the total farmland in high and medium potential areas in the country. 2 It is however the social pillar of Vision 2030 that most clearly articulates and demonstrates the vision of inclusion that is so integral to the mainstreaming of the ASALs into national development. In order to build a just and cohesive society that enjoys equitable social development in a clean and healthy environment, the Vision proposes major interventions to promote social development. These interventions are focused on the very areas in which the ASALs have continued to manifest poor indicators, including education; health; water and sanitation; the environment; housing and urbanization; gender; youth; sports and culture. The Vision makes special provisions for previously marginalized communities, who are identified to be predominantly communities living in the ASALs. 2 p P a g e

8 2.3. Constitution of Kenya 2010: a constitutional foundation for ASALs development All the foregoing reforms are now firmly grounded in the Constitution of Kenya, The Constitution sets out to put an end to the poor governance and widespread inequity that characterized the country s recent history. Its preamble asserts the the aspiration of all Kenyans for a government based on the essential values of human rights, equality, freedom, democracy, social justice and the rule of law. These aspirations have a particular resonance with pastoralists and agro-pastoralists living in the ASALs, who have historically been denied these values through systematic marginalization by successive governments. Specific provisions of the Constitution address marginalization generally and with reference to the ASALs. These include Article 56 and Articles on devolved government. Also relevant are the provisions of chapter 5 of the Constitution on community land. Articles 56 and 174: affirmative action, devolution address historical marginalization Article 56 provides for affirmative action to redress historical marginalization, effectively providing constitutional backing to strategies for addressing the historical marginalization of the The State shall put in place affirmative action programmes designed to ensure that minorities and marginalized groups (a) participate and are represented in governance and other spheres of life: (b) are provided special opportunities in educational and economic fields; (c) are provided special opportunities for access to employment; (d) develop their cultural values, languages and practices; and (e) have reasonable access to water, health services and infrastructure Article 56 of the Constitution of Kenya 2010 ASALs and bringing them to par with the rest of the country. It provides a strong grounding for the ASAL Policy. Equally relevant are provisions of the Constitution on devolved government. Article 174 enumerates objects of devolved government that include to protect and promote the interests and rights of minorities and marginalized communities and to ensure equitable sharing of national and local resources throughout Kenya. Marginalized communities are defined by the Constitution to include pastoral persons and communities, 8 P a g e

9 whether they are (i) nomadic; or (ii) a settled community that, because of its relative geographic isolation, has experienced only marginal participation in the integrated social and economic life of Kenya as a whole. 3 Article 204: Equalization Fund Article 204 of the Constitution creates an Equalization Fund into which shall be paid one half per cent of all the revenue collected by the national government each year. The Fund shall run for at least 20 years and be used only to provide basic services including water, roads, health facilities and electricity to marginalized areas to bring the quality of those services in those areas to the level generally enjoyed by the rest of the nation. Article 63: Community land Finally, the Constitution recognizes community land that includes land used for grazing. It provides that community land shall vest in and be held by communities identified on the basis of ethnicity, culture or similar community of interest. This provides a constitutional foundation for strengthening communal land rights that are critical for the functioning of the pastoral and agro-pastoral systems of the ASALs. The provisions of the Constitution on land reinforce the National Land Policy, which was adopted in The process of enacting implementing legislation to give effect to the land provisions of the Constitution as well as the National Land Policy is underway. Three laws have been enacted, and a Ministerial Task Force is presently drafting the fourth law to govern community land. 3 Article P a g e

10 3. The ASAL Policy: an analytical presentation The ASAL Policy is divided into seven chapters and contains two annexes. The first three chapters are introductory, providing information on the ASALs including their geographical coverage, key characteristics and status. The substantive chapters present the goal and objectives, elements, institutional and legal framework, and financing. Annex 1 presents key policy interventions organized by objective; while Annex 2 presents policy interventions organized by sector (see Box) Introductory chapters: setting the stage The Introduction restates the poor development indicators and high incidence of poverty in the ASALs, and attributes this to the wrong policy choices associated with Sessional Paper No. 10 of It affirms that the government has since 2003 demonstrated renewed commitment to the development of the ASALs. A strong rationale for integrating the ASALs into the national economy is made in the following terms: The Government recognizes that Kenya will not achieve sustained growth in her economy and progress as a nation if the ASALs are not appropriately factored into national planning and development. Trickle down approaches from areas which already have more favourable investment climates have not worked; moreover the potential for significant growth in these areas is now limited. The geographical coverage of the Policy is Northern Kenya and other Arid Lands, which cover the totality of the ASALs, constituting nearly 90% of the country. In addition to specifying the geographical coverage of the Policy, chapter 2 provides detailed 1. Introduction 2. Geographical Coverage 3. Situation Analysis 4. Goal and Objectives of the Policy 5. Elements of the Policy 6. Institutional and Legal Framework 7. Financing Annex 1: Summary of Policy Interventions by Objective Annex 2: Summary of Policy Interventions by Sector..the remit of this policy extends across the entire arid and semi-arid lands. The policy acknowledges and responds to the specific ecological, social, economic and political realities in the ASALs that distinguish them from the rest of Kenya 10 P a g e

11 explanation of the terms ASALs, pastoralism and Northern Kenya. In the arid north of Kenya, the basis foundations of development are inadequate or lacking. Access to education, health, water, diverse dietary intake, infrastructure, energy, and ICTs are well below the national average. These are critical enablers of growth and their absence is holding the region back The situation analysis in chapter 3 of the Policy sets out to illustrate the extent of inequality as between the ASALs and the rest of the county and to highlight the gains for the country if the inequalities are removed and the ASALs brought into the mainstream of the national economy. The chapter presents comparative data and indicators from official sources on human development indices, infrastructure, education, and health. In all these the ASALs compare miserably with the rest of the country. The chapter highlights the potential of the region in terms of its strategic position, trade, livestock, tourism, natural wealth, pastoralists experience of managing climate variability, and urban development. All these are discussed in terms of their potential for enriching not just the lives of the residents of the ASALs, but also the entire national economy Goal and objectives of the policy The ASAL Policy is underpinned by a delicate balance between the quest for rapid development and the need to maintain and support the unique livelihoods system that best utilizes the variable ecological conditions of the region. This delicate balance is well articulated in the goal and objectives (see Table) Goal: To facilitate and fast-track sustainable development in Northern Kenya and other arid lands by increasing investment in the region and ensuring that the use of those resources is fully reconciled with the realities of people s lives to strengthen the integration of Northern Kenya and other arid lands with the rest of the country and mobilize the resources necessary to ensure equity and realize the region s potential to improve the enabling environment for development in Northern Kenya and other arid lands by establishing the necessary foundations for development to develop alternative approaches to service delivery, governance and public administration which accommodate the specific realities of Northern Kenya and pastoral areas to strengthen the climate resilience of communities in the ASALs and ensure sustainable livelihoods 11 P a g e

12 3.3. Elements of the policy: specific interventions to realize the objectives Chapter 5 of the Policy details the policy options for realizing the 4 objectives. For each objective there is a long list of policy and operational interventions, reflecting the enormity of the challenges facing the ASALs. To strengthen national integration, cohesion and equity In order to strengthen national integration, cohesion and equity, the government commits to implement a programme of education and social change to build mutual understanding between the people of Northern Kenya and other Kenyans. At the local level, it shall ensure that the Equalization Fund and other constitutional measures for addressing marginalization deal with particular challenges of the ASALs; that fiscal measures are implemented to attract private sector investment into core resources, social and economic infrastructure in the ASALs, and that all investments and economic development projects protect the environment, provide compensation where required and deliver maximum benefit to local communities and the country at large. Laying foundations for development: infrastructure, human capital, security and the rule of law For purposes of improving the enabling environment for development in the ASALs, the Policy proposes interventions in infrastructure, human capacity, and security and the rule of law. Of the three, infrastructure has the longest list of interventions, no doubt reflecting both its critical role Better infrastructure will improve security, stabilize the region, and strengthen its integration with the rest of the country and neighbouring markets To many, the north is remote, hostile and insecure, and it s people resistant to change. In their turn, many in the north regard the south as a distant and different country and the great need. The interventions to which the government commits in order to improve infrastructure are: to develop and maintain an integrated, safe and efficient road, rail and air transport network; invest in water harvesting and supply as well as irrigation infrastructure; improve water and sanitation infrastructure; harness renewable energy; expand access to power and ICTs; organize urban development in a manner that is sustainable and secures grazing and water rights; develop a cost- 12 P a g e

13 effective housing strategy; climate-proof infrastructure investment; and enhance private sector participation in infrastructure development. The Policy commits the government to the strengthening of human capital across all sectors that are essential for improving the update of development in Northern Kenya and other arid lands. Specifically, government undertakes to: develop and improve appropriate infrastructure for education, training and healthcare; increase the number of appropriately trained education, health and nutrition professionals; introduce affirmative action for people from Northern Kenya and other arid lands, particularly women, to enter all public training institutions; target a percentage of bursaries for tertiary and university education at students from these regions; address issues that disproportionately affect the education, health and nutritional status of girls and women; and ensure that the health, agriculture, livestock and education sectors fully incorporate nutrition considerations in their programmes and policies. the disparities in human capital between the north and the rest of Kenya are so acute that major investment will be necessary if the region is to compete on an equal basis with the rest of the country With respect to security and the rule of law, the government commits to: put in place comprehensive measures to end livestock raiding and inter-communal violence; enhance the presence and capacity of security and justice systems; strengthen traditional systems of governance and alternative dispute resolution; enact and implement the National Peace Building and Conflict Management Policy; apply conflict sensitive approaches to development; ensure that all interventions in the region are planned and implemented with due regard to local values and priorities; put in place measures to minimize human-wildlife conflicts; and develop mechanisms with neighbouring countries for sustainable peace and security. Alternative approaches to service delivery, governance and public administration The Policy argues for a different approach to service delivery, governance and public administration for Northern Kenya and other arid lands, taking into account the nature of settlement and social organization. In particular, the Policy stipulates an alternative approach to provision of public services and delivery of education and health services. In this connection, mobility is a key consideration in the design of approaches to service delivery, governance and 13 P a g e

14 public administration. In the same vein, the role of traditional systems of governance and administration in pastoral societies needs to be taken into account given their abiding relevance and influence. The Table below presents the interventions the governments commits to in this regard. 14 P a g e General Education Health 1. recognize, through legislation, pastoralism as a legitimate form of land use and development and incorporate the value of dryland goods and services within national economic planning 2. reconcile the electoral system with the realities of arid and pastoral areas 3. ensure that devolved structures accommodate mobility and resource-sharing across administrative boundaries and draw on the knowledge and experience of customary institutions 4. explore innovative ways of enhancing security and access to justice in arid and pastoral areas 5. integrate the specific needs and circumstances of pastoralist youth, both women and men, within national youth policies and strategies, and develop youthfriendly social services 1. introduce flexible education systems of high quality which are responsive the needs of the area and which reinforce traditional knowledge systems 2. promote the use of appropriate ICTs and other technologies in service delivery 3. Revise the Education Act to incorporate alternative ways of providing education services to nomadic communities, such as distance and mobile education 4. Establish the National Council on Mobile Education 5. Expand adult literacy services, particularly for women 1. Introduce flexible health systems of high quality which are responsive to the needs of the area 2. Promote the use of appropriate ICTs and other technologies in service delivery 3. Adapt community-based health systems for remote and mobile populations, and integrate these with animal health systems where appropriate 4. Introduce a health insurance scheme tailored to the needs of pastoralists Strengthening climate resilience and ensuring sustainable livelihoods The Policy seeks to strengthen the resilience of ASAL communities to drought and other climate related disasters. Interventions for this purpose target drought management and climate change, land and natural resource management, livestock production and marketing, dryland farming, livelihood diversification, and poverty and inequality. The interventions will support production and livelihoods, but in a manner that takes cognizance of the specific needs of the ASALs. To reduce the effects of drought and climate change on ASAL communities, the government shall: establish the National Drought Management Authority (NDMA) and the National Drought

15 and Disaster Contingency Fund (NDDCF), and ensure timely activation of contingency plans; gazette and manage emergency drought reserve areas and encourage the development of buffer areas of crop and forage production as part of contingency planning; mainstream climate change foresight and adaptation into planning; strengthen community strategies for adaptation to climate and disaster risk reduction and management; and explore opportunities for communities to benefit from bio-carbon initiatives. To ensure sound land and natural resource management, the government commits to: reinforce the authority of traditional natural resource management institutions; protect and promote indigenous knowledge and practice, promote environmental education and awareness, and intensify environmental conservation efforts; protect and increase forest cover, riverine forests and critical water catchment areas in the ASALs; eradicate undesirable invasive species; promote low maintenance water-technology with an emphasis on water harvesting; ensure the interests of pastoralists, particularly pastoralist women, are adequately and appropriately addressed in new land laws and institutions in accordance with the National Land Policy. The Policy puts great emphasis on strengthening of the livestock sector. It is thus not surprising that livestock production and marketing should have the highest number of propose interventions. Eleven interventions are specified covering animal health, livestock marketing and value addition. Government undertakes to: reform veterinary legislation to allow Community-Based Animal Health Workers to treat livestock; develop more pragmatic measures for veterinary quarantine; strengthen disease control and surveillance; rehabilitate livestock marketing infrastructure; facilitate establishment of public-private partnerships between communities and local authorities; develop policy to recognize and facilitate cross-border livestock trade and movement; establish the Kenya Livestock Marketing Board; establish measures to extend finance to livestock producers, especially women; ensure that livestock-based food products enter the national food reserves; strengthen research and extension systems which are relevant to the livelihoods of ASAL livestock-keepers, including women; and introduce livestock insurance schemes, particularly for pastoralist communities. The Policy intends to promote dryland farming as a means of boosting food security in the ASALs. In this connection, government commits to: strengthen research and extension relevant to rain-fed crop production; promote water harvesting to ensure food security; increase access to 15 P a g e

16 skills and technologies for community-based irrigated agriculture; promote improved practices in post-harvest storage and management; strengthen market linkages between lowland and highland economies; and establish mechanisms to extend affordable finance to smallholder farmers, particularly women. To promote livelihood diversification, the government will: support livelihood diversification strategies which add value within the livestock sector and complement livestock production; facilitate production and marketing of dryland products; increase benefits to communities from tourism; and promote formal and informal job creation. Finally, to reduce poverty and inequality in Northern Kenya, the government will: expand social protection; develop and support financial services and products appropriate to the region; develop and support income-generating activities that strengthen the socio-economic position of women; develop and strengthen producer and marketing organizations; encourage a culture of savings through the promotion of rural SACCOs; use education to reduce the inequalities experienced by certain social groups; increase the number of women in leadership, law enforcement and public service and deploy more women to address issues that affect women; mainstream interventions which address the specific situation of women and poor and vulnerable groups within all policies and programmes; and promote and protect the rights of people with disabilities and people with HIV/AIDS. 4. Institutional and legal framework The Policy recognizes the need for effective planning and coordination of development activities in Northern Kenya and other arid lands, and acknowledges that this has been lacking. To address this, the government shall set up ASAL Transformation Structures, comprising, an ASAL Cabinet Sub-Committee, an ASAL Inter-Ministerial Committee, an ASAL Stakeholders Forum, and an ASAL Transformation Secretariat. The ASAL Cabinet Sub-Committee to be chaired by the President or Deputy President will provide policy direction and political support to ASAL development. The ASAL Inter- Ministerial Committee will bring together Principal Secretaries in key sector ministries to provide leadership on ASAL issues across the government. The ASAL Stakeholders Forum will bring together Government and key stakeholders (UN agencies, development partners, NGOs and the private sector) to consult periodically on interventions and promote coordinated action. 16 P a g e

17 It is expected to operate through thematic sub-groups on food security, social services, and infrastructure. The ASAL Transformation Secretariat shall provide technical and administrative support to the ASAL Transformation Structures. In order to strengthen these structures and institutionalize the transformation of the ASALs, government will: establish a range of institutions to provide continuity in ASAL development 4 ; establish appropriate forums at all levels to bring together key The Government will put in place an institutional and legal framework for the development of Northern Kenya and other arid lands which harnesses the contributions of multiple actors at all levels and makes the most effective use of human and financial resources actors to plan, coordinate and harmonize development activities and resources; ring-fence all development resources allocated to Northern Kenya and other arid lands; harmonize the execution of ministerial and devolved budgets and locally generated revenue against a single county development plan based on community-identified priorities; strengthen institutional capacity at all levels to address capacity challenges of devolved institutions in the arid lands; draw up a comprehensive human resource policy and strategy for Northern Kenya; expand the number of research and training institutions that are responsive to the needs of the ASALs; and strengthen the provision of policy research and analysis from an ASAL perspective. 5. Financing Financing is critical for instituting and sustaining the interventions planned under the Policy. Chapter 7 of the Policy lists financing interventions most of which have already been articulated within the framework of specific objectives. The government undertakes to: demonstrate leadership in putting the foundations of development in place; ensure the Equalization Fund and other constitutional measures for addressing marginalization deal with particular challenges facing Northern Kenya and other arid lands; ring-fence all development resources allocated to Northern Kenya and other arid lands; promote public-private partnerships; encourage stronger harmonization and alignment of finance from development partners against the objectives of the ASAL Policy; develop fiscal and other incentives to attract private sector investment into 4 The institutions listed in the Policy are: National Drought Management Authority, National Drought and Disaster Contingency Fund, National Council on Nomadic Education, Northern Kenya Education Trust, Livestock Marketing Board, and Northern Kenya Investment Fund 17 P a g e

18 Northern Kenya and other arid lands; establish a Northern Kenya Investment Trust Fund; and develop appropriate mechanisms to manage the wealth from ASAL resources for the benefit of present and future generations. 6. Realizing benefits of the ASAL Policy: challenge to stakeholders Important and ground-breaking as the adoption of the ASAL Policy is, the real test lies ahead in its implementation. It is only through implementation that the communities living in Northern Kenya and other arid lands will get to realize the benefits that the Policy promises. Policy implementation has always been a major challenge for the government of Kenya. Many good policies have been launched with fanfare only for little or no action to be taken thereafter. The challenge is likely to be even bigger in the case of the ASAL Policy given the huge resource outlay needed to reverse the effects of years of marginalization. In the circumstances, significant political mobilization will be needed to push for implementation. That will require substantial investment in creating awareness and promoting buy-in from major stakeholders. The extent to which citizens of the ASALs understand the Policy and engage with the institutions created by it to ensure that they deliver on their mandates will be critical for implementation of the Policy. Fortunately, adoption of the ASAL Policy was itself a collaborative effort involving many of the same stakeholders that will be needed to push for its implementation. It should therefore not be too difficult to mobilize them for this purpose. Beyond political mobilization and capacity building for citizens to make demands on duty bearers to deliver on the promise of the Policy, the following additional strategies and actions are recommended to push for the implementation of the policy: Political and technical empowerment for devolved structures and communities on devolution and how to make it work for local development. This will entail supporting the County Executives and Assemblies in Northern Kenya and other arid lands to improve technical and political skills for effective performance of their functions. This will enable them to engage with national government and development partners in and informed and meaningful way and negotiate effectively for resources to develop these counties. Transfer of adequate financial and human resources to the counties to enable them exercise the powers and responsibilities transferred them in an effective and sustainable manner for the benefit of local communities. 18 P a g e

19 Effective engagement with Senators, Members of the National Assembly and other stakeholders to pressure the national government to support the full implementation of the Policy. Networking among pastoralists and with other groups to create a critical mass for purposes of influencing decisions of the national government and other actors in support of the Policy. 19 P a g e

20 Endnotes Republic of Kenya, Sessional Paper No. 10 of 1965 on African Socialism and its Application to Planning in Kenya. Nairobi: Government Printer Pastoralist Thematic Group (PTG), Pastoral Poverty Reduction Strategy Republic of Kenya, Economic Recovery Strategy for Wealth and Employment Creation, Nairobi: Ministry of Planning and National Development Government of the Republic of Kenya, Kenya Vision Nairobi: Ministry of Planning and National Development and the National Economic and Social Council (NESC), Office of the President Republic of Kenya, The Constitution of Kenya, Nairobi: The Government Printer Republic of Kenya, Sessional Paper No. 3 of 2009 on National Land Policy. Nairobi: Ministry of Lands Republic of Kenya, Sessional Paper No. 8 of 2012 on the National Policy for the Sustainable Development of Northern Kenya and other Arid Lands. Nairobi: Ministry of State for Development of Northern Kenya and other Arid Lands Odhiambo, M.O. The Unrelenting Persistence of Certain Narratives: An Analysis of Changing Policy Narratives about the ASALs in Kenya. A Position Paper Prepared for the New Perspectives on Climate Resilient Drylands Development Project, April 2013 Odhiambo, M.O. Moving beyond rhetoric: the challenge of reform in Kenya s drylands. IIED Briefing, April P a g e