REPUBLIC OF SIERRA LEONEINTERIM POVERTY REDUCTION STRATEGY PAPER

Freetown
June 2001

LIST OF ACRONYMS AND ABBREVIATIONSADBAfrican Development Bank

AFSL

Armed Forces of Sierra Leone

AFRC

Armed Forces Revolutionary Council

BSL

Bank of Sierra Leone

BSDS

Base Line Service Delivery Survey

CAS

Country Assistance Strategy

CBOs

Community Based Organisations

CDF

Civil Defense Forces

CISU

Central Intelligence and Security Unit

CPI

Consumer Price Index

CPU

Central Planning Unit

CRRP

Community Rehabilitation and Reintegration
Project

CSO

Central Statistics Office

DDR

Disarmament, Demobilisation and Reintegration

DFID

Department for International Development

EAP

Emergency Assistance Project

EC

European Commission

ECOWAS

Economic Community of West African States

EC/SLRRP

European Support and Sierra Leone Rehabilitation
and Reintegration programme

EPRU

Economic Policy and Research Unit

ERRC

Economic Rehabilitation and Recovery Credit

ERSF

Emergency Recovery Support Fund

FGD

Focus Group Discussions

GDP

Gross Domestic Product

HIPC

Heavily Indebted Poor Countries Initiative

HIV/AIDS

Acquired Immune Deficiency Syndrome

IAAC

Integrated Approach to Aid Co-ordination

IDB

Islamic Development Bank

2

IDPs

Internally Displaced Persons

IHSIP

Integrated Health Sector Investment Programme

IMF

International Monetary Fund

IMR

Infant Mortality Rate

IMC

Inter-Ministerial Committee

I-PRSPInterim Poverty Reduction Strategy Paper

IRDP

Integrated Rural Development Project

IMPS

Integrated Microprocessor Systems

M&E

Monitoring and Evaluation

MICS 2Multi-Indicator Cluster Survey II

MNRRR

Ministry of National Resettlement, Rehabilitation
and Reconstruction

MODEP

Ministry of Development and Economic Planning

MOF

Ministry of Finance

MTEF

Medium-Term Expenditure Framework

NCRRR

National Commission for Resettlement,
Rehabilitation and Reconstruction

NGOs

Non-Governmental Organisations

NRRP

National Rehabilitation and Recovery Programme

NUC

Njala University College

PASCO

Poverty Alleviation Strategy Coordinating Office

PDP

Preventive Development Programme

PHU

Peripheral Health Unit

PRSC

Poverty Reduction Steering Committee

PRSP

Poverty Reduction Strategy Paper

PRWC

Poverty Reduction Working Committees

QUAP

Quick Action Programme

QIAP

Quick Impact Action Programme

RH/FP

Reproductive Health and Family Planning

RRR

Rehabilitation, Resettlement and Reconstruction

RUF

Revolutionary United Front

3

SAPA

Social Action for Poverty Alleviation

SLRA

Sierra Leone Roads Authority

SPP/TC

Strategic Planning and Action Process TechnicalCommittee

SRRP

Support to Resettlement and Reintegration
Programme

STI

Sexually Transmitted Infection

TEP

Training Employment ProgrammeUN

United Nations

UNAMSIL

United Nations Mission in Sierra Leone

UNDP

United Nations Development programme

UNICEF

United Nations Children’s Emergency Fund

VAT

Value Added Tax

WFPWorld Food Programme

4

TABLESPAGE
Table 2.1:

Rural-Urban Poverty Indices15

Table 2.2:

Provincial Level Poverty Indices15

Table 2.3:

Poverty Indices by Gender of Head of Household

17

Table 2.4:

Poverty Indices by Occupation of Household members

17

Table 5.1:

Indicative Output/Task-Timeline for the PRSP
Preparation: June 2001-December 2002

5

51

TABLE OF CONTENTS
PAGE
Executive Summary8

Chapter 1

11

1.1
1.2

Introduction

Background
The Poverty Reduction Programme

Chapter 2

11
12

The Poverty Situation

13

The Macroeconomic Situation
Information and Institution for Poverty
Analysis, Design, Implementation andMonitoring
2.3
Poverty Profile and Causes
2.3.1 Poverty profilea) Income Aspects of Povertyb) Non-income aspects of poverty(i)
Education and Training(ii)
Food Security(iii) Health, Water and Sanitation(iv)
Women and Children

13
13
14
14
14
18
18
19
20
21

2.3.2 Causes of Povertya) Bad Governance and Economic Mismanagementb) Poor Economic Growthc) Increased Vulnerability from the Civil Ward) Unemployment and Underemploymente) Lack of access to Social Servicesf) Other factors

21
22
22
22
23
24
25

Chapter 3

The Poverty Reduction Strategy

26

3.1

The Transitional Phasea) National Security and Good Governanceb) Re-launching the Economyc) Social Programmesd) Ongoing Poverty Interventions

26
26
28
32
34

3.2

Medium -Term Phasea) Good Governance Programmeb) Revival of the Economyc) Social Sector Development

35
36
37
38

2.1
2.2

6

Chapter 4
4.1
4.2
4.3
4.5
4.5
4.6

Objectives
Monitoring Indicators
Focus Group Discussions
Service Delivery Surveys
Tracking Budgetary Expenditures
Data Sources and Dissemination

Chapter 5
5.1
5.2
5.2.1
5.2.2
5.2.3
5.3.4

Monitoring and Evaluation Strategy

40
40
40
40
42
43
44

Road Map

46

Governance and Institutional Arrangements for the Preparation of
The Interim-Poverty Reduction Strategy Paper (I-PRSP)
Plan for the PRSP Preparation
Diagnostic Policy and Sector Reviews and Studies
Participatory Data Collection Activities
Drafting of the PRSPTechnical Assistance Requirements

46
47
48
49
49
50

Bibliography

53

List of Annexes

55

7

EXECUTIVE SUMMARY
Poverty in Sierra Leone is endemic and pervasive. In fact, the country is ranked at thebottom of the UNDP Human Development Index as the poorest in the world. The tenyear civil war has further exacerbated the depth and severity of poverty.
The human development and social indicators, including illiteracy, primary school
enrollments, life expectancy, maternal deaths, malnutrition, and child mortality rates, areabout the worst in the world. The infant mortality rate (IMR) is about 182/1000, while
life expectancy at birth is about 38 years compared to 45 years for Sub- Saharan Africa.
The adult literacy rate is estimated at 30%, while the population with access to safe
drinking water is about 34%. Endemic diseases, especially malaria and HIV/AIDS, loom
as a menace. About four-fifths of the population lives in absolute poverty, withexpenditures below US$1 a day.
The major causes of poverty in Sierra Leone are multi-dimensional and include highunemployment and underemployment, high debt burden, poor growth performance, lackof income and access to basic social services.
In spite of the negative impact of the conflict, since 1996 Government has undertaken
important economic reforms. Macroeconomic management has improved, markets andtrade have been liberalised, and opportunities for private sector operators widened. The
IMF, World Bank, EC, and the UK (DFID) have continued to support economic reforms
and efforts to stabilize the economy and improve service delivery. However, the hugedebt service payments continue to crowd out public investments in the social sectors andhampers private investment.
The poverty strategy will primarily focus on addressing the immediate challenges of thetransition from war to peace. The strategy will emphasize the continued implementationof sound economic policies to attain macroeconomic stability within an overall
framework of good governance. A stable macroeconomy will also underpin the sectoraland other more specific interventions that have been designed through participatory
processes involving consultations with civil society.
In recognition of the current situation in the country, the poverty reduction strategy will
be implemented in two phases - - a transitional (2001-2002) and medium-term phase(2003-2005). The transitional phase (2001-2002) will focus on improving the living
standards of the most vulnerable groups including returnees, internally displaced persons(IDPs) and other war victims as well as addressing the urgent rehabilitation andreconstruction requirements. In this regard, emphasis will be placed on the restoration of
security, re-launching the economy and the provision of basic social services to the mostvulnerable groups.

8In order to provide the enabling environment to facilitate poverty reduction, the highest
priority will be given to the creation of a security environment that allows the freemovement of persons and goods. A key component for the re-establishment of security
countrywide is the implementation of the Disarmament, Demobilisation andReintegration (DDR) programme. In tandem with the implementation of the DDR
programme, the Government is currently restructuring, retraining and equipping the army
and police within the context of its comprehensive security policy.
The second priority is to relaunch the economy. The macro-economic strategy seeks tosustain the gains already achieved in reducing macroeconomic imbalances in theeconomy. The Government will seek to reduce its debt burden to augment public
expenditure in the social sectors. The Government will also provide returnees and IDPs
with basic agricultural inputs and services to improve food security and the lives ofreturnee farming population. Towards improving the livelihood of returning artisanalminers, Government will sensitize them to form co-operatives/groups to facilitate theiraccess to credit.
Improving the poor’s access to basic education and health care, and enhancing income
and employment opportunities will reinforce the positive impact of the fiscal, monetaryand exchange rate policies on growth and poverty. In this way the benefits of growth will
be distributed more equitably to all segments of society, especially the most vulnerable.
The Government will therefore focus on priority areas in education and health and thepromotion of gender equality.
In the medium term phase, as security and accessibility improves throughout the country,
Government will embark on long-term development programmes to be defined inconsultation with civil society during the preparation of the full PRSP.
The Government is developing a participatory system to monitor and evaluate theprogress of implementation and the impact of the poverty strategy. To facilitate theimplementation of the monitoring and evaluation strategy, both qualitative andquantitative input, process and output indicators will be established and reviewed inconsultation with key stakeholders.
Data to establish levels of the monitoring indicators will be generated through focus
group discussions, budget tracking, service delivery surveys and other routine national
surveys. Another valuable source of both qualitative and quantitative data is the annual
service delivery survey. Other data sources include the rapid participatory householdincome and expenditure survey, the national population census, and statistics compiled
by sectors/ministries and local and international agencies.
The governance structure for the preparation of the PRSP comprises three key
committees [that is, the Inter-Ministerial Committee (IMC), Poverty Reduction Steering
Committee (PRSC), and the Poverty Reduction Working Committees (PRWC)], and the
Poverty Alleviation Strategy Coordinating Office (PASCO).

9The timeline for the preparation of the full PRSP will extend to end December 2002.
During this period, a number of stakeholder consultative workshops, diagnostic analyses
and participatory data collection activities are planned. The preparation of the full PRSP
will require technical assistance to ensure its timely completion, as well as to continuebuilding national capacity.

10

CHAPTER ONE
1.

INTRODUCTION

1.1

Background

1.
Sierra Leone with a small open economy has suffered prolonged deterioration andaccompanying low standards of living despite vast resource endowment (minerals,
marine, human and arable land). After recording a marginal positive growth rate of about
1.8 % in 1984, the economy was near collapse by the end of the 1980s. Since then, thecountry has yet to register marked increases in the growth rates of output to improve thestandard of living of the majority of its 4.7 million population.
2.
War related activities have caused extensive damage to an already inadequate
economic and social infrastructure leading to a further deterioration in the living
standards of a hard-pressed population. Gross Domestic Product per capita, estimated at
US$237 in 1990, declined by about 40% during the subsequent decade, to about US$142
in 2000. The conflict compounded the adverse legacies from long periods of economic
decline and mismanagement including deteriorated capacity and weak institutions. The
dismal performance of the economy has had an adverse effect on human and social
development.
3.
The human development and social indicators are about the worst in the world.
They include lagging primary school enrollments, low life expectancy, and high childmortality rates, while endemic diseases, especially malaria and HIV/AIDS, loom as amenace. The extent of poverty among the population, particularly the rural segment, ismanifested in the Human Development Index, which ranks the country as the least
developed in the world. About four-fifths of the population is living in absolute poverty.
The infant mortality rate (IMR) is about 182/1000, while life expectancy at birth is about
38 years compared to 45 years for Sub-Saharan Africa. The adult literacy rate isestimated at 30% while the population with access to safe drinking water is about 34%.
4.
While some gains have been recorded in economic performance in recent years,
the continuing negative impact of the war has severely constrained the achievement ofsustained positive growth rates required to improve the lives of ordinary Sierra Leoneans
and reduce poverty. Poverty has, therefore, become pervasive and intensified. The
continued decline in output, especially agricultural output, has had drastic negative
effects on food prices and rural incomes. The nominal costs of basic food items haverisen more than four-fold between 1991-2000. The critical food supply situation has
further impoverished vulnerable groups, especially the rural poor, low-income urban
families, and small-scale farmers. The nutritional status of women and children has
worsened.

11

1.2

The Poverty Reduction Programme

5.
Given the pervasive and deepening poverty facing a greater segment of the
population, the Government’s key objective is to fight poverty and improve the living
conditions for the most vulnerable population in the near term. In working towards theattainment of this goal, the Government is committed to forging strong partnerships withthe private sector, civil society groups and the donor community.
6.
To alleviate poverty, the Government has protected social sector expenditure in
the face of a severe dwindling of revenues. The share of social sector expenditure in total
recurrent expenditure rose from 15% in 1990/91 to 21% in 1995/96. Despite high security
and external debt interest payments, the share of social sector expenditures has averaged
26% in the last five years. The Government has also demonstrated the importance it
attaches to poverty reduction by emphasizing that the first steps in the Lome Peace
Agreement should primarily involve the disarmament, demobilisation and reintegration(DDR) of former combatants. The DDR programme is to be implemented concurrently
with the Rehabilitation, Resettlement, and Reconstruction (RRR) programme, whose
major objectives are reconstruction and poverty reduction.
7.
To rebuild the shattered economy, the Government has developed, in consultation
with civil society, a two-phase approach in implementing the poverty reduction strategy.
During the transition period (2001-2002), focus will be on the immediate needs ofinternally displaced persons, returnees, the most vulnerable war victims, rehabilitation ofbasic economic and social infrastructure and economic recovery. At the same time, amedium term strategy is being developed in the context of a full Poverty Reduction
Strategy Paper (PRSP) that will be prepared through a consultative process.
8.
This document outlines the Government’s objectives, strategies and programmes
for poverty reduction both in the transition period and the medium term. Chapter two
describes the current poverty situation in the country and provides data on poverty
profiles and the causes and determinants of poverty. Chapter three describes the poverty
reduction strategy including detailed descriptions of interventions in key sectors with apoverty focus. Chapter four discusses the monitoring and evaluation strategy to assess
progress of the interventions on the poverty situation. Chapter five describes the roadmap for the preparation of the full PRSP. It provides a detailed description of theprocesses and technical assistance requirements to complete the full PRSP.

12CHAPTER TWO

2.

THE POVERTY SITUATION

2.1

The Macro-economic Situation

9.
Sierra Leone’s economic performance in recent years has been adversely
hampered by the difficult security situation. The unstable political and security situation,
especially since the coup d’etat of 1997, disrupted economic activities resulting in sharp
contractions in output. Real GDP growth declined, on average, by nearly 8% from 1997
to 1999. This dismal growth performance is reflected in low savings and investment
rates as well as weak fiscal and external sector positions. This has resulted in highunemployment levels and declining per capita incomes.
10.
In spite of the negative impact of the conflict, the Government has, since 1996,
undertaken important economic reforms. Macroeconomic management has improved,market and trade have been liberalised, and opportunities for private sector operators
widened. In support of further reforms and efforts to stabilise the economy, theInternational Monetary Fund (IMF) approved an economic programme in the context of
the Emergency Post Conflict Assistance Facility in December 1999. The World Bank
also approved the Economic Rehabilitation and Recovery Credit to assist Government in
restoring protective and economic security. Other donors, including the Islamic
Development Bank (IDB), the Department for International Development (DFID) UK
and the European Commission (EC) have provided ongoing emergency recovery
assistance and budgetary support to enhance Government’s capacity to fund criticalprogrammes and improve service delivery.
11.
The country continues to face an unsustainably large external debt. External debt,
including arrears, is estimated at about $1.2 billion or 188% of GDP in 2000. Debt
service payments (excluding debt relief) are estimated at 47.8% of export of goods andnon-factor services. As at end 2000, preliminary estimates of the net present value(NPV) of external debt to exports, GDP and domestic budget revenue were, respectively,
709.3%, 125.3% and 1095.4%. The debt burden militates against a sustainable economic
recovery since it crowds out investments, particularly in education and health.
2.2

Information and Institutions for Poverty Analysis, Design, Implementationand Monitoring

12.
A major constraint for poverty analysis, policy formulation, implementation andevaluation is the paucity of up-to-date socio-economic information. This prevents a morethorough and detailed analysis of the current poverty situation in the country. This
problem is compounded by the weak institutional capacity for analysing poverty.

13

13.
Accordingly, a major Government priority is to ensure access to relevant, reliable
and timely socio-economic information on the poverty situation. In the transition period,
the Strategic Planning and Action Process (SPP) Technical Committee, in consultation
with the Central Statistics Office (CSO), would carry out ad hoc surveys to establish
benchmarks regarding the current poverty situation and how it evolves. In the mediumterm, the priority will be to build a comprehensive information base for poverty analysis
and monitoring. This would involve, as a first step, a population census that will be
conducted in 2002 to provide information about the geographical distribution andcharacteristics of people when they would have returned to their homes after the war. The
census would also provide a basis for comprehensive household income and expenditure
surveys or living standards measurement survey.
14.
In 2000, the Central Statistics Office in collaboration with UN agencies concluded
the Multi-Indicator Cluster Survey (MIC2) while the Strategic Action and Planning
Process/Technical Committee (SPP/TC) conducted the Baseline Service Delivery Survey.
Under the UNDP funded Integrated Approach to Aid Coordination (IAAC), sectoral
overviews on external aid inflows have also been undertaken. The results have provided
updated information on some of the statistics for measuring and monitoring the poverty
situation and its dimension in the country. Additional information for updating thepoverty profile will be generated from a rapid household income and expenditure survey
and participatory poverty assessment that will be conducted during the preparation of thefull PRSP in 2001 - 2002.
15.
As part of the efforts to strengthen the CSO, Government intends to transform it
into an autonomous statistical institution. The legislation to do this will be presented forapproval to parliament during 2001. The Act will advance the planning, production,
analysis, documentation, storage, dissemination and use of social and economic statistics.
2.3

Poverty Profile and Causes

2.3.1 Poverty Profile16.
In recent years, the plunge in economic activity and other effects of the ten-year
civil conflict have drastically worsened the misery of most Sierra Leoneans. The internaland external displacement of at least three million people has increased both theincidence and severity of poverty in all regions of the country.
a.

Income Aspects of Poverty

17. As mentioned above, there are no current nation-wide statistics on household
expenditure for determining the incidence and depth of poverty. The last household
survey was conducted in 1989/90 and the results of that survey were used to prepare
Poverty Profiles for Sierra Leone in 1994. These poverty profiles were prepared using
the International Standard definition of poverty; those who spend less than one US dollar
per day. Information on the incidence and severity of poverty obtained from thesepoverty profiles by area is provided in Tables 2.1 and 2.2 below.

14

TABLE 2.1: RURAL URBAN POVERTY INDICESREGION OFRESIDENCE

POPULATION
SHARE
(%)

POVERTY INDICES
Po

P1

P2

CONTRIBUTION OF
POVERTY
(%)
P0
P1
P2

Rural

65.4

0.883

0.731

0.654

57.1

69.8

74.2

Small Towns

33.5

0.709

0.404

0.296

18.5

12.5

10.9

Large Towns

1.2

0.766

0.435

0.307

24.3

17.7

14.9

All S/Leone

100.0

0.816

0.586

0.489

100.0

100.0

100.0

Source: CSO (SHEHEA 1989/90)
TABLE 2.2: PROVINCIAL LEVEL POVERTY INDICESREGION OFRESIDENCE

POP. SHARE(%)

POVERTY INDICES
Po

P1

P2

CONTRIBUTION OF
POVERTY (%)
P0
P1
P2

Eastern

26.4

0.800

0.557

0.465

25.9

24.6

24.6

Northern

35.4

0.857

0.650

0.553

37.2

41.2

42.0

Western

15.9

0.808

0.509

0.393

15.7

13.6

12.6

Southern

22.3

0.775

0.567

0.479

21.3

20.6

20.8

All S/Leone

100.0

0.816

0.586

0.489

100.0

100.0

100.0

Source: CSO (SHEHEA 1989/90)
Where:Po (headcount index) is the proportion of the population with monthly per capita
expenditures below the defined poverty line of Le3, 962.6 (the equivalence of
US$1 per day in 1989/90).
P1 (depth of poverty) is indicative of the expenditures spending shortfall of thepoor relative to the defined poverty line
P2 (severity index) is related to the depth of poverty but reflecting the weights ofthe poorest more heavily than the less poor (those just slightly below the povertyline).

15

18.
As Table 2.1 shows, in 1990, a greater proportion (65%) of the population lived inrural areas while 33.5% and 1.2% lived in small and large towns, respectively. Overall,
81.6% of the population lived below the poverty line of US$ 1 per capita per day or
Le3962.6 per capita per month. The incidence of poverty was highest in the rural areas
with 88.3% of rural population considered to be poor compared to 70.9% of those insmall towns and 76.6% in large towns. The contribution to national poverty (as shownby the head count index) was 57.1% in rural areas, 18.5% and 24.3% for small and large
towns, respectively.
19.
The shortfall in income/consumption levels of all the poor persons in the country
relative to the poverty line was estimated at 58.6% for the entire country in 1990. In
other words, an average income level of all the poor was insufficient to cover about 50%of the minimum household food requirements. When compared to the national averageof 58.6%, the shortfall was highest in the rural areas with a poverty gap of 73.1%. The
poverty gap in the small and large towns was estimated at 40.4% and 43.5%,
respectively, contribution to the depth of poverty was 69.8% by the rural areas, 12.5% bysmall towns and 17.7% by large towns. The table also shows that poverty was most
severe, as shown by the severity index, in the rural areas (with P2 = 65.4%), less severe in
the large towns (P2 = 30.7%) and least severe in small towns (P2 = 29.6%). Overall,nearly one-half of the population lived in abject poverty in 1990. The contribution to theseverity of poverty was 74.2% by rural areas, 10.9% by small towns and 14.9% by large
towns.
20.
By region, Table 2.2 shows that 85.7% of the residents of the Northern Province
were poor compared to 80.8% in the Western Area, 80% for the Eastern and 77.5% for
the southern province. The shortfall in the income/consumption levels of the poor relative
to the poverty line was highest in the Northern Province with (P1 = 65%), followed by theSouthern Province (P1 = 56.7%), Eastern Province (P1 = 55.7%) and Western Area (P1 =
50.9%). The provincial contribution to the poverty gap was 41.2% in the Northern
Province, 24.6% in the Eastern Province, 20.8% for the Southern Province and 13.6% in
the Western Area. Poverty was also most severe in the Northern Province (P2 = 42%),
followed by the Southern Province (P2 = 47.9%), Eastern Province (P2 = 46.5%) and theWestern Area (P2 = 39.3%).
21.
The Report also provides information by gender and occupational disparities
shown in Tables 2.3 and 2.4 respectively. Table 2.3 indicates a high prevalence ofpoverty in the male-headed households, accounting for 98% of the national population
most of which is female. Female-headed households, though 2% are of better living
standards.

16

TABLE 2.3: POVERTY INDICES BY GENDER OF HEAD OF HOUSEHOLDGENDER OF
HEAD OFHOUSEHOLD

POP. SHARE(%)

POVERTY INDEXCONTRIBUTION OF
POVERTY (%)

Po

P1

P2

P0

P1

P2

Male Headed

97.7

0.817

0.587

0.489

97.8

98.0

97.9

Female Headed

2.3

0.761

0.551

0.459

2.2

2.0

2.1

All

100

0.816

0.586

0.489

100.0

100.0

100.0

Source: CSO (SHEHEA 1989/90)
TABLE 2.4:

POVERTY INDICES BY OCCUPATION OF HOUSEHOLD MEMBERS

MAIN
OCCUPATION

POVERTY INDEX
Po

P1

P2

CONTRIBUTION TO POVERTY
(%)
P0
P1
P2

Not Applicable1

0.827

0.594

0.498

55.5

56.3

56.6

Prof./Technical

0.851

0.660

0.569

2.4

2.7

2.8

Admin. Managers

0.831

0.592

0.499

0.3

0.3

0.3

Clerical Related

0.802

0.577

0.486

1.2

1.2

1.2

Sales Workers

0.827

0.622

0.534

13.5

14.3

14.7

Service Workers

0.802

0.617

0.531

2.5

2.7

2.8

Agric./Forestry

0.785

0.535

0.426

20.4

18.7

17.8

Product./Transp.

0.776

0.529

0.442

3.9

3.5

3.5

Unclassified

0.780

0.610

0.537

0.2

0.3

0.3

All S/Leone

0.816

0.586

0.489

100.0

100.0

100.0

Source: CSO (SHEHEA 1989/90)
22.
Table 2.4 shows high levels of poverty among certain occupational categories,
often perceived to be better off in nominal income terms. These occupations have apoverty headcount of over 70% with Professional/Technical, Administrators/Managers,
Sales workers, Service Workers and Clerical related occupation over 80%.
1

These people who did not declare their employment status, include students, disabled, homemakers andpensioners.

17

23.
Ranked on the basis of the deprivation index, from highest to lowest,
Professional/Technical category had an average of 66% followed by Sales workers,
Service workers and Administrators/Managers, with 62.1%, 61.7%, and 59.2%,
respectively. Agriculture/forestry occupations showed relatively low levels of poverty.
The severity index put Professional/Technical, Sales workers and Service workers all inexcess of 50%. Ranking the occupations in terms of the levels of the poverty indices,from the poorest to least poor, results in the following order: Professional/Technical,
Sales workers, Service workers, Administrators/Managers, Clerical-related,
Production/Transport and Agriculture/Forestry. Although Agriculture/Forestry tops the
ranking, its relative contribution to poverty across indicators averages between 18% and20%, while Professional/Technical averages to 2% to 3%. This reflects the large
proportion of the population engaged in some form of agricultural activity.
24.
In concluding, the survey results show that in 1990 poverty in Sierra Leone waspervasive and endemic. Though poverty affects all regions in the country, it was largely arural phenomenon. In the last decade, the disruptions to economic activity, destruction ofphysical and social infrastructure and the internal and external displacement of the
population caused by the civil conflict has increased the incidence, depth and severity ofpoverty as well as altered the regional distribution of poverty.
25.
In a bid to enhance the income levels of the poor segments of the population informal employment, Government, while pursuing inflation-reducing measures,
introduced Minimum Wage Legislation in March 1997. The minimum wage was fixed at
Le21, 000 (US$24.7) per month from an average lowest salary of about Le4,000(US$4.5). In addition, Government implemented a structured salary increase averaging
40 percent in May 1998 and increased transport allowance from Le3, 500 (US$1.76) toLe20,000 (US$9.8) in July 2000 for all public sector workers. Furthermore, Government
approved an increase in the non-taxable income threshold from Le480, 000 to Le800, 000
for basic salary and an additional Le800, 000 as threshold for allowances with effect from
April 2000. This resulted in a significant reduction in the tax burden on the lower income
earners. However, the internal displacement of the population and the accompanying
increase in household sizes due to the escalation of the civil conflict, together with thedepression of economic activities, has rendered these efforts ineffective in addressing thepoverty situation. Instead, the poverty situation has worsened.
b.

Non-income aspects of povertyi.

Education and Training

26.
The conflict has worsened the situation in the education sector. A survey
conducted by NCRRR on the restoration of Government in March 1998 shows that thedestruction to educational facilities include 1,270 primary schools, 820 secondary,tertiary and vocational schools, three teachers training colleges and the Njala University
College. The consequences of this damage and deterioration are reflected in a recent
UNDP Human Development Report 1998. The report shows that only three out of every
ten Sierra Leoneans can read and write compared to a sub-Saharan average of 6 out of 10

18

persons. Primary school enrollment, which was about 55% of children in the school age
bracket in 1990, declined to about 42% in 1999 with marked gender and regional
disparities. In 1999, the school attendance rates in the Northern and Eastern Provinces
were 28% and 35 % respectively, lower than the rest of the country, as revealed by theMulti-Indicator Cluster Survey 2000 (MICS2 2000).
27.
The gender perspective is also crucial. Of the nearly 80% of the illiterate
population, illiteracy among females stands at 89% and for men 69%. Among children,
the primary school enrollment for girls is 38% against 52% for boys. Dropout rates are
generally high and highest between grades 1 and 2 where they have been estimated to be
25%.
28.
The conflict has also disrupted the educational process for a large number ofchildren following massive displacement from their localities. Some of these children areenrolled in already overcrowded schools with inadequate facilities. UNICEF estimatesthat about 67% of school-going age children are currently out of school. The pupilteacher ratio at the primary level of over 60:1 in most schools in safe areas, particularly inFreetown, is too high. School libraries are largely nonexistent while the displacement ofteachers and low real wages have affected morale.
29.
The new 6-3-3-4 system that emphasizes vocational training and caters for earlyschool leavers and weak students is facing immense difficulties. Inadequate
vocational/technical training institutions, lack of basic tools and materials are major
problems. Above all, graduate trainees are mostly not provided with start-up kits tofacilitate the establishment of their own business enterprises.
ii.

Food Security

30.
A fundamental aspect of poverty in Sierra Leone is food poverty. Most
households do not have access to adequate food supply due to both low domestic
production levels and abysmally low incomes. Farm inputs (including tools and seeds)
and technology are inadequate and rudimentary. The bad state of the overall road
network, particularly feeder roads, further restricts access to major markets and thetransportation of bulky items. These factors have severely constrained the expansion offarm incomes to pay for other necessities, including food. Deforestation also contributes
to low crop yield.
31.
The conflict has also seriously disrupted agricultural activities countrywide
resulting in the displacement of an estimated 500,000 farm families, loss of essential farm
inputs and destruction of rural infrastructure, institutions and service centres. As aconsequence, in 1999 only about 20% of the national requirement of 450,000 metric tonsof rice was domestically produced. Livestock population and fish production (inland
fisheries) have also been reduced significantly.
32.
The daily per capita supply of calories has diminished and is estimated at 2,035
Kcal compared to 2,663 for developing countries. Protein intake at 44 grams compared to19

67 grams for developing countries, is very low. This largely accounts for the highprevalence of malnutrition, especially among women and children. The MICS2 reported
27% of under-five children and 34% of children to be underweight and stunted
respectively.
iii.

Health, Water and Sanitation

33.
Available global indicators show that the health situation in Sierra Leone is theworst in the world. Life expectancy is 38 years compared to 45 years for Sub-SaharanAfrica (UNDP, 2000). The low life expectancy is due to infant and child mortality rates,
about the highest in the world. The maternity mortality is also extremely high.
34.
The MICS2 (2000) reported infant and child mortality rates of 170 and 286 per1000 respectively for 1998, as well as a maternal mortality rate (MMR) of 1,800 (±) per
100,000 live births in 1999. This MMR, the highest of any country in the world, hasmainly resulted from induced abortion (21%), obstructed labour (21%), ruptured uterus(16%), sepsis (11%), and bleeding and eclampsia (11%).
35.
The MICS2 Report largely attributed the exceptionally high infant and childmortality rates to the relative high prevalence of malnutrition, malaria, acute respiratory
tract infections and diarrhea diseases. The reported underweight prevalence and stunting
prevalence are respectively 27% and 34%, which are lower than the levels of SubSaharan Africa, mainly reflecting the positive efforts of Government and Aid Agencies.
Although acute respiratory infection, in particular pneumonia, is common throughout thecountry, its prevalence is highest in the North.
36.
The high incidence of malaria, as reflected in the national child morbidity rate
(due to the disease) of 46% is largely explained by the dependence of the approach tomalaria control in Sierra Leone on treatment rather than prevention. Further, the spatial
distribution of the incidence of malaria shows highest prevalence in the North, theProvince least exposed to resources for preventing and treating the disease.
37.
Another emerging and important contributory factor to the high levels of infant
and under-five mortality rates, for which reliable data is lacking, concerns HIV/AIDS.
Indications are that the incidence of HIV/AIDS is increasing mainly as a result of thecivil conflict. According to the MICS2 Report, 46% of women of childbearing age in the
country are unaware of HIV/AIDS while very few know where they can be tested forHIV, indicating the potential consequences for the spread of the disease in the country.
38.
The dismal health situation is also attributable to inadequate health and sanitation
facilities. Over 415 health units, including 15 hospitals and 150 primary health centers,
have been destroyed and remain non-functional in many towns and villages. Healthworkers have abandoned workstations in most rural communities and relocated to safe
towns. The 2000 Baseline Service Delivery Survey (BSDS) reported that about 65%,
60% and 80% of the population are without access to safe drinking water, health services
and sanitation, respectively. The MICS2 reported sewage and refuse disposal facilities to20

be grossly inadequate, and contribute to the spread of water-borne diseases and malaria.
Also, environmental management practices are very poor.
iv.

Women and Children

39.
In Sierra Leone, women account for about 51% of the total population. They
contribute to the provision of most of the household food requirements, including
carrying out domestic chores and caring for the aged and children. This notwithstanding,they are marginalized in society and lack adequate access to productive assets including
land, credit, training and technology. Women, with limited access to formal sector
employment, resort mainly to food production and petty trading (where the earnings are
generally low) to earn a living for themselves and their dependents.
40.
As mentioned earlier, the illiteracy rate amongst women is not only very high, but
significantly higher than that for men. This is due mainly to their lower school
enrollment, higher dropout rates, early marriages, higher household demand for female
labour and teenage pregnancies. Although life expectancy for women is relatively high(41.3 years) compared to men, their health status is very poor due to high fertility rates(of 6.1 children per woman), work-related stress, extremely high maternal mortality rates
and inadequate supply of food nutrients.
41.
The situation of women is made worse by some of the customary and religious
practices. These limit their reproductive rights and participation in and contribution tonational affairs.
42.
Due to the conflict, women have endured additional gender related problems
associated with sexual assaults, stresses and psychological strain of carrying unwanted
pregnancies. As a consequence, the status of women is further reduced as is their welfare,self-confidence and self-esteem including increased vulnerability to trauma anddepression.
43.
Respect for children’s rights is extremely limited. Children orphan-hood andchild labour are very common, and 16% of the children live with neither biological parent(MICS2, 2000). The MICS2 revealed the participation of children aged 5-14 years in
paid (2%) and unpaid work (48%). The civil war has also left behind thousands ofchildren in extremely difficult circumstances. These include children on the streets andmany unaccompanied children some of whom were conscripted to swell the ranks of thevarious armed factions. Many young girls and women face the hazards of sexual assaults.
2.3.2 Causes of Poverty
44.
The nature and causes of poverty are diverse and interrelated. The fundamental
causes of poverty in Sierra Leone include the following:a)

Bad Governance and Economic Mismanagement

21

45.
The centralized governance, thriving corruption, prevalence of rent-seeking
activities and poor economic management, especially in the 1980s, eroded most of theconditions necessary for national development, equitable distribution of economic
resources and social services. The poor capacity for economic policy formulation andimplementation led to bad policies which resulted in high inflation and meagre or
negative output growth, increasing the number of the poor and vulnerable groups. The
conflict has exacerbated the situation with the flight of qualified and skilled workers.
46.
In recognition of this decline in state integrity and efficiency, the democraticallyelected Government in 1996 set out to implement governance reforms as a top priority.
The process was envisaged as the basis for kick-starting the country’s socio-economic
development that had been neglected for almost three decades. In 1997, with assistancefrom the UNDP and the World Bank, the Government formulated a national strategy forgood governance. The further deterioration of the security and political situation during
the period 1997-1999 disrupted the implementation of the programme. The programme
was resuscitated in 2000 with funds provided by the Department for International
Development (DFID), United Kingdom and the United Nations Development
Programme.
b)Poor Growth Performance47.
Economic performance in the 1990s has been heavily conditioned by the unstablesecurity situation. Following a wave of rebel attacks and the subsequent closures of therutile and bauxite mines and disruptions to agricultural activities, economic growthplummeted by nearly 10% in 1995. However, the relatively improved security situationthat prevailed in 1996 following the return to civilian democratic rule and theaccompanying efforts to consolidate peace and stabilize the economy, witnessed GDP
recovery of 5 percent. The economic recovery was undermined by the coup d’etat of
May 25, 1997 and the rebel invasion of the city in January 1999, as the attendant massive
destruction of socio-economic infrastructure resulted in the dramatic decline in real GDP.
In 1997, real GDP plunged 20%, stagnated in 1998, and declined a further 8% in 1999.
These sharp contractions in output resulted in high unemployment levels and declining
per capita incomes.
48.
Real GDP recovered by 3.8 percent in 2000 following improvements in the
security situation and expansion in economic activities. However, to progressively
reduce poverty, Sierra Leone would need to achieve sustained higher real positive growth
rates.
c)Increased Vulnerability from the Civil War

49.
The protracted conflict has a direct negative impact on infrastructure. Further
more, the increased uncertainty and risk associated with the conflict eroded investor
confidence, leading to drastic declines in private, as well as public investment. It also
minimized development activities by donors in the country.

22

50.
The performance of public finances has also been dictated, to a large extent, bydevelopments in the security situation. The large contraction in output during the period
1997-1999 led to a similar reduction in the government’s revenue base. Domestic
Government revenue during the period averaged 6.6% of GDP. Against this weak
revenue performance, expenditure pressures to fund security-related activities andexternal debt service payments persisted. The effect of these developments was thecrowding out of public spending on social and economic sectors. In 1999, security-related
expenditures were estimated at 4.6% of the GDP compared to 1.1% for the social andeconomic sectors2.
51.
The bauxite and rutile mines remained closed since the rebels attacked the minesin 1995. Major alluvial diamond mining areas are still inaccessible due to continued rebel
occupation. This has resulted in the loss of 10% of national income, 14% of total
employment and 90% of exports. The continued inaccessibility to the alluvial diamondmines, which usually provide jobs for thousands of youths and illiterate adults, has also
considerably reduced rural incomes and worsened the incidence and severity of poverty
in both rural and urban communities.
52.
By 1998, NCRRR estimated that the conflict has resulted in the internal
displacement of at least three million Sierra Leoneans with about 1.5 million fleeing toneighbouring countries as refugees. The resulting absorption of displaced relatives into
households has exacerbated the already considerable strain on the social fabric of thesociety. Social problems such as teenage pregnancy, crime and juvenile delinquency areon the rise as is the incidence of Sexually Transmitted Infections (STIs), HIV/AIDS andother war related physical and psychological trauma. In 1997, a UNDP Global Human
Development Report indicated that about 68,000 people in the 0-49 age group lived with
HIV/AIDS. This number would have risen substantially following the rebel invasion of
the capital city in January 1999, when a huge number of young girls, women and children
were raped and kidnapped.
53.
The transport sector is one of the hardest hit in terms of destruction to
infrastructure. The Ministry of Transport and Communication estimated that about 75%
of privately operated vehicles were burnt or destroyed during the May 1997 events andthe subsequent instability. Several boats were also sunk along the coastal areas. Feeder
roads, which provide outlets for farmers to sell their products in market centres, were
either dug out or the bridges destroyed by rebels.
d)Unemployment and Under-employment

54.
Reliable statistics on unemployment and under-employment are not available.
However, guestimates from the Ministry of Labour and Industrial Relations are indicativeof an unemployment rate, being highest among the youths, and those aged 18 and 35. The
declining trends in economic performance since 1995 and the large-scale retrenchment of2

Security-related expenditures cover emergency defence, peace operations, police, prisons andcontributions to disarmament, demobilisation and re-integration.

23

workers both in the private and public sectors have further accentuated theunemployment situation.
55.
Underemployment is also a very serious problem. Informed observers believe that
it is highest among the lower echelon of the civil service where idleness and absenteeism
are high and commonplace. The long hours worked in the informal sector to eke out ameagre living are further indications of high under-employment of the invisible type.
56.
A survey of businesses in 1998 showed that the modern sector has narrowed
significantly. This is largely due to the shrinkage in public sector employment and thedestruction and closure of many private sector establishments. Although some of theredundant formal sector workers have sought refuge in the informal sector, mostly as
petty traders, they lack the skills and qualifications required to re-enter formal
employment when the situation improves. Currently, it is estimated that the informal
sector accounts for at least two-thirds of the labour force and over 70% of the urban
labour force. As the prospects for rapid employment growth in the modern sector are
limited, a growing proportion of the labour force will be compelled to seek employment
in the informal sector.
57.
In rural areas, inadequate farm incentives and insecurity in the countryside have
limited rural dwellers from engaging in farming activities. A large number of displaced
farmers residing in safe towns lack access to land and farming implements. For thoseremaining in safe rural areas, inadequate farm inputs, the seasonality of agriculture andthe absence of opportunities for non-farm activities have created massive rural underemployment.
e)Lack of Access to Basic Social Services

58.
As mentioned earlier, a large proportion of the population lacks access to basicsocial services including health care, education, potable drinking water and sanitation.
This is largely due to inadequate budgetary provisions, poor delivery systems and, more
recently, the war. Even though budgetary expenditures on the social services, notably
education and health, have increased in nominal terms between 1992/93 and 1999, thereal and per capita estimates are not encouraging. Budget data show that while recurrent
expenditure on education increased from about US$12.0 million in 1992/93 to about
US$19.72 million in 1999, the average real spending per child school going age was lessthan US$10. In the case of health, recurrent expenditure that stood at about US$ 4.3
million in 1992/93 increased by about 17% in 1998 and then fell by about 41% in 1999.
In per capita terms, average annual recurrent expenditure on health care, which was about
a dollar in 1992/93, dropped to about US$0.64 in 1999.
59.
Social services expenditures, accounting for 24.4% of total recurrent expenditure
in 1999, were still below the critical level required for enhancing service delivery.

24

Inadequate infrastructure, coupled with the lack of trained staff, logistics and weak
institutions have contributed to poor service delivery in the rural areas.
f)Other factors

60.
Other causes include adverse terms of trade, as well as debt burden, which asalready indicated in section 2.1 (para. 11) crowds out private investment and social public
expenditures.

25

CHAPTER THREE
3.

THE POVERTY REDUCTION STRATEGY

61.
The national poverty strategy will primarily focus on addressing the immediatechallenges of the transition from war to peace. The strategy will emphasize the continued
implementation of sound economic policies to attain macroeconomic stability and relaunch the economy within an overall framework of good governance. A stable macroeconomy will also underpin the sectoral and other more specific interventions that havebeen designed through participatory processes involving consultations with civil society
as well as create a more favourable environment for private sector operators.
62.
In recognition of the current situation in the country, the poverty reduction
strategy will be implemented in two phases - - transitional and medium-term phases (seePolicy Matrix, Annex 3.1). The transitional phase (2001-2002) will focus on improving
the living standards of the most vulnerable groups including returnees, internallydisplaced persons (IDPs) and other war victims as well as addressing the urgent
rehabilitation and reconstruction requirements. The medium term phase (2003-2005) willaddress longer-term development problems when security and accessibility would have
improved considerably throughout the country.
3.1

The Transitional Phase

63.
Rebuilding the war-ravaged economy as well as addressing the urgent and basic
needs of war victims will remain Government’s utmost priority in the transitional period.
In this regard, emphasis would be placed on the following (a) restoration of security forlife and property including the protection of human rights: (b) re-launching the economy;and (c) the provision of basic social services to the most vulnerable groups as well as
enhancing access to productive assets. The detailed activities under each of theseheadings are described below.
a)National Security and Good Governance64.
The resolution of the conflict remains an important first step in any programme
designed to address the poverty needs of the population. In this regard, the Government
remains committed to the principal provisions of the Lome Peace Agreement andsubsequent recent agreements signed in Abuja and Freetown. The Lome Peace Accord
represents a broad framework for cessation of hostilities and establishment of sustainable
peace.
65.
In order to provide the enabling environment to facilitate poverty reduction, thehighest priority will be given to the creation of a security environment that allows the freemovement of persons and goods. A secure and peaceful environment will also enhance
the participation of private sector operators and will facilitate the implementation of antipoverty programmes with a maximum impact on targeted beneficiaries.

26

66.
The main goal is to re-establish security in all parts of the country so thathumanitarian assistance to the displaced population and victims of war can be facilitated.
A key component for the re-establishment of security countrywide is the implementationof the Disarmament, Demobilization and Reintegration (DDR) programme. This
programme seeks to bring about protective security and improve the law and ordersituation nation-wide. It is targeted at approximately 45,000 ex-combatants including
adult and child combatants from the Armed Forces Revolutionary Council (AFRC), RUF
and CDF. As of December 2000, a total number of 26,699 ex-combatants (59% of theestimated target) have been disarmed, of which 12,909 have been provided withreintegration opportunities.
67.
In tandem with the implementation of the DDR programme, the Government has
also developed a comprehensive security policy that provides a clear framework for theoperations of the sector. In order to give effect to this policy, Government has
promulgated the Security and Intelligence Act 2000. Among other things, the Act will
establish the National Security Council as the highest security policy-making body in the
country. It will also provide a legal framework for the operations of the entire security
sector. The new security policy provides for the establishment of a Central Intelligenceand Security Unit (CISU), which will complement the functions of the MilitaryIntelligence Branch and the Special Branch of the Police.
68.
One of the most important developments in the security and defense sector is theretraining and restructuring of a professional army under the guidance of the British
Defense Forces. A significant number of soldiers have passed out successfully since theretraining programme was launched earlier in 2000. Under a stringent and rigorous
screening and recruitment system, equal opportunity is being given to individuals fromevery region of the country that meet the required standards of eligibility. Structurally,
Government intends to have a streamlined army that will be consistent with therequirements for internal security and protecting our borders.
69.
In the restructuring process, accountability and civilian control of the army areimportant elements and a number of developments have occurred in this area. The
Defense Headquarters has undergone some structural changes to reflect the new policies
in civil-military relations for the efficient functioning of this sector. Civilians now
exercise oversight in the areas of finance, general administration and development
planning. Establishment of an Armed Forces Review Committee, comprising
representatives of the armed forces and civil society that will undertake periodic reviewsof incentives is under serious consideration.
70.
The police force is also being restructured and is now better equipped to respondto the safety needs of the population than it was a few years ago. There has also been asignificant change in public perception of the police. Its image as a corrupt institution is
gradually disappearing. In order to further enhance its image, a disciplinary andinvestigations office has been set up at Police Headquarters to handle public complaints
about their conduct and take corrective action.

27

71.
A priority for good governance is to strengthen institutional capacity in support of
the rule of law and economic management, and simultaneously ensure that transparency
and accountability is an integral part of the culture in Sierra Leone. The Good
Governance programme will put in place a more decentralized, transparent and proactive
system of governance with built-in checks and balances to minimize, corruption ingovernment and public administration with civil society playing a key role in theplanning and monitoring of policies and budgetary oversight. In this regard, emphasis
will be placed on effective participation of the populace in governance issues. The thrust
will be on grassroots participatory democracy (conducting parliamentary and presidential
elections), decentralisation of functions and authority, respect for human rights andchecking abuse of power.
72.
While improving the capacity and efficiency of the public sector to delivery
services, the Government will popularise the strategic planning and action process (SPP)
to maximize the participation of civil society in the formulation of development priorities
and strategies (see section 4.3), as well as in public expenditure reviews, tracking ofbudgetary expenditures and monitoring of service delivery (see sections 4.4 and 4.5).
Further, the emerging district coordination mechanisms, under the NCRRR, forpackaging, delivering and monitoring relief, resettlement, rehabilitation andreconstruction packages will be restructured and reformed to ensure maximum
participation of beneficiary communities and better results.
73.
The current priorities under the good governance programme for which resources
are committed and implementation is satisfactorily progressing include: restoration andresettlement of displaced paramount chiefs; reactivation of local government
administration (review of codes of practice and chiefdom councilors’ list); initiation of
the result-based monitoring of service delivery; restructuring of the police force;
restructuring and retraining of the Army; media reform; judicial and legal reforms; civil
service reforms including corporate governance that seeks to improve the operations ofstate enterprises and decentralization. The Paramount Chief Restoration Project, geared
towards restoring local administration, is crucial to the implementation of the activities
planned under the decentralization reforms.
b)

Re-Launching the economy

74.
The second priority is to re-launch the economy. In this connection, Government
recognizes that the maintenance of macroeconomic stability is a pre-requisite for theattainment of sustainable and higher economic growth, essential for reducing poverty.
The Government’s near- and medium-term macro-economic strategy would seek tosustain the gains already achieved in reducing macroeconomic imbalances in theeconomy by continuing to implement sound fiscal and monetary policies, while ensuring
the prudent management of financial resources (see Macroeconomic Framework, annex
3.2).
75.
Within the medium-term framework, the main objectives of the programme for2001 are as follows: (i) to contain inflation, as measured by the Consumer Price Index

28

(CPI), to an average of 8.0%; (ii) limit the external current account deficit, excluding
official transfers, to 25.8% of GDP on account of the anticipated higher spending onreconstruction and rehabilitation activities; and (iii) to ensure an additional increase in net
foreign assets of the Central Bank, which should rise to 1.6 months of imports of goods
and non-factor services3. To achieve these objectives, the government will implement the
fiscal, monetary, structural, institutional and social policy measures described below.
76.
Real GDP growth is expected to rise by 5.0% in 2001 from 3.8 % in 2000. Bothprivate and public investments are projected, to rise from 1.7% and 6.3% of GDP in 2000
to 6.0% and 15 % in 2001, respectively. The increase in private investment will comefrom improved investor confidence in the security climate and the expected streamlining
and modernisation of the legal and regulatory code. The large increase in public
investment is projected for the reconstruction and rehabilitation of the damaged physicaland social infrastructure. The recovery of agriculture and official mining activities arealso expected to contribute to economic growth in 2001.
77.
Fiscal Policy: The Government will aim to increase domestic revenues from
11.4% of GDP in 2000 to 12.3% in 2001 by strengthening revenue collection andexpanding the tax base. The creation of an Independent Revenue Authority is expected to
improve the administrative capacities of Income Tax and Customs and Excise
departments.
78.
An important element of fiscal policy in 2001 and in the medium-term is the
restructuring of import taxes and accompanying changes in excise duties. As part ofGovernment’s continuing indirect tax rationalization programme, the tariff structure is
being harmonized with those in the sub-region to reduce cross border smuggling andfoster official trade. The top import duty rate has been reduced from 40% to 30% witheffect from 2001. Rice and baby foods will continue to attract the special import duty of
15%. Government is also carefully studying ways of moving towards broad-based
consumption taxation such as the Value-Added Tax (VAT) in the medium-term. To thisend, and in line with commitments under the ECOWAS, the Government will continue
with the rationalization and reduction in external tariffs to a range of 0-25 percent, and an
average external tariff of about 15 percent by 2003. These measures are expected toenhance tax compliance, improve the business environment and generate higher
revenues.
79.
On the expenditure side, Government will intensify on-going efforts to strengthen
public expenditure management to ensure accountability, efficiency and effectiveness inthe use of public funds. Government has approved the implementation of the MTEF
from the 2001 financial year. Within the MTEF framework, Government will continue torestructure its expenditure pattern in line with its growth and poverty reduction priorities
with a role for civil society in budgetary oversight. The main objective of public
expenditure policy in the medium-term will be to shift allocations away from the lower
priority areas (such as the general services) to the social and economic sectors, especially
3

These macroeconomic indicative targets will be jointly revised with the IMF on an annual basis.

29

agriculture and rural infrastructure. The key challenge will be to identify and reorient
expenditures to obtain optimum gains in terms of service delivery to rural communities.
80.
Monetary Policy: The principal objective of monetary policy in the mediumterm is to maintain the single digit inflation rates attained in 2000. To this end, broadmoney growth will be slowed down in line with the inflation objective, while asubstantial increase in credit to the private sector will be ensured to support economic
recovery, by reducing banking system credit to the public sector.
81.
The Bank of Sierra Leone (BSL) will continue to conduct monetary policy
through the use of market-oriented instruments and in the context of market-determinedexchange and interest rates. In particular, the flexible exchange rate policy will bemaintained to enhance the country’s competitiveness, promoting exports and economic
growth. The BSL will improve the stability and efficiency of the financial system bystrengthening bank supervision and strictly enforcing prudential regulations within theframework of the revised Banking and BSL Acts. The BSL will enforce strict foreign
open positions on commercial banks to encourage inter bank trading, sales to the foreignexchange auction and a deepening of the foreign exchange market.
82.
Government will also continue to facilitate access to credit to the poor in the ruraland informal sectors by providing the enabling environment for thriving micro-credit
financing schemes and institutions. It is hoped that, with the more stable economic andsecurity environment, the commercial banks will be able to increase their lending to the
productive sectors of the economy and extend their branch network throughout thecountry.
83.
Reduction of External Debt Burden: Government’s key objective is to reduce theexternal debt overhang and its associated debt service burden, which crowds-out private
investment as well as public expenditure in the social sectors. Hence, the country’s
external debt strategy will remain an integral part of both the macroeconomic framework
and poverty reduction programmes.
84.
Government will seek maximum debt relief under the Enhanced HIPC Initiative.
Any relief obtained will be utilized as additional resources to finance critical poverty
reduction activities. Also, Government will ensure that all new borrowings are highly
concessional with a grant element of at least 35%. The Government is committed totargeting new loan resources to improve basic social services and the revival of economic
activities.
85.
The country’s high level of indebtedness, coupled with the requirements to fundreconstruction, rehabilitation and poverty-focused activities, indicates that debt relief
under the Enhanced HIPC Initiative may not be sufficient for poverty reduction. In thisregard, Government will seek additional debt relief in excess of the enhanced HIPC
Initiative Framework consistent with the proposal of the G7 meeting in Cologne,
Germany. The national debt strategy will, therefore, be reviewed. This will clearly define
the institutional arrangement, borrowing policy as well as reviewing the donor-funded30

project cycle including the duties and responsibilities of all institutions involved in loan
contracting and utilization. A debt management monitoring committee will review
borrowing procedures and improve debt-recording system.
86.
The development of the private sector is an important part of the strategy tostimulate recovery and growth. During the transition period, efforts will be geared topromoting micro-enterprise development in order to create employment and raise
incomes in the formal and informal sectors, as is currently being done the RRR
programme. In this context, government will facilitate the provision of basic
management skills for micro-enterprises. As a result of these measures as well as theenhancement of micro-financing schemes and the extension of banking services to rural
areas, the contribution of services’ sector to GDP is projected to rise by 7.3% in 2001.
87.
In reducing its role as owner and operator of public enterprises and thereby
allowing wider private sector participation, Government will undertake the divestitureand reform of public enterprises (PEs). While continuing the monitoring of theperformance of financial indicators of PEs in the portfolio, the Government formulated astrategic plan to implement the reform programme. Funds generated from the proceeds ofthe divestiture of state enterprises, including the gains from ending current subsidies toprop up non-performing enterprises, will be redirected to finance socio-economic
development and the extension of services to the poor, particularly in the slums anddeprived rural areas.
88.
The PE broad strategy will entail: outright of loss making enterprises operating incompetitive markets; improving efficiency of large PEs, especially utilities, (throughmanagement contracts, performance contracts, joint ventures and leases) before being
offered for sale; and giving high priority in the sale of process to employee ownership
schemes in order to mobilize domestic support for the successful implementation of the
programme.
89.
A National Commission for Privatisation (NCP), a Presidential Commission withan executive secretariat, will be established to implement the PE divestiture programme.
In line with best practice, the Commission will act as the prudent ‘’shareholder’’ of all
public enterprises in the government portfolio with a mandate to manage enterprises
through its delegates under its sole supervision and control. In essence, the Commission
will act as the sole and exclusive representative for and on behalf of government in allstate enterprises, and hence replacing ministry’s representative on boards of PEs.
90.
Economic Sectors: As well as improving the macroeconomic framework,
Government will implement measures in key economic sectors to ensure sustainablegrowth in output. In the area of agriculture, Government’s priority is to improve thelivelihood of the farming and fishing population of returnees and IDPs with the aim ofrestoring food security especially in the rural areas. In this connection, Government will
provide returnees and IDPs with basic farm inputs and tools through the NCRRR andother donor-supported programmes, as well as ensure the provision of extension services
to the resettled farming population. To enhance agricultural productivity, Government

31

will initiate the rehabilitation of partially developed Inland Valley Swamps. The
improved accessibility to farming communities and the implementation of these measures
will increase the contribution of agriculture to GDP by 6.0% in 2001. Agricultural
exports are not expected to recover in the near term.
91.
In the mining sector, Government will endeavour to enforce mining policies(currently under review) and organize miners into co-operatives. The aim is to improve
the livelihood of the returning mining population and encourage activities in this sector to
be more open and transparent. Government will also enforce the provisions of the current
mining policy relating to the development of the artisanal and small-scale miners. Due tothe expected increase in official mining activities and the implementation of thesemeasures, the contribution of the mining to GDP is projected to grow by 5.0% in 2001.
As a consequence, diamond exports may recover slightly in the transitional period.
92.
Government’s priority in the infrastructure sector is to improve land, coastal andriver transportation in order to increase access of the rural farming population and theurban poor to market centres as well as social and economic services. The key focus will
be to promote community rehabilitation and maintenance of feeder roads and bridges. At
the same time, major trunk roads and jetties will be rehabilitated. Efforts will also bemade to promote the use of non-motorized transport (such as pushcart, bicycle) in ruralcommunities.
c)Social Programmes

93.
The measures described above are intended to create a favourable environment
for economic growth and should lead to an increase in employment and improvement in
the living standards of the population. To improve basic social indicators and help reducepoverty, these measures will be supplemented by specific actions in the area of education,
health, access to drinking water; housing and better sanitation as well as by the on-goingtargeted interventions, social safety nets and activities to promote gender equality.
93.
In the education sector, Government’s priority is to increase school enrollment
and retention rates as well as improve the quality of basic education. Government will
recruit qualified teachers to be assigned on a priority basis to rural areas; reconstruct a
substantial number of schools and the creation of additional classes with funding from theGovernment budget and Emergency Recovery Support Fund (ERSF) and Integrated
Rural Development Programme (IRDP); and increase budgetary resources to schools forthe acquisition of basic teaching equipment and essential school supplies and texts. The
aim is to introduce universal free primary education (that is, for classes 1-6) with effectfrom September 2001 in all Government-owned and assisted schools. The Government
will continue to fund the payment of the salaries of teachers, provision of textbooks,
teaching and learning materials and fees to facilitate wider access to primary schools. The
on-going school transportation programme that provides subsidized bus fares to school
children in the capital city will be expanded and extended to the major provincial towns
and rural areas.

32

94.
In the health sector, Government will seek to reduce maternal and infant mortality
rates and to control and prevent the spread of malaria. To achieve this, Government will
increase budgetary allocations to basic health centres, reconstruct and rehabilitate
peripheral health clinics, and hire and train additional medical staff to improve access tobasic health care services, especially in the rural areas. Additional funding for these
activities will also be accessed through the ERSF, IRDP and Support to Resettlement andReintegration Programme (SRRP). The school health programme, mainly providing freehealth care to urban school children, will be continued and extended to the rural areas.
95.
Government will also seek to provide free Maternal and child health care services
to all pregnant and nursing mothers nation-wide and will enhance the availability of
medical supplies and equipment to all hospitals. It will ensure the availability of basic
drugs at cost recovery rates affordable to most vulnerable segments of the population.
96.
Government will continue to implement the Expanded Programme of
Immunization (EPI) to reduce the spread of communicable diseases among infants andchildren under the age of five.
97.
To minimise the spread and rise in STDS/HIV/AIDs cases, Government will
intensify information and education campaigns to increase the public’s awareness of theincidence of STDs/HIV/AIDS. It will also promote the use of AIDS preventive measuresthrough distributing condoms and training counsellors on home-based care for people
living with AIDS. The focus will be on youths and women of reproductive age.
98.
Government’s housing policy is to facilitate opportunities for returnees and IDPs
to access affordable housing and community facilities. Government will build local
capacity to produce and deliver low cost building materials, as well as increase its stockof low-cost shelter units and provide the enabling environment for enhanced private
sector participation in the supply of affordable housing units.
99.
Social Safety Nets: Government recognises the special needs of persons whose
physical circumstance renders them incapable of benefiting from the facilities put at thedisposal of the population. In order to address the special circumstances of such needy
persons, a social safety net scheme will be introduced to benefit vulnerable groups, theold, disabled and needy. The scheme is expected to promote basic shelter and support,
and access to basic health care services for these persons.
100. The Government will also establish a National Social Security (Social Security
and Insurance) Scheme to strengthen existing state and traditional sources of support for
retirees in both the public and private sectors.
101. Promoting Gender Equality: The Government has established special national
machinery for gender- and children-related activities including the creation of a Ministry
for Gender and Children’s Affairs. A national gender-in-development policy has also
been formulated. The formulation of this policy demonstrates the commitment ofGovernment to the principles of social justice and equality.

33

102 Presently, the Ministry, through various women’s NGOs, has embarked on
strategic actions dealing with the poverty of women and children. The main thrust ofthese actions is to empower women and young persons in rural and depressed urban areas
through capacity building and employment creation. Furthermore, in the case of women,
Government will enhance their access to essential productive resources (including credit
and appropriate skills training), as well as their participation in decision-making at
national, provincial, district and local levels. Constraints to women’s access to resources
and customary laws, will also be reviewed. For children, their empowerment will befacilitated by the enactment of appropriate bills in accordance with the UN Convention
on the Rights of the Child. Government has also recently approved the creation of the
National Agency for War-Affected Children.
103. The Government also recognises that success in the poverty strategy will dependon gender mainstreaming. In this regard, Government has approved policies for gendermainstreaming and the advancement of women. Government will also ensure that gendermainstreaming policies are translated, understood, disseminated and implemented by all
sections of the Sierra Leone society.
104. The social programmes described here have been factored in the 2001 budget,
currently being implemented by the Government based on a macroeconomic frameworkagreed with the IMF and the World Bank. To fund these activities, government has
allocated the sum of Le54 billion, representing 66% of the expenditure for goods andservices. Donors currently fund about 50% of the Government budget.
d)Ongoing Poverty Interventions

105. In tandem with the implementation of these key priority activities, Government
will continue to work with various partners to implement emergency poverty
interventions. To this end, the National Commission for Resettlement, Rehabilitation andReconstruction (NCRRR), under which various programmes (including SAPA) are being
funded, is making tremendous strides in the areas of poverty reduction and reconstructionof community infrastructure facilities in the education and health sectors4. The SAPA
programme and other financial institutions (excluding commercial banks) also played a
key role in implementing the government funded micro-credit programme, targeting
especially women and youths.
106. The Community Re-integration and Rehabilitation Project (CRRP), which seeks
to address the short-term post-conflict needs of ex-combatants, refugees, IDPs and thecommunities to which beneficiaries return, was successfully launched in March 2000 in
Freetown, (Western Area), in Bo (Southern region) and in Kenema (Eastern region).
Insecurity and hindered access precluded launching the CRRP in the North.
Notwithstanding, project implementation in the North has been initiated. The CRRP,
funded by the World Bank and the African Development Bank, has two components: theEconomic Recovery Support Fund (ERSF) and the Training and Employment
4

The SAPA programme will end in June while the other programmes will continue.

34

Programme (TEP). The ERSF will facilitate the recovery of communities through therestoration of basic economic and social services via demand-driven community oriented
projects that target IDPs and refugees. The TEP supports social and economic
reintegration of ex-combatants through counseling, training and employment initiatives.
107. The Economic Rehabilitation and Recovery Credit (ERRC) is a World Bank
quick disbursing loan in the amount of US$30 million that provides critical balance of
payments and budgetary support to finance part of the foreign exchange and budgetary
costs of the programme to establish peace and security. These funds also contribute to thetransitional safety net allowance for adult ex-combatants and the settlement plan ofdomestic public sector arrears to the private sector.
108. The Preventive Development Project (PDP), funded by the UNDP focused on theresettlement and reintegration of the conflict affected population, including excombatants by means of community-based initiatives and reintegration programmes
linking emergency and humanitarian assistance to long term development. The
programme was, however, disrupted by the events of January 1999. However, available
resources were converted into the Quick Impact Action Programme (QIAP) to respond tothe humanitarian crisis presented by the rebel incursion of the western area. The
successor programme to the PDP is the Support to Resettlement and Re-integration
Programme (SRRP). The project will seek to link emergency and development assistancein the restoration of an environment that will permit the resumption of peaceful andsustainable reintegration.
3.2

Medium-Term Phase

109. As mentioned earlier, as security and accessibility improves throughout thecountry, Government will embark on long-term development programmes. While theprogrammes aimed at improving governance and reviving the economy will continue into
the medium term, the full PRSP will determine the long-term development priorities
including the governance system which the citizens would like in the post conflict period.
To define the strategy and action plan for the medium-term, a number of diagnostic andpolicy and sector reviews and studies are planned. These include updating the poverty
profile to determine the causes and incidence of poverty, and analysing the growthpotential of the economic sectors. The timing of these actions is more fully described in
Chapter 5 and Table 5.1.
110. Government is proposing the framework of the following broad programmes in
the medium-term. These programmes include: (a) Good Governance; (b) Revival of the
Economy, and (c) Social sector development. These proposed programmes/activities
would be reviewed and discussed during consultations with civil society in the
preparation of the full PRSP. The new governance/social fund mechanisms being piloted
under the SAPA and ERSF will contain the elements of a new “partnership” approach, in
conjunction with the SPP, to service delivery in the medium term. The main priority
sectors and proposed activities are described below.

35

a)

Good Governance Programme

111. The general objective of the Governance Reform programme is to ensure theeffective functioning of Government machinery for the efficient delivery of services,taking into account the need for structured participation. The national strategy on good
governance aims at:
i. Promoting a democratic environment in which the various national organs (theExecutive, Parliament, civil society, public service, judiciary, police) inter-relate
to each other in a transparent and accountable manner; andii.
Establishing a Rule of Law where justice and human rights are respected andpopular participation in development is enhanced for sustained national progress.
112. The programme strategy is based on two fundamental and complementary
principles of governance: (i) individuals, groups or institutions entrusted with theauthority to utilize national resources are required to be transparent and accountable; and(ii) ensuring that their activities are improving the well being of the people they areserving. The implementation of the overall governance programme has been classified
into five sub-programmes. These are:• Re-activation of Local Government Administration and decentralisation ofCentral Government functions: This involves the restoration of paramount chiefs
and conducting democratic elections in vacant chiefdoms and district councils.
• Awareness-raising among the civil populace about their rights, privileges andobligations and enhancing the role of the media by improving information andcommunication infrastructure.
• Public Sector reform and capacity development for efficient and effective service
delivery: This entails reorganizing and downsizing the civil service and enhancing
economic management capacity.
• Reinforcement of the judiciary and legal system for safeguarding the rule of law
and human rights: This also involves restructuring of the military and the police.
• Transparency and Accountability to deal firmly with corruption: The Anticorruption Commission will have a critical role in implementing the strategies
being developed by Government.
• Re-enforcement of the result based model of governance through the sustained
support for the Strategic Planning and Action Process (SPP).
b)

Revival of the Economy

113. Government will continue to implement prudent fiscal and monetary policies toconsolidate macroeconomic stability, foster an enabling environment for private sector
development, including privatisation of state enterprises, and reduce debt overhang
through access to enhanced HIPC resources, creating the basis for sustainable economic
recovery and progressive improvements in living standards, especially for the poor.
These policies will be backed by implementation of sector programmes in the key
economic sectors including agriculture and mining as well as infrastructure developmentin the transport, energy and telecommunications sectors.

36

114. Agriculture: The primary objective of Government’s agricultural policy in themedium term is to promote sustained growth of agricultural output to restore foodsecurity and generate agricultural tradable surpluses. Particular attention will be paid toincreasing food production in order to attain food security. It is envisaged that foodproduction will be increased through a multi-pronged approach. The access and quality ofextension services will be enhanced to afford farmers information on improved
techniques. Access to improved post-harvest technologies, including milling and storage
facilities, will receive particular attention. Efforts will be made to create the enabling
environment for increased private sector participation in these activities. A fundamental
review of the agricultural land tenure system will also be undertaken to enhance private
sector involvement. Rural financial intermediaries will be established in all farming
communities to complement and augment existing institutional arrangements.
115. In the marine subsector, Government will undertake the rehabilitation ofoutstations to ensure the implementation of artisanal fisheries programmes and extension
services. This is expected to increase the supply of fish for domestic consumption,enhance the availability of fish protein and exportable marine products.
116. Mining: Government’s policy is to continue to improve the livelihood of smallscale miners and to provide a conducive environment to attract private investment into
capital-intensive large-scale mining as well to ensure environmentally friendly mining
practises. Government will therefore continue to enforce the provisions of the current
mining policy that encourages both local and foreign private investment in the sector andensures the rehabilitation of the environment damaged by mining activities. Strategies
will be put in place to improve the livelihood of the entrepreneurs in the vicinity of themining centres by removing obstacles to the expansion of small-scale economic activities
to service key mining centres within the context of an integrated mining economy.
117. Tourism: Efforts will be made to diversify tourism activities as well as undertake
intensive tourist promotion campaigns. Government will also facilitate access to microcredit financing for small-scale entrepreneurs in the industry. The Tourism Master Plan
(1982) and the Tourism Development Act (1990) will be reviewed with a view toattracting private investment into the sector.
118. Infrastructure: The overall objective of Government Policy in this sector is torehabilitate the transport infrastructure and transform it into an efficient, safe and reliable
system. Additionally, Government will intensify the rehabilitation of landing sites/jetties
to reduce the cost of sea transportation and ensure its safety. To further reduce the cost ofrural transportation, Government will promote the expansion of non-motorised modes oftransportation including bicycles, wheelbarrows, pushcarts and canoes.
119. In the medium term, Government’s role in the transport sector will be limited to aregulator and provider of basic infrastructure (such as feeder roads). In this context, thecapacity of the Sierra Leone Roads Authority (SLRA) for planning and sustainable
maintenance of the road network will be strengthened.

37

120. In the energy sector, the National Power Authority will be restructured and placed
under a management contract with a private firm in order to improve efficiency ofoperations. Efforts will be made to complete the construction of the Bumbuna
Hydroelectric Dam with funds provided by the ADB and the Italian Government. The
Dam is expected to provide reliable electricity supply to a greater proportion of thecountry, including a large number of rural areas. At the same time, donor financing will
be sought to support rural electrification.
121. Government will also encourage the active participation of the private sector in
the telecommunications sector to enhance both internal and external communications
nationwide.
c)

Social Sector Development

122. Education: In the medium term, the objective of Government’s education policy is
to increase access to high quality basic education and to raise adult literacy. Teachertraining colleges will be expanded and provided with teaching and learning materials to
support the training of more teachers. Efforts will also be made to complete therehabilitation of school infrastructure and facilities as well as expand these facilities inrural communities. Government will introduce compulsory and universal free primaryeducation to enhance accessibility to basic education. It will also improve on the facilities
in technical and vocational schools and institutes, establish adult education training
centres and promote research and development in the University of Sierra Leone.
123. Health and Nutrition, Water and Sanitation: The focus of Government’s healthand sanitation policy in the medium term will continue to promote and enhance thesupply of quality, sustainable, accessible and equitable health care services for all Sierra
Leoneans. In this regard, Government will expand and strengthen the decentralised
network of reliable and quality facilities at the primary, secondary and tertiary levels with
sufficient logistics to ensure functionality and enhance accessibility, as well as toimprove the supply of drugs at cost recovery and of safe drinking water and theimprovement of general sanitation in both urban and rural areas.
124. To enhance further improvements in maternal, infant and under-five health care,
Government will expand the coverage of and access to quality health care services,
continue the immunisation programme against endemic diseases, and intensify the healtheducation campaign programme. In tandem, the promotion of the consumption of foodrich in micronutrients will be enhanced.
125. To deal with the STDs/HIV/AIDs epidemic, Government, while continuing toassist those living with the disease, will mainly direct its actions for preventing HIV
infections through the expansion and intensification of the treatment of STDs,
counselling, voluntary testing, and above all, information, education and communication
campaigns on STD/HIV/AIDs. Government will also provide counselling and technicalvocational training, and facilitate access to economic opportunities to mitigate the impact
of HIV/AIDs.

38

126. To control the spread of malaria, the thrust of Government’s approach will be on
prevention, through the sustained support for the use of insecticide treated bed nets,
especially among the poor, and for environmental health education campaign
programmes.
127.
Government, in collaboration with the World Bank, will put in place
modalities for effective waste management, to be implemented in collaboration withprivate contractors through a youth employment scheme. Water and sanitation facilities
will also be improved to widen access to potable drinking water and increase access tosafe excreta disposal.
128. Housing: In the medium term, Government’s objective is to increase the supply of
housing facilities for low-income earners. Government will provide the enabling
environment for effective participation of the private sector in the provision of housing.

39

CHAPTER FOUR
4.

MONITORING AND EVALUATION (M &E) STRATEGY

4.1

Objectives

129. The Government is developing a participatory outcome monitoring system tomonitor and evaluate the progress of implementation and impact of its anti-poverty
strategy. The monitoring process will assess improvements in service delivery, using
quantitative and qualitative indicators defined in consultation with civil society. It will
also assess the efficient and effective utilization of public resources allocated to bothurban and rural communities through the Medium-Term Expenditure Framework(MTEF).
130. The principal objectives of the M&E strategy are: (i) to provide timely andreliable information to all policy makers, implementing agencies, stakeholders andbeneficiaries to ensure that the agreed strategy is being implemented; (ii) to promotetransparency and accountability in the design and implementation of the poverty
reduction strategy; and (iii) to set-up an effective management information system thatwill facilitate the flow of information among policy makers, implementing and executing
agencies, beneficiaries, including civil society groups, and NGOs.
4.2

Monitoring Indicators

131. In order to make the M&E strategy effective, simple input, process and output
monitoring indicators will be established for each anti-poverty activity. A critical elementof the monitoring system will be its focus on outcome indicators with the greatest impact
on poverty, determined in consultation with the key stakeholders. The indicators,
including locally meaningful popular benchmarks, for each poverty activity for all sectors
identified in the poverty strategy are provided in the attached Policy Matrix (annexes 3.1& 3.2)5. The historical levels of these indicators are indicated where possible. Targets
over the medium term will be defined against which progress towards agreed goals will
be measured, while those over the transitional period are shown in annex 3.1b.
4.3

Focus Group Discussions

132. In 1996, the Government, with support from the World Bank, commenced theimplementation of a national Strategic Planning and Action Process (SPP) to facilitate
participatory consultations in reformulating a new development strategy for poverty
reduction. Through the process, the government engaged citizens from across the country
to forge a broadly supported national vision statement and build a consensus on mediumterm development priorities and strategies in a highly participatory stakeholders
consultative exercise. The Focus Group Discussions (FGD) targeted broad stakeholders,
including opinion leaders from the local communities; representatives of civil society
5

These are commonly understood outcome indicators for measuring changes in community welfare.

40

organizations; professional organizations; government functionaries; parastatals; NGOs;
women organizations; religious leaders; displaced communities; handicapped; university;press; parliamentarians; youth organizations; and local government authorities.
133. Each focus group discussion is conducted in five phases: (i) analyzing the current
state of poverty and its key determinants from a multi-sectoral viewpoint (Where are wenow?); (ii) forging a common vision for the country’s development and identifying
realistic medium term goals for poverty reduction (Where do we want to go?); (iii)
identifying and prioritizing broad and specific development priorities (How do we getthere?); (iv) identifying formal and popular (informal) benchmarks and targets against
which progress is measured (How do we know we are getting there); and (v) identifying
local follow-up actions and “champions” to further the SPP process in the local
communities. During the focus group discussions, participants use the “Budget Game”
technique (which is an allocation exercise to determine focus group preference patterns in
a resource–constrained decision-making environment) to rank the priorities by displaying
their preferences on wall-mounted posters. The use of different colour marker pensenables gender-disaggregated data to be obtained.
134. The benchmarking phase of the process involves the identification of performancebenchmarks (outcome indicators) and targets as well as participants’ assessment ofcommunity welfare using a simple participatory technique known as the Smiley Gamedeveloped by the SPP/TC. The “Smiley Game” serves as a mechanism for ordinary
citizens --whether or not they can read or write -- to measure progress in community
welfare on an ongoing basis using commonly understood indicators known as popularbenchmarks. To date, the popular benchmarks that have been tested to measurecommunity welfare are physical security, food security, family health, and opportunities
for advancement and community integrity. Community integrity is a positive expressionof the level of corruption in the community’s environment.
135. Following the consultative process, a national strategic vision emerged, centeringon three interrelated objectives: (i) creating a united and peaceful nation enjoying good
governance; (ii) fostering improvements in living standards through rapid, stable andequitable economic growth; and (iii) improving the population’s health conditions andeducational standards. A new round of Focus Group Discussions was conducted in AprilMay 2000. These consultations recorded top scoring priorities for Security (27%),
Education (24%) Good Governance (20%), Agriculture (16%), and Health (13%) (seeannexes 4.1-4.2). The results of the Smiley Game indicated significant improvement inwelfare during the August 1999 - March 2000 for all five popular benchmarks, except for
the northern province, where there was a considerable deterioration due to the prevailingsecurity situation in the region. The most significant improvement in community welfare
was recorded in physical security (18%) followed by community integrity (13%),
opportunities for education and employment (13%), family health (11%) and foodsecurity (10%) (see annexes 4.1-4.7).
136. Since 1996, the sectoral priorities identified in the FGDs have been reflected in
the allocations of budgetary resources on an annual basis. The government will build and41

improve on the SPP framework to monitor, on a yearly basis, changes in national
priorities and strategies as well as in stakeholders’ perception of improvements in service
delivery and welfare. To date, over 2000 representatives of various stakeholder groups
have participated in focus group discussions at the national, provincial, district andchiefdom levels. Moreover, the process has trained 100 volunteer facilitators in Freetown
and the three provincial towns of Bo, Kenema and Makeni to conduct comparable focus
group meetings at the district level. The process has also undertaken mass publicawareness and communication campaign on the development process through the print
and electronic media and local drama groups. The process is expected to devolve to more
districts and chiefdoms as the security situation improves. The devolution of the process
to the local level will facilitate the maximum participation of all socio-politico-economic
and cultural groups, thereby ensuring a fair representation in focus group discussions.
4.4

Service Delivery Surveys

137. The Government, with support from the World Bank, mandated the SPP/TC to
conduct a nation-wide, Baseline Service Delivery Survey in April 2000. The objectives ofthe survey were: (i) to gather baseline data on key services that could form the basis for
producing performance criteria for these services; (ii) to determine stakeholder
perceptions of public service performance from users’ standpoint; and (iii) to establish
specific formal and popular benchmarks that are locally meaningful. The results fromthe field survey revealed that communities and households perceived the coverage,
quality and impact of key services provided by the government, particularly in the rural
areas, to be limited and inadequate. The survey also revealed dire social and economic
conditions in the country resulting from a considerable degeneration in social andinfrastructure facilities. However, impressive gains were noted in the area of
immunization as about 78% of all children under the age of five had been fully
immunized. Also, over 70% had been immunized against tuberculosis and 60% formeasles. Normalcy was reported to be gradually returning to the countryside, as 95% of
the survey respondents indicated their willingness to forgive the rebels for the atrocities
they have committed in the interest of lasting peace.
138. In this connection, an important aspect of the M&E strategy is to conduct annual
service delivery surveys (SDS). The principal objectives of the service delivery surveys
will be: (i) to monitor improvements in service delivery using selected baseline
indicators; (ii) to determine changes in stakeholders’ perception of improvement inservice delivery from users’ standpoint; and (iii) to monitor the efficient implementationof development projects at the facility level to determine their impact on local
communities.
139. The instruments for the surveys will consist of a structured questionnaire,
institutional reviews and interviews with community key informants to determine theirperceptions about improvements in service delivery. The questionnaire will consist of
three modules: household, community and institutional. While the household andcommunity modules will mainly generate information about services and facilities fromthe users’ standpoint, the institutional module will target sectoral inputs and outputs at the42

national level using selected benchmarks. The service delivery surveys are expected toprovide valuable quantitative and qualitative data about the constraints the poor face inaccessing public services, their views about the adequacy and quality of the services theyreceive from different service providers, and the extent of corruption they experience intheir interactions with government officials.
140. As some selected areas for the 2000 baseline service delivery survey were notaccessible at the time of the survey, efforts will be made to expand the coverage of thesurvey to determine realistic monitorable indicators for the entire country. The survey
returns will be processed at the CSO using the Integrated Microprocessor Systems(IMPS) and the Statistical Package for the Social Sciences (SPSS) for cross tabulationand further analysis. The results will be submitted to the Technical Secretariat of the
Poverty Reduction Strategy Committee (PRSC) for review and onward dissemination to
the public through the print and electronic media, the Government gazette and otherprivate media.
4.5

Tracking Budgetary Expenditures

141. As a measure of its commitment to monitoring the public service system throughthe efficient and effective utilization of public expenditures, Government, within the SPP
framework, conducted a pilot Expenditure Tracking Survey in 2000. The survey was
intended to measure public expenditures by budgetary allocations to determine the actual
public spending that is used for its intended purpose, especially in rural areas. The resultsof the survey revealed significant gaps in some key ministries in the disbursement ofpublic resources to rural areas. It also shows some variances between budgetary
allocations and actual expenditures in many departments due partly to the stringent
tendering procedures for procurement as well as the emphasis on transparency. The
survey also confirmed that slow disbursement or non-disbursement of donor funds formany development projects in the rural areas greatly affected implementation of theseprojects.
142. In order to improve on service delivery in the rural areas, the budget process in2001 has been designed (within the context of the MTEF) to ensure greater beneficiary
involvement in the delivery of services and more emphasis on results and outcomes. The
Government has also introduced a new budget and accounting code that shows the
allocation of public resources by activity and region. This new coding system will
facilitate the tracking of resources to activities in rural areas. Also the Government hasestablished, through the MTEF process, mechanisms such as periodic workshops andmeetings for the frank exchange of views with Ministries, Departments and Agencies(MDAs) on budget formulation, implementation, monitoring and reviews. Furthermore,
the Government has mandated the newly created Medium-term Expenditure
Framework/Technical Committee (MTEF/TC), comprising representatives fromgovernment, the university and civil society groups, to sensitize beneficiaries and civilsociety in budgetary oversight. The sensitization exercise has been done in all safe
communities and regions.

43

143. Further, on the basis of the lessons learned from the sensitization exercise, theGovernment will facilitate the formation of community budgetary oversight committees,
as well as ensure the periodic publication of information on budgetary provisions andservice delivery at the local level. In effect, the Government will empower local
communities to participate in defining development priorities and strategies (through the
SPP methodology), reviewing public expenditure and in monitoring service delivery. The
MTEF/TC and SPP/TC in partnership with community stakeholder representatives will,
therefore, share the responsibility of monitoring and tracking expenditures during theimplementation of the Poverty Reduction Strategy. These committees will undertakesemi-annual monitoring and expenditure tracking surveys. Annual public expenditure
reviews will also be conducted in collaboration with major donors.
144. The instrument for the field survey for the budget tracking exercise will consist ofa structured questionnaire on the key poverty sectors. The questionnaire will be in two
parts: part A will be administered to vote controllers of Government line ministries ordepartments in Freetown, while part B will be administered to regional heads ofGovernment ministries and departments at the provincial, district and chiefdom levels.
Budgetary allocations and actual expenditures at the Budget Bureau and the Accountant
General’s Department will also be obtained to facilitate the monitoring process.
Interviews will also be conducted with community key informants on their perceptions
about improvements in service delivery. The focus will be on critical poverty reduction
activities defined in the policy matrix. Monitoring will be done at the chiefdom, district,provincial and national levels.
4.6

Data Sources and Dissemination

145. Both quantitative and qualitative data will be generated from routine national
surveys (including those compiled by sectors, and UN agencies), focus group discussions
and rapid participatory appraisals involving representatives of end-user groups. The
sample household income and expenditure survey in 2001 (for updating the poverty
profile) and the national population census in 2002, planned by the CSO, will provide
information for establishing the levels of the poverty monitoring indicators. The results of
the National Population Census will provide a basis for monitoring and evaluation ofdemographic benchmarks as well as sampling frames for future surveys including the
Living Standard Measurement Survey (LSMS). The CSO and the technical committeesof the SPP and MTEF will collaborate in reviewing the results of the user benefit survey
on service delivery as well as the continuous monitoring and tracking of public
expenditures.
146. The results of the MICS2survey recently conducted by the CSO on behalf of theGovernment, as well as those generated by the Integrated Approach to Aid Coordination(IAAC) baseline survey, will also be a valuable source of information on the monitoring
indicators6. Furthermore, additional data on key indicators will be obtained from the6

The 2000 Sierra Leone Multiple Indicator Cluster Survey – 2 (MICS2) is a nationally representative
survey of households, women and children. The main objectives of the survey are to provide up-to- date
information for assessing the situation of children and women in Sierra Leone at the end of the decade and44

results of the surveys and focus group discussions conducted by the government within
the SPP framework in 2000.
147. An effective and efficient national poverty information management system willbe established in the Poverty Alleviation Coordinating Office (PASCO) (see section 5.1
and annex 5.1 for the role of the PASCO. Data collection and dissemination will be
integrated through the management information system (MIS) that will be establishedduring the preparation of the full PRSP. Funding for the establishment of the poverty
MIS will be provided from the Public Sector Management System (PSMS) credit of theWorld Bank.
148. The Strategic Planning and Action Process Technical Committee (SPP/TC) withits broad experience in national consultations for participatory development will ensure abroad representation of all the key stakeholders in implementing a participatory poverty
monitoring and evaluation strategy. By virtue of their close links to communities, civilsociety movements, community-based organizations (CBOs) and NGOs will provide easy
conduits for the delivery of monitoring and evaluation reports to beneficiaries as well as
facilitate the participation of communities in the M & E process. These organisations will
also be encouraged to facilitate the dissemination of M&E results to the public.

to furnish data needed for monitoring progress towards goals established at the World Summit for Children
and a basis for future action.

45

CHAPTER FIVE
5.

ROADMAP

5.1 Governance and Institutional Arrangements for the preparation of the InterimPoverty Reduction Strategy Paper (I-PRSP)
149. The initial experience gained in earlier consultations in articulating a national
vision put the government on a firm footing to initiate consultations in the preparatory
process for the Interim Poverty Reduction Strategy Paper (I-PRSP). The process began in
April 2000 with the establishment of an ad hoc Poverty Reduction Steering Committee(PRSC). The committee comprises staff of the Ministry of Development and Economic
Planning (MODEP) including CSO, Ministry of Finance (MOF), Bank of Sierra Leone,
Social Action and Poverty Alleviation (SAPA) Programme, NGO representation; all werealso part of the Strategic Planning and Action Process/Technical Committee (SPP/TC). A
PRSP Secretariat was subsequently created within the Social Services Division of theCentral Planning Unit (CPU) in MODEP.
150. During the initial stages, several consultative meetings were held to define themodalities of the preparatory process of the I-PRSP. These resulted in the formulation ofa working document that defined the framework for the preparation of the I-PRSP.
Furthermore, a governance framework was agreed which comprises various committees
with representatives from sector ministries with a poverty focus and civil society:i. An Inter-Ministerial Committee (IMC) chaired by the Minister ofDevelopment and Economic Planning, comprises the Ministers of key social andeconomic sectors (see annex 5.1 for the membership list). This committee
provides overall policy guidelines to the PRSC on the process and content andwill also oversee the process of preparing and monitoring the implementation of
the PRSP;
ii. A Poverty Reduction Steering Committee (PRSC) chaired by theDevelopment Secretary (MODEP) and reporting to the IMC, comprises
professional and technical heads of key ministries and agencies (see annex 5.1 formembership list). Its other key tasks are to identify funding sources, provide
technical backstopping to consultants, supervise consultative processes andprepare regular progress reports on the formulation and implementation of thepoverty reduction strategy;iii. The PRS Technical Committee (PRS/TC) co-chaired by the Director ofPlanning (MODEP) and Director of EPRU (MOF) and reporting to the PRSC, islocated in the Directorate of the Central Planning Unit (CPU) in the Ministry ofDevelopment and Economic Planning. The core technical committee comprises
representatives from CPU, EPRU, Bank of Sierra Leone, SAPA and CSO who are46

also members of the SPP/TC. Its task has been to coordinate the preparatory
process and prepare a draft of the I-PRSP; andiv. The Poverty Reduction Working Committees that prepare the various
sectoral and crosscutting contributions to the Poverty Reduction Strategy and also
support the PRS/TC. Five Working Committees have been established and report
directly to the Poverty Reduction Steering Committee (see annex 5.1).
151. To facilitate and enhance participation by stakeholders, a one-day orientation
meeting involving representatives of donor missions, NGOs, line ministries, civil society
and international agencies was held in August 2000 with all stakeholders in Freetown.
The consultations were aimed at introducing the PRSP concept and the institutionalarrangements that have been put in place for the preparation of the I-PRSP.
152. In preparing the Interim Poverty Reduction Strategy Paper, the core technicalteam made extensive use of the conclusions of the 1996 World Bank country assistancestrategy consultations. The priorities that emerged from those consultations werevalidated by subsequent SPP consultations, including focus group discussions held during
1998-2000 at the national, chiefdom and district levels. In addition, the various National
Action Plans for poverty reduction as well as the results of the thematic studies carriedout and discussed at the national workshop held in Freetown, from 29th April to 3rd May
1996, have been incorporated in this interim strategy. A workshop involving all key
stakeholders was held to discuss the draft Interim Strategy, which was also circulated to
key development partners in October 2000. Finally, a national consultative workshop on
a draft of the I-PRSP was held in Freetown, on 26th February 2001 involving all
stakeholders from various levels including donor representatives. In essence, therefore,
the preparatory process of the strategy followed a “bottom-up” approach through aparticipatory consultative process.
5.2 Plan for the PRSP Preparation
153. The governance structure for the preparation of the I-PRSP will be maintained for
preparing the full PRSP. However, the PRS/TC will be replaced by the Poverty
Alleviation Strategy Coordinating Office (PASCO) under the leadership of a nationally
recruited full-time coordinator with responsibility for coordinating the preparation andmonitoring the implementation of the full PRSP (see annex 5.1)
154. The full PRSP preparation exercise will take place from June 2001 to December
2002. It will approach poverty reduction problems in a multidisciplinary, integrated andcoherent approach with the participation of all actors and partners involved in poverty
reduction efforts such as NGOs, civil society organizations, cooperative associations,beneficiary groups and other stakeholders. It will, therefore, be prepared through aparticipatory and decentralized approach involving target groups and institutions,
government organizations, NGOs, key development partners and civil society.

47

155. Stakeholders’ consultation and participation to ensure maximum ownership of the
PRSP will be based on focus group discussions (FGD), working committees and radio
and television discussions. These approaches will allow frank exchange of views, as wellas enable stakeholders to have a clear and better understanding of poverty reduction
strategy and its associated benefits.
156. The SPP FGD methodology, already outlined in the M & E chapter, will be used
to engage stakeholders on poverty reduction issues at the national, provincial, district andlocal levels. As indicated in section 6.1, the working committees will work on fivesectoral/thematic areas. Committee members will be representatives from the economic
and social sectors/ministries, NGOs and other key stakeholder groups. In respect of theradio and television discussions, a series of structured programmes are planned. Phone-in
and write-in options will also be provided to ensure maximum public participation.
157. As indicated in the task-timeline matrix below, a number of consultative
workshops are planned which will target political and traditional leaders, senior
government functionaries, NGOs, donors and general stakeholders. These consultations
will build on the achievements of those organised during the preparation of the I-PRSP.
The consultations with political leaders and senior government officials, to be facilitatedby the PASCO and World Bank staff, will enlighten these stakeholders on the technicalissues of the PRSP and its linkage to concessional loans and debt relief. The preliminary
stakeholder consultations, in essence, are meant to validate the content of the I-PRSP, inparticular the timeframe of activities and the consultative processes.
158. Consultations with the NGOs are geared towards bringing this group of
stakeholders fully into the PRSP preparation. Given their experience in local service
delivery and close ties with rural stakeholders, they will contribute greatly in building thenational participatory capacity for stakeholders. With regard to donors, in addition totheir participation in national consultative workshops, informal mini-CGs will
periodically be organised to discuss proposals for poverty reduction and financing needs.
5.2.1

Diagnostic policy and sector reviews and studies

159. A number of technical analyses and studies are planned (see Table 5.1) for the
preparation of the full PRSP. This will primarily provide a basis for updating the poverty
profile and developing pro-poor economic growth strategies. The initial technicalactivities will concern the gathering and reviewing of poverty and poverty-related
documents relating to Sierra Leone and other heavily indebted poor countries. For thesestudies, the efforts of the PASCO will be backed by the services of both local andinternational consultants who will determine the data gaps and the types of missing
information, as well as advise on the most appropriate methods (including participatory
poverty assessment, household income and expenditure survey, consultations and study
visits) for generating the required data sets.
160. The development of the poverty profile, for establishing the number of poor
Sierra Leoneans and their characteristics, will follow the poverty desk study. For this, a48

rapid, limited sample household income and expenditure survey, supplemented with arapid participatory poverty assessment (PPA) and service delivery survey, will be
undertaken during the second half of 2001. The PPA, in particular, will determine thepeople’s views of poverty (including the attributes of the poor and causes of poverty) andhow to reduce it. These surveys will use, as a reference frame, the results of the recently
concluded national census’s listing survey by the CSO. These efforts are expected to besupported financially by the World Bank, the UNDP, the European Commission, theAfrican Development Bank and the Department for International Development, United
Kingdom. The identification of international experts by these organizations will form partof the assistance.
161. Sectoral policies will also be reviewed with a view to determine growth potential,
as well as to develop policies that are compatible with poverty reduction goals. An
appropriate macroeconomic framework will be developed and will serve as the basis for
implementing pro-poor macroeconomic policies, as well as estimating growth-poverty
reduction linkages. Other studies will focus on micro-finance, informal sector, land
tenure and HIV/AIDs. The study on HIV/AIDs will enable the projection of the
population with and without the disease and determination of the impact of disease on thelabour force.
162. As reference materials/documents on poverty can easily be accessed through theInternet, investment in information technology, also especially needed for the proposedmanagement information system, will be undertaken.
5.2.2

Participatory data collection activities

163. The collaborative assessment with appropriate stakeholders (see task-timeline
matrix) of a number of poverty reduction issues will provide a holistic analysis and at thesame time enable the stakeholders to be part and parcel of the process of formulation of
the PRSP, hence increasing understanding and appreciation of poverty, and the sense ofownership of the emerging poverty reduction strategy. All stakeholders, including theinternally displaced persons (IDPs), ex-combatants and their spouses, women and youths
will participate in determining the causes of poverty and the impacts of existing
interventions on the poor. With regard to access to land and credit issues, women andyouths will be the key collaborating stakeholders. Consultants, working together with the
PASCO and SPP/TC, will be needed for executing the required participatory assessmentof poverty reduction issues.
5.2.3 Drafting of the PRSP
164. Following the review of the draft PRSP outline by the PASCO and Working
Committees on the basis of the outcomes of the first stakeholder consultative workshop,
the agreed detailed PRSP outline will be apportioned among the working Committees toinitiate the drafting of the PRSP. The initial draft will be discussed at a national
stakeholder consultative workshop. The workshop comments will be incorporated into arevised draft, which will subsequently be finalised. The final draft will be submitted to49

Cabinet for approval before presenting it to the Executive Boards of the World Bank and
IMF. The endorsement of the PRSP document by the Bretton Woods Institutions will
pave the way for its dissemination.
5.2.4 Technical Assistance Requirements
165. The preparation of the full PRSP requires a full time Coordinator and theexpertise of high level and professional consultants with a good knowledge of Sierra
Leone and sound experience in the various areas of interest. International consultants
will work with and train their national counterparts in a multidisciplinary, integrated andcoherent team. A senior consultant acting as team leader for the entire duration of theexercise will coordinate the work.
166. The consulting team will include the following members:i. An international consultant and team leader specialized in the designing, planning andimplementation of Poverty Reduction Programmes with a solid field experience in West
Africa in general and Sierra Leone in particular;
ii. A second international consultant specializing in Strategic Planning applied to public
programmes and projects;iii. Other consultants, particularly locals, with expertise in the areas of Public
Expenditure Review; statistical analysis and targeting; participation and gender issues;social funds, income generating activities and micro-finance; education and training;
health; water and sanitation; environmental issues; and NGOs. Poverty and management
information system specialists will also be needed.
167. The national consultants will act as intermediaries between local actors and theconsulting team to ensure the continuous unfolding of the process. The consulting teamwill carry out its work programme within PASCO, as part of the institutional framework
set up by Government.

50

Table 5.1:

Indicative Output/Task-Timeline for the PRSP Preparation: June 2001-

December 2002
Expected Output/Task
1. Preparation of the I-PRSP• Finalisation of draft• Revised Draft Submitted to
PRSC/IMC• Draft I-PRSP submitted to cabinet
for approval• Approved Draft I-PRSP submitted
to IMF, World Bank, ADB, EU,
DFID, UK and other donors forcomments and reviews• PRSP preparation budget proposal• Final I-PRSP Submitted to Boardsof IMF and World Bank
2. Consultative Process on the full PRSP
• Consultation with political andtraditional leaders• Consultation with senior
government functionaries• Consultation with NGOs
• Consultations with civil society• Stakeholder technical workshops• National consultative workshop• Radio and TV discussion groups• National seminar on draft PRSP
• Technical workshops fordiscussing initial results withstakeholders
3. Participatory data collection• Impacts on existing programmeson the poor
• Perceptions of the poor of poverty• Empowering women and youths toaccess credit and land
• Best strategy to reduce poverty(trickle-down or directintervention)• Monitoring indicators andmechanisms• Best governance strategy forservice delivery at the local level• Access conditions for micro-credit
programmes• Budget tracking & Service delivery• Public expenditure reviews (PER)

Responsibility
PRS/TCTime Frame
April 2000-June 2001

PRS/TC
Staffs of IMF andWorld BankMay 2001
June 2001

PASCO and SPP/TC
Consultants

June 2001-April 2002

PASCO
SPP/TC
Consultants
NGOs
MTEF/TC

June 2001-January
2002

51

The PER will extend
beyond 2001

Expected Output/Task
4. Diagnostic Policy and Sector Reviews andStudies• Poverty profile update, including
incidence and causes• Developing of pro-poor economic
growth strategies, including
sectors, micro-credit andtransformation of the informal
sector• Sector policy reviews and analysesof their growth potentials• Assessment of the impact of
HIV/AIDs on the labour force andthe cost of curbing the disease
5. Monitoring & Evaluation Strategy• Revised monitoring and evaluation
indicators• Poverty and annual service
delivery surveys• SPP focus group discussions• PER• Dissemination and publications of
M&E results
6. Drafting of the full PRSP
• Detailed chapter outline and timeframe for drafting of PRSP• Working Committees for drafting
PRSP• PRSP chapters assigned to drafting
Working Committees• Draft PRSP submitted to PRSC
• Revised draft PRSP submitted toInter-ministerial committee• Revised draft PRSP submitted tocabinet for approval• Revised draft PRSP submitted to
IMF, World Bank, ADB, EU and
DFID, UK
• Dissemination of PRSP
• Submission of PRSP to WorldBank and IMF Boards

Responsibility
PASCO, Working
Committees
Consultants

Time Frame
June-December 2001

PASCO
SPP/TC, MTEF/TC
NGOs
Central Statistics
Office (CSO)

June 2001-November
2002

PASCO, Working
Committees

July 2001–September
2002

March 2002
May 2002
June 2002
July-September 2002
December 2002

52

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1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
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12.
13.
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15.
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22.
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Annual Health Transition Plan, January-December 2000, Ministry of Healthand Sanitation, Republic of Sierra Leone
Annual Statistical Digest 1998, Central Statistics Office, Ministry ofDevelopment and Economic Planning.
Baseline Service Delivery Survey Report-Government of Sierra Leone,2000
Bank of Sierra Leone Bulletins, Various Issues. 1994-2000
Economic Bulletins, Various Issues, Economic Policy and Research Unit,
Ministry of Finance, Republic of Sierra Leone.
Economic Dimensions of the Civil Conflict in Sierra Leone (Paper presented
in Germany in November 2000 by the Minister of Finance.
Follow-up Monitoring report on Baseline Service Delivery SurveyGovernment of Sierra Leone
Government Budget and Statement of Economic and Financial Policies for
2001-Government of Sierra Leone.
Human Development Report 2000, United Nations Development Programme
Integrated Approach to Aid Coordination (IAAC) Baseline Survey report on
Seven Sector/ Thematic Areas (2000)
Integrated Health Sector Investment Project (Supplemental Plans for Selected
Programmes, January-December 2000, Ministry of Health and Sanitation,
Republic of Sierra Leone.
Interim Poverty Reduction Strategy Paper (PRSP), February 2000, Republic ofMozambique.
Labour Force Survey Report 1988, Central Statistics Office, Ministry ofDevelopment and Economic Planning.
National Action Plan for Poverty Alleviation, August 1996, Republic of Sierra
Leone.
National Education Action Plan 1995-2000, June 1994, Republic of Sierra
Leone.
National Education Master Plan, 1997-2006, Ministry of Education, Republicof Sierra Leone.
National Environment Action Plan, Vol.1, Department of Lands, Housing andthe Environment, October 1994, Republic of Sierra Leone.
National Health Action Plan, February 2000, Republic of Sierra Leone.
National Health Sector Study, Directorate of Planning and Information,
Ministry of Health and Sanitation, Republic of Sierra Leone, 1995.
National Symposium 2000, Second State of Nations Report (December2000)
National Resettlement, Rehabilitation and Reconstruction Programme, Status
Report, March 1997, Republic of Sierra Leone.
National Strategy Document, March 1997, Republic of Sierra Leone
Public Investment Programme, 1997-1999, Republic of Sierra Leone

53

25.
26.
27.
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Resettlement, Rehabilitation, Reconstruction and Recovery Programme for
Sierra Leone, the Government of Sierra Leone, 1996.
Sierra Leone National Security Policy Paper, the National Security Adviser’s
Office, 2000.
Sierra Leone: Toward a Strategy for Poverty Alleviation, 1997, World Bank
Survey Report on the status of women and Children (MICSII)-Government of
Sierra Leone, November 2000.
National Policy on Gender Mainstreaming, Ministry of Social Welfare
Gender and Children’s Affairs, (2000).
National Policy on the Advancement of Women, Ministry of Social Welfare,Gender and Children’s Affairs, (2000).
National Symposium 2000, Second State of Nations Report (December, 2000)

54

LIST OF ANNEXES
PAGE
Annex 3.1a: Sierra Leone I-PRSP Policy Matrix, 2001-2005

56

Annex 3.1b: Sierra Leone Key Monitoring indicators andTargets in Transitional Period (2000-2002)

63

Annex 3.2: Selected Economic and Financial Indicators, 1996-2003

65

Annex 4.1: Sierra Leone National Development Priorities, 1998-2000

66

Annex 4.2: Regional Development Priorities, 2000

67

Annex 4.3: National Level Smiley Game Results, 2000

68

Annex 4.4: Northern Region Smiley Game Results, 2000

69

Annex 4.5: Western Area Smiley Game Results, 2000

70

Annex 4.6: Eastern Region Smiley Game Results, 2000

71

Annex 4.7: Southern Region Smiley Game Results, 2000

72

Annex 5.1: Sierra Leone PRSP Governance Framework

73

55

Annex 3.1a: Sierra Leone: Interim Poverty Reduction Stratregy Paper (I-PRSP) - Policy Matrix
Policy Area

Objectives

I. National Security and Good GovernanceTransitional Period- Improved personal safety(Ongoing - 2002)- Improved safety for personal
property

Strategies and Measures- Disarm and demobilize all combatants except thenational army-

Engage in peaceful political dialogue and military option
Restructure and retrain the SLA and prison officers
Implement reintegration programme
Provide Social Safety nets Funds (RRR, NGOs)
Retrain the police
Initiate community policing on a pilot basis- Improved accountability and transparency- Initiate result-based monitoringof service delivery/conduct corruption survey- Improved participatory development- Improve scope of popular particiaption inprogramme planning and monitoring- Initiate the rehabilitation of facilities for theadministration of justice- Improved administrative justice andhuman rights- Improved local management capacity
and institutions- Initiate the rehabilitation of the civil service training college- Implement proposed TA project to build capacity of economic
management units- Democratically elected parliament andpresident- Ensure a non-partisan, efficient, and functional

Broad Indicators

2000 Base(Indicators for Transitional Period would continue to be monitored
in the medium term)

Level- Physical Security (Popular Benchmark)- % of combatants disarmed, demobilised- % of ex-combatants reintegrated into civilian life

1.9 (Max. 4 on Smiley Scale)5929- % of Chiefdoms under Government control

47- Community Integrity (Popular Benchmark)- Reported cases of financial crimes

1.9 (Max. 4 on Smiley Scale)- % chiefs in residence (Paramount or Regent)electoral commission- Conduct democratic parliamentary and presidential elections

Medium-Term(2003 - 2005)- Improved community service delivery
mechanisms- Restore local community administration- Extend community policing nation-wide- % of functional local administrative units- Democratically-elected district councils
restored- Conduct democratic district council elections- Conduct local chiefdom chieftaincy elections- % District Councils elected and functional- Free and fair elections implemented (in %)- Improved basic service delivery- Sustained result-based monitoring ofservice delivery-- Transparency & Accountability Index

Implement fiscal decentralization
Sustain the operations of the civil service training college
Improve the performance of the judiciay facilities
Conduct full-blown result-based monitoring of service
delivery survey- Conduct living standard survey- Mount effective campaign for anti-corruption, human rights,
enforcement and implementation of the constitution00Annex 3.1a: Sierra Leone: Interim Poverty Reduction Stratregy Paper (I-PRSP) - Policy Matrix
Policy Area

Objectives

II. Re-launching and Reviving the Economy
A. Attainment of macroeconomic stability(Transitional/Medium-Term Period)
A1. Fiscal Policy- Enhance domestic revenue
mobilisation- Improve effectiveness of public
expenditure- Enhance and Improve quality ofservice delivery to the poor

Strategies and Measures- Reduce the primary fiscal deficit andCentral Bank financing of deficit- Strengthen tax administration andexpand the tax base
- Enhance the mobilisation of non-tax revenue- Establish independent revenue authority- Rationalise indirect tax system and harmonise
rates with neighbouring countries- Introduce broadbased consumption tax (VAT)- Undertake participatory public expenditure review (PER)- Introduce a Medium-Term Expenditure Framework (MTEF)- Complete verification of civil service payroll- Reallocate expenditures to reflect the poverty prioritiesof the population- Ensure public expenditure reach the poor
- Enhance expenditures to social sectors consistent withrequirement to reduce poverty and build capabilities- Monitor improvements in service delivery using the SPP
and MTEF framework

Broad Indicators

2000 Base(Indicators for Transitional Period would continue to be monitored
in the medium term)

Level- Annual GDP growth rate (%)- Primary fiscal balance(% of GDP)
- Domestic revenue (% of GDP)

7.3
11.7

- Urban-rural public spending ratio- Social spending (% of non-interest
non-salary recurrent expenditures)- Western-Northern-Eastern-Sothern region
public spending ratio

35.5- Annual inflation rate (%)-0.9- Gross international reserves(in months of imports)

1.5

A2. Monetary Policy and Financial Sector Reforms- Improve effectiveness of monetary
policy- Improve and enhance credit facilities
to activities in which the poor are mainly
engaged in- Stable and viable financial system

A3. External Sector Policy
i. Exchange system- Maintain flexible exchange system- Build foreign exchange reserves- Manage money supply in relation to inflation
objectives- Promote micro-financing schemes and institutions to increasefinancial intermediation in rural areas- Implement the revised Banking and Bank of Sierra Leone Acts
- Introduce other financial institutions Act- Enhance the monitoring and supervision of the foreignexchange market- Enforce open limit positions for commercial banks to facilitate
inter-bank trading and development of inter-bank foreignexchange market- Review policy on capital account transactions with the aimof gradually liberalising the capital accountii. External debt
management- Reduced debt service burden and improved
financial relations with all external creditors- Undertake borrowing only on concessional terms
Limit new short-term borrowing and adhere to ceilings regrading
new non-concessional public and publicly guaranteed borrowing- Develop a well-coordinated programme for debt relief

iii. Trade Policy- Liberalised trade regime- Minimise discretionary exemption on customs duties throughthe strict enforcement of existing legislation- Enforce duty drawback system

Annex 3.1a: Sierra Leone: Interim Poverty Reduction Stratregy Paper (I-PRSP) - Policy Matrix
Policy Area

Objectives

B. Private Sector Development
Transitional Period- Enhanced capacity of returning(Ongoing - 2002)
population to restart microenterprises

Medium-Term(2003 - 2005)

C. Economic Sectors
C1. Agriculture
Transitional Period(Ongoing - 2002)- Improved livelihood for microentrepreneurs- Improved efficiency of small andmedium-scale enterprises- Improved incentive structure for SMEs

- Improved livelihood of the farming and fishing
population of refugees, IDPs and rural hostcommunities

Strategies and Measures- Improve access to microfinancing and basic management skills- Provide business development services tomicroenterprises- Re-establish and expand growth centres forskills development- Encourage linkages between informal and formal sectors

2000 Base
Level- Opportunity for Advancement (Popular Benchmark)- Annual volume of bank deposits (Million of Leones)- Volume of micro-credit accessed by microenterprises- Minimize legal and administrative bottlenecks for SMEs
- Implement a new Investment code with incentives for SME- Assist returned refugees and IDPs with basic improved inputs,
food-for-work and technical advice/extension services- Rehabilitate rural extension facilities

Encourage community reafforestation and fuelwood lots
Sensitise communities on sustainable forestry management
Rehabilitate partially developed inland valley swamps
Encourage the timely production of reliable agricultural statistics- Food Security (Popular Benchmark)- Total volume of food aid (in daily adult food equivalents)
Food consumer price index- % of returning refugees & IDPs provided withfarming inputs- Forest acreage replanted (in hectare)- Review role of Government, NGO and CBOs in agriculture- Strengthen farming-related CBOs

- Improved food security- Improve rural infrastructure: feeder roads and market
facilities- Facilitate farming popluation's, especially women and youths'
access to basic productive resources (credit, land, technical advice)- No. of farming and fishing population
graduating from humanitarian relief- % national food requirement produced locally- Volume of imported rice (tons)- Assist with production of seeds
Promote vegetable production and crop diversification- Restock small ruminants and short cycle animals
including poultry and rabbits- Intake of energy food (% of recommended Kg)- Intake of protein (% of recommended Kg)- Food parity price index- Improved rural livelihood and reduced
community malnutrition- Implement pro-women and -youth land, credit andtechnical advice policies- Diversify sources of productive resources- Strengthen household food security information andearly warning system- Improve access to extension services and business skills- Improve supply of improved seeds, tools, fertilizers andlow cost post-harvest technologies- Improved private sector, NGO and CBOparticipation in the delivery of basic
agricultural inputs and services- Provide appropriate NGO and CBO policy framework- Focus government's role on policy formulation,
coordination, and monitoring

1.9 (Max. 4 on Smiley Scale)

4000
800

- Crop acreage under developed IVS(% of total crop acreage under IVS)

- Improved participation of NGOs and
CBOs in agricultural service andinput delivery- Increased food output

1.8 (Max. 4 on Smiley Scale)
181734- Develop and implement a pro-SME policy framework-

Medium-Term(2003 - 2005)

Broad Indicators(Indicators for Transitional Period would continue to be monitored
in the medium term)- Farmgate price index for a basket of agricultural- products produced by small-scale farmers
Average rice yield (Kg/ha)- Agricultural export (Million of Leones)

0

1.17
996

Annex 3.1a: Sierra Leone: Interim Poverty Reduction Stratregy Paper (I-PRSP) - Policy Matrix
Policy Area

Objectives

C2. Land tenure policy - Improved and equitable access to land
Medium-Termfor productive activities(2003-2005)

C3. Infrastructure
Transitional Period(Ongoing - 2002)- Improved land and sea
access to markets and services- Efficiently managed road fund
- Efficiently functioning SLRA and RTA

Medium-Term(2003 - 2005)- Improved access to market centers- Low cost transportation for urban
workers

C4. Mining Sector
Transition Period - Improved livelihood of the artisanal(Ongoing-2002)
population of refugees and IDPS

Medium-Term(2003-2005)- Improved livelihood of small-scale
entrepreneurs in the vicinity of mining
centresC5. Tourism Development
Medium-Term- Improved livelihood of small-scale(2003-2005)
holders in tourist areas

Strategies and Measures

Broad Indicators

2000 Base(Indicators for Transitional Period would continue to be monitored
in the medium term)

Level- Review the agricultural land tenure system- Craft a new agricultural land tenure policy- Establish an efficient land management information system- % women accessing agricultural land-

- No. of villages accessible by motorable feeder road
- Transport sector services consumer price index- Cummulative length of feeder roads rehabilitated (Km)510

- Organise miners into cooperatives- Enforce the current mining policies- Value of official diamond exports (LE M)- Number of licensed artisanal mining

20000
700

- Encourage small-scale economic activities to service key
mining centres within the context of an integrated
internal mining economy- Encourage local and foreign investment in mining andin community infrastructure- Encourage the rehabilitation of depleted alluvial mining areas- Opportunity for Advancement in mining areas (Popular Benchmark)- Review the 1982 Tourism Master Plan and the 1990 Tourism
Development Act- Rehabilitate tourist sites- Diversify tourism activities- Undertake tourist promotion campaigns- Facilitate access to credit plus of small-scale entrepreneurs in tourist
districts- Opportunity for Advancement in tourist areas (Popular Benchmark)Rehabilitate major trunk roads
Construct some permanent bridges
Rehabilitate key coastal/river landing/jetties
Promote community rehabilitation and maintenanceof feeder roads and bridges- Sensitize communities on the rationale for sustainedroad maintenance- Promote use of non-motorized transport- Undertake road safety campaigns- Strengthen regulatory framework- Implement SLRA and RTA reforms- Continue to rehabilitate and maintain trunk and feeder
roads, and bridges- Construct and maintain new roads- Promote private sector and community participationin road construction and maintenance- Continue to enforce SLRA and RTA functions- Strengthen regulatory framework- Acreage of depleted areas rehabilitated- Number of functioning tourist sites- Number of enterprises establishedAnnex 3.1a: Sierra Leone: Interim Poverty Reduction Stratregy Paper (I-PRSP) - Policy Matrix
Policy Area

Objectives

Strategies and Measures

Broad Indicators

2000 Base(Indicators for Transitional Period would continue to be monitored
in the medium term)

Level

III. Social Programmes and Sector Development
A. Education
Transitional Period(Ongoing - 2002)- Increased school enrollment from
45% in 2000 to 55% in 2002
- Increased student retention- Improved quality of basic education- Introduce universal free primary education-

Expand free school nutrition and medical programmes
Raise community awareness for educating the girl child
Equip schools with teaching and learning materials
Provide basic textbooks to schools
Supply science and recreational
equipment to schools- Provide school bus transport service- Initiate supply of teaching and learning materials to training colleges- Initiate rehabilitation of school infrastructure and facilities

Medium-Term(2003 - 2005)- Improved employment skills of youths- Introduce technical-vocational training of youths at community
educational and trade centres- Increased access to quality basic
education- Introduce compulsory and universal free primary schooling to basic
education- Complete rehabilitation of school infrastructure and facilities- Provide educational institutions with facilities and equipment for
pupils/students with special needs- Increase number of trained and qualified teachers- Rehabilitate and expand teacher colleges and schools- Provide teaching and learning materials to training colleges- Strengthen monitoring and supervision of school curriculum- Reintroduce district town libraries- Establish adult training centers- Provide more teachers in adult education- Upgrade technical and vocational institutes- Review school and college curriculum- Introduce on the-job-training programmes- Promote education-employment researchoriented development- Increased access of handicaps
to quality basic education- Increased quality of primary andsecondary education- Increased adult literacy rate from 25%
in 2003 to 40% in 2005
- Improved employability ofcollege graduates- Opportunity for Advancement (Popular Benchmark)- Gross primary school enrollment rate (%)- Education expenditure in rural areas (% of GDP)
- Pass rate at national Basic Certificate Examination- Retention rate
- % of girls enrolled in primary schools

1.8 (Max. 4 on Smiley Scale)42- Number of schools rehabilitated and reconstructed

312- No. of trained and qualified teachers

11993- Student learning achievement- % Literacy rate
- % of youths successfully trained and employed

30

70
40

- % School completion rate

- Pupil teacher ratio

36:1- % Adult illiteracy rate

32Annex 3.1a: Sierra Leone: Interim Poverty Reduction Stratregy Paper (I-PRSP) - Policy Matrix
Policy Area

Objectives

B. Health and nutrition, Water and Sanitation
Transitional Period- Reduced maternal and infant mortality(Ongoing - 2002)- Reduced prevalence of STD/HIV/AIDS
malaria, laser fever and others

Strategies and Measures-- Reduced incidence of water
borne diseases- Improved supply of safe drinking
water- Improved rural and urban sanitation

Medium-Term(2003 - 2005)- Increased access of the
population to Primary
Health Care services- Increased access to secondary
and tertiary health care services- Reduced spread of STDs/HIVs/AIDs- Improved access to potablewater supply

C. Housing andResettlement
Transitional Period(Ongoing-2002)

Medium Term
2003-2005- Regenerated communities-

Improve health care service delivery mechanisms
Implement the expanded programme of immunization (EPI)
Promote the use of treated mosquito bednets
Strengthen drug cost-recovery system
Expand institutional feeding of under-fives and infants
Retrain health service delivery personnel
Expand health coverage of the more vulnerable groups
Rehabilitate/reconstruct Peripheral Health Units
Intensify community awareness of reproductive healthand family planning issues
Provide health care services for HIV/AIDS, STDs,
reproductive health and family planning activities
Conduct information, education & communication (IEC) campaigns
Assist the rehabilitation/construction of protected low cost watersupply systems and ventilated improved pit (VIP) laterines
Chlorinate water sources

Broad Indicators

2000 Base(Indicators for Transitional Period would continue to be monitored
in the medium term)

Level- Family Health (Popular Benchmark)- Child immunisation rate (%)- Infant mortality rate (per 1000)- Life expectancy at birth (years)- Crude death rate
- Crude birth rate (%)- Population growth rate (%)- Mobidity rate
- HIV/AIDS awareness rate (% of women)- Malaria incidence rate
- No. of PHUs reconstructed and equipped- Health expenditure in rural areas (% of GDP)
- Under five malnutrition rate (%)- Incidence of water-borne diseases- No. of insecticide impregnated bednets in use- % of population with access to safe water supply

2.0 (Max. 4 on Smiley Scale)
33
170
43
47

12.7

27
18482
54

- Improve community awareness of sanitation issues- Strengthen and expand existing MCH, reproductive health/familyplanning activities- Strengthen service delivery mechanisms- Continue to equip and staff secondary and tertiary health institutions
Ensure the supply of affordable AIDS drugs- Intensify the promotion of the use of STD/HIV/AIDS preventive
measures- Assist the construction and maintenance of low cost potablewater supply systems- Intensify environmental sanitation- Facilitate the return and resettlement of refugees
and IDPs- Support rehabilitation of community facilities- Improved supply of community basic
services- Increased access to affordable shelter- Rehabilitate and construct affordable shelter- Improved supply of low-cost
housing units- Encourage private sector developmentof affordable shelter- Population-doctor ratio- Population-hospital beds ratio- % of people with access to potable water supply- No. of registered IDPs
- No of refugees and IDPs resettled- No. of returned persons housed- No of community facilities reconstructed with assistance- No. of housing units constructed with assistance- Occupancy rate

2500000Annex 3.1a: Sierra Leone: Interim Poverty Reduction Stratregy Paper (I-PRSP) - Policy Matrix
Policy Area

Objectives

Strategies and Measures

Broad Indicators

2000 Base(Indicators for Transitional Period would continue to be monitored
in the medium term)

Level

D. Social Safety Net,
Vulnerable groups'
special needs andGender equality
Transitional Period(Ongoing - 2002)

Medium-Term(2003 - 2005)- Improved cushion for the poorand vulnerable- Provide support to the homes of deserted/orphaned children,
disabled, elderly and drug addicts- Reintegrate street children into communities and families- No. of children assisted- No. of disabled assisted- Juvenile crime rate
- % of disabled in schools and vocational centres- Provide children counselling- Enforce parental duties and responsibilities- Rehabilitate and support remand and approved/reform schools- % of children in remand and reform schools- Provide microcredit facilities for the poor and vulnerable- No. of elderly assisted- No. of drug addicts assisted- Improved economic and social security- Increased gender awareness-

Provide social action programmes
Encourage employment of people with special needs
Initiate social security/pension schemes
Undertake gender mainstreaming of public, government departments
and NGOs- % of people employed with special needs- % of women holding senior public and political positions

Annex 3.1b: Sierra Leone: Key Monitoring Indicators and Targets in Transitional Period (2000-2002)
TARGETS

DEFINITION

INDICATOR
1.0 National Security and Good Governance
1.1 Security

Dec. 2000 (Est)

Dec.2001

Dec. 2002

REPORTING

SOURCE OF INFORMATION.

Number of ex-combatants

Cumulative head count of combatants disarmed and demobilised.

26,69945,000----quarterly

NCDDR

Number of ex-combatants reintegrated into civilian life
Number of persons resettled

Cumulative head count of ex-combatents reintegrated into civilian life
Cumulative head count of internally displaced persons
and refugees resettled (civilians)

12,909045,00047,948----250000

quarterly
quarterly

do
Office for the Co-ordination of Humanitarian
Affairs and NCRRR

Estimated number of registered IDPs in camps

Estimates of officially registered IDPs

250,000

100,000

20000

monthlydo

Percentage of chiefdoms under government control
Number of districts with elected councils
Service delivery scorecard

Percentage of chiefdoms declared safe and under government control
Cumulative number of districts with elected councils
Key household and community indicators for monitoring progress in service delivery

48
0
Done

100
0
To be done100
12
To be done

quarterly
annualsemi-annual and annual

2. Relaunching the Economy
a. Macroeconomic Management
Gross domestic product (GDP) growth rate (%)
Annual inflation rate (%)
Domestic revenue (% of GDP)
Social Sector spending (% of non-interest, non-salary recurrent
expenditures)

Annual percentage change of the GDP
Percentage change of the consumer price index on an annual basis
Total domestic revenue , excluding grants, as a percentage of GDP

3.8
-0.9
11.7

5.0
8
12.3

6.0
5.0
NA

annualmonthlymonthly and quarterly

Central Statistics OfficedoMinistry of Finance

Percentage of recurrent spending on the social sectors

29.8

34.7

NA

quarterly and annual

doGross international reserves (in months of imports)

Official reserves measured in months of imports

1.5

2.0

2

monthly and annual

Bank of Sierra Leone

1.2 Governanceb. Economic sectors
2.1 Agriculture
Paddy Rice production ( ' 000s of metric tons per hectare)

Annual domestic production of rice

198,139

449,005

528,676

annualRice yield (metric tons per hectare)
Number of IVS developed (hectares)

Average rice production per hectare (Mt/metric tons)
Number of inland valley swamps developed and rehabilitated

1.08
200

1.15
400

1.17
600

annualsemi- annual

Number of registered artisanal mining groups

700

1000

1500

AnnualGovernance Reform Secretariat
Electoral Commission
Budget tracking and service delivery
surveys and expenditure reviews

Ministry of Agriculture, Forestry
and Marine Resourcesdodo

2.2 Mining
Number of artisanal miners (Number)

Ministry of Mineral ResourcesAnnex 3.1b: Sierra Leone: Key Monitoring Indicators and Targets in Transitional Period (2000-2002)
TARGETS

INDICATOR
2.3 Infrastructure
Transport Sector
Kilometre of functioning feeder roads

DEFINITION

Cummulative length of km of feeder roads rehabilitated

Dec. 2000 (Est)

Dec.2001

Dec. 2002

REPORTING

510

910

4074

annual

SOURCE OF INFORMATION

Transport Sector Project,
Ministry of Transport & Communications

3. Social Sectors
3.1 Education

40*

47

58

annualMinistry of Education

Gross enrollment rate (%)
Trained and qualified teachers

Number of girls enrolled in primary schools as a percentage of the number of children in
the age cohort for that level of education
Number of boys and girls enrolled in primary schools as a percentage of the number ofchildren in the age cohort for that level of education
Number of trained and qualified teachers in primary schools

42*
11993

49
11993

59
12332

annualannualdodoNumber of educational institutions rehabilitated & reconstructed

Number of educational institutions rehabilitated and reconstructed

312

363

435

annualMinistry of Education & NCRRR

Student learning achievement (NPSE)

Percentage number of passes at NPSE

70

71

73

annualWest African Examinations Council

33
43
27
18,48265
48
22
20,000

70
61
17
50000

annualannualannualannualMinistry of Health & Sanitation and UNICEF
do
do
do

13

15

20

annualdo

Female enrollment rate (%)

3.2. Health, Nutrition, Water and Sanitation
Child immunisation rate
Number of Primary Health Units (PHU) rehabilitated and functional
Prevalence of under five malnutrition (%)
Number of insecticide impregnated bed-nets in use

Rate of vaccination coverage of children under one year of age for dominant diseases
Number of rehabilitated and functional primary health units
Percentage of under weight children under age five
Official number of treated bed-nets in use by pregnant women and children

Awareness rate of HIV/AIDS (%)

Percentage of women of aged 15-49 who have sufficient knowledgeof HIV/AIDS transmission

Access to safe water- Overall- Rural
Number of new water wells constructed in rural areas
Number of VIP latrines constructed in rural areas

Households with access to safe water
Overall number of urban and rural households with access to safe water
Number of rural households with access to safe water
Total number of new water wells constructed nationwide per year by SLWACO
Total number of VIP latrines constructed nationwide per year by SLWACO

54
46
75
600

60
NA
75
310

63
NA
130
450

annualannualannualannaulSierra Leone Water Company (SLWACO)
do
do
do
do

Access to sanitary toilet facilities- Overall- Rural

Number per 100 of the population who have access to safe excreta disposal methods:- Nationwide- Rural

63
49

68
49

70
49

annualannualdodo* - The indicator 's level was obtained from the Multiple Indicator
Cluster Survey-2
NA - Not Available

Annex 3.2 Sierra Leone: Selected Economic and Financial Indicators, 1996-2004
1996
1997

1998
Act.

1999
Act.

2000
Act.

2001
Proj

2002
Proj

2003
Proj

2004
Proj

Annual percentage change, unless otherwise indicatedIncome and expenditure
Real GDP
GDP deflator
Nominal GDP
Consumer prices (end of period)
Consumer prices (annual average)

5.0
26.3
32.6
6.4
23.1

-17.6
16.8
-3.8
66.9
14.9

-0.8
27.0
26.0
-5.7
35.5

-8.1
25.0
14.9
36.7
34.1

3.8
6.1
10.2
-2.7
-0.9

5.0
8.0
13.4
8.0
8.0

6.0
5.0
11.3
5.0
5.0

7.0
5.0
12.3
5.0
5.0

7.0
5.4
12.7
5.0
5.0

28.3
17.8

11.3
4.3
8.9
7.5
17.6
16.7
1.2
5.8
-20.4
34.4

40.8
47.5
6.9
6.1
56.2
58.8
-2.6
-12.6
39.0
34.7

9.7
7.7
7.1
6.1
-11.6
-13.3
1.5
12.1
10.9
20.0

15.9
11.4
7.2
6.0
10.7
9.5
1.4
10.7
15.1
15.0

11.0
14.1
7.1
6.0
5.4
3.7
1.7
13.5
10.9
15.0

16.9
14.9
6.9
5.8
1.8
0.0
1.8
13.9
16.4
14.0

13.0
12.3
6.9
5.7
-4.4
-6.1
1.7
14.3
12.4
13.0

22.3
100.4
-3.3
32.1

9.5
49.3
0.9
…

27.6
37.4
1.8
…

33.4
-8.0
1.8
…

40.1
0.3
1.1
…

Money and credit
Broad money(including foreign currency deposits)(excluding foreign currency deposits)
Velocity (level, excl. foreign currency deposits)
Velocity (level, incl. foreign currency deposits)
Domestic credit 1/
Government 1/
Private sector 1/(annual percentage change)
Reserve money
Interest rate 2/

10.1
39.4
33.2
6.2
22.8
17.7
20

47.1
55.9
7.4
6.6
57.5
50.9
6.2
24.6
109.0
8.8

External sector
Exports( U.S.dollars)
Imports (U.S.dollars)
Terms of trade (-deterioration)
Real effective exchange rate (-depreciation)

3.2
53.7
-3.2
1.0

-16.0
-56.1
-0.5
24.3

-26.2
4.9
5.0
-27.7

-5.7
-19.9
-4.9
2.1

Consumption
Government
PrivateGross investment
Government
PrivateGross national saving
Gross domestic saving
Government
PrivateCurrent account balance, including official transfers
Current account balance, excluding official transfers
Goods and nonfactor services (net)
Unrequited private transfers and factor services (net)

103.7
10.9
92.8
11.0
3.3
7.7
0.2
-3.7
-0.8
-2.9
-10.8
-17.2
-14.7
-2.5

104.3
9.0
95.3
-2.4
1.5
-3.9
-3.4
-4.3
-3.6
-0.7
-1.0
-3.2
-1.9
-1.3

101.9
8.9
93.0
5.3
4.9
0.4
-1.0
-1.9
-1.6
-0.3
-6.3
-9.1
-7.2
-1.9

105.7
11.5
94.3
0.3
2.4
-2.1
-2.5
-5.7
-4.4
-1.3
-2.8
-8.0
-6.0
-2.0

108.1
16.7
91.4
8.0
6.3
1.7
-1.8
-9.2
-2.9
-6.3
-9.8
-18.1
-16.1
-2.0

103.0
16.2
86.8
21.0
15.0
6.0
9.9
-3.0
-4.0
1.0
-11.1
-25.8
-24.0
-1.8

106.3
15.8
90.5
24.5
15.6
8.9
7.7
-6.3
-3.1
-3.2
-16.8
-32.9
-30.8
-2.1

100.1
15.4
84.7
21.0
14.4
6.6
10.1
-0.1
-2.2
2.1
-10.9
-23.9
-21.1
-2.8

93.5
15.2
78.3
20.0
13.3
6.7
15.4
6.5
-1.0
7.5
-4.6
-16.8
-13.5
-3.3

Overall balance of payments

-2.9

-3.6

-7.1

-5.7

0.4

1.6

1.0

2.6

1.0

Government revenue 3/
Total expenditure and net lending 3/
Of which: current expenditure 3/
Overall fiscal deficit 3/(commitment basis, excluding grants)(commitment basis, including grants)
Domestic primary fiscal balance 3/ 4/
Domestic financing 3/External debt 5/

10.1
16.9
13.6

5.4
13.0
11.5

7.3
20.1
15.2

7.1
22.0
19.5

11.4
28.7
22.7

12.3
40.5
25.1

12.7
38.7
23.0

13.2
34.3
19.9

14.2
32.5
19.1

-6.8
-5.1
-1.6
2.7
118.5

-7.5
-7.0
-4.1
4.3
134.6

-12.8
-10.4
-3.8
4.0
175.7

-14.9
-9.5
-5.5
7.4
178.2

-17.3
-9.3
-5.5
0.1
188.0

-28.2
-13.8
-6.1
1.4
167.4

-26.0
-9.8
-5.0
0.6
146.7

-21.1
-8.1
-4.1
0.0
125.9

-18.3
-6.1
-3.0
-0.5
106.4

53.0
12.0

51.9
11.3

40.8
8.3

-265.069.0
2.0
1,678.0…

-210.379.0
2.2
1,885.2…

-161.590.0
2.3
2,125.3…

(In percent of GDP)

(In percent of exports of goods and nonfactor services)
Debt service due 6/
External interest due 6/

38.3
12.7

30.7
8.7

47.8
15.7

58.3
18.0

47.8
12.8

77.0
18.7

(In millions of U.S. dollars,unless otherwise indicated)
Memorandum items:
External current account balance, excluding
official transfers
Gross international reserves(in months of imports) 7/
GDP (in billions of Leones)
Exchange rate (Leones per U.S. dollars)-161.6
26.8
2.2
867.1
920.7

-27.5
38.5
2.8
834.5
981.9

-60.8
43.5
3.1
1,051.3
1,565.4

-53.0
38.3
2.0
1,207.7
1,819.3-115.049.6
1.8
1,330.3
2,089.3-192.957.6
1.6
1,507.9
2,020.0

Source: Sierra Leonean authorities and staff estimates and projections
1/ Changes as a percentage of beginning-of-period money stock (including foreign currency deposits
2/ Treasury bill rate (end period); for the 2000 revised program, end-June.
3/ Calender-year data.
4/ Domestic revenue minus total expenditure and net lending, excluding interest payments and externally financed capital expenditure and DDR program.
5/ Includes arrears
6/ Before debt relief
7/In months of imports of goods and services of subsequent year.

Annex 4.1: SIERRA LEONE NATIONAL DEVELOPMENT PRIORITIES, 1998-2000
Broad Area

Priority (%)
1999
22
24
16
17
21

2000
16
24
14
19
27

Annex 4.1: National Development Priorities
35

30

1998
2000

25

Priority (%)

Agriculture
Education
HealthGovernance
Security

1998
24
22
17
7
29.6

1999

20

15

10
1998, 781 Citizens
1999, 381 Citizens
52000, 413 Citizens

0Agriculture

Education

HealthGovernanceBroad Area

66

SecurityAnnex 4.2: SIERRA LEONE REGIONAL DEVELOPMENT PRIORITIES, 2000
Broad Area

Priority (%)
Western Northern Eastern Southern
Agriculture
14
18
13
18
Education
20
21
24
28
Health1215
16
12
Governance
23
18
16
23
Security
31
28
31
19

Annex 4.2: Regional Development Priorities, 2000

35
30
Northern

Priority (%)

25
20
15

Sthn.
Eastern
Western10

Western, 102 Citizens
Northern, 93 Citizens
Eastern, 105 Citizens
Southern, 106 Citizens

5
0

Se
cu
rit
y

tu
re

67

e
nc
na
er
ov
G

ul

lth
ea
H

ric

n
io
at
uc
Ed

Ag

Broad Area

ANNEX 4.3
NATIONAL LEVEL SMILEY GAME RESULTS
No. of Citizens:

Of which, males:

Of which, females:

412

###

###

% Level Shift(100% = 4
17%

1999

2000

Level Shift(units/columns)

Physical Security

1.2

1.9

.7

Food Security

1.5

1.9

.4

10%

Family Health

1.5

2.0

.4

11%

Opportunity for Advancement

1.2

1.8

.5

13%

Community Integrity

1.2

1.9

.7

17%

AGGREGATE SCORES (All Participants)

01

Physical Security

2

3

4

1.9

1.2

1.5

Family Health

1.5

Aug 1999 Total

Food Security

1.9

2.0

Mar 2000 Total

Opportunity for
Advancement

1.8

1.2

68

Community Integrity

1.4

1.9

GENDER DISAGGREGATED SCORES

0

1

2

3

4

Physical Security

Aug 1999 MaleAug 1999 Female

Mar 2000 MaleMar 2000 Female

Food Security

Family HealthOpportunity for
Advancement

Community Integrity

ANNEX 4.4
NORTHERN REGION SMILEY GAME RESULTS
No. of Citizens:90% Level Shift(100% = 4
-14%

1999

2000

Level Shift(units/columns)

Physical Security

1.6

1.1

-.6

Food Security

1.7

1.1

-.6

-15%

Of which, males:

60

Family Health

1.7

1.1

-.6

-14%

Opportunity for Advanceme

1.5

.9

-.6

-14%

Of which, females:
females

30

Community Integrity

1.6

.9

-.8

-19%

AGGREGATE SCORES (All Participants)

01

Physical Security

2
1.1

1.1

Family Health

1.1

0.9

Advancement

Community Integrity

0.9

1.6

1.7

1.7

Mar 2000 Total

Opportunity for4

Aug 1999 Total

Food Security

3

1.5

1.6

69
GENDER DISAGGREGATED SCORES

0

1

2

3

4

Physical Security

Aug 1999 MaleAug 1999 Female

Mar 2000 MaleMar 2000 Female

Food Security

Family HealthOpportunity for
Advancement

Community Integrity

ANNEX 4.5
WESTERN AREA SMILEY GAME RESULTS
No. of Citizens:

Of which, males:

###

71

2000

Level Shift(units/columns)

Physical Security

1.2

1.8

.6

Food Security

1.5

1.9

.4

10%

Family Health

1.6

2.0

.4

9%

1.1

1.5

.4

11%

1.3

1.6

.3

7%

Opportunity for
Of which, females:33% Level Shift(100% = 4
15%

1999

Advancement
Community Integrity

AGGREGATE SCORES (All Participants)

0

1

2

Physical Security

3

4

1.8

1.2

1.5

Family HealthAug 1999 Total

Food Security

1.9

2.0

1.6

Mar 2000 Total

Opportunity for
Advancement

1.5

1.1

Community Integrity

1.3

70

1.6

GENDER DISAGGREGATED SCORES

0

1

2

3

4

Physical Security
Aug 1999 MaleAug 1999 Female

Mar 2000 MaleMar 2000 Female

Food Security

Family HealthOpportunity for
Advancement

Community Integrity

ANNEX 4.6
EASTERN REGION SMILEY GAME RESULTS
No. of Citizens:

Of which, males:

###

84

2000

Level Shift(units/columns)

Physical Security

.7

2.5

1.8

Food Security

1.1

2.4

1.3

33%

Family Health

1.2

2.4

1.2

31%

.9

2.4

1.5

37%

.9

2.6

1.6

40%

Opportunity for
Of which, females:21% Level Shift(100% = 4
45%

1999

Advancement
Community Integrity

AGGREGATE SCORES (All Participants)

0
Physical Security

1

2

3

4

2.5

0.7

1.1

Family HealthAug 1999 Total

Food Security

2.4

2.4

1.2

Mar 2000 Total

Opportunity for
Advancement

2.4

0.9

Community Integrity

0.9

71

2.6

GENDER DISAGGREGATED SCORES

0

1

2

3

4

Physical Security

Aug 1999 MaleAug 1999 Female

Mar 2000 MaleMar 2000 Female

Food Security

Family HealthOpportunity for
Advancement

Community Integrity

ANNEX 4.7
SOUTHERN REGION SMILEY GAME RESULTS
No. of Citizens:###

Of which, males:

93

Of which, females:

20% Level Shift(100% = 4
19%

1999

2000

Level Shift(units/columns)

Physical Security

1.4

2.1

.8

Food Security

1.7

2.1

.4

10%

Family Health

1.6

2.2

.5

14%

Opportunity for Advancement

1.6

2.1

.6

14%

Community Integrity

1.7

2.4

.7

17%

AGGREGATE SCORES (All Participants)

01

Physical Security

2

4

2.1

1.4

1.7

Aug 1999 Total

Food Security

Family Health

3

2.1

2.2

1.6

Mar 2000 Total

Opportunity for
Advancement

2.1

1.6

Community Integrity

1.7

72

2.4

GENDER DISAGGREGATED SCORES

0

1

2

3

4

Physical Security

Aug 1999 MaleAug 1999 Female

Mar 2000 MaleMar 2000 Female

Food Security

Family HealthOpportunity for
Advancement

Community Integrity

Annex 5.1:

Sierra Leone PRSP Preparation Governance Framework

The governance framework for the preparation of the PRSP comprises three key
committees (that is, Inter-Ministerial Committee (IMC), Poverty Reduction Steering
Committee (PRSC), and Poverty Reduction Working Committees (PRWG)) and anational poverty coordinating office (the Poverty Alleviation Strategy Coordinating
Office (PASCO)).
The Inter-Ministerial Committee (IMC) approved by cabinet to oversee the process of
preparing and monitoring the implementation of the Interim PRSP, defined the overall
policy guidelines for the process. It will continue this role for the full PRSP.
Members are:
• Minister of Development and Economic Planning (Chair),• Minister of Finance,• Minister of Justice and Attorney-General• Minister of Health and Sanitation,• Minister of Agriculture, Forestry and Marine Resources (MAFE),• Minister of Social Welfare, Gender and Children’s Affairs,• Minister of Education, Youths and Sports• Minister of Internal Affairs,• Minister of Energy and Power,• Minister of Local Government and Rural Development,• Minister of Presidential Affairs,• Minister of Labour and Industrial Relations and Social security• Minister of Transport and Communication• Minister of Lands, Housing, Country Planning and the Environment• Commissioner, NCRRR.
The Poverty Reduction Steering Committee (PRSC) was established to manage thepreparation of the I-PRSP and the full PRSP with the following specific responsibilities:• Structuring all consultative processes,• Soliciting funding for the preparatory activities,• Providing technical backstopping to local consultants and staff from the World
Bank/IMF and other donors,• Preparing regular progress reports on the process for both Cabinet and the InterMinisterial Committee, and• Overseeing the work of all consultants.
The Committee also provides direction, guidance and technical inputs to the process, andsensitises Cabinet and Parliament on the process. It comprises technical/professional
heads of key Ministries, Departments and Agencies. These are:
• The Development Secretary (Chair),• The Financial Secretary,• The Cabinet Secretary, Cabinet Secretariat• The Chairman, Parliamentary Oversight Committee on Development,
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•
•
•
•
•
•
•
•
•
•
•
•
•
•

The Director-General, Medical Services,
The Director-General, Education, Youth and Sports
The Director-General, MAFE,
The Chief Engineer, Energy and Power,
The Director, Rural Development and Local Government and,The Director-General, Gender and Children’s Affairs,
The Director, Trade and Industry,
The Permanent Secretary/ Professional Representative, Lands Housing, Country
Planning and the Environment,
The Chief Social Development Officer,
University of Sierra Leone Representative,
SLANGO Representative,
Sierra Leone Labour Congress Representative,
Head of Governance Secretariat, Ministry of Presidential Affairs
Executive Secretary, NCRRR, andCommissioner of Labour, Ministry of Labour and Industrial Relations

The Poverty Reduction Working Committees (PRWCs), serving as sectoral/thematic
focal points will provide support to the PASCO to draft the various sectoral/thematic
sections of the PRSP. The PRWCs comprise the following:• Governance and National Security,• Macro-economic Policy and Private Sector Development,• Resettlement, Reconstruction and Reintegration (including transport infrastructureand services, housing, water and energy),• Agriculture, Natural Resources and Environment, and• Social Sector Development (including Education, Employment and Youths, andHealth).
The Poverty Alleviation Strategy Coordinating Office (PASCO) headed by a national
Coordinator is located in the Ministry of Development and Economic Planning. It will
coordinate the preparation of the PRSP, as well as monitoring the implementation of the
PRSP. Serving as a Technical Secretariat to the PRSC, it has the responsibility of:• Preparing minutes and briefs of all consultations,• Preparing detailed budgets for all activities and advising the PRSC on possible
funding sources,• Ensuring constant communication with members on the process,• Preparing background papers (when necessary) for all consultations,• Facilitating all consultations,• Monitoring the progress of implementation of all activities, and• Ensuring synergy with other on-going processes.
The PASCO staff team will include local and international consultants, and support staff.

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