Multi-Annual Strategic Plan
2014 - 2017

Burundi

Mali Benin Ghana Ethiopia Horn of Africa South Sudan Kenya Rwanda Burundi Uganda Grote meren Mozambique Palestinian Territory Yemen Afghanistan Bangladesh

Great Lakes Region

20142017
Embassy of the Kingdom
of the Netherlands
Bujumbura

Embassy team

MULTI-ANNUAL STRATEGIC PLAN

Content
1.

SUMMARY

1

2.

RESULTS OBTAINED 2008-2013 AND LESSONS LEARNT
2.1 Political space
2.2 Aid coordination and efficiency
2.3 Security and (international) legal order
2.4 Food security (including private sector development)
2.5 Sexual and reproductive health and rights (including family planning)

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3. BURUNDI - COUNTRY ANALYSIS
3.1 General and political analysis; binding constraints for development
3.2 Analysis of security and justice
3.3 Analysis of food security and economic development
3.4 Analysis of demographic development and reproductive health

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4.

PROGRAMMING 2014-2017
4.1 Long-term strategic outlook
4.2 Spearhead security and (international) legal order
4.2.1 Outcomes and outputs
4.2.2 Approach and modalities
4.2.3 Cross-cutting issues
4.2.4 Activities
4.2.5 Monitoring
4.2.6 Risks and mitigating measures

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4.3 Spearhead food security (incl. private sector development)
4.3.1 Outcomes and outputs
4.3.2 Approach and modalities
4.3.3 Cross-cutting issues
4.3.4 Activities
4.3.5 Monitoring
4.3.6 Risks and mitigating measures

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4.4 Spearhead sexual and reproductive health and rights
4.4.1 Outcomes and outputs
4.4.2 Approach and modalities
4.4.3 Cross-cutting issues
4.4.4 Activities
4.4.5 Monitoring
4.4.6 Risks and mitigating measures

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OTHER INTERVENTIONS AND INVOLVEMENT IN BURUNDI BY
THE NETHERLANDS

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FINANCIAL IMPLICATIONS

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5.

6.

In this revised Multi-Annual Strategic Plan (MASP), the principles of the policy paper "A world to gain: a new
agenda for aid, trade and investments” have been elaborated. The MASP applies for a period of four years
(2014-2017), but interim adjustments are possible: for example, in the case of major political or other
changes, or to improve alignment of Dutch initiatives with the EU Joint Programming.

Bujumbura MASP 2014-17

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Abbreviations
ACOTA
AMISOM
BNUB
BTC
CAPAD
CBI
CEPGL
COMESA
CNIDH
CSLP
CVR
DRC
EAC
EU
FAO
GIZ
GPE
HIV
IFDC
IOB
ISABU
ISSD
KIT
LGBT
MASP
MDNAC
MINAGRIE
MSP
NAP
NGO
NICHE
ODA
ORIO
PNSR
PSI
PUM
SDC
SGBV
SRHR
SSD
STI
SUN
UN

Africa Contingency Operations Training & Assistance
African Union Mission in Somalia
Bureau des Nations Unies au Burundi
Belgian Technical Cooperation
Confédération des Associations des Producteurs Agricoles pour le Développement
(Dutch) Centre for the Promotion of Imports from Developing Countries
Communauté Economique des Pays des Grands Lacs
Common Market for Eastern and Southern Africa
Commission Nationale Indépendante des Droits de l’Homme
Cadre Stratégique de croissance et de Lutte contre la Pauvreté
Commission Vérité et Réconciliation
Democratic Republic of Congo
East African Community
European Union
Food and Agricultural Organization
Deutsche Gesellschaft für Internationale Zusammenarbeit
Global Partnership for Education
Human Immunodeficiency Virus
International Fertilizer Development Center
(Dutch) Policy and Operations Evaluation Department
Institut des Sciences Agronomiques du Burundi
International Seed Sector Development
(Dutch) Royal Tropical Institute
Lesbian, Gay, Bisexual, Transgender
Multi Annual Strategic Plan
Ministère de la Défense et des Anciens Combattants
Ministère de l'Agriculture et de l'Elevage
Ministère de la Sécurité Publique
National Action Plan
Non Governmental Organization
Netherlands Initiative for Capacity Development in Higher Education
Official Development Assistance
(Dutch) Facility for Infrastructure Development
Programme National de Santé de la Reproduction
Private Sector Investment program or (in the context of Sexual and Reproductive
Health and Rights) Population Services International
Netherlands Senior Experts Program
Swiss Development Cooperation
Sexual and Gender Based Violence
Sexual and Reproductive Health and Rights
Security Sector Development
Sexually Transmitted Infections
Scaling Up Nutrition
United Nations

Bujumbura MASP 2014-17

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1. SUMMARY
Burundi features among the fifteen countries with which the Netherlands will maintain a long-term
bilateral aid relationship. The bilateral program in Burundi presented in this document is
an integral part of the regional approach for the whole Great Lakes region. The four Embassies in
the region (Kinshasa, Kigali, Kampala and Bujumbura) have developed a shared vision on regional
stability and development. They will work closely together not only in the implementation and
monitoring of the regional program, but also by closer coordinating the bilateral projects and
programs in the priority areas of Dutch development cooperation.
In a conflict ridden region Burundi has emerged over the past five years as a relatively stable
country. A long and bloody civil war ended in 2008 when the last rebel group decided to give up
fighting. Popular confidence in the security forces has increased considerably, a result to which the
Netherlands has contributed. However, the transition to more democratic and accountable
governance is far from finished. Underlying tensions in the Burundi society are still huge and a
return to violence cannot be excluded. A decisive moment midway the period of this Multi-Annual
Strategic Programme (MASP) 2014-2017 will be the elections in 2015.
Huge poverty and malnourishment and high population growth add to the risks of a peaceful
transition to a developmental state. In all economic and social statistics Burundi lags behind its
neighbours, perhaps with the exception of war struck eastern part of the Democratic Republic of
Congo (DRC). The country ranks second on the list of most food insecure countries, with 75% of its
population undernourished, in spite of the fact that 90% of the Burundians are active in
agriculture. Land scarcity is becoming an ever bigger issue and outside agriculture there are few
jobs, adding to an alarming lack of economic perspective for the on average very young population.
In the policy note ‘A world to gain’ Burundi therefore rightfully falls in the category of countries
with which the Netherlands will mainly have an aid relationship. These are countries that are
unable to reduce poverty effectively without assistance. This is clearly the case in Burundi. More
than fifty per cent of the budget is financed by aid and foreign direct investments are still
negligible. To grow out of poverty Burundi will need to show political will and leadership. In
addition funds to invest in people and infrastructure are indispensable
The overall goal of the MASP is to help improve security and diminish the threat of instability
and new violence in Burundi.
The program will follow an integrated approach, linking diplomacy, defence and economic
development to help consolidate stability. It is widely recognized that development is not possible
without security and, conversely, long-term security is only sustainable if there is a prospect of
development. An economic policy that reduces inequality and stimulates local production and
employment creates alternatives for violence, criminality and corruption1. There is a clear link here
to the regional challenge. Stability in Burundi contributes to stability in the region, while at the
same time a more stable region is a necessity for Burundi: the landlocked and overpopulated
country will not be able to grow out of poverty on its own. It will need regional infrastructure,
markets and opportunities.
The Netherlands will continue to support Burundi in three complementary thematic areas. Gender
and youth issues will be addressed in all areas. The interventions will take stock from lessons
learned.

The program for security and justice will promote more inclusive and effective politics and
governance and will reinforce the security sector including the penal chain.

The food security program will focus on increased, sustainable and climate smart
agricultural productivity, mainly concentrated in three provinces most affected by security
problems, neighboring DRC and Rwanda.

The program for sexual and reproductive health and rights will focus on availability of
modern birth control measures, on more open communication on sex and gender friendly
behavior, and other measures to combat sexual violence.
The planned interventions are aligned to the priorities of the Burundian government and they fit in
the joint programming by the European Union (EU). As fiduciary and corruption risks are
considerable in Burundi, direct aid to government will be closely assessed and monitored. The three
1

Advisory Council on International Affairs - Advice on "Criminality, corruption and instability" (2013)

Bujumbura MASP 2014-17

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spearhead programs will be linked with regional programs managed from The Hague or Kigali.
Where possible, Dutch NGO’s, knowledge and training institutes and private firms will be
associated. The Embassy will regularly report on results, based on monitoring and evaluation.

2. RESULTS OBTAINED 2008-2013 AND LESSONS LEARNT
2.1 Political space
Results (together with EU and BNUB);

After the 2010 elections political tension increased. Key leaders went into exile for fear of their
life and the number of extrajudicial killings peaked in 2011. By now the political violence has
decreased and most of the leaders are back in the country. This can be in part attributed to
successful dialogue and lobby of the international community, both with government and with
the opposition. EU partners and especially the Bureau des Nations Unies au Burundi (BNUB)
played an important role.

A new press law limiting press freedom was fiercely criticized by development partners
including the Netherlands. The law was adopted with few minor changes, but government will
be very careful in its application and is likely to be more prudent in future laws that may limit
the political space in Burundi.
Lessons learnt:

An inclusive political process towards the 2015 elections looks possible, now that the leaders
that were in exile have returned, but continuous support from the international community is
needed in order to make it successful.

The BNUB plays a key role and its mandate preferably includes the elections.

Joint EU political action on sensitive issues such as the violence by youth wings of political
parties is more effective than actions of individual member states.
2.2 Aid coordination and efficiency
Results:

The donor conference in Geneva in October 2012 was a success for Burundi, but it is difficult
for the country to give the right follow-up to this success and it risks losing the momentum.

Aid coordination by government and ownership has been strengthened. Most aid is aligned to
the second generation poverty reduction strategy, the Cadre Stratégique de croissance et de
Lutte contre la Pauvreté (CSLP II), a division of labor has been agreed and a number of sector
working groups are now functioning well, including those co-chaired by the Netherlands
(Security and Agriculture).

The dialogue between the Embassy and Dutch NGOs active in Burundi has improved resulting
in more synergy and complementarity.
Lessons learnt:

Aid remains fragmented as long as fiduciary risks in government remain high. Mitigating risks
of working with government has substantial transaction costs (project implementation units,
audits, etc.).

Information on centrally funded activities remains weak resulting in partly overlapping activities
and a lack of transparency on the full range of Dutch financed interventions in Burundi.
2.3 Security and (international) legal order
Results:

The integration of former rebels in the regular army is a corner stone of the regained stability.

Politically motivated violence, after reaching a peak in 2011, declined in 2012 and 2013.

An independent national human rights commission with regional antennas was established.

Capacity has been built for maintaining law and order and to undertake expeditionary missions
by the armed forces, and for enhancing democratic control over the security sector.

The proposed police law was withdrawn following intense parliamentary debate.

Public appreciation for the overall perceived security situation as well as for the performance of
the army and the police increased.

The opinion of civil society and parliament is more and more respected and integrated in the
security sector issues.

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Lessons learnt:

Political will is lacking for making fast progress in the area of inclusive governance. A lot of
well-coordinated outside encouragement will therefore be necessary.

In order for reforms in the public sector to succeed it is necessary to be pro-active and find the
right allies within government.

Deepen and reinforce the dialogue and partnership between Burundian and Dutch actors
remains a priority. Recent examples show that the current level of trust is sufficiently high to
discuss sensitive subjects such as human rights abuses and to work toward improving the
Burundian track record in this respect.

Donor pressure can be effective. Example: the freezing of part of the Security Sector
Development (SSD) program when government did not sufficiently react to human right
violation by the security forces.
2.4 Food Security (including private sector development)
Results:

The silent partnership with the USAID small scale enterprise program (business incubator)
helped create some businesses.

The partnership with Swiss Development Cooperation (SDC) introduced more efficient and
transparent land registration systems in rural areas.

Micro-credit institutions have been successfully rehabilitated, providing wider access to credit
facilities.

A new fertilizer subsidy program has been established that is less corruption prone. It will
ensure both demand and supply of fertilizers, benefitting users and suppliers of fertilizer.

Private sector support programs such as Private Sector Investment (PSI) and Netherlands
Senior Experts Program (PUM) are high in demand in Burundi and contribute to strengthening
the emerging private sector.
Lessons learnt:

Even if conditions are difficult it is possible to find smart entry points for private sector
development and agricultural development, working from two sides: creating an enabling
environment and direct support activities.

There is a need for more attention to systemic reform in the Private Sector development
program. This point was stressed in the impact evaluation (2013) of the program by the Policy
and Operations Evaluation Department (IOB). .

Although the micro credit program has been successful, the modality used (contract with
Burundian Ministry of Finance who involved two local partners) proved to be too risky and will
not be continued.

For effective programming and results, the differences between male and female farmers in
terms of access to and control of resources and intra-household decision-making should be
taken into account.
2.5 Sexual and Reproductive Health and Rights (including family planning)
Results:

All family planning services (public and private) have been mapped providing more insight into
the actual situation in Burundi on the availability of family planning services in Burundi.
Lessons learnt:

Religious leaders should be invited to a discussion on how to reconcile the church position on
modern contraceptive methods with the need for family planning in Burundi.

The department for reproductive health within Ministry of Health needs capacity building.

Sex and sexuality related issues should be made a subject for discussion within families or in
schools, in order to make young people more aware.

Engaging men and boys and empowering adolescent girls is essential in fighting Sexual and
Gender Based Violence (SGBV).

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3. BURUNDI - COUNTRY ANALYSIS2
3.1 General and political analysis; binding constraints for development
The drivers of present or future instability, as identified in the regional analysis, are at work in
Burundi as well. Similar to its neighbouring countries Burundi suffers from a high level of mistrust,
caused by years of violence and war. A demographic time bomb is ticking. Population growth
amplifies land scarcity. Many young men and women suffer from a lack of perspective in life, being
unemployed and /or having unwanted pregnancies. Poverty and malnutrition are among the
highest worldwide. Influential parts of the elite are capturing wealth for their own benefit. And the
rule of law still presents many challenges.
The policy note ‘A world to gain’ divides Dutch partner countries in two groups. Those in transition
to middle income status and those that even in the medium term will not be able to reduce poverty
without foreign aid. There is no doubt that Burundi fits the profile of the second group. Both foreign
investments and domestic revenues are still far too low to finance the enormous development
needs. Without these resources present stability would immediately be at risk.
In the next four years Burundi needs to maintain its preciously regained stability and continue to
move forward on a road to more inclusive and participatory decision-making. The elections in 2015
are a decisive moment in this process. If the democratic process fails, Burundi may easily fall back
into violence and instability. If elections are fair and free and with broad participation further steps
can be taken to secure reconciliation, restore trust and move upwards on the development ladder.
Security and stability
Burundi has made good progress in security and stability over the past decade. After thirteen years
of ethnically fuelled civil war, the last armed rebels signed the peace agreement in 2008. The
integration of former rebels into the army is one of the major successes of Burundi, a result to
which the Netherlands contributed substantially.
In the past, violence and conflict had a strong ethnic background (Hutu-Tutsi). This is less the case
today since the division of power is not along these lines anymore. Based on the Arusha
agreements, both ethnic groups are represented on an equal basis in the security forces and on a
60-40 division in the public sector. Ethnic differences still linger in the background though and can
be abused by political forces, on and behind the scene, also because no progress has been made
yet with the sensitive issues of reconciliation, truth finding and ending impunity. A sensitive issue
in the next years will be in how far the Arusha agreements can continue to be the anchor of the
Burundi constitution.
The increased stability of Burundi has positive regional implications. There are hardly any
Burundian armed rebels active anymore in DRC. Almost all exiled political leaders and refugees
have returned to the country. Nevertheless, the recent forced expulsion of around fifty thousand
Burundians from Tanzania, as a consequence of tense relations between Tanzania and Rwanda,
shows how regional conflict can put stability in Burundi at risk.
Politics and governance
The exercise of political power in Burundi is to a large extent neo-patrimonial. As a consequence
corruption is rampant (rank 165 of 174 on the 2012 Transparency International Corruption
Perception Index). Losing political power has a high cost. Some of those who have recently
acceded to power appear willing to bypass democratic procedures and may even resort to the use
of violence in order to safeguard their interests.
Relationships between government and the extra-parliamentary opposition that boycotted the 2010
elections remain tense. Signals for the 2015 elections are mixed. On the one hand a roadmap has
been agreed between 42 political parties, providing guarantees for transparency and participation.
On the other hand the party in power seems determined not to give up its strong position. The
government has reduced press freedom and is considering a law that might limit the freedom of
organisation. The ever more frequent and intimidating appearance of youth groups affiliated with
the various political parties forms a threat to stability.

2

The analysis has been informed by a number of studies, which have been commissioned by the Embassy, on
the political economy in Burundi, on gender and on climate change.

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Another election boycott by the opposition would be a severe set-back and could easily result in
renewed violence. The way forward has to come from inter-Burundian dialogue, including between
political parties and a variety of non-state actors. Civil society organizations and the media are byand-large independent in Burundi, with the exception of the state-owned national radio and TV
service. Civil society organisations are active, but are mainly confined to Bujumbura and the major
urban centres with limited links to the interior of the country. In general, their capacity is weak,
which hampers their effectiveness in the policy dialogue.
Economic and social development
The economic situation is gloomy. The average post-conflict growth was around four per cent only,
hardly enough to keep up with population growth. With per capita income of USD 273 (2011)
Burundi remains one of the poorest countries in the world. Two thirds of Burundians live below the
poverty line. On the Human Development Index 2013 Burundi ranks 178 out of 184 countries. On
the Gender Development Index it ranks 98 out of 148 countries.
Social and economic problems are exacerbated by a high population density (>350
habitants/km2), leading to severe land pressure and land degradation causing a poverty trap for
the mainly rural population. Only two of the Millennium Development Goals (universal education
and gender equality in education) may be reached before 2015. There is progress on maternal
health and child mortality but figures still lag far behind the targets.
Further improvement of the overall business environment is essential. Burundi has climbed to
position 159 out of 185 countries on the doing business indicator. Still, important reforms get
stuck, such as privatization of the coffee and tea sectors. This is mainly due to the lack of political
will to diminish corruption and political interference in business. The recent reform of the fertilizer
subsidy system for food crops funded by the Netherlands may help reverse the trend. Exports from
Burundi to the Netherlands averaged in the past three years € 700.000 per annum, while exports
from the Netherlands to Burundi averaged € 5 million per annum.
Stronger regional integration is key. Burundi attaches high priority to it. All four axes of its poverty
reduction strategy include regional integration as a strategic choice in order to reinforce the
potential of sustainable growth. Burundi is both looking west (to the DRC) as well as to the north
and east (East African Community partners). An active policy geared to regional integration may
also help ease internal rivalry and normalise internal political and economic processes. It will help
Burundi to change its land-locked mind-set.
Regional cooperation is also needed to exploit the mineral wealth of Burundi. Apart from some
small gold mines the main asset are the nickel reserves in the eastern part of the country. These
cannot be exploited as long as there is no transport and no energy. Both constraints need regional
investments (railway, hydropower) in order to be resolved. Regional cooperation is also needed to
tackle illegal trade in minerals such as gold from DRC that is partly exported through Burundi.
Climate change
Climate change is likely to put more people at risk of hunger, disease, displacement, or other forms
of hardship necessitating better civil protection systems. A vicious cycle of land shortage and
environmental degradation leads to food shortage, unemployment and social conflict. In turn,
social conflict creates instability which disrupts production systems and marketing channels by
displacing the local farm population.
Gender
There is a huge inequality between men and women in Burundian society. Poverty among female
headed households is 49% as compared to 29% of male headed households; only 18% of women
have access to land as compared to 63% of men; high fertility and unmet need for family planning
affects women’s health and rights; unwanted pregnancies limit the perspective for development of
young women; the high incidence of gender based violence against women is rooted in traditionally
unequal power relations between men and women, both at family level and in society at large. The
use of sexual violence as a tool of warfare during the recent long civil war exacerbated the existing
cultural imbalance between men and women.
Gender disparities will become greater with increased population density and a decreased resource
base in rural areas. Poverty and food security will affect women more than men because of their
differential access to agricultural resources, inputs, markets, credit, knowledge and innovation.

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Government strategy and joint analysis
The government strategy and policies are defined in the CSLP II (the Burundian strategy for growth
and poverty reduction). This document is the basis for the joint analysis by the European Union
and its member states active in Burundi (the Netherlands, Belgium, France and Germany). The
joint analysis shares the broad priorities defined by the government in the CSLP II.
However, it adds that there is a strong need for the right capacities and a sustained political will in
order to implement these priorities. Nicely worded strategies and policies can easily be undermined
by influential people operating behind the scenes.
The CSLP II is the basis for alignment with government policies for the Netherlands. Joint
programming and division of labour have advanced well and will be elaborated more in detail over
the next few months. At the donor conference in Geneva in October 2012 the international
community committed 2.5 billion euro for implementation of the CSLP II. Burundi is disappointed
that the release of funds is slow, but it has not sufficiently taken into account that there were some
strings attached: the government will need to show its willingness to undertake necessary reforms,
including improving the management of public finances and fighting corruption. Overall, donor
coordination is fairly strong, but it remains difficult to move forward on the Busan agenda3,
because of weak capacity in government, resulting in much of aid being delivered outside
government systems.
Table 1 Binding constrains and solution areas
Primary binding
constraints

Secondary binding
constraints

Legacy of conflict
and aggression






Neo patrimonial
political system








High population
density in relation
to the way in
which the
resource base is
used (low input
subsistence
farming),
increasingly
problematic with
climate change



High fertility rates
/ population
growth













Acceptance of violence
Gender based violence
Domestic violence
Insecurity / fear
Weak justice
system/impunity
Corruption
Elite capture
Weak government
institutions
Poor business
environment
Lack of jobs outside
agriculture
Land shortage, land
conflicts
Land degradation
Low and unreliable
agricultural productivity
Food insecurity and
malnutrition
Poverty trap
Risk of water shortage
Population growth faster
than economic
development
Young (fertile) population
Low levels of education
Lack of future perspective
High mother and infant
mortality

Solution area (country and
region)



Re-education on social
behavior
Women's empowerment

Netherlands
contribution
Sexual and
Reproductive
Health and Rights
(SRHR)
Security and legal
order



Reinforced security and justice
system



Strengthened and more
inclusive governance system
Special attention for natural
resources governance (a.o.
land)

Security and legal
order

Improved conditions for
private sector development
and for sustainably increased
and climate change resistant
agricultural productivity
Disaster Risk Management
Integrated water resources
management
Nutrition
Job creation for young men
and women

Economic
cooperation










Food security

Food security

[Water – not in
MASP]
Economic
cooperation







Family planning
Improved mother and child
health care
Improved education system
(incl. sex education)
Improved health system
Economic empowerment of
women through job creation
and improved access to credit

SRHR

[Health – not in
MASP]
Food security

3

Busan Global Partnership for Effective Development Cooperation is a multilateral agreement established in
2011 between governments, civil society organizations and (private) donors.

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3.2

Analysis of security and legal order

Security sector
In the past five years Burundi has gone from open armed conflict to an acceptable level of security.
Army and police were successfully redesigned into multi-ethnic forces. The army currently is a
positive actor in the security sector and contributes to peace and stability in the region by
participating in African Union peacekeeping missions, such as the AMISOM mission in Somalia.
The transformation of the national police force is still on-going and continues to demand attention.
The police force is sometimes pressed by influential individuals, both within and outside of
government, to undertake activities of a political significance. Internal and external control
procedures of the national police force are still insufficiently strong: an issue that is receiving
attention under the current inputs of the Netherlands funded Security Sector Development (SSD)
program. Enhancing transparency in all police operations will serve to support the change agents
within the organization.
Justice sector
The Ministry of Justice faces the multiple challenges of a lack of training, politicised oversight and
inadequate infrastructure. The judiciary is highly dependent on the executive branch, which
controls appointments to the bench and many other aspects of judges’ careers, including salaries.
This undermines the independence of the judicial system as a whole. Root cause for the continuing
desire of the executive to influence the justice sector is the fact that the majority of judges are still
of Tutsi ethnicity, which is a factor of mistrust for the predominantly Hutu government.
The dysfunctional penal chain is a clear example of the weak link between the justice and security
sectors. The lack of coordination between the different actors in the penal chain causes delays that
prolong the stay of suspects in police custody, burdening the capacity of the already overcrowded
jails and prisons. This creates a strong feeling of mistrust between the population and all actors in
the chain: police, courts, judges.
Of particular importance for the security perception is the need for ‘transitional justice’ as identified
in the Arusha Agreements. It is expected that a law on the Comité Vérité et Reconciliation (CVR)
will be passed in 2014, but that actual work will not take off until after the elections of 2015. Once
in place, the commission will require support for its functioning. Such support should be matched
by activities to increase trust and security perception at community level.
Role of the Netherlands
In 2008 the Netherlands and Burundi signed a Memorandum of Understanding for an eight year
SSD program (2009-2017), focused on army, police and on strengthening good governance in the
security sector. In the second phase of the Burundian-Netherlands SSD Program (2012-2013)
much effort was put into legislative development and increasing transparency of management of
the army and police. Also, increasingly the governance axis of the programme put focus on
enhancing relationships between the various actors in the security sector, including parliament and
civil society, thus creating a constructive atmosphere between formerly opposing sides.
The Netherlands is the largest and leading donor in the security sector and is well trusted by the
Burundian counterparts. This has put the Netherlands in a position to discuss sensitive subjects
such as human rights abuses by security forces, the existing unconstitutionality of the laws
regulating police and army, and to work on the eradication of corruption within the sector, for
example through better public procurement procedures.
Gender is an integral part of every activity in the programme. Not only does the programme strive
to improve the gender balance in the security providing organisations, but it also trains security
providers how to correctly handle cases of gender based violence.
The trust of the Burundian population in the security services has increased noticeably, as
evidenced by a 2011 security perception survey. Whereas the confidence in the army has improved
substantially, the reputation of police has only marginally improved. The Belgian/Netherlands
activities concerning the setting up of a neighbourhood police (Police de Proximité) are helping to
rebuild the relationship between the population and the police. There is a demand to extend these
services throughout the country.

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3.3

Analysis of food security and economic development

Burundi can be considered as the country of the Great Lakes Region in which the problems of land
scarcity and short term prospects for economic growth are the worst. It is also most vulnerable to
economic shocks and food price fluctuations caused by extreme weather conditions in the east
African region, which are expected to become more frequent with climate change.
Approximately 1.2 million rural households practice subsistence agriculture. They hardly produce
for the market and often harvest even insufficient food for their own needs. As a consequence,
they do not invest in inputs such as fertilizer, leading to decreasing yields and land degradation. On
top of this, farm size (now average 0.5 ha per household) is further reduced due to population
growth, but for the moment the rural population has few other options than to remain in
agriculture. Overall growth of agricultural production remains below that of population growth.
Women do most of the agricultural work and play a central role in the food sovereignty of families
and communities. Nevertheless they remain largely marginalized and dependent. They have less
access than men to agricultural inputs and credit and they seldom control agricultural means of
production and the distribution of family resources including land.
Fortunately, the potential for improving agricultural productivity is still very high. Actual production
levels could be sustainably multiplied by three to five, allowing for market oriented production
instead of the now dominant subsistence agriculture without sufficient use of fertilizer and other
inputs. The challenge is to inverse the trend and enable farmers to break out of the vicious circle of
poverty through increased and more market (local, national and regional) oriented production.
Policies
The Plan National d’Investissement Agricole 2012-2017 recognises the above transformation as a
priority. Investments of in total USD one billion will be required for the six year period (of which
about 70% is available/committed by government and donors). The plan affirms the need of
reform and capacity building of the ministry of agriculture to enable it to put into practice the new
policies. A challenge remains which interventions to prioritize, implying which actors. This degree of
detail is still lacking in the strategies. Also, a clear view on sustainability and climate change
adaptation is lacking. More recently, Burundi joined the UN Scaling Up Nutrition (SUN) initiative.. A
detailed plan on nutrition is being elaborated.
The agricultural business environment is very weak. Government committed itself to continue the
privatization of coffee and tea sectors, but little progress is made (at this moment it is even put on
hold for tea). Both the recently created Chamber of Agri-Business and producer organizations like
Confédération des Associations des Producteurs Agricoles pour le Développement (CAPAD) do not
yet have the capacity to hold the government accountable for its agricultural sector policies and to
influence these in favour of an improved business climate. CAPAD and farmer organizations even
lack legal recognition.
Foreign Direct Investment in the agricultural sector and in Burundi’s economy in general, is
negligible. Some investors are attracted and invest with support of aid instruments such as PSI,
whereas the Dutch foundation DOB equity has a participation in the only private tea company of
the country. The biggest investor and tax payer in Burundi is Brarudi/Heineken, which is sourcing
most of its raw material from outside the country by lack of sufficient local production. Using a
public-private partnership project for increasing competitiveness and assured production by local
producer organizations, it has started to source local sorghum and will consider substituting
imported sugar for local rice.
Priorities for favourable business environment
Five essential elements of a favourable business environment need to be addressed:

Law and regulation
Secure access to land is a key factor for agricultural intensification through more investment in
land (fertilization, liming, erosion control measures, etc.). The Netherlands is already engaged,
through a silent partnership with Switzerland (SDC), in a program for district level certification of
land rights in the province Ngozi. The Dutch NGO ZOA is also engaged in activities for secured
access to land through conflict resolution.
A new law on land (code foncier) has been approved by Parliament in 2011. This law provides a
good basis for large scale land titling, provided that care is taken with respect to land use rights of

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women and re-installation of repatriates who see ‘their’ land occupied by others, a process to which
Dutch organizations (such as the Netherlands' Royal Tropical Institute, KIT) may provide added
value. Additional research and testing will be required in plains and inland valley bottoms, which
are officially state land but in practice (illegally) handed out to big land “owners” or allowed to be
cultivated by small farmers (“paysannat”).

Access to markets
Markets for agricultural produce are not working properly. Although based less than 20 km from
Bujumbura, producer associations/cooperatives of perishable crops (horticulture) hardly find their
way to this market. Improved communication with markets in Bujumbura, in combination with
conservation and value adding transformation facilities, could considerably increase agricultural
revenues of farm households. A regional Netherland's financed program (‘CATALIST’) obtained
positive results with rice and potato producing cooperatives which can be scaled up.
Input markets for fertilizers, pesticides and seeds were until recently disturbed by procurements
and subsidised distributions by government which lead to price speculation, black markets and low
quality of inputs. Due to lobby, technical support and co-finance provided by the Netherlands, a
new fertilizer subsidy program has become operational in 2013, providing fertilizer through the
private sector to all farmers ready to pay the subsidized price. A well functioning private market for
seeds for small scale producers and industrial producers is still missing. One of the problems for
producers and suppliers is the risk associated with the narrowness of agricultural output- and input
markets as long as trade remains restricted to the national market. In order to promote regional
trade Burundi joined the East African Community (EAC) in 2008 and it is also member of the
Common Market for Eastern and Southern Africa (COMESA) and the Economic Community of Great
Lakes Countries (CEPGL).
Burundi is said to have a potential (yet to be developed) competitive advantage in the EAC region
for potatoes, cotton, coffee, tea, cassava and beans. The Platform “Rusizi sans Frontieres”, led by
Food and Agricultural Organization (FAO) Burundi and CEPGL, requested FAO Rome for support to
create a master plan for this vast and fertile plain covering parts of Burundi, Rwanda, and DRC.
Markets will be open for both inputs and outputs. In order to benefit from regional market
integration, action is also required to harmonize quality standards and import/export regulation.

Access to financial services
Access to rural finance is not ensured. One bank and some micro-finance institutions, partly
financed by the Netherlands, have limited means to provide credits to the agricultural sector. The
introduction of credit-warrant systems for small holders, as experimented by IFDC and OXFAMNOVIB, is likely to boost agricultural production by the provision of short term, seasonal credits but
does not cater for long term investments. Insurance products against climatic risks in agriculture
do not yet exist in Burundi, but are being tested by a Netherlands' funded association of ACHMEA
and Healthnet/TPO, including ALTERRA (project “fanning the spark”).

Infrastructure
The main national roads network is of reasonable quality, but many rural areas have difficult access
to markets by lack or bad quality of feeder roads. Only two percent of the rural population has
access to electricity, the lowest percentage in the world. Also because of deforestation and the high
price of firewood access to energy is therefore very problematic in rural areas. Infrastructure for
communal or private use, like storage facilities and irrigation water supply, is generally lacking.
Improvement in water management could help in boosting agricultural production.
The actual management of irrigation schemes by parastatal organizations is not conducive. The
International Fund for Agricultural Development and the Belgian Technical Cooperation (BTC) are
engaged in studies for mapping the development potential, including land rights issues and conflict
sensitivity analysis. It is important to improve soil and water conservation on the hill sides adjacent
to the Rusizi plain. Catchment treatment on the slopes should be organized in such a way that it
allows an improved resistance to water stress. This will reduce the expected climate change
induced risks of flooding and droughts (climate adaptation).

Access to technology and know how
Several Dutch interventions show that agricultural productivity can be considerably increased
(seven to eight times for potatoes and wheat) by an appropriate combination of inputs and seeds
and improved agricultural practices. The Research and Extension system is publicly organized and
seems incapable of delivering services to smallholders. Its staff lacks appropriate skills and
motivation. Private research and advisory systems do not exist.

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The Netherland's funded International Fertilizer Development Center (IFDC) project accompanying
the fertilizer program includes a component for testing, in collaboration with the national
agricultural research centre (ISABU) and farmer groups, more efficient fertilisation formula and
recommendations. There is a need to expand this type of research to a more holistic, farmer
centred type of action research. This research and extension should also take into account medium
term risk reduction in view of climate change (“climate smart agriculture”).
3.4 Analysis of demographic development and reproductive health
Medium term stability and socio-economic recovery are seriously threatened by high population
growth. In 2012, Burundi’s population totalled around 9.8 million people. With this number Burundi
is among the most densely populated country in Africa: by now over 350 people per km2, while at
present growth rate the population will double in 25 years.
Policies
Modern contraceptive prevalence is on the rise but the present rate of 25.3% is not enough to
impact reduction of fertility rate. A coverage rate of at least 40% is needed to effectively impact
fertility of 6.4 children per woman. Although religious and cultural factors restrict the use of
modern contraception, the expressed high level of unmet needs in the communities reflect
inadequate access to reliable family planning services rather than a reluctance to use them.
The position of the Catholic Church (an important moral force in Burundi) and their affiliated health
structures is not favourable to modern contraceptive use. There are however indications that the
influence of the Catholic Church is declining. At the same time the number of protestant sects is
growing rapidly. Their position on family planning may not differ significantly from that of the
Catholic Church. However, the official position of religious leaders is not strictly followed at lower
levels. There may therefore be opportunities for effective dialogue with progressive elements within
the various churches.
Family planning is a priority component of the government’s policy on reproductive health. The
national program for reproductive health (PNSR) remains an underfunded national program. Efforts
to effectively coordinate SHRH partners are on the way. PNSR collaborates with civil society
partners to expand the access to family planning commodities and services. Population Services
International (PSI) has successfully tapped into family planning and commercial oriented and
private sectors approach.
Youth
Like in any conservative society, the needs of young Burundians regarding their sexuality are not
met. In the past, youth benefited direct support and counselling from parents and family members.
They were guided by traditional values and societal norms. Partly as a result of the crisis, the social
fabric and social support have deteriorated.
Young people are particularly vulnerable to accept unsafe and irresponsible behavioural norms.
This is partly a result of ignorance and taboos and partly as a consequence of the past when sex
was used as a weapon and a tool of domination. Sexual and gender based violence are very
common but are notoriously underreported. The danger of a trans-generational continuation of
sexual abuse and violence from the time of the civil war is quite real: young men may regard
violence a symbol of masculinity and power.
Constructive gender and sexual education are crucial elements for the prevention of sexual
violence and enhancement of peace and respect between men and women in families and
communities. Young men and women therefore have specific needs and demands regarding sexual
and reproductive health. Yet very few specific services or access to services are available for them,
in governmental clinics and in religious health structure affiliate facilities. Special attention is
needed for gender and sexuality information and education for young people to reduce sexually
irresponsible conduct, and enhance positive behavioural change.
Other reproductive health challenges that impact on population growth are maternal and infant
health and HIV/aids. The most recent estimated maternal mortality ratio of 800 deaths per
100,000 live births in 2012 remains one of the highest in Africa just as the high infant mortality
rate under 5 years mortality of 96/1,000 live births. The number of new HIV/Aids cases is
decreasing. With the availability of antiretroviral drugs the AIDS related mortality is stabilizing.

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4. PROGRAMMING 2014-2017
4.1 Long-term strategic outlook
The Burundian government's ambition is to put the country on track towards sustainable
development by 2025. This may not look like a very ambitious goal but given the challenges the
country faces and the less than expected progress made since this goal was formulated, it does not
look likely that the goal will be fully reached by 2025 (see also the context analysis in chapter 3).
The 2015 elections will decide on Burundi's immediate future. Three scenarios can be envisaged.
The first one is that the new government will have a clear vision where it wants to go and is
determined to undertake all necessary reforms to reach that goal. The second scenario is that
rivalry between the various political parties will turn fiercely violent stimulating dormant ethnic
differences, throwing the country back into deeper misery and war. The third scenario is that
government policy will not drastically change and that the country will muddle on, making slow,
but little progress towards development.
Obviously the first one is the preferred scenario, but the third one could very well be the likely one,
taking the present political landscape into account. The second scenario is not unthinkable either.
Even if scenario one described above will prevail after the elections, the aid-based relationship will
remain dominant for some time.
Main objective and focus areas:
For the period 2014-17 fostering stability will be the main mission for the international community,
including the Embassy. The overall goal of the MASP 2012-15 remains relevant: Improve
security and diminish the threat of instability and new violence in Burundi.
The focus of the Netherlands Embassy will remain on three complementary spearhead programs:
Security and Justice, Food Security (including private sector development) and Sexual
and Reproductive Health and Rights.
Within the chosen areas, the Embassy will focus on activities in which it can offer added value in
synergy with others. These include regional programs, delegated programs in other countries in
the region and NGO and private sector initiatives from the Embassy itself. Consultations have been
held with representatives of Dutch NGOs represented in Burundi. Domains of complementarity and
synergy have been identified, which have been or will be worked out more in detail and jointly
monitored on a regular basis.
The proposed program is in line with the CSLP II, whereas sector ministries related to the different
themes have been consulted during the MASP formulation process. To the extent possible, care is
taken that activities by other donors in the chosen sectors are complementary and further enhance
our efforts. This is in particular the case with the EU where a joint programming exercise in the
framework of the 11th European Development Fund is well on its way. In all sectors, the Embassy
will try to identify and support organizations or individuals that may facilitate the development
process, so called change agents.
As a general rule, the Embassy will minimize the number of activities as much as possible. In
principle no activities with budget lower than € 300.000 will be funded. Where possible the
modality of basket funding will be used, particularly in the food security sector and possibly in the
Sexual and Reproductive Health and Rights (SRHR) sector. The Netherlands has abandoned budget
support in 2012. The modality is judged as being too risky and not in line with emphasis on Dutch
added value. The EU, World Bank and African Development Bank will continue offering budget
support to Burundi. Given the precarious situation of the budget this choice is justified, provided it
is combined with support to improve the management of public finances. The three organizations
need to agree on a common set of conditions and indicators for monitoring progress.
4.2 Spearhead Security and the (international) legal order
4.2.1 Outcomes and outputs
The intervention program of the Embassy for fostering security and the (international) legal order
aims to support priority area 1 of the CSLP II: Strengthening the rule of law, consolidating good
governance and promoting gender equality. The Embassy interventions will contribute to the
following outcomes at regional and country level and related country and Embassy outputs.

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Outcome 1: (regional) A stable Burundi contributing to peace and security in Africa in
general, and the Great Lakes Region in particular
Regional outputs

Improved security and diminished threat of instability and new violence.

Burundi troops participating in peace operations in Africa.
Embassy outputs

Bilateral program in the security and legal order sector implemented as planned.

Army and Police have the capacity to participate in peacekeeping missions (AMISOM), in close
cooperation with the U.S. military training program.

legal advisory capacity within Burundian Defense Ministry (MDNAC) enhanced.
Outcome 2: A more inclusive and effective government on national and local level and a
decrease in politically motivated violence
Country outputs

An improved political climate through dialogue and free and fair elections in 2015.

Follow-up given by the Burundian authorities on human rights abuses by security forces.
Embassy outputs

Political actors trained.

EU member states call for adherence to the ‘Roadmap’ for the 2015 elections.

State and non-state security controllers such as civil society, media, courts, prosecutors etc.
are trained to enhance their controlling role toward human rights abuses by state security
providers (SSD program governance axis).

Independent national human rights commission (CNIDH) strengthened.
Outcome 3: A democratically controlled effective security sector that satisfies the
security needs of the population
Country outputs

Implementation of the sector wide security strategies and policies, based on actual threats and
on the security needs of the population.

Strengthened sustainable institutional capacity in the security sector.

Improved integrity of persons and institutions in the security sector.

Proactive policies on gender in the state security institutions.
Embassy outputs

The Burundian Ministry of Public Security (MSP) has the capacity to follow-up and implement
the strategic plan for MSP and police.

MDNAC has the capacity to follow-up and implement the recommendations of the defense
review as described in the white paper and transformation plan.

The constitutional court has the capacity to implement its strategic plan.

Improved external control in the security sector.

Non state security providers are mapped and development of legislation to improve control
mechanisms for these organizations has started.

The ministry of Gender has the capacity to implement its National Action Plan for implementing
UN Security Council resolution 1325, on the role of women in peace processes.
Outcome 4: Enhanced functioning of the penal chain and a transitional justice system
Country outputs

Improved functioning of the penal chain.

Functioning system of transitional justice.
Embassy outputs

Capacity and integrity of police elements in the penal chain are enhanced.

The capacity of the truth and reconciliation commission (CVR) to undertake its tasks is put in
place, following its legal establishment.
4.2.2 Approach and modalities

The Embassy is co-chairing the Sector Group on security and is also lead donor for the sector in
the framework of the EU joint programming exercise. These fora will be used for discussing
policy reforms in the security sector and for coordination and aligning of development partners
around the objectives of the CSLP II and other relevant security policies.

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




The SSD program is managed and controlled by organs that include Embassy, program staff
and Burundian government representatives. The next phase will aim for a gradual increase of
ownership and capacity of the two ministries involved towards managing the SSD program.
The penal chain activity forms part of a co-financing arrangement between The Netherlands
and Belgium with the BTC as implementing agency. The activity will be implemented in tandem
with an activity fully financed by the Belgian government that will target the ‘’justice’ side of
the penal chain. This format will allow a better programmatic coordination between the two
donors, and the content of the projects.
The modalities for the CVR activity have not yet been identified. Programmatic risks will include
fiduciary issues related to the government's financing procedures and the monitoring thereof.

4.2.3 Cross-cutting issues
Gender. In the SSD program gender aspects are part of every activity. The program strives to
improve the gender balance in the organizations providing security. It also trains security providers
to have a better eye for gender issues and differences in their day to day work as well as how to
correctly handle cases of sexual and gender-based violence (SGBV). A gender needs assessment of
the police force and the army to assess women’s constraints will be conducted as a contribution
towards the promotion of women’s job opportunities and equal treatment. Through supporting
Burundi's National Action Plan 1325, women's role in peace processes will be strengthened.
Governance. The governance activities are the heart of the SSD program. They will focus on
improving internal and external control in the security sector by working not only with state
security providers (police, military, security service etc.) and state security controllers ( parliament,
ombudsman, etc.), but also with non-state security providers (security companies, militias etc.)
and non-state security controllers (media, civil society). A separate management unit within the
SSD program will identify and monitor the governance activities to be funded under the program.
4.2.4 Activities

As largest structural partner, the Netherlands will continue supporting the American training
program Africa Contingency Operations Training & Assistance (ACOTA).

The Embassy will support the so-called Legad-program which will advise the Burundi
Government on legal aspects of the army's participation in peacekeeping operations.

The Netherlands will also support the process towards the elections 2015 by contributing to the
election basket fund to be created and managed by United Nations Development Programme
(UNDP) and by contributing to a small media fund managed by La Benevolencija.

Continuation of the SSD program, for which a memorandum of understanding was signed in
2008 covering the period 2009-2017.

The Embassy, in close cooperation with its EU partners, will continue to call for a continuation
of the inclusive political dialogue that was started in 2013 under the supervision of the UN.

The Embassy has thus far only been active on the ‘police’ side of the penal chain, but will now
jointly with the Belgian embassy undertake projects to strengthen the penal chain.

Once the CVR has been legally established, the Embassy will consider financially supporting its
operational capacity.
4.2.5 Monitoring

Progress in the field of security and legal order at large will be followed through the indicators
mentioned in the Results Fiche for the sector.

More specifically progress will be followed through the indicators agreed upon within the SSD
program in 2013. These indicators will be explicitly used to decide on releasing funds from the
incentive tranche - in case of positive developments - or on sanctions - in case of negative
developments.

Other monitoring instruments include: the Sector Group Security and the higher levels of the
coordination framework put in place by the Burundian government; the development partner
group chaired by the BNUB; the bi-weekly meeting of EU Heads of Mission; the EU Art. 8
consultations with the government twice a year; and quarterly meetings with the minister of
Public Security (with EU partners, Embassy in the lead).

At the program/activity level monitoring will be conducted through (semi) annual progress
reports, meetings with implementing partners and field visits.
4.2.6 Risks and mitigating measures

There is still a significant lack of trust between the population and the police. The run-up to the
elections of 2015 increases the risk of extra-judicial deployment of security forces by the
authorities. To reduce this risk to a minimum the SSD program will focus on strengthening
internal and external control in the security sector, set in place a strict monitoring mechanism

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




based on bilaterally agreed indicators, and promote transparency and democratic control. The
Embassy will continue to engage in a critical dialogue with the Burundian authorities.
The government has engaged in a dialogue with the opposition in preparation for the elections
of 2015, however in practical terms an exclusive political atmosphere remains. On the basis of
a bilaterally agreed set of indicators this issue will be regularly discussed.
To reduce fiduciary risks of the SSD program an external financial agent, the German technical
cooperation GIZ, was appointed. In the coming years management and control of the
program’s activities must increasingly be taken over by the Burundian authorities. This will
increase the programmatic risks.
The CVR is highly contested: the very same government officials that are expected to decide on
the CVR were involved either as rebels or as government staff in atrocities during the civil war.

4.3 Spearhead Food security (incl. private sector development)
4.3.1 Outcomes and outputs
The intervention program of the Embassy for fostering food security (incl. private sector
development) aims to support priority area 2 of the CSLP II: Transforming the Burundi economy
for sustainable job-creating growth. The Embassy interventions will specifically contribute to the
following outcomes at regional and country level and related country and Embassy outputs:
Outcome 1: (regional) Burundi is integrated in and benefiting from trade systems in the
region which improve national and regional food security
Regional outputs:

Growth of agricultural production is meeting local demand, import substitution and export to
regional markets.
Embassy outputs:

Bilateral program in the food security sector implemented as planned.

Burundi is supported in increasing its competitiveness with neighboring countries and in
creating trade opportunities.
Outcome 2: Sustainably increased and climate change adapted agricultural production,
produced and processed mainly by smallholders including women and young people
Country outputs:

Improved access to and use of agricultural inputs (fertilizer, seed, etc.).

Innovation and knowledge transfer for sustainably increased agricultural productivity and
climate change adaptation.

Improved infrastructure and soil and water management in catchment areas of the Rusizi.
Embassy outputs:

Improved fertilizer subsidy system elaborated, adopted by the Burundian government, and
financed through a basket fund with contribution of government and donors.

Innovation system put in place and co-funded for the Imbo, Mumirwa and Mugamba agro
ecological zones, working in a participatory manner with farmer groups including women.

Two catchments areas of the Rusizi plain treated, following a holistic approach for sustainably
increased agricultural productivity, soil and water conservation measures, and market access.
Outcome 3: Increased access to healthy food by the rural population of Bujumbura rural,
Bubanza and Cibitoke provinces
Country outputs:

Improved food quality and school feeding.

Improved knowledge on nutrition and health.
Embassy outputs:

A number of farmer groups (including women) has been organized and trained to benefit from
local purchase of good quality food products for the school feeding program.

The local communities with most ill fed children under 5 years of each district/commune have
all been trained in improving the nutritional value of their meals

30% of the primary schools in three provinces have adopted school feeding for all their pupils.

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Outcome 4: Improved enabling environment for rural economic development offering
opportunities to the poor, including women and young people
Country outputs:

Improved capability of the Burundian Ministry of Agriculture (MINAGRIE) for regulation, policy
making, planning and monitoring.

Improved participation of the private sector, also in markets for inputs.

Farmer organizations are strengthened for market access and service delivery.

Improved access to land and land tenure security.

Increased financial inclusion of rural producers.
Embassy outputs:

Increased capacity of MINAGRIE including for stakeholder participation in decision-making.

District level land registration services set up in two districts/communes in Makamba province
and in three communes in Bubanza and Cibitoke provinces (covering the Rusizi plain),
delivering land ownership certificates, and land use certificates for those who cannot own land
such as cultivators in the plain and women in general.

The national fertilizer subsidy program is operational, making timely available, through the
private sector, the quantities of fertilizer demanded by all farmers.

The markets for the most important traded food products and for some value chains offering
opportunities, especially for the poor including women and young people, are developed.

Financial institutions in rural areas have developed credit products that are attractive and
accessible for farmers and rural businesses, including for women and youth.

Business incubators are set up in three rural provinces, focusing on value chain development
and training of agri-business entrepreneurs.
4.3.2 Approach and modalities

The Embassy is co-chairing the Sector Group on agriculture and is also lead donor for the
sector in the framework of the EU joint programming exercise. These fora will be used for
discussing policy reforms in the agricultural sector and for coordination and aligning of
development partners around the objectives of the CSLP II.

The activities of the bilateral food security program will be as much as possible (but not
exclusively) concentrated in three provinces: Bujumbura Rural, Bubanza and Cibitoke.

The choice for these provinces allows for synergy with the regional programs for the Great
Lakes Region, which includes the second phase of a regional project for value chain
development, and a regional program for the development of the Rusizi plain. The three
provinces have since 1993 faced the most serious problems of political violence. Therefore,
developing this particular region has an important impact on regional security. Moreover, the
area has a high potential for market oriented agricultural production because of its land
resources and the nearby market potential of Bujumbura as well as for export to DRC and
Rwanda.

The focus on the Great Lakes Region does not exclude that Burundi will also be stimulated to
make use of its membership of the EAC. With programs like Trade Mark East Africa, the
Netherlands will continue to support economic opportunities through this integration.

The Embassy intends to intervene in a restrictive number of value chains, and to identify
partner organizations and private sector actors that can be mobilized to address the
bottlenecks and opportunities in these chains. Strengthening of inspection services will also be
considered to help improve quality of food products.

Dutch companies interested in business, trade and investment in Burundi will receive
information and if needed support from the Embassy. Instruments for private sector
development such as PSI, PUM, CBI and Dutch Good Growth Fund will be promoted. Together
with Agi-Profocus, the Embassy will explore the possibility of certification: a trademark for
sustainably produced products from Burundi.
4.3.3 Cross-cutting issues
Gender. Since women play an important role in the agricultural sector it is imperative to explicitly
take into account the gender dimension of the interventions undertaken by the Embassy. In the
value chains chosen for interventions by the Embassy gender issues will be addressed by
undertaking an assessment on the roles and opportunities of men, women and youth. A specific
issue to be discussed at the political level is the access of women to land.
Governance. Through its co-chairmanship of the Agricultural Sector Group, the Embassy will see to
it that necessary reforms and governance issues will remain on the agenda. The fertilizer subsidy
program, implying private sector for import and distribution, has a big impact on good economic

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governance. In the area of knowledge development and innovation in agriculture the Embassy will
support activities that lead to reforms of the research and information systems in Burundi.
Climate change. The immediate risks caused by hunger and poverty are a much bigger threat to
the Burundi population than the medium term climate change effects. Emphasis needs therefore to
be put on measures that increase agricultural productivity, but in a climate-smart way.
4.3.4 Activities

The Embassy will use its political influence, together with other donors, to lobby for a better
business environment and facilitate reforms in the agricultural sector.

The Embassy will continue to support the new policy and nation-wide fertilizer subsidy program
for food crops, by contributing to the subsidy itself (in a basket fund with government and
other donors) and by financing a technical support program run by IFDC.

In 2013/14 a program for agricultural research and development will be formulated by BTC and
the national agricultural research center ISABU, to which the Embassy will contribute funding
provided that the proposed organization structure is convenient for participatory research.

A program for Integrated Seed Sector Development (ISSD) has been formulated by
Wageningen University-Centre for Development Innovation (WUR-CDI), KIT and IFDC and will
be considered for funding by the Embassy.

Support to agricultural training will be explored with the NICHE program.

The Embassy will continue the two programs for nutrition that it has started in 2012 (with the
Italian NGO Gruppo di Volontariato Civil) and in 2013 (with World Food Programme) and will
take the donor lead of the SUN nutrition platform from 2015.

From 2015 or 2016 (depending on possible additional needs for the fertilizer subsidy and/or
World Food Programme school feeding programs), a new program for infrastructure will start,
situated in the catchment area of the Rusizi. It will adopt an integrated approach for land and
water management .

The Embassy will continue its support, through a silent partnership with SDC, of land
registration, with special attention to land use security for women. N.B. This activity, extended
by SDC to DRC, will be incorporated in the regional program managed by Kigali from mid-2014.

ZOA will receive funding for supporting two districts for setting up their land registration
services and delivering land certificates to all farmers (including women).

The Embassy will finance a new program implemented by Terrafina, for reinforcement of microcredit institutions and developing innovative financial products which will allow them to step
into agricultural credit for smallholders including women.
 Increased access to business development services will be provided by Dutch NGO SPARK in
collaboration with the (formerly Dutch financed) Burundi Business Incubator , which is willing
to create new centers in three provinces that the Embassy will finance.

The Embassy may facilitate public-private partnerships in value chains with a potential to
contribute to food security and agricultural market development. The choice of such value
chains will depend on private actors that show an interest (such as Heineken).
4.3.5 Monitoring

Progress in the field of agriculture/food security (including private sector development) at large
will be followed through the indicators mentioned in the Results Fiche for the sector.

Progress towards realizing the outputs as mentioned above will be monitored mainly by
indicators that have been developed within the activities themselves, complemented, where
possible, by official statistics produced by the country itself.

Other monitoring instruments at the policy level include the Sector Group Agriculture and the
higher levels of the coordination framework put in place by the Burundian government.

At the program/activity level monitoring will be conducted through (semi) annual progress
reports, meetings with implementing partners and field visits.
4.3.6 Risks and mitigating measures

The choice to concentrate efforts on the three most security sensitive provinces creates an
important risk - if the peace process is interrupted by a new cycle of violence and increased
distrust between the three countries. The Embassy is deliberately taking this risk because of
the urgency and the impact of this program when it succeeds.

Risks are also associated with the lack of political will to diminish political interference in
business and corruption. If the government does not succeed in improving the general business
environment and diminishing corruption, private partners will remain reluctant to invest in
Burundi. To diminish this risk, the Embassy will engage in political dialogue and activities for
better governance, working together with other donors (especially those that still provide

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


general budget support: EU, World Bank), to try to influence political will and thereby diminish
these risks.
Disaster Risk Management associated with land degradation and climate change will need more
attention especially in agriculture. This will receive attention in appraisal documents for new
activities.
Risks of the new Research, ISSD and infrastructure programs will be associated with the
development of a good approach, implying all public and private actors, and identifying capable
organizations for their implementation. Under these conditions, program and political risks will
be limited because of the modality to be used, which is project funding.

4.4 Spearhead Sexual and reproductive health and rights (incl. family planning)
4.4.1 Outcomes and outputs
The intervention program of the Embassy for fostering sexual and reproductive health and rights
aims to support priority area 3 of the CSLP II: Improving access and quality of basic social services
and strengthening social protection. The Embassy interventions will specifically contribute to the
following outcomes at regional and country level:
Outcome 1: (regional) Quality sexual and reproductive health services are available and
accessible to men, women and youth in the region
Regional outputs

Reduction of harmful practices in the domain of SRHR (unsafe abortions, early/forced marriage,
domestic violence, sexual and gender based violence).
Embassy outputs

Bilateral program in the SRHR sector implemented as planned.
Outcome 2: Government efforts to increase demand and reduce the unmet need for
family planning are effective
Country Outputs:

Increased availability of modern contraception (contraceptive prevalence rate up from 25% in
2012 to 50% in 2017).

Public and private clinics provide better sexual and reproductive health care services.
Embassy Outputs:

Number of additional distribution points of modern contraceptive commodities.

Number of health workers trained in modern family planning procedures.

Number of communities sensitized in using modern contraception.
Outcome 3: Youth has better access to quality sexual and reproductive health services
and is able to make informed choices regarding sexual attitude and behaviour
Country Outputs:

Access to SRHR youth friendly services is realized in 50% of all districts.

Gender respect and acceptance of mutual rights are norms among 50% of youth.
Embassy Outputs:

Number of youth friendly materials that have been produced, tested and distributed.

Number of clinics that have adopted youth friendly working arrangements.

Number of youth clubs formed and active.

Number of young people counseled for HIV/Sexually Transmitted Infections (STI)/contraception
and/or tested for HIV/STIs.

Number of schools (/pupils) that adopt (/receive) comprehensive sexuality education.
Outcome 4: Sexual and gender based violence is reduced and respect of sexual and
reproductive rights of people to whom rights are denied is improved
Country Outputs:

Reduced fear for sexual violence.

Enhanced position of women and more gender equity in sexual relations.

Vulnerable position of sexual minorities (sex workers, LGBT) and people to whom rights are
often denied (youth, unmarried - young people, people living with AIDS, drug users and
others) addressed and greater respect given to their sexual and reproductive health and rights.

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Embassy Outputs:

Sexual aspects of gender relations have been incorporated as a crosscutting theme in the other
sectors supported by the Embassy.

Vulnerable position of sex workers addressed.

Guidance and rehabilitation provided to sex offenders and support given to victims.

Number of organizations active to advocate for abandoning harmful practices such as child
marriages, forced marriages, or other issues).

Number of LGBT reported to be assaulted / imprisoned.
4.4.2 Approach and modalities

Program elements have been identified in collaboration with the Burundian government and
SRHR partners.

Activities funded by the Embassy will be mainly implemented by Netherlands or international
NGOs as well as multilateral organizations, since direct funding of the government bears
substantial fiduciary risks. Belgium and the EU Delegation envisage setting up a basket fund for
the health sector. The Embassy may consider joining the basket as a way to strengthen aid
effectiveness and contribute to the objectives of the EU joint programming exercise.
4.4.3 Cross-cutting issues
Gender. The field of SRHR is pre-eminently a field in which the position of women is being
addressed. Experience here and in other countries shows that interventions should not be limited
to women alone. In particular if attitudes and behaviours with respect to issues such as gender
equity, women's and youth' empowerment as well as sexuality are to be changed it is imperative to
involve men and boys in all interventions.
Governance. Although there is strong political will in Burundi to improve sexual reproductive health
and rights, this does not automatically translate in strong action. For example, impunity for SGBV
perpetrators is still high, and family planning and SRHR are not the highest priorities in overall
health sector development. Sexual rights are still considered as a taboo and some, notably
homosexuality, are punishable by law. The Embassy will therefore be vocal on these issues in the
Sector Group Health.
4.4.4 Activities

The Embassy will contribute to family planning programs of both the public (PNSR) and private
sector (PSI). Through PNSR: supply of modern family planning commodities and community
outreach. Through PSI: social marketing of condoms; training of family planning health
workers; social mobilization and information on reproductive health. Also HealthNet/TPO SRHR
community activities are being supported.

Dutch centrally funded programs that focus on family planning, SGBV and HIV (Cordaid, War
Child Holland, and the Link up Project) will be brought together to create synergy.

Support for human resources capacity building will be considered through the NICHE program.

In close collaboration with Burundian organizations the Embassy will contribute to youth
programs of both in and out of school target (through PSI, CARE Burundi in partnership with
Rutgers-WPF and HealthNet/TPO).

Sexual aspects of gender relations are incorporated in the two other thematic areas.

PSI activities that focus on addressing SRHR needs for specific sexual minorities are being
supported to improve access and uptake to condoms by sex workers. This will be done through
provision of more appealing variety of condoms and building capacity of users to negotiate safe
sex. Vulnerable position of girls, boys, youth, men and women will be addressed through
HealthNet/TPO and CARE Burundi in partnership with local organizations.
4.4.5 Monitoring

Progress will be followed through the indicators mentioned in the Results Fiche for the sector.

Progress towards realizing the outputs as mentioned above will be monitored mainly by
indicators that have been developed within the activities themselves, complemented, where
possible, by official statistics produced by the country itself.

Other monitoring instruments at the policy level include the Sector Group Health and the
higher levels of the coordination framework put in place by the Burundian government.

At the program/activity level monitoring will be conducted through (semi) annual progress
reports, meetings with implementing partners and field visits.
4.4.6 Risks and mitigating measures

The Catholic Church's position and regular official messages against the use of modern family
planning methods may hamper the program’s effectiveness. Through a dialogue with

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



5.

representatives of the various churches active in Burundi, the Embassy will try to identify
potential change agents and discuss with them possible ways for a more constructive
cooperation in this area.
There is a lack of strategic coordination among SRHR partners and between relevant ministries
and lack of leadership at the central level as well as lack of technical capacity at the community
level. Although a Sector Group Health exists, this does not provide sufficient space to discuss
coordination issues in the field of SRHR. The Embassy has therefore taken the initiative to hold
separate coordination meetings with SRHR partners, including the government.
Changing attitude and behaviors, especially on issues of gender equality, women's and youth'
empowerment as well as sexuality, needs time. Through policy dialogue and the choice of
partners and activities, the Embassy will try to help change these attitudes and behaviors.

OTHER INTERVENTIONS AND INVOLVEMENT IN BURUNDI BY THE NETHERLANDS

Political and diplomatic initiatives
The critical dialogue with Burundi on human rights, political space and related issues is mainly
being conducted jointly with the EU Delegation and the other EU Member States represented in
Bujumbura (Belgium, France and Germany). At least twice a year an Article 8 political dialogue
with the Burundian authorities takes place in which also the ambassador of the United Kingdom
(based in Kigali) participates. In case of special developments requiring a position of the EU ad hoc
joint demarches are being conducted and/or joint declarations are being issued.
The Netherlands has a special interest in combating human rights violations involving security
agents. In 2012, the Netherlands took the initiative to enter into a dialogue with the Minister of
Public Security, together with the other countries involved (Belgium, France and Germany), on
individual cases of human rights violations by elements of the police force. Since the Netherlands
put on hold part of the support provided to the police and army at end of 2012, a range of
measures have been taken to prevent human right violations by members of the security forces
and to deal with offenders. The Netherlands will continue its dialogue together with the other
development partners involved. This will be done on the basis of selected indicators developed in
close cooperation with the Burundian partners and to be agreed upon in December 2013.
Forced return of refugees
The Embassy will continue to advice and support the ministries of Foreign Affairs and Internal
Affairs & Kingdom Relations with regard to anchoring the issue of (forced) return of irregular
Burundian migrants more strongly in the bilateral relation with Burundi. The Embassy will stress
the importance of cooperation between Burundi and the Netherlands with regard to (forced) return
in its conversations with the Burundi authorities.
Economic diplomacy
The Embassy will continue to support Dutch firms and knowledge institutes in their need for
information on and knowledge of strategic sector and policy developments in Burundi, contribute to
business development and advise on contacts with relevant ministries and local firms.
Consular services
After the Netherlands mission in Burundi was upgraded to embassy in 2012, the Netherlands
consulate in Bujumbura was closed in 2013. The consular services provided by Kigali (e.g.
passports) remained there and some others (such as information requests from Dutch citizens on
the security situation in Burundi) were transferred to the Regional Support Office in Pretoria. A few
of the remaining consular tasks were taken over by the Embassy.
Communication
The Embassy will continue to keep the Ministry informed on political, economic and other
developments in Burundi. In addition, the Embassy will become more active in public diplomacy,
informing the general public on its activities and results. This will be done through the website and
social media, such as Facebook and Twitter.
Non-delegated funds and programmes
Dutch NGOs. Several Dutch NGOs, funded from different centrally managed sources (co-financing
program, Reconstruction Tender, and Public-Private Partnership-Fund and SRHR-Fund) are active
in Burundi. These organizations work mainly on the same themes as the Embassy program
proposed in this document. The Embassy maintains close contact to ensure complementary

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working and synergy whenever possible. The NGO programs covering more countries in the region
will be monitored jointly with other Embassies as part of the regional approach.
Private sector instruments. Other Dutch links include the ‘private sector instruments’: ORIO, PSI,
CBI, PUM. Burundi is making good use of these instruments. Almost every week of the year one or
two experts from PUM are giving advice to Burundian entrepreneurs. The last two calls for
proposals to be funded by PSI resulted in 13 and 16 proposals respectively. It is expected that
demand will go up in the next few years. Three ORIO projects are envisaged in drinking water,
hospitals and waste collection with a total investment of around 50 million EUR. Since the resource
base of (starting) businesses in Burundi is low, the Embassy argues for a new instrument with a
grant element comparable with the actual PSI, as proposed in the regional program (to be
managed by Kampala) . An interesting target group for investments in Burundi is the diaspora.
Multilateral organizations

The Regional Centre on Small Arms in the Great Lakes Region the Horn of Africa and Bordering
States receives funds from the Stabilization Fund for activities related to the destruction of old
weapons and good weapon management. The Burundi chapter of the Peace Building
Commission and the Peace Building Fund are supported from the same Fund to help advance
the peace process in Burundi.

The Department for sustainable economic development (DDE) finances the CASA project on
Fragile States and Private Sector development, through the International Finance Corporation .
About € 1 million per year is spent on activities in Burundi. DDE is also funding regional
activities of Trademark/EAC. Among others the Burundi Revenue Authority is one of the
beneficiaries.

Finally, the Global Partnership for Education (GPE) supports implementation of the Burundi
Education Sector Plan with an amount of USD 52.9 million for the period 2013-2015. The
Netherlands participates in the GPE budget with 15% van budget. Belgium as lead donor in the
education sector is the supervising entity in Burundi.
Netherlands Fellowship Program
Burundi is among the eligible countries for this program. A difficulty is that Burundi is a French
speaking country and that there are not many courses given in the French language. In 2013
there have been forty applications. There is no alumni organization in Burundi. The Embassy will
look for opportunities to actively promote the program.
NICHE
Now that the NICHE-program has been opened also for Burundi, the Embassy will identify
possibilities for activities in Burundi.
6. FINANCIAL IMPLICATIONS
Financial ODA implications 2014-2017 in € (budget-code and description of policy area) 4

Budget 2014-2017
2.1
2.3

3.1
4.3

Improved food security
Sustainable use of natural resources, combating climate
change, increasing population’s resilience to unavoidable
climate change in developing countries
Sexual and reproductive health and rights for all;
stopping the spread of HIV/AIDS
Developing the rule of law, reconstruction,
peacebuilding, strengthening the legitimacy of
democratic structures and combating corruption
Total

4

66.250.000
300.000

20.000.000
19.850.000

106.400.000

Excluding contribution to SSD program from Stability Fund (amount still to be decided)

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