Research Influence on Policy:

THE CASES OF MOZAMBIQUE, UGANDA AND SOUTH AFRICA

IDRC Acacia Workshop IDRC Acacia Workshop

8-9 Nov 20028-9 Nov 2002

Johannesburg, South AfricaJohannesburg, South Africa

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MOZAMBIQUE

Portuguese rule until 1975Portuguese rule until 1975 Civil war between Frelimo and RenamoCivil war between Frelimo and Renamo First democratic elections 1994 won by First democratic elections 1994 won by

FrelimoFrelimo One of poorest countries, but with GDP One of poorest countries, but with GDP

growth rate of approx. 10%growth rate of approx. 10% 85% of 17.5 million people live in rural 85% of 17.5 million people live in rural

areasareas

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ICTs in Mozambique – until 1997

On periphery of global ICT developmentsOn periphery of global ICT developments Very few centers of expertise (CIUEM) Very few centers of expertise (CIUEM) Few ICT championsFew ICT champions Little interest in ICTs in NGO/donor sectorsLittle interest in ICTs in NGO/donor sectors Almost non-existent ICT private sectorAlmost non-existent ICT private sector Government inactive in ICT arenaGovernment inactive in ICT arena Teledensity <0.4%Teledensity <0.4%

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Mozambique: Developments in the 1990s

1992: Privatization Act; INCM and TDM created1992: Privatization Act; INCM and TDM created 1995: Only 65 505 fixed lines and 2 500 cellular connections; 1 1995: Only 65 505 fixed lines and 2 500 cellular connections; 1

Internet service providerInternet service provider 1995: International Symposia on ICTs attended by key officials1995: International Symposia on ICTs attended by key officials 1997: 1997: Towards an Information Society WorkshopTowards an Information Society Workshop in Maputo; in Maputo;

Acacia and National ICT Policy Commission discussed; Acacia and National ICT Policy Commission discussed; Acacia MOU signed; MAAC/S established Acacia MOU signed; MAAC/S established

1998: 75 342 fixed lines and 6 725 cellular connections; 9 1998: 75 342 fixed lines and 6 725 cellular connections; 9 Internet service providers; ICT Policy Commission establishedInternet service providers; ICT Policy Commission established

1999: Frelimo recognizes new technologies for next 1999: Frelimo recognizes new technologies for next development phasedevelopment phase

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UGANDA

Frequent wars and human rights abuses until 1986Frequent wars and human rights abuses until 1986

Museveni President 1986; 10 Point Plan; Museveni President 1986; 10 Point Plan; democratic Presidential elections 1996, 2001democratic Presidential elections 1996, 2001

One of least developed countries, but with real One of least developed countries, but with real GDP growth of 7% over past decadeGDP growth of 7% over past decade

86% of 22 million people live in rural areas 86% of 22 million people live in rural areas

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ICTs in Uganda until 1997

On periphery of global developments until middle On periphery of global developments until middle ninetiesnineties

Few centers of ICT expertise; located at Makerere Few centers of ICT expertise; located at Makerere UniversityUniversity

Monopoly in telecommunications sector; high Monopoly in telecommunications sector; high cost, long waiting periods; few connectionscost, long waiting periods; few connections

Government focused on economic development, Government focused on economic development, but without specific focus on ICTsbut without specific focus on ICTs

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Uganda: Developments in the 1990s

1986: Museveni becomes President and starts program of 1986: Museveni becomes President and starts program of economic reform and developmenteconomic reform and development

1991: Uganda Investment Authority established, later to 1991: Uganda Investment Authority established, later to launch the “Big Push” strategylaunch the “Big Push” strategy

1995-: Ugandans attend Africa-wide ICT events; Celtel 1995-: Ugandans attend Africa-wide ICT events; Celtel becomes first cellular operatorbecomes first cellular operator

1997: Museveni attends GKI and commits to ICTs; invites 1997: Museveni attends GKI and commits to ICTs; invites donorsdonors

1997-: Communications Act passed; sector reform; UTL and 1997-: Communications Act passed; sector reform; UTL and UCC established; PEAP leads to sector-specific development UCC established; PEAP leads to sector-specific development plansplans

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Uganda: Developments in the 1990s (cont.)

1997: IDRC mission for telecenter site selection; IDRC supports ICT studies and 1997: IDRC mission for telecenter site selection; IDRC supports ICT studies and workshops; Acacia Strategy is formulatedworkshops; Acacia Strategy is formulated

1998: Second cellular operator license; NAAC/S established; Acacia activities 1998: Second cellular operator license; NAAC/S established; Acacia activities start; Uganda Internet Society establishedstart; Uganda Internet Society established

1999: Acacia MOU signed; Nakeseke telecenter opens; National ICT Policy Task 1999: Acacia MOU signed; Nakeseke telecenter opens; National ICT Policy Task Force formedForce formed

2000: PEAP recognizes ICTs for development 2000: PEAP recognizes ICTs for development ((check)check)

2001: Fixed lines grew to 56 000 from 46 000 in 1996; cellular connections grew 2001: Fixed lines grew to 56 000 from 46 000 in 1996; cellular connections grew from 3 500 to 276 034; nine Internet service providers with 10 000 subscribersfrom 3 500 to 276 034; nine Internet service providers with 10 000 subscribers

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SOUTH AFRICA

Apartheid until 1994 has led to social Apartheid until 1994 has led to social problems and huge income disparities; 53% problems and huge income disparities; 53% live in “Third World” conditionslive in “Third World” conditions

South Africa’s economy generates nearly South Africa’s economy generates nearly 25% of Africa’s GDP25% of Africa’s GDP

In recent years GDP growth only 2%In recent years GDP growth only 2% 50% of the 44 million people live in rural 50% of the 44 million people live in rural

areas areas

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ICTs in South Africa during 90s

Transition from apartheid brings tensions about Transition from apartheid brings tensions about reform between old and new regimesreform between old and new regimes

Existing sector policies require reform to focus on Existing sector policies require reform to focus on the needs of the majority and to be in line with the needs of the majority and to be in line with global trends global trends

Many policy and restructuring processes run in Many policy and restructuring processes run in parallel; changes in approach as government parallel; changes in approach as government becomes more confident and RDP moves to GEAR becomes more confident and RDP moves to GEAR

Active, organized and strong civil society and Active, organized and strong civil society and private sectorprivate sector

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South Africa: Developments in the 1990s

1990: Nelson Mandela released and negotiations start 1990: Nelson Mandela released and negotiations start for transition to democracyfor transition to democracy

1991-1993: Government starts unilateral reform; 1991-1993: Government starts unilateral reform; Telkom commercialized; two cellular licenses allocated; Telkom commercialized; two cellular licenses allocated; ANC prioritizes ICTs; NTF establishedANC prioritizes ICTs; NTF established

1994: GNU comes to power; RDP is established1994: GNU comes to power; RDP is established 1995: Mandela emphasizes ICTs for development at 1995: Mandela emphasizes ICTs for development at

ITU conference in GeneveITU conference in Geneve 1994-1997: Many policy reform processes run in 1994-1997: Many policy reform processes run in

parallel, including Telecommunications Act; parallel, including Telecommunications Act; establishment of SATRA, USA, IBA; establishment of SATRA, USA, IBA;

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South Africa: Developments in the 1990s (cont.)

1997-2002: Second wave of policy and 1997-2002: Second wave of policy and restructuring processes based on GEAR restructuring processes based on GEAR approach; includes GCIS; SAITIS; new approach; includes GCIS; SAITIS; new Broadcasting Act; Foresight exercises; Broadcasting Act; Foresight exercises; establishment of ICASA; e-Commerce Billestablishment of ICASA; e-Commerce Bill

2001: National ICT Forum to guide national 2001: National ICT Forum to guide national ICT strategy development; ICT ICT strategy development; ICT commissions in office of the Presidentcommissions in office of the President

THE POLICY WINDOW

A comparison between Mozambique, A comparison between Mozambique, Uganda and South AfricaUganda and South Africa

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“POLICY WINDOW”

International Influence:•Exposure of leaders•Financial support•Encouragement•Technical input

National Environment:•Stability and growth after devastation•Government commitment to development, also in rural areas•Government leadership in search for development mechanisms•Growing awareness of ICTs

Individual and Institutional Efforts:•ICT champions through advocacy, awareness creation, demonstration of own expertise and potential benefits

Policy Environment:•Focus on PARPA objectives

•(Reform of telecommunications sector)

•Development of disparate efforts requiring coordination or nurturing environment

MOZAMBIQUE

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“POLICY WINDOW”

International Influence:•Exposure of leaders•Financial support and encouragement•Technical input

National Environment:•Stability and growth after devastation•Government and people’s commitment to modernization and development•Government leadership in search for development mechanisms•Government focus on donor investment and nurturing environment•Growing awareness of ICTs

Individual and Institutional Efforts:•ICT champions through advocacy, awareness creation, demonstration of own expertise and potential benefits•Pressure from growing private sector*

Policy Environment:•Focus on PEAP objectives

•Reform of telecommunications sector*

•Development of disparate efforts requiring coordination or nurturing environment

UGANDA

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“POLICY WINDOW”

International Influence:•IDRC Support of ANC in exile* •Need to position SA within rapid global developments*•Technical support

National Environment:•Transition to democracy, with shift from authoritarian to consultative government focused on the needs of the majority*•Strong civil society and private sector with own demands

Individual and Institutional Efforts:•Early champions in ANC•Pressure from strong civil society organizations*

Policy Environment:•Prioritization by ANC of ICTs as area for development*

•Redesign of policy frameworks for transition to democracy, to remove protection and chaos, to shift focus from rich minority to poor majority and transform rigid institutions to serve democratic country*

• New policy approaches for RDP-GEAR transition; new areas for policy formulation (e-Commerce)*

SOUTH AFRICA

THE IDRC

ICT INTERVENTIONS

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THE PROJECTS

Acacia; and the NICP (South Africa)Acacia; and the NICP (South Africa)

The National Acacia Advisory Committees/ The National Acacia Advisory Committees/ SecretariatsSecretariats

Demonstration projects Demonstration projects Development of i) integrated ICT policies in Development of i) integrated ICT policies in

Mozambique and Uganda; ii) Rural Mozambique and Uganda; ii) Rural Communications policy and strategies in Uganda; Communications policy and strategies in Uganda; iii) Telecommunications Policy in South Africaiii) Telecommunications Policy in South Africa

Policy implementation projects Policy implementation projects

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INITIATIVES POLICY

MECHANISMS

LEADING TO

Funding

Technical support and assistance

Facilitating structures (MAAC/S)

Demonstration projects

Policy formulation

process support

Policy implementation

projects

i.Action research / M&E (ELSA)

ii. Exposure of decision-makers

iii.Systematic information dissemination

i.Policy research studies

ii.Advocacy

iii.Support of policy process

iv. Forums / think-tanks / networking

Learning

Capacity development

ICT aware-ness

Policy influence among target groups

Next policy formulation

phase

IDRC INPUTS

I.Future implementation research/M&E

ACACIA IN MOZAMBIQUE

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MOZAMBIQUE

MAACS I and IIMAACS I and II National Information and Communication National Information and Communication

Policy ProjectPolicy Project Policy: Strategic Implementation, Policy: Strategic Implementation,

Leadership and Promotion Leadership and Promotion ICT Policy Lead Projects (telecenters ICT Policy Lead Projects (telecenters

networking; EPCI-Inhambane; human networking; EPCI-Inhambane; human resources developmentresources development

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THE IDRC IN UGANDA

INITIATIVES

POLICY

MECHANISMS

LEADING TO

Funding

Technical assistance

Facilitating structures (e.g.

Secretariat, NAAC)

Demonstration projects

Policy formulation

process support

Policy implementation

projects

Initial IDRC research/policy studies

i.Action research / M&E (ELSA)

ii.Exposure of decision-makers

iii.Systematic information dissemination

i.Policy research studies

ii.Advocacy

iii.Support of policy process

iv.Forums/networking opportunities

i.Implementation

research / M&E

Learning

Capacity development

ICT awareness

Policy influence among target groups

Next policy formulation

phase

Other IDRC initiatives (e.g.

early studies, telecenters)

IDRC INPUTS

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UGANDA

NAAC/SNAAC/S Development of an Integrated Information Development of an Integrated Information

and Communications Policyand Communications Policy Policy and Strategies for Rural Policy and Strategies for Rural

Communications DevelopmentCommunications Development Development of Operational Guidelines for Development of Operational Guidelines for

the Uganda Rural Communications the Uganda Rural Communications Development FundDevelopment Fund

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THE IDRC IN SOUTH AFRICANICP:

General support to new government; technical advice and expertise

NTPP project – exemplary process; consultative, multi-sectoral

Research: pre-NICP studies; Universal service review; MPCC studies/surveys – debates; Policy handbook

Think-tanks, e.g. Helderfontein

ACACIA:

SAAAC – stage of policy implementation

USA support

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THE POLICY INFLUENCE

Broadening horizonsBroadening horizons:: New ideas, debate New ideas, debate (NAACS; think-tanks – workshops, forums)(NAACS; think-tanks – workshops, forums)

Affecting policy regimesAffecting policy regimes:: Establishing new Establishing new regimes; adapting existing regimes (South Africa)regimes; adapting existing regimes (South Africa)

Generating new knowledgeGenerating new knowledge:: Mainly ideas Mainly ideas and some new understanding based on action and some new understanding based on action research/ad hoc studies; not yet systematic research/ad hoc studies; not yet systematic research which establishes alternative models or research which establishes alternative models or tracks policy implementationtracks policy implementation

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The Effect of the Policy Influence Activities

Mozambique:Mozambique: Very direct; Very direct; “A sprint”“A sprint”

UgandaUganda: Quite direct, but with more : Quite direct, but with more players; players; “A relay race”“A relay race”

South AfricaSouth Africa: Initially (until 1995) quite : Initially (until 1995) quite direct; later direct; later “A marathon”“A marathon”

The Policy Influence:

Comparison between the Three Comparison between the Three CountriesCountries

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Common Contextual Features

Transition to stability in late 80s/early 90sTransition to stability in late 80s/early 90s Government committed to the (rural) poor (PARPA; PEAP; Government committed to the (rural) poor (PARPA; PEAP;

RDP)RDP) General wave of optimism; drive to develop economically and General wave of optimism; drive to develop economically and

socially – yet great obstaclessocially – yet great obstacles Government open-minded; looking for new ideas; not Government open-minded; looking for new ideas; not

threatened or self-serving; consultativethreatened or self-serving; consultative Government not yet self-sufficient in policy making; policy Government not yet self-sufficient in policy making; policy

research (capacity) inadequateresearch (capacity) inadequate Growing awareness of ICT importance for development; Growing awareness of ICT importance for development;

active ICT champions; participation in international eventsactive ICT champions; participation in international events Very few, if any, ICT projects/models (Mozambique and Very few, if any, ICT projects/models (Mozambique and

Uganda 1997; SA 1994Uganda 1997; SA 1994))

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Common Features: The IDRC Early involvement / good timing provides pioneering Early involvement / good timing provides pioneering

opportunitiesopportunities Well recognized at highest level of government; Well recognized at highest level of government;

respected for facilitating approachrespected for facilitating approach Good personal relationships/respect for technical Good personal relationships/respect for technical

expertise of IDRC staff expertise of IDRC staff Variety of support foci and hence policy influence Variety of support foci and hence policy influence

mechanisms; includes support of “top-down” and mechanisms; includes support of “top-down” and “bottom-up”approaches“bottom-up”approaches

Non-conventional approaches / Not focused on Non-conventional approaches / Not focused on systematic (policy) research - “Research as ideas”/ systematic (policy) research - “Research as ideas”/ Late implementation of ELSA Late implementation of ELSA

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Some Key Differences in 1990s

MozambiqueMozambique UgandaUganda South AfricaSouth AfricaNo earlier IDRC ICT No earlier IDRC ICT activities (1997)activities (1997)

Earlier IDRC ICT Earlier IDRC ICT activities have greater activities have greater impact (1996-1997) impact (1996-1997)

Very early IDRC Very early IDRC support to ANC in support to ANC in exile, also w.r.t. ICTsexile, also w.r.t. ICTs

Fledgling ICT private Fledgling ICT private sectorsector

More developed and More developed and influential private influential private sectorsector

Developed, influential Developed, influential and organized private and organized private sector/civil societysector/civil society

Early focus on Early focus on telecommunications; telecommunications; enhanced by central enhanced by central planning through planning through PARPAPARPA

Initial focus on Initial focus on telecommunications; telecommunications; enhanced by central enhanced by central planning through PEAPplanning through PEAP

Various parallel Various parallel policies; RDP changes policies; RDP changes to GEAR, bringing to GEAR, bringing different foci and different foci and processesprocesses

Focus on national ICT Focus on national ICT policy in PM officepolicy in PM office

Focus on national ICT Focus on national ICT policy and rural ICT policy and rural ICT policy; multi-sectoral policy; multi-sectoral effort/some tensionseffort/some tensions

No national ICT policy No national ICT policy effort; competition for effort; competition for profile / lack of interestprofile / lack of interest

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Some Key Differences in 1990s (cont.)

MozambiqueMozambique UgandaUganda South AfricaSouth Africa

High level MAAC/S; High level MAAC/S; few role players, small few role players, small groups of intertwined groups of intertwined championschampions

High level NAAC/S; High level NAAC/S; more players, small more players, small group within context of group within context of more role playersmore role players

Representation on Representation on SAAAC; many role SAAAC; many role players; limited links to players; limited links to governmentgovernment

IDRC well recognized IDRC well recognized and respected as the and respected as the key role playerkey role player

IDRC recognized as IDRC recognized as one ofone of key players, key players, esp. during early yearsesp. during early years

IDRC well recognized IDRC well recognized before and during before and during RDP; later one of manyRDP; later one of many

Need around 1997 for Need around 1997 for integrated and integrated and coordinated policiescoordinated policies

Need around 1997 for Need around 1997 for integrated and integrated and coordinated policiescoordinated policies

Implementation the Implementation the focus rather than policy focus rather than policy formulation processesformulation processes

Need for development Need for development of ICT policy of ICT policy formulation capacityformulation capacity

Need for development Need for development of ICT policy of ICT policy formulation capacityformulation capacity

Some capacity Some capacity development needed; development needed; rather concerned with rather concerned with neutralizing old regimeneutralizing old regime

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Some Key Differences in 1990s (cont.)

MozambiqueMozambique UgandaUganda South AfricaSouth Africa

Acacia: Focus on Acacia: Focus on policy processespolicy processes

Acacia: Focus on Acacia: Focus on policy processespolicy processes

Acacia: Focus on USA Acacia: Focus on USA – policy – policy implementation support implementation support

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SOME GENERIC KEY FINDINGS / LESSONS

Good relationships and empowering / facilitating approaches Good relationships and empowering / facilitating approaches ensure trust, sustainable impactensure trust, sustainable impact

Enter early; take risks – enable greater influenceEnter early; take risks – enable greater influence For greatest impact choose country early in its development, For greatest impact choose country early in its development,

with stability and eager for new ideaswith stability and eager for new ideas Develop better communication and quicker IDRC admin Develop better communication and quicker IDRC admin

processes; ensure systematic and organized institutional processes; ensure systematic and organized institutional memory, and continuitymemory, and continuity

Sensitize staff/project leaders re policy influence and gender - Sensitize staff/project leaders re policy influence and gender - issues and implementationissues and implementation

Improve ELSA type processes and information disseminationImprove ELSA type processes and information dissemination For quality policies: Develop more systematic, long-term For quality policies: Develop more systematic, long-term

research capacity / fociresearch capacity / foci