Republic of Kenya 2012 - Sessional Paper No. 8 of 2012, On National Policy For The Sustainable Development of Northern Kenya and Other Arid Lands, Releasing Our Full Potential'.

REPUBLIC OF KENYA
OFFICE OF THE PRIME MINISTER

MINISTRY OF STATE FOR DEVELOPMENT OF NORTHERN KENYA AND OTHER ARID LANDS
Sessional Paper No. 8 of 2012 on National Policy for the Sustainable Development of Northern Kenya and other Arid Lands
Releasing Our Full Potential
Fi na l , 11 O c tober 2012
Final Version, 11 October 2012
TABLE OF CONTENTS
Glossary List of acronyms Foreword .. iii .. iv .. v 1 .. 3 .. 7 13
Chapter 1: Introduction
Chapter 2: Geographical Coverage Chapter 3: Situation Analysis
Chapter 4: Goal and Objectives of the Policy Chapter 5: Elements of the Policy
.. 14
Chapter 6: Institutional and Legal Framework 24 Chapter 7: Financing 26 .. 27
Annex 1: Summary of Policy Interventions by Objective
Annex 2: Summary of Policy Interventions by Sector . 32
ii
Glossary
Term Climate change adaptation Climate-proofing Definition Adjustment in natural or human systems in response to actual or expected climatic stimuli or their effects, which moderates harm or exploits beneficial opportunities. Identifying risks to a project or asset from climate change, and ensuring that those risks are reduced to acceptable levels through changes introduced at different stages in the project cycle. The resources and capabilities that enable people to be economically and socially productive. Investments in human capital can be made through education, training or health care. Rangeland environments characterised by unstable and nonuniform distribution of nutrients as a result of variable and patchy rainfall. This phrase is used throughout the document and reflects the title of the Ministry (Ministry of State for Development of Northern Kenya and other Arid Lands). The Ministrys geographical coverage extends across the arid and semi-arid lands of Kenya. The term refers to both an economic activity and a cultural identity, but the latter does not necessarily imply the former. As an economic activity, pastoralism is an animal production system which takes advantage of the characteristic instability of rangeland environments, where key resources such as nutrients and water for livestock become available in short-lived and largely unpredictable concentrations. Crucial aspects of pastoralist specialisation are: 1. The interaction of people, animals and the environment, particularly strategic mobility of livestock and selective feeding; and 2. The development of flexible resource management systems, particularly communal land management institutions and non-exclusive entitlements to water resources. Development that advances social progress, economic growth and environmental protection.
Human capital
Non-equilibrium environments Northern Kenya and other Arid Lands
Pastoralism
Sustainable development
iii
List of Acronyms
ASALs CBAHW GDP HDI ICT MDGs NER TIVET Arid and Semi-Arid Lands Community-Based Animal Health Worker Gross Domestic Product Human Development Index Information and Communication Technology Millennium Development Goals Net Enrolment Ratio Technical, Industrial, Vocational and Entrepreneurship Training
iv
FOREWORD
The title of this policy is a deliberate echo of the influential Sessional Paper No. 10 of 1965, which perpetuated the biased distribution of public investment established under colonial rule. Resources were directed towards the so-called high potential areas of crop production, overlooking the wealth of lowland livestock-based economies and creating the deep inequalities in human development which we see in Kenya today. The Government, under Agenda 4 of the 2008 National Accord, recognises both the threat posed by regional inequality and the potential that exists in all peoples and production systems. Kenya Vision 2030 acknowledges the special circumstances of previously marginalised communities, and in its first Medium Term Plan lays emphasis on poverty reduction and the re-balancing of regional development. Accelerated investment in previously neglected regions is essential if all Kenyans are to have an equal chance of sharing in the promise and benefits of Vision 2030. This paper does not duplicate national policies with universal relevance across Kenya. Rather, it addresses three distinct policy challenges which are particular to Northern Kenya and other arid lands: first, how to close the developmental gap between Northern Kenya and the rest of the country, which is a product of its historical experience, and in so doing strengthen national cohesion; second, how to protect and promote the mobility and institutional arrangements which are so essential to productive pastoralism; and third, how to ensure food and nutrition security across the arid and semi-arid lands, where unpredictability is certain to increase as the impact of climate change deepens. By addressing these three policy challenges, the Government will release the latent potential of the arid and semi-arid lands. In livestock, tourism, and renewable energy, and in its strategic location as Kenyas bridgehead to the markets of North Africa and the Middle East, the region has a major comparative advantage. This policy has benefited from the insights of numerous stakeholders, including community representatives, elected leaders, development partners, and technical specialists, and I take this opportunity to thank them all. Since the role of my Ministry is to amplify the work of Government in the region, the commitments in this policy will be implemented in close partnership with other Ministries. The arid and semi-arid lands of Kenya have much to offer our country. It is time that we looked at them differently, recognising their strengths and resources and understanding what makes them distinct. By doing so, we will remove the injustices from which they have suffered for too long, contribute to achieving our national development goals, and act in accordance with the spirit and commitments of our new Constitution. Hon. Mohamed Ibrahim Elmi, E.G.H., M.B.E., M.P. Minister of State for Development of Northern Kenya and other Arid Lands
CHAPTER ONE INTRODUCTION

1.1 The Arid and Semi Arid Lands (ASALs) make up more than 40% of the earths surface and are home to 35% of its population.1 In Kenya, the ASALs occupy 89% of the country and are home to about 14 million people and approximately 70% of the national livestock herd. The ASALs have the lowest development indicators and the highest incidence of poverty in the country. This is partly the result of conscious public policy choices taken in Kenyas past. Under the heading Provincial Balance and Social Inertia, Sessional Paper No. 10 of 1965 stated the following: One o f our prob l ems i s to de c i de how mu c h prior i ty we shou ld gi ve i n i nvest i ng i n l ess deve loped prov i n c es. To make the e c onomy as a who l e grow as f ast as possi bl e , deve l opment money shou l d be i nvested where i t w ill y i e l d the l argest i n crease i n net output . Th is approa c h w ill c l earl y f avour the deve l opment o f areas hav i ng abundant natura l resour c es , good l and and ra i n f a ll , transport and power f a c ili t i es , and peop l e re c ept i ve to and a c t i ve i n deve l opment . For many years this statement guided the direction of Government resources, with the result that the social and physical infrastructure of the arid districts was neglected. Many analysts also argued that the regions main livelihood strategy, mobile pastoralism, was irrational and environmentally destructive, and that the ASALs contributed little to the national economy. The Government recognises that these arguments are not based on sound socioeconomic analysis but stem from a lack of appreciation of the regions potential and a lack of understanding of its production systems. The ASALs have hidden strengths and enormous resources that can be harnessed not only to sustain themselves but to contribute to national development. Recent research estimates the contribution of livestock to agricultural GDP to be Kshs. 320 billion, only slightly less than that from crops and horticulture.2 Since 2003 the Government has demonstrated renewed commitment to the ASALs, for example through the Economic Recovery Strategy launched in 2003, which recognised the important contribution [the ASALs] can make to national development. It has now gone further and created the Ministry of State for Development of Northern Kenya and other Arid Lands. The Ministry wishes to put in place a holistic policy framework to facilitate and fast-track sustainable development in the region, reducing levels of inequality with the rest of Kenya and releasing its potential for the benefit of the nation as a whole.
1.2
1.3
1.4
1.5
Michael Mortimore, 2009. Dryland Opportunities: A New Paradigm for People, Ecosystems and Development 2 Roy Behnke and David Muthami, 2011: The Contribution of Livestock to the Kenyan Economy, FAO & IGAD
1.6
The Government recognises that Kenya will not achieve sustained growth in her economy and progress as a nation if the ASALs are not appropriately factored into national planning and development. Trickle-down approaches from areas which already have more favourable investment climates have not worked; moreover, the potential for significant growth in these areas is now limited. The Government also recognises that Kenya will not achieve the goals of Vision 2030 or meet international commitments such as the Millennium Development Goals (MDGs) if regional inequalities are not addressed. Poverty, inequality and insecurity in one part of the country diminish the whole. Accelerated investment in previously neglected regions is necessary if all Kenyans are to have an equal chance of sharing in the promise and benefits of Vision 2030. Experience from other parts of the world suggests that the right institutional framework has often been key to success in addressing regional under-development particularly one which harnesses high-level political leadership to ensure strong partnerships across sectors and between different levels of Government, and which provides a clear legal framework for implementing institutions. The solutions to regional under-development are only partly economic; they may also be achieved through changes in social attitudes and in the distribution of power and authority, for example through enhanced devolution. This policy does not duplicate national policies which have universal relevance across Kenya. Rather, it focuses on issues which are distinctive to Northern Kenya and other Arid Lands, on which a more nuanced policy response is required. Its provisions are consistent with the African Union Policy Framework for Pastoralism in Africa, which was approved in January 2011.
1.7
1.8
CHAPTER TWO GEOGRAPHICAL COVERAGE

2.1 Introduction
2.1.1 The phrase Northern Kenya and other Arid Lands in the title of the Ministry refers to an area that is commonly called the ASALs (arid and semi-arid lands), and that covers nearly 90% of the country. Inevitably there is significant diversity within such a large region, which this chapter seeks to explain. 2.1.2 Three distinct but related terms are used in this document: the ASALs, pastoralism, and Northern Kenya. The three are interconnected. The arid counties are geographically synonymous with the concept of Northern Kenya, which refers to the area once known as the Northern Front i er D istri c t (NFD). Pastoralism is the dominant production system in the arid counties, and in some semi-arid counties as well. 2.1.3 However, there are also important differences between the three terms. Not everyone in the north is a pastoralist. Nor are the inequalities between the north and the rest of Kenya primarily a consequence of its ecology hence the use of the term Northern Kenya as well as arid lands. All three terms are important because they raise different policy concerns, which are summarised in the next three sections.
2.2
Arid and Semi-Arid Lands (ASALs)
2.2.1 The defining feature of the ASALs is their aridity. Annual rainfall in arid areas ranges between 150mm and 550mm per year, and in semi-arid areas between 550mm and 850mm per year. Temperatures in arid areas are high throughout the year, with high rates of evapotranspiration. The primary policy challenge is how to ensure food 3
and nutrition security in a sustainable manner in environments that are prone to drought, where peoples access to and control over critical livelihood resources such as land is insecure, and where unpredictability is set to increase as climate change takes hold. In this respect some semi-arid areas face challenges equal to or greater than those in arid. In the semi-arid counties of Kilifi and Taita Taveta, for example, the level of stunting in children under five, which is an indicator of chronic malnutrition, is higher than in the arid counties of Turkana, Marsabit and Mandera three places with the highest levels of poverty in the country.3 2.2.2 There are important differences between arid and semi-arid areas. The economy of arid areas is dominated by mobile pastoralism, while in the better-watered and better-serviced semi-arid areas a more mixed economy prevails, including rain-fed and irrigated agriculture, agro-pastoralism, bio-enterprise, and conservation or tourism-related activities. Other groups within the ASALs depend on fishing, hunting and gathering for their subsistence. The ecology of semi-arid areas allows for the intensification of production in a way that the ecology of arid areas does not. Nevertheless, both arid and semi-arid areas experience chronic food insecurity and face critical challenges such as population increase, degraded ecosystems, and climate change. 2.2.3 Population density ranges from 1 or 2 people per km2 in parts of Turkana and Marsabit to 358 people per km2 in parts of Kilifi.4 Population growth rates in the ASALs are generally higher than in other parts of the country. This is partly the result of in-migration, and partly because fertility rates are falling faster elsewhere in Kenya. As much as 54% of the population in Mandera, for example, is aged 0-14.5 Access to infrastructure and services in semi-arid areas with the exception of those with significant pastoral populations is comparable with the national average, while in arid areas it is far below. For example, in 2006 the ratio of public schools to secondary students in semi-arid Kitui was 1:831, while in arid Garissa it was over four times higher, at 1:3,774.6
2.3
Pastoralism
2.3.1 Pastoralists in Kenya are found in all the arid counties and in some of the semi-arid. Pastoralism is the extensive production of livestock in rangeland environments. It takes many forms, but its principal defining features are livestock mobility and the communal management of natural resources. These are regulated by sophisticated governance systems within pastoral societies. The primary policy challenge is how to protect and promote mobility and, in line with the Constitution, support the customary institutions which underpin pastoralism in a society which is otherwise sedentary and tending towards more individualised modes of organisation and production.
3 4
Republic of Kenya, 2007: Kenya Integrated Household Budget Survey, 2005-06 Republic of Kenya, District Development Reports, 2002-2008 5 Republic of Kenya, 2010: Kenya Population and Housing Census, 2009 6 Number of schools: EMIS School Census data returns. School-age population: District Development Plans 2002-2008
2.3.2 A policy focus on pastoralism is justified for two main reasons. First, pastoralists are among the groups most marginalised from socio-economic services and infrastructure. Successful achievement of national and international development targets will depend on the extent to which attention is given to the distinct challenges facing pastoral communities. The second reason is that, until recently, most governments viewed pastoral areas as net consumers of national wealth that offered poor prospects of return on investment. Pastoralism was therefore less valued than other forms of land use and less well-supported. Recent studies have shown that these views were misplaced. As a result, Governments in several countries, including Kenya, now recognise the strengths of pastoralism and have formed ministries or other authorities to enhance the contribution of pastoralism to food security, environmental stewardship, and economic growth.
2.4
Northern Kenya
2.2.1 The defining feature of Northern Kenya is its separation from the rest of the country, which is evident not just in the wide developmental gap between the region and the rest of Kenya but in socio-cultural attitudes and perceptions. The primary policy challenge is how to close this gap and achieve national integration on terms that benefit the people of the region and the country as a whole. 2.2.2 This separation has its roots deep in Kenyas past, in the creation of the NFD by the colonial regime. The NFD was used as a buffer against hostile neighbours an expansionist Abyssinian empire to the north and an unstable Jubaland to the east. Governance of the NFD was characterised by restrictions on movement, collective punishment, and the use of extensive non-accountable executive powers. Emergency laws were not repealed until the advent of multi-party rule in the 1990s, by which time the region had fallen far behind the rest of Kenya in levels of investment, infrastructure, and human development. 2.2.3 Northern Kenya displays many of the characteristics of remote rural areas caught in chronic poverty traps, which face multiple and interlocking forms of disadvantage. Isolation, insecurity, weak economic integration, limited political leverage, and a challenging natural environment combine to produce high levels of risk and vulnerability. Eighteen of the 20 poorest constituencies in Kenya, where 74% - 97% of people live below the poverty line, are in Northern Kenya.7 The highest rates of poverty are observed among those who are no longer directly involved in pastoralism, particularly those without livestock who depend on casual labour or petty trade in towns.
Republic of Kenya, 2008: Constituency Report on Well-Being in Kenya
2.2.4 The geographical coverage of these three policy challenges is as follows:

Northern Kenya Counties covered
Turkana, parts of Baringo, West Pokot, Samburu, Isiolo, Marsabit, Mandera, Wajir, Garissa, Tana River, Lamu
Pastoralism
Turkana, Baringo, West Pokot, Samburu, Isiolo, Marsabit, Mandera, Wajir, Garissa, Tana River, Narok, Kajiado, parts of Laikipia
ASALs
Turkana, Baringo, West Pokot, Samburu, Isiolo, Marsabit, Mandera, Wajir, Garissa, Tana River, Narok, Kajiado, Lamu, Kilifi, Kwale, Taita Taveta, Kitui, Makueni, Meru, Tharaka-Nithi, Embu, Laikipia, Nyeri
2.2.5 In summary, the remit of this policy extends across the entire arid and semi-arid lands. The policy acknowledges and responds to the specific ecological, social, economic and political realities in the ASALs that distinguish them from the rest of Kenya. However, within such a large region different areas inevitably have their own distinct policy challenges which are reflected in its specific provisions.
CHAPTER THREE SITUATION ANALYSIS

3.1 Introduction
As the introduction suggested, there are two themes running through this policy. One is the challenge of regional inequality, which primarily affects the arid north. The other is the latent potential of the ASALs and their economic, environmental and cultural wealth, which is rarely captured in conventional methods of analysis. Underlying inequalities must be removed before this potential can be realised. For the most part these inequalities concern what Vision 2030 calls the foundations for development, and specifically the poor economic and social infrastructure in Northern Kenya. This chapter addresses both these broad themes, by illustrating the extent of regional inequality and by highlighting the potential gains for the region and the nation as a whole were these inequalities to be removed.
3.2
The extent of regional inequality

In the arid north of Kenya, the basic foundations of development are inadequate or lacking. Access to education, health, water, diverse dietary intake, infrastructure, energy, and ICTs are all well below the national average. These are critical enablers of growth and their absence is holding the region back. The consequences for human development are evident in Figure 1: in 2005 seven districts in the north had a Human Development Index that was half the national average; it was also lower than that of Sierra Leone, which at that time was the lowest-ranked country in the world.8 One indicator of vulnerability is the pattern of formal credit use. For example, only 5% of households in Samburu seek credit, against a national average of 30.7%. Nearly 65% of these borrow Fig. 1 Human Development Indices for subsistence rather than 0 .6 investment, against a 0 .5 national average of 37.4%.9 0 .4 However, these figures do 0 .3 not reflect the substantial 0 .2 level of inter-household 0 .1 borrowing that often keeps 0 pastoralist families afloat. Turkana Wajir Garissa Tana Ijara Mande ra W est Sierra Kenya
Rive r Pokot L eone
3.2.1
8
Infrastructure: access to transport, water, energy and ICTs
UNDP, 2006 Kenya National Human Development Report, 2006: Human Security and Development: A Deliberate Choice. The HDI for Sierra Leone in 2005 was 0.336. The Human Development Index is a composite measure of four indices: life expectancy, adult literacy, gross enrolment (primary, secondary, tertiary), and GDP per capita. 9 Republic of Kenya, 2007: Kenya Integrated Household Budget Survey, 2005-06
3.2.1.1
Northern Kenya covers close to 400,000km2 of land but has less than 700km of tarmac road, most of which is in disrepair.10 Figure 2 shows the differentials in road density by province, with the lowest density in those provinces which stretch across the arid north, i.e. North Eastern, Eastern, Coast and Rift Valley.11 Water and sanitation infrastructure is poor and badly maintained. Nearly 43% of people in arid areas take more than one hour to reach water in the dry season; 24% take more than two hours (Figure 3).12 Only one county, Isiolo, is currently connected to the national electricity grid. Mobile telephone operators are expanding their networks, but coverage is still limited to the major towns. The ICT infrastructure is inadequate and expensive. Although the fibre-optic cable has now reached several locations in the north, for the most part communication remains heavily reliant on satellite.
Fig. 2 Road density by province (length/sq.km)
North Eastern Eastern Coast Rift Valley Western Nyanza Central Nairobi 0 0.5 1 1.5 2 2.5 3 0.1 0.2 0.3 0.4 1.4 1.4 2 3.2 3.5
3.2.1.2
3.2.1.3
Fig. 3 Time taken to reach water in dry season
Arid >2 hours 1-2 hours
Semi-arid >2 hours 1-2 hours 0 5 10 15 20 25 30
10 11 12
Calculated from District Development Plans 2002-2008 Republic of Kenya, 2007: Kenya Integrated Household Budget Survey, 2005-06 ALRMP II Baseline Survey, 2006
3.2.2 Education 3.2.2.1 A significant proportion of the population aged 6-17 in Northern Kenya has never been to school (Figure 4).13 Four years after the introduction of free primary education in 2003, Fig: 4 Percentage of population 6-17 who have never attended the average net school enrolment ratio in public primary schools across arid Western Province Nyanza Province areas was 51.1% Central Province (2007), against a West Pokot Turkana national average Samburu Baringo of 91.6%. This Wajir Mandera was an increase of Garissa Moyale nearly 45% on the Marsabit Isiolo 2003 NER, Tana River 0 10 20 30 40 50 60 suggesting a growing demand for education. However, it also conceals significant differentials within the region; enrolment in places such as Wajir, Garissa and Ijara is still below 30%.14 At secondary level, the NER in arid areas in 2007 was 5.52%, against a national average of 24.2%. For 60% of students in Northern Kenya there is no school within 6km; for nearly 50% there is no school within 11km (Figure 5).15
Fig. 5 Distance to secondary schools: arid districts
3.2.2.2
0-5km 6-10km >11km
3.2.2.3
Rates of retention, survival and completion in Northern Kenya are also very low. The primary completion rate in the north in 2007 was 42.3%, compared with 81% nationally. More specifically, 56.4% of boys completed but only 27.6% of girls.16 Northern Kenya also has the lowest ratios of trained teachers to pupils, low performance in the national examinations, and low rates of transition to university. With some notable exceptions such as Moyale at primary level and Turkana and Tana River at secondary level there is also a significant gender gap in enrolment, to the disadvantage of girls.
13 14 15 16
Ibid. Sara Ruto, 2009: Education on the Margins, unpublished background study for UNESCO ALRMP II Baseline Survey, 2006 Sara Ruto, 2009: Education on the Margins, unpublished background study for UNESCO
3.2.2.4
Similar inequalities are evident in adult literacy. Only 18.5% of adults in Mandera and 19.1% of adults in Turkana are formally literate, compared with the national average of 79%.17 Again, the figures are worse for women: for every five literate men in Mandera there is only one literate woman.18
3.2.3 Health 3.2.3.1 Health indicators in Northern Kenya are generally poor, but particularly so for women and children, with high maternal, infant and child mortality, high levels of acute malnutrition, and low immunisation coverage. Figure 6 shows that there are significant differentials between the northern arid areas and other parts of Rift Valley and Eastern Provinces in the percentage of children delivered with trained care.19 Sanitation coverage is also low. Toilet coverage for North Eastern Province in 2003 was 19.1%, the lowest in the country, against a national average of 83.8%.20 The health service infrastructure is poorly distributed and inadequately staffed. The average distance to a health facility in Northern Kenya is 52km, ten times further than the national target of 5km.21 At the time of an assessment by the APHIA II programme in North Eastern Province in late 2007, nearly one-third of the provinces health facilities (49 out of 153) were closed due to lack of personnel.22 The doctor-patient ratio in North Eastern Province is nearly six times higher than
Fig. 6 Percentage of children under five delivered with trained care
3.2.3.2
74.6 50.7 60 44.2 25.7 15.5 33.1 56.7
Kenya: average
Central
Nyanza
North Eastern
Rift Valley: other districts
Rift Valley: arid districts
Eastern: Eastern: other arid districts districts
Fig. 7 Number of patients per doctor by province
140000 120000 100000 80000 60000 40000 20000 0 Central Eastern Rif t Valley Western Coast North Eastern
17 18
Republic of Kenya, 2007: Kenya Integrated Household Budget Survey, 2005-06, table 4.6 Ibid. 19 Republic of Kenya, 2007: Kenya Integrated Household Budget Survey, 2005-06 20 Republic of Kenya, 2004: Demographic and Health Survey, 2003 21 UNICEF data 22 USAID, 2008: Report of Human Resources for Health (HRH) Rapid Assessment in North Eastern Province (NEP) Kenya
10
that in Central Province (1:120,823 as against 1:20,715 Figure 7).23 Of the six Rural Health Training and Demonstration Centres in Kenya, none are in arid areas, meaning that trainees have inadequate exposure to the particular health challenges of mobile pastoralist communities.
3.3
3.3.1
The potential of the region

Strategic position The location of the region and its socio-cultural attributes make it well-positioned to benefit from surplus capital in the Gulf, one of the fastest-growing parts of the world. It is also the bridgehead to a regional economy of more than 100 million people. Countries such as Ethiopia, South Sudan and Somalia need outlets for their products, imports of manufactured goods and, in the case of South Sudan and Somalia, materials for reconstruction. Trade The economies of the lowlands and highlands are complementary. Opening up the north will generate more demand for Kenyan products. There is already significant movement of capital between parts of the north and Nairobi, which is set to grow. Livestock The ASALs host about 70% of the national livestock herd with an estimated value of Kshs. 70 billion. As populations increase, urbanise and become richer, they demand more meat and other livestock products. Kenya is a meat-deficit country. Research suggests that 400,000 jobs could be created if 50% of that domestic deficit were to be met by increased livestock production from North Eastern Province alone.24 Tourism The ASALs have a comparative advantage in tourism. They are home to more than 90% of the wild game that supports the tourist industry, and contain most of the protected areas such as game reserves and national parks. The symbiotic interaction between wildlife and pastoralism, coupled with the rich cultural heritage of pastoral and agro-pastoral communities, is a major tourist attraction. Tourism is usually Kenyas highest foreign exchange earner and contributes around 12% to Kenyas GDP. Natural wealth The ASALs have enormous potential for renewable energy, from both solar and wind. Other natural resources include sand and gravel for construction, soda ash, gums, resins, gemstones, medicinal plants, and potentially oil and gas. Significant amounts of seasonal water run-off are currently lost but could be
3.3.2
3.3.3
3.3.4
3.3.5
23
UNDP, 2006: Kenya National Human Development Report 2006: Human Security and Human Development: A Deliberate Choice 24 ReSAKSS, 2008: Investment Opportunities for Livestock in the North Eastern Province of Kenya: A Synthesis of Existing Knowledge
11
harnessed for domestic and productive use. Dryland soils and vegetation store substantial amounts of carbon, suggesting that the ASALs could be integrated into the carbon market and generate payments for environmental services such as carbon sequestration, assuming that equitable and effective mechanisms to manage this can be put in place. 3.3.6 Pastoralists experience of managing climate variability Pastoralists have successfully managed climate variability for centuries. Their skills and indigenous knowledge will become more valuable as the impact of global climate change becomes more pressing. Urban development Carefully planned and strategic urban development in the ASALs will benefit the region, particularly through employment creation. It will also open up new economic opportunities for the country as a whole, reducing population pressure in high-density areas and strengthening national cohesion through the intermingling of social groups.
3.3.7
12
CHAPTER FOUR GOAL AND OBJECTIVES OF THE POLICY

4.1 The goal of this policy is to facilitate and fast-track sustainable development in Northern Kenya and other arid lands by increasing investment in the region and by ensuring that the use of those resources is fully reconciled with the realities of peoples lives. The objectives of this policy are: i. To strengthen the integration of Northern Kenya and other arid lands with the rest of the country and mobilise the resources necessary to ensure equity and release the regions potential. ii. To improve the enabling environment for development in Northern Kenya and other arid lands by establishing the necessary foundations for development. iii. To develop alternative approaches to service delivery, governance and public administration which accommodate the specific realities of Northern Kenya and pastoral areas. iv. To strengthen the climate resilience of communities in the ASALs and ensure sustainable livelihoods. 4.3 Implementation of this policy will contribute towards the Governments vision of security, justice and prosperity for the people of Northern Kenya and other arid lands. It will help achieve the three pillars of Vision 2030 economic, social and political but particularly the social pillar, which seeks to create a just and cohesive society that enjoys equitable social development in a clean and secure environment. Finally, it will reduce dependence on relief interventions and the heavy financial burden of emergency response.
4.2
13
CHAPTER FIVE ELEMENTS OF THE POLICY

5.1
5.1.1
Strengthen national integration, cohesion and equity

A long history of separate development in the colonial and immediate postcolonial periods did little to build understanding between Kenyans in the north and those in the rest of the country. To many, the north is remote, hostile and insecure, and its people resistant to change. In their turn, many in the north regard the south as a distant and different country. These attitudes have shaped patterns of investment in Kenya, such that the north has fallen far behind the rest of the country against most indicators of social and economic development. Further, certain laws and administrative regulations which apply only to the north and not to the rest of Kenya remain in force; examples include the Stock Theft and Produce Act, and the requirement to secure police clearance for flights. However, under the new Constitution, differential treatment of this kind is no longer constitutional. Northern Kenya and other arid lands require accelerated investment for a finite period in order to achieve equity and release the regions potential. This timebound affirmative action will need the support and understanding of all Kenyans, which can only be secured through greater contact and exposure between communities in different parts of the country. This in turn will contribute towards the objective of the Vision 2030, which is to move all Kenyans to the future as one nation a nation that respects and harnesses the diversity of its peoples values, traditions and aspirations for the benefit of all.
5.1.2
5.1.3
5 . 1 . 4 In order to strengthen nat iona l c ohesion and a cc e l erate i nvestment i n the reg ion , the Government w ill : Build mutual understanding and respect between the people of Northern Kenya and other Kenyans through a deliberate programme of education and social change. Ensure that the Equalisation Fund and other measures in the new Constitution that aim to remove marginalisation in Kenya address the particular challenges facing Northern Kenya and other arid lands. Develop a package of fiscal and other incentives that will attract private sector investment into Northern Kenya and other arid lands, particularly if investing in the regions core resources, such as livestock, or its social and economic infrastructure. Ensure that all investment and economic development protects the environment, provides compensation where required, and delivers maximum benefits to communities in the region and to Kenya. This includes developing an investment framework and appropriate mechanisms that channel a fixed percentage of the proceeds from natural resources, including oil and mineral resources, directly to local communities.
14
5.2
Improve the enabling environment Northern Kenya and other arid lands
for
development
in
Lack of the basic foundations for development in Northern Kenya and other arid lands, particularly infrastructure, human capital, and security, is deterring investment, undermining productive potential, draining resources into prolonged emergency response, and frustrating local-level initiative. 5.2.1 5.2.1.1 Infrastructure Kenya Vision 2030 aspires to be a country that is firmly inter-connected and identifies infrastructure as a key foundation for development. A more robust infrastructure in Northern Kenya and other arid lands will stimulate investment and growth. It will create jobs, reduce poverty, improve terms of trade and lower the cost of doing business. Better infrastructure will improve security, stabilise the region, and strengthen its integration with the rest of the country and neighbouring markets.
5 . 2 .1 . 2
In order to open up Northern Kenya and other ar i d l ands f or deve l opment , the Government w ill : Develop and maintain an integrated, safe and efficient road, rail and air transport network in the region, prioritising the development of transport corridors linking Kenya to key markets in Ethiopia, South Sudan and Somalia and beyond them to the Middle East. This will include the Lamu Port-South Sudan-Ethiopia transport corridor. Invest in water harvesting, water supply and irrigation infrastructure. Improve the water and sanitation infrastructure in line with a strategic assessment of the most appropriate locations and technologies. Harness renewable energy such as wind and solar for the benefit of the nation. Expand access to power and ICTs for the people of the region. Draw up strategic development plans for urban areas that meet the housing, employment and service needs of urban populations, and provide sustainable economic opportunities for their surrounding rural areas, while also protecting the grazing and water rights of pastoralists. Develop a cost-effective housing strategy for the ASALs that applies appropriate building technologies and best practices in human settlements in arid areas. Ensure that infrastructure investments are climate-proofed and appropriate to the particular circumstances of the region. Take appropriate measures to enhance private sector participation in infrastructure development, such as the provision of incentives in sectors such as housing, renewable energy, transport, and communication.
15
5.2.2 5.2.2.1
Human capital A healthy and skilled population is critical to achieving the goals of Vision 2030, particularly that of global competitiveness. However, the disparities in human capital between the north and the rest of Kenya are so acute that major investment will be necessary if the region is first to compete on an equal basis with the rest of the country. Learning facilities in Northern Kenya are inadequate. There is no functional university or university college, only one teacher training college, one technical training institute, and very few TIVET institutions (Technical, Industrial, Vocational and Entrepreneurship Training). The number of teachers is insufficient, with very few recruited locally, and there is little attention paid to Early Childhood Development. As a result, the region achieves very low rates of enrolment, transition, completion and literacy, particularly for girls, and performs poorly in the national exams. Very few students qualify for competitive professional courses such as medicine and engineering, and very few qualify for admission under the Joint Admission Board. The health service infrastructure is also poor, with few and scattered health facilities staffed by inadequate numbers of personnel. Health and nutrition indicators compare unfavourably with the national average, particularly for women and children. High levels of poverty limit the role of private health providers: most people in the region access services almost exclusively from public health facilities. Seasonal fluctuations in access to an optimal, diverse diet impact significantly on the survival and development of children, women and other vulnerable groups.
5.2.2.2
5.2.2.3
5 . 2 .2 . 4
In order to strengthen human c ap i ta l i n Northern Kenya and other ari d l ands , the Government w ill : Develop and improve appropriate infrastructure for education, training and health care at all levels, including tertiary and higher education. Increase the number of appropriately trained education, health and nutrition professionals and develop mechanisms to attract and retain high-calibre officers. Introduce affirmative action programmes for people from Northern Kenya and other arid lands, particularly women, to enter all public training institutions. Target a percentage of bursaries at students from Northern Kenya and other arid lands, particularly girls who wish to pursue tertiary and university education. Address issues that disproportionately affect the education, health and nutritional status of girls and women. Ensure that the Health, Agriculture, Livestock and Education sectors fully incorporate nutrition considerations in their programmes and policies.
16
5.2.3 5.2.3.1
Security and the rule of law In popular imagination, Northern Kenya and other arid lands are associated with insecurity and violence. These perceptions deter investment and undermine development. However, the level of crime is generally low. Insecurity is primarily driven by competition over natural or political resources or by a groups desire to assert itself. The security infrastructure is inadequate for such a large area with poor communication networks, a dispersed population, and a heavy presence of illegal firearms. Insecurity in this border region has international ramifications, but there is no comprehensive regional framework governing cross-border interaction. While the region still has relatively strong systems of traditional justice and governance, it is poorly served by the formal justice system. Until recently there was no High Court in the whole of the arid counties (there is now just one). The number of people per court in North Eastern Province is more than 2.5 times the number in Central Province.25 The size and poor infrastructure of the region makes the cost of reaching the nearest court prohibitive.
5.2.3.2
5 . 2 .3 . 3
In order to enhan c e se c uri ty and the ru l e o f l aw i n Northern Kenya and other ar i d l ands , the Government w ill : Put in place comprehensive measures to end livestock raiding and intercommunal violence, including incentives for individuals, communities or institutions which deliver positive results for peace. Enhance the presence and capacity of the security and justice systems. Strengthen traditional systems of governance and alternative dispute resolution mechanisms. Enact and implement the National Peace Building and Conflict Management policy. Apply conflict-sensitive approaches to development. Ensure that all interventions in the region are planned and conducted in a manner that is sensitive to local values and priorities. Put in place measures to minimise human-wildlife conflict. Develop a mechanism with neighbouring countries which ensures effective management of peace and security.
25
Society for International Development, 2004: Pulling Apart: Facts and Figures on Inequality in Kenya
17
5.3
5.3.1
Develop alternative approaches to service delivery, governance and public administration in Northern Kenya and pastoral areas
The population of Northern Kenya and some pastoral areas is highly dispersed, scattered across a large area in relatively small settlements. Many people are also mobile, since mobility is key to reliable production in dryland environments. The Government recognises that mobility is a rational and sophisticated response to environmental conditions. However, mobility in many pastoral areas of Kenya is curtailed by settlements, administrative boundaries, conflict, and land alienation. Both mobility and low population density make service delivery more challenging. Distances to schools, health referral facilities, and centres of justice and administration are long, and over poor roads with limited transport. Pastoral production traditionally depends on access to household labour. An education system that offers only static centres of learning is incompatible with families need to remain mobile, thus impeding the education and career development of both boys and girls. In addition, the generally subordinate status of women, and certain cultural practices in pastoral societies, have a negative impact on girls education. The organisation of government has particular ramifications in pastoral areas. Smaller units of administration may undermine the mobility of pastoralists through the proliferation of settlements and boreholes. They may also reinforce the position of majority clans versus minority clans. Activities which require a citizens presence on a fixed day in a fixed place, such as an election or census, do not take account of mobility. Traditional systems of governance and administration in Northern Kenya and arid lands are still strong, particularly those dealing with peace building and natural resource management. There are positive examples of formal and customary systems of governance forging an accommodation with each other. There are also examples of contradictions between the two: for example, there is a dissonance between the rights of the individual in a modern electoral system and the dominant role of clan elders in shaping political leadership. One particular feature of social systems in pastoral communities is the status of youth, such as morans in Maasai society, within age-grade systems in which ageing is traditionally associated with increasing political authority. Their specific situation is not currently addressed within national youth policies.
5.3.2
5.3.3
5.3.4
5.3.5
5.3.6
18
5 . 3 . 7 In order to ensure that peop l e i n Northern Kenya and pastora l areas enjoy a l eve l o f a cc ess to pub li c serv i c es c omparabl e to those i n other parts o f the country , the Government w ill : Recognise, through legislation, pastoralism as a legitimate form of productive land use and development on the same basis as farming, and incorporate the value of dryland goods and services within national economic planning. Reconcile the electoral system with the realities of arid and pastoral areas. Ensure that devolved structures accommodate mobility and resource-sharing across administrative boundaries and draw on the knowledge and experience of customary institutions. Explore innovative ways of enhancing security and access to justice in arid and pastoral areas. Integrate the specific needs and circumstances of pastoralist youth, both women and men, within national youth policies and strategies, and develop youthfriendly social services. 5 . 3 . 8 In the edu c at ion se c tor , the Government will : Introduce flexible education systems of high quality, which are responsive to the needs of the area and which reinforce traditional knowledge systems in pastoral societies. Promote the use of appropriate ICTs and other technologies in service delivery. Revise the Education Act to incorporate alternative ways of providing education services to nomadic communities, such as distance and mobile education. Establish the National Council on Nomadic Education. Expand adult literacy services, particularly for women. 5 . 3 . 9 In the hea l th se c tor, the Government w ill : Introduce flexible health systems of high quality which are responsive to the needs of the area. Promote the use of appropriate ICTs and other technologies in service delivery. Adapt community-based health systems for remote and mobile populations, and integrate these with animal health systems where appropriate. Introduce a health insurance scheme tailored to the needs of pastoralists.
19
5.4
5.4.1
Strengthen the climate resilience of communities in the ASALs and ensure sustainable livelihoods
Drought management and climate change Drought is a normal, recurring but temporary characteristic of arid areas. Drought periods can be anticipated and managed; failure to do so has major social and economic consequences, particularly for women and girls. The 20082011 drought is estimated to have cost Kenya US$12.1bn in damages and losses combined.26 The frequency and severity of drought periods appear to be increasing: Northern Kenya recorded 28 major droughts in the last century, four of which occurred in the last decade. Other pressures, such as population growth and settlements, undermine the capacity of communities to manage drought. Despite substantial experience in Kenya, drought response is still not timely enough. Contingency plans are activated too late to prevent the widespread loss of assets. Climate change will exacerbate the challenges already facing the region. Chronic poverty and vulnerability in the ASALs mean that adaptive capacity is generally low. Traditional mechanisms for managing climate variability, such as mobility and the use of drought reserve areas, are being closed off. Some areas that used to be set aside for emergency grazing now have an over-supply of water yearround.
5.4.1.1
5.4.1.2
5 . 4 .1 . 3
In order to redu c e the e ff e c ts o f drought and c li mate c hange on vu l nerabl e c ommun i t i es i n the ASALs , the Government will : Establish the National Drought Management Authority and National Drought and Disaster Contingency Fund, and ensure timely activation of contingency plans to protect assets. Gazette and manage emergency drought reserve areas and encourage the development of buffer areas of crop and forage production as part of contingency planning. Mainstream climate foresight and climate adaptation into planning at all levels. Systematically strengthen the strategies used by communities to adapt to climate variability and to reduce and manage the risks from natural disasters. Explore opportunities and develop appropriate mechanisms through which communities can benefit from bio-carbon initiatives.
Land and natural resource management High levels of human poverty in the ASALs co-exist with a rich store of natural wealth and biodiversity. Livestock, wildlife, forests, pasture, minerals, and medicinal plants are all critical resources upon which the people of the region
5.4.2 5.4.2.1
26
Republic of Kenya, 2012: Kenya Post-Disaster Needs Assessment for the 2008-2011 Drought
20
depend. However, natural resource management systems have come under increasing pressure from competing forms of land use, successive and more frequent droughts, and the proliferation of ever-smaller administrative units. These present real challenges to the sustainable use of resources. Over the years people in the ASALs, such as pastoralists and those living in Coast Province, have been dispossessed of their land and land-based resources. Unsustainable land use practices are increasing.
5 . 4 .2 . 2
In order to ensure sound l and and natura l resour c e management i n the ASALs , the Government will : Reinforce the authority of traditional natural resource management systems that promote sound environmental practices. Protect and promote indigenous knowledge and practice, promote environmental education and awareness, and intensify environmental conservation efforts. Protect and increase forest cover, riverine vegetation and critical water catchment areas in the ASALs, including special ecosystems such as Mts. Marsabit and Kulal. Eradicate undesirable invasive species such as prosopis. Promote low-maintenance water technologies, with an emphasis on water harvesting which (given likely climate change impacts) can deal with both abundance and scarcity. Ensure that the interests of pastoralists, particularly pastoralist women, are adequately and appropriately addressed in new land legislation and institutions, in line with the National Land Policy.
Livestock production and marketing Livestock production is the dominant economic activity in the ASALs, particularly in the arid districts. This is true even in areas which have experienced the highest rates of diversification and social change. Livestock production in nonequilibrium environments has different characteristics, such as the centrality of herd accumulation, and different requirements than in equilibrium environments. Livestock health systems in the ASALs are under-resourced. Successful experiences with community-based animal health workers are taking place in the absence of an appropriate legal framework. Private veterinarians currently play a limited role in the region since the prospects of profit are poor. There is also limited value addition in the livestock sector, and significant infrastructural and financial constraints facing livestock traders. In general, the livestock sector lacks the kind of institutional support in research, development and marketing that other productive sectors enjoy.
5.4.3 5.4.3.1
5 . 4 .3 . 2
In order to strengthen li vesto c k produ c t ion and market i ng i n the ASALs , the Government w ill : Reform veterinary legislation to allow Community Based Animal Health Workers (CBAHWs) to treat livestock under supervision and certification by the Kenya Veterinary Board.
21
Develop more pragmatic measures governing veterinary quarantine and livestock movements, including night movement. Strengthen disease control and surveillance. Rehabilitate livestock marketing infrastructure through partnerships with the private sector and community associations. Facilitate the establishment of strategic business partnerships between communities and local authorities, based on public-private partnership models. Develop policy which facilitates and recognises the contribution of crossborder trade and facilitates the cross-border movement of livestock for food security. Establish the Kenya Livestock Marketing Board. Establish mechanisms to extend affordable finance to livestock producers and traders, particularly women. Ensure that livestock-based food products enter the national food reserves. Strengthen research and extension systems which are relevant to the livelihoods of ASAL livestock-keepers, including women. Introduce livestock insurance schemes, particularly for pastoralist communities. 5.4.4 5.4.4.1 Dryland farming Agro-pastoralism and marginal farming are critical to the livelihoods of communities in semi-arid areas in particular. In arid areas farming will be done in a manner that complements mobile pastoralism. The potential to increase both rain-fed and irrigated crop production is constrained by inadequate extension services and production technologies, limited access to affordable credit (particularly given the high investment required for irrigation), and poor postharvest management and storage facilities.
5 . 4 .4 . 2
In order to enhan c e f ood se c uri ty i n ASALs, the Government w ill : Strengthen research and extension systems relevant to rain-fed crop production, including soil and water conservation, organic farming and agroforestry. Promote water harvesting to ensure food security in collaboration with Regional Development Authorities. Increase access to the skills and technologies needed for irrigated agriculture, particularly when community-managed. Promote improved practices in post-harvest storage and management. Strengthen market linkages between lowland and highland economies. Establish mechanisms to extend affordable finance to smallholder farmers, particularly women.
Livelihood diversification The Government recognises that livelihood diversification is an important strategy in both arid and semi-arid areas to reduce vulnerability to risk, and that the natural resource base of the ASALs has rich potential in this regard. For 22
5.4.5 5.4.5.1
example, there is growing interest in the production and marketing of natural products such as gums, resins, medicinal plants and culinary products. However, the Government also recognises that the natural resource base can not sustain the livelihoods of the entire ASAL population. There is now a significant urban population right across the ASALs which needs off-farm opportunities for income and employment.
5 . 4 .5 . 2
In th is li ght , the Government w ill : Support livelihood diversification strategies which add value within the livestock sector and complement livestock production. Facilitate the production and marketing of dryland products. Increase the benefits to communities from tourism through the development of community-owned eco-tourism enterprises or conservancies and the promotion of responsible tourism. Promote formal and informal job creation, self-employment and entrepreneurship relevant to the needs of women, youth and men.
Poverty and inequality Northern Kenya has the highest incidence of poverty in the country. A significant proportion of this poverty is concentrated around settlements, particularly among those who have lost livestock. There are also significant inequalities within the region, particularly with respect to the rights of women, lower castes, and minority clans. Most pastoral societies are highly differentiated along gender and generational lines, although social relations are changing under the influence of education, urbanisation and commercialisation. The disabled and those with HIV/AIDS still face high levels of stigma.
5.4.6 5.4.6.1
5 . 4 .6 . 2
In order to redu c e poverty and i nequa li ty i n the reg ion , the Government w ill : Expand social protection interventions, such as the Hunger Safety Net Programme, which help households build their assets, and draw on these to inform the design of a comprehensive national social protection policy. Develop and support financial services and products appropriate to the needs of the region, including insurance schemes for both people and livestock to buffer production against risk. Develop and support income-generating activities that strengthen womens socio-economic position. Develop and strengthen producer and marketing organisations, including cooperatives, in sectors such as agriculture and livestock. Encourage a culture of savings through the promotion of rural SACCOs. Use education to reduce the inequalities experienced by certain social groups, including women & girls, hunter-gatherers and minority clans. Increase the number of women in leadership, law enforcement and public service, and deploy more women to address issues that affect women. Mainstream interventions which address the specific situation of women and of poor or vulnerable groups within all policies and programmes. Protect and promote the rights of people with disabilities and people with HIV/AIDS.
23
CHAPTER SIX INSTITUTIONAL AND LEGAL FRAMEWORK

6.1 Development activities in Northern Kenya and other arid lands are currently poorly planned and coordinated. Coordination is arguably even more critical in areas such as Northern Kenya where limited resources must be stretched across large distances with poor infrastructure, and where the consequences of poor coordination can be damaging to the environment and to social relations. The Government will put in place an institutional and legal framework for the development of Northern Kenya and other arid lands which harnesses the contributions of multiple actors at all levels and makes the most effective use of human and financial resources. In order to ensure coordinated and harmonised development of Northern Kenya and other arid lands, the Government w ill set up ASAL Transf ormat ion Stru c tures. These institutions will be at various levels: An ASAL Cabinet Sub-Committee, chaired by the President or Deputy President, which will provide high-level policy direction and political support to ASAL development. An ASAL Inter-Ministerial Committee, through which Principal Secretaries in key sector ministries will provide leadership across Government. An ASAL Stakeholders Forum, bringing together Government, UN agencies, development partners, NGOs and the private sector, in a forum modelled on the Kenya Food Security Meeting (KFSM) structure. A series of thematic sub-groups are likely to feed into this meeting, such as food security (KFSM/KFSSG), social services, and infrastructure. An ASAL Transformation Secretariat to provide technical and administrative support to the transformation structures.
6.2
6.3
6.4
The Government w ill : Establish a range of institutions that will provide long-term continuity in ASAL development, including a National Drought Management Authority and National Drought and Disaster Contingency Fund to increase responsiveness to drought, a National Council on Nomadic Education, a Northern Kenya Education Trust, a Livestock Marketing Board, and a Northern Kenya Investment Fund. Establish appropriate forums at national, county and sub-county levels that bring key actors together to plan, coordinate and harmonise development activities and resources towards a common goal. Ring-fence all development resources allocated for Northern Kenya and other arid lands. Harmonise the execution of ministerial and devolved budgets, and locally generated revenue, against a single county development plan, which is based on community-identified priorities and responds to available economic opportunities.
24
Strengthen institutional capacity at all levels, particularly within county-level planning and coordination structures, in line with the new Constitution, in order to address the significant capacity challenges likely to face devolved institutions in the arid lands. Draw up a comprehensive human resource policy and strategy for Northern Kenya. Expand the number of research and training institutions that are responsive to the needs of the ASALs. Strengthen the provision of public policy research and analysis from an ASAL perspective.
25
CHAPTER SEVEN FINANCING

7.1 Financing of development in Northern Kenya and other Arid Lands will come from a range of sources, including Government, development partners, the private sector, and civil society organisations.
7.2
The Government w ill : Demonstrate leadership in putting the foundations for development in place (including roads, energy, ICTs, water, education, health and security). Ensure that the Equalisation Fund and other measures in the new Constitution that aim to remove marginalisation in Kenya address the particular challenges facing Northern Kenya and other arid lands. Ring-fence all development resources allocated to Northern Kenya and other Arid Lands. Pursue public-private partnerships. Encourage stronger harmonisation and alignment of finance from development partners against the objectives of this policy. Develop a package of fiscal and other incentives that will attract private sector investment into Northern Kenya and other arid lands, particularly if investing in the regions core resources, such as livestock, or its social and economic infrastructure. Establish a Northern Kenya Investment Fund. Develop appropriate mechanisms to manage the wealth from ASAL resources for the benefit of present and future generations.
26
ANNEXES
1. Summary of policy interventions by objective
Policy issue Policy constraint Proposed policy intervention
1. Strengthen national integration, cohesion and equity High level of regional The Government will: inequality and underBuild mutual understanding and respect between the people development of Northern Kenya and other Kenyans through a deliberate programme of education and social change. Legacy of historical Ensure that the Equalisation Fund and other measures in the marginalisation new Constitution that aim to remove marginalisation in Kenya address the particular challenges facing Northern Kenya and Entrenched attitudes other arid lands. undermine social cohesion Develop a package of fiscal and other incentives that will attract private sector investment into Northern Kenya and other arid lands, particularly if investing in the regions core resources, such as livestock, or its social and economic infrastructure. Ensure that all investment and economic development protects the environment, provides compensation where required, and delivers maximum benefits to communities in the region and to Kenya. This includes developing an investment framework and appropriate mechanisms that channel a fixed percentage of the proceeds from natural resources, including oil and mineral resources, directly to local communities. 2. Improve the enabling environment for development in Northern Kenya and other arid lands Infrastructure Poor physical The Government will: development infrastructure, which Develop & maintain an integrated, safe & efficient road, rail & deters investment and air transport network in the region, prioritising the undermines production development of transport corridors linking Kenya to key markets in Ethiopia, South Sudan and Somalia and beyond them to the Middle East, such as the Lamu Port-South SudanEthiopia transport corridor. Invest in water harvesting, water supply and irrigation infrastructure. Improve the water and sanitation infrastructure in line with a strategic assessment of the most appropriate locations and technologies. Harness renewable energy such as wind and solar for the benefit of the nation. Expand access to power and ICTs for the people of the region. Draw up strategic development plans for urban areas that meet the housing, employment and service needs of urban populations, and provide sustainable economic opportunities for their surrounding rural areas, while also protecting the grazing and water rights of pastoralists. Develop a cost-effective housing strategy for the ASALs that applies appropriate building technologies and best practices in human settlements in arid areas. Ensure that infrastructure investments are climate-proofed and appropriate to the particular circumstances of the region. Take appropriate measures to enhance private sector participation in infrastructure development, such as the provision of incentives in sectors such as housing, renewable energy, transport, and communication.
27

Policy issue Human capital Policy constraint Inadequate education & health facilities Insufficient education & health personnel High levels of poverty Proposed policy intervention The Government will: Develop & improve appropriate infrastructure for education, training & health care at all levels, including tertiary. Increase the number of appropriately trained education, health & nutrition professionals and develop mechanisms to attract & retain high-calibre officers. Introduce affirmative action programmes for people from Northern Kenya and other arid lands, particularly women, to enter all public training institutions. Target a percentage of bursaries at students from Northern Kenya and other arid lands, particularly girls who wish to pursue tertiary and university education. Address issues that disproportionately affect the education, health and nutritional status of girls and women. Ensure that the Health, Agriculture, Livestock & Education sectors fully incorporate nutrition considerations in their programmes and policies. The Government will: Put in place comprehensive measures to end livestock raiding & inter-communal violence, including incentives for individuals, communities or institutions which deliver positive results for peace. Enhance the presence and capacity of the security and justice systems. Strengthen traditional systems of governance and alternative dispute resolution mechanisms. Enact and implement the National Peace Building & Conflict Management Policy. Apply conflict-sensitive approaches to development. Ensure that all interventions in the region are planned and conducted in a manner that is sensitive to local values and priorities. Put in place measures to minimise human-wildlife conflict. Develop a mechanism with neighbouring countries which ensures effective management of peace and security.
Security & the rule of law
Persistence of livestock raiding & inter-communal violence Inadequate security infrastructure Limited presence of the formal judicial system Lack of a regional framework to manage cross-border conflict
3. Develop alternative approaches to service delivery, governance and public administration in Northern Kenya and pastoral areas Low population density The Government will: and mobility make service Recognise, through legislation, pastoralism as a legitimate delivery and the form of productive land use and development on the same organisation of basis as farming, and incorporate the value of dryland goods Government challenging and services within national economic planning. Reconcile the electoral system with the realities of arid and Social & cultural factors pastoral areas. undermine the education Ensure that decentralised structures accommodate mobility & health status of girls & and resource-sharing across administrative boundaries and women draw on the knowledge and experience of customary institutions. Specific situation of Explore innovative ways of enhancing security & access to pastoralist youth is not justice in arid and pastoral areas. reflected in current Integrate the specific needs and circumstances of pastoralist Government policies youth, both women and men, within national youth policies and strategies and develop youth-friendly social services. In the education sector the Government will: Introduce flexible education systems of high quality, which are responsive to the needs of the area and which reinforce traditional knowledge systems in pastoral societies. Promote the use of appropriate ICTs and other technologies in
28

Policy issue Policy constraint Proposed policy intervention service delivery. Revise the Education Act to incorporate alternative ways of providing education services to nomadic communities, such as distance and mobile education. Establish the National Council on Nomadic Education. Expand adult literacy services, particularly for women. In the health sector the Government will: Introduce flexible health systems of high quality which are responsive to the needs of the area. Promote the use of appropriate ICTs and other technologies in service delivery. Adapt community-based health systems for remote and mobile populations, and integrate these with animal health systems where appropriate. Introduce a health insurance scheme tailored to the needs of pastoralists. 4. Strengthen the climate resilience of communities in the ASALs and ensure sustainable livelihoods Drought Drought response is not The Government will: management timely or appropriate Establish the National Drought Management Authority & and climate enough National Drought and Disaster Contingency Fund, and ensure change timely activation of contingency plans to protect assets. Effects of climate change Gazette & manage emergency drought reserve areas and will exacerbate existing encourage the development of buffer areas of crop and challenges forage production as part of contingency planning. Mainstream climate foresight & climate adaptation into Low level of adaptive planning at all levels. capacity Systematically strengthen the strategies used by communities to adapt to climate variability and to reduce and manage the Restrictions on livestock risks from natural disasters. mobility Explore opportunities and develop appropriate mechanisms through which communities can benefit from bio-carbon initiatives. Land and natural resource management Increasing pressure on natural resource management systems from competing forms of land use, droughts, and the proliferation of settlements. Increase in unsustainable land use practices. Alienation of pastoral lands. The Government will: Reinforce the authority of traditional natural resource management systems that promote sound environmental practices. Protect and promote indigenous knowledge & practice, promote environmental education and awareness, and intensify environmental conservation efforts. Protect and increase forest cover, riverine vegetation and critical water catchment areas in the ASALs, including special ecosystems such as Mts. Marsabit and Kulal. Eradicate undesirable invasive species such as prosopis. Promote low-maintenance water technologies, with an emphasis on water harvesting, which (given likely climate change impacts) can deal with both abundance & scarcity. Ensure that the interests of pastoralists, particularly pastoralist women, are adequately and appropriately addressed in new land legislation and institutions, in line with the National Land Policy. The Government will: Reform veterinary legislation to allow Community-Based Animal Health Workers to treat livestock under supervision & certification by the Kenya Veterinary Board. Develop more pragmatic measures governing veterinary quarantine and livestock movements, including night movement.
Livestock production and marketing
Under-resourced livestock health systems Lack of a legal framework for community-based animal health workers
29

Policy issue Policy constraint Infrastructural & financial constraints on livestock traders Proposed policy intervention Strengthen disease control and surveillance. Rehabilitate livestock marketing infrastructure through partnerships with the private sector and community associations. Facilitate the establishment of strategic business partnerships between communities and local authorities, based on publicprivate partnership models. Develop policy which facilitates & recognises the contribution of cross-border trade and facilitates the cross-border movement of livestock for food security. Establish the Kenya Livestock Marketing Board. Establish mechanisms to extend affordable finance to livestock producers & traders, particularly women. Ensure that livestock-based food products enter the national food reserves. Strengthen research and extension systems which are relevant to the livelihoods of ASAL livestock-keepers, including women. Introduce livestock insurance schemes, particularly for pastoralist communities. The Government will: Strengthen research and extension systems relevant to rainfed crop production, including soil and water conservation, organic farming and agro-forestry. Promote water harvesting to ensure food security in collaboration with Regional Development Authorities. Increase access to the skills and technologies needed for irrigated agriculture, particularly when community-managed. Promote improved practices in post-harvest storage and management. Strengthen market linkages between lowland and highland economies. Establish mechanisms to extend affordable finance to smallholder farmers, particularly women. The Government will: Support livelihood diversification strategies which add value within the livestock sector & complement livestock production. Facilitate the production and marketing of dryland products. Increase the benefits to communities from tourism through the development of community-owned eco-tourism enterprises or conservancies and the promotion of responsible tourism. Promote formal & informal job creation, self-employment & entrepreneurship relevant to the needs of both women and men. The Government will: Expand social protection interventions, such as the Hunger Safety Net Programme, which help households build their assets, and draw on these to inform the design of a comprehensive national social protection policy. Develop & support financial services and products appropriate to the needs of the region, including insurance schemes for both people and livestock to buffer production against risk. Develop and support income-generating activities that strengthen womens socio-economic position. Develop and strengthen producer and marketing organisations, including cooperatives, in sectors such as agriculture and livestock. Encourage a culture of savings through the promotion of rural
Dryland farming
Chronic food insecurity Insufficient access for smallholder farmers to appropriate credit, technology and extension services
Livelihood diversification
Population growth increases pressure on the natural resource base High dependence on livestock Limited value addition within the livestock sector
Poverty & inequality
High incidence of poverty Significant intra-regional inequalities with respect to the rights of women and girls, lower castes & minority clans High levels of stigma against those with disabilities and those with HIV/AIDS
30

Policy issue Policy constraint Proposed policy intervention SACCOs. Use education to reduce the inequalities experienced by certain social groups, including women & girls, huntergatherers and minority clans. Increase the number of women in leadership, law enforcement and public service, and deploy more women to address issues that affect women. Mainstream interventions which address the specific situation of women and of poor or vulnerable groups within all policies and programmes. Protect and promote the rights of people with disabilities and people with HIV/AIDS.
31
2 Summary of policy interventions by sector

Sector Agriculture Policy interventions Strengthen research and extension systems relevant to rain-fed crop production, including soil and water conservation, organic farming and agroforestry. Promote water harvesting to ensure food security in collaboration with Regional Development Authorities. Increase access to the skills and technologies needed for irrigated agriculture, particularly when community-managed. Promote improved practices in post-harvest storage and management. Gazette & manage emergency drought reserve areas and encourage the development of buffer areas of crop and forage production as part of contingency planning. Strengthen market linkages between lowland and highland economies. Facilitate the production and marketing of dryland products. Develop & support financial services and products appropriate to the needs of the region, including insurance schemes to buffer production against risk. Establish mechanisms to extend affordable finance to smallholder farmers, particularly women. Develop & strengthen producer and marketing organisations, including cooperatives, in sectors such as agriculture and livestock. Ensure that the Health, Agriculture, Livestock & Education sectors fully incorporate nutrition considerations in their programmes and policies. Develop & improve appropriate infrastructure for education and training at all levels, including tertiary. Increase the number of appropriately trained education professionals and develop mechanisms to attract & retain high-calibre officers. Introduce affirmative action programmes for people from Northern Kenya and other arid lands, particularly women, to enter all public training institutions. Target a percentage of bursaries at students from Northern Kenya and other arid lands, particularly girls who wish to pursue tertiary and university education. Introduce flexible education systems of high quality, which are responsive to the needs of the area and which reinforce traditional knowledge systems in pastoral societies. Promote the use of appropriate ICTs and other technologies in service delivery. Revise the Education Act to incorporate alternative ways of providing education services to nomadic communities, such as distance and mobile education. Establish the National Council on Nomadic Education. Expand adult literacy services, particularly for women. Address issues that disproportionately affect the education status of girls and women. Use education to reduce the inequalities experienced by certain social groups, including women & girls, hunter-gatherers and minority clans. Expand the number of research and training institutions that are responsive to the needs of the ASALs. Ensure that the Health, Agriculture, Livestock & Education sectors fully incorporate nutrition considerations in their programmes and policies. Expand access to power and ICTs for the people of the region. Harness renewable energy such as wind and solar for the benefit of the nation. Ensure that all investment and economic development protects the environment, provides compensation where required, and delivers maximum benefits to communities in the region and to Kenya. This includes developing an investment framework and appropriate mechanisms that channel a fixed percentage of the proceeds from natural resources, including oil and mineral resources, directly to local communities.
Education
Energy
Environment & natural resources
32

Sector Policy interventions Reinforce the authority of traditional natural resource management systems that promote sound environmental practices. Gazette & manage emergency drought reserve areas and encourage the development of buffer areas of crop and forage production as part of contingency planning. Protect and promote indigenous knowledge & practice, promote environmental education & awareness, and intensify environmental conservation efforts. Protect and increase forest cover, riverine vegetation and critical water catchment areas in the ASALs, including special ecosystems such as Mts. Marsabit and Kulal. Eradicate undesirable invasive species such as prosopis. Put in place measures to minimise human-wildlife conflict. Explore opportunities and develop appropriate mechanisms through which communities can benefit from bio-carbon initiatives. Demonstrate leadership in putting the foundations for development in place. Ensure that the Equalisation Fund and other measures in the new Constitution that aim to remove marginalisation in Kenya address the particular challenges facing Northern Kenya and other arid lands. Ring-fence all development resources allocated for Northern Kenya and other arid lands. Pursue public-private partnerships. Encourage stronger harmonisation and alignment of finance from development partners against the objectives of this policy. Establish a Northern Kenya Investment Fund. Develop appropriate mechanisms to manage the wealth from ASAL resources for the benefit of present and future generations. Recognise, through legislation, pastoralism as a legitimate form of productive land use and development on the same basis as farming, and incorporate the value of dryland goods and services within national economic planning. Develop a package of fiscal and other incentives that will attract private sector investment into Northern Kenya and other arid lands, particularly if investing in the regions core resources, such as livestock, or its social and economic infrastructure. Take appropriate measures to enhance private sector participation in infrastructure development, such as the provision of incentives in sectors such as housing, renewable energy, transport, and communication. Ensure that infrastructure investments are climate-proofed and appropriate to the particular circumstances of the region. Facilitate the establishment of strategic business partnerships between communities and local authorities, based on public-private partnership models. Ensure that all investment and economic development protects the environment, provides compensation where required, and delivers maximum benefits to communities in the region and to Kenya. This includes developing an investment framework and appropriate mechanisms that channel a fixed percentage of the proceeds from natural resources, including oil and mineral resources, directly to local communities. Develop and support financial services and products appropriate to the needs of the region, including insurance schemes for both people and livestock to buffer production against risk. Encourage a culture of savings through the promotion of rural SACCOs. Explore opportunities and develop appropriate mechanisms through which communities can benefit from bio-carbon initiatives. Develop and support income-generating activities that strengthen womens socio-economic position. Increase the number of women in leadership, law enforcement and public service, and deploy more women to address issues that affect women. Mainstream interventions which address the specific situation of women and of poor or vulnerable groups within all policies and programmes.
Finance & investment
Gender
33

Sector Policy interventions Use education to reduce the inequalities experienced by certain social groups, including women & girls, hunter-gatherers and minority clans. Target a percentage of bursaries at students from Northern Kenya and other arid lands, particularly girls who wish to pursue tertiary and university education. Address issues that disproportionately affect the education, health and nutritional status of girls and women. Expand adult literacy services, particularly for women. Ensure that the interests of pastoralists, particularly pastoralist women, are adequately and appropriately addressed in new land legislation and institutions, in line with the National Land Policy. Establish mechanisms to extend affordable finance to smallholder farmers, livestock producers & traders, particularly women. Promote formal & informal job creation, self-employment & entrepreneurship relevant to the needs of women. Develop & improve appropriate infrastructure for health care at all levels, including tertiary. Increase the number of appropriately trained health and nutrition professionals and develop mechanisms to attract & retain high-calibre officers. Introduce affirmative action programmes for people from Northern Kenya and other arid lands, particularly women, to enter all public training institutions. Improve the water & sanitation infrastructure in line with a strategic assessment of the most appropriate locations & technologies. Introduce flexible health systems of high quality which are responsive to the needs of the area. Promote the use of appropriate ICTs and other technologies in service delivery. Adapt community-based health systems for remote and mobile populations, and integrate these with animal health systems where appropriate. Address issues that disproportionately affect the health and nutritional status of girls and women. Ensure that Health, Agriculture, Livestock and Education sectors fully incorporate nutrition considerations in their programmes and policies. Introduce a health insurance scheme tailored to the needs of pastoralists. Protect and promote the rights of people with disabilities and people with HIV/AIDS. Draw up strategic development plans for urban areas that meet the housing, employment & service needs of urban populations, and provide sustainable economic opportunities for their surrounding rural areas, while also protecting the grazing and water rights of pastoralists. Develop a cost-effective housing strategy for the ASALs that applies appropriate building technologies and best practices in human settlements in arid areas. Expand access to power and ICTs for the people of the region. Promote the use of ICTs and other technologies in service delivery. Enhance the presence and capacity of the security and justice systems. Strengthen traditional systems of governance and alternative dispute resolution mechanisms. Explore innovative ways of enhancing security & access to justice in arid and pastoral areas. Build mutual understanding and respect between the people of Northern Kenya and other Kenyans through a deliberate programme of education and social change. Reconcile the electoral system with the realities of arid and pastoral areas. Ensure that the interests of pastoralists, particularly pastoralist women, are adequately and appropriately addressed in new land legislation and institutions, in line with the National Land Policy.
Health
Housing
ICT Justice
Land
34

Sector Livestock Policy interventions Recognise, through legislation, pastoralism as a legitimate form of productive land use and development on the same basis as farming, and incorporate the value of dryland goods and services within national economic planning. Reform veterinary legislation to allow Community-Based Animal Health Workers to treat livestock under supervision & certification by the Kenya Veterinary Board. Develop more pragmatic measures governing veterinary quarantine and livestock movements, including night movement. Strengthen disease control and surveillance. Rehabilitate livestock marketing infrastructure through partnerships with the private sector and community associations. Develop policy which facilitates & recognises the contribution of cross-border trade and facilitates the cross-border movement of livestock for food security. Establish the Kenya Livestock Marketing Board. Facilitate the establishment of strategic business partnerships between communities and local authorities, based on public-private partnership models. Ensure that livestock-based food products enter the national food reserves. Support livelihood diversification strategies which add value within the livestock sector & complement livestock production. Gazette & manage emergency drought reserve areas and encourage the development of buffer areas of crop and forage production as part of contingency planning. Establish mechanisms to extend affordable finance to livestock producers & traders, particularly women. Strengthen research and extension systems which are relevant to the livelihoods of ASAL livestock-keepers, including women. Introduce livestock insurance schemes, particularly for pastoralist communities. Develop & strengthen producer and marketing organisations, including cooperatives, in sectors such as agriculture and livestock. Ensure that the Health, Agriculture, Livestock & Education sectors fully incorporate nutrition considerations in their programmes and policies. Establish a range of institutions that will provide long-term continuity in ASAL development, including a National Drought Management Authority & National Drought and Disaster Contingency Fund to increase responsiveness to drought, a National Council on Nomadic Education, a Northern Kenya Education Trust, a Livestock Marketing Board, and a Northern Kenya Investment Fund. Ensure timely activation of drought contingency plans to protect assets. Recognise, through legislation, pastoralism as a legitimate form of productive land use and development on the same basis as farming, and incorporate the value of dryland goods and services within national economic planning. Establish appropriate forums at national, county and sub-county levels that bring key actors together to plan, coordinate and harmonise development activities and resources towards a common goal. Harmonise the execution of ministerial and devolved budgets, and locally generated revenue, against a single county development plan, which is based on community-identified priorities and responds to available economic opportunities. Strengthen institutional capacity at all levels, particularly within county-level planning and coordination structures, in line with the new Constitution, in order to address the significant capacity challenges likely to face devolved institutions in the arid lands. Draw up a comprehensive human resource policy and strategy for Northern Kenya. Strengthen the provision of public policy research & analysis from an ASAL perspective. Ensure that devolved structures accommodate mobility and resource-sharing across administrative boundaries and draw on the knowledge and experience of customary institutions. Mainstream climate foresight & climate adaptation into planning at all levels.
Planning
35

Sector Policy interventions Systematically strengthen the strategies used by communities to adapt to climate variability and to reduce and manage the risks from natural disasters. Ensure that infrastructure investments are climate-proofed and appropriate to the particular circumstances of the region. Put in place comprehensive measures to end livestock raiding & intercommunal violence, including incentives for individuals, communities or institutions which deliver positive results for peace. Develop a mechanism with neighbouring countries which ensures effective management of peace and security. Enhance the presence and capacity of the security and justice systems. Strengthen traditional systems of governance and alternative dispute resolution mechanisms. Put in place measures to minimise human-wildlife conflict. Enact and implement the National Peace Building & Conflict Management Policy. Apply conflict-sensitive approaches to development. Ensure that all interventions in the region are planned and conducted in a manner that is sensitive to local values and priorities. Explore innovative ways of enhancing security & access to justice. Expand social protection interventions, such as the Hunger Safety Net Programme, which help households build their assets, and draw on these to inform the design of a comprehensive national social protection policy. Increase the benefits to communities from tourism through the development of community-owned eco-tourism enterprises or conservancies and the promotion of responsible tourism. Develop a package of fiscal and other incentives that will attract private sector investment into Northern Kenya and other arid lands, particularly if investing in the regions core resources, such as livestock, or its social and economic infrastructure. Develop policy which facilitates & recognises the contribution of cross-border trade and facilitates the cross-border movement of livestock for food security. Develop more pragmatic measures governing veterinary quarantine and livestock movements, including night movement. Rehabilitate livestock marketing infrastructure through partnerships with the private sector and community associations. Establish the Kenya Livestock Marketing Board. Establish mechanisms to extend affordable finance to livestock producers & traders, particularly women. Facilitate the establishment of strategic business partnerships between communities and local authorities, based on public-private partnership models. Strengthen market linkages between lowland and highland economies. Facilitate the production and marketing of dryland products. Promote formal & informal job creation, self-employment & entrepreneurship relevant to the needs of women, youth and men. Develop & maintain an integrated, safe & efficient road, rail & air transport network in the region, prioritising the development of transport corridors linking Kenya to key markets in Ethiopia, South Sudan and Somalia and beyond them to the Middle East, such as the Lamu Port-South Sudan-Ethiopia transport corridor. Improve the water & sanitation infrastructure in line with a strategic assessment of the most appropriate locations & technologies. Invest in water harvesting, water supply & irrigation infrastructure. Increase access to the skills & technologies needed for irrigated agriculture, particularly when community-managed. Promote low-maintenance water technologies, with an emphasis on water
Security
Social protection
Tourism
Trade
Transport infrastructure
Water and irrigation
36

Sector Policy interventions harvesting, which (given likely climate change impacts) can deal with both abundance & scarcity. Integrate the particular needs and circumstances of pastoralist youth, both women and men, within national youth policies and strategies and develop youth-friendly social services. Promote formal & informal job creation, self-employment & entrepreneurship relevant to the needs of youth.
Youth
37

Republic of Kenya 2012 - Sessional Paper No. 8 of 2012, On National Policy For The Sustainable Development of Northern Kenya and Other Arid Lands, Releasing Our Full Potential'.

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Republic of Kenya 2012 - Sessional Paper No. 8 of 2012, On National Policy For The Sustainable Development of Northern Kenya and Other Arid Lands, Releasing Our Full Potential'.

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REPUBLIC OF KENYA

OFFICE OF THE PRIME MINISTER

Releasing Our Full Potential

Final Version, 11 October 2012

Chapter 2: Geographical Coverage Chapter 3: Situation Analysis

Chapter 6: Institutional and Legal Framework 24 Chapter 7: Financing 26 .. 27

Annex 1: Summary of Policy Interventions by Objective

Annex 2: Summary of Policy Interventions by Sector . 32

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Non-equilibrium environments Northern Kenya and other Arid Lands

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CHAPTER ONE INTRODUCTION

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CHAPTER TWO GEOGRAPHICAL COVERAGE

Arid and Semi-Arid Lands (ASALs)

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Republic of Kenya, 2008: Constituency Report on Well-Being in Kenya

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2.2.4 The geographical coverage of these three policy challenges is as follows:

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CHAPTER THREE SITUATION ANALYSIS

The extent of regional inequality

Infrastructure: access to transport, water, energy and ICTs

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Fig. 3 Time taken to reach water in dry season

Arid >2 hours 1-2 hours

Semi-arid >2 hours 1-2 hours 0 5 10 15 20 25 30

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0-5km 6-10km >11km

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74.6 50.7 60 44.2 25.7 15.5 33.1 56.7

Rift Valley: other districts

Rift Valley: arid districts

Eastern: Eastern: other arid districts districts

Fig. 7 Number of patients per doctor by province

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The potential of the region

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CHAPTER FOUR GOAL AND OBJECTIVES OF THE POLICY

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CHAPTER FIVE ELEMENTS OF THE POLICY

Strengthen national integration, cohesion and equity

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CHAPTER SIX INSTITUTIONAL AND LEGAL FRAMEWORK

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