File no.: 2016-39330
Royal Danish Embassy in Ouagadougou
Concept Note
Country Programme 2017-2021
Niger
September 22, 2016
Table of Contents
1 INTRODUCTION
1
2 CONCLUSIONS FROM PREPARATORY ANALYSES
1
3 STRATEGIC CONSIDERATIONS, JUSTIFICATION AND OVERALL THEORY OF
CHANGE
4
3.1
3.2
3.3
3.4
4
6
7
7
OVERALL STRATEGIC PROGRAMME CONSIDERATIONS
OVERALL THEORY OF CHANGE
EVALUATION OF CONTEXTUAL RISKS
KEY PROGRAMMATIC PRINCIPLES
4 PRESENTATION OF THEMATIC PROGRAMMES
8
4.1 DEMOCRATIC GOVERNANCE, STABILITY AND MIGRATION MANAGEMENT
4.2 WATER AND SANITATION
4.3 PROMOTION OF JOBS AND ECONOMIC GROWTH IN AGRICULTURE
8
11
12
5 PRELIMINARY RESULTS FRAMEWORK AND MONITORING MECHANISMS
14
6 PROGRAMME MANAGEMENT
14
7 INDICATIVE BUDGET
15
Annexes
1. Process Action Plan
2. HRBA/Gender Screening Note
3. Climate Change and Green Growth Screening Note
4. Outline of Country Programme Scenarios
5. Preliminary Results Framework
6. Preliminary Risk Management Matrix
Strategic Questions to the Programme Committee
Addressing migration challenges in a relevant and effective manner
- The sharp increase in the number of illegal migrants risking their lives to reach Europe have
made it imperative to undertake immediate actions in order to contribute to a better
management of the situation. This has generated a rapid expansion of the number of initiatives
targeting this specific area. At the same time, the migration challenge also raises a number of
questions about medium and long-term developments that call for a careful consideration of the
underlying dynamics such as factors influencing trajectories of migration, including the
political economy of human smuggling and trafficking. With this in mind, does the programme
committee have any advice on how the Country Programme can contribute to an appropriate
balance between short-term actions that meet urgent needs and interventions that can contribute
to more appropriate migration management policies in the long run, addressing the multiple
drivers of migration?
Adopting a flexible approach with an extensive use of delegated cooperation
- Lessons learned from interventions in fragile contexts indicate that the application of conflict
sensitive programming and do- no-harm principles require a high degree of flexibility on the
part of the donor as well as detailed local knowledge in order to allow for a continuous
reassessment of the theory of change to adapt it to the changing circumstances and experiences
of what works. However, since the Country Programme will be managed from Ouagadougou,
at a time when the budgets for posted staff are being reduced, the Embassy is obliged to make
extensive use of delegated cooperation. How can these elements best be reconciled and what
implications is it likely to have in terms of applying Danida's Aid Management Guidelines and
policies?
Level of ambition of the programme
- Despite the weak capacity of Nigerien institutions and organisations, the Country Programme
has adopted an approach that seeks to strengthen local ownership and to build organisational
capabilities with a view to providing more sustainable responses to the key challenges that
threaten Niger's stability. Does the proposed country programme offer a realistic approach that
gives sufficient attention to potential risks without becoming overly risk averse and unwilling
to run the kind of programme that can actually contribute to real change?
1
1
INTRODUCTION
The Country Programme outlined in this concept note is based on the objectives and strategic
considerations in the Country Policy Paper for the Danish partnership with Niger during the period
2016-2020. The programme aims at operationalising the overall vision of this partnership, i.e. to
support the government and people of Niger in order to maintain peace and stability, re-enforce
democratic values and provide the opportunity for the people to embark on a long term effort to
improve living conditions.
The Country Programme will strive to achieve the following strategic objectives of the Country
Policy Paper: 1. Strengthen stability and peace; 2. Enhance access to basic rights for ordinary
people; and 3. Reduce extreme poverty with a focus on resilience.
Given Niger’s role as one of the major transit countries for migration from West Africa to Europe, it
has after the approval of the Country Policy Paper, been decided to give a specific priority in the
Country Programme to interventions focusing on migration.
Continued support to Niger is considered highly important strategically, as the country has a key
role to play for the stability of the Sahel-Saharan region and has developed into a hub for illegal
migration in the direction of the EU. Niger has only very limited domestic resources to adequately
address security and migration challenges, which add to the challenges related to reduce the endemic
poverty, climate change and the highest population growth rate in the world. Although the aid
volume in the Country Programme is modest compared to the magnitude of the challenges, it can
constitute a significant strategic contribution to help Niger stay afloat.
The Country Programme will be aligned with Denmark’s priorities for development assistance as
outlined in the new Danish draft strategy “Verden 2030” ("World 2030") and, whenever possible, to
national policies and strategies.
The Country Programme is part of a larger strategic Danish engagement in the Sahel region and in
Niger comprising also instruments such as the Peace and Stabilisation Programme for the Sahel
Region, support to EU mechanisms such as the EUCAP Sahel Niger and the Valletta Emergency
Trust Fund on migration, humanitarian aid, and civil society support provided through framework
agreements with Danish civil society organisations and institutions.
Niger is a fragile country, and therefore the design of the Country Programme will be based on
Denmark’s approach for cooperation in fragile and conflict-affected areas. However, it should be
noted that the programme design is conditioned by the fact that it will be managed from the
Embassy in Burkina Faso without allocation of additional staff.
2
CONCLUSIONS FROM PREPARATORY ANALYSES
Even though improvements have been achieved in access to social services (e.g. access to water and
education), Niger has not achieved most MDGs by 2015 and ranks last on the UNDP human
development index 2015. A large majority (89.8 %) of Niger’s population totalling 16.6 million
people lives in poverty and 40 % of the population lives in absolute poverty. Poverty affects all
regions of the country but is most salient among the rural population constituting 80 % of the total
population and whose livelihood depends mainly on rainfed subsistence agriculture. This part of the
population is extremely vulnerable to erratic and declining rainfall and periodic droughts. Women
are in particular affected by poverty, thus around 3 out of 4 poor in Niger are women.
Niger’s security situation has deteriorated over the last couple of years and the country is under
pressure from several sides: There are incursions by Boko Haram in the South bordering Nigeria
while at the same time, instability is on the rise in areas bordering Libya to the north, Mali to the
west and Chad to the east. Boko Haram activities have led to a large humanitarian crisis and Niger’s
2
authorities struggle to feed and shelter some 150,000 internally displaced persons, as well as
approximately the same amount of refugees from Nigeria, Chad and Mali.
With considerable support from its international partners, the government has given high priority
to address security threats related to terrorism and banditry through a strengthened presence of
security forces throughout the national territory and initiation of peace consolidation activities in
conflict prone areas, including socio-economic investments, local governance and income
generating revenues for youth and vulnerable groups. At the regional level, Niger has been
instrumental in the creation of the G5 Sahel in 2014 with a view to developing and implementing
joint cross-border strategies.
Western Africa has a long tradition of migration, using short-term and seasonal migration as a way
to cope with seasonal changes, drought, desertification and subsequent food shortages. Niger is thus
a country of both emigration and immigration. Although data on migration remains scarce, it is
estimated that more than 85 % of emigration from Niger itself goes to North and West Africa
and less than 20 % to the rest of the world. The number of Nigeriens living outside of Niger has
increased during the last decades due to ethnical rivalries, conflicts related to the use of natural
resources and climate changes adversely affecting in particular the livelihood of people dependant
on agro-pastoral activities. Due to the unstable security situation in neighbouring countries and
given its geographical position, Niger has become a major transit country for illegal migrants
from mainly Nigeria, Gambia, Senegal and Mali aiming for North Africa and Europe. In August
2016, IOM had registered more than 250,000 immigrants along the route going through Agadez
since the beginning of the year. This trend illustrates that illegal migration connected to broader
trafficking and smuggling networks (including arms, drugs, human beings etc.) has become a very
lucrative criminal market and developed into a major source of income for local communities in a
country with limited opportunities for income generation and which suffers from endemic
corruption.
Although Niger has come a long way over the last decades in terms of freedom of expression and
pluralism, the current political situation remains fragile. The president in-office was re-elected in
March 2016 after a tumultuous election campaign and run-off elections that were boycotted by the
opposition. The election results and thus the legitimacy of the new government are contested by the
opposition and have created an unstable political scene. However, one of the major opposition
parties, MNSD, has declared that it will join the government, which could provide a somewhat more
stable platform for the government to implement reforms in critical areas. Local elections planned
for January 2017 could, however, also generate some political instability.
Some progress has been achieved in improving formal human rights protection in areas such as
freedom of expression, women’s representation in government institutions and rule of law/access to
justice. Denmark has made significant contributions in this field, including the long engagement of
the Danish Institute for Human Rights and interventions supported by Danish CSOs. However, the
fragile security and political situation has put human rights under pressure. Coupled with the rising
discontentment in the population about slow social and economic growth, this could lead to a further
deterioration of the confidence in the state and thus to a weakening of the social coherence at the
expense of maintaining peace.
Women’s rights remain a critical issue. Niger ranks 148 out of 151 countries in the world on the
2014 UNDP gender inequality index and the country has the highest prevalence of child marriages
with more than 50 % of girls getting married before the age of 15. Women have little access to
education and only 2.5 % of adult women in Niger have some form of secondary education. Despite
some advances in improving the legal and institutional framework to protect and promote women’s
rights, the coexistence of three sources of law in Niger (modern, Muslim and customary) is highly
complex and the growing rise of religious conservatism has contributed to hindering the adoption of
important reform initiatives such as the lifting of reservations to the Convention on the Elimination
of All Forms of Discrimination Against Women (CEDAW), a family law that would have provided
3
enhanced protection of women’s rights and a draft law on protection of young girls in school aiming
to put an end to early marriages.
Historically, Nigerien civil society has demonstrated its capacity to voice demands from a wide
range of groups in society and to mobilise citizens in support of democratic governance and human
rights. However, in recent years civil society has become increasingly politicised with many
NGOs affiliating themselves with one of the major political parties. The fracture within the
associative movement has widened and its capacity to act autonomously and play its ‘watchdog’ role
has suffered setbacks. As international assistance to Niger has become more oriented towards
emergency aid, funding opportunities have also had a tendency to limit the role of national CSOs to
short-term service delivery interventions. Religious associations stand out by having access to
resources from other channels thus providing them with a still stronger platform to promote often
very conservative interpretations of Islam, and without being subject to much criticism in the public
debate.
Media pluralism has progressed, but although official censorship generally doesn’t take place,
there has been a rise in incidents where journalists have been subject to legal action. In addition,
unethical behaviour and lack of professionalism by journalists affect the quality and accuracy of
reporting and topics of national importance are often not sufficiently covered.
The government is in the process of revising the current overall national development plan for
2012-2015. It is expected that the new plan will be finalised by January 2017 and the corresponding
action plan by March 2017. The future overall priorities of the government are thus not yet known
but high-ranking government representatives have indicated that the plan will seek to operationalize
the priorities of the President’s electoral commitments, i.e. consolidation of democratic institutions,
security, access to water for all, food security through the 3N Initiative (“Nigeriens Nourish
Nigeriens”), and promotion of job opportunities for youth. Furthermore, it is worth noting that the
government itself has identified demographic growth as one of the key challenges.
The decentralisation process is moving ahead but is confronted with obstacles related mainly to
poor financial and human resources at local government level. The transfer of the responsibility for
basic social services (water, health, education and environment) to local governments in 2014
constitutes an important step but, if to be successful, will require substantial support from central
government.
The economy is largely based on agriculture and livestock constituting the livelihood of 80% of
the population and representing 44 % of GDP. Although primarily based on subsistence farming
with low productivity and vulnerable to climate hazards, the agriculture sector provides
approximately 30 % of export revenues. Extractive industries (uranium, oil and gold) provide the
bulk of the country’s export revenues.
The medium-term economic outlook for Niger remains positive and a 5.2 % economic growth
rate is expected in 2016. However, this encouraging trend should be seen in light of the challenges
related to a high population growth rate of 3.9 % and the endemic poverty affecting the majority of
Niger’s population. There is concern about the extent to which the government is able to translate
economic growth into pro-poor policies. Part of the economic growth is confined to sectors with no
or very little impact on poverty reduction. Besides, budgetary allocations to social sectors have
declined over the last five years (except the water sector) due, among other things, to increased
security expenditure and the inability of the state to capitalise on the boost in mining and other
extractive activities.
The economy remains very vulnerable to a deterioration of the security situation, commodity price
shocks (oil and minerals), climate hazards and changes in Nigeria's economy. Furthermore, public
finance management reforms and the fight against corruption have so far not led to the anticipated
results. Niger ranks 103rd out of 175 countries in TI’s 2014 Corruption Perception Index.
4
Although productivity in agriculture has substantially improved over the last decades, it is estimated
that 3.5 million people in Niger are chronically food-insecure and unable to meet their basic food
requirements even during years of average agricultural production. The national development
strategy thus gives a particular attention to food security and to the 3N Initiative.
Population growth remains a key issue to be addressed with a view to ensuring economic and
social growth. Niger’s population will double by 2030 compared to 2014, and with a fertility rate of
7.6 children per woman of childbearing age (2013), current economic growth rates are not sufficient
to significantly reduce poverty in a medium term perspective. The population is extremely young as
two third is under 25 years of age.
The diversification and development of extractive activities constitutes an opportunity for the
development of Niger but is also increasingly leading to dissatisfaction with the lack of
redistribution to local communities of state revenues generated from extractive industries. The
National Assembly has passed laws in this respect in 2013, but implementation of this legislation is
still not effective. Therefore, it remains an open question if the country will be able to use the
benefits from the extractive industries to achieve major progress in reducing poverty. The country is
also experiencing an increase in conflicts between local populations and mining companies related
to the use of water and land.
Natural resources and in particular land and water resources are increasingly under pressure
due to population growth, economic activities such as agriculture and mining, and the effects of
climate change. This tendency could jeopardise economic growth and food security, and is to a large
extent a main source of conflict between different user groups. So far the government response to
these challenges has been weak due to, among other things, a weak public administration and lack of
an adequate strategic and regulatory framework. Access to water coverage remains low, in particular
for the rural population with only 50 % access to drinking water (2014) and 7 % access to hygienic
toilets (2012). Despite the high priority given to water in current and past national development
strategies and the substantial investments made in the sector, access is only improving slowly,
mainly due to the population growth rate.
Niger remains highly dependent on external aid that amounts to around 40% of the national
budget. Reliance on national public finance management procedures and systems is limited and
project assistance remains widespread. Niger is one of the countries monitored by OECD as
being potentially under-aided as aid levels are relatively low and needs high. The number of
bilateral donors with presence in the country is also quite low. The EU member countries and
Switzerland have embarked on a joint programming exercise for the period 2016-2020, which has
contributed to give direction to the overall design of the Danish Programme.
3
3.1
STRATEGIC CONSIDERATIONS, JUSTIFICATION AND OVERALL THEORY OF
CHANGE
Overall Strategic Programme Considerations
The Country Programme will support the implementation of Niger’s new development plan with a
particular emphasis on Sustainable Development Goals (SDG) prioritized for interventions in fragile
contexts in the draft Danish strategy for development cooperation and to which Denmark is well
positioned to contribute to through its bilateral development cooperation. Moreover, in line with
Danish and Nigerien policy priorities, the following general considerations have, in particular, been
taken into account in the conceptualisation of the programme:
The relationship between stabilisation efforts, humanitarian aid and development assistance.
Niger is subject to structural vulnerabilities that have made the country prone to conflicts, political
instability and chronic food insecurity. Despite the dramatically aggravated security environment in
its neighbouring countries, the Nigerien government has so far been able to contain a further
5
escalation of violent conflict within its own borders, but it is in a situation of latent and persistent
crisis that calls for a more sustainable approach from the international community. During the last
few years, donor assistance to Niger has become more oriented towards providing rapid responses to
address immediate security threats, humanitarian needs and most recently also increasing migration
flows. This is an understandable development given the severity and acuteness of the challenges
combined with the limited capacity of national institutions. However, there is limited clarity about
how humanitarian, security and development actors operate alongside each other and to what extent
this ultimately leads to developing more sustainable national capacity to cope with endemic
development issues. The Country Programme will thus seek to contribute to a better coordination
and articulation between the different approaches for international assistance in Niger, including by
furthering more cross-fertilization and flexible mechanisms in the provision of development aid,
with respect for the fundamental differences in mandate.
Enhancement of women’s and girls’ rights. Niger’s high population growth constitutes a critical
challenge for the socio-economic development of the country and has to some extent neutralised the
impact of investments made in social sectors. Although the high birth rate, linked to the practice of
early marriages, is considered a very sensitive issue in the public opinion with reference to religion
and traditions, the current government recognises that it needs to be addressed. Experiences gained
in previous Danish support indicate that interventions aiming at enhancing women’s and girls’ rights
including access to family planning and sensitisation of men on these rights and on gender equality
are relevant ways of addressing population growth issues. In addition to these targeted interventions,
a mainstreaming of gender considerations will be done in all programmes.
Migration management. Due to Niger’s position as a main transit point for West African migrants
heading to North Africa and to Europe, and the drastic increase in influx since the collapse of the
Libyan state, migration is now on top of the agenda in the dialogue between development partners
and the Nigerien government. Measures have been taken recently to boost the government’s
capacity in this area, notably with the establishment of an inter-ministerial Committee on Migration
in May 2016, and substantial international resources have been mobilised to provide support in the
field of migration. This includes the EU Emergency Trust Fund (the Valletta fund) under which six
large projects for Niger have been granted so far, amounting to approx. EUR 100 million,
complemented by support from a number of non-EU donors. However, given the acceleration of
migration flows and the political willingness to address the challenges it causes, the process of
setting up appropriate coordination systems and a strategic framework for migration interventions
has been lagging behind. It will be important for these to start functioning effectively to ensure
identification of more sustainable and comprehensive solutions. It is anticipated that the Country
Programme will provide support to such efforts and/or other relevant initiatives related to the
immediate management of migration flows. The identification of activities is on-going and will be
finalised when a better overview of unmet needs in this area has been established. In addition to
specific activities targeted migration management, migration management issues will also be
included in a number of other activities, especially in the governance engagements. All activities of
the Country Programme will seek to address in different ways the root causes of migration.
The precarious situation of youth is an area that will require a particular attention in the
perspective of ensuring a peaceful and socially coherent Niger in the future. The country is
characterised by a strong gerontocratic governance tradition implying an exclusion of young people
from participation in deliberation and decision-making at all levels of society. To this adds that
opportunities for employment, self-employment (limited access to land and credit) and access to
basic social services remain scarce. As seen in neighbouring countries over the last years, the feeling
of exclusion and limited opportunities to secure livelihoods could lead to frustrations and
dissatisfaction among young people thus increasing the risk of radicalization, violent extremism and
even migration. A consideration in the design of the Country Programme will thus be, whenever
feasible, to address youth as a particularly vulnerable group but also as a population segment with a
huge potential as an agent of societal changes.
6
Ensuring peace and stability and maintaining the legitimacy of the State are closely linked to the
ability of the State to be responsive to popular concerns through inclusive consultation and decisionmaking mechanisms engaging citizens or CSOs. Maintaining the legitimacy of the State is also
dependent on its effectiveness to provide access to basic rights including social services for the
population. Although provision of basic social services remains a high priority on the agenda of the
government, the State has not been able, partly due to the dramatic population growth, to deliver in
this respect as evidenced by the non-achievement of most MDGs by 2015. The share of the national
budget allocated to social services has diminished over the last years and remains very dependent on
donor funding. However, it should be noted that the share of the national budget allocated for water
and sanitation has remained unchanged (5% of the total budget) and reflects the high priority given
to this sector in current and previous national development plans and the enormous needs remaining
unsatisfied. Taking into account the increasing pressure on water resources constituting a strategic
resource in relation to both economic growth and enhancement of livelihoods, Denmark proposes to
continue the support to integrated water resources management, drinking water and sanitation.
Enhancing an equitable access to water both for human and productive purposes is not only seen as
an important precondition for reducing poverty in an arid Sub-Saharan country but also constitutes a
means to enhance the protection of social and economic rights, and notably women’s rights.
Continued support to improving access to drinking water and sanitation enhances resilience of the
rural population, and supports government in providing the basic social services highly in demand in
the population. The support will further consolidate the good results achieved in building national
capacity to deliver these services both at national and local level.
Promotion of human rights, and the principles of non-discrimination, participation,
transparency, and accountability as a basis for an inclusive and stable Nigerien society. The
application of this set of principles, seen as the foundation for empowerment, recognises that better
representation and inclusion will be needed to strengthen the relationship between the State and its
citizens and to reduce Niger’s vulnerability to future crises. It also implies the need to address
societal and democratic principles at both duty bearer and rights-holders levels, and the need for a
particular focus on women and youth as agents for change.
Lifting Niger out of poverty will depend on its ability to promote inclusive and sustainable
economic growth mainly through the agricultural sector and through the delivery of basic
services such as water and sanitation. An important element in this process will be to ensure a
sustainable use of natural resources, which are under pressure as a result of the high population
growth, the effects of climate change and increased demand for especially land and water for various
purposes (e.g. water for human consumption, irrigation and mining activities). A consideration
behind the choice of programmes has thus been the need to build capacity to better manage natural
resources with a view to enable Niger to better deal with local conflicts. Another important element
in creating the basis for economic growth is to address bottlenecks in agricultural value chains and
in private sector operators’ capabilities to enhance productivity and diversify agricultural
production.
3.2
Overall Theory of Change
On the basis of the conclusions of the preparatory analyses presented above and Denmark’s and
Niger’s political priorities, the Country Programme has the following overall theory of change:
If state institutions are capable of providing key services, including basic social services and
security, and if an environment conducive to peace, democracy and economic development is
promoted through enhanced legitimacy of the state based on constructive interaction with
better capacitated non-state actors, then Niger is likely to become more resilient and better
equipped to address poverty reduction and challenges related to migration, radicalism and
climate change and thereby become more stable.
This theory of change is based on the following key assumptions:
 The government is committed to address security challenges through diversified means beyond
security sector measures, including political, social and economic interventions.
7



3.3
State and non-state actors are willing to respect each other’s roles and to engage in dialogue on
solutions to key challenges.
International partners will maintain a strong commitment to support long term development
interventions
The government will continue to prioritise the creation of an enabling environment for private
sector operators.
Evaluation of contextual Risks
Degradation of the political situation. During the last mandate (2011-2016) of the ruling party,
Niger has experienced a polarisation of the political scene. This tendency has been intensified during
the presidential and legislative election campaign in 2016 and adds to the long history of political
crises in Niger. Furthermore, an increased number of violations of human rights have been observed
during the last years as a consequence of the government response to the security threats. This could
lead to some paralysis in the reform processes, a decrease in the legitimacy of the State and an
increase of social tensions.
Deterioration of the security situation. The security situation in Niger remains very fragile. The
country faces terrorist threats from neighbouring countries (Libya, Mali, and Nigeria) and has made
major investments in regional stabilisation efforts. However, the government’s offensive security
strategy in the Sahel involving an active military engagement beyond Niger’s borders has also
exposed the country to more attacks within its own territory. Moreover, the stern military response
and the increased expenditure allocated by government to the security sector at the expense of social
sectors and interventions aiming the reduction of social and economic inequalities, could exacerbate
criticism of abuses of human rights by local communities and foster growing support to radical
groups and/or violent revolt by marginalised groups.
Deteriorated economic situation. Although the overall economic forecast for the coming years is
positive, Niger’s economy remains fragile and highly vulnerable to external factors such as lower
agricultural yields as a result of climate changes, world market price fluctuations on the relatively
small number of commodities for export, a slow-down in Nigeria’s economy on which Niger highly
depends, an increase of migration influx to Niger or a worsening of the security situation to larger
parts of the national territory. A deterioration of the economy could lead to a decrease of state
revenues that would affect the government’s ability to implement national development policies and
strategies and thus weaken the legitimacy of the state and result in inability to deliver on key
reforms and on services to enhance livelihoods.
The preliminary Risk Management Matrix is included as Annex 6. In addition, Annex 4 provides an
overview of envisaged scenarios and responses in line with the policy paper as well as their expected
implications in terms of partner and modality choices.
3.4
Key Programmatic Principles
In addition to the general OECD principles for working in fragile states, the following set of key
principles have been developed to guide the formulation of the Country Programme.


A lean and focused programme. The absence of a permanent Danish representation in Niger
and the limited resources of the Embassy in Ouagadougou to manage the Country Programme in
Niger, point to the need for a lean and focussed programme favouring: 1. A limited number of
manageable thematic programmes and development engagements; 2. A preference for delegated
partnerships when possible; and 3. A focus on intervention areas constituting a political priority
both for the government of Niger and the Danish government and in which Denmark has gained
experience and leverage from previous cooperation.
Flexibility in programme design. As highlighted in the three scenarios presented in the Policy
Paper, the situation in Niger remains very volatile and the worst-case scenario suggests a
possible reorientation of the programme portfolio and the modalities. This point to the need to
ensure flexibility in the programme design with a view to enabling a readjustment of the
8

4
programme to a deterioration of the security and political environment in Niger or providing
responses to meet e.g. emergent humanitarian needs. The Country Programme will also seek an
adequate mix of state and non-state partners. Delegated partnerships with multilateral
development partners implementing broad-scoped programmes in Niger also constitute an
opportunity for ensuring flexibility in the Country Programme by reorienting Danish funding to
other relevant intervention areas.
A realistic approach to outcomes. In view of the high level of complexity of the Nigerien
context and the limited resources available under the Danish Country Programme, it will be
crucial to adopt a realistic approach to the level of ambition of the programme. Denmark has a
comparative advantage in certain areas based on a long lasting engagement in Niger.
Furthermore, with a five-year programme approach that enables support with a more sustainable
perspective, Denmark will be in a favourable position to contribute to areas of strategic
importance. Yet, the success of supported activities will to a large extent depend on the wider
institutional environment in which they are implemented. Therefore it will be important to set
goals that are politically and technically feasible by identifying specific windows of
opportunities for change based on previous Danish experiences, and setting up monitoring and
evaluation mechanisms, which will provide a basis for continuously reassessing the validity of
the assumptions. It should also be acknowledged that no longer having a representation office in
Niger sets certain limitations to the depth of engagement that can be expected in terms of
promoting specific Danish views and approaches.
PRESENTATION OF THEMATIC PROGRAMMES
The suggested Country Programme will include the following three thematic programmes:
 Enhancing democratic governance, stability and migration management
 Water and sanitation, and
 Economic growth and job creation in the agricultural sector.
It should be noted that the programme aiming a support to economic growth and job creation in
agriculture that links up to the third strategic objective of the Country Policy Paper, is an on-going
programme that was approved and started in 2014 and is expected to end in 2019 (engagement 1)
and in 2021 (engagement 2). Although considered as a part of the Country Programme, this
programme does not have any budgetary implications for the new Country Programme budget.
4.1
Democratic governance, stability and migration management
The objective of this thematic programme is to contribute to lowering the likelihood of conflict and
to building a stable foundation for development by strengthening the capacity of key state and civil
society actors to address drivers of instability, including extremism, illegal migration and
demographic growth with a particular emphasis on the participation of women, youth and minority
groups. The programme will contribute towards the first and the second strategic objective of the
Country Policy for Cooperation between Niger and Denmark. Within the framework of the
Sustainable Development Goals, this thematic programme will primarily contribute towards goal 16
(Peace, justice and strong institutions) and goal 5 (Gender equality).
It is generally acknowledged that a strong state is needed to build a stable environment that enables
social and economic development. Despite the massive challenges that Niger is facing, including
regular terrorist attacks, the government has effectively managed to prevent a full blown conflict to
erupt on its territory and this has made it possible to secure some level of continued delivery of other
basic services. However, the government’s firm approach to security has not been without cost and
citizens’ growing expectations for more social inclusiveness, economic equity and good governance
could become a challenge for the legitimacy of the state. If this situation is left unattended, it may
indeed render the situation in the country more unstable with citizens resorting to other coping
strategies including violence, criminal activities and migration. This underlines that state-building
cannot be limited to a question of strengthening the organisational capacity of specific state
institutions without adopting a broader approach to institutional change. In this regard, the thematic
9
programme will seek to target selected areas and actors that play a strategic role either as enablers or
blockers of lasting change with due consideration to the complementary role of rights holders and
duty bearers. Moreover, the thematic programme will take advantage of and further develop evident
synergies with the Danish Peace and Stabilisation Programme for the Sahel Region as the
drivers of instability in Niger have a considerable regional dimension.
The thematic programme is based on the following theory of change: If the government is able to
provide a better articulation between rapid responses to emerging threats to the country’s stability
and long term development policies addressing the underlying root causes, and if the legitimacy of
the state is enhanced through more inclusive governance mechanisms that hold formal and informal
power holders accountable and promote respect for human rights, then Niger is likely to become
better at preventing conflict and tackling major obstacles to its social and economic development.
Although few organisations have specialised experience and capacity in the area of migration
management in Niger, as a response to the increased challenges posed by illegal migration, a vast
range of initiatives focusing on this area have been launched with substantial support from
development partners. A specific focus on migration has also been incorporated in two of the
proposed engagements of this thematic programme. Furthermore, since the decision to further
expand the volume of Danish support to migration management in Niger is fairly new, the Embassy
proposes to set aside a substantial envelope of unallocated funds to be used for strategic and targeted
migration related activities to be specified once there is more clarity about specific areas in need for
additional funding and the approaches likely to lead to effective and sustainable results.
In addition to a development engagement on migration management, where identification is still
underway, three other development engagements are envisaged. The first development
engagement will support the High Authority for Peace Consolidation (HACP), an institution
attached to the Presidency. Its mandate is to coordinate and manage government prevention and
crisis handling efforts with regard to potential conflicts and the adverse effects of migration on
stability.
Since 2012, Denmark has provided support to multi-donor interventions implemented with and
through HACP, most recently through co-funding of EU’s Instrument for Stability under the Danish
Regional Peace and Stabilisation Programme. These experiences have confirmed the relevance of a
state institution capable of meeting the needs for quick impact “soft security” interventions in
vulnerable and conflict prone areas (e.g. prevention of small arms proliferation, building confidence
between security forces and communities, conflict settlement, socio-economic redress…), while at
the same time bridging the gap to more sustainable solutions through i.a. better coordination and
promotion of a conflict sensitive approach to development among sector ministries, local
government and other relevant institutions.
The programme will have a particular emphasis on ensuring that the institution is strengthened in its
strategic role of ensuring that a more stable foundation for peace and development is built. It is
further anticipated that support to HACP could include targeted stabilising interventions to regions
most affected by migration influx and human displacements with a view to preventing tensions,
conflicts, propagation of illicit trafficking and/or infiltration by extremist groups.
From 2017, the EU will support HACP’s intervention area through general budget support, which is
not a possible modality for Denmark to consider. Hence, the Embassy is currently exploring if
funding can be provided directly to HACP along with technical assistance or whether it should be
channelled through UNDP so as to reduce the administrative burden of the Embassy and the direct
exposure to risk. The second option would at the same time contribute to enhancing UNDP’s
strategic role in terms of coordinating stabilisation efforts in Niger.
The second development engagement will support the promotion of accountable and inclusive
governance with a focus on generating plural voices, dialogue and evidence-based contributions to
10
public debate and policies. Despite challenges in the CSO and media environment, some CSOs and
media organisations have proven their potential to engage constructively in areas of critical
importance in the current context in which power holders should be held accountable to ensure that
they act in the interest of the communities and with respect for human rights. They also have a
crucial role to play in ensuring participation from a broader range of rights holders, notably women,
youth and minority groups, who are often excluded from decision-making. Finally, CSOs and
independent research institutions/think-tanks can generate new knowledge and insights that can
contribute to developing more context-appropriate solutions to key societal challenges. Furthermore,
it is noteworthy that formal mechanisms exist in Niger to balance rights and obligations with a view
to promoting equal treatment and diversity of views e.g. independent state bodies with the mandate
to document violations of regulations and standards in the fields of human rights and media.
It is envisaged that a funding mechanism, managed by a specialised third-party organisation selected
through a tender process, will be established to handle a composite portfolio consisting of different
windows providing support to: i) the promotion and protection of human rights, including possible
emphasis on marginalised groups and funding to the National Human Rights Commission which
benefits from technical support from the Danish Institute for Human Rights; ii) conflict prevention
and peace consolidation with an emphasis on intra-religious dialogue, youth as well as selected
conflict drivers e.g. related to natural resource management (land, water, extractive industries) ; iii)
access to reliable information with a focus on conflict sensitiveness and media monitoring possibly
including support to the National Council for Communication; iv) developing migration information
and knowledge including research-studies and targeted dissemination for youth and at-risk
communities.
The third development engagement will contribute to managing demographic growth through the
promotion of women’s rights. Denmark has supported the promotion of women’s rights and gender
equality in Niger for many years, notably through UNFPA. Experiences indicate that besides having
a value in themselves, women’s rights are a key to slowing down population growth.
The promotion of women’s sexual and reproductive rights with a focus on adolescent girls has led to
an encouraging increase in the use of family planning methods, and with a newly elected president
who has declared this area to be a priority, there could be a new momentum for expanding
achievements in terms of lowering fertility rates. Furthermore, UNFPA’s approach focusing on
empowering girls and working on men’s incentives, contributes to addressing gender equality more
broadly which is presumed to constitute a critical aspect of sustainable peace and stability. It is
anticipated that the thematic programme will continue to support UNFPA’s country programme with
soft-earmarking. In addition, the Embassy has initiated discussions with UNFPA on the possible
placement of a seconded expert who could, in particular, contribute to enhancing the capacity of
national partner institutions.
An overall consideration in the conceptualisation of the proposed thematic programme has been to
balance the need to address the governance challenge, which is essential with respect to the overall
objective of supporting peace and stability, with the fact that the Embassy, based as it is in Burkina
Faso, does not have resources to engage fully in the management of the programme on a day-to day
basis. Therefore, whichever modality is selected to implement Engagement 1, the Embassy expects
that there will be a need to recruit a long-term Danida Adviser, possibly supported by limited local
assistance, to provide advisory services to HACP on strategic issues and to support the overall
coordination of the thematic programme, including dialogue with partners and donors, and
monitoring of programmatic risks.
While it appears necessary to take action against illegal migration, there is a major risk that the
impact of interventions in this area could be severely limited by corruption which facilitates very
profitable smuggling and trafficking activities. Risk factors regarding to support to HACP are linked
to its political leverage, which can potentially make it a highly effective means to promote change,
but on the other hand also makes it more vulnerable to political interference at the expense of
11
effectiveness. Another key risk of the thematic programme has to do with the shrinking space for
civil society and media which many observers currently warn against and which could have a major
impact on the programme. Finally, the capture of the political agenda regarding women and girls’
rights by conservative religious forces could put the results of the programme at risk if they are not
met with an appropriate response.
4.2
Water and Sanitation
The overall objective of this thematic programme is to contribute towards the Niger Government’s
objective to guaranty access for all to water and sanitation by 2030, and ensure a sustainable
management of water resources. The programme will contribute to the Strategic Objective 2 of the
Denmark-Niger Country Policy, but also indirectly to the two other strategic objectives. The
Programme will contribute to the SDG 6 aiming at ensuring access to water and sanitation for all, a
more efficient and sustainable use of water resource and participation of local communities in
managing the resources. The programme is designed to support the implementation of the
Government’s new strategic sector programme for water, hygiene and sanitation (2016-2030), which
is expected to be approved ultimo 2016. The thematic programme objectives, results and indicators
are to the extent possible aligned to those of the national programme. A draft national action plan for
integrated water resource management is pending approval by government and is also expected
approved by ultimo 2016.
Denmark has supported the water sector in Niger for more than 30 years and has been a pioneer in
developing a programmatic approach for the sector and in aligning with national systems and
procedures. This has facilitated the national water and sanitation programme. The planned support
builds on previous experiences and results, including a close alignment to the national sector
programme and to national systems and procedures, and represents a continuation of Danish support
to operationalizing the government decision (2014) to decentralise the responsibility for basic social
services to local governments, and the strengthening of institutional capacities at all levels. The
same is the case for the programme's human rights based approach, where focus is both on rightholders and duty-bearers, e.g. the municipalities' duty to provide water and sanitation services,
participation of users in the local water associations, non-discrimination and reduction in disparities
in access to services, transparency in investment budgets at all levels, and monitoring and audits of
funds including at municipal level. Conceived as a contribution to the national sector programme,
the programme will not maintain previous targeting on specific geographical areas. To ensure a
better linkage between humanitarian assistance and development assistance, Denmark will in the
dialogue with the government specifically promote sustainable planning of water resources in areas
with many refugees and internally displaced people.
The thematic programme is based on the following theory of change: If the Ministry of Water and
Sanitation is supported to conduct an equitable, efficient and sustainable coordination of the sector
with Nigerien stakeholders and donors and is supported with funds for implementation, then a more
efficient and equitable use of financial resources will lead to some improvement in universal and
equitable access to water resources and sanitation in rural Niger, and thus to a reduction of rural
poverty and an enhancement of women’s rights and potential as drivers of growth.
In the dialogue with national partners, Denmark will consistently emphasise the necessity to apply
the HRBA principles in the implementation of the national programme. This entails, for example,
the development and application of annual planning and budgeting based on equity principles,
enhancement of transparency and accountability measures through local governments and a
systematic consideration given to including women.
The Theory of Change is associated with a number of assumptions. A key assumption is that there is
a strong political will in the Ministry of Water and Sanitation to undertake required organisational
reforms and ensure an effective and sustainable sector leadership. It is also assumed that the
Ministry has political will and capacity to further the decentralisation process within the sector and
to ensure transfer of necessary human resources and financial means to the regional level with a
12
view to effectively supporting local governments. Another assumption is the strengthening of the
Ministry’s institutional capacity and its ability to create necessary framework conditions for
increased engagement by the private sector. It is also an assumption that efficient integrated water
resource management can contribute to prevention and solution of local water conflicts and ensure
better access to quality water and sufficient water resources.
The thematic programme will consist of one development engagement designed to support the
implementation of the five sub-programmes of the national programme: Governance, drinking
water, sanitation, integrated water resource management, and pastoral water supply. Support will be
coordinated with other donors, e.g. the EU.
The programme represents a continuation of the present cooperation with Luxembourg and is thus
expected to be implemented in a delegated partnership to Luxembourg, however, with Denmark as
the largest financial contributor to the programme. The programme has been formulated as a joint
exercise between the two development partners and is planned to start in October 2016 with
Luxembourg funds. Programme investments funds will be channelled through a new joint financing
mechanism based on annual government investment plans and budgets for the sector. The
Government encourages all donors to channel funds to the sector through this mechanism. The
mechanism will be developed and operationalised during the programme inception phase based on a
study financed by Luxembourg.
A major risk identified during the formulation of the programme relates to the weak capacity in the
Ministry of Water and Sanitation in terms of leadership, financial absorption capacity, and
management of the new joint financing mechanism, including the elaboration of prioritised and
realistic annual investment plans according to available financial resources and implementing
capacity. Focus for risk mitigation involves permanent technical assistance and close dialogue with
the Ministry. The empowerment of currently weak local governments to handle water and sanitation
affairs constitutes yet another risk to effective and efficient programme implementation. This risk
will be sought mitigated through targeted institutional capacity strengthening. Finally there are some
concerns in a short and medium term perspective related to the ability of the sector ministry to pilot
and implement the ambitious and complex integrated water resource management action plan. In
this context, the programme can draw on Denmark' s vast experience and resource in the field. The
programme will operate with long-term and short-term international and national technical
assistance (TA). The envisaged TA reflects Niger’s development level and the Ministry of Water
and Sanitation’s weak institutional capacities. Long-term technical advisers will be placed in the
Ministry, but will also focus on strengthening capacities in the local governments. The programme
also envisions targeted short-term TA for e.g. integrated water resource management, public
finances, and procurement.
The Danish Embassy will participate in the steering committee for the joint financial mechanisms
and in the annual water sector reviews. Monitoring and supervision of progress will be based on
agreed procedures for administrative, financial and technical reporting by LuxDev (implementing
aid and development agency of the Government of Luxembourg).
4.3
Promotion of Jobs and economic Growth in Agriculture
The objective of the on-going thematic programme is to improve private sector led, sustainable
economic growth and job creation in the agricultural sector. The thematic programme was launched
in June 2014. The programme is in line with Niger’s overall development strategy as it addresses
two of the five overall national priorities: inclusive economic growth and rural development with a
focus on food security. The thematic programme contributes towards Goal 1 (No poverty) and Goal
8 (Decent work and economic growth) of the UN 2030 Sustainable Development Goals, which also
constitute two of the three priorities set out in the draft strategy for Denmark’s development
assistance to fragile countries. The programme will contribute to the Strategic Objective 3 of the
Denmark-Niger Country Policy i.e. reduction of extreme poverty.
13
Based on the experiences gained in previous phases of support to the agricultural sector, which had
its focus on subsistence farming, the programme is specifically targeted at private enterprises with a
potential to grow and create jobs in selected value chains. With a view to the obstacles to which
private enterprises are faced in growing their businesses (weak public infrastructure, difficulties in
accessing credit, a business environment not attractive to investors etc.), the programme also
recognises the need to contribute to the emergence of an enabling environment.
Most importantly, national partners welcomed the introduction of a value chain approach, which is
new in Niger. By enhancing value chains, the programme contributes to the development of local
economies, through the support to local processing of products, thus generating more income for
farmers and creating jobs. Considering that 350,000 young people enter the workforce on a yearly
basis in Niger, special attention is sought through measures aiming at giving preference to projects
favouring involvement of youth, the recruitment of young graduates to support the regional
agricultural chambers, and the promotion of young people in the formulation of policies, strategies
and reforms. Furthermore the programme contributes to tackle the issue of youth employment
through the Maison de l’Entreprise, a one-stop-shop for entrepreneurs and start-ups, through special
attention to young people seeking to start a business.
The thematic programme is based on the following theory of change: If a strong focus is put on the
promotion of private sector activities (family, micro, small and medium sized enterprises) through
highly profitable key value chains while at the same time strengthening the enabling environment
(both private sector players and framework conditions), then productivity in key agricultural value
chains will increase and lead to both economic growth and job creation and to enhancing the
livelihood of the rural population.
The thematic programme addresses challenges linked to both production and access to market as
well as an environment conducive to doing business. The thematic programme has a strong focus on
private sector (both formal and informal) as a key driver of change and improvement. The thematic
programme is anchored at the President’s 3N Initiative (“Nigeriens Nourish Nigeriens”) for Food
Security and Sustainable Agriculture Development.
After the closure of the Danish Representation Office in Niger in June 2014, the programme consists
of two development engagements implemented under delegated partnerships.
The first development engagement, implemented by the Swiss Agency for Development and
Cooperation in Niger (SDC) has the following objective: To promote green inclusive economic
growth including enhanced job opportunities through the creation of added value in the agriculture
sector. The following five agriculture value chains were selected based on their high profile, market
potential, job creation opportunities and contribution to the national economy: pepper, cowpea,
groundnut, poultry and livestock. Support is given to strengthen the capacity of value chain actors to
identify and implement projects that create value-added jobs and improve the quality of agricultural
produces and semi-processed products in the selected value chains. It is expected that agriculture
production in Zinder and Diffa, constituting the geographical focus of the engagement, will be
increased and links to markets strengthened through the provision of support and advisory services,
the provision of financial support and support to the coordination of farmers’ organizations. The
capacities of implementing bodies such as the Network of Agricultural Chambers and the Regional
Agricultural Chambers have been deficient and will thus be enhanced to ensure successful
implementation. Along the years, these organizations have become a key interface to enhance
dialogue between the State and farmers. At the national level, the programme contributes to
enhancing the capacities of the High Commissioner for the 3N Initiative, which ensures coordination
and monitoring of rural development strategies and policies. With a view to addressing the
substantial problems for private sector in accessing investment funds, the thematic programme also
supports a cost shared facility. It should be noted that the SDC has long been contributing to
improving food security and that it also provides support to the national system for prevention and
management of disasters and food crises set up by the Nigerien government in 1989 to mitigate the
14
impact of recurrent food crises. This offers, should the need arise, the possibility to redirect Danish
funds towards more humanitarian action.
The second development engagement, implemented by the World Bank, aims to improve the
business climate and the framework conditions of private sector development. This engagement is
embedded in the World Bank’s Competitiveness and Growth Support Project, which aims, among
other things, at improving critical aspects of the business environment in Niger with a view to
supporting the platform for Doing Business rating. The engagement focuses on processing and
marketing the products at a higher level while improving the business environment to enable these
businesses to thrive. It is expected that the provision of advisory services to micro, small and
medium sized enterprises, the support to green and innovative projects, the improvement of Doing
Business indicators, the mix of credit and grant financing scheme for investment projects, and the
enhancement of public/private dialogue will build up competitiveness and improve the business
climate. The start-up of the development engagement has suffered substantial delays due to World
Bank administrative procedures and thus only started implementation in January 2016. It has been
decided to prolong its implementation until 2021.
The main risk is associated with the highly insecure situation in the Diffa region due to the presence
of Boko Haram. A subsequent slow-down in cross-border trade with Nigeria constitutes a new risk
to achieving objectives and targets set out in the programme. The flexible strategy adopted for the
intervention in Niger will allow for an extension of activities in the Maradi region (area covered by
the Swiss Agency for Development and Cooperation), in response to the deteriorating security
situation in Diffa. Another risk identified is the limited capacity of partners, which might limit
achievement of objectives and targets. Emphasis is therefore put on the provision of advisory
services and on capacity building through national frameworks and the placement of technical
assistance with Danida experience at both national and regional level. Finally, lack of coordination
and coherence between the two engagements constitutes another important risk. The involvement of
the 3N Initiative in programme management and monitoring is in principle likely to minimize this
risk although capacity in this institution is stretched.
5
PRELIMINARY RESULTS FRAMEWORK AND MONITORING MECHANISMS
With a view to ensuring a lean and effective monitoring of the Country Programme and since the
implementation of most of the development engagements of the programme will be done through
delegated partnerships, monitoring will be based on the systems, procedures and indicators
developed by these partners. The thematic programme aiming at enhancing economic growth and
job creation in agriculture, which has been delegated to the Swiss Cooperation and the World Bank,
will be monitored on the basis of indicators developed in the framework of the sector programme in
2013.
With a view to ensuring adequate monitoring of the development engagements in the thematic
programme aiming at strengthening democratic governance, stability and migration management,
the Embassy envisages to recruit a M&E team to assist it in carrying out on-the-ground monitoring
so as to ensure that sufficient evidence is available to test links and assumptions in the theory of
change and to document results through stories of change. In addition, it is expected that a long-term
Danida adviser will be recruited to support capacity development in HACP but also to contribute to
day-to-day monitoring of results and risks at the overall thematic programme level.
To strengthen its overall responsibility for monitoring of the Country Programme, the Embassy
might also initiate relevant studies to closely monitor developments on the ground and thereby be in
a position to readjust the programme on an informed basis, should the need arise.
The preliminary results framework is attached as Annex 5.
6
PROGRAMME MANAGEMENT
The Country Programme will be managed by the Danish Embassy in Ouagadougou. In appreciation
of the importance of close monitoring, dialogue with partners and not least local knowledge, and the
15
limited resources available at the Embassy for managing the Country Programme in Niger,
implementation will, to extent possible, be carried out through delegated cooperation and support
channelled through multilateral partners or other intermediaries. The experiences gained in existing
partnerships with Switzerland, Luxembourg, World Bank and UNFPA have overall proven positive.
The Embassy will participate in annual sector reviews and, to the extent possible, in technical
reviews. In order to facilitate the overall political dialogue with Niger, the Embassy also intends to
hold high-level annual bilateral consultations with the government of Niger to discuss current
political affairs, such as the challenges relating to migration and stability, and with a view to raise
any issues emanating from the implementation of the Danish Country Programme in Niger with the
relevant authorities.
Given the specific importance of a good understanding and dialogue with stakeholders in Niger on
governance related issues in a fragile context like Niger, as well as the nature of the Democratic
Governance, Stability and Migration Management thematic programme, it is expected that the longterm Danida adviser who will provide technical assistance to HACP, will also be able to carry out
functions related to the broader coordination of the thematic programme. This includes coordination
between implementing partners when relevant, contributing to ensuring the coherence between the
engagements, technical dialogue with government, partners and other donors as well as providing
updated information of relevance to the Embassy concerning programme implementation and
political developments.
7
INDICATIVE BUDGET
Democratic governance, stability and migration management
National mechanism for prevention of conflicts and the adverse effects of migration Support to High Authority for Peace Consolidation (HACP)
Accountable and inclusive governance - Support to independent institutions and CSOs
Managing demographic growth through enhanced women’s sexual and reproductive
health and rights - Support to UNFPA’s Country Programme1
Unallocated funds (mainly for new migration engagement)
Technical Advisory Unit / DANIDA adviser
M&E Team
Reviews, studies
Water Supply and Sanitation
National water and sanitation programme, PROSEHA 2016-2030 – Investments via Joint
Financial Mechanism
National water and sanitation programme, PROSEHA 2016-2030 –Technical assistance
Contribution to programme implementation expenses including audits, evaluations, local
personnel and travel by LuxDev
Management Fee - Delegated Partnership Luxembourg (7 %)
Unallocated funds
Economic Growth and Job Creation in the agricultural Sector2
Support to agriculture value chains in the regions of Zinder and Diffa
Improvement of business climate and competitiveness of value chains
Total Country Programme 2017-2021 in million DKK
160.00
40.00
40.00
30.00
32.00
10.00
3.00
5.00
200.00
132.00
26.50
7.50
14.00
20.00
360.00
It should be noted that financing for an additional development engagement aiming at enhancing
migration management is foreseen under the unallocated funds of the Democratic Governance,
Stability and Migration Management thematic programme, which will absorb the bulk of the
unallocated funds budget. Smaller expansions of the three other proposed engagements of this
thematic programme may also be considered through the unallocated funds.
1
2
Includes secondment of an expert to UNFPA.
DKK 195 million have been committed for this programme in 2014.
16
PROCESS ACTION PLAN - Programme Pays 2017 – 2021 Danemark – Niger
Activités
Date
PHASE D’IDENTIFICATION DU PROGRAMME PAYS
Scoping mission, PAP révisé, TdR consultant du processus
Février 2016
Vidéo conférence avec KFU pour clarifier l’application des lignes directrice Danida
Mi février 2016
allégées (quelles sont les étapes obligatoires / volontaires)
Clarifier le besoin d’évaluer les partenaires délégués
24 février 2016
Mission d’identification programme « Stabilité et Gouvernance » y compris
13-18 mars 2016
l’identification des options pour une unité de gestion
Mission d’identification avec le consultant de processus
10-15 avril 2016
Signature MoU avec la coopération luxembourgeoise
Fin mai 2016
Concept Note sur le Programme conjoint Eau
30 avril 2016
Dialogue avec la Suisse sur le programme de transition pour l’agriculture à Niamey
9-12 mai 2016
Mission de présentation au Niger du programme Eau (conjointe avec le consultant de
9-12 mai 2016
formulation de Lux Dev)
Validation de la Note conceptuelleconjointe avec Lux Dev sur l’Eau
15 mai 2016
Contribution/commentaires au draft du document du programme conjoint (Lux/DK) – 30 mai 2016
de l’Eau
Elaboration TdR « Faisabilité et de formulation du programme thématique «
1 juin 2016
Gouvernance, Stabilité et Migration »
Lancement de l’appel d’offres (sous le « framework contract )
8 juin 2016
Signature du contrat avec le consultant de faisabilité et de formulation des programmes 6 juillet
« Gouvernance/Stabilité/Migration
Avis sur Document Technique et Financier Eau luxembourgeois
5 juillet 2016
Commencement de l’étude
11 juillet
Version draft de l’étude OSC + HACP
Début aout 2016
Validation conjoint DK/LUX sur le document du programme de l’Eau (« mini
14-20 août 2016
appraisal »)
Version finale étude OSC + HACP+ migration après commentaires ARD
Mi-août 2016
Documentation des capacités des partenaires délégués
Septembre 2016
Responsable
Avancement
KFU + ARD
KFU + ARD
Fait
Fait
KFU + ARD
KFU + ARD
Fait
Fait
ARD+ CP
ARD + Amb Lux.
LuxDev + CP
ARD + CP
ARD + CP
Fait
En cours
En cours
Fait
Fait
ARD + CP
ARD+ KFU + CP
Fait
Fait
ARD + consultant
Fait
ARD
Fait
Fait
ARD + CP
Consultant
Consultant
KFU + consultant du
processus
ARD + consultant
ARD +
consultants (?)
Fait
Fait
Fait
Fait
Fait
En cours
17
PHASE D’ELABORATION DU CONCEPT NOTE/TdR consultant
Premier draft de la note conceptuelle
Version finale de la Concept Note
Soumission de la Concept Note au KFU (17 jours ouvrables avant la réunion du
Comité de Programme) et lancement du processus de la consultation publique
Présentation au Comité de programme
Note conceptuelle au Ministre des Affaires Etrangères
15 septembre 2016
22 septembre 2016
22 septembre 2016
ARD + CP
ARD + CP
ARD + KFU
13 octobre 2016
Fin octobre 2016
ARD
AFR
PHASE DE FORMULATION DU PROGRAMME PAYS
Mission de formulation des programmes Gouvernance/ Stabilité /Migration
14 au 25 novembre
2016
Formulation DED eau et partie eau du programme pays
30 novembre 2016
Validation DED eau + autre documentation par l’ARD + avis de la coopération
15 décembre 2016
luxembourgeoise
Soumission des DED et autres contributions au programme pays relatifs à la
Gouvernance, Stabilité et Migration
Version finale DED et contributions au programme pays relatifs à la Gouvernance,
Stabilité et Migration et l’Eau après commentaires de l’ARD
Version draft du document de programme pays + DED + annexes
Version finale du document de programme pays + DED + annexes
Révision éventuelle et validation de la documentation eau suite aux décisions prises au
cours de la phase de démarrage de LuxDev
Présentation et concertation avec partenaires au Niger du document pays et ses annexes
15 décembre 2016
15 janvier 2017
Consultants
Lux Dev + CP
ARD, coopération
luxembourgeoise +
CP
Consultants
1er février 2017
15 février 2017
31 janvier 2017
ARD, CP,
consultants
ARD + CP
ARD + CP
LuxDev, ARD, CP
Fin février 2017
ARD
PHASE D’APPRAISAL
Soumission des TDR pour l’appraisal (8 semaines avant la mission au plus tard)
Mi-décembre 2016
Recrutement des consultants
Janvier-février 2017
Soumission de la documentation du programme pays à KFU
15 février 2017
Mission d’appraisal au Niger
15 au 25 mars 2017
Rapport d’appraisal
15 avril 2017
Finalisation de la documentation pays sur la base des recommandations de l’appraisal
7 mai 2017
PHASE D’APPROBATION (à détailler)
ARD
KFU
KFU
KFU
ARD + CP
Fait
Fait
18
Soumission des documents à KVA (13 jours ouvrables avant la réunion du External
Grant Committee)
Réunion du External Grant Commitee
Soumission de proposition pour Government to Government Agreement et accord de
partenariat délégué (coopération luxembourgeoise)
Approbation par le Ministre
Signature des DED avec les partenaires et du Government to Government Agreement
8 mai 2017
ARD
Fin mai 2017
Fin mai 2017
ARD
ARD
Juin 2017
Juin 2017
ARD
ARD
DEMARRAGE DES ENGAGEMENTS DE DEVELOPPEMENT (à détailler)
Démarrage de la contribution Danoise au PASEHA 3
Mise en place de l’unité de gestion pour le programme Gouvernance/Stabilité
/Migration
Démarrage des DED « Gouvernance, Stabilité et Migration »
Juillet/août 2017
Juin- Octobre 2017
ARD + Luxembourg
ARD
1er novembre 2017
Novembredécembre 2018
ARD
ARD
19
HRBA/Gender Screening Note
Tool for Human Rights Based Approach (HRBA) and Gender Equality Screening
Purpose: The HRBA and Gender Screening Note complement the HRBA Guidance Note and the up-coming Gender Equality
Strategy and the Gender Equality Toolbox. The purpose of the note is to facilitate and strengthen the application of the Human
Rights Based Approach and mainstreaming of gender equality programming related to Danish development cooperation. It can be
used as an inspirational checklist by all staff. The information in the note should be based on the analysis undertaken as part of the
preparation of the Country policy paper and should draw on major Human Rights and gender equality analysis relevant for the
country such as UPR-processes, reports and documents from OHCHR, EU HR Strategy, CEDAW-reporting as well as relevant
analysis prepared by other major donors. The Screening Note should be attached to the country programme concept note, and the
questions raised below should be reflected in the country programme document. Appraisal of country programmes will include a
specific focus on HRBA and Gender Equality.
It should be noted that the present note does not address issues related to the Economic Growth and Job Creation thematic
programme as a screening note was drafted for the agriculture thematic programme as part of the identification/formulation
process in 2013/14.
Basic info
Title
Country Programme
Country/ region
Niger
Budget in DKK mio.
360
Starting date and
duration
2017-2021
Human Rights Based Approach
Assess whether a Human Rights (HR) Based Approach has been applied in the programme:
Human Rights Assessment and Standards
Issues:
yes no Explain:
X
Major HR analyses, relevant to Niger have been consulted such as EU Sahel
Have major
Strategy, UPR /OHCHR analyses and other UN agencies’ and human rights CSOS
HR analysis
analyses. The following key HR issues at a general country level have thus been
relevant for
considered:
the country
- The first key theme of the EU Strategy for Security and Development in
been
the Sahel is that ‘security and development cannot be separated and that
consulted
helping Sahel countries achieve security is integral to enabling their
(UPR,
economies to grow and poverty to be reduce.’3
OHCHR, EU
- Despite the adoption of an economic and social development programme
HR Strategy,
(PDES 2012-2015) and its current extension, poverty still affects 48.2 per
and others?
cent of the population.4 Among the world’s poorest countries, Niger
Where
struggles with a stagnant economy and a rapidly expanding population.
relevant, is
Despite the fact that MDGs are far from being reached and all
application
development efforts are, currently outbalanced with a high population
at national
3
4
European Union External Action Service, Strategy for Security and Development in the Sahel (2012).
See www.ohchr.org/FR/NewsEvents/Pages/DisplayNews.aspx?NewsID=15330&LangID=F
20
growth (3,9% per year), making poverty reduction indicators at best to
stagnate,5SDGs are considered and integrated in the new programme.
level,
including
major gaps
between
human
rights in
principle vs.
human
rights in
practice,
evaluated
and
identified?
-
Although the right to food is enshrined in the Constitution, there is no
specific law on that right,6 while according to surveys 23.7 per cent of the
population faces food insecurity, and malnutrition rates have remained
unchanged over the previous six years.7 Niger has made a commitment to
promote the Voluntary Right to Food Guidelines and to prepare a bill on
the right to food and established, in 2012, of the Office of the High
Commissioner for the 3N Initiative (The people of the Niger feed the
people of the Niger). In their reports to the second cycle UPR human
rights CSO such as CODDHD pointed out that, despite these
commitments, the food and nutrition situation remained very worrying. In
recent years, Niger has experienced severe cyclical food crises with
increasing frequency.
-
Access to water of adequate quality and in sufficient quantity remains a
major concern despite the fact that access to drinking water remains
extremely low especially in rural areas (less than 50 %). Furthermore huge
disparities from one region to another in terms of coverage persist.
Poverty reduction plans and strategies to provide the most vulnerable
families with adequate food and drinking water is thus to be understood as
basic and fundamental social and economic rights that are needed to be
fulfilled as a matter of high priority for human rights in themselves but also
in so far as they are part of the complex range of causes of instability in the
country and at regional level.
-
Another major threat to stability, peace and development is youth
unemployment and the right to work in just and favourable conditions of
work. According to World Bank, in Niger, the lack of job opportunities for
youth is a contributing factor to social instability in a country where 67% of
the population is under 25 years of age, the problem of youth
unemployment and underemployment is acute, given that the lack of job
opportunities threatens to undermine the country’s political and economic
stability. According to figures from the Ministry of Vocational Training, a
million and a half young people ages 13 to 19 are neither in school nor
employed, and more than 50,000 graduates are unemployed. The adult
literacy rate (one of the lowest in the world) was estimated at 29% in
2009/2010. Among women ages 15 to 49, the rate is only 11.6%,
compared to 27.8% for men.
-
Harmful effects from the exploitation of the county’s natural resources, in
particular uranium, is a significant concern for future generations to come,
the environment and for the health and safety of populations living in the
affected regions.8 Several CSOs, such as ROTAB and independent expert
groups from civil society have highlighted through their reports alarming
X
UNFPA website: http://www.unfpa.org/transparency-portal/unfpa-niger (available on 26/04/16)
UNCT submission for the universal periodic review of the Niger, para. 82
7 UNCT submission for the universal periodic review of the Niger, para. 81
8 CERD/C/NER/CO/15-21, para. 18
5
6
21
levels of radioactivity found close to the uranium mines of Aïr. Therefore,
there is a need for companies to be held accountable and to respect human
rights in line with the United Nations Guiding Principles on Business and
Human Rights. The linkages between business, environment and human
rights are rather explicit here. Thus extractive industries, such as in the
North of Niger can have a negative impact on for instance the right to
water. For example, the Tarat aquifer was currently 70 per cent depleted.
The great fossil aquifer of Agadez was also threatened. The depletion of
the region’s water resources was accelerating its desertification, hindering
the pursuit of pastoral activities and limiting career opportunities for
displaced Tuareg populations. According to these analyses there is a real
risk that if new mining projects went ahead, these would jeopardize not
only the future of nomadic herders but the town of Agadez and its 130,000
inhabitants altogether, who could find that the water had dried up in a not
too distant future.
9
A/HRC/30/67, para.81(d)
-
Such precarious situations described above risk being turned into
opportunities for violent extremism recruitment strategies. Given Niger
geostrategic situation, OHCHR has pressed for the adoption of a
comprehensive strategy for countering violent extremism, ensuring linkages
between access to economic and basic resources, human and women’s
rights and the effective participation of affected persons.9 Amnesty
International (AI) stated that, over the last four years, armed groups,
including Al-Quaïda in the Islamic Maghreb (AQIM) and Boko Haram,
had perpetrated attacks against civilians, in different locations throughout
the country, resulting in killings and kidnappings, against nationals and
foreigners, including refugees. The National Human Rights Commission
(NHRC) observed that, despite the existence of preventive mechanisms,
conflicts between herders and farmers took place frequently, particularly at
times when livestock was moved to new pastures. The disagreements led to
human rights violations, including physical violence and damage to or loss
of property.
-
Cultural Survival (CS) stated that the nomadic pastoralist lifestyle had
become increasingly difficult for indigenous peoples in Niger, due to
climate changes and violence in the region. In addition, land grabbing had
also had a negative impact on the indigenous people’s rights. In particular,
Tuareg communities living near uranium mines who were not adequately
consulted in projects that affected their rights. There is thus in practice a
steady decline of the rights of nomadic pastoralists and transhumant
herders in both agricultural and pastoral areas.
-
Other violations of fundamental rights occur for other marginalised groups
such as migrants and slaves. Slavery, trafficking and discriminatory
practices remain a reality in Niger despite the fact that during its 1st UPR,
Niger accepted several recommendations relating to the eradication of all
forms of slavery. However, while actions had been taken to improve the
related legal framework, little had changed in the lives of people concerned.
CSOs, such as Anti-Slavery (AS), while acknowledging, among other
22
measures to eradicate slavery, the National Action Plan on Combatting
Human Trafficking, adopted in 2014, expressed concern that people
(including women and children) living in slavery are still subjected to
abuses including rape.
-
With regard to migration, given its geographic location, Niger has
traditionally served as a transit point for migrants to North Africa
(particularly Libya and Algeria) and Europe although migration statistics
are scarce as shown in the section below. Migrants undergo huge risks on
their journey e.g. various sorts of abuse treatment and/or trafficking or
strand in the desert. As the first country in the Sahel, Niger passed a law
against migrant smuggling in May 2015 that seeks to punish human rights
violations suffered by smuggled migrants, in view of reducing the scale of
this crime in the country (support by Denmark through technical support
provided by UNODC under the regional Sahel programme as well as
support to the National Assembly under the current governance
programme in Niger). With assistance from international partners such as
IOM and UNODC efforts have furthermore been enhanced recently
targeting criminals, protecting smuggled migrants and fostering
cooperation between affected states.
The analyses concerning women’s rights and gender equality is found here
below:
-
-
Under theme 1, according to 2014 World Bank statistics, Niger has the
world highest fertility rate with an average of 7.6 per women. Although
there is a plethora of economic, and development consequences across all
sectors of society and important national health consequences, the
immediate effects are on girls and women’s lives and rights. Such high birth
rates constitute a major barrier to women and girls’ accessing their social
and economic rights to formal employment and equally participate in all
political and socio-economic aspects of society. When marriage and
procreation are undertaken at an early age and in a coerced form, it is a
violation of their fundamental rights and a barrier to girls accessing their
right to education.
With regard to all forms of Sexual and Gender Based Violence (SGBV) and
harmful practices, the analyses prepared for the second cycle of UPR by the
Collectif des Organisations de Défense des Droits de l’Homme et de la
Démocratie (CODDHD) and other pro women’s rights CSOs such as
l’Association des Femmes Juristes du Niger (AFJN ) and the Organisation
pour la Promotion et l’Epanouissement de la Femme (DIMOL) showed
that, despite the enactment by the Government of Act No. 2003-25
condemning SGBV, harmful practices and FGM, these practices remained
widespread in the Gurma, Peulh and Arab communities and in the regions
of Tillabéry, Diffa and Niamey.10
Another SGBV concern that was raised by Anti-Slavery (AS) CSO in its
preparatory analysis to the UPR is the practice of “Wahaya” or 5th wife
10
A/HRC/WG.6/24/NER/3 GE.15-19474 4 /13
23
-
-
hailed as a form of slavery still practised in Niger, mainly in the Tahoua
region. This practice entails the purchase of a woman or under aged girl
under the guise of “marriage”. “Wahayu” women not only face regular rape
and physical abuses from their ‘master’, but are often mistreated by the
‘legitimate’ wives. Such practice is also extended in the form of trafficking
and child brides for ‘beautiful’ Tuareg girl children that are sold by their
parents, for important sum of money, to rich and old Nigerian men.11
Niger has thus one of the highest rates of early marriage – which in a
significant number of cases is a lucrative business according to pro-human
rights CSOs despite the fact that the Government of Niger had set up the
National Coordination Commission to Combat Trafficking and the
National Coordination Agency to Combat Trafficking. The National
Human Rights Commission (NHRC) considers that, despite those positive
measures and the adoption of the Human Trafficking Act in 2010,
‘practical challenges’ prevented the application of the Act.
CODDHD, in its analytical reports to the UPR demonstrated that, despite
the efforts that had been made, children and especially the girl child were
widely exposed to several forms of danger: begging, life on the streets,
domestic violence, trafficking, armed conflict and sexual exploitation.
NHRC regularly expresses concern about child workers, who were
reportedly used in rural areas to work in the fields and in small-scale gold
mines, and in towns as domestic workers and street vendors.
LGBTI is on the other hand absent from UPR analyses and human rights
reports. The subject is considered taboo in Niger’s society although it
seems to benefit from a certain degree of tolerance within the high political
sphere. Very few organisations are working with MSM. SongES CSO is
one such examples which is supported by Lux Dev, and working for
UNFPA on the implementation of husbands’ school to promote women’s
access to maternity clinics. Further it specialises in HVI/AIDS treatment
and prevention including with Men having Sex with Men (MSM), an
officially recognised target group.
Under theme 2 water and sanitation there is little if any extensive analysis of key
challenges and opportunities for gender equality identified. Yet according to an
ILO study conducted in 2012, only 3 per cent of economically active women were
employed in the formal sector.12 Formal employment opportunities for women and
related positive discrimination measures ought to be identified in works and
activities under Themes 2. The issue of women’s title ownership of land, of natural
and financial resources either because of customary laws and practice in place or
because of patrilineal Islamic inheritance law that provides 2/3 to the boys and 1/3
to girls, remain major obstacles to an equal and just redistribution of natural and
financial resources between women and men.
Have key
international
HR
standards
and/or
mechanisms
11
12
X
The following key HR instruments (or lack of their ratification thereof or with the
following reservations) and standards have influenced the choice of outcomes and
are underscored the formulation of outcome areas:
- ICCPR (1986) (Optional Protocol 2 not ratified)
- ICESCR (1986)
- CEDAW (1999) with reservations pertaining to fundamental and structural
BBC News documentary ’Big money for Niger’s child brides’ (available on youtube.com)
UNCT submission for the universal periodic review of the Niger, para. 28
24
influenced
choice and
formulation
of outcome
areas?
-
Are key
recommend
ations from
UPR for the
thematic
programmes,
that require
follow up at
x
causes of Gender Discrimination particularly relevant to Niger’s human
rights analyses above and to the DEDs under theme 1 of this programme,
Niger has thus entered Reservations to the following CEDAW articles:
 2 (d) ‘to refrain from engaging in any act or practice of
discrimination against women and ensuring authorities act in
conformity with this obligation’ and (f) ‘to take all appropriate
measures including legislation to modify or abolish discriminatory
laws and practices (…)’,
 5 (a) ‘to modify social and cultural patterns and practices which are
based on the idea of the inferiority or superiority of either sexes
(…)’ and (b) ‘understanding of maternity as a social function and
the common responsibility of women and men in the upbringing
and development of their children (…)’,
 15 (4) ‘state parties shall accord to men and women the same rights
with regard to the law relating to the movement of persons and the
freedom to choose their residence’,
 16 (1) (c) ‘equal rights and responsibilities during marriage and its
dissolution’ (e) ‘the same rights to decide freely and responsibly on
the number and spacing of their children and to have access to the
related information (…)’ and (g) ‘same personal rights as husband
and wife including the right to choose a family name, a profession
and an occupation’,
 29 (1)’Referral of unsettled dispute /arbitration to the International
Court of Justice;
CRC (1990)
Convention on the Prevention and Punishment of the Crime of Genocide,
which was not ratified.
ILO fundamental conventions - except No 138 - concerning the minimum
age convention and No182 - concerning the prohibition and elimination of
the worse forms of Child Labour - which were not ratified, including
Fundamental Gender Equality ILO convention such as Convention No
100 on equal remuneration; Convention No 111on Discrimination in
Employment and Occupation;
ILO Convention 169 – concerning the rights of indigenous and tribal
peoples, which was not ratified.
African Charter on Human and People’s rights.
Protocol to the African Charter on Human and People’s rights on
Women’s Rights, which was not ratified.
UN Migrant Workers Convention (2009)
Human Trafficking Protocol (2004)
Migrant Smuggling Protocol (2009)
UNGA Resolution 64/292 – Concerning the right to water.
The second cycle of UPR Recommendations cover to a large extent women’s
rights. These will be specifically addressed in the gender related section below
whilst here are the key UPR recommendations requiring follow up and carrying
particular reference to the 2 thematic programmes as follows:
- Theme 1: Rights, Peace, Stability and Migration
UPR Recommendations pertaining to the improvement of the legal human
rights framework 5.1-5.34., the rights of vulnerable and marginalised
groups protection of nomads’ rights R.6.2 -3, 7.1 Slavery: R.5.104-105-106-
25
national
level
considered?
-
Are rightsholders
identified?
X
-
-
Are dutybearers
identified?
X
-
-
113 Children’s exploitation and trafficking, R. 5.114-120 Freedom of
speech and Human rights defenders, R. 134-138; Corporate Social
Responsibility, environmental rights and UN-human rights principles
R.5163-164 Counter Violence Extremism R.5.55-57 Trafficking: R.5-56 etc.
XXXX migration recommendations + re-number
Theme 2: Water and Sanitation
UPR Recommendations pertaining to the Right to Water and Sanitation:
R.5.148
Theme 1: CSOs working with UNFPA programme, CSOs working with
and beneficiaries of la Haute Autorité pour la Consolidation de la Paix
(HACP), CSOs receiving financial and capacity building support under the
danish CSOs funds. CSOs working with IOM /EU on migration issues.
Theme 2: the representatives and CSOs of the water users’ interests and
rights.
Theme 1: Ministère de la Promotion de la Femme et de la Protection de
l’Enfant, Ministère de la Santé Publique, Ministre de la Population, Ministre
du Plan, Ministère de la Justice, garde des Sceaux, Ministère de l’intérieur
/affaires étrangère chargés des questions de migration, la Haute Autorité
pour la Consolidation de la Paix (HACP).
Theme 2: Ministère de l’Hydraulique et de l’Assainissement.
Assess whether Human Rights Principles have been applied in the preparation and in the design of
the programme?
X
- As further illustrated and analysed in the Gender section below, Women and
NonGirls in Niger have limited opportunities (both formally and in practice
discrimination:
despite the new quota law) to participate across theme 2 as well as part of
Are any groups
theme 1 under HACP and some civil society organisations otherwise engaged
among rightsin non-discrimination as far as their particular community is concerned.
holders
In a poverty context like Niger, ranking as one of the poorest country in the
excluded from
world, vulnerability affects the large majority of the population. Nevertheless,
access and
from the UPR analyses above, women and youth are facing an array of
influence in the
violations of fundamental human rights. Further, human rights reports have
thematic
pointed to particular marginalised groups such as the pastoralists and special
programme
vulnerable groups such as the children under exploitative conditions and
areas
persons living in slave-like conditions, victims of trafficking and violence as
identified?
well as all marginalised communities that live without access to the most basic
socio-economic rights such as water and sanitation, food and decent living
conditions, youth that are neither enrolled at school nor employed and that are
at risk of becoming an easy prey to violent extremism.
X
- With regard to theme 1, human rights reports are available (qualitative data on
Are
specific incidences) as well as a few statistics on peace and stability on specific
disaggregated
events. With regard to sexual and reproductive health some statistics related to
data available
sexual and reproductive health at national and regional level are available with
on most
UNFPA. With regard to migration, stakeholders point to an overall scarcity of
vulnerable
updated and reliable data on migration. According to a recent report from
groups?
IOM (August 2016), the trend is overall rising: 100,000 to 120,000 migrants
were estimated to be transiting Niger in 2015 according to the authorities,
while IOM observed over 170.000 persons leaving Niger towards (mainly)
Libya and Algeria from January to June 2016. IOM’s assessment shows that
26
-
-
-
List any key
support
elements
included to
promote nondiscrimination
-
Participation
and inclusion:
Are barriers for
participation,
inclusion and
empowerment
of rights holders
identified?
List any key
support
elements
included to
promote
participation
and inclusion
13
X
-
-
-
the migrants are generally young men (over 90% but there are also women and
children), who migrate for economic reasons and originate from West African
countries such as Senegal, Nigeria, the Gambia, Mali, Ivory Coast and
Cameroon. There are also Nigeriens migrants who intend to work in Libya or
Algeria for some time (often from Tahoua, Maradi and Zinder). IOM reports
that a health centre in the North Western town of Séguédine registers 1-3
dead migrants a week found in the desert. To this adds, refugees mainly from
Nigeria (82,524) and Mali (60,792) (UNHCR Niger factsheet August 2016).
Figures on the number of IDPs are subject to some variations depending on
the sources: UNHCR (127, 208 in August 2016) and national sources (184,404
in September 2016)
With regard to theme 2, it is possible to identify geographical regions of
intervention in theme 2 in which vulnerable groups such as pastoralists are de
facto targeted. There is a need for conducting a dialogue with government on
how to better ensure equity in national investment programmes and how to
ensure that vulnerable groups are also targeted.
There is little if any available disaggregated statistics per themes on vulnerable
groups. Such a baseline and targets would need to be carried out for each
theme per DED with sex- and human rights disaggregated statistics during the
development of result base matrixes.
Theme 1: The entire thematic programme aims primarily at addressing
discriminations in the field of women’s human rights, civil, political social and
economic rights, environmental rights targeting in so far as possible civil
society organisations working with marginalised groups and groups facing
particular threats and discrimination, including amongst migrants.
Theme 2: The issue of financial discrimination of vulnerable groups through
subsidised mechanisms (système de ‘péréquation tarifaire’) ought to be
included as a pilot project in the intervention zones under PASEHA 2.
The exit strategy for PASEHA 2 should include actions aiming at maximising
the sustainability of acquis through operationalising fundamental principles
pertaining to human rights to water13 and gender equality.
.
Theme 1, 2: Barriers to the participation, inclusion and empowerment of
targeted vulnerable groups have been identified to a certain extent in the 13
analyses elaborated for the Niger policy paper and to some extent in the UPR
and gender analyses above.
Theme 1: will include support to UNFPA, HACP as well as targeted civil
society organisations that are working with marginalised regions, excluded
groups or marginalised themes. Elements to promote participation and
inclusion will aim at strengthening these organisations’ capacity to address the
participation barriers and build a counter power to groups that uphold
discriminations and exclusion. This includes the capacity of institution to
reintegrate former migrants.
Theme 2: The approach to drinkable water supply in rural areas allowing for
Aide Mémoire, Revue à mi-parcours du Programme d’Appui au Secteur Eau, hygiène et assainissement (PASEHA2) au Niger (2014) :8
27
new domestic water supply connection is expected to considerably alleviate
women’s and children’s domestic chores and time consumed in fetching water
for domestic purposes. In principle, it should also further diminish the cost of
water for the most vulnerable families.14 In the new DED, an innovative way
of increasing women’s participation would be to promote their employment in
the processes of establishing these new domestic water supply connections.
For this purpose, a base line will need to be carried out and specific targets
included in the DED result based matrix.
Transparency:
Is the extent to
which
information is
accessible to
rights holders
including
marginalised
groups
assessed?
Where relevant,
whether
information is
available in
other than
official
languages of the
country in
question should
be indicated.
-List any key
support
elements
included to
promote
transparency
Are key
accountability
mechanisms in
the relevant
area – both
horizontal and
vertical listed?
Are obstacles,
e.g. capacity
and politicaleconomy
incentives that
14
X Specific transparency assessments for the 2 themes have not been carried out so far.
- Under Theme 1, besides participation and non-discrimination, supported
CSOs will also promote transparency each in their respective field of
operation. Under the DED concerning the HACP, this aspect will be
strengthened at the communal level. The level of information to potential
migrants on the risks undertaken will be specifically addressed
- Under Theme 2, there is a need to identify relevant CSOs working with the
communities targeted by the water and sanitation programme to ensure
information is accessible (in the relevant language) to rights holders including
the identified marginalised groups mentioned above and in the gender section
below. Support to these CSOs could be included under Theme 1.
X
-
X
-
Targeted horizontal and vertical accountability mechanisms will need to be
explicitly described in the relevant DEDs concerning theme 2.
Under theme 1, besides non-discrimination, participation and transparency,
accountability will also need to be promoted in the relevant field of CSOs
intervention.
An analysis of obstacles and opportunities faced by duty bearers and rights
holders to exercise their rights and obligations will need to be included as a
study for theme 2.
For theme 1 covering human rights more broadly, existing UPR and UN
agencies and world bank political analyses should be included in the drafting
of the DEDs.
UE, Fiche projet Eau potable pour les populations rurales dans les régions d’Agadez et de Zinder (non daté) :2
28
duty-bearers
and rights
holders face to
exercise their
obligations and
rights listed?
List any key
support
elements
included to
promote
accountability
-
Results/Indicators
List any
indicators
designed to
monitor the
realisation of
specific human
rights
a. Theme 1: Number of relevant human rights, especially women’s rights and
minority rights legislative reforms. Level of demographic growth; Pro-human
/women’s rights Institution/CSOs’ rate of outcomes achieved; Reduction in % of
migrants;
b. Theme 2: Level of geographical coverage of domestic water supply
connections in rural areas. % women employed in domestic water supply
connection works.
-
Where relevant, for each DEDs the following indicators are integrated:
a. Non-discrimination: Number of measures taken to address nondiscrimination based on sex, vulnerability and marginalization.
b. Participation: % of women, members of vulnerable / marginalised groups
included.
c. Transparency and accountability: Number of dialogue meetings held
between rights holders and duty bearers for the purpose of sharing information,
demanding accountability and fulfilling obligations.
Where relevant, for each DEDs the following indicators are integrated:
a. Level of capacity of rights holders to claim their rights
b. Level of capacity of duty bearers to hold dialogue with rights holders
c. Level of capacity of duty bearers to fulfil their obligations.
d. Number of pro-human rights achievements through this dialogue.
List any
indicators
designed to
monitor the
integration of the
four principles
List any key
indicators chosen
to track capacity
of key partners
(both rights
holders and duty
bearers)
Dialogue Partners
Define key dialogue
partners (duty bearers)
to be addressed by the
For theme 1, in the new DEDs, it will be crucial for any capacity building
activities to all implementing organisations to include the strengthening of
their capacity to demand accountability in their respective fields of
intervention including migration.
For theme 2, at the moment participatory approaches are included at least in
principle, with allocated spaces for dialogue and foreseen meetings with all,
key stakeholders including beneficiaries’ participation especially regarding the
management and maintenance of the infrastructure with a view to their
sustainability. The DEDs in theme 2, will need to include CSOs working with
the communities in which water supply connections need to be built. These
will need to have specific activities to focus on strengthening the capacity of
communities to demand accountability as rights holders, as well as to
strengthen the capacity of local authorities as duty bearers to fulfil their
obligations.
X
-
Theme 1: Ministère de la Promotion de la Femme et de la
Protection de l’Enfant, Ministère de la Santé Publique, Ministre de la
Population, Ministre du Plan, Ministère de la Justice, garde des
29
country programme
Define key alliance
partners, including
other likeminded
donors, multilateral
partners and CSO’s
X
-
-
State major
dilemmas/risks
associated with the
policy dialogue and
proposed mitigation
measures (incl.
reference to Framework
for Risk Assessment)
Are key challenges and
opportunities for
gender equality
identified?
Are reference made to
CEDAW-reporting,
UPR, and other
relevant gender
assessments?
Identify
opportunities/constraint
s for addressing gender
equality issues
-
X
-
Sceaux, , la Haute Autorité pour la Consolidation de la Paix (HACP),
Ministère de l’Intérieur / Affaires étrangères responsables des
questions de migration
Theme 2: Ministère de l’Hydraulique et de l’Assainissement.
The EU, Lux Dev, IOM, Norad, UNFPA, Care International,
DIHR.
Theme 1: CSOs working with UNFPA programme, CSOs working
with la Haute Autorité pour la Consolidation de la Paix (HACP),
CSOs working with IOM, EU on migration CSOs receiving support
under the danish CSOs funds.
Theme 2: the representatives and CSOs of the water users’ interests
and rights and related workers’ associations.
Pressure and threats posed by both internal and external extremist
and mystic-religious networks using traditional beliefs to promote
violent extremisms and systematically blocking pro-human rights
and women’s rights democratic reforms.
Dialogue with pro-democratic traditional and religious leaders from
the various communities needs to be considered.
Gender Screening Tool
See first section above related to gender and women’s rights analysis.
Such reference is made in theme 1 in particular as women’s rights are
explicitly targeted and ought to be further reflected under theme 2. Such
reference should specify the following:
- CEDAW was ratified by Niger 1999. However, the ratification was
made with reservations that undermined the fundamental principles
and scope of the Convention such as the very definition of nondiscrimination as well as other key articles such as arts. 2 (d) and (f),
5 (a) and (b), 15 (4), 16 (1) (c) (e) and (g), 29 (1) as detailed in the
first section of human rights analysis above.
- In addition, Niger has not harmonized its national laws with regional
instruments aimed at protecting the rights of women and children.
NHRC has drawn attention to the National Gender Policy that had
been adopted and the National Policy on Social Development,
which included a sectoral strategy on the advancement of women. It
found it regrettable, however, that the country’s actions in those
areas were not sufficiently visible.
An impressive number of UPR Recommendations for Niger’s second cycle
are targeted at women’s rights which is an indication in and of itself of the
importance of the subject and the widespread international concern. This
ought therefore to be treated as a priority area concerning a majority of
Niger’s population.
- UPR Recommendations pertaining to sexual and reproductive health
Rights, including early and forced marriage, FGM, SGBV, family
30
Describe key strategic
interventions to
promote gender
equality within each
thematic programme?
X
Explain how gender
specific purposes will
be reached, which
strategic approach,
what activities are
planned.
Define expected
outputs.
X
Identify gender equality X
indicators aligned with
national targets on
gender if possible.
planning 76.25-35, and women’s political and socio-economic rights
legal framework 76.12-13 are some of the key recommendations to
be taken into consideration.
Theme 1: Support to UNFPA is a strategic gender support aimed at
reducing one of the key structural causes of gender discrimination in Niger–
the high demographic growth and women’s access to family planning.
Support to HACP shall specifically target the development and
implementation of its gender strategy. Support to CSO shall specifically
target women’s rights organisations such as AFJN and DIMOL. Support to
Migration shall include specific gender analysis and gender related activities
pertinent to Migration.
Theme 2: Support to domestic water supply connection in rural areas. This
theme shall include measures to support women’s participation and
employment in related water supply connection works.
Outputs under the above support should target the following:
- Pro-women’s rights legislative reforms including lift of CEDAW
reservations and ratification of the Protocol to the African Charter
on Women’s Rights,
- Family planning measures that have incidence on decreasing national
fertility rates
- Decreasing early /forced marriages and early pregnancies, SGBV
- Increasing women’s land rights and ownership and access to formal
employment.
- Targeting the inclusion of LGBTI community through CSOs
targeting HIV/AIDS.
The selected approach will use 4 strategic entry points: support is thus
channelled through i) multilaterals (UNFPA) ii) governmental institution
(HACP) iii) CSOs (AFJN, DIMOL, SonGES etc) iv) private sector
enterprises under theme 2.
- Fertility rates trends - theme 1
- Number of pro-women’s rights legislation - theme 1
- Number of women’s rights legal aid cases taken up to court - theme
1
- Number of women and children migrants – theme 1.
- Number of women employed in water supply connection works theme 2
31
Climate Change and Green Growth Screening Note
Basic Information
Programme title:
Country Programme, Niger 2017-2021
Country/region:
Niger
Estimated allocation:
xx Million DKK
Brief description of the Programme support:
1. Governance/Stability
2. Water and Sanitation
Dates (expected):
Programme committee:
Appraisal:
Climate change screening
Assess the status of policies and strategies to respond to climate change in the country and sector. If the issue is
inadequately dealt with (indicated by a tick in the “no” box), please add comments and assess the potential impact
on the program (see also “next steps” section, below).
Issue:
1. Are the processes and
impacts of climate
change documented
(e.g. in national
communications to the
UNFCCC)?
2. Is there a national
climate change policy
or strategy, including
estimates of the economic
costs of adaptation?
Yes No
Comments and further work to be done:
Niger has ratified the three Rio conventions on
Biodiversity (CBD), Climate Change (UNFCCC) and
Desertification (UNCCD) as well as Agenda 21 in 1996.
The 3 conventions are coordinated by the National
Council for Environment and Sustainable Development
CNEDD (Conseil National de l’Environnement pour un
Développement Durable) created in 1998.
Climate change impacts are documented in:

National communications to the UNFCCC. Two
communications have been produced (CNEDD,
2000 and 2009). A third communication is expected
in 2016.

Report on the state of national knowledge on
climate change impacts and adaptation strategies
(Rapport d’étude sur l’état des connaissances nationales sur les
changements climatiques, les études d’impacts et les stratégies
d’adaptation aux effets des changements climatiques).
(DMN, 2014)

National Policy on Climate Change (Politique nationale
en matière de changements climatiques PNLCC). CNEDD,
2012.

National Strategy and Action Plan on climate change
and variability (Stratégie nationale et du plan d’action en
matière de changements et variabilité climatiques
SNPACVC). CNEDD, 2014. The strategy is one of
six priority programmes of the National
32
Environmental Plan for Sustainable Development
elaborated in 1998 by CNEDD. (Plan national de
l’environnement pour un développement durable).

Niger has signed and ratified the Kyoto Protocol in
1998 and 2004 respectively. As a LDC (least
developed country), Niger is not obliged to present a
NAMA.

A document has been produced on GHG
(greenhouse gases) mitigation in Niger (Document de
Synthèse sur l’atténuation des GES au Niger) in 2011 by
the National Meteorology Service (DNM).

An “Intended Nationally Determined Contribution
(INDC) of Niger” was produced in 2016 by the
Ministry of Environment.
4. Has a national
adaptation programme
of action (NAPA) been
approved identifying key
sectors where adaptation
is required?

A National Adaptation Programme of Action
(Programme d’action national pour l’adaptation aux
changements climatiques) was approved in 2006. The
NAPA includes prioritised and budgeted adaption
projects. A revision is currently under way and
expected to be presented in 2016.
5. Are there effective and
operational
meteorological and
disaster preparedness
organizations?

The national system for prevention and management
of disasters and food crises (Dispositif national de
prévention et de gestion des catastrophes et crises alimentaires)
was set up in 1989 in the Office of the Prime
Minister with as objective to prevent and manage
food crises. It is composed of:
1. The Early Warning System (SAP =Système
d’Alerte Précoce) is responsible for collecting,
processing and disseminating information
relating to food security and to identify the
actions needed to prevent or mitigate food
crises. It is based on the evaluation of secondary
data collected by various partners, both
government institutions, NGOs and
regional/international institutions.
2. The Food Crisis Unit (CCA = Cellule de crise
alimentaire) is responsible for the coordination of
food aid including the national grain reserve of
80,000 ton of cereals and the food security fund
(possible purchase of 30,000 tons) that can be
mobilised in case of food crisis.

The regional agro-meteorological and hydrological
centre AGRHYMET monitors and provides
information and training in the fields of agroecology (agro-climatology, hydrology, plant
protection, etc.). It was established in 1974 with
headquarters in Niamey as a regional centre under
3. Have nationally
appropriate mitigation
actions (NAMAs) and
or Low Carbon
Development Plans
been identified (e.g.
targets for renewable
energy production)?
33
the Permanent Interstates Committee for Drought
Control in the Sahel CILSS (Comité permanent InterEtats de Lutte contre la Sécheresse dans le Sahel) at the
aftermaths of the severe droughts that affected this
region in the early 1970s. AGRHYMET has
international status with legal personality and
financial autonomy.

The African Centre of Meteorological Application
for Development (ACMED) provides weather and
climate information for the promotion of sustainable
development of Africa. It was established in Niger in
1992 by the conference of Ministers of the
Economic Commission for Africa (ECA) and the
World Meteorological Organization.
Summarize the overall assessment of climate change impacts and responses:
Climate change trends:
There is evidence that temperatures have increased over the last 50 years in the Sahel (IPCC, 2013)
and that the number of cold days and cold nights have decreased whereas the number of warm days
and warm nights have increased between 1961 and 2000. A warming of between 0.5oC-0.8oC has
been observed between 1970 and 2010.
Temperature projections over West Africa foresee an increase in temperature between 3-6°C by the
end of the 21st century, and Sahel has been identified as a hotspot of climate change where
unprecedented climates are projected to occur earliest (late 2030s to early 2040s). Climate scenarios
for Niger show that temperatures will increase between 0.5°C (in Tahoua) to more than 2°C (in
Maradi and Agadez) by 2050 (CNEDD, 2012). Generally, an increase between 2.3 to 2.6°C is
foreseen from 2020 to 2049 (PDES, 2012).
The Sahel has experienced an overall reduction in rainfall over the course of the 20th century,
however, with a recovery toward the last 20 years (IPCC, 2013). Sahel suffers regularly from
droughts. Particularly the 1970s and 1980s were marked by consecutive droughts. The most recent
drought occurred in 2005, 2010 and 2012. Analysis of rainfall patterns over time shows a clear
southward migration of climate zones or precipitation pattern.
Rainfall projections in the Sahel and Niger are highly uncertain, but a majority of models foresee a
wetter rainy season with the rainy season starting later by the end of the 21st century and an increase
in the number of extreme rainfall days and the variability of precipitation in terms of both space and
time.
Impacts
The above-mentioned changes in rainfall and temperature patterns have resulted in an increased
frequency of droughts; torrential rains & floodings; sandstorms; extreme temperatures; pests
(especially locust invasions); and bushfires (NAPA, 2006 + INDC, 2016).
Niger has undergone continuous degradation of its natural resources (especially forest and water
resources) due to human activities, e.g. deforestation and agricultural practices, the past 50 years, and
climate change has exacerbated this degradation. The most vulnerable sectors retained are
agriculture, livestock, forestry, water resources, wildlife, and health.
Water resources: Water resources have suffered from the adverse effects of droughts during these
last 50 years. Climate changes affect the hydrological circle and contribute to a number of
interlinked effects on the water resources and the availability of water for ecosystems and
socioeconomic uses, hereunder water supply and agriculture. Analysis of rainfall patterns over time
34
shows a clear southward migration of climate zones or precipitation pattern, resulting in de facto
decrease of water resources, reduced groundwater recharge, lowering of the groundwater level and
reduced flow rates in rivers and increasing the vulnerability of renewable water resources at risk of
degradation.
The strength of water run-off during torrential rainfalls deteriorates considerably the soils. Floodings
causing deaths, displacements and destroying homes and crops occur on a yearly basis. I.e. according
to OCHA15/Reliefweb (2016), 22 people were recorded as killed in 2015 and 52,000 people affected.
In 2014, 60,000 people were affected, and 38 deaths recorded. In 2013, 32 died and 135,000 people
were affected. The large flooding in 2012, which hit Niamey, is estimated to have caused 91 deaths
and the displacement of more than 500.000 people. Water takes away large quantities of sand; this
results in the silting up of watercourses of which the most worrying is that of the river Niger. It is
estimated the water in Niger river decrease by 30% between 1969 and 1994 (DGRE, 2016). A
significant drop in water flow of the Niger river is expected (PDES, 2012).
Agriculture: The main economic activity in terms of employment, agriculture in Niger is
dominantly rainfed and thus very sensitive variations in temperature and rainfall. Stagnant
agricultural yields, relative to the population growth, have led to a fall in per capita food availability
since the 1970s. However, this stagnation has been reversed during the 2000–2010 with an
improved performance of the agricultural sector. The main direct and indirect adverse effects of
climate change on agriculture include degradation of soil quality & fertility, erosion, leaching,
proliferation of crop pests and diseases, sedimentation of river systems and water reservoirs for
irrigation. Periods of drought with higher variability at the beginning of the growing season makes it
difficulties for the farmers to predicting the start of the growing season endangering new crops to
dry out or shortening the growing season.
Livestock: Livestock is an important economic activity, especially in the north where rainfall is
limited. An increase in temperature leads to heat stress in animals, which reduces fertility and
increases mortality rates; and a decrease in rainfall causes a reduction of forage and water holes,
increasing mortality rates. The droughts periods in the 1970s and 1980s reduced livestock by almost
50%.
Forests: Surveys carried out on forests resources show a decrease in forest species as well as forest
area. Floods and torrential rainfalls, violent sand storms often cause damages on forests, vegetation
and soils.
Wildlife: Climate changes and variations in the form of high temperatures, les rainfall, flooding and
droughts have led to habitat deteriorating and the reduction of biological diversity and wildlife.
Bushfires have become more frequent and high temperatures cause the death of animals and slow
down the reproduction of certain species through the drying out of water points.
Fisheries: Extreme weather events, particularly drought, have contributed to the drying out of water
points, the reduction of fisheries production. Silting up of surface water points caused in long-term
by torrential rainfalls and the increase of evaporation due to high temperatures, contribute to the
reduction of fisheries production.
Wetlands: Like the devastating actions of man on natural resources (overexploitation and
deforestation), droughts constitute one of the dangerous enemies of wetlands. Niger suffered great
losses of this ecological resource between 1974 and 2004, for instance lake Chad has withdrew under
the effect of successive multi-year droughts. Floods and torrential rainfalls cause the over flowing of
wetlands with the destruction of infrastructures and lead to the drying out of wetlands.
Health: Droughts and high temperatures intensify certain diseases and have resulted in period of
food shortages and malnutrition in vulnerable groups and children. Frequent sand storms cause
certain lung diseases and eyes irritation and strong rainfalls and floods have favoured the
15
United Nations office for the Coordination of Humanitarian Aid
35
proliferation of certain endemic diseases, such as malaria and meningitis.
Vulnerability
The poorest people are the most exposed to the consequences of these changes, due to their low
adaptive capacity and their vis-à-vis dependence on exploitation of natural resources with high
climate sensitivity. From a livelihood perspective, women are particularly vulnerable because they are
often carry the responsibility for subsistence agriculture, the productivity of which can be expected
to be adversely affected by climate change and over-exploited soil.
Droughts are recurrent phenomena in Niger, resulting in food insecurity and famine. Severe famines
were observed in 1974, 1985, 1994, or more recently in 2005 and 2010 and 2012. Today the food
deficit in the country is considered structural and Niger requires substantial food imports and the
implementation of international food aid. Malnutrition rates among children are high throughout the
country (DNM, 2014). It needs, however, to be stressed that although many official report ascribe
food insecurity to the consequences of climate change, the extreme population growth in Niger (the
highest in the world) is a significant contributing factor.
Climate change responses
Increased land degradation, desertification and climate changes threaten Niger’s fragile economy and
combatting food shortages is among the most important challenges of the 21st century. In a country
where the vast majority of the population depend on natural resources for their livelihood, natural
resource management and adaptation to climate change goes hand in hand.
Niger has developed a wide range of national policies and action plans to adapt to climate change
and improve management of natural resources, however, effective responses are often difficult due
to competition over resources brought about by conflicts, migration, population growth and lack of
employment opportunities, national and regional priorities and absence of funding for current action
plans and/or integration into sector plans.
The most important guiding policies & strategies for a long-term adoption to climate change and
management & conservation of natural resources include the National Adaptation Programme of
Action (2006), the National Policy on Climate Change (2012), the National strategy and action plan
for climate change and variability (2014), the Economic and Social Development Plan (PDES,
2012), and the “Nigeriens Nourishing Nigeriens” initiative (HCI3N, 2013). Important achievements
attributed to the I3N include a 113% increase in irrigated production, 301 new pastoral water points,
127 new, modern farms and the recovery of 82,500 ha of degraded land.
A National Action Plan for Integrated Water Resources Management (PANGIRE) is currently in
the making. A strategic environmental assessment of the PANGIRE is envisaged as well as a
strategic environmental management plan. The new national water and sanitation programme
expected to be approved by the Government at the end of 2016 (Programme Sectoriel Eau Hygiène et
Assainissement, PROSEHA 2016-2030) is also expected to touch upon the challenges of climate
changes in Niger.
Screening of Country Green Growth Framework
Assess the status of policies and strategies for green growth and the procedures for environmental
impact assessment in the country and sector. If an issue is inadequately dealt with (indicated by a tick
in the “no” box), please add comments and indicate further work to be undertaken (see also “next
steps” section, below).
Issue:
1.
Yes No
Do national procedures
and legislation for
Strategic
Comments and further work to be done:
The Bureau of Environmental Evaluation and Impact
Studies (BEEEI = Bureau d’Evaluation Environnementale et
des Etudes d’Impact) was created in 2000 and is the
36
Environmental
Assessment (SEA) and
Environmental Impact
Assessment (EIA)
exist?
national body ensuring that environmental concerns are
integrated into development activities.
National legislation on environmental impact
assessment include:

Ordonnance on institutionalisation of environmental
impact studies (Ordonnance N°97-001 du 10 janvier
1997portant institutionnalisation des Etudes d’Impact sur
l’Environnement)

Decree on administrative procedures for assessment
and review of environmental impacts (Décret n°2000397/PRN/ME/ LCD du 20 octobre 2000 portant sur la
procédure administrative d'évaluation et d'examen des impacts
sur l'Environnement)

Decree on determining the list of activities, works
and planning documents subject to the
Environmental Impact Studies (Décret n°2000398/PRN/ME/LCD du 20 octobre 2000 déterminant la
liste des activités, travaux et documents de planification
assujettis aux études d'impacts sur l'Environnement)
There is a range of national legal texts that contribute to
the management of environmental concerns in Niger,
these include:

The framework law on environmental management
(Loi-cadre relative à la Gestion de l’Environnement, n°9856 du 29 Décembre 1998)

The Rural Code (Ordonnance n° 93-015 du 2 mars 1993
fixant les Principes d’Orientation du Code Rural).

The Law on forestry (Loi portant régime forestier au
Niger, n°04-040 du 8 juin 2004)

the Water Code (Ordonnance n°2101-09 du 1er avril
2010 portant code de l'eau au Niger)

Code on Pastoralism (Ordonnance 2010-029 du 20 mai
2010 relative au pastoralisme)

Law on wildlife (Loi N° 98-07 du 29 avril 1998 fixant
le Régime de la Chasse et de la Protection de la Faune)

Law on Fisheries (loi n° 98-042 du 07 décembre 1998
portant régime de la pêche)

Law on mining (Ordonnance n° 93-16 du 2 mars 1993,
portant loi minière).

Decree on the regulation of the exploitation of rural
natural resources (Décret n°97-006 du 10 janvier 1997
portant réglementation de la mise en valeur des ressources
naturelles rurales,)
BEEEI is currently developing Strategic Environmental
Assessment regulation.
37
2.
Are there operational
Green Growth
Strategies/actions
plans and/or National
Environmental Action
plans?
Niger does not have a Green Growth Strategy as such,
but a document has been produced on greenhouse gases
mitigation in Niger.
Sector specific action plans include:

Stratégie Nationale et Plan d’Actions sur le Diversité
Biologique (CNEDD, 2009)

Plan National de Lutte Contre la Désertification
(CNEDD, 2000)

Plan Forestier National 2012-2021 (Ministère de
l’Hydraulique et de l’Environnement, 2012)

La Stratégie Énergie Domestique (2005) ;

Plan D’action de Développement Durable du Bassin
du Niger (Autorité du Bassin du Niger, 2007) ;
3.
Are there regularly
updated state of the
environment reports
and green growth
monitoring systems
with indicators?
A State of the Environment Report was elaborated in
2005.
There is no green growth monitoring systems with
indicators.
4.
Is there sufficient
institutional and
human capacity for
green growth and
environmental
management in the
sector concerned?
There is a lack of human resources both qualitatively and
quantitatively, especially at decentralised level.
Summarize the overall impression of the Country Green Growth Framework:
Environmental Impact Assessment
The overall framework, in the form of environmental legislation and policies related to
environmental management and impacts assessment exists in Niger. The BEEEI is responsible for
ensuring the implementation of the framework, including environmental monitoring activities in
collaboration with line ministries.
According to the EIA legislation, an EIA should be undertaken whenever activities can have an
impact on the environment. However, the legislation is in practice far from being respected. Lack of
capacity and resources for environmental monitoring and audits entail that BEEEI agents often
dependent on the companies they are monitoring for transport to the site and access to laboratory
equipment. Combined with often low salaries this is a breeding ground for corruption.
Green Growth Strategies, Environmental Action Plans and Environmental Monitoring
Green Growth Strategies
Niger does not have a strategy for green growth; however, there is a strong focus on sustainable
growth and development. The focus on sustainable growth and development rather than a
reduction of CO2 seems justified in a context where CO2 emission in 2015 amounted to only 0.1
metric tons per capita of which land use (including agriculture and forestry) accounted for 90.3%,
energy for 8.5%; waste for 1.2%; and industrial processes for only 0.06%. (In comparison; Denmark
38
= 7.1, USA = 17.0 and Qatar = 44.0).
The PDES (Plan de Développement Economique et Social du Niger 2012-2015) is Niger’s overall strategic
framework for the renaissance of Niger’s economy. The PDES lays the groundwork for a mediumterm economic policy that will give impetus to a dynamic of balanced development driven by
strong, inclusive, and sustainable growth. It will be supported in this regard by the country’s
numerous areas of potential and its natural resources, the exploitation of which represents the
principal lever of growth.
According to the PDES Niger will contribute to the effort to reduce greenhouse gas emissions by
targeting the three sectors that contribute the most greenhouse gases (changing use of land and
forests; agricultural and livestock production; and energy). In the specific case of Niger,
strengthening adaptability and resilience will be achieved by the following: i) improved codification
of the development of ligneous resources; ii) gradual introduction of appropriate technologies in
agriculture and livestock production; iii) promotion of renewable energy, clean technologies, and
efficient use of energy; and iv) incentives to create green jobs. Moreover, a greater sense of
responsibility will be incorporated in the national economic and social development process, by
adopting measures to curb global warming.
Although the PDES received broad support from the international community during a round table
meeting in 2012, challenges in terms consistency of government policy, traceability of interventions
and absorption of resources has resulted in reluctance from many donors to finance activities under
the PDES, and as a result the PDES remains underfinanced.
The 3N Initiative on food security and sustainable agricultural development is one of PDES’s 5
pillars. It aims to create conditions conducive to dealing with all risks to food and nutrition security,
especially in a situation of strong population growth, and to ensuring that the agricultural sector is
the vehicle for social transformation and economic growth. This means an increase conversion from
rainfed to irrigated agriculture. Irrigation systems have environmental impacts such as alteration of
natural conditions of the landscape, destruction of ecosystems surrounding the rivers and relocation
of inhabitants.
Extractive industries are a crucial piece of Niger’s economy. Exports of minerals account for 40%
of exports. Mineral commodities produced in Niger included cement, coal, gold, gypsum, limestone,
salt, silver, tin, and uranium. In 2006, Niger was the world’s fourth ranked producer of uranium.
The mining industry has potentially huge negative impacts on the surrounding environment such as
erosion, loss of biodiversity, contamination of air, soil, surface water and ground water. Especially
the use of toxic chemicals in the mining processes and leaching from waste depots of tailings that
deplete water quality and pose a problem for agricultural production and safe drinking water. Next
to the large mining corporations, artisanal mining has an important economic activity often with
disastrous impacts on the environmental and health. With wood being used for the construction of
the mines as well as for fuel for cooking in the mining villages, accelerated deforestation is a massive
issue, as is water contamination, large-scale air and soil pollution.
Environmental Action Plans
A national environmental action plan for sustainable development (PNEDD) was elaborated in
1998. Analysis of the implementation of PNEDD shows that the programmes related to climate
change, water and biodiversity have attracted most funding and other components were
insufficiently supported.
Environmental Monitoring
The National Ecological and Environmental Monitoring Centre, CNSEE (Centre National de Suivi
Ecologique et Environnemental) put in place by the Sahara and Sahel Observatory (OSS) has since 2007
been monitoring the agro-ecological and ecological diversity in nine observatories around the
country.
39
In addition, environmental audits of establishments and industrial units are continuing under the
leadership of BEEEI well as the implementation of the Framework Law on Environmental
Management and its subsequent legislation, including those relating to impact studies environmental
projects and programs.
Climate change and Green Growth opportunities and risks of programme
Assess how climate change and environmental opportunities and risks will arise through the
programme:
Will the programme ...
Opport
unity:
Risk: None:
1. ... support green growth initiatives including livelihood
improvements and resource efficiency
2. ... support the creation of decent and green job?
3. ... contribute to effective management and efficient use of natural
resources
4. ... have direct or indirect impact on climate change (e.g. through
increasing or reducing emissions of greenhouse gases)?
5. ... have direct or indirect impact on occupational health and safety?
6. ... lead to changes in land and resource tenure and access rights,
including the rights of indigenous peoples?
7. ... include activities within or adjacent to protected or
environmentally sensitive areas?
8. ... have direct or indirect impact on the resilience of communities in
the face of natural disasters?
Summarize and explain climate change and green growth opportunities:
The Country Programme may entail a number of opportunities for addressing climate change issues
and promoting a green inclusive growth, especially through the activities related access to water.
Food security & resilience: Denmark will continue the support to the 3N initiative, which aims to
enhance food security in a context of strong population growth, and to promote the agricultural
sector as a vehicle for economic growth, especially through irrigated agriculture. This means an
increased focus on economic growth and employment. Specific actions will be oriented towards
securing and diversifying revenues for vulnerable households.
Activities may include supporting income generating activities for women in rural areas, their access
to land and means of production and strengthens their resilience to the increased risks of natural
disasters following climate change, such as droughts and flooding.
Access to water: Denmark will continue the support to water management in order to improve
knowledge on the water resource, its management and protection. This includes support to rural
water supply and integrated water resource management (IWRM). Water resources in the region are
under pressure from an increased demand for water due to population growth, socioeconomic
development, such as mining, and the effects of climate changes. This pressure is a source of local
water conflicts between different user groups.
Opportunities of IWRM will be to ensure an effective groundwater and surface water resource
management on basin level (through national and trans-boundary stakeholder coordination) and
40
sub-basin level (through collaboration and dialogue with end users). Promotion of integrated water
resources management constitutes a major factor in ensuring green growth and preservation of
water resources in Niger
Summarize and explain climate change and green growth risks:
Food security & resilience: Irrigation systems have environmental impacts such as alteration of
natural conditions of the landscape, destruction of ecosystems surrounding the rivers and relocation
of inhabitants.
Access to water: The government’s focus on economic growth in water demanding sectors such as
agriculture and mining may lead to insufficient resources allocated to enforcement of laws and
regulations regarding water resources, despite the priority given by government to sustainable water
resources management, and part of the activities may target environmentally sensitive areas affected
by pollution caused by chemicals used in the mining industry.
Identify requirements for undertaking an Environmental Impact Assessment (EIA).
Categories are: [ A ] Full EIA required; [ B ] Partial EIA required; [ C ] No EIA required16.
Intervention Name
Category A, B or C:
1: Governance
Select category: C
2: Water and Sanitation
Select category: B
Will national regulations and procedures for EIA be applicable to activities of the programme that
have potential environmental impacts? – Yes
- No
When will the EIA be undertaken?
Activities under the water programme include support for construction of infrastructure of different
size. According to the national EIA legislation all projects of a certain type and scale must be
screened to assess whether a full, a partial or no EIA is required. Some of the activities under the
two themes might require a full EIA.
Next Steps – process action plan
Need for further work during the preparation, appraisal and implementation of the programme
arising from the climate change and green growth screening:
Suggested activity:
Action needed Comments and elaboration:
1. Assessment of green growth and climate change
opportunities in sector development plan.
2. Assessment of capacity for green growth and climate
change management in the sector/country.
3. Prepare ToR for and conduct Country Analytical
Work.
4. Prepare ToR for and conduct SEA(s) of sector
policies or plans.
Category A = intervention is likely to have adverse environmental impacts that may be sensitive, irreversible, and significant in
scale/scope; B = intervention is likely to have negative impacts, but which are less significant, not as sensitive, numerous, major or
diverse; C = the environmental risk of the intervention are of little or no concern.
16
41
5. Prepare ToR for and conduct EIA(s) for programme
interventions.
6. Initiate donor harmonisation in the sector on green
growth and climate change.
7. Other...?
Signature of Screening Note
Niamey,
……………………………………………………….
(name)
Reference list

CNEDD (1998). Plan National de l’Environnement pour un Développement Durable (PNEDD)

CNEDD (2009). Seconde communication nationale à la conférence des parties de la conventioncadre des nations unies sur les changements climatiques.

CNEDD (2011). Document de Synthèse sur l’atténuation des GES au Niger.

CNEDD (2012). Avant-projet de document de politique nationale en matière de changements
climatiques (PNLCC). Rapport final. Africa Adaptation Program/UNDP.

CNEDD (2014). Stratégie nationale et du plan d’action en matière de changements et variabilité
climatiques (SNPACVC).

Direction de la météorologie nationale (DNM), Ministère de transport (2014). Rapport d’étude sur
l’état des connaissances nationales sur les changements climatiques, les études d’impacts et les
stratégies d’adaptation aux effets des changements climatiques.

Direction Générale des Ressources en Eau (DGRE), Ministère de l’Hydraulique et de
l’Assainissement (2016). Etude diagnostique de la situation actuelle des ressources en eau au Niger
dans le cadre du Projet d’élaboration du Plan d’Action National de Gestion Intégrée des Ressources
en Eau (PANGIRE).

Haut Commissariat à l’initiative 3N (2012). Cadre stratégique de l’Initiative « les Nigériens
Nourrissent les Nigériens » pour la Sécurité Alimentaire et le Développement agricole.

IPCC (2014), Intergovernmental Panel on Climate Change, Working Group II, Assessment Report
5, Chapter 22, “Africa”

Ministère de l’Environnement, de la Salubrité Urbaine et du Développement (2015). Intended
Nationally Determined Contribution (INDC) of Niger.

Plan de Développement Economique et Social (PDES), 2012.

United Nations office for the Coordination of Humanitarian Aid (2016)
42
COUNTRY PROGRAMME SCENARIOS
Scenarios
Status Quo
The political situation remains
stable but with a fragmented
political scene characterised by
strong conflicts, limited progress on
legislation and public sector
reforms and a highly politicised
administration. The national
security situation is fragile but
remains relatively stable albeit
pockets of insecurity and terrorist
attacks threaten stability. Insecurity
in the region limits private sector
development and economic growth
remains unstable. With support
from external partners, investments
in social and economic sectors
contribute to modest poverty
reduction and attenuation of food
crisis.
Best Case
The political climate improves
allowing for successful
implementation of reform
projects. The regional security
situation is improved. Progress
accelerates in terms of public
service delivery and protection of
human rights. An expanding
mining sector provides an
increase in resources available for
government to invest in socioeconomic development and foster
economic growth. Taking into
account the depth of poverty in
Niger, it must be expected that
Niger remains a low-income
country throughout the period
covered by the country
programme.
Worst Case
Political tensions result in
paralysis of government or
a military coup plunging the
country into a new
economic and social crisis.
Terrorist attacks multiply
and the state loses control
with major parts of its
territory. Humanitarian
crisis expand.
Cooperation will follow the main
thrust of the policy paper as the
country programme will be
conceived in order to support long
term improvements including
capacity building in government
and civil society organisations
while not disregarding ability to
provide response to immediate
needs e.g. the area of migration.
With an improved security
situation it will be possible to
increase interaction with local
authorities. In the case of an
improvement the business
environment in Niger it will
become more meaningful to
engage with the formal business
sector and, instruments for
developing business collaboration
could possibly be considered in
areas such as water and energy
efficiency. It is expected that
migration challenges will remain
but that government institutional
capacity to address these
challenges will improve.
Partners
 State institutions
 Civil society organisations
 Private sector organisations and
operators
 Multilateral organisations
As in status quo scenario
Modalities
Preference given to delegated
partnerships with bilateral and
multilateral donors
An adequate balance between
support to state institutions and
non-government actors is sought
Delegated partnerships will be
maintained but a dialogue will be
conducted with a view to
strengthen 1. Capacity building of
state institutions through
increased TA, and 2. Alignment
to national systems including
PFM procedures
In the case of set-backs in
democracy or government
breakdown, emphasis will
be given to humanitarian
assistance, stabilisation and
support to civil society.
Geographic focus will be
decided on the basis of a
close monitoring of the
security situation within the
country and coordination of
donor interventions. It will
be difficult to maintain
long-term capacity building.
Migration challenges
remain high but government
migration management
response is seriously
weakened.
Reconsideration regarding
relevance/feasibility of
continued support through
state institutions and a
possible refocusing on
CSOs, private sector
organisations and on
providing support through
multilateral organisations.
Programme funding to state
institutions is likely to be
abandoned and channelled
through parallel
mechanisms with a focus on
humanitarian aid. TA in
state institutions will be
abandoned.
Design/Response
Overall policy
response
43
PRELIMINARY RESULTS FRAMEWORK
Democratic governance, stability and migration management
Thematic Programme Democratic governance, stability and migration management
Thematic Programme Contribute to lowering the likelihood of conflict and building a stable
Objective
foundation for development by strengthening the capacity of key state and civil
society actors to address drivers of instability, including extremism, migration
and demographic growth with a particular emphasis on the participation of
women, youth and minority groups.
Impact Indicator
Improvement in Niger’s average score on the Fragile States Index
Baseline
Year
[Situation prior to engagement activities]
Target
Year
[Intended situation by the end of engagement (phase)]
Engagement Title
Outcome
Outcome indicator
Baseline
Year
Target
Year
Engagement Title
Outcome
Outcome indicator
Baseline
Target
Year
Year
Engagement Title
Outcome
Outcome indicator
Baseline
Year
Target
Year
National mechanism for prevention of conflicts and the adverse effects of
migration
Strengthened resilience to conflicts
- No. of displacements caused by security challenges
- Percentage of people who feel safe (SDG indicator 16.1.4)
2016
- 127, 208 IDPS (UNHCR, August 2016)/ 184,404 (National
Sources, September 2016)
2022
Accountable and inclusive governance
Enhanced representation and voice of youth, women, marginalised groups
- Percentage of population expressing positive opinions about inclusiveness
in decision-making and government responsiveness (SDG indicator 16.7.2)
- Number of conflicts/human rights violation cases in which CSOs and/or
independent institutions have spoken/acted
- Number of youth, women, marginalised groups engaged in supported
activities
- Number of stakeholders with increased capacity to address the migration
challenge based on evidence-based knowledge
2016
[Situation prior to engagement activities]
2022
[intended situation by the end of engagement (phase)]
Managing demographic growth through enhanced women’s sexual and
reproductive health and rights
Women and girls are empowered to claim their right to education and health
care services and fight against stigma is promoted
- Contraceptive prevalence rate
2017
[Situation prior to engagement activities]
2022
[intended situation by the end of engagement (phase)]
44
Water and Sanitation
Thematic Programme
Thematic Programme
Objective
Impact Indicators
Baseline
Year
Target
Year
Water and Sanitation
Support to the Government’s goal to guaranty access to water and sanitation for all
by 2030 (ODD 6) and a sustainable management of water resources
a. Improved access by the rural population to drinking water
b. Improved access at national level to sanitation services
2014
Access to drinking water: 50%
2015
Access to hygienic toilets: 14%
2022
Access to drinking water: 55% (to be verified during inception phase)
Access to hygienic toilets: 49% (to be verified during inception phase)
Engagement Title
Support to the water and sanitation sector through support to the
implementation of the national water and sanitation programme 20162030
Outcome 1
Outcome indicator 1
Strengthened good governance of the water sector
Improved capacities, planning systems and administrative and financial
administration of the Ministry of Water and Sanitation and on the basis of
results based management
2017
No plans for competence development, tools and management of
professional careers in the Ministry of Water and Sanitation
2022
Plans developed and implemented
Improved universal, equitable and affordable access to drinking water
Additional persons with access to drinking water in rural areas
2017
0
2022
250.000
Improved universal, equitable and affordable access to sanitation and
adequate hygiene in rural areas
Reduction in the level of open air defecation
2015
73%
2022
49% (to be verified during inception phase)
Improved knowledge, management and protection of water resources
Improved local water management and prevention of conflicts
2017
XX Functional local water basin institutions (to be defined based
on National Water and Sanitation Programme 2016-2030)
2022
XX Functional local water basin institutions (ditto)
Improved access to water by all users in the pastoralist zones
Promoted management of pastoral water supply points for stakeholders and
in the main local government areas
2017
XX number of regions (to be defined based on National Water
and Sanitation Programme 2016-2030)
2022
6 regions
Baseline
Year
Target
Year
Outcome 2
Outcome indicator 2
Baseline
Year
Target
Year
Outcome 3
Outcome indicator 3
Baseline
Year
Target
Year
Outcome 4
Outcome indicator 4
Baseline
Year
Target
Year
Outcome 5
Outcome indicator 5
Baseline
Year
Target
Year
45
Promotion of Jobs and economic Growth in Agriculture
Thematic
Programme
Thematic
Programme
Objective
Impact Indicator
Baseline
Target
Year
Year
Engagement Title
Outcome
Outcome indicator
Baseline
Target
Year
Year
Engagement Title
Outcome
Outcome indicator
Baseline
Year
Target
Year
Promotion of Jobs and Economic Growth in the Agriculture Sector
Improve private sector led, sustainable economic growth and job creation,
based on the agriculture sector
Incidence of poverty in rural areas reduced from 45,1% in 2014 to 40,85% in
2019
Doing Business ranking
2014
45,10%
2019
40,85%
Support to agriculture value chains in the regions of Zinder and Diffa
Promotion of green inclusive economic growth including enhanced job
opportunities through the creation of added value in the agriculture sector
- Proportion of the population living below the poverty line (%); poverty
incidence and depth of poverty (under update)
2013
45,1%
2019
- Reduced proportion of people whose income is less than one
dollar a day
- Integrate the principles of sustainable development into country
policies and programmes and reverse the loss of environmental
resources
Improvement of business climate and competitiveness of value chains
Improvement of business climate and framework conditions of private sector
development
- Direct compliance cost savings
- Increase of sales revenue of beneficiary firms (US$)
- Direct project beneficiaries, of which female (20%)
- Improvement in Niger’s Doing Business ranking: 176th place out of
185
2013
- 0 (Direct compliance cost savings)
- 0 (Increase of sales revenue of beneficiary firms (US$)
- 0 (Direct project beneficiaries, of which female (20%))
- 176th place doing business
2021
-
.
.
.
5 millions F.CFA (Direct compliance cost savings)
10% (Increase of sales revenue of beneficiary firms (US$)
2.300 (Direct project beneficiaries, of which female (20%))
145 place out of 185
46
PRELIMINARY RISK MANAGEMENT MATRIX
47
48
49
50