UNITED NATIONS VOLUNTEERS PROGRAMME SPECIAL … · 2014-06-09 · Lesotho suffers from acute...
Transcript of UNITED NATIONS VOLUNTEERS PROGRAMME SPECIAL … · 2014-06-09 · Lesotho suffers from acute...
Draft Format for Project Documents - GTR 07/08/97 UNITED NATIONS VOLUNTEERS PROGRAMME
SPECIAL VOLUNTARY FUND PROJECT DOCUMENT
Project No.: Project Title: Labour-intensive Urban Upgrading Programme Location: Maseru - Lesotho
Executing Agency: ILO and UNV Implementing Agency: Maseru City Council Co-operating Partner(s): Labour Construction Unit Backstopping UNV Group/Section: Research and Development Section (Urban Development Group), UNV Headquarters, Bonn
Commencement date: October, 1998 Duration: 24 months
Funding Source(s): UNV’s SVF & ILO Project Budget: US$ 500,200.00
Brief Project Description and Strategy 2000 context: The project will address the growing problems of urban unemployment and poverty in Lesotho by building capacity within the Maseru City Council to plan and implement urban upgrading schemes using labour-based methods. Working through NGOs and poor urban groups, the project will secure the maximum possible participation of the target population and contribute to the stimulation of the local economy through employment expansion and creation of cash incomes. The project builds on UNV’s previous experience in grassroots mobilization and empowerment and emphasizes urban development and environmental management. Recommended for approval: ______________________________ _______________ PAC Chairperson Date
Approved: ______________________________ _______________
Executive Co-ordinator Date
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1. BACKGROUND & JUSTIFICATION
1.1 Country Context
Lesotho ranks among the world’s poorest countries and falls in the category of least
developed countries (LDCs). Within the 12-member Southern African Development
Community (SADC), it has the 6th lowest per capita GDP and the 11th lowest export
receipts. Unemployment rate in the country is equally one of the highest in the region and
has been growing in recent years, even among University graduates. Recent estimates by
the Ministry of Labour and Bureau of Statistics suggest that about 34% of the population
may be openly unemployed, with women constituting the majority of the jobless.
Evidence of high underemployment abounds and this clearly makes the already desperate
situation even worse.
Historically, Lesotho’s domestic unemployment problem had been relieved through
labour migration to the South African mines where, up to 1993, as many as 40% of the
country’s male labour force was employed. The remittances of these mineworkers has
always been the single most important source of family income in Lesotho and
contributes to a large extent to household subsistence and domestic investment.
During the present decade, employment in the South African mines seems to have peaked
in 1990 at 103,000 Basotho, but has been falling ever since. At peak level of mine
employment, the remittances from RSA constituted some 30% of the GNP of the country.
In 1990, miners’ total remittances came to about 474 million maloti (or US$183m), and
in 1994 it is estimated that the remittances amounted to some 330 million maloti (the
equivalent of US$95 million). The downward trend has continued since then. By 1997
only about 90,000 Basotho, or 19% of the male labour force, were working in the mines
in South Africa. This has been the result of contraction of the South African labour
market and the on-going policy of retrenchments at the mines in response to the
deteriorating cost situation. In addition, the new immigration policy which grants
residence permit to long-serving miners means that over time, more miners will be
residing in RSA with their families. Thus, even if the on-going retrenchments at the
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mines were to stop, there is no doubt that the current drastic reduction in the level of
remittances will continue.
The macroeconomic situation of the country derives mainly from the absence of
important deposits of exploitable resources. In addition to this, the country’s
mountainous topography renders virtually all the land inappropriate for agriculture,
leaving just about 9% of the total land area suitable for arable farming. Many households
therefore lack access to farmlands of the right economic sizes to support other than
merely subsistence production. Agriculture’s contribution to the nation’s GDP thus
remains a meagre 10% despite having as much as 50% of the population reportedly living
off the farm. Dwindling agricultural incomes have thus become a permanent feature of
the rural areas where up to 80% of the population may still reside.
Understandably, rural-urban migration has intensified in recent years with urbanization
estimated to be growing at the rate of 6% per annum, estimated to be higher than the
average growth rate for the region. If current trends persist, it is estimated that more than
25% of the population will be living in the urban areas within the next two years. Urban
services that are already overstretched are poised to become overwhelmed as a result.
And in the present situation characterized by slow growth of job opportunities throughout
the economy, newly-arriving migrants face very unpleasant prospects of the increasing
frustration of being jobless for prolonged periods.
The emerging scenario therefore is that of an urban poverty problem that could pose
more serious embarrassment for policy makers given the greater political awareness of
urban dwellers. Urban poverty differs from rural poverty in terms of the high
vulnerability of the urban poor to unstable market conditions since they do not have the
option to fall back on an agrarian support system unlike their rural counterparts. At the
same time, there are no functional social security mechanisms to buffer the poor from the
harsh realities of their condition.
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But there has been a positive development in the past few years regarding internal
revenue generation for development purposes. This has been in the form of the Lesotho
Highlands Water Project which was established in 1989. The aim of the project is to
harness the abundant water from the Maluti mountains and deliver them through a
network of dams and tunnels to the industrial zones of the Republic of South Africa.
When the project is completed in a few years it is expected that the annual revenue from
the sale of water will amount to about US$55 million which is estimated to represent
some 14% of government revenues. At a time when foreign development assistance to
Lesotho is on the decline, particularly since the end of the apartheid regime in South
Africa which ended the bridgehead status of Lesotho, the new window of opportunity
offered by the LHWP revenue has been widely welcome.
1.2 The Infrastructure Situation
The peculiar mountainous topography and unique climatic conditions of Lesotho
predispose it to a wide variety of ecological conditions. The country has the distinction of
having its lowest point more than 1,000 metres above sea level, approximately 80% of
the area being above 2,000 metres, and the rest of the country generally characterized by
high elevations and rugged terrain. The torrential rains, thunderstorms and high, violent
winds that feature at the end of winter, generally from the end of July, combine with the
very thin soil cover to cause quite extensive damage to the environment through soil
erosion.
The result of the above situation is that land degradation is progressing in many parts of
the country at a very rapid pace. The most notorious manifestation of the environmental
damage is the so-called “dongas” or gullies which dot the landscape and pose serious
threat to public safety. The incidence of these features complicate the problems faced by
the construction industry. As a result, the quality of various categories of infrastructure
often tend to be inconsistent. There is also acute shortage of good quality housing, clean
water, drainage facilities and arrangements for solid waste disposal.
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Access constraints are quite severe and have far-reaching economic consequences due to
high transport and road user costs. The soil erosion, coupled with often inappropriate
construction practices, cause the roads to deteriorate rapidly and expose lose stones and
potholes which make motoring very difficult and distressful. The situation in the urban
areas is not different. In the case of the Maseru Council area, almost all the roads are
underlaid by clay soil. Due to the high proneness of this soil type to erosion, pot-hole
formation is frequent and a majority of the roads are not motorable.
There is also the problem of inappropriate policies for human settlement management
and failure to enforce legislation on construction practices. For instance, service lines
such as water pipelines, power and telegraph cables are not laid in accordance with
proper procedures and location plans are generally not available. Thus, when these lines
are to be maintained, the process of trial-and-error needed to locate them results in
extensive corrugation of the road network which adds to the access difficulties in the
metropolis.
1.3 Capacity Constraints
Lesotho suffers from acute manpower shortage and capacity constraints which
exacerbates its dependency situation. For virtually all skill areas, the country relies on
external sources for qualified personnel. The country has continued to recruit school
teachers, medical doctors, accountants, engineers, and just about any profession, from
other African countries and beyond. It is not uncommon to find entire government
departments being manned by foreign professionals. Many donor-assisted programmes
which are predicated on the principle of transferring know-how to trained nationals are
frustrated by the difficulty in identifying local persons to serve as counterparts to the
technical assistance personnel.
This situation of chronic shortage of high level manpower in the country has been
attributed to the phenomenon of “brain drain”. This phenomenon assures that the large
investments in education and training to develop the nation’s human resources do not
yield any tangible results. A recent study sponsored by the UNDP and the
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Commonwealth Secretariat concluded that the destination of the majority of Basotho
professionals is the Republic of South Africa where working conditions are generally
better than in Lesotho. According to the study, poor levels of remuneration, political
instability and lack of opportunities for career progression and job satisfaction are the
common causes of the high incidence of brain drain. In the light of these reasons, coupled
with the unique location of Lesotho and the peculiar relationship it enjoys with RSA, it is
highly unlikely that the manpower profile of the country will change in the foreseeable
future.
The situation in the Maseru City Council (MCC) is quite typical. The Infrastructure
department of the Council is managed by a City Engineer who is assisted by a Chief
Engineer (works) and a Deputy City Engineer. The Deputy City Engineer is a foreigner.
Out of the 24 established senior technical positions in the department, 12 are vacant and
one person is away on course.
2. STRATEGY 2000 SUPPORT
The initiative being proposed will have three components, namely direct investment in
urban infrastructure works, institution building, and a sector-specific action-research
aspect. Broadly, the direct investment component will use labour-intensive techniques to
upgrade Maseru’s urban infrastructure and this will link up with the institution building
component which will involve the establishment and staffing of a labour-based unit
within the Maseru City Council to assume full responsibility for planning and
implementation of urban infrastructure works using labour-based, employment-intensive
methods. The third component involving sector-specific action research will employ the
instrumentality of a local UNV network (both international and national volunteers) to
work with different urban administrations in the country to analyse their investment plans
and policies and propose opportunities for increasing impact on quality and quantity of
employment through various means of action, including labour-based upgrading, small
contractor development, community contracting and informal sector development. The
action research is also a basis for initial programming of possible future expansion into
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other urban areas in the country and assessing the willingness and capacities of other
partners in the context of an enlarged programme of development assistance.
In relation to the institutional building and direct investment aspects, this approach will
maximize the utilization of locally-available resources and labour and promote the
employment of unskilled, surplus labour composed largely of the urban poor. Through
the use of locally-sustainable methods, the approach will promote the self-reliant
maintenance of the installed infrastructure which will guarantee long-term employment
generation in infrastructure development.
This approach relates to UNV’s Strategy 2000 in focusing on urban development in both
physical and economic terms. By promoting the use of labour-intensive methods, the
approach will create jobs and income among the very poor whose enhanced spending
power will stimulate the urban economy and encourage enterprise in the products that the
poor buy for their subsistence. As well, experience has shown that because of its unique
topography and climate the use of equipment-intensive construction methods are
inappropriate for the Lesotho environment. Thus, the use of labour-intensive methods
which result in minimum disturbance of the soil structure will promote environmental
protection.
The UNV involvement in this initiative will have important practical implications. The
UNV has generally excelled in programmes where mobilization of the poor at the
grassroots level is a central implementation strategy. The poor urban settlements of
Maseru are challenging areas to work in and require the application of participatory
approaches in which the UNV has considerable expertise. These approaches have been
employed with great success in the UNV-executed Grassroots Initiative Support Project
(GRISP) which was implemented in Lesotho over a period of 45 months and stands out
today as one of the best-implemented UNDP programme in the country.
3. PROJECT STRATEGY & APPROACH
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3.1 Pre-Project Situation
The severity of urban poverty is only now being fully understood in Lesotho. A recent
assessment of urban poverty in the country agrees with an earlier World Bank finding
that 27% of the urban population outside Maseru and 28% of the Maseru population live
below the poverty line. In Maseru alone, the assessment concludes that 37% of the
population are poor while 18% are classified as “ultra-poor”. The “poor” are defined in
the studies as those who spend “only up to 50% of the average adult equivalent
expenditure of the population”. The “ultra-poor” are those whose expenditures are only
up to 25% of the average adult equivalent expenditure of the population.
The studies present a picture of increasing destitution and pauperization of the urban
population in the late 1990s. The on-going retrenchments at the South African mines are
no doubt a contributory factor. The remittances from migrant Basotho labour provide the
lifeline for 70% of rural households. With the erosion of these remittances, these rural
households become exposed and migrate to Maseru in search of jobs. Given the
contracting internal labour market in Maseru, these households become locked into a
“poverty trap” characterized by lack of employment and income, inability to meet basic
needs including shelter, food and clothing, and proneness to preventable diseases. It has
been reported that access to water supply, electricity, adequate transportation, and quality
health services, is still very limited among the poor. School drop-out rates which have
been high among the poor households has been growing among this group in recent
times. Even those who are still able to maintain their children in school can only pay for
facilities where standards are rather low.
The Urban Poverty Assessment has identified the poor in Lesotho as the female-headed
households, street children, street vendors, the beer brewers, the shebeen men and
women, the piece job workers, and the households of ex-mine workers. The shebeen is a
locale for drinking traditional beer and commonly located in low-income areas. Of all of
these, the recent phenomenon of street children is the most worrisome. These children are
mostly boys with the number of girls now beginning to grow. They are generally in the
10 to 18 years age group and have come to live on or off the street because their families
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are unable to provide for them. In having to fend for themselves, the street children sell
newspapers, wash/watch cars, carry loads for shoppers and beg for money to buy food.
When these activities fail to bring in enough money for food, these street children
scavenge for food in garbage dumps or engage in criminal activities. It is now well
known that these children are employed by drug dealers for distribution of their
dangerous merchandise. The big time drug dealers, or “barons” as they are known, find it
necessary to equip these youths with shotguns as protection against violent attacks. Thus
empowered, these youths become quite daring and use guns to terrorize the general
public and intimidate people into donating money or hiring them to wash or watch their
cars, etc. The emergence of criminal behaviour can therefore have quite innocent
beginnings. There is broad agreement in Maseru that this is now a very serious problem
and people are cautious about the way they react to the persistence of these street beggars
or those who offer their services for such things as carrying a near-empty shopping bag
or watching your car in a crowded street.
3.2 Conceptual Approach of the Project
The project builds on existing knowledge and experience about the efficacy of the
labour-intensive technology in relieving the problem of unemployment and
underemployment when it is applied to the construction, rehabilitation and maintenance
of infrastructure. Experience from around the world has shown that this approach is
appropriate for dealing with the immediate development concerns of countries where
capital is scarce such that locally available resources, including labour, become more
competitive. This situation is often exacerbated by the lack of indigenous manufacturing
capacity which means that heavy equipment needed to execute equipment-intensive
construction works must have to be imported.
In such situations, it has been found that the use of labour-based technology can lead to
considerable cost savings while at the same time creating employment for the surplus
manpower in the country which would otherwise be unable to find jobs. For a resource-
poor country with very little foreign exchange earning, this is a very sensible
development path to the extent that it creates durable assets that promote long-term self-
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reliant development while providing the much needed safety net for the population
during a difficult period of adjustment. At the same time, the use of labour-intensive
technologies has been found very effective in the organization of communities around
strategic development initiatives which call for the active broad-based participation.
This approach has been demonstrated in Lesotho under an ILO-assisted project which
established the Labour Construction Unit (LCU) at the Ministry of Works with support
from the Swedish Development Agency ( SIDA). Through its work, the LCU has been
able to build confidence among the policy makers in the effectiveness of the approach
and its enduring relevance to the socio-economic situation of the country, particularly in
relation to its resource profile, ecological conditions and the extent of unemployment and
underemployment. However, the LCU has focused over the years on rural infrastructure
and there has not been any attempt to extend this technology to the improvement of urban
infrastructure.
3.3 Associated Partners of the Project
The idea of the project arose from a series of discussions between the UNV and ILO in
the context of the implementation of the prescriptions of the Habitat II conference held in
Istanbul in June 1996. UNDP Lesotho, as a follow up to that conference, undertook a
study in October and November 1997 to assess the extent of urban poverty in country.
The conclusion of that study that urban poverty was growing in Lesotho led to a
workshop at which wider in-depth discussion of the subject yielded further insights and a
preliminary decision to have an operational follow-up in the form of a project.
Following this, contact was established simultaneously with the Labour Construction
Unit and the Maseru City Council. Under the present arrangements for upgrading of
urban infrastructure, the Maseru City Council is the lead implementing agency. The
funds available for urban infrastructure from the Lesotho Highlands Revenue Fund are
specifically targeted to the poor through the use of labour-intensive methods. Although to
date, there has been no mechanism for linking up with the LCU to take advantage of the
available know-how, each agency is aware of the relevant institutional needs and there is
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evidence of a preparedness to collaborate under a mutually conducive institutional
framework.
The Maseru City Council’s estimated annual budget for roads is about M40 million. This
is for the rehabilitation and maintenance of the roughly 560 km. of roads managed by the
Council. According to available statistics, 64% of the Council’s roads, measuring about
355 km., are unsurfaced roads, 25%, or 140 km., are gravel roads, while 10%, or 55 km.,
are bitument roads. Only about 10 km. of the Council’s roads, or 1%, are new roads and
upgrades. These statistics are displayed in the following Table.
Table 3.1: Maseru City Council - annual road budget and responsibility
Type of Roads Total Road Length (Km)
Unit Cost Maloti/Km
Total Road Budget (M)
Bitumen roads 55 45,000.00 2,475,000.00
Gravel roads 140 96,000.00 13,440,000.00
Unsurfaced roads 355 60,000.00 21,300,000.00
New roads/upgrade 10 278,500.00 2,785,000.00
Total 560 40,000,000.00
Source: Information material from Maseru City Council, July, 1998.
The road projects undertaken by the Maseru City Council in the framework of the
funding from the Lesotho Highlands Development Revenue Fund are specifically
intended to use labour-intensive methods. The Council’s budget update on these projects
released on 26 June, 1998, lists a total of 16 roads covering various Maseru suburbs,
including Matsoatlareng, Sea Point, Thibella, Moshoeshoe II, Hoohlo, Pitso Ground,
Maseru East, Khubetsoana, Qoaling/Thetsane, Tsenola/Botsabelo, Makoti/Sefateng,
Phatlalla-Lancers Gap, Motimposo/Tsenola, Botsabelo/Thamae Dam, Thamae/Lancers
Gap, Tsenola/Tsosane. For the period 1997/98 - 1998/99, the amount allocated from the
Lesotho Highlands Development Revenue Fund was M5,126,762.
3.4 Nature of UNV Input Foreseen
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A total of 7 UN volunteers will be needed on the project. Of this, 4 will be international
UNV Specialists, while 3 will be national UNVs. The 4 international UNV Specialists
will include 2 civil works engineers, one participatory development specialist, and
development economist. The three national UNVs will be middle-level supervisory
personnel who would normally be expected to hold technical diplomas from the Lerotholi
Polytechnic in Maseru or equivalent qualifications from elsewhere.
One of the civil works engineers will be a very experienced labour-based engineer who
will be expected to head the technical assistance team. The other engineer will be a
training expert and will have the responsibility for capacity building of national project
personnel, participating groups of the urban poor, NGOs which will be strengthened to
plan and implement labour-intensive infrastructure works, and other entities as may be
identified in the course of implementation.
The national UNVs will include one participatory development specialist, one
information officer, and a socioeconomist. The NUNV participatory development
specialist will work hand-in-hand with the international UNV participatory development
specialist and will be responsible for identifying local issues around which it will be
necessary to organize mobilizational interventions in order to promote wider involvement
of the population. The key concern will be to more effectively target the poor and ensure
that a large proportion of project funds reach the target population. In this, the NUNV
participatory development specialist will play a lead advisory role in the team based on
his/her intimate knowledge of local conditions and income distribution patterns. The
NUNV Information Officer will be responsible for the media relations aspects of the
project and will provide a constant flow of information about the project to the larger
society to ensure that there is clear awareness about the activities going on under the
project.
The NUNV socioeconomist will liaise with the rest of the team to establish
socioeconomic criteria for subproject selection and determine the impacts in terms of
employment generation, cost effectiveness, etc. It will also be the role of the NUNV
socioeconomist, with the collaboration of the rest of the team, to work out the extent of
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labour availability in the catchment areas of the identified subprojects. The UNV
development economist will liaise with a short-term international consultant and officials
of UNV (Urban Development focal point) and ILO (EIP of POL/DEV) to draw up the
design for the sector-specific action research. The UNV development economist will also
be responsible for the implementation of the research activities under the direction of the
senior UNV labour-based engineer and the City Engineer of the Maseru City Council.
3.5 Co-ordination With On-going/Completed Programmes
The proposed project will link up with another proposed project entitled: “Empowerment
of Self-Help Community Groups for Poverty Alleviation in Lesotho” which was
submitted to UNV Headquarters and is currently being considered for Irish funding. The
community empowerment project proposes to strengthen the common interest groups to
implement development programmes including infrastructure works. Given the
congruence of their objectives in employment generation and poverty alleviation, there is
immense scope for sharing of information and experiences between the two projects.
Such congruence of objectives can also contribute to cost effective management of both
projects through exchange of expertise and results which will eliminate duplication of
efforts and activities.
The proposed project equally shares some interests with an on-going UNDP-assisted
programme entitled: “Establishment of a National Environment Youth Corps in Lesotho -
LES/94/008”. The NEYC programme aims to create employment among rural and urban
youth through the implementation of a number of environmental rehabilitation and
protection activities, including gully correction. Given this orientation, there is every
likelihood that a large body of intimate local knowledge about how to deal with such
environmental problems will already be available at the time the proposed project takes
off.
Additionally, the NEYC programme is currently utilizing three international UNVs and
has an active pipeline international UNV post to fill. The programme is also about to
engage the first-ever national UNV as Information Officer. Thus, there is ample scope for
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cooperation between the two project at both the professional and personal/social levels
among the UN Volunteers. There is also room for professional exchanges between the
project and the Labour Construction Unit.
The above interactions and contacts will be mediated through a number of formal
arrangements, including:
(i) Setting up a technical steering committee to be known as the Urban Development
Technical Steering Committee which will monitor the implementation of the urban
development programmes against a set of pre-determined criteria, including employment
generation, reduction in number of street children, improvements in the physical
condition of urban infrastructure, etc. The membership of the committee will comprise
representatives from the Maseru City Council, Ministries of Works, Agriculture, Local
Government/Rural and Urban Development, Labour Construction Unit, Lesotho
Highlands Revenue Fund, the Lesotho Council of NGOs, and UNV/UNDP.
(ii) Co-ordination by the Ministry of Local Government, Rural and Urban Development
within the framework of the Community Empowerment Group’s meeting to monitor the
progress of works and establish guidelines for urban development.
(iii) Periodic people’s forum organized within the poor urban settlements to assess the
mood of the beneficiaries in respect of progress of the works and satisfaction of their
basic needs.
The component on sector-specific action research link up with a number of on-going
UNDP-assisted projects, including the Urban Poverty Assessment and the HABITAT
initiatives. There will be substantial synergy between the component and the on-going
National Rural Development Programme (NRDP) in respect of activities and
programming in the districts some of which fall under the definition of “urban areas”. In
this regard, the project will be represented on the Community Empowerment Group and
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share information with the rest of the membership drawn from other organizations
currently working in the field of urban development.
The research component will also link up with the on-going UNDP/ILO-assisted project
on Employment Policy Formulation and Labour Market Analysis (LES/94/004). This
project is generating data and information essential for the formulation of improved
employment and labour market policy in Lesotho. The project has recently completed the
first draft employment policy for the country and has also profiled special employment
schemes implemented in the country over the years. These reports, documents and data
will form very useful background material for the work of the research team which will
draw immense benefits from cooperating closely with LES/94/004.
3.6 Sustainability Issues
The essential element for sustainability and local-level continuation of project activities
following project termination is that the capacity of the local personnel and host
institution is built up to the extent that activities can be managed without external
involvement. This brings up once again the importance of counterparts for the technical
assistance team. For various reasons already highlighted, this has hitherto been a serious
concern in Lesotho and revolves around the problem of brain drain. Resolving the
problem of brain drain is one that calls for action at the national level and will no doubt
require major changes in the
working conditions and levels of remuneration and introduce reforms which will provide
ample opportunities for career progression and job satisfaction.
Taking all these into account, the present proposal is being made to utilize a crop of
national UN Volunteers. It is expected that the technical skills of these NUNVs will be
sharpened in the course of their involvement on the proposed project. This will put them
in a position to constitute the core of national expertise to carry on the project activities at
the expiry of international assistance. They also have the critical role of being reference
points for purposes of convincing local people to remain at home to support national
development initiatives.
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Another element in ensuring sustainability of the project is the proposed link up with the
Lerotholi Polytechnic which can be encouraged to introduce aspects of labour-intensive
urban infrastructure works in the curriculum for civil engineering education. The students
of the civil engineering department will be assigned to do project work on topics related
to labour-based activities. It can also be arranged that the students spend part of their
internship periods on the work sites to gain experience and familiarity with the methods
and be in a position to rationally evaluate the options when faced with a choice between
equipment-based and labour-based methods.
4. OBJECTIVES, OUTPUTS & PERFORMANCE INDICATORS
4.1 Development Objectives
The key development concern of Lesotho is to generate employment at the rate of 14.4%
per annum over the next 10 years (1999 - 2008) in order to achieve a semblance of full
employment in the economy. While such a growth target is obviously ambitious, it is a
reflection of the anxiety and worry of policy makers at the current near stagnation of
employment growth, at about 0.9% per annum over the period 1986 - 1996 and the fact
that in 1997 the unemployed made up an estimated 35-40% of the labour force.
The development objective of the project is therefore to create employment opportunities
in the urban areas of Lesotho through the use of labour-based technology to upgrade the
much deteriorated urban roads. The creation of employment among the urban poor is
expected to address the serious problem of destitution in the urban areas and contain the
emerging concern of street children, violence and crime. By promoting a local resource-
based development process, the project aims to conserve the country’s scarce foreign
exchange resources and build indigenous capacity in planning and implementing self-
reliant development options.
The proposed project will promote the use of local resources and labour-based methods
which are known to be environmentally sustainable. Thus, this approach will support on-
going programmes that address environmental protection, including the National
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Environment Youth Corps, and the National Environment Secretariat. Additionally, a
project that employs labour-based methods and trains local people in its applications will
equally promote the maintenance culture.
4.2 Immediate Objectives and Outputs
The immediate objectives and associated outputs of the proposed project include the
following:
4.2.1 Immediate Objective 1
To create employment opportunities within poor urban settlements, starting with Maseru,
the capital city of the Kingdom of Lesotho.
Outputs
• a total of 200 full time job equivalents created within each urban settlement each year;
• incomes of the poor households in the zones of influence of the infrastructure projects
raised to above the poverty line;
4.2.2 Immediate Objective 2
To establish a labour-based unit within the Maseru City Council’s engineering
department to co-ordinate the development of infrastructure works through the
application of locally sustainable methods and making maximum use of local resources
and labour wherever factor market realities so justify.
Outputs
• labour-based unit in the engineering department of the Maseru City Council
established, functioning and fully operational;
• policy document spelling out the functions of the labour-based unit prepared, adopted
and circulated.
4.2.3 Immediate Objective 3
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To upgrade the roads and rehabilitate the “dongas” and other physical infrastructure in
selected poor settlements of the urban areas of Lesotho, starting with Maseru, using
labour-intensive methods and local resources in order to generate employment.
Outputs
• roads, gullies and other physical infrastructure rehabilitated to acceptable standards
using labour-based methods supported by light equipment;
• travel time and commuter waiting time reduced appreciably;
• incidence of environmental damage effectively controlled.
4.2.4 Immediate Objective 4
To train national technical personnel of MCC, representatives of the Lesotho Council of
NGOs, and representatives of organized urban groups, in the use of labour-based
methods for construction, rehabilitation and maintenance of urban infrastructure works.
Outputs
• technical personnel of the Maseru City Council, representatives of Lesotho Council of
NGOs and organized groups in poor urban settlements trained and capable of planning
and implementing programmes of infrastructure works by the use of labour-based
technology.
4.2.5. Immediate Objective 5
To undertake sector-specific action research by working with different urban
administrations to analyse their investment plans and policies and propose opportunities
for increasing impact on quality and quantity of employment through various means of
action, including labour-based upgrading, small contractor development, community
contracting and informal sector development.
Outputs
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• the investment plans and policies of urban administration in the country profiled in
relation to impact on employment generation;
• capacity, resource situation, as well as training and technical assistance needs of the
various urban administrations identified and documented;
• opportunities for increasing employment and income impact of public investment
programmes identified and documented;
• comprehensive preparation report completed and submitted for consideration by
various donors and governmental departments.
5. ACTIVITIES & INPUTS
The proposed project will involve the use of labour-based methods to build a number of
infrastructure projects in the urban settlements (starting initially with Maseru) and
through these build the capacity within the Maseru City Council, NGOs and poor urban
groups, in the application of labour-based technology for urban infrastructure upgrading.
As well, a component to undertake systematic data collection and analyses will be
included to provide a link to longer-term development assistance embracing other urban
areas in the country and promoting employment-intensive development strategies. Thus,
the project will embrace infrastructure construction, rehabilitation and maintenance,
capacity building through institution building and training, and action-oriented research.
Broken down by component and immediate objective, therefore, the activities and inputs
under the proposed project can be tabulated as shown below.
Table 4.1: Project Immediate Objectives, Outputs and Activities
Immediate Objectives Outputs Activities 4.2.1 Create productive employment opportunities within poor urban settlements, beginning with Maseru capital territory
4.2.1.1. at least 200 persons within each urban settlement provided with full-time employment in each year
a) identify and select roads and other infrastructure to upgrade using labour-based methods. b) set up procedure for targeting the urban poor in the zone of influence of the
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4.2.1.2. the incomes of persons employed on the project raised to levels above the nationally-defined poverty line
selected projects. c) conduct labour and wage surveys in the catchment area of selected projects. d) recruit workers from among the surplus labour in the catchment area of the selected projects. a) calculate incremental incomes for workers employed under the urban works programmes b) compare the incremental incomes of the workers to the nationally-defined poverty line from the Urban Poverty Assessment.
4.2.2. To establish a labour-based unit within the Maseru City Council’s engineering department to co-ordinate the development of infrastructure works through the application of locally sustainable methods and making maximum use of local resources and labour as required by prevailing market conditions.
4.2.2.1. A labour-based unit in the engineering department of MCC established, functioning and fully operational. 4.2.2.2. Guidelines for the operation of the new labour-based unit prepared, approved and circulated.
a) identify the capacity needs of the MCC with respect to planning and implementing labour-based technology. b) identify existing personnel to form the technical core of the new unit and requirement for additional staffing to effectively launch the unit. a) prepare guidelines for operation of new unit
4.2.3 To upgrade the roads and rehabilitate the “dongas” and other physical infrastructure in selected poor settlements of the urban areas of Lesotho, starting with Maseru, using labour-based methods and local resources in order to generate employment.
4.2.3.1 The roads, “dongas” and other physical infrastructure rehabilitated to acceptable standards using labour-based methods supported by light equipment.
a) identify road, “donga” and other urban infrastructure projects amenable to use of labour-based technology. b) carry out preparatory activities on the infrastructure projects to determine the resource requirements and costs of upgrading them by the use of labour-based methods. c) undertake construction activities on the identified infrastructure to required technical standards using labour-based methods.
4.2.4 To train national technical 4.2.4.1. Technical personnel of MCC, a) conduct training needs
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personnel of MCC, representatives of Lesotho Council of NGOs, and representatives of organized urban groups in the use of
representatives of LCN, and organized groups of settlers of poor urban settlements trained and capable of planning and implementing programmes of infrastructure works by the use of labour-based technology.
assessment study to determine level of know-how in labour-based technology and capacity constraints. b) provide hands-on training to supervisory and technical personnel of MCC’s labour-based unit, representatives of LCN, and representatives of organized poor urban groups, to have the capability to plan, implement, and supervise labour-based works. c) provide post-course guidance to staff of labour-based unit of MCC. d) sponsor fellowships for selected technical and supervisory personnel at ILO/ASIST in Harare and Nairobi. e) organize workshops for policymakers technical persons, and community leaders.
4.2.5. To undertake sector-specific action research with the aim of analysing public investment plans and policies at urban administration levels and propose opportunities for enhanced employment impact using various employment-intensive options.
4.2.5.1 Investment plans and policies of urban administrations profiled in terms of employment and poverty alleviation impact
a) identify urban areas based on national definition. b) conduct in-depth studies on various issues related to public investment, regional planning and policies and carry out data analysis. c) conduct workshops and discussion fora to present compare and validate results and conclusions.
4.2.5.2. Determine the capacities and resource situations of the urban administrations as well as their training and technical assistance needs. 4.2.5.3. Identify opportunities for enhanced employment and income and scope for application of employment-
a) capacities, resource situations, training and technical assistance needs identified. b) documents prepared on the various issues under (a) above. a) conduct analyses of employment, capacity and resource data and reach
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intensive strategies. 4.2.5.4. Prepare a comprehensive preparation report and submit to relevant government departments and donors.
conclusions on opportunities. b) prepare reports on the above and discuss as appropriate. a) synthesize all the issues arising from the sector-specific action-oriented research and implementation of direct investment component of project. b) prepare report which provides justification for use of employment-intensive strategies in urban development, identifies areas where institutional strengthening is required and spells out the strategy for implementing the programme.
5. INPUTS
The UNV will allocate funds from its Special Voluntary Fund (SVF) while the ILO is
expected to be favourably disposed to the mobilization of additional funding under its
Urban Employment Programme (UEP). It is known that a number of donors are willing
to invest resources into the ILO’s UEP and some of this can be made available to the
project under the proposed initiative. SVF funding is targeted for the fielding of project
professional personnel, equipment and material while ILO funding is targeted for training
and equipment. The infrastructure works, including payment for labour and construction
materials, are to be paid for from the allocation from the Lesotho Highlands Revenue
Fund.
Personnel:
A total of 7 UN Volunteers will be fielded. Out of these, 4 will be international UN
Specialists and 3 will be national UNVs. A total of 78 workmonths of international
volunteer input is envisaged while national volunteer input is estimated at 72
workmonths. Technical supervision of the entire project will be provided by the ILO
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which will field a number of expert missions from its Headquarters and from the ASIST
offices in Harare and Nairobi. As well, the training programme will be paid for by the
ILO, including the training workshops and fellowships and study tours to the ASIST
offices in Harare and Nairobi and any other regional location to be identified. About 6
workmonths of international consultant input, distributed over the life of the project, is
envisaged to provide guidance in the design and implementation of particular aspects of
the sector-specific action research.
Equipment and Material:
• Light equipment (vibratory roller)
• equipment for haulage of material
• hand tools
• computers
• 4-wheel drive vehicles
6. PROJECT MANAGEMENT & IMPLEMENTATION
6.1 Institutional Framework
Overall responsibility for implementation of the proposed project will rest with the
Maseru City Council. The project will be administered by the regular MCC engineering
department’s administrative machinery. The City Engineer will manage the project and
ensure that its overall direction is consistent with the department’s mandate and budget.
From the very start, the City Engineer will provide the environment for the establishment
of a unit to be responsible for the implementation of the labour-based urban upgrading
scheme. It is this unit that will form the institutional base of the UNVs and national staff
who will be assigned to the project.
The labour-based unit will be located within the civil engineering section and will report
through the existing channels to the City Engineer. The purpose of this arrangement is to
ensure the minimum amount of novelty in the channel of communication and reduce the
quantity of new information that needs to be learnt and mastered.
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6.2 Project Management at Country Level
The labour-based unit itself will be headed by the UNV Labour-based Engineer who will
report for all administrative matters to the City Engineer. Technical management of the
project will be assigned to a larger advisory body which will draw membership as
described under the section on co-ordination. The proposed Urban Development
Technical Steering Committee will have monitoring, advisory and general oversight
responsibility for the implementation of the technical aspects of the project. The
committee will examine all issues dealing with procurement of material, sub-contracting,
recruitment of professional personnel and counterparts. The Maseru City Council will
chair the committee.
The ILO’s POLDEV, through its EIP and UEP, will liaise with the Urban Development
programme at UNV headquarters to execute the aspects of the project involving the
fielding of professional personnel of the project, notably the UNVs. In this regard, the
technical clearance of the UNVs will be performed by the ILO. As well, the ILO will
determine the need for continued volunteer input and other project inputs directly related
to the implementation of the capacity building aspects and ensuring that the procedures
are consistent with international standards. UNV headquarters will continue to be
responsible for management of the volunteer from the perspective of administering the
UNV Conditions of Service.
7. PROJECT BENEFITS
The project will produce two categories of benefits. The first category includes the direct
and immediate benefits which result from the project activities and the investments into
road construction, rehabilitation, and maintenance. These benefits are thought to be the
direct results of the shift from equipment-based methods to labour-based methods. The
most notable benefits in this category are the enlarged employment generation in the poor
settlements in the urban areas where unemployment is the norm and poverty is acute. As
well, increased incomes will accrue to the poor residents of these settlements as a result
of their employment on the labour-intensive construction activities and this will
contribute to the stimulation of the economy through its multiplier effect. The bulk of the
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beneficiaries in this case will be women who are more numerous in the population, and
are also the most severely affected by the unemployment problem in the country.
The project activities will also produce the immediate improvement in access to different
parts of the city and its environs and this will reduce travel time and the hardship that
local people experience in commuting between city locales.This is expected to have an
immediate impact on the pace of economic activity in the city and, invariably, the
country as a whole in view of the reliance of the rest of the country on Maseru.
The project will produce more longer-term benefits. The most notable of these are the
improvements in the condition of the urban environment, the institutionalization of the
culture of maintenance of infrastructure, and the promotion of a self-reliant development
strategy for urban upgrading.
Although the country has adopted labour-based technology for rural infrastructure works,
the urban areas have been untouched. This has meant that a large proportion of
infrastructure investment has been unaffected by the methods and may have been
allocated in ways that did not maximize the objectives of economic rationality, including
employment generation for a resource-poor country like Lesotho. In this regard, the
introduction of the methods to the urban areas will have a significant impact on the
economy as a whole.
Some attempt to quantify the above benefits in terms of employment creation yields
impressive results. As indicated in section 3.3 above, the Maseru City Council received
the sum of M5,126,762 for the period 1997-1999, for its road projects under the Lesotho
Highlands Development Revenue Fund scheme. These activities are intended for
employment creation through the upgrading of urban infrastructure. Separately, the
Council gave indication that its annual budget under this labour-intensive road upgrading
scheme is actually M4 million.
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If it is assumed that the approval of the proposed project would encourage the Fund to
allocate more money to the Council to spend on this scheme, it is reasonable to expect
that about M1,760,000 of this will go into wage payments. Data generated by the Labour
Construction Unit suggests that 44% of the total construction costs in labour-based
construction is accounted for by labour component. At the minimum wage rate (1995) of
M17/day, this sum can generate about 103,500 workdays of employment. In terms of
equivalent full-time jobs, this figure translates to some 500 jobs on the assumption that
there are approximately 200 working days per year.
The estimated employment results can be influenced by two things: the level of wage
rates and the number of days worked per year. The labour wage rates in Lesotho have
historically not reflected the extent of labour surplus and capital scarcity in the economy.
In 1995, an ILO study established that the dollar equivalent of the daily wage rate was
US$4.9. This is a strange situation for an economy where alternative job opportunities
are scarce, official salaries in the civil service and private sector are very low, and the
extent of unemployment is very high. Unless the procedure for wage fixing has been
flawed, this may reflect a cultural lack of desperation for paid employment even in the
face of abject poverty. One indication of the inappropriateness of the current approach on
some labour-intensive road schemes to apply the minimum wage in setting labour wages
is the fact some of these schemes resort to labour rotation in order to achieve some
coverage of the available labour force. By this arrangement, the schemes employ a group
of workers for one month, lay them off at the end of the month and then engage a fresh
set of workers. The idea that this is “a reasonable distribution of the wage benefits” is
clearly debatable. Where the objective is employment creation, a more effective targeting
strategy can be evolved with the aim being to provide more jobs to more of the people
that need them most for as long as is reasonable to satisfy the rational need for
employment and income.
The proposed project will examine this situation as a major exploratory aspect of the
project implementation in order to ensure that cost effectiveness is maximized while
pursuing the central objective of employment creation. In this respect, the project will
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introduce mechanisms to achieve a wider coverage of the very poor households in the
poor urban settlements. Depending on the findings of the exploratory surveys, these
mechanisms may comprise a manipulation of wage rates, working hours, strenuousness
of tasks, etc, all designed to ensure that only those who need the jobs on the construction
sites actually do get them.
From international experience, a level of wage rate consistent with Lesotho’s current
socio-economic profile will be much lower than M17 per day. Although recent currency
depreciation has made labour-based technology even more competitive in the economy
by lowering daily wage rates to about US$2.8, domestic price trends suggest that much
lower wage rates can be tolerated. This much lower wage rate will lead to higher
employment creation on labour-based road construction. Importantly, the employment
benefits in this scenario will accrue to the “ultra poor” who would otherwise be unable to
find jobs within a reasonable length of time.
But even if the wage rates do not fall and employment creation remains at the levels
estimated, the results are still impressive. On the basis of the 1979 Land Act (section
19(2)) and Gazette no.2 of 1987, there are 14 “urban areas” in Lesotho, namely Maseru,
Butha-Buthe, Hlotse(Leribe), Mafeteng, Moyeni, Qacha’s Nek, Teyateyaneng, Thaba
Tseka, Mapoteng, Mokhotlong, Morija, Peka, and Roma. If all these “urban areas”
receive the modest allocation of M4 million each to address urban infrastructure
problems by the use of labour-based methods, we can expect an annual employment
generation level of 500 each at the minimum, which gives a national employment
creation of 7,000 each year. According to official statistics, 20% of the population of 1.9
million, that is approximately 380,000 persons, reside in the urban areas, out of whom
about 28%, or 106,000 persons, are classified “poor”. The employment benefits of this
project will, therefore, affect at least 6% of the very poor, and most probably more if
appropriate targeting is implemented.
8. RISKS
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The normal risks associated with the promotion of labour-based technology include the
possibility of exchange rate appreciation, unavailability of labour, changes in the
structure of employment in the economy, and the lack of indigenous technical and
administrative manpower to be trained and put in a position to sustain the programme at
the end of the technical assistance. The appreciation of the domestic currency will
cheapen imports including heavy equipment and may have a positive effect on the cost
of construction using equipment-based methods.
However, the possibility that such a significant appreciation of the domestic currency can
take place and make externally-sourced resources more competitive than local resources
is very remote. The exchange rate has been deteriorating at least over the past 20 years.
In the last six months, the depreciation in the value of the currency has been accelerating
at an even faster pace, leading to strong speculations about a possible recession in the
South African economy to which the Lesotho economy is linked.
The risk of acute labour shortage is equally remote. Lesotho currently suffers from a high
rate of unemployment. In addition, it is estimated that the rate of underemployment may
be very high. In the past, the unemployment and underemployment have been relieved
through labour migration to South Africa where the majority are absorbed in the mines.
But in recent times, employment in the mines has fallen off considerably while the
general contraction of the South African labour market has meant that the Basotho must
look elsewhere for jobs.
For these reasons, and in the light of the continuing stagnation of the domestic economy,
the prospect of labour shortage in Lesotho is far-fetched. It is not also foreseen that the
structure of employment in the country will change in any significant way over the next
several years. Even the Lesotho Highlands Development Project which is easily the
biggest civil engineering project on the continent has not changed the domestic
employment profile in view of its degree of sophistication which has largely excluded the
indigenous manpower.
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The only real risk the proposed project is likely to face is that of lack of indigenous
technical and administrative manpower to whom the know-how can be transferred and on
whom can be entrusted the task of ensuring the sustainability of the institutions built
under this assistance. Technical assistance projects in Lesotho have traditionally faced
the problem of an inadequate supply of indigenous manpower from which to draw to
provide counterpart personnel to the external team. The design of the present project is
taking this into account and it is hoped that the high proportion of national UNVs
proposed will go some way to minimize the difficulty posed by this situation.
The activities of the national volunteers will have some demonstration effect which will
hopefully encourage other local professionals to devote a good part of their professional
practice to contributing to national development. The national volunteers may also be
willing at the end of their UNV assignment to remain in the service of the MCC and
procedures can be introduced to facilitate such a transition.
9. MONITORING & REPORTING
9.1 Monitoring
The project will be monitored over its lifespan by means of a number of mechanisms
including the oversight activities of the Urban Development Technical Steering
Committee; Tripartite Reviews embracing the government, the UNV/ILO, and the
project;
and regular monitoring visits of the UNV Programme Officer. In addition, the design will
provide for periodic monitoring visits by staff of ILO headquarters in Geneva and ASIST
in Harare and Nairobi. An Employment-Intensive Works Specialist from the ILO
SAMAT in Harare as well as the staff of the ILO Area Office in Pretoria will also look in
on the project from time to time.
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The Urban Development Technical Steering Committee will meet once a month to
review the progress of the project implementation, examine proposals for future
activities, and provide guidelines for the work of the project as necessary. These monthly
meetings will equally review the minutes and deliberations of the weekly management
meetings held at the project level under the chairmanship of the City Engineer and at
which the UNV Project Engineer presents details of project activities and problems over
the past week.
Tripartite Reviews will be scheduled at major turning points in the project cycle. It will
be possible to determine these points once the project has gone into full implementation.
However, it can be tentatively scheduled to hold the first TPR 12 months after the start of
the project.
9.2. Reporting
In view of the capacity building element of the project, but also because of the need to
provide for effective monitoring of the progress, reporting will be a central requirement
under the technical assistance. The following major reports will be required to be
prepared under the project:
Table 9.1: Reporting Schedule and Responsibility Type of Report Responsibility Timing
Inception Project Management 1998
Labour Availability Survey Project Management 1998/1999
Wage Survey Project Management 1998/1999
Training Needs Assessment Project Management 1998
Project Document UNV/ILO/GoL 1998
Project Performance Evaluation Project/GoL 1999/2000
Progress Project Management 1998/1999/2000
Tripartite Review GoL/UNV/ILO/Project 1999/2000
Mid-term Evaluation GoL/UNV/ILO/Project 1999
Budget Revisions Project Management 1998/1999/2000
Analyses of Investment Plans and Project Management 1999
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Policies of Urban Administrations
Opportunities for enhanced
employment impact of infrastructure
investments and scope for employment-
intensive strategies
Project Management 1999
Main Preparation Report for Expanded
Development Assistance.
Project Management 1999/2000
Final Evaluation GoL/UNV/ILO/Project 2000
10. EVALUATION
The project will be subject to evaluations in accordance with the policies and procedures
of the concerned parties. A mid-term evaluation will be conducted at the end of 12
months to assess the interim impact of the project. A final evaluation will be conducted
within one year of the completion of the project.
11. BUDGET Project No.: Project Title (including budget & fund code):
B.L. BUDGET ITEM w/m TOTAL w/m 1998 w/m 1999 w/m 2000 10.00 Project Personnel 11.00 Experts ILO 11.51 Consultants 6.0 30,000 1.0 5,000 3.0 15,000 2.0 10,000 11.99 Subtotal 6.0 30,000 1.0 5,000 3.0 15,000 2.0 10,000 13.00 Admin. Support Personnel UNV 13.01 Secretary 24.0 11,000 2.0 1,000 12.0 5,500 10.0 4,500 13.02 Driver 24.0 15,000 2.0 1,250 12.0 7,500 10.0 6,25013.99 Subtotal 48.0 26,000 4.0 2,250 24.0 13,000 20.0 10,750 14.00 UN Volunteers UNV 14.01 UNV Labour-based Engineer 24.0 57,000 2.0 5,500 12.0 32,000 10.0 19,50014.02 UNV Development Economist 24.0 57,000 2.0 5,500 12.0 32,000 10.0 19,50014.03 UNV Civil Works Engineer (Training) 18.0 45,000 12.0 32,000 6.0 13,00014.04 UNV Participatory Dev. Specialist 12.0 32,000 12.0 32,000 14.05 NUNV Participatory Dev. Specialist 24.0 14,400 12.0 7,200 12.0 7,20014.06 NUNV Information Officer 24.0 14,400 12.0 7,200 12.0 7,20014.07 NUNV Socioeconomist 24.0 14,400 12.0 7,200 12.0 7,20014.99 Subtotal 150 234,200 2.0 11,000 72 149,600 62 73,600 15.00 Travel Costs UNV 15.01 Duty Travel 25,000 1,500 16,000 7,50015.99 Subtotal 25,000 1,500 16,000 7,500 16.00 Mission Costs UNV/ILO 16.01 Mission Costs 30,000 5,000 12,500 12,50016.99 Subtotal 30,000 5,000 12,500 12,500 19.00 Component Total 345,200 24,750 206,100 114,350
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30.00 Training ILO 33.00 In-Service Training 33.01 In-Service Training 40,000 25,000 15,00033.99 Subtotal 40,000 25,000 15,000 39 Component Total 40,000 25,000 15,000
40.00 Equipment & Supplies 45.00 Local Procurement ILO 45.01 Computers & printers 15,000 15,000 45.99 Subtotal 15,000 15,000 47.00 International Procurement ILO 47.01 Non-expendable equipment 60,000 40,000 20,00047.99 Subtotal 60,000 40,000 20,00049.00 Component Total 75,000 55,000 20,000 50.00 Miscellaneous ILO 51.00 Miscellaneous 51.01 Operational & Maintenance 20,000 2,000 9,000 9,000 51.99 Subtotal 20,000 2,000 9,000 9,000 52.00 Reporting Costs UNV/ILO 52.01 Reporting Costs 10,000 2,000 3,000 5,00052.99 Subtotal 10,000 2,000 3,000 5,000 53.00 Sundry UNV/ILO 53.01 Sundries 10,000 1,000 4,000 5,00053.99 Subtotal 10,000 1,000 4,000 5,00059.00 Component Total 40,000 5,000 16,000 19,000 99.00 Project Total 500,200 84,750 267,100 148,350
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