Excerpts from a report on DAPP in Mozambique and Zimbabwe by the EEC (1986.a dossier on Tvind, Planet Aid and IICD

Excerpts from a report on DAPP in Mozambique and Zimbabwe by the EEC (1986)

The EEC stopped funding DAPP in 1987

39.      In spite of the length of the present report we feel it would be useful, at the risk of repeating ourselves, to summarize some aspect that should be stressed from the evaluation undertaken in both countries:

a)     From what we were able to study and specially to observe and analyse in Brussels, Denmark, Mozambique and Zimbabwe, some characteristics of DAPP stand out and should be borne in mind.

It is an important NGO with enormous material and financial resources, a great capacity for mobilizing and organizing people who, in Denmark and for the most diverse motivations, want to give a helping hand to the Third World.

With a theoretical approach to the issue of development which is poorly elaborated and even simplistic, they are however practical and pragmatic: it is necessary to do things in the Third World, therefore their stress on the construction of buildings; to give an example, to show what it is possible to do, to achieve.

The DAPP volunteers are disciplined and organized, stoical, obstinate and hard-working independently of whether they are or not adequately qualified (and they are generally not). They are trained in Denmark and then sent to the Third World countries according to the principle that anyone can do what one wants if one really wishes to do it. It is an interesting approach of giving self-confidence to the young and not so young with problems of social integration in Denmark but, in terms of development, of achievement and implementation of projects in the Third World, this process is, at least, of doubtful efficiency.

Not to give up, do and then discuss, count on your own forces (with the exception of funding from several organizations and agencies) these are some of the basic principles of the volunteers of this NGO.

b)      On arrival in the Third World countries the DAPP volunteers live in a reality that is foreign to them, in modest conditions, they receive low salaries, have a very heavy timetable, very little free time and they are relatively isolated from the, realities that surround them.

Whether or not they have specific qualifications or professional training, they assume the tasks of management and organization.  And.....

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......undertaken in the area where they are being implemented. This autonomy and "difference" are even reinforced by the very scale of the projects implemented by DAPP:   in the Green Zone, there is a predomination of cooperatives and family farms of small size (1 to 5 ha); however the Center of Production at the Caminho de Vitoria has a "machamba" of 33 ha.    At the Umfurudzi Resettlement Scheme there are mainly small family properties (12 ha) but Ponesai Vanhu has a total of 160 ha of land which it wishes to enlarge even more.

This characteristic of the projects, together with the fact that they are implemented by a foreign NGO which organizes and manages the projects as it wishes, makes them even more "foreign" in the eyes of the nationals.

Also, the very manner in which some projects were implemented, without undertaking a preliminary study of the market or of the viability, stresses the "experimental" characteristic of the project, that means that DAPP has access to material and financial resources and "experiments" its own concepts instead of responding to the immediate and already identified needs of the local population. As an example, we are certain that the textile workshops at Machava and Ponesai Vanhu would have much more viability and impact if they were transformed into a cooperative of nationals who, beside manufacturing, would also have the task of aiding and/or promoting local initiatives of the same type (support to Sewing Cooperatives) supplying technical assistance, support to marketing etc.

d)      Another aspect that is common to the DAPP action in both countries is the absence of clearly defined interlocutors and of a legal framework.

We know that this issue is not easy: the lack of local tradition concerning associative activities makes it difficult to define a target group and, very often, makes it necessary that the Government Authorities, whether at the central or local level , take on the role of interlocutors. However, with respect to DAPP the problem which is partly due to the diversified character of the projects, is that there is no interlocutor either at the central level, local level or at the level of the local beneficiaries. The several local and central authorities are contacted for the solution of individual problems whereas the local population is requested to participate as manpower.

........who follows the projects at all stages

We could not find, in both countries, and at several levels, a single national who was aware of the global situation of the projects, costs, input, co-funders, future plans, viability of the projects.

This fact is made worse by the absence of a legal framework for the projects. They are not cooperatives, nor are they owned by the state at the central or local level , they are not of private ownership.

We feel that this fundamental issue worries the authorities and the management of DAPP in both countries according to what we were able to perceive from the contacts established during the mission. The very scale of the projects and the high level of national participation in these (buildings, land, funds) makes the solution of this issue urgent and this will evidently have implications in the solution of other problems such as the official recognition of the teaching, legalization of the workshops, defining of roles and responsibilities of the nationals and of DAPP as well as the nature and length of stay of the NGOs volunteers in the projects.

The participation and involvement of the local beneficiaries in the projects is in some way linked with this issue. Until now they were mainly the manpower. The dominant relationship between the DAPP and the nationals is of the employer/employee type. The nationals are not partners and even less, owners.

At the same time the presence of the DAPP risks being long standing. Nobody knows when their presence will end nor when the projects will be handed to the nationals.

We are dealing, in our opinion, with a type of organization and running of projects which reproduce systems of dependence which have very little to do with the process of autonomous and self-centered development, in which foreign aid (technical, material or human) plays a merely secondary and subordinate role.

Also, the General Conditions of EEC - NGO cofinancing are explicit as to the need of the participation of nationals at all levels of the project as well as to the issue of ownership (Cp. VI 3: All equipment, materials and buildings purchased with EEC contribution shall remain the property of the local partner of the NGO who shall not be a private individual (s)

e)                 All those who have experience in international, governmental and non-governmental cooperation know that the risk of making mistakes and going wrong will be lower if there is involvement, participation and responsibility of nationals in all phases of the projects.

Discouragement and frustration of expectations should be avoided. Projects should be useful and should not become an additional charge to authorities and people (at the central, local or beneficiary level) when the NGO has all instruments in hand to carry out useful and efficient projects for the development of the country.

DAPP is a big NGO with vast human and financial resources and with 10 years experience in cooperation for development in Africa. It has taken responsibilities and commitments in relation to all parties involved in relation to those who, in Denmark, give them support and collaboration; in relation to the EEC and other co-funders; in relation to the authorities of the countries where their projects are located and last but not least, in relation to the nationals who are trained or work in the projects.

The projects of DAPP in Mozambique and in Zimbabwe are ruled by the same concepts and management. In Mozambique, the quantitive results are positive (mainly due to the national contribution) but in Zimbabwe not that much. But in both countries there are factors which are clearly identified throughout this report, which jeopardize the viability and impact of these projects not only at the quantitative but mainly at the qualitative level. Taking advantage of the experience gained, we feel that it is indispensable, at least as regards the projects in Mozambique and Zimbabwe, that DAPP reviews thoroughly its approach applied to activities in developing countries.

This assessment of the past and looking at the future should be undertaken together with the nationals and possibly with DAPPs co-funders. After that there should be a re-definition of working methods of objectives and means to be applied as well as of the scale of the projects.

All this should be undertaken with a view of guaranteeing that the ongoing projects, once they are re-defined, will be implemented and consolidated so as to be an effective contribution to those involved and in consequence, for the development of their own countries.

After the rainy season other crops are possible wheat, potatoes, cabbges, onions, etc.

In what concerns the water supply the area is relatively adequate. There are natural water springs and even a dam which makes it possible to have water all year round. There are also subterranean water beds which are however not being put to use.

DAPP IN ZIMBABWE

The cooperation of DAPP with Zimbabwe comes from 1977/78 through the support given to Zimbabwe refugees in Mozambique. Later, at the end of 1979, during a first visit to Zimbabwe DAPP tried to identify new areas of cooperation with the new country, the independence of which was approaching. From the beginning there was the idea of a project for training/production for the unemployed youths in the rural areas, however, the urgency in resettling the thousands of Zimbabweans returned from Mozambique with the urgent needs in terms of housing, medical assistance and education led DAPP to become involved in the construction of the school at Chindunduma, for children returning from the refuges in Mozambique.

Chindundumo was started in 1980 and was finished in 1982 : 10.000 sq.m. of buildings were built to shelter 1600 pupils but at some stages there were temporarily up to 3000 children. Many DAPP brigades were involved. They mobilized and organized the population from Umfurudzi Resettlement Scheme. The school is owned by the Ministry of Education and the construction was co-funded by DAPP, DANIDA, SIDA, NORAD, OXFAM, BROT FUR DIE WELT, Freedom from Hunger and VARA. It was arduous work, there were difficulties in obtaining provisions of food as well as of building materials. Almost two thousand Nordics, organized by DAPP, worked in the construction of the school during periods of up to 6 months. At present the school gives primary classes ( 1st to 7th grade) for. about 400 .pupils and is legally recognized. So, it is now used up to about 25% of its capacity.

In 1980 was also begun the District Technical Center of Ponesai Vahnu at the Kemphaven Farm one of the 17 farms of the Umfurudzi Resettlement Scheme. (This was the first project to be co-financed by the EEC) . In 1982 the building of 3 clinics was started with funds from SIDA and 4 primary Schools funded by the Government. These buildings are scattered through several areas of the country, with incidence in the N/NE area. Up to the end of 1984, 4 more clinics were built, 3 of which were funded by SIDA and 1 by the government. Besides the organization of the work, DAPP was in charge of mobilizating the local population to aid in the construction. In this way, the building was cheaper, hence the incidence of this type of DAPP projects implemented in accordance with the directions and priorities of the Zimbabwean Government

In the meantime, new projects were implemented in Ponesai Vanhu and since 1984 DAPP has concentrated its activity around this centre. The construction of the many buildings was always undertaken with the support of the population and of the trainees. However, after some time there was a growing lack of interest of the population in participating and at the same time a greater resistance on the part of the. trainees in working at these tasks. .

Furthermore, the flow of Nordics to work on the construction also decreased and since 1985 the building work has been undertaken mainly by hired workers although in some stages there has been. participation. of the trainees and the DAPP volunteers. It was claimed that this would ensure a better quality in the construction and "free" the trainees so that they could concentrate on their studies.

From our contacts with the official authorities and the nationals involved in the projects in Mozambique and Zimbabwe we were able to perceive the interest and expectations as to the results of this mission which was undertaken at the initiative of the EEC/NGO Service. In the same way, also the DAPP members in charge of the projects stated that the mission had been useful and stimulating in terms of definition of future activities of DAPP in these countries even more so, because, in both countries, we transmitted to them the preliminary results of the evaluation undertaken. We therefore feel that it would be of interest, should the NGO and the EEC agree that this report should be made known to the national authorities at the local and central level, the co-funding agencies and the nationals who work and train at the projects and naturally to the DAPP volunteers at different levels, who have developed their activity in the projects of Machava and Ponesai Vanhu.