In the context of Ethiopia, many citizens live under harsh environmental conditions and in geographically peripheral areas that are less developed than the rest of the country. Women, children, orphans, the elderly, and the disabled are expected to be relatively vulnerable segments of the society in terms of having limited access to resources and social services. A number of policy measures and programs were specifically designed to address the problems facing these marginalized sections of society.
17.2.4.1 Agro-ecologically Disadvantaged Areas
Moisture Stress Areas. Despite some geographical differences, shortages and irregularities of rainfall have been some of the most critical challenges to the agricultural sector. This variability causes unpredictable changes in harvest yields, has limited economic growth, and causes many to depend on food aid for survival. Despite yield gaps between irrigated and non-irrigated land approaching 40 % between 1997 and 2000, the extension of irrigation use has been limited to approximately 2.5 % of the country’s potential coverage (MoFED
2010). In order to enhance the available water supply, the government adopted a strategy of facilitating the construction of micro- and medium-scale irrigation schemes, spring diversions, deep wells, and the construction of multi-purpose large-scale dams in both adequate rainfall and moisture stress areas (Ellis and Tassew
2005).
The government envisaged ensuring food security by reducing vulnerability to rainfall shortages using water harvesting technologies such as the construction of reservoirs, creating off-farm income generating opportunities, and the voluntary resettlement of people to more productive and less-populated areas within their regional states (FDRE
2002).
Pastoral Areas: Most of the residents of the dry lowland areas of the regional states of Afar, Somali, SNNPR, Oromiya, and some parts of Gambella depend on traditional livestock husbandry for their livelihoods. These pastoralists regularly move with their livestock in search of grazing areas and water because they live in environmentally hostile areas affected by social conflict and recurrent drought. Pastoralists typically benefit less than other citizens from development efforts because they are geographically isolated from infrastructure and facilities, and are poorly connected to urban markets. Poverty in pastoralist areas is generally worse than elsewhere in the country in terms of conventional human development indicators (MoFED
2006).
The government has demonstrated its political will to address the socio-economic problems of pastoralist areas. The social sector development programs tailored to pastoralists such as informal community-based schools, mobile outreach health care services, and improved veterinary services have been expanded. The government has established institutions at both the federal and regional levels in predominantly pastoralist states and other areas that host pastoralist populations.
A combination of strategies has been forwarded to address livelihood problems in pastoralist areas. These strategies involve activities such as providing animal health facilities to enhance the productivity and quality of livestock, breed improvement, the construction of surface water projects to improve water supplies, and improving road networks and other transportation infrastructure to create marketing networks. The encouragement of voluntary resettlement, sedentary farming along river basins, large-scale ranching, and similar activities have all been included in the FSP to redress the vulnerability of pastoralists (FDRE
2002).
A 15-year Pastoralist Community Development Project (PCDP) was launched in 2003. Local communities and the federal government contribute 14 % of the project budget, and the remaining 86 % has been financed by donors. Largely community-driven, the first phase of the PCDP from 2003 to 2008 was implemented in 30 pastoralist woredas in the regional states of Somali, Afar, Oromiya, and SNNPR. These efforts focused on community-level micro-projects to improve livelihoods. The second project phase (PCDP II), which was launched in March 2008 and operates until 2013, intends to enable pastoralists to better withstand external shocks and to improve their livelihoods. The PCDP II empowers local communities by involving them in decision making on developmental issues, improves pastoralist early warning systems, and provides disaster mitigation. Micro-projects focus largely on water supply improvement, expanding micro-scale irrigation, providing health care and educational services, rangeland management efforts, and the creation of income generating schemes through the formation of savings and credit associations.
During the GTP period the main focus in pastoralist areas will be on water resource development both for livestock and human use through a scaling up strategy that makes use of experiences gained in other parts of the country. The GTP will also include similar efforts to those of other programs such as voluntary resettlement, the expansion of animal and human health care and educational services, improvements to the livestock marketing system including the integration of pastoralists and domestic investors, and the development of pasture land irrigation schemes.
People at the Periphery: The regional states of Afar, Benishangul-Gumuz, Gambella, and Somali are designated as disadvantaged regions because of the prevalence of pastoralist livelihoods and their location at the geographical periphery of the country. Considering the fact that these areas are relatively marginalized compared to the rest of the country, the federal government has taken affirmative measures that are appropriate for the special circumstance of these areas. The federal government uses a budget subsidy allocation formula that is adjusted on an annual basis. For instance, in the 2007 fiscal year the size of population, the level of development, and revenue collection efforts in each region were given weights of 65, 25, and 10 % respectively in corresponding funding (FDRE
2007). The federal government also supports these regions through capacity building and advisory services on policy decisions, and on the planning and implementation of programs and projects. The various investment proclamations enacted since 1996 provide special privileges to those who are willing to invest in labor intensive agricultural and related sectors in these parts of the country. This measure provides opportunities for unskilled rural residents in these areas, improves market access for their produce, and the expansion of infrastructure and facilities. The ultimate goal of these interventions is to reduce economic disparity by mitigating the geographic and environmental factors that contribute to marginality.
17.2.4.2 Policies for Vulnerable Social Groups
Vulnerable or marginalized groups often differ from one country to another due to unique historical, economic, political, and cultural situations. In most developing countries women, children, the elderly, and the disabled suffer disproportionately from hard work, disadvantages with respect to property rights, income inequality, limited access to education and health care services, limited political participation, and difficulties in other spheres of life. Because of cultural barriers and a widespread lack of knowledge of legal rights the situation is often more severe in rural communities.
Ethiopia is a signatory nation of most UN and African conventions on vulnerable social groups and is expected to incorporate these obligations into its domestic laws and regulations. The 1995 constitution, the 2002 revised family law, the National Women Policy, and the National Youth Policy are examples of legislative efforts that were designed in conformity with the major principles of international conventions as they apply to the country’s specific circumstances. The various development programs discussed in this paper (SDPRP, PASDEP, GTP, PSNP, HSDP, etc.) also recognize the special circumstances of these vulnerable social groups. In addition to constitutional provisions that affirm the equality of all persons and the need to protect their rights from any unlawful circumstances, the federal government has attempted to mainstream the concerns of the different social groups into the different policies and programs.
Gender-Related Policies: Women are more likely to suffer from physical abuse, including rape and early marriage, in addition to being subject to hard work and problems associated with access to resources and property rights in many parts of the country. One persistent cultural problem imposed upon Ethiopian women in rural areas is forced marriage. Mainstreaming gender issues into socio-economic development plans has been the main strategy to address the concerns of women as a social group. Institutions have been put in place on the federal, sector, and local administrative (
kebele) levels with different organizational structures to deal with gender issues. The Revised Family Code which begun to be implemented in 2000, protects women from forced marriages and imposed a lower age limit for marriage at 18 years of age in order to reduce health and psychological problems associated with early marriage. Article 35 of the constitution also included a clause specifically to remedy the cultural legacy of discrimination and inequality against women (FDRE
1995). This article stipulates the right of women to own property, including land, and to participate equally in policy decisions affecting the public and their personal well-being.
The National Policy for Women was launched in 1993 to combat all forms of discrimination, and to improve access and the involvement of women in all policy interventions and the activities of development institutions, programs, projects, and financial assistance of any sort (Demessie and Yitbark
2008). A concrete attempt to realize the goals of the National Policy for Women was the National Action Plan on Gender Equality, which was launched in 2001 and operated until 2006, and focused on poverty reduction, economic empowerment (including improving access to land), education, reproductive rights, women’s health, the elimination of violence against females, and institutional mechanisms for the advancement of women in decision making at all levels. The National Action Plan on Gender Equality was not integrated with the poverty reduction program SDPRP at the time (Demessie and Yitbark
2008).
Many notable women-specific programs have been initiatives of the Ethiopian Women Development Fund and the Women’s Development Initiatives Project. These programs helped women by creating gender specific income generating schemes. The Ethiopian Rehabilitation and Development Fund also invested in small-scale projects that had gender targets of a minimum of 50 % of women as beneficiaries during the late 1990s (MoFED
2002).
The massive land title registration program has enabled land ownership by female-headed households. This was a very tangible step to reduce marginality among women in terms of access to resources in rural areas. Access to land title certificates is no longer biased against the poor or females because of adequate planning, public participation, implementation, and dispute settlement mechanisms (Deininger et al.
2008).
Workneh (
2008) argues that cultural and societal norms in rural areas often create considerable negative impacts on the nutritional status of women and children, making them vulnerable social groups. Attempts have been made in the various phases of the PSNP to consider the participation of women in public works and asset development efforts (MoFED
2010). Micro-finance institutions (MFIs) also support women through involvement in income generating activities.
The Health Sector Development Program and subsequent programs targeted rural households and particularly women through sanitation and disease prevention efforts for waterborne diseases, and services for reproductive health, family planning, and HIV/AIDS awareness. These efforts aimed to reduce maternal, infant, and child mortality, and the overall vulnerability of women and children. The federal government has also established affirmative action measures to improve women’s access to education (Getachew
2008). All three phases of the Education Sector Development Program imposed targets to increase the enrollment percentage of female students. In the first phase of the program the target was an increase in female enrollment from 38 to 45 % between 1997 and 2001 (Amdissa
2008).
The PASDEP also envisaged addressing gender inequality through a holistic approach. More specifically the plan tried to narrow gender disparity in education and health by improving women’s health through an extension program operated by female health workers. In addition, it initiated the necessary legislative and institutional reforms to protect the rights of women. Reducing the domestic work burden of women by improving access to potable water was also another major emphasis area (MoFED
2006).
The GTP intends to ensure women’s equal access to resources by building on previous experiences with land ownership, access to credit, the protection and promotion of reproductive rights, and abolishing harmful traditional cultural practices. The strategies to be pursued by this program include ensuring full participation in extension activities, promoting saving and credit services, and creating income generating activities. The GTP will also engage owners of very small land parcels, landless youth, and women in nonagricultural income generating activities, provide business management trainings and credit, and facilitate market access. The GTP also intends to ensure equitable access to quality primary education in order to narrow gender disparity.
Children and Orphans: Article 36 of the constitution stipulates that every child has the right to life, to the care of parents or legal guardians, and to be free from exploitative or harmful practices (FDRE
1995). The government also accords special protection to orphans by promoting opportunities for their adoption and education, and for the advancement of their welfare. The third Education Sector Program explicitly creates opportunities for disadvantaged children with special needs, or from pastoralist, semi-agricultural, and geographically isolated areas by building formal schools, alternative education centers, and building schools at the village level (Amdissa
2008).
The GTP will offer care and support to children, particularly orphans and other vulnerable children. The education strategy for children with special needs will be widely implemented along with adult literacy efforts to address socio-economic challenges within the context of communities. Ethiopia has a long cultural heritage of supporting vulnerable groups through extended family. Orphaned children are traditionally adopted by extended family members.
Disabilities: Physically handicapped or disabled people face diverse forms of discrimination. According to Handicap International/CBM (
2006) the disabled often face cultural, environmental, and institutional discrimination. As a result of cultural attitudes the disabled are often feared or faced with societal biases. Physical inaccessibility and harsh working conditions, particularly in rural areas, as well as customary laws, prevent the disabled from participation in many economic and social activities.
In Ethiopia the constitution endows disabled people with equal rights and opportunities as the rest of society, except in the case of certain physical activities for which they may not be suited. Disability issues have not been explicitly dealt with in many development policies and programs (Seleshi
2010). In the PASDEP, disability was treated only in the context of gender, where it was included in the discussion on the participation of disabled women in the development process. In the GTP there is a policy direction that encourages participation of the disabled in political, economic, and social activities.