Assessment of Development Results: Maldives

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Title Assessment of Development Results: Maldives
Atlas Project Number:
Evaluation Plan: 2009-2013, Independent Evaluation Office
Evaluation Type: ADR
Status:Completed
Completion Date:05/2010
Planned End Date: 03/2010
Management Response:Yes
Corporate Outcomes (UNDP Strategic Plan 2008-20013)
Evaluation Budget(US $): --
Joint Programme:No
Mandatory Evaluation:No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Team Leader
GEF Evaluation:No
Key Stakeholders:
Countries: MALDIVES
Lessons
Findings
Recommendations
1 Evaluation recommendation 1. Strategic Level. UNDP should continue to provide support to the small UN country Team to strive towards a higher level of joint planning, implementation and monitoring.
2 Evaluation recommendation 2. Strategic Level. UNDP must adopt a more strategic approach in its country programme ? an approach which has a sharp focus on a narrower range of themes while addressing the main barriers of weak policy and weak capacity.
3 Evaluation recommendation 3. Strategic Level. The focus of the UNDP country programme should continue to be upstream, at the central and (eventually) provincial level.
4 Evaluation recommendation 4. Country Programme. UNDP should reduce its effort in the poverty alleviation thematic area at the community level and concentrate instead on the policy level.
5 Evaluation recommendation 5. Country Programme. The country programme should continue to focus on governance/human rights as a flagship theme at the central level, with particular emphasis on the judiciary and parliamentary development; and it should move into provincial government support as and when the decentralization policy starts showing results.
6 Evaluation recommendation 6. Country Programme. UNDP should refocus environment work on climate and biodiversity while broadening the resource base beyond the Global Environment Facility and exploring the possibility of support from the private sector.
7 Evaluation recommendation 7. Country Programme. Pass on the coordination and initiative on disaster and risk management activities to the National Disaster Management Centre, ensuring that it is strengthened as part of programme implementation.
8 Evaluation recommendation 8. Country Programme. Develop Government capacity to manage the HIV/AIDS programme with a view to handing over the programme to the Government and giving the lead within the UNCT to UNFPA and WHO.
9 Evaluation recommendation 9. Country Programme. UNDP should adopt and support a strategic approach to gender equality.
10 Evaluation recommendation 10. Country Programme. While not necessarily taking a programme lead on youth, UNDP should facilitate UNCT action so that it, together with other relevant agencies, can support a sustained and strategic national intervention to tackle this pressing concern.
11 Evaluation recommendation 11. Project Design. Except for one-off responses to emerging needs, UNDP must ensure that right at the design stages, a project fits within the strategic framework of the Country Programme Document outcomes which in turn should fit with the UNDAF.
12 Evaluation recommendation 12. Project Design. All interventions must aim to increase local capacity (a main barrier to sustainable development) and enhance empowerment.
13 Evaluation recommendation 13. Project Design. Engage in effective performance monitoring for adaptive management and make exit strategies and sustainability plans an essential element of all projects.
1. Recommendation: Evaluation recommendation 1. Strategic Level. UNDP should continue to provide support to the small UN country Team to strive towards a higher level of joint planning, implementation and monitoring.
Management Response:

Agreed. As articulated in the UNDAF 2011-2015 and in the Maldives Country Programme Document (CPD) 2011-2015, UNDP will continue its strategic role and strong support to UN system initiatives on Delivering as One UN (DaO). While there are three ongoing Joint Programmes - in Human Rights, Gender-Based Violence and the MaldivInfo National Database - the UNDAF envisages additional Joint Programmes with UN Agencies and UNDP will support this initiative.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
1.1 Develop and implement GFATM Joint Programme. UNDP Maldives Senior Management and Programme Unit, Government Counterparts 2012/12 No Longer Applicable The GFTM operationally ended in August 2012.
1.2 Implement Joint Programmes for diversification of the economy in selected regions (UNDP, IFAD, ILO, FAO, UNIDO); for creation of opportunities for decent work and labor markets better governed (UNDP, ILO, WHO). UNDP Maldives Senior Management and Programme Unit, UN Country Team, Government Counterparts 2012/12 Completed Under the Support to Integrated Farming Project UNDP provided support to the Ministry of Fisheries and Agriculture (MoFA) in demonstrating successful livelihood pilot projects in a number of regions in the Maldives. Agencies such as IFAD have picked on the success of these pilot projects and are currently providing support to MoFA in expansion of these projects to make it commercially viable for the communities. Similarly, after completion of the Gender & Economic Empowerment Project, UNDP collaborated with three government agencies in developing the project Employment & Enterprise Development for Women and Youth, where Ministry of Economic Development is taking the lead and Ministry of Tourism Arts & Culture and MHRYS are jointly supporting the implementation of the project. The project aims to strengthen economic resilience of island communities and vulnerable groups including women and youth through strengthening opportunities for economic diversification and employment creation. The project strategy mainly involves building upon the lessons learnt from implementing the Gender and Economic Empowerment project under which ground work was laid for development of Small and Medium Enterprises (SMEs) and Private Sector engagement. The project therefore aims to strengthen the enabling environment for SMEs through strengthening the policy and legal framework
1.3 Implement programme supporting institutional capacities for low carbon development, climate change adaptation and disaster risk reduction involving all stakeholders (UNDP, UNEP, WHO, UNICEF, UNESCO, UNFPA, UNDIO). UNDP Maldives Senior Management and Programme Unit with corresponding Projects, Government Counterparts 2013/12 Overdue-Initiated UNDP remains to provide a strong support to the government in addressing environmental issues at both upstream and downstream levels. UNDP provided advice at the technical and policy levels on adaptation and mitigation issues of Climate Change related policies. There is ongoing work with the government on establishing a Climate Change Center in the Maldives, which has been well received at the highest levels of the Government. A feasibility analysis, including identifying areas of focus for the Center was completed. Currently, an Action Plan is developed to set-up the Center. UNDP's involvement in conservation through participatory approaches (particularly through the Atoll Ecosystem Conservation - AEC Project) has contributed to government decisions directly. Recognition given to conservation and sustainable resource use is much greater now, and Baa Atoll (AEC project site) has been submitted for consideration to be decalred as a UNESCO Biosphere Reserve. The guideline on waste transportation by land and sea is expected to complement former efforts of UNDP which produced the waste management policy and drafted the waste management regulation. Further interventions are now required to build capacities of the rather recently established utility companies and the Waste Management Corporation to address waste management issues. The MFF and GEF Small Grant Programmes at UNDP directly support NGOs and CBOs to deal with local environmental issues.
2. Recommendation: Evaluation recommendation 2. Strategic Level. UNDP must adopt a more strategic approach in its country programme ? an approach which has a sharp focus on a narrower range of themes while addressing the main barriers of weak policy and weak capacity.
Management Response:

Agreed. The new Country Programme Document (CPD) recognizes and responds to the extraordinary social and political changes of the last two years. The overall country programme strategy entails a focus on strategic upstream policy support and strengthening of policy dialogue and advocacy, and capacity development in three main areas: (a)democratic governance, (b) poverty reduction and (c) environment and energy and climate change adaptation. The strategy may need to evolve further in response to the political crisis in the country, given the exceptional level of work and commitment that will be expected from UNDP.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
2.1 Develop CPD focused on strategic policy support UNDP Maldives Country Office, Regional Bureau for Asia and the Pacific (RBAP) 2010/09 Completed
2.2 Roll out CPD and key programmes UNDP Maldives Senior Management and Programme Units, Government of the Maldives 2013/06 Completed
2.3 Review strategy and monitor for impact UNDP Maldives Country Office 2014/12 Overdue-Initiated
3. Recommendation: Evaluation recommendation 3. Strategic Level. The focus of the UNDP country programme should continue to be upstream, at the central and (eventually) provincial level.
Management Response:

Agreed. This recommendation ties in with Recommendation 2, as mentioned above. The overall strategy during the CPD period entails an emphasis on capacity development and trust building within the social cohesion and governance programme, with strong links to policy and practice. However, it should be noted that there are considerable capacity gaps that affect implementation and there will be a need to find innovative solutions as capacity is being developed.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
3.1 Implementation of the programme Building Trust, Confidence and National Capacities for the Management of Change. UN Resident Coordinator's Office (RCO), UNDP Maldives Country Office and Programme Unit, UN Country Team 2012/12 Completed The BTCNC project was conducted 2010 - 2011. In 2012, the governance programme was reviewed and restructured and key elements of the BTCNC project was incorporated under the social cohesion component of the recently launched Integrated Governance Programme, IGP.
4. Recommendation: Evaluation recommendation 4. Country Programme. UNDP should reduce its effort in the poverty alleviation thematic area at the community level and concentrate instead on the policy level.
Management Response:

Agreed. The next country programme will strengthen its focus on strategic policy support as the country moves to middle income status. UNDP will contribute to the UNDAF Social Protection Outcome through public-private partnerships that generate jobs. Focus will be on issues of overall economic vulnerability, impact of the global economic crisis and impending LDC graduation.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
4.1 Develop policy oriented strategic programmes under the new CPD. UNDP Maldives Senior Management and Programme Units 2014/12 Overdue-Initiated
5. Recommendation: Evaluation recommendation 5. Country Programme. The country programme should continue to focus on governance/human rights as a flagship theme at the central level, with particular emphasis on the judiciary and parliamentary development; and it should move into provincial government support as and when the decentralization policy starts showing results.
Management Response:

Agreed. The UNDP governance programme is the flagship of the previous country programme and this will continue in the new CPD period 2011-2015. The emphasis of the recommendation is a component of the planned activities.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
5.1 Ensure governance programme will enhance transparency and accountability of public institutions. UNDP Senior Management and Programme Unit 2014/12 Completed The governance programme was reviewed and reoriented in 2012 in order to bring together a number of disparate projects under one programme. As a result the Integrated Governance Programme was formulated and launched in August 2012. A key focus of the IGP is policy level support to capacity development of key public institutions with a focus on enhancing accountability and transparency.
5.2 Reinforce the functioning of Parliament during the period of Maldives? democratic transition. UNDP Senior Management and Programme Unit, Government Counterparts 2014/12 Overdue-Initiated Under the Integrated Governance Programme launched in August 2012, a key partner is the Parliament. The IGP will support strengthening the parliament through capacity development initiatives including training, drafting SOPs and strengthening working relationship between the Parliament and other pillars of government.
5.3 Develop programmes to promote social cohesion and engender national trust and confidence in democracy through promotion of democratic dialogue, human rights and engagement of civil society. UNDP Maldives Senior Management and Programme Unit 2013/12 Completed One of the three result areas under the Integrated Governance Programme launched in August 2012, is Social Cohesion. The projects and activities under this result area focuses on promoting trust and confidence among key stakeholders and public in the democratic transition, through dialogue and tolerance. Key groups such as youth, women, civil society and media will be targeted in building knowledge and capacity of practicing democratic principles and promoting a culture of human rights.
6. Recommendation: Evaluation recommendation 6. Country Programme. UNDP should refocus environment work on climate and biodiversity while broadening the resource base beyond the Global Environment Facility and exploring the possibility of support from the private sector.
Management Response:

Agreed. UNDP's second flagship programme is climate change adaptation and biodiversity. UNDP will support conservation of the marine environment and protection of the ecosystem by addressing issues of waste management, and assist the Government in achieving its objective to address low carbon development by 2019 within the framework of climate change adaptation. The programme will also support energy policy development, including standards and regulations to enable energy efficiency and low carbon development. Biodiversity interventions include 'Mangroves for the Future' (MFF) as well as marine conservation through the engagement of multiple stakeholders including communities, youth, women and the private sector and within the framework of sustainable livelihoods and public-private partnerships linked to policy instruments.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
6.1 Assistance to Government in energy policy development and exploring low carbon development by 2019 inclusive of support to establish a Climate Change Adaptation Center. UNDP Maldives Country Office, Government of the Maldives 2013/12 Completed The feasibility study to establish a Climate Change Center has been completed and presented to the highest levels of government. The government's current energy policy is based on UNDP supported energy policy draft. A climate change adaptaion center concept would need to be revised given the growth in the Maldives National University and other reserch arms, as well as given the changes in the national setup.
6.2 Support to reduction of vulnerability and increase access to environmental risk insurance. UNDP Maldives Country Office, Government of the Maldives 2012/12 Completed The ongoing project on addressing Climate Change Adaptation inthe tourism sector has a separate and specific component on bringing in risk insurance in this sector
6.3 Support conservation of marine environment protection and waste management. UNDP Maldives Country Office, Government of the Maldives 2010/12 Completed A project has been formulated on Integrated Conservation of Marine Environment Protection. Further, there is ongoing support at the community level through the Small Grants Programme.
7. Recommendation: Evaluation recommendation 7. Country Programme. Pass on the coordination and initiative on disaster and risk management activities to the National Disaster Management Centre, ensuring that it is strengthened as part of programme implementation.
Management Response:

Noted. As it is now constituted, the National Disaster Management Center (NDMC) reports to Parliament via the Ministry of Environment. UNDP will continue to support capacity development of the NDMC and its establishment as a legally separate entity, as well as strengthen governmental coordination and community capacities for disaster preparedness and resilience. Climate change adaptation activities incorporate working with the NDMC to ensure that they reduce vulnerabilities of the communities to climate related disasters.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
7.1 All climate change activities are integrated with disaster risk management and capacity of NDMC to coordinate is continuously enhanced. UNDP Maldives Country Office, Government of the Maldives 2013/12 Completed NDMC sits in the Steering Committees of all DRM-related projects addressing Climate Change. UNDP supported design of a programme document which the NDMC can use as a basis for strengthening capacity gaps they identified. UNDP has been continuously supporting the global reporting on DRR/DRM activities of Maldives. UNDP helped establish, and now is a member of, the NDMC's techncial coordination Working Group.
8. Recommendation: Evaluation recommendation 8. Country Programme. Develop Government capacity to manage the HIV/AIDS programme with a view to handing over the programme to the Government and giving the lead within the UNCT to UNFPA and WHO.
Management Response:

The lead agency for HIV/AIDS is already WHO and HIV/AIDS is a UN Joint Programme. UNDP is the Principal Recipient (PR) for the GFATM in Maldives and is developing capacity for government and civil society to take on the role in the future. One of the major issues that the ADR has underscored is the limited capacity within the government, hence the reason for UNDP?s role as PR. The democratic governance programme will strengthen the capacity of the justice sector in, among others, the area of HIV/AIDS.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
8.1 Governance programme strengthens capacity of justice sector in the area of HIV/AIDS and of Government to assume leadership in this area. UNDP Maldives Country Office, UN Country Team, Government of the Maldives 2013/12 Overdue-Initiated UNDP has significantly contributed to the enhancement of HIV Prevention Initiatives in the country. UNDP has provided consistent support to the Government and the civil society Organizations in planning and implementing activities in response to HIV/AIDS in the Maldives. This includes: ? Support to strengthening of the M&E component with regard to Capacity Building of both Service providers and National AIDS Programme to monitor and evaluate ongoing prevention programs. In this regard, support was provided to standardize the reporting tools. ? Capacity building of Service providers in delivering services. ? Dissemination of HIV information via trained Peer Educators to Drug Users, Injecting Drug Users, Migrants and youth. In order to strengthen multisectorial response, UNDP facilitated the stake holder meetings and sensitization workshops for policy makers and religious sector.
9. Recommendation: Evaluation recommendation 9. Country Programme. UNDP should adopt and support a strategic approach to gender equality.
Management Response:

Agreed. The overall strategy of the new CPD entails a strong focus on gender equality and mainstreaming in line with the Government?s Strategic Action Plan (SAP) and the UNDAF 2011-2015. The country programme places greater strategic focus on vulnerable groups, particularly women and youth in its programmes both in sectoral and cross-cutting areas.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
9.1 Implement recommendations of the 2010 Asia-Pacific Human Development Report, Gender Equality in Asia and the Pacific. UNDP Maldives Country Office, Government of the Maldives 2013/12 Overdue-Initiated Targeted support on women's employment and political participation was provided by UNDP.
9.2 Implement the gender-based violence portion of the Gender and Economic Empowerment project. UNDP Maldives Country Office, Government of the Maldives 2010/12 Completed The Maldives has made considerable achievements in realizing the MDGs but needed a more concerted effort to realize MDG 3, inorder to achieve all MDGs by 2015. The Joint UN Programme on GBV brings together the expertise and resources of all UN Agencies in the Maldives to focus on one major issue of critical concern - gender-based violence, inorder to assist the Government fulfill its commitment to protect women's human rights, empower women and realize gender equality.
10. Recommendation: Evaluation recommendation 10. Country Programme. While not necessarily taking a programme lead on youth, UNDP should facilitate UNCT action so that it, together with other relevant agencies, can support a sustained and strategic national intervention to tackle this pressing concern.
Management Response:

Agreed. The UNCT acknowledges and fully agrees with the high importance of this issue. The new CPD has taken the issue on board, targeting the related concerns of unemployment, growing religious extremism and drug abuse and their increasingly critical effect on youth. The poverty reduction programme in particular will address the issues relating to overall economic vulnerability and rising unemployment, particularly among youth.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
10.1 UNDP will work with partners to activate the National Volunteers Programme (NVP) for youth. UNDP Maldives Country Office 2014/12 No Longer Applicable With th change of the government, the national volunteer Programme was abolished.
10.2 UNDP will partner with ILO to develop a national framework for decent work to address the lack of labour force participation and skills gaps. UNDP Maldives Country Office, UN Country Team 2014/12 Overdue-Initiated Under the Employment and Enterprise Development for Women and Youth project, UNDP supported the Ministry of Human Resources Youth (MHRYS) and Sports to formulate a National Employment Action Framework. A comprehensive Situational Analysis of the Maldives employment sector have been finalized with concrete recommendations and interventions to improve the unemployment situation. MHRYS is currently liaising with ILO to seek their expertise in order to develop a comprehensive national framework based on the situational analysis.
10.3 UNDP will work with the Government to improve the management of environmental resources through engagement of multiple stakeholders including youth, women and the private sector, thus linking natural-resource based livelihood promotion at the community level to key policy instruments. UNDP Maldives Country Office, Government of the Maldives 2010/12 Completed Under a Sustainable Livelihood Development Strategy, national resource-based livelihoods are promoted in Baa Atoll. Agricultural activities in Goidhoo Island in Baa Atoll supported through this project.
11. Recommendation: Evaluation recommendation 11. Project Design. Except for one-off responses to emerging needs, UNDP must ensure that right at the design stages, a project fits within the strategic framework of the Country Programme Document outcomes which in turn should fit with the UNDAF.
Management Response:

Agreed. The design of programmes are derived from the UNDAF outcomes and utilize ?delivering as one? methodologies. The results framework for the outcomes of the country programme includes indicators and targets that are also part of the UNDAF action plan (UNDAP).

Key Actions:

Key Action Responsible DueDate Status Comments Documents
11.1 The country programme review and outcome evaluations will be conducted regularly and the Assessment of Development Results will take place in 2014. UNDAF reviews will be conducted and UNDP/CPD outcomes will feed into this process. UNDP Maldives Country Office, UN Country Team, Government of the Maldives 2014/12 Overdue-Initiated
12. Recommendation: Evaluation recommendation 12. Project Design. All interventions must aim to increase local capacity (a main barrier to sustainable development) and enhance empowerment.
Management Response:

Agreed. National capacity diagnostics in cooperation with the Bangkok Regional Center is underway and is a major focus of the country programme including management of the programme. UNDP will integrate capacity development in all project management activities.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
12.1 To further support programme implementation, greater use of south-south cooperation, access to global knowledge and expertise through the UNDP Asia Pacific Regional Centre and global communities of practice will be emphasized. UNDP Maldives Country Office, Asia-Pacific Regional Center 2014/12 Overdue-Initiated
12.2 UNDP will contribute towards increasing national implementation capacity for project design and management, procurement and financial management. UNDP Maldives Country Office, Government of the Maldives 2014/12 Overdue-Initiated
13. Recommendation: Evaluation recommendation 13. Project Design. Engage in effective performance monitoring for adaptive management and make exit strategies and sustainability plans an essential element of all projects.
Management Response:

Agreed. Within the focus of the UNDAF 2011-2015, the UNDP country programme looks at exit strategies and scalability. UNDP is assisting the Government in preparing a comprehensive monitoring and evaluation strategy for the Government?s Strategic Action Plan. It will incorporate issues of Aid Effectiveness including the engagement of non-OECD countries as well as global funds which will be very important as the country graduates from LDC status.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
13.1 To ensure effective monitoring of the country programme, a programme/outcome board, comprising of all key stakeholders, will be established to monitor the progress of the country programme based on the country programme document evaluation plan. UNDP Maldives Country Office, Government of the Maldives 2011/12 Completed Now all projects have a board and UNDP is part of the UNDAF annual review activties.

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