Independent Country Programme Evaluation: Brazil

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Evaluation Plan:
2018-2021, Independent Evaluation Office
Evaluation Type:
ICPE/ADR
Planned End Date:
12/2020
Completion Date:
12/2020
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
45,900

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Title Independent Country Programme Evaluation: Brazil
Atlas Project Number:
Evaluation Plan: 2018-2021, Independent Evaluation Office
Evaluation Type: ICPE/ADR
Status: Completed
Completion Date: 12/2020
Planned End Date: 12/2020
Management Response: Yes
Focus Area:
  • 1. Poverty
  • 2. Governance
  • 3. Resilience
  • 4. Sustainable
  • 5. Energy
  • 6. Gender
  • 7. Others
Corporate Outcome and Output (UNDP Strategic Plan 2018-2021)
  • 1. Output 1.1.1 Capacities developed across the whole of government to integrate the 2030 Agenda, the Paris Agreement and other international agreements in development plans and budgets, and to analyse progress towards the SDGs, using innovative and data-driven solutions
  • 2. Output 1.1.2 Marginalised groups, particularly the poor, women, people with disabilities and displaced are empowered to gain universal access to basic services and financial and non-financial assets to build productive capacities and benefit from sustainable livelihoods and jobs
  • 3. Output 1.2.1 Capacities at national and sub-national levels strengthened to promote inclusive local economic development and deliver basic services including HIV and related services
  • 4. Output 1.2.2 Enabling environment strengthened to expand public and private financing for the achievement of the SDGs
  • 5. Output 1.4.1 Solutions scaled up for sustainable management of natural resources, including sustainable commodities and green and inclusive value chains
  • 6. Output 1.6.2 Measures in place and implemented across sectors to prevent and respond to Sexual and Gender Based Violence (SGBV)
  • 7. Output 2.1.1 Low emission and climate resilient objectives addressed in national, sub-national and sectoral development plans and policies to promote economic diversification and green growth
  • 8. Output 2.2.3 Capacities, functions and financing of rule of law and national human rights institutions and systems strengthened to expand access to justice and combat discrimination, with a focus on women and other marginalised groups
  • 9. Output 2.3.1 Data and risk-informed development policies, plans, systems and financing incorporate integrated and gender-responsive solutions to reduce disaster risks, enable climate change adaptation and mitigation, and prevent risk of conflict
  • 10. Output 2.4.1 Gender-responsive legal and regulatory frameworks, policies and institutions strengthened, and solutions adopted, to address conservation, sustainable use and equitable benefit sharing of natural resources, in line with international conventions and national legislation
  • 11. Output 2.5.1 Solutions developed, financed and applied at scale for energy efficiency and transformation to clean energy and zero-carbon development, for poverty eradication and structural transformation
  • 12. Output 3.2.2 National and local systems enabled and communities empowered to ensure the restoration of justice institutions, redress mechanisms and community security
  • 13. Output 3.3.2 Gender-responsive and risk-informed mechanisms supported to build consensus, improve social dialogue and promote peaceful, just and inclusive societies
  • 14. Output 3.4.1 Innovative nature-based and gender-responsive solutions developed, financed and applied for sustainable recovery
Evaluation Budget(US $): 45,900
Source of Funding:
Evaluation Expenditure(US $): 45,900
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Nationality
Deqa I. Musa Lead Evaluator
Claudia Villanueva Research Associate
GEF Evaluation: No
Key Stakeholders:
Countries: BRAZIL
Lessons
Findings
Recommendations
1

It is recommended that UNDP makes a concerted effort to enhance its strategic focus and measure its impact with balanced programmatic portfolios. The evaluation recognizes that UNDP’s programme responds to government requests. The evaluation also recognizes the challenges country offices such as Brazil face regarding balanced programmatic portfolios. In the forthcoming country programme, attention should focus on strengthening strategic planning to demonstrate high programmatic impact in the context of national implementation, particularly in the socio-economic and governance portfolio. In its results framework and reporting, UNDP should distinguish activities to which it contributes and where it has strong influence over their design and results. The evaluation recognizes the measurement challenges faced by UNDP, but greater effort should be exerted to define suitable measurement approaches to capture UNDP’s efforts, including in advocacy, technical contributions and other intangible support to ongoing government programmes. It is also recommended that UNDP strengthen research and policy analysis capacities to advocate for and help inform the medium- and longer-term socio-economic policy responses in the COVID-19 recovery phase. The pandemic and related economic and health crisis have aggravated the structural weaknesses faced by Brazil. The prospects for medium- to long-term recovery from the impacts of the pandemic will be difficult due to existing challenges, which include high inequalities, debt servicing, development financing and the digital divide. Leveraging its convening power as a neutral multilateral development actor, UNDP can help create spaces for debate to highlight the gaps in existing social and economic policies, as well as new challenges imposed by the pandemic. This can help UNDP enhance it is value proposition in Brazil. This requires attention and support from the corporate level.

2

Given the changes introduced by the new government and a shift in policy implementation in the natural resources management portfolio,128 it is recommended that UNDP undertakes a review of policy/regulatory constraint analyses to determine what has worked, what has not, and how policy design and implementation in the future can handle external shocks. It seems that many of the assumptions about the programme in 2017 did not hold, and issues such as the change in government and economy-of-scale considerations were not factored into policies. Projects in which policy constraints occurred (i.e., the policies did not allow for full uptake of initiatives) can be examined. This can be done as individual small-group research activities, with UNDP and key partners involved. The objective would be to better understand how to design initiatives that are more resilient to external forces. With regard to small business and local community uptake which is not occurring, a cost-benefit analysis should be developed. With the correct assumptions and different scenarios, this would help develop arguments for uptake and scale-up of climate change and natural resource management applications.

3

The country office’s collaboration with the private sector needs to be more systematic to reflect the ambitions articulated in its strategy. UNDP should consolidate its approach to private sector engagement. It should continue to collaborate with the private sector on thematic areas, leveraging its global knowledge to introduce innovation, technology and know-how for stimulating innovative financing mechanisms, particularly in areas with limited public resources. UNDP should also find mechanisms to sustain engagement and coordination with the private sector, individually and collectively after the end of its Global Compact Secretariat role. The country office should fully operationalize its private sector strategy by developing an implementation plan with outputs and target

4

It is recommended that UNDP leverage its convening power to facilitate dialogue between the government and civil society. UNDP can also leverage resources to develop the capacities of civil society organizations, especially in the context of SDG localization, with a consideration to address disparities in civil society capacity. In the context of the Leave No One Behind principle of the SDGs, civil society organizations have a key role in giving voice to vulnerable and marginalized communities, as well as monitoring progress of the implementation of the SDGs. The SDG localization agenda calls for inclusive approaches that utilize local knowledge to customize the SDGs to local situations. UNDP has a role to play in facilitating a broader dialogue on the role of civil society actors and their engagement in debates on development issues. Though challenging in the current political climate, this could be an area where UNDP could provide an opening for these organizations.

5

It is recommended that UNDP advocate for and pursue more strategic engagement in SSC, going beyond a facilitation role and contributing to strengthening the ABC capacity with regard to the systematization, mapping, codification and validation of Brazilian knowledge, to facilitate more structured and efficient knowledge transfer to other countries. UNDP should enhance its positioning as a knowledge organization. This would strengthen the leverage of its global knowledge and expertise to meet stakeholder expectations of a more systematic approach and links with available resources. Knowledge from UNDP’s network should be more easily identifiable and accessible to respond to demands from stakeholders.

1. Recommendation:

It is recommended that UNDP makes a concerted effort to enhance its strategic focus and measure its impact with balanced programmatic portfolios. The evaluation recognizes that UNDP’s programme responds to government requests. The evaluation also recognizes the challenges country offices such as Brazil face regarding balanced programmatic portfolios. In the forthcoming country programme, attention should focus on strengthening strategic planning to demonstrate high programmatic impact in the context of national implementation, particularly in the socio-economic and governance portfolio. In its results framework and reporting, UNDP should distinguish activities to which it contributes and where it has strong influence over their design and results. The evaluation recognizes the measurement challenges faced by UNDP, but greater effort should be exerted to define suitable measurement approaches to capture UNDP’s efforts, including in advocacy, technical contributions and other intangible support to ongoing government programmes. It is also recommended that UNDP strengthen research and policy analysis capacities to advocate for and help inform the medium- and longer-term socio-economic policy responses in the COVID-19 recovery phase. The pandemic and related economic and health crisis have aggravated the structural weaknesses faced by Brazil. The prospects for medium- to long-term recovery from the impacts of the pandemic will be difficult due to existing challenges, which include high inequalities, debt servicing, development financing and the digital divide. Leveraging its convening power as a neutral multilateral development actor, UNDP can help create spaces for debate to highlight the gaps in existing social and economic policies, as well as new challenges imposed by the pandemic. This can help UNDP enhance it is value proposition in Brazil. This requires attention and support from the corporate level.

Management Response: [Added: 2021/10/20] [Last Updated: 2021/11/11]

In the forthcoming country programme, that will be formulated in 2022,  UNDP will make greater effort to distinguish in its results framework and reporting, the activities it contributes to and for which UNDP has greater influence over their design and results. UNDP will strive to define measurement approaches to capture its work results, including in advocacy, technical contributions and other intangible support to ongoing government programmes.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
1.1 Strengthen CPD results framework and reporting
[Added: 2021/11/11] [Last Updated: 2022/11/02]
Programme and Strategic Planning 2023/12 Initiated History
1.2 Strengthen research and policy analysis capacities to inform the debate of longer-term socio-economic policy responses in the COVID-19 recovery phase.
[Added: 2021/11/11] [Last Updated: 2022/11/02]
Head Office, Programme and Strategic Planning 2022/12 Completed On COVID -19 recovery, UNDP, UNESCO, UNICEF and PAHO/WHO presented the call to action "Covid-19 and Sustainable Development: assessing the crisis with an eye on recovery", which highlights indicators for socioeconomic recovery, social protection and digital inclusion, to insert the country on a sustainable development path. The report x-rayed Brazil by state as to the degree of preparedness and vulnerability in coping with covid-19 and systematized data obtained from different sources of information. History
2. Recommendation:

Given the changes introduced by the new government and a shift in policy implementation in the natural resources management portfolio,128 it is recommended that UNDP undertakes a review of policy/regulatory constraint analyses to determine what has worked, what has not, and how policy design and implementation in the future can handle external shocks. It seems that many of the assumptions about the programme in 2017 did not hold, and issues such as the change in government and economy-of-scale considerations were not factored into policies. Projects in which policy constraints occurred (i.e., the policies did not allow for full uptake of initiatives) can be examined. This can be done as individual small-group research activities, with UNDP and key partners involved. The objective would be to better understand how to design initiatives that are more resilient to external forces. With regard to small business and local community uptake which is not occurring, a cost-benefit analysis should be developed. With the correct assumptions and different scenarios, this would help develop arguments for uptake and scale-up of climate change and natural resource management applications.

Management Response: [Added: 2021/10/20] [Last Updated: 2021/11/11]

The CO is constantly analyzing the conditions for the implementation on the natural resources’ portfolio together with RBLAC and BPPS/NCE to adapt the projects and portfolio plans. An analysis of policy/regulatory constraints will be undertaken both during the new UNSDCF formulation, including the CCA , and the new UNDP Country Program formulation.   The CO will work with the Regional Bureau and BPPS/NCE on the specific aspects of the natural resources management portfolio.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
2.1 CPD formulation debates, analysis and retreat with government, private sector, academia and civil society and local community counterparts
[Added: 2021/11/11] [Last Updated: 2022/11/02]
Head Office, Programme and Strategic Planning 2023/07 Initiated The CPD was extended for one year and will be formulated in 2023. UNDP will make greater effort to distinguish in its results framework and reporting. UNDP will strive to define measurement approaches to capture its work results, including in advocacy, technical contributions and other intangible support to ongoing government programmes History
2.2 Draft review of policy/regulatory constraint analysis with RBLAC and BPPS/NCE
[Added: 2021/11/11] [Last Updated: 2022/11/02]
Head Office, Programme and Strategic Planning 2023/12 Initiated The CPD was extended for one year and will be formulated in 2023. CO will take the opportunity to review of policy/regulatory constraint analysis with RBLAC and BPPS/NCE History
3. Recommendation:

The country office’s collaboration with the private sector needs to be more systematic to reflect the ambitions articulated in its strategy. UNDP should consolidate its approach to private sector engagement. It should continue to collaborate with the private sector on thematic areas, leveraging its global knowledge to introduce innovation, technology and know-how for stimulating innovative financing mechanisms, particularly in areas with limited public resources. UNDP should also find mechanisms to sustain engagement and coordination with the private sector, individually and collectively after the end of its Global Compact Secretariat role. The country office should fully operationalize its private sector strategy by developing an implementation plan with outputs and target

Management Response: [Added: 2021/10/20] [Last Updated: 2021/11/11]

UNDP will consolidate its approach to private sector engagement and continue collaboration on thematic areas, leveraging its global knowledge to introduce innovation, technology based solutions and know-how for stimulating innovative development mechanisms.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP will consolidate its approach to private sector engagement and continue collaboration on thematic areas, leveraging its global knowledge to introduce innovation, technology based solutions and know-how for stimulating innovative development mechanisms.
[Added: 2021/11/11] [Last Updated: 2022/11/02]
HO, Strategic Planning, Programme and Operations 2023/07 Initiated The CPD was extended for one year and will be formulated in 2023. CO will take the opportunity to consolidate its approach to private sector engagement and continue collaboration on thematic areas. History
3.1 Revise/update private sector strategy and develop an implementation plan with outputs and targets to operationalize private sector strategy.
[Added: 2021/11/11] [Last Updated: 2022/11/02]
HO, Strategic Planning, Programme and Operations 2023/12 Initiated CO will Revise/update private sector strategy and develop an implementation plan once the new CPD is formulated. History
3.2 Engage private sector on CPD formulation debates, analysis and retreats.
[Added: 2021/11/11] [Last Updated: 2022/11/02]
HO, Strategic Planning, Programme and Operations 2023/07 Initiated The CPD was extended for one year and will be formulated in 2023. CO will engage private sector on CPD formulation debates, analysis and retreats. History
4. Recommendation:

It is recommended that UNDP leverage its convening power to facilitate dialogue between the government and civil society. UNDP can also leverage resources to develop the capacities of civil society organizations, especially in the context of SDG localization, with a consideration to address disparities in civil society capacity. In the context of the Leave No One Behind principle of the SDGs, civil society organizations have a key role in giving voice to vulnerable and marginalized communities, as well as monitoring progress of the implementation of the SDGs. The SDG localization agenda calls for inclusive approaches that utilize local knowledge to customize the SDGs to local situations. UNDP has a role to play in facilitating a broader dialogue on the role of civil society actors and their engagement in debates on development issues. Though challenging in the current political climate, this could be an area where UNDP could provide an opening for these organizations.

Management Response: [Added: 2021/10/20] [Last Updated: 2021/11/11]

Indeed, the SDG localization agenda calls for inclusive approaches that utilizes local knowledge to customize the SDGs to local situations. UNDP will facilitate a broader dialogue on the role of civil society and their engagement in debates on development issues.

 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
4.1 Engage civil society on CPD formulation debates, analysis and retreats.
[Added: 2021/11/11] [Last Updated: 2022/11/02]
HO, Strategic Planning, Programme and Operations 2023/07 Initiated The CPD was extended for one year and will be formulated in 2023. CO will engage civil society on CPD formulation debates, analysis and retreats. History
4.2 Take advantage of NRM projects to expand dialogue of local communities and government on development issues, and expand capacities of civil society organizations through the participation in development projects
[Added: 2021/11/11] [Last Updated: 2022/11/02]
HO, Programme 2023/07 Initiated Natural resource management orojects, such as REDD+ Floresta + GCF is expanding dialogue with local communities and local governments on development issues, and expand capacities of civil society organizations. History
5. Recommendation:

It is recommended that UNDP advocate for and pursue more strategic engagement in SSC, going beyond a facilitation role and contributing to strengthening the ABC capacity with regard to the systematization, mapping, codification and validation of Brazilian knowledge, to facilitate more structured and efficient knowledge transfer to other countries. UNDP should enhance its positioning as a knowledge organization. This would strengthen the leverage of its global knowledge and expertise to meet stakeholder expectations of a more systematic approach and links with available resources. Knowledge from UNDP’s network should be more easily identifiable and accessible to respond to demands from stakeholders.

Management Response: [Added: 2021/10/20]

Key Actions:

Key Action Responsible DueDate Status Comments Documents
5.2 Seek more actively UNDP’s network to respond to stakeholders’ demands.
[Added: 2021/11/11] [Last Updated: 2022/11/02]
SSC Team 2023/12 Initiated With the election of President Lula, CSS team is expected to see an increased CSS demand and will seek more actively UNDP’s network History
5.1 Hire a knowledge management analyst to strengthen UNDP position as a knowledge organization.
[Added: 2021/11/11] [Last Updated: 2022/11/02]
Strategic Planning 2021/09 Completed A knowledge management analyst to strengthen UNDP position as a knowledge organization was hired. History

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