Joint Independent Common Country Programme Evaluation: Cabo Verde

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Evaluation Plan:
2022-2025, Independent Evaluation Office
Evaluation Type:
ICPE/ADR
Planned End Date:
12/2022
Completion Date:
07/2022
Status:
Completed
Management Response:
No
Evaluation Budget(US $):
80,000

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Title Joint Independent Common Country Programme Evaluation: Cabo Verde
Atlas Project Number:
Evaluation Plan: 2022-2025, Independent Evaluation Office
Evaluation Type: ICPE/ADR
Status: Completed
Completion Date: 07/2022
Planned End Date: 12/2022
Management Response: No
Focus Area:
  • 1. Others
Corporate Outcome and Output (UNDP Strategic Plan 2018-2021)
  • 1. 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
  • 2. 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
  • 3. Output 1.2.2 Enabling environment strengthened to expand public and private financing for the achievement of the SDGs
  • 4. Output 1.6.1 Country-led measures accelerated to advance gender equality and women’s empowerment
  • 5. 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
  • 6. Output 2.1.2 Capacities developed for progressive expansion of inclusive social protection systems
  • 7. Output 2.2.1 Use of digital technologies and big data enabled for improved public services and other government functions
  • 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 2.4.1 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
Evaluation Budget(US $): 80,000
Source of Funding:
Evaluation Expenditure(US $): 80,000
Joint Programme: No
Joint Evaluation: Yes
  • Joint with UN Agencies
  • Joint with UNICEF, UNFPA
Evaluation Team members:
Name Title Nationality
Ana Rosa Monteiro Soares Chief of Section (IEO)
Mikal Khan Evaluation Specialist (IEO)
Claudia Villanueva Research Associate (IEO)
Messay Tassew Evaluation Specialist (UNFPA)
Rita Magawa Evaluation Analyst (UNFPA)
Denis Jobin Senior Evaluation Specialist (UNFPA)
Michele Tarsilla Regional Evaluation Advisor (UNICEF)
Alberto Nuñez Evaluation consultants
Melissa Andrade Costa Evaluation consultants
Antonio Cabo Evaluation consultants
Ana Rosa Monteiro Soares, Chefe de Seção Avaliações Corporativas, PNUD IEO
Mikal Khan Especialista em Avaliação, PNUD IEO
Claudia Villanueva Pesquisadora Associada, PNUD IEO
Messay Tassew Especialista em Avaliação, Escritório de Avaliação do UNFPA, Nova Iorque
Rita Magawa Analista de Avaliação, UNFPA, Escritório de Avaliação
Denis Jobin Especialista em Avaliação Sênior, Escritório de Avaliação do UNICEF
Michele Tarsilla Assessora de Avaliação Regional, Escritório Regional do UNICEF para a África Ocidental e Central
Alberto Nuñez Líder de Equipa
Melissa Andrade Costa Membro da Equipa
Antonio Cabo Membro da Equipa
GEF Evaluation: No
Key Stakeholders:
Countries: CAPE VERDE
Lessons
Findings
Recommendations
1

The three agencies should accelerate measures necessary for the definition and implementation of the new CCPD already underway. This includes finalizing the establishment of the joint office governance model, office structure, management and coordination mechanisms, and recruiting key staff.

The three agencies should sign an agreement to define their responsibilities by the first quarter of the first year of the new programme. The document will establish a regulatory and governance structure, including a joint country representative that can set the basis for joint office organization and business operations. Clear direction and collective action by the three agencies on the ‘jointness’ of the organizational structure is required.

In addition, a common operational platform should be established, with unified financial data and M&E mechanisms. Effective M&E requires the selection of a single integrated platform for all programmes and operations of all agencies, as part of a wider results-oriented system for the entire CCP, and the use of SMART outcome and output indicators.

2

The three agencies should accelerate measures necessary for the definition and implementation of the new CCPD already underway. This includes finalizing the establishment of the joint office governance model, office structure, management and coordination mechanisms, and recruiting key staff.

The three agencies should sign an agreement to define their responsibilities by the first quarter of the first year of the new programme. The document will establish a regulatory and governance structure, including a joint country representative that can set the basis for joint office organization and business operations. Clear direction and collective action by the three agencies on the ‘jointness’ of the organizational structure is required.

In addition, a common operational platform should be established, with unified financial data and M&E mechanisms. Effective M&E requires the selection of a single integrated platform for all programmes and operations of all agencies, as part of a wider results-oriented system for the entire CCP, and the use of SMART outcome and output indicators.

Financial information should have one common data source to allow for greater coherence and effective reporting which should be accessible by all partner agencies (UNDP, UNFPA, UNICEF) at local, regional and global levels. Joint office change management must be developed by defining and documenting the approach according to the latest organigram of the joint office.

1. Sign a legal agreement to define the responsibilities, management model and operations of the joint office.

2. Establish a regulatory and governance structure, including the recruitment of a joint country representative that can set the basis for joint office organization and business operations.

3. Recruit a joint deputy representative to help increase programmatic coherence.

4. Establish a common operational platform, with unified financial data and M&E mechanisms. Develop a single integrated platform for all programmes and operations of all participating agencies, as part of a wider results-oriented system for the entire CCP, and use SMART outcome and output indicators.

5. Use one common data source on financial information to allow coherence and effective reporting, which should be accessible by all partner agencies at local, regional and global levels.

3

The new CCP should strengthen the coherence and potential effectiveness of the programme.

Develop a new theory of change for the CCPD, considering the new national development framework, as well as changes to the context and the knowledge accumulated during the current CCPD 2018- 2022. Recruit a joint deputy representative or programme manager to the joint office to increase programmatic coherence. Support the country’s positioning at international level in four key areas: the ‘Financing for Development in the Era of COVID-19 and Beyond’ initiative; SIDS; foreign debt; and human rights. Support Cabo Verde as an active SIDS country, especially among African SIDS.

1. Develop a new ToC for the CCP, which should establish and make more explicit key assumptions and major risks, and include an amplified stakeholder mapping.

2. Review change management and the structure of the joint office and define the portfolio approach in use, job descriptions, levels of responsibility and accountability to JRR and regional offices, and coordination mechanisms between the thematic areas.

3. Recruit a joint deputy representative to help increase programmatic coherence.

4. Support the country’s international positioning in four key areas: the ‘Financing for Development in the Era of COVID-19 and Beyond’ initiative; SIDS; foreign debt; and human rights.

5. Support Cabo Verde as an active member of SIDS countries, especially among the group of African countries.

4

In the post COVID-19 context, the CCP should help Cabo Verde to strategize on its recovery, seeking out new opportunities for sustainability and capacity-building of senior government and private sector staff.

It is crucial to sustain engagement in policy dialogue and capacity-building with a view to further strengthen national capacity for policy formulation through the use of evidence for rational decision-making in service delivery planning, and build a more effective management system and talent development for top and middle executive managers at national and especially regional and local levels in both public and private institutions (CSOs, cooperatives, businesses and others). This type of capacity-building is strategic for the country considering its MIC and SIDS status. More alignment is needed to connect high-level policies in the post-pandemic context, taking into account the new national development framework, in areas such as economic diversification, the fight against poverty, the transition to a blue economy or digitalization.

1. Continue to strengthen national capacity for policy formulation through the use of evidence for rational decision-making in service delivery planning.

2. Define joint strategies on integrated capacity development strategies at three levels: individual, organizational and the enabling environment.

3. Build a more effective public management system and talent development for top and middle executive managers at national and especially regional and local levels, in both public and private institutions (CSOs, cooperatives, businesses and others).

4. Align with high-level policies in the post-pandemic context, taking into account the new national development framework, in areas such as economic diversification, the fight against poverty, the transition to a blue economy or digitalization.

5

The CCP should increase support to the health system. This includes the integration of health data across different health centres within the country and increased support to the extension of health benefits to remote islands and for people with disabilities. The CCP should help the country with long-term planning to develop national capacity to provide more complex types of health care assistance. Efforts should also be intensified to decrease teenage pregnancy rates, which remain high in the country, and help to plan education campaigns for improved health habits taking into account the new epidemiological profile of the country. Capacity-building efforts for health professionals should be maintained and intensified and take into account new trends of HIV infection, which especially affect young girls.

1. Map health information gaps and integrate health data across different health centres.

2. Give direct support to MoH to expand the current information technology system and train health agents on its use.

3. Increase financial support for the establishment of new health centres in remote islands (to cover immunization, SRH, youth friendly health services, attention to HIV and pregnancy prevention among girls), and strengthen protocols to assist people with disabilities in new health centres and across the country.

4. Focus youth-friendly health services on avoiding teenage pregnancy and HIV infection. 5. Enlarge the scope of support to health campaigns to consider new and neglected health challenges in the country (obesity, heart problems etc.).

6

The CCP should increase support to give coherence to the social protection benefits available to the most vulnerable, make them more integrated and improve coverage, especially in rural areas. Support for an enhanced rationale for social protection benefits should help to increase benefits for women who are often overlooked due to their lower participation in the labour market. In addition, the CCP should intensify efforts to build a functional integrated system for monitoring and evaluating the social protection programme, with special provisions for the needs of children.

1. Review current social protection benefits with the aim of integrating services under a single framework, which considers vulnerabilities over the life cycle, especially taking into account gaps in rural areas and the specific needs of women.

2. Design a monitoring and evaluation framework for the social protection programme and train staff on its implementation.

3. Promote technical roundtables involving the Government, academia and civil society to discuss the social protection framework and M&E system.

7

The CCP should increase support to the education system. The joint office should assist in the implementation of new policies for preschool education, education for children with special needs and child protection, intensify efforts to help increase school enrolment in preschool and basic education, taking into account the need to keep boys in school, support capacity-building for teachers of basic education and foster access to new learning technologies.

1. Assist the Ministry of Education to plan for implementation of the new policies for preschool education, education for children with special needs and child protection, taking into account the wide dissemination to target groups.

2. Plan specific campaigns for families on the importance of keeping both girls and boys in school, helping families to consider the potential long term benefits.

3. Explore partnerships with the private sector, international consortia and other academic partners to fund and develop new technologies to enhance learning in basic education.

8

The CCP should mainstream national and municipal environmental goals across all portfolios/ outcomes, exploiting the comparative advantages of the three agencies. In addition, it should align the environment portfolio with the blue economy targets outlined in PEDS and the NDC. This should be aligned with the new GEF-funded portfolio, through the inclusion of local government, civil society, communities and the private sector in biodiversity and natural resource management, to meet tangible conservation goals (effective protection) as well as social and economic goals (sustainable resource use). The CCP should better direct the GEF SGP to complement funding from other minor donors (international NGOs) and multilateral and bilateral actors. This will enable the limitations posed by the rigidity of the GEF SPG rules to be overcome, thus allowing recipients to take full advantage of the flexibility of external funding.

1. Under the new GEF-funded project portfolio, engage with local authorities to improve municipal environmental services (waste management, sanitation) and raise awareness and participation in biodiversity management, including protected area management.

2. Engage with the private sector to raise awareness on the socioeconomic benefits and business opportunities of conservation, for example through activities linked to sustainable tourism.

3. Engage with environmental and social NGOs to ensure the complementarity of GEF SPG grants with the joint office regular programme, and activities funded by other donors.

9

The CCP should increase support to foster economic transformation and sustainable and inclusive growth. The joint office should progressively consolidate the current trend of bolstering its work and presence at the local level, as more experience is gained. The CCP should further invest in technical support for the production and use of data by sectoral ministries. It should follow-up on implementation of Local Development Plans, helping municipalities to identify alternative funding sources. The CCP should ensure clarity and buy-in from different partners in terms of the division of responsibilities for institutions at national and local levels, and strengthen dialogue with CSOs.

1. Review the work strategy with INE to include capacity-building for sectoral ministries on the production and use of data.

2. Map the implementation status of Local Development Plans, to identify challenges and possible areas of support, which should include capacity-building for fundraising.

3. Review the implementation strategy for youth employment projects with the Institute of Employment and Vocational training and the National Directorate of Employment, Internships and Vocational Training.

10

The joint office needs to strengthen the programmatic integration of key cross-cutting issues and development accelerators. The joint office should strengthen its work on gender and make it more transformative through the design and implementation of new initiatives that integrate thematic and gender issues.

Programmatic integration should promote GEWE by identifying behaviours and social norms which maintain gender inequality, so as to make institutional and systemic changes. The joint office should work with the Government of Cabo Verde to accelerate the implementation of GEWE, focusing on the most vulnerable as the active subjects of policies and programmes in all sectors, including emergency situations, and the equality of vulnerable groups, including migrants.

Considering the MIC and SIDS status of Cabo Verde, a multidimensional poverty index should be developed as a tool to mainstream pro-poor policies in all thematic areas. This could complement traditional monetary poverty measures by capturing acute and simultaneous deprivations in health, education and living standards.

1. Continue to support the integration of gender-sensitive analyses, indicators and monitoring instruments into national legislation, policies and programmes.

2. Design a capacity-development plan to ensure clear understanding across all levels of the programme, including implementing partners, of the difference between genderresponsive, gender-transformative and gender-targeted interventions.

3. Create a checklist tool to determine the optimum conditions for transitioning from gender-responsive to gender-transformative work, for improved project formulation.

4. Review and update the joint office Gender Strategy according to the revised ToC.

5. Review policies for pre-school education, special education and other guidance supported by the joint office to ensure that gender equality is adequately addressed.

6. Boost mainstreamed LNOB strategies to reach the most disadvantaged first in the next programme cycle, expanding the scope of activities targeted at population groups such as young people not in education, employment or training, those living in poverty, people with disabilities and elderly people, and specifically related to problems with children and youths with disabilities, adolescent pregnancy and or sexual violence.

7. Develop a multidimensional poverty index as a tool to mainstream pro-poor policies in all thematic areas.

8. Include one pro-poor and one pro-gender indicator for each CCP outcome.

9. Maintain support to promote human rights and build new capacity to implement the recommendations of human rights mechanisms.

11

The joint office needs to strengthen the programmatic integration of key cross-cutting issues and development accelerators. The joint office should strengthen its work on gender and make it more transformative through the design and implementation of new initiatives that integrate thematic and gender issues.

Programmatic integration should promote GEWE by identifying behaviours and social norms which maintain gender inequality, so as to make institutional and systemic changes. The joint office should work with the Government of Cabo Verde to accelerate the implementation of GEWE, focusing on the most vulnerable as the active subjects of policies and programmes in all sectors, including emergency situations, and the equality of vulnerable groups, including migrants.

Considering the MIC and SIDS status of Cabo Verde, a multidimensional poverty index should be developed as a tool to mainstream pro-poor policies in all thematic areas. This could complement traditional monetary poverty measures by capturing acute and simultaneous deprivations in health, education and living standards.

1. Continue to support the integration of gender-sensitive analyses, indicators and monitoring instruments into national legislation, policies and programmes.

2. Design a capacity-development plan to ensure clear understanding across all levels of the programme, including implementing partners, of the difference between genderresponsive, gender-transformative and gender-targeted interventions.

3. Create a checklist tool to determine the optimum conditions for transitioning from gender-responsive to gender-transformative work, for improved project formulation.

4. Review and update the joint office Gender Strategy according to the revised ToC.

5. Review policies for pre-school education, special education and other guidance supported by the joint office to ensure that gender equality is adequately addressed.

6. Boost mainstreamed LNOB strategies to reach the most disadvantaged first in the next programme cycle, expanding the scope of activities targeted at population groups such as young people not in education, employment or training, those living in poverty, people with disabilities and elderly people, and specifically related to problems with children and youths with disabilities, adolescent pregnancy and or sexual violence.

7. Develop a multidimensional poverty index as a tool to mainstream pro-poor policies in all thematic areas.

8. Include one pro-poor and one pro-gender indicator for each CCP outcome.

9. Maintain support to promote human rights and build new capacity to implement the recommendations of human rights mechanisms.

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