Assessment of Development Results: Bosnia and Herzegovina

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Evaluation Plan:
2008-2009, Independent Evaluation Office
Evaluation Type:
ICPE/ADR
Planned End Date:
05/2009
Completion Date:
05/2009
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
150,000

The ADR in Bosnia and Herzegovina covered the period from 2001-2008 and offers lessons that can strengthen UNDP programming in Bosnia and Herzegovina as well as contributing to the organization's effectiveness and accountability. The evaluation found that in the context of transition, UNDP quickly established itself as a capable and reliable implementing agency for the government as well as donors. In particular, UNDP has contributed to policy development and dialogue, including the incorporation of pro-poor concerns and the Millennium Development Goals into the national development strategy; national human development reports and strategic research on key issues have also been important in informing policy. Other UNDP-supported initiatives, in human security, governance and social protection, have contributed to capacity development at various levels of government. Nevertheless, there are a number of remaining areas in which UNDP can provide valuable assistance, especially in the fields of public administration reforms and participatory municipal governance. A critical area in terms of integration into the European Union is complementing and supporting EU leadership of public administration reform efforts by providing a perspective on development priorities and contributing to strategic direction.

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Title Assessment of Development Results: Bosnia and Herzegovina
Atlas Project Number:
Evaluation Plan: 2008-2009, Independent Evaluation Office
Evaluation Type: ICPE/ADR
Status: Completed
Completion Date: 05/2009
Planned End Date: 05/2009
Management Response: Yes
Focus Area:
  • 1. Poverty and MDG
  • 2. Democratic Governance
  • 3. Crisis Prevention & Recovery
  • 4. Environment & Sustainable Development
Corporate Outcome and Output (UNDP Strategic Plan 2014-2017)
Evaluation Budget(US $): 150,000
Source of Funding:
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Evelyn Bazalgette Team Leader
Evelyn Bazalgette Team Leader
GEF Evaluation: No
Key Stakeholders:
Countries: BOSNIA AND HERCEGOVINA
Lessons
Findings
Recommendations
1 Develop a strategy to transfer ongoing projects from direct to national implementation modalities, and use a form of NIM for new projects. 1. UNDP should shift from direct to national implementation of projects so that counterparts are able and willing to carry work forward without UNDP by the time of its departure. Increased efforts are required to strengthen the capacity of counterparts to assume ownership of projects. This will require the rethinking of partnerships and developing the capacity of specific counterpart organizations. 2. A modified form of DIM should provide the basis for an agreement with the concerned counterpart agency for each project. This should establish stages through which UNDP can transfer responsibility to the counterpart(s) within a specified time frame. Counterpart organizations must agree to integrate the main principles and systems of the project in their ongoing work, over the long term. This policy should be adopted as soon as possible, and should be reflected in the next country programme document and action plan.
2 Develop an overall exit strategy for development assistance to Bosnia and Herzegovina, to be carried out within a defined time frame. 3. UNDP should develop a strategy for exiting the country, which would include defined phases and steps to be fulfilled in order to allow for closure of development assistance activities by a fixed date - probably 2014, in view of current commitments. The phases should already be reflected within the next country programme action plan. 4. A strong emphasis should be placed on capacity development, together with advocacy and political dialogue, to ensure that national ownership is achieved.
3 Define clearly the strategic focus for current and future UNDP interventions and narrow the range of activities accordingly. 5. To maximize results in areas central to UNDP's mandate and build on its comparative advantages, UNDP should take necessary measure to be more tactical in its focus. UNDP BiH needs to rethink where its efforts can have the most effect, bearing in mind its specific competencies, and ensure that its activities are aligned accordingly. 6. Narrowing the range of activities included in its projects would also require developing appropriate partnerships with other organizations that can assume responsibility for complementary activities that are no longer priorities for UNDP. 7. UNDP should strengthen linkages between policy initiatives at the state level and operational interventions at the entity and municipality levels. There should be more emphasis on expanding existing interventions that are successful, and future short-term projects should build on these. 8. The strategic focus should be aimed at advancing the sustainable human development agenda, facilitating progress in administrative reform, and supporting the country's progress towards EU membership, which includes addressing existing barriers through an analysis of entity-level perspectives.
1. Recommendation: Develop a strategy to transfer ongoing projects from direct to national implementation modalities, and use a form of NIM for new projects. 1. UNDP should shift from direct to national implementation of projects so that counterparts are able and willing to carry work forward without UNDP by the time of its departure. Increased efforts are required to strengthen the capacity of counterparts to assume ownership of projects. This will require the rethinking of partnerships and developing the capacity of specific counterpart organizations. 2. A modified form of DIM should provide the basis for an agreement with the concerned counterpart agency for each project. This should establish stages through which UNDP can transfer responsibility to the counterpart(s) within a specified time frame. Counterpart organizations must agree to integrate the main principles and systems of the project in their ongoing work, over the long term. This policy should be adopted as soon as possible, and should be reflected in the next country programme document and action plan.
Management Response: [Added: 2009/07/23] [Last Updated: 2010/02/24]

Due to the complex political and administrative structures of BiH, and consequent weak government capacities for project management, projects will considered for transfer from DIM to NIM modality on a case-by-case basis. In 2007 a review was made of possible transitions to NIM and one key project, Aid Coordination, was taken over by government in 2008. In parallel, the UN Country Team made HACT macro and micro assessments of project financial management by government and CSOs, and the assessments showed significant capacity gaps. The report was shared with government. The UNCT BiH has committed in the UNDAF 2010-2014, which was agreed with government on 31st march 2009, to work to support progress toward the use of national systems for implementation, management and monitoring, based on internationally recognized standards and good practice. In 2009, in support of the preparation of the CPAP, a strategy will be developed for the evolution of programmes from DIM to NIM project modality during the new UNDAF period. Opportunities for implementing new projects through NIM will be assessed and implemented on a case by case basis. Due reference will be made to modalities used by other agencies, including the European Commission, and government progress in Public Administration Reform, some components of which should facilitate NIM modality.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
1.1 Update the strategy for the transfer of projects to NIM
[Added: 2010/02/24] [Last Updated: 2011/04/19]
Programme Section 2010/03 Completed Defined in the 2010 - 2014 CPAP.
1.2 Use NIM for new projects
[Added: 2010/02/24] [Last Updated: 2013/03/21]
Programme Section No due date No deadline established NIM is used in some aspects of implementation only.
1.3 Monitor NIM equivalent modality use by UN and other agencies including EC
[Added: 2010/02/24] [Last Updated: 2013/03/21]
RC Office No due date No deadline established On-going
2. Recommendation: Develop an overall exit strategy for development assistance to Bosnia and Herzegovina, to be carried out within a defined time frame. 3. UNDP should develop a strategy for exiting the country, which would include defined phases and steps to be fulfilled in order to allow for closure of development assistance activities by a fixed date - probably 2014, in view of current commitments. The phases should already be reflected within the next country programme action plan. 4. A strong emphasis should be placed on capacity development, together with advocacy and political dialogue, to ensure that national ownership is achieved.
Management Response: [Added: 2009/07/23] [Last Updated: 2010/02/24]

At the signing ceremony for the UNDAF 2010 ? 2014 with the Chairman of the Council of Ministers, the Resident Coordinator stated that the UNDAF 2010-2014 is intended to be the final one for Bosnia and Herzegovina, and that thereafter there will be individual agency agreements with government based on the requests by government for specific services from the UN. UNDP will accordingly define an exit strategy in full cooperation with the government, taking into account the context of the EU accession process and its timeframe. The exit strategy will be subject for review in mid UNDAF.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
2.1 Outline exit strategy to be developed during the CPAP preparation process
[Added: 2010/02/24] [Last Updated: 2013/03/21]
ARR, Programme Section No due date No deadline established Exit strategy not included in the 2010 - 2014 CPAP - subject to future discussion with the Governemnt. In addition, new UNDAF is about to start with preparation for the period 2014-2019.
3. Recommendation: Define clearly the strategic focus for current and future UNDP interventions and narrow the range of activities accordingly. 5. To maximize results in areas central to UNDP's mandate and build on its comparative advantages, UNDP should take necessary measure to be more tactical in its focus. UNDP BiH needs to rethink where its efforts can have the most effect, bearing in mind its specific competencies, and ensure that its activities are aligned accordingly. 6. Narrowing the range of activities included in its projects would also require developing appropriate partnerships with other organizations that can assume responsibility for complementary activities that are no longer priorities for UNDP. 7. UNDP should strengthen linkages between policy initiatives at the state level and operational interventions at the entity and municipality levels. There should be more emphasis on expanding existing interventions that are successful, and future short-term projects should build on these. 8. The strategic focus should be aimed at advancing the sustainable human development agenda, facilitating progress in administrative reform, and supporting the country's progress towards EU membership, which includes addressing existing barriers through an analysis of entity-level perspectives.
Management Response: [Added: 2009/07/23] [Last Updated: 2010/02/24]

This recommendation has already been implemented with a new CPD developed which is more focused than its predecessor. The new CPD focus is on social inclusion, governance, energy and the environment, and human security. To improve strategic focus on core UNDP areas such as capacity development and the human rights based approach to development, possibilities for building linkages between state, entity and municipal level governments are already being examined for incorporation in Programme Documents and Annual Work Plans. An example of this is the linkages that area-based development (ABDs) programmes are currently establishing with agriculture ministries at Entity government level, working towards replicating ABD agricultural activities across eastern Bosnia and financing the relevant agricultural extension services. The UNDAF 2010-2014 promotes synergy between UN agencies, of which UNDP is the largest in terms of annual programme delivery in BiH.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
3.1 Define strategic focus
[Added: 2010/02/24] [Last Updated: 2013/03/21]
Senior management 2012/03 Completed New CPAP 2010 - 2014 approved by the Government. Current consolidation of programmatic areas ongoing.
3.2 Build linkages between policy level initiatives at the state level, entity and municipal levels
[Added: 2010/02/24] [Last Updated: 2013/03/21]
Programme is now streamlined to fit thematic areas and to be supported by adequate staff. No due date No deadline established Ongoing

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