Crisis Management and Recovery (CMR) Programme Final Evaluation

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Evaluation Plan:
2006-2010, Uganda
Evaluation Type:
Others
Planned End Date:
11/2010
Completion Date:
01/2011
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
10,000

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Title Crisis Management and Recovery (CMR) Programme Final Evaluation
Atlas Project Number:
Evaluation Plan: 2006-2010, Uganda
Evaluation Type: Others
Status: Completed
Completion Date: 01/2011
Planned End Date: 11/2010
Management Response: Yes
Focus Area:
  • 1. Crisis Prevention & Recovery
Corporate Outcome and Output (UNDP Strategic Plan 2014-2017)
  • 1. National and local institutions have the capacity to respond to gender-based violence and to increase women's civic engagement, participation and leadership in crisis prevention, ongoing crisis and post-crisis contexts
  • 2. Livelihoods and economic recovery generated, including infrastructure restoration, employment and sustainable income earning opportunities for crisis affected communities
Evaluation Budget(US $): 10,000
Source of Funding:
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Ahmad Tijan B. Jallow Team Leader
GEF Evaluation: No
Key Stakeholders: Government and development partners
Countries: UGANDA
Comments: The purpose of the Crisis Management and Recovery (CMR) programme final evaluation is to draw lessons both in design and implementation of the project that will aid the Crisis Prevention and Recovery Unit in the design of new projects
Lessons
Findings
Recommendations
1 UNDP should shift from quick response interventions that have characterized the CMR/ABID program to more long-term ones. In this regard, QIPs should no longer be a modality of implementation; rather emphasis should be placed on area-based programs, with Integration into districts-based planning rather than stand alone programming.
2 Efforts should be made to strengthen analytical base/functions, as in a context of rapidly changing dynamics, poor data/information there is a need to strengthen evidence- based analysis. UNDP should develop a much stronger M&E linked to PRDP, analyzing gaps in government/donor response, etc, particularly helping districts develop accountability frameworks for results and strengthening community-based M&E.
3 A major challenge facing communities is reestablishing livelihoods (inclusive of both agriculture and non-farm income generation) as infrastructure and social services have been brought to a certain level. It is recommended that UNDP makes livelihoods and fostering local economic growth the cornerstone of its strategy in the north. However, care should be taken to link activities to national programmes and national players (e.g. livelihoods linked to NAADS, and microfinance to microfinance institutions, etc) to improve chances of scaling up and to maximize impact.
4 An important concern to take into account is that as lands are being opened after lying idle/fallow for many decades, and it is therefore recommended that sustainable land management practices be encouraged to prevent land and water resources degradation and loss of biodiversity.
5 Vulnerable youth are always a highly relevant target group in post conflict settings. On the one hand they are in many ways affected by the conflict as they might have experienced violence in a young age, have missed education and apprenticeships and are lacking future perspectives. On the other hand particularly young men might have been involved in the conflict as perpetrator and without employment and income perspectives they are still the main target group for rebel army recruitment. So it is mostly important to provide social care, income possibilities and education for this target group (see also SWAY Study). UNDP should use the data of the UNDP funded IOM baseline survey on vulnerable youth for future programs. An integrated approach including not only former combatants is very important. This way stigmatization and tension among ex combatants and other community members will be avoided.
6 Another relevant target group in the post conflict context is women. As refugees they experience intense insecurity and are threatened by sexual violence and assault, leading to consequences including HIV infection, pregnancy and other health complications, as well as possible stigmatization from their communities. Furthermore many women are facing economic challenges in conflict settings, as husbands may be away from home, be it temporarily due to displacement or permanently being missed or even killed.. Nevertheless women are not only victims, women?s engagement in peace building is recognized by many international institutions as a crucial element of recovery and is reflected in the UN Security Council Resolution 1325. UNDP should integrate a stronger focus on gender issues and more specifically on gender mainstreaming into the next program.
7 7. Peace building and conflict prevention is still a highly relevant area within the recovery and development process. In general there is a need for programs with a pinpointed and clear concentrated focus on one specific aspect and with a long term perspective. UNDP could select one area and develop a specific expertise in this field. The issue of land conflicts is a big actual problem and offers the opportunity of strengthening local institutions with a very concrete and useful focus leaving the vague zone of ?overall reconciliation?. An advantage is that the research study has already been done and can directly be used for future programming. Moreover it is necessary to cooperate with implementing partners, who have long year experience in this field such as Accord or the Refugee Law Project. Such a program should consider UN Resolution 1325 and integrate a strong focus on women on different levels: Firstly specific needs of women headed households, war widows, formerly abducted girls and their difficulties having access to land. Secondly women should be integrated into local institutions on conflict resolution recognising their high potential and crucial role in peace building and conflict resolution mechanisms.
8 UNDP should mainstream its whole program in a conflict sensitive manner. This means in detail that all programs in all sectors have to be assessed on their potential of rising tensions/conflicts or reducing tensions/conflicts in the communities. The optimal project design has a conflict reducing impact by itself. The ?do no harm approach? is the main proved and tested instrument to implement conflict sensitivity.
9 The team recommends a tighter geographic focus to ensure programme resources are used more effectively and efficiently ? cannot spread in all districts. UNDP recovery should focus on Acholi where the return is incomplete and needs are greater. The sub-regions of Teso and Lango are resettled and food security is better.
10 UNDP should clarify the role of the sub-offices, particularly in terms of their role overall in implementing the CPAP, including in particular recovery ?related activities
11 In terms of implantation modality, many donors currently embed their programs within district structures and staff and advisor placed therein to closely work with local partners rather than setting up parallel structures. It is recommended that for the future UNDP should consider adopting the same practice.
12 The team noted the surprising fact that UNDP had not raised significant funding for the CMR, and in fact there was only one donor outside of the UNDP family. Whatever the reason, the mission recommends that the ability of UNDP to raise significant funds to support its operations in northern Uganda must be factored into the design of any new programme.
13 UNDP should adopt joint programming with other UN partners in northern Uganda, because of the reality of shrinking funds, but importantly also because this will strengthen coordination within the UN family and contribute to the UN reform process.
1. Recommendation: UNDP should shift from quick response interventions that have characterized the CMR/ABID program to more long-term ones. In this regard, QIPs should no longer be a modality of implementation; rather emphasis should be placed on area-based programs, with Integration into districts-based planning rather than stand alone programming.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

This is a lesson learnt and focus is given to longer term programming and ensure that UNDP

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Quick Impact Projects no longer implemented but rather longer term projects
[Added: 2012/01/18]
Crisis Prevention and Recovery Units 2010/12 Completed
2. Recommendation: Efforts should be made to strengthen analytical base/functions, as in a context of rapidly changing dynamics, poor data/information there is a need to strengthen evidence- based analysis. UNDP should develop a much stronger M&E linked to PRDP, analyzing gaps in government/donor response, etc, particularly helping districts develop accountability frameworks for results and strengthening community-based M&E.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

Recommendation noted and implemented in CPAP

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP is undertaking Evidence based analytical work to inform policy making in human development, in partnership government, academic/research institutions and CSOs
[Added: 2012/01/18]
Programme Support Unit 2011/12 Completed
3. Recommendation: A major challenge facing communities is reestablishing livelihoods (inclusive of both agriculture and non-farm income generation) as infrastructure and social services have been brought to a certain level. It is recommended that UNDP makes livelihoods and fostering local economic growth the cornerstone of its strategy in the north. However, care should be taken to link activities to national programmes and national players (e.g. livelihoods linked to NAADS, and microfinance to microfinance institutions, etc) to improve chances of scaling up and to maximize impact.
Management Response: [Added: 2011/12/29] [Last Updated: 2011/12/29]

UNDP has started a programme on Livelihoods and Economic Empowerment that focuses on agricultural productivity, market access, employment and income for youths.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP has started a programme on Livelihoods and Economic Empowerment that focuses on agricultural productivity, market access, employment and income for youths.
[Added: 2012/01/18]
CMR 2010/12 Completed
Inclusion of Livelhoods and Local Economic Growth for Northern Uganda Interventions
[Added: 2012/01/18]
2011/01 Completed
4. Recommendation: An important concern to take into account is that as lands are being opened after lying idle/fallow for many decades, and it is therefore recommended that sustainable land management practices be encouraged to prevent land and water resources degradation and loss of biodiversity.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

Recommendation noted for future project interventions

Key Actions:

5. Recommendation: Vulnerable youth are always a highly relevant target group in post conflict settings. On the one hand they are in many ways affected by the conflict as they might have experienced violence in a young age, have missed education and apprenticeships and are lacking future perspectives. On the other hand particularly young men might have been involved in the conflict as perpetrator and without employment and income perspectives they are still the main target group for rebel army recruitment. So it is mostly important to provide social care, income possibilities and education for this target group (see also SWAY Study). UNDP should use the data of the UNDP funded IOM baseline survey on vulnerable youth for future programs. An integrated approach including not only former combatants is very important. This way stigmatization and tension among ex combatants and other community members will be avoided.
Management Response: [Added: 2011/12/29] [Last Updated: 2011/12/29]

UNDP programme on Livelihoods and Economic Empowerment also also aims to strengthen capacities of local governments for peace building and economic recovery and ensure community dialogue on possible sources of friction in the post-conflict economy.

Key Actions:

6. Recommendation: Another relevant target group in the post conflict context is women. As refugees they experience intense insecurity and are threatened by sexual violence and assault, leading to consequences including HIV infection, pregnancy and other health complications, as well as possible stigmatization from their communities. Furthermore many women are facing economic challenges in conflict settings, as husbands may be away from home, be it temporarily due to displacement or permanently being missed or even killed.. Nevertheless women are not only victims, women?s engagement in peace building is recognized by many international institutions as a crucial element of recovery and is reflected in the UN Security Council Resolution 1325. UNDP should integrate a stronger focus on gender issues and more specifically on gender mainstreaming into the next program.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

REcommendation taken into account in the current programme. There is a stronger focus on Gender mainstreaming .

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Two gender specific projects are being implemented i.e Gender budget project for Northern Uganda for Reconstruction and Recovery
[Added: 2012/01/18]
Focal person for PBF JP 2011/01 Completed
7. Recommendation: 7. Peace building and conflict prevention is still a highly relevant area within the recovery and development process. In general there is a need for programs with a pinpointed and clear concentrated focus on one specific aspect and with a long term perspective. UNDP could select one area and develop a specific expertise in this field. The issue of land conflicts is a big actual problem and offers the opportunity of strengthening local institutions with a very concrete and useful focus leaving the vague zone of ?overall reconciliation?. An advantage is that the research study has already been done and can directly be used for future programming. Moreover it is necessary to cooperate with implementing partners, who have long year experience in this field such as Accord or the Refugee Law Project. Such a program should consider UN Resolution 1325 and integrate a strong focus on women on different levels: Firstly specific needs of women headed households, war widows, formerly abducted girls and their difficulties having access to land. Secondly women should be integrated into local institutions on conflict resolution recognising their high potential and crucial role in peace building and conflict resolution mechanisms.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

Recommendation noted and addressed in other programs including the Peace Building through Justice Joint Programme.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP is working with Refugee Law Project to address issues of mediation and reconciliation. In addition, UNDP is building the capacity of Uganda Human Rights Commission to handle human Rights violation and protection cases including land in Northern Uganda. The programme is specifically targeting youth, women and extremely vulnerable.
[Added: 2012/01/18]
Focal point BPF JP 2011/01 Completed
8. Recommendation: UNDP should mainstream its whole program in a conflict sensitive manner. This means in detail that all programs in all sectors have to be assessed on their potential of rising tensions/conflicts or reducing tensions/conflicts in the communities. The optimal project design has a conflict reducing impact by itself. The ?do no harm approach? is the main proved and tested instrument to implement conflict sensitivity.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

Recommendation noted. The programmes are implemented in a conflict sensitive manner

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP current programmes being implemented in conflict sensitive manner
[Added: 2012/01/18] [Last Updated: 2012/01/26]
CPR and Governance programmes 2013/12 Overdue-Initiated
9. Recommendation: The team recommends a tighter geographic focus to ensure programme resources are used more effectively and efficiently ? cannot spread in all districts. UNDP recovery should focus on Acholi where the return is incomplete and needs are greater. The sub-regions of Teso and Lango are resettled and food security is better.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

Future programmes to take the recommendation into account

Key Actions:

10. Recommendation: UNDP should clarify the role of the sub-offices, particularly in terms of their role overall in implementing the CPAP, including in particular recovery ?related activities
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

Lesson learnt. Role of sub offices under clarification in the transformation plan

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Transformation process to provide more clarity on sub office roles
[Added: 2012/01/18] [Last Updated: 2012/01/26]
2012/03 Overdue-Initiated
11. Recommendation: In terms of implantation modality, many donors currently embed their programs within district structures and staff and advisor placed therein to closely work with local partners rather than setting up parallel structures. It is recommended that for the future UNDP should consider adopting the same practice.
Management Response: [Added: 2011/12/29] [Last Updated: 2012/01/18]

Recommendation noted

Key Actions:

Key Action Responsible DueDate Status Comments Documents
UNDP is working closely with District Local Governments to implement and monitor projects
[Added: 2012/01/18]
2011/01 Completed
12. Recommendation: The team noted the surprising fact that UNDP had not raised significant funding for the CMR, and in fact there was only one donor outside of the UNDP family. Whatever the reason, the mission recommends that the ability of UNDP to raise significant funds to support its operations in northern Uganda must be factored into the design of any new programme.
Management Response: [Added: 2011/12/29] [Last Updated: 2011/12/29]

UNDP has mobilized resources including Japan to support the Northern Uganda Early Recovery Programme and Livelihoods and Economic Recovery projects

Key Actions:

Key Action Responsible DueDate Status Comments Documents
More resources mobilised for other interventions in Norther Uganda
[Added: 2012/01/18]
2011/12 Completed
13. Recommendation: UNDP should adopt joint programming with other UN partners in northern Uganda, because of the reality of shrinking funds, but importantly also because this will strengthen coordination within the UN family and contribute to the UN reform process.
Management Response: [Added: 2011/12/29] [Last Updated: 2011/12/29]

UNDP has partnered with WFP,UNFPA and FAO to Implement the Northern Uganda Early Recovery Programme

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Joint programmes being implemented
[Added: 2012/01/18]
2010/11 Completed

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