Final Evaluation: UN Joint Program on Local Governance and Decentralised Service Delivery in Somalia

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Evaluation Plan:
2011-2017, Somalia
Evaluation Type:
Final Project
Planned End Date:
03/2014
Completion Date:
03/2014
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
20,000

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Title Final Evaluation: UN Joint Program on Local Governance and Decentralised Service Delivery in Somalia
Atlas Project Number: 00058651
Evaluation Plan: 2011-2017, Somalia
Evaluation Type: Final Project
Status: Completed
Completion Date: 03/2014
Planned End Date: 03/2014
Management Response: Yes
Focus Area:
  • 1. Others
Corporate Outcome and Output (UNDP Strategic Plan 2018-2021)
  • 1. Output 3.1. Core functions of government enabled (in post conflict situations) to ensure national ownership of recovery and development processes
Evaluation Budget(US $): 20,000
Source of Funding: Project funds
Joint Programme: No
Joint Evaluation: Yes
  • Joint with UNICEF, ILO, UNHABITAT, UNCDF
Evaluation Team members:
Name Title Nationality
Paul Donnelly
Joseph Bugembe
GEF Evaluation: No
Key Stakeholders: National governments, donors
Countries: SOMALIA
Lessons
Findings
Recommendations
1 Given that the Social Compact Priorities are framed by the five Peacebuilding and State building Goals (PSGs) of the New Deal and represent agreement on what is required to move towards peace and recovery: it is recommended that JPLG consider adopting and making reference to the Social Compact Priority 1 as a key element in its foundation purpose.
2 Monitoring and Evaluation: The recommendations in respect of JPLG 2 Monitoring and Evaluation are: 1. That there a Theory of Change process be engaged at an early date and the results of this reflected in the Programme management and measurement. 2. That the Programme Document, M&E regime and Log Frame be revised to reflect the distinctions between Overall Objective, Outcome and Outputs. 3. That Programme Indicators be reviewed and adjusted if necessary to reflect clarity, linkages, robustness and gender and pro-poor sensitivity. 4. That the Programme managers ensure that the baselines presented provide beginning points that are accurate, measurable, observable or perceptible via proxy indicators; and the sources for which are specified. 5. That annual Milestones and end point Targets are specified and distinguished one from the other. 6. That there be internally managed Annual Reviews instead of external ones. 7. That the Mid-Term Review be timed so that its recommendations can be full incorporated into the Programme delivery. 8. That reports are simpler, more succinct and accessible and firmly based on the Log Frame and assessment of the monitoring indicators contained in it.
3 Knowledge Management: It is recommended that JPLG develop and implement a Knowledge Management strategy as an aid to performance improvement and lessons learning.
4 The recommendations in respect of Capacity Development are that: 1. Training becomes a more integrated element of Capacity Development than it has previously appeared to be. 2. There is a thorough exercise in standards, current capacity and capacity gaps identification undertaken in partnership with Somali counterparts. 3. A formal, assessed and credit accumulated development framework be initiated. 4. There is a planned and progressive transfer of responsibilities and resources to Somali counterpart institutions.
5 BROADENING & DEEPENING JPLG The recommendations in respect of Broadening & Deepening JPLG are that: 1. Ministries be supported in rolling-out the learning form JPLG 2. There the criteria driven process for reducing engagement in selected District should be set within a given timeline 3. That the Programme explores ways of deepening its impact on governance performance and of engaging more obviously with service provision.
6 PROGRAMME MANAGEMENT The recommendations in respect of Programme Management are that: 1. The PMG plays a fuller role in the management of the Programme 2. The Heads of Agency participate in the PMG and that it is chaired by the Resident Coordinator 3. The Senior Programme Manager reports directly to the Resident Coordinator 4. A Deputy to the Senior Programme Manager is appointed 5. There be clarification of the roles, accountabilities and expected commitment to the Programme in respect of JPLG staff in Somalia 6. The JPLG managers should consider making efforts to bring the embedded consultants more into the planning and operation of the Programme 7. Partner Agencies should consider the degree to which they are willing and able to move toward a more integrated model of Programme management.
7 MOVING TOWARDS AN INTEGRATED PROGRAMME PMU Coordinates:
8 Pass-Through Funding
9 Agency Personnel Located in Own Agency
10 Personnel Report To and Are Accountable To Own Agency
1. Recommendation: Given that the Social Compact Priorities are framed by the five Peacebuilding and State building Goals (PSGs) of the New Deal and represent agreement on what is required to move towards peace and recovery: it is recommended that JPLG consider adopting and making reference to the Social Compact Priority 1 as a key element in its foundation purpose.
Management Response: [Added: 2015/09/09]

The second JPLG Programme Document (2013-2017) was developed and approved prior to the existence of the Somali Compact (Brussels Conference, Sep 2013). JPLG interventions are now part of PSG 4 and 5 including Somaliland Special Arrangements. JPLG has developed relations with FGS/MoIFA (Minister level) and agreed it shall inform/coordinate its activities in support of the PSGs while maintaining its specific focus on local governance. It is understood that the current JPLG governance system must remain to allow allocations, planning/budgeting and decision making at local and State levels.

Key Actions:

2. Recommendation: Monitoring and Evaluation: The recommendations in respect of JPLG 2 Monitoring and Evaluation are: 1. That there a Theory of Change process be engaged at an early date and the results of this reflected in the Programme management and measurement. 2. That the Programme Document, M&E regime and Log Frame be revised to reflect the distinctions between Overall Objective, Outcome and Outputs. 3. That Programme Indicators be reviewed and adjusted if necessary to reflect clarity, linkages, robustness and gender and pro-poor sensitivity. 4. That the Programme managers ensure that the baselines presented provide beginning points that are accurate, measurable, observable or perceptible via proxy indicators; and the sources for which are specified. 5. That annual Milestones and end point Targets are specified and distinguished one from the other. 6. That there be internally managed Annual Reviews instead of external ones. 7. That the Mid-Term Review be timed so that its recommendations can be full incorporated into the Programme delivery. 8. That reports are simpler, more succinct and accessible and firmly based on the Log Frame and assessment of the monitoring indicators contained in it.
Management Response: [Added: 2015/09/09]

1. JPLG is currently revising the indicators framework, which will include the ToC. The specific indicators reflecting ToC wil be embedded into the M&E system and programme activities to enable to trace the outcomes. 2. JPLG is currently revising the indicators framework and is developing a holistic M&E plan, including indicators for the Overall Objective, Outcomes and Outputs. 3. As stated above, the M&E specialist with the support of IBTCI is reviewing the indicators framework, adding the definitions, reporting channels and tools. 4. Once the indicators framework is revised and approved, the programme and M&E staff will ensure collection of the baseline values to provide beginning points. The indicators framework will specify what sources and what tools to be used for collection of the baseline. 5. The current milestones as well as final targets are to be revised and specified in accordance to the SMART criteria. 6. Currently the programme is conducting zonal semi-annual reviews led by the programme and national counterparts. It aims to reinforce the government commitment towards the ownership of the programme. 7. The programme will conduct a Mid-term review in 2015. 8. The programme has introduced a new reporting tool, which reflects AWPB. Further discussion has been scheduled with donors to document major requirements towards improving reporting of the programme.

Key Actions:

3. Recommendation: Knowledge Management: It is recommended that JPLG develop and implement a Knowledge Management strategy as an aid to performance improvement and lessons learning.
Management Response: [Added: 2015/09/09]

JPLG AWPs and plans for new districts are designed to take into consideration lessons learnt at operational and programmatic levels. From 2014, KM will be part of the enhanced M&E functions starting with a more systematic approach to report and share processes and human stories. A KM strategy will be developed and implemented by end 2014 with the support of the M&E Specialist and a Communication expert (consultant on LTA). Capacity Development and Institutionalisation of training programmes and tools developed will also be part of an integral Knowledge Management Strategy.

Key Actions:

4. Recommendation: The recommendations in respect of Capacity Development are that: 1. Training becomes a more integrated element of Capacity Development than it has previously appeared to be. 2. There is a thorough exercise in standards, current capacity and capacity gaps identification undertaken in partnership with Somali counterparts. 3. A formal, assessed and credit accumulated development framework be initiated. 4. There is a planned and progressive transfer of responsibilities and resources to Somali counterpart institutions.
Management Response: [Added: 2015/09/09]

In 2013, an OES report on Capacity Development was produced highlighting the importance for JPLG to move from supply to demand. In 2014 an additional study was conducted suggesting opportunities for JPLG to further institutionalize the capacity development/training tools and systems it uses since 2009. As a result, the Joint Programme is considering approaches/options to institutionalise the training programmes developed under JPLG including help Government/s establishing training/capacity development depts./units within appropriate government agencies and possibility of establishing Local Governance institute/s. Discussions are since end of 2013 ongoing with Ministries of Interior. It should also be noted that JPLG is in 2014 piloting a new approach for Government (starting in SLD and PLD) to expand to new districts. This approach places Government in the ?driving seat? encouraging MoI (with the assistance of a ?mature district) to plan, implement (incl. outsource), and monitor the roll of Local Government CD/trainings to new districts. The initiative started in SLD with the District of Seyla

Key Actions:

5. Recommendation: BROADENING & DEEPENING JPLG The recommendations in respect of Broadening & Deepening JPLG are that: 1. Ministries be supported in rolling-out the learning form JPLG 2. There the criteria driven process for reducing engagement in selected District should be set within a given timeline 3. That the Programme explores ways of deepening its impact on governance performance and of engaging more obviously with service provision.
Management Response: [Added: 2015/09/09]

1. JPLG modalities have already since 2010 worked through technical line ministries (i.e. Ministry of Public Works, Ministry of Interior) to deliver the training and capacity building efforts in the districts through Technical Advisers who are deployed to all the target district to mentor and support the districts. MOI has also always been engaged in undertaking capacity assessments and have been engaged in training efforts alongside training service providers in the delivery of elements of the training provided to districts. This will be further expanded. As mentioned above, JPLG is since March 2014 supporting MoI take the lead in planning, executing (incl. outsourcing) and supervising an expansion strategy in SLD and PLD (new districts). JPLG Agencies are closely monitoring the process and will backstop as necessary. 2. Reducing engagement (incl. TA/CD and/or LDF investments) in ?mature districts? is part of JPLG?s plan (from 2015). This will be decided on a case by case basis after an assessment of the district existing capacities, current/anticipated resources, and compliance with JPLG processes is taken. 3. The second phase of JPLG has a strong focus on governance performance (ie: CD targeted at District Dept level, Stronger engagement of non-state actors and communities (social accountability); Development of LED and PPP initiatives; Harmonization of local/central reforms/systems; Greater role of the IMC and Champion; Development of District service delivery indicators, Local Governance Barometer, Implementation of SDM pilots and strengthening of District Social Affairs departments, followed by a roll out strategy, Increased relations with Sectors, Support for the implementation of the Decentralization Road Map, etc.); Strengthening of own source revenue at the district level.

Key Actions:

6. Recommendation: PROGRAMME MANAGEMENT The recommendations in respect of Programme Management are that: 1. The PMG plays a fuller role in the management of the Programme 2. The Heads of Agency participate in the PMG and that it is chaired by the Resident Coordinator 3. The Senior Programme Manager reports directly to the Resident Coordinator 4. A Deputy to the Senior Programme Manager is appointed 5. There be clarification of the roles, accountabilities and expected commitment to the Programme in respect of JPLG staff in Somalia 6. The JPLG managers should consider making efforts to bring the embedded consultants more into the planning and operation of the Programme 7. Partner Agencies should consider the degree to which they are willing and able to move toward a more integrated model of Programme management.
Management Response: [Added: 2015/09/09]

1. PMG members are informed of the need to further engage in JPLG?s oversight and strategic direction and to have a common voice with which they must project in advocacy at the appropriate forums such as the UNCT. The PMG should also work to ensure internal coherence and alignment of their own projects and programmes within their own agencies to the JPLG programming approaches and principles which we don?t currently see. 2. As per the Programme Document, Head of Agencies (or CTAs) are ex officio PMG members (and can only delegate their participation to their Deputies, with delegated authority). Considering the above recommendation for PMG members to play a fuller role in strategic guidance and management of the programme, the JPLG Management team recommends that the PMG meetings should continue to be co-chaired by a HoA (annual rotation) and the SPM. 3. For programmatic reasons (as in the 2011 MTR) the JPLG Management team recommends that the SPM continues to report to the 5 HoAs and that the SPM attends/observes UNCT meetings. ToR of SPM will be revised to accommodate these changes and additional PMU management functions. 4. The JPLG Management team agrees on the following staffing table for PMU (NBO) (priority recruitments *): - SPM (international) - Senior National Programme Specialist (who will also serve as Deputy as recommended by the Evaluation): Vacant * - M&E Specialist (international) - Technical expert on decentralization and capacity development (International): Vacant - Programme and Finance Officer (National): Vacant * - Snr. Programme Assistant (National) - Communication/reporting consultant on LTA) : Vacant* - Note : JPLG needs to recruit a senior national officer to be based in Mogadishu and help coordination with FGS (this post could be filled using the Area manager ?s position which is currently vacant) 5. TWG will discuss accountability lines of JPLG ?staff? based in Somalia with the option of establishing matrix management arrangements (to the Local Area Manager/s) or alternatively, a system for Agency staff to agree on ?JPLG related personal/team annual results?. 6. JPLG will review the use of District and Central Government consultants in view of improving effectiveness and efficiency (ie: roving consultants, pool at central level in support of the Gov led CD strategy, etc). Efforts are underway by UNDP in collaboration with Government to review current consultants embedded with MoI and districts in order to respond to the Government led CD strategy. 7. See below.

Key Actions:

7. Recommendation: MOVING TOWARDS AN INTEGRATED PROGRAMME PMU Coordinates:
Management Response: [Added: 2015/09/09]

Note: As a Joint-Programme, the PMU?s role is mainly to provide strategic coordination amongst UN partner Agencies, Donors and Government/s. As it is, the Unit has limited authority to take management decisions. Decisions in relation to planning, budgeting, implementation and HR are mainly taken by consensus. Since 2013, PMU is aiming at introducing more rigorous planning and budgeting concepts for the formulation and monitoring of AWPBs. Moving forward, the JPLG Management team agrees that PMU should have additional management functions, including clear budget management and budget control role to oversee allocations to partner agencies; revise allocations on an expenditure need basis; set annual programmatic targets (according the log frame); approve staffing tables; monitor and report.

Key Actions:

8. Recommendation: Pass-Through Funding
Management Response: [Added: 2015/09/09]

A feasibility study will need to be commissioned to assess the relevance, added value and implications if a Pool Funded system is introduced for JPLG.

Key Actions:

9. Recommendation: Agency Personnel Located in Own Agency
Management Response: [Added: 2015/09/09]

In Somalia (JPLG has offices in Mogadishu, Garowe and Hargeisa), bringing all JPLG ?staff? under one roof depends on individual Agency security and administrative requirements. In Nairobi, JPLG expects to find a building/floor in UNON to accommodate PMU and JPLG Agency staffs who wish to move permanently or on a need/mission basis.

Key Actions:

10. Recommendation: Personnel Report To and Are Accountable To Own Agency
Management Response: [Added: 2015/09/09]

Since 2008, the Programme Document indicates that Project Managers are supervised under a ?matrix management? (ie: Agencies + JPLG Snr Prog. Manager). This modality is not systematically implemented across all Agencies and will be rectified by PMG decision. (ie: SPM will be added as secondary supervisor).

Key Actions:

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