Mid-Term Evaluation of the Programme for Promotion of Womens and Children's Rights (PPWCR)

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Evaluation Plan:
2011-2015, Zambia
Evaluation Type:
Mid Term Project
Planned End Date:
12/2014
Completion Date:
11/2014
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
40,000

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Title Mid-Term Evaluation of the Programme for Promotion of Womens and Children's Rights (PPWCR)
Atlas Project Number: 00085943
Evaluation Plan: 2011-2015, Zambia
Evaluation Type: Mid Term Project
Status: Completed
Completion Date: 11/2014
Planned End Date: 12/2014
Management Response: Yes
Focus Area:
  • 1. Others
Corporate Outcome and Output (UNDP Strategic Plan 2014-2017)
  • 1. Output 4.1. Country led measures accelerated to advance women's economic empowerment
Evaluation Budget(US $): 40,000
Source of Funding: DFID
Joint Programme: No
Joint Evaluation: Yes
  • Joint with DFID
Evaluation Team members:
Name Title Email Nationality
Kathleen Ann Attawel Ms attawell@btinternet.com
GEF Evaluation: No
Key Stakeholders: Ministry of Gender and Child Development; Priority Line Ministries, Civil Society organizations and Other Cooperating Partners
Countries: ZAMBIA
Comments: Joint evaluation co-commision with DFID and completed in November 2014
Lessons
Findings
Recommendations
1 Evaluation Recommendation or Issue 1:The Ministry of Gender and Child Development (MGCD) should review existing coordination structures, identify priorities and allocate responsibility to staff for ensuring that committees and working groups meet regularly. Such structures do not all need to be permanent; in some cases it may be more appropriate to establish short-term task forces to take forward specific strategies and activities.
2 Evaluation Recommendation or Issue 2:The MGCD should ensure that GFPs who are new to the role receive adequate orientation, training and support to enable them to fulfill their responsibilities, and that GFPs meet on a regular basis to plan activities and review progress.
3 Evaluation Recommendation or Issue 3:The MGCD, together with CSO, should develop and implement a strategy to ensure more complete reporting of data, including support to line ministries and other institutions for collection of disaggregated data.
4 Evaluation Recommendation or Issue 4:The next M&E plan should be based on a clear results chain and linked to plans to introduce a results-based management system as well as to reflect the revised National Gender Policy. The MGCD should use the opportunity provided by Treasury approval of plans to recruit additional staff to ensure that the M&E function is fully staffed.
5 Evaluation Recommendation or Issue 5:The MGCD and MOF need to work together to develop clear, practical guidelines for line ministries on how to do gender-responsive planning and budgeting, and to ensure that gender is addressed in MOF guidelines for output-based budgeting and the draft bill.
6 Evaluation Recommendation or Issue 6:MGCD should conduct a gender audit of the MOF; involvement of the Bank of Zambia, which has conducted its own internal gender audit, and provide targeted orientation in gender analysis and gender mainstreaming for Directors of the 14 departments in MOF including taking forward plans for joint analysis of the 2015 budget.
7 Evaluation Recommendation or Issue 7: The MGCD needs to give higher priority to provision of tailored support to line ministries for gender mainstreaming, by increasing its capacity and responsiveness. It also needs to come to a reasonable arrangement for covering costs. Costs could be minimised by conducting training using MGCD staff and in ministry premises. MGCD could take the lead in coordination of partners that are providing gender training and ensuring that training content and approach is of an acceptable quality
8 Evaluation Recommendation or Issue 8:The MGCD will need to take concerted action to ensure that, once the Gender Equality Bill has passed into law, it is implemented and enforced; a similar approach will be needed to that taken to implementation of the Anti-GBV Act. Steps will also need to be taken to ensure that it is reflected in the Constitution and in other legislation.
9 Evaluation Recommendation or Issue 9:The MGCD should share the framework and plan for piloting fast track courts with DFID. The MGCD needs to ensure that there is a robust design for evaluating the fast track courts to assess the effectiveness and costs of this approach
10 Evaluation Recommendation or Issue 10:The MGCD is developing a strategy to take forward the recommendations of the 2013 audit. Priority should be given to improving public awareness; working with the Ministry of Lands to orient staff, change requirements and improve record keeping; engaging with stakeholders who are working to increase women?s access to land and financial services; and coordinated action to ensure the Lands Act reflects the revised National Gender Policy.
11 Evaluation Recommendation or Issue 11:Develop a communication strategy that underpins a sustained campaign on priority issues ? for example, to promote awareness of the Gender Equality Bill, the directive on women?s access to land, and participation of women in politics. Messages also need to move beyond the general to be more informative and action-oriented.
12 Evaluation Recommendation or Issue 12:The MGCD needs to finalise the Count Her In campaign strategy, including identifying clear timeframes and roles and responsibilities for different partners in delivering the strategy, and ensure that there are regular meetings of all partners to coordinate activities and review progress.
13 Evaluation Recommendation or Issue 13:The MGCD should allocate responsibility for delivering specific PPPWCR outputs to departmental directors and staff and ensure that they are held accountable; this should be reflected in job descriptions and the performance management system.
14 Evaluation Recommendation or Issue 14:Review the role of the PITC. Consider renaming the committee to reflect a more strategic function and expanding its remit to cover other donor-funded programmes to improve cross-programme coordination.
15 Evaluation Recommendation or Issue 15:In addition to DFID, UNDP and the MGCD senior management team, the mid-term evaluation report should be shared with government stakeholders including Cabinet Secretary and Committee of Permanent Secretaries, Central Statistical Office, GFPs in line ministries, national and provincial MGCD staff. The report?s findings and recommendations should be discussed by the PITC and a plan developed for implementing agreed recommendations.
1. Recommendation: Evaluation Recommendation or Issue 1:The Ministry of Gender and Child Development (MGCD) should review existing coordination structures, identify priorities and allocate responsibility to staff for ensuring that committees and working groups meet regularly. Such structures do not all need to be permanent; in some cases it may be more appropriate to establish short-term task forces to take forward specific strategies and activities.
Management Response: [Added: 2016/01/05]

The MGCD has primarily focus on strengthening these coordination structures through the project and in addition to the lower level structures (Provincial and District Gender Committees) will establish a committee of permanent secretaries to strengthen the coordination of the Ministry of Genders work with other line ministries.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
1.1. Establish a committee of permanent secretaries of the Ministry of Gender and Other Line Ministries to coordinate the implementation of the Gender Policy and implementation of policy actions and programmes/projects.
[Added: 2016/01/05]
MGCD 2015/02 Completed A functional committee of Permanent Secretaries was established in Q1 of 2015.
2. Recommendation: Evaluation Recommendation or Issue 2:The MGCD should ensure that GFPs who are new to the role receive adequate orientation, training and support to enable them to fulfill their responsibilities, and that GFPs meet on a regular basis to plan activities and review progress.
Management Response: [Added: 2016/01/05]

The MGCD has developed learning materials including an e-learning course on gender mainstreaming which has been adopted by the line ministries and will be used to provide a standardized training programme for government staff and GFPs with certification. This will also be followed by period refresher courses.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
2.1. Develop standard training materials including an e-learning course with certification for government staff and GFPs.
[Added: 2016/01/05]
MGCD 2015/07 Completed The training materials and e-learning Programme developed with NIPA.
3. Recommendation: Evaluation Recommendation or Issue 3:The MGCD, together with CSO, should develop and implement a strategy to ensure more complete reporting of data, including support to line ministries and other institutions for collection of disaggregated data.
Management Response: [Added: 2016/01/05]

The MGCD has been supported to develop a strategy for engendering national statistics which also includes gender disaggregation of data. The implementation of the strategy is expected to begin with future studies from 2016 taking into account the additional cost of the need to disaggregate data. However, reporting is being strengthened through ensuring accountability of line ministries and GFPs through the Committee of Permanent Secretaries. The MGCD also helps line ministries to report through the implementation of Gender Audit recommendations.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
3.1 Develop and implement a strategy for collecting and reporting gender disaggregated data.
[Added: 2016/01/05]
MGCD, CSO and Line Ministries 2015/07 Completed The MGCD has worked with CSO to develop a strategy for engendering national statistics but implementation is yet to commence.
4. Recommendation: Evaluation Recommendation or Issue 4:The next M&E plan should be based on a clear results chain and linked to plans to introduce a results-based management system as well as to reflect the revised National Gender Policy. The MGCD should use the opportunity provided by Treasury approval of plans to recruit additional staff to ensure that the M&E function is fully staffed.
Management Response: [Added: 2016/01/05]

The 2011-2015 M&E Plan has been critical in strengthening the reporting in the Ministry as well as increasing capacity to generate a localized Africa Gender Development Index (AGDI) equivalent. With the new policy in place and also taking into account the progress in the response to GBV, the M&E Plan for the Ministry will be revised.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
4.1 Revised the National Gender M&E Plan to take into account the changes in the New Gender Policy and the advancements in the response to GBV with new laws and systems having put in place.
[Added: 2016/01/05] [Last Updated: 2017/11/01]
MGCD 2015/09 Completed The National Gender Policy was revised with the support of the project History
5. Recommendation: Evaluation Recommendation or Issue 5:The MGCD and MOF need to work together to develop clear, practical guidelines for line ministries on how to do gender-responsive planning and budgeting, and to ensure that gender is addressed in MOF guidelines for output-based budgeting and the draft bill.
Management Response: [Added: 2016/01/05]

The MOF and the MGCD have developed tools and guidelines for line ministries to use during the national budgeting process for gender responsive planning and budgeting. The tools are in use in some ministries but a training needs to be conducted for a standardized and harmonized approach. These tools have been used during the development of the sector contributions to the Seventh National Development Plan.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
5.1 Develop tools and guidelines for lines ministries to use to develop gender responsive plans and budgets
[Added: 2016/01/05]
MGCD and Ministry of Finance 2015/02 Completed The tools and guidelines have been developed and some line ministries have used them in the 2015-2016 budgeting process and in developing their contributions to the Seventh National Development Plan.
6. Recommendation: Evaluation Recommendation or Issue 6:MGCD should conduct a gender audit of the MOF; involvement of the Bank of Zambia, which has conducted its own internal gender audit, and provide targeted orientation in gender analysis and gender mainstreaming for Directors of the 14 departments in MOF including taking forward plans for joint analysis of the 2015 budget.
Management Response: [Added: 2016/01/05]

The Ministry of Finance has commenced plans for a gender audit but the Ministry has been split into the Ministry of Finance and the Ministry of National Development Planning. A review of the realignment of the departments will be under taken and then a Gender Audit that takes these changes into account will be undertaken. The review will also inform how the MGCD will work with the Ministries of Finance and National Planning on engendering budgets and plans.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
6.1 Conduct a Gender Audit for the Ministries of Finance and National Development Planning.
[Added: 2016/01/05] [Last Updated: 2017/11/01]
MGCD and BoZ 2016/12 No Longer Applicable [Justification: The Audit was not done to limited resources at the Ministry of Gender. The Ministry was trained in gender responsive budgeting and planning]
The timeline for the gender audit will also depend on the rate at which these ministries are established to perform their functions effectively. The Ministry also underwent reforms and was split into Ministry of Finance and Ministry of National Development Planning History
7. Recommendation: Evaluation Recommendation or Issue 7: The MGCD needs to give higher priority to provision of tailored support to line ministries for gender mainstreaming, by increasing its capacity and responsiveness. It also needs to come to a reasonable arrangement for covering costs. Costs could be minimised by conducting training using MGCD staff and in ministry premises. MGCD could take the lead in coordination of partners that are providing gender training and ensuring that training content and approach is of an acceptable quality
Management Response: [Added: 2016/01/05]

The MGCD has been conducting trainings for line Ministries but it has been observed that there is need for increasing its capacity to be able to perform its coordination and training functions effectively. The Ministry has also trained Trainer of Trainers in many organizations including CSOs and all these avenues need to be brought together into an efficient and effective training programme. The development of the e-learning programme on Gender mainstreaming with the National Institute of Public Administration (NIPA) is aimed at providing a long term, structured and low cost training programme.

Key Actions:

8. Recommendation: Evaluation Recommendation or Issue 8:The MGCD will need to take concerted action to ensure that, once the Gender Equality Bill has passed into law, it is implemented and enforced; a similar approach will be needed to that taken to implementation of the Anti-GBV Act. Steps will also need to be taken to ensure that it is reflected in the Constitution and in other legislation.
Management Response: [Added: 2016/01/05] [Last Updated: 2016/01/05]

The Gender equality bill has passed second reading in parliament. Once passed into law by parliament, The Bill will establish the Gender Equity and Equality Commission and provide for its functions and powers; It will provide for measures in all spheres of life to ensure gender equity, equality and integration of both sexes in society; It will prohibit harassment, victimization and harmful social, cultural and religious practices; It will provide for the elimination of all forms of discrimination against women, empower women and achieve gender equity and equality by giving effect to the Convention on the Elimination of all Forms of Discrimination against Women, the Protocol to the African Charter on Human and People?s Rights on the Rights of Women in Africa and the SADC Protocol on Gender and Development.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
8.1 Develop an implementation plan for Gender Equality Bill once it has been passed into law in parliament.
[Added: 2016/01/05] [Last Updated: 2017/11/01]
MGCD 2016/12 Completed The Government Enacted the Gender Equity and Equality Bill into law in 2015 History
9. Recommendation: Evaluation Recommendation or Issue 9:The MGCD should share the framework and plan for piloting fast track courts with DFID. The MGCD needs to ensure that there is a robust design for evaluating the fast track courts to assess the effectiveness and costs of this approach
Management Response: [Added: 2016/01/05] [Last Updated: 2016/01/05]

The MGCD is expected to launch the GBV fast track courts in 2016 and it will design a robust monitoring and evaluation framework to assess the cost and effectiveness of the approach. This support is however provided under the Swedish and Irish funded UN Joint Programme on GBV.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
9.1 Design a robust monitoring and evaluation framework to assess the cost and effectiveness of GBV fast track courts.
[Added: 2016/01/05] [Last Updated: 2017/11/01]
MGCD 2016/03 Completed UNDP and Government implemented a robust monitoring plan for the two pilot fast track including an evaluation in 2017 which have led to the scale up of courts with Four (4) new courts being established in 2017. History
10. Recommendation: Evaluation Recommendation or Issue 10:The MGCD is developing a strategy to take forward the recommendations of the 2013 audit. Priority should be given to improving public awareness; working with the Ministry of Lands to orient staff, change requirements and improve record keeping; engaging with stakeholders who are working to increase women?s access to land and financial services; and coordinated action to ensure the Lands Act reflects the revised National Gender Policy.
Management Response: [Added: 2016/01/05]

The MGCD has conducted a gendered assessment of access and ownership of land which identifies a range of barriers that disproportionately prevent women from accessing newly allocated state land, including lack of awareness as well as financial and bureaucratic requirements. The assessment also identifies actions required to address these barriers, including improving awareness of women and local government officials, increasing women?s representation in structures responsible for land allocation and changing requirements for application. The MGCD has held discussions with the Ministry of Lands for the implementation of these actions.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
10.1 Develop an implementation plan for the recommendation of the gendered assessment of access and ownership of land by women, and ensure that the revised lands act takes into account the changes in the revised National Gender Policy.
[Added: 2016/01/05] [Last Updated: 2017/11/01]
MGCD and Ministry of Lands, Natural Resources and Environmental Protection (MLNREP) 2016/03 Completed The discussion between the MGCD and the MLNREP has resulted in a decision by the Ministry of Lands to increase the allocation of land that was reserved for women from 30% to 40%. The assessment has been undertaken and was completed in Q2 of 2017. History
11. Recommendation: Evaluation Recommendation or Issue 11:Develop a communication strategy that underpins a sustained campaign on priority issues ? for example, to promote awareness of the Gender Equality Bill, the directive on women?s access to land, and participation of women in politics. Messages also need to move beyond the general to be more informative and action-oriented.
Management Response: [Added: 2016/01/05]

The MGCD revised its communication strategy in 2015 to take into account the dimensions mentioned above.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
11.1 Develop a communication strategy that underpins a sustained campaign on priority issues ? for example, to promote awareness of the Gender Equality Bill, the directive on women?s access to land, and participation of women in politics, including plans for training journalists and community approaches.
[Added: 2016/01/05]
MGCD 2015/12 Completed The strategy was revised in 2015.
12. Recommendation: Evaluation Recommendation or Issue 12:The MGCD needs to finalise the Count Her In campaign strategy, including identifying clear timeframes and roles and responsibilities for different partners in delivering the strategy, and ensure that there are regular meetings of all partners to coordinate activities and review progress.
Management Response: [Added: 2016/01/05]

The MGCD working together with the National Women?s Lobby Group, Women in Law in Southern Africa, the FODEP, and Zambian Women in Media, as well as representatives from five political parties launched the 2016 Count Her in Campaign Strategy. This Strategy is a multi-sectoral campaign by the women?s movement aimed at mobilizing women and resources for the 2016 Tripartite Elections. Its aim is to have at least 50 percent representation of female candidates that successfully contest in the 2016 Tripartite Election and ensure that at least 30 percent women occupy elective positions in the post-2016 Tripartite Elections. This will be done by implementing a robust mobilization, communication and advocacy programme.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
12.1 Finalise the Count Her In campaign strategy, including identifying clear timeframes and roles and responsibilities for different partners in delivering the strategy
[Added: 2016/01/05]
MGCD, CSOs and Political Parties 2015/07 Completed The strategy was finalized and launched in 2015.
13. Recommendation: Evaluation Recommendation or Issue 13:The MGCD should allocate responsibility for delivering specific PPPWCR outputs to departmental directors and staff and ensure that they are held accountable; this should be reflected in job descriptions and the performance management system.
Management Response: [Added: 2016/01/05]

The PPPWCR is implemented by the Department of Economics and Women Empowerment although some of the project activities are led by different departments that are technically competent to lead on the issues. The project also implements Government programmes which are already within the scope of the functions performed. The main challenge is to ensure adequate financing by Government to enrich, sustain or scale up activities initiated or piloted with project funds.

Key Actions:

14. Recommendation: Evaluation Recommendation or Issue 14:Review the role of the PITC. Consider renaming the committee to reflect a more strategic function and expanding its remit to cover other donor-funded programmes to improve cross-programme coordination.
Management Response: [Added: 2016/01/05]

The Project Implementation Technical Committee (PITC) has been established to focus on the technical issues around the implementation progress of the project. The high level oversight issues are discussed in the steering committee meeting which comprises Permanent Secretaries of MGCD and Other Line Ministries as well Senior UNDP Officials. Discussions that involve donors are normally addressed through the Cooperating Partners Group on Gender.

Key Actions:

15. Recommendation: Evaluation Recommendation or Issue 15:In addition to DFID, UNDP and the MGCD senior management team, the mid-term evaluation report should be shared with government stakeholders including Cabinet Secretary and Committee of Permanent Secretaries, Central Statistical Office, GFPs in line ministries, national and provincial MGCD staff. The report?s findings and recommendations should be discussed by the PITC and a plan developed for implementing agreed recommendations.
Management Response: [Added: 2016/01/05]

The findings of the report were discussed during the validation meetings and after the final report was produced, it was circulated to all stakeholders and UNDP also posted it on the Evaluation Resource Centre. The management response was developed for strategic issues while the comprehensive list of recommendations was discussed in PITC and followed up during review meetings.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
15.1 Develop and continuously monitor the implementation plan (management response) for evaluation recommendations.
[Added: 2016/01/05]
MGCD and UNDP No due date No deadline established The management response was developed for key strategic issues given the huge number of recommendations. In the management response, some recommendations were consolidated if noted to be addressing a similar or related issue.

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