Final Evaluation of the programme for the Promotion and Protection of Women and Childrens rights in Zambia.

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Evaluation Plan:
2016-2021, Zambia
Evaluation Type:
Final Project
Planned End Date:
02/2018
Completion Date:
02/2020
Status:
Completed
Management Response:
Yes
Evaluation Budget(US $):
50,000

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Title Final Evaluation of the programme for the Promotion and Protection of Women and Childrens rights in Zambia.
Atlas Project Number: 00072981
Evaluation Plan: 2016-2021, Zambia
Evaluation Type: Final Project
Status: Completed
Completion Date: 02/2020
Planned End Date: 02/2018
Management Response: Yes
Focus Area:
  • 1. Democratic Governance
  • 2. Others
Corporate Outcome and Output (UNDP Strategic Plan 2014-2017)
  • 1. Output 2.3 Capacities of human rights institutions strengthened
SDG Goal
  • Goal 5. Achieve gender equality and empower all women and girls
SDG Target
  • 5.5 Ensure women’s full and effective participation and equal opportunities for leadership at all levels of decision-making in political, economic and public life
Evaluation Budget(US $): 50,000
Source of Funding: Project Budget, Donor
Evaluation Expenditure(US $): 6,000
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
MPALA NKONKOMALIMBA Miss mpalankonko@yahoo.co.uk
GEF Evaluation: No
Key Stakeholders: Ministry of Gender; Priority Line Ministries, Civil Society Organizations and Other Cooperating Partners
Countries: ZAMBIA
Comments:

This project is scheduled to come to an end in December 2017. The Unit discussed with the Donor  and it was agreed that the evaluation would be conducted after completion of activities in September 2017. Due to some delays in the completion of activities, some continued to be implemented into October and November 2017. The TORs have been developed awaiting validation and agreement by stakeholder.

Lessons
1.
  1. For the programme to be successful, there was need to have unwavering commitment from the Ministry to execute the programme. This is both in terms of staffing as well as in terms of having functional oversight mechanisms in place.
  2. The absence of professionally trained gender expertise within the Ministry adversely affected its capacity to maintain high levels of commitment and passion needed to successfully implement the programme.
  3. The commitment of the Permanent Secretary in leading the coordination and accountability system is key if the Ministry is going to ensure supervision of lower level coordination mechanisms even within the other Ministries. The fact that the PSs were not meeting affected the oversight of the Ministry of Gender.
  4. In relation to the issue above, the high turn-over at the controlling officer level impacted on the capacity of the Ministry to coordinate the interventions with other partners such as the Ministry of Justice, Ministry of Chiefs and the Ministry of Lands. Between 2015 and 2019 for instance, the Ministry has had four PSs in place.
  5. The overall executing structure of the Programme had too many layers to do with approvals and final disbursement of funds. This tended to delay implementation and was frustrating for those trying to implement the programme.
  6. There was need to review and strengthen the administrative structures and systems at the Ministry of Gender to support programme implementation. There was a lot of going back and forth between the MOG and the funding institution and this was mainly because of the administrative structures and systems within the Ministry.
  7. Despite being the coordinating Ministry, a lot of the staff within the MoG do not see gender as a core mandate of all Ministries. This impacts on their capacities to influence and support the work of those staff in other Ministries.

Findings
1.

4.1     The overall design of the programme – key observations

The overall approach: The overall approach used by the programme was results based with a clear focus on results as evidenced by the consistent use of the logical framework on which workplans were set. The project document followed clear logic through its development and it is clear from the interviews with the Ministry of Gender and UNDP that there were attempts made to ensure that the Ministry did not digress from this logic. It is further noted that in 2016, the Child Development was transferred to the Ministry of Sport, Youth and Child Development (MoSYCD) and the Ministry was renamed the Ministry of Gender (MoG). With this change, the Ministry refocussed the logical framework to again indicate this change and also reflect the realistic expectations given the changes.                     

The theory of change: Theory of change’ is an outcomes-based approach which applies critical thinking to the design, implementation and evaluation of initiatives and programmes intended to support change in their contexts. A Theory of change (ToC) is an on-going process of reflection to explore change and how it happens and what that means for the part we play in a particular context, sector and/or group of people. A clear theory of change that indicates the changes that the Ministry and the partners were planning to see was well elaborated in the project document and in the final development of the programme logical framework.

The identification of outputs and corresponding indicators: An output by definition is something that a programme should be able to guarantee at the end of its lifespan. It is noted that one output in the final logical framework was outside of the control of the Ministry and should have been placed at the higher outcome level. Specifically Output 2: Priority line ministries implement gender-responsive policies, planning and budgeting. The Ministry did not have direct control over priority Ministries implementation of gender responsive policies, planning and budgeting and this should have therefore been placed at the higher outcome level and monitored there.

Identification of baseline data and milestones: Although no M&E system was actually developed to monitor the programme, the programme did develop clear milestones against which reporting was then done.

The monitoring of assumptions: Critical assumptions were developed as part of the project document but in the absence of a monitoring framework, there is no indication that these were monitored and learning taken from results documented.


2.

4.2     Relevance of the project

The criteria relevance assesses the extent to which the programme implemented was suited to the priorities and policies of the country as a whole. It is clear from the interviews held that the programme was relevant at the start and continued to be relevant throughout its implementation. The programme by design was in line with the various national legislation and guidelines that clearly outline the country’s commitment to promoting gender equality and inclusiveness as a whole as well as the United Nations Development Framework for the Country. It is specifically also noted that by design, the Programme worked to coordinate between various stakeholders in ensuring that the commitments were upheld.  

4.3     Effectiveness of the programme – Achievement of impacts and outcomes

For purposes of this evaluation, effectiveness denotes the measure of the extent to which the Ministry of Gender has been able to attain the planned results. This section of the report documents the results from impact to output level, specifically narrating changes against the identified indicators.

The first issue to note is that the programme interventions were mainly implementation in 2013 and 2014 because in 2015 and 2016 there was very little implemented and the programme ended in December 2017. Ultimately therefore the five year programme was really implemented in just over three years and the interventions conducted in 2017 were described as having been rushed.


Recommendations
1

Programme planning within the Ministry

  1. To the greatest extent possible, there is need to ensure that when the Ministry is implementing programmes, these should have synergies built between them but not have outputs and outcomes that are so similar it becomes difficult to know what impacts and outcomes to attribute to which programme
  2. The Ministry of Gender needs to finalise the development of the M&E system and components of any new programmes should then be integrated into this Ministerial M&E system. This will include the development of capacity development data base that should capture who gets trained. The development of the Monitoring system should enable the Ministry to monitor key indicators not only in relation to the Sustainable Development Goals but also indicators set nationally that will capture changes even within identified Ministries.
  3. Related to the monitoring system is the need to have a system of consistent monitoring of people that have been trained. This would entail the development of strategic action plans by each institution and the monitoring of the implementation of this action plan by the staff. The action plans should include for example only three to five critical actions to be undertaken by the staff/institution trained with one to two indicators of success and it is these indicators that should be captured by the monitoring system in MoG and monitored.
2

Programme management and coordination

2.1: Ministry of Gender should have an accountability commitment in writing and signed by the Permanent Secretary to ensure that PITC meetings are held and disbursement of funds to activities for the next quarter should be based on proof that the PITC committee meeting of the previous quarter had been held.

3

Capacity development of staff within the MoG

3.1; Capacity development of staff within the Ministry needs to be ongoing and embedded in the strategic plan of the Ministry as opposed to being a component of a programme. Integration of capacity development interventions into mainstream Ministry activities is something that should be considered at the start of the implementation programme with the aim being to have them in the Ministerial plan and budget by the end of the programme

3.2: The staffing levels of the Ministry need to be improved with the hiring of professionals well versed in gender mainstreaming and that have commitment and passion to follow through on tasks.

4

Capacity development of staff within the different Ministries

4.1: Particularly with regard to capacity development of Ministers, there is need to ensure that this training is planned to take place at the start of their tenure of office and not at the end and before elections. This will ensure that those trained are actually available

4.2: There is need to build on the programme that ended and particularly build on the capacity interventions started with the different Ministries. This should be done in a phased manner with a maximum of three Ministries targeted and an accountability system through which they can be monitored developed.

5

Resource mobilisation for the Ministry

5.1: Being a coordinating Ministry, there is need to have a platform through which the Ministry can consistently lobby Government for resources to sustain interventions started. This includes sustaining steering and accountability mechanisms as well as integrating both internal and external capacity development as part of the Ministry’s core mandate.

6

 Engagement with partners

6.1: Engagement with the Ministries was planned for through the establishment and functioning of the Permanent Secretaries Committee, this needs to be re-established and made functional as a core coordination function. Its running and sustenance should not be based on a programme but also made a part of the core functions of the Ministry. In addition, the various gender sub-committees in the key Ministries need to be restarted and the ones that are still running acknowledged.

6.2: With regard to NGOs engagement, there is need to strengthen the functionality of the NGO Forum by ensuring that it is meeting on a regular basis and by ensuring that within it is a mechanism for reaching out and getting the view of all NGOs including small ones in districts outside of Lusaka.

6.3:  There is further need to engage the private sector through the establishment of a strategy formulated with their participation. This would include further exploring how best the learning from Panama on the Seal Certification Programme can best be replicated here in Zambia. The Ministry has developed a strategy for the implementation of the Gender Equality Seal Certification Programme. Resources need to be mobilised for the implementation of this programme.

6.4:  Part of ensuring the engagement of the different stakeholders it is recommended that the MoG be consistent in production of key gender related documents:

a.          The production of the gender status reports, on which the stakeholders are dependent for information. It is therefore recommended that production of these are not programme related but made a core component of the MoG’s annual budget.

b.         The consistent production of reports as required under the various Conventions and Protocols. As the MoG itself shows accountability at international level, the relevance and importance of all other stakeholders themselves being accountable will become clear.

6.5:       It is also recommended that the Ministry have scheduled meetings with the various stakeholders (Gender Forum) on a quarterly or bi-annual basis. These should be planned as platforms where learning and sharing can take place on issues around what each of the stakeholders is undertaking and areas in which they would want the MoG to step in given their coordinating and advocacy role.

6.6:       Engagement with political parties was to have been done under the Count Her in Strategy, it is recommended that efforts are made to start to implement this strategy well before the 2021 elections starting with the engagement again of the political parties and the development of a system through which the political parties can be held accountable for commitments they make to Government on adoption and final election of women in their parties. .

7

Advocacy on key gender issues:

7.1: The MoG should consider having advocacy interventions targeting Government Ministries, as a key part of any planned programmes and interventions. This role should be played alongside the role of coordination and development of policy briefs on different issues affecting the promotion of gender equality and consistent presentation of position papers to Cabinet, Permanent Secretaries and to most importantly to Parliament

Management Response Documents
1. Recommendation:

Programme planning within the Ministry

  1. To the greatest extent possible, there is need to ensure that when the Ministry is implementing programmes, these should have synergies built between them but not have outputs and outcomes that are so similar it becomes difficult to know what impacts and outcomes to attribute to which programme
  2. The Ministry of Gender needs to finalise the development of the M&E system and components of any new programmes should then be integrated into this Ministerial M&E system. This will include the development of capacity development data base that should capture who gets trained. The development of the Monitoring system should enable the Ministry to monitor key indicators not only in relation to the Sustainable Development Goals but also indicators set nationally that will capture changes even within identified Ministries.
  3. Related to the monitoring system is the need to have a system of consistent monitoring of people that have been trained. This would entail the development of strategic action plans by each institution and the monitoring of the implementation of this action plan by the staff. The action plans should include for example only three to five critical actions to be undertaken by the staff/institution trained with one to two indicators of success and it is these indicators that should be captured by the monitoring system in MoG and monitored.
Management Response: [Added: 2020/07/15]

The Ministry will endeavour to implement the recommendation with futher projects/ programmes.  The Ministry of Gender has developed the National Gender Monitoring and Evaluation Framework (NGMEF) but is yet to fully operationalise it. Further, the National Gender Management Information System to operationalise the M&E framework is yet to be developed.  MoG has requested UNDP who is chair for the Cooperating Partners Group on Gender to coordinate support to finalise work on the development and operationalisation of the M&E system

Key Actions:

Key Action Responsible DueDate Status Comments Documents
1.2.1 Development of capacity development data base that should capture who gets trained.
[Added: 2020/07/15]
MoG 2021/12 Initiated The data base to capture capacity development will be part of the M&E system database
1.3 Develop a training plan with a tracking tool.
[Added: 2020/07/15] [Last Updated: 2020/08/30]
Ministry of Gender Planning Depart 2021/12 Initiated A meeting with Cooperating Partners was initiated on the coordination of the development and implementation of the training plan History
1.2 Finalise the development of the M&E system
[Added: 2020/07/15]
MoG Planning Department 2021/12 Not Initiated The Ministry of Gender has developed the National Gender Monitoring and Evaluation Framework (NGMEF) but is yet to fully operationalise it. Further, the National Gender Management Information System to operationalise the M&E framework is yet to be developed. The work to finalise the development of the M&E system commences this year and intended to be finalised in 2021. MoG will request UNDP who is chair for the Cooperating Partners Group on Gender to coordinate support to finalise work on the development and operationalisation of the M&E system
2. Recommendation:

Programme management and coordination

2.1: Ministry of Gender should have an accountability commitment in writing and signed by the Permanent Secretary to ensure that PITC meetings are held and disbursement of funds to activities for the next quarter should be based on proof that the PITC committee meeting of the previous quarter had been held.

Management Response: [Added: 2020/07/15]

This is noted. The action will be applied to future project implemented by the Ministry of Gender

Key Actions:

Key Action Responsible DueDate Status Comments Documents
MoG to engage implementing partners and responsible partners on importance of attending PITC meetings
[Added: 2020/07/15] [Last Updated: 2020/08/30]
Ministry of Gender Permanent Secretary 2020/08 Completed Stakeholder meetings with implementing partners were held on the importance of attending PITC meetings have been held. Following the engagements Implementing partners have since been consistent in attending PITC meeting where are held Monthly History
2.2: MoG coordinating GBV II and will use this opportunity to make the PITC functional, and in the process hold partners accountable to attend PITC meetings
[Added: 2020/07/15] [Last Updated: 2020/08/30]
Ministry of Gender Permanent Secretary 2020/08 Completed PITC has been resharpened on the GBV II project . PITC meeting are now held consistently every month with the participation of all implementing and responsible partners History
3. Recommendation:

Capacity development of staff within the MoG

3.1; Capacity development of staff within the Ministry needs to be ongoing and embedded in the strategic plan of the Ministry as opposed to being a component of a programme. Integration of capacity development interventions into mainstream Ministry activities is something that should be considered at the start of the implementation programme with the aim being to have them in the Ministerial plan and budget by the end of the programme

3.2: The staffing levels of the Ministry need to be improved with the hiring of professionals well versed in gender mainstreaming and that have commitment and passion to follow through on tasks.

Management Response: [Added: 2020/07/15]

The capacity development been embedded into the Ministry of Gender Strategic Plan, but the training plan has not yet been developed. MoG has written to Secretary to Treasury to provide authority to employ according to approved structure.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Develop a Training Plan (TP)
[Added: 2020/07/15] [Last Updated: 2020/08/30]
Ministry of Gender - HRA 2020/12 Initiated A meeting with Cooperating Partners was initiated on the coordination of the development and implementation of the training plan History
Recruit professionals well versed in gender mainstreaming
[Added: 2020/07/15] [Last Updated: 2020/08/30]
Ministry of Gender -Permanent Secretary /HRA 2021/12 Initiated MoG has written to Secretary to Treasury to provide authority to employ according to approved structure. History
4. Recommendation:

Capacity development of staff within the different Ministries

4.1: Particularly with regard to capacity development of Ministers, there is need to ensure that this training is planned to take place at the start of their tenure of office and not at the end and before elections. This will ensure that those trained are actually available

4.2: There is need to build on the programme that ended and particularly build on the capacity interventions started with the different Ministries. This should be done in a phased manner with a maximum of three Ministries targeted and an accountability system through which they can be monitored developed.

Management Response: [Added: 2020/07/15]

The recommendations are well noted and will be included in the training plan that will be developed

Key Actions:

Key Action Responsible DueDate Status Comments Documents
Include training of ministers in the training plan
[Added: 2020/07/15]
Ministry of gender 2021/12 Not Initiated The trainings will commence in 2021 after the General Elections. Ministers will also be trained as and when they are appointed
5. Recommendation:

Resource mobilisation for the Ministry

5.1: Being a coordinating Ministry, there is need to have a platform through which the Ministry can consistently lobby Government for resources to sustain interventions started. This includes sustaining steering and accountability mechanisms as well as integrating both internal and external capacity development as part of the Ministry’s core mandate.

Management Response: [Added: 2020/07/15]

The recommendation is well noted. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
The Ministry of Gender is currently developing a Resource Mobilisation Strategy, which will include putting in place Resource Mobilisation Committee
[Added: 2020/07/15]
Planning Department MoG/DoF 2020/12 Initiated The work to develop a Resource mobilisation strategy has commenced with support from GIZ
6. Recommendation:

 Engagement with partners

6.1: Engagement with the Ministries was planned for through the establishment and functioning of the Permanent Secretaries Committee, this needs to be re-established and made functional as a core coordination function. Its running and sustenance should not be based on a programme but also made a part of the core functions of the Ministry. In addition, the various gender sub-committees in the key Ministries need to be restarted and the ones that are still running acknowledged.

6.2: With regard to NGOs engagement, there is need to strengthen the functionality of the NGO Forum by ensuring that it is meeting on a regular basis and by ensuring that within it is a mechanism for reaching out and getting the view of all NGOs including small ones in districts outside of Lusaka.

6.3:  There is further need to engage the private sector through the establishment of a strategy formulated with their participation. This would include further exploring how best the learning from Panama on the Seal Certification Programme can best be replicated here in Zambia. The Ministry has developed a strategy for the implementation of the Gender Equality Seal Certification Programme. Resources need to be mobilised for the implementation of this programme.

6.4:  Part of ensuring the engagement of the different stakeholders it is recommended that the MoG be consistent in production of key gender related documents:

a.          The production of the gender status reports, on which the stakeholders are dependent for information. It is therefore recommended that production of these are not programme related but made a core component of the MoG’s annual budget.

b.         The consistent production of reports as required under the various Conventions and Protocols. As the MoG itself shows accountability at international level, the relevance and importance of all other stakeholders themselves being accountable will become clear.

6.5:       It is also recommended that the Ministry have scheduled meetings with the various stakeholders (Gender Forum) on a quarterly or bi-annual basis. These should be planned as platforms where learning and sharing can take place on issues around what each of the stakeholders is undertaking and areas in which they would want the MoG to step in given their coordinating and advocacy role.

6.6:       Engagement with political parties was to have been done under the Count Her in Strategy, it is recommended that efforts are made to start to implement this strategy well before the 2021 elections starting with the engagement again of the political parties and the development of a system through which the political parties can be held accountable for commitments they make to Government on adoption and final election of women in their parties. .

Management Response: [Added: 2020/07/15]

The Ministry has taken note of the recommendations 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
6.1 Revive the Committee of Permanent Secretaries through the office of the Secretary to the Cabinet.
[Added: 2020/07/15]
Ministry of Gender 2020/12 Not Initiated
6.2 Provide support to Gender Sub-committees to include Technical Assistance and logistical support
[Added: 2020/07/15]
Ministry of Gender 2020/12 Not Initiated
6.3: Roll out of the implementation of the Gender Equality certification seal programme
[Added: 2020/07/15]
MoG 2021/12 Not Initiated Resources have been mobilised mobilised for the implementation of Gender Equality Certification Seal programme.
6.4: The MOG is part of the newly established NMRF which is aimed at improving reporting conventions, the Ministry will therefore keep up to date its reporting on International and Regional Conventions through this newly established NMRF
[Added: 2020/07/15]
MoG 2021/12 Not Initiated
6.5: Revamp the Gender Forum and ensure wide inclusion of stakeholders in the gender sector.
[Added: 2020/07/15]
MoG 2021/12 Not Initiated
6.6: Mobilise Technical Assistance and Financial Resources for the engagement of Political Parties, especially towards the next general
[Added: 2020/07/15]
MoG 2021/12 Not Initiated
7. Recommendation:

Advocacy on key gender issues:

7.1: The MoG should consider having advocacy interventions targeting Government Ministries, as a key part of any planned programmes and interventions. This role should be played alongside the role of coordination and development of policy briefs on different issues affecting the promotion of gender equality and consistent presentation of position papers to Cabinet, Permanent Secretaries and to most importantly to Parliament

Management Response: [Added: 2020/07/15]

Within the Strategic Plan MOG has made advocacy as one of its strategies. Activities include;

Facilitating the formulating of affirmative actions. recommendations will be implemented as part of the Ministry’s Strategic Plan aspirations. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
7.1: Facilitate the formulating of affirmative actions
[Added: 2020/07/15]
MoG 2021/12 Initiated
7.2: Develop/Revise guidelines for mainstreaming gender in the political sector
[Added: 2020/07/15]
UNDP/ MoG 2020/12 Not Initiated
3: Work on gender and governance for the private sector and selection of stakeholders to help in holding institutions accountable
[Added: 2020/07/15]
UNDP/MoG 2020/12 Not Initiated

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