Mid-term Evaluation of Legislative Support Project II

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Evaluation Plan:
2016-2021, Tanzania
Evaluation Type:
Mid Term Project
Planned End Date:
01/2020
Completion Date:
12/2019
Status:
Completed
Management Response:
No
Evaluation Budget(US $):
35,000

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Title Mid-term Evaluation of Legislative Support Project II
Atlas Project Number: 00095419
Evaluation Plan: 2016-2021, Tanzania
Evaluation Type: Mid Term Project
Status: Completed
Completion Date: 12/2019
Planned End Date: 01/2020
Management Response: Yes
UNDP Signature Solution:
  • 1. Governance
Corporate Outcome and Output (UNDP Strategic Plan 2018-2021)
  • 1. Output 3.1.1 Core government functions and inclusive basic services4 restored post-crisis for stabilisation, durable solutions to displacement and return to sustainable development pathways within the framework of national policies and priorities
SDG Goal
  • Goal 16. Promote peaceful and inclusive societies for sustainable development, provide access to justice for all and build effective, accountable and inclusive institutions at all levels
SDG Target
  • 16.6 Develop effective, accountable and transparent institutions at all levels
Evaluation Budget(US $): 35,000
Source of Funding: Core, CS
Evaluation Expenditure(US $): 35,000
Joint Programme: No
Joint Evaluation: No
Evaluation Team members:
Name Title Email Nationality
Tim Baker Mr twbaker34@yahoo.com
Chris Awinia Mr chrisawinia@gmail.com
GEF Evaluation: No
Key Stakeholders: National Assembly, CSO
Countries: TANZANIA (UNITED REPUBLIC OF )
Lessons
Findings
1.

LSP II Mid-term Progress toward Overall Project Outputs

The project team had a strong relationship, overall, with the National Assembly. The specific aspects of the work are outlined below in accordance with the four criteria identified in the Terms of Reference for this evaluation – relevance, efficiency, effectiveness and sustainability. However, it is fair to say that the project was well-integrated into the work of National Assembly to the extent more than one senior staff person in the NA referred to the LSP II as “our project,” and indicated that the tools and training provided has helped the Bunge to institutionalise various capacities—including standing orders, guidelines for budget process, public outreach, committee operations and the like. 


Tag: Relevance Parliament Knowledge management Ownership Capacity Building

2.

Output 1: Increase the capacity of the National Assembly to effectively scrutinise legislation and its implementation and to monitor government performance in a participatory manner.


Tag: Effectiveness Relevance Civic Engagement Parliament Oversight Capacity Building

3.

Output 2: More effective parliamentary scrutiny of government budget and expenditure, including monitoring of the Sustainable Development Goals (SDGs).


Tag: Efficiency Gender Mainstreaming Civic Engagement Parliament Operational Efficiency Policies & Procedures Capacity Building South-South Cooperation SDG monitoring and reporting

4.

Output 3: Enhance the capacity of the National Assembly to engage citizens and represent their interests in the work of the parliament.


Tag: Effectiveness Anti-corruption Civic Engagement Parliament Communication Capacity Building

5.

Output 4: The National Assembly is more effectively engaged in strategic leadership, transparency and external engagement.


Tag: Effectiveness Parliament Policies & Procedures Capacity Building South-South Cooperation

6.

Output 5: Gender is mainstreamed in all functions of the National Assembly.


Tag: Effectiveness Gender Equality Gender Mainstreaming Women's Empowerment Parliament Capacity Building

7.

i. Relevance of Project Design and Strategic Alignment 

LSP II was designed to strengthen the NA to be more effective, open, transparent, accountable and inclusive. The need to increase project support to enhance capacity of the leadership in the House to fulfill their constitutionally-mandated parliamentary functions was expressed by members during terminal evaluation of LSP I. As noted throughout this report, LSP II has succeeded to an extent in doing so at this point given the overall project implementation timeframe.


Tag: Relevance Anti-corruption Civic Engagement Parliament Policies & Procedures Programme/Project Design SDG Integration SDG monitoring and reporting

8.

i. Efficiency in the Use of Project Resources

Efficiency is the measure of the cost-effectiveness of the inputs provided by a project. Cost-effectiveness is a measure of the cost of the inputs provided (i.e. – staffing; activities) and the results achieved from those inputs.


Tag: Efficiency Parliament Ownership Policies & Procedures Capacity Building Technology

9.

iii. Effectiveness of Project Implementation

Given that this is a mid-term evaluation, project outcomes are still in process and are intended to be included in full as part of a project terminal evaluation. However, based on review of project progress reports, lessons learned, and interviews with project beneficiaries the MTE finds the documentation of procedures and best-practices for budget oversight, bill scrutiny, gender mainstreaming, and public hearings was an effective way of achieving more effective, open, transparent, accessible and inclusive Parliament. As a result, the proportion of MPs who could effectively conduct bill scrutiny increased from 12% in 2016 to 31% in 2018. All 4 Committees (Budget, Social Development and Services, Agriculture, Livestock and Water; and Constitutional and Legal Affairs Committees) which were targeted to be trained in bill scrutinization by end of 2019 were trained by September 2019. All other factors remaining constant the project to achieve the project-end target of 8 Committees trained on bill scrutiny in 2021. 


Tag: Effectiveness Gender Mainstreaming Civic Engagement Parliament Oversight Capacity Building SDG monitoring and reporting

10.

iv. Sustainability 

The project was implemented through the NIM modality, implying that it was effectively aligned with the management structures and functions of Parliament. Due to this alignment, it is anticipated that LSP II will prove effective in ensuring long-term sustainability of results beyond the project—and this aspect of project implementation should be examined in more detail as part of the LSP II terminal evaluation. The positions of the National Project Coordinator (NPC) and the Project M&E Team are effectively engaged within the NA by NA staff thus promoting both institutional memory and strategic-fit to project beneficiaries. This is most likely since the staff will have the institutional memory and inspiration derived from the professionally transformative aspects of the project in promoting best-practices to enhance parliamentary capacity to exercise its core functions. The anticipated continuation of capacity-building in management of functions supported by the project (such as support and implementation of the Gender Strategy, budget scrutiny and process, and public outreach) will however be contingent upon NA support to staff and relevant committees/MPs in independently implementing these strategies after project closure.


Tag: Sustainability Gender Mainstreaming e-Governance Parliament Implementation Modality Theory of Change Capacity Building

11.

v. Cross-cutting Issue: Human Rights 

Human rights principles are incorporated into all aspects of the SDGs23 and stated clearly as part of the UN Charter (1945) and the subsequent UN Universal Declaration of Human Rights (1948).24 Despite the shortcomings of history in its full expression since, the founding principles established by all signatories to the Charter and subsequent Declaration are intrinsic to the work of the United Nations and its affiliated organisations—including the UNDP. As such, human rights protection and promotion is recognised as an important component of all project work conducted with UNDP assistance.


Tag: Effectiveness Relevance Civic Engagement Human rights Parliament Agenda 2030 SDG Integration

12.

i. Cross-cutting issue: Gender Mainstreaming 

The process of data collection and engagement with available MPs, staff and other parliamentary stakeholders during the evaluation indicates that most (if not all) evaluation participants are wellaware and accepting of not only the concept of gender mainstreaming but also the importance of its implementation as part of the daily business of the Bunge toward the goal of sustainable incorporation of gender mainstreaming concepts and practice in parliament’s longer-term institutional development. This also extends to intra-parliamentary conduct and external engagement. For example, despite the social obstacles presented to women parliamentary candidates when running for office, once elected and in office, MPs have been able to meaningfully and professionally engage their colleagues in performing their representative, legislative, and oversight duties as elected representatives of the people of Tanzania. This is also an area of assistance recognised with gratitude to the UNDP LSP II project.


Tag: Effectiveness Gender Equality Gender Mainstreaming Gender-Based Violence Human rights Communication Policies & Procedures

Recommendations
1

Encourage demand-driven engagement of relevant CSOs (or local networks) to advocate in a watchdog capacity on issues of concern on a more regular and issue-based advocacy basis to assist parliament in more deeply fulfilling its representative mandate whilst providing voice and space in parliament for addressing such issues as the environment, anti-corruption, gender equality, and human rights protection and promotion.

2

Appoint parliamentary project Board member(s) from relevant committees and those who have specific expertise on annual and/or rotating basis

Consider refining appointment of project Board member(s) from the Budget Committee, the PBO, the YWPG (etc.) who have specific subject matter expertise in line with LSP II project activities and might serve on an annual and/or rotating basis to better inform donor-level monitoring and evaluation of project progress year-by-year.

3

Review the post-2020 election structure of the House to determine the nature of support for the remaining project implementation period.  

Review the post-2020 election structure of the House to determine the nature of support for the remaining project implementation period. The post-election Parliament can have different form and structure depending on various factors including the nature of elections and participation by pollical parties, proportion of the youth demographic and women elected, and size of the minority in the House. In any case, LSP II should conduct a rapid response review of the post-election structure and provide recommendations to the project Board and via a project tripartite meeting (UNDP, Government and donors) as to whether a project review is needed if substantive changes in the structure and composition of the NA has been altered to the extent that parliament composition is in sync with diversity in Tanzanian society.

4

Examine how staffing can be harmonized with the needs of the existing and new parliament.

Examine how staffing can be harmonized with the needs of the existing and new parliament, particularly given the limited number of staff currently available to work with committees. At this point, approximately 1 staffer services each of 3 parliamentary committees.

5

Digitize, archive and disseminate all knowledge products developed under LSP I and II. Distribute these materials in soft copy to all freshmen MPs as part of the orientation information and independent study kit. As part of the eParliment initiative, encourage best practice sharing, distance learning, and remote engagement for continuous professional skills development. 

Digitize, archive and disseminate all knowledge products developed under LSP I and II. LSP II has developed a number of products in the form of guidelines, handbooks and best practice notes. The project should consider the sustainability of these products via digital archiving. This includes placing them on open and broadly accessible digital platforms including the eParliment, eLibrary system and forthcoming Bunge App. The project should build on existing content to produce self-tutorial modules where members and staff can conduct self-learning and refresher training through applicable digital modules enhanced through audio-visual capabilities. Likewise, these materials in all formats should be made available to the 12th parliament and include such tools as legislative process and budget guidelines/handbooks, Gender Strategy and Action Plans, APG Strategic Plans, and Public Hearing Guidelines. These materials need to be consolidated, packaged and distributed to freshmen MPs as part of the orientation information kit. The information could further be digitized to make them open and more accessible in sync with the new eParliment orientation. Encourage best practice sharing, distance learning, and remote engagement (e.g. Skype, WhatsApp, the NA app once launched) for MPs and staff with regional staff, and in particular those peers identified as having been particularly informative and relevant from other parliaments engaged as part of earlier study tours.

6

Encourage a wider scope for public hearings beyond outreach and input regarding the budget process. 

Encourage a wider scope for public hearings beyond outreach and input regarding the budget process. This might include, for example, soliciting public input on the Political Parties Act, Electoral Reform (and the Election Commission) among other pending and possible legislative agenda items—particularly as the current parliament ends and the new parliament is convened and formulates a new legislative agenda.

7

Engage select parliamentary peers with specific expertise (e.g. budget process, research, committee function, etc.) identified by parliamentary stakeholders who participated in previous on-site training or regional study tours as peer mentors.

Engage select parliamentary peers with specific expertise (e.g. budget process, research, committee function, etc.) identified by parliamentary stakeholders who participated in previous on-site training or regional study tours as peer mentors. These individuals can provide relevant, specific, and contemporary skills transfer and advice in situ on committees, with staff, in parliamentary departments and elsewhere as identified by UNDP through consultation with parliamentary stakeholders.

8

Encourage enhanced parliamentary oversight of the Executive through active dialogue, specific engagement and exercise of identified Constitutional oversight mandate.

 

9

Scale-up dissemination of best-practices from other Parliaments through cost-effective approaches and knowledge dissemination forums.

LSP II should place more emphasis on arranging visits, mentorship and inspirational speakers from MPs and Parliament staff who have practiced best practices from other Parliaments in the region and beyond. This will prove to be a more cost-effective and efficient approach ensuring broader engagement of a greater number of MPs and staff in comparison to study visit.

10

 Promote a multi-partisan approach to process and function of Parliament.

Best practices and approaches promoted by the project require a multi-partisan approach to process and function of Parliament. To this end, there is a need for the project to address this area including engagement and training of party whips and caucus leaders, including developing guidelines and training on co-sponsoring of bills and motions across party lines.

11

Implement ongoing training for existing staff.

Implement ongoing training for existing staff to encourage a deepening of sustainable skills transfer whilst assisting staff in place during the transition to the new parliament in 2020. For example, staff are a key focal point for maintaining operational standards and procedures established in the standing orders and project Guides and can assist new MPs in their transition in 2020.

12

Support Youth MPs as champions of change management in Parliament.

Support Youth MPs as champions of change management in Parliament. Parliamentarians work in a much more bipartisan manner in ALPs compared to formal sessions. A culture embracing a bipartisan approach to issues of concern to citizens is evident, although this needs to be inculcated and accepted by party leaders in Parliament. The youth through the TYPG present an opportunity to reach across the aisle and promote bi-partisan issues around the SDGs which are neutral public goods free from particular ideologies. Through this process, the TYPG can be supported to introduce a transformative political culture in the greater public interest over time. 

13

Focus on an LSP II transition strategy for a successor Parliament support project.

LSP II should start to focus on a programme of activities to transition into a successor project which might include the development of an exit strategy for completed activities and development of research and strategic thinking inclusive of concept notes on desired ‘theory of change’ for a third phase support to parliament. 

14

Promote Rights Based Approach (RBA) to development in the NA.

Promote Rights Based Approach (RBA) to Development in the NA. LSP II should use the remaining part of the project to promote basic concepts of Rights Based Approach (RBA) to development and in-particular budgeting and legislation (bill scrutiny) and public hearings (representation). This function can be made more effective by supporting the formation of an ALG on Human Rights and Development and a series of training, guidelines and handbooks and study tours and visits from other Parliaments on lessons how rights issues are addressed in other countries. 

15

Institutionalise the Gender Strategy and Action Plan through statutory Instruments.

Institutionalise the Gender Strategy and Action Plan through statutory Instruments. Project support through LSP has achieved an appreciable level of awareness and best practice on gender mainstreaming throughout almost all levels in Parliament. The NA has articulated gender mainstreaming strategies in the Gender Strategy and Action Plan. LSP II should intensify efforts to ensure that gender mainstreaming tools, approaches, practices and guidelines are institutionalized and integrated into parliamentary Standing Orders and statutory instruments to ensure full institutionalization of gender mainstreaming and long-term sustainability including a focus on: Gender audit of the Parliament SO; establishment of an inter-departmental Gender Technical system; enhanced gender disaggregation of all data across its databases, and; introduction of participatory M&E approach in LSP II.

16

Conduct a gender audit of the Parliament SO to identify gaps in gender mainstreaming.

A gender audit of the Parliament SO is needed to identify gaps for mainstreaming and scaling-up GEWE approaches to mainstream parliamentary process and procedures.

17

 Strengthen the gender focal point through the appointment of a departmental Gender Technical Team.

The gender focal point system needs to be strengthened by appointment of the interdepartmental Gender Technical Team as per a Government circular requiring their establishment in all Government agencies.

18

Strengthen capacity to conduct gender data disaggregation.

Strengthen the capacity of the LSP and NA to conduct gender disaggregation of all data across its databases.

19

Promote participatory M&E approaches through 2021.

Promote participatory M&E approaches during the remaining implementation timeframe for LSP II. 

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