Success message
error message
warn message
Evaluation of Stage I HCFC Phaseout Management Plans (HPMPs)
Commissioning Unit: Bureau for Policy and Programme Support
Evaluation Plan: 2018-2021
Evaluation Type: Thematic
Completion Date: 02/2019
Unit Responsible for providing Management Response: Bureau for Policy and Programme Support
Documents Related to overall Management Response:  
1. Recommendation:

Recommendation 1: It is recommended to conduct a study of MPU operations to identify bottlenecks and potential cost-saving measures.

Issue to Address
Based on the experience accumulated through the implementation of these HPMPs, a model to implement such programme has emerged with established guidelines and procedures of the MLF and of UNDP. This model could certainly be replicated for the next phases in eliminating HCFCs but also HFCs under the Kigali agreement. It has been tested and over time, procedures and guidelines were improved. However, despite recognizing that the overall process is good, these guidelines and procedures have tended to become more time consuming. There is a perception that the process is being more and more centrally micro-managed, and pressure is increasing on the UNDP technical teams to deliver these projects on time and on budget but with the same level of resources.


It is recommended to conduct a review of guidelines but particularly of procedures to identify where bottlenecks exist and where potential cost-saving measures could be implemented to streamline processes to formulate, implement, monitor, verify and report on these projects. The review should include the identification of all steps needed to formulate these projects, procedures, templates needed and also the type of system to manage/administer the information related to the implementation of these projects. With a full web-based system, staff should be able to easily access all information on projects and get the status of any project “at their fingertips” such as the GEF website project database providing access by project and by country.

Management Response: [Added: 2020/11/30] [Last Updated: 2020/12/31]

Management Response: MPU is considering a number of procedures to streamline its procedures, including reviewing procurement and other administrative processes.  One of the key agenda items during the MPU retreat in 2019 is the identification of significant bottlenecks to project design, development and implementation and the streamlining of operations.  At the 2019 MPU retreat, measures that could be implemented to improve and streamline existing processes to formulate, implement, monitor, verify and report on MPU projects will be considered.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
1.3. Enhance the standardization in terms of Project Document development, budgeting, TOR of individual contractors, as well as the progress report
[Added: 2020/12/31]
MPU Director and HQ team 2021/07 Overdue-Initiated MPU follows the policies and guidelines of the MLF on the project design. After approval, the DOAs incorporating the requirements in the decisions of the Ex.Com have been sent to relevant country offices. MPU regional staff have been assisting country offices to transfer the project proposals to UNDP Pro.Doc. The needs for standardization of the Pro.Doc were discussed in the team retreat in 2019 and 2020 in line with the changing policies from UNDP and donors. Some progresses on this have been made and will be completed by June 30, 2021. The consolidated progress report of UNDP was improved. Examples of TOR for IC were shared with the team. History
1.2. Regarding the recommendation on the web-based system, it has already been decided that Montreal Protocol projects will be included into the GEF project database (PIMS+). It should be mentioned that a MPU project database already exists but it doesn’t contain the full functionalities, particularly when it comes to reporting. This will be further explored.
[Added: 2020/12/31]
MPU Director and HQ team 2021/12 Initiated The technical work of the database design is expected to be completed in 2021
1.1. This recommendation is acknowledged and during the 2019 and 2020 MPU retreat, a number of measures to streamline MPU procedures, including reviewing SOP, procurement and other administrative processes and related costs will be proposed and considered.
[Added: 2020/12/31]
MPU Director and HQ team 2019/07 Completed The SOP was reviewed and discussed in the team retreat in 2019. The retreat in 2020 focused on the bottlenecks of delivery. The possibility of centralized procurement for similar tools and equipment had been discussed with the procurement team. MPU continues to improve the management of the portfolio for an efficient and effective process. The performance of UNDP for the management of the MLF projects assessed by the MLF Secretariat was the highest among all implementing agencies with score of 90 in 2017, 95 in 2018 and 94 in 2019.
1.4. Strengthen communication and training of UNDP Country Offices
[Added: 2020/12/31]
MPU Director and Regional team 2019/08 Completed -MPU has developed comprehensive communication documents of UNDP Experiences on the implementation the Montreal Protocol and a BPPS offer on Montreal Protocol, Chemical and Waste management to guide the activities in the country offices. -A standard training PPT on the Kigali Amendment was developed and shared with the regional teams for the training to country offices and partners. -The summaries of the Ex.Com meeting were shared with MPU team, NCE director and BPPS director. -MPU regional teams communicated on daily basis with the country offices to support the implementation and reporting.
2. Recommendation:

Recommendation 2: It is recommended that UNDP strengthens its knowledge sharing/exchange including best practices as well as tracking prices, costs and technologies.

Issue to Address
Phasing-out HCFCs means retrofitting and/or replacing the use of HCFCs by alternative technologies that are not damaging to the ozone layer. As of the time when these HPMPs started to be formulated, alternative technologies were mostly limited to HFCs. Over time, other alternative technologies with lower GWP have been identified but they are also often classified with some level of flammability and/or toxicity requiring additional security measures. However, the time it takes for this information to “trickle” down to each country can be long and uneven. Currently, the main mechanisms for transferring this knowledge is mostly through exchanges with international experts, exchanges at the various meetings led by the MP, ExCom and the implementing agencies as well as informal networks among people involved in eliminating HCFCs in countries, implementing agencies and MLF Secretariat.


It is recommended that UNDP develops a platform for knowledge exchange and sharing best practices as well as tracking prices, costs and available technologies, including regionally-based and/or country-based information.

Management Response: [Added: 2020/11/30] [Last Updated: 2020/12/31]

Management Response: Under the Montreal Protocol, there are dedicated mechanisms for sharing information and knowledge generated from the projects funded by the Multilateral Fund (MLF). For example, a dedicated Compliance Assistance Programme (CAP),  hosted by UNEP and funded by MLF) delivers the information clearinghouse mandate for all MLF Implementing Agencies. UNDP actively participates and contributes its knowledge, information and best practices through CAP and the regional networks. In terms of in-house knowledge and information sharing, UNDP MPU will continue to do so through the following mechanisms: a dedicated Intranet website, blogs and other communication tools, periodic team face-to-face and online meetings, meetings with recipient countries, and publications devoted to the results of successful projects (for example, https://www.undp.org/content/undp/en/home/library.html?start=0&sort=date&view=cards&tag=topics:sustainable-development/ozone-layer-protection). For tracking prices, costs and available technologies, UNDP MPU will continue utilizing the existing UNDP MPU project database to store the project completion reports with the information about project document and results and may consider upgrading to PIMS+ as referenced earlier.  MPU organized a number of side events in 2018 to disseminate project results, best practices and knowledge gained from MLF projects and will continue to organize a number of side events in 2019. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
2.1. Including MPU projects into PIMS+ will facilitate improved knowledge management and sharing.
[Added: 2020/12/31]
MPU Director and HQ team 2021/12 Initiated The technical work of PIMS+ development is expected to be completed in 2021.
2.2. Continue utilizing existing MPU tools to share information, knowledge and best practices a. Project managers will include information about prices, costs and available technologies in project completion reports, as much as possible (considering the sensitivities and commercial confidentiality) and applicable (some projects don’t address technology choices but only address capacity building). b. Continue to collect and compile information of project results, best practices, and innovative technologies through MPU tools, publications, blogs and other key communication tools. c. Facilitate South-South cooperation for knowledge exchange and best practices scaling up.
[Added: 2020/12/31]
MPU Director, HQ and Regional teams 2020/03 Completed MPU has paid great attention to the quality of the completion reports which contain a large amount of detailed information. The great achievements in 2018-2020 in this regard are the accomplishments of a dozen of demonstration projects of the MLF that UNDP implemented. The reports and fact sheets were posted in the MLF portal for widespread dissemination of knowledge and information generated by the innovative projects supported by UNDP. In addition, MPU submitted the completion report of the first investment project of MLF for the implementation of the Kigali Amendment in 2020. We made great efforts to contain the required and additional information in relation to the capital and operation costs of the conversion, climate benefits including direct and indirect emissions. We are very proud that UNDP is the first agency to submit the completion report to the MLF on the investment projects for the Kigali Amendment. History
2.3. As in 2018, MPU is organizing a number of workshops throughout 2019 to share information and knowledge gained through its projects. a. MPU is organizing workshop on HFC alternatives in New York City in May 2019. The workshop will bring together participants from Article 5 countries and experts to discuss challenges, opportunities and solutions, and to identify short-term priority activities and long-term strategies to effectively implement the Kigali Amendment and improve energy efficiency. This workshop will facilitate the dissemination of knowledge gained through the ODS alternatives and HFC surveys implemented under UNDP MPU projects. b. MPU is organizing a side event around the Open-Ended Working Group (OEWG) in July 2019 to introduce best practices in the servicing sector. c. In 2020, MPU will organize a side event to introduce best practices in the foam sector with a developing country partner. d. MPU will continue to organize site events in the occasion of the Meeting of the Parties, UNEP network meetings and organize workshops for in depth-knowledge exchanges with stake holders and private sectors.
[Added: 2020/12/31]
MPU Director and HQ/Regional teams 2019/07 Completed A series of event/workshop/webinar have been organized by MPU to facilitate the knowledge sharing and promote the best practices: 1.UNDP hosted the workshop “Towards the effective implementation of the Kigali Amendment”, in May 2019 in New York. 2. National Cooling Plans Linking to Cooling to energy efficiency interventions, a side event co-organized with K-CEP at the 41st OEWG of the Montreal Protocol in Bangkok in July 2019. 3. Sound ODS/HFC waste management and disposal - Colombia experience co-organized by UNDP and GIZ during the 31st Meeting of Parties in Room in November 2019. 4. In 2020, MPU adapted quickly in response to the covid-19 pandemic, and successfully organized 30 webinars for the knowledge exchange on innovative low GWP cooling technologies, best practices in the servicing sector, policies and data reporting on HFCs, etc. These webinars were well received by our partners and stakeholders in the client countries. More than 1500 people including 35% women participated in UNDP webinars.
2.4. Support the Multilateral Fund Secretariat in the development and finalization of factsheets on the HCFC demonstration projects, which will be disseminated to a wide general audience.
[Added: 2020/12/31]
MPU Director, HQ and Regional teams 2019/12 Completed Factsheets for 14 demonstration projects implemented by UNDP were finalized and posted in the MLF portal.
3. Recommendation:

Recommendation 3: It is recommended to better monitor other benefits from HPMPs such as impact on productivity on enterprises, competitiveness, employment, health, etc.

Issue to Address
Not much information is collected on the positive and negative impacts of these HPMPs on the local environment. The entire process to formulate, implement, monitor, verify and report on Stage I HPMPs is mostly focused on the technical aspects of phasing-out HCFCs. The entire body of knowledge accumulated through the implementation of HPMPs is much focused on documenting progress made towards the set targets to eliminate HCFCs, including details on how these plans will replace existing technologies that contain damaging HCFCs with not damaging alternative technologies.

There is no information on capacities built, nor on productivity gains with new technologies in the private sector, nor on employment, etc. It is recommended to monitor these potential other benefits, including an assessment of these benefits at the end of these HPMPs and this information being reported in project completion reports.

Management Response: [Added: 2020/11/30] [Last Updated: 2020/12/31]

Management Response:  We agree that the developmental impacts arising from the implementation of the HCFC phaseout need to be better measured and captured.  One key goal of MPU in 2019 is to strengthen the impact and delivery of the MLF programme as well as knowledge sharing and replication of best practices. UNDP is in the process of defining corporate impact indicators and these indicators will be applied to the MLF portfolio as well.  MPU will explore mechanisms/processes to include these impact indicators in project documents.  Gender is already an issue that MPU has increasingly been engaged on.  The MLF currently does not have a policy on gender and does not fund gender activities, so the MPU ozone programme does not take gender into account as much as it could. In order to strengthen the gender dimension of our ozone projects, MPU has been actively engaged on the development of a MLF policy on gender and recruited a gender expert to develop a gender analysis and gender action plan (GAP) for the Montreal Protocol projects in Peru, China, and Nigeria.  The gender analysis documents baseline information on what is currently being done to advance gender equality in Montreal Protocol projects as well as what the main challenges and opportunities are.  It also identifies entry points for future gender mainstreaming in Montreal Protocol projects. The GAP proposes suggested results and indicators that can be used for the formulation of project documents and/or further GAPs and the financing of gender outputs and activities. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
3.1 Apply the corporate impact indicators defined by UNDP to MLF projects and establish a process/mechanism for reporting annually on these indicators (similar to what is already done for the GEF Chemicals programme).
[Added: 2020/12/31]
MPU Director and HQ team 2021/07 Overdue-Initiated Some indicators in relation to the MPU business (cooling) were included in the corporate result framework. MPU will make inputs to those relevant indicators and improve our system to capture multiple benefits generated by the portfolio.
3.2 Apply UNDP gender policy on all MLF projects
[Added: 2020/12/31]
MPU Director and HQ Team 2021/10 Initiated The Executive Committee of the Multilateral Fund adopted the gender mainstreaming policy in 2019. MPU has been working with the partners in adding gender related activities in our proposals to the MLF in 2020. MPU is planning to organize trainings to the colleagues in country offices and partners in the client countries to better implement the gender policy in 2021. A gender consultant was hired for this purpose.
4. Recommendation:

Recommendation 4: It is recommended to conduct stronger assessments/evaluations at the end of HPMPs to better capture achievements at the country level, including best practices and lessons learned.

Issue to Address
Information on achievements of HPMPs can mostly be found in Project Completion Reports (PCRs) and to some extent in verification reports. Verification reports focus mostly on verifying the data provided by the country on the elimination of HCFCs. PCRs are completed on the basis of a template provided by the MLF Secretariat. They contain 8 sections but are mostly descriptive in nature and are completed by the implementation units in the respective countries.
It is recommended to conduct external project assessments/evaluations near the end of these plans to provide an external review of the performance of these HPMPs. It should include assessments of other potential benefits of these HPMPs and of the technologies involved in these projects, particularly focusing on what worked and what did not work and also recommendations for the way forward based on the respective experiences in these countries.

Management Response: [Added: 2020/11/30] [Last Updated: 2020/12/31]

Management Response: We believe that this is a good recommendation by the evaluators but will need to be discussed further with the MLF Secretariat and/or Executive Committee.  The Executive Committee of the Multilateral Fund approves yearly work programmes for its Senior Monitoring and Evaluation officer (SMEO), who is based at the Secretariat in Montreal and who carries out a series of sector-wide desk reviews and field evaluations.  These reports usually cover more than one implementing agency, although each agency’s work is described in detail.   The reports are then submitted to the Executive Committee for further comments, lessons learned, and recommendations, which are then fed back to each implementing agency.  This is why UNDP does not carry out evaluations of its Montreal Protocol programmes.  All evaluation reports commend the work of the implementing agencies, including UNDP, and contain a series of lessons learned and findings, which are taken into account in future programming.  In order to conduct HPMP evaluations at the national level, their corresponding budgets would need to be approved by the MLF Executive Committee, which may prove to be difficult since this would not be a part of its policy.   Although final project evaluations are not currently a requirement of the MLF, if there are any remaining funds, MPU regional officers will recommend that UNDP country offices and government counterparts conduct evaluations for key, larger projects. 

Key Actions:

Key Action Responsible DueDate Status Comments Documents
4.1 UNDP Country Offices and government counterparts will be encouraged to undertake national level evaluations of their HPMPs if and when there are some funds remaining. This has already been occurring in some countries (i.e. Jamaica).
[Added: 2020/12/31]
MPU Regional Teams 2019/12 Completed Independent evaluation at the project level were advised by MPU to the country offices and partners. Some country offices have done it although it is not a requirement by the MLF. Since the Montreal Protocol is an international treaty with binding obligations on the control of ODS, UNDP conducted independent verifications of the consumptions for all countries that UNDP is the lead agency. MPU has been coordinating with the senior evaluation officer of the MLF in the evaluations required by the Ex.Com.
4.2. The cost of evaluation, knowledge dissemination and sharing activities will be included in the development of new projects.
[Added: 2020/12/31]
MPU Regional Teams 2019/12 Completed The cost was included in the work plan in which the evaluation activity was suggested.
5. Recommendation:

Recommendation 5: As HCFCs are being phased-out, it is recommended to track the HFCs market and use in countries to monitor the market movements of HFCs.

Issue to Address
The impact of delays in implementing investment and non-investment activities, reduction of supply of HCFCs and the apparent lack of alternative technologies may result in enterprises moving straight to HFC alternatives. More and more reports in this area highlight market trends moving toward the use of HFCs. A recent analysis of surveys of ODS alternatives commissioned by the ExCom, reveals that the use of R410a in the RAC sector has been increasing by a compounded rate of 40% per year during the period 2012-2015, which means that the consumption of R410a is doubling every other year. This creates significant risks as countries will meet their HCFC targets but their HFC consumptions may significantly increase.
It is recommended to monitor the use of HFCs at the country level but also the HFCs market and highlight any trends, which would indicate a surge of HFCs use. The reduction of HCFCs should not result in higher HFCs consumption.

Management Response: [Added: 2020/11/30] [Last Updated: 2020/12/31]

Management Response:  The HFC use and market is already closely monitored in the countries where we have Stage I and Stage II HPMPs as well as the 16 countries where we have received funding from the MLF for HFC enabling activities.  MPU will be supporting these countries to undertake a range of enabling activities to help their national ozone units fulfil their initial obligations with regards to the phase-down of HFCs, in line with the Kigali Amendment, and will include country-specific activities aimed at initiating support on institutional arrangements, review of licensing systems, data reporting on HFC consumption and production, and developing national strategies.  In addition, MPU has been assisting another seven countries to develop stand-alone investment projects to phase down the use of HFCs through replacement with suitable lower GWP technologies. In order to disseminate this information to countries, MPU has already been organizing a number of workshops on the information requirements arising from Kigali and available, cost-effective and safe alternative technologies throughout 2018.

Key Actions:

Key Action Responsible DueDate Status Comments Documents
5.1 Continue monitoring the use of HFCs in countries through implementation of Stage II HPMPs
[Added: 2020/12/31]
MPU Regional Teams 2019/12 Completed MPU is supporting 16 countries on the enabling activities (EA) for the Kigali Amendment. Data of HFC import and consumption were collected by the National Ozone Unit in the implementation of the EA projects.
5.2. MPU has already conducted ODS alternative surveys in 11 countries. MPU will be analyzing the results of these ODS alternative surveys and prepare a consolidated project completion report, which will provide more information on trends on HFC use in countries.
[Added: 2020/12/31]
MPU Director and Panama regional team 2018/12 Completed UNDP have submitted all reports. The data collected by the surveys have been included in the overall analysis of the results of the surveys of ODS alternatives (document 80/54) did by the MLF Secretariat.
5.3. MPU is currently implementing HFC enabling activities in 16 countries, where we are helping countries to establish licensing systems and supporting countries to build capacity on data reporting. Data reporting mechanisms will be set up as part of the HFC enabling activity.
[Added: 2020/12/31]
MPU Regional Teams 2019/12 Completed 10 countries with EA project supported by UNDP have established the licensing system of HFCs. Countries ratified the Kigali Amendment reported HFCs data in their Country Program report and A7 report in 2020.
5.4. MPU will continue supporting A5 countries on their HFCs data reporting mechanisms as part of the HFC enabling activity.
[Added: 2020/12/31]
MPU Regional Teams 2020/07 Completed In 2019 and 2020, MPU organized several sessions in the workshops and webinars for strengthening the capacities of NOUs on the HFC data reporting.
5.5. MPU is organizing a workshop on HFC alternatives in New York City in May 2019. The workshop will bring together participants from Article 5 countries and experts to discuss challenges, opportunities and solutions, and to identify short-term priority activities and long-term strategy to effectively implement the Kigali Amendment and improve energy efficiency. This workshop will facilitate the dissemination of knowledge gained through the ODS alternatives and HFC surveys.
[Added: 2020/12/31]
MPU Director and HQ team 2019/05 Completed On May 2019, UNDP hosted the workshop “Towards the effective implementation of the Kigali Amendment”, in New York - USA.
5.6. MPU will continue to support developing countries to access the low GWP alternatives and narrow the gap at supply chain. A “green supply chain workshop for cooling without warming” has been organized in Jakarta, Indonesia in 2018 with participants from 18 countries.
[Added: 2020/12/31]
MPU HQ/ Regional Teams 2019/12 Completed UNDP organized the workshop of “Green Supply Chain Workshop for Cooling Without Warming” (8 to 10 October 2018 in Jakarta, Indonesia). The workshop brought together Ozone Units, Experts, Private Sector and Associations to narrow the Supply Chain gap of green Cooling Solutions. MPU has been helped a number of countries to successfully address the supply chain issues related to the new alternatives including Indonesia, Lebanon, Malaysia, Trinidad & Tabago, Egypt, and Cuba.
5.7. MPU is scaling up the incentive programs in the HPMPs to help countries access the low GWP and efficient cooling technologies.
[Added: 2020/12/31]
MPU Regional Teams 2020/07 Completed MPU has been supported all our client countries in the introduction and scaling up of the low GWP and efficient cooling technologies. UNDP conducted 13 ender-user incentive schemes (out of total 28 similar activities supported by MLF) to support the developing countries to access the new technologies in Bhutan, Brunei Darussalam, Cambodian, Cuba, Fiji, Ghana, Malaysia, Moldova, Maldives, Nepal and Sri Lanka.

Latest Evaluations

Contact us

1 UN Plaza
DC1-20th Floor
New York, NY 10017
Tel. +1 646 781 4200
Fax. +1 646 781 4213
erc.support@undp.org