TERMINAL EVALUATION REPORT
Outcome Evaluation of UNDP DRM Program
Ethiopia
By
Kerry Abbott
&
Bekabil Fufa
December 2011
UNITED NATIONS DEVELOPMENT PROGRAMME
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Table of Contents
Acronyms ............................................................................................................................ ii
Acronyms ............................................................................................................................ ii
Executive Summary ........................................................................................................... iii
1. Introduction ................................................................................................................. 1
1.1. Background and Context to the Evaluation ............................................................. 1
1.2. Objectives of the Evaluation .................................................................................... 2
1.3. Execution Modality/ Management arrangement ...................................................... 2
1.4. Scope of the Evaluation ........................................................................................... 3
1.6. Evaluation Methodology.......................................................................................... 4
2. Analysis and Major Findings ...................................................................................... 4
2.1. Program Components ........................................................................................... 4
2.2. Overall performance Assessment ......................................................................... 5
2.2.1. Relevance ............................................................................................................. 6
2.2.2. Effectiveness ........................................................................... 7
2.2.3. Efficiency ............................................................................... 8
3. Outcomes, Impacts and Sustainability ...................................................................... 13
3.1. Assessment of the Outcome of the programs ........................................................ 13
3.2. Impacts of the Programs ..................................................................................... 14
4. Lessons learnt and best Practices .............................................................................. 16
4.1. Lessons Learnt.................................................................................................... 16
4.2. Best Practices .................................................................................................... 16
5. Challenges ................................................................................................................. 17
6. Recommendations ..................................................................................................... 18
7. Conclusion ................................................................................................................ 19
8. List of Annex ............................................................................................................ 21
9. References ................................................................................................................. 38
i
Acronyms
ANRS
AUSAid
BoFED
DfID
DRM
DRR
DRMFSS
EMAO
EWS
EU
FDGS
FSCB
FS
FSS
FTC
GoE
GTP
IDPs
KKIs
MERET
MoA
MoFED
NEX
PASDEP
PRSP
PSNP
SNNPR
SPIF
UNDAF
UNDP
UNV
USAID
UXO
VAM
WFP
Amhara National Regional State
Australian Government Aid Agency
Bureau of Finance and Economic Development
Department for International Development-UKAid
Disaster Risk Management
Disaster Risk Reduction
Disaster Risk Management Food Security Sector
Ethiopian Mine Action Office
Early Warning System
European Union
Focus Group Discussions
Food Security Coordination Bureau
Food Security
Food Security Sector
Farmers’ Training Centers
Government of Ethiopia
Growth and Transformation Plan
Internally Displaced Persons
Key Informant Interviews
Managing Environmental Resources to Enable Transitions
Ministry of Agriculture
Ministry of Finance and Economic Development
National Execution (as opposed to DEX, direct execution)
Plan for Accelerated Sustained Development to End Poverty
Poverty Reduction Strategy Program
Productive Safety Net Programme
Southern Nations Nationalities and Peoples Region
Strategic Programme and Investment Framework
United Nations Development Assistance Framework
United Nations Development Programme
United Nations Volunteer
United States Agency for International Development
Unexploded Ordinance
Vulnerability Analysis and Mapping
World Food Programme
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Executive Summary
UNDP’s Ethiopian country program emerged out of the country’s United Nations
Development Assistance Framework (UNDAF) that was developed in 2005. According
to the Country Program Action Plan (CPAP), UNDP was supposed to focus on five main
UNDAF priority areas. The UNDP supported several initiatives with the Government of
Ethiopia (GoE) to address problems related to Food Security, Disaster Risk reduction
(DRM) and Mine Action. This evaluation is meant to assess one of the UNDAF
outcomes that is implemented by UNDP that states: “By the end of 2011, enhanced
capacity for disaster risk management with respect to preparedness and ability to deliver
a timely and appropriate multi-sectoral response to humanitarian needs.” The results of
the evaluation and lessons learnt would serve as inputs for the formulation and
implementation future UNDP interventions as the UN enters a new five year UNDAF
program cycle and make its interventions aliened with the county’s GTP.
In the evaluation review, of relevant documents, discussion with partners and other
relevant stakeholders as well as field level observations and community level discussions
were conducted to collect the relevant information. Owing to the vastness of the
programs to be evaluated and in view of limited time the evaluation heavily relied on
reports and secondary sources of information.
The results of the evaluation found that most of the UNDP’s interventions in the Food
Security Programs supported existing programs that were being implemented by the
government together with other partners. Thus, the contribution of the agency to
improved food security was overshadowed by these actors. The Mine Action, Disaster
Risk Reduction and some projects of the food security programs (e.g. ECX) were found
to be relevant. Furthermore, the Mine Action program was found to achieve its intended
objectives more effectively than others. While UNDP played coordination and resource
mobilization roles in the Mine Action program, other big donors such as DfID, the EU
and Norwegian Peoples Aid were involved. In addition, though cannot be exclusively
attributed to UNDP’s; ECX seems to have achieved the intended objective as it managed
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to link coffee and sesame farmers to global markets thereby increasing their income and
food security levels. The DRM program has shown promising results in achieving its
objectives with draft DRM policy document prepared, successful return and reintegration
of IDP’s in Somali region and implementation of some potentially successful pilot
disaster risk reduction activities in Gamebella region. Analyses of the financial utilization
of the projects showed that the Food Security and Mine action projects each used 97% of
the budget allocated. Similarly, the environmental protection and DRM each used about
74% of the budget allocated. The financial status of the water resources shows only 53%
budget utilization.
The contribution of the three programs to the desired outcome is found to be mixed. The
Mine Action, the DRM and some aspects of the food security project (e.g. ECX) had
directly or indirectly contributed to the achievement of the desired outcome. However,
except for the DRM program which is owned and implemented by UNDP alone, the
contributions of the other programs of UNDP to the intended outcome can only be
partial. Among the food security program interventions, as a result of the water
development projects in Somali region, to which UNDP had made human capacity
building contributions by employing six engineers, some pastoral and agro pastoral
communities have got access to water and started practicing irrigated agriculture and
improved animal husbandry practices that would improve their livelihood. ECX is also
reported to have benefited about 2.4 million farmers (through cooperatives) by linking
them to global markets thereby improving their incomes and livelihoods. The other food
security interventions were gap filling exercises that were either small in scale or short
lived. On the other hand, reports show that as a result of the Mine Action intervention,
over 350,000 people directly and 950,000 people indirectly benefited from EMAO’s
mine clearance operations resulting in improved livelihood and food security status of the
population. The DRM program showed promising results in contributing to enhanced
capacity in DRM in various ways. The draft SPIF is in place and expected to be approved
next year. This will enable the country to have a coordinated DRM policy and strategies.
Through South-South Cooperation, the human capacity of DFMSS is expected to be
strengthened. Also, the IDP’s return project successfully reintegrated more than 700 HHs
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in Somali region. Flood mitigation measures undertaken in Gambella region saved human
and animal lives and helped the community to produce more food.
With regard to sustainability, though adequate capacity has been developed in the Mine
Action program, with the project ending in few years, its fate is not known. The Mine
Action training center has clear benefits to the region, as most of the countries in East and
central Africa have mine problems. These opportunities will present EMAO with ability
to continue its operations on sustainable basis. On the other hand, ECX has already
prepared exit strategy document on its operations. Local staff have been recruited to take
over the activities in the place of expatriate staff. However, retaining theses staff would
be a challenge unless sufficient incentives are provided. In addition, currently, trading
through ECX seems to be the only alternative for the export of important agricultural
commodities from the country. Lack of completion may create room to inefficiency in its
operations.
The following are the lessons learnt from the implementation of the programs:
1. Programs/projects that address clear needs and priorities such as the Mine Action,
ECX and IDPs return were found to be more effective and resulted in greater
impact;
2. Programs that are relatively autonomous and focused such as the ECX and DRM
were found to be more effective;
3. Follow up the performance of interventions and their possible scale up requires
well documented data;
4. Ensuring the continuity of programs requires the need to give attention to
sustainability in program design and implementation.
Some of the interventions considered in this evaluation could be considered as having
innovative approach in design and implementation and could have national or regional
benefits. These include ECX, the Mine Action, the IDPs return and the SPIF. Thus,
UNDP needs to document and publicize the process involved in the establishment of
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ECX; how the program was conceived and designed, what implementation problems
were encountered and what was done to solve them so as to bring the agency to this
stage. This will enable the establishment of similar commodity exchange platforms in the
region. Also, the approach used in the return of the IDPs in Somali region has been
clearly documented. However, UNDP needs to publicize the approach used for further
replication and scale up.
On the other hand, the challenges observed in the implementation of the programs were
limited financial resources that lead to interventions that were overstretched and
fragmented, lack of proper documentation and follow up of interventions, limited
government capacity due to staff turnover and BPR, communication problems and
consequent delays in reporting and financial disbursement.
As recommendations and the way forward UNDP:
1. Should focus on innovative interventions;
2. Needs to put more effort in resource mobilization;
3. Should undertake continuous capacity building for government staff;
4. Has to put knowledge management system in place for interventions;
5. Has to provide continues support for the
sustenance of promising
programs/projects;
6. Make effort in making proper documentation and scale up best practices;
7. Needs to coordinate with other agencies and development partners in the design
and implementation of future intervention.
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1. Introduction
1.1. Background and Context to the Evaluation
The Plan for Accelerated and Sustained Development to End Poverty (PASDEP)
represents the second phase of the Poverty Reduction Strategy Program (PRSP) process
of Ethiopia, which has begun under the Sustainable Development and Poverty Reduction
Program (SDPRP), covering the years between 2002/03 and 2004/05. PASDEP was
Ethiopia’s guiding strategic framework for five-year period between 2005/06 and
2009/10. In PASDEP sectoral policies, strategies and Programs in virtually all sectors
that include agriculture, Education, Health, HIV/AIDS, Infrastructure, Tourism, Mining,
Trade and Industry, Urban Development, Population, Governance, Gender, Environment
and Development and pastoral livelihoods have been laid out. UNDP’s country program
emerged out of the country’s United Nations Development Assistance Framework
(UNDAF) that was developed in 2005. According to the Country Program Action Plan
(CPAP), UNDP was supposed to focus on five main UNDAF priority areas of which
Food Security, Recovery and Natural resource management was one.” This report
presents the particular contributions of the UNDP to joint outcome number one that
states: “By the end of 2011, enhanced capacity for disaster risk management with respect
to preparedness and ability to deliver a timely and appropriate multi-sectoral response to
humanitarian needs.”
This evaluation is commissioned with the major purposes of assessing the performances
UNDP’s Food Security, Mine Action and Disaster Risk Management (DRM) programs
that were implemented between 2007 and 2011 so as to gather information on lessons
learnt and constraints encountered as inputs for the formulation and implementation
future UNDP interventions as the UN enters a new five year UNDAF program cycle. The
findings of the study will be helpful to alien UNDP’s interventions with Ethiopia’s
Growth and Transformational Plan (GTP), the implementation of which has began in
2011 and ends in 2015. The plan envisions making Ethiopia a middle income, democratic
and developmental state and a carbon neutral climate resilient economy by 2025.
1
1.2. Objectives of the Evaluation
The specific objectives of the outcome evaluation are to:
• Assess progress towards the outcome;
• Assess the factors affecting the outcome;
• Assess key UNDP contributions (outputs), including those produced through "soft"
assistance to outcomes and
• Assess the partnership strategy.
1.3. Execution Modality/ Management arrangement
According to the CPAP, the National Execution Modality (NEX) was used in the
implementation of the UNDP programs. To the extent possible, UNDP and its partners
will use the minimum CPAP and AWPs (Annual Work Plans) to implement the
programmatic interventions. However, as necessary and appropriate, project documents
would be prepared using, inter alia, the relevant text form CPAP and AWPs. UNDP will
expand the use of Atlas, which contributes to timely, efficient delivery of activities and
efficient financial monitoring to manage projects and the UNDP programs. AWPs for
each sub-component will be prepared by the respective sector institutions at the
beginning of each year. Program components are implemented based on annual work
plans that would be signed by MoFED, BoFED, UNDP and, sector ministries.
While the Mine-Action program and the IDPs return under the DRM program were
implemented through EMO for which a separate project document was prepared and
signed, all of the Food Security Projects and the DRM projects were undertaken through
jointly prepared AWPs. CPA requires periodic joint monitoring of the physical and
financial aspects of projects activities. 2-3 UNVs have been placed in the regions in
order to provide assistance in the coordination and management of UN-EXCOM projects.
2
1.4. Scope of the Evaluation
This assignment is aimed at the evaluation of the three mentioned programs that were
implemented by UNDP over the years 2007 to 2011. The DRM program has been
originally under the Food security and has become a separate program a year ago. The
program areas are vast and cover a wide area. The Food Security and DRR programs
have institutional capacity building, policy, advocacy component and few on the ground
pilot projects. However, the Mine action program was directed towards peace and
stability building and improved food security and livelihood of people living in the mine
affected areas of Tigray, Afar and Somali. The Food security program has projects
implemented in Oromiya, Amahara, Tigray and SNNP Regions as well as supports to the
Federal MoA and ECX. The DRM program has projects in the Federal DRMFSS and
pilot projects in Somali and Gambella regions as well as capacity building activities in
Bahir Dar University.
1.5. Limitations (Drawbacks) of the evaluation
In this assignment, three big UNDP programs were evaluated over a total period of 30
evaluation days. The programs covered large geographical areas including six big regions
of the country. Due to limited time, filed visits to Oromiya, Tigray and SNNP regions
were not arranged. In addition, discussions with the beneficiary communities and filed
visits have been arranged and made only in Gambella region. The information obtained
from primary sources only relates to government partners and the implementing agencies
such as EMO, ECX and ZOA. As a result, the evaluation heavily relied on reports and
available documents. However, whenever possible attempt was made to triangulate the
information with other sources. Therefore, the results of the evaluation, the
recommendations made and conclusion drawn should be interpreted and used in light of
these limitations.
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1.6. Evaluation Methodology
In this evaluation various method were used the collect the needed data and information.
The primary data were collected from relevant stake holders through FDGS, KKIs and
direct observations. On the other hand, secondary data were obtained from project
documents, quarterly and annual reports and other relevant documents. Details of the
institutions and persons contacted can be found in Annex 5.
2. Analysis and Major Findings
2.1.
Program Components
As indicated above, three big programs were included in this assignment. These are: The
Food Security Program, The Mine Action Program and the DRM Programs. The mine
action and DRR were indicated as separate outputs under the Food Security program in
the CPAP. However, both became independent programs in their own right later.
According to the CPAP, under the Food Security, Recovery and Natural Resources
Management, four specific outputs are expected:
1. Enhanced coordination for recovery, food security and long term development
2. Effective social mobilization and community level participation for enhanced disaster
management, food security and sustainable livelihood.
3. Enhanced Natural Resources and Environmental Management System in place
4. Enhanced livelihood of the resettled population and systematic intensification of the
resettlement program.
On the other hand, the DRM program started in 2010 and had the following expected
outputs:
4
1. Capacity for risk identification, integrating DRR into development planning, disaster
preparedness and response system management and overall disaster risk management
strengthened at Federal and Regional and woreda levels
2. Enhanced coordination at national, regional and woreda levels for improved
emergency management, disaster risk reduction, food security and long term
sustainable development.
3. Improved, diversified and adaptive livelihoods for vulnerable Crop and livestock
farmers and pastoralists and enhancement of water security through water resource
rehabilitation and/or development in target regions.
4. Integrated watershed and flood management systems and settlement programs
developed for flood-prone communities
5. Internally displaced persons (IDPs) returned and integrated with enhanced livelihoods
Lastly, for the Mine action program, clear output targets could not be obtained from the
documents. However, from the mine action program report (2011), the following
objectives were obtained:
1. To improve food security and socio-economic development in country;
2. To enhance peace and stabilization process in Tigray, Afar, and Somali regions; and
3. To ensure fulfillment of Ethiopia’s commitment under the Anti-Personnel Mine Ban
Convention (APMBC).
2.2.
Overall performance Assessment of the Programs
In this evaluation, an attempt was made to evaluate the achievements of the three
programs. The food security program was implemented in the food insecure areas in the
indicated four regions. Various agencies are involved in the implementation of the
Productive Safety Net Program (PSNP) and other food security programs in the
respective regions. These include the World Bank, USAID and various others. Rather
than providing core funding, UNDP was mainly involved in supporting projects
implemented by the government in partnership with other big donors. The Mine Action
and DRM programs were found to be more focused with clear achievements and impact.
5
In the Mine Action, UNDP provided its service to the Ethiopian Mine Action Office
(EMAO) in programmatic and strategic areas through the deployment of an international
programme advisor. The DRM program started a year ago and is almost entirely
implemented by UNDP with its own resources. Currently one DRR and Recovery
Advisor and one Program Associate are placed at DRMFSS.
2.2.1. Relevance
Assessment of the relevance of programs/projects relates mainly to the degree to which it
addresses the needs and priorities if the stakeholders. The Food Security program
interventions identified (Institutional Coordination and Capacity Development, social
mobilization, enhanced livelihood of the resettled population and Advocacy) are all
relevant as there are clear gaps and limited government capacity in these areas (see the
CPAP). However, some of the interventions were later reprogrammed and others were
abandoned, making the link to the intended output weak.
According to the land Mine Action report, in landmine-impacted communities of
Ethiopia, landmines and other Explosive Remnants of War prevent access to arable land,
various social services, supply of clean water, and access to roads and thereby restrict
free movement for local and regional trade. This has further impeded the ability of
agencies, governmental and nongovernmental organizations to help communities recover
from shocks and step into development stage. This Action was also expected to
contribute to Ethiopia’s fulfilment of legal obligations under the Anti-personnel Mine
Ban Convention (APMBC). Given the extent of the problem in Ethiopia, especially along
the Ethio-Eriterian border, mine action program was found to be a relevant as it clearly
links with improved food security and livelihood of the population.
On the other hand, Ethiopia is exposed to a wide range of hazards associated with
drought, flood, frost and hail, crop pests and diseases, livestock diseases, human diseases,
conflict, landslides, earthquakes and urban and forest fires. Ethiopia is vulnerable to
these hazards given the importance of agriculture for the overall economy and the
livelihood of poor households the majority of which live in rural areas.
6
The Ethiopian government has recognized the importance of having a well coordinated
and organized DRRM mechanism and created a division responsible for DRRM under
DRMFSS. However, the present DRM coordination mechanism is weak. To the extent
that the government is intending to move from emergency and recovery operations
towards sustainable solutions to the sources that cause disaster and risks, having a well
coordinated institutional set up with respect to DRM is important. Thus, UNDP’s
intervention that started to give support to the sector a year ago by assigning a DRM
advisor with filed level presence in Somali and Gamebella regions can be regarded as an
important step. Furthermore, the IDP’s return project that was implemented in Somali
regions is highly successful pilot project that linked emergency to sustainable
development (see field report on Somali region). Others small scale disaster risk
reduction measures (flood protection measures and seeds) undertaken in Gambella were
also found to be important if they are managed properly and the implementation
processes documented for possible scale up.
2.2.2. Effectiveness
Effectiveness of programs/projects relates to the extent to which it has achieved its
intended objective/goal. As indicated above, most of the food security program
component interventions appear to be fragmented and not stand alone projects. This
makes assessment of the contribution of UNDP to the success of the interventions.
Several material and human capacity building activities have been undertaken by the
program interventions. While, these activities might have their own contributions to the
stated output and possibly the outcome, the limited scale of the interventions made
attribution difficult. Obviously, though fragmented, the material and human capacity
building activities undertaken contribute to enhanced institutional coordination. One of
the food security program components, ECX, though the commodities traded are limited,
is said to have improved farmers income and livelihood (through the creation of market
transparency) and government revenue (tax).
In the social mobilization project
component, while the award given to model and exemplary farmers is important in
motivating farmers to follow suit, the extent to which the practice of the farmers has been
taken up and influenced other farmers practice is not known. In addition, though social
7
mobilization manual was developed and translated into local languages, there is little
evidence of its use for community mobilization. Resettlement areas lack basic facilities
and means of livelihood for the resettled communities and interventions in these areas
would be of great benefits to the community. However, UNDP’s involvement was limited
to the provision some farm inputs and awareness creation to the community and
government staff on environmental protection. It also provided veterinary drugs and
training of para-veterinarians and provided the necessary toolkits to them. Thus, except
for ECX to which UNDP has contributed core staff to its implementation, the
achievements of the other targets were not found to be satisfactory.
Of all the programs included in this evaluation, Mine Action appeared to be the most
effective one. UNDP played coordination and resources mobilization roles to EMAO.
DfID, AusiAid and Norwegian Peoples Aid were among the donors that supported the
Mine Action Program. Thus, the contribution of UNDP to the achievements is partial. In
terms of clearance targets, a total of over 22 million m² of previously mine contaminated
land was released for productive use, which is over 103 % of the set target. As a result the
people that were displaced have been returned to their original places, the necessary
social services such as schools, health posts have started their normal operation.
Furthermore, with just one year of its establishment, the DRM program showed some
promising results. In the area of institutional coordination and capacity development, the
SPIF is drafted, human capacity building activities through south-south cooperation and
EW trainings were given to regional staff. The program also implemented pilot DRM
projects in two regions (Gambella and Somali).
2.2.3. Efficiency
The assessment of the efficiency of programs/projects relates to the extent to which the
resources allocated for it have been used properly. The financial records were
disaggregated into food security, Environmental protection, Mine Action, DRM and
Water resources. Due to time constraint and lack of regionally disaggregated financial
data, it was very difficult to inspect the utilization of the funds for the intended activities.
8
However, analysis of the financial utilization of the projects shows that the Food Security
and Mine action projects each used 97% of the budget allocated. Similarly, the
environmental protection and DRM each used about 74% of the budget allocated. The
financial status of the water resources shows only 53% budget utilization (Annex 4).
2.3.
Achievement of Program/Project Results and outputs
In this evaluation, an attempt was made to evaluate the achievements of the three
programs. The assessment of UNDP’s Food Security Program is shown in (Annex 1).
Under enhanced coordination for recovery, food security and long term development,
various capacity building activities were undertaken. Most of them were targeted at
improving the knowledge and skills of government staff in the implementation of the
food security projects. However, data base development on food security and income
generating activities was only undertaken in Amahara regional state. Under the Social
Mobilization component activities such as development of the social mobilization
manual, scale up of best practices, the establishment of mini media and Farmers’
Festivals were undertaken. Other activities such as the distribution of irrigation pumps,
training of women on alternative income generation and provision of start-up capital to
women that were less related to social mobilization were also undertaken. Trainings on
crop and animal husbandry and alternative income generation, distribution of agricultural
inputs and implements and furnishing FTCs with the necessary facilities were some of
the activities undertaken under the enhanced livelihood of voluntarily resettled
populations and systematic intensification of the resettlement initiative component. Under
advocacy for policies and strategies, the establishment was ECX was one of the major
accomplishments. The investment required to establish ECX was huge and big donors
such as the World Bank were involved. In the water sector development program, six
engineers were hired and placed in the MoA to support the implementation of the water
resources in pastoral and agro-pastoral regions.
Over all, in the Food Security Program, with limited financial resources available, it is
not clear why the agency chose to engage in the four big regions of the country as well as
the federal level in the indicated vast program areas. It seems that the agency wants to
9
maintain its visibility in key intervention areas required by the government and decided
to do gap filling. While UNDP’s institutional capacity building interventions are said to
be aligned with the annual government/regional plans, the supports given to regions
lacked consistency and coherence and seemed scattered.
The Mine Action and DRM programs were found to be more focused with clear
achievements and impact (Annex 2). In the Mine Action, UNDP provided its service to
the Ethiopian Mine Action Office (EMAO) in programmatic and strategic areas, project
quality assurance, capacity development and resource mobilization through the
deployment of an international programme advisor. However, its support seems to have
diminished since 2010.
While initially, the DRM was one of the Food Security Program it only started
independent operation a year ago and is almost entirely implemented by UNDP with its
own resources. Currently one DRR and Recovery Advisor and one Program Associate
are placed at DRMFSS. The development of the draft SPIF, the role out of EWs, capacity
building in DRR that included support to Bahir Dar University through South-South
cooperation and the implementation of pilot projects in Somali and Gambella regions
were among the notable achievements of the program (Annex 3).
Furthermore, the achievements of the three program components was judged with respect
to the indicators indicated in the CPAP. In the event that there are achievements, Except
for DRM, UNDP’s contribution to the indicators can only be considered as partial.
Keeping this in mind, the achievements towards indicators are presented as follows:
1. Reduction in Number of ‘chronically’ food insecure population and Number of
people facing ‘transitory’ food insecurity problems.
With regard to this indicator, reports show that as a result of the food security
interventions that were conducted in the chronically food insecure areas (PSNP) of which
UNDP is a part, the number of the food security graduating farmers has increased. The
support given by UNDP in human and institutional capacity building has its own
10
contribution in this regard. However, frequent staff turnover, lack of sufficient resources
and lack of institutional memory were the main problems encountered.
2. Policy and strategies supporting the development of sustainable livelihood and food
security of people living through pastoralism developed and enforced.
Achievements related to this indicator include the support of UNDP to pastoral and agro
pastoral communities through technical assistance given by MoA in the development of
water resources. UNDP has been supporting this initiative by employing six engineers.
The DRM projects initiatives in Somali region and Gambella were also directed towards
this initiative.
3. Areas of land effectively demined and number of people to get access to it for
productive use by men and women.
In this regard, the demining program has given benefits to ensuring the food security and
enhanced livelihood of the population. Over 22 million m² of previously mine
contaminated land was released for productive use. Over 350,000 people and indirectly
950,000 people benefited from EMAO’s mine clearance operations.
4. Early warning system of the DMFSS is fully based on livelihood/vulnerability
analysis through the Disaster Information Management System of DMFSS.
Achievements related to this indicator include, various capacity building activities that
were undertaken to strengthen the EWS of the DFMSS. Trainings were provided to
regional staff on EWS. Some staff of DFMSS are being training at Bahir Dar University
at M.Sc. level on DRM
The other indicators are related to Mine Action and redundant. However, the indicators
that states ‘Legal framework/operational strategy for the management and development
of natural resources by the communities established’, was not achieved.
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2.4.
Institutional and Management Arrangements
As indicated above, while the Mine-Action program and the IDPs return under the DRM
program were implemented through EMO for which a separate project document was
prepared and signed, all of the Food Security Projects and the DRM projects were
undertaken through jointly prepared AWPs. CPA requires periodic joint monitoring of
the physical and financial aspects of projects activities.
With limited human power in the country office, the joint monitoring of the projects at
filed level has been very difficult. The discussion with the partners has shown that regular
monitoring of projects in the field was hindered by lack of necessary facilities such as
vehicles and limited human power (see Annex 5). For instance, discussion with Amahara
food security bureau has revealed that the remoteness and in accessibility of some
projects areas (particularly the resettlement areas) has a resulted in delays in reporting
and financial disbursement. The UNVs placed in the regions are heavily engaged in the
financial management of the programs with limited involvement in the physical
monitoring. In addition, discussions with the stakeholders have shown that frequent staff
turnover, due partly BPR and lack of knowledge management has made the monitoring
and follow up of the food security projects very difficult. In other instances, lack of
capacity by the stake holders impaired the implementation of the projects. For instance,
discussion with Somali Region Food Security Bureau revealed that the DRM project
coordinator employed by UNDP lacked the capacity to implement the project in the
region as a result of which the bureau requested a replacement.
The findings also suggest that programs/projects that were clearly articulated, that
address clear needs and that are relatively autonomous were found to have less
management problems and achieved the intended targets effectively. While government
has capacity gaps (both financial and human), UNDP funding should be clearly aliened
with the long term goals of the sector/bureau involved. The funds provided on annual
12
plans should not be considered as easy money to which everybody can have access to
whenever funding gaps are encountered.
Finally, the CPAP clearly states the government of Ethiopia is the major partner of
UNDP as far as DRM is concerned. UNDAF requires the need for a unified and
harmonized approach to development assistance. The partnership and working
relationship of UNDP with other agencies was found to be limited. The only UN agency
with which UNDP partnered in program implementation at grass roots level was with
WFP in Somali region in the return of IDPs.
3. Outcomes, Impacts and Sustainability
3.1.
Assessment of the Outcome of the programs
The findings of this evaluation showed mixed results about the achievement of the
outcome. Reports show that as a result of the food security interventions that were
conducted in the chronically food insecure areas (PSNP) of which UNDP is a part, the
number of the number of food security graduating farmers has increased. The support
given by UNDP in human and institutional capacity building has its own contribution
towards this. UNDP’s support to ECX was limited to human power provision and
facilitation of workshops. Furthermore, UNDP’s support to resettlement failed to provide
core services needed. The support of UNDP to pastoral and agro pastoral communities
was through the development of water resources through technical assistance given by
MoA. However, the role of UNDP in supporting the water development projects was
limited to coverage of the operational costs required including the salaries of the
engineers. The DRM projects initiatives in Somali region were also directed towards this
initiative. On the other hand, the Mine Action Program directly contributed to the
intended outcome. The demining program has given benefits to ensuring the food
security and enhanced livelihood of the population. Over 22 million m² of previously
mine contaminated land was released for productive use. Over 350,000 people and
indirectly 950,000 people benefited from EMAO’s mine clearance operations. Lastly
most of the DRM program components have started showing clear connection to the
13
intended outcome. Draft SPIF is in place, EWS was roled out in some regions; some staff
of DFMSS are being training at Bahir Dar University at M.Sc. level on DRM.
3.2.
Impacts of the Programs
For most of the Food security project interventions, it is very difficult to assess the
impacts. As there are a number of partners involved in the implementation of the food
security projects, where there were observable impacts, the contribution of UNDP has
been partial. For instance, most of the activities related to institutional coordination and
capacity building were targeted at material support and conducting human capacity
development. Though difficult to assess, such intervention would contribute to improved
institutional coordination. However, this seems to be over shadowed frequent staff
turnover in the government offices. Also, the documentation of the contribution of the
social mobilization intervention (community mobilization manual, mini media, farmers’
festivals) to better involvement of the community in development efforts, increased
awareness and scale up of best practices that might have improved the living conditions
of the target population appears to be limited. The study, design and implementation of
various water development projects in the developing regions is being undertaken with
the support of the engineers hired and placed in the MoA by UNDP. As the result of the
intervention, some pastoral and agro pastoral communities have got access to water and
started practicing irrigated agriculture and improved animal husbandry practices that
would improve their livelihood. ECX is also reported to be benefiting about 2.4 million
farmers (through cooperatives) by linking them to global markets. However,
With regard to the Mine Action, there were clear registered impacts. Reports show that
over 350,000 people directly and 950,000 people indirectly benefited from EMAO’s
mine clearance operations. These was achieved through increased access to land,
agricultural production increased, levels of food security improved, schools rehabilitated
or built, and school enrolment improved. Additionally, Ethiopia is expected to fulfill the
Anti-Personnel Mine Ban Convention (APMBC) in few years time.
14
The DRM program was launched a year ago and it is very difficult to anticipate impact in
one year. However, there are indications that the program will achieve good results in the
near future. With SPIF finalized, Ethiopia will have a clear DRM policy and strategies.
The IDP’s return project successfully reintegrated more than 700 HHs in Somali region
(See Annex 5 filed visit report in Somali Region). Flood mitigation measures undertaken
in Gambella region saved human and animal lives and helped the community to produce
more food (Annex 5, Gambella region filed visit report).
3.3.
Sustainability of the programs
The sustainability of most of the food security project interventions is questionable as
most of the activities were gap filling exercises. This was further aggravated by the
nature of the interventions (most are human capacity building activities) because of
frequent staff turnover and lack of institutional memory. ECX is expected to be handed
over to the government over the next 5-6 years. According to the discussion healed with
the agency, enough local capacity has been built over the years. However, retention of
critical staff and absence of and there has not been a single incidence of system failure
that hindered trading thus far competition in its operation may affect its sustainability.
Also, lack of alternative trading options for the commodities might impair its efficiency
and competitiveness.
Though adequate capacity has been developed in the Mine Action program, with the
project ending in few years, its fate is not known. The Mine Action training center has
clear benefits to the region, as most of the countries in East and Central Africa have mine
problems. Requests for mine clearance have been made to EMAO from neighboring
countries like the South Sudan and the office is undertaking mine clearance in the
countries. These opportunities will present EMAO with ability to continue its operations
on sustainable basis if support is provided during critical periods when funding is ending
until it is taken over by the government or sorts its way out in generating its own
financing mechanisms.
15
4. Lessons learnt and best Practices
4.1.
Lessons Learnt
5. Programs/projects that address clear needs and priorities are more effective
and resulted in greater impact: The results of the evaluation showed that
interventions that addressed real needs and priorities such as the Mine Action,
ECX and the DRM had achieved the desired objectives and thus the outcome
more successfully.
6. Programs that are relatively autonomous and focused are more effective:
Programs/projects that were relatively autonomous such as the Mine Action, ECX
and the DRM, particularly the IDP’s return were more effective and contribute
more to the desired outcome better than the other interventions. This might be
related better management, monitoring and follow up of the programs/projects.
7. The need to have well documented data: While the impacts of the Mine Action
program were clearly documented, due to lack of evidence and their nature,
contribution towards the intended outputs and thus the outcome were difficult to
measure for most Food Security interventions. For instance, the contributions of
the community mobilization activities to the intended output and outcome have
been found to be very difficult to measure and unknown. In the future, UNDP
needs to put in place mechanisms for the documentation of the contributions of
program interventions.
8. Assurance for proper handover and sustainability: The fate of some programs
such as EMO was found to be unclear after the donor support is over. This
necessitates an inbuilt sustainability component in program design and
implementation.
4.2.
Best Practices
Some of the interventions considered in this evaluation could be considered as having
innovative approach in their design and implementation and could have national or
regional benefits. These include ECX, the Mine Action, the IDPs return and the SPIF.
16
UNDP needs to document and publicize the process involved in the establishment of
ECX, how the program was conceived and designed, what implementation problems
were encountered and what was done to solve them so as to bring the agency to this
stage. This will enable the establishment of similar commodity exchange platforms in the
region.
The approach used in the return of the IDPs in Somali region has been clearly
documented. However, UNDP needs to publicize the approach used for further
replication and scale up.
5. Challenges
1. Limited financial resources lead to interventions that were overstretched and
fragmented: The CPAP document states about six program outputs expected
under DRM program component of UNDP. The available financial resources do
not seem to have allowed the agency to engage boldly in the program
components. Instead, the agency chose to spread the limited financial resources to
the planned outputs that could lead to the outcome. This made the agency’s
contributions to be overshadowed by other partner agencies.
2. Lack of proper documentation and follow up of interventions: The national
execution modality requires the alignment intervention with government plans.
Interventions are undertaken in accordance with jointly prepared annual plans.
The lack of separate project document for interventions made performance
monitoring, evaluation and documentation weak. Lack of institutional memory
and knowledge management made the follow up of the performances of the
project activities and their contribution to the stated output and outcome difficult.
3. Lack of government capacity: Lack of government capacity due mainly to
frequent staff turnover mainly due to BPR and lack of experience made the
monitoring and implementation of the food security projects difficult. The UNVs
placed in the regions to give support to UN-EXCOM projects are limited in
17
number and mainly focused on the financial aspects of the projects than the
physical monitoring and follow up of their implementation.
4. Communication problems: Remoteness of some of some project sites and lack
of transportation facilities resulted in delays in reporting and financial
disbursement.
6. Recommendations
1. Focus on innovative interventions: Aligning projects with government plans
could avoid duplication of efforts. However, future UNDP interventions should
focus on areas where the government has clear technical, human and financial
shortfalls. Most of the food security program components lacked either the
innovation or the resources needed to make a difference. However, interventions
that address the real capacity needs of the government such as the Mine Action
program, ECX and to some extent DRM were innovative in nature and resulted in
clear impacts.
2. More effort in resource mobilization: In the CPAP, it is clearly stated that
UNDP would mobilize resources for the achievement of the outputs indicated.
However, the resources mobilized for the Food Security projects were limited as a
result of which the effort of the agency appeared to be scattered and small,
supporting programs funded either by government or other agencies. UNDP can
achieve maximum impact by mobilizing resources for well articulated priority
areas. This requires strengthening the capacity of UNDP in project formulation
and implementation.
3. The need for continuous capacity building: Frequent staff turnover has been
cited as a major problems related to programs implemented by the government.
Future interventions need to have inbuilt continuous capacity building component.
4. Put knowledge management system in place for interventions: Tracking the
performance of interventions and assessing their performances for possible scale
up requires good knowledge management system. UNDP should make sure that
such systems are inbuilt in the design and implementation of its future programs.
18
5. Continues support to sustenance of promising programs/projects: Some
programs that have shown promising results such as the EMAO should be
supported and mechanisms for handover to the government be put in place.
6. Scale up of best practices: UNDP can achieve more impact by testing innovative
approaches to problem solving, steering successful methods/approaches and
devising mechanisms for their scale up. The approaches used in the return of the
IDPs in Somali region by ZOA, the pilot project on prevention of flooding in
Gambella have future potential benefits if scaled up.
7. The need to coordinate with other agencies and development partners:
UNDP should work more closely with national and international development
partners in program design and resources mobilization so as to contribute more to
GTP. This becomes increasingly important in the face of looming financial crises
that might affect the flow of foreign development assistance to Ethiopia.
7. Conclusion
UNDP’s Ethiopia country program emerged out of the country’s United Nations
Development Assistance Framework (UNDAF) that was developed in 2005. This
evaluation seeks to evaluate the performance of UNDP’s Food Security, Mine Action and
DRM programs. In the evaluation both primary and secondary sources of information
were used. Due in part to limited time and the breadth of the program components, the
evaluation relied heavily on secondary sources of information. While the Food security
and Mine Action programs were implemented over the periods between 2007 and 2010,
the DRM project has only been a year old. The main partner of UNDP in implementing
most of the Food security projects except the ECX was the government. The support to
Mine Action was provided through EMAO and to the DRM project on the return of the
IDPs was undertaken by ZOA, an international NGO specializing on the return of
refugees. The contribution of the these programs to the desired output was found to be
mixed with most of the Food Security program interventions failing short in most cases.
The Mine action and the DRM projects had achieved the desired outputs and thus the
outcome. However, most of these programs were implemented with other partners with
UNDP playing capacity building, resource mobilization and facilitation roles. Thus, the
19
contribution of UNDP to the success of the programs can only be judged as partial than
full.
20
8. List of Annex
Annex 1. Food Security Program Evaluation Matrix
UNDP Program
component
Disaster Risk
Reduction,
Recovery and
Sustainable
Livelihood
Outcome
Output
Targets
Achievements(claimed by UNDP)
Comments from Evaluators
11. By 2011, the
implementation
of policies,
strategies and
coordination
mechanisms are
fully
developed….
11.1. Enhanced institutional
coordination for recovery,
food security and long term
development
11.1.1. Mapping out of all
recovery and food security
initiatives
11.1.2. Strengthened level
of coordination
11.1.3.Computerized data
base
11.1.4. Expanded and linked
info center of DPPA and
FSCB
-All food security initiatives
throughout the country
systematically mapped out.
-Strengthened coordination
framework through training at
least 75% of the staff and
institutionalization of systems in
MoRAD and four regions.
-Five computerized food security
and agriculture database one in
each region and MoRAD
established
-The DPPA and FSCB
information centers well
integrated and linked with the
regions
-New social mobilization
strategy/manual implemented in
at least 10% of the food insecure
weredas (total 283)
-20% reduction annually in the
number of persons receiving food
aid.
-At least 20% of community
initiated food security and
livelihood projects implemented
yearly in the focus weredas.
-In Amahara region, food security mapping of
12 food insecure woredas was done.
-Assessment of Non farm income generating
activities was done in Amahara Region
-Computerized database established and 70
regional experts were trained in handling the
system.
-Workshops on coordination at various levels
were conducted in SNNPR
-Various trainings on M&E were done in Tigray
region.
-No Food security mapping and
database development was done in
the other three regions and the
project in Amahara was not finished
or sustained.
-The extent to which UNDP’s
support to the expansion of
information center and linking it to
DPPA and FSCB is not known.
- Social Mobilization manual developed and
translating the manual into local languages
- Support to the farmers’ festival
-Scale of best practices (2 in Oromiya, 5-7 in
Amahara and 7 in SNNPR ). The other three
regions and mentioned scaling up of best
practices, but they are not specific.
-In Oromiya 185 irrigation pumps were
purchased and distributed to farmers
- In Oromiya region training was given to
farmers on soil conservation and soil
conservation structures were built, plots of land
were cleared from termite mud, etc….
-In SNNPR 140 women group were given
training on alternative income generating
activities and were accordingly provided start-up
capital to work and produce based on the
business plan preparation
-The extent to which the social
mobilization manual has been used
and its impact, i.e. what initiatives
were taken by the community as a
result of the use of the manual is not
clear.
-Organizing occasions for rewarding
farmers and other agricultural
development not clear link to need.
Capacity development depends on
sharing success cases.
-There is no evidence on the number
of community initiated projects.
-There are some reports of scaling
up best practice (e.g. Oromiya
region). But the effort seems to be
limited in scale and not well
coordinated
11.2. Enhanced Social
Mobilization and
community level
participation for disaster
management, food security
and livelihoods.
11.2.1. Finalization and
implementation of new
social mobilization
strategy/manual
11.2.2. Mobilization of
communities resulting in
community based
development projects
11.2.3. Identification and
scaling up of best practices.
21
Evaluation Matrix
UNDP
Program
component
Outcome
Output
Targets
Achievements(claimed by UNDP)
Comments from Evaluators
11.3. Enhanced
livelihood of
voluntarily
resettled
populations and
systematic
intensification of
the resettlement
initiative.
13.3.1. Putting
systems for social
services
13.3.2. Capacity
development for
Food security
- At least 75% of the
resettled households
having access to basic
social services.
-At least 85% of the
resettled households food
secure over five years.
-While there were some interventions
undertaken to support the livelihood of the
resettled population, UNDP’s role has been
limited to the provision of some agricultural
inputs, and provisions of training to staff
working in these areas.
11.4. Advocacy
for
policies/strategies
that link
emergency,
recovery and
long term
development.
-Strategy the links
emergency, recovery and
long term development
formulated and
implemented.
-Establish pools of
training of trainers on
disaster reduction and
recovery at federal,
regional and wereda
levels.
-Social mobilization for
drought resilient society.
-Commodity exchange at
least federal and four
regions.
-Policy forum linking
emergency, recovery and
long term development.
-Mine clearance in
Tigray and Afar regions.
-In Oromiya region, veterinary drugs were purchased and
distributed to the resettled community to control Testse fly.
Some community members were also trained as Para veterinarians
and given the necessary toolkits.
In the same region, training on irrigation management was given to
about 82 zonal and wereda experts. Seedlings of banana were
distributed the community.
-In Tigray region, 14 FTCs in the two resettlement weredas were
furnished and motor bicycles procured.
- Training was given to women farmers in oromiya region on shoat
production and about 2673 shoats were distributed to them.
-In Amahara Region training was give to the resettled community
on incense and gum production. In the same region crop protection
Brigades were established. 5 computers and printers were procured.
-176 farmers were trained Bee keeping & Honey production in
SNNPR, 71 and 140 farmers were trained in animal and crop
husbandry. Various seedlings and agricultural inputs were
distributed to farmers.
- Technical and operational support was provided to the
enhancement of the DRM-SPIF through the integration committee.
- DRM projects in Somali and Gambella regions implemented
-Drought Response Project in Somali and Oromia (Borena) regions
initiated.
- Provided financial and technical support for the IDPs return in
Somali (more than 700HHs were returned to their original
residences.
-UNDP has been supporting the Ethiopian Commodity Exchange
(ECX) by paying the salaries of six technical staff since its
establishment in 2007. It also played its own part during the initial
stages by sponsoring the visit of senior government officials to
other countries for experience sharing.
- Over 22 million m² of previously mine contaminated land was
released for productive use
- Over 350,000 people and indirectly 950,000 people benefited
from EMAO’s mine clearance operations.
22
- The development of SPIF
could be a clear achievement if conflicts are
resolved
-The IDPs return in Somali Region was also
implemented properly with due consideration to
the provision of the necessary support required
to establish the returnees to their original paces.
No evidence of ToTs.
-With the need stems established and exit
strategy developed, ECX can be considered as
one of the success stories. However, given the
investment required for its establishment and
partners involved, the role of UNDP was
limited.
-Land mine clearance was the most successfully
completed project. The outcome and outputs
were clearly documented. However, the project
is near its completion and its sustainability is at
stake. Particularly, the mine clearance training
center should be given adequate attention at it
could have regional benefits.
Evaluation Matrix
UNDP Program
component
Support for
sustainable
land/environmental
and natural resource
planning
Outcome
Output
Targets
11.5. Capacity to implement
federal/regional
environmental policy,
strategies, laws and action
plans
-Two completed guidelines/manuals on the
formulation, implementation, monitoring
and evaluation of EMP.
-62 weredas (mainly in the resettlement
weredas) prepare and endorse EMP.
-Second state of the Environment report
produced and disseminated.
-Network federal WSS database
established and operational.
-Policy M&E policy and guidelines
-Donor roundtables held
11.6. Capacity to implement
the water sector development
program enhanced
23
Achievements
Comments
- UNDP assisted MoA by
hiring 6 engineers that would
help the developing regional
states in the design and
construction of water
development projects.
-Discussions with the
Department of NRMD also
revealed that UNDP covered
operation cost s of the staff
assigned to the projects.
The other targets that
were mentioned in the
CPAP were not
undertaken.
High turnover by
engineers raises issues
of sustained capacity.
Annex 2. Achievements of the Mine Action
Output

A total of over 22 million m² of previously mine contaminated land was released
for productive use, which is 103 % of the 3-year total clearance target.

Directly, over 350,000 people and indirectly 950,000 people benefited from
EMAO’s mine clearance operations.

Through increased access to land, agricultural production increased, levels of food
security improved, schools rehabilitated or built, and school enrolment improved.

EMAO’s demining also significantly contributed to the housing of returnees and
local inhabitants as well as other infrastructure development projects, such as
construction of water wells, an airport, and electric power grids.
Beneficiaries of EMAO’s mine clearance operations
Region
Direct + Indirect
Beneficiaries
226,562
%
17
Afar
209,212
16
Somali
883,929
67
Tigray
Total
Direct
Beneficiaries
91,226
1,319,703
Indirect
Beneficiaries
%
%
25
135,336
14
4,082
1
205,130
21
267,087
74
616,842
64
362,395
957,308
1) Capacity building
In the area of capacity development support, from 2007 to 2009, UNDP provided EMAO
with the following training opportunities as per EMAO’s request.
In 2007
1. The UN Mine Action Advisory Team successfully completed the accreditation of
the Ethiopian national dog handlers thus contributing to the sustainable
development of mine detection dog capacity at EMAO. Moreover, the
Information Management System for Mine Action (IMSMA) was improved for
specific local requirements for Technical Survey (the 1st quarter 2007).
2. Technical survey teams received field training in Somali region in terms of
precise Geographical Information System data collection and accurate reporting
on suspected mine affected areas (the 2nd quarter 2007).
24
3. The new generation of the IMSMA was installed at EMAO through a joint
technical assistance provided by the UNDP and the Geneva International Centre
for Humanitarian Demining (GICHD). One data entry officer from EMAO was
trained to operate the new generation of the IMSMA, while required IT
equipment was provided through the UNOPS procurement services (the 3rd
quarter 2007).
4. One EMAO senior manager attended the Senior Managers Course held at the
James Madison University with support of the UN (the 4th quarter 2007).
5. Throughout the year, UNDP’s assistance was provided to EMAO Finance Unit
for the preparation of quarterly financial reports.
In 2008
1. UNDP Implementation Support Officer’s assistance to EMAO Finance Unit
(February to March 2008).
2. Mine Detection Dog (MDD) programming training for the MDD coordinator
(June 2008).
3. Bozena demining machine workshop for a Mechanical Demining Team assistant
(June 2008).
4. Training on how to complete UNDP’s Funding Authorization & Certification of
Expenditures (FACE) form to EMAO Finance Manager (July 2008).
5. Training of 10 EMAO members on the use of Vallon metal/mine detectors
(August 2008).
6. Administrative & logistics management training provided by Ethiopian
Management Institute for 43 field staff, i.e. leaders and sub-leaders of demining
companies, admin and logistics officers, Quality Assurance experts, branch office
staff etc (September to October 2008).
7. Training of 10 EMAO members on the use of GA-72Cd magnetic locators
provided by UNMEE international trainer (November 2008).
In 2009
1. Level 1 & 2 Training Courses on the effective use & maintenance of VMH3CS
metal detectors offered by Vallon firm in Stuttgart for the Head of Operations
Department and Head of Training Department of EMAO (February 2009); the 2
trainees subsequently trained all the field operators in 4 of the 5 demining
25
companies during 2009. Moreover all 4 demining companies were equipped with
VMH3CS detectors provided by other donors for the more effective / efficient
operations by the end of 2009.
2. UNDP Implementation Support Officer’s assistance to EMAO’s Finance Unit
(February to March 2009).
3. A 2-day Communication for Development training provided by UNDP for an
MRE/PR officer of EMAO (April 2009); subsequently with acquired knowledge
and tools for effective communication, EMAO’s MRE department assisted UNDP
in preparing a video footage on UNDP’s program in Ethiopia that featured
EMAO’s humanitarian demining activities as well as other UNDP’s flagship
projects.
4. Capacity Development support for the rollout of the Information Management
System for Mine Action (IMSMA) Next Generation (NG) at EMAO (May 2009
onward); a 10-month expert support of the Swedish Civil Contingencies Agency
(MSB) was facilitated by UNDP to EMAO’s Information Management
Department and as a result IMSMA NG was successfully rolled out in Ethiopia.
5. Knowledge sharing and learning mission by the Deputy Director and Head of the
Logistics Department of EMAO to the two producers of demining equipment,
CEIA of Italy and Vallon of Germany (September 2009).
26
Annex 3. Disaster Risk Reduction and Livelihoods Recovery Program
Output
Output 2: Enhanced
coordination at national,
regional and woreda levels
for improved emergency
management, disaster risk
reduction, food security and
long term sustainable
development.
Baseline:
Indicators
-Number of DRR/ER
coordination mechanisms
supported at Federal,
Regional and woreda levels
- Number of agencies
participating in DRR
coordination meetings at
Federal level
Planned activities
Continued
deployment of 1
DRR and
Recovery Advisor
and 1 Program
Associate at
DRMFSS
Professionalization
of DRM
Achievements
Technical and operational support was provided to the enhancement of the DRM-SPIF
through the integration committee
• Facilitation of the South-South Cooperation for four delegates coming from
Bangladesh and Philippines
• Finalization of the Drought Response Project and fund raising from core resources,
BCPR and CERF and managed to secure additional $ 1,800,000
• Developing of material requirements for EOC and EWS
• Representation and giving technical support for the International Day for Disaster
Reduction Celebration through the organizing committee. Moreover, working on the
materials to be exhibited by UNDP on the event
• Review of progress, challenges, and opportunities and subsequently analyzed the
AWPs
• Quarterly, bimonthly and field monitoring visits are submitted
• Supported the recruitment of IT professionals for DRMFSS and developing TOR for
new posts under Drought Response Project in Somali and Oromia (Borena) regions
• Develop strategy for the implementation of MDTF
• The brief was prepared on the Drought Response for the RBA Director
• National DRR&LR program document was revised
• Preparation of joint proposal on Drought Response to be presented to the CERF
• Provide technical support and representation for the IDPs return engagements
• Facilitated for the selection of the staffs to be part of professionalization of DRM
engagements
• Supported the Bahir Dar University though the advisory board
• Developed and supported the finalization of the recruitment of Gender Analysis
consultant
• Provided technical advice on the development of the DRM outcome evaluation TOR
• Gave technical guidance on the revision of the MSC curriculum for Bahir Dar
University
• Provided technical and operational support for the team from Asia under S-S support
• Finalized TOR for the deployment of MRM national technical assistance support unit
• Attended the workshop on Horn of Africa Crisis in Kenya, Nairobi
Under this activity, 4 DRMFSS staff were sponsored to attend their MSC in Disaster
Risk Science and Sustainable Development distance education program with Bahir Dar
University. Initially, the program intended to give this opportunity to 13 staff and
accordingly financed their entrance examination. However, only four candidates
successfully passed the entrance exam. Similarly, 6 staff are on the the verg of finalizing
their enrollment for their study abroad (3 for MSC program with University in
Philippines and 3 for PhD program with University in Bahgladesh).
27
Operational support to
facilitate program
implementation
Continuous
program
monitoring
Enhanced
Coordination
Strengthening of
EWS at federal
and regional levels
(including pilottesting)
South-south
Cooperation
Regional and Woreda level result-based monitoring was conducted in Somali and
Gambella regions. The monitoring visit focused on ensuring the intended results are
mate through achieving activity results signed on the AWP and assisting IP’s strategize
to enhance program delivery through reviewing budget portfolio.
• Representation with donors to mobilize support for DRM. Specifically, bilateral
resource mobilization meeting were undertaken with sweden and Switzerland.
• The program is represented in the Humanitarian Response Fund (HRF) Board.
• The program continues to engage in various meetings and ad hoc committees
The revamped EWS system was rolled out in Amhara, Oromia and Harari Region
bringing up the number of regions where the EWS System is going to be operational to
7 and the total number of woreda personnel trained to 817. In addition, regional level on
job training was given to all regions (except Benishangul Gumuz and Afar) EWS
experts on data entry, compilation and sending data to DRMFSS.
In September 2011, a team of four professors (two each from Philippines and
Bangladesh) gave a three weeks technical assistance for Bahir Dar University under the
South-South Cooperation initiative which was promoted by UNDP and facilitated
through DRMFSS. The mission had core objective of giving technical advice on
Curriculum Revision and Development and Web Portal Support for Online Learning. In
addition to this, the team has reviewed Research Agenda/Proposals, Short Course
Training, Training on GIS and Remote Sensing and reviewed the Roadmap for the
Proposed Institute of DRM. Accordingly, many of the recommendations made by the
team have now been taken onboard, especially BDU has now used the new curriculum
(that subscribes to international standards) for the current cohort of students for the Msc.
degree program; the degree is now named M.Sc. on DRM instead of the previous M.Sc.
on Disaster Risk Science thus shifting the focus from the development of scientists to
that of managers; and the recommendation of transforming the Department for DRM
and Sustainable Development to an independent Institute for Disaster Risk Management
has been taken into consideration. The success of this mission not only encourages the
realization of the recommendations but also fosters further South-South Cooperation on
this and related subject matters.
28
Annex 4. Financial Resource Utilization (USD)
Food Security
Year
Budget
Environmental Protection
Expenditure
Budget
Expenditure
Mine Action
Budget
DRM
Expenditure
Budget
Water Resources
Expenditure
Budget
Expenditure
2007
1,501,791
725,374
200,000
100,162
4,640,606
4,272,229
270,000
58,076
2008
7,845,975
7,728,911
491,305
279,154
5,292,366
4,579,118
491,474
383,950
2009
4,793,712
4,537,336
374,811
339,078
5,292,553
5,585,394
594,806
329,958
2010
1,898,752
2,519,290
126,400
146,945
201,251
544,481
588,103
542,657
108,176
83
19,183
368
8,881
1,928,974
1,312,950
884,522
15,427,144
14,990,103
2,517,077
1,855,607
2011
Total
Utilization
(%)
17,367
16,040,230
97
15,528,278
1,192,516
74
97
29
74
9,240
1,464,456
53
781,307
Annex 5. Field Visit Reports
Amahara Regional State
Food Security Project Field Visit Report
During the visit to Amahara Region, discussion was held with concerned bodies of the
sectors that implemented UNDP food security project activities.
During the visit to the region it was learnt that there are 167 weredas in the region out o
which 64 weredas are food insecure. There are more than 170 NGOs operating in the
region and BoFED is in charge of coordinating all UN funds. For this purpose there are
two UNV staff placed in the office.
UNDP operates in 10 food insecure weredas and 5 settlement weredas of the region. The
major interventions of UNDP in the region are in the areas of coordination, social
mobilization and livelihoods. Activities reported to have been undertaken under
institutional coordination include capacity building at various levels, assessment of non
farm income generating opportunities in the region, food security mapping of 12 food
insecure weredas, mapping and data base preparation of programs implemented in the
region and training on how to use the data base. In addition, in the areas of community
mobilization, mini media was established and financial and material support to PSNP
graduation day in the food insecure weredas were provided. In the area of livelihood
strengthening, various trainings such as weavery and seweeing were provided and the
necessary start-up capital given on credit basis to selected and organized youth from
some selected weredas of the region.
Field visit was arranged to Ebinat wereda and discussion with wereda level officials was
made. Most of the staff contacted do not know about the interventions in the wereda
though they are aware of the activities as most of them were newly appointed. However,
the evaluation team witnessed the establishment of mini media center mainly for
community mobilization (awareness creation and information sharing) in the wereda
town but was not able to observe the mode of operation of the center and the programs.
Furthermore, as farm level visits were not arranged, the team could not get information
on the real impact of the intervention at farm level.
30
The evaluation team also made a visit to Department of Disaster Risk Management In
Bahir Dar University and had discussion with the University’s president and head of the
department of DRM. According to the discussion held with the officials, the university
has an objective of becoming the center of excellence in DRM. Currently, the department
has 2 Ph.D and 11 M.Sc holder staff members and offers under graduate and post
graduate training in DRM. The M.Sc level training in DRM is provided online to
government sponsored (mainly from DFMSS) staff and some students from NGOs.
UNDP’s support to the university include the provision of Birr 105, 000 for preparation
of DRM training manuals, arrangement of experience sharing visits of 2 Bangladish and
2 Philipino professors) to the department through South-South cooperation, Financial
supports for the celebration of DRM day and wereda level disaster risk profiling in
Amahara Region were also provided.
In addition, visit was made and discussion was held with Amahara Region environmental
protection Bureau. Accordingly, UNDP was involved in 6 weredas of the region in
providing capacity building and community mobilization exercises in environmental
protection.
It was noted during the discussion that lack of awareness about
environmental management at all levels, delay in the release of funds by UNDP and
shortage of funds to cover activities over an extended period of time are the major
problem faced by the Bureau. Apparently, it was learnt that the bureau has limited
resources apart from the government budget. As a result, the bureau would like to
collaborate with UNDP in the areas of participatory Forest Management, alternative
income generation and recovery.
The major challenges reported by the sectoral offices include:
-
In accessibility and communication problem with some weredas and
consequent delays in the disbursement and receipt of funds.
-
High staff turnover at all levels and lack of institutional memory.
-
The team also observed lack of adequate monitoring and follow of the project
activities by BoFED. The UNV staff are mainly involved in financial
management of the project activities than physical monitoring.
31
-
There is also lack of adequate documentation of strengths, weakness and
success stories of the pilot projects that would enable possible replication.
-
Lack of adequate credit for small and micro enterprises.
Somali Regional State
DRM Project Field Visit Report
Visits were made to Somali Region DDP Office, Somali Region Water Bereau, Somali
Region Bureau of Finance and Somali Region Pastoral and Agro-pastoral Research
Institute (SoRPARI) and ZOA. The major UNDP Project intervention components in the
region include capacity building and coordination, livelihood diversification and IDPs
Return
The UNDP project is coordinated by the Regional BoFED. The burea channels the
resources to the respective regional Bureau and the districts and follows up the
implementation of the project activities. At regional level, there are only three staff
responsible for the coordination of UN and NGOs projects in the region. Out of the three
staff, two are UNV recruits. Also the project is coordinated from UNDP’s side by three
staff that are placed under the regional DPP Office. The project pilot weredas are Aysha,
Kebribeyah and Artishek. The major implementers of the project activities are the
regional DPP, Zoa (NGO), the regional water bureau and the Districts.
Discussion held with the Bureau of the President, NGO coordinator found that the major
problems of the region include climate change and associated drought, lack of adequate
Policy related to pastoralism, outbreak of diseases (human and animal) and shrinking of
land and loss of livelihood by the pastoral and agro pastoral communities of the region.
During the visit to the regional DPP office, it was learnt that DPP is responsible for
disaster risk management in the region providing guidance, strategies and capacity
building activities in DRM. The UNDP project activities implemented by the office were
reported to be provision veterinary supplies, seeds and other inputs to the pilot wereda
communities. In addition, various trainings on cooperatives, water supply and
32
management, awareness creation about DRM and the return of IDPs were undertaken. On
the other hand, during the discussion with Somali Region Bureau of Water Resources it
was learnt that the Bureau gives assistance to the regional DPP in the implementation of
water related projects most of which relate to rehabilitation of existing water points. Also,
there has been one water reservoir constructed in Aysha while there has not been any
capacity building exercise given to the Bureau.
On the other hand, visit made to SoRPARI, witnessed that the research institute is
engaged in conducting applied research in seven areas that include Range land
management and Forestry, Crop production, Livestock and Forage production, soil and
water conservation, agricultural mechanization and Extension and socioeconomics.
According to the experts from the institute, climate change and its associated impacts
(drought and flooding) pose huge risks to the region’s pastoral and agro pastoral
communities. As a result of lack of adequate grazing due to drought, the number of cattle
kept has dramatically reduced and the community is shifting to having more camels. In
addition, lack of alternative energy and means of livelihood has lead to increased
deforestation and threatened the range lands on which the livestock are dependent for
grazing. Furthermore, the range lands are being invaded by an alien species called
partheniem that is virtually taking over the range and farm lands of the region. In order to
overcome lack of feed availability to cattle especially during drought years, the institute
has introduced a forage called sudan grass that is drought tolerant, fast maturing and that
could be harvested frequently. As a result of the introduction of the forage, about 32,000
heads of cattle were saved last year in areas where it was introduced. The research
institute has generated about 9 early maturing improved rice varieties that are adapted to
the regions agro ecology. Also, a few oil crop and sesame varieties have been released to
the regions farmers by the institute. The institute has also organized farmers living around
Ganale River into Farmer Research Groups (FRGs) and Cooperatives for the production
of improved seeds. However, due to lack of market and high cost of fuel for generators
that pump water for irrigation, the farmers have not benefitted from the intervention.
33
On the other hand, during the discussion with ZOA, an International NGO that focuses on
IDPs and Refugees, it was learnt that it had relocated and reintegrated 700 IDP HHs that
lived in Hartishek refugee camp displaced due to Drought. The NGO used emergency
and livelihood approaches to relocation. Basically it supports and follows up the
households up to 2 years by giving them the necessary livelihood support. It has been is
considered as a model project in the reintegration of IDPs and IOM is considering
adopting the approach used by the agency.
Key factors for success as reported by the NGO were that the initiative came from the
region because of the NGOs track record of the NGO in Oromiya region, it used step by
step approach taking a low profile in the beginning because of the political sensitivity of
the project, the project involved a lot of concerned stakeholders (e.g. WFP was involved
in providing ration), it was a voluntary return of the IDPs and involved consultation of
Traditional leaders (Ugaz) and communities. However, getting security clearance was the
major challenge faced by the NGO and UNDP assisted them in getting the politics right.
Future Plans of the NGO include engaging in recovery (provision of social facilities such
as schools, health posts, water to the resettled IDPs), relocate the remaining 700 IDP HHs
in Hartishek, relocating 10,000 IDP HHs located in Udet as per the request of the
Regional government and assessment of IDP situation in three zones (Warder, Degahabur
and Afder).
The major challenges faced by the UNDP project implementing partners in the region
include management of the program: Poor coordination at DPP office. The UNDP
coordinator did not deliver what was expected and the office had already made a
requested to UNDP for the replacement of the coordinator, low awareness about DRM at
almost all levels, lack of capacity at community level, poor information management:
Data storage, retrieval and analysis, the implementing weredas do not have capacity
(mainly manpower), high staff turnover and reshuffling of staff, decentralization and its
consequent impact on the capacity of weredas, lack of facilities: e.g. cars for regional
UN project coordination team and delay in disbursement of funds due to delays in
reporting (financial and physical reports)
34
Future areas collaboration with UNDP:

SoRPARI is a potential source of risk reduction technologies and information in
the region.

Drought tolerant and early maturing crop varieties developed can be taken up and
disseminated to farmers

Farmer Research Groups (FRGs) established by SoRPARI can be used for seed
multiplication if their key constraints such as fuel and maintenance of machines
are put in place.

Scale up the use of sudan grass a feed for livestock as risk reduction activity to
overcome shortage of livestock feed.

Project intervention to overcome invasive species (partheniem).

Possibility of commercializing Aloe as risk reduction measure

Restocking

Business training: Livelihood building projects (bee keeping, Construction,
etc….) as Pastoralists drop out and associated migration to towns is on the rise

Irrigation: Around 300,000 ha of potentially irrigable land is available in the
region.
Gamabella Regional Sate
DRM Project Filed visit Report
According to the discussion held with the regional officials the major source of risk in the
region are flooding and conflict (External and Internal) and consequent displacement of
people. UNDP is giving support to Gambella region in areas of DRM. According the
discussion held at regional level, the regional BoFED coordinates the UNDP project
activities and channels the resources to the implementing sectors. For the overall
management and coordination of UNDP and UN projects, the Bureau has assigned one
focal person and one UNV staff.
35
UNDP DRM project interventions in the region include institutional and coordination
support for the implementation of DRM in the region, establishment of community level
risk reduction measures at two pilot kebeles in Gambella and Lare werdas (flood
embankments), market linkages (establishment of livestock market center in Lare),
multiplication and distribution of improved varieties of maize to farmers and introduction
oxen plough to the regions farmers. However, most of the implemented project activities
were found to be limited in scale, making the possibility for scale up difficult.
In order to control the impact of flooding on the flood affected segments of the
population that live on or by the side of the embankments of the major rivers (mainly
Baro) in the region, the region has started to implement a villagization program whereby
people were moved to high ground and safer areas. This year alone, more than 15,000
people have been villagized and more requests are coming from the community to be
villagized. The regional government has plans to villagize more people over the next few
years. However, the main challenge to this program has been lack of adequate services
such as drinking water, health posts and schools in the villagization areas.
36
Annex 5. List of Persons Contacted
Amahara Regional State (ARNS)
Dr Balie
Bahir Dar University, President
Ato Tarkegen
Bahir Dar University, Head od DRM Department
Ato Mesfin G/Medhin
ARNS BoFED Deputy head
Ato Amare Kindie
ARNS State DPP and Food Security Coordination Office
D/head
Ato Zemen Tsegaye
ARNS Water Bureau
Ato Kebede Yimam
ARNS Environmental Protection Bureau Head
Ato Melisachew Admasu
ARNS Environmental Protection Bureau, UNDP focal
person
Ato Awoke Feyissa
ARNS Small and Micro enterprises
Somali Regional State
Ato Mubashir
Ato Abdurahiman
Ato Mohammed
Ato Abdulnaser
W/t Fertun Abdi
Ato Guled
Ato Alebachew Mamo
Ato Solomon
Ato Mohamed Sherif
Ato Mohammed
Ato Seid
Somali Regional State BoFED
Somali Regional State BoFED
Somali Regional State BoFED
Somali Regional State, President Office, NGO Coordinator
Somali Regional State Bureau of Water Resources
Somali Regional State DPP office Head
ZoA
ZoA
SoRPARI, Head
SoRPARI
SoRPARI
Gambella Regional State
Ato Chuoi Ket
Jame Puot Chuol
Tesfaye Deressa
Ato Brehanu
Oat Medin
Lam Gutscol
Scot Majak
Twat Red
Gambella Regional State, A/head of DPP Office
Director, Gambella Region Agricultural Research Institute
Gambella Regional State, D/head of BoFED
Gambella Regional State, UNDP Focal person, BoFED
Gambella Regional State, Neur District Administrator
Gambella Regional State, Neur District
Gambella Regional State, Neur District
Gambella Regional State, Neur District
37
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40