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Assessment of Development Results: Mongolia ASSESSMENT OF DEVELOPMENT RESULTS DEVELOPMENT OF ASSESSMENT Assessment of development results Evaluati on of undp CONTRIBUtIon MONGOLIA mongolia HUMAN DEVELOPMENT effectiveness COORDINATI efficiency COORDINATION AND PARTNERSHIP sust NATIONAL OWNERSHIP relevance MANAGING FOR sustainability MANAGING FOR RESULTS responsivene AN DEVELOPMENT responsiveness NATIONAL OWN ISBN #: 978-92-126303-9 NATIONAL OWNERSHIP effectiveness COORDINATI e-ISBN: 978-92-1-054789-5 United Nations Development Programme efficiency COORDINATION AND PARTNERSHIP sust Evaluation Office 220 East 42nd Street New York, NY 10017, USA NATIONAL OWNERSHIP relevance MANAGING FOR Tel. (646) 781 4200, Fax (646) 781 4213 Internet: www.undp.org/evaluation sustainability MANAGING FOR RESULTS responsivene HUMAN DEVELOPMENT effectiveness COORDINATI Assessment of development results Evaluati on of undp ConTRI BuTI on MONlA GoI Evaluation Office, March 2011 United Nations Development Programme REPORTS PUbLiSHED UNDER THE ADR SERiES Afghanistan Colombia Jamaica Serbia Argentina Republic of the Congo Jordan Seychelles Bangladesh Ecuador Lao PDR Somalia Barbados and OECS Egypt Maldives Sudan Benin El Salvador Mongolia Syrian Arab Republic Bhutan Ethiopia Montenegro Tajikistan Bosnia & Herzegovina Georgia Mozambique Turkey Botswana Ghana Nicaragua Uganda Bulgaria Guatemala Nigeria Ukraine Burkina Faso Guyana Peru Uzbekistan Cambodia Honduras Philippines Viet Nam Chile India Rwanda Yemen China Indonesia Senegal Zambia ASSESSMENT OF DEVELOPMENT RESULTS: EVALUATiON OF UNDP cONTRibUTiON – MONgOLiA Copyright © UNDP 2011, all rights reserved. Manufactured in the United States of America. Printed on recycled paper. The analysis and recommendations of this report do not necessarily reflect the views of the United Nations Development Programme, its Executive Board or the United Nations Member States. This is an independent publication by the UNDP Evaluation Office. Editing: Catharine Way graphic design: Suazion, Inc. (NY, suazion.com) Cover photos provided by UNDP Mongolia and N. Bat-Erdene, P. Jargalsaikhan and Eskinder Debebe. A cKNOWLEDgEMENTS This evaluation report could not have been Nations. Our special thanks go to the National completed without contributions from many Development and Innovation Committee of people. First and foremost, it resulted from the the Government of Mongolia, particularly its efforts of the evaluation team: Alan Thery, Deputy Chair, Mr. L. Zorig, and the head of the Munkhjarghal Birvaa, Enkhzaya Chuluunba- information, research, monitoring and evaluation atar, Ozren Runic and Hulan Lhagvasuren, and division, Mr. Enkhtaivan, and his staff. The earnest the task manager, Masahiro Igarashi. We would and valuable support of colleagues in the country also like to thank all the stakeholders who took office in Mongolia contributed significantly to time to respond to requests from the team, the report. It greatly benefited from inputs and including government officials and parliamen- tary representatives, local representatives and reviews from S.V. Divvaakar, Michael Reynolds administrators, project directors and coordina- and Azusa Kubota, as well as support from Evelyn tors, civil society representatives and benefici- Wong, Cecilia Corpus and Christopher Nunez. aries and their families, who warmly welcomed Anish Pradhan and Marina Blinova assisted in evaluators to their homes. We also thank develop- the editing and publication process with the help ment partners and sister agencies of the United of an external editor, Catherine Way. ACKNOWLEDGEMENTS i FOREWORD This report presents an independent country- its programmatic activities, in areas such as access level evaluation conducted by the UNDP Evalu- to justice, awareness of domestic violence and ation Office in 2010. The evaluation examines enterprise development. the strategic relevance and positioning of UNDP support and contributions to the development of However, the evaluation concludes that UNDP Mongolia from 2002 to early 2010. The report has largely remained an implementer of devel- assesses UNDP interventions under various opment projects that often were not followed thematic areas of the country programme, with up, scaled up or replicated by national partners. a view to providing forward-looking recommen- Several of our projects demonstrated innovative dations for the next country programme, for the approaches and led to some tangible results on period 2012-2017. the ground. But many of these projects were not designed as an integral part of a national effort Since 1990, when Mongolia embarked on a transi- by the Government or other partners, and hence tion to a democratic polity and a market economy, their impact was limited and their sustainability UNDP has provided support in a wide range of questionable. The report recommends that for areas. These have included development of demo- UNDP to remain relevant the partnership with cratic mechanisms and electoral reforms, and government and people should be strength- capacity development and modernization of public institutions. Persistent poverty, recurrent winter ened. UNDP should provide strategic support to disasters and environmental degradation emerged national efforts and refrain from running parallel as critical challenges to the country during this programmes and projects. period. UNDP provided support to the Govern- A critical challenge for Mongolia is to reap the ment of Mongolia to analyse poverty, develop benefits from the profits of extractive mining, an institutional response to natural disasters and initiate innovative conservation projects. which are the main economic engine of the country, for human development in the face of The evaluation finds that the UNDP programme persistent poverty and environmental fragility. was well aligned to national strategies and UNDP clearly has a role to play in assisting addressed critical development challenges faced the Government and the country to tackle this by the country due to the strength of our partner- challenge. This evaluation identifies the strengths ship with the Government. UNDP’s contribu- of our work in Mongolia and the potential to tions were most notable in policy support, which increase our contribution in the future. I hope that has led to the incorporation of a human develop- the report will be useful in building an even more ment perspective into the country’s broad policy effective partnership in the years to come, leading framework. Analysis from a human development to demonstrable results for the Mongolian people. perspective has been catalysed through a series of National Human Development Reports. The Government articulated a National Development Strategy in 2008 that emphasizes attainment of the Millennium Development Goals. UNDP Saraswathi Menon also contributed to human development through Director, Evaluation Office i i FOREWORD Contents Acronyms and Abbreviations v Executive Summary vii Chapter 1. Introduction 1 1.1 Objective and Scope 1 1.2. Methodology 2 1.3. Evaluability Issues 3 1.4 Process 3 Chapter 2. Development Challenges and National Strategies 5 2.1 Demography and Geography 5 2.2 Mongolia in Transition 5 2.3 National Development Strategies 14 2.4 Development Cooperation, Civil Society and the Private Sector 21 Chapter 3. UNDP’s Response and Strategies 25 3.1 Strategies of United Nations Agencies, 2001 and 2006 25 3.2 Strategies of UNDP Programmes, 2001-2010 27 Chapter 4. Contribution to Development Results 33 4.1 Strengthening Democracy, Accountability and Transparency 33 4.2 Achieving the MDGs and Reducing Human Poverty 43 4.3 Improving Energy and Environmental Sustainability 52 4.4 Crisis Prevention and Recovery 60 Chapter 5. UNDP’s Strategic Position 63 5.1 Relevance 63 5.2 Promotion of United Nations Values from a Human Development Perspective 64 5.3 Responsiveness 65 5.4 Implementation Issues 65 Chapter 6. Conclusions and Recommendations 69 6.1 Conclusions 69 6.2 Recommendations 71 Annexes 73 Annex 1. Terms of Reference 73 Annex 2. People Consulted 81 Annex 3. Documents Consulted 84 CONTENTS i i i Figure Figure 1. GNI per capita and GDP growth rate 8 Figure 2. Expected funding under CCF II and CPD-CPAP 31 Tables Table 1. Gender-related Development Index (GDI) 12 Table 2. Gender Empowerment Measure (GEM) 13 Table 3. National development strategies 15 Table 4. Analysis of the MDG-based Comprehensive National Development Strategy 2008-2021 of Mongolia 19 Table 5. Paris Declaration Indicators 20 Table 6. UNDP Mongolia: Portfolio by practice area for CCFII and the CPD-CPAP 30 Table 7. Changes between CPD and CPAP 31 Table 8. UNDP support to MDG-oriented policy-making and monitoring 42 Table 9. Preliminary BEEP figures on financing for insulated housing 59 i v CONTENTS Ac S RONyM AND AbbREViATiONS ADR Assessment of Development Results BEEP Building Energy Efficiency project CCA Common Country Assessment CCF Country Cooperation Framework CG Consultative Group CPAP Country Programme Action Plan CPD Country Programme Document CSO Civil Society Organization DEX Direct Execution DPCLA Department of Policy Coordination of Loans and Aid (Ministry of Finance) EEH Energy Efficient Housing Project EGSPRS Economic Growth Support and Poverty Reduction Strategy EMP Enterprise Mongolia Project GDI Gender-related Development Index GEF Global Environment Facility GGHS Good Governance for Human Security programme GTZ German Technical Assistance Agency HDI Human Development Index HDIA Human Development Impact Assessment IAAC Independent Authority Against Corruption LAC
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