Document of The World Bank

Public Disclosure Authorized Report No: ICR0000136

IMPLEMENTATION COMPLETION AND RESULTS REPORT (IDA-3624)

ON A Public Disclosure Authorized CREDIT

IN THE AMOUNT OF SDR 4.0 MILLION (US$ 5.0 MILLION EQUIVALENT)

TO THE

REPUBLIC OF UGANDA

FOR THE

Public Disclosure Authorized DECENTRALIZED SERVICES DELIVERY: A MAKERERE UNIVERSITY TRAINING PILOT PROJECT

May 30, 2007

Human Development 1 (AFTH1) Country Department 1 Public Disclosure Authorized Africa Region

CURRENCY EQUIVALENTS

(Exchange Rate Effective)

Currency Unit = USh 1.00 = US$ [US$0.00059] US$ 1.00 = [USh1700]

FISCAL YEAR

ABBREVIATIONS AND ACRONYMS

ALGAF Africa Local Government Action Forum DCA Development Credit Agreement [email protected] Innovations at Makerere Committee IDA International Development Agency LG Local Government LGDP Local Governments Development Program LIL Learning & Innovations Loan M&E Monitoring and Evaluation PAD Project Appraisal Document PDO Project Development Objective PEAP Poverty Eradication Action Plan UAAU Urban Authorities Association of Uganda ULGA Uganda Local Government Association UMI Uganda Management Institute

Vice President: Obiageli katryn Ezekwesili Country Director: Judy M. O’Connor Sector Manager: Dzingai B. Mutumbuka Project Team Leader: Michael F. Crawford ICR Team Leader: Michael F. Crawford

Uganda Decentralized Services Delivery: A Makerere University Training Pilot Project

CONTENTS

Data Sheet A. Basic Information B. Key Dates C. Ratings Summary D. Sector and Theme Codes E. Bank Staff F. Results Framework Analysis G. Ratings of Project Performance in ISRs H. Restructuring I. Disbursement Graph

1. Project Context, Development Objectives and Design...... 1 2. Key Factors Affecting Implementation and Outcomes ...... 4 3. Assessment of Outcomes...... 9 4. Assessment of Risk to Development Outcome...... 18 5. Assessment of Bank and Borrower Performance ...... 18 6. Lessons Learned ...... 21 7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners ...... 22 Annex 1. Project Costs and Financing...... 24 Annex 2. Outputs by Component ...... 25 Annex 2a. Component Outputs Contributing to Development Objectives ...... 25 Annex 3. Economic and Financial Analysis...... 41 Annex 4. Bank Lending and Implementation Support/Supervision Processes ...... 50 Annex 5. Beneficiary Survey Results...... 51 Annex 6. Stakeholder Workshop Report and Results...... 53 Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR...... 54 Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders...... 62 Annex 9. List of Supporting Documents ...... 64

MAP

A. Basic Information Decentralized Service Delivery: A Makerere Country: Uganda Project Name: University Training Pilot Project Project ID: P074078 L/C/TF Number(s): IDA-36240,IDA-3624A ICR Date: 06/21/2007 ICR Type: Core ICR GOVERNMENT OF Lending Instrument: LIL Borrower: UGANDA Original Total XDR 4.0M Disbursed Amount: XDR 3.0M Commitment: Environmental Category: C Implementing Agencies: MOFPED; Makerere University Cofinanciers and Other External Partners: Rockefeller Foundation

B. Key Dates Revised / Actual Process Date Process Original Date Date(s) Concept Review: 09/26/2001 Effectiveness: 09/26/2002 09/26/2002 Appraisal: 01/21/2002 Restructuring(s): Approval: 03/26/2002 Mid-term Review: 07/26/2004 Closing: 12/31/2005 12/31/2006

C. Ratings Summary C.1 Performance Rating by ICR Outcomes: Satisfactory Risk to Development Outcome: Moderate Bank Performance: Satisfactory Borrower Performance: Satisfactory

C.2 Detailed Ratings of Bank and Borrower Performance (by ICR) Bank Ratings Borrower Ratings Quality at Entry: Moderately Satisfactory Government: Satisfactory Implementing Quality of Supervision: Satisfactory Satisfactory Agency/Agencies: Overall Bank Overall Borrower Satisfactory Satisfactory Performance: Performance:

i C.3 Quality at Entry and Implementation Performance Indicators Implementation QAG Assessments Indicators Rating Performance (if any) Potential Problem Project Quality at Entry No None at any time (Yes/No): (QEA): Problem Project at any Quality of No None time (Yes/No): Supervision (QSA): DO rating before Satisfactory Closing/Inactive status:

D. Sector and Theme Codes Original Actual Sector Code (as % of total Bank financing) Adult literacy/non-formal education 50 50 Tertiary education 50 50

Theme Code (Primary/Secondary) Decentralization Secondary Secondary Education for the knowledge economy Primary Primary

E. Bank Staff Positions At ICR At Approval Vice President: Obiageli Katryn Ezekwesili Callisto E. Madavo Country Director: Judy M. O'Connor James W. Adams Sector Manager: Dzingai B. Mutumbuka Dzingai B. Mutumbuka Project Team Leader: Michael F. Crawford Preeti S. Ahuja ICR Team Leader: Michael F. Crawford ICR Primary Author: Hongyu Yang John Daly

F. Results Framework Analysis

Project Development Objectives (from Project Appraisal Document) The PDO and Key Performance Indicators are from the PAD and Development Credit Agreement (DCA) Schedule 2 and 3.

The objective of the project is to develop an effective and replicable mechanism for the improvement of public service delivery at local government levels, through the improvement and restructuring, of educational and other training services offered by Makerere University and Partner Institutions.

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Revised Project Development Objectives (as approved by original approving authority) No revisions were made.

(a) PDO Indicator(s)

Original Target Formally Actual Value Values (from Revised Achieved at Indicator Baseline Value approval Target Completion or documents) Values Target Years Number of students participating in field internships in the six priority disciplines Indicator 1 : [health, agriculture, engineering, education, financial management, and governance] for decentralized local services. Value 8,317 students quantitative or 0 300 participated in Qualitative) internships Date achieved 12/01/2002 12/31/2005 11/01/2006 Comments 2772% achievement. (incl. % achievement) Number of Local Government officials obtaining degrees in six priority areas and Indicator 2 : returning to their positions in local government. 113 undergraduates trained, 60 Undergraduates 82 full time Masters Value trained and 20 students, and 112 0 Local Government quantitative or Masters will have partial masters from officials sponsored. Qualitative) completed local government training. have completed the training.

Date achieved 12/01/2002 12/31/2005 11/01/2006 Comments 188% % achievement for undergraduates; (incl. % 410% achievement for Masters scholarships achievement) Indicator 3 : Demonstrably impact of project-sponsored policy research and formulation. 10 faculty-based research projects Value show quantitative or not available 18 completed. demonstrably Qualitative) influence on government policy Date achieved 12/01/2002 12/31/2005 11/01/2006 Comments 180% achievement. (incl. % These studies are expected to have short-and long-term impact at the individual, achievement) institutional and district levels. An integrated, cohesive capacity building program established, with well Indicator 4 : designed short term courses and degree programs aimed at strengthening decentralized public services delivery.

iii Value quantitative or 0 1 1 Qualitative) Date achieved 12/01/2002 12/31/2005 11/01/2006 Comments 100% achieved. An effective capacity building system was established. Skills & (incl. % knowledge related to decentralization and teaching at university have been achievement) acquired, applied & have improved beneficiaries’ job performance.

(b) Intermediate Outcome Indicator(s)

Original Target Actual Value Formally Values (from Achieved at Indicator Baseline Value Revised approval Completion or Target Values documents) Target Years Uniform guidelines for internship programs produced and disseminated to Indicator 1 : internship supervisors. Impact of The guidelines guidelines Value were produced and evaluated after use (quantitative 0 disseminated by two cohorts of or Qualitative) interns/internship supervisors Date achieved 03/01/2002 11/30/2004 10/15/2006 Comments (incl. % 100% achievement achievement) Local government officials take full advantage of opportunities for studies in Indicator 2 : Master's and undergraduate programs to improve relevant skills. 80% returned to LG There were no LG At least 50% of workforce, among Value officials were sponsored sponsored LG them, 39% (quantitative for fulltime study in officials complete promoted, 53% or Qualitative) domestic universities studies and return remained same before. to their positions positions. Date achieved 12/31/2002 12/31/2005 11/10/2006 Comments (incl. % achievement) The return rate for LG officials completing their studies exceeded expectations Indicator 3 : by a large margin. 15 Masters 112 for Masters students and 10 students and 18 for Value Ph.D students Ph.D students were (quantitative not available sponsored to do sponsored to do or Qualitative) decentralization decentralization research research. Date achieved 12/31/2002 10/15/2006 11/10/2006 Comments Masters: 747% achievement; Ph.D: 180% achievement. (incl. % Qualitative indicators for the importance and quality of the research were not

iv achievement) included, so the total value of the research can not be compared with that programmed. Indicator 4 : Preliminary M&E Report delivered; consolidation of lessons learned. Two draft reports delivered: an assessment of outcomes was delivered in February 2006; and Value an Impact of Draft report (quantitative 0 Outcome delivered or Qualitative) Assessment Study was delivered and disseminated at the stakeholder workshop on November 25, 2006. Date achieved 12/31/2002 06/30/2005 11/25/2006 Comments (incl. % achievement) Indicator 5 : Number of partnerships operationalized with other tertiary institutions. Value (quantitative 3 6 6 or Qualitative) Date achieved 12/31/2002 12/31/2005 12/31/2005 Comments 100% achievement. There were partnerships established by formal written (incl. % agreements between Makerere University and six partner universities. achievement) Decentralization training (including ALGAF courses) provided to stakeholders Indicator 6 : (academic, LG staff). 800 LG staff and Value academic (quantitative n/a 1266 trained. professionals or Qualitative) trained Date achieved 12/31/2002 12/31/2005 11/10/2006 Comments (incl. % 1532% achievement. achievement) New courses relevant to decentralization offered by Makerere University and Indicator 7 : partner institutions. 18 courses were developed, and 11 Value more are under (quantitative n/a 9 new courses development and or Qualitative) are expected to be completed. Date achieved 12/31/2002 12/31/2005 11/10/2006

v Comments (incl. % 322% achievement. achievement)

G. Ratings of Project Performance in ISRs

Actual Date ISR No. DO IP Disbursements Archived (USD millions) 1 07/10/2002 Satisfactory Satisfactory 0.00 2 02/27/2003 Satisfactory Satisfactory 1.00 3 12/01/2003 Satisfactory Satisfactory 1.23 4 05/27/2004 Satisfactory Satisfactory 1.90 5 11/29/2004 Satisfactory Satisfactory 2.57 6 05/04/2005 Satisfactory Satisfactory 3.33 7 11/08/2005 Satisfactory Satisfactory 4.04 8 05/11/2006 Satisfactory Satisfactory 4.27 9 11/15/2006 Satisfactory Satisfactory 5.26

H. Restructuring (if any) Not Applicable

I. Disbursement Profile

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1. Project Context, Development Objectives and Design (this section is descriptive, taken from other documents, e.g., PAD/ISR, not evaluative)

1.1 Context at Appraisal (brief summary of country and sector background, rationale for Bank assistance)

This project was designed when Uganda was involved in a shift of service delivery from central to local governments. During the mid-1990s, the Ugandan Government introduced a decentralization program which transferred responsibility for delivery of key services from central government to local governments. Local government became responsible for implementation of primary educational services, primary and secondary health services, feeder roads, water and sanitation infrastructure, agricultural extension services, land administration and surveying, and community development, inter alia. Central Government retained its responsibility for overall coordination, planning, and standard setting.

Decentralization generated the need to build local government capacity. Local government had to learn to administer the devolved government services, manage public resources, procure goods and services, and work in a new administrative and political context. A study from 2000 – carried out in preparation for this project1 - found local government lacked the capacity to implement the new agenda. This study found that local government faced significant skills and human capacity deficits. Local government had difficulty recruiting and keeping professional staff, especially in areas such as health services and engineering.

As part of the strategy for Bank assistance to LG capacity (through the Bank-supported Local Government Development Projects I and II, among others) was to provide critical skills training to large numbers of local government officials as quickly as possible. The Ministry of Local Government (MoLG) developed short-term training and skills development programs. These programs emphasized financial management and public administration. Sectoral ministries (health, education, etc.) also managed training programs reaching local government program staff. The MoLG also instituted a system to measure local government capacity, and budgetary incentives and sactions related to capacity. However, two gaps were noted in the training approach. First, short-term courses were found not to be the best means to provide the appropriate decision-making skills essential to successful local government.

At the outset of the project, Ugandan universities were often seen as isolated ivory towers with little ability to meet social and economic demands through teaching and research. Makerere and other universities were often criticized for producing graduates inadequately prepared to meet requirements of the work force, especially the expanding needs of local government. Linkages between higher education and local government ministries, and between higher education and the Central Government ministries, were weak at the begining of this project. The universities were seldom looked upon to develop innovations and technology for local service

1 Makerere Institute for Social Research (MISR), “District Human Resource Demand Assessment” October, 2000, Makerere University.

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delivery, nor for information and analytic services for policy formulation or review. While university degrees were seen as necessary qualifications for many local government jobs, capacity development was not seen in terms of career development. Higher education was not seen as an important source of training and educational services for current employees.

Before this project, Makerere University, with financial support from the Rockefeller Foundation, initiated the design of a restructuring program that focused on the needs of decentralization. The team of universities and Ugandan Government representatives designing this project believed that higher education could play a broader and more important role. Higher education had to be reformed and strengthened to adequately do so. Thus the Ugandan Government asked the World Bank and the Rockefeller Foundation to support this innovation in capacity building of higher education systems for the needs of local governments and the decentralization program. The learning and innovation loan (LIL) was designed to address these issues.

1.2 Original Project Development Objectives (PDO) and Key Indicators (as approved)

According to the Development Credit Agreement (DCA), the objective was to develop an effective and replicable mechanism for improvement of public service delivery at local government levels, through the improvement and restructuring of educational and training services offered by Makerere University and Partner Institutions.

The following are key performance indicators from Schedule 3 of the DCA:

1. Not less than 9 new courses relevant to decentralization offered by Makerere University and partner institutions. 2. Qualitative improvement in the breadth, academic value, substance, and practical utility of course content. 3. Internship programs developed in not less than 10 disciplines relevant to the project. 4. Several local governments involved in activities related to the project, in addition to the (5) pilot districts. 5. Not less than 800 Makerere University and partner institution staff trained in areas relevant to the project. 6. Establishment of an operational decentralization resource center at Makerere University. 7. Not less than 300 Makerere University students undertaking or having completed project- supported internships. 8. Not less than 60 local government staff trained by Makerere University and partner institutions at undergraduate level. 9. Not less than 20 local government staff trained by Makerere University and Partner Institutions at the graduate level. 10. Airing of educational and informational radio programs in the 5 pilot districts and beyond. 11. Not less than 10 faculty-based research activities on decentralization completed. 12. Not less than 15 Masters-level research activities on decentralization undertaken. 13. Not less than 10 PhD activities undertaken. 14. Not less than 3 successful operating partnerships between Makerere University and partner institutions.

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1.3 Revised PDO (as approved by original approving authority) and Key Indicators, and reasons/justification

No revisions were made.

1.4 Main Beneficiaries, (original and revised, briefly describe the "primary target group" identified in the PAD and as captured in the PDO, as well as any other individuals and organizations expected to benefit from the project)

Staff in those local government districts selected for training, especially those who were sponsored to enroll in full-time undergraduate and Master’s degree programs, were primary beneficiaries. Staff in the pilot local government units who participated in the shorter-term courses also benefited. Direct beneficiaries also include Makerere University and partner institutions (Mbarara University of Science and Technology, The Islamic University in Uganda, Nkumba University, Uganda Martyrs University, Uganda Christian University, and the Uganda Management Institute); graduate students and faculty who received related research grants; faculty who received grants for curriculum development; and students who participated in expanded and enhanced field internship programs. Other indirect beneficiaries included faculty and students in the participating universities in the priority areas of agriculture, education, engineering, financial management/administration, health, and governance/ethics.

1.5 Original Components (as approved)

This project had four components with total cost of US$11 million (IDA: US$5.0 million; Rockefeller Foundation: US$5.0 million; GoU: US$1.0 million).

Component I. Enhanced Academic Institutional Capacity. This component aimed at strengthening the capacity of Makerere University and partner institutions to respond to the human capacity and research needs of decentralization within Uganda. Specifically through (i) staff development; (ii) sustained academic decision making; (iii) internship programs designed to give students more practical experience in areas (agriculture, education, engineering, financial management/administration, health, and governance) that related to LG service delivery; and (iv) improved project management.

Component II. Pilot Support to Local Government Capacity Building by Universities. The objective of this component was to design and deliver pilot training courses and programs in selected local governments in the priority subject areas. The objective would be achieved through the following activities: (i) funding curriculum development of courses aimed at LG officials, university faculty, staff and students; (ii) providing funds to recognize and support innovative work related to decentralization in pilot districts; (iii) providing full-time degree programs for undergraduate and Masters training for selected LG officials from the pilot districts, who were to return to their local governments after completing their degrees, and workshops, short-term courses for other LG officials; and (iv) strengthening capacity in the planning units of the pilot districts.

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Component III. Enhanced Decentralization Policy Research and Formulation Capacity. The component was aimed at strengthening capacity of Makerere University and partner institutions in research and policy formulation in the area of decentralization. The specific activities in this component were: (i) providing study tours to acquaint Ugandans with thought leaders and practitioners of decentralized LG service delivery; (ii) providing research funds for students to stimulate research on decentralization among Masters and PhD students; (iii) building research capacity in faculties by funding faculty research.

Component IV. Monitoring and Evaluation. The effort was intended to draw lessons from the project experimentation and to improve performance along the way. It focused on two levels of monitoring and evaluation (M&E): general performance monitoring and learning from the pilots.

1.6 Revised Components

No revisions were made.

1.7 Other significant changes (in design, scope and scale, implementation arrangements and schedule, and funding allocations)

The project closing date was extended from December 31, 2005, to December 31, 2006. The extension was requested by the Borrower to enable the project to expand the scope of old activities using project savings and additional support from the Rockefeller Foundation.

2. Key Factors Affecting Implementation and Outcomes

2.1 Project Preparation, Design and Quality at Entry (including whether lessons of earlier operations were taken into account, risks and their mitigations identified, and adequacy of participatory processes, as applicable)

This project was not assessed by QAG for Quality at Entry. ICR rating for Quality at Entry: Moderately Satisfactory.

Sound Diagnosis of Problem to be Addressed by Project design. The project team used findings and diagnosis from a study by Ugandan universities and government leaders on staff capacity building for LG staff. The principle finding in that study was that there was widespread scarcity of advanced skills required to implement the Government’s decentralization program. Project design benefited from the support and experience of the Rockefeller Foundation, which had a long working history with Makerere University. The Central Government and the Bank team also thoroughly understood the needs of local governments and universities. The project design included experimentation which was appropriate for a learning and innovation loan (LIL).

Lessons from the Bank portfolio in Uganda and other regions, and programs by other donors were taken into consideration. Specifically, lessons were utilized on: sustainability of capacity building; practical and focused internship programs; and involving other tertiary institutions to help decentralized service delivery, in addition to Makerere University.

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The Central Government and university’s commitment was high. Senior officials from the Ministry of Finance devoted time and worked with the project preparation team. University officials were involved at every stage of the project preparation. A team of Ugandans, who were involved in project design, created the “Innovations at Makerere Committee” [abbreviate to [email protected]]. It consisted of leaders from tertiary institutions and central and local government officials. The committee met regularly to provide input into project design and discuss issues of implementation. This demonstrated a real ownership of the project. (The I@Mak Committee would continue under implementation, and be a significant factor in mainstreaming project outcomes and lessons.) The secretariat of the committee was the project implementing unit.

Some weaknesses of the project design. The statement of the project development objectives differed between the Project Appraisal Document (PAD) and the Development Credit Agreement (DCA). The project development objective in the PAD was unclear and not succinct; the one in the DCA was clearer. The wording of the project description was too general, making it difficult to understand what the components and subcomponents were actually to do. Perhaps more importantly, the PAD omitted specific guidance on “where to draw the line” between activities that promoted capacity for improved local government service delivery versus those that promoted university capacity in general (without reference to local government). During implementation, it proved difficult for implementers to balance these two goals.

Furthermore, the description and organization of the activities in components and subcomponents was suboptimal. The terminology for project activities was ambiguous: in some cases, different activities were given the same name. In other cases, activities that were essentially the same were given different names. For example, the term “short courses” referred to at least three separate activities. Second, related activities were spread across different components with no clear rationale. In the most obvious example, the decision-making process for review of grant-funding (“sustained academic decision making”) was in component one, while the grant-funded activities themselves were in components two and three. This imprecision led to significant difficulties for the project secretariat to explain the details of the project to other stakeholders.

Focus on Outputs in PDO’s and Underestimation of difficulties of baseline study for the monitoring and evaluation. The LIL was designed to test whether universities could contribute to local government capacity, but the indicators sought to measure only outputs. The parts of M&E design that were to establish baselines in LG capacity and university capacity underestimated how difficult it would be to actually make these measurements. In fact, no indicators were chosen that sought to measure impact. Only during implementation was this short-coming noticed. It was partially remedied by a re-designed outcome assessment. The findings of the outcome assessment were produced, however, too late to help guide implementation.

It is important to note that the development objective was to create a mechanism through which universities could improve local government capacity; it was not to directly improve service delivery at the local government level. Project design was correct in not seeking indicators of improvements in local government service delivery because: (i) the time frames for capacity to be developed and utilized extend beyond the implementation period (LG officials only

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completed their training and returned to their positions in the last year of implementation, for instance); (ii) controlling for the effects of other variables on service delivery would have proven extremely difficult.

The outcome assessment done after the mid-term review provided various measures of the extent to which human capacity in the districts had been improved in the district, especially through interviews of supervisor of staff who received training. These shed light on the extent of changes to capacity and professional responsibility.

2.2 Implementation (including any project changes/restructuring, mid-term review, Project at Risk status, and actions taken, as applicable)

ICR Rating: Satisfactory

Overall, implementation was Satisfactory. The project was never at risk during implementation. The project implementation unit ([email protected] secretariat) was energetic and diligent throughout and achieved a high profile and respected reputation with all stakeholders. The [email protected] secretariat was carefully integrated with the administration of Makerere University and with Central Government at various levels. [email protected] itself acted as a steering committee and had exemplary representation at nearly 50 multi-day meetings during the implementation period. It reallocated the budget to several activities in the local context and to allow more student beneficiaries to participate in the project. As a result of these changes, more activities were carried out than originally planned for the project.

The secretariat was successful in collecting data on the many hundreds of individually funded activities (and thousands of students), but was less successful in organizing this data and utilizing it for managing activities. In spite of contracting difficulties for monitoring and evaluation (discussed in section 7.3), most project activities were carried out on time and the most important outcomes and outputs exceeded the original targets (see Annex 4 for more details).

The mid-term review was carried out successfully. The review recommended that the focus shift from activity implementation to achieving success in M&E and learning lessons from the project. The recommendation was adopted by [email protected] and the committee and secretariat made tremendous efforts to make the outcome study happen and to focus more on success with measurement of project outcome and impact.

In project financial management, the unique arrangement for separating special accounts for both co-financers (The World Bank and the Rockefeller Foundation) made the financial management more challenging than it otherwise should have been. At the recommendation from the Bank, I@MAK made efforts to improve the clarity of the financial reports by disaggregating the expenditure for the co-financiers.

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2.3 Monitoring and Evaluation (M&E) Design, Implementation and Utilization

ICR Rating: Moderately Satisfactory.

M&E design. M&E design underestimated the complexity of measuring improvements of local government staff capacity and the improvement of university capacity to support LG. Successful steps were taken to remedy the initial M&E problems—including an assessment involving 578 field interviews with project beneficiaries and key informants—but the resulting evaluation information only became available late in the implementation period (M&E design was also discussed in section 7.1).

M&E implementation. The experiences with monitoring versus evaluation are examined separately:

• Monitoring. Monitoring of outcomes of individual activities was done comprehensively throughout the project, despite delay in development of a computerized monitoring system. There was extensive reporting of participant satisfaction with project-funded courses. Various grant-funded efforts (such as research and curriculum development) were divided into phases. Each phase had an ex ante review by [email protected]; each funded phase had an ex post review before the next phase was funded. Curricula underwent extensive reviews by faculty organizations before approvals of reforms and innovations. Normal academic processes assured acceptable performance of the project- funded students taking academic courses, as well as for those doing project-funded research. Similarly, those teaching short courses received feedback from the participant surveys. [email protected] emphasized a traditional approach to overall program management rather than approaches based on quantitative and qualitative M&E data. [email protected] monitored large portions of the program carefully, especially those involving grant-funded activities.

• Evaluation. The evaluation was ultimately reasonably successful but came late in the project. There were two failed initial attempts to produce baselines using consulting firms. In both cases, the firms were selected using standard Bank procurement procedures. The selected firms were able to convince the selection committees of their capacity to carry out the assignment, but while executing the assignment it became clear that the needs of the assignment exceed the firms’ capacities. In both cases the firms, in question agreed to cancellation of the contract. Meanwhile, the top international firms, which arguably had the capacity to complete the assignment, showed no interest in submitting proposals. A third attempt with a reduced scope of work and alternative approach ultimately worked. [email protected] successfully negotiated with a competent team that recovered or reconstructed baseline and comparative data. The contractor reported on project outputs and conducted a major survey of beneficiaries, including 578 field interviews. The project ended with a comprehensive understanding of outcomes and some information on impact. However, the early failure to find M&E contractors meant that information on capacity development was not available to fully evaluate the pilots or to guide management decision-making from year to year during project implementation.

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M&E utilization. The project concluded with stakeholder workshops to evaluate the lessons learned and with in-depth discussions with [email protected] and Government officials regarding outcomes and impacts. These discussions were informed by detailed quantitative and qualitative data and a comprehensive beneficiary assessment. However, as stated above, it was only during the second half of the project that M&E data began to inform decision-making, and only during the final year that it did so substantially.

2.4 Safeguard and Fiduciary Compliance (focusing on issues and their resolution, as applicable)

The project did not trigger safeguard policies and was tagged “category C” for environment.

ICR Rating: Satisfactory Financial management compliance was Satisfactory throughout the project. Shortcomings were noted during supervision in the level of disaggregation of expenditure detailed in financial management reports. These were addressed by the project secretariat. The project had a satisfactory rating for procurement throughout implementation. However, procurement for computers for the project-financed Resource Center at Makerere University was very late.

2.5 Post-completion Operation/Next Phase (including transition arrangement to post-completion operation of investments financed by present operation, Operation & Maintenance arrangements, sustaining reforms and institutional capacity, and next phase/follow-up operation, if applicable)

Institutional capacity has been built to the point where many effects of the project will continue even without a specific follow on project for universities. Eighty percent (80%) of local government officials who completed degrees under the project have returned to their position and are working toward provision of improved service delivery. Knowledge about local government challenges, and, more importantly, willingness to make this an object of research and training has increased within universities. The formal conversion of the Innovations at Makerere Committee from a project entity to a subcommittee of the Makerere University Faculty Senate testifies to the significant change in attitude among university faculty about the need for relevance in research and teaching. The establishment of similar committees in the main partner universities also attests to these attitudinal and behavioral changes, demonstrating a strong ownership and a major attention to sustainability that the project has fostered. Internship programs have come to be seen as a key element in connecting classroom work to “real world” relevance and are in high demand by students. These programs are expected to continue at Makerere and partner institutions.

Consistent with its policy of preference for budget support from donors, the Government of Uganda did not request a follow-on project to this learning and innovation loan. But the lessons learned from this LIL have been taken into consideration in the Bank’s Uganda Joint Assistance Strategy. More importantly, long-term university training will be included in the World Bank’s Local Government Development Project III, as a direct result of the experience of this LIL. The program has influenced how universities solicit and use funds from other donors, and has positively influenced the Bank supported Millennium Science Initiative Project to further fund university-based research and training relevant to the national development agenda.

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3. Assessment of Outcomes

3.1 Relevance of Objectives, Design and Implementation (to current country and global priorities, and Bank assistance strategy)

The project objectives and design are consistent with the current Uganda Country Assistance Strategy. They are relevant to the Government’s Poverty Eradication Action Plan (PEAP) and to the Bank’s (with other development partners) Uganda Joint Assistance Strategy. Strengthening governance and creation of local government capacity are important for achieving the PEAP’s overarching strategic results. There remains a long-term need and opportunity to build the human resource base in local government. The strength of the knowledge base for dealing with health, engineering, education, social services, and government administration requires further development through research; the higher education system will remain a critical factor in determining the effectiveness of service delivery. Moreover, with a learning and innovation loan, this project provides useful information for the World Bank and donor community, as well as the Government of Uganda.

3.2 Achievement of Project Development Objectives (including brief discussion of causal linkages between outputs and outcomes, with details on outputs in Annex 2)

ICR rating: Satisfactory The achievement of the project objectives is rated Satisfactory based on the following outcomes: • A mechanism was developed to strengthen the skills and competencies of those responsible for public service delivery and management. The mechanism contributed to staff capacity in pilot local governments, as measured by: (i) a large number of local government officials trained in the priority areas that relevant to their jobs; (ii) improved skills for local government officials; (iii) improved quality of work of returned LG officials; and (iv) a high percentage of students returned to their duty stations after long term training. • Improved capacity of Makerere University and other partner institutions, to design and deliver training and research, as measured by: (i) curricula and internship programs developed and/or revised to improve relevance to local government; (ii) significant number of research projects relevant to decentralization conducted by faculty and graduate students; (iii) establishment of partnerships between Makerere University and other tertiary institutions in Uganda to deliver training courses to LG effectively.

Local Governments now employ more people with undergraduate and Masters degrees than when this project started; there is both a stronger demand for and a better supply for LG professional positions. The government of Uganda, with the support of the World Bank and other donors, has strengthened LG including by defining standards for key positions requiring university degrees; incentives and sanctions have been institutionalized to encourage compliance with those standards. As a direct result of this project, seven of the most important universities in Uganda are producing students better motivated and better prepared to accept these positions in

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LG. As described below, curricula have been improved, internship programs have been created or strengthened, and faculty members brought to better understand the needs that their students will have when employed in LG. The government has also qualified many short courses for skills training of LG staff and provided incentives for LGs to support such staff training, while under this project many short courses have been developed and offered. In addition, the link between government and higher education for research and service has improved because of the project. The long-term training provided to nearly 200 LG staff in pilot districts ameliorated the dislocations of the LG reform process, since many trainees would have lost their jobs under the new standards had they not obtained their degrees.

Developed an Effective and Replicable Mechanism for Strengthening Local Government Capacity

Long-term Training to Build Capacity for Local Governments. The project sported LG staff with fellowships for undergraduates training program and fellowships for Graduates Students (Fulltime masters) in the priority areas of health, engineering, financial management, governance and ethics, agriculture, and education. A total 113 LG staff benefited from the undergraduate study and 82 from the Masters program. Both figures exceeded the original targets (table 1). By the project completion in December 2006, 68% have completed their study. 80% of them returned to LG workforce; 39% were promoted, and 53% remained in the same positions.

The assessment of the beneficiaries’ and their supervisors’ reveals that the training program was largely successful. 74% the students reported that the training had improved their skills. 53% stated that they had been empowered with knowledge, and 36% mentioned improved quality of work. Moreover, 98% of the supervisors said they had observed some new skill in the graduates which they could confidently attribute to the training received.

Evidence from the students who have completed their studies showed that the training received imparted valuable and relevant skills for service delivery in local governments. This was substantiated by the immediate supervisors that were interviewed during the outcome assessment study. The skills imparted cover areas such as financial management and accountability; data collection, analysis, interpretation, ICT skills, communication, agricultural production, training and research.

The high percentage of LG staff who returned to their position (80%) in this project refuted fears that the trainees would not return to local government. The ICR team believes that improving the professional qualifications of LG staff will enhance the LG capacity to deliver and manage services, will help sustain government decentralization reform, and will eventually benefit the local communities.

Strengthened Institutional Capacity at Makerere University and Partner Institutions.

The project financed a recurring graduate-level course in the Principles of Decentralization for LG staff and academics to better understand the implication of government policy for service delivery. The project also financed pedagogical workshops to assure that faculty understood governmental decentralization and improved teaching skills. Of the 1,135 attendees of the Principles of Decentralization course, 55% were from academic institutions, 40% were from local governments, and 5% from central government. The majority of the participants in the two

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courses indicated that they applied the skills and knowledge acquired; (80% of participants for the Decentralization course and 94% for the Pedagogical workshops). The Outcome Assessment Study findings indicated that application of the knowledge and skills acquired from the training contributed to improved performance of a large number of beneficiaries. Up to 72% and 92% of the Decentralization course and pedagogical workshops respondents respectively, indicated that their performance improved following the application of the knowledge and skills obtained from the training. In short, evidence from the outcome assessment study suggests that the skills and knowledge related to decentralization and teaching at university have been acquired, applied and have improved the job performance of some of the participants.

A total of 64 new course development activities were undertaken to improve the curriculum. Of these, 32 completed all four development stages developed by [email protected]. The courses developed were aimed variously at LG officials, university staff, faculty, and students (See Annex 4). Revised and/or new curricula have led to a shift from the traditional equipping of university graduates with theoretical knowledge to experiential learning, in which teaching and learning are conducted in meaningful contexts. Most impressive was the revision of the training approach in the health faculties to a problem based approach, involving extensive field assignments for the medical, nursing, dental and other students. Innovations under this project were practically-oriented and responsive to pressing community needs. At project completion, most of the developed programs are still going through the process of approval, from department to full faculty senate.

Internship Training: The project developed or improved internship programs in 25 disciplines. A total of 8,317 students participated in project sponsored field attachments of 60 to 70 days each. The Outcome Assessment Study by independent consultants shows that the most significant benefits to students have been more acquisition of practical skills and application of classroom theories in real world practice. Other important benefits and impacts of the Internship program include exposure to the work environment, learning interpersonal skills and acquiring knowledge. Students reported that obtaining hands-on experience is the distinguishing characteristic of the internship program innovated under this project. The internship training program has met the students’ expectations, which included learning new skills, understanding the people, learning to live independently, putting theory into practice, gaining confidence, learning communication skills and understanding how the districts are managed were met. From the perspective of the academic staff, the internship program has contributed to positive changes in the participating facilities and the University in general.

The Outcome Assessment Study indicated that research on decentralization was successful both quantitatively and qualitatively. 116 fellowship research projects were awarded to conduct research relevant to decentralization. Of them, 66 were completed by the time of project completion. Research topics were very relevant to key development issues such LG effectiveness in primary school management, factors influencing use of antenatal care, effectiveness of agricultural outreach programs, or management innovations for LG planning. (Annex 4c contains the complete titles of all research projects for faculty as well as PhD and Masters students). The projects that have been supported have promising short- and long-term impacts at the individual, institutional and district levels. The findings of the research have found

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immediate application in terms of policy formulation, improvements in research and training programs.

The table below shows quantifiable key performance indicators, which were fully met or exceed the original targets.

Quantifiable performance indicator DCA target Actual achieved % of target New courses relevant to 9 32 356 decentralization Internship program in disciplines 10 25 disciplines 250 in 12 faculties Academic staff trained in 800 1,266 158 decentralization Number of students participating in 300 8,317 2,772 the internship program Local government staff given 60 113 188 undergraduate training Local government staff given full- 20 82 410 time Masters training Decentralization Masters students 15 112 747 research sponsored Decentralization PhD students 10 18 180 research sponsored Decentralization research by faculty 10 projects 16 published outputs 180 Partnerships with other universities 3 6 200

Achievement of Development Objectives by Component:

Component I, Equipping Makerere University and its partners to provide relevant skills and competencies; and fostering collaboration among key partners. The overall success in strengthening university capacity was due to interaction of effects from the aggregate of activities described above, rather than tied to single specific innovations. The “package” of activities helped strengthen Makerere and its six partner universities (Mbarara University of Science and Technology, The Islamic University in Uganda, Nkumba University, Uganda Martyrs University, Uganda Christian University, and the Uganda Management Institute), and increased the quality and relevance of training through a combination of improved research, curriculum review, more practical training for students, and direct scholarships for LG staff at universities. Notably, the graduates of these universities are now, and are likely in the future, to be better motivated and more competent to fill jobs in local government, which is currently the largest employer of university graduates in Uganda.

Project support has helped retain senior university faculty. The preparation of grant proposals for curriculum development and research benefited the recipient departments. The faculty members in the field supervising the 8,317 student interns had a dramatic impact on their respective departments; those faculty members saw local conditions firsthand and saw the problems that their students were confronting in adapting their education to local needs. The supported graduate research increased the numbers of qualified people available for faculty posts and the support for staff research increased the qualifications of on-board staff. [email protected] involved

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university leadership extensively and had regular meetings with government officials to discuss reforms and national needs. Partnerships were established and institutionalized among universities. Strong linkages were forged between universities and Central and local government.

Component II, Supporting capacity building interventions on a pilot scale in selected local governments. The project targeted eight pilot Ugandan districts—Arua, Kampala, Mbale, Mbarara, Ntungamo, Rakai, Sironko, and Yumbe. The project demonstrated that long-term training can successfully be given to selected local government officials, eventually strengthening their home units. It has also demonstrated that university-designed and -delivered short courses on decentralization and service delivery could be used effectively by local government officials. The universities successfully developed appropriate, well-designed short courses and implemented degree programs that strengthen the skills and capacity of the beneficiary local government staff members. The project has demonstrated nationally that university long- and short-term training works. Districts have asked that the program be expanded nationally.

The Ministry of Local Government, in parallel with this project, put in place policies that require local governments to fill key staff positions with university-trained personnel. MoLG is annually judging district government capacity and increasing or decreasing annual fund transfers according to the results. It has also established a system by which local governments can contract for training and educational services from authorized providers, including Makerere and its partner institutions. Thus both the supply and the demand for university trained people in local government and for on-the job skills training have been enhanced. The improved demand for and supply of university trained people and university based skills training has achieved the Follow-On Development Objective of the project – to strengthen analytical, managerial and implementation capacity of local government in Uganda.

Component III, Supporting research and policy formulation capacity related to decentralization. The research program was successful. Its full impact may not be fully appreciated without a follow-up study some years after the project ends.

Quantity. Significant research was funded, with projects numbering far beyond the original targets. [email protected] recognized that the original funding levels exceeded the usual amounts available per student, and reprogrammed to fund more projects at a lower amount per project. The 116 Masters-level research grants were funded at US$3,500 each. The 18 PhD-level research grants were funded at US$35,000 per student (US$5,000 to develop the proposal and be fully registered and then $30,000 to facilitate the research). 15 staff research projects are underway or completed with [email protected] funding while another 33 had some planning support. The [email protected] has begun to establish capacity to carry out policy research in six faculties (pilot disciplines), responding to a need articulated by both government and universities. The 82 students with local government Masters scholarships also conducted research for their degrees. So too did students as a result of curriculum changes, such as the teams in the community-based education and service program of the health faculty who have done studies on local health problems and services.

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Relevance to local government. The research was relevant to decentralization and decentralized service delivery. In some cases it focused directly on the process of decentralization of government services. Other research focused on service delivery or on the development of technologies or knowledge that could be used in the delivery of local health, education, engineering, community development, or other services. The involvement of local government representatives in the pre-funding review process prior to research helped assure this relevance.

Quality. In the case of research done by faculty, the extensive ex ante review and review of intermediate results prior to funding later phases helped assure quality. It has been reported that expert advice in the process helped improve quality. Some of the research accomplished under the project has received awards, suggesting again that high quality was achieved.

Efficiency. More research projects were funded than had been planned with no increase in budget. Recipients of the research grants, many of whom would have attempted their projects even without [email protected] funding, were able to complete the research more expeditiously as a result of the funding. There was however some delay in disbursements of funds.

Dissemination of research results. The follow-up study notes that little dissemination of student research had occurred, in part because much of that research had not been completed at the time of the follow up. The beneficiary follow-up study reported some progress in regard to staff research. Out of the 11 individuals interviewed, 7 had clearly defined mechanisms through which they had disseminated their research findings, including workshops/seminars for the local government, line ministry, and publications in refereed journals.

Component IV, Strengthening project coordination, management, monitoring and evaluation. The Implementing Unit under [email protected] coordinated all stakeholders and managed financial and procurement activities of the project. Compliance with the World Bank procedures was satisfactory during project implementation. The university gained experience in monitoring and evaluation, coordination, and management as a result of its administering of [email protected]. Many who worked in the secretariat or as evaluation contractors have permanent university posts. A close coordination between the project and the planning office of Makerere University developed and helped to strengthen the planning office.

The institutionalization of [email protected] is a significant result. The committee met 66 times, 27 of which were during project preparation. It represents a major departure in higher education in that non-academics (from the local government community) were fully involved in academic decision-making. [email protected] was established as a task committee by the Faculty Senate of Makerere University, and then as a permanent committee, dealing with innovations to make the University more relevant to national needs. [email protected] secretariat will remain in place at the end of the project. Comparable offices for innovation are being created in partner universities.

3.3 Efficiency (Net Present Value/Economic Rate of Return, cost effectiveness, e.g., unit rate norms, least cost, and comparisons; and Financial Rate of Return)

The project exceeded most of its targets within budget. The [email protected] decided that subsidies for research were more than those offered in comparable Ugandan programs and

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reduced the offer, thereby increasing the number of research grants that could be funded with the available budget.

The project trained a significant number of LG officials (80% of whom returned to their positions). Estimating benefits from training of health professionals, engineers, educators, and government managers cannot be done by simply measuring earning streams. These professionals typically are involved in the production of public goods; social benefits from their work may greatly exceed their remuneration. Cost-benefit analysis was considered beyond the scope of this ICR.

3.4 Justification of Overall Outcome Rating (combining relevance, achievement of PDOs, and efficiency)

ICR Rating: Satisfactory The project was clearly successful in strengthening the ability of Makerere University and its six partners to motivate and prepare students better to work in local government. The project also built capacity of local government in the pilot districts, and provided major inputs to those districts. It demonstrated the value of university-based long-term and short-term training in the pilot districts. Overall it created an effective, replicable mechanism for strengthening LG and university capacity in areas relevant to a significant national development challenge. Had the monitoring evaluation component been more successfully implemented in this Learning and Innovation Loan, more might have been concluded about the capacity built in the pilot districts.

By combining efforts to build local government capacity with efforts to build university capacity, both objectives were probably better achieved. The project combined flexibility and innovation, and thereby was able to overcome difficulties and challenges. The large and complex portfolio of small activities funded under the project was appropriate to its objectives, and was managed well; the success in exceeding targets within budget speaks for itself. Accomplishments in the final two years of the project made up for a relatively slow start. The I@MAK secretariat was thoroughly competent and motivated. The project benefited from significant commitment by government and higher education officials. It will continue to influence education and decentralization policy into the future. It is also expected that the lessons learned from this project will influence World Bank policy in African education and government capacity building as well.

The direct beneficiaries such as students and university staff have improved their performance as a result of applying the knowledge and skills acquired from the training programs. Institutions from which the beneficiaries come from have noted improved performance. Underlying all these is a sense that the graduates from Makerere University and other partnering institutions are now more practically oriented and better suited for services delivery at the LG levels.

3.5 Overarching Themes, Other Outcomes and Impacts (if any, where not previously covered or to amplify discussion above) (a) Poverty Impacts, Gender Aspects, and Social Development

The project was to develop and demonstrate a mechanism to build capacity for service provision and management at the LG levels. Better service provision would follow from use of such a

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capacity, and in turn improve community well-being, quality of life, and diminish poverty. Impact on poverty could not be measured during the project, but aspects of the project—strengthened local government capacity to improve government services; pilot projects contributing to strengthening local government; university capacity to provide relevant education for development professionals; and application of research and development—should each have an impact on poverty On social development aspects: The priority areas for this project were agriculture, education, engineering, financial management/administration, health, and governance/ethics. If the development climate continues to be favorable in Uganda, this project should lead to improved governmental capacity to deliver these services. It is not hard to infer that improving agricultural extension, basic education, and health services will all contribute to social development. Indeed, the efficient management of government finance, better local governance, and more ethical government are all critical needs in Uganda.

(b) Institutional Change/Strengthening (particularly with reference to impacts on longer-term capacity and institutional development)

Many project activities have combined to strengthen Makerere University and the other six partner institutions, both within the faculties teaching the target subjects and at the level of university governance and administration. These are the keystone institutions in Ugandan higher education, and it seems clear that their graduates are better prepared for professional roles in local government (and indeed in society) than they would have been without this project. As discussed below, higher education in Uganda faces the challenge of an exploding demand and limited resources, Makerere and its partners are better equipped to face that challenge as a result of this project.

As explained above, in part because of this project, the labor market for professional employment in local government has been strengthened.

Capacity building in higher education also involves the institutionalization of linkages with funding agencies, government, employers of graduates, and domestic and foreign universities. It is clear that considerable progress has been made for Makerere University in improving the quality of such institutionalized linkages and to a lesser extent for several partner universities. Key stakeholders report that trust has been built among the administrators of the higher education institutions that partnered in the project. So too, linkages between the universities and both central and local governments have been greatly strengthened. Inter-university linkages and cooperation have been strengthened. The Ministry of Finance Planning & Economic Development has accepted the idea of research financing.

(c) Other Unintended Outcomes and Impacts (positive or negative)

The linkages between local and Central governments have improved. There was a synergism among project components, which is not described in the project documentation, but which have benefited the participating universities. The faculty trained nearly 200 adult students with local government experience and classes were enriched in the process. The faculty also learned from

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the students. Faculty developed curricula for local government training brought that experience back to their regular classrooms, and faculty supervised students actually placed in the field saw the problems those students faced.

The project proved helpful to pilot local governments that were reorganizing to meet newly imposed educational standards for LG staff positions; many of those who obtained university degrees under the project would otherwise have lost their jobs, and senior LG managers felt that the project smoothed what might have been a very difficult management transition.

[email protected], which was conceived of as a governance body for the project, met in weekend meetings scores of times during the project. It became a formal body of the Faculty Senate of Makerere University. The presence of non-academic leaders advising on university activities was seen as “revolutionary” and highly beneficial. The forum among key leaders of higher education in Uganda resulted in working relationships and mutual understanding of issues and problems that will have long-term influence for higher education. The I@MAK project has been widely known in Uganda and has served as a prototype for reform. “Improving the relevance of higher education” in the Uganda Joint Assistance Strategy can cite this project as a successful example.

3.6 Summary of Findings of Beneficiary Survey and/or Stakeholder Workshops (optional for Core ICR, required for ILI, details in annexes)

This is a Core ICR but has features of an intensive learning ICR. The following is a brief summary of beneficiary survey findings from the “Outcome Assessment Study” and findings from the Stakeholder Workshop held on November 25, 2006. Details are in Annexes 8 and 9, respectively.

Beneficiary Survey Findings: Positive changes are beginning to emerge. The direct beneficiaries, such as students and university staff, have improved their performance as a result of applying the knowledge and skills acquired from the training programs. Institutions from which the beneficiaries come from have noted improved performance. Underlying all, there is a sense that the graduates from the partnering institutions are now more practically oriented and suited for the marked place.

The generation of new knowledge to improve on the decentralization process and service delivery, though at early stages, has also shown promising signs. Some research finding have already informed policy formation, delivery of services and improved training programs.

Overall, the study findings show that the interventions are producing outcomes that are relevant and effective. The integration of the institutionalization of the programs also promises sustainability. However, financial sustainability poses a change for a number of programs.

Stakeholder Workshop Findings: A stakeholder workshop was held on November 25, 2006. Seventy participants comprised local government officials, officials of the Ugandan Local Government Association, student and faculty researchers supported by I@MAK, faculty involved in curriculum development efforts, scholarship students from local governments, members of the contracted evaluation team, [email protected] members, and members of the Secretariat, as well as two ICR team members.

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There was strong support among beneficiaries for the program’s continuation and expansion. Local government representatives asked to have the I@MAK program expanded nationwide. It was suggested that the model villages (only two nationwide) should be replicated as well. Partner universities have begun innovation programs modeled after I@MAK.

4. Assessment of Risk to Development Outcome ICR Rating: Moderate

The risk of maintaining the outcomes achieved under this project is Moderate. On institutional aspects, ownership among universities, local government, and central government officials is strong and commitment is high. Changes resulting from substantial interaction of local governments and universities have been robust. Positive lessons from the project have been incorporated into daily practice in local governments, and at the classroom, faculty, and central administrative levels of universities. These institutional changes will have a strong ability to persist under a variety of external circumstances.

The Government of Uganda has recognized the importance of developing the technical and managerial capacity of the local government staff using the program designed and implemented under LGDP II by budgeting 5.9 billion Uganda shillings in funds for FY 07/08. In addition, given the experience from LGDP II and the I@mak program, the program is being redesigned to make greater use of institutions of higher learning to produce ready to use products and to influence changes in the curriculum to address local government issues. A strong and better partnership will be developed between the LG leaders and the training institutions and the social gap between the universities and the communities will be narrowed. The redesigned program includes expansion of University level curriculum on decentralization using experience from I@Mak.

On financial aspects, The Rockefeller Foundation has been supporting Makerere University for more than decades is continuing its financial support. From the World Bank side, the ongoing Local Government Reform project has substantial programs on training for local government officials. The training will be provided by tertiary institutions. In addition, World Bank ongoing higher education project is for Ugandan universities and research institutes to produce more and better qualified science and engineering graduates, and higher quality and more relevant research, and for firms to utilize these outputs to improve productivity for the sake of enhancing Science and Technology-led growth. The financial support for these interventions will sustain the project outcomes and realize the impact for the future.

5. Assessment of Bank and Borrower Performance (relating to design, implementation and outcome issues)

5.1 Bank Performance (a) Bank Performance in Ensuring Quality at Entry (i.e., performance through lending phase)

ICR Rating: Moderately Satisfactory

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The Bank engaged in productive dialogue with the Government, Makerere University, and the Rockefeller Foundation. The Bank team established a rapport with [email protected], which helped the project design and preparation. They jointly defined the project objectives and designed actions for achievement with the Government team. Discussions went in depth on piloted programs and lessons learned, and in designing the M&E arrangements for the project. Experiences and lessons on capacity building and institutional development from other countries and operations in Uganda were incorporated into the project design.

However, as noted in the section 7.1, there were some difficulties with quality at entry. The project development objective in the Project Appraisal Document (PAD) was unclear and differed from the one in the DCA. The wording of the project description was too general, making it difficult to understand what the components and subcomponents were actually doing. Furthermore, the actual organization of the activities in components and subcomponents was suboptimal, with related activities spread across different subcomponents.2 This lack of clarity caused problems in project course corrections. So too, the failure to anticipate the difficulties in contracting for a strong external evaluation resulted ultimately in a lack of information on the effects of project activities in the pilot local government units and in the university faculties..

Second, the project underestimated the complexity of monitoring and evaluation for attainment of high-level skills and creation of improved capacity within a university. Third, measuring outcomes and impact of these interventions would be a highly specialized activity anywhere in the world. The skills to do this are rare, especially in Uganda.

(b) Quality of Supervision (including of fiduciary and safeguards policies) ICR Rating: Satisfactory

The Bank worked closely with [email protected]. Regular supervision missions were carried out, and special attention was given to implementation issues, such as delay of the baseline report. Effort was made in providing technical assistance to improve implementation performance. The reporting on project performance was realistic. The project’s ratings on development objectives and implementation progress had been Satisfactory through project implementation.

Project ratings were consistently realistic. Balance was maintained between the positive surpassing of project quantitative goals and the negatives in difficulties in monitoring and evaluation. Supervision also kept close track of initial disbursement delays which had to due with overestimates in project costs rather than with failure to implement project activities.

The Bank provided intensive guidance to address the difficulties in monitoring and evaluation. In addition to devising flexible administrative means of responding, the Bank put significant effort into the technical design of a feasible outcome assessment, and provided comprehensive comments on the work as it progress. Also under Supervision, the Bank forged a more

2 The Rockefeller Foundation does not share the opinion regarding vagueness of objectives. It was also suggested that these difficulties resulted from Bank staffing changes and concomitant ambiguities regarding what was required.

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comprehensive relationship with the Rockefeller foundation. Through this, each of the partners tended to draw on the comparative advantage of each institution. The Rockefeller Foundation contributed flexibility and a broad, sustaining vision of improved quality and relevance for universities through long-term partnership. The Bank contributed a rigorous approach to experimenting with university capacity for the sake of solving an urgent national development problem.

(c) Justification of Rating for Overall Bank Performance

Based on the factors described above, the overall Bank performance is rated Satisfactory.

5.2 Borrower Performance (a) Government Performance ICR Rating: Satisfactory

During the project preparation and implementation, the Government of Uganda demonstrated high commitment in improving quality of public service delivery. Senior Ministry of Finance officials spent a significant time on the project. Government ownership of the project agenda was strong and the preparation process was done in a good collaborative manner within the Local Government Decentralization Program.

(b) Implementing Agency or Agencies Performance ICR Rating: Satisfactory Implementing Agency: Ministry of Finance Planning & Economic Development; Makerere University

The high commitment demonstrated during the preparation and implementation was maintained by the [email protected] committee and secretariat. [email protected] provided strong leadership in partnering with other tertiary institutions and coordinating numerous programs and activities. Sixty-six [email protected] meetings or workshops were conducted (27 during project preparation and 39 during project implementation). With adequate capacity in the I@MAK, the project successfully achieved its development objectives, exceeding key performance targets. The I@MAK’s good performance was highly appreciated by the stakeholders and beneficiaries.

The project had a slow start, but was able to speed up about a year later. Initial baseline surveys that ought to have informed subsequent M&E in the pilot districts were unsuccessful after two initial attempts to contract an external evaluation firm. The information on the impact of the effort in the pilot districts therefore was inadequate for some evaluation purposes. Nonetheless, the substantive report on local government capacity done by the Makerere Institute for Social Research as part of the preparation for the project has been used to substantiate the evaluation of project implementation.

(c) Justification of Rating for Overall Borrower Performance ICR Rating: Satisfactory

Overall, the performance of Borrower has been Satisfactory. It could have been Highly Satisfactory if the M&E baseline survey had been carried out successfully.

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6. Lessons Learned (both project-specific and of wide general application)

Key Lessons Learned

• National universities in Africa are an under-used resource for the critical task of government capacity development. Local and national universities in Africa can be effective partners for improving governmental capacity for service delivery. They can be particularly effective at long-term training needed to develop complex skills that are critical to good governance and organizational management. They can do this cost- effectively. Importantly, this project demonstrated that staff selected from local government for long term training do well on campus, return to government jobs when trained, and bring the benefits of that training to the workplace. • Programs enlisting the intellectual resources of universities for government capacity building in Africa can stimulate positive change within the universities themselves, and lead to increased relevance and quality of education. Professors’ attitudes can, within a reasonably short time period, change from an “ivory tower” mentality to one which actively considers the social value and benefits from education, research, and training. In addition, these changes in attitudes tend to provoke positive university organizational changes (such as reorientation of curriculum and degree programs). This benefit to higher education provides a double benefit to the government for public money dedicated to capacity building of governmental organizations. • Local government officials benefit from intensified interaction with educational institutions on many levels. Beyond the direct benefits to trainees and participants, local government officials react positively to the inherent mutual respect that underlies successful cooperation with universities. The interaction has tacit benefits for the enhanced professionalism of local government staff. Local government staff seeks this interaction and report efficiency gains as a result of time invested. • Public officials, upon completion of long-term training, will return to their employers. Fears of international or internal “brain drain” were not supported by project evidence. Recipients of long-term training apply this training to their careers in public service. The effects of well-designed training appear in evaluations at the work place. The level of investment put into research, education, and training developed by university staff will affect the work force that benefits from this investment.

• Effectively selected local government staff can excel in the academic work at undergraduate and graduate levels and compete successfully in African universities. The project demonstrated that staff benefit from such educational opportunities and most often return to the agencies where previously worked with significantly enhanced skills and motivation.

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Other Lessons

Project management • The benefits of World Bank-Foundation partnerships can outweigh the management costs. In this project, the partnership between the Rockefeller Foundation and the World Bank not only improved the benefit to risk ration for each, it benefited from the complementary strengths of the partners. The Rockefeller Foundation has established a strong trust and understanding with Makerere over decades. The Foundation has a wealth of experience in university capacity building, especially in health fields. The Bank was able to provide added project oversight, link the university effort with government, and integrate the project into a broad development program. Additional management costs to the World Bank were very modest. • Monitoring and evaluation of the contributions of knowledge institutions to human capacity creation is complex and difficult to measure. It is easy to underestimate the time, expertise, and expense required to get accurate assessment of the effectiveness of universities in creating key knowledge and skills for personnel involved in implementing national development priorities. It is still more difficult to measure the impact of staff development on local government capacity to deliver and manage services, or the capacity of universities to design and deliver educational and research services,

Lessons relevant to higher education • Even modest amounts of flexible funding for innovations can be useful when well administered and when they allow the higher education system to cope better with rapid changes. • External advisors from client sectors, when their advice is sought and used in academic decision-making, can help an African university embark on reform. • Field attachment internships can be a valuable tool in improving education for students and promoting reform in faculties. • Faculty proved willing and able to make their universities more relevant to local government needs when given the right incentives to do so.

7. Comments on Issues Raised by Borrower/Implementing Agencies/Partners (a) Borrower/implementing agencies

The Bank welcomes the thoughtful and positive comments of the implementing agency and agrees substantially with the main points presented. Borrower’s evaluation is included in Annex 7. The results of the stakeholder workshops, the beneficiary survey, and the comments of implementers and partners tend to reinforce the main conclusions presented in this report. (See Annexes 5, 6 and 7).

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(b) Cofinanciers

The co-financier, the Rockefeller Foundation’s comments are included in Annex 8. The Bank agrees with the Foundation’s main comments relating to the project’s benefits to Makerere University.

(c) Other partners and stakeholders (e.g. NGOs/private sector/civil society)

The results of the stakeholder workshops, the beneficiary survey, and the comments of implementers and partners tend to reinforce the main conclusions presented in this report. (See Annexes 5 and 6).

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Annex 1. Project Costs and Financing

(a) Project Cost by Component (in USD Million equivalent) Actual/Latest Appraisal Estimate Percentage of Components Estimate (USD (USD millions) Appraisal millions) ENHANCED ACADEMIC AND INSTITUTIONAL CAPACITY 4.17 5.46 131

PILOT SUPPORT TO LOCAL GOVERNMENT CAPACITY BUILDING BY UNIVERSITIES 4.60 4.23 92

ENHANCED DECENTRALIZATION POLICY RESEARCH & FORMULATION 1.70 1.80 108 CAPACITY

MONITORING AND EVALUATION 0.38 0.26 68

Total Baseline Cost 10.85 11.75 108

Physical Contingencies 0.00 0.00 0.00

Price Contingencies 0.15 0.00 0.00 Total Project Costs 11.00 11.75 107 Project Preparation Fund 0.00 0.00 .00 Front-end fee IBRD 0.00 0.00 .00 Total Financing Required 10.85 11.75

(b) Financing Appraisal Actual/Latest Type of Percentage of Source of Funds Estimate Estimate Cofinancing Appraisal (USD millions) (USD millions) Borrower 1.00 1.00 100 International Development Association 5.00 5.00 100 (IDA) Rockefeller Foundation 5.00 5.75 115

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Annex 2. Outputs by Component

Annex 2a. Component Outputs Contributing to Development Objectives

The following information recognizes that although activities allocated to components for simplicity of description and management, in fact many specific activities had outputs that related to more than one component. For example, some courses were designed for both university and local government students, and local government officials and others sometimes participated in courses designed specifically for university participants.

Component I. Enhanced Academic Institutional Capacity

• 186 people participated in 4 pedagogical workshops. • One short course was developed for higher education students. • One long course is under development for higher education students and is expected to be completed. • One additional short course was developed for higher education students and is now being expanded as a long course, and is expected to be completed. • The Decentralization Resource Center at Makerere University was renovated and upgraded but has not opened. • 12 faculties designed or revised and operated internship programs, covering 25 disciplines. • 8,317 student internships of 60 to 70 days each took place. • [email protected] decision-making mechanisms were fully functional. • Bursar and procurement units were strengthened.

Component II. Pilot Support to Local Government Capacity Building by Universities

• 113 local government officials from the pilot districts received scholarships for undergraduate training leading to a degree. • 82 local government officials from the pilot districts received scholarships for graduate training leading to a Masters degree. • 3 short courses were developed and targeted for local government staff, and 1 is under development and is expected to be completed. • 2 long courses were developed and targeted for local government staff, and 1 is under development and is expected to be completed. • 4 additional short courses were developed and targeted for local government staff and then expanded to long courses. • 9 training courses were conducted for local government personnel, and 7 more are under implementation.

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• 131 people attended 8 African Local Government Action Forum sessions. • Number of planning unit staff trained. This activity was not carried out due to weak capacity on monitoring and evaluation at both the central and local levels. • 52 radio program sessions have been conducted in the 6 disciplines covering about 70% of all districts in Uganda. • Makerere University has signed written partnership agreements with 6 higher education institutions. • 7 community meetings were held.

Component I and Component II • 1 short course was developed, serving both higher education and local government target populations, and 3 are under development and are expected to be completed. • 1 long course was developed serving both higher education and local government target populations, and 1 is under development and both are expected to be completed. • 6 additional short courses were developed and then expanded to long courses serving both higher education and local government target populations, and 3 are under expansion and are expected to be completed. • 7 training courses were conducted targeting both the higher education community and local government officials, and 3 more are under current implementation. • 1,135 people were trained in decentralization concepts, policy, and process in 43 sessions, approximately 55% from institutions of higher education and 45% from local and central government. • 17 Vice Chancellor Innovation Awards were issued. 8 awards were made aimed at promoting innovations among academic staff of the participating tertiary institutions and 9 were made to local governments that made innovations that contributed to the improvement of the quality of life of the population in their respective areas. • 2 model village projects have been funded.

Component III. Enhanced Decentralization Policy Research and Formulation Capacity

• Scholarships/fellowships for research were awarded to 18 PhD students and 116 Masters Degree students, and grants for research projects were made to 29 university staff. • 82 Masters students funded under Component II conducted research in the course of their graduate studies. • A sustainable mechanism for managing local government-related research was established at Makerere University. • 16 publications related to teaching and decentralized service delivery were published; 2 manuscripts are in preparation and are expected to be published.

Component IV. Monitoring and Evaluation

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• While various computerized databases have been created and used (plus the project has extensive paper files), an overall computerized management information system (MIS) has not been created. • A baseline study has been carried out, though with delay, by consultants, and judged to be too flawed for further use. • Draft outcome assessment study was completed in November 2006 and disseminated. • The draft report titled “Documentation of Implementation Progress: Status Report as of June 2005” was completed in November 2006, and presented at the stakeholders meeting.

Annex 2b. Courses Supported by [email protected]

Funding for course development was done in tranches, with each added tranche authorized based on the success demonstrated in the prior work. Some of the curriculum development efforts were only funded at a feasibility or pilot stage, and not carried to completion. The following is a list of all funded curriculum development activities under the project.

Short Courses 1. Pedagogical skills for lecturers at university and other tertiary institutions 2. Psycho-socio skills training and empowerment project 3. Continuing medical education for health care workers: Human capacity building to improve health services delivery in the decentralized districts 4. Audit in maternity care; continuous medical education proposal 5. Capacity building for environmental assessment in the districts of Uganda 6. Capacity building of engineering departments of local governments 7. Continuing medical education for medical officers 8. Animal feed production, planning and management skills for decentralized systems 9. Integrated training of district extension workers in food and nutrition security 10. Enhancing the role of Makerere in technology generation and dissemination 11. Building capacity for career guidance and professionalism ethics for students and agriculturalists 12. Capacity building for using up-to-date soil decision aid tools for sustainable soil resource management in a decentralized system 13. Enhancing horticultural crops production in decentralized districts through training in propagation techniques and proper cultural practices 14. Enhancing judicious use of agro-chemicals among the small-scale farmers 15. Strengthening practical agriculture training to adequately handle challenges of decentralization and agricultural modernization programs in Uganda 16. Discipline as a prerequisite for education and production of responsible human resource to meet societal challenges 17. A capacity building project in financial management and basic accounting for faculties and departments of Makerere University 18. In-service agro-forestry practical diagnosis and design training 19. Enhancing the capacity of Makerere University I.A.C.E. regional centers to promote distance and community participation in the decentralized districts. 20. Building district capacity for management of key indicators of change in health care delivery system: Building for basic data analysis and utilization in districts 21. Gender training and skills development (GTSD) course for decentralization in Uganda 22. Training of extension staff in community mobilization skills 23. Capacity building for decentralized districts in maintenance of assets 24. Training for strengthening parish land committees

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25. Capacity building of agricultural engineering skills for district staff for sustainable agricultural modernization 26. Building capacity for sustainable water resources development for agricultural production and domestic use at districts and department of agricultural engineering 27. Training district local staff in computer use, trouble shooting and maintenance 28. Training of Kiswahili primary teacher in Uganda 29. Essential primary surgery in the district 30. Capacity building for school screening programs in decentralized districts 31. Continuing dental education for capacity building among oral health practitioners in the districts of Uganda 32. Increasing ophthalmic surgical intervention returns through training of rural hospital staff 33. Improving productivity of Uganda's decentralized districts through capacity building in time management 34. Functional capacity improvement of internal auditors in local authorities in Uganda 35. Training in project planning and management at district level 36. Practical field conservation biology and wildlife management course 2001 37. Flower gardening, tree and landscaping in the districts and institutions 38. Strengthening district capacity to integrate and implement child welfare and protection policy and program 39. Rights of local government staff and sources of conflict in the local government system 40. Development of guidelines to enhance local management initiatives in health care provision in Uganda: Case of health unit management committees 41. Productivity improvement in industries of the decentralized districts through cleaner production technology 42. Strengthening the capacity of lower level health service managers in participatory rural appraisal to improve community involvement in health planning: A pilot study of Mbarara and Ntungamo districts 43. Enhancing the capacity of mid-level health service managers in planning and evaluation of health services 44. Empowering communities and the youth, in districts through training in various rural trades and improved employment 45. Strengthening the capacity of lower-level health service manager/health unit management committees in financial management for improved health service delivery 46. Integration of traditional eye practice into the eye care services

Short Courses, which were later developed into long courses 1. Training of reproductive health workers for decentralized districts 2. Training of health workers to be able to identify, refer and manage cases of human rights abuse 3. Intensive workshops in animal health service delivery and production for under decentralization for district councilors and veterinarians, and para-veterinarians 4. Refresher courses on practical skills in feeding, housing and management of farm animals for district extension staff 5. Agribusiness training and community oriented farm management of agricultural modernization 6. The role of Architecture in designing and planning of appropriate urban development and resource use in a decentralized system: Bridging the capacity gap 7. Conflict management skills for sustainable decentralization 8. Audit in maternity care 9. Decentralized district mental health strategy 10. Integrated physical planning in Local Governments in Uganda 11. Training ear nose and throat primary health care 12. Introduction of cytological screening services at health centers in sub-district 13. Community-based practical training in art and design for enhancement of competitive and sustainable skills for the final year students of the department of industrial arts and design 14. Introducing new courses in local government administration 15. Practical training in integrated commercial fish farming for extension staff and selected farmers

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Long Courses 1. Attitudinal change & enhancement of practical skills for veterinarian service providers decentralized district. [During different stages and particularly implementation, the title changed to include undergraduate student internships (4th year) as target group.] 2. Enhancing strategic and integrated development planning skills under decentralized governance in Uganda 3. Curriculum review for community forestry 4. Development of an appropriate training program for engineering personnel for the decentralized districts 5. Review of curricula for training health professionals by the faculty of medicine, Makerere University. 6. Electives for students of health profession of the faculty of medicine, Makerere University. 7. Curriculum development for the bachelor of sports science 8. Restructuring the Development Studies Curriculum (MUST)

Publications 1. Primary Health Care Psychiatry in Uganda 2. A hand book on Decentralization in Uganda 3. Frequently Asked Questions on Decentralization in Uganda 4. Teaching Mental Health in the District 5. Decentralization and Transformation of Governance in Uganda 6. Religion, Culture, Gender and Development 7. Luganda Dictionary “Enkuluze y’Oluganda ey’e Makerere” 8. Runyankore-Rukiga dictionary 9. Sustainable Development and Application of Indigenous Construction Materials in Uganda 10. Appropriate Agroforestry Interventions in Uganda 11. Kiswahili for Primary Schools: Pupil’s Book 4 12. Kiswahili for Primary Schools: Teacher’s Book 13. Community Mobilization Skills: A Guide Book for District Extension Workers 14. Growing Up by Accident into a Young Adult: A Challenge That Need Not Be 15. An Introductory Book on Foods and Nutrition 16. Psychiatric Problems of HIV/AIDS and their Management in Uganda

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Annex 2c. Funded Research Projects

Faculty Research Projects (Funded partially or completely.) Title Name Unit Institution A Review of the ART Policy and Capacity of Uganda’s Public Health Care System to Deliver Mr. Eddy J. Walakira Social Sciences Makerere Equitable and Effective ART Services to HIV/AIDS Clients A Search for Strengthening Community Drug Distributors Participation in the Home Based Dauda W. Batega Social Sciences Makerere Management of Fever/Malaria Strategy in Uganda Academic A study of Employment Potential Challenges Mark Byaruhanga Makerere Registrar Agriculture Technology Transfer and the Local Kabann Kabananukye MISR Makerere Government Committees Role An Assessment of the Contribution of Decentralized Service Delivery to poverty Dr. Alex Ijjo Business Admin UMU Eradication Effort in Uganda: Case Study of Arua District An Assessment of the Impact of Decentralization Sr. Prisca Kobusingye Business Admin UMU Process Nkozi 6 An Evaluation of Java Plum (Syzygium Cumini) Mr. K. Elly Agriculture Makerere Seeds as a Source of Energy in Poultry Ndyomugyenyi Approaches to Solid Waste Management within a Dr. Vincent Batwala Medicine MUST Decentralized Urban Assessing the Impact of Fish Export on People’s Gaston A. Agriculture Makerere Livelihood in Kampala and Mukono Districts Tumuhimbise Assessing the Status of Mould and Afloxin Contamination of Cassava and Sweet Potato Chips Archileo N. Kaaya Agriculture Makerere in Uganda Barriers to Communication in Local Government a Review of the Revised District Development Daniel Sekiboobo UMI UMI Project (DDP) Communication Framework/handbook Capacity Building for improvement of Science and Technical Education in Schools in the Dr. Gabriel Nzarubara Medicine Makerere Decentralized Districts Capacity Building for Natural Resources Conservation for Sustainable Livelihoods at Local Dr. John R. S. Tabuti Science Makerere Government Levels, in Uganda Clean Water Access and Sanitary Facilities Dr. Fredrick J. Assessment in Selected Districts in Uganda (Rakai Science Makerere Muyodi & Mukono) Constraints to the Decentralized Implementation Juma Anthony Okuku Social Sciences Makerere and Management

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Data Collection and Management as a Basis for Arts & Social Development Planning and Evaluation at Local Dr. Jamil Serwanga IUIU Sciences IUIU Level Decentralization and Environmental Education and Management for Poverty Eradication in Uganda; a Prof. Kanyandago Research Unit UMU Case Study Decentralization and Poverty alleviation in Uganda P. Birungi Economics Makerere Decentralized Agricultural Extension Planning and Wasike Mangeni Social Sciences Makerere Service Design and Development of Appropriate Rainwater Herbert Kaliballa Technology Makerere Quality Improvement system Determination of Factors that have Caused Science Dr. Wilson Medicine Makerere Education to Lag Behind in Schools in Uganda Byarugaba Determination of Knowledge, Attitudes and Practices Related to Feeding Children In Rakai Dr. John H. Muyonga Agriculture Makerere District Development of a Holistic Sanitation System Selection Algorithm for Enhancing Decentralized Charles Niwagaba Technology Makerere Service Delivery in Uganda Dissemination of Technologies for small scale Francis Nturanabo Technology Makerere decentralised power systems Empowering Rural Farmers in the Management of Dr. Philip Nyeko Forestry Makerere Pests And Diseases in Agro forestry in Uganda Engendering of Local FM Radio Development Dr. Grace Bantebya Social Sciences Makerere Programs and Their Effects on Engendering Planning, Monitoring and Evaluation of Local Government Social Service Delivery Robert Esuruku Ethics & Devt UMU Programs for Poverty Reduction in Arua District, Uganda Enhancement of Financial Information Systems for Dr. Imelda Nalukenge Agriculture Makerere Rural Farmers in Uganda Enhancing Poverty Eradication in Uganda: The Helen M. Main Library Makerere Case for Information Access Byamugisha Essential Surgical Skills Training for Health Dr. Patrick Workers at First- Level Referral Health Units in Medicine MUST Kyamanywa Mbarara and Ntungamo Districts Establishing Transitional Stages from peasantry to Prof. E. N. Sabiiti Agriculture Makerere commercial Agriculture in Uganda Evaluation of the Potential of Pumpkins for Alleviation of Vitamin A Deficiency in Sironko Dr. John Muyonga Agriculture Makerere District Family probation Services Provision Under Dr. P.R. Atekyereza Social Sciences Makerere Decentralization Fiscal Decentralization Strategy; More or Less Dr. Nicholas Sunday Financial Discretionary Powers for Local Business Admin UMU Olwor Governments: Evidence from Yumbe Incorporation of traditional Practitioners in Decentralized Mental Health Care in the Districts Elialilia Okello Medicine Makerere of Kampala, Wakiso, Rakai and Ntungamo

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Institutional and Implementation Challenges of Benon Basheka I.A.C.E Makerere Public procurement Labor and the Plight of Children in Uganda: the Deborah Mulumba Social Sciences Makerere Case of Arua District Local Governments and Decentralized Forest Dr. Nelson Resources Governance in Uganda: Benefits, Forestry Makerere Turyahabwe Challenges, Opportunities and Policy Implications Medicinal Plants used against fowl diseases in Prof. Bukenya Ziraba Science Makerere Rakai, Mbarara & Mbale Districts Participation Empowerment and Accountability in William Muhumuza Social Sciences Makerere Local Governments of Uganda Path Ways Out of Poverty in Uganda: Expanding Daniel Lumonya Social Sciences Makerere the Base for Poverty Reduction Performance of Food Marketing in Uganda; An Niringiye Aggrey Economics Makerere empirical investigation. Popularization of Science for Girls in Poorly Dr. Alice Kagoda Education Makerere Resourced Districts of Uganda Promoting Health and Conservation of Medicinal Plants: The case of Sustainable Harvesting of Paul Bukuluki Social Sciences Makerere Medical Plants in Uganda Quality Assurance Mechanisms in Uganda’s Dr. Joseph Oonyu Education Makerere secondary Education Sub Sector Record Keeping and Reporting at the Village Level for Promoting Planning and Development in Fred M. Ngobo Business Admin Nkumba Uganda Research into and Development of Low- Cost Michael Kizza Technology Makerere Water Treatment System for Review of HIV/AIDS Prevention, Care and Dr. Patrick Kagurusi Medicine MUST Support Revitalizing and Popularizing data Collection and Management within the Context of James Sengendo Social Sciences Makerere Decentralisation Strategic Interventions in Urban Traffic Dr. A G Kerali Technology Makerere Management in Uganda Strengthening Capacity of Dermatological Services Dr. Grace Mulyowa Medicine MUST at Grassroots Facilities Under Survey on Availability, Utilization and Incomes Mohamed Bukenya Forestry Makerere from Forest Plant foods in Rakai District System for Enhancing Ventilation to Control Odor Max Kigobe Technology Makerere and Fly Nuisance in Ecosan Toilet The effect of decentralization within the health Development sector to access of health services among pastoral Charles Muchunguzi MUST Studies communities in Ankole Ranching scheme The Impact of Decentralization on the Provision of Primary Health Care (PHC) Services in Two Dr. Mathias Ssamula Social Sciences Makerere Districts of Uganda

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The Road to Health card Review of the Use of the Child Health Card: Review of the Use of the Child Card for Growth Monitoring by Health Workers Denis Nansera Medicine MUST and Children Care Givers in Decentralized Lower Health Units of Mbarara The Role of Cultural Institutions in Community Development in a Decentralised Uganda: A case Robert Kabumbuli Social Sciences Makerere Study of Rakai District The role of fiscal decentralization in poverty Caiphas Chekwoti Economics Makerere alleviation: An empirical investigation The Role of Human Resource Management in the Mr. Steven Akabwai Business Admin UMU Public Sector The Role of Local Governments in Enhancement of Rural Livelihood Diversification as a Poverty Academic Ms. Resty Naiga Makerere Reduction Strategy: A Case Study of Mbarara Registrar District The Role of Moringa Olivera Leaves in Improving Protein Energy Malnutrition with Children Infected Dr. Josephine Kasolo Medicine Makerere with HIV/AIDS Uganda National Oral Health Survey 2001: District Capacity Building for Oral Health Surveys in L. Muwazi Medicine Makerere Decentralized Districts Work Ethos and Art in intercommunication in Dr. G. Birungi Arts Makerere decentralization Working and living in upcountry districts Academic S.M Ngobi Makerere prospectus for Makerere University graduates Registrar Business Development and Quality Improvement Deogratius Kibira Technology Makerere in the Small Scale Reducing Neonatal Mortality in Southwestern Jude Sekungu Medicine MUST Uganda Through Improved Basic Neonatal Care

Projects Receiving Masters Degree Level Research Grants Research Projects at Masters Level Title Name Unit Institution

The effect of management and leadership styles on academic Busulwa A. Swaibu Education IUIU performance in selected primary schools in Kabula Sub District, Rakai An investigation into the causes of girl-child dropout in Yunus H. Mubiru Education IUIU Upper classes in selected primary schools in Rakai District

An analysis of the role of teachers in primary school Ddungu Sinaan Education IUIU management: A case study of selected primary schools in Rakai An investigation into records mgt practices by Head teachers Nakkazi M. Edith Education IUIU of selected secondary schools in Rakai District

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The effect of decentralisation policy on the financial Otai Micheal Otai Education IUIU management of primary education: A case study of Mbale Municipality Influence of Tertiary Agric Curricula on attitudes and skills Amulem Frances Education IUIU of graduates The effects of birth order on children's academic Nsamba Kassim - IUIU performance in primary schools in Uganda: A case study of selected schools in Rakai District The effectiveness of stakeholders in the mgt of primary Okurut John Robert - IUIU education in the decentralised framework: A case study of Kyalulangira S/C, Rakai District District disaster mgt committee and coordination of Acodu Sam SS Mak humanitarian assistance Indigenous methods of conflict resolution: A case study of Bogere Richard Arts Mak the Lugbara in Arua District Decentralisation and challenges of care giving by the elderly: Boogere Stephen Mubinzi SS Mak The case of Katikamu S/C, Luwero District

Socio-economic factors affecting adoption of improved meat Bwire Joseph Agric Mak goat (Boer) production in Rakai & Sembabule District

Assessment of factors affecting community participation in Elima James IPH Mak control of plague in epidemic prone areas of Arua District

Conflicts in LGs and their implications on service delivery: Habiyarembye John Arts Mak A case study of Kisoro District (1997-2003)

Loan monitoring for microfinance institutions in Uganda Katuramu Absolom ITC Mak

Knowledge, Attitude and Practice of use of prevention of Katushabe Juliet SS Mak mother to child transmission of HIV (PMTCT) services in Mbale Hospital Antenatal Clinic Gender responsiveness in the National Agricultural Advisory Kebirungi Harriet SS Mak Services (NAADS): The case of Buhare S/C Kabale District

Factors affecting women and men's benefits from utilisation Kyalisiima Zephaniah SS Mak of microfinance services: A case study of Lubaga Division, Kampala Building construction cost control through appropriate Nuganyi Lillian Technology Mak design and process: Helping LCs to cut construction cost: The case of KCC Decentralisation and good governance: The case of conflict Muhumuza Joseph Arts Mak prevention in Mbale District Treatment actions in home mgt of malaria in children under Mujuni Perez M. Batwine ISAE Mak five years in a rural setting: Kashari County, Mbarara District. Analysis of profitability and competitiveness of bean seed Mulumba Evarist Agric Mak (phaseolus vulgaris) multiplication by out grower farmers in Uganda: The case of Rakai & Masaka Districts.

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Specification and validation of information communication Mwanja Joseph ITC Mak technology security policies in ministries

Benefits and health risks associated with milk and cattle Mwine Norbert Frank Vet Mak raised in urban and pre-urban areas of Kampala City

Gender and copying mechanisms of people living with Nakajjuko Slyvia SS Mak HIV/AIDS: A case study of TASO and NACWOLA, Kampala District The role of LG in family planning service delivery: A case Nalubega Harriet SS Mak study of Bunghoko S/C, Mbale District Effectiveness of bottom-up planning in Uganda: A case for Namanya Naboth FEMA Mak Ntungamo District The role of decentralisation in the delivery of health services Ngabirano Beatrice SS Mak in Kisoro District Determinants of budget motivation and its relationship with Ogentho Poul Maxwell - Mak budgetary performance in a decentralised system: A case study of Nebbi LGs Economic analysis of rice marketing in Uganda: a study of Walube Paul Agric Mak Bugiri & Iganga District Accessibility and Utilisation of Family Planning Services by Masaba Sam Wekesa SS Mak Women with Disabilities in Rwampara County, Mbarara District The significance of social justice in promoting welfare Abeneimwe Patrick Arts Mak among indigenous people: A case study of Batwa of South Western Uganda, Muko and Bufundi S/C.

Improving police services in a decentralised set up: The case Abilu Ernest Martin SS Mak of Uganda Police force in Mukono District Decentralisation and mgt of projects: An ethical assessment Acham Julius - Mak of Kisoro District LG 1997-2002 Decentralisation and challenges of Education Services in Agasha Juliet Bashiisha - Mak Uganda: A case study of Mbarara District

- Akankwasa Stevenson - Mak The place of civil society organisations in planning and Anyolitho William Arts Mak decision making process in LGs in Uganda: The case of Nebbi District Assessment of Household Food Security Amongst the Bako Christine Abia Agric Mak Internally displaced people. Importance of off-farm income to H/H food security among the internally displaced people in Northern Uganda: Gulu District

Factors affecting the uptake of HIV Voluntary Counselling Gudo Sam Siduda IPH Mak Testing by people aged 15-49 years in Kumi District

The "ubuntu": A critical analysis of the indigenous methods Guweddeko Fred Arts Mak of peace & conflict management: a study of Buganda

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Animal manure use level in banana production in Uganda Kagoya Sarah Agric Mak

Factors influencing uptake of HIV voluntary testing among Kalamya Namonyo Julius IPH Mak women attending antenatal care in Tororo District

Information security: A case study of Mulago Hospital Kasirye Catherine Technology Mak

The causes of rural poverty in Uganda: A case study of Kasule Twaha Ahmed FEMA Mak Wakiso S/C in Wakiso District Factors influencing male involvement in contraceptive use Katusabe Atikns Godfrey ISAE Mak among males in Rakai District under the decentralised health services delivery Development of a dual wind solar hybrid design for rural Kimera David Technology Mak water pumping and electrification In Uganda - Kisirye George Technology Mak Gender and horticultural industry in Uganda Kyomugisha Carolyne SS Mak Analysis of conflicts caused by mgt of finances in LGs: A Lukooya Francis Arts Mak case study of Mukono Dis. (1994-2004) The viability of intensive small holder diary production Maloba Opio Paul Agric Mak systems with Friesian crosses in a rural area: Case study of Kakuuto Country, Rakai District Factors that influence expenditure on UPE under a Mfitumukiza Benard FEMA Mak decentralised system: A case study of Mbarara District

The impact of gender relations on planning and development Mugisha Sylivia Arts Mak of LG level in Uganda: An ethical evaluation

The effects of integrating Albizia chinensis trees on soil Mukiibi B. Daudi Forestry & Mak nutrient distribution in a coffee farming system in Mukono Nature Cons. District Supply and Mgt of Antiretrovirals (ARVs) at six districts Musoke David Medicine Mak hospitals in Uganda The impact of socio-economic factors on the use of modern Muwonge Rogers ISAE Mak contraceptives among women in reproductive age group in Mbale Municipality Effectiveness of affirmative action for women in LG Nagadya Sarah SS Mak administration: A case study of Rakai District Effects of demand-driven and cost recovery policy of Natanga Patrick Metembu Agric Mak Agricultural Advisory Services Influence of house hold relations on women's participation in Naumo Juliana Akoryo SS Mak Functional Adult Literacy: A case study of Kotido District

A study to collate the Lipid level in blood and liver fatty Nekesa Victoria Medicine Mak changes for the mgt of Hyperlipidemia in HIV infected patients in Ugandan hospitals Feeding practices of children below six months of age Ngabirano Tom Denis IPH Mak among HIV positive mothers in Hoima District The influence of family background on children's academic Ninsiima Hildah Arts Mak performance: A case study of selected primary schools in Kebisoni S/C, Rukungiri District

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Local community participation in decision making under the Nsamba Patrick Oshabe Arts Mak decentralisation policy in Uganda: A case study of Wakiso District 2000-2004 An ethical assessment of the leadership code as a mechanism Ochieng Francis-Xavier Arts Mak of controlling corruption under decentralisation: A case study of Mbale LG The influence of decentralisation on LG revenue and Olemo Mathew FEMA Mak expenditure: A case study of Sironko District Evaluation of the mgt (operations and maintenance) of road Onep Samuel George Technology Mak making equipment under the decentralised districts in Uganda The status of teaching and learning vocational subjects in Oria Harold Ozoo Education Mak secondary schools in Arua District (1990-2000)

Effect of human resource mgt practices on the performance Otim Geoffrey Charles Education Mak of primary school teachers in some selected schools in Kampala The challenges of decentralisation in conflict areas in Owori Achiel Henry Arts Mak Uganda: A case study of Gulu District 1996-2004 Factors responsible for the geographical variation in HIV Pirio Michael Tatia SS Mak prevalence between Koboko and Arua townships of Arua District Devolution of powers and promotion of good governance in Sseguya Gerald Arts Mak LG Administration: A comparative study of Entebbe Municipality & Bukomansimbi S/C Challenges of revenue collection and utilisation under Tumusiime Patrick Arts Mak decentralisation: A case study of Kiziranfumbi S/C, Hoima District Factors affecting antenatal care visits in Hoima District Twesigye Rogers IPH Mak

Integrating power line carrier terminals into optical fibre Walugembe JB Technology Mak networks Role of decentralisation in health services delivery: A case Wamurubu Alfred SS Mak study of Mbale District - Wonkuc Robson ISAE Mak Factors influencing tetanus toxoid vaccination coverage Ahimbisibwe Humphrey - MUST among women of reproductive age (15-49) in Mbarara District Knowledge, Attitude and practice of mothers attending Kabale Irene - MUST antenatal care towards prevention of mother to child transmission of HIV: A case study of Kisoro District

Prevalence of psychoactive drug and substance abuse in Katongole Bells - MUST Mbarara District Strategic mgt of causes of students unrest in secondary Kebirungi Emma B. - MUST schools in Uganda: A case study of Mbarara District

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Assessing the level of accountability and local participation Kumakech Edward - MUST in development programmes under the decentralised system of governance: A case of Mbarara District

Effects of management training on leadership effectiveness Mugabi Francis - MUST of primary head teachers in Bushenyi District Factors affecting academic performance in universal primary Nakazibwe Primrose Devt Studies MUST schools (UPE) in Mbarara District: A case study of Rwampara County Effects of school based peer support on the psycho-social Naturebba Nansan Medicine MUST health of AIDS orphans in Mbarara Municipality

Review of community involvement in planning and Nkanika Moses Medicine MUST implementation of Health services: A case study of Rubabo Health Sub-district, Rukungiri District Participation of women in politics of LG in the wake of Rukundo Aloysius Education MUST decentralisation: A case study of Mbarara District Department Poverty and fertility rate among rural dwellers in Rwampara Tumuhimbise Immaculate MA MUST county, Mbarara Condom use and HIV prevention in Uganda: A comparative Turyagenda Matama James MA MUST study of the teachings of religious leaders and those of health/social workers Effectiveness of LGs in mgt of primary schools: A case Turyamuhaki Peter - MUST study of Kashari County, Mbarara District Sekware Beda Mayanja Bernard Analysing the demand perceptions and value attached to Rutaroh Arthur Institute of Nkozi formal health care in the rural Uganda as a means of Ethics & improving service delivery Devt Studies

The impact of accessibility and effective utilisation of Eyia Opal Abua Palm - Nkozi learning materials on the performance of upper primary pupils The strategies of Rakai Community-Based Aids Project in Mugume Benon - Nkozi managing the effects of HIV/AIDS In their own voices, grassroots women speak to district Nabbosa Agnes Institute of Nkozi policy makers and implementers: A discursive analysis of Ethics & gender disparity in the grassroots communities of Uganda Devt Studies today Factors influencing sustainability of financial institutions in Bazzekuketta James - Nkumba Rural Uganda: A case study of Subcounty Integrated Development Associations (SIDA) in Hoima District

The role of secondary schools of Wakiso and Kampala Nanyanzi Proscovia - Nkumba Districts in the implementation of the Ministry of health Adolescent Reproductive Policy Factors influencing financial performance in public sector Onduru Sarah Grace - Nkumba agency: A case study of Uganda Human Rights Commission

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Implication of increased student enrolment on academic staff Kabugo Dorothy Education Nkumba performance: A study of selected universities (Makerere and Nkumba) Citizens perspectives on the delivery of education and health Magezi Richard - Nkumba services of Kampala and Rukungiri Districts

Enhancing ethics and accountability in the LG of Uganda: A Muneeza Ngamjije Joan Social Nkumba case study of KCC Sciences The role of information technology in public financial mgt: Nabutsale Irene - Nkumba A case study of Mbale District LG The effect of book keeping on sole traders' businesses in Namakula Gladys - Nkumba Kampala District: A case study of Balikuddembe Market

Microfinance support system, gender and development in Tumusherure Wilson Education Nkumba Uganda: A case of Mbarara District Perceptions on the factors affecting academic performance Kamuli Mayeku Boaz HRM UMI of Government Aided Schools in Sironko Division Effectiveness of procurement internal control system in Kirembeka Richard Joseph Business and UMI government schools- A case of Makerere College school Fin Mgt Division Corruption and services delivery in Arua District Amayo Wilfred UMI Management of outsourcing revenue collection in a Barabanawe Francis - UMI decentralised LG: A case study of Mbarara Municipality

Microfinance as a tool for women empowerment: A case Batte Tadeo - UMI study of Rakai District Contribution of structure to conflicts in Arua Municipality Inziku Paul Clay - UMI

- Kweyamba Robert Byondo Business and UMI Fin Mgt Division - Muhuta Akitore Mathias - UMI Contribution of Internal audit on management Naddaaku Sarah Business and UMI Fin Mgt Division Challenges of implementation of the New Performance Onzoma Apollo HRM UMI Appraisal System in the LG of Uganda: The case of Arua Division District LG - Rwomushana Reuben Jack HRM UMI Division

Ph.D. Research Projects Title Name The challenges of managing wetlands restoration in Kabale District (1900-2000) Baigana Rhona

Oxidative stress in Experimentally-Induced liver cirrhosis and the protective Wamuntu Samuel effects of some vitamins.

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Statistical models for child survival in Uganda Tumutegyereize Stephen Introduction of genetic screening services for management of sickle cell disease Okwi Andrew Livex in Uganda The effect of information and communication technology (ICT) on service Tibenderana K.G. Priscila delivery in selected university libraries in East Africa Genetic heterogeneity of trypanosoma congolense isolated from livestock in Biryomumaisho Savino Kasese and Mbarara perigame areas Interaction of trace metals with natural particles and their influence on biological Nazziriwo Betty production in waters of Lake Victoria. Community participation during the process of curriculum innovation Byaruhanga Mark Quality of service (QoS) in IP-based networks with DiffServ and IntServ in Kasigwa Justine decentralised districts: Case of MTN/UTL in Kampala Identification and description of passion fruit (passiflora edulis sims) viruses and Ochwo-Ssemakula Mildred germplasm and screening for disease resistance in Uganda

Assessing the effectiveness of school agricultural education programmes in the Okiror John James dissemination of knowledge, skills and technologies to rural communities in Uganda Competencies, Occupational Attitudes and performance of sub-county chiefs in Matagi Leonsio Uganda under the implemented decentralisation system: Implications for governance A study to assess the challenges and promises of decentralised UPE planning and Ameri M. Micheal implementation in Uganda: A case study of Kampala and Lira districts

The contribution of Makerere University's Dept of Community Education and Kaliba Stephen Extra Mural Studies towards capacity building for improved decentralised service delivery in Uganda The financing of rural LGs in Uganda Kulumba Mohammed Economic rationalisation of production scales and combination of major high Lwasa Stephen value crops grown in Masaka District in Uganda Enhancing the quality of support services delivered to distance learners of Olal-Odur Florence Makerere University in the decentralised districts Computer simulation modeling of the differences in diets composition and their Tibayungwa Francis effects on partitioning of excreted nitrogen between manure and urine: Implications for nutrient recycling in small holder crop-livestock systems.

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Annex 3. Economic and Financial Analysis (including assumptions in the analysis)

This project included four major components: (1) build university capacity, (2) develop pilot projects for building capacity in local government, (3) fund research relevant to decentralization and to decentralized services themselves, and (4) monitoring and evaluation. In all cases, the development impact was expected to be indirect and to accrue almost entirely after the project ended. These factors influence the choice of economic and financial analysis approach.

Local governments provide roads, sanitation infrastructure, health services, and primary education services in Uganda. They do so primarily on the belief that markets would not provide the services in sufficient quantity nor quality. The argument is that private providers could not appropriate a sufficient portion of the benefits to pay for the economically justified level of production. Under these circumstances, it is unlikely that government salaries for professionals employed in local government and local government service delivery will accurately describe the benefits to the economy from their services. For example, the services of a public health officer who effectively reduces the incidence and prevalence of infectious diseases will seldom receive a salary equivalent to the social benefit of such reductions. An engineer supervising the maintenance of a district network of feeder roads cannot expect a salary equal to the community benefits from his work. There are strong positive externalities to the services provided by such professionals employed in local government.

Many efforts to evaluate the benefits of higher education have focused on the income increases that result from education, but such approaches fail to account for the externalities. Where those are large, income-based estimates seriously underestimate the benefits from education.

To evaluate the cost-benefit ratio of education of local government professionals are likely to be unsuccessful due to the inability to measure the externalities from their services. Estimates of the benefits from a project based on improving the capacity to provide education and training for public servants is likely to be even more difficult.

The returns to scale of investments in training professionals are highly non-linear. Countries that have no public health physicians, no engineers, or no agronomists may pay a high price through a continually stalled development process. On the other hand, as many African nations have learned from experience, if more professionals are trained than the economy can absorb, then they leave, providing few benefits to the nation. We cannot begin to estimate the marginal value of incremental additions to the professional workforce, and the normal approach is simply to set norms for professional staffing. In rural Uganda, where professional staffing falls below both national and international standards, the marginal value of new professional staff is likely to be high. Efforts to improve the relevance of training should make it higher still.

Not only was cost-benefit analysis seen as unlikely to succeed in the evaluation of this project for the above reasons, the project took place under conditions of uncertainty. The risks to the sustainability of project outcomes was judged to be moderate, but no approach seemed adequate to estimate the relevant probabilities. As a result, the main economic analysis approach was to

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compare the project costs to the magnitude of potential benefits. The following discussion suggests that the project was economically reasonable.

[email protected] Expenditures Versus Sector Budgets

Local government budgets for locally raised funds in Uganda for FY2004/5 were USh120 billion. Central government transfers to local government that year were USh750 billion. The local government expenditures were USh870 billion (approximately US$460 million). Assuming a 20 percent discount rate, and local government continuing to expend US$460 million per year, the present value of government expenditures over 20 years would be US$ 2,273 million. (Assume that benefits from capacity building from this project would be fully dissipated in 20 years.)

Kasozi cites estimates of US$859 and US$1,000 per student per year for recurrent costs of education in Uganda.3 Costs in some faculties, such as medicine, are much higher. Kasozi estimates enrollment in 2006 at 134,600, and that enrollment is growing at 18 percent a year.4 Thus a rough estimate (assuming total costs of US$1,000 dollars per student per year) of the expenditures on higher education in 2006 would be US$134.6 million. The present value of the expenditures on higher education for the next 20 years, using Kasozi’s growth rate in enrollment and a 20 percent discount rate, would be US$1,645 million.

Consider that US$8.77 million makes a Y percentage improvement in local government services and an X percentage improvement in higher education services on the average. The expenditures on the project’s Component I (building higher education capacity) plus that of Component II (pilot projects building local government) might be justified if:

(2273 * 106) * (Y * 10-2) + (1645 * 106) * (X * 10-2) >= 8.77 * 106 equivalently: 22.73 Y + 16.45 X >= 8.77 or: 2.59 Y + 1.875 X >= 1

In other words, if there were no impact on local government, the project would have to show an average improvement of 0.53 percent or better in higher education performance over the next generation to justify Components I and II. Equally, If there was no improvement in higher education, the project would have to show an improvement of 0.39 percent on local government performance to justify Components I and II. Indeed, any combination of impacts to the right of the line in the following graph would represent an impact justifying the two components of the project.

3 Page 27 in A.B.K. Kasozi, University Education in Uganda: Challenges and Opportunities for Reform, Fountain Publishers. 2003. 4 Page 3 in A.B.K. Kasozi, University Education in Uganda: Challenges and Opportunities for Reform, Fountain Publishers. 2003.

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Thus even an improvement of educational services in the range of one-quarter of one percent together with an improvement of one-fifth of one percent of local government services from what otherwise would have occurred would justify the project economically, at this discount rate.

Assuming instead a 15 percent discount rate, the present value of government expenditures over 20 years would be US$2,948 million. The present value of the expenditures on higher education for the next 20 years would be US$2,770 million. Thus the breakeven line would be:

3.36 Y + 3.16 X >= 1

The breakeven line for a 15 percent discount rate is shifted to the left of that for the 20 percent discount rate as expected. Improvements in both local government and higher education of the order of one-sixth of one percent would then justify the project. In short, if this project made even a modest contribution to improving the effectiveness of higher education and local government over the next 20 years, the cost of Components I and II would be justified. Such modest increases seem quite possible.

Costs and Effects of [email protected] on the Target Districts

An estimate of the distribution of project funding by activities and Pilot Districts is shown in the following table. Not all the activities could be so distributed, and indeed more than 1000 participants were involved in training that was not costed Thus, only 14 training courses in addition to the Principles of Decentralization were included. Still the table gives a strong indication of the level of activities and their cost for each of the pilot districts. The data suffice to show that the contributions to capacity building in the pilot Districts was substantial.

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Total scholarships Principles of LG Staff Decentralization Short Term Training VC awards District

Funds Funds Funds (Ush) (Ush) (Ush)

Arua 489,780,778 42,400

Kampala 422,534,089 5,972

Mbale 439,403,894 43,594

Mbarara 485,530,334 36,428 36,000,000

Ntungamo 118,110,328 48,372 9,000,000

Rakai 657,041,725 40,608 54,000,000

Sironko 257,798,673 8,958 36,000,000

Yumbe 305,437,097 20,901 27,000,000

Other Districts 26,276

Central Gov't 33,442

Total 3,175,636,917 306,950 162,000,000

Each year the Ministry of Local Government makes an assessment of the condition and performance of district local governments. The assessment is important because it is used to adjust the transfers of funds from the Central to local governments. Thus, in accordance with the indicators, a reward of 20 percent can be added to the transfer for successful districts, or a penalty of 20 percent can be assessed against the unsuccessful districts. Most districts receive the normal “static” amount.

Thus the annual assessment gives an indication of the performance of every district in the nation. The data from the most recent Summary Report (for year 2005) are summarized in the following table. The assessment was carried out in 56 districts, 48 of which met a satisfactory number of “minimum conditions” while 8 did not. All of the I@MAK pilot districts met the minimum conditions. However, only 6 of the 8 (75 percent) met all of those minimum conditions (compared to 77 percent of all districts). Four of the pilot districts (50 percent) were penalized by a decrement in their budget as compared to 25 of all districts (45 percent).

Performance of Districts in 2005 Assessment

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Met all Minimum Pilot districts minimum Reward Static Penalty conditions conditions Arua met x x Mbarara met x x Itojo (Ntungamo) met x x Sironko met x Mbale met x x Rakai met x x Yumbe met x Kampala met x x

Overall 48 met 43 15 16 25 8 not met

Mbale was one of only two districts penalized on “Staff Functional Performance Monitoring and Mentoring.” While 15 districts in the Northern, North-Eastern, and Eastern Regions were granted waivers from requirements on local revenue generation because of rebel insecurity and cattle rustling, none of the pilot districts for the I@MAK project were considered sufficiently affected.

While it is difficult to draw any conclusions from this data, there is no indication that the inputs from the I@MAK project made the pilot districts perform more successfully than did districts in general. Of course, 2005 may have been too early for such impact to be seen, the indicators too crude to show the impact, or other factors may have intervened.

Comments on the Economics of the Research Component

The quantitative economic evaluation of research is difficult at best. It does not seem possible at all in the case of this project. The value of a research program is based on the value of its individual research grants, which may differ greatly from one another. Often a small number of successful and valuable research efforts justify an entire program. The value of such results typically can only be calculated long after the research results are completed. The overall growth in knowledge intensive economic activity has been seen to justify national expenses on research and development.

In this project, research has several purposes. It has the nominal purpose, developing information that is useful in making policy for local government and/or implementing local government programs. For grants funding graduate and undergraduate students (including grants funding faculty who employ students in their research projects), there is an educational benefit for the student. Further, the research activities and results are informing curriculum development, university reform, and teaching.

The ability to do good research and the ability to effectively disseminate and utilize research results develop with experience. Thus this program, which innovates by sponsoring research in universities to serve the needs of local government, has an aspect of investment in the social capital of the research system. That too would seem to be important, but immeasurable.

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The Ugandan Government and the donor community have accepted the principle that additional research and development is economically justified in Uganda. This project used acceptable peer review and decided to fund appropriately qualified grant recipients for research that was justified as relevant to local government and thus to general socio-economic development and poverty alleviation. It is likely that the benefit to cost ratio is acceptable.

The grant made to each Masters student for thesis research was US$3,500. At this low level of funding, average benefit per project need not be too great. As noted above, those benefits included the educational gains to the student, the contribution made to university capacity, and the knowledge generated. The theses were on topics related to local government, and benefits should have derived from their use by the local government involved even if, as has been reported, few of the results have been more widely disseminated. In addition to these (partial Masters) grants, 82 local government officials received full scholarships to obtain (full) Masters degrees. While there was research output from this program, it is considered to be a form of support for capacity building for the pilot-district local governments.

Financial Analysis: Overall Budget Allocations

The project expenditures were below those originally projected for the first two years of the project. The secretariat notes such disbursement delays are frequent in World Bank projects in Uganda. Because the project was extended for a fourth year, the Rockefeller Foundation added resources, and as the exchange rate increased the value of the World Bank-contributed Special Drawing Rights, it was necessary to revise the project budget.

In that process, according to data supplied the I@MAK secretariat revised the budgets for the four components as follows:

• Component 1 (Enhanced Academic and Institutional Capacity) was increased from $3.57 million to $5.46 million. The increase was primarily in the sub-components for academic decision-making ($0.46 million), internships ($0.74 million), and project support ($0.55 million). • Component 2 (Local Government Capacity Building by Universities) was decreased from $4.37 million to $4.23 million. However the curriculum development subcomponent was reduced by $0.58 million. Moreover, a significant portion of this subcomponent’s funding was directed toward curricula in the university for their regular students, rather than for curricula targeted to local government officials in degree and diploma programs which incorporated on-the-job and distance education approaches (as originally intended according to the PAD). The budget for continuing professional education in priority areas ($0.1 million) was eliminated. The budget for collaboration with the Uganda Local Government Association ($0.15 million) was eliminated. A sub-component to support university for technology and other innovations in two model villages was added ($0.33 million). • Component 3 (Enhanced Policy Research and Formulation Capacity) was increased from $1.55 million to $1.8 million. The budget for research by faculty members was increased by $0.54 million, while that for graduate students was decreased by $0.11 million, as was that for collaboration with the Global Distance Learning Center (by $0.07 million).

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Budgets were eliminated for planning for strengthening linkages ($0.02 million); international comparator visits ($0.02 million); expert witnesses ($0.02 million); and computers, software and office equipment ($0.07 million). • Component 4 (Monitoring and Evaluation) was decreased from $0.51 million to $0.26 million, primarily by reducing the budget for the baseline and annual surveys (by $0.10 million) and eliminating the "unallocated" category ($0.15 million).

As of September 30, 2006, the actual expenditures were 104 percent of those in the revised budget for Component 1, 94 percent for Component 2, 64 percent for Component 3, and 27 percent for Component 4.

The net effect of these changes was to increase the overhead for the project and to change the balance among the components. The loss of evaluation data reflected in the M&E budget decrease reduced the learning possible from this LIL. The final project budget allocates more to enhancing academic capacity and less to enhancing local government capacity that was originally intended. The ICR team has noted that the PAD does not address how the balance among components of the project is to be maintained or changed during implementation. The secretariat and [email protected] strongly rejected the suggestion that the balance had been changed during implementation in favor of the university community. The ICR team suggests that the change was inadvertent, resulting from the nature of the decision processes used in the project and some deficiencies in the original project documentation.

Financial Analysis of Inputs by Priority Field

The following two tables provide the distribution of funds for major activities by priority field of study:

Scholarships for LG Staff Internships Undergraduate Masters Total

Amount Amount Amount (Ush) Amount (Ush) (Ush) (US$)

Agriculture 387,331,200 300,246,109 687,577,309 494,431

Education 67,446,000 259,529,181 326,975,181 779,285

Financial 287,268,000 275,871,968 563,139,968

Governance 316,898,362 259,257,928 576,156,290 428,026

Medicine 282,989,805 174,032,449 457,022,254 308,092

Technology 356,320,400 208,445,516 564,765,916 476,919

Total 1,698,253,767 1,477,383,150 3,175,636,917 2,486,751

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Student Research Grants Staff Projects PhD Research Masters Research Total s Amount Amount (US$) Amount (US$) (US$) Amount (US$)

Agriculture 140,000 38,500 178,500 367,968

Education 175,000 73,500 248,500 109,405

Financial 70,000 70,000 140,000 97,196

Governance 35,000 94,500 129,500 547,648

Medicine 140,000 98,000 238,000 324,704

Technology 70,000 24,500 94,500 354,338

Total 630,000 399,000 1,029,000 1,801,259

All the priority areas benefited from a variety of inputs and activities.

Financial Analysis of Inputs by Partner Institution

The following three tables indicate that, as expected, the majority of the funds for this project were spent in the lead institution, Makerere University. They further indicate that there was significant sharing of activities and budgets with the partner institutions.

Scholarships for LG Staff Undergraduate Masters Total

(Ushs) (Ushs) (Ushs)

Islamic University in Uganda (IUIU) 182,980,204 182,980,204

Makerere University 1,698,253,767 736,374,630 2,434,628,397 Mbarara University of Science and Technology

(MUST) 171,995,106 171,995,106

Uganda Christian University, Mukono 91,646,652 91,646,652

Nkozi University 91,284,430 91,284,430

Nkumba University 203,102,128 203,102,128 - Uganda Management Institute (UMI)I

Other Universities ( Kyambogo, Ngetta, Kabale) Total 1,698,253,767 1,477,383,150 3,175,636,917

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PhD Research Masters Research Internships

(US$) (US$) (US$)

Islamic University in Uganda (IUIU) 28,000

Makerere University 630,000 234,500 2,419,396

Mbarara University of Science and Technology (MUST) 52,500 67,356

Uganda Christian University, Mukono -

Nkozi University 14,000

Nkumba University 31,500

Uganda Management Institute (UMI) 38,500 Other Universities (Kyambogo, Ngetta, Kabale)

Total 630,000 399,000 2,486,751

Principles of decentralization VC Award Staff projects

Expenditure Expenditure Expenditure (US$) (US$) (US$)

IUIU 34912.54146 3,000.00

Makerere 196702.8655 79,000 1,688,090.47

MUST 37117.39646 8,000 77,047.80

Mukono 7442.05985 5,000

Nkozi 26689.43815 8,000 30,120.00

Nkumba 6936.48841 0

UMI 21498.68469 3,000.00 Other Universities ( Kyambogo, Ngetta, Kabale) 3720.922047

Total 335020.3966 100,000 1,801,258.27

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Annex 4. Bank Lending and Implementation Support/Supervision Processes

(a) Task Team members Responsibility/ Names Title Unit Specialty Lending

Supervision/ICR Modupe A. Adebowale Senior Finance Officer LOAG2 Edith Ruguru Mwenda Senior Counsel LEGAF Rajat Narula Senior Finance Officer LOAG2 Miguel-Santiago da Silva Finance Analyst LOAG2 Oliveira Richard Olowo Senior Procurement Spec. AFTPC Martin Onyach-Olaa Urban Specialist AFTU1 Patrick Piker Umah Tete Senior Financial Management Spec. AFTFM

(b) Staff Time and Cost Staff Time and Cost (Bank Budget Only) Stage of Project Cycle USD Thousands (including No. of staff weeks travel and consultant costs) Lending FY01 1.47 FY02 9 56.70 FY03 2 3.24 FY04 0.00 FY05 0.00 FY06 0.00 FY07 0.00

Total: 11 61.41 Supervision/ICR FY01 0.00 FY02 0.00 FY03 7 35.65 FY04 14 63.09 FY05 18 93.81 FY06 10 73.48 FY07 10 47.00

Total: 59 313.03

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Annex 5. Beneficiary Survey Results (if any) This is a Core ICR, but has some features of an intensive learning ICR. The following are beneficiary survey findings from the “Outcome Assessment Study”.

Beneficiary Survey Findings Undergraduate and graduate training of local government staff. Sixty-eight percent of local government staff was expected to complete training within three months of project completion. Staff who have not completed their studies will be able to continue through special arrangements and follow-up funding from the Rockefeller Foundation]. Of the 74 students who completed their courses, 80 percent returned to local government. Of these returnees, 53 percent returned to previous positions, 39 percent were promoted, 7 percent lost their jobs, and 2 percent were deployed in positions lower than prior to training. Of those who lost their jobs, a major reason was due to restructuring during the training program. Of 111 students who responded to the question on relevance of the training, 74 percent said the training had improved their skills, 53 percent stated that they have been empowered with knowledge, and 36 percent mentioned improved quality of work. On average, there were increases in staff supervised (54 percent of respondents), volume of work undertaken (70 percent of respondents) and management-type responsibilities for returnees (69 percent of respondents). The vast majority of supervisors of returnees observed new skills that could be attributed to training. The project increased degree holders by 25 percent. An estimated 69 percent of participating staff would not have undertaken the degree courses without such sponsorship. The internship program. Five out of seven faculties confirmed that the internship program supported by [email protected] differs from what had existed. Changes include increased student placement, hands-on experience, better supervision and evaluation, adequate funding, and the program’s incorporation with the curriculum. Only 5 percent of student interns reported no benefits. Others reported benefits: 45 percent, acquiring hands on skills; 38 percent, exposure to a working environment; and 23 percent, gaining confidence. From the perspective of the academic staff, the internship program contributed to positive changes in the participating facilities and the University in general. (In their evaluation, 17 out of 21 field supervisors expressed lack of information on what exactly to do with the interns. The report also stated, “All districts noted that the students of Education had been deployed to the schools without the knowledge of either the Human Resource Manager or the relevant District Officers. This way therefore, the students could not be supervised by the relevant Departments in the District”.) University capacity building. Of the participants in Basic Principles of Decentralization short course, 82 percent reported improved understanding of decentralization, 34 percent reported skills improvement, 80 percent reported using the acquired skills and knowledge, 72 percent indicated improved performance, and 24 percent noted no change in their performance. Of the participants in pedagogical workshops, 94 percent reported using the acquired skills and knowledge, 92 percent indicated improved performance, and 9 percent saw no change in their performance. Research on decentralization. The vast majority of grant recipients viewed their research projects as driven by personal interest or job requirements, and only a few reported that their

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research was driven by the focus on decentralization. Forty out of 49 partial Masters students indicated they would have pursued research without I@MAK support. Ten out of the 13 PhD students responded similarly. Seven out of 11 staff said that they would not have done the research without I@MAK funding. However, most of the respondents reported that the funding had helped them meet their goal. Most research has not been completed; therefore results have not been disseminated. Of 11 staff researchers interviewed, 7 had clearly defined dissemination mechanisms—workshop/seminar, local government/line ministry, and journals. Even at a preliminary stage, some findings have been utilized for policy research. Two-thirds of students and half of faculty complained of delays in fund disbursing and other administrative problems. Improving curriculum. Thirty-two participants in development of various curriculum programs (28 from Makerere University and 5 from Mbarara University) were interviewed. Prior to being made operational, a new or revised curriculum went through four-step process with faculty, faculty board of studies, faculty senate, and university council. New courses had been developed with new approaches, such as problem-based learning or distance learning, of which 12 had received faculty approval. The revised curricula for health professional shifted from lecture- and laboratory-based training to problem-based training, integrated with real life health problems and community health needs. Degree or diploma courses and short courses were developed. As part of curricula development, staff also prepared instructional materials. These included a manual for the training of sub-county health workers in cytological screening services, and a “Trainer’s Guide in the Teaching of Mental Health in the District.”

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Annex 6. Stakeholder Workshop Report and Results (if any) Stakeholder Workshop Findings. A stakeholder workshop was held on November 25, 2006, specifically in support of the ICR preparation. About 70 participants included local government officials, ULGA officials, student and faculty researchers supported by I@MAC, faculty involved in curriculum development efforts, scholarship students from local governments, members of the contracted evaluation team, [email protected] members, and members of the secretariat, as well as two ICR team members. Six community practice meetings (considered in part stakeholder meetings) were held in the target districts, involving university and local government staff members. Makerere University holds stakeholder meetings, focusing on the donor community, every four years. The Partnerships in National Development meeting was held in April 2006, and while it did not focus uniquely on I@MAK, it is relevant to this report. Reports from all these meetings were made available to the ICR team.

November stakeholder meeting. The presentation of the Outcome Assessment Study was well received. The stakeholders invited to the meeting by the I@MAK secretariat unanimously reported favorably on the project. There was strong support among gathered stakeholders for the continuation and scaling up of the program. Indeed, there was interest from other local governments to have the I@MAK program expanded from the original pilot districts to go nationwide. It was suggested that the model villages (now only two) should be replicated more widely as well. Senior officials from districts chosen for pilot projects reported that their districts were stronger now. Partner universities are starting innovation programs modeled after I@MAK, and it is likely that other Ugandan universities would do so if given the chance. Student scholarship beneficiaries reported gratitude for the support, as did recipients of research grants. Senior officials from partner universities reported positive experience in the partnership with Makerere. The Vice Chancellor of Makerere reported that the project had contributed to the strengthening of the organization. Faculty members expressed satisfaction with the results of funded curricula reform and internship programs, and gratitude for the support.

Communities of Practice. The community of practice meetings included briefings on I@MAK. Participants documented the many problems faced by local government in Uganda, including major unmet needs for service, poor facilities, inadequate staff, and lack of funds. Comments were generally supportive of I@MAK's contributions to capacity building. Concerns were raised such as the difficulty of paying increased salaries for returnees from long-term training (who might be expected to earn more) and difficulties in replacing the trainees during their training.

Partnerships in National Development. This meeting gathered the donors supporting Makerere for a report on the development of the University. Since Makerere became independent in 2001, its senior officials have been elected rather than appointed by the government. Makerere is focusing its efforts on key subjects, such as science and technology, and is increasingly taking the role as a provider of graduate education. It continues to have financial problems. It is supported by a number of donors, including the Norwegian Government, SIDA/SAREC, the Pfizer Corporation, the Carnegie Corporation, and the Rockefeller Foundation.

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Annex 7. Summary of Borrower's ICR and/or Comments on Draft ICR

Decentralized Service Delivery, A Makerere University Training Pilot: Cr 3624 Implementation Completion Report, December 2006

Background The Decentralized Service Delivery, A Makerere University Training Pilot project (2002-2006) was part of a capacity building program for decentralization. In collaboration with five universities, and one other tertiary institution, Makerere University mounted this project as a responsive initiative to address the government policy of decentralization through capacity building. This was the first time that government planned together with a tertiary institution to address a government policy through higher education institutions.

Activities for the program were informed by a primary research carried out by Makerere Institute of Social Research on the “Demand for Human Resources from the Perspective of the District” in 2000. The program set out to explore and document lessons that would inform the improvement of capacity building interventions by higher education institutions through the learning and innovations loan.

Specifically, the project objectives and design were relevant not only to Makerere University and its partners but were critical to the success of development efforts in Uganda. The program not only underpinned the role of higher education in national development but also highlighted the need for support from government and development partners to meet its surmounting challenges of providing and increasing quality research and relevant education. The partnering institutions to Makerere University were Mbarara University of Science and Technology, The Islamic University in Uganda, Nkumba University, Uganda Martyrs University, Uganda Christian University, and the Uganda Management Institute.

The program focused on strengthening decentralized service delivery, with specific emphasis on six areas—health, agriculture, engineering, education, governance, and financial management— that have strong potential to contribute to the overarching strategic results of the Poverty Eradication Action Plan (PEAP). The creation of local government capacity was seen as instrumental to improve service delivery and contribute ultimately to poverty reduction. Higher education institutions are better placed to offer sustainable capacity building and provide a continuum of activities including research, skills building, career development and curriculum reviews, which are likely to outlive the external-driven capacity building interventions. The program was mutually beneficial to both government and higher education institutions.

Assessment of Project Objective

Design The Project Development Objective (PDO), as outlined in the Development Credit Agreement, was to “develop an effective and replicable mechanism for the improvement of public service delivery at local government levels through the improvement and restructuring of educational and other training services offered by Makerere University and Partner Institutions”. Commitment and involvement of the various players/stakeholders (government, local

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government, and higher education institutions) at the design phase facilitated a sharper interpretation and internalization of the PDO. This translated into a harmonization of the versions of the PDO in both the Project Appraisal Document and Development Credit Agreement. The working version of the PDO that is transcribed in the Project Implementation Plan—the document that guided the implementation of the project—was “To facilitate the central government, higher education institutions and local government councils to jointly build relevant capacity for improved and sustainable service delivery that would contribute to poverty reduction through innovations”. In essence, the development objective focused on key operational areas of sustainable capacity of higher education institutions, namely teaching; curriculum review and research through innovations.

Implementation The project was implemented by a committee made up of representatives of Central Government, higher education institutions, local government, and an external member from Kenya and Tanzania. The committee adopted a flexible mode of operation, which comprised of continuous assessment of performance and participatory decision-making.

Achievement can be viewed at three levels: • Higher Education Institutions. The capacity of higher education institutions to reorient their curricula with the objective of continuously producing graduates relevant to the needs of society, while at the same time engaging in basic and applied research. • Local Governments (Politicians/Technical Staff). Creation of a critical mass of staff in pilot local governments with relevant and immediately applicable skills for service delivery, good governance and poverty reduction.5 • Central Government. Contribution to policy formulation and review through basic and applied research.

Evaluation of Performance

Evaluation The project team rates the performance as highly satisfactory. While the project had a late start, it outperformed expectations on all established indicators. In spite of challenges in the monitoring and evaluation component, there has been a consistent satisfactory rating by all supervision missions, reviews, and stakeholders. Indeed the project was lauded as having the potential to improve capacity building in a sustainable manner by the IEG (formerly OED). Likewise the project was rated among the top ten in Africa in the preparation of comprehensive Financial Monitoring Reports. The project’s outstanding performance is attributed to the following:

1. Flexibility in operation. The project was treated as a learning process and the project team periodically reviewed established operational guidelines. This provided an avenue for learning outcomes and redress when the need arose;

5 These pilots were in Arua, Kampala, Mbale, Mbarara, Ntungamo, Rakai, Sironko, and Yumbe. These 6 districts have now been split into more than 15 districts benefiting from the pilot project.

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2. Ownership of the project was high. A joint planning team of Ugandan University and government staff worked for several months in the preparation of the capacity-building program. This team transitioned into the [email protected], the governing body of the project. 3. Commitment to the project was unsurpassable. Members’ attendance of all business and policy meeting was on average 90 percent. The Ministry of Finance senior government officials and senior university academics committed a great amount of time to this project. 4. Implementation was based on empirical evidence. The Makerere Institute for Social Research conducted a study of staff capacity and staffing needs of local government prior to the commencement of the project. 5. Partnership and collaboration were strong. The project benefited from a long-term relationship between the Rockefeller Foundation (Bank’s partner) and Makerere University. The Bank team had working experience with Ugandan local governments. There was a unique collaboration between the two funding bodies, which created a synergy that brought together the higher education institutions and the local governments in an appropriate environment for a learning innovation loan. 6. Project team was well prepared. At the onset of the project, the implementation team received “quality at exit” training in the execution of World Bank-funded projects. 7. All players contributed to team effort. There was a demonstrated evidence of team work by all players involved. The team leader and the Rockefeller Foundation participated in periodic reviews by [email protected]. This facilitated fast operationalization of decisions and shortened the approval process in cases where a different operational arrangement was agreed upon.

Implementation Overall, the project was able to achieve what it set out to do. All indicators were outperformed. The committee undertook policy and budgetary reviews at every stage of project implementation. As a result of the committee’s interventions, per-activity allocations were revised and more activities were actually carried out than had been outlined at project inception. The versatility of the committee, combining government, universities, and local government officials to make decisions that affect academic institutions greatly contributed to this success. Credibility of the secretariat and Makerere in the eyes of stakeholders grew during the implementation, as had been hoped. Coordination with University policies was strong and [email protected] formally became a subcommittee of the Makerere University Faculty Senate.

As a result of this intervention the project was able to accomplish the following:

Equip University staff and students with a better understanding and appreciation of the needs of Ugandan society from the perspective of service delivery. Specifically the project has been able to make University staff understand the major policies of government, especially those aimed at reducing poverty and other governance issues. This was achieved through a tailor-made course, “Basic Principles of Decentralization,” which was offered to 1,135 staff of collaborating higher education institutions, Central Government, and local governments. The course had impact on teaching, research, and community outreach while at the same time highlighting the role that local governments can play to influence higher education curricula. A collaborative arrangement among higher education institutions and between higher education institutions and

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local governments has emerged and is shaping how institutions relate. Several activities of this project helped to increase the relevance of their training programs to Ugandan development needs.

Review existing and or develop new curriculum with a view to orienting it to the knowledge and skills gaps identified in government and particularly the local governments. Thirteen new curricula were developed, 42 were reviewed. As a result Makerere and other partners can produce graduates that can better respond to the needs of society. Through field visits and research, academic staff were exposed to real life situations. This has augmented the teaching delivery modes with relevant and practical examples.

Equip students with practical skills and experiential learning through internships and field work. At inception the project expected to take 400 interns. Due to sustainability reasons, facilitation per student was reduced enabling 8,137 students from Makerere and Mbarara University of Science and Technology to participate in the internship program. This was more than 2,000 percent over the expected output. These students benefited from the experience of practicing professionals, and 59 local governments benefited from the increased human resources.

Create a critical mass of knowledgeable and experienced staff in each pilot by providing career training at undergraduate and Masters level. From the pilot districts, 113 local government staff received full undergraduate scholarships (more than the DCA target of 60) and 82 received full Masters scholarships (more than the DCA target of 20). Most students returned to district government jobs during University vacations. The follow-up study of beneficiaries indicated students received good grades. Those who had completed their courses (95 undergraduates and 40 full-time Masters) indicated a high return rate (80 percent). The returnees generally reported increased work assignments or supervisory responsibilities. Their supervisors also positively rated the graduates with enhanced abilities. This aspect of the pilot programs contributed to the emerging discourse in Uganda that such staff must be offered career development opportunities and not simply skills training. This principle is being adopted for the successor project of Local Government Development Project 2. Additionally, the Ministry of Local Government has established minimum university degree requirements for key positions (e.g., sub-county chiefs) as part of the recent restructuring program.

Benefit local government staff through participation in short courses, including refresher courses. The universities involved in the project successfully developed a menu of appropriate, well-designed short courses and degree programs aimed at strengthening the skills and capacity of the staff of local government. Some of the courses have been adopted as part of the priority training programs in the Ministry of Local Government for which the local governments can contract authorized providers, including Makerere and its partner institutions, for training and educational services. Capacity building in local governments was not limited to technical staff. The project also supported 73 political leaders from pilot districts. They benefited from training on the political roles and responsibilities in a decentralized environment.

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Stimulate competition in service delivery through the Vice Chancellor’s local government award for innovations. The three-year initiative gave first, second, and third place prizes to local government achievements in innovation. These prizes served to draw national attention to important innovations made at the local level and to encourage wider efforts to innovate. Stimulate competition in academic innovation through the Vice Chancellor’s academic excellence award for innovation. Eight awards were given to deserving projects, both curricular and research, in the participating universities. Some technologies, such as the soil kit and the soil stabilized building materials, have been disseminated and adopted through the model villages. Government has adopted the use of soil stabilized building materials to construct teachers’ houses less expensively. Strengthen collaboration between higher education institutions and local governments. The project worked closely with the Ugandan Local Governments Association (ULGA), including 52 weekly radio programs; development of the ULGA website—www.ulga.org; establishment and holding of 7 communities of practice. The communities of practice served to disseminate the Vice Chancellor’s award-winning innovations and draw attention to key service delivery issues. As a result, the ULGA has been strengthened, as has the Universities—Ministry of Local Government cooperation. Support staff and student research on and for decentralization. A significant amount of research was funded, far beyond the original targets. As a result of the budgetary revisions, 116 instead of 75 Masters students, who had already completed course work, were supported to undertake research. The DCA target was 15 students. Forty-three students have since completed their Masters programs. In addition 18 staff at Makerere University were supported to undertake PhD-level research. Sixty-six staff from Makerere and partnering Institutions were supported to undertake research projects. Disseminate Research Results. Research has been disseminated through the model villages, presentations at international and national conferences, publication in refereed journals, exhibitions, newspapers, and stand-alone books. The outcome assessment study revealed that little had been done to disseminate the results from the student research. Sixteen publications that can improve service delivery by local government and serve as teaching materials resulted from the project. For example, a dictionary was produced that explains the terminology of decentralization in the local context of Uganda. ‘Enkuluze’ Luganda dictionary was produced. Teachers and student Swahili books were produced for primary schools. A manual was produced for those training local health workers on how to deal with mental health problems. A book was published on the proper use of indigenous construction materials. The project also initiated the Makerere University research journal, which will ensure that project research materials and other research get appropriate venues for dissemination. Build institutions of excellence. The project provided for study tours in an effort to benchmark good practices and to facilitate the establishment of institutions of excellence relevant to local needs. Four faculties from Makerere visited universities in Thailand, South Africa, the United Kingdom, and the United States. One of the offshoots was the establishment of two model villages (Obayia in Arua and Nsumba in Rakai districts) to disseminate research findings and directly link higher education institutions to local conditions. Procure an M&E consultant. Initial baseline surveys that ought to have informed subsequent M&E in the pilot districts were unsuccessful after two initial attempts to contract an external

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evaluation firm. The information on the impact of the effort in the pilot districts may therefore be inadequate for evaluation purposes. Nonetheless, the substantive report on local government capacity done by the Makerere Institute for Social Research as part of the preparation for the project has been used to substantiate the evaluation of project implementation.

Lessons Learned

• Universities as a constituent component of the higher education system are better placed to address key government policies even in the African Context. A collective effort by the various players is likely to have more impact than individual institutions. • Collaboration among higher education institutions is key to quality higher education in Uganda through joint programs, including resource mobilization. Before the pilot, individual higher education institutions were competing with each other in an environment where higher education is marginalized with limited resources. • Implementation risks are minimized through robust governance structures (committees and existing institutional arrangements) that allow for flexibility in operation (reviewing policies and guidelines) to respond to a volatile social, political, and economic situation as in Uganda. • While higher education institutions impart knowledge through long-term degree and skills-building courses, they have a lot to learn from the private sector, and from Central and local governments. Service delivery capacity building is a dual track system that benefits both the local governments and the higher education institutions. • University education can be made more relevant through regular field attachments. These have the potential to change the mindsets of students to work in a rural setting. • Combining the flexibility of the Rockefeller Foundation and the more structured operations of the World Bank provides a balancing environment that ensures crosschecked implementation without suffocating the project operations. This has partly contributed to the unprecedented absorption capacity of projects in Uganda and has enabled the project to continuously access funds for implementation of project activities. • Higher education institutions can produce change and innovations relevant to political and socio-economic development even with modest amounts of funding. • A facilitated and participatory-based process of grant management offers a transparent mechanism for accessing competitive, innovation funds. • In addition to the traditional supply-driven curricula, university education can be more appreciated by the community through direct provision of services and knowledge using a demand-driven approach.

Evaluation of Performance for Effectiveness/Lessons Learned

World Bank Exceptional cooperation and commitment with the first team leader was fundamental to the success of the design phase and the initial implementation arrangements. Where weaknesses

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were identified, mitigating measures were put in place (for example, training in the management of World Bank projects, procurement, and other fiduciary aspects). A holistic arrangement was realized between the Bank, the Rockefeller Foundation, and the Government of Uganda. These partners met the project implementation team at periodic policy meetings to review and map out new implementation issues and procedures. The project received negative support from the first financial specialist in the country office attached to the project. The ingenuity of the second team leader eased the implementation of monitoring and evaluation.

Change of the team leader created a lapse in the conceptualization of the design objective and its constituent activities. Naturally the team leader had to go through a learning curve for effective supervision. Moreover, this was at a period when a new project in Uganda was being initiated by the same team leader, addressing components that were similar to the training pilot.

Rockefeller Foundation The Rockefeller Foundation not only provided the seed funding and a planning phase budget, but it also facilitated the negotiations that brought the World Bank onto the project. In such an encouraging environment, the working relationship was smooth and beneficial to both the project implementation team and the Bank, leading to an exceptional performance of the project.

The flexibility of resources from the Rockefeller Foundation ensured that the project had a running budget even when disbursements from the IDA Special Account were slow. Most importantly the implementing team greatly appreciated the nurturing approach of the Rockefeller Foundation to institutional capacity building, particularly the Associate Vice President and the first Regional Director based in Nairobi.

Government of Uganda By design, the project benefited from the Government through participation of the Ministry of Finance Planning and Economic Development, Ministry of Local Government, and Ministry of Education and Sports. The commitment by Government and higher education officials to the implementation arrangements ensured visibility of the program at the national level. The role of the Ministry of Education and Sports diminished as implementation progressed. This was partly due to the change in the membership of the committee and redesignation of active participants through retirement and other avenues.

Proposed Future Arrangements The higher education institutions involved in the project are committed to reforms that will link teaching and research to government programs focused on improving service delivery. Institutional framework has been established to ensure continuation of the synergies created among higher education institutions and between higher education institutions and local and Central Government. Local governments will continue to use local higher education institutions for skills capacity building. Academic and skills development programs developed with the support of the project have been or are being institutionalized and will be offered by the institutions on a regular basis. In the immediate future, the Rockefeller Foundation has extended support for a new 18-months grant to complete some of the activities that have been started. The

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grant will also be used to disseminate more research findings and test out new technologies through incubation centers.

Future capacity building programs in the country will be informed by the lessons learned under the project. In particular the Uganda Joint Assistance Strategy (UJAS) has been informed by the same lessons. Discussions are ongoing with government to try and adopt long-term career development through University training under the proposed successor project to Local Government Development Project 2. In the long term, Government intends to approach the Bank to support the higher education sector to scale up the activities undertaken by the pilot.

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Annex 8. Comments of Cofinanciers and Other Partners/Stakeholders

The Rockefeller Foundation rates this project highly satisfactory, as the Bank’s assessment attests. We agree that the evaluation delays and loss of opportunity for an appropriate baseline were unfortunate. However, without these problems, we would rate the project as outstanding or excellent in the context of Africa and of higher education innovations, and by its own measure of creative objectives and massive achievements.

Neither the Bank nor the Foundation designed this project. The objectives were crystal clear from the beginning as the university and government set out to build capacity for decentralization as Uganda’s major vehicle for growth and poverty reduction. Neither Makerere nor her sister universities had contributed substantially to this goal prior to the project. In order to move forward in an effective manner, Makerere would need to build its own capacity for the task simultaneously with implementation. The project design took seriously into account the need to make I@MAK the engine for the project, build its sustainability by making it a standing committee of the University Senate, and incorporate the project into the Makerere’s three-year overall Strategic Plan. As a result, practically all university faculty have been expected to fine- tune research and training toward practical, hands-on problem solving; while external funders have been drawn in indirectly to support complementary activities. With regard to decentralization, the project worked closely with central and local governments to ensure that there was sufficient district-level demand for graduates, as reflected by appropriate terms of service and salary provision. It also was linked to the Uganda Local Government Association to assure use of new skills and building communities of practice.

Given that the University had never worked previously with the World Bank or for that matter with the Uganda government on a development project of this scope, the outcomes of the project, as documented in the Bank assessment, are astonishingly good. As a result the Foundation has now approved an 18 month grant for $1.9 million to stabilize results and move the project toward scale. The new grant also allows for some transitional activities regarding the other universities and new relationship with the private sector including preparation for entrepreneurship and market applications of university research. The grant does not include any further training of the type included under the Bank loan as this should more appropriately be taken up under the next Bank’s Local Government Development Project.

There were many adjustment problems as the university learned to work with the Bank’s requirements for procurement, documentation, and clearances. As a result, there were several delays, with the stalled establishment of an effective evaluation unit being the most serious. But while the project did not provide an appropriate baseline measure, monitoring was excellent; it is not clear that the baseline would have offered reliable measures of impacts or attribution within the short project timeframe.

As this unique partnership between Makerere University, the Uganda Government, and the Foundation comes to an end, there is clear evidence that the project has achieved “proof of concept” by demonstrating that tertiary education institutions can play a crucial role in improving the human resource capacities for government service delivery while retaining their intellectual furor and excellence. The rapid progress of the initiative is especially impressive in a

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context of explosive growth of university enrollment and pressure on Makerere and other Uganda universities to provide education with immediate financial payoff. As demand rises for higher education, both undergraduate and graduate, it becomes more, not less, important to shape such learning in ways that can contribute to Uganda’s growth and poverty reduction. The real issue is whether there are more efficient ways of supporting higher education than have been realized in the past. These may include new alignment with a socially conscious private sector, linking centers of excellence within universities across countries, taking full advantage of the revolution in information and communications, including low power connectivity solutions for remote communities, and ensuring a healthy feedback loop with lower levels of educations.

Finally, while we rate the risk level for continuation of activities low, especially with strong donor interest in Makerere, we remain concerned about political tensions in the country that could impact on future national gains.

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Annex 9. List of Supporting Documents

African Development Bank. 2005. “Uganda Joint Assistance Strategy.” Delius, Asiimwe, and others. 2000. “Decentralization: Human Resource Demand Assessment from the Perspective of the District.”, Asiimwe Delius et al., Makerere Institute of Social Research (MISR), Kampala. [email protected] and World Bank. 2004. “Issues Paper to Guide Mid-Term Review (June 23, 2004). [email protected]. 2006. “Bulletin” Issues 1-7 and the Special Edition (November 2006). Kasozi A. B. K. 2003. “University Education in Uganda: Challenges and Opportunities for Reform.” Kinshasa: Fountain Publishers. Makere University and Ministry of Finance Planning and Economic Development. 2004. “Decentralized Service Delivery; A Makerere University Training Pilot.” Discussion Paper, (August 2004). Makerere University. 2003. “Project Implementation Plan.” (January 2003). Musisi, Nakanyike B., and Nansozi K. Muwanga, 2003. “Makerere University in Transition 1993-2000.” Partnership for Higher Education in Africa. Ngolovoi, Mary, and Pamela Marcucci. 2006. “Brief Description of the Higher Education System in Uganda.” (April 2006). Ogeda, Milton Chwa, and Mary Goretti Nakabugo. 2006. “Documentation of Implementation Progress: Status Report as at 30 June 2005.” (February 20, 2006). Ogeda, Milton Chwa, and Mary Goretti Nakabugo. 2006. “Outcome Assessment Study." Final Report (November 20, 2006). Sicherman, Carol. 2005. “Makerere 1922-2000: Becoming and African University.”, Kinshasa: Fountain Publishers, 2005. Uganda Management Institute. 2006. “Basic Principles of Decentralization: Papers for a One- Week Course conducted by the Uganda Management Institute.” World Bank. 2002. “Uganda - Decentralized Service Delivery; A Makerere University Training Pilot Project." Project Agreement (April 10, 2002). World Bank. 2002. “Uganda - Decentralized Service Delivery; A Makerere University Training Pilot Project.” Project Appraisal Document. (March 1, 2002.) World Bank. 2002. “Uganda - Decentralized Service Delivery; A Makerere University Training Pilot Project." Development Credit Agreement (April 10, 2002). World Bank. 2001-2007. Various Aide-Memories, Back-to-office Reports during preparation and supervision for the project. World Bank. 2002-2006. Various Project Implementation Status Reports (ISR) for the project.

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