Evaluation of the Implementation of the Paris Declaration in Zambia
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Evaluation of the Implementation of the Paris Declaration in Zambia FINAL REPORT Dr. Francis Chigunta: National Evaluator and Team Leader Dr Neddy Matshalaga: International Consultant- Primson Management Services JANUARY 2010 i Contents List of Tables........................................................................................................................................................III List of Boxes.........................................................................................................................................III Acronyms........................................................................................................................................ iv Executive Summary .......................................................................................................................... v 1. INTRODUCTION................................................................................................................................1 1.1 OBJECTIVES AND PURPOSE OF THE EVALUATION.....................................................................................1 1.2 SCOPE OF THE EVALUATION ...............................................................................................................3 1.3 METHODOLOGICAL APPROACH............................................................................................................3 1.4 EVALUATION MANAGEMENT ...............................................................................................................4 1.5 MAJOR LIMITATIONS.........................................................................................................................4 2. COUNTRY CONTEXT.........................................................................................................................5 2.1 ECONOMIC SITUATION.......................................................................................................................5 2.2 SOCIAL SITUATION ...........................................................................................................................6 2.3 DONOR DEPENDENCE .......................................................................................................................7 2.4 SUMMARY ......................................................................................................................................8 3. THE IMPLEMENTATION OF THE HIP AND WHIP INITIATIVES ...............................................................9 3.1 ORIGINS OF THE H&A AGENDA IN ZAMBIA .............................................................................................9 3.2 THE JOINT ASSISTANCE STRATEGY FOR ZAMBIA/DIVISION OF LABOUR PROCESS..........................................10 3.3 ROLE OF THE GOVERNMENT IN THE WHIP MATRIX.................................................................................14 3.4 SUMMARY ....................................................................................................................................14 4. UTILITY OF THE PARIS DECLARATION............................................................................................15 4.1 CP AND GRZ PERCEPTIONS OF THE UTILITY OF THE PD..........................................................................15 4.2 SUMMARY ...............................................................................................................................18 5. ASSESSMENT OF COOPERATING PARTNER BEHAVIOUR................................................................20 5.1 COMMITMENT TO THE PD PRINCIPLES.................................................................................................20 5.2 CAPACITY ....................................................................................................................................27 5.3 INCENTIVES ..................................................................................................................................27 5.4 SUMMARY ....................................................................................................................................28 6. ASSESSMENT OF GRZ BEHAVIOUR ................................................................................................29 6.2 COMMITMENT................................................................................................................................29 6.2 CAPACITY ....................................................................................................................................37 6.3 INCENTIVES ..................................................................................................................................37 6.4 SUMMARY ....................................................................................................................................38 7. CASE STUDIES...............................................................................................................................39 7.1 THE HEALTH SECTOR .....................................................................................................................39 7.2 WATER AND SANITATION .................................................................................................................42 8. THE POLITICAL IMPLICATIONS OF AID MANAGEMENT IN ZAMBIA ...................................................46 8.1 THE NATURE OF POWER RELATIONS BETWEEN CPS AND GRZ .................................................................46 8.2 THE NEED TO TRANSFORM THE POWER RELATIONS BETWEEN CPS AND GRZ...............................................48 8.3 SUMMARY ....................................................................................................................................48 9. CONCLUSIONS AND RECOMMENDATIONS......................................................................................50 ii 9.1 CONCLUSIONS ..............................................................................................................................50 9.1.1 Assessment of HIP and WHIP Processes ............................................................................50 9.1.2 Assessment of Utility of the PD..........................................................................................51 9.1.3 Assessment of Cooperating Partner Behaviour ...................................................................51 9.1.4 Assessment of GRZ Behaviour...........................................................................................54 9.1.4 Case Studies and Gender...................................................................................................56 9.2 RECOMMENDATIONS.......................................................................................................................56 ANNEX 1: DIVISION OF LABOUR MATRIX UNDER THE JOINT ASSISTANCE STRATEGY FOR ZAMBIA..........................59 ANNEX II: SUGGESTIONS FOR THE NEW WHIP MATRIX ...............................................................................61 ANNEX III: SELECTED REFERENCES....................................................................................................64 ANNEX IV: PEOPLE INTERVIEWED FOR THE EVALUATION...........................................................................66 ANNEX V: RESPONDENTS INTERVIEWED FOR THE PD..............................................................................67 Box 1: Donor Response to the Ministry of Health Scandal………………………………………………...21 Box 2: Spectrum of Government Control in the Study Countries……………………………….……..…30 Box 3: Evolution of Harmonisation and Alignment in the Education Sector …………………………..34 Box 4: Managing for Results in the Education Sector in Zambia ……………………………………......35 Box 5: The Role of SAGs in Mutual Accountability............................................................................ ...36 Box 6: Marginalisation of CSOs in the Implementation of the PD in Zambia ……………………….....37 iii Acronyms AAA Accra Agenda for Action AfDB African Development bank AIDS Acquired Immuno Deficiency Syndrome CAS Country Assistance Strategy CP Cooperating Partner CPG Cooperating Partner Group CSO Civil Society organization DoL Division of Labour DRC Democratic Republic of Congo EU European Union FNDP Fifth National Development Plan GDP Gross Domestic Product GRZ Government of The Republic of Zambia HDR Human Development Report HIP Harmonisation in Practice HIV Human Immuno-deficiency Virus HQ Head Quarters JASZ Joint Assistance Strategy for Zambia MDRI Multi-Lateral Debt Relief Initiative MoFNP Ministry of Finance and National Planning MoH Ministry of Health NGO Non-Government Organisation OECD Organisation for Economic Development and Cooperation PAC Parliamentary Accounts Committee PAF Performance Assistance Framework PBA Programme Based Approach PC Partner Country PD Paris Declaration PEMFA Public Expenditure Management Financial Accounts PEPFA President’s Emergency Plan for Action PIU Project Implementation Units SAG Sector Advisory Group USAID United States Agency for International Development WHIP Wider Harmonisation in Practice ZDAD Zambian Development Assistance Database iv Executive Summary Background The last decade has seen a significant paradigm shift in terms of aid delivery mechanisms to improve aid effectiveness. This shift is embodied in the Paris Declaration on Aid Effectiveness signed on March 2, 2005. The main focus of the Paris Declaration (PD) is improving the effectiveness of aid through ownership, harmonisation, alignment, results and mutual accountability.