REPUBLIC OF THE ASSESSMENT OF DEVELOPMENT RESULTS EVALUATION OF UNDP CONTRIBUTION CONGO

Evaluation Office, August 2008 United Nations Development Programme REPORTS PUBLISHED UNDER THE ADR SERIES Bangladesh Lao PDR Benin Montenegro Bhutan Mozambique Bulgaria Nicaragua China Nigeria Colombia Rwanda Republic of the Congo Serbia Egypt Sudan Ethiopia Syrian Arab Republic Honduras Ukraine India Turkey Jamaica Viet Nam Jordan Yemen

EVALUATION TEAM

Team Leader Carrol Faubert, Abacus International Management L.L.C.

Team Members Abdenour Benbouali, Abacus International Management L.L.C. Hyacinthe Defoundoux-Fila, Abacus International Management L.L.C.

Task Manager Michael Reynolds, UNDP Evaluation Office

ASSESSMENT OF DEVELOPMENT RESULTS: REPUBLIC OF THE CONGO

Copyright © UNDP 2008, all rights reserved. Manufactured in the United States of America The analysis and recommendations of this report do not necessarily reflect the views of the United Nations Development Programme, its Executive Board or the United Nations Member States. This is an independent publication by UNDP and reflects the views of its authors.

This independent evaluation was carried by the evaluators from Abacus International Management L.L.C. (NY,USA)

Report editing and design: Suazion Inc. (NY,suazion.com) Production: A.K. Office Supplies (NY) FOREWORD

This is an independent country-level evaluation, capita GDP, combined with acute poverty and a conducted by the Evaluation Office of the United low human development index, under which the Nations Development Programme (UNDP) in country ranks 139th out of 177. the Republic of the Congo. This Assessment of Development Results (ADR) examines the This evaluation report concludes that UNDP relevance and strategic positioning of UNDP interventions in the Republic of the Congo support and its contributions to the country’s correspond to expressed national priorities and development from 2004 to 2007. It assesses to the broad corporate parameters of the UNDP interventions under the various thematic organization. UNDP has made judicious areas of the four-year country programme, decisions in selecting its areas of intervention, but with the aim of providing forward-looking it is now time to question the pertinence of recommendations meant to assist the UNDP continuing post-conflict types of activities country office and its partners in the formulation beyond the current programme cycle. The of programmes for the next cycle (2009–2013). evaluation recommends that the next country programme build upon the demonstrated The report examines the context in which comparative advantages of UNDP in the UNDP operates in the Republic of the Congo, Republic of the Congo. These include UNDP mainly with regard to economic and human support for good governance, its pro-poor and development. In addition, it assesses the community development approach, its regional relevance of UNDP interventions to national approach to environmental issues and its strong priorities, as well as the UNDP role within the advocacy capability. UNDP should gradually national development aid community. phase out activities directly related to the post- conflict period. Peace-building should become Since 1991, the Republic of the Congo has been the underlying theme for most activities, particu- engaged in a transition towards multiparty larly those fostering good governance and democracy and a market economy. The transition was marred during the nineties by repeated civil poverty reduction, and become the central focus conflicts between largely ethnic-based militia of the programme to ensure lasting stability and groups. The country emerged from the civil wars sustainable development. only in 2000, and has started a reconciliation and rebuilding process that is well advanced but still A number of people contributed to the evaluation. not completed. I would especially like to thank the evaluation team, composed of Carrol Faubert (Team Leader), Despite booming income derived from oil extraction Abdenour Benbouali and Hyacinthe Defoundoux- and export, the socio-economic situation of Fila. I would also like to offer my thanks to Rajeev the Republic of the Congo remains a serious Pillay, General Partner of Abacus International concern. There is a disconnect between two main Management , the consulting company contracted economies. One is modern, dynamic, export- to undertake the evaluation, who provided substan- oriented and based mainly on the oil and wood tive guidance and support to the evaluation team. industries, while the other is more traditional, In the Evaluation Office, I would like to thank based on subsistence agriculture, small businesses Michael Reynolds, the evaluation Task Manager, and services, and a large civil service sector. as well as Kutisha Ebron, Thuy Hang To and The result is a relatively good standing in per Anish Pradhan for their administrative support.

FOREWORD i The research and preparation of the evaluation valuable insights for the evaluation. The team is were completed thanks to the collaboration also indebted to representatives of civil society and openness of the staff of the UNDP country and non-governmental organizations, donor office in the Republic of the Congo, led countries and the United Nations Country Team, by Resident Representative Aurelien Agbenonci, including those from international financial Violet Kakyomya, Deputy Resident Representative, institutions, who generously gave their time and and Emelyne Mahanda, who acted as the country frank views. office focal point for the evaluation in its early stages. I would also like to thank the UNDP I hope that the findings and recommendations of Regional Bureau for Africa, particularly Ade this report will assist UNDP in responding to the Mamonyane Lekoetje. country’s challenges and provide broader lessons that may be of relevance to UNDP and its This report would not have been possible partners internationally. without the commitment and support of numerous officials from the Government of the Republic of the Congo. In particular, I would like to thank Jean-Baptiste Ondaye, Director General for Planning and Development, who has been Saraswathi Menon the main UNDP counterpart and has provided Director, Evaluation Office

ii FOREWORD CONTENTS

Acronyms and abbreviations v

Executive summary vii

1. Introduction 1 1.1 Purpose and scope 1 1.2 Methodology 2 1.3 Organization of the report 4

2. National development context 5 2.1 Geographic and demographic background 5 2.2 Political context 5 2.3 Economic context 7 2.4 Human development context 8 2.5 Achieving progress on the Millennium Development Goals 10 2.6 UNDP in the development community 12

3. UNDP contribution to development results 15 3.1 Overall analysis of UNDP 2004–2007 Country Programme 15 3.2 Improving democratic governance 20 3.3 Poverty reduction 26 3.4 Conflict prevention and recovery 29 3.5 Energy and sustainable management of the environment 33 3.6 Cross-cutting themes 37

4. Conclusions and recommendations 39 4.1 Relevance of UNDP interventions 39 4.2 Effectiveness of UNDP interventions 40 4.3 Sustainability of results 40 4.4 UNDP strategic positioning 41 4.5 Recommendations 42

Annexes Annex I. Terms of reference 45 Annex II. Key documents reviewed 51 Annex III. People consulted 55 Annex IV. Information note 59

CONTENTS iii Tables Table 1. Categories of non-UNDP persons interviewed for this ADR 2 Table 2. Evolution of select indicators for the period 1998 and 2002–2005 8 Table 3. Likelihood of achieving MDG targets (2004 estimates) 11 Table 4. Governance programmes 2004–2007: components and activities 22 Table 5. Projects related to poverty reduction and achieving the MDGs, 2004–2007 27 Table 6. Projects related to conflict prevention and recovery, 2004–2007 29 Table 7. Environment and energy programme 2004–2007: components and activities 34

Figures Figure 1. Annual expenditure 2004–2007 by core and non-core resources 18

Boxes Box 1. Strengthening Parliament 23 Box 2. Promoting women in politics 24 Box 3. Support to anti-fraud and anti-corruption initiatives 25 Box 4. Support to socio-economic reintegration of underprivileged groups 28 Box 5. Collecting Small Arms for Development (PCAD I and II) 32 Box 6. Preparation of referential frameworks and capacity building 36

iv CONTENTS ACRONYMS AND ABBREVIATIONS

ADB/ADF African Development Bank/African Development Fund ADR Assessment of Development Results CCA Common Country Assessment CEDAP Centre for Project Execution and Support (Centre d’exécution et d’appui aux projets) CIB Compagnie Industrielle du Bois (private-sector enterprise, wood industry) CNR Council for National Resistance (Conseil national de la Résistance) DEX Direct execution modality GDP Gross domestic product IMF International Monetary Fund IPCP Interim Post-Conflict Programme I-PRSP Interim Poverty Reduction Strategy Paper MDG Millennium Development Goal NEX National execution modality NGO Non-governmental organization NICT New information and communication technology PCAD Collection of Small Arms for Development Project (Projet de Collecte des Armes pour le Développement) PRAEBASE Basic Education Support Programme (Projet d’Appui à l’Education de Base) PRESJAR Community Action Project for Community Recovery and Social Reintegration of Youth at Risk (Projet d’Action Communautaire pour le Relèvement des Communautés et la Réintégration Sociale des Jeunes à Risque) PRSP Poverty Reduction Strategy Paper SARIS Société Agricole de Raffinement Industriel du Sucre (private-sector enterprise, sugar industry) SEP/CNLS Permanent Executive Secretariat/National Council to Fight AIDS and STDs (Secrétariat Exécutif/Conseil National de Lutte contre le SIDA et les IST) TRAC Target for resource assignment from the core UNCT United Nations Country Team UNDAF United Nations Development Assistance Framework UNDG United Nations Development Group UNDP United Nations Development Programme UN DPA United Nations Department of Political Affairs UNICONGO Inter-professional Union of the Congo (Union Inter-professionnelle du Congo) UN OCHA United Nations Office for the Coordination of Humanitarian Assistance

ACRONYMS AND ABBREVIATIONS v

EXECUTIVE SUMMARY

This report reviews the contribution of the United constitution adopted in 2002, a second round of Nations Development Programme (UNDP) to elections started in 2007 with parliamentary development results in the Republic of the elections. It should be followed by local elections Congo from 2004 to 2007. It examines the in 2008 and a second presidential election the interventions of UNDP under the various thematic following year. areas of the four-year country programme, with the aim of providing forward-looking recommen- Reconciliation and peace remain fragile. However, dations meant to assist the UNDP country office it is hoped that the second cycle of elections will and its partners in the formulation of programmes mark the definitive end of the transition period for the next programming cycle (2009–2013). and indicate the strengthening of inclusive This evaluation process, known as an Assessment democracy and peace consolidation. This is of Development Results, was carried out on conditioned on elections taking place without behalf of the UNDP Evaluation Office by three violence, as well as on the electoral process being independent consultants working with Abacus perceived as fair and transparent. International Management, L.L.C. The socio-economic situation of the Republic of The report examines the context in which the Congo remains grim, despite booming UNDP operates in the Republic of the Congo, income derived from oil extraction and export. mainly with regard to economic and human There is a disconnect between the two main development. In addition, the report assesses the economies. The first, comprising mainly the oil relevance of UNDP interventions to national and wood industries, is modern, dynamic and priorities, as well as the role of UNDP within export-oriented. The second economy is more the national development aid community. traditional, based largely on subsistence agriculture, UNDP programme components and themes are small businesses and services, and a large civil reviewed in terms of results achieved, effectiveness, service. The result is a relatively good standing in sustainability and strategic positioning. the GDP per capita classification, under which the Republic of the Congo qualifies as a lower middle-income country, with an average income DEVELOPMENT CONTEXT of US$1,262. The reality behind the statistic, Since 1991, the Republic of the Congo has been however, is one of acute poverty and a low human engaged in a long transition towards multiparty development index: the Republic of the Congo democracy and a market economy. During the ranks 139th out of 177 countries. nineties, the transition was marked by repeated civil conflicts among largely ethnic-based militia The country is also highly indebted. In March groups. The country emerged from the civil wars 2006, the Republic of the Congo became eligible only in 2000, when it started a reconciliation and for debt relief under the International Monetary rebuilding process. Fund Heavily Indebted Poor Countries initiative. As part of related discussions, the government While well advanced, this process has not been committed to a number of reforms, particularly with completed. Parts of the Pool Department, a regard to improving governance in all spheres of south-eastern region hard hit by the latest public life. Weaknesses in governance represent conflict, remain under the control of militias, one of the major obstacles to development, although violence has subsided. Under the together with human-capacity deficiencies within

EXECUTIVE SUMMARY vii the public administration. Reforms will only n Strengthen the capacity of national and be possible with a strong political will and sectoral authorities to plan and implement determined action on the part of government, as integrated approaches to environmental well as sustained international support. management and energy development that meet the needs of the poor. There are major challenges facing the country in its furtherance of peace consolidation. On the socio-economic side, these include attaining RELEVANCE OF INTERVENTIONS sustainable growth and equitable redistribution The evaluation team found that programmes of wealth. On the socio-political side, the were generally relevant to the strategies and challenge is to move beyond past conflicts and policies of the government and to UNDP tensions by completing the transition towards an corporate objectives. The programmes addressed inclusive democratic system that protects the needs that are important for sustaining the rights of citizens and ensures human security. country’s efforts of pursuing and completing the Meeting these challenges will require far-reaching transition towards democracy, a free-market reforms promoting responsible and transparent economy and social justice. governance, coupled with strong and determined political will on the part of leaders at all levels Surprisingly, the approved country programme of authority. did not address conflict prevention and recovery as a separate category of support. Although a UNDP ROLE number of activities fell under this programming theme, they were subsumed under the theme During and immediately after the civil conflicts, of poverty reduction. The programmes would UNDP operated on an ad hoc, project-by-project have been more coherent, had conflict prevention basis. In September 2003, the Executive Board and recovery been addressed either directly or approved a four-year programme for the period through an approach that emphasized peace 2004–2007. The programme was subsequently consolidation in all areas of intervention, partic- extended by one year for the purpose of harmoniz- ing programming cycles among several United ularly in governance. Nations agencies operating in the country. In this respect, it should be noted that the UNDP The programme adopted in 2003 addressed three country office adopted a new approach in an major themes: good governance, poverty reduction, internal restructuring at the beginning of 2007, and environmental and natural-resource manage- when it entrusted a dedicated Governance and Peace ment. In addition, three cross-cutting areas were Consolidation Unit with management responsibility identified for inclusion in all activities: gender, for governance and post-conflict projects. HIV/AIDS, and new information and communi- cations technologies. The programme set out to: In addition, the country office had limited UNDP core resources at its disposal. This made n Increase the capacity of the principal it more difficult to use such resources as seed governance institutions, mainly through money to attract contributions for important support that addresses the needs of parlia- but under-funded activities, particularly the mentary institutions, local authorities and environment programme. In response, the office civil society; developed an aggressive and successful fund n Strengthen capacity for reducing poverty and mobilization strategy. However, some UNDP achieving the Millennium Development Goals partners—among the donors and within the (MDGs) on the part of the government and government—consider this emphasis on fund civil society; and mobilization to be excessive.

viii EXECUTIVE SUMMARY The government and aid-community partners and downstream interventions. The programme recognized a number of UNDP interventions also demonstrated a degree of operational as particularly relevant. Projects and areas of synergy, particularly in support provided to activity that represent comparative advantages parliamentary institutions, which, in turn, and should be built upon in the next programme became powerful advocacy vehicles. Similar cycle include: synergies were also evident in several community development projects and the small arms collec- n Support to the formulation of key national documents related to poverty reduction. This tion programme, which were conducted in included two National Human Development Brazzaville and the Pool Department. Reports and, in close partnership with The World Bank, the interim and final Poverty Weaker points include: Reduction Strategy Papers. UNDP also n Mainstreaming cross-cutting issues into assisted the government in producing the programming. There was a deficiency in the 2004 National MDG Report and the near- inclusion of cross-cutting themes in the final national strategy for achieving them; initial design of certain projects, although n Support to parliamentary institutions and corrective action was generally taken at a the effective advocacy it allowed UNDP to later stage; mount among parliamentarians on a number n Unfavourable local perception of UNDP. of cross-cutting issues, such as gender, HIV/ Despite important efforts towards improving AIDS and the environment; programme delivery, UNDP is viewed as n Effective assistance in the development slow to disburse funds, deficient in reporting of legislation on political parties and the quality and heavily bureaucratic in manage- role of women in politics. On the legislative ment style; and side, support was accompanied by concrete operational programmes to train the cadre of n Lacking clarity of outcomes and indicators. The political parties and to help establish networks definitions of outcomes and their indicators promoting the role of women in politics; remained weak. Available financial and human resources were not sufficient to undertake the n Innovative environmental programme to monitoring needed for on-demand programme support conservation, alternative sources of adjustments or meaningful final evaluations. energy and sanitation in large urban areas; This weakened the capacity of the office n Judicious use of high-visibility initiatives to illustrate results and justify donor trust. and field offices, such as the public burning of collected weapons as instruments for signalling a return to normalcy across the SUSTAINABILITY OF RESULTS country (including in more troubled areas) Programme sustainability remains the major and, despite several operational weaknesses, weakness of UNDP operations in the Republic of the continued presence of the United the Congo. Numerous projects achieved generally Nations alongside the population; and positive results and produced pre-defined n Effective advocacy campaign, which used the material outputs; however, many such projects media, civil society and key institutions, such as also failed to produce the intended outcomes or the Parliament, to promote a pro-poor agenda. to develop mechanisms that ensure long-term result viability. OPERATIONAL EFFECTIVENESS With reference to achieving result sustainability, The UNDP country office has implemented a sound there is a need for a distinction between upstream and balanced approach that combines upstream and downstream interventions.

EXECUTIVE SUMMARY ix In many cases, upstream support provided by To accomplish this, UNDP needs to be more UNDP had been successful in putting in place forceful in building on its comparative the strategy and policy frameworks or the plans advantages in the areas of community develop- of action required. Since the expected outcomes ment and governance. will materialize over time, upstream projects and programmes are sometimes referred to as A major effort will be required to develop—and at ‘dormant successes’. times, mend—relationships with certain members of the development aid community. Current In contrast, the sustainability of downstream coordination mechanisms should be examined projects often depends on the availability of with a view towards improving efficiency and dedicated national or local budgets, the capacity complementarity. This can take the form of a of managers and beneficiaries to develop participative exercise among partners. independent sources of income, and the capacity to manage projects with the goal of maintaining The accomplishments of the United Nations (UN) initial results. Most often, such resources and Country Team during the preparation of the next capacities are absent. Consequently, a number of United Nations Development Assistance Frame- projects, particularly those dealing with work (UNDAF) can prove particularly meaningful infrastructure rehabilitation, are destined for for UNDP efforts to improve its performance in developing results-based programmes for the next rapid deterioration due to lack of maintenance or cycle. For monitoring and evaluation in particular, the collapse of local management committees. the UNDAF should provide opportunities for a clearer identification of measurable outcomes UNDP needs to address sustainability through a and indicators, as well as for joint programme persistent and structured effort at developing and evaluations with UN partners. maintaining realistic and measurable means to foster national ownership. Concrete measures are needed to ensure that the country’s institutions RECOMMENDATIONS and community groups have both the willingness Twelve recommendations are derived from the and the capacity to take over long-term responsi- analysis contained in this report. These are: bility for programmes. In particular, new initia- tives are required to cultivate a higher level of GENERAL AND STRATEGIC ISSUES government commitment through increased government cost sharing. 1. The next Republic of the Congo country programme should build upon demonstrated POSITIONING AND COORDINATION UNDP comparative advantages. These include UNDP support for good governance, pro- UNDP has made judicious decisions in selecting poor and community development approaches, programme interventions. Now that it is time to a regional approach to environmental issues and move forward and adapt to the changing reality strong advocacy capability. UNDP should of the country, the continued relevance of post- gradually phase out post-conflict activities. conflict interventions should increasingly be 2. In order to ensure lasting stability and questioned. New interventions should focus on sustainable development, peace consolidation the major challenges faced by the Republic of the should become the central focus and Congo a decade after the end of active conflict. underlying theme for most UNDP activities, Peace consolidation, mainly through focused particularly those in good governance and governance and community development inter- poverty reduction. ventions, represents a key requirement in order for the country to move beyond the post-conflict 3. UNDP should continue to emphasize the period and the current stabilization phase. linkages between upstream and downstream

x EXECUTIVE SUMMARY approaches, intervening at both political and OPERATIONAL ISSUES operational levels in all programmes. 7. The UNDP country office in the Republic of 4. Based on experience in other countries, the Congo should vigorously pursue its efforts UNDP should engage the government in to improve programme delivery. In addition, negotiations aimed at increasing national measures of rewarding staff efficiency should cost-sharing contributions to at least equal be established, and the new Centre for the resources allocated by UNDP. Project Execution and Support1 should be independently evaluated in 2009, after two 5. Particular attention needs to be devoted to full years of operation. fostering national ownership and ensuring sustainability. This could include: 8. The formulation of outcomes, indicators and means of verification should be improved. In Greater attention during the project design n possible collaboration with donor-partners, phase to incorporating a sustainable exit the UNDP country office must ensure that strategy, based on identifying the sufficient financial and human resources are national mechanisms expected to take devoted to monitoring outcomes as well as over, defining conditions of an effective outputs. In defining outcomes for the next management transfer and establishing UNDAF, UNDP should build upon inter- benchmarks for monitoring relevant agency work and encourage the development preparations and the capacity of the of a system-wide approach to outcome chosen national entity; monitoring and evaluation. n Intensified efforts in national capacity- 9. The country office should engage partners in building through establishing a compre- discussions geared towards improving the hensive and structured programme in performance and efficiency of Project Review close coordination with the government Committees and Steering Committees. and other development actors; 10. UNDP offices outside Brazzaville need to n Continued gradual and prudent approach develop their services for the benefit of both to increasing the national execution UN agencies and non-governmental organi- component of programmes; and zations. This should include creating open and inclusive coordination hubs at the local n A clear demonstration of the political will of national authorities in addition level, promoting cross-fertilization, and under- to their commitment to assuming taking activities such as mapping development ownership of programmes, in particular and humanitarian actors, which was through increased cost-sharing as previously done through the UN Office for the Coordination of Humanitarian Affairs. outlined in recommendation four above. 11. More attention should be given to the 6. In close consultation with all partners, mainstreaming of gender and HIV/AIDS UNDP should start to reflect on ways to considerations into the country programme improve coordination among development during its initial design phase. actors. This is of particular importance for good governance initiatives, in view of 12. While direct environmental interventions the UNDP intent to further develop its should continue, particularly in subregional support to some financial oversight and contexts, the country office’s intent to treat such administrative institutions. concerns as cross-cutting should be encouraged.

1 Centre d’exécution et d’appui aux projets.

EXECUTIVE SUMMARY xi

Chapter 1 INTRODUCTION

With a 2005 GDP per capita of $1,262,2 the country-level development results in areas Republic of the Congo is classified as a lower covered by UNDP interventions, assessing middle-income country. However, rampant both their relevance and effectiveness. poverty is the reality behind this relative statisti- UNDP activities are also assessed in light of cal wealth. In an economy heavily dominated by partnerships with other development actors; the extraction and export of crude oil, most Contribute to accountability and to learning human development indicators remain low, n from experience; although some have improved since the country emerged from the three successive civil wars of n Provide an analysis of how UNDP the 1990s. positioned itself to add value in response to national needs and priorities, and how it In the phase following the return to peace, the adapted to changes in the national develop- United Nations Development Programme ment context; and (UNDP) concentrated on providing emergency Present key findings and lessons, and provide assistance to certain key sectors and was author- n a set of forward-looking recommendations ized to function on an ad hoc, project-by-project for future UNDP programmes. basis until 2003. In September 2003, the UNDP Executive Board approved a new four-year In broad terms, this ADR examines whether country programme (2004–2007). In contrast to UNDP did the right things in the Republic of the post-conflict recovery approach of the the Congo and how well it did them. This report previous phase, the new programme emphasized addresses: three central themes: good governance, poverty reduction, and environment and natural resource n Relevance of UNDP programmes and activi- management. The period covered by the country ties, and its capacity to respond to changes in programme has now been extended to the end of the national environment; 2008 in order to respond to the objective of UNDP effectiveness in achieving stated harmonizing programming cycles among United n objectives and intended results; Nations (UN) system agencies. n Sustainability of the development results to 1.1 PURPOSE AND SCOPE which UNDP contributed; and UNDP strategic positioning and compara- The Assessment of Development Results (ADR) n tive advantages. is an independent evaluation tool used by the UNDP Evaluation Office to assess the UNDP This evaluation limits itself to the period of contribution to national development results. 2004–2007. It also examines projects started The overall goals of an ADR are to: prior to 2004, when these are relevant to n Provide an independent assessment of understanding ongoing activities.

2 UNDP, Human Development Report 2007–2008, New York, 2007.

CHAPTER 1. INTRODUCTION 1 In addition, the evaluation team did not limit team leader and the national consultant. The itself to examining the project portfolio and mission was used to refine the scope of the evalua- outcomes linked to project activities. It also tion, to discuss the structure and rationale of the looked at non-programmatic interventions, such country programme with UNDP officers, and to as advocacy, coordination, support for policy identify additional documentation to guide the development, communications and public team. The mission enabled the team to select key information, as well as civil-society relations. projects and activities to be reviewed in more depth based on the relative size of their budgets The detailed Terms of Reference for this evaluation, and relevance to the programme themes. The prepared by the Evaluation Office, are attached mission was also used to map UNDP partners for as Annex I. more detailed interviews. All team members followed this preparatory mission with a second round of desk review of documentation.6 On the 1.2 METHODOLOGY basis of the desk review, notes and questions were UNDP retained the services of Abacus International shared with the relevant units of the country Management L.L.C. to carry out this evaluation office in preparation for detailed working exercise, with support from the UNDP Evaluation sessions during the main mission. Office and the country office in the Republic of the Congo. The independent evaluation team The main two-week mission took place from consisted of three members: two international 27 February to 12 March 2008. The evaluation consultants and one national consultant.3 team had extensive discussions with UNDP senior management, programme units responsible for The methodology used was based on ADR thematic areas and project staff. The team also guidelines4 and the broader UNDP evaluation met a number of UNDP partners in the govern- policy.5 The preparatory phase involved an ment, the UN system, multilateral and bilateral intensive initial review of documentation, as agencies, non-governmental organizations (NGOs) well as consultations with the UNDP Evaluation and civil society. The team made a point of Office, the Regional Bureau for Africa and key extending its civil-society contacts beyond the ambit UNDP departments. In New York, the two of organizations already associated with UNDP international consultants met with representatives and sought the views of members of associations, of UN system bodies, including the Office for the NGOs, academic institutions and women’s groups, Coordination of Humanitarian Assistance (OCHA), as well as of political leaders from the majority the Department of Political Affairs (DPA) and the and the opposition. Individual interviews were United Nations Development Group (UNDG). semi-structured, with each potential respondent The consultants also briefed the Permanent having received an information note containing a Mission of the Republic of the Congo to the general list of questions a week before the arrival United Nations in New York on the ADR exercise. of the international consultants.7

The preparatory phase also included a one-week In total, over 80 persons were interviewed during scoping mission to Brazzaville, undertaken by the the course of this evaluation, mainly in individual

3 Carrol Faubert was the Senior Consultant and Team Leader. International team members included Abdenour Benbouali, Senior Consultant, and Hyacinthe Defoundoux-Fila, National Consultant. 4 UNDP, ‘Guidelines for an Assessment of Development Results’, Evaluation Office, New York, December 2007. 5 UNDP, ‘The Evaluation Policy of UNDP’ (DP/2005/28), Evaluation Office, New York, May 2006. 6 A list of major documents consulted appears as Annex II. 7 See Annex III for a list of persons met and Annex IV for the information note.

2 CHAPTER 1. INTRODUCTION meetings. Group meetings were organized for 12 project sites, which represented of the major NGOs, in view of the large number of partici- themes of the country programme. On each pants. Non-UNDP persons interviewed belonged occasion, a specific effort was made to enter into to one of the four categories identified in Table 1. direct discussions with project beneficiaries, including primary school teachers, members of Field visits to project sites in Brazzaville, Pointe- local community management committees, Noire and Kinkala8 (Pool Department) supple- vocational trainers and their students, and former mented the desk review, interviews, and individ- combatants engaged in a small-scale vegetable ual and group meetings. Field visits were selected gardening project. by taking into account the logistical difficulties in the Republic of the Congo, as well as the This ADR was carried out under stringent time opportunity to expose evaluation team members constraints, with a view to presenting a report to a variety of projects in key thematic areas in and recommendations in time to feed into the the same location. This allowed the evaluation planning of the 2009–2013 country programme. team to visit two of four UNDP offices and The duration of the entire process was reduced to

Table 1: Categories of non-UNDP persons interviewed for this ADR

Respondents Main evaluative questions

Government Have UNDP interventions appropriately reflected national priorities? Has UNDP demonstrated a capacity to adapt to changes in the national environment? How do you see the role of UNDP as a contributor to national development? What were the most significant and successful UNDP interventions and why? Are there areas where UNDP should intervene further or improve its performance? What arrangements have been made to ensure the sustainability of results achieved with UNDP support? What are the existing coordination mechanisms, and how effective has UNDP been in coordinating with others?

Civil society What are your views on progress towards human security and development? Has leaders, UNDP effectively contributed to improving the situation in the Republic of the politicians, Congo? What was the most significant UNDP contribution? What could have been national NGOs done better or differently to improve effectiveness and better respond to needs more adequately? Do you participate in consultations organized with the support of UNDP for the development of major national strategy documents or for sectoral programmes? What has been the effectiveness of such consultations? Have you benefited from UNDP-supported training or capacity building? What is the image of UNDP with the general public?

Multilateral and What are your views on progress towards human development in the Republic bilateral develop- of the Congo? What are your views of the UNDP role and performance, including ment partners, effectiveness, efficiency, relevance and strategic role? What are the major compara- including UN tive advantages of UNDP in this country? What has been the major ‘value added’ agencies and of UNDP? How could UNDP have been more effective? What coordination international mechanisms are in place, and what role does UNDP play in coordination? financial institutions

Programme Has your situation improved as a result of the UNDP intervention? Did UNDP beneficiaries support correspond to your needs? Was the support timely and well targeted? What did UNDP do well? What did it do wrong? How do you see the future? Will you be able to continue your activities once direct UNDP support ceases?

8 Kinkala was visited on 2 February 2008, during the scoping mission.

CHAPTER 1. INTRODUCTION 3 less than three months, approximately half of the Finally, in a multiple-actor environment where average time normally allotted to an ADR factors affecting outcomes go far beyond those exercise. This limitation precluded commissioning under UNDP control, evaluating the direct additional surveys and research that could have correlation between UNDP activities and helped fill information gaps. development results is nearly impossible. The team endeavoured to establish credible linkages As the ADR concentrates mainly on intended between UNDP activities, programme outputs and unintended outcomes and results, the and national development results. This analysis, existence of baseline data is crucial to assessing supported by documentary evidence whenever the situation at the end of the programme. The possible, was based on prevailing perceptions of team found that such data was unavailable for the main UNDP contributions among key most projects. Although outcome indicators stakeholders in the Republic of the Congo. were generally identified in the initial project descriptions, the team noted confusion between 1.3 ORGANIZATION OF THE REPORT outcome indicators and project outputs, as well as the absence of mechanisms to ensure the systematic This report is organized into four chapters. collection of data related to indicators during the Following the Executive Summary and this course of a given project. introduction, Chapter 2 examines the national development context and the UNDP role in Where baseline data was not available, the team the aid community. Chapter 3 assesses the sought to establish trends at the broader national UNDP contribution to development results in level over recent years. Where specific data had the Republic of the Congo through both not been collected to enable the assessment of programme activities and other interventions. trends and results, background questions aimed Chapter 4 draws evaluation conclusions and at determining actual results were posed to makes recommendations. parties on different sides of the development partnership. The analysis thus made use of the While analysis of the various programme triangulation method, which is based on: interventions is based on an overview of the full stakeholders’ perceptions; programme documen- portfolio of projects under each major programme tation, evaluation reports and other relevant theme, details of representative projects are written material; and existing surveys and data. presented in boxes accompanying the text.

4 CHAPTER 1. INTRODUCTION Chapter 2 NATIONAL DEVELOPMENT CONTEXT

This chapter provides an overview of the 2 percent and the population density at 10 persons Republic of the Congo’s recent history, its per square kilometre.9 geographical and demographic situation, and its socio-economic environment. The evolution of human development and human security since 2.2 POLITICAL CONTEXT 2000 is briefly analysed. In addition, this chapter Recent history of the Republic of the Congo looks at major UNDP partnerships and its role in is characterized by a move from a Marxist one- their coordination. party state system to liberal multiparty politics. Unfortunately, that transition resulted in three 2.1 GEOGRAPHIC AND successive civil wars between 1993 and the end DEMOGRAPHIC BACKGROUND of 1999.

With a land area of 342,000 square kilometres, 2.2.1 SOCIALIST PERIOD the Republic of the Congo borders the Central Following the overthrow of the first president African Republic and Cameroon to the north, elected after independence, the period from 1963 the Angolan enclave of Cabinda to the south, the to 1990 was characterized by a one-party state Democratic Republic of the Congo to the east system. It had two phases. During the first phase, and the Republic of Gabon to the west. The coastline on the Atlantic Ocean accounts for 170 1963–1965, the dominating ideology was more kilometres. The climate is equatorial, and the socialist than Marxist. Marxism dominated the vegetation is mainly savannah and forests, the second phase, 1968–1990. During the second latter covering about 60 percent of the country. phase, development strategy focused on the state Only 2 percent of the total arable land is under as the major economic actor with a central cultivation. The country is rich in mineral planning system. resources. Its hydrographic network includes two major basins, the Congo and the Kouilou-Niari. In 1991, in line with reforms initiated in the Soviet Union and following the fall of the Berlin In 2006, the population of the Republic of the Wall, the government of President Sassou- Congo was estimated to be 3.7 million inhabitants. Nguesso organized a national conference where People under 20 years old represented 55 percent political reforms were adopted. A democratic of the population, and women represented 52 constitution was voted in on 15 March 1992. percent. The urban population was estimated at Pascal Lissouba won the first democratic 60 percent, which is very high compared to election, though former allies who joined the the sub-Saharan Africa average of 35 percent. opposition to constitute a new parliamentary The demographic growth rate stood at just over majority soon contested the results.

9 Figures and statistics in this paragraph are drawn mainly from The World Bank Web site, Republic of the Congo – Data Profile, the Human Development Report 2007–2008 (UNDP 2007) and the 2005 Household Survey in the Republic of the Congo.

CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT 5 2.2.2 CIVIL WARS A new constitution was adopted in January 2002. This marked the beginning of what the Presidential elections were held in March, Congolese have called the ‘democratic crisis’. The followed by legislative elections in May and June Congo has endured three successive rounds of of the same year. These improved the environ- civil wars (1993, 1997 and 1998–1999). ment for reconciliation and dialogue, despite Brazzaville and the southern departments of criticism of the fairness of the electoral process. Pool, Bouenza, Niari and Lékoumou bore the In 2005, exiled leaders began returning to the brunt of fighting, violence and destruction. As in country and reorganizing their political parties. most internal conflicts, the civilian population was targeted, most often on a purely ethnic basis. 2.2.4 TRANSITION AND STABILIZATION: In addition to numerous deaths, the wars also 2003–2007 resulted in close to 800,000 persons being The first cycle of elections under the new internally displaced or becoming refugees outside Constitution marked the beginning of a period of their country. The conflict cycle left a legacy of transition and stabilisation. In March 2003, increased poverty, social and ethnic tensions, another agreement was signed with the CNR of and economic decline. The chaos also gave rise to Reverend Ntoumi to define the conditions for impunity, aggravating bad governance, corruption the disarmament, demobilization and reintegration and fraud. of about 5,000 militia fighters. Although this agreement was not implemented, President President Sassou-Nguesso returned to power in Sassou-Nguesso appointed Reverend Ntoumi to 1997. After several rounds of negotiations, the position of Minister in Charge of the a cease-fire agreement was signed at the end Promotion of Peace Values and Rehabilitation in 11 of 1999. It called for the re-establishment of the Aftermath of War after further discussions political parties and the demobilization of ex- in 2007. By March 2008, Reverend Ntoumi had militia fighters. Although the Council for not yet taken up his new functions, and his return National Resistance (CNR)10 of Reverend to Brazzaville was still under discussion. Ntoumi also signed the cease-fire agreement, his ‘Ninja’ militia retained control of large parts of The legislative elections of 2007 marked the the Pool Department and fighting continued, beginning of the second electoral cycle. Parties producing additional population displacement. supporting the presidential majority won over 90 percent of National Assembly seats, leaving the opposition holding only 11 seats. Several parties 2.2.3 IMMEDIATE POST-CONFLICT PERIOD: of the majority and some independents later 2000–2002 joined the President’s party to constitute a With the end of the conflict, the government and new Union for the Presidential Majority,12 in the international community worked towards preparation for a second presidential election restoring national institutions, re-establishing the scheduled for 2009. rule of law, and reconstructing economic and administrative structures through an Interim After years of conflict, distrust and suspicion, the Post-Conflict Programme (IPCP). In parallel, country has made significant progress on the the government pursued a policy of reconciliation path to reconciliation. The situation, however, based on three pillars: negotiations with the remains fragile. Factors contributing to this rebellion, political inclusion and decentralization. fragility include increasing impoverishment, high

10 Conseil National de la Résistance. 11 Ministre Délégué Chargé de la promotion des valeurs de paix et de la réparation des séquelles de guerre. 12 Rassemblement pour la Majorité Présidentielle.

6 CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT unemployment, disparities between the poor and some $330 million over a six-year period the affluent, and continuing political tensions. (2003–2009).

After a decrease in both 2002 and 2003, non-oil 2.3 ECONOMIC CONTEXT income started rising again, reflecting increased The Congo experienced a GDP real growth economic activity. However, the increase is average of 5.8 percent during 2004–2006, slightly insufficient. If calculated using only non-oil higher than the sub-Saharan Africa average. In income, the primary balance would equal a an economy dominated by the oil industry,13 the negative $702 million in 2007. country benefited from the global soaring of oil prices. The resulting increase in public income This situation is illustrative of one of the many enabled the country to show primary-balance contradictions that characterize the Republic of surpluses14 every year, culminating in a projected the Congo. Two parallel economies exist. The surplus of some $1.5 billion in 2007. The govern- first comprises mainly the oil and wood ment has set aside the surpluses resulting from industries. It is modern, dynamic, competitive higher fiscal income from oil in a stabilization and export-oriented. The second economy is more fund held at the Bank of Central African States. traditional and is largely based on subsistence Observers estimate the value of that account at agriculture, small and often informal businesses some $3.56 billion. and a plethoric civil service. There is little interconnection between the two economies, and According to widespread consensus, several the wealth of the first has little effect on the factors drive economic growth in the Republic of economic and human security of the majority of the Congo. These include: the population. n Oil production. Coupled with increasing inter- The Republic of the Congo is also highly national prices, there has been a continuing indebted.15 In March 2006, it qualified for debt increase of activities in this sector since 2000; relief under the Heavily Indebted Poor Countries facility of the International Monetary Fund n Wood industry is the second main source of income and exports; (IMF). The government has yet to complete the reforms it committed to as pre-conditions for n Sugar production, although currently limited, debt relief in its discussions with IMF. The has high economic potential and could generate agreement included three pillars to allow the important employment opportunities; country to move towards sustainable growth: n Telecommunications is growing. Two mobile 1. A sustainable medium-term fiscal strategy telephone networks have expanded their that takes into account the country’s limited coverage throughout most of the country, oil resources; investing some $10 million in 2004–2005; and 2. An improvement in the quality of public n Public investments have been made in large spending, including an increase in pro-poor infrastructure projects, such as the Imboulou spending, and of the transparency and dam project representing an investment of accountability in the budgetary process; and

13 2006 figures from ADB/ADF show that the oil sector accounted for 64 percent of GDP, 85 percent of exports and 71 percent of fiscal revenues. See ‘Country Strategy Document based on Results’, DSPAR 2008-2012 (ADB/ADF, December 2007). 14 The primary balance is defined as “revenue (excluding grants) minus non-interest current expenditure minus domestically financed capital expenditure and net lending”. See ‘Country Report no. 06/262’ (IMF, July 2006). 15 According to The World Bank’s Country Brief (see www.worldbank.org/cg), the external debt corresponds to 806 percent of budgetary income, 338 percent of exports and 235 percent of the GDP.

CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT 7 Table 2. Evolution of select indicators for the period 1998 and 2002–2005

Indicator / year 1998 2002 2003 2004 2005 Average sub-Saharan Africa (2005)

Human Development Index 0.507 0.494 0.512 0.520 0.548 0.493

Life expectancy at birth 48.9 48.3 52 52.3 54.0 49.6

Adult literacy rate (%) 78.4 82.8 82.8 83 84.7 60.3

Children underweight for age (%) 17 25 14 14 15 n/a

Population with access to safe water (%) 34 49 46 58 58 55

Gender-related Development Index 0.499 0.488 0.507 0.519 0.540 n/a

Women in Parliament (% of seats)16 n/a 12 12 12 12 n/a

GDP per capita (purchasing power parity US$) 995 980 965 978 1.262 1.998

Source : UNDP Human Development Reports 2000 and 2004–2007

3. Measures to reduce the cost of doing business, and services destroyed by war have not been including governance measures aimed at fully re-established. tackling corruption.17 Nevertheless, there has been marked progress, There is no doubt that the reforms envisaged evident to the extent of reliability of official data. would go a long way in solving the country’s Table 2 illustrates this by showing the evolution problems and allowing citizens to benefit from of select human development indicators from growth much more than they have so far. 1998 through the end of the civil war cycle and the years 2002 to 2005.

2.4 HUMAN DEVELOPMENT CONTEXT Currently, the situation in the health sector is characterized by the deterioration of services, the As discussed in section 2.3, there is a contradiction increase of communicable diseases, and the between the wealth derived from oil extraction excessive concentration of health personnel and and the relatively poor performance of the country services in urban areas. in terms of human development. According to the UNDP Human Development Report 2007– The education sector has been severely affected 2008, the Republic of the Congo ranks 139th by the civil wars and resulting population out of 177 countries. More than 50 percent of displacement. Gross primary school enrolment the population lives below the poverty line.18 dropped almost by half, to 57 percent in 1999, Social security for the most vulnerable persons before beginning to rise again in 2002. It reached remains weak, and basic social infrastructure 92 percent in 2004 and an almost pre-war level of

16 The parliamentary elections held in 2007 actually resulted in fewer women holding seats. 17 IMF, ‘Country Report no. 07/206’, June 2007. 18 A figure of 50.1 percent is given in the 2005 nationwide household survey. See National Centre for Statistics and Economic Surveys, ‘Enquête Congolaise auprès des Ménages pour l’Evaluation de la Pauvreté (ECOM 2005)’, Brazzaville, April 2006.

8 CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT 111 percent in 2005.19 As in the health sector, repair, and full rehabilitation will depend on there is undue concentration of personnel and complete reconciliation and a more efficient use services in urban areas. The six grades of a of national resources. rural primary school are often covered by only two teachers. At the end of the civil wars, there were between 15,000 and 25,000 militia fighters in the Gender equality is enshrined in the 2002 Republic of the Congo, and there were an Constitution, and existing legislation for employ- estimated 41,000 serviceable small arms and light ment, education or politics does not contradict weapons.20 The social fabric of the country was that principle. However, powerful social and also affected, as the militias were largely created traditional forces contribute to negating gender along ethnic lines. equality. Women represent less then 14 percent of the Council of Ministers. They also hold 15 In a post-war 12-point platform called ‘New 21 percent of Senate seats, 9 percent of the National Hope’, President Sassou-Nguesso stated his Assembly and less than 9 percent of local determination to build a lasting peace, to councils. The situation is better in the National organize political life in a stable institutional Economic Council, were women represent environment, to promote a dynamic and prosper- 33 percent. Women also have 30 percent of the seats ous economy and to ensure that each Congolese on the National Commission on Human Rights. benefits from security, welfare and social justice.

Two major factors hamper the efforts of the Significant progress has been achieved in the Congo to ensure that its relative wealth translates process of reconciliation and reconstruction. into significant improvements of human Following the adoption of a new constitution in development indicators: the continued effects of 2002, presidential elections were held, followed by parliamentary elections. A law on political the social tensions, disruptions and destruction parties has been adopted, and a second round of caused by the civil wars, and generally weak parliamentary elections was organized in 2007. governance. These points represent important These elections should be followed by local elections challenges for the future of the country. in 2008 and a second presidential election in 2009. Despite claims of irregularities, elections 2.4.1 MOVING BEYOND THE have taken place without violence. Opposition POST-CONFLICT PERIOD parties—although with only 11 members—are The wars of 1993, 1997 and 1998–1999 resulted represented in the Parliament. Journalists are not only in immense human suffering, but also in allowed some leeway for criticism, and the activi- the destruction of the economic and social ties of human rights NGOs are tolerated. infrastructure in the Congolese departments affected by violence. In the most affected areas, Despite such progress, political reconciliation is not the wars led to the destruction of 50 percent of yet complete, as areas of the Pool Department the food production capacity and 90 percent of remain under NRC control. the livestock. Schooling was interrupted in four regions and in Brazzaville, and 50 percent of The vast majority of the persons displaced by war national medical facilities were destroyed or have now returned or settled in a new—generally looted. The damage inflicted will take years to urban—environment. Most of the militias have

19 The value of gross enrolment ratios can vary from less than 10 percent to more than 100 percent, reaching 130 percent in some countries when there are sizeable under-aged and/or over-aged enrolment. 20 Small Arms Survey, ‘Small Arms Availability, Trade and Impacts in the Republic of Congo’, Special Report, April 2002. 21 ‘Nouvelle Espérance’, issued for the presidential election of 2002 by President Sassou-Nguesso.

CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT 9 disbanded, although large quantities of weapons not used or were simply siphoned away for are still held by the remaining active militia or other purposes. The only budgets that show by civilians.22 important overspending have been the political and security allocations. After a transition period, beginning immediately following the end of hostilities and ending in In an assessment at the end of 2007, the African 2002, the country entered a phase of stabilization, Development Bank/African Development Fund reconciliation, and re-establishment of institutions (ADB/ADF)24 noted some progress towards and rule of law. For many observers of the Congolese good governance, particularly concerning environment, the second cycle of elections now transparency in the oil sector. Such observations under way should mark the end of the post- included the creation of a national commission to conflict phase, provided that such elections are fair, fight corruption and fraud, as well as a separate transparent and violence-free. Most emergency- observatory on corruption, the latter with the oriented international NGOs have now left the participation of members of the civil society. The country, as the UN OCHA did in May 2007. report also noted that although the principle of The International Committee of the Red Cross decentralization had been accepted, the transfer has already closed two offices in the Pool of resources to local administrations had not Department and will have withdrawn from the taken place, except for an ad hoc flat transfer last one by the end of March 2008. It will continue of some $2.3 million to each department. to operate from Brazzaville and is confident that Remaining high priorities include further the Congolese Red Cross can effectively take improvements in governance, capacity building over most of its Kinkala-based activities. within the civil service, and fostering a stronger political will to reform. 2.4.2 IMPROVING GOVERNANCE Through the Interim Poverty Reduction Strategy 2.5 ACHIEVING PROGRESS ON THE Paper (I-PRSP) of 2004, the government MILLENNIUM DEVELOPMENT GOALS acknowledged a number of problems and issues related to governance. These included: The scarcity of data renders monitoring indicators for the Millennium Development Goals (MDGs) n The crisis of administration, state authority and control; difficult. The tracking of indicators made by The World Bank25 indicates that by 2005, most of the n Erroneous and inadequate allocation of available indicators related to social and community human, material and financial resources; services had barely reached their pre-war levels of n Worsening corruption and fraud; 1990, a sad illustration of the consequences of repeated conflicts of the nineties. n Lack of coordination among the various administrations involved in economic Published in 2004, the latest National MDG management; and Report estimated that the achievement of MDG 23 n Inappropriate contract awarding procedures. targets was unlikely for the elimination of gender disparity in secondary education, reversal of the This meant that the pro-poor expenditures incidence of malaria and other diseases, and planned in successive national budgets were often significant improvement of the lives of slum

22 Survey undertaken in 2007 by the NGO Small Arms Survey. 23 Republic of the Congo. ‘Interim Poverty Reduction Strategy Paper (I-PRSP) for the Congo’, 27 September 2004. 24 ADB/ADF. ‘Country Strategy Document Based on Results’ (DSPAR 2008-2012), December 2007. 25 As posted on The World Bank Web site; see http://go.worldbank.org/JE0BPHWUT0.

10 CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT dwellers. Only two targets were considered likely the attainment of the MDGs.26 The authors of to be achieved: achieving universal primary the latest draft have identified the necessary education and dealing comprehensively with the conditions of success, including the promotion of debt problem. Table 3 represents a governmental good governance, a diversification of the national assessment of the likelihood of reaching, by economy, a dynamic policy of employment and 2015, the goals presented in the 2004 National training, the allocation of resources to pro-poor MDG Report. activities and their actual disbursement, an equitable repartition of national wealth and, lastly, a strong Progress towards attaining the MDGs remains at political will to respect commitments. the heart of the government’s strategy for reducing poverty. With support from UNDP, the Two important features of this draft MDG government is finalizing a national strategy for strategy are that its activities are budgeted and

Table 3. Likelihood of achieving MDG targets (2004 estimates)

Goals / Targets Likelihood of achieving

Goal 1: Eradicate extreme poverty and hunger Target 1: Halve, between 1990 and 2015, the proportion of people whose income is Potentially less than $1 a day Target 2: Halve, between 1990 and 2015, the proportion of people who suffer from hunger Potentially

Goal 2: Achieve universal primary education Target 3: Ensure that, by 2015, children everywhere, boys and girls alike, will be able Likely to complete a full course of primary schooling

Goal 3: Promote gender equality and empower women Target 4: Eliminate gender disparity in primary and secondary education, preferably Unlikely by 2005, and in all levels of education no later than 2015

Goal 4: Reduce child mortality Target 5: Reduce by two-thirds, between 1990 and 2015, the under-five mortality rate Potentially

Goal 5: Improve maternal health Target 6: Reduce by three-quarters, between 1990 and 2015, the maternal mortality ratio Potentially

Goal 6: Combat HIV/AIDS, malaria and other diseases Target 7: Have halted by 2015 and begun to reverse the spread of HIV/AIDS Potentially Target 8: Have halted by 2015 and begun to reverse the incidence of malaria and Unlikely other major diseases

Goal 7: Ensure environmental sustainability Target 9: Integrate the principles of sustainable development into country policies Potentially and programs and reverse the loss of environmental resources Target 10: Halve, by 2015, the proportion of people without sustainable access to Potentially safe drinking water and basic sanitation Target 11: Have achieved by 2020 a significant improvement in the lives of slum dwellers Unlikely

Goal 8: Develop a global partnership for development Target 15: Deal comprehensively with the debt problems of developing countries Likely through national and international measures in order to make debt sustainable in the long term

Source: Government of the Republic of the Congo, National MDG Report, 2004.

26 Republic of the Congo. ‘National Plan for attaining MDGs in the Congo’ (sixth draft), December 2007.

CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT 11 that it includes a realistic mechanism for the hensive coordination mechanism, which is monitoring and evaluation of the national plan. typically composed of thematic groups and an The monitoring plan is based on recent surveys overseeing body. The likely explanation is that constituting a baseline, although incomplete, and on the number of resident bilateral and multilateral a programme to strengthen the national statistical agencies is limited, with many countries covering and monitoring and evaluation capacity. the Congo from another base in the region, and several UN organizations not being represented on a permanent basis. Coordination therefore remains 2.6 UNDP IN THE largely ad hoc and linked to punctual requirements. DEVELOPMENT COMMUNITY The Ministry of Planning,27 the principal Temporary coordination or consultation mechanisms national partner of UNDP in the Republic of the have been put in place for exercises such as Congo, plays a central role in discussions with the preparation of the I-PRSP, the Poverty different members of the international aid Reduction Strategy Paper (PRSP), the National community. The Ministry of Planning approves Human Development Report and the National Plan for the MDGs, as well as for preparations the major agreements and strategy documents for particular events or meetings. Recently, the governing the activities of UNDP. UNDP European Union and the French Embassy have cooperates closely with the ministry and provides been jointly convening coordination meetings in financial and technical support in order to preparation for a forthcoming meeting in Accra strengthen ministerial capacity and assist in the under the framework of the Paris Declaration on elaboration of national strategy documents. UNDP Aid Effectiveness. In the absence of other initia- also works closely with several line ministries, tives to structure coordination among donors, particularly the Ministry of Health and Social that particular group is considering pursuing the Services. Close links have been developed with effort beyond the immediate objective of the the National Assembly and the Senate and with Accra meeting. a number of other national institutions. Relations between UNDP and international The major international development actors present donors are often characterized as a collaboration in the Republic of the Congo are the Bretton of equal partners in the global development effort Woods Institutions, France and the European and the unequal partnership between a donor and Union. China has also become an increasingly UNDP as fundraiser. Occasionally, temporary prominent partner of the country. Major donors tensions resulted from such situations. For to UNDP programmes in 2006 and 2007 include example, long and difficult talks with The World 28 The World Bank ($4.2 million), Japan Bank took place to re-negotiate an overhead ($2.2 million), the European Union ($2 million), percentage under a school rehabilitation project. Sweden ($1 million) and ADB ($0.1 million). Similarly, the European Union was critical of The Government of the Republic of the Congo implementation delays and financial reporting has contributed $0.4 million from national for two projects it financed. resources under a cost-sharing formula during the same two-year period. Coordination within the UN system is naturally greater than with other partners.The UN Country Unlike many other countries, the Republic of the Team (UNCT) meets regularly and cooperates in Congo does not have an elaborate and compre- the formulation of common assessments and

27 Ministère du Plan et de l’Aménagement du Territoire. 28 Funds contributed to the Government of the Republic of the Congo but managed by UNDP under agreement with The World Bank.

12 CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT strategy documents. Two types of regular meetings (CCA) prepared by UNCT dates back to 2005. exist. The first concerns general substantive For the ongoing UNDAF process, it was decided coordination among UNCT members and addresses to forego the preparation of another CCA, as the common concerns, such as administrative and recent PRSP, supplemented by complementary management issues, programme strategies and analysis, was judged to have provided a sound policies or common communication strategies. basis for developing the UN framework. The meetings are convened on what appears to be an ad hoc basis, and some participants have A review of activities in the immediate post- expressed the wish to have them at fixed conflict period resulted in the recommendation intervals. These substantive meetings are supple- for UNDP to strengthen relations with civil mented by thematic groups and as well as society, NGOs and the private sector. The ‘Communities of Practices’ that deal with country office has established some successful programme sectors and themes. In addition to private-sector partnerships through a project to UNCT members, national counterparts and support the development of strategies for donors often participate. The second type of addressing HIV/AIDS in some 30 large UNCT meetings deal with security issues and are manufacturing and business firms. UNDP also used to advise the UN Resident Coordinator in signed a framework agreement for a partnership his capacity as designated official responsible for with Total, the largest oil company operating in UN security. the Republic of the Congo. The agreement opens the way for partnerships in a number of areas, The UNCT in the Republic of the Congo including HIV/AIDS, the environment, poverty consists of eleven members, including the nine reduction, micro-finance programmes as well as UN agencies and programmes with local offices, new information and communication technology the IMF and The World Bank. All UNCT (NICT). Representatives of the manufacturing meetings are chaired by the UNDP Resident and business communities are regularly invited to Representative, acting in his capacity as UN participate in consultations organized by UNDP. Resident Coordinator. In his absence, a represen- tative of one of the participating agencies acts as Relations with NGOs and members of the civil chair. The Deputy Resident Representative sits society, on the other hand, were less intense than for UNDP in these meetings. As UNDP during the preceding period. During the immediate operations in the Republic of the Congo are too post-conflict period, UNDP developed small to justify the creation of the post of Country operational relationships with several NGOs and Director, as is now done in some other situations, local associations for the implementation of the roles and responsibilities of UN Resident emergency recovery projects. In the new Coordinator and UNDP Resident Representative programming cycle, more emphasis was gradually are often confused. The UN coordination effort now put on execution through national institutions, benefits from the presence of full-time, dedicated and direct operational relationship with NGOs staff to assist the UN Resident Coordinator. became an exception to the rule. Nevertheless, UNDP continued to consult with civil society, UNCT is now engaged in the preparation of a including some national NGOs, as part of its United Nations Development Assistance support for the elaboration of major reports and Framework (UNDAF) for the period of strategy documents. 2009–2013. Following two UN plans for the period of 2000–2002 and annual Consolidated Until May 2007, when OCHA withdrew its Humanitarian Appeals through 2006, this will be presence, there existed a humanitarian coordina- the first comprehensive UNDAF process tion hub. The hub, located in the premises of developed for the Republic of the Congo since UNDP, enabled members of the UN system, 2000. The last Common Country Assessment donors, NGOs and relevant national institutions

CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT 13 to share information on their respective activities. coordination meetings (albeit with a different This avoided unnecessary duplication of effort development emphasis). and allowed newcomers to build upon the experience and knowledge of other organizations. These Among the general public, the UNDP image is coordination meetings were highly appreciated, relatively positive, benefiting from high-visibility and a number of participants felt they should reconciliation and peace-building operations, have been continued after the departure of such as the collection and public burning of OCHA. UNDP lost an opportunity to capitalize weapons. UNDP activities are well covered in the on that success in 2007 by failing to take over the national media.

14 CHAPTER 2. NATIONAL DEVELOPMENT CONTEXT Chapter 3 UNDP CONTRIBUTION TO DEVELOPMENT RESULTS

This chapter briefly reviews the relevance of The approved country programme was used as a UNDP activities with regard to major national framework to guide country-office activities. and international objectives, as well as the The programme was modified as necessary to organization’s capacity to adapt to changes in avoid duplication with non-UNDP initiatives context and the environment. It provides an and respond to funding opportunities or govern- overall analysis of operational efficiency, followed ment requests. by a more in-depth review of the four larger thematic areas in which UNDP is active. It is worth noting that crisis prevention and recovery activities were not presented under a 3.1 OVERALL ANALYSIS OF UNDP separate theme, but were instead—and surpris- 2004–2007 COUNTRY PROGRAMME ingly—included under the theme of poverty reduction. The evaluation team was told that the The UNDP country programme is structured government wished to clearly mark a passage around three major themes: good governance, from a post-conflict situation to a development poverty reduction, and environmental and natural- phase and preferred not to emphasize post- resource management. There are three additional conflict activities. Nevertheless, such activities cross-cutting themes, which include gender, continued to represent an important part of HIV/AIDS and NICT. The intent was to build UNDP work and a large share of its resources. strong synergies between UNDP programme For its own analysis, the evaluation team opted to components and components of programmes by present post-conflict activities separately. other members of the aid community. The initial budget estimates for the four-year In broad terms, the expected results were to: programme stood at $11,035,000. Of this, n Increase the capacity of the principal $2,535,000 (23 percent) was expected to come governance institutions, mainly through from UNDP regular resources. Actual expendi- support that addresses the needs of parlia- tures were more than double that amount, mentary institutions, local authorities and reaching $22,706,934, of which 20 percent was civil society; allocated from regular target for resource assign- ment from the core (TRAC) 1 resources. n Improve responsible reporting in public administration; 3.1.1 PROGRAMME RELEVANCE n Strengthen capacity for reducing poverty and UNDP interventions are decided upon in consul- achieving the MDGs on the part of the tation with the government and correspond to government and civil society; and national priorities as contained in major national n Strengthen the capacity of national and strategy and policy documents. Such documents sectoral authorities to plan and implement include the 2002 presidential platform of ‘New integrated approaches to environmental Hope’, the I-PRSP and, in some cases, national management and energy development that sectoral plans, such as the one for the environment. meet the needs of the poor. The programme also respects the priorities

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 15 defined by the New Partnership for Africa’s forced the country office to proceed with projects Development, as well as the global and regional rather than fully integrated programmes. The objectives of UNDP. necessity to divide the programme into projects corresponding to donor funding The consensus among respondents from the mechanisms has meant that the programmes government, the aid community and civil society became de facto umbrella programmes, each is that UNDP activities correspond to genuine covering a portfolio of projects. needs in the country. However, not all areas of The country office considered that the activity are recognized as being areas of Country Programme Document constituted excellence, where the comparative advantages of a framework that had to be responsive to UNDP are evident. In general, recognized areas changed circumstances and priorities during of expertise include UNDP interventions in the implementation. Thus, UNDP had to forego fields of governance, support to community some of the planned activities when funding groups, support to the preparation of national them proved difficult or when others had strategy documents and reports, and advocacy for previously engaged in the same field. This the environment, HIV/AIDS and gender issues. was the case for planned activities related to marine and coastal environments and for Some activities are seen as less successful and not follow-up on the UNDP-supported survey entirely relevant to the UNDP mandate and on corruption and fraud. On the other hand, expertise. In particular, this relates to highly certain activities were incorporated into the operational downstream projects for the rehabili- programme without being planned from the tation of infrastructure damaged by wars. For outset. These included, for example, the example, between 2002 and 2004 the rehabilitation rehabilitation of primary schools, undertaken of rural tracks was undertaken with deficient in consideration of the UNDP comparative technical backstopping by the United Nations advantages in community action and at the Office for Project Services. request of both the government and The World Bank. As noted in section 3.1, a structural anomaly in the country programme resulted from the UNDP successfully developed synergies decision to present conflict prevention and between different projects and activities. This recovery activities under the theme of poverty was particularly visible in the Pool reduction. The programme would have benefited Department, where a project for youth at risk from a clearer presentation that emphasized was used to support disarmament of former conflict prevention and recovery as an independent combatants and primary-school rehabilitation programme component. activities. Another example of synergies, this time at the upstream level, concerned UNDP 3.1.2 IMPLEMENTING LESSONS LEARNED support to parliamentary institutions. In this FROM THE PREVIOUS CYCLE case, the access and goodwill generated by The Country Programme document approved by the project allowed UNDP to conduct more the UNDP Executive Board in September 2003 effective advocacy and enlist the active support noted some lessons learned from past operations of parliament on a number of issues, including in the Republic of the Congo and made gender, HIV/AIDS and the environment. corresponding recommendations. 2. Strengthening and deepening partnerships 1. Adopting a programme approach enhancing with NGOs and associations. A second coherence and synergies. Although a pro- lesson called for further development of gramme approach was adopted in the planning relationships with NGOs and associations as phase, the realities of implementation have a proven mechanism of delivering assistance

16 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS in areas that remained insecure. As mentioned for procuring goods and services, the rate of in section 2.6, relations with NGOs and delivery increased to 78 percent in 2006 and associations have been less intense during the 87 percent in 2007. According to the 2007 current programming cycle than in the performance ranking by the UNDP Regional immediate post-war period, when national Bureau for Africa, the Republic of the Congo’s implementation capacity was particularly country office achieved second place among weak. In the new cycle, UNDP has correctly 44 countries, due in part to the improvement in placed more—and continues to gradually programme delivery. increase—emphasis on national execution. Programme funding demonstrates a heavy 3. Improving national ownership, ensuring reliance on non-core resources and, therefore, a sustainability of the outcomes of projects reliance on additional fundraising on the part of and actions, and fostering national the UNDP country office. Figure 1 indicates the capacity-building in the area of economic respective proportions of core and non-core management. Unfortunately, full national resources expended for each of the four years ownership and the resulting sustainability of under review.There are two notable observations. results remain the weak points of several First, UNDP has been increasingly successful in UNDP activities carried out under the mobilizing and using additional non-core programme. In many cases of both upstream resources, though often at the expense of other and downstream interventions, the planned outputs were delivered, yet anticipated results management duties. Second, UNDP core could not be achieved due to the national or resource allocations remained relatively low local authorities’ failure to devote the human during the programme period. This phenomenon and financial resources necessary to sustain is due to the methodology applied in allocating such results. This important issue is further TRAC resources to different country programmes. discussed, and concrete examples are provided in the thematic sections of this ADR. Two factors constitute the principal basis for allocations: the classification of a country on the 4. Deepening and broadening partnerships basis of the gross national income per capita and with the private sector, particularly in the the size of its population. Oil revenues place the context of fighting poverty and HIV/AIDS, Republic of the Congo in the lower middle-income as well as environmental and natural- group. It also does not fall into the category of resource preservation and management. As least developed countries, and its population is discussed in section 2.6, this recommenda- relatively small. No special consideration appears tion has largely been implemented. to have been given to the structural problems of the country’s economy and its poor human- 3.1.3 FINANCIAL ASPECTS OF THE PROGRAMME development ranking. This combination of The UNDP country office has succeeded in factors has resulted in core (TRAC 1) resources redressing its rate of delivery,29 which was partic- expenditure representing a yearly average of ularly low at the beginning of the period under $1,141,000, which equals only some 20 percent review. For 2004 and 2005, the delivery rate of total UNDP programme expenditure. stood at only 66 and 65 percent, respectively. Following stricter controls introduced by the This has proven to be limiting in many ways. country office management and an increased First, UNDP was restrained in using core reliance on an office-based service centre responsible resources as seed money to launch new activities

29 Expenditure as a percentage of approved budgets. Source: UNDP country office in Brazzaville based on the UNDP ATLAS accounting system.

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 17 Figure 1. Annual expenditure 2004–2007 by core and non-core resources

n Core resources n Other resources 6

5

4 s e c r

u 3 o s e R 2

1

0 2004 2005 2006 2007 Year

and attract additional funding. Second, the concluded that a comprehensive programme for country office had to develop an aggressive strengthening national capacity was essential for fundraising strategy that, at times, soured achieving the objective of moving towards relations with donors. Some of them felt UNDP increased national execution. In June 2006, the engaged in activities simply because of funding government also requested that UNDP manage opportunities; others thought that by engaging on its behalf some of the funds provided under with some parts of the government, UNDP was NEX. This request concerned mainly procurement competing for funding. activities and was made in order to improve the rate of delivery for NEX projects, which had The current programme cycle marked the previously been alarmingly low. Under some beginning of a shift in project execution modalities, projects, a hybrid NEX/DEX formula emerged; in line with a gradual passage from a post- it now needs to be accompanied by a strong conflict situation into a stabilization period. The capacity-building approach and concrete govern- previous period had been characterized by mental measures in order to streamline its cooperation with some international and local disbursement mechanisms and render them more NGOs for the implementation of projects, as transparent. In the meantime, the passage to well as by the extensive use of the direct a pure NEX modality must remain gradual execution modality (DEX). Progress in moving and prudent. towards the national execution modality (NEX) has been modest, with less than 30 percent of 3.1.4 CONSULTATION MECHANISMS expenditures occurring under NEX during A number of mechanisms have been put in place 2004–2007. to ensure the widest possible participation in the formulation and management of programmes In 2006, the country office commissioned an and projects. Local project review committees evaluation of the NEX through both government assess and approve UNDP interventions prior to institutions and national NGOs. The evaluation their inception. During the course of implemen-

18 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS tation, programmes and projects have also been It constituted a powerful signal of the return to monitored and overseen by steering committees peace, normalcy and reconciliation. This positive that were expected to meet regularly. Both types public-relations effect could have been of committees enjoy large participation that amplified, had senior office personnel been includes not only the immediate government and present on a more regular basis or had other donor partners, but also civil society organiza- UNDP staff been more mobile in the whole tions and individual experts. Department. However, UN security rules continue to limit access to a number of districts Some committee members felt that their consul- in the Pool Department, though such rules are tations were merely symbolic, as meetings considered excessively prudent among some occurred at the end of the planning process, locally active non-UN organizations. They mostly after the project design had been should also be allowed to benefit from the approved by a donor. With few exceptions, services of UNDP field offices, which should such as the governance programme, steering endeavour to play an increased role in providing committees met irregularly, and some had not a forum for coordination among development met at all. It would appear that difficulty arose and humanitarian actors in their regions. from the designation of chairs at the ministerial level, which placed additional demands on the As part of the 2007 restructuring, country office schedules of people who are already extremely senior management decided to create a Centre busy. One minister mentioned to the evaluation for Project Execution and Support (CEDAP).30 team that she had asked a senior civil servant to It was launched in September 2007, following chair steering committees and report to her. This the finalization of a business plan and the recruit- might provide the formula to increase the ment of a manager and an assistant. CEDAP is a effectiveness of such committees. merger of two former entities: the DEX Unit and the Service Centre. Its main objective was to 3.1.5 INTERNAL MANAGEMENT ISSUES boost the delivery of UNDP programmes. Its The country office implemented two initiatives services included support to UNDP projects by to improve programme management. The first procuring goods and services, support to govern- concerned the establishment of outlying offices ment partners requesting services within CEDAP in four parts of the Republic of the Congo capabilities, and management and assumption of outside Brazzaville. The offices in Kinkala, Pool full responsibility for procurement-only UNDP Department, and in Pointe-Noire, Kouilou projects executed under DEX. Department, have been designated as UN offices. In fact, they are staffed and maintained by The Centre is experiencing increasing demand UNDP alone and provide ad hoc services to among government institutions wishing to visiting personnel from other agencies. The other outsource their procurement activities, even in two offices, Dolisie in Niari Department and cases where such activities are not financed Owando in the Cuvette Department house through UNDP. This interesting development UNDP project staff. The location of the four underscores the unit’s excellent performance. offices demonstrates the balanced UNDP However, it would be prudent not to overstrain approach to addressing the needs of people in all the capacity of CEDAP. While this service has parts of the country. already demonstrated its capacity to accelerate procurement and reduce costs, a full evaluation of UNDP made a bold gesture by opening the its activities should take place in late 2009, after Kinkala office in the troubled Pool Department. two full years of operation.

30 Centre d’exécution et d’appui aux projets.

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 19 Despite a significant improvement in the rate of importance of being able to properly illustrate the programme delivery in 2006–2007, the efficiency results of programme interventions, UNDP of UNDP financial management continues to should insist that donors accept and cover suffer from negative perceptions among its realistic monitoring costs—or, alternatively, use its partners, particularly with regard to disbursement own allocated regular resources for the purpose. speed. One partner complained about the lack of quality and delayed delivery of financial reports The draft UNDAF document for 2009–2013 on the use of contributions to UNDP. This goes a long way to defining measurable outcome should send a clear signal that UNDP needs to indicators for each of the programme energetically pursue efforts to streamline components, as well as potential sources of procedures, avoid over-centralization and better information to monitor these indicators. In reward superior staff performance. designing its next country programme for the Republic of the Congo, UNDP should draw 3.1.6 MONITORING AND EVALUATION extensively on this excellent inter-agency work During the period of 2004–2007, the UNDP and align its own outcomes and indicators on those country office undertook four formal evaluations: of the UNDAF. It would then be conceivable evaluation of the community action project, to go a step further in inter-agency cooperation evaluation of the HIV/AIDS prevention project, and undertake joint multi-agency programme a mid-term evaluation of the youth at risk evaluations. Such evaluations should be external, project, and an unfinished final evaluation of the independent and could be funded through the first phase of the weapons collection project.31 funds for coordination at the disposal of the As previously mentioned, an evaluation of NEX Resident Coordinator. was conducted in 2006 and, in the beginning of 2008, an outcome evaluation of the environment 3.2 IMPROVING DEMOCRATIC and energy programme was underway and close GOVERNANCE to completion. In total, this effort fell only slightly short of the objectives of the original Table 4 details the major components of the evaluation plan. democratic governance programme and the underlying areas of activity. The intended The evaluation team found that outcomes of outcomes of the programme, as defined in the programmes and projects were often merely country programme document of 2003, were: outputs. In addition, outcome indicators were at n Increased efficiency and representativeness of times defined in a purely qualitative way, making Parliament in discharging its legislative and monitoring and assessment more subjective than governmental oversight duties; factual. No human or financial resources were allocated to the systematic production of baseline n Ratification, implementation and monitoring data or to monitoring indicators throughout the of the Convention on the Elimination of All life of each project. This proved to be another Forms of Discrimination against Women; weakness, which rendered the evaluation of Involvement of local authorities and community outcomes extremely difficult. According to n members in planning and managing develop- information given to the evaluation team, this ment and public service activities; and can be explained by the fact that many donors did not wish to accommodate costs that, in their n Enhanced efficiency, responsibility and view, are administrative in nature. However, the transparency in public administration.

31 The country office rejected the draft report on the weapons collection project, on the grounds that it did not fully respect the Terms of Reference and was generally biased.

20 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Table 4: Governance Programme 2004-2007: components and activities

Component / activity Execution Duration Budget US$

Component 1: Democratic Governance

Strengthening Parliamentary Institutions NEX32 2001-2006 300,000 Support to the new democratic institutions NEX 2004-2007 Strengthening Civil Society Organizations and NEX 2004-2007 promotion of human rights Strengthening the capacity of political parties and DEX/NEX 2005-2007 support for their legal framework

Component 2: Administrative Governance

Support fight against corruption and strengthen AGEX (shifted 2003-2007 capacity in transparency and ethics to DEX) Improvement of public administration performance NEX Starting in 2008 Strengthening consultation and coordination at the ministerial level Not started

Component 3: Local Governance

Support to the decentralization process DEX Ongoing 3.7 million33 Support to local development NEX Ongoing

Component 4: Economic Governance

Strengthening national capacities in financial and NEX Ongoing but economic management limited Support to private sector development Left to The World Bank, IMF and ADB

Component 5: Support preparation of Not started national framework for good governance

Source: UNDP Republic of the Congo country office.

The overall objective of the programme was to encouragement and support of the international strengthen the democratic process and the rule of community, for achieving sustainable growth law for sustainable human development. while improving the livelihood of populations. It is also a pre-condition for successfully complet- Good governance is at the centre of the strategy ing the political, economic and social transition formulated by the government, with strong started in 1991. Almost all members of the

32 Shifted to NEX/DEX. 33 A single umbrella project has been created to cover most of the activities related to governance.

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 21 international aid community are involved in the Inter-Parliamentary Union conducted a joint helping the government improve governance, and evaluation of the effectiveness of support to UNDP is part of a common effort that could parliamentary institutions. benefit from increased coordination. 3.2.1 REVIEW OF RESULTS No significant changes were required to the Strengthening democratic governance initial programme, as governance remained an A number of activities were undertaken to foster overwhelming priority throughout the period democratic governance. Two activities selected as and is still one today. The only changes occurred representative of interventions under this when planned UNDP interventions were programme component are analyzed in more superseded by programmes of international detail in boxes one and two. financial institutions as part of wider discussions on economic and administrative governance. Human rights were another area of significant This concerned support to private-sector activity. With the involvement of government development and the follow-up to the survey on representatives, CSOs, minority groups (Pygmies) fraud and corruption. During the course of and UN system representatives, UNDP implementation, additional intended outcomes conducted public awareness campaigns, trained were identified, corresponding to new operational police officers on the rights of citizens and opportunities, particularly regarding support for organized the celebration of the International legislation on political parties and the role of Day for Human Rights. UNDP also supported women in politics. NGOs in establishing several legal clinics in response to the acute need of a population Although some activities had to be initiated prior without easy or free access to justice. However, as to the 2005 launch of the larger umbrella project, these clinics rely largely on volunteer services, the particular efforts were made in this area of absence of regular and independent public or intervention to ensure that a comprehensive and private income for operating costs and essential coherent programme was developed. The permanent staff renders their long-term sustain- programme was divided into different projects ability questionable. for execution and financing purposes. Some activities, such as support to parliamentary Another meaningful UNDP contribution was institutions and support to the cooperation the support given to formulating legislation on framework and NEX, were continued from the political parties, as it provided a much-needed previous phase and received additional resources legal framework for multiparty democracy. under the new programme cycle. UNDP combined such support with a programme for training political parties, which included training The projects were submitted to a local project for opposition parties. Training took place mainly review committee.34 In the case of the in a South-South framework. The project helped governance programme, oversight by the steering establish a consultative framework, as well as committee was quite satisfactory. The acting behavioural norms for interactions among director of the national management unit parties, associations and the government. prepared a progress report for the period of 2005–2006. Ad hoc progress reports were also The planned support to new democratic institu- prepared for some sub-components, such as the tions, such as the Human Rights Commission initiative for the organization of Department and the Higher Council for Freedom in Parliamentary Conferences or for the promotion Communications, could not be implemented due of women in politics. The French Parliament and to lack of funding.

34 Comités Locaux D’évaluation des Projets.

22 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Strengthening administrative governance Strengthening local governance Under this component, UNDP intended to support UNDP backed governmental decentralization the fight against corruption and fraud, contribute to efforts, mainly through institutional support to improving public administration performance and the technical committee for the evaluation of support enhanced consultation and coordination at decentralization, which included representatives the ministerial level. Only the first activity could be from all ministries. A training programme based started during the 2004–2007 period. The planned on a needs assessment of locally elected officials activity of improving public administration was being finalized in March 2008. The positive performance was delayed until 2008 due to lack role played by UNDP in the organization of of funding, and more recently, due to a misunder- Departmental Parliamentarian Conferences (see standing in which the counterpart ministry was Box 1) led to the decision of the Ministry in expecting only the provision of equipment, while charge of decentralization to request the office’s UNDP was considering institutional, rather than assistance in that sector. The Conferences also only material, support. In addition to the anti-fraud convinced the government to allocate resources project (see Box 3), UNDP provided institutional to local authorities. In 2008, support to local support to the Official Journal, which electroni- development programmes will start in two cally records all official documents. regions on a pilot basis.

Box 1. Strengthening Parliament

The programme organized work- n Successful advocacy women parliamentarians and shops and study tours for the staff leading to policy formulation. supported the formation of supporting the secretariats of both UNDP made extensive use of the Central African Network of the National Assembly and the the parliamentarian platform Women Parliamentarians. Senate, as well as for parliamentar- to advocate and raise awareness ians.Training for parliamentarians of a number of cross-cutting The numerous achievements of was aimed at improving their issues, such as HIV/AIDS, the this programme highlight it as knowledge on organization, environment, climate change, one area of excellence for UNDP processes, parliamentary diplomacy poverty alleviation, gender and in the Republic of the Congo.The and budgetary issues. new information technologies. programme delivered the planned The Parliament adopted outputs; however, the anticipated The programme helped create official statements on most results did not fully materialize. the Centre of Information and of these subjects. For constitutional and political considerations outside the pro- Legislative Research of the n Promoting decentralization Parliament by providing through organizing gramme’s influence, parliamentary equipment, computers and Departmental Parliamen- capacity to submit legislation proposals and exercise its legislative documentation. Unfortunately, tarian Conferences. These and governmental oversight access to the Internet never gatherings aimed to initiate a functions remained weak. materialized, as the Parliament dialogue, outside the capital National ownership exists, but Secretariat failed to earmark city, between locally elected the sustainability of results is resources to finance the service. representatives and national most often not guaranteed in the parliamentarians, in order to absence of budgetary allocations Computers were also provided discuss global issues, identify to pursue activities. to the Finance Committee and local needs and pave the way the Brazzaville office of the for decentralizing the political The strengthening of parliamen- Central African Network of Women and administrative systems. tary institutions is not limited Parliamentarians.The programme Six conferences were organized to building technical and adminis- supported some initiatives to from 2003 to 2006, but none trative capacity.The process also open the dialogue between the were held in 2007 due to a lack requires strong national political Parliament and civil society and of funds.The Parliament did not will and support.The results of to improve the image of the take over this initiative though the programme should be Republic of the Congo in the its own financial resources. examine from a longer-term international parliamentary arena. n Successful introduction perspective, and UNDP should of gender considerations continue its support, while Major results of the in programme execution. insisting on concrete measures programme included: UNDP provided training to to ensure national ownership.

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 23 Strengthening economic governance programmes with some of the same institutions UNDP has only just begun activities related to and would also benefit from increased coordina- economic governance. These remain limited to tion with other actors. training initiatives for members of the Economic and Finances Commission of the National Donor interest in strengthening parliamentary Assembly and the Senate. institutions facilitated the mobilization of resources. For other programmes, the UNDP 3.2.2 MAJOR PARTNERSHIPS, COORDINATION country office used some of its regular resources AND RESOURCE MOBILIZATION and appealed for additional UNDP resources UNDP participates in consultations and coordi- from the Democratic Governance Thematic nation on governance issues through a Thematic Trust Fund. Major donor partners in the area of Group and a National Community on Best governance included Italy, Sweden, the Practices. For the preparation of the I-PRSP, the Netherlands through the Association of final PRSP and its supplementary documents, as European Parliamentarians for Africa, the well as for the ongoing preparation of the African Capacity Building Initiative and the UNDAF, coordination with donors and the UN ADB. UNDP also worked with international system was strong. The European Union, France NGOs, such as the National Democratic and The World Bank are involved in support to Institute for International Affairs and the many oversight and control institutions, Konrad Adenauer Foundation. including the General Inspectorate, the local equivalent of a general accounts office,35 UNDP succeeded in raising awareness and Economic and Financial Commissions and the enlisting the active support of the Parliament on National Commission against Corruption and a number of issues. UNDP was also able to Fraud. UNDP is or plans to be involved in provide advice through the use of South-South

Box 2. Promoting women in politics

The Centre for the Promotion subregional network to only nine in 2007). In anticipa- of Women in Politics, an NGO exchange experiences in tion of upcoming local elections, receiving technical and financial accessing political positions. the electoral law is under support from UNDP,trained revision to avoid positioning women on various topics.These The Centre is recognized as a women only in unfavourable included advocacy for political successful institution for its places on electoral lists. change, leadership and manage- intellectual capacity and its ment, entry of young women active advocacy programme for In all political parties, there is in politics, access to decision- promoting women in politics. still resistance to women’s entry making institutions, women and into politics, under the pretext democracy, and best practices Such efforts, combined with that there are not enough in governance.These training strong advocacy with the qualified women. sessions targeted individuals Parliament, led to the revision of and representatives of associa- the electoral law to introduce a This programme illustrates what tions. Most were held outside quota of 15 percent women one could term a ‘dormant the major cities of Brazzaville candidates for parliamentary success’. Despite the absence and Pointe-Noire. elections and 20 percent for of immediate results in the local elections.The number of representation of women, This project also developed a women parliamentarians, conditions for a real success in manual for women considering unfortunately, did not increase the future exist.The programme running for public office and with 2007 elections (of a total of is on the right track and requires helped women develop a 137 seats, 12 seats in 2002 and sustained UNDP attention.

35 Cour des Comptes.

24 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Box 3. Support to anti-fraud and anti-corruption initiatives

The programme began in The IMF and The World Bank took been used as important inputs 2003 with a survey that over this area of intervention and statistical base for the produced a comprehensive and from UNDP,as it related to one recently launched National clear picture of the extent of of the major conditions for the Human Development Report on fraud and corruption in the eligibility of the Republic of the the theme of governance. country. As a result, a National Congo under the Heavily Indebted Poor Countries initiative. A new Similar to the strengthening Plan against fraud and corruption National Council and a National of parliamentary institutions, was prepared and approved Observatory against corruption combating fraud and corruption by the government in 2004. have been established.The is not only a technical and This was supplemented by an discussions related to the administrative operation. It operational plan, and a National Heavily Indebted Poor Countries should also be accompanied Commission against fraud, initiative also meant that a new by strong national political will misappropriation and corruption survey on corruption and fraud and support. UNDP opened was also established in 2004. had to be undertaken and the the door to others, and its In addition, the Republic of the National Plan of Action revised. involvement in this area remains Congo ratified the UN and The results of UNDP interven- valid for the future—particularly African Union Conventions tions have been limited, for the provision of training to against corruption in 2005 although the findings of the members of the new National and 2006, respectively. UNDP-sponsored survey have Council and Observatory. expertise, national and international NGOs and support at the level of strategic and policy eminent personalities. development, combined with concrete material assistance in the same sector. For example, 3.2.3 MAIN FINDINGS UNDP support to formulating legislation on the The UNDP democratic governance programme participation of women in politics was accompa- was relevant in the context of a country intent on nied by support to an NGO actively promoting completing its transition to a multiparty that goal. democracy after widespread internal conflicts. The programme was comprehensive and touched The most effective interventions were in the area upon several aspects of governance. It was of support to parliamentary institutions, political conceived to address highly sensitive issues, while parties and the promotion of women in politics. also looking downstream to address social needs The organization of decentralized Department at the same time. The selection of DEX or NEX Parliamentary Conferences constituted a particu- modalities was appropriate and reflected the larly innovative approach that should be comparative advantage of having UNDP directly evaluated further. Most of the achievements, involved in critical and sensitive areas, such as however, must be seen as dormant successes in surveys on corruption and support to political the absence of the necessary national political parties. The change in the programme largely will to follow-up such initiatives by devoting reflected the transfer of some interventions to the human and financial resources. Bretton Woods Institutions or project cancella- tions for a lack of funds. Such political will, combined with the allocation of national resources, is often absent in The programme was designed to balance governance programmes, as well as other areas of upstream and downstream activities for almost all intervention, resulting in the abandonment of interventions. This was particularly useful for promising initiatives. This was the case of gaining goodwill through a combination of Departmental Parliamentarian Conferences,

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 25 discontinued in 2007, and the still-lacking country’s development policy and ongoing Internet connectivity in the documentation discussions with international financial institu- centre created for parliamentarians. In contrast, tions regarding economic restructuring and debt- the Centre for the Promotion Women in Politics relief programmes. Similarly, and despite is likely to become a self-sustained NGO operational difficulties encountered, the two through direct support from its members and community development programmes have been elected women. UNDP will need to provide timely interventions in the aftermath of disrup- additional support to some of these activities in tive internal conflicts. These programmes were in order to consolidate achievements, but should do line with two major thematic areas of the I- it on the basis of government partners making an PRSP: the consolidation of peace and security, unambiguous and concrete commitment to and rural development. assume full national ownership going forward. Except for the Support to PRSP and MDG For each of the activities falling under a broader Strategy programme, which focused on elaborat- component, outcomes with indicators were ing poverty reduction strategy documents, all formulated, and outputs and annual targets were activities were financed under the DEX modality. identified. Linkages between activities, outputs The Community Action project and the and outcomes were clear. Unfortunately, indica- Emergency Programme for Rehabilitation and tors and related baseline data were most often Support to Communities36 were initiated soon defined in a qualitative way, making measure- after the end of the civil wars, and, in view of the ment difficult and subjective. severe disruptions caused by armed conflict, the prevailing opinion was that NEX would have 3.3 POVERTY REDUCTION been premature and unrealistic. In addition, the two projects heavily relied on implementation The country programme approved in 2003 through NGOs, local associations and defined the goal of UNDP poverty reduction community groups. activities as “furthering governmental efforts in the formulation and implementation of the 3.3.1 REVIEW OF RESULTS poverty reduction strategy.” The intended outcome was a “strengthened capacity for poverty The main UNDP poverty reduction effort at the reduction and achievement of the MDGs on the national level has been in supporting the preparation part of the government and civil society.” of the PRSP and the National MDG Strategy. UNDP provided financial support, equipment As previously mentioned, the initial programme and technical assistance. The country office merged activities related to conflict prevention financed some of the thematic studies required to and recovery into the poverty reduction area. prepare the final documents and provided Most of these programmes are now considered support for the distribution of the Information part of a peace consolidation approach and are Bulletin of the National Committee on the under the management of the UNDP local Reduction of Poverty. UNDP was also instru- Governance Unit. For the purpose of this review, mental in organizing consultations in all regions activities conducted under different themes are of the country, ensuring that strategy documents presented separately. Table 5 details poverty benefited from the widest possible participation. reduction activities. UNDP supported the preparation of the 2004 The PRSP and the MDG strategy are important National MDG Report and is currently helping governmental priorities, both as part of the finalize a National MDG Strategy. The second

36 Projet d’Urgence de Relance et d’Appui aux Communautés.

26 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Table 5. Projects related to poverty reduction and achieving the MDGs, 2004–2007

Project Execution Duration Budget (US$)

Community Action DEX 2000-2007 2.4 million

Emergency Programme for Rehabilitation and DEX 2003-2007 4.6 million Support to Communities

Support for the Reintegration of Vulnerable Groups DEX 2007-2011 153,632 (2007)

Support to Poverty Reduction (PRSP and NEX 2005-2007 0.8 million MDG strategy)

Source: UNDP Republic of the Congo country office.

National Human Development Report, launched indirect beneficiaries of rehabilitated social in March 2008, also benefited from UNDP infrastructure is estimated at approximately support and inputs. Through the support from 800,000. Close to 180,000 persons benefited UNDP and other actors, the government is now from improved health faculties, and nearly equipped with tools needed to guide the 30,000 children benefited from rehabilitated implementation of poverty reduction schools. In addition, UNDP conducted rigorous programmes. The actual results of these actions information and training campaigns on peace, will take time to assess and will largely depend on reconciliation and human rights. Second, the the sustained political will of the government to project emphasized a community-based implement strategies and policies, as well as the approach with local project selection committees government’s continued cooperation with the to review and approve proposals for rehabilitation international community to put in place the and community participation in the implementa- reforms needed to support the strategies. tion of activities. That community approach helped reduce local tensions and contributed to The Community Action project, started in 2000, reconciliation and the consolidation of peace. addressed the needs of communities’ victims of the civil wars in the four worst hit rural depart- The Emergency Recovery and Community ments of Pool, Niari, Bouenza and Lékoumou, as Support project was a component of a much well as four neighbouring departments. It was larger programme, financed under a $41 million conceived as part of the UN humanitarian and credit and a grant from The World reconstruction effort in the aftermath of civil Bank/International Development Agency. The wars, and it was more akin to an emergency component entrusted to UNDP aimed to (i) response than a development programme. The strengthen the capacity of local NGOs and project set out to repair dispensaries and classrooms, associations for the formulation of development rehabilitate wells and other social infrastructure, projects and their monitoring and evaluation; (ii) and work towards the reintegration of former promote partnerships at the local level between combatants and war-affected communities. Local authorities and the population through the partner NGOs and associations were chosen creation of consultative mechanisms on local hastily, and their performance was often sub- development; and (iii) create employment through standard. Security restrictions and logistical the implementation of small projects. Partners in difficulties made monitoring erratic at times. the programme, in addition to the International Bank for Reconstruction and Development/ Nevertheless, the project shows positive results, International Development Agency, were the mainly on two accounts. First, the number of Ministry of Finance and the Agency for

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 27 Box 4. Support the socio-economic reintegration of underprivileged groups

The recently started Support to programme. During 2007, the The advantages for ministries the Socio-economic Reintegration first year of operation, UNDP include speed and lower cost of Underprivileged Groups procured $153,632 in goods of procurement, compared to project illustrates the services and services. a heavier and less reliable now offered by UNDP through governmental procurement the CEDAP service centre. Established in 2007, the and disbursement mechanism. CEDAP has already shown There is, however, a twofold risk. In July 2006, the Ministry of positive results in accelerating First, should demand exceed Social Services, Solidarity, * delivery and reducing costs of capacity, the CEDAP could Humanitarian Affairs and Family UNDP-managed projects.The become over-extended, thereby turned to UNDP for management partnership agreement for the losing some of its comparative assistance for a programme reintegration project is illustra- advantages. Second, the financed through a $22.1 million tive of a new area of interven- approach needs to be balanced grant from the African Develop- by stronger national capacity ment Fund, a contribution of tion for the CEDAP.It is the first time that such a large and development and support to $6.6 million by the Government procedural and management of the Republic of the Congo exclusively-procurement govern- ment programme was entrusted reforms, so that CEDAP is not and $100,000 by UNDP.Under perceived as a simple substitute the partnership agreement to the unit. At the beginning of 2008, discussions were uderway for management deficiencies between the Ministry and UNDP, in the civil service. the country office is designated with other ministries that were as responsible for procuring all potentially interested in using * Maintenant, Ministère de la santé goods and services under the the same services. et des services sociaux.

Technical Cooperation and Development, an need to mainstream HIV/AIDS or environmen- NGO responsible for the implementation of tal considerations into all sectors. most of the approved projects. The Government of Italy and two members of the private sector The usefulness of UNDP support in this field is also contributed to the UNDP-managed broadly recognized within the aid community component. The Government of the Republic of and in the civil society. According to a prominent the Congo participated with a contribution of member of a large industrial union, the consulta- $200,000. tions organized under the auspices of UNDP provided unique opportunities for people from The programme covered all regions of the different horizons to exchange views and country, except the cities of Brazzaville and establish useful contacts, going far beyond the Pointe-Noire. It contributed to improving socio- immediate purpose of the meeting. It should be economic infrastructure through 37 separate noted that UNDP and The World Bank worked projects. The agricultural production and fishery very closely on preparing the PRSP, co-chairing sectors implemented 153 projects, and 190 local the donor consultative group in the process. development committees were put in place. There are no evaluations available of the impact 3.3.3 EFFICIENCY AND SUSTAINABILITY of the programme. The poverty reduction programme, developed by the UNDP country office to support the formulation 3.3.2 ADVOCACY AND COORDINATION of major strategic documents while also engaging UNDP support to the development of national in activities such as community development, is strategic documents allowed the country office to an illustration of the sensible approach of develop consultative groups on various themes. combining up- and downstream interventions. Such groups were useful instruments for an advocacy role on a number of issues related to However, for the two projects related to good governance, the role of women, and the community development, too little attention was

28 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS paid to sustainability during the design and ex-combatants and victims of violent conflict and implementation phases. For reasons related to addressed the rehabilitation of infrastructure security and transport difficulties, monitoring has damaged by war. Given the specificity of such been generally insufficient. Furthermore, no projects and the relative size of their budgets, the mechanisms appear to have existed to monitor evaluation team chose to present them separately the continued sustainability over the medium in this report (see Table 6). term, either for the maintenance of rehabilitated infrastructure or the continued viability of small Of all interventions, the only activity specifically income-generating projects for individuals or groups. mentioned in the approved 2004–2007 country programme is Collection of Small Arms for 37 Throughout the implementation of the more Development (PCAD), with an outcome operational projects, UNDP has developed indicator of “improved public security.” Outcomes partnerships with several local NGOs and were defined under the individual projects, but committees. However, there is no evidence that too often in terms of what are really outputs. UNDP has capitalized on this advantage by pursuing cooperation in the framework of other The main characteristics of the UNDP post- activities and programmes. Finally, the projects conflict portfolio include: were planned and implemented during the n Projects are implemented under the direct immediate post-conflict phase under a sense of execution modality (with the exception of the emergency. While quite appropriate at the time, project to assist the integrated management the projects’ structures were not completely in of natural disasters); line with a development approach. n Projects are highly operational and demand a higher level of field presence than is normal 3.4 CONFLICT PREVENTION for UNDP interventions; AND RECOVERY n The total project value exceeds $18 million, As mentioned elsewhere in this report, several with a much larger average per-project activities from 2004–2007 were inherited from allocation than in other country programme the previous period. UNDP continued to assist themes; and

Table 6. Projects related to conflict prevention and recovery, 2004–2007

Project Execution Duration Budget (US$ millions)

Collection of Small Arms for Development (PCAD I) DEX 2004-2007 2.7

Collection of Small Arms for Development (PCAD II) DEX 2007-2008 2.1

Rehabilitation of Rural Tracks DEX/AGEX 2002-2004 3.1

Community Action for the Rehabilitation of Communities NEX 2005-2007 3.8 and Reintegration of Youth at Risk (PRESJAR)

Rehabilitation of Primary Schools (PRAEBASE) DEX 2005-2008 8.7

Integrated Management of Natural Disasters and Risk NEX 2006-2007 0.5

Source: UNDP Republic of the Congo country office.

37 Projet de Collecte des Armes pour le Développement.

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 29 n Significant synergies have been developed schools would be equipped with separate latrines between different projects, particularly among for girls and boys. PCAD I, the Basic Education Support Programme (PRAEBASE),38 and the In these projects, there is often confusion Community Action Project for Community between outcomes and outputs. In PRAEBASE, Recovery and Social Reintegration of Youth for example, the outcome is defined as rehabili- 39 at Risk (PRESJAR). tated schools and the formation and training of a number of local community management Two projects are closely related to larger committees. It is only at the level of The World programmes financed by The World Bank. Bank-sponsored programme that genuine, PCAD I, financed entirely by the European Union, measurable outcomes are formulated. The is the UNDP-run disarmament programme. It UNDP project could have adopted the general is complementary to the government-led outcomes, but could also have defined new ones, demobilization and reintegration programme particularly in terms of the sustainability of the financed by The World Bank-operated regional Multi-Donor Trust Fund for Demobilization community management committees. and Reintegration. For its part, PRAEBASE is one of four components in a $20 million World 3.4.1 REVIEW OF RESULTS Bank programme for support to primary Although conflict prevention projects did not education. All other components of PRAEBASE form a part of an integrated programme, they are implemented through the relevant Congolese have certain anticipated results in common. line ministry. The first is the restoration of a secure environ- Using the DEX modality for the portions of ment, particularly as related to Collection of these programmes under UNDP responsibility Small Arms for Development. The general has resulted in minor tensions, as some members security situation in the country has vastly of national institutions felt strongly that funds improved since 2000, to the extent that the should have been channelled through them. One government is now present and active in all but senior civil servant even expressed surprise that one small part of the country. The continued UNDP appeared to be competing with the presence of illegal weapons,40 not only with government for resources. former members of the militia but also with other civilians, still poses a threat to security and Most of the projects that belong to this category have been planned and are being executed in an stability. Some government officials think that ‘emergency mood’, characteristic of post-conflict the issue is now that of general public order situations. Insufficient attention has been rather than that of acute post-conflict emergency. devoted to technical backstopping and to the This may be an indication that future emphasis initial mainstreaming of cross-cutting themes of UNDP interventions should be more during planning. Important gender and upstream. For instance, assisting the authorities HIV/AIDS considerations were introduced only in the development of legislation on arms posses- later, during the course of implementation. As sion and improving the management of national an example, the manual for PRAEBASE arms depots are two activities envisaged by implementation had to be revised to ensure that UNDP for the next programme cycle.

38 Projet d’Appui à l’Education de Base. 39 Projet d’Action Communautaire pour le Relèvement des Communautés et la Réintégration Sociale des Jeunes à Risque. 40 The NGO Small Arms Survey, in a survey dated December 2007, estimated the number of small arms in circulation at some 34,000. Most of these arms are no longer possessed by the remaining militia groups.

30 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS The second expected result is the restoration of a roads, along with most of the national network, favourable economic environment in areas have not been maintained and have since fallen devastated by war. Despite difficulties and the into disrepair. Two years after the formal end increasing gap between the poor and the rich, of the project, the donor and UNDP are still there are signs that economic activity is picking in disagreement regarding eligible expenditures up in many areas of the Republic of the Congo. and reporting. Unfortunately, this affects mostly urban areas, while the benefits of increased economic The support given to building national capacity opportunities are substantially less in regions that for the management of natural disasters is the remain under the control of militias. However, only programme implemented under the NEX steps are being taken to improve access into and modality. While successful in establishing a from certain areas. The rehabilitation of National national structure, the programme needs to be Road One between Brazzaville and Kinkala is revisited in order to ensure that the results have not already changing prospects in the Pool Department. been affected by a recent change in ministerial responsibility for that portfolio. It is difficult to assess the extent to which UNDP interventions influenced these achievements. Too The PRESJAR project, started in 2004, moved many actors and factors are at play to isolate one away from addressing only the needs of ex- particular initiative as dispositive. It appears that combatants to also include youth at risk. It the major contribution of UNDP in restoring remains, however, very much linked to the security and economic activity is more one of conflict, as the rationale for inclusion of other impact on mindframes and attitudes than actual young people is to prevent them from taking up measurable results. arms. The aim of the project was to reinforce the integration of displaced rural communities, There is no doubt that some successes were particularly youth and women. A mid-term achieved. Arms have been collected, although the evaluation highlighted high levels of participa- numbers collected were much fewer than tion by the local authorities and population, as planned. Some former combatants succeeded in well as the positive synergies developed between establishing viable income-generating ventures. PRESJAR and other projects. It also noted, Schools have been rebuilt, and children are back however, that the free distribution of materials, in the classrooms, despite the continuing difficul- equipment and start-up funds could reduce the ties facing the primary education system. When sense of ownership on the part of beneficiaries, asked to identify the single most significant consequently reducing the project’s sustainability. UNDP contribution to the Republic of the Congo in recent years, a group of NGOs 3.4.2 MAJOR PARTNERSHIPS, COORDINATION concluded that the much-publicized public AND RESOURCE MOBILIZATION ceremonies of burning collected weapons had the The projects benefited from generally active most profound effect on the minds of people and steering committees and a well-structured constituted a strong signal of return to normalcy. community approach. Coordination aspects were of crucial importance for the primary education However, many projects were plagued by serious project that forms part of a larger programme, operational flaws. The rural tracks rehabilitation and for the small arms collection that runs project, operated by the United Nations Office parallel to a larger project supporting the national for Project Services, is an almost textbook-like demobilization and reintegration programme for example of a failure. The project rehabilitated former combatants. two of three roads, but fell short of completing the third by three kilometres, making it totally With regard to the primary school project, unserviceable. Furthermore, the two rehabilitated coordination has been efficient. However, it was

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 31 markedly less successful for PCAD I. Despite the elsewhere in the areas of disarmament, reintegra- co-location of PCAD project management with tion and community development approaches. the High Commissioner for ex-Combatants, the However, operational and managerial issues have commonality of purpose and the synergies generated occasional tensions with two between the two related activities could have important partners and donors, The World Bank been improved. and the European Union. At issue with the former was the increase, during the course of For some of the activities reviewed, the country the project, in the overhead percentage charged office benefited from allocations from the UNDP by UNDP against The World Bank contribution central Conflict Prevention and Recovery Trust under PRAEBASE. The latter friction concerned Fund. Most of the resources, however, have serious misunderstandings between the European been mobilized through the efforts of the country Union and UNDP regarding the management of office. UNDP benefited from its previous the projects for the rehabilitation of rural tracks experience in the Republic of the Congo and and PCAD I.

Box 5. Collecting small arms for development (PCAD I and II)

The PCAD programme is a The intention was for the office of n 1,308 weapons, falling far follow-up to a joint UNDP/ the national High Commissioner short of the target but partly International Organization for to give priority to ex-combatants compensated by; Migrations project conducted having surrendered their 626,533 bullets and other during 2000–2002. weapons for the benefits of n ammunition; and Under the PCAD I project reintegration assistance. 2,383 grenades and other (2004–2007), UNDP defined the Unfortunately, disarmament n following objectives: occurred before most of such explosives. assistance was available, n The collection of 10,000 small resulting in a high degree of The project fell short of expecta- arms voluntarily surrendered frustration for the former tions regarding the number of in exchange for a kit chosen combatants. Similarly, the small weapons collected and suffered by the beneficiary from a arms collection went ahead from operational malfunctioning. menu of options; without the counterpart goods Nevertheless, it had a significant n A component aimed at being available in UNDP stores, impact on the people by giving promoting economic and thus generating further frustra- a clear signal of a return to development activities as an tions. UNDP partly compensated normalcy, and by contributing alternative to a livelihood by using the resources of the based on violence; and to re-establishing a peace and PRESJAR project to provide reconciliation climate. n A component aimed at reintegration assistance to some reinforcing the capacity of the beneficiaries and establish its UNDP has used some of the High Commissioner for the presence in the Pool Department. lessons learned through the Reintegration of Former PCAD I project in planning and Combatants, the national The geographical coverage of the project was gradually implementing its successor, institution in charge of PCAD II.The synchronization implementing the national reduced to only two areas. plan for demobilisation, Furthermore, due to political between weapon collection disarmament and considerations that prevented and the distribution of material reintegration. the development of operations compensation is now assured, in the Pool Department during at least for the first 1,200 benefi- The second and third objectives negotiations between the ciaries.The project had started were never implemented, government and the CNR, its first collection campaign at essentially due to the absence of collections took place only the beginning of 2008 in some financing. As a result, the project in Brazzaville. concentrated its activities only neighbourhoods of Brazzaville. on the collection of weapons By the end of the project, the By March 2008, approximately and the provision of goods in activities in Brazzaville had 10 small arms were collected compensation. resulted in the collection of: every day.

32 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 3.4.3 MAIN FINDINGS The means to verify the long-term viability of UNDP interventions corresponded to expressed small businesses or individual income-generating national priorities, the broad corporate parame- activities are almost non-existent. The vast ters of the organization, and genuine needs felt majority of local management committees, put in by the Congolese population at large. Education, place for primary-school development and livelihoods and the restoration of a secure maintenance under PRAEBASE, have not environment remain high priorities for all succeeded in securing independent sources of Congolese people. However, questions remain as income that would enable them to effectively to whether or not UNDP should engage in help their primary school. As such, the absence of activities such as the rehabilitation of roads or the a realistic exit and sustainability strategy creates a rebuilding of schools where the experience of strong risk of jeopardizing the benefits of the organization and its comparative advantages programmes. Such considerations should become are limited. On the other hand, UNDP has an important feature in future planning. a recognized expertise in the area of small weapons and disarmament, but usually links Despite numerous operational problems, linked those activities more forcefully with reintegration mainly to the technical nature of some projects and community development. and the difficulties of operating in areas where access was limited for security or logistical An additional and related question is the long- reasons, UNDP projects have contributed to term prudence of continuing programmes the return of security and to the fostering of directly linked to the conflict. The wars that reconciliation. These interventions have ravaged large parts of the country have now been benefited from the recognized competence of over for nearly 10 years. Relative security has UNDP in disarmament programmes linked to returned to most previously troubled areas, community development and from the expertise leaving only parts of the Pool Department under gained by the organization through integrated the control of a faction that has not yet accepted community programmes. However, many activi- participation in the emerging democratic process. ties suffered from poor technical backstopping, Most observers recognize that the situation in weak management and a light field presence. the Republic of the Congo is no longer one of There are encouraging signs that UNDP has post-conflict, typically characterized by the need been addressing these weaknesses since the to engage in emergency programmes mainly beginning of 2007. benefiting former combatants and their victims. Still, the majority also recognizes that the state of affairs remains fragile, and that upcoming 3.5 ENERGY AND SUSTAINABLE local and presidential elections of 2008 and MANAGEMENT OF 2009, respectively, will be critical benchmarks in THE ENVIRONMENT the return to normalcy. UNDP should develop clear exit strategies from the remaining activities The larger umbrella project for environment and of a post-conflict nature early in the next energy was approved in 2005. With a budget of programming cycle. nearly $7.7 million, it constitutes a comprehen- sive picture of activities undertaken by UNDP in Most conflict recovery projects only partly relied this area, as it incorporates all projects started on a government structure for long-term sustain- earlier, as well as pipeline projects. Various project ability. Small arms collection and accompanying components and activities are detailed in Table 7. integration activities, school rehabilitation and future maintenance, and group integration Although the specific outcome identified in the measures promoted under PRESJAR all rely initial 2004–2007 country programme mentioned mainly on committees arising from their own both environment and energy, activities listed communities or on individual entrepreneurs. in the initial programme omitted energy. In its

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 33 Table 7. Environment and energy programme 2004–2007: components and activities

Activity Execution Progress Budget modality (US$)

Component 1: Preparation of referential framework and capacity building

Support for the preparation of government communication on NEX Approved 2006; $420,000 climate change ongoing Support for the preparation of national strategy and action plan on NEX Approved 2004; $188,600 biodiversity and capacity building completed Support for the preparation of national strategy and action plan for NEX Approved $10,000 protection of soils Support to national self-evaluation of environmental capacity NEX Approved 2004; $230,000 started 2006 Control of refrigerants NEX Approved 2006; $118,070 ongoing

Component 2: Protection of forest ecosystem / observatory on climate change

Agro-forestry community development programme DEX or AGEX Pipeline Conservation of cross-boundary biodiversity DEX Project approved ($44 million (Cameroon, Gabon, Congo) and just started approved)

Establishment of an observatory and network on climate change DEX Pipeline

Component 3: Promotion and production of renewable energy

Distribution of improved cooking stoves DEX Pipeline Building of micro-dams DEX First phase completed; (Second phase, second phase $21 million under being finalized discussion)

Production of renewable energy through solar kits DEX Cancelled

Component 4: Reduction of marine and coastal pollution risks

Measurement of impact of pollution on resources and health DEX Pipeline Study of water ecosystems biodiversity DEX Pipeline $5 million Establishment of a map database DEX Pipeline Preparation of a long-term policy and strategy to protect marine DEX Pipeline and coastal ecosystems

Component 5: Urban environment and living standards

Evaluation of urban pollution NEX

Capacity-building for urban waste management NEX Ended in 2007 $90,000 Support to eliminate river pollution and land erosion NEX

Source: UNDP Republic of the Congo country office.

comprehensive programme of 2005, the country ment of renewable energy. In contrast, the office corrected the omission and introduced an planned environmental education and awareness energy component. This also corresponded to an activity was dropped from the 2005 programme emerging government priority for the develop- and remains a pending proposal.

34 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS The anticipated outcome of the environment and integrated undertaking. However, due to the energy programme was defined as “a strength- need for fundraising in the absence of sufficient ened capacity of national and sectoral authorities UNDP regular resources, it became de facto to plan and implement integrated approaches to divided into several projects. The projects on environmental management and energy develop- biodiversity and climate change were audited in ment that meet the needs of the poor.” 2005, and all other projects were audited in July 2007, as part of the country office audit. It should The programme developed by UNDP corresponds be noted that in 2008, the environment to national priorities as defined in: programme launched an outcome evaluation by external consultants. n I-PRSP and the final PRSP; n 1994 National Action Plan for Environment; The steering committee established to oversee the programme never met. The minister designated n 1995 National Action Plan for Forests; as chairperson had other responsibilities, and was n Relevant international conventions, sub- unable to organize, attend or chair the committee’s regional agreements and the New Partnership sessions. A special counterpart unit, envisaged to for Africa’s Development; and provide the structured national support to the n UN strategies as contained in the UNCT programme, was never staffed: the National CCA, the draft UNDAF and UNDP Director was left alone to oversee activities with corporate and regional strategies. assistance, expertise and funding only from the external UNDP/Global Environment Facility. It should also be noted that the Congolese Despite its formal commitment to the population at large is becoming increasingly programme, the government provided cost- concerned about environmental issues and the sharing funds only for the micro-dams project. need for alternative sources of energy. Together with the Amazonian region, the 200 million 3.5.1 REVIEW OF RESULTS hectares of forests in central Africa constitute As Table 7 demonstrates, many of the activities the ‘lung of the world’ and its biodiversity needs planned under the environment and energy to be protected. programme are still in the planning stage, awaiting funding and final approval. Component 1, The programme was strengthened through preparation of referential framework and capacity systematic advocacy efforts. Advocacy through building, has already started and is reviewed in parliamentarians and public awareness-raising were more detail in Box 6. particularly successful. The UNDP programme manager effectively provided advice to the Most of the activities under component 5, urban Ministry of Tourism and Environment and environment and living standards, have been helped prepare official position papers. completed, except for the waste management programme where, despite a successful pilot The original programme document had defined phase and good prospects for financing, the local clear outcomes with qualitative indicators for each authorities of Brazzaville were reluctant to accept component and sub-component. A qualitative the plan for unknown reasons. baseline, a list of outputs and annual targets were also included. Due to the qualitative nature of The pilot phase of the waste management outcomes and indicators, measuring results is programme was successful in training young time-consuming and subjective. unemployed people, providing them with equipment and organizing them in groups to The linkages among activities, outputs and collect garbage and improve the drainage system outcomes were clear. Activities and outputs were in some critical neighbourhoods of Brazzaville. monitored through annual reports. The The execution of the programme was delayed by programme was initially conceived of as an lack of funds, but the delivery rate was high.

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 35 Sites for the micro-dams initiative have now coordination. However, initiatives such as the been selected, and the African Development creation of a community of practices on environ- Bank is expected to decide on final approval of ment should be commended. the programme soon. UNDP successfully mobilized important 3.5.2 MAJOR PARTNERSHIPS, COORDINATION financial resources, mostly from the Global AND RESOURCES MOBILIZATION Environment Facility. This in turn increased the Some donors and parts of the private sector are interest of the African Development Bank for hesitant to fund environmental activities. In their funding large projects, and allowed UNDP to opinions, the country has sufficient financial prepare the ground for exploring financing resources and should show its commitment to the partnerships with private sector enterprises such environment more concretely. However, some as Total, CIB41 and SARIS.42 UNDP also members of the private sector now appear more balanced its interventions between up- and open to funding projects. UNDP has signed a downstream initiatives, a strategy that proved framework cooperation agreement with Total, useful for resource mobilization. the largest oil sector operator in the country, and is in discussions with other large firms. 3.5.3 MAIN FINDINGS The programme was relevant to national goals, With limited human resources to manage the international conventions and UN objectives. It environment and energy portfolio, UNDP has was also well focussed on minimizing potential had to emphasize resource mobilization over negative impacts on the environment from the

Box 6. Preparation of referential frameworks and capacity building

Under this programme n A comparative assessment of The expected outcome of component, UNDP provided carbon dioxide emissions in national institutions having support for the achievement Brazzaville and Pointe-Noire, the capacity to formulate and of the following results: which highlighted the respon- implement policies and strate- gies related to the environment n The production of a first sibility of the energy and report on climate change that transport sectors in urban was not fully achieved. National was submitted to the parties pollution; and strategies have been developed, as well as plans of action, but of the UN Framework A project for the recuperation n there is not yet a fully dedicated Convention on Climate and recycling of refrigerants national agency in charge of Change. A second report is implemented in both currently being prepared; environment. The Ministry of Brazzaville and Pointe-Noire. Tourism and Environment n A national strategy and action currently covers the environ- plan for biodiversity, to be The reports and national plans mental theme, but it lacks the reviewed by the Council of under this programme were human and financial resources Ministers and Parliament for prepared through a participa- necessary for the task and final approval; tory approach involving national suffers from a high turnover rate n A national strategy and action representatives and consultants. at senior level.The Government plan for the protection of soils. UNDP also promoted the is sensitive to environmental The follow-up pilot project is now establishment of a ‘community issues, but not committed to frozen due to political consid- of practices’ on environment the point of transforming this erations in the selection of the and energy, which helped awareness into appropriate two proposed sites, which in turn increase awareness and develop human and financial resources has complicated the mobiliza- several other environmental and the establishment of a tion of external resources; study reports. dedicated national structure.

41 Compagnie Industrielle du Bois, wood industry. 42 Société Agricole de Raffinage Industriel du Sucre, sugar industry.

36 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS exploitation of forestry and the extraction of oil. effective. The country office also intends to It was important to re-introduce energy concerns promote the streamlining of environmental in the programme, including the promotion of concerns in all development interventions. renewable energies. The programme is internally coherent, but because it was managed as a portfolio The lack of UNDP core funds resulted in of projects in order to mobilize funds from stretching already-limited UNDP capacity in different donors, it did not fully align with the different directions: resource mobilization, typical UNDP integrated programming approach. partner consultation, and advisory and advocacy services. Consequently, there was little time for Capacity-building through networking and UNDP to coordinate with donors. consultative processes was the salient point of the programme and can be considered an effective 3.6 CROSS-CUTTING THEMES way of ensuring a measure of sustainability. However, due to weak financial government The country programme adopted three cross- support and high turnover of senior officials in cutting themes: gender, HIV/AIDS and NICT. the field of environment, sustainability of the All UNDP programme activities were intended national management capacity and the strength- to reflect and include these themes. ening of the ministry in charge of environment initiatives were not ensured. Although the mainstreaming of cross-cutting themes was initially weak in some projects, Mobilizing NGOs in support of environmental efforts were made to re-introduce gender and projects, raising awareness among parliamentari- HIV/AIDS considerations during the course of ans, the private sector and local communities, and implementation. In addition, the country office involving national researchers and academics developed a strong advocacy strategy on both issues. strengthened national ownership. For the theme of HIV/AIDS, UNDP provided The mainstreaming of cross-cutting issues, such support to the formulation of a National as gender, was envisaged mainly through a Strategic Framework. It also conducted a number planned project for improved cooking stoves. of capacity-building and support activities in Unfortunately, that activity had to be abandoned favour of the Permanent Executive Secretariat/ for lack of funding. The combination of up- and National Council to Fight AIDS and STDs downstream interventions provided two levels of (SEP/CNLS),43 in addition to providing training entry that were useful in building a positive to teachers and religious leaders. In cooperation image of UNDP with the population, govern- with UNICONGO,44 UNDP helped some 30 ment counterparts and parliamentarians. private-sector operators develop a strategy to address HIV/AIDS on work sites. The Global By their nature, interventions in the fields of Fund to Fight AIDS, Tuberculosis and Malaria environment and energy have important regional provided a large grant to SEP/CNLS, mainly due and subregional linkages. The programme has to the support provided by UNDP country office. effectively integrated a subregional approach and has built bridges with initiatives requiring UNDP interventions related to gender took the coordination among countries from the form of advocacy and support to women in subregion. The technical and financial support politics described in Box 2 in section 3.2, from the Regional Centre in Dakar was highly covering good governance programmes.

43 Secrétariat Exécutif Permanent/Conseil National de Lutte contre le SIDA et les IST. 44 UNICONGO is the private sector Inter-professional Union of the Congo, grouping manufacturers and national and international industrial firms operating in the country.

CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS 37 Two major activities were undertaken relating to funding for an Internet connection. UNDP also NICT.The first consisted of support given to the assisted the Ministry of Finance with the creation formulation of a national strategy on NICT. The of a Web site designed to facilitate citizen access second represented direct interventions to help two to information on government projects and national institutions, the Parliament and the Ministry programmes. Despite the Web site’s creation, the of Finance. UNDP helped create an information and Ministry did not activate the service. In the absence research centre for parliamentarians. Unfortunately, of national follow-up, the two interventions have the centre is not yet operational due to lack of failed to produce the expected results.

38 CHAPTER 3. UNDP CONTRIBUTION TO DEVELOPMENT RESULTS Chapter 4 CONCLUSIONS AND RECOMMENDATIONS

This chapter reviews the main conclusions of this in rural areas, justifies an approach that moves from evaluation, addressing the relevance of UNDP targeting ex-combatants to a more generalized, interventions during 2004–2007, their effectiveness pro-poor and community-based approach. in contributing to development results, the sustain- ability of these results and the strategic positioning However, the programme should continue to of the UNDP country office. It also provides address issues related to peace consolidation45 recommendations on possible future directions. through more upstream interventions aimed at improving governance, developing poverty reduction actions that address whole communities, 4.1 THE RELEVANCE OF UNDP and fostering public security. The latter would INTERVENTIONS benefit from a focus on developing legislation on The areas of interventions in which UNDP firearms and the management of national arms engaged correspond to expressed national priorities, depots. In the phase that should follow the the broad corporate parameters of the organization, second cycle of elections, UNDP should concen- and to the genuine needs felt by the Congolese trate on peace consolidation initiatives in areas of population at large. UNDP interventions address recognized UNDP competence. problems perceived by the Congolese as crucial to their well-being and development. Most of these The regular resources allocated by UNDP to the interventions are aligned with areas where Republic of the Congo are relatively meagre when UNDP has recognized competence and expertise, compared to the vast needs of the population, the including promotion of good governance, develop- majority of which lives below the poverty line. ment of pro-poor strategies, support to national This has forced the country office to develop an environmental policies and plans, and disarmament aggressive fundraising strategy that diverted staff through community action. However, some activi- away from important tasks and, at times, created ties, such as infrastructure-rehabilitation projects, misunderstanding and annoyance with partners. are less in line with UNDP competencies. It has also reduced the capacity of the office to use regular resources as seed money for larger projects, The country programme continued to feature a with a view towards attracting both donor number of activities that were either a continuation funding and national cost-sharing contributions. of the previous cycle’s post-conflict projects or were targeted to beneficiaries defined in relation The special circumstances of the Republic of the to a conflict that ended almost 10 years ago. The Congo, specifically its low human development generalized poverty affecting the whole population index despite the technical classification as a and the difficult economic conditions, particularly lower middle-income country, should prompt the

45 The three areas of peace consolidation as used in this report reflect the conclusions of the Tokyo International Conference on African Development meeting in Addis Ababa on 16–17 February 2006.

CHAPTER 4. CONCLUSIONS AND RECOMMENDATIONS 39 country office, with support from UNDP locations has been sensible and the intention of headquarters, to develop new funding strategies. making at least some of these offices UN hubs was During the process of finalizing this report, laudable. Unfortunately, the reality fell short of the evaluation team was informed that UNDP expectations as, in terms of management and had already negotiated increased cost-sharing organization, the offices remained more UNDP agreements with countries facing similar than UN offices. The offices did provide useful situations.46 The formula could be explored for services to visiting members of the UN team, but the Republic of the Congo. At a minimum, this neglected the necessary linkages with other would require that the government, through organizations, including NGOs. Despite some cost-sharing from national resources, matches management weaknesses and a too-sporadic presence UNDP inputs from regular resources. of senior staff, the office in Kinkala, in the department of Pool, became an important symbol of return to normalcy in that troubled region. 4.2 EFFECTIVENESS OF UNDP INTERVENTIONS Cross-cutting themes of gender and HIV/AIDS were not always taken into account at the initial UNDP programmes in the Republic of the Congo planning phase, but were re-introduced during have combined up- and downstream activities. the course of implementation. Additional Upstream, UNDP has been instrumental in attention will be needed during the project developing a number of national strategy design phase in order to ensure more systematic documents and plans of action, as well as legislation mainstreaming. The intention of the country on a number of issues crucial for the promotion office to more systematically include the environ- of democratic institutions, improvement of ment as an underlying concern in the design of governance, protection of the environment, development projects should be encouraged. gender equity, HIV/AIDS, pro-poor policy formulation and the attainment of the MDGs. In general, the definition of outcomes and their This has been accompanied by a very visible and indicators remains weak. More importantly, effective advocacy effort, which has been one of however, even when valid indicators exist, the the main strengths of UNDP in the Republic of country office and project management staff do the Congo. not have the human or financial resources needed to ensure proper monitoring. This makes proactive Downstream interventions have been essential programme management more difficult in the for UNDP to gain the credibility and access absence of measurable indicators of progress and needed to effectively engage in advocacy on effect. It similarly complicates the final evaluation several politically sensitive issues. This combina- of programmes. Commendable work has been tion of two levels of entry has been commendable done for the development of outcomes, indica- and productive. tors and means of verification in preparation for the UNDAF of 2009–2013. This represents an UNDP has also succeeded in developing important opportunity for UNDP to improve its own synergies between some projects and activities, performance and develop a joint UN approach to particularly in its support of former combatants some monitoring and evaluation functions. and its advocacy with parliamentary institutions. 4.3 SUSTAINABILITY OF RESULTS One of the important aspects of UNDP action in the country has been the development of a field The sustainability of results achieved with UNDP presence outside the capital. The choice of support remains problematic. For upstream

46 The examples of Botswana and Gabon were cited.

40 CHAPTER 4. CONCLUSIONS AND RECOMMENDATIONS interventions where the output was defined as basis. UNDP would need to initiate discussions the development of a national strategy or on this important issue with the government, workplan, it often happened that the outputs possibly on the basis of the formula mentioned in were successfully produced but did not yield the section 4.1. A cost-sharing approach should anticipated effects. This evaluation has used the become the rule rather than the exception. phrase ‘dormant success’ to describe this gap between successful outputs and the absence of Human resource weaknesses within the civil effective results. It is hoped that the expected service remain a factor impeding both efficient results will materialize, if future authorities national participation in programme activities and exercise the necessary political will and allocate full national ownership. A number of capacity- appropriate human and financial resources. building initiatives have been implemented under various projects. The effort, however, could Such an end result is often the same for down- have been more systematic and structured. It stream projects, in which sustainability depends would be useful for UNDP to link to existing upon local communities and their management initiatives, so as to promote a concerted and committees pursuing these activities with their coordinated capacity-building effort between own resources after the UNDP-supported initial donors and the government. phase. The situation is considered a little better for income-generating assistance to individuals 4.4 UNDP STRATEGIC POSITIONING or small groups, although the longer term monitoring of initial successes is weak or absent. UNDP has made judicious decisions in the selection of its intervention areas. At this The consequences of lacking sustainability juncture, it is appropriate to question the include a gradual loss of the benefits of the project, continued pertinence of continuing post-conflict lack of subsequent implementation of the activities beyond the current programme cycle. developed strategies and sectoral policies, and the UNDP should now build on its comparative complete abandonment of management structures advantages in the areas of good governance, the and instruments. It also means that effective development of pro-poor strategies, community development programmes, the regional approach UNDP exit strategies cannot be implemented. for environment and its strong advocacy services. The primary condition for sustainability remains UNDP has developed good relations with some the presence of the political will of authorities to civil society organizations and private sector address structural and procedural issues related to actors. A more structured partnership with the efficient allocation and utilization of public NGOs is needed. A number of consultative resources. In the programme design phase, mechanisms with wide participation exist, but UNDP could have given more attention to they can be rendered more effective and developing a more comprehensive exit strategy. meaningful. Coordination, on the other hand, is Such a strategy could include designating an relatively weak and initiatives are required to entity to take over the activity, the conditions to reflect on the issue with donors, the UN system, make this transition effective, and benchmarks to larger NGOs and the government. monitor the commitment and capacity necessary to assume full ownership of the programmes by The relations between UNDP and the multilateral national and local institutions or by relevant and bilateral development community have been community organizations. excessively based on financial partnerships. UNDP needs to reassert its intellectual leadership in Despite having the resources at their disposal, areas of its competence by capitalizing on its local authorities appear to have been hesitant to good work organizing thematic and consultative financially participate in projects on a cost-sharing groups for the preparation of major strategy papers.

CHAPTER 4. CONCLUSIONS AND RECOMMENDATIONS 41 UNDP participation in UN inter-agency coordi- n Greater attention during the project design nation has been effective, despite the remaining— phase to incorporating a sustainable exit and unavoidable—ambiguity resulting from the strategy, based on identifying the dual roles of UN Resident Coordinator and national mechanisms expected to take UNDP Resident Representative. over, defining conditions of an effective management transfer and establishing Overall, UNDP enjoys a favourable image in the benchmarks for monitoring relevant Republic of the Congo and has developed excellent preparations and the capacity of the relations with its government counterparts. The chosen national entity; media coverage of UNDP activities is intense n Intensified efforts in national capacity- and productive. building through establishing a compre- hensive and structured programme in close coordination with the government 4.5 RECOMMENDATIONS and other development actors; Twelve recommendations are derived from the n Continued gradual and prudent approach analysis contained in this report. These are: to increasing the national execution component of programmes; and GENERAL AND STRATEGIC ISSUES n A clear demonstration of the political 1. The next Republic of the Congo country will of national authorities in addition programme should build upon demonstrated to their commitment to assuming UNDP comparative advantages. These include ownership of programmes, in particular UNDP support for good governance, pro- through increased cost-sharing as poor and community development approaches, outlined in recommendation four above. a regional approach to environmental issues and 6. In close consultation with all partners, strong advocacy capability. UNDP should UNDP should start to reflect on ways to gradually phase out post-conflict activities. improve coordination among development 2. In order to ensure lasting stability and actors. This is of particular importance for sustainable development, peace consolidation good governance initiatives, in view of should become the central focus and the UNDP intent to further develop its underlying theme for most UNDP activities, support to some financial oversight and administrative institutions. particularly those in good governance and poverty reduction. OPERATIONAL ISSUES 3. UNDP should continue to emphasize the linkages between upstream and downstream 7. The UNDP country office in the Republic of approaches, intervening at both political and the Congo should vigorously pursue its efforts operational levels in all programmes. to improve programme delivery. In addition, measures of rewarding staff efficiency should 4. Based on experience in other countries, be established, and the new CEDAP should UNDP should engage the government in be independently evaluated in 2009, after negotiations aimed at increasing national two full years of operation. cost-sharing contributions to at least equal the resources allocated by UNDP. 8. The formulation of outcomes, indicators and means of verification should be improved. In 5. Particular attention needs to be devoted to possible collaboration with donor-partners, fostering national ownership and ensuring the UNDP country office must ensure that sustainability. This could include: sufficient financial and human resources are

42 CHAPTER 4. CONCLUSIONS AND RECOMMENDATIONS devoted to monitoring outcomes as well as and inclusive coordination hubs at the local outputs. In defining outcomes for the next level, promoting cross-fertilization, and under- UNDAF, UNDP should build upon inter- taking activities such as mapping development agency work and encourage the development and humanitarian actors, which was of a system-wide approach to outcome previously done through the UN Office for monitoring and evaluation. the Coordination of Humanitarian Affairs. 9. The country office should engage partners in 11. More attention should be given to the discussions geared towards improving the mainstreaming of gender and HIV/AIDS performance and efficiency of Project Review considerations into the country programme Committees and Steering Committees. during its initial design phase. 10. UNDP offices outside Brazzaville need to 12. While direct environmental interventions develop their services for the benefit of both should continue, particularly in subregional UN agencies and non-governmental organi- contexts, the country office’s intent to treat such zations. This should include creating open concerns as cross-cutting should be encouraged.

CHAPTER 4. CONCLUSIONS AND RECOMMENDATIONS 43

Annex I TERMS OF REFERENCE ASSESSMENT OF DEVELOPMENT RESULTS: REPUBLIC OF THE CONGO

1. BACKGROUND 2. OBJECTIVES OF THE ASSESSMENT The Evaluation Office of the United Nations The purposes of the evaluation are to assess Development Program (UNDP) regularly UNDP contributions to development results and conducts a number of country evaluations, its strategic positioning in the Republic of the referred to as Assessments of Development Congo, draw lessons learned and outline options Results (ADRs), in order to capture and for improvements. The ADR will: demonstrate evaluative evidence of UNDP contributions to development results at the n Provide an independent country-level assess- country level. Conducted in selected countries, ment of the relevance and effectiveness of the ADRs focus on outcomes, critically examine development results achieved through achievements and constraints in the UNDP UNDP support and in partnership with thematic areas of focus, draw lessons learned and other development actors during the last five provide recommendations for the future. The to seven years, with particular emphasis on ADRs also provide considered analysis for the UNDP country programme; enhancing performance and strategically n Contribute to accountability and to learning positioning UNDP support within national from experience, taking into account self- development priorities and UNDP corporate evaluations (project and outcome evalua- policy directions. tions) and the role of development partners;

The overall goals of the ADR are to: n Provide an analysis of how UNDP has positioned itself to add value in response to Provide substantive support to the n national needs and changes in the national Administrator’s accountability function in development context; and reporting to the Executive Board; n Present key findings, draw key lessons, and n Serve as a means of quality assurance for UNDP interventions at the country level; provide a set of clear and forward-looking options for management to make adjust- n Generate lessons from experience in order to ments in the current strategy and the next inform current and future programming at country programme. the country and corporate levels; and n Provide stakeholders in the programme 3. RATIONALE FOR THE EVALUATION country with an objective assessment of the results (specific outcomes) achieved through The UNDP programme in the Republic of the UNDP support and partnerships with other Congo has been selected for an ADR. There key actors during a given multi-year period. were numerous reasons for selection. The completion of the 2004–2007 Country An ADR is planned for the Republic of the Cooperation Framework (CCF) presents an Congo between the end of 2007 and the opportunity to evaluate the achievements and beginning of 2008. It will cover the period from results over the past programme cycle and before. 2004–2007, as well as some previous years. The findings will be used as inputs to the

ANNEX I. TERMS OF REFERENCE 45 2008–2011 country programme within the ment, which included information, education context of the new United Nations Development and awareness-raising; fighting marine coastal Assistance Framework. The challenges that the pollution; urban environment and improve- Republic of the Congo faced during the years ment of living standards; protecting the under the CCF can be summarized as the process forest eco-system; and international waters, of re-establishing political, economic and climate change and biodiversity; and environmental security. Assessing UNDP contri- bution to the process can yield lessons for the n Cross-cutting themes, such as HIV/AIDS, organization. In addition, the country office gender and development of new information acknowledged the need for and the timeliness of and communications technologies. the evaluation. The evaluation will undertake a comprehensive 4. SCOPE OF THE EVALUATION review of the UNDP programme portfolio and activities during the specified period. The process The ADR will review the UNDP experience in will assess key results, specifically outcomes— the Republic of the Congo and its contribution anticipated and unanticipated, positive and to overcoming social, economic and political negative—and will cover UNDP assistance challenges. The thematic focus of the evaluation funded by both core and non-core resources. will be the UNDP Country Cooperation Specifically, the ADR will address the: Framework (2004–2007), as well as some of the previous UNDP assistance organized on an ad a) Relevance of UNDP programmes: How hoc basis. In the latter category, various UNDP relevant are UNDP programmes to the projects focused on gradually re-establishing country needs in the context of post-conflict security, restoring basic social services, the recovery recovery? Did changes in the UNDP and/or creation of income-generating activities, approach reflect key national priorities? In and other activities in the areas of human rights, sum, did UNDP apply the right develop- democratic governance and public affairs. ment strategy within the specific political, economic and social context of the Republic The 2004–2007 CCF was formulated based on of the Congo? the Interim PRSP and the government development strategy, Nouvelle Esperance (New Hope). It b) Effectiveness: Did the UNDP programme incorporates concerns related to the achievement accomplish its intended objectives and of the Millennium Development Goals and of planned results? What are the strengths and the New Partnership for Africa’s Development. weaknesses of the programme? What unexpected results did it yield? Should it The priorities stressed in the country programme continue in the same direction, or should its refer to: main tenets be reviewed for the new cycle?

n Governance, which included building parlia- c) Sustainability: Are development results, mentary capacity, support for anti-fraud and achieved through UNDP contribution, corruption measures, support for local sustainable? Do they ensure sustainability governance by building the capacities of local with a focus on national ownership, an communities,and support for the elaboration enabling policy environment, capacity of governmental development strategies; development, gender equality, human rights or other key drivers that UNDP considers in Poverty reduction, such as UNDP assistance n assessing development effectiveness? targeted at the promotion of youth employment and the reintegration of ex-combatants; In addition, the evaluation will analyse the n Environmental and natural-resource manage- strategic positioning of UNDP, in order to:

46 ANNEX I. TERMS OF REFERENCE n Ascertain the relationship of UNDP support Statistical data will be assessed where useful. The to national needs, development goals and evaluation team will validate its findings using priorities, including its relevance and linkages triangulation of perceptions, documents and data. to the goal of poverty reduction and attaining other Millennium Development Goals; The Evaluation Office envisages a strong partici- patory approach involving concerned stakeholders. n Assess how UNDP anticipated and responded The identification of the stakeholders, including to significant changes in the national government representatives of ministries, agencies, development context, particularly those civil society organizations, private sector represen- affecting poverty reduction and governance tatives, United Nations agencies, multilateral reform for sustainable development; organizations, bilateral donors, and beneficiaries n Review the synergies and alignment of will take place. The team will visit significant UNDP support with other initiatives and project and field sites as required. partners—including the United Nations Development Assistance Framework, the The ADR will follow the guidelines developed Global Cooperation Framework and the by the Evaluation Office in 2006. According to Regional Cooperation Framework—and assess these guidelines, the process can be divided in how effectively UNDP has coordinated its three multi-step phases. work with other development partners; and PHASE 1: PREPARATORY PHASE n Consider the influence of systemic issues, such as the policy and administrative n Desk review: Carried out by the Evaluation constraints affecting the programme, on both Office in close consultation with the evaluation the donor and the programme county sides, Team Leader, the country office and the as well as how the development results Regional Bureau for Africa (RBA), the achieved and the partnerships established review will be based on the key questions for have contributed to ensure the UNDP the evaluation, developed by the evaluation Task relevance and strategic position. Manager and Team Leader in consultation with RBA.

5. METHODOLOGY n Scoping mission: The evaluation team will conduct a brief mission to the country to define The assessment will use a multiple method scope, identify stakeholders, collect additional approach that includes desk reviews, workshops and data and complete the evaluability assessment. meetings, and group and individual interviews at headquarter and field levels. The appropriate n Inception report: The report will include the methodology will be refined during the scoping final evaluation design and plan, background of the evaluation, key evaluation questions, mission and after further discussions between the detailed methodology, information sources team of evaluators and various stakeholders. and instruments, the plan for data collection, the design for data analysis, and the format The evaluation team will examine, when for reporting. appropriate, overall programming frameworks— e.g., United Nations Development Assistance PHASE 2: CONDUCTING THE ADR Framework, Common Country Assessment, AND DRAFTING EVALUATION REPORT Country Cooperation Framework—to provide an overall picture of the country context. The n ADR mission of data collection and validation: team will also consider select project and The main mission of two weeks will be programme support documents, as well as any conducted by the independent evaluation country-level monitoring and evaluation reports. team, led by the Team Leader.

ANNEX I. TERMS OF REFERENCE 47 n Analysis and reporting: The information n Review of programme performance; collected will be analysed in the draft ADR Lessons learned and good practices; report by the evaluation team within three n weeks of the team departing from the n Findings and recommendations; and country. The draft will be subject to factual Annexes (e.g., Terms of Reference, persons corrections by key clients and to a technical n met, documentation reviewed, statistics). review by the Evaluation Office. The Team Leader, in close cooperation with the Task Manager, shall finalize the ADR report 7. EVALUATION TEAM based on these final reviews. An international consultancy firm will undertake PHASE 3: FOLLOW-UP the assessment and will designate an evaluation team. The team will comprise three consultants, n Stakeholder meeting: A meeting with the one of whom will be the team leader, a team key national stakeholders will be organized specialist with specific skills in topical areas to present the results of the evaluation. relevant to the evaluation, and a national consultant Comments will be incorporated into the final with extensive knowledge of the country situation. evaluation report by the Team Leader. The team leader must have a demonstrated capacity in strategic thinking and policy advice n Management response: The preparation of and in the evaluation of complex programmes the management response and the tracking in the field. The team members should have of its implementation will be undertaken in-depth knowledge of developments in Africa internally by UNDP. and preferably be fluent in French.

n Learning events: The dissemination of the report’s findings shall serve the purpose The composition of the evaluation team shall reflect of organizational learning, as part of the the independence and the substantive results-focus overall Evaluation Office dissemination and of the evaluation. The Evaluation Office will outreach strategy. select the international evaluation consultancy firm.

6. EXPECTED OUTPUTS 8. MANAGEMENT ARRANGEMENTS The expected outputs are: EO will manage the evaluation, ensure coordina- tion and liaison with RBA and other concerned n An inception report (maximum 20 pages); and units at headquarter level. The Task Manager will manage the evaluation process, in close n A comprehensive final ADR report on the Republic of the Congo (maximum 50 pages consultation with RBA and the UNDP plus annexes). Brazzaville office management.

The final report of the ADR to be produced by The country office will take a lead role in the evaluation team should contain, at the organizing dialogue and stakeholder meetings on minimum: the findings and recommendations. The office will act as a liaison between key local partners n Executive summary of conclusions and and the evaluation team, ensure the team’s access recommendations; to all available materials and provide support to logistics and planning. n Background, with analysis of country context;

n Assessment of strategic positioning and The Evaluation Office will meet all costs directly programme relevance; related to the conduct of the ADR. These will

48 ANNEX I. TERMS OF REFERENCE include costs related to participation of the Team n Inception meetings in New York: Leader, international and national consultants, as 21–25 January 2008 well as the preliminary research and the issuance of the final ADR report. The country will n Scoping mission to the Republic of the contribute in-kind support. The Evaluation Congo: 28 January – 4 February 2008 Office will also cover costs of any stakeholder n Main ADR mission to the Republic of the workshops as part of the evaluation. Congo: 28 February – 12 March 2008

The timeframe and responsibilities for the n Submission of final draft report: evaluation process are as follows: 25 March 2008 n Desk review and analysis of documentation: n Submission of final report: January 2008 22 April 2008

ANNEX I. TERMS OF REFERENCE 49

Annex II KEY DOCUMENTS REVIEWED*

Adote, Mougani, and Oschauldes, Ibata, ‘Rapport International Monetary Fund, ‘Republic provisoire d’évaluation, projet Action of Congo – Chairman’s Summing Communautaire pour le rétablissement up, President’s Memorandum and post-conflit’ [‘Evaluation of Community Recommendation and Decision Point Action Project’], February 2006. Document under the Enhanced Heavily Indebted Poor Country (HIPC) Initiative’, African Development Bank/African 24 February 2006. Development Fund, ‘République du Congo: International Monetary Fund, ‘Oil and Growth Document de stratégie par pays axée sur les in the Republic of Congo’, IMF Working résultats – DSPAR 2008–2012’ [‘Results- Paper, August 2006. based strategy document 2008–2011’]. International Monetary Fund, ‘Republic of African Ministerial Conference on Congo: Selected Issues Paper’, 9 April 2007. Environment, ‘Action Plan of the Makita-Mbama, Albert, ‘Rapport de l’étude Environmental Initiative of NEPAD’, d’analyse du projet Action communautaire adopted in Maputo, June 2003. pour le relèvement des communautés Ahounmènou, E.B., ‘Rapport de mission: Appui et la réintégration sociale des jeunes à à la mise en place du CEDAP’ [‘Mission risque (PRESJAR)’, mid-term review, Report: Support to the Setting up of the Brazzaville, undated. CEDAP’], 20 August – 8 September 2007. Parliament of the Republic of the Congo, Statement of Congolese Parliamentarians Centre for International Cooperation, on a healthy and sustainable environment, University of Bradford, ‘Assessing and Brazzaville, 3 December 2004. reviewing the impact of small arms Parliament of the Republic of the Congo, availability and poverty: a case study of Statement of Commitment of the Republic of Congo UNDP/IOM Parliamentarians to the Fight against ex-combatants Reintegration and small HIV/AIDS, Dolisie, 1 December 2002. arms collection project’, May 2004. Parliament of the Republic of the Congo, Defoundoux-Fila, Hyacinthe, ‘Rapport Statement of Parliamentarians on the Fight d’exécution technique et financier: against Poverty: Identification of Root Séminaires ateliers sur le renforcement des Causes and the Role of Parliamentarians, capacités des ONG en matière de lutte Brazzaville, 8 March 2002. contre la corruption’ [‘Report on Seminars Republic of France, ‘Framework partnership and Workshops for the Strengthening of document, France-Congo (2007–2011)’, NGO Capacity in the Fight Against available online at: www.diplomatie.gouv.fr. Corruption’], Brazzaville, 2007. Republic of the Congo, ‘Projet de Constitution’ Economic Intelligence Unit, ‘Country Profile, [draft Constitution], Brazzaville, 29 Congo (Brazzaville)’, September 2007. November 2001. International Monetary Fund, ‘Country Report Republic of the Congo, ‘Enquête congolaise auprès des ménages pour l’évaluation de la no 06/206’, July 2006. pauvreté (ECOM 2005)’ [‘Congolese International Monetary Fund, ‘Country Report Household Survey for the Evaluation of no 07/206’, June 2007. Poverty’], April 2006.

* Project documents, reports and financial tables, as well as numerous briefing notes provided by the UNDP country office, are not listed.

ANNEX II. KEY DOCUMENTS REVIEWED 51 Republic of the Congo, draft Poverty Reduction UNDP, ‘Draft Country Programme Document Strategy Paper, January 2007. for the Republic of the Congo (2004- Republic of the Congo, ‘Interim Poverty 2007)’, Executive Board document Reduction Strategy Paper (I-PRSP) of the DP/DCP/PRC/1, 28 July 2003. Congo’, 27 September 2004. UNDP, ‘Evaluation finale: Action communau- Republic of the Congo, ‘La nouvelle espérance : taire pour le rétablissement post-conflit en projet de société du Président de la République du Congo’ [‘Final Evaluation: République du Congo, son Excellence Community Action for Post-conflict Monsieur Denis Sassou Nguesso’ [New Rehabilitation’], undated. Hope: Social Platform of H.E. President Denis Sassou Nguesso], 2002. UNDP, ‘Evaluation Report: Support to Parliamentarian Institutions’, Brazzaville, Republic of the Congo, Law on Political Parties, 2006. 17–23 June 2003. Republic of the Congo, Ministry of Planning, UNDP, ‘Evaluation of Results-Based Draft National Plan for Reaching the Management at UNDP’, Evaluation Office, MDGs in the Congo, 6th draft, New York, 2007. December 2007. UNDP, ‘Information on TRAC-2 Allocation Republic of the Congo, ‘Plan national de and Methodology and Criteria for lutte contre la corruption’ [‘National Establishing Fixed Lines in the Anti-corruption Plan’], adopted by the Programming Arrangements’, Executive Government on 4 June 2004. Board document DP/2008/14, Republic of the Congo, ‘Rapport national sur le 14 December 2007. développement humain 2002: Guerres, et UNDP, ‘Proposals on Programming après?’ [‘National Human Development Arrangements for the Period 2008–2011’ Report 2002: Wars, and After?’], 2002. Executive Board document DP/2007/44, Republic of the Congo, ‘Rapport national sur 3 August 2007. le développement humain: Gouvernance, cohésion sociale et développement humain UNDP, ‘Measuring Democratic Governance, durable en République du Congo’ A Framework for Selecting Pro-poor and [‘National Human Development Report: Gender-sensitive Indicators’, May 2006. Governance, Social Cohesion and UNDP, ‘Mission d’évaluation des modalités Sustainable Development in the d’exécution nationale (NEX) et Republic of the Congo’], 2007. exécution ONG des programmes/projets Republic of the Congo, ‘Rapport National de développement mis en œuvre avec sur les Objectifs du Millénaire pour le l’appui du PNUD au Congo’ Développement’ [‘National MDG Report’], [‘Evaluation Mission on NEX/NGO Brazzaville, August 2004. Implementation Mechanisms’], Republic of the Congo, The World Bank and Brazzaville, 11 October 2006. European Commission, ‘La République du Congo: Evaluation intégrée de la gestion UNDP, ‘Programming Arrangements for the des finances publiques et de la passation des Period 2004–2007: Information Note to the marchés’ [‘Country Integrated Fiduciary Executive Board”, 10–14 September 2007. Assessment – CIFA’], June 2006. UNDP, ‘Protocole d’accord entre le PNUD Small Arms Survey, ‘Small Arms Availability, et la société TOTAL’, [‘Agreement between Trade and Impacts in the Republic of the UNDP and TOTAL in the Republic of Congo’, study prepared for the International the Congo’], 2007. Organization for Migration and UNDP, UNDP, ‘Rapport d’évaluation du projet April 2002. Prévention du SIDA dans les écoles du Small Arms Survey, ‘Quoi de neuf sur le front Congo’ [‘Evaluation Report on the Project Congolais? Evaluation de base sur la for the Prevention of AIDS in Schools in circulation d’armes légères et de petit calibre en République du Congo’ [‘Survey the Congo’], Brazzaville, April 2006. of Small Arms Circulation in the Republic UNDP, ‘Regional Programme Document for of the Congo’], December 2007. Africa, 2008–2011’.

52 ANNEX II. KEY DOCUMENTS REVIEWED UNDP, ‘Second Regional Cooperation United Nations Country Team in the Republic Framework for Africa – 2002–2006’. of the Congo, ‘Bilan commun de pays UNDP, ‘Second Multi-year Funding (CCA), Congo’ [‘Common Country Framework, 2004–2007’, Executive Board Assessment, Republic of the Congo], document DP/2003/32, 13 August 2003. Brazzaville, February 2005. UNDP, ‘UNDP Strategic Plan, 2008-2011, United Nations Country Team in the Republic Accelerating Global Progress on Human of the Congo, ‘Draft UNDAF – 2009–2013’. Development’, Executive Board document United Nations, ‘Consideration of Reports DP/2007/43, 18 July 2007. Submitted by State Parties under Article Union Interparlementaire et Assemblée 18 of the Convention on the Elimination Nationale française and French National of All Forms of Discrimination against Assembly, ‘Rapport de la mission Women; Initial, Second, Third, Fourth d’évaluation et de proposition auprès du and Fifth Periodic Report of State Parlement de la République du Congo’ Parties: Congo’, UN document [‘Joint Interparliamentary Union and CEDAW/C/COG/1-5, 8 April 2002. French National Assembly Evaluation of United States of America, Bureau of the Programme of Support to Parliamentary Democracy, Human Rights and Labor, Institutions’], 21–27 April 2006. ‘Country Reports on Human Rights Union for Study and Research on Population Practices: Republic of Congo’, and Development and the Republic of the 6 March 2006. Congo, ‘La corruption et la fraude en The World Bank, ‘Country Profile, Republic République du Congo’ [‘Corruption and of the Congo’. Fraud in the Republic of the Congo’], The World Bank, ‘République du Congo: November 2003. Projet d’Appui à l’Education de Base United Nations Country Team in the Republic (PRAEBASE), Mission de Supervision’, of the Congo, ‘UN Plan Republic of the Brazzaville, 1–12 October 2007. Congo– 2001–2002’, undated. The World Bank, ‘Note Analytique sur les United Nations Country Team in the Republic Marchés Publics (Country Procurement of the Congo, ‘UN Plan 2002: Together…’, Issues Paper – CPIP: République du Brazzaville, 2002. Congo)’, 10 February 2006.

ANNEX II. KEY DOCUMENTS REVIEWED 53

Annex III PEOPLE CONSULTED

GOVERNMENT OF THE Col. Michel Sangha, Prefect, Pool Department REPUBLIC OF THE CONGO Etari Wa Dzon, Planning and Development Department, Ministry of Planning Germain Bemba-Bantsimba, Inspector of Municipal Services, Township of Pointe-Noire CIVIL SOCIETY Benjamin Boumakany, General Secretary of the Government Lilian Barros, Coordinator, Comptoir Juridique Junior (legal aid NGO) Jean Marie Bossina, Third Secretary, Permanent Mission of the Republic of the Congo to Yvonne Bantsimba, Manager, Kinsoudi Primary the United Nations, New York School, Brazzaville Chantal Maryse Itoua-Apoyolo, First M. Bitsangou, Deputy-Treasurer, Local Counsellor, Permanent Mission of the Community Management Group, Kinsoudi Republic of the Congo to the United Primary School, Brazzaville Nations, New York El Hadj Djibril Bopaka, Union Nationale des Jocelyne Milandou, Vice President, Cour des Opérateurs Economiques Congolais Comptes et de Discipline Budgétaire (Employers Union) (equiv. General Accountant Office) Serge Bouiti-Viaudio, Coordinator, Human Pierre Ngollo, First Secretary, Bureau of the Development Programme, TOTAL-Congo National Assembly Scholastique Dianzinga, Centre de Promotion Alphonse Nzoungou, President, de la Femme en Politique (NGO for the National Commission of the promotion of women in politics) Fight against Corruption Father Christian de la Breteche, President, Jean-Christoffe Okandza, Chief of Staff, Forum of Junior Enterprises (NGO) Ministry of Planning Hervé Diata, Dean, Faculty of Economic Emmanuel Okandze, Administrative Counsellor, Sciences, Marien Ngouabi University Bureau of the National Assembly Georgette Ingani, Regional Director, Luc Joseph Okio, Minister Counsellor, Centre Régional pour l’Eau Potable et Permanent Mission of the Republic of the l’Assainissement (water and sanitation NGO) Congo to the United Nations, New York Florent Kihoulou, General Secretary, M. Oko-Olingoba, Chief of Staff, Bureau Fondation Niosi of the National Assembly Marie-Françoise Kimbadi, Director (Group B), Mwaziby Olingoba, Commissioner for the Kinsoudi Primary School, Brazzaville Economic Reintegration of Former Tsaty Mabiala, General Secretary, Union Pan- Combatants, HCREC Afracaine pour le Développement Social Jean-Baptiste Ondaye, Director General, (political party) Ministry of Planning Célestine Matsima, Director (Group A) Gilbert Pana, Director, Government Publication Kinsoudi Primary School, Brazzaville and Documentation Florent Mboungou, Executive Director, Emilienne Raoul, Minister of Health, Social Association Congolaise du Bien-Etre Affairs and Family Familial (family welfare NGO)

ANNEX III. PEOPLE CONSULTED 55 Loamba Moke, General Secretary, Association OFFICE OF THE RESIDENT pour la Défense des Droits Humains COORDINATOR et de l’Univers Carcéral (human rights and prisons NGO) Lydia Kassa, Coordination Advisor Jules Arsène Myningou, Chief, Environment Department, TOTAL-Congo UNDP COUNTRY OFFICE Octave Gildas Ndalla-Bikoumou, Micro-finance Expert, Forum of Aurélien Agbénonci, Resident Representative Junior Enterprises (NGO) Aderemi Aibiou, Head of United Nations Jeannin Ndamba, Environment Expert, office, Kinkala Free University of the Congo Normand Alouna, Finance Officer Roch Euloge Nzobo, Programme Officer, Emelyne Bayanda, Adviser, Governance and Observatoire Congolais des Droits de Peace Consolidation Unit l’Homme (human rights NGO) Isidore Dianzinga, Chief Technical Adviser, Jean-François Obembé, General Secretary, Project on Climate Change Mouvement pour la Solidarité et le Luisa Dologuélé, Manager, CEDAP Développement (political party) Max M. Fira, Governance Unit J.J. Samba, General Secretary, Union Patronale Joseph Ikoubou, CEDAP et Inetr-Professionnelle du Congo Jean-Félix Issang, Officer in Charge of UNICONGO (employers union) Environment Programmes Violet Kakyomya, Deputy DEVELOPMENT PARTNERS Resident Representative Christelle Kotolo, Head of UNDP Office in Wilfred Banmbuh, Representative, Pointe-Noire World Food Programme Eloi Kouadio IV, CEDAP Aliénor Bernhard, Deputy Representative, Daniel Mikayoulou, Advisor, Poverty and International Committee of the Red Cross Environment Unit Arnaud Borchard, Chargé d’Affaires, Joseph Ntsiefe, in charge of CFC project European Commission Rimteta Ranguébaye, Economist Rose-Belle Da Silva-Rodrigues, Attachée de Nadège Zoula, Poverty Unit and Gender Coopération et d’Action Culturelle, Focal Point French Embassy Anicet G. Dologuélé, President, Banque de Développement des Etats d’Afrique UNITED NATIONS NEW YORK Centrale (Regional Development Bank of Central African States) David Bongwele, Political Affairs Officer, Department of Political Affairs Rizzi Domenico, Italian Embassy Sammy Kum Buo, Director, Africa II Division, Louani Mahamat Goadi, Senior Expert in Department of Political Affairs Human Development, The World Bank Inyang Ebong-Harstrup, UNDG Office Serge Mbongolo, Communication Officer, Aida Mengistu, Associate Humanitarian International Committee of the Red Cross Officer, UN OCHA Bienvenu Monthe Biyoudi, Economist in charge Stephen O’Malley, Chief, Africa I Section, of Operations, The World Bank UN OCHA Ariane Tombet, Representative, International Micheline Ravololonarisoa, Chief, Africa Committee of the Red Cross Section, United Nations Development Koen Vanormelingen, Representative, UNICEF Fund for Women

56 ANNEX III. PEOPLE CONSULTED UNDP NEW YORK

EVALUATION OFFICE REGIONAL BUREAU FOR AFRICA Nurul Alam, Deputy Director René C. Giraud, Country Programme Adviser Oscar Garcia, Evaluation Adviser Ade M. Lekoetje, Country Programme Adviser Sergio Lenci, Evaluation Adviser Saraswati Menon, Director BUREAU FOR CRISIS PREVENTION Howard Stewart, Evaluation Adviser AND RECOVERY Juha Uitto, Evaluation Adviser Laurent Rudasingwa, Programme Specialist and BUREAU FOR DEVELOPMENT POLICY Regional Focal Point for Africa

Selim Jahan, Director, Poverty Practice UNDP ENVIRONMENT AND ENERGY GROUP, Terence D. Jones, Democratic REGIONAL COORDINATION UNIT FOR WEST Governance Group AND CENTRAL AFRICA Jeffrey O’Lalley, Director, HIV/AIDS Group Abdoulaye Ndiaye, Regional Team Leader and Bharati Silawal-Giri, Gender and Regional Technical Adviser Biodiversity and Development Adviser International Waters

ANNEX III. PEOPLE CONSULTED 57

Annex IV INFORMATION NOTE*

The Evaluation Office of the United Nations n Prevention and reconstruction in a post- Development Programme (UNDP) has requested conflict situation; and that Abacus International Management L.L.C. The cross-cutting themes of gender, HIV/ provide a team of independent consultants to n AIDS and new information and communi- evaluate the contribution of UNDP to develop- cations technologies. ment results in the Republic of the Congo. This exercise will primarily concern the period of 2004 to 2007. It will endeavour to analyse the projects The team will also be concerned with non- and activities of UNDP and to compare the results budgetary activities and those implemented with of these actions to those that were anticipated when small budgets, including advocacy, the develop- the currently ending programme cycle was adopted. ment of partnerships, the development of The evaluation will take place between January national capacities, etc. and April 2008. The evaluation team is entirely independent from UNDP. It is composed of With regard to activities and programmes, the Abdenour Benbouali, Hyacinthe Defoundoux-Fila analysis carried out by the evaluation will address and Carrol Faubert, who will act as Team Leader. the relevance of strategic and programmatic choices of UNDP, the efficiency of intervention, For its research work, the evaluation team will visit the sustainability of results achieved, the national the Republic of the Congo between 24 February ownership, the strategic positioning of UNDP and 10 March. It will meet, individually or in and its comparative advantages. groups, with the principal partners of UNDP in the government, as well as with donors, international The following list represents some of the agencies and organizations, international financial principal questions, to which the evaluation team institutions, non-governmental organizations will try to find answers. These questions will and civil society representatives. The evaluation constitute the thread of discussion the team will team will also meet persons and groups who are not have with you and other persons consulted. directly engaged in a partnership with UNDP, 1. What have been the main UNDP contribu- but who can contribute to the understanding of tions to development in the Republic of the actions in favour of development, reconciliation Congo? What could it have done differently and reconstruction. to improve these contributions? Has UNDP made the right strategic choices? The evaluation will analyse the major themes of the 2004–2007 programme, which support: 2. Has UNDP been able to correctly analyse an evolving situation and to anticipate and adapt Good governance; n its interventions, programmes and projects to n Poverty reduction; the environment in which it operates? n The preservation of the environment and the 3. Have UNDP programmes correctly reflected management of natural resources; national priorities? Do programmes fit in

* Unofficial translation from an original in French.

ANNEX IV. INFORMATION NOTE 59 harmoniously with the efforts of other 10. Does UNDP play an important part in the components of the international community coordination between the different actors in the Republic of the Congo? supporting development in the Congo? According to you, what is the UNDP “value 4. Have the results achieved, positive or added” in the development aid set up in the negative, in the areas of UNDP intervention Republic of the Congo? been due to the efforts and activities of UNDP or to external factors? 11. What do you think of UNDP interventions in advocacy activities, coordination, the 5. Are these results of a permanent nature? Can development of partnerships and capacity they be sustained? building? Do you think that the actions and 6. Do you see UNDP as a reliable and useful interventions of UNDP have an effect on partner? How could it improve its relations sectoral and national policies? with you and, generally, its image as an 12. Do the UNDP interventions contribute efficient partner for the development of the efficiently to supporting national efforts for Republic of the Congo? the attainment of the Millennium Development Goals? 7. According to you, what determines the strategic and programmatic choices of Should you wish to send the evaluation team UNDP? What are the external factors written comments prior to its arrival, you may do influencing UNDP choices? so by sending an e-mail directly to the Team 8. Is UNDP perceived as an important agent of Leader, or to the officer responsible for this change in the areas of governance, poverty evaluation in the UNDP Evaluation Office in reduction, environment protection, reconcili- New York. We would also be grateful if you could ation and reconstruction, the promotion of identify any documentation that could be useful gender equality and the fight against to the evaluation team and, if the documents exist HIV/AIDS? in electronic form, send them to the addresses above or provide a copy at the time of meeting 9. Does the entire UNDP programme and its with the team. The evaluation team will need various projects, particularly in the areas of documents, statistics and precise facts. governance and poverty reduction, convinc- ingly incorporate the stated priority of the The evaluation team, promotion of women? Brazzaville, February 2008

60 ANNEX IV. INFORMATION NOTE