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Terminal Evaluation of the UNEP/GEF Project

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Terminal Evaluation of the UNEP/GEF Project United Nations Environment Programme Terminal Evaluation of the UNEP/GEF Project “Russian Federation – Support to the National Programme of Action for the Protection of the Arctic Marine Environment” Prof. Dr. Ivan Holoubek & Oleg Sutkaitis UNEP Evaluation Office September 2012 Table of Contents Project Identification Table _________________________________________________ i Executive summary ________________________________________________________ ii 1. Evaluation background ________________________________________________ 1 A. Context _____________________________________________________________________________ 1 B. The Project __________________________________________________________________________ 2 C. Evaluation objectives, scope and methodology ____________________________________________ 4 C. 1 Objective and Scope of the Evaluation ________________________________________________ 4 C. 2 Overall Approach and Methods ______________________________________________________ 4 C. 3. Limitations and Constraints ________________________________________________________ 5 2. Project performance and impact ___________________________________________ 6 A. Attainment of objectives and planned results ___________________________________ 6 A.1 Achievement of outputs and activities __________________________________________________ 6 A.2 Relevance __________________________________________________________________________ 7 A. 3 Effectiveness _______________________________________________________________________ 9 A.4 Efficiency _________________________________________________________________________ 11 A.5 Review of outcomes to impacts _______________________________________________________ 11 B. Sustainability and catalytic role _____________________________________________ 19 B. 1 Sustainability _____________________________________________________________________ 19 Socio-political sustainability __________________________________________________________ 19 Financial sustainability _______________________________________________________________ 20 Sustainability of institutional frameworks _______________________________________________ 20 Environmental sustainability __________________________________________________________ 21 B. 2 Catalytic Role and Replication _______________________________________________________ 22 C. Process affecting attainment of project results _________________________________ 24 C. 1 Preparation and Readiness __________________________________________________________ 24 C.2 Implementation Approach and Adaptive Management ___________________________________ 25 C. 3 Stakeholder Participation and Public Awareness ________________________________________ 26 C. 4 Country Ownership and Drivenness __________________________________________________ 27 C. 5 Financial Planning and Management __________________________________________________ 27 C. 6 UNEP Supervision and Backstopping __________________________________________________ 28 C. 7 Monitoring and Evaluation __________________________________________________________ 29 Monitoring and Evaluation Design _____________________________________________________ 29 Monitoring and Evaluation Plan Implementation _________________________________________ 29 C. 8 Complementarities with UNEP strategies and programmes _______________________________ 30 Alignment with the Bali Strategic Plan __________________________________________________ 30 Gender _____________________________________________________________________________ 30 South – south cooperation _____________________________________________________________ 30 3. Conclusions and recommendations _______________________________________ 30 A. Conclusions and ratings _____________________________________________________ 30 B. Lessons learned ____________________________________________________________ 36 C. Recommendations __________________________________________________________ 37 D. Suggestions for Future Action ________________________________________________ 38 Annex 1: Evaluation TORs __________________________________________________ 44 Annex 2: Project costs and co-financing tables ________________________________ 62 Annex 3: List of persons met and interviewed ________________________________ 63 Annex 4: List of documents reviewed ________________________________________ 64 Annex 5: Extended Summary of Final Report on Environmental Restoration Within the Decommissioned Military Facility near Pokrovskoye Settlement, Onega Municipality, Arkhangelsk Region __________________________________________ 65 Annex 6: Brief CV of the consultant __________________________________________ 68 2 List of Acronyms AEPS Arctic Environmental Protection Strategy ACAP Arctic Council Plan of Action to Eliminate Pollution of the Arctic AMAP Arctic Monitoring and Assessment Program AZRF Arctic Zone of the Russian Federation BASISS Demonstration project: Environmental Remediation of Decommissioned Military Bases on Franz Josef Land Archipelago BC Black Carbon DGEF Division of GEF Coordination (UNEP) EA Executing Agency ED Executive Directorate EPS Environmental Protection System FJL Franz Josef Land archipelago FSP Full Size Project FTOP Federal Target Oriented Programme ‘World Ocean’ GEF Global Environment Facility GOR Government of Russia GPA UNEP Global Program of Action for the Protection of the Marine Environment from Land-based Activities IA Implementing Agency IAWG Interagency Work Group IEP Investment Ecological Projects MNR Ministry of Natural Resources and Ecology MOED Ministry of Economic Development MOF Ministry of Finance M&E Monitoring & Evaluation MTR Mid-Term Review NGO Non-Governmental Organization NPA National Plan of Action NPAF National Pollution Abatement Facility OP Operational Programme PAME Protection of Arctic Marine Environment PD Project Document PDF Project Development Facility PINS Pre-investment studies 3 PIR Project Implementation Review PO Project Office PSI Project Support Instrument RAIPON Russian Association of Indigenous Peoples of the North RF The Russian Federation SAP Strategic Action Programme SAO Senior Arctic Officials R&D Research and Development SMART Specific, Measurable, Achievable, Relevant, Time bound (indicators) SP Strategic Priority StC Project Steering Committee TER Terminal Evaluation Report TOR Terms of Reference TTPs Territories of traditional nature management by Indigenous Peoples of the North UNEP United Nations Environment Programme USD United States Dollar US-EPA Environmental protection Agency of the USA WB World Bank 4 Project Identification Table Table 1: The project background and rationale GEF project ID: 1164 IMIS number: GFL-2732-03-4694 Focal Area(s): International Waters GEF OP #: OP 10: Contaminants IW-3/SP-3: Balancing overuse and conflicting uses of water resources in GEF Strategic surface and groundwater basins that are transboundary in nature – Priority/Objective: Monitoring improved water use efficiency in demonstrations; GEF approval date: 31 July 2003 UNEP approval date: 18 July 2005 Planned start date for Intended completion July 2005 June 2010 phase I: date for Phase I Actual or Expected Actual start date: 1 September 2005 28 February 2011 completion date: Planned duration: 60 months Date of last Steering Project Type: Full Size Project (FSP) March 2011 Committee meeting: GEF Allocation: US$ 5 885 000 Co-financing US$ 5 800 000 PDF GEF cost US$ 306 666 PDF co-financing US$ 474 000 Total Cost: US$ 12 465 000 First Disbursement: 31 August 2005 Mid-term review March 2010 Terminal Evaluation First half 2011 Project implementing UNEP Country: Russian Federation agency: Project executing Ministry of Economic Development of the Russian Federation agency: Project partners: NEFCO, USEPA, Government of Iceland i Executive summary 1. The evaluated UNEP/GEF project “Russian Federation: Support of the National Programme of Action for the Protection of the Arctic Marine Environment” (NPA-Arctic) was designed during the period 1998 through 2000 to provide support for a National Programme of Action developed by the Russian Federation. The project’s global objective was to “protect the global marine environment in which the Arctic plays an important role”. The more specific objective of the project was to “develop and establish a sustainable framework to reduce the environmental degradation of the Russian Arctic from land-based activities on a systematic basis by the development and endorsement of the SAP in favour of all Arctic States and the global community, and to comply with obligations of the Russian Federation under international conventions and agreements taking into account the decisions and programmes of the Arctic Council”. As such, the project aimed to create conditions that would allow for capital investments to flow in the Russian Arctic in order to ensure long term protection of the coastal and marine environment of the Arctic, and to address the main root causes of trans-boundary pollution. 2. The project aims to overcome the existing environmental problems in the Russian Arctic, as well as to reduce possible risks of their occurrence, taking into account the influence of such threats and potential remedies on both the regional and global levels. This project was one of the initial set of the GEF-founded Global Programme of Action for the Protection of the Marine Environment from Land-based Activities (GPA/UNEP) demonstration projects, aiming to present an approach and methods to set up a national framework for action to address the identified
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